The Civ. Assoc. Deaf, et al v. Giuliani, et al
Filing
142
AMENDED OPINION: Defendants' motion to vacate or modify the permanent injunction is denied. (Signed by Judge Robert W. Sweet on 11/29/2011) (ft)
UNITED STATES DISTRICT COURT
SOUTHERN DISTRICT OF NEW YORK
THE CIVIC ASSOCIATION OF THE DEAF OF
NEW YORK CITY/ INC. and STEVEN G.
YOUNGER/ on behalf of themselves and
all others similarly situated/
Plaintiffs,
95 Civ. 8591
AMENDED
OPINION
-against
CITY OF NEW YORK ET AL./
Defendants.
--- -x
Sweet, D.J.
Defendants Michael Bloomberg, as Mayor of the City of
New York/ Salvatore Cassano, as Commissioner of the
re
Department of the City of New York ("FDNY") / and the City of New
York (collectively, the "Defendants") have moved to vacate or
modify the permanent injunction imposed by the Court on February
9, 1996. 1
The Defendants seek to vacate the injunction in order
These individual defendants are successors to the original defendants, Mayor
Rudolph Giuliani and Commissioner Howard Safir, who were sued in their
official capacities. These updated Defendants are automatically substituted
by operation of Fed. R. Civ. P. 25(d).
The successors to the other original
defendants (the Majority and Minority Leaders of the New York City Council,
the Speaker of the New York City Council, and City Clerk and Clerk of the New
1
1
to deactivate the remaining street
arm boxes in New York CitYI
replacing them with the use of E-911 through public payphones
and a tapping protocol to allow deaf and hearing impaired
persons to communicate to dispatchers.
reasons
I
Defendants
I
For the following
motion is denied.
I. Prior Proceedings
The Civic Association of the Deaf
Inc. and Stephen G. Younger, II
filed a putat
New York CitYI
(collectively, the "Plaintiffs
ll
)
class action on October 10, 1995, seeking to
enjoin Defendants from removing street alarm boxes 2 under the
Americans with
lities Act of 1990 (ADA), the
Rehabilitation Act of 1973 (RA), and the equal protection
clauses of the Fifth and Fourteenth Amendments to the Uni
States Constitution.
On February 13, 1996, the Court certified
York City Council, all sued in their official capacities) take no position on
this motion because the New York City Council is currently cons
a
proposed local law lifting
local law restrictions on the deactivation
of the street alarm box system.
2 As discussed in more detail below, there are two forms of street alarm box
which will be referenced in this opinion. The ERS boxes are more modern and
feature two buttons, allowing users to call and speak with either police or
fire/EMS dispatchers. The BARS boxes are older, and users pull a lever which
sends an alarm to FDNY only via morse code. Over two-thirds of the c
's
street alarm boxes are ERS boxes.
2
the class and found that Defendants' plan to remove the street
alarm boxes violated the ADA and RA, but not the equal
protection clauses, and enjoined Defendants from executing their
removal plan (the "injunction").
Specifi
ly, the Court barred
Defendants from "carrying out any shutdown, deactivation,
removal, elimination, obstruction, or int
erence with the
existing street alarm box system, and from acting to replace the
existing accessible street alarm box system with notification
alternatives which are not accessible to the deaf."
Civic
Association of
Deaf v. Giuliani, 915 F. Supp. 622, 639
----------------------------------------(S.D.N.Y. 1996)
("Civic I").
The Court held that the 911 system
existing at
time was an inadequate alternat
to the street
alarm box system "because public telephones [did] not enable the
deaf and hearing impaired to request fire assistance directly
from the street."
Id.
Underlying
findings:
(1)
"the
Civic I decision were two factual
to date has not established
911 is in place and effective," or that telephone location
information was reliable
establishing the location of
public pay telephones; and (2) there was "no evidence" that
Defendants had effected a proposed tapping protocol by which
3
E
deaf and hearing impaired users of 911 and the street alarm
boxes could indicate their need
Id. at 638.
police or fire/EMS services.
The Court left open the opportunity for Defendants
to have the injunction modified or vacated "by demonstrating
that an accessible notification alternat
exists.
Among the
means by which Defendants can meet this burden will be by
demonstrating that E 911 is in operation and effective
throughout
ty and that a protocol has
providing the deaf and hearing impaired wi
report a fire."
the ability to
Id. at 639.
The Court also discussed features
required to demonstrate that a system meets
the ADA, using De
developed
would be
requirements of
s' E-911 system as an example:
Defendants are correct in asserting that E 911, if
operative and effective as proposed, could meet the
requirements of
ADA. To do so, it would have to
provide the hearing impaired with a means of
identifying not only their location, but also the type
of emergency being reported. The default response
currently proposed
sending a police car to all
silent calls
would cause needless delay in the case
of a fire. A protocol similar to that currently used
when calls are
from ERS boxes would provide a
means of calling for fire assistance.
It would serve
to make public telephones serve a similar function to
that currently served by
ERS and BARS boxes.
Several factors, however suggest that the E-911 system
does not at present provide an adequate notification
4
alternat
First, the evidence to
has not
established that E 911 is in place and
fective.
Moreover, assuming that the system has gone on-line as
scheduled, there is no evidence that the system
functions as projected to identify ef
t
ly the
location of the
ephone from which calls are
reported.
Second, although Defendants
luded to a
proposed protocol, no evidence has been offered that
one has been af
ted. To comply with the ADA,
Defendants would have to develop such a protocol and
disseminate the
t of its existence to
deaf and
hearing impaired.
Id. at 638.
On June II, 1996, Defendants sought to vacate the
injunction, but withdrew that attempt on April I, 1997.
Meanwhile, on February 24, 1997, Plaintiffs moved
Court to
restore two-button alarm boxes in areas where they had been
removed or replaced as part of a pilot program before the
injunction had been ordered.
On July 28, 1997, the Court issued
an opinion holding that "one button" emergency alarm boxes 3
violated the ADA and RA and must be converted to "two button"
boxes.
Association of
352, 363 (S.D.N.Y. 1997)
Deaf v. Giuliani, 970 F. Supp.
("Civic 11").
The Court also found
the reduced number of boxes in pilot areas did not violate
the ADA and RA.
Id.
In rendering its decision
t
the Court noted
"One-button" emergency alarm boxes did not allow the user to specify whether
the emergency required police or fire/EMS assistance.
3
5
that
n
[t]he question is whether modifying the injunction in this
manner is consistent with
purpose behind the original
relief: ensuring that the City's emergency response system
comports with the Plaintiffs' right to equal access under the
ADA and the Rehabilitation Act.,,4
rd. at 358.
On October 27, 1998, Defendants again sought to vacate
or modify the injunction.
This motion was withdrawn on May 25,
Judgment was entered on January 21, 2000.
1999.
