771
August 26, 1998
The Honorable Michael Bilirakis
Member, U.S. House of Representatives
1100 Cleveland Street
Suite 1600
Clearwater, Florida 33755
Dear Congressman Bilirakis:
I am responding to your letter on behalf of your
constituent, xxxxxxxxxxx, who asked you to initiate an
investigation of the implementation of the Americans with
Disabilities Act of 1990 (ADA) by the Disability Rights Section
of the Civil Rights Division.
Mr. xxxxxx letter to you makes unfounded assertions about
the Division's ADA implementation. Mr. xxxx is basing his
request on a recent article in a publication called The Mouth,
which alleged that the Disability Rights Section has completed
only one ADA case since the statute was enacted. This assertion
is simply wrong. It is premised on a failure to understand the
role of the Department of Justice in ADA implementation, the
nature of the Federal civil law enforcement process, and the
allocation of ADA implementation responsibility within the Civil
Rights Division.
The ADA prohibits discrimination on the basis of disability
in employment, transportation, public services, and public
accommodations. The Department of Justice bears the primary
responsibility for the implementation of title II (public
services) and title III (public accommodations) of the ADA. The
Equal Employment Opportunity Commission (EEOC) has the primary
responsibility for implementing the ADA's employment requirements
and the Department of Transportation (DOT) has primary
responsibility for implementing the transportation-related
requirements. However, the Department of Justice is responsible
for litigation involving public employers or public
transportation providers and all enforcement involving private
transportation providers.
The Disability Rights Section is assigned to implement these
requirements. The Section uses a multi-faceted approach to
achieve compliance with the ADA. The Section investigates
charges of discrimination and, when appropriate, initiates
litigation. In addition, the Section intervenes as a party in
some ongoing litigation and participates as amicus curiae in
other district court cases. The Section also sponsors a pilot-project on ADA mediation. Under this program, the Section has
awarded grants to train more than 350 professional mediators in
45 States and the District of Columbia to resolve ADA disputes
without litigation.
In addition to these enforcement responsibilities, the
Section reviews accessibility codes to determine if they are
equivalent to the ADA. The Section operates an extensive ADA
technical assistance program that includes a technical assistance
grant program, the publication of technical assistance documents,
and the operation of a toll-free ADA information line that
receives over 160,000 calls each year. The Section also has
responsibilities under section 504 of the Rehabilitation Act, the
Small Business Regulatory Enforcement Fairness Act, and Executive
Order 12,250. The Section's activities affect six million
businesses and non-profit agencies, 80,000 units of state and
local government, 54 million people with disabilities, and over
100 other Federal agencies and commissions in the Executive
Branch. Additional information about all of these activities is
provided on the Section's ADA Home Page on the Internet
(http://www.usdoj.gov/crt/ada/adahom1.htm).
As of March 1998, the Disability Rights Section has a staff
of 79 people, including 28 attorneys, assigned to handle these
responsibilities. The Section's resources are supplemented, as
appropriate, by other Civil Rights Division staff. The Appellate
Section handles cases in the U.S. Courts of Appeals, and the
Special Litigation Section litigates ADA matters that arise in
the context of investigations under the Civil Rights of
Institutionalized Persons Act.
With these limited resources, the Department has
participated in 116 lawsuits as of May 1998. In 60 of these
cases, the Department either initiated the litigation or
intervened in an ongoing lawsuit. Fifty eight of these cases
were handled by the Disability Rights Section; two were handled
by the Special Litigation Section. The Department has also
appeared as amicus curiae in 56 cases. The 20 amicus appearances
in U.S. Courts of Appeals were handled by the Appellate Section
with the assistance of the Disability Rights Section. Of the 36
amicus appearances in U.S. District Courts, 34 were handled by
the Disability Rights Section, and two were handled by the
Special Litigation Section. We have enclosed a copy of the Civil
Rights Division's ADA case list for your reference.
The Division's extensive amicus participation enables us to
fulfill one of our primary obligations in ADA litigation -- to
influence the development of case law interpreting the ADA. The
Department carries out this obligation in any lawsuit in which it
participates. However, our experience has been that one of the
most effective ways to target our limited resources is to
participate as amicus curiae in cases where significant legal
principles will be developed. As amicus, we are able to share
our expertise on the legal issues with the court, without
expending the significant resources required to initiate and
litigate a case.
