State Government as a Model Employer for People with Disabilities: A Playbook for Governors

Jun. 3, 2025 |

Publications

This playbook highlights six actionable strategies Governors can use to improve state government career paths for people with disabilities.

(Download)

The Bureau of Labor Statistics estimates that, as of January 2025, state governments employ more than 5.5 million workers nationwide, yet public-sector workforce shortages persist across the country. To help fill critical roles, state governments are increasingly looking to talent pools who are qualified but who may not be fully participating in the workforce, such as people with disabilities. Although many disabled people within the labor force are skilled, talented and eager to work, they are overall significantly less likely to be employed than people without disabilities. Positioning the state as a model employer of people with disabilities represents a promising solution to meet state government workforce needs.

As chief executives of state government, Governors have considerable authority to ensure that state employment policies consider accessibility for all workers, including for state employees with disabilities. This means making sure that disabled state employees can access hiring processes, opportunities for upskilling and advancement, workplace accommodations, interagency coordination and accountability, and more. By reducing barriers to employment, Governors can provide disabled people with the opportunity to enter and advance in public-sector careers and fill critical roles in state government.

In 2012, former Delaware Governor Jack Markel launched his signature initiative as Chair of the National Governors Association, which was aimed at educating both private and public sector employers about the benefits of accommodating people with disabilities in the workplace and supporting public-private partnerships to promote integrated employment of people with disabilities. Governor Markell’s initiative culminated in A Better Bottom Line: Employing People with Disabilities: A Blueprint for Governors, a seminal roadmap for Governors seeking to advance economic opportunity for people with disabilities within their states. The blueprint laid out five key policy opportunities, including increasing the number of people with disabilities working in state government.

Since then, Governors across the country have continued to demonstrate significant leadership in positioning the state as a model employer (SAME) of people with disabilities. To better understand strategic opportunities, best practices and policy options available to Governors to increase state government career paths for people with disabilities, the National Governors Association Center for Best Practices (NGA Center) held informal learning calls with Governors’ advisors and executive branch leaders.

This playbook highlights six actionable strategies Governors can use to improve state government career paths for people with disabilities:

Develop a strategy to increase state employment opportunities for people with disabilities;
Establish a governance and accountability structure;
Implement recruitment and hiring initiatives;
Ensure workplace accessibility;
Provide skills training for new and incumbent employees; and
Model SAME best practices for the private sector.

Develop a Strategy to Increase State Employment Opportunities for People with Disabilities

Establish a strategic vision for the state as a model employer

Governors can establish a strategic vision for SAME to drive coordination among stakeholders and communicate the state’s commitment to disability employment opportunities. Governors may align and integrate the vision into their broader policy agenda for workforce development. To ensure interagency consensus and buy-in, Governors may involve a variety of stakeholders in the development of the vision, including people with disabilities. This could include a variety of agencies, advisory boards, and public-private entities related to workforce development, disability, veterans, human resources, education, vocational rehabilitation, and human services. In addition, setting a vision may require a landscape analysis or asset mapping process to determine the challenges and opportunities related to disability employment that exist in state government.

Ohio Governor Mike DeWine’s Executive Order 2019-03D establishes Ohio as a disability inclusion state and model employer of people with disabilities with the “opportunity and responsibility to lead by example, ensuring individuals with disabilities have access to employment opportunities in public service.” The order calls for each state agency to review its hiring practices annually to identify and eliminate barriers to employment of people with disabilities and collect and evaluate self-disclosed data to measure progress in hiring people with disabilities.
New York Governor Kathy Hochul’s Executive Order 31 commits the state to becoming a model employer for people with disabilities by establishing “best practices to reduce, and eventually eliminate, the gap between working people with disabilities and working people without disabilities, as well as endeavor to increase recruitment, hiring, retention, and the career advancement of people with disabilities in the state workforce.” The order directs the Chief Disability Officer to work with each state agency to develop a strategic plan and subsequent yearly progress reports to improve the hiring of people with disabilities.

Set metrics to achieve the strategic vision

Governors can set measurable, time-based goals to achieve the strategic vision for SAME. These metrics can help the state measure success by setting quantitative and qualitative benchmarks for the desired outcomes of the Governor’s strategic vision and goals. For example, metrics may indicate a specific percentage or number of state employees with disabilities onboarded by a given date—a benchmark that could mirror the percentage of people with disabilities in the state’s general population. Governors can hold state agencies accountable for achieving these goals by requiring regular reporting, and data collection efforts can also inform continuous improvement.

