Comfort Animals Part II

Yesterday, I wrote about comfort animals and how the 9th Circuit Court of Appeals is considering whether a comfort animal can be a reasonable accommodation under the Federal Fair Housing Act. The 9th Circuit is likely to rule whether a comfort animal must be specially trained to ameliorate a disability. Part of the reason that the 9th Circuit Case is so important is that there is a lot of confusion in the law. Some earlier cases have assumed that comfort animals would be a reasonable accommodation. For instance, Crossroads Apartments Associates, 152 Misc. 2d 830, 834, 578 N.Y.S. 2d 1004, (City Ct. 1991); HUD v. Riverbay (HUD ALJ 9-8-94), Fair Housing - Fair Lending ¶25,080 at 25,740-41; and Janush v. Charities Housing Dev. Corp., 169 F. Supp. 2d 1133, Fair Housing - Fair Lending ¶16,618 at 16,618.2 (N.D. Cal. 2000) (request to keep 2 birds and 2 cats as an accommodation for a mentally disabled resident may be required by the Act) have all indicated a possibility that comfort animals may be a reasonable accommodation. More recently, the court in Auburn Woods I Homeowners Assn. v. Fair Employment and Housing Commission (Elebiari), 121 Cal. App. 4th 1578, 18 Cal. Rptr. 3d 669, 2004 WL 1888284 (Cal. App. 2004) has also ruled that comfort animals may be permitted under the California State Fair Housing laws.

The difficulty with even these cases is that the scope of the accommodation is not fully developed. In particular, these cases rarely deal with the issue of what accommodations are necessary to permit a disabled individual equal opportunity to use and enjoy a dwelling. As a result, it is difficult for anyone to determine how much of an accommodation they should make in any particular instance. For instance, in the Janush cases, one court ruled that even if there is a basis for an accommodation, the accommodation should involve fewer than the 2 birds and 2 cats owned by the plaintiff. A later court raised doubts about the number of pets that might be permitted. Even those inclined to permit comfort animals would have probably said that a single comfort animal would be sufficient as an accommodation.

What is a comfort animal?

The Federal Fair Housing Act "FHA" prohibits discrimination against disabled individuals in addition to other protected classes. A residential housing provider is normally required to make reasonable accommodations in its policies, procedures, and practices that are necessary to afford a disabled individual with an equal opportunity to use and enjoy the dwelling. In communities that restrict pets, that means that the community cannot prohibit seeing eye dogs to someone legally blind. Some individuals have attempted to use the FHA to permit them to keep pets that would otherwise be prohibited by the community. They have claimed that they are disabled and that an animal would make them feel better.

There are a number of problems with this claim. First, to the extent that these individuals are not truly disabled, they trivialize and undermine the law that is intended to provide needed protections for those who are truly disabled. When the law was first adopted, it was assumed that disability was something that was easily proven. The Courts have limited the scope of disability in a number of ways. Therefore, an individual may not be legally disabled despite a note from their doctor. We normally recommend to our clients that they obtain a written certification from a doctor to validate the disability unless it is obvious.

Second, two courts have ruled that a comfort animal is not covered by the reasonable accommodation provisions of the Fair Housing Act. In re Keena Homes Cooperative Corp., 210 W. Va. 380, 557 S.E. 2d 787; Fair Housing - Fair Lending ¶18,328 (2001) andPrindable v. AOAO 2987 Kalakaua, 304 F.Supp. 1245, 2003 U.S. Dist. LEXIS 23744 (D. Haw. 2003) have ruled that in order for an animal to be covered by the reasonable accommodation provisions of the law, it must be individually trained to ameliorate the effects of the disability. The 9th Circuit is currently hearing the case and a decision is expected in a few months.

What is a reasonable modification?

The Federal Fair Housing Act "FHA" provides protections for people with disabilities. In addition to a prohibition against discriminating against someone because they are disabled, the FHA has two affirmative duties for those covered by the Act. One of them is to provide a reasonable accommodation. The other is that a housing provider must permit people with disabilities to make reasonable modifications to their dwelling or the common areas at the disabled person's expense that are necessary for the disabled person to use or enjoy the dwelling.

