[Federal Register Volume 68, Number 226 (Monday, November 24, 2003)]
[Proposed Rules]
[Pages 65850-65854]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 03-29090]


 ========================================================================
 Proposed Rules
                                                 Federal Register
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 This section of the FEDERAL REGISTER contains notices to the public of 
 the proposed issuance of rules and regulations. The purpose of these 
 notices is to give interested persons an opportunity to participate in 
 the rule making prior to the adoption of the final rules.
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 

  Federal Register / Vol. 68, No. 226 / Monday, November 24, 2003 / 
Proposed Rules  

[[Page 65850]]



FEDERAL DEPOSIT INSURANCE CORPORATION

12 CFR Part 352

RIN 3064-AC58


Access of Persons With Disabilities to FDIC Programs, Activities, 
Facilities, and Electronic and Information Technology

AGENCY: Federal Deposit Insurance Corporation.

ACTION: Notice of proposed rulemaking with request for comments.

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SUMMARY: The Federal Deposit Insurance Corporation (FDIC) proposes to 
revise its regulations to implement section 508 of the Rehabilitation 
Act of 1973, as amended. Section 508 requires each Federal agency or 
department to ensure that the electronic and information technology 
(EIT) they develop or procure allows individuals with disabilities 
access to EIT comparable to the access of those who are not disabled, 
unless the agency would incur an undue burden.

DATES: Written comments must be received on or before January 23, 2004.

ADDRESSES: You may submit comments, identified by RIN number 3064-AC58, 
by any of the following methods:
    [sbull] Agency Web site: http://www.fdic.gov/regulations/laws/federal/propose.html.
    [sbull] Mail: Robert E. Feldman, Executive Secretary, Attention: 
Comments/Legal ESS, Federal Deposit Insurance Corporation, 550 17th 
Street, NW., Washington, DC 20429.
    [sbull] Hand Delivered/Courier: The guard station at the rear of 
the 550 17th Street Building (located on F Street), on business days 
between 7 a.m. and 5 p.m.
    [sbull] E-mail: [email protected]. Include RIN number 3064-AC58 in 
the subject line of the message.
    [sbull] Comments may be inspected and photocopied in the FDIC 
Public Information Center, Room 100, 801 17th Street, NW., Washington, 
DC, between 9 a.m. and 4:30 p.m. on business days.

    Instructions: Submissions received must include the agency name and 
docket number or Regulatory Information Number (RIN) for this 
rulemaking. Comments received will be posted without change to http://www.fdic.gov/regulations/laws/federal/propose.html, including any 
personal information provided. For detailed instructions on submitting 
comments and additional information on the rulemaking process, see the 
``Public Participation'' heading of the SUPPLEMENTARY INFORMATION 
section of this document.

FOR FURTHER INFORMATION CONTACT: Earl F. McJett, Information Management 
Analyst, Office of Diversity and Economic Opportunity, (202) 416-4320, 
or Joan S. Bunning, Counsel, Legal Division, (202) 898-8834, Federal 
Deposit Insurance Corporation, 550 17th Street, NW., Washington, DC 
20429.

SUPPLEMENTARY INFORMATION:

I. Background

    On March 20, 1986, the FDIC promulgated 12 CFR part 352 to 
implement the spirit of section 504 of the Rehabilitation Act of 1973 
(the Rehabilitation Act) (29 U.S.C. 794), as amended. Section 504 
prohibits discrimination on the basis of disability as it applies to 
programs and activities conducted by various agencies. Although the 
FDIC did and still does not believe that Congress contemplated that 
section 504 should cover non-appropriated, independent regulatory 
agencies such as the FDIC, it voluntarily chose to promulgate this 
regulation pursuant to section 504. See 51 FR 9638.
    The Workforce Investment Act of 1998 (the WIA) (Pub. L. 105-220, 
112 Stat. 936) amending section 508 of the Rehabilitation Act (29 
U.S.C. 794d), was signed into law on August 7, 1998. As amended, 
section 508 requires each Federal agency or department to ensure that 
the EIT it develops or procures allows individuals with disabilities 
access comparable to those who are not disabled, unless the agency 
would incur an undue burden. In addition, the amended section 508 
requires the Architectural and Transportation Barriers Compliance Board 
(Access Board) to publish standards defining EIT and setting forth the 
technical and functional performance criteria necessary to 
accessibility for such technology. The WIA was effective as of August 
7, 2000. The statute required the Access Board to publish its final 
standards by February 7, 2000.
    On July 13, 2000, the Military Construction Appropriations Act for 
Fiscal Year 2001 (Pub. L. 106-246, 114 Stat. 511) was signed into law. 
Section 2405 of that statute amended section 508 to delay the section's 
effective date for enforcement to 6 months from the publication of the 
Access Board's final standards. The Access Board's final standards were 
published on December 21, 2000. See 65 FR 80500-80528. The effective 
date for enforcement of section 508 became June 21, 2001. The FDIC 
proposes to amend its regulations to reflect these legal requirements 
and to update regulations to reflect current terminology, practice, and 
procedures.\1\
---------------------------------------------------------------------------

