HOUSTON — Seventy years ago, Goodwill Industries of Houston was founded in order to employ people with disabilities whom nobody else would hire.

That whole time, a portion of those with the most severe disabilities have been paid less than minimum wage, which is allowed under a 1938 federal law enacted on the grounds that even a small paycheck is better than none. About 40 people perform tasks like stuffing bags for giveaways, or re-packaging a retailer’s returns, for a few cents an item.