U N I T E D S T A T E S A C C E S S B O A R D

 FY 2008 

 Annual Report

 January 2009 

 A FEDERAL AGENCY COMMITTED TO ACCESSIBLE DESIGN
U N I T E D S T A T E S A C C E S S B O A R D

 Public Members Federal Members

Douglas Anderson

Wheaton, Illinois

John Gunnar Box

Corona, California

Joseph A. Cirillo, R.A.

Middletown, Rhode Island

Ronald J. Gardner

Bountiful, Utah

Edward H. Gee 

Stone Mountain, Georgia

James R. Harding II, Ed.D.

Tallahassee, Florida

Phillip D. Jenkins 

Austin, Texas

Neil K. Melick, CBO

West Palm Beach, Florida

Nancy Starnes 

Arlington, Virginia

Elizabeth A. Stewart

Winter Haven, Florida

Gary Leonard Talbot

Foxboro, Massachusetts

Hans A. Van Winkle 

Lumberton, New Jersey

John C. Wyvill

Lincoln, Nebraska

Assistant Secretary for Administration

Department of Commerce

Principal Deputy Under Secretary 

of Defense for Personnel and Readiness 

Department of Defense

Assistant Secretary for Special 

Education and Rehabilitative Services 

Department of Education

Deputy Administrator 

General Services Administration

General Counsel 

Department of Health and Human Services

Assistant Secretary for Fair 

Housing and Equal Opportunity 

Department of Housing and Urban Development

Assistant Secretary for Policy, 

Management and Budget 

Department of Interior

Assistant Attorney General 

for Civil Rights 

Department of Justice

Assistant Secretary of Labor for the 

Office of Disability Employment Policy 

Department of Labor

Assistant Secretary for 

Transportation Policy 

Department of Transportation

Assistant Secretary for Human 

Resources and Administration

Department of Veterans Affairs

Vice President, Facilities

United States Postal Service

1331 F Street NW, Suite 1000 ■ Washington, DC 20004-1111 ■ www.access-board.gov

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F Y 2 0 0 8 A N N U A L R E P O R T

The U.S. Access Board is an independent Federal agency that promotes equality for people 

with disabilities through leadership in accessible design. The Board develops guidelines and 

standards covering accessibility in the built environment, transportation, and information and 

communication technologies. Its design specifications play a critical role in fulfilling the 

promises of the Americans with Disabilities Act (ADA) and other Federal laws guaranteeing the 

rights of people with disabilities. In addition, the Board enforces accessibility standards 

covering federally funded facilities and promotes accessibility through public outreach, technical 

assistance, training, published guidance, and research.

FY 2008 was a year of both progress and change for the Access Board. The Board 

experienced a change in its leadership with the retirement of Lawrence W. Roffee, the Board’s 

longtime executive director, and the selection of his successor. Through an active agenda 

developing and refreshing its guidelines and standards, the Board advanced work on a variety 

of rulemaking initiatives. 

A CHANGE IN LEADERSHIP

In August, Lawrence Roffee retired after serving for two decades as the Board’s 

executive director. During his tenure, Roffee oversaw considerable expansion of 

the Board’s mission and services that began shortly after his arrival with passage 

of the ADA in 1990 and other laws. Roffee implemented programming measures 

and reforms enabling the Board to meet its growing responsibilities writing new 

guidelines and standards covering facilities in the private and public sectors, 

transportation vehicles, telecommunication, and information technology. He also 

spearheaded efforts to make the Board a leading resource on accessibility both 

nationally and abroad. 

Following a competitive selection process, the Board named David M. Capozzi as 

its new executive director in early FY 2009. Capozzi joined the Board in 1992 as 

director of its Office of Technical and Information Services and served as acting 

executive director following Roffee’s departure. “While we can be proud of all 

that the Board has accomplished over the years, there is much left to be done,” 

Capozzi stated to the Board upon his selection. “I have a vision of a higher 

performing agency that will grow to meet the demands of our complex society,

and I look forward to working with all of you to tackle some important issues in the 

coming years.” 