The Americans with Disabilities Act "ADA" has a similar provision. Under the ADA, a public accommodation (usually a commercial entity) must remove architectural barriers to the place of public accommodation necessary to afford the goods, services, facilities, privileges, advantages or accommodations provided by the public accommodation to individuals with disabilities if it is readily achievable. Removal of architectural barriers are readily achievable if it can be accomplished with little cost and does not prove burdensome or substantially alter the goods or services provided by the public accommodation. Under the ADA, unlike the FHA, the public accommodation pays for the cost of barrier removal. If the barrier removal is not readily achievable, the public accommodation must normally make a reasonable accommodation to provide the goods, services, facilities, etc. to the disable person.

What is a reasonable accommodation?

The Federal Fair Housing Act "FHA" and the Americans with Disabilities Act "ADA" provides protections for people with disabilities. In addition to a prohibition against discriminating against someone because they are disabled, these laws have affirmative duties for those covered by the two Acts. Under the FHA, one of the affirmative duties is to permit reasonable modifications. In addition, a housing provider must make reasonable accommodations to its policies, practices or procedures if it is necessary for a disabled person to use or enjoy the dwelling.

Similarly, under the ADA, a housing provider must make reasonable accommodations to its policies, practices or procedures if it is necessary to afford the goods, services, facilities, privileges, advantages or accommodations provided by the public accommodation (usually the commercial entity) to individuals with disabilities. The ADA also contains a barrier removal requirement similar to reasonable modifications.

What is a disability?

The Federal Fair Housing Act and the Americans with Disabilities Act provides protections for people with disabilities. The Fair Housing Act uses the term, "handicap" while the Americans with Disabilities Act uses the term, "disability" but they are defined the same.

A person with a disability is someone who: (1) has a physical or mental impairment which substantially limits one or more major life activities (i.e., caring for one's self, performing manual tasks, walking, seeing, breathing, etc.); (2) has a record of such an impairment; or (3) is regarded as having such an impairment. A disability does not include a current illegal use of or addiction to a controlled substance or is a transvestite. Courts have limited what constitutes a disability in a number of ways. For instance, the courts look to whether someone's condition substantially limits a major life activity in its corrected condition. Therefore, someone who is legally blind without glasses is not disabled if they are not impaired if they were to be fitted with glasses.

Sexual Orientation and Gender Identity Discrimination in Real Property Transactions Bill Signed by Governor

On June 29, 2005, I reported on HB1715 relating to sexual orientation and gender identity discrimination in real property transactions. The Governor had notified the Legislature that she was considering vetoing the bill. In her message announcing her intent to veto the bill, she stated:

The bill poses complex issues of application and enforcement given the ambiguous and vague nature of its language and fails to provide the public, renters, buyers, sellers, property owners, or the courts with an objective standard to determine if discrimination has occurred in the housing marketplace.

There was an issue whether this bill could be legally vetoed by the Governor because of a typo in the notice of intent to veto the Bill. However, on July 11, 2005, the Governor signed the bill and it became Act 214 effective on July 11, 2005.

A related bill, HB1450, relating to sexual orientation and gender identity discrimination in employment was also on the Governor's list of bills she is considering for veto. On July 11, 2005, the Governor vetoed the bill. The Legislature did not vote to override the veto.

Is an association clubhouse subject to the Americans with Disabilities Act?

The Community Association Network has a Daily News weblog feed that reports on news relating to community associations. Today, it referenced a Sun-Sentinel story about two disabled people suing their association for having an inaccessible clubhouse. The South Florida newspaper reported that John Garon and Vatrice Rivera, who use wheelchairs, claim that they are unable to properly use the parking lot, bathrooms and water fountains in their community's clubhouse. They have filed suit claiming that because the clubhouse is open to the public for political debates and some entertainment, the building must comply with the federal Americans with Disabilities Act ("ADA").