Defendants' current motion to vacate or modify the
unction was filed on June 23, 2010.
Oral argument took place
on June 3, 2011.
II.
Statement of Facts
a. Street Alarm Boxes
are currently 4,918 BARS and 10,159 ERS boxes in
New York
ty.
~
Dingman Decl. at
4; Rosenzweig Decl. at ~ 9.
For reasons discussed below, the standard to be applied in
compliance with the ADA and RA, as clarified in subsequent cases before the
Second Circuit, is whether a protected group has "meaningful access," not
"equal access,"
4
6
ERS boxes have a red button for fire service and a blue button
for police service,
lowing users to visually recognize and
specify the service they need.
Decl. at ~~ 9, 14.
Dingman Decl. at ~ 5; Rosenzweig
ERS boxes put the user in two-way contact
with the specified emergency personnel, allowing the user to
Dingman Decl. at ~ 5.
speak to a dispatcher.
When an ERS
button is pressed, a tone is emitted and continues until the
call is answered.
Rosenzweig Decl. at
~
21.
The FDNY requires
that calls be answered within ten seconds and that appropriate
units are dispatched immediately, and the New York Police
Department ("NYPD") also responds to alarm box calls promptly.
Rosenzweig Decl. at
~~
23 24; Dingman Decl. at
~
13.
If a call
from an ERS box is not answered within ten seconds, a unit is
automatically dispatched to the call site.
13.
Dingman Decl. at ~
Up to 32 ERS boxes may be on a single ci
t at a time,
but only one two-way communication may take place on a given
circuit at a time.
Dingman Decl. at ~ 14.
If a circuit is
already being used for a two-way communication, a call from
another box on the same circuit will register the second box's
location and a unit will
dispatched
ter ten seconds, but
two-way communications cannot occur until the preceding calIon
the circuit has ended.
Dingman Decl. at ~~ 13-14.
7
BARS boxes have a handle which sends an alarm to the
FDNY via Morse code/ but it does not have the capacity for two
Rosenzweig Decl. at ~ 9i Dingman Decl. at ~
way communications.
6.
When a BARS box is activated/ the FDNY
at minimum a
ladder company and an engine company to the boxls location.
Dingman Decl. at
~
7.
This means that BARS boxes require no
communication beyond a lever pull to get emergency fire services
to the boxls location.
Rosenzweig Decl. at
~
13.
However/ BARS
box users cannot specify a need for police services.
Street alarm boxes are located at approximately
other block on the streets of New York CitYI as well as on
highways, terminals, and bridges and in public buildings,
schools, hospitals,
Nations.
Rosenzweig
sons, daycare centers, and the United
. at
~ 10.
When a request for
is
made using a street alarm box, the location of that box is
instantly communica
to the dispat
, allowing him or her to
send emergency units to the box's locat
information.
Rosenzweig Decl. at
8
~
11.
without any more
The City tests ERS boxes daily to be sure they are in
working order.
Rosenzweig Decl. at ~ 22.
If any box fails the
test, a Communications Electrician is immediately requested to
inspect the box.
Rosenzweig Decl. at ~ 22.
defective, it is replaced while it is repai
Decl. at ~ 22.
If no replacement is
If the box is
Rosenzweig
lable, the box is
draped in a sign indicating that it is temporarily out of
service.
Rosenzweig Decl. at
~
22. If
box is in good
condition but has a circuitry problem, it is draped in a sign
indicating that it is out of service until it is fixed.
Rosenzweig Decl. at
~
22.
To maximize the effectiveness of the
system, adjacent boxes are powered by different circuitry.
Rosenzweig Decl. at
~
22.
b. The Tapping Protocol
The tapping protocol was originally developed in 1996
for use by deaf and hearing impaired persons when interacting
with ERS boxes.
Dingman
. at ~ 9; Guerriera Decl. at ~ 7.
The tapping protocol allows users to specify through repeated
two-taps or single taps on the receiver whether they need fire
or police assistance,
ively, though the two-buttons
9
available on an ERS box already allow users to make such a
selection by selecting the police or fire services button.
Dingman Decl. at ~ 10; Guerriera Decl. at ~ 7; Schroedel Decl.
at , 12.
Use of the tapping protocol also prevents an ERS call
from being deemed "silent," and tapping for fire services is
considered a report of a structural fire.
12.
Dispatchers have been trained and drilled in the tapping
protocol since 1997.
~
Dingman Decl. at ,
Dingman Decl. at ,
l1i
Guerriera Decl. at
10.
Calls in which the tapping protocol is heard by
dispatchers are rare.
In 2007, only 25 calls to the FDNY were
described as "tapping" calls.
21 were malicious false
Vecchi Decl. at , 24.
Of those
arms/ 3 did not require fire services,
and one was an actual fire, though the ERS call was the
seventeenth call reporting the fire.
Vecchi Decl. at
~
24.
In
2008/ 12 calls to the FDNY were designated as "tapping calls."
Vecchi Decl. at
~
25.
Of those/ 10 were malicious false
one was "unwarranted" and the last was "unnecessary."
Decl. at , 25.
arms,
Vecchi
In other words, no tapping call reported an
actual emergency in 2008.
In 2009, only 6 calls to the FDNY
were designated as tapping calls, all of which were malicious
10
se alarms.
Vecchi Decl. at , 26.
Of course, it is unclear
the low amount of tapping calls is due to underuse of
street alarm boxes or the population's lack of familiarity
with the tapping protocol.
The City has made efforts to disseminate
protocol through fire safety presentations
the deaf, religious organizations, and
associated with the hearing impaired.
However, the breadth and effectiveness
efforts are unclear.
tapping
to schools for
organizations
Decl. at "
3-4.
these distribution
The tapping protocol was not part of the
FDNY's fire training efforts until
early summer of 2010.
Galvin Dep. 18:9-19:6, 31:14 31:25, 46:25-47:23.
Although the Mayor's Office for People with
Disabilities (MOPD) has
a website relating to the use
of the tapping protocol on street alarm boxes and public
payphones, the Defendants
not produced evidence of an
effective outreach program
Schroedel Decl. at "
deaf and hearing impaired.
7, 18.
11
It does not appear that the tapping protocol has ever
been tested on public payphones, and the tapping protocol
largely failed testing on ERS boxes.
Rosenzweig Decl. at ~ 33i
Stulberg Decl. at ~~ 69-70.
c. Public Payphones
When a telephone call comes into the E-911 center, the
ANI/ALI database, maintained by Verizon, identifies the number
and the address associated with that number.
~
12.
publ
Guerriera Decl. at
This enables police and fire units to be directed to a
payphone's location without the caller needing to report
his or her location.
In 2009, the ALI/ANI database had an
accuracy rate of 99.9998%.
Guerriera Decl. at
~
13.
The
ALI/ANI database is run by Verizon, meaning that the City must
rely on a private provider for up-to date locations of publ
payphones.