In addition to the cases that have been litigated since
1992, the Civil Rights Division has received over 10,000 ADA
complaints that have been opened for investigation. As of July
1998, the Division has also received 469 referrals of employment
discrimination charges from the EEOC, and three matters have been
referred for possible litigation by other Federal agencies.
In resolving these complaints, the Disability Rights Section
is guided by Executive Order 12,988, which requires Federal law
enforcement agencies to seek pre-litigation resolutions of
alleged violations. Therefore, the Section diligently attempts
to resolve cases through both formal and informal settlements
before filing lawsuits. For instance, as of May 1998, the
Section has offered 671 complainants the opportunity for
mediation. However, even after a lawsuit is filed, the Section
continues to seek pre-trial resolutions, such as consent decrees,
which will bring about ADA compliance in the most cost-effective
manner. As of May 1998, over 50 of these matters have been
resolved through settlement agreements or consent decrees.
Despite the Division's accomplishments, we recognize that
there are some people who we are not able to assist in a way that
they find satisfactory. It appears that Mr. xxxx is one of those
individuals. At the present time, the Disability Rights Section
has two open investigations of complaints received from Mr. xxxx.
One of the pending complaints was initially received in February
1996, but action was deferred while mediation was attempted.
When mediation was unsuccessful, the Disability Rights Section
initiated an investigation which is close to resolution. The
second pending complaint, received in July 1996, is presently
involved in mediation. The Disability Rights Section defers
action on complaints that have been referred for mediation until
the mediation process is completed. If mediation is successful,
the complaint file is closed. If mediation is unsuccessful, the
Section will review the file to determine if further action by
the Department is appropriate.
The Disability Rights Section has corresponded directly with
Mr. xxxx about his pending complaints. In addition to the
pending complaints, the Section has received complaints from Mr.
xxxx that have not been opened for investigation. This appears
to be the source of much of his dissatisfaction. In his letter
to you, Mr. xxxx criticized the Section for failing to provide
appropriate "customer service." His comments indicate that he
believes that the Department is required to investigate each
complaint that it receives.
The role of the Department of Justice in ADA enforcement is
often misunderstood by members of the public. Many people
believe that the Department's role is to provide legal services
for aggrieved individuals. Therefore, they expect that the
Department will pursue each complaint until it is resolved to the
satisfaction of the complainant. This perception is incorrect.
As a law enforcement agency, the Department's responsibility
is to ensure the fair and effective implementation and
enforcement of the law. When the Department initiates an
investigation or a lawsuit, it acts on behalf of the United
States, not on behalf of an individual complainant. The
Department's goals in litigation are to address violations that
raise issues of general public importance and to establish legal
precedent that may be relied on by other litigants. Although
individual complainants may form the basis for the Department's
actions, the Department does not act as the attorney for the
complainant.
The ADA specifically provides that each individual
complainant has the right to initiate ADA enforcement litigation
on his or her own behalf. Actions to enforce titles II and III
may be filed at any time. Title I incorporates certain
procedural requirements before a private lawsuit may be filed.
In summary, the Disability Rights Section works to promote
compliance with the ADA in a cost-effective manner. The Section
attempts to avoid costly litigation by resolving complaints
amicably through informal or formal settlement agreements or
through mediation. Nevertheless, the Section will not hesitate
to file lawsuits when covered entities refuse to come into
compliance voluntarily.
Since the ADA's inception, the Section has emphasized the
need to educate the public about the law. By using resources to
enlighten rather than simply litigate, the Department has
encouraged voluntary compliance. However, when the Section is
unable to gain voluntary compliance, the Department has used --
and remains committed to using -- all the enforcement tools that
the law provides.
I hope that this information is helpful to you in
responding to Mr. xxxx. As you requested, I am returning your
constituent's correspondence.
Sincerely,
Bill Lann Lee
Acting Assistant
Attorney General
Civil Rights Division
Enclosure
Updated 2008-07-25