In January 2022, the New Jersey Civil Service Commission implemented the State as a Model Employer of People with Disabilities program. The goal of the SAME program is to increase the number of people with disabilities working in state government from 1.38% to at least 7%.

Connect the vision to other strategic planning efforts

Governors can align their vision and goals for SAME with other strategic planning efforts related to state government employment and disability employment. Promoting coordination among these efforts ensures that strategic objectives are supportive of the Governor’s goals for public sector talent development and disability employment, advancing the Governor’s broader policy agenda

Pennsylvania Governor Josh Shapiro’s 2024 Executive Order 2024-01 aims to expand opportunities for Pennsylvanians seeking a career in public service and to make the Commonwealth a better, more competitive employer. The order establishes the Hire, Improve, Recruit, Empower Committee—an interagency group charged with making recommendations related to hiring and recruitment for the Commonwealth’s workforce.

Establish a Governance and Accountability Structure

Designate a coordinating body for the state as a model employer

Governors may designate or create a lead entity tasked with coordinating the implementation of their vision for SAME. This lead entity can track progress toward identified objectives, spearhead interagency alignment efforts, and take responsibility for continuous improvement of partnerships and programs. Lead entities may include agencies, advisory boards and public-private entities related to workforce development, disability, human resources or vocational rehabilitation.

The Maryland Department of Disabilities is currently the only cabinet-level cross disability agency in the country. In addition to providing disability policy guidance to state agencies in areas including employment, transportation and housing, the Department operates programs related to assistive technology and telecommunication access. By working collaboratively with all state government agencies, the Department provides guidance to ensure agencies deliver services efficiently, develop consistent policies regarding people with disabilities and consider the needs of people with disabilities in decision-making.

Use data to track progress and inform policymaking

Robust data collection is critical for evaluating progress on the Governor’s goals for SAME and for making data-driven policy decisions. Improved data collection also promotes transparency and accountability among state agencies, ensuring that policies and programs continue to improve through specifying expected outcomes and requiring regular reporting. Qualitative data collection efforts also help align policies and resources with the needs of people with disabilities.

In 2025, Maryland Governor Wes Moore signed legislation to develop and implement the Maryland as a Model Employer Initiative to promote the recruitment, hiring, retention and career advancement of people with disabilities in state government. The legislation established the Office of Disability Employment Advancement and Policy to oversee the initiative. The Office is directed to collect performance goals from each state agency related to hiring and retention efforts for employees with disabilities and data that demonstrates performance outcomes. On an annual basis, the Office will report to the Governor and the state legislature on the progress and outcomes of the initiative, including recommendations for continued improvement of state government employment practices for people with disabilities.

Implement Recruitment and Hiring Initiatives

Improve awareness of state employment as a career pathway

The first step toward effectively recruiting people with disabilities is to improve their awareness of state employment as a career pathway. For example, states can proactively share information about efforts to reduce barriers to employment for people with disabilities, such as granting workplace accommodations, and featuring the firsthand experiences of employees with disabilities. Events such as job fairs are an opportunity to allow prospective employees with disabilities to explore state government careers. Hiring managers can also conduct outreach to the disability community through partnerships with state agencies, nonprofits and other organizations that work with people with disabilities.

In 2024, Connecticut Governor Ned Lamont proclaimed October as Disability Employment Awareness Month, celebrating the contributions of workers with disabilities to the state’s economy. In announcing the proclamation, Governor Lamont also highlighted employment and training resources available to people with disabilities, including state job fairs.

Adopt hiring initiatives to increase opportunities for people with disabilities

Several states have implemented hiring initiatives to increase the number of disabled employees working in state government. For example, “mandatory interview” policies require agencies to interview candidates with disabilities if they meet the minimum qualifications of a job posting. States may also offer supported employment and trial work periods that provide disabled people with paid employment opportunities and other services to help them succeed in the workplace.

Alaska’s Provisional Hire Program allows state hiring managers to hire qualified people with a disability in a permanent or nonpermanent position for up to four months of trial work with no requirement to hire as a permanent employee. The program is administered by the Alaska Division of Vocational Rehabilitation, and eligible applicants must be certified by the Division as having a severe disability.
The Vermont Department of Human Resources allows applicants with disabilities applying for state government jobs to request a mandatory interview if they meet the minimum education and experience qualifications of the position.