Rosenzweig Decl. at
~
34.
Public payphones are, for the most part, monitored by
the New York City Department of Information Technology and
Telecommunications ("DoITT"), which manages the phone
franchises.
Shor Dep. 20:23-21:10.
12
However, the DoITT is not
responsible for payphones located in parks, subways, on
property, or in public buildings.
Shor Dep. 21:12 22:25.
All
told, the DoITT is responsible for approximately 14,500 phones
within its network.
Shor
38:17.
Inspections of public
payphones are made pursuant to outside complaints and DoITT
policy considerations.
Shor Dep. 53:16-54:23.
In general,
City does not control the exact number
of payphones in the Ci
and where they are located, and
franchise holders install and remove payphones based on their
profitability, though the City can insist that a phone be placed
in a certain location for public need.
Shor Dep. 65:8 66:25,
157:3-157:15, 162:6 162:20.
New York City's public payphones are,
the most
part, not equipped with devices or services that enable deaf and
hearing impai
persons to effectively
Rosenzweig Decl. at
to receive
~
26.
While the NYPD and FDNY are equipped
Is placed through Telecommunications Devices for
the Deaf (TDDs), no evidence has been
payphones
emergencies.
ed that public
the equipment required to make such calls.
Furthermore, public payphones are not evenly distributed
13
throughout the City, and their numbers are in decline.
Rosenzweig Decl. at ~ 29; Shor Dep. at 69:9 69:13.
payphones in the city are damaged and unusable.
at
~
Many public
Stulberg Decl.
41, Exs. 21 23.
When a person uses a public payphone to report an
emergency, they must wait for a dial tone on the receiver, place
the call, wait for the call to be answered by either a recording
or dispatcher, and communicate the form of emergency services
required.
Rosenzweig Decl. at ~ 31.
This is unli
ERS boxes,
where a user can broadly specify the emergency without speaking
by
ecting the button
Decl. at ~~ 9, 14.
the service they need.
Rosenzweig
Users must rely upon the tapping protocol to
communicate their emergency if they cannot speak.
For the deaf and hearing impaired, it is not possible
to tell if a payphone is working unless it has a TTY light,
which indicates
sually that the phone is in working order.
Sonnenstrahl Dep. 57:1-57:14; Schroedel Dep. 46:16-46:19;
Schroedel Decl. at ~ 11.
The same problem exists with ERS
boxes, as there is no reliable way for deaf and hearing impaired
persons to confirm that their call has been answered.
14
Sonnenstrahl Dep. 57:15-58:3; Schroedel Dep. 46:23-46:25.
As
initially contemplated, deaf and hearing impaired persons would
be able to feel vibrations from the ERS box when calling the
dispatcher and when the dispat
~
answered (Rosenzweig Decl. at
21), but the City (in open court) and two of Plaintiffs'
witnesses have represented that
work.
vibration system does not
Sonnenstrahl Dep. 57:18 57:22; Schroedel Dep. 65:4-65:7.
Even so, it has been represented to
Court that deaf persons
have more faith in the street alarm box system than public
payphones, as they can visually speci
the services they need
and trust the City to maintain the boxes.
Schroedel Decl. at ~~
11, 17.
d. The Cost and Use of the Street Alar.m Box System
The driving force behind the Cityts attempts to
deact
the street alarm boxes is cost.
in matters of fiscal concern, the New York
As is often the case
ty Office of
Management and Budget (OMB) instigated a review by the FDNY of
the use and cost of the street alarm box system in 2009 and
2010.
Testimony was presented in 2010 at City Council hearings
15
in support of legislation permitting the removal of the
boxes.
Stulberg Decl. at
~~
arm
21-26.
City has estimated that deactivation of the boxes
in 2011 or 2012 would save it $6.3 million.
3.
~
The City expects the annual cost of maintaining the street
alarm system to rise to $7 million by 2014.
Am. Rush Decl. at
~
Capital costs for the street alarm boxes have been proj
6.
to be $24.8 million over the next ten years.
~
Am. Rush Decl. at
7.
To put
Am. Rush Decl. at
se costs into perspective, the annual cost of
running a fire station is $1.7 million.
Am. Rush Decl. at
~
8.
All told, the estimated annual cost of the street alarm box
system for the next 10 years is $8.8 million.
~
9.
The FDNY is facing difficult budgetary
Am. Rush Decl. at
s, and it
would like to redirect the funds currently supporting the street
arm box system. s
Supp. Rush Decl. at ~ 5.
The use
emergencies has decl
street alarm boxes to report FDNY
substantially over the past 15 years.6
It appears that, in proposing to remove the street alarm boxes, the City
initially thought mobile phones would be an adequate replacement for
emergencies from the street.
Stulberg Decl. at ~~ 20-25.
5
6 The statistics provided to the Court through the Vecchi Declaration and
attached exhibits only address FDNY incidents (fire and EMS services). While
16
1. at ~ 9, Ex. K.
Vecchi Decl. at Ex. Ci Supp. Vecchi
In
1999, alarm boxes were used to report FDNY incidents 42,497
Vecchi Decl. at Ex. C.
t
By 2009, that number had
Vecchi Decl. at ~ 8,
declined to 12,931 times, a fall of 69.6%.
Ex. C.
Meanwhile, reporting verbally, through private alarm
systems and through telephone calls, increased.
Ex. C.
In 2009, FDNY emergenc
times, dwarfing
~
8, Ex. C.
Vecchi Decl. at
were reported by phone 401,056
use of street
arm boxes.
Vecchi Decl. at
Focusing on structural fires, while
these serious fires has declined over all
number of
(Rosenzweig Decl. at
40, Ex. H), the amount of structural fires reported through
street alarm boxes has declined from 1,188
2009, a fall
88.2%.
Vecchi Decl. at
~
1999 to 140 in
9, Ex. B.
The decl
in phone calls reporting structural fires was only 30.7%.
Vecchi Decl. at ~ 9, Ex. C.
increase in mobile phone usage is a significant
factor in
trends.
Rosenzweig Decl. at
~
46.
Emergencies
are most often reported by phone, and the City has promoted
calling 911 to report emergencies.
Vecchi Decl. at
~
7, Ex. Ci
the statistics suffer from a lack of NYPD data, the FDNY statistics show
significant trends in the use of street alarm boxes.
17
~
Rosenzweig Decl. at ~ 41.
of all structural fires,
Street alarm boxes report only 0.5%
1.4% of non-structural fires,
0.6% of
all non-medical emergencies, and 0.2% of medical emergencies.
Vecchi Decl. at
the
~
22.
However, the rise
mobile phones and
significance in reporting emergencies from the street does
not suggest that the deaf and hearing impaired, who cannot yet
use mobile phones to report emergencies, no longer need street
alarm boxes.
Rosenzweig Decl. at
~
46.