Lawrence Roffee

David Capozzi
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GUIDELINES AND STANDARDS

Issuing guidelines and standards and keeping them up to date constitute key responsibilities of 

the Board under the ADA and other laws. In FY 2008, the Board made progress on a review 

and update of its accessibility criteria for electronic and information technologies, 

telecommunications equipment, and transportation vehicles. The Board also continued work on 

new guidelines for outdoor environments, public rights-of-way, passenger vessels, and 

emergency transportable housing. Three advisory committees organized by the Board to 

advance these efforts concluded work and reported their findings to the Board. 

Information Technology and Telecommunications

Board standards issued under section 508 of the Rehabilitation Act address access to electronic 

and information technology procured by the Federal government, including computer hardware 

and software, websites, phone systems, fax machines, copiers, and other technologies. The 

Board also maintains guidelines for telecommunications products covered by section 255 of the 

Telecommunications Act. As the first step in a joint update of these guidelines and standards, 

the Board organized an advisory committee in 2006 to review the documents and to 

recommend changes. In April 2008, the Telecommunications and Electronic and Information 

Technology Advisory Committee completed its review and submitted a detailed report to the 

Board. The committee’s report 

recommends changes to both the 

substance and the structure of the 

standards and guidelines and 

addresses a range of issues, including 

new or convergent technologies, market 

forces, compliance concerns, and 

international harmonization. 

Recognizing the importance of 

standardization across markets 

worldwide, the committee coordinated 

its work with other standard-setting 

bodies in the U.S. and abroad. The 

Board will propose updates to the 

guidelines and standards based on the 

committee’s recommendations.

Transportation Vehicles

The Board also made progress on a review and update of its ADA guidelines for transportation 

vehicles which cover access to buses, vans, rail cars, and other modes of public transit. The 

Board refined a draft of updated guidelines for buses and vans based on input in received from 

the public in response to an earlier draft released the year before. Vehicle manufacturers, 

transit operators, trade associations, consumers, disability groups, and others provided 

feedback on the initial draft and information responsive to questions posed by the Board. This 

input was used to improve updated provisions, including those addressing level boarding 

access, automated stop announcement systems, boarding devices, wheelchair spaces, 

headrests, and accessible routes. The Board made the revised draft available for comment in 

late 2008. The Board will later update specifications for rail cars and other vehicles covered by 

the guidelines.

The committee’s 41 members comprised a broad cross-section of 

stakeholders, including representatives from industry, disability 

groups, standard-setting bodies in the U.S. and abroad, and 

government agencies, among others.
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Passenger Vessels

The Board is developing new guidelines, the first 

of their kind, addressing access to passenger 

vessels, including cruise ships, ferries, and 

excursion boats. Through drafts of the 

guidelines previously released to the public for 

input, the Board identified areas where further 

information is needed in this effort. One such 

area, access to emergency alarm systems for 

passengers with hearing impairments, was 

investigated through an advisory committee

organized by the Board in 2007. The Passenger 

Vessel Emergency Alarms Advisory Committee

reviewed current emergency notification and 

safety practices, protocols, and standards 

adopted by the U.S. Coast Guard, international 

authorities, and other countries. The 

committee concluded its work in 2008 and 

submitted a report to the Board. The committee’s report outlines consensus recommendations 

on access to vessel alarm systems in public use areas and to those located in passenger 

cabins. The Board will incorporate the committee’s recommendations into the vessel guidelines 

which will be issued in proposed form for public comment. 

Outdoor Developed Areas

The Board also made progress on new guidelines that will address access to outdoor developed 

areas, including parks, camp sites, trails, and beaches. How, and to what extent, access can be 

achieved in these types of environments has long been a source of confusion due to challenges 

and constraints posed by terrain, the degree of development, construction practices and 

materials, and other factors. Guidelines being developed by the Board will clarify where 

compliance is required and detail how access can be achieved. In 2008, the Board worked to 

finalize guidelines that specifically cover outdoor sites managed by the Federal government. 

The guidelines were made available for public comment the year before. As part of this effort, 

the Board held an information meeting in June to collect additional input on beach access 

routes. The Board plans to follow-up this effort with similar guidelines for non-federal sites. 

