This chapter deals with the impact of the change in delivery of services from the Hawaii Services on Deafness (HSOD)⁽¹⁾ to Goodwill -- the final issue addressed in this study. Unless otherwise indicated, quoted material is attributed to the respective respondent group.

Issue Six: Impact of Change in Service Delivery from the HSOD to Goodwill

According to the Vocational Rehabilitation and Services for the Blind Division (DVR), the division had a purchase of service contract with the HSOD for adjustment services. The change in service delivery at issue refers to the change in contractor from the HSOD to Goodwill Industries of Honolulu, Inc. [See chapter 1 for a more detailed description of Goodwill Industries, its mission, and the services it provides.] The HSOD has been providing services for the deaf in Hawaii for at least twenty years. However, it has gradually reduced its services as its operating budgets have decreased over the years. Reportedly, its share of funds from the Aloha United Way and other sources has become insufficient for it to continue providing adjustment services and counseling.⁽²⁾ Therefore, as a result of financial constraints, the HSOD had decided to discontinue its contracted adjustment services program before the end of 1995.⁽³⁾ Consequently, the DVR's contract with the HSOD for adjustment services was opened for bids and subsequently awarded to Goodwill Industries of Honolulu, Inc., the sole bidder. The actual change took place in January, 1996. Goodwill now provides adjustment services under contract with the DVR. (The HSOD is continuing to provide interpreter services referral under contract with the DVR. This is a service that locates interpreters for those wishing to use one to communicate with the deaf. The interpreter bills the requestor directly. The DVR pays the HSOD for the referral service.)

DVR Response: The DVR supports the change in service delivery despite the possible disadvantages that may be perceived by clients. The DVR observes that, for deaf persons, the switch to Goodwill is a big change. Goodwill may be perceived as an unfamiliar environment, quite understandably, by clients who had gotten used to familiar faces and routines at the HSOD. According to the DVR, all staff at the HSOD, even the secretaries who do not provide direct vocational rehabilitation services, could communicate easily with deaf clients. Familiar relationships had been built -- with the benefit of time -- between HSOD staff and DVR clients. According to the DVR, over the years, staff at the HSOD provided multiple services -- not only adjustment services -- to DVR clients and habitually performed a variety of other tasks like reading letters for clients. Thus, "doing business" with the HSOD had been easy, convenient, and familiar for DVR clients.

The transfer of the service contract to Goodwill involves only adjustment services. Nonetheless, given the history and past pattern of assistance offered by the HSOD staff, it would not be surprising if DVR clients become disappointed if Goodwill did not replicate that pattern, however unreasonable it may be to expect it. Clients may feel that there is not the same open door at Goodwill. The relatively awkward location of Goodwill's operations at Shafter Flats does not help. [The nature of deaf clients' disability obviously places a premium on confidence and trust that is greatly enhanced by effective communication. Thus, aside from communication issues, building trust that facilitates the server-client relationship may simply require greater effort over time by both parties. See the next chapter for the Bureau's observations on the seven issues.]

Hawaii State Coordinating Council on Deafness Response: Consistent with information provided by the DVR, it appears that staff at the HSOD, usually deaf themselves, were trained and able to communicate directly with deaf clients. The HSCCD maintains that most deaf and hard of hearing persons regard Goodwill's program as one for mentally retarded people and thus prefer not to be associated with them. Furthermore, according to the HSCCD:

"Many Deaf and Hard-Of-Hearing individuals had come to depend on HSOD services and are having difficulty adapting to the change of the major service provider in the deaf community. . . [The] HSOD emphasized independent living skills and accepted all referrals, while the Goodwill's Deaf Program focuses more on work-related skills and serves only DVR referrals."

In addition, the HSCCD claims that:

"Although Goodwill is commended for their efforts to meet the needs of the Deaf and Hard-Of-Hearing community, their staff does not have comparable training or experience [as compared to staff at the HSOD]. The signing ability of Goodwill's primary counselor for the deaf is in the beginning stage."

Hawaii Services on Deafness Response: The HSOD's only comment was that it "had heard from others that the deaf are not being well-served in this area, but have not had first-hand knowledge of this."⁽⁴⁾

Goodwill Industries of Honolulu, Inc. Response: According to Goodwill, it had hoped that another provider would bid for the contract formerly held by the HSOD. Goodwill entered a bid because it was concerned that if no other providers applied, the contracted services would be left unprovided. The organization felt that it had "the expertise to help people become employed." As it turned out, no one else made a bid and Goodwill found itself the new service provider.