The decline in the use of street alarm boxes has been
steady and significant and cannot be explained by a decline in
legitimate emergencies.
In 1997, there were 388,947 legitimate
fire and medical emergency incidents reported to the FDNY, 8,996
(2.3%) of which were reported through a street alarm box.
Vecchi Decl. at
medi
~
9.
By 2003, the total number of fire and
emergency incidents rose to 403,194, but only 3,918 (1%)
of these were reported through street alarm boxes.
Decl. at
SUpp.
~
9.
In 2010, the trend continued.
Supp. Vecchi
The number
fire
and medical emergency incidents rose again to 481,294, while the
number reported through street alarm boxes fell further to 1,770
(0.4%).
Supp. Vecchi Decl. at
~
9.
Thus, while the number
legitimate incidents reported to the FDNY rose by 24% between
18
1997 and 2010, the number of legitimate incidents reported by
Supp. Vecchi Decl. at ~ 10.
street alarm box declined by 80%.
Among the causes for the decline have been the promotion of
ternatives to street alarm boxes and a lack of promotion of
street alarm boxes themselves.
42.
Rosenzwe
Decl. at
so been in
The maintenance of street alarm boxes has
decline, with the rate of out of service boxes
ing from
1.9% in 2003 to 10.1% in 2008 and 9.4% in 2010.
~
Decl. at
43.
~~ 41
Rosenzweig
The result of this trend is not only more boxes
being in disrepair, but also the public sense that the boxes do
not work.
Rosenzweig Decl. at
~
43.
e. Malicious False Alar.ms
While the amount
ies reported through
street alarm boxes has declined s
ficantly, street alarm
malicious false alarms. 7
boxes are a substantial source
In
2009, 2,805 of the 3,102 FDNY incidents received from BARS boxes
were malicious false
is a 90.4% malicious
Ex. D.
7
arms.
Vecchi Decl. at
se alarm rate.
~
15, Ex. D.
Vecchi Decl. at
ERS boxes were not as prone to abuse.
~
15,
In 2009, 1,578 of
Malicious false alarms are intentional false reports of emergencies.
19
That
the 2,847 FDNY incidents received from ERS boxes were malicious
false alarms, a rate of 55.4%.
Vecchi Decl. at Ex. D.
In 2009,
the FDNY responded to 447,639 calls for actual fire/EMS
emergenc
(that is, all calls that were not malicious
se
arms) from all reporting sources, among which 911 was the
largest.
See Vecchi Decl. Ex. D.
Of these calls, only 0.4%
(1,935 of 447,639) originated from street alarm boxes, and many
of those calls were redundant reports.
& n.4, Ex. D.
~
See Vecchi Decl. at
10
In all, the street alarm box system is
responsible for 2.7% of the incoming calls but 43.3% of
malicious false alarms burdening the FDNY.
18, Ex. D.
In tot
~
Vecchi Decl. at
, nearly 11,000 malicious false alarms came
in from street alarm boxes that year.
See Vecchi Decl. Ex. D.
The malicious false alarm rate for street alarm boxes is 85%,
while it is 3.1%
Ex. D.
As not
all other sources.
Vecchi Decl. at
~
19,
above, 37 of the 43 "tapping" calls received
from ERS boxes from 2007-2009 were malicious false alarms, a
rate of 86%, while only one "tapping" call reported an actual
emergency in that time, and it was redundant.
27.
20
Vecchi Decl. at
~
Malicious false alarms waste police and fire
resources, delay emergency services for actual emergencies, and
emergency personnel racing through the streets of New York.
Vecchi Decl. at , 21.
In other words, malic
se alarms
carry a risk of serious harm to emergency personnel and the
residents of the City.
Vecchi Decl. at , 21.
In response to high rates
malicious false alarms
transmitted through street alarm boxes, a silent call from an
ERS box between the hours of 8 a.m. and 11 p.m. will only elicit
a response from the FDNY under certain circumstances.
Decl. at , 8.
Dingman
If an unintelligible voice is heard on the other
end of an ERS box call between 8 a.m. and 11 p.m., emergency
services will be sent to the box.
Rosenzweig Decl. at , 17.
Also, if the tapping protocol is used on the ERS box between 8
a.m. and 11 p.m., the reques
to the box's location.
emergency services will be sent
Rosenzweig Decl. at "18-19.
Between
the hours of 11 p.m. and 8 a.m., even silent calls will receive
immediate emergency
Rosenzweig Decl. at , 16.
f. Potential Alternatives to the Street Alarm Box System
21
The issues surrounding the use of payphones, E-911,
and the tapping protocol are not unique to New York.
Research
and implementation are going forward on Next Generation 911
("NG911") and text based emergency reporting.
NG911 is an
effort to update emergency services in light of
increasing
use of, and dependence on, wireless and mobile
Framework for Next Generation 911 Deployment, 76
2297 (Jan. 13, 2011); U.S.
Innovative Tech. Admin., Re
Generation 911 (May 6, 2011).
See
Reg. 2297,
't of Transp., Research and
Success Stories: Next
As part of the planning efforts
surrounding NG911, authorities have recognized that persons with
disabilities now use "the Internet and wireless text
as
their primary modes of telecommunications" and governments are
attempt
to develop capabilities in voice and data via the
Internet.
See Nondiscrimination on the Basis of Disability in
State and Local Government Services; Accessibility of Next
Generation 9 1 1, 7S Fed. Reg. 43,446, 43,446 (Jul. 26, 2010).
Some municipalities already accept text based emergency
reporting.
For example, Sacramento
via email from persons with disabilit
43,449.
22
s emergency reporting
See 7S Fed. Reg at
III. Legal Standard
An injunction is an equitable and "ambulatory remedy
that marches along according to the nature of a proceeding.
II
Sierra Club v. U.S. Army Corps of Engineers, 732 F.2d 253, 256
(2d Cir. 1984).
As such, it is "subject always to adaptation as
events may shape the need.
U.S. 106, 114 (1932)
215 (1997)
i
II
United States v. Swift & Co., 286
see also
ini v. Felton, 521 U.S. 203,
(injunctions subject to change in light of "a
significant change in either factual conditions or the law") .
Accordingly, a court may modify an injunction to accommodate
changed c i rcums t anc e s , D=-.; ;. a:. .,;v:. . ;i:. . ;s=----v.:. . . ;. .~N'-. •:. ~-'--_=_::.'_=_.dL_.:=_=_=__==:....;:....;._::..:::.=..::.:::...:.._ ' 2 78 F. 3 d
.
64, 88 (2d Cir. 2002), or upon a showing that a continuation of
the injunction would be inequitable, N.Y. State Ass'n for
~R~e~t~a~r~d~e=d_C~h i_ld~re~n~v . __~~,
__
__
706 F.2d 956, 967 (2d
see also Fed. R. Civ. P. 60(b)
(listing the grounds
r. 1983)
i
relief
from a final judgment or order, which include when applying the
judgment "prospectively is no longer equitable" or "any other
reason that justifies relief").