    \1\ In addition to the proposed revisions to Part 352, the FDIC 
issued a directive on September 28, 2001, number 2710.11, that sets 
forth complaint procedures for individuals with disabilities, both 
Federal employees and members of the public, who have been denied 
access to EIT. FDIC issued a directive on July 18, 2003, number 
2711.1, that contains the corporate policy on section 508 of the 
Rehabilitation Act.
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II. Section-by-Section Analysis

Section 352.1 Purpose

    This section would be amended to state that the purpose of the 
regulation is to implement the requirements of section 508 of the 
Rehabilitation Act of 1973, as amended by the WIA, in addition to 
section 504 of the Rehabilitation Act.

Section 352.2 Application

    This section would be amended to state that Part 352 applies to EIT 
access in addition to the agency's programs and activities. It also 
updates references to certain components of the FDIC such as the Office 
of Legislative Affairs and lists the FDIC's Internet website as one of 
the agency programs or activities to which Part 352 applies.

Section 352.3 Definitions

    This section would be amended to include definitions specifically 
pertaining to EIT, to update terminology by substituting the term 
``individual with a disability'' for ``handicapped person,'' and to 
define references in the regulation to section 508 and pertinent 
statutes.

[[Page 65851]]

Section 352.4 Nondiscrimination in Any Program or Activity Conducted by 
FDIC

    This section is currently designated 352.5. Current section 352.4 
would be deleted by the proposed rule. This section pertained to a 
self-imposed requirement that the FDIC must evaluate its program to 
implement section 504 of the Rehabilitation Act within one year of the 
regulation's effective date. This self-evaluation has been conducted by 
the FDIC. The current section 352.4 is therefore unnecessary.
    The new section 352.4 would state that no qualified individual with 
a disability shall be excluded from participation in, be denied the 
benefits of, or otherwise be subject to discrimination on the basis of 
that disability in FDIC programs or activities.

Section 352.5 Accessibility to Electronic and Information Technology

    With respect to technology access, this new section states that the 
FDIC will ensure that employees and the public with disabilities will 
have access to EIT comparable to those without disabilities, unless an 
undue burden would be imposed on the FDIC.

Section 352.6 Employment

    This section would be amended to provide that no qualified 
individual with a disability shall, on the basis of that disability, be 
subjected to discrimination in employment in any program or activity 
conducted by the FDIC. The section would further provide that the 
definitions, requirements, and procedures of the Rehabilitation Act 
that pertain to employment discrimination, as reflected in the 
Rehabilitation Act's implementing regulations, will apply to FDIC 
employment.

Section 352.7 Accessibility of Programs and Activities: Existing 
Facilities

    This section would be amended to make plain that the FDIC shall 
operate its programs and activities to be readily accessible to and 
usable by persons with disabilities.

Section 352.8 Program Accessibility: New Construction and Alterations

    This section would be amended to provide that each building or part 
of a building where FDIC programs or activities will occur which is 
either new or substantially altered for the FDIC shall be fashioned for 
ready access and use by individuals with disabilities.

Section 352.9 Communications

    This section would be amended to provide that the FDIC shall take 
appropriate steps to effectively communicate with participants in FDIC 
programs and activities. The section would also be amended to refer to 
individuals with disabilities rather than handicapped persons and to 
the Office of Diversity and Economic Opportunity (ODEO) rather than the 
superseded Office of Equal Employment. The section would also be 
amended to provide the current address and telephone numbers of ODEO 
for those who wish to contact that FDIC component. Finally, the section 
would be amended to state that information as to where FDIC programs or 
activities are conducted shall be provided at the primary entrance to 
each FDIC facility.

