Websites & the ADA: Accessibility in the Digital Age 1

Websites & the ADA: Accessibility in the Digital Age[1]

Prepared by:

Barry C. Taylor, Vice President of Civil Rights and Systemic Litigation, Equip for Equality

Rachel M. Weisberg, Staff Attorney, Equip for Equality

Introduction

Congress passed the Americans with Disabilities Act (“ADA”) in 1990 to “provide a clear and comprehensive national mandate for the elimination of discrimination against individuals with disabilities.”[2] The ADA prohibits discrimination in all aspects of society—from employment to government services to businesses to telecommunications. Despite these broad proclamations against discrimination, the ADA was silent about its application to the Internet. This is not surprising; in 1990, the Internet, at least as we know it today, did not exist. Throughout the last two decades, there has been a debate about whether the ADA’s non-discrimination requirements apply to websites. This Legal Brief explores the legal issues surrounding website accessibility, focusing on case law, regulatory interpretations, and settlement agreements. This Legal Brief first discusses the ADA, and then briefly outlines other relevant state and federal laws.

Internet Accessibility: Why it Matters to People with Disabilities

Over the past two decades, the Internet has completely altered the way most people live their lives. Instead of traveling from store to store to compare prices, consumers can quickly find the best deal by searching online. Instead of visiting a local government office, residents can easily apply for benefits, renew State-issued identification cards, file taxes, and even register to vote in some states, all by visiting their local government’s website. Instead of going to a library to learn more about the ADA, you were able to download this Legal Brief from a website. These technological advances have changed the way that college students register for classes, and how doctors’ offices share test results. The Department of Justice (“DOJ”) called the Internet “the ubiquitous infrastructure for information and commerce.”[3] In short, the Internet is everywhere, and affects nearly everything.

For some people, including many people with disabilities, the Internet opens doors. However, many people with disabilities have a difficult or impossible time navigating certain websites due to the existence of electronic barriers.

Internet Accessibility: A Primer on Website Accessibility

This Legal Brief does not provide technical guidance on how to make an accessible website. Nonetheless, it is important to have a basic understanding of what accessibility means in the virtual world to have a better understanding of the legal issues at play. Thus, this Legal Brief includes a short (albeit incomplete) introduction to a few common barriers to website access. For those interested in the technical aspects of website access, see the end of this Legal Brief for information about the various technical standards, and technical assistance materials regarding such standards.

Many barriers that exist in the virtual world impact individuals who are blind who use screen-reading software when using a computer. To aid the user, screen-reading software reads the text on the computer screen aloud. Screen-reading software only works, however, if the electronic content is configured in a readable way. For instance, if a website uses a graphic or an image to convey content, screen-reading software cannot read (or comprehend) the graphic or image, and as a result, the individual who is blind will be disadvantaged by not having access to the graphic/image’s meaning. However, there is a simple solution to this problem. The web developer, or the individual adding the content to the site, can label the graphic/image with a text description. This is frequently referred to as tagging the image with an “alt text.” With this additional description, the screen-reader (and consequently, the individual), will be able to obtain the same information conveyed visually through the graphic/image. For similar reasons, information conveyed through graphics or charts in an image form are only accessible with appropriate text descriptions. Further, given the manner in which screen-reading software reads content, websites containing tables need to be labeled with row and column identifiers that ensure that the information is understood in a meaningful way. Likewise, screen-reading software is unable to comprehend color, so when color is the exclusive medium to convey content, this content becomes inaccessible to a screen-reader. Color coding content also renders the content inaccessible to individuals who are colorblind. Similarly, some individuals with low-vision need to adjust a website’s font, size, or color contrast to access the information. Websites can be designed in a way to allow the user to manipulate the text in this way.

Barriers to Internet access exist for individuals with other types of disabilities as well. For example, if a website includes a video, this content is inaccessible to a user who is deaf or hard of hearing, unless the video is captioned. Further, websites that require the user to manipulate a mouse, without providing keyboard alternatives, are inaccessible to some individuals with mobility disabilities. While there are certainly a number of additional examples of electronic barriers, and solutions, one final example is that web content should not include flashing visual content, which can trigger seizures.