Coordinate with human resources staff, hiring managers, and ADA coordinators

Implementing hiring policies successfully requires awareness and coordination among human resources staff, hiring managers and Americans with Disabilities Act (ADA) coordinators across state agencies. Ensuring that these individuals are aware of legal requirements and best practices for recruiting and hiring people with disabilities, as well as the Governor’s vision and goals for disability employment, can help ensure policies are applied uniformly across the enterprise. Coordination requires dissemination of clear guidance, resources, and training to the appropriate individuals as well as opportunities for cross-agency information sharing regarding successes and challenges in recruiting and hiring people with disabilities.

The Georgia as Model Employer (GAME) program requires the state ADA coordinator to provide “technical assistance and training for state agency human resources personnel and hiring managers for the recruitment, hiring, advancement, and retention of qualified individuals with disabilities.” The state ADA coordinator created a four-module training schedule that covers: GAME requirements; ADA mandates and best practices for recruiting, hiring, and retaining employees with disabilities; new federal regulations and workplace guidance; and emergency evacuation evaluations.

Ensure Workplace Accessibility

Establish a process for reasonable accommodations

The ADA requires that employers make reasonable accommodations in three aspects of employment: to ensure equal opportunity in the application process, to enable a qualified individual with a disability to perform the essential functions of a job, and to enable an employee with a disability to enjoy equal benefits and privileges of employment. Providing reasonable accommodations not only ensures that the state meets these legal requirements but also helps to attract and retain qualified employees. States may consider providing information and instructions for employees to submit a reasonable accommodation request while also training human resources staff and hiring managers about the process. States may also consider establishing a centralized reasonable accommodation fund that provides a consolidated funding source to meet reasonable accommodation requests rather than requiring state agencies to use individual budgets to pay for accommodations.

Since its establishment in 2015, the Minnesota Department of Administration’s centralized accommodation fund has distributed approximately $1.5 million in reimbursements to state agencies granting reasonable accommodations to applicants and employees with disabilities. The Minnesota Department of Employment and Economic Development also recently launched an Employer Reasonable Accommodation Fund to allow small-to-midsize private sector employers to receive reimbursement from the state for expenses related to reasonable accommodations provided for job applicants and employees with disabilities.

Adopt policies that make the workplace accessible for all employees

Policies that make the state government accessible to qualified disabled employees make the workplace more accessible to all state employees and can help the state retain all qualified workers. For example, policies such as flexible scheduling can help remove barriers to employment and increase job satisfaction for all state employees, while constituting a reasonable accommodation for some employees with disabilities. Stay-at-work and return- to-work policies can help state employees who acquire a disability during their tenure maintain their employment. Providing mental health resources, employee assistance programs, and other wellness benefits can also promote greater accessibility for all state employees.

The West Virginia Division of Personnel’s Returning to Work After Illness or Injury Guide offers state agencies guidance in assisting ill or injured employees so they can return to full or less-than-full duty as soon as possible after being cleared by their health care provider. The guide includes information related to coordination with health care providers, return-to-work options, and legal considerations. The guide also helps ensure human resources staff are aware of return-to-work policies and procedures and provides transparency for employees who have been impacted by illness or injury.
The Illinois Interagency Committee on Employees with Disabilities provides a forum for raising and resolving issues affecting state employees with disabilities and serves as a clearinghouse for disability-related information to support state agencies in promoting access, opportunity, and independence. The Committee is comprised of 18 members, including seven employees with disabilities, who are appointed by the Governor and state agency leaders.

Improve digital accessibility

With state government services and tools increasingly available online, Governors can ensure they are accessible to all residents and state employees, including people with disabilities.

These digital tools may include online hiring mechanisms (e.g., job postings and application portals) and employee management assets (e.g., timesheets and performance review platforms). States may consider universal design in the development of digital resources and in the procurement of software and other digital services through the adoption of accessibility standards for state agencies.

Maryland Governor Wes Moore has enacted several digital accessibility measures designed to transform the state’s digital services to make them more accessible to the public, including people with disabilities. The measures include Executive Order 01.01.2024.02 that provides directives on the responsible and productive use of artificial intelligence, the state’s first digital accessibility policy based on user-centered design, and a new Digital Service team and Cybersecurity Task Force.

Encourage self-identification

People with disabilities sometimes choose not to disclose their disability status out of fear that the information may be used against them, or because the self-identification process is overly burdensome. Providing state employees with a secure process for disclosing their disability status can help states gather critical qualitative information about employees’ needs and experiences and, in turn, improve policies and practices. Further, the quantitative data collected through this process can be used to establish and evaluate metrics.