Public Rights-of-Way

Public streets and sidewalks present unique access challenges that are not specifically 

addressed by existing guidelines or standards. Access at street crossings for pedestrians with 

vision impairments, on-street parking, and constraints posed by terrain and space limitations are 

just some of the issues that often arise. The Board is developing guidelines for public rights-ofway that will address these and other issues so that practitioners have an established reference 

for achieving accessible streets and sidewalks. In FY 2008, the Board continued work on a 

proposed set of guidelines that incorporates feedback from the public received in response to 

previously released drafts. The Board also has maintained an active outreach and training 

program on rights-of-way access to advance this rulemaking and to provide interim guidance 

until the guidelines are completed. Throughout the year, the Board conducted training sessions 

on the subject at different venues across the country, routinely advised state and local 

jurisdictions on planning and program strategies, coordinated its work with other agencies and 

stakeholder groups, and promoted supportive research. 

The Passenger Vessel Emergency Alarms Advisory 

Committee’s 13 members included representatives from 

disability organizations, the vessel and cruise ship industry 

and trade groups, and the National Fire Protection 

Association.
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Emergency Transportable Housing

Another way the Board provides leadership in accessible design is by being responsive to issue 

areas and trouble spots as they arise. One such area, access to temporary housing provided 

by the government in emergencies and natural disasters, came to light in the wake of Hurricane 

Katrina. The Board began an examination of the issue in 2006 not long after problems were 

first reported, coordinating its work with other agencies, including FEMA and the Department of 

Housing and Urban Development. Based on this initial exploration, the Board established an 

advisory committee the following year to develop recommendations on resolving access barriers

in emergency transportable housing units. The Emergency Transportable Housing Advisory 

Committee included representatives from disability groups, industry and code groups, and 

government agencies. Committee members assessed design factors and constraints, including 

size and space limitations, against relevant accessibility specifications in the Board’s facility 

guidelines. In 2008, the committee concluded its deliberations and submitted its report to the 

Board. The committee’s report provides recommendations on how potential conflicts can be 

mediated and access to units can be improved. The report details suggested revisions to the 

Board’s guidelines tailored to these types of units. 

OUTREACH

As part of its efforts to reach out to various audiences and to promote greater access, the Board 

regularly undertakes activities focused on a topic where access is known to be problematic. In 

2008, the Board undertook a new initiative focused on access to airports. In addition, each year 

the Board holds a town meeting in a different city to hear from individuals on issues of concern 

and to update the public on its work. These events offer an open dialogue on accessible design 

and typically include presentations and briefings on specific topics. The Board held its 2008 

town meeting in St. Louis.

Airport Accessibility 

The Board chose to highlight airport accessibility as a focus topic since it is the subject of many 

access issues and complaints. Consumer surveys indicate that over 80% of travelers with 

disabilities report access problems or barriers at airports. In 2008, the Board began an

exploration of common access problems at airports and potential solutions and improvements in 

order to improve compliance and to promote effective design. At several of its meetings over 

the course of the year, invited speakers briefed the Board on a range of topics, including 

ticketing kiosks, communications, security screening, boarding bridges, research, and consumer 

surveys. Work on this topic will continue in 2009.

St. Louis Town Meeting

In May, the Board held its annual town meeting in St. Louis at the America’s Center in 

conjunction with the Great Plains ADA Center’s National ADA Symposium. The event provided 

a forum for members of the public to advise the Board on issues of concern to them and to ask 

questions about accessibility or the work of the Board. The Board heard concerns expressed 

about air travel and access at airports and aboard planes, and questions and recommendations 

on other topics as addressed in the Board’s guidelines. In addition to the town meeting, the 

Board also conducted a series of break-out sessions at the Symposium covering public rightsof-way, recreation facilities, bathroom access, the ADA guidelines and the International Building 

Code, and information technology and e-government. The sessions provided an opportunity for 

the Board to address in greater depth many of the technical questions raised in the town 

meeting.
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While in St. Louis, the Board toured Busch Stadium and received a briefing by designers from 

HOK Sport on how accessibility was integrated into its design. Board members also visited the 

Central Institute for the Deaf to examine firsthand its pioneering work on quiet classrooms, 

which are designed to promote good acoustics for quality learning environments. During the 

visit, audiologists and acoustical designers briefed the Board on efforts to promote 

implementation of acoustical standards developed for classrooms. 

TECHNICAL ASSISTANCE AND TRAINING

Through its work developing guidelines and standards, the Board is uniquely qualified to provide 

technical guidance and training on accessible design to a wide range of audiences, including 

designers and architects, industry, advocacy groups, and others. The Board also publishes 

guides and other resources to supplement the one-on-one guidance it offers daily through its 

technical assistance line. These services and publications play a critical role in assisting 

various professionals understand and apply accessibility requirements. 