Section 352.10 Compliance Procedures

    This section would be amended to provide that the section applies 
to claims of discrimination on the basis of disability in FDIC programs 
and activities or the denial of access to EIT. The section would also 
be amended to update and correct references to the Office of Diversity 
and Economic Opportunity (ODEO), the procedures for filing and 
processing complaints alleging disability discrimination in FDIC 
programs or activities and denial of access to EIT. Moreover, the 
section would be amended to shorten the time period during which the 
FDIC must reach a finding with respect to a complaint alleging 
discrimination on the basis of disability in FDIC programs and 
activities and denial of access to EIT from 180 to 120 days.

Section 352.11 Notice

    This section would be amended to include a reference to EIT and 
section 508.

III. Request for Comments

    The Board of Directors of the FDIC (the Board) is seeking comment 
on whether the measures outlined in this notice of proposed rulemaking 
will fulfill the objectives set for the agency by section 508 of the 
Rehabilitation Act. The Board welcomes any suggestions that commenters 
might have for ways to improve upon the suggested measures or 
additional steps that the FDIC might take to promote access by 
individuals with disabilities to EIT and to prevent discrimination on 
the basis of disability.

IV. Paperwork Reduction Act

    The proposed rule would not involve any collections of information 
under the Paperwork Reduction Act (44 U.S.C. 3501, et seq.). 
Consequently, no information has been submitted to the Office of 
Management and Budget for review.

V. Regulatory Flexibility Act

    Pursuant to 5 U.S.C. 605(b) the FDIC certifies that the proposed 
rule would not have a significant economic impact on a substantial 
number of small businesses within the meaning of the Regulatory 
Flexibility Act (5 U.S.C. 601, et seq.). The proposed rule describes 
how the FDIC will implement section 508 of the Rehabilitation Act to 
ensure that the EIT the agency develops and procures will allow 
individuals with disabilities access to EIT comparable to the access of 
those who are not disabled, unless the agency would incur an undue 
burden. It requires no specific or general action from any state 
nonmember bank nor does it impose any new reporting, recordkeeping or 
other compliance requirements. Accordingly, the requirements relating 
to an initial and final regulatory flexibility analysis are not 
applicable.

VI. Impact on Families

    The proposed rule will not affect family well-being within the 
meaning of section 654 of the Treasury and General Government 
Appropriations Act, enacted as part of the Omnibus Consolidated and 
Emergency Supplemental Appropriations Act of 1999 (Pub. L. 105-277, 112 
Stat. 2681).

List of Subjects in 12 CFR Part 352

    Access, Civil rights, Electronic and information technology, Equal 
employment opportunity, Federal building and facilities, Individuals 
with disabilities.
    For the reasons set forth in the preamble, the Board of Directors 
of the Federal Deposit Insurance Corporation hereby proposes to revise 
Part 352 of Title 12 of the Code of Federal Regulations to read as 
follows:

PART 352--NONDISCRIMINATION ON THE BASIS OF DISABILITY

Sec.
352.1 Purpose.
352.2 Application.
352.3 Definitions.
352.4 Nondiscrimination in any program or activity conducted by the 
FDIC.
352.5 Accessibility to electronic and information technology.
352.6 Employment.
352.7 Accessibility of programs and activities: Existing facilities.
352.8 Program accessibility: New construction and alterations.
352.9 Communications.
352.10 Compliance procedures.
352.11 Notice.


[[Page 65852]]


    Authority: 12 U.S.C. 1819(a); 29 U.S.C. 794d.


Sec.  352.1  Purpose.

    (a) One purpose of this part is to implement the spirit of section 
504 of the Rehabilitation Act of 1973 (the Rehabilitation Act) as 
amended by section 119 of the Rehabilitation, Comprehensive Services, 
and Developmental Disabilities Amendments of 1978 and the Workforce 
Investment Act of 1998. Section 504 prohibits discrimination on the 
basis of disability in programs and activities conducted by a federal 
executive agency. Although the FDIC does not believe that Congress 
contemplated coverage of non-appropriated, independent regulatory 
agencies such as the FDIC, the FDIC has chosen to promulgate this part 
to ensure that, to the extent practicable, persons with disabilities 
are provided with equal access to FDIC programs and activities.
    (b) This part is also intended to implement section 508 of the 
Rehabilitation Act as amended. Section 508 requires each federal agency 
or department to ensure that the electronic and information technology 
they procure allows individuals with disabilities access to that 
technology comparable to the access of those who are not disabled, 
unless the agency would incur an undue burden.