The district court's power to
modify or vacate an injunction "is long established, broad, and
flexible.
II
----""
, 706 F.2d at 967.
23
IV.
The ADA and RA
Title II of the ADA, 42 U.S.C.
§
12101 et seq.,
provides in relevant part that "no qualified individual with a
disability shall, by reason of such disability, be excluded from
participation in or be denied the benefits of the services,
programs, or activities of a public entity, or be subjected to
discrimination by any such entity."
504 of the RA, 29 U.S.C.
§
42 U.S.C.
§
12132.
Section
794, similarly provides that" [n]o
otherwise qualified individual with a disability in the United
States ... shall, solely by reason of her or his disability, be
excluded from the participation in, be denied the benefits of,
or be subjected to discrimination under any program or activity
receiving Federal financial assistance ...
"
29 U.S.C.
§
794 (a) .
Regulations promulgated by the United States
Department of Justice to implement the ADA provide that a public
entity may not:
24
(1) Deny a qualified individual with a disability the
opportunity to participate in or benefit from
aid,
benefit or service;
(2) Afford a qualified individual with a disability an
opportunity to participate in or benefit from the aid,
benefit or service that is not equal to that afforded
others;
(3) Provide a qualified in individual with a
disability with an aid, benefit, or service that is
not as effective in affording equal opportunity to
obtain
same result, to gain the same benefit, or
to reach the same level of achievement as that
provided to others;
(4) Provide different or separate
ds, benefits, or
services to individuals with disabilit
class of individuals with disabilit
or to any
than is
provided to others unless such action is necessary to
provide qualified individuals with disabilities with
25
aids, benefits, or services that are as effective as
those provided to others;
[or]
***
(7) Otherwise limit a qualified individual with a
disability in the enjoyment of any right, privilege,
advantage, or opportunity enjoyed by others receiving
the aid, benefit or service.
28 C.F.R. 35.130(b) (1).
In addition, 28 C.F.R.
§
35.130
provides that "a public entity shall operate each service,
program, or activity so that the service, program, or activity,
when viewed in its entirety, is readi
accessible to and usable
by individuals with disabilities .... " 28 C.F.R.
Civic I, 915 F. Supp. at 635-36.
communications, 28 C.F.R.
§
§
35.130(a) i
In the realm of
35.160(a) provides that "a public
entity shall take appropriate steps to ensure that
communications with applicants, participants and members of the
public with disabilit
others."
28 C.F.R.
§
are as effective as communications with
35.160(a)
(quoted in Civic I, 915 F. Supp.
at 636).
26
The parties disagree over what standard of access
Defendants must meet to comply with the ADA and RA.
Defendants
cite a "meaningful access" standard, while Plaintiffs cite an
"equal access" standard.
PI
ntiffs have derived the equal
access standard from regulations promulgated under the ADA.
Specifically, Plaintiffs cite 28 C.F.R.
§
35.130(b) (ii), which
states that a public entity may not, on the basis of disability,
"[a]fford a qualified individual
th a disability an
opportunity to participate in or benefit from the aid, benef
or service that is not equal to that
C.F.R.
§
forded others," and 28
35.160(a), which states that "[a] public entity shall
take appropriate steps to ensure that communications with
applicants, participants, and members of the public with
disabilities are as ef
ive as communications with others."
The "meaningful access" standard urged by Defendants
is found in
case law and this Court's prior rulings,S
In
8 In
the Court referred to an "equal access" standard for compliance
with the RA and ADA.
970 F. Supp. at 358. However, the Court's holding
required only meaningful access. Defendants were not compelled to provide
deaf and hearing impaired individuals with equal means to report a fire from
the street, but readily accessible, effective means to do so.
. at 361;
,
915 F. Supp. at 635 36.
In other words, Defendants were
=-=-=-=---=
ordered to continue to provide meaningful access to the same emergency
services.
27
, 331 F.3d 261, 275
Henrietta D. v. BI
----------------------------=
(2d Cir. 2003), the
Second Circuit held that the relevant measure is "whether the
pI
with disabilities could achieve meaningful access."
if
, Lonberg v. City of Riverside, 571 F.3d 846, 851
See also,
r. 2009)
(9th
(stating that Title II's "prohibition against
ion is universally understood as a requirement to
provide 'meaningful access'll and citing cases); Iverson v. Ci
of Boston, 452 F.3d 94, 99 (1st Cir. 2006)
of
t
("The clear purport
II is to guarantee that qualified disabled persons
access to public services, programs, and
enjoy
activit
• II )
304 (1985)
i
see
---------"'-----------"-
Alexander v. Choate, 469 U.S. 287,
In formulating the meaningful access standard, the
Supreme Court
that had a
i
tly rejected the position that all conduct
impact on disabled persons violated the
Rehabilitation Act, noting "two powerful but countervailing
considerations
objectives and the
bounds."
ire to keep
§
504 within manageable
Alexander, 469 U.S. at 299.
standard thus struck a
goals.
to give effect to the statutory
The "meaningful access"
ance between these two legitimate
See Id. at 299-301.
28
To the extent that the regulations cited by Plaintiffs
require equal access, rather than meaningful access, public
programs, they would not be enforceable.
Sandoval, 532 U.S. 275, 285 (2001)
9
See Alexander v.
Abrahams v. MTA
i
Island
Bus, 2011 U.S. App. LEXIS 9450, at *20 (2d Cir. May 5, 2011)
(explaining that under Sandoval, a plaintiff must show that a
"regulation applies - but does not expand - the statute");
Iverson, 452 F.3d at 100 (noting that "regulations that
interdict a broader swath of conduct than the statute itself
prohibits" cannot be enforced under Sandoval
Supreme Court addressed Department of Just
promulgated to effectuate
§
In Sandoval, the
regulations
tIe VI of
601 of
Civil Rights
Act of 1964, which forbids only intentional discrimination.
See
532 U.S. at 278, 280. Because the regulations at issue
proscribed activities that had a disparate impact on racial
groups, "forbid [ding] conduct that
§
601 permits," the Supreme
Court held that the regulations were unenforceable.
Id. at 285.
Case law stresses that the ADA and RA do not require
equal results.
The ADA and RA prohibit discrimination against
9 The Court does not hold, and need not hold,
that the regulations relied upon
by Plaintiffs require equal access as opposed to meaningful access.
29
the disabled in the provision of public services t but the
statutes neither guarantee "any particular level of
ces]
for disabled persons, nor assure maintenance of service
previously provided."
•
--=-- t
Lincoln CERCPAC v. Health and Hosps .
147 F.3d 165 t 168 (2d Cir. 1998).
In addition t the
statutes do not guarantee disabled persons "equal results" from
the provision of a publ
U.S. at 304
service or bene
t.