Although websites exist in the virtual world, an accessible website has much in common with an accessible building. Like a physical building, it is more cost-effective to create an accessible website in the first instance, instead of retro-fitting it later for accessibility.[4] Second, the principles of universal design apply to websites, just as they do to physical buildings. A ramp might be intended to create access for an individual who uses a wheelchair, but also benefits others, including parents with strollers or travelers with suitcases. Likewise, accessible websites might be intended to benefit people with disabilities, but can benefit others as well. Captioning on a video may be intended for a user who is deaf, but would also benefit a non-native English speaker, or a user navigating the website in a crowded venue. Further, the same technology that enables text to be readable by screen-reading software also makes text searchable, a feature that benefits all users.

Americans with Disabilities Act

Whether websites must be accessible to people with disabilities has been a hot topic in the legal and disability community for the past fifteen years. Throughout the country, courts have expressed differing opinions about whether Title III of the ADA applies to the Internet, and if so, under what circumstances. The DOJ, on the other hand, the federal agency charged with promulgating regulations and enforcing Titles II and III of the ADA, has a well-established position that the ADA requires web entities to be accessible to people with disabilities. However, to date, the DOJ’s position has come in the form of settlement agreements, amicus briefs, statements of interest, and an Advanced Notice of Proposed Rulemaking (“ANPRM”). It is expected that the DOJ will soon issue its Notice of Proposed Rulemaking (“NPRM”), which is the next step in the rule-making process. The DOJ has indicated that it will issue its NPRM for Title II entities in August 2014[5] (which has already passed), and in March of 2015 for Title III entities.[6] Further discussion about the DOJ’s rule-making process can be found below.

Title III (Places of Public Accommodation)

The vast majority of cases involving the ADA and website accessibility arise under Title III, and most of those cases turn on whether the website at issue is a place of public accommodation. Title III states that “[n]o individual shall be discriminated against on the basis of disability in the full and equal enjoyment of the goods, services, facilities, privileges, advantages, or accommodations of any place of public accommodation by any person who owns, leases (or leases to), or operates a place of public accommodation.”[7]

Given this language, to fall within Title III’s coverage, an entity must be a “place of public accommodation.” The ADA and its implementing regulations define “public accommodation” by providing twelve categories of entities that are “considered public accommodations,” so long as they “affect commerce.”[8]

These twelve categories are:[9]

• an inn, hotel, motel, or other place of lodging, except for an establishment located within a building that contains not more than five rooms for rent or hire and that is actually occupied by the proprietor of such establishment as the residence of such proprietor;
• a restaurant, bar, or other establishment serving food or drink;
• a motion picture house, theater, concert hall, stadium, or other place of exhibition or entertainment;
• an auditorium, convention center, lecture hall, or other place of public gathering;
• a bakery, grocery store, clothing store, hardware store, shopping center, or other sales or rental establishment;
• 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;
• a terminal, depot, or other station used for specified public transportation;
• a museum, library, gallery, or other place of public display or collection;
• a park, zoo, amusement park, or other place of recreation;
• a nursery, elementary, secondary, undergraduate, or postgraduate private school, or other place of education;
• a day care center, senior citizen center, homeless shelter, food bank, adoption agency, or other social service center establishment; and
• a gymnasium, health spa, bowling alley, golf course, or other place of exercise or recreation.

Thus, the threshold question in any case challenging the accessibility of a website under Title III of the ADA is: Is the website a place of public accommodation?

History: Insurance Precedents and Other Cases Preceding ADA Access Cases

Courts in the U.S. judicial system are bound by the principle of stare decisis, a doctrine that requires courts to follow applicable precedential decisions. At times, however, courts are faced with questions of first impression, which is when the court is the first in its jurisdiction to rule on a particular issue. Under those circumstances, courts look to decisions with analogous facts as guidance to inform their ruling.

For this reason, to understand the current state of law as it relates to the ADA and website access, it is critical to understand the cases that shaped these decisions, many of which were against insurance companies. In the insurance cases, litigants sued insurance companies, alleging that the companies’ policies violated Title III of the ADA because disparities existed either in coverage for physical versus mental disabilities,[10] or because the policy placed a cap on specific disabilities, such as HIV- and AIDS-related illnesses.[11]

Because these cases were brought under Title III, the courts first had to determine whether the insurance companies, and the policies that they offered, were places of public accommodation. While these cases had differing substantive results, they made a number of important statements about the ADA’s definition of public accommodation. Some courts held that Title III applied to conduct that occurred outside of a place of public accommodation,[12] although others found that Title III applied only to physical places of public accommodation and did not regulate conduct that occurred outside of the physical structure, unless there was a nexus to a physical place of public accommodation.[13]