Sec.  352.2  Application.

    (a) This part applies to all programs, activities, and electronic 
and information technology developed, procured, maintained, used or 
conducted by the FDIC. The following programs and activities involve 
the direct provision of benefits and services to, or participation by, 
members of the public:
    (1) Attending Board of Directors meetings open to the public and 
all other public meetings;
    (2) Making inquiries or filing complaints at the FDIC Office of 
Legislative Affairs and Office of Public Affairs;
    (3) Using the FDIC library in Washington, DC;
    (4) Using the FDIC Web site on the Internet;
    (5) Visiting an insured bank at which they conducted business (or 
an alternative liquidation site selected by the FDIC) and which has 
become insolvent, or been purchased by another bank under FDIC 
supervision, for the purpose of:
    (i) Collecting FDIC checks for the insured amount of their deposits 
previously held in such bank; and/or
    (ii) Discussing with FDIC representatives matters related to the 
repayment of debts which they previously owed to such bank, prior to 
its failure or purchase by another bank under FDIC supervision;
    (6) Seeking employment with the FDIC;
    (b) This part governs the conduct of FDIC personnel in their 
interaction with employees of insured banks and employees of other 
state or federal agencies while discharging the FDIC's statutory 
obligations as insurer and/or receiver of financial institutions. It 
does not apply to financial institutions insured by the FDIC.
    (c) Although application for employment and employment with the 
FDIC are programs and activities of the FDIC for purposes of this part, 
they shall be governed only by the standards set forth in Sec.  352.6 
of this part.


Sec.  352.3  Definitions.

    For purposes of this part, the term--
    Auxiliary aids means services or devices that enable persons with 
impaired sensory, manual, or speaking skills to have an equal 
opportunity to participate in, and enjoy the benefits of, the FDIC 
programs or activities, and Electronic and Information Technology set 
forth in Sec.  352.2.
    Electronic and Information Technology (EIT) has the same meaning as 
``information technology'' except EIT also includes any equipment or 
interconnected system or subsystem of equipment that is used in the 
creation, conversion, or duplication of data or information. The term 
EIT includes, but is not limited to, telecommunication products (such 
as telephones), information kiosks and transaction machines, worldwide 
web sites, multimedia, and office equipment (such as copiers and fax 
machines).
    Facility means all or any portion of buildings, structures, 
equipment, roads, walks, parking lots and other real or personal 
property. As used in this definition, ``personal property'' means only 
furniture, carpeting and similar features not considered to be real 
property.
    Individual with a disability means any person who has a physical or 
mental impairment that substantially limits one or more major life 
activities, has a record of such an impairment, or is regarded as 
having such an impairment.
    Qualified individual with a disability means--
    (1) With respect to any FDIC program or activity in which a person 
is required to perform services or to achieve a level of 
accomplishment, an individual with a disability who meets the essential 
eligibility requirements and can achieve the purpose of the program or 
activity without modifications in the program or activity that the FDIC 
can determine on the basis of a written record would result in a 
fundamental alteration in its nature;
    (2) With respect to any other program or activity, an individual 
with a disability who meets the essential eligibility requirements for 
participation in, or receipt of benefits from, that program or 
activity;
    (3) With respect to employment, an individual with a disability as 
defined in 29 CFR 1630.2(g), which is made applicable to this part by 
Sec.  352.6.
    Sections 504 and 508 mean sections 504 and 508 of the 
Rehabilitation Act of 1973 (Public Law 93-112, 87 Stat. 394 (29 U.S.C. 
794 and 794d)), as amended by the Rehabilitation Act Amendments of 1974 
(Public Law No. 93-516, 88 Stat. 1617), the Rehabilitation, 
Comprehensive Services, and Developmental Disabilities Amendments of 
1978 (Public Law 95-602, 92 Stat. 2955), and the Workforce Investment 
Act of 1998 (Public Law 105-220, 112 Stat. 936). As used in this part, 
sections 504 and 508 shall be applied only to the programs, activities, 
and EIT conducted by the FDIC as set forth in Sec. Sec.  352.2 and 
352.3(b) of this part.