Alexander t 469
("The [Rehabilitation] Act does not, however t
guarantee the handicapped equal results from the provision of
state Medicaid t even assuming some measure of equality of health
could be constructed."); see also Henrietta D.
t
331 F.3d at 274
(stating that Second Circuit cases applying the RA "speak simply
helping individuals with disabilities access public
in terms
benefits to which both they and those without disabilities are
legally entitled ... ; the cases do not invite comparisons to the
results obt
by indivi
s without disabilities") .
Plaintiffst arguments for a stricter "equal access"
standard thus fail t and Defendants t proposed removal and
replacement
the street alarm system will be analyzed under a
"meaningful access" standard.
30
Standards under and requirements imposed by the RA and
the ADA are effectively
same, and claims under the two
statutes are generally treated identically and in tandem.
~,
See,
Henrietta D., 331 F.3d at 272.
V. Discussion
Defendants claim that
systems meet the requirements
court's prior holdings.
tapping protocol and E 911
the ADA and RA and satisfy
s
They do not, and the injunction should
not be lifted based on equitable considerations.
a. efendants Have Failed to Satisfy the Court's Prior
D
Holdings
Defendants contend that the tapping protocol and E 911
provide deaf and hearing impaired persons with an "accessible
notification alternative" for reporting emergencies from the
street, Civic I, 915 F. Supp. at 639, as E-911 and the tapping
protocol "provide the hearing impaired with a means of
identifying not only their location, but also the type of
emergency being reported."
Id. at 638.
According to
Defendants, E 911 automatically provides the location
31
information of callers who contact 911 via public payphones, and
the tapping protocol permits deaf and hearing impaired callers
to indicate whether they are requesting fire/EMS or police
assistance.
(Guerriera Decl. at
Dingman Decl. at
~
~~
7, 12 & Exs. E-1-E-3;
10 & Ex. A).
Defendants have demonstrated the ANI-ALI database,
through which caller identification and location information is
obtained, to be accurate over 99% of the time and have pointed
to procedures in place to maintain that accuracy.
Guerriera
Dep. 23:6-24:11, 32:7-33:24, 34:9-17; Guerriera Decl.
Public payphones are included in the database.
~
13.
Guerriera Dep.
16:9-16:21.
Defendants have also shown that a tapping protocol has
existed for emergency reporting on street alarm boxes since
1996, with NYPD and FDNY call takers trained in the protocol.
Defendants have also established that a similar tapping protocol
exists for public payphones.
According to Defendants, street
alarm box calls are indistinguishable from, and treated as, E
911 calls (Guerriera Dep. 13:17-21), and call takers are trained
to handle tapping protocol calls in exactly the same way,
32
whether originating from street alarm boxes or from public
payphones (Guerriera Dep. 130:4-10, 134:8 15; see also
era
Decl. ~ 8 & Exs. E-2 & E-3 annexed thereto (NYPD Communications
Section Memorandum requiring PCTs to recognize and properly
handle tapping protocol calls, whether received from ERS boxes
or from telephone calls to E-911)).
c I,
In - - - - the Court held as follows:
s may
unction
notificat
which De
apply at any time to dissolve or modify
by demonstrating that an accessible
ternative exists. Among the means by
s can meet this burden will be by
that E-911 is in operation and effective
throughout
City and that a protocol has been
developed providing the deaf and hearing impaired with
the abili
to
a fire.
915 F. Supp. at 639; see also Civic II, 970 F. Supp. at 355
(" [A]n E 911 telephone system that actually identified the
location of the caller,
protocol to permit the
ong with the implementation of a
impaired to indicate the type of
emergency being reported, would be sufficiently accessible under
the ADA. ")
When the City's current
alarm boxes was proposed
2010,
33
to eliminate the street
changed circumstance was
considered to be the use of
I phones.
When this motion was
led! the Defendants relied on public payphones.
However! in
practice, public payphones and the tapping protocol do not
combine to establish an adequate accessible
ternative to
street alarm boxes! and they do not constitute a changed
circumstance.
Defendants claim that a call with tapping allows
a deaf or hearing impaired user to specify the needed form of
service, police or fire/EMS! and Defendants indicate that FDNY
dispatchers and NYPD call-takers are famil
trained in the tapping protocol.
with and regularly
However! Defendants have not
adequately demonstrated that the proposed alternative works.
The record reveals that public payphones are more akin
to the one-button street alarm boxes deemed inadequate in Civic
II.
Deaf and hearing impaired persons may use the payphones to
call! but they cannot specify the type of emergency without
either speech or the tapping protocol.
This is in stark
contrast to the two-button ERS boxes, where the user can see his
or her emergency service options and select one by pressing the
appropriate button.
The tapping protocol is supposed to allow
users to specify police or fire emergencies, but publ
payphones have not been tested with the tapping protocol.
34
Guerriera Dep. 98, Doc. 106-4, May 27, 2011; Dingman Dep. 56,
Doc. 106-2, May 27, 2011i Rosenzweig Decl. at 33.
Furthermore, public payphones are privately owned and
operated, and the number of public payphones has declined
substantially over the last 15 years.
Public payphones are not
located on every other corner (like street alarm boxes) or
otherwise distributed evenly throughout the City.
payphones are distributed and
In fact, the
pursuant to the
commercial interests of their owners, with the City having
little say over the phones' locat
not established that public pay
Thus, Defendants have
ephones will make E-911
operational and effective throughout
hearing impaired persons.
This is
City for deaf and
icularly so going
forward, as Defendants offer no basis from which the Court may
conclude that the number of payphones will not continue to
decline in the face of competition from mobi
phones.
This
renders the payphones an unstable solution.
Plaintiffs have also demonstrat
many payphones
not been maintained in good condition by
private
owners.
The City is unable to sufficiently police
35
maintenance and repair
public payphones, as it concedes that
it has only a handful of inspectors who tend to focus on phones
with histories of failure. 1o
public payphones cont
with di
Neither
City nor the owners of
s whether those devices are provided
tones by third-party providers on any given day, thus
aggravating the dispersion
private actors.
responsibility among the City and
Also, as noted above, because public pay
telephones are privately owned, their installation, removal,
upkeep and location are subject to financial, not public safety,
considerations.
Stulberg Decl. ~~ 37 39.
All of these issues stemming from payphone ownership
and maintenance are aggravated for a deaf or hearing impaired
person.
If a deaf or hearing impaired
ler can find a public
pay telephone that is not visibly damaged or missing parts, that
caller has no way of knowing if the telephone has a dial tone,
if
s or her
1 has been answered by a recording, by an
operator or at all, and has no way
operator
communicating with the
the absence of a tapping protocol that has been
This practice helps contribute to the DoITT's finding that 17-25% of
payphones are inoperable, which remains disconcerting even if one accounts
for the repeated inspection of troublesome phones. Whether or not
inoperability rates of public payphones for emergency use are inflated, the
problem is significant.
