Right to Emotional Support Animals in No Pet Housing brochure

10 Fair Housing Information Sheet # 6 Right to Emotional Support Animals in No Pet Housing Advocates and professionals have long recognized the benefits of assistive animals for people with physical disabilities , including Seeing Eye dogs or hearing dogs that are trained to perform simple tasks such as carrying notes and alerting their owners to oncoming traffic or other environmental hazards Recent research suggests that people with psychiatric disabilities can benefit significantly from assistive animals , too Emotional support animals have been proven extremely effective at ameliorating the s ymptoms of these disabilities , such as depression and post - traumatic stress disorder , by providing therapeutic nurture and support See Psychiatric Service Animals page for information about other issues and the 2010 definitions of service and companion animals under the ADA , the Fair Housing Act , and Section 504 See also comments filed with the Department of Justice in 2008 and the Department of Transportation December 2009 addressing proposed regulations governing the use of psychiatric service animals , descri bed in our December 8 , 2009 Action Alert The Fair Housing Amendments Act of 1988 , Section 504 of the Rehabilitation Act of 1973 , and Title II of the Americans with Disabilities Act protect the right of people with disabilities to keep emotional support animals , even when a landlords policy expli citly prohibits pets Because emotional support and service animals are not pets , but rather are considered to be more like assistive aids such as wheelchairs , the law will generally require the landlord to make an exception to its no pet policy so tha t a tenant with a disability can fully use and enjoy his or her dwelling In most housing complexes , so long as the tenant has a letter or prescription from an appropriate professional , such as a therapist or physician , and meets the definition of a person with a disability , he or she is entitled to a reasonable accommodation that would allow an emotional support animal in the apartment What exactly is a reasonable accommodation Discrimination under the FHA includes a refusal to make reasonable accommod ations in rules , policies , practices , or services , when such accommodations may be necessary to afford [ a person with a disability ] an equal opportunity to use and enjoy a dwelling 42 USC § 3604 f 3 B So long as the requested accommodation does no t constitute an undue financial or administrative burden for the landlord , or fundamentally alter the nature of the housing , the landlord must provide the accommodation The Department of Housing and Urban Development HUD and several courts have explicit ly stated that an exception to a no pets policy would qualify as a reasonable accommodation See , eg , Bronk v Ineichen , 54 F 3d 425 , 429 7th Cir 1995 balanced against landlords economic or aesthetic concerns as expressed in a no - pets policy , deaf tenants need for accommodation of hearing dog is per se reasonable ; Fulciniti v Village of Shadyside Condominium Association , No 96 - 1825 WD Pa Nov 20 , 1998 defendantPagecondominium association had not presented any evidence suggesting that the ten ants assistive animal created a threat or disturbance , and therefore violated the FHA by failing to provide a reasonable accommodation ; Occupancy Requirements of Subsidized Multifamily Housing Programs , HUD , No 43503 , exhibit 2 - 2 1998 it would not c onstitute a fundamental alteration in the nature of the program or activity to require the Owner to make an exception to the no pets rule so that tenant could keep assistive animal , where assistive animal includes emotional support animals for people wit h chronic mental illness Depending upon the type of housing in which the tenant resides , his or her right to a reasonable accommodation will be grounded in one , or any combination , of the following statutes Statute Covered Housing Elements of Reasonabl e Accommodation Claim Fair Housing Act Applies to virtually all forms of housing , whether for sale or rent The exceptions include a buildings with four or fewer units where the landlord lives in one of the units , and b private owners who do not own more than three single family houses , do not use real estate brokers or agents , and do not use discriminatory advertisements 1 Tenant has a disability ; 2 Landlord Housing Authority knows about disability ; 3 Reasonable accommodation may be necessary to afford tenant an equal opportunity to use and enjoy his or her dwelling ; and 4 Reasonable accommodation would not constitute an undue burden or fundamental alteration Rehabilitation Act of 1973 , § 504 Applies to any program that receives federal ass istance , such as public or subsidized housing although a landlord who only accepts Section 8 rental assistance is not subject to § 504 1 Tenant has a disability ; 2 Tenant was excluded from and denied participation in services , programs , and activities ; 3 Exclusion was because of disability ; and 4 Reasonable accommodation would not constitute an undue burden or fundamental alteration ADA , Title II Applies t o any state or local government , or its instrumentalities , regardless of federal financial assistance This would include local housing agencies , such as your public 1 Tenant has a disability ; 2 Tenant was excluded from and denied pa rticipation in services ,Pagehousing authority programs , and activities ; 3 Exclusion was because of disability ; and 4 Reasonable accommodation would not constitute an undue burden or fundamental alteration Is the tenant a person with a disability In order to qualify f or a reasonable accommodation under the FHA , § 504 , or the ADA , the tenant must meet the statutory definition of having a disability The statutes recognize three broad categories of disabilities 1 a physical or mental impairment that substantially li mits one or more major life activities such