Sec.  352.4  Nondiscrimination in any program or activity conducted by 
the FDIC.

    In accordance with section 504 of the Rehabilitation Act, no 
qualified individual with a disability shall, solely by reason of his 
or her disability, be excluded from participation in, be denied the 
benefits of, or be subjected to discrimination in any program or 
activity conducted by the FDIC.


Sec.  352.5  Accessibility to electronic and information technology.

    (a) In accordance with section 508 of the Rehabilitation Act, the 
FDIC shall ensure, absent an undue burden, that the electronic and 
information technology the agency develops, procures, maintains or 
allows:
    (1) Individuals with disabilities who are FDIC employees or 
applicants to have access to and use of information and data that is 
comparable to the access to and use of information and data by FDIC 
employees or applicants who are not individuals with disabilities; and
    (2) Individuals with disabilities who are members of the public 
seeking information or services from the FDIC to have access to and use 
of information and data that is comparable to the access to and use of 
information and data by members of the public who are not individuals 
with disabilities.

[[Page 65853]]

    (b) When development or procurement of electronic and information 
technology that meets the standards published by the Architectural and 
Transportation Barriers Compliance Board, 36 CFR part 1194, would pose 
an undue burden, the FDIC shall provide individuals with disabilities 
covered by paragraph (a) of this section with the information and data 
by an alternative means of access that allows the individuals to use 
the information and data.


Sec.  352.6  Employment.

    No qualified individual with a disability shall, on the basis of 
that disability, be subjected to discrimination in employment in any 
program or activity conducted by the FDIC. The definitions, 
requirements, and procedures (including those pertaining to employment 
discrimination complaints) of sections 501 of the Rehabilitation Act of 
1973, as established in 29 CFR parts 1614 and 1630, shall apply to 
employment in the FDIC.


Sec.  352.7  Accessibility of programs and activities: Existing 
facilities.

    The FDIC shall operate each of the programs or activities set forth 
in Sec.  352.2 of this part so that when viewed in its entirety, the 
program or activity is readily accessible to and usable by individuals 
with disabilities.


Sec.  352.8  Program accessibility: New construction and alterations.

    Each building or part of a building, whether newly constructed, or 
substantially altered, in which FDIC programs or activities will be 
conducted, shall be designed, constructed or altered so as to be 
readily accessible to, and usable by, individuals with disabilities.


Sec.  352.9  Communications.

    (a) The FDIC shall take appropriate steps to ensure effective 
communication with participants in FDIC programs, activities and EIT.
    (1) The FDIC shall furnish appropriate auxiliary aids where 
necessary to afford an individual with a disability an equal 
opportunity to participate in, and enjoy the benefits of, the FDIC 
programs or activities.
    (i) In determining what type of auxiliary aid is necessary, the 
FDIC shall give primary consideration to any reasonable requests of the 
individual with a disability.
    (ii) The FDIC need not provide individually prescribed devices, 
readers for personal use or study, or other devices of a personal 
nature.
    (2) Where the FDIC communicates by telephone, it shall use 
telecommunications devices for deaf persons (TDD's) or equally 
effective telecommunication systems with hearing impaired participants 
and beneficiaries.
    (b) The FDIC shall ensure that interested persons, including 
persons with impaired vision or hearing, can obtain information as to 
the existence and location of accessible services, activities, 
facilities and EIT. Interested persons may obtain such information by 
calling, writing or visiting the FDIC Office of Diversity and Economic 
Opportunity (ODEO), located at 801 17th Street, NW., Washington, DC 
20434. The ODEO telephone number is (202) 416-4000 and (202) 416-2487 
(TDD).
    (c) The FDIC shall provide information at a primary entrance to 
each of its facilities where programs or activities are conducted, 
directing users to a location at which they can obtain information 
about accessible facilities. The international symbol for accessibility 
shall be used at each primary entrance of an accessible facility.


Sec.  352.10  Compliance procedures.

