TABLE 1.-Dates of vocational rehabilitation acts by States prior to the Federal Vocational Rehabilitation Act, dates of acceptance of the Federal Act, and dates of inauguration of Federal relations 1

Data are from Vocational Rehabilitation of the Physically Handicapped, U. S. Office of Education (Vocational Education Bulletin No. 190 (Washington: U. S. Government Printing Office, 1936), p. 17, supplemented by data supplied by the U. S. Office of Education. Cooperation with the Federal Government was initiated through proclamation by the Governor accepting the national act. Accepted Federal act in anticipation of its passage.

A number of States have comprehensive legislation on Vocational rehabilitation. In others, however, the State rehabilitation acts are simply acceptances of the Federal Act.

If for any reason Federal participation were withdrawn, either temporarily or permanently, the States in the second group would be unable to continue their programs without further legislation. It would appear that the State acts should be made comprehensive and should provide for all phases of the program, including the administrative agency to direct the work and a definite statement as to correlation and coordination with other agencies. The State acts should not be limited to carrying out the policies of the Federal service.

The Federal Administrative Agency

The administration of the Vocational Rehabilitation Act of 1920 was placed under the Federal Board for Vocational Education. At the time of the passage of the Act the Board was in charge of the program for the vocational rehabilitation of disabled soldiers and sailors-a function which was taken over by the newly established Veterans' Bureau in 1921. On June 10, 1933, President Roosevelt, by Executive order, transferred the functions of the Federal Board for Vocational Education to the Department of the Interior and stipulated that the Board should act in an advisory capacity without compensation.14 The Secretary of the Interior, on October 10, 1933, placed the administration of the vocational education and the vocational rehabilitation functions in the United States Office of Education.15

Three months after the Vocational Rehabilitation Act was approved the Federal Board for Vocational Education issued a statement of policies to be observed in the administration of the Act (1920). It announced that as far as possible the same methods of administration and relationship with State boards would be maintained in rehabilitation as in vocational education. Two years later (1922) the second statement of policies of the Board with respect to vocational rehabilitation was published. A new statement of policies was published in 1926 and it was revised and reissued in 1933. The policies described in this study are those set forth in the statement issued in 1933.

14 Executive Order No. 6166.

15 "Union of Federal Education Forces," School Life XIX (1933), p. 5.

CHAPTER III

METHODS AND PROCEDURES

The Vocational Rehabilitation Act sets forth the types of persons for whom vocational rehabilitation is to be provided and indicates in a general way what the service shall be. Because of the nature of the service required it is carried out by what is known as the case work method, and it avails itself of the services of all agencies in a position to assist in its work for an individual.

Definitions and Objectives

One of the questions which was much discussed at the time the original legislation on vocational rehabilitation was under consideration related to the classes of persons eligible for its benefits. Should the provision be limited to those who were disabled while employed in industry, or should it include all disabled persons? Should the service reach those who were ill from tuberculosis and other diseases, or only those disabled through accidents? Should aid be limited to certain groups, or should it be a broad conservation measure intended to help all who were in need of assistance?

Several proposals were made in Congress. One was that the service should be extended to those who were "disabled in industry or otherwise," which was broad enough to include all disabled persons. Another proposal was that the service should be for persons who were disabled in “industrial pursuits, including agriculture, trade, commerce, manufacturing, mining, transportation, and all the mechanic arts." The question was settled by adopting the phrase "persons disabled in industry or in any legitimate occupation" and by agreeing upon a statement which, for the purpose of the Act, construed "persons disabled" to mean "any person who, by reason of a physical defect or infirmity, whether congenital or acquired by accident, injury, or disease, is, or may be expected to be, totally incapacitated for remunerative occupation."

The Vocational Rehabilitation Act construes rehabilitation to mean "the rendering of a person disabled fit to engage in a remunerative occupation." The purpose of the Act, however, as expressed in the title, is "to provide for the promotion of vocational rehabilitation of persons disabled in industry or otherwise and their return to civil employment," and the Act authorizes the Federal agency which administers its provisions to make appropriate and necessary rules and regulations "to provide for the vocational rehabilitation of disabled persons and their placement in employment."

Federal policies distinguish between vocational rehabilitation and physical, social, or other forms of rehabilitation. The major objective of a State rehabilitation service is regarded as the establishment or reestablishment of those who are vocationally disabled because of physical inability in such forms of productive and remunerative employment as are followed by physically normal persons in earning a livelihood. The Act does not indicate the extent to which the service shall or may be carried for the individual; this matter is left to the States.

Persons who are vocationally handicapped because of physical disability may be divided into two groups. One group have had no employment experience; they are regarded as vocationally handicapped when a major disability lessens normal opportunity. The Office of Education is of the opinion that a person in this group is rehabilitated when he is fitted for, and placed in, employment which is at least consistent with his educational background and his vocational and physical ability, but Federal policy does not make this a requirement. The other group have had employment. They are vocationally handicapped when, because of their disabilities, they are unable to hold jobs equal to their best jobs prior to disablement. The Office of Education considers a person of this group rehabilitated when he is fitted for, and placed in, employment of at least the same financial status as his best job prior to disablement or in employment as nearly like his best job as his physical disability permits.

The determination of eligibility of disabled persons for vocational rehabilitation is left to the States, except as eligi

bility is stated in the Vocational Rehabilitation Act. The Federal Office is of the opinion, however, that certain guiding principles should be followed. The intent of the Act is held to be that eligibility depends upon a vocational as well as a physical handicap. Eligibility does not necessarily imply susceptibility for service, since various factors sometimes make it inadvisable or uneconomic to attempt to render rehabilitation service, or impossible to accomplish it.

Disabled persons are not considered rehabilitated until they have been satisfactorily placed in remunerative employment. However, a State rehabilitation program which would provide no service but placement would not be regarded by the Office of Education as in harmony with the spirit of the Federal Act. A program which would not in good faith attempt to provide a service of training would not be considered a genuine attempt to carry out the law.

Case Work Procedure

The methods employed in vocational rehabilitation are substantially the same as those employed from the beginning of the program in 1920, although there has been a gradual improvement in them. They have been briefly stated as follows:

The rehabilitation service is not group work, nor can it be successfully accomplished by the usual standards of school work. Physically handicapped persons do not fit well into standards for normal pupils. Experience shows that the rehabilitation of the disabled is a highly complex, specialized personnel service, which must take form according to the peculiar difficulties and aptitude of each person. For one, it may be assistance to secure physical reconstruction and a prosthetic appliance that he may return to this former occupation or engage in a new one; for another, it may be changing from unfavorable working conditions to a more favorable environment. To another, counsel and advice may be given about entering upon a business venture. Many industrial workers must be retrained in industry, others can take correspondence courses in their homes and be guided by tutors. Many can be sent to trade and technical schools for special courses, particularly the young. A small proportion can be retrained in commercial schools. Every physically handicapped person presents a number of distinct problems which the rehabilitation workers must deal with sympathetically and with imagination, patience, and