as walking , seeing , working , learning , washing , dressing , etc ; 2 a record of having such an impairment ; or 3 being regarded as having such an impairment Being able to substantiate ones disability is crit ical in requesting a reasonable accommodation In the event that a landlord does not allow the emotional support animal , and the tenant pursues legal action , the court will require evidence of the tenants disability For an example of a case in which the court rejected an emotional support animal claim for lack of evidence of a disability , see Housing Authority of New London v Tarrant , 1997 Conn Super LEXIS 120 Conn Super Ct Jan 14 , 1997 [ G ] iven an appropriate factual predicate , mental handicap may warrant reasonable accommodations , including the keeping of an animal in a public housing complex However , in the instant case , that factual predicate is missing and the defendant has failed in her burden of proving that reasonable accommodations must be made Request an exception to the landlords no pet rule If one needs an emotional support animal to ease the symptoms of a disability as defined above , he or she should request a reasonable accommodation , in writing , from the landlord , manager or other appropriate authority The request should state that the tenant has a disability and explain how the requested accommodation will be helpful In addition , the tenant should include a note from his or her service provider , such as a doctor or therapi st , verifying the need for the support animal see sample letter , below , as an example Note that the tenant need not disclose the details of the disability , nor provide a detailed medical history Establishing that the support animal is necessary in order to use and enjoy the residence is critical Courts have consistently held that a tenant requesting an emotional support animal as a reasonable accommodation must demonstrate a relationship between his or her ability to function and the companionship of the animal See , eg , Majors v Housing Authority of the County of Dekalb , 652 F 2d 454 5th Cir 1981 ; Housing Authority of the City of New London v Tarrant , 1997 Conn Super LEXIS 120 Conn Sup er Ct Jan 14 , 1997 ; Whittier Terrace v Hampshire , 532 NE 2d 712 Mass App Ct 1989 ; Durkee v Staszak , 636 NYS 2d 880 NYAppDiv 1996 ; Crossroads Apartments v LeBoo , 578 NYS 2d 1004 City Court of Rochester , NY 1991 Although the landl ord is entitled to ask for supporting materials which document the need for an emotional support animal , federal law does not require the tenant to provide proof of training orPagecertification of the animal The two courts that have addressed this issue dire ctly - the Court of Appeals for the Seventh Circuit and the US District Court of Oregon - have held that the only requirements to be classified as a service animal under federal regulations are that the animal be 1 individually trained , and 2 work fo r the benefit of an individual with a disability For a more detailed discussion , see Bronk v Ineichen , 54 F 3d 425 7th Cir 1995 and Green v Housing Authority of Clackamas County , 994 FSupp 1253 Or 1998 If it is not an undue burden or a fundamental alteration , the landlord must grant the requested accommodation In assessing a tenants request for emotional support animal as a reasonable accommodation , the landlord is entitled to consider the administrative , financial , or programmatic repe rcussions of allowing an animal onto the premises , including the potential disturbance to other tenants Typically , a landlord will have a difficult time establishing that an emotional support animal constitutes a fundamental alteration or undue burden As noted earlier , in its internal regulations governing federally assisted housing , HUD specifically states that allowing an assistive animal does not constitute an undue burden See Occupancy Requirements of Subsidized Multifamily Housing Programs , HUD , No 43503 , exhibit 2 - 2 1998 explaining that allowing an assistive animal is not a fundamental alteration If the emotional assistance animal is particularly disruptive , or the tenant fails to take proper measures to ensure that the animal does not bother other tenants , however , the landlord may be justified in denying the accommodation or ultimately filing for an eviction See , eg , Woodside Village v Hertzmark , FH - FL Rptr ¶ 18,129 Conn Sup Ct 1993 , in which the court found that a federally assist ed housing complex did not violate the Fair Housing Act by evicting a resident with mental illness for failure to walk his dog in designated areas and to use a pooper - scooper If the requested accommodation is unreasonable , the landlord may propose a subs titute accommodation In so doing , the landlord should give primary consideration to the accommodation requested by the tenant According to the Department of Justice ADA Technical Assistance Manual , II - 71100 It is important to consult with the individua l to determine the most appropriate auxiliary aid or service , because the individual with a disability is most familiar with his or her disability and is in the best position to determine what type of aid or service will be effective This view has been e ndorsed by a number of courts within the context of other reasonable accommodation claims under the FHA , ADA and § 504 See , eg Sullivan v Vallejo City Unified School District , 731 FSupp 947 , 958 DC Cal 1990 In the event that a landlord suggests an alternative accommodation , the tenant can reject it if he or she feels it is inadequate In Green v Housing Authority of Clackamas County , 994 FSupp 1253 , 1256 , the federal district court of Oregon rejected defendant housing authoritys proposed sub stitute accommodation of flashing smoke alarm and doorbell for a hearing assistance dog In granting the tenants motion for summary judgment , the court found that the dog could alert the tenant to phone calls , cars in the driveway , visitors , and smoke ala rms , no matter where he was