    (a) Applicability. Paragraph (b) of this section applies to 
employment complaints. The remaining paragraphs in this section concern 
complaints alleging disability discrimination in FDIC programs or 
activities and denial of technology access.
    (b) Employment complaints. The FDIC shall process complaints 
alleging employment discrimination on the basis of disability according 
to the procedures established by the Equal Employment Opportunity 
Commission in 29 CFR parts 1614 and 1630 pursuant to section 501 of the 
Rehabilitation Act of 1973 (29 U.S.C. 791).
    (c) Informal process. A complainant shall first exhaust informal 
administrative procedures before filing a formal complaint alleging 
disability discrimination in FDIC programs or activities, or a denial 
of technology access. The FDIC's Office of Diversity and Economic 
Opportunity shall be responsible for coordinating implementation of 
this section. An aggrieved individual initiates the process by filing 
an informal complaint with ODEO within 180 calendar days from the date 
of the alleged disability discrimination or denial of access to 
electronic information technology. An informal complaint with respect 
to any FDIC program or activity must include a written statement 
containing the individual's name and address which describes the FDIC's 
action in sufficient detail to inform the FDIC of the nature and date 
of the alleged violation of these regulations. An informal complaint 
for denial of technology access must clearly identify the individual 
and the manner in which the EIT was inaccessible. All informal 
complaints shall be signed by the complainant or one authorized to do 
so on his or her behalf. Informal complaints filed on behalf of third 
parties shall describe or identify (by name if possible) the alleged 
victim of discrimination or denial of technology access. During the 
informal resolution process, ODEO has 30 days to attempt a resolution 
of the matter. If the aggrieved individual elects to participate in 
mediation, the period for attempting informal resolution will be 
extended for an additional 60 calendar days. If the matter is not 
resolved informally, the individual will be provided written notice of 
the right to file a formal complaint. All complaints should be sent to 
the FDIC's Office of Diversity and Economic Opportunity, 801 17th 
Street, NW., Washington, DC 20434.
    (d) If the FDIC receives a complaint over which it does not have 
jurisdiction, it shall promptly notify the complainant and shall make 
reasonable efforts to refer the complainant to the appropriate 
government entity.
    (e) Formal complaints. The individual must file a written formal 
complaint within 15 calendar days after receiving the notice of a right 
to file a formal complaint. Formal complaints must be filed with the 
FDIC Chairman or the ODEO Director. Within 120 days of the receipt of 
such a complaint for which it has jurisdiction, the FDIC shall notify 
the complainant of the results of the investigation in a letter 
containing--
    (1) A finding regarding the alleged violations;
    (2) A description of a remedy for each violation found; and
    (3) A notice of the right to appeal.
    (f) Appeals of the findings or remedies must be filed by the 
complainant within 30 days of receipt from the FDIC of the letter 
required by Sec.  352.10(e). The FDIC may extend this time for good 
cause.
    (g) Timely appeals shall be accepted and processed by the FDIC 
Chairman or ODEO Director.
    (h) The FDIC Chairman or ODEO Director shall notify the complainant 
of the results of the appeal within 60 days of the receipt of the 
request. If the FDIC Chairman or ODEO Director determines that 
additional information is needed from the complainant, he or she shall 
have 60 days from the date of receipt of the additional information to 
make a determination on the appeal.

[[Page 65854]]

    (i) The time limits set forth in paragraphs (e) and (h) of this 
section may be extended for an individual case when the FDIC Chairman 
or ODEO Director determines that there is good cause, based on the 
particular circumstances of that case.
    (j) The FDIC may delegate its authority for conducting complaint 
investigations to other federal agencies or independent contractors, 
except that the authority for making the final determination may not be 
delegated.


Sec.  352.11  Notice.

    The FDIC shall make available to employees, applicants, 
participants, beneficiaries, and other interested persons such 
information regarding the provisions of this part and its applicability 
to the programs or activities conducted by the FDIC, and make such 
information available to them in such manner as the Chairman or 
designee finds necessary to apprise such persons of the protections 
against discrimination under section 504 or technology access provided 
under section 508 and this part.

    Dated: November 4, 2003.

    By order of the Board of Directors of the Federal Deposit 
Insurance Corporation.
Robert E. Feldman,
Executive Secretary.
[FR Doc. 03-29090 Filed 11-21-03; 8:45 am]
BILLING CODE 6714-01-P