Provide Skills Training for New State Employees and Incumbent Workers

Implement work-based learning and on-the-job training opportunities

Governors are leading the way to incorporate work-based learning and on-the-job training into state government talent development strategies. Programs such as internships and apprenticeships can introduce new employees and incumbent workers, including those with disabilities, to careers in state government and provide pathways to permanent employment with opportunities for advancement. States can also reduce the time and cost associated with recruitment and onboarding, while improving employee retention and providing an example to private sector employers who are also interested in implementing work-based learning opportunities.

Ohio’s Vocational Apprentice Program provides those who are eligible for vocational rehabilitation services with apprenticeship opportunities in state government to create a pathway to permanent state employment, including career exposure and work-based learning experiences. Opportunities for Ohioans with Disabilities funds all wages for the apprenticeship up to $16.50 per hour, 25 hours per week for a maximum of 1,000 hours. Apprentices have access to application and interview assistance, onboarding support and on-the-job support, including reasonable accommodations.
The New York Inclusive Internships Program creates internship opportunities in state agencies for people with disabilities that are targeted to long-term state government employment. A coordinator housed jointly in New York Governor Kathy Hochul’s Chief Disability Office and the New York State Department of Labor works with state agencies to identify internship opportunities and matches qualified candidates with disabilities with those opportunities.

Model SAME Best Practices for the Private Sector

Provide disability awareness training to state employees

Providing disability awareness training for state employees can help foster a more supportive workplace for all employees, including those with disabilities. These trainings, voluntary or mandatory, may be offered during the onboarding process or as part of ongoing professional development. Topics addressed in disability awareness trainings may include ADA compliance, reasonable accommodations, disability etiquette, assistive technology and mental health.

The Tennessee Council on Developmental Disabilities launched the Leadership Academy for Excellence in Disability Services in partnership with the Tennessee Department of Human Resources to provide a leadership development program for state employees whose work has a direct impact on people with disabilities. The Academy helps to ensure state employees serving people with disabilities operate from a shared set of values, goals and principles. The Academy also fosters collaboration among state agency partners. State employees from more than 13 agencies have graduated from the Academy.

Leverage the state procurement process

Governors can leverage the state’s procurement process to support small businesses, including those owned by people with disabilities, in bidding on state government contracts. Removing red tape and providing technical assistance for state procurement can help promote entrepreneurship as a career path for people with disabilities and model these practices for private sector companies.

Governors can advance their broader agendas for workforce development and disability employment by sharing with private sector employers the state’s best practices and lessons learned from employing people with disabilities. States can develop resources for private sector employers and provide technical assistance to improve their hiring and retention practices and increase employment opportunities for people with disabilities. States can also designate a point of contact or leverage existing groups that are equipped to support businesses as they implement their own disability employment models.

The Tennessee Department of Disability and Aging offers free disability employment training for private sector employers. In 2023, the Department’s trained Employment Coordinators conducted 25 trainings with 252 participants. The state’s Vocational Rehabilitation Business Services Team within the Tennessee Department of Human Services also provides this training to individual employers as requested.

Conclusion

Governors are meeting the complex challenges presented by public sector workforce shortages and lower labor force participation among people with disabilities by paving the way for accessible state government employment. By forging collaboration among state agencies and implementing effective recruitment policies, Governors are driving state government enterprises toward a unified vision for the state as a model employer for people with disabilities. States are also retaining and advancing a high-quality workforce that includes employees with disabilities by increasing work-based learning opportunities and ensuring that all employees have the accommodations they need to succeed in the workplace.

Opportunity remains for states to further their work by collecting and analyzing disability employment data and by developing innovative funding mechanisms to support investments in evidence-based policy solutions. Scaling and refining these efforts in the public sector will also help unlock greater economic opportunity in the private sector by expanding best practices across industries and increasing pathways to employment for people with disabilities.

Download the Playbook

Acknowledgements

The NGA Center would like to thank Governors, their advisors and their appointed executive branch leaders for their expertise that informed this playbook. Their leadership and commitment to sharing best practices is helping to scale and replicate policy innovations across all 55 states and territories. This playbook was prepared by Sophia Yager, senior policy analyst, and Eric Aboodi, policy analyst, with guidance and review from Jack Porter, program director for workforce development and economic policy.

This publication was funded by the Office of Disability Employment Policy, U.S. Department of Labor, through the State Exchange on Employment & Disability. This document and any other organization’s linked webpages or documents do not necessarily reflect the views or policies of the Office of Disability Employment Policy, U.S. Department of Labor, nor does the mention of trade names, commercial products, or organizations imply endorsement by the U.S. Government.