There are two federal laws that may impose disability access requirements on community associations. The Federal Fair Housing Act and the ADA. The Federal Fair Housing Act is intended to apply to residential situations while the ADA is intended to apply to most commercial operations open to the public (sometimes referred to as public accommodations). The main difference between the two Acts is that those covered by the ADA are required to make the facilities of the public accommodations accessible to the disabled if it is readily achievable while the Fair Housing Act requires the housing provider to permit a disabled individual to make reasonable modifications to the project at the disabled individual's expense. In other words, whether the ADA or the Federal Fair Housing Act applies to a project is important because it determines who pays for the cost of eliminating barriers to the disabled.

If a condominium or planned community is purely residential, the ADA does not apply. However, if the condominium or planned community contains commercial uses, the Americans with Disabilities may apply at least to the extent that the commercial uses fall within the ADA and the common area is open to the customers of the commercial establishment. In the case of a residential project that opens its amenities to the general public, the analysis is a little more involved. If the amenity is open only to the residents and their guests, the ADA does not apply. Federal Regulations (28 CFR § 36.102(e)) states that the ADA does not apply to private clubs, but will apply to the facilities of a private club that is made available to customers of a public accommodation. Appendix B to the Federal Regulations states that:

An entity that is not in and of itself a public accommodation, such as a trade association or performing artist, may become a public accommodation when it leases space for a conference or performance at a hotel, convention center, or stadium. For an entity to become a public accommodation when it is the lessee of space, however, the Department believes that consideration in some form must be given. Thus, a Boy Scout troop that accepts donated space does not become a public accommodation because the troop has not "leased'' space, as required by the ADA.

Therefore, a factor in the analysis is whether the association charged for the use of the premises. Even if an association does not charge for the use of its amenities, it may wish to limit access to residents and their guests to avoid a claim that they must undertake modifications to the amenities to comply with the ADA.

What is the Americans with Disabiities Act?

The Americans with Disabilities Act ("ADA") is a federal law that provides protections to people with disabilities. One part of the ADA provides protections for employees of employers with more than 15 employees. Other parts of the ADA applies to state and local government and transportation systems. Title III of the ADA applies to public accommodations and is usually the section of the ADA that community associations have questions about.

Public accommodations under the ADA are:

1. An inn, hotel, motel, or other place of lodging . . .


2. A restaurant, bar, or other establishment serving food or drink;


3. A . . . theater . . . or other place of exhibition or entertainment;


4. An auditorium . . . or other place of public gathering;


5. A bakery, grocery store, clothing store, hardware store, shopping center, or other sales or rental establishment;


6. A laundromat, dry-cleaner, bank, barber shop, beauty shop, travel service, shoe repair service, funeral parlor, gas station, office of an accountant or lawyer, pharmacy, insurance office, professional office of a health care provider, hospital, or other service establishment;


7. A . . . station used for specified public transportation;


8. A museum . . . or other place of public display or collection


9. A park, zoo . . . or other place of recreation;


10. A . . . place of education;


11. A day care center . . . or other social service center establishment;


12. A gymnasium . . . or other place of exercise or recreation.

If the business does not fall within one of the 12 categories, the ADA does not apply. However, the types of businesses within the 12 categories are illustrative. For instance, just because a service establishment is not listed under item six does not mean that it is not covered by the ADA.

If the business is a public accommodation, it has two major obligations under Title III of the ADA: (a) make reasonable accommodations in policies, practices or procedures when it's necessary to afford the goods, services, facilities, privileges, advantages or accommodations to individuals with disabilities; and (b) remove barriers to disabled persons in the areas open to the general public at its own cost if the removal is readily achievable. Under the ADA, both the public accommodation and the landlord have obligations to remove barriers.

HUD adopts Safe Harbour for Accessibility Provisions of Federal Fair Housing Act

On February 28, 2005, the Department of Housing and Urban Development ("HUD") published it's final report on the 2003 Uniform Building Code ("UBC"). By this action, HUD has said that if construction complies with the 2003 UBC, it will not be in violation of the accessibility requirements of the Federal Fair Housing Act. In order to obtain the "safe harbour" status for the UBC, the International Code Council (drafters of the UBC) agreed with HUD's interpretation that the UBC requires an accessible pedestrian route from site arrival points to accessible building entrances, unless site impracticality applies, along with two other relatively minor points. Since the UBC is used in many western states, including Hawaii, the safe harbour simplifies compliance with the accessibility requirements of the Federal Fair Housing Act.