10
36
developed, disseminated and tested on such devices.
Decl. at ~ IIi Rosenzweig Decl. at ~~ 31, 33.
Schroedel
Significantly, a
broken payphone appears and acts no differently from a working
payphone from
persons.
ive of deaf or hearing impaired
Schroedel Decl. at
Defendants
~
11.
aim street alarm boxes are no better at
indicating to a deaf or
impaired person that they are
working and have made contact with a dispatcher.
to be true.
58:3.
This appears
Schroedel Dep. 64:5 65:7; Sonnenstrahl Dep. 57:15
However, this argument
s
key fact that public
payphones are less reliable than street alarm boxes, making the
issues arising from failures to connect more troubling.
Furthermore, ERS boxes allow the user to select a police or fire
connection, making them less dependent on the tapping protocol
which must occur once a call taker has answered the call.
Defendants must not only develop a meaningful
alternative, but they must udisseminate the fact of its
existence to the deaf and hearing impaired."
Supp. at 638.
Civic I, 915 F.
Information about the payphone tapping protocol
system is being distributed to the deaf and hearing impaired
37
population in New York City through resources available on
FDNY and NYPD websites, as well as the website maintained by
MOPD.
Defendants further claim that instructional materials are
e on Youtube and Wikipedia.
I
Defendants also cite eight
ous, educational, and community organizations which serve
the deaf and hearing impaired and for which demonstrations of
the tapping protocol were made.
However,
See Galvin Decl. at ~~ 3-4.
s have not demonstrated that this information,
which is
most part passively available on the Internet,
is actually
deaf and hearing impaired persons so as to
make its dist
ion effective.
To
cont
, Defendants have not conducted
sufficient outreach to places where the deaf and hearing
impaired community would be more likely to obtain information.
See, e.g., Galvin Dep. 18:9 19:6, 31:14 31:25, 46:25-47:23
(indicating that the FDNY did not include the tapping protocol
in fire emergency training
2-3, 4, 10-11.
to 2010)
To take an
i
Plummer Decl. at
endants have not posted
any notices about the tapping protocol on the payphones
themselves.
~~
Without sufficient
ion on the tapping
protocol, the deaf and hearing impai
38
community is left to
assume that standard payphones are not accessible to
Without such outreach,
tapping protocol cannot be deemed
effective, and the factual circumstances in this case have not
changed sufficiently to merit withdrawal
the injunction.
b.
The E-911 and Tapping Protocol System Does Not Provide
Meaningful Access to Emergency Service from the Street
Under the ADA and RA
As noted above,
tIe II of the ADA, 42 U.S.C.
§
12132,
provides that "no qualified individual with a
disability
I, by reason
such disabil
participation in or be denied the benefits
the services,
programs or activities of a public entity."
Civic I, 915 F. Supp. at 634.
similar protection of qualifi
The RA provi
persons.
, be excluded from
42 U.S.C.
§
12132;
for substant
29 U.S.C.
§
ly
794.
There is no dispute that deaf and hearing impaired persons are
qualified individuals under the ADA and RA.
The "meaningful access" inquiry under which ADA and RA
claims are evaluated asks "not whether the benefits available to
persons with di
lities and to others are actually equal, but
whether those with disabilities are as a practical matter able
to access benefits to which they are legally entitl
39
TI
Henrietta D., 331 F.3d at 273.
measured or defined in
"Meaningful access" is not
ion to the access that persons
without disabilities have to a particular service, nor
relate to the adequacy
See rd. at 275
ces provided.
iffs
(noting that the relevant measure is "whether the pI
with disabilities could achieve meaningful access, and not
whether the access the plaintiffs had (absent a remedy) was less
meaningful than what was
oyed by others"}
Giuliani, 230 F.3d 543, 548 (2d Cir. 2000)
i
v.
(explaining that the
disabilities statutes require that government entities enable
"'meaningful access' to such services as may
whether such services are adequate or not").
provided,
Rather, persons
with disabilities must be able to "benefit meaningfully" from
the specific
provides.
ce or benefit that a government entity
See
exander, 469 U.S. at 302.
Defendants fail to
meet this standard.
Defendants claim that the E 911 system with tapping
protocol provides deaf and hearing impai
persons with the
required meaningful access to emergency reporting services on
the street.
Defendants argue that this case is like Alexander,
in which Tennessee's proposed reduct
40
, from twenty to
fourteen t of the number of days its state Medicaid program would
cover inpatient hospital care was challenged.
In that case t
469 U.S. at 289.
it was undisputed that Medicaid recipients with
disabilities who used hospital services were more than three
times as likely to require more than fourteen days of care than
were their non-disabled counterparts.
See Id. at 289-90.
A
recipients with disabilities
class of Tennessee Medi
challenged the proposed reduction on the grounds that
reduction would have a disproportionate effect on them and was
thus discriminatory.
See Id. at 290.
The Supreme Court rejected the challenge t finding that
Tennessee Medicaid recipients with disabilities would still be
able lito benefit meaningfully from the coverage they will
receive under the 14 day rule t
ll
notwithstanding
for prolonged inpatient care. II
Id. at 302.
11
ir greater
The Court
explained that Section 504 of the Rehabilitation Act did not
require the State to alter the fourteen day coverage benefit
being offered IIsimply to meet the reality that the handicapped
have greater medical needs
ll
t
Id. at 303, but that the statute
instead IIseeks to assure evenhanded treatment and the
opportunity for handicapped individuals to participate in and
41
benefit from programs receiving federal assistance," Id. at 304.
Thus, although the proposed reduction fell more heavily on
individuals with disabilities than it did on others, because the
reduction "is neutral on its face,
is not alleged to rest on a
discriminatory motive, and does not deny the handicapped access
to or exclude them from the particular package of Medicaid
services Tennessee has chosen to provide," it did not violate
the Rehabilitation Act.
Id. at 309.
Following Alexander, Defendants argue that, to the
extent that Defendants' proposed removal of the street alarm
boxes would be a reduction in the emergency reporting service
being offered to deaf and hearing impaired persons, the
remaining E-911 system and ANI-ALI database when used with the
tapping protocol will continue to provide those persons
"meaningful access" to emergency services.
Defendants contend
that deaf and hearing impaired individuals will still have an
effective and accessible means of directly reporting emergencies
to 911 from the street via public payphones and will be able to
"benefit meaningfully" from the E-911 system that will remain
available.
Therefore, the argument goes, removal of the street
alarm boxes will not violate the RA or the ADA.
42
See rd. at 302,
309i see also, e . . , Wright, 230 F.3d at 548
(stating that the
disabilities statutes require government entities "to enable
'meaningful access' to such services as may be provided") .
