As illustrated by the case described herein, under certain circumstances, a federal court may dismiss a claim alleging a violation of the Americans with Disabilities Act (ADA) as "moot" if the challenged governmental policy or practice has been terminated with no reasonable possibility that it will reoccur.
In the case of Silva v. Lee County, 2021 U.S. Dist. LEXIS 197008 (M.D. Fla. 10/13/2021), Plaintiff Cesar Silva, a disabled military veteran living in Lee County, Florida, required the use of a service animal, an 8-year-old German Shepherd named Sophia. Silva claimed he was unable to visit a public beach with Sophia because Lee County had banned all service animals from that beach in violation of the ADA, 42 U.S.C. §§ 12101-12213. Accordingly, Silva sued Lee County for violating Title II of the ADA.
In response, Lee County filed a motion to dismiss Silva's lawsuit. In so doing, Lee County argued its so-called "ban" on service animals was nothing more than a poorly worded sign that has since been removed. According to Lee County, the voluntary removal of the sign had effectively addressed any alleged violation of the ADA and, therefore, had "mooted" Silva's lawsuit (i.e., no live dispute remained to provide jurisdiction for a federal court).
Silva opposed the motion to dismiss because he believed there was still a live continuing controversy as to Lee County's purported ban on service animals.
No Pets or Service Animals
Silva had multiple disabilities, including post-traumatic stress disorder (PTSD) and required the use of a walker and cane to ambulate. Silva's service dog, Sophia, helped Silva by picking up objects he dropped, alerting others when he required assistance, and acting as a barrier between him and large crowds. Sophia had "received over 1,500 hours of training in obedience, socialization, desensitization, public access training and advanced skill work" through Guardian Angels Medical Service Dogs, Inc.
In February 2021, Silva and Sophia attempted to visit Bunche Beach, a public beach in Lee County. Silva claimed he was prevented from visiting Bunche Beach because Lee County had banned all pets and service animals from that beach. To prove the existence of this ban, Silva's complaint cited: (1) a screenshot from Lee County's website that provided information about Bunche Beach and stated, "Pets are not allowed at this park"; and (2) a picture of a sign Silva encountered on his visit.
The sign at issue contained the words "NO PETS OR SERVICE ANIMALS" in large print on top. In smaller print immediately below, the sign stated: "This preserve provides habitat for wildlife protected by the Endangered Species Act." The middle of the sign contained an interdictory circle, inside of which was a silhouette of a dog on a leash.
Toward the bottom, the sign cited "Lee County Ordinance 18-12 as amended" and stated that according to "Architectural Barriers Act Standards § 1019.1 exceptions to the ADA exist where compliance is limited or precluded by federal law, including the Endangered Species Act (16 U.S.C. §§ 1531 et seq)" or other laws intended to "preserve threatened or endangered species."
On March 11, 2021, Silva brought this action against Lee County, alleging that its policy banning service dogs from Bunche Beach violated Title II of the ADA. About a month later, Lee County moved to dismiss the action as moot.
New Signage
In support of the motion to dismiss, Lee County filed a declaration from Alise Flanjack, deputy director for Lee County Parks and Recreation. Flanjack stated that the sign Silva photographed at Bunche Beach had been removed on February 18, 2021.
As described by Flanjack, the original sign was erected because the U.S. Fish and Wildlife Service "had designated all of the shoreline at Bunche Beach as a critical habitat for federally threatened species of birds."
As characterized by the federal district court, the sign seemed to recognize that "dogs ostensibly posed some kind of threat to these birds." That being said, it remained unclear to the court "how the Architectural Barriers Act and the Endangered Species Act interfere with a person with a disability's right to bring a service dog to a public beach":
The Architectural Barriers Act and its administrative standards were enacted "to insure whenever possible that physically handicapped persons will have ready access to, and use of, qualifying buildings." 42 U.S.C. § 4152. While the Architectural Barriers Act Standards § 1019.1 exempts compliance if precluded by the Endangered Species Act, it is not clear how that statute relates to service dogs.
In her declaration, Flanjack indicated Lee County had "ordered new signage with revised language" and installed it at Bunche Beach on March 17, 2021. A mockup of the "new signage" was attached to Flanjack's declaration. The design for the new signage was very similar to the original sign Silva had photographed; i.e., a blue background with an interdictory circle containing a silhouette of a dog. The language of the new sign, however, was much different. The top of the new sign now stated, "NO PETS ALLOWED," without reference to service animals or the Endangered Species Act. Below the interdictory circle, the new sign contained the following language:
In accordance with the Americans with Disabilities Act (ADA), service dogs are permitted on any beach open to the public. A service dog is trained to do specific tasks directly related to the owner's disability. Emotional support animals, comfort animals, and therapy dogs are not considered service animals under the ADA and, therefore, are not permitted. A service dog must remain under the owner's control at all times. Any individual whose failure to maintain control of a dog results in disturbance to wildlife will be asked to leave the beach and may receive a citation.
At the bottom, the new sign again cited "Lee County Ordinance 18-12 as amended." Besides the redesign, Flanjack also noted that Lee County Ordinance 18-12 exempted service animals from any prohibition on entering any public park, including Bunche Beach. In particular, Lee County Florida Ordinances No. 18-12, § 9.6(M) (2018) provided: "Service Animals are exempt from area restriction in accordance with federal and state law." As a result, Lee County contended the sign Silva had photographed was "apparently contradicted by the same local law that it cited."
After Silva was notified of Lee County's motion to dismiss, he returned to Bunche Beach and photographed a different sign that was "still posted on the property" and made it "appear as though not all animals are permitted at Bunche Beach." This sign, however, merely stated, "NO PETS Allowed," and contained an interdictory circle with a dog silhouette. The sign made no references to service animals, the Endangered Species Act or Lee County ordinances.