The Federal Fair Housing Act ("FHA") includes provisions for accessibility for disabled individuals in new construction. The FHA requires the following for new construction:

1. the public use and common use portions of the dwellings must be readily accessible to and usable by disabled individuals;


2. the doors are designed to allow passage into and within the dwelling to a wheelchair; and


3. the dwellings contain certain features of "Adaptive Design".

Adaptive Design is a concept that was developed by Barrier Free Environments, Inc. in a technical manual for HUD called Adaptable Housing. The only features of adaptive design required by the FHA (42 U.S.C. 3604(f)(3)) are:

1. accessible route into and through the dwelling;


2. light, switches, electrical outlets and environmental controls in accessible locations;


3. reinforcements in bathroom walls to allow later installation of grab bars; and


4. usable kitchens and bathrooms such that an individual in a wheelchair can maneuver).

The statute (42 U.S.C. 3604(f)(4)) itself contains a safe harbor which permits projects to meet these three requirements by complying with ANSI A117.1. The addition of the 2003 version of the UBC adds a second safe harbour for the accessibility requirements for new construction.

House Judiciary Committee Hearing

There is a hearing on Thursday, February 24, 2005 at 2:00 p.m. in room 325 on some bills of interest to community associations before the House Judiciary Committee before chair Rep. Sylvia J. Luke. The hearing notice discusses the following bills of interest to community associations:

HB1715 This bill adds sexual orientation and gender identity to the category of protected classifications in the residential real property transactions. Sexual orientation is currently a protected classification under the State fair employment laws. The bill would mean that Hawaii condo associations would be subject to claims for discrimination on the basis of sexual orientation or gender identity.

PERSONS WISHING TO TESTIFY ARE REQUESTED TO SUBMIT 35 COPIES OF THEIR TESTIMONY AT LEAST 24 HOURS PRIOR TO THE HEARING TO: (1) THE COMMITTEE'S VICE CHAIR IN ROOM 422, STATE CAPITOL, OR (2) THE HOUSE SGT.-AT-ARMS TESTIMONY DROP OFF BOX IN THE TURNAROUND AREA OF THE CAPITOL BASEMENT PARKING LOT. TESTIMONY MAY ALSO BE FAXED IF LESS THAN 5 PAGES IN LENGTH TO THE HOUSE SGT.-AT-ARMS OFFICE AT: 586-6501 (OAHU) OR 1-800-535-3859 (NEIGHBOR ISLANDS). WHEN FAXING, PLEASE INDICATE TO WHOM THE TESTIMONY IS BEING SUBMITTED, THE DATE AND TIME OF THE HEARING, AND THE REQUIRED NO. OF COPIES THAT IS NEEDED FOR SUBMITTAL.

What is the Federal Fair Housing Act?

The Federal Fair Housing Act was adopted in 1968 as Title VIII of the Civil Rights Act of 1968. In 1988, Congress expanded the scope of the Federal Fair Housing Act by adopting the Federal Fair Housing Amendments Act of 1988. The Federal Fair Housing Amendments Act established new enforcement procedures and created two new protected classifications. The Federal Fair Housing Act protects individuals from housing discrimination on the basis of race, color, religion, sex, familial status, disability, or national origin. These categories are known as "Protected Classes". In addition, the Hawaii State Fair Housing Act adds the classification of age and marital status to the Protected Classes.

What is Familial Status Discrimination?

What is Familial Status Discrimination? The Federal Fair Housing Act introduced “familial status discrimination” in 1988. Lawmakers chose to use the term "familial status discrimination” rather than the more easily understood term “discrimination against families with minor children”. Under the Federal Fair Housing Act, it is illegal to discriminate against families with minor children in housing.