Defendants also point to the Court's holding in Civic II, which
found that a street reporting system with less alarms did not
violate the ADA.
970 F. Supp. at 362-63.
In that decision,
this Court held that the relevant legal question was whether the
thinning of the system resulted in an emergency reporting system
that was "readily accessible" to the deaf and hearing impaired,
and not, as Plaintiffs had argued, whether the system was "less
accessible to the deaf than the non-deaf."
See Id. at 361.
Therefore, the inquiry focused on access and usability, as
opposed to "equal results."
See Id.; see generally Alexander,
469 U.S. at 304.
Defendants point out that there are roughly an equal
number of public payphones and street alarm boxes in the city
(15,077 alarm boxes and over 14,500 payphones).
However, as
found above, the distribution of payphones is not even and is
determined by commercial need, not the requirements of an
emergency reporting network.
In addition, the number of
43
payphones is in decline, and payphone removals will be
determined primarily by their owners' commercial interests.
Defendants also contend that payphones are a superior
option to BARS boxes, which only connect
services.
lers to FDNY
This argument suggests that BARS boxes should be
replaced by ERS boxes, which are, for the reasons discussed
above, superior to public payphones and already ef
tively
implemented across the city.
As
ained above with regard to Defendants' failure
to satisfy this Court's prior rulings, and unl
in Alexander,
public payphones, E 911 and the tapping protocol do not provide
an accessible
ternative for deaf and hearing impai
attempting to report an emergency from the street.
a scaling down
persons
Rather than
s benefit to a still meaningful level, the
removal of street alarm boxes and their replacement with
payphones, E-911, and
tapping protocol constitutes a
deprivation of a benefit provided to non-hearing impai
persons.
44
It has already been found that Defendants have not
demonstrated that the tapping protocol works on public
payphones, the City does not have sufficient control over
ion and maintenance of public payphones (and there are
demonstrated problems with the distribution and funct
ity of
public payphones), and information on the payphone and tapping
protocol system has not been sufficiently disseminated
deaf and hearing impaired community to be
the
Based on
these findings, the Court concludes that deaf and hearing
impaired persons do not have "meaningful access" to emergency
services from the street without the street
arm box system.
Therefore, Defendants' proposed removal of
system would
violate the ADA and RA.
g. efendants Have Not Satisfied the Requirements to Modify
D
or Vacate a Permanent Injunction on Equitable Grounds
As noted above, among
reasons a court may modify
an injunction is when its applicat
"is no longer equitable"
or to accommodate changed circumstances.
60(b) (5).
Fed. R. Civ. P.
In other words, a party must show "a significant
change either in
conditions or in law."
Felton, 521 U.S. 203, 215 (1997)
i
45
Agostini v.
see also, e.g., Davis v. N.Y.
Ci
Rous. Auth.
278 F.3d 64, 88 (2d Cir. 2002); Sierra Club v .
U.S. Army Corps of Eng'rs, 732 F.2d 253, 256 (2d
(noting that "in the case
the inquiry .
. 1984)
a final or permanent
unction,
. is whether there has been such a change in the
circumstances as to make modification of the
equitable
ll
)
•
While Defendants have shown that some of the factual
circumstances surrounding the injunction have changed, they have
not established that the injunction is now
Defendants cite the implementation
table.
E 911 and the
tapping protocol; however, as discussed above, those changes
have not rendered payphones and the tapping protocol
sufficiently accessible to deaf persons to
prior rUlings.
ter the Court's
Therefore, the "implementation" of this system
constitutes no change at all.
As found above, FDNY statistics indicate that the
street alarm box system generates only a small percentage of
legitimate calls for assistance, while burdening the City's
emergency response system with a disproportionate number of
false alarms.
46
The declining use of the street alarm box system
compared with 911 and other sources has escalated over the past
decade, and malicious false alarms now comprise the vast
majority of calls made via street alarm boxes.
By comparison,
only about 3% of the total calls from non-alarm box sources in
2009 were malicious false alarms.
See Vecchi Decl. Ex. D.
However, while the malicious false alarm problem is
significant, the FDNY has already acted to address it.
The FDNY
does not respond to silent calls made between 8 a.m. and 11 p.m.
on ERS boxes.
In Civic I, the Court noted that,
number of rescues
"a significant
[were] effected as a result of street
reporting [from alarm boxes]
.11
915 F. Supp. at 635.
The
statistics presented by Defendants indicate that street alarm
boxes playa much less significant role in overall emergency
reporting today.
At the same time, the permanent injunction is
not in place to signify the importance of street alarm boxes In
the overall emergency reporting system, in which mobile phones
now appear to be most useful to the general population.
Instead, the injunction recognizes that the deaf and hearing
47
impaired rely upon street alarm boxes to report emergencies from
the street, a reality which Defendants' statistics do not
refute.
The deaf and hearing impaired represent a small segment
of the population, and the overall decline in the use
street
alarm boxes does not establish that the system has become less
vital to them.
Defendants argue that deaf and hearing impaired
persons do not use the street alarm system, claiming that in the
past three years, the FDNY has received 43
Is in which some
form of tapping was perceived, of which 37 (86% of such calls)
were determined to be malicious false alarms.
Only one tapping
call reported an actual fire, and that call was the seventeenth
report received.
Vecchi Decl. at
~
27.
While these statistics
suggest that legitimate calls using a tapping protocol are rare,
they do not establish that deaf and hearing impaired persons are
not using street alarm boxes to report emergenc
they are not using the tapping protocol.
, just that
These statistics do
not establish that deaf and hearing impaired persons no longer
need street alarm boxes to report emergencies from the street.
48
In connection with the utility
boxes
I
the Defendants point out its cost
the street alarm
l
as found above.
Defendants contend that these costs impact the FDNY budget and
imply that fewer firefighters are being hired.
Defendants raise these points
l
Though
they do not claim that they are
eligible for the "undue burden" exception to
ADA and RA.
The cost of the alarm box system is undisputed but does not
constitute changed circumstances meriting a change
the
permanent injunction.
The Court is sympathetic to the burdens imposed by the
expensive
I
false report-prone street alarm box system.
s
case is living proof of the idiom that "no good deed goes
unpunished."
The City/s efforts to bring emergency services to
more people now require it to maintain those services in
to provide deaf and hearing impaired persons meaningful access
to report emergencies and to comply with the ADA and RA.
injunction remains an equit
In the future
l
solution.
given the use of text-based
communications in the deaf and hearing impa
community
allowing emergency reporting with mobile devices via text
49
I
message or email may obviate that community's need for street
alarm boxes to report emergencies from the street.
that alternat
Regrettably,
is not yet at hand.
Concl.usion
Based upon the facts and conclusions set forth above,
Defendants' motion to vacate or modi
is denied.
It is so ordered.
1-",
New York, NY
November
2011
50
the permanent injunction
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