Goodwill began providing contracted services in February, 1996 in a ". . . specific program designed to provide adjustment services, personal guidance with a component to help resolve one time issues in an outreach context." [Apparently, this refers to the broader pattern of assistance that HSOD staff had gotten into the habit of providing over the years. See the DVR's comment on how HSOD staff habitually performed a variety of tasks for clients not necessarily related to adjustment services, above. Despite being assisted to resolve "one time issues," DVR clients may have gotten used to the assistance they received at the HSOD beyond adjustment services.] Although Goodwill does employ deaf persons, they are not qualified vocational rehabilitation service providers in the adjustment services program.⁽⁵⁾ Goodwill asserts that it is well aware that the deaf community prefers having a deaf or hard of hearing provider in its program. However, no qualified personnel have been located. According to Goodwill:

". . . we made sincere attempts to recruit a Deaf individual to coordinate the service and provide the program. We were unsuccessful at locating someone, and thus have put agency resources into one of our own staff members to see [that the person] developed ASL skills, with a plan to becom[ing] certified as part of our commitment to the program." One possible source of discomfort with the change in service delivery may be the misperception that Goodwill should, but does not, accept all referrals, including those from private referrals. However, under Goodwill's contract for adjustment services, it is under no obligation to do so.

There may also be some confusion over the nature of the adjustment services program and what the goal is. For example, Goodwill's perception of the goal is ". . . to prepare Deaf individuals progress to a level of understanding sufficient to resolve problems independently and is modeled on an Independent Living Skills Curriculum." [This contrasts with the HSCCD's comment that the HSOD emphasized independent living skills whereas Goodwill focused on work-related skills.] In other words, Goodwill's goal is to vocationally rehabilitate deaf persons sufficiently so that they have a better chance of getting and keeping a job. Because Goodwill's expertise is in working with persons with disabilities and other special needs, it expected -- and reportedly was told -- that clients referred under the DVR contract ". . . would have an accompanying disability in addition to their deafness." Instead, Goodwill reported that:

". . . most of the individuals that are referred to us have a primary need of employment. There may be some underlying [disability] issues that need to be dealt with as part of their program, but these are secondary in nature, with the need for employment being in the forefront."

That is, DVR-referred clients' most pressing need appeared to be to find jobs, not to be trained in independent living skills or work-related skills so that they are better prepared to work. This is consistent with an observation made by the DVR that many clients appear to view the division mainly as an employment agency and to consider job placement -- and not vocational rehabilitation -- as its chief service.⁽⁶⁾ As a result, this client misperception may be contributing to deaf clients' sense of dissatisfaction with the change in service delivery because their primary expectation of being placed in a job, right or wrong, is not being met.

Ohana Kokua Ano Kuli Response: With regard to the impact of the change in service delivery from the HSOD to Goodwill Industries, the OKAK mentioned only that reduced funding had resulted in fewer services provided by both the HSOD and Goodwill and that there is a need to better provide and coordinate various services for the deaf and hard of hearing.

Aloha State Association of the Deaf Response: The ASAD feels that it was disappointing to have the contract shifted to Goodwill although it was difficult and time-consuming to provide services under the previous contract due to limited staffing. It sees the shift to Goodwill as being a gradual one because deaf clients seem to be hesitant to go for services there. This view is consistent with others that have been expressed to the effect that deaf clients do not wish to be associated with an organization (Goodwill) that is known for its work with persons with other disabilities, such as mental retardation. According to the ASAD, "They [deaf clients] feel that they don't belong in Goodwill, especially not having other handicaps."

The ASAD reports that the idea of locating deaf services in a location away from Goodwill's other operations that serve persons with other disabilities has or is being considered. It supports such a potential move especially if it results in a "vocational center similar to Hoopono or a part of HSOD and ASAD" in which case the program can be the subject of another contract with the DVR. The ASAD contends that it is ". . . confident that the deaf clients will feel more comfortable going to Goodwill if it is separate from the present site where other disabled or deaf [persons] with other handicaps are trained."

1. See footnote nos. 1 and 2 in chapter 4 explaining how the HSOD returned its response. Originally, several issues were to be left to the HSOD board of directors to address. The impact of the change in service delivery from the HSOD to Goodwill was one of these issues. However, the board did not manage to finalize a response to this issue as well as to the issue relating to the need for staff support.

2. DVR interview of July 2, 1996 with Neil Shim, administrator, Vocational Rehabilitation Services for the Blind Division and Carol Young, program coordinator, DVR.

3. Ibid.

4. HSOD response received on October 7, 1996.

5. According to Goodwill, it employs 11 deaf persons in positions including donations processors, warehousemen, and custodial staff (Goodwill's survey response).

6. DVR Interview of July 2, 1996.

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