Case Law: Title III Applies to Conduct Outside of a Physical Structure

The first appellate court decision on this issue, Carparts Distribution Ctr., Inc. v. Automotive Wholesaler’s Association of New England, Inc., was decided in 1994 by the First Circuit.[14] In Carparts, the First Circuit assessed whether Title III applied to an insurance policy. In holding that it did,[15] the First Circuit reviewed the ADA’s definition of public accommodations, and concluded that the list of twelve categories is “illustrative,” meaning that it does not include each and every entity that could be a public accommodation. Then, it noted that the definition of public accommodation does not explicitly include a requirement that the entity be limited to a physical structure. The court also emphasized that Congress must have intended Title III to include entities that do not require a person to physically enter “an actual physical structure” because it included “travel service” as an example of a place of public accommodation.[16] The court reasoned that many travel services conduct business by phone or correspondence, with customers who never actually enter a physical site, and concluded that: “[i]t would be irrational to conclude that persons who enter an office to purchase services are protected by the ADA, but persons who purchase the same services over the telephone or by mail are not. Congress could not have intended such an absurd result.”[17] This language and rationale is relied on in future website access cases.

To further support its decision, the court in Carparts also cited the ADA’s legislative history, emphasizing that the ADA “invoke[s] the sweep of Congressional authority … in order to address the major areas of discrimination faced day-to-day by people with disabilities.”[18] Given this broad purpose, the court determined that “[t]o exclude this broad class of businesses from the reach of Title III and limit the application of Title III to physical structures which persons must enter to obtain goods and services would run afoul of the purposes of the ADA and would severely frustrate Congress’s intent that individuals with disabilities fully enjoy the goods, services, privileges and advantages, available indiscriminately to other members of the general public.”[19] Notably, while the insurance company in Carparts was a traditional brick-and-mortar establishment, the First Circuit did not state that a service offered off-site required a nexus to a place of public accommodation to be covered by Title III.

When faced with a similar legal question regarding the applicability of Title III to an insurance policy, the Seventh Circuit cited the First Circuit’s decision in Carparts, and stated that the “core meaning” of Title III is that the owner or operator of a “store, hotel, restaurant, Web site, or other facility (whether in physical space or in electronic space) . . . that is open to the public cannot exclude disabled persons from entering the facility and, once in, from using the facility in the same way that the nondisabled do.”[20] Like in Carparts, the Seventh Circuit said nothing about requiring a nexus between the website and a physical place of public accommodation.

Case Law: Title III Requires a Nexus Between the Discrimination and a Physical Structure

Other circuits, however, have concluded that places of public accommodation are “actual, physical places where goods or services are open to the public, and places where the public gets those goods and services.”[21] For instance, in Weyer v. Twentieth Century Fox Film Corp., the Ninth Circuit reviewed the ADA’s list of examples of places of public accommodation, and concluded that each example is a physical place, and thus, for Title III to apply, there must be a connection between the alleged good or service, and the actual physical place. This language is later relied on by courts in the Ninth Circuit when assessing a number of ADA web access cases.

Similar to Weyer, the Sixth Circuit in Parker v. Metropolitan Life Insurance Co.,[22]and the Third Circuit in Ford v. Schering-Plough Corp,[23] both concluded that Title III did not apply to the insurance policies in question because there was no nexus between the policy and the physical insurance office. Meanwhile, the Second Circuit reached a different conclusion about Title III’s coverage, without explicitly accepting or rejecting the nexus requirement.[24] In Pallozzi v. Allstate Life Ins. Co., the court reviewed Title III’s language requiring the “full and equal enjoyment of the goods, services, facilities, privileges, advantages, or accommodations of any place of public accommodation.”[25] Noting that the meaning of the word “of” is distinct from the word “in,” the Second Circuit concluded that Title III could apply to the sale of insurance policies, even if such policies were sold outside of the insurance office.[26]

In addition to the insurance policy cases, one other case is important to the development of the website access jurisprudence. In Rendon v. Valleycrest Productions, Ltd., individuals with hearing and mobility disabilities sued the producers of the television quiz show “Who Wants to be a Millionaire,” alleging that the show’s contestant hotline tended to screen out applicants with disabilities.[27] The show screened potential contestants by using a game called “fast finger,” which required applicants to answer a series of questions via a telephone number, without a TTY option. Because speed was critical to an applicant’s success, use of the relay service for individuals who are deaf was not an option, and individuals with mobility impairments were disadvantaged. This case was brought under Title III, and thus, the court had to determine whether the contestant hotline was a place of public accommodation. The lower court found that it was not, dismissed the case, and the plaintiffs appealed the decision.