Technical Assistance

In following the Board’s design criteria, questions arise on the best way to achieve accessibility 

or what compliance with a particular requirement means in light of various real world conditions. 

The Board provides answers to these questions and guidance on accessible design through its 

toll-free technical assistance line. It also responds to technical inquiries submitted by email and 

fax. Guidance is available on all Board guidelines and standards, including those covering the 

built environment, vehicle design, or information and telecommunication technology. Assistance 

is also available on topics to be addressed by future guidelines, such as outdoor environments, 

public rights-of-ways, and passenger vessels. This individualized guidance improves 

compliance and helps ensure that access is achieved properly. Last year, the Board handled 

over 13,200 technical inquiries.

Training

The Board regularly provides training on accessible design to various audiences at different 

conferences and events across the country. Most training pertains to design criteria for 

facilities, transportation vehicles, and information technology. Training sessions, which are 

targeted to the needs and interests of each audience, attract designers and architects, code 

officials, advocacy groups, transportation operators, the information technology industry, and 

other professionals in assorted fields. In 2008, the Board conducted 91 sessions and provided 

training to over 7,500 people.

Resources

To supplement its guidelines and standards, the 

Board produces and distributes an array of guidance 

materials, including user-friendly companion guides, 

technical bulletins, manuals, and online courses. 

These and other materials are available on the 

Board’s website, www.access-board.gov, which has 

become a popular resource on accessible design. In 

2008, the Board’s site logged over 42.8 million hits 

and more than 3 million unique user sessions. The 

Board also continues to distribute its materials by mail 

upon request and sent out over 6,100 copies of its 

publications last year. 
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ENFORCEMENT OF THE ABA

Last year marked the 40th anniversary of the Architectural Barriers Act (ABA), one of the first 

laws on the books requiring access to the built environment. Unanimously passed by Congress 

in 1968, the ABA made accessibility a condition of Federal funding in construction, alterations, 

and leasing. The ABA covers a wide range of government buildings, including post offices, 

social security offices, and Federal office buildings. It also applies to non-Federal buildings that 

are federally funded, such as schools, transit stations, local courthouses and jails, and public 

housing. Though limited in scope, the ABA laid the foundation for later laws more 

encompassing in reach. These include the Rehabilitation Act of 1973, which covers access to 

programs and services funded by the government and Federal employment, and the ADA, 

which requires access and prohibits discrimination based on disability throughout the private 

and public sectors without regard to Federal funding. 

Initially, the ABA left compliance up to each Federal agency with little guidance or support. At 

the time, accessible design was a new concept and few standards or resources were available. 

To address these shortcomings, Congress created the Access Board several years later 

through passage of the Rehabilitation Act. The Board was charged with developing minimum 

guidelines for accessible design, providing technical assistance, and enforcing the ABA’s design 

standards, responsibilities it maintains to this day. The Board enforces ABA compliance 

through the investigation of complaints. In its investigations, the Board determines whether a

facility is covered by the ABA and, if so, whether it meets the applicable design standards. If a 

covered facility is not in compliance, the Board will pursue a corrective action plan and monitor 

the case until all necessary work is completed. In 2008, the Board opened or advanced 184 

investigations and closed 70 cases. Barriers were successfully remedied in all cases where the 

law applied, and in some cases voluntarily where it did not. 

RESEARCH 

The Board conducts a research program to support the development of guidelines, standards, 

and guidance material and to promote accessible design. Each year, the Board initiates a variety 

of projects, often in partnership with other organizations. Most projects focus on the study of 

accessibility in relation to architecture and design, human factors, communication, and 

transportation. Board projects underway last year include research on play surfaces, trail 

surfaces, the effects of surfaces and slope on wheelchair travel, and wheelchair transfer. The 

Board also supported or broadened research efforts undertaken by others, including a major 

project unprecedented in scope to collect human measures of people who use manual 

wheelchairs and motorized devices and a study on wayfinding cues used by pedestrians with 

vision impairments. Several other Board projects will develop needed guidance on various topics, 

including construction tolerances, point-of-sale machines, museum exhibit design, pedestrian 

signals, and state code implementation and enforcement.