I of the Ticket to Work and Work Incentives Improvement Act of 1999 (P.L.
106-170) was signed into law on December 17, 1999, and created a Ticket to
Work and Self-Sufficiency program, administered by the Social Security
Administration (SSA). Through Ticket to Work legislation, Congress sought
to address several major work disincentives for individuals with disabilities.
Ticket to Work provides a “ticket” or voucher to working-aged Social Security Disability
Insurance (SSDI) and Supplemental Security Income (SSI) beneficiaries to obtain employment
and other support services. Services are furnished through the current system
of state vocational rehabilitation (VR) agencies or a ticket holder’s
choice of an approved public or private sector, program-specific
employment network (EN) to assist them in entering or reentering the
workforce. Additional provisions are briefly described below.
The Ticket to Work program was phased in nationally in three stages over a
three-year period, which began January 1, 2001, and concluded in January
2004. By statute, SSA contracts with program managers (PMs) to administer
program aspects related to ENs and ticket holders. As of August 31, 2012,
SSA has 1,029 ENs certified to provide employment support services for ticket holders
in all 50 states and the District of Columbia. Of the approximately 13.4
million “active” tickets that have been issued by SSA, 300,635
(approximately 2.2%) are “in-use,” that is, the ticket has been assigned
to an EN or state VR agency.
P.L. 106-170 also directed SSA to establish supplementary work incentive
programs designed to reduce dependence on disability benefits and
encourage workforce participation. The Work Incentives Planning and
Assistance (WIPA) program was created to disseminate accurate information
to Social Security disability beneficiaries on work incentive projects. SSA
established 102 cooperative agreements with community-based organizations
to provide benefits planning, assistance, and outreach services to beneficiaries.
In addition, SSA established the Protection and Advocacy for Beneficiaries
of Social Security (PABSS) program with the aim of providing information
and advice about how to obtain vocational rehabilitation, employment, advocacy,
or other services that SSDI or SSI beneficiaries may need to secure or
regain gainful employment. However, authorization for both programs
expired, with the WIPA program ending on June 30, 2012, and the PABSS
program on September 30, 2012.
The Ticket to Work program underwent major regulatory changes in July 2008,
which, among other adjustments, increased financial incentives for ENs and
expanded the eligibility criteria for Social Security disability
beneficiaries to participate. The program has come under increased scrutiny
by policymakers due to low SSDI and SSI beneficiary participation and lower
than expected return-to-work rates among ticket holders. In addition, a
May 2011 Government Accountability Office (GAO) assessment reported a lack
of oversight of the program that has led to service approaches among some
ENs that are out of line with the general goal of the Ticket program,
which is to reduce beneficiaries’ dependence on benefits through earnings from
Ticket to Work legislation also created state options to eliminate the dilemma
faced by many beneficiaries—choosing between work and health insurance
coverage—through provisions that allow for additional Medicaid eligibility
options and an extension of Medicare eligibility. This report only
discusses the Ticket to Work program components administered by SSA and does
not address issues related to the Medicaid or Medicare programs.
Date of Report: February 13, 2013
Number of Pages: 40 Order Number: R41934 Price: $29.95
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