in the house , and that the strobe lights were only installed in the bedroom and hallway , and were therefore less effective in ameliorating the effects of the tenants hearing impairment PagePage pageNumber5The landlord will allow an emotional s upport animal , but wants to charge an excessive deposit The Housing & Urban - Rural Recovery Act of 1983 protects the right of tenants in federally assisted housing for the elderly or persons with disabilities to have a pet , and further provides that the landlord is entitled to charge a deposit for that pet to cover any resulting damage to the property However , if a pet is more properly characterized as a service animal , the tenant should be exempt from the deposit According to HUDs internal regulati ons Service animals that assist persons with disabilities are considered to be auxiliary aids and are exempt from the pet policy and from the refundable pet deposit Examples include guide dogs for persons with vision impairments , hearing dogs for people with hearing impairments , and emotional assistance animals for persons with chronic mental illness Occupancy Requirements of Subsidized Multifamily Housing Programs , HUD , No 43503 , 4 - 13 b 1998 Few courts have addressed the imposition of pet deposits on the vast majority of tenants who are not protected by the Housing and Urban - Rural Recovery Act The only case to specifically consider the legality of charging a pet deposit for an assistive animal involved a service dog belonging to a tenant with a ph ysical disability See HUD v Purkett , FH - FL ¶ 19,372 HUDALJ July 31 , 1990 , in which a HUD administrative law judge issued an injunction barring the owner and manager of an apartment complex from charging a tenant a deposit for her service dog It could be argued that a landlord would be likewise prohibited from imposing such a deposit for an emotional support animal Generally , under the FHA , ADA , and § 504 , landlords are required to incur some expenses in making reasonable accommodations , so long as tho se costs are not an undue financial burden See United States v California Mobile Home Park Management Co , 29 F 3d 1413 , 1416 9th Cir 1994 , in which the Court of Appeals of the Ninth Circuit held that , the history of the FHAA clearly establishes that Congress anticipated that landlords would have to shoulder certain costs involved [ in making reasonable accommodations ] , so long as they are not unduly burdensome When a tenant requests an emotional support or other assistive animal , the landlord should not assume , without justification , that the animal will cause excessive , financially burdensome damage In the event that a tenants assistive animal does cause significant damage , that tenant should certainly be held financially liable However , it would contravene the purpose of the statutory protections afforded people with disabilities to allow a landlord to charge a deposit at the outset , in the absence of any significant damage Just as it would be inappropriate to charge a tenant who uses a wheelcha ir a deposit for potential damage to carpeting , it would be similarly imprudent to demand a deposit from a tenant who uses an assistive animal PagePage pageNumber6Sample Letter from a Service Provider [ date ] Name of Professional therapist , physician , psychiatrist , rehabilitation counselor XXX Road City , State Zip Dear [ Housing Authority Landlord ] [ Full Name of Tenant ] is my patient , and has been under my care since [ date ] I am intimately familiar with his her history and with the functional limitations imposed by his her disability He She meets the definition of disability under the Americans with Disabilities Act , the Fair Housing Act , and the Rehabilitation Act of 1973 Due to mental illness , [ first name ] has certain limitations regarding [ social interaction c oping with stress anxiety , etc ] In order to help alleviate these difficulties , and to enhance his her ability to live independently and to fully use and enjoy the dwelling unit you own and or administer , I am prescribing an emotional support animal that will assist [ first name ] in coping with his her disability I am familiar with the voluminous professional literature concerning the therapeutic benefits of assistance animals for people with disabilities such as that experienced by [ first name ] Upon requ est , I will share citations to relevant studies , and would be happy to answer other questions you may have concerning my recommendation that [ Full Name of Tenant ] have an emotional support animal Should you have additional questions , please do not hesitat e to contact me Sincerely , Name of Professional Bibliography Provided by The Delta Society , http wwwdeltasocietyorg Ahmedzai , S 1995 Individual quality of life Companion animals affect categories nom inated Paper presented at the 7th International Conference on Human - Animal Interactions , Geneva PagePage pageNumber7Allen , K , Izzo 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animals on eye contact and vocalizations of elderly residents in a long term care facility Physical and Occupational Therapy in Geriatrics , 11 4 Triebenbacher , S L 1998 The relationship between attachment to companion animals and self - esteem In Companion Animals in Human Health Eds C C Wilson , DC Turner , pp 135 - 148 , Sage Publications , Thousand Oaks , CA Available from Dogwise Vidovic , VV , Stetic , VV & Bratko , D 1999 Pet ownership , type of pet and socio - emoti onal development of school children Anthrozoöös , 12 4 , 211 - 17 Wilson , C C 1991 The pet as an anxiolytic intervention Journal of Nervous and Mental Disease , 179 , 482 - 89 Woolverston , M C 1991 Reducing childrens stress during physical examin ation by having them play with animals during the procedure Paper presented at Delta Societys 10th Annual Conference , Portland , OR Zasloff , RL & Kidd , AH 1994 Loneliness and pet ownership among single women Psychological Reports , October , 75 2 , 747 - 52 Page