The U.S. Equal Employment Opportunity Commission

Letter to National Labor Relations Board

     November 1, 1996

     Barry Kearney
     Associate General Counsel
     Division of Advice
     National Labor Relations Board
     Washington, D.C.  20570

     RE:     Case # XXXXXXXXX

     Dear Mr. Kearney:

     Pursuant to the Memorandum of Understanding between the Equal 
     Employment Opportunity Commission (EEOC or the Commission) and 
     the National Labor Relations Board's (NLRB) Office of General 
     Counsel, you requested our opinion on the above-referenced case. 
     The charge alleges a violation of the National Labor Relations 
     Act (NLRA) and also raises issues under Title I of the Americans 
     with Disabilities Act (ADA).  We have reviewed the "Request for 
     Advice" prepared by the NLRB's Region 19/Seattle Office regarding 
     the case, which asks whether an "Employer can refuse to supply a 
     Union with requested [medical] information needed to process a 
     grievance by raising a defense that it is prohibited from doing 
     so under A.D.A." 

     This case presents the question of how to resolve the potential 
     conflict between the ADA confidentiality requirements pertaining 
     to medical information and a union's right under the NLRA to 
     obtain certain information necessary for collective bargaining. 
     This is an issue of first impression for the EEOC.  The 
     Commission believes that the requirements of the ADA and the NLRA 
     can be harmoniously construed and concludes that, as delineated 
     herein, Title I of the ADA permits an employer to give a union, 
     in its role as bargaining unit representative, medical 
     information necessary to the ADA reasonable accommodation process 
     to enable the employer and union to make reasonable accommodation 
     determinations consistent with the ADA. 

     Factual Background

     According to the facts of the charge as presented in the "Request 
     for Advice," the Union and Employer are parties to a collective 
     bargaining agreement (CBA).  The CBA contains provisions 
     regarding seniority rights, including the right of individuals to 
     bid for and receive jobs based on seniority, provided they are 
     qualified to perform the job.  On March 15, 1995, the Employer 
     posted two job bids for day shift hardwood veneer sorter at its 
     plywood plant.  Approximately twenty employees placed bids for 
     these jobs.  One of the two jobs was filled by the most senior 
     qualified bidder.  The second job was awarded to employee John 
     Doe as an ADA reasonable accommodation, despite the fact that 
     several qualified bidders had more seniority than Doe.
 

     On March 31, 1995, the second most senior bidder for the job 
     taken by John Doe filed a grievance challenging Doe's selection. 
     On April 14, 1995, a second step grievance meeting was held 
     concerning the grievance.  The Union took the position that the 
     Employer had violated the contract by awarding the job to Doe 
     "out of seniority."  The Employer stated that Doe was awarded the 
     job based upon a medical condition and upon the recommendation of 
     his physician.  The Employer further stated that it believed it 
     was required to award Doe the job under the ADA.  The Union then 
     responded that the Employer could have accommodated Doe in some 
     other manner.  This meeting and a subsequent meeting on June 28, 
     1995, ended without resolution of the grievance. 

     On July 21, 1995, the Union requested that the Employer provide, 
     as stated in the NLRB's Request for Advice, "the necessary 
     medical information regarding [Doe's] disability so the Union 
     could assess the grievance."  After reviewing the collective 
     bargaining agreement and the ADA, the Employer advised the Union 
     that it could not release the requested information under the 
     ADA.  The Union filed a charge with the NLRB on September 22, 
     1995, alleging that the Employer violated sections 8(a)(1) and 
     (5) of the NLRA by refusing to provide the Union with certain 
     information needed to process a pending grievance. 

     Issue Presented

     Does the ADA permit an employer to provide medical information 
     about an employee's disability to a union in order for the union 
     to assess a grievance challenging the employer's provision of a 
     reasonable accommodation to the employee which conflicts with the 
     seniority provisions of the CBA?

     Analysis

     A Union's Reasonable Accommodation Obligation Under the ADA

     Under Title I of the ADA, it is unlawful discrimination for a 
     "covered entity" not to make reasonable accommodation to known 
     physical or mental limitations of otherwise qualified individuals 
     with disabilities who are applicants or employees, unless there 
     is undue hardship.1  Title I defines "covered entity" to include 
     both employers and labor organizations.2  As such, a union, in 
     its role as designated exclusive bargaining representative of the 
     collective work force, has a reasonable accommodation obligation 
     under the ADA.3  When an employer seeks to provide a reasonable 
     accommodation that conflicts with collectively bargained 
     seniority rules, the Commission's position is that the substance 
     of a union's reasonable accommodation obligation is to negotiate 
     with the employer to provide a variance to the CBA, if no other 
     reasonable accommodation exists and the proposed accommodation 
     does not unduly burden non-disabled workers or otherwise pose an 
     undue hardship.4

     To Meet Its ADA Reasonable Accommodation Obligation, a Union May 
     Make Inquiries Necessary to the Reasonable Accommodation Process

     Title I of the ADA permits a covered entity with a duty to 
     accommodate to make inquiries necessary to the reasonable 
     accommodation process.5  When the need for an accommodation is 
     not obvious, a covered entity may require reasonable 
     documentation of the need for accommodation.6  Documentation may 
     be requested showing that the employee has an ADA-covered 
     disability, and stating the related functional limitations that 
     necessitate the accommodation.7 

     A union is a covered entity with a reasonable accommodation 
     obligation.  Therefore, for the sole purpose of meeting that 
     obligation, a union may make inquiries necessary to the 
     accommodation process.  When the need for accommodation is not 
     obvious, a union may request reasonable documentation of the need 
     for accommodation. 

     Medical Information Necessary to the Reasonable Accommodation 
     Process May Be Shared Between an Employer and Union to Meet Their 
     ADA Reasonable Accommodation Obligations to a Particular 
     Individual

     Commission enforcement guidance on preemployment disability-
     related questions and medical examinations addresses how medical 
     information may be used, and to whom it may be given, in the 
     context of providing reasonable accommodation in the hiring 
     process.8  Medical information may be used to determine 
     reasonable accommodations for an individual, and may be shared 
     with a third party when necessary to determine whether a 
     reasonable accommodation is possible for an individual.  The 
     guidance states more generally that medical information may be 
     given to and used by appropriate decision-makers involved in the 
     hiring process to enable them to make employment decisions 
     consistent with the ADA.9  Medical information may be shared only 
     with individuals involved in the hiring process who have a need 
     to know the information.10  Under these specific circumstances, 
     the confidentiality provisions of Title I of the ADA are not 
     violated. 

     In the unique setting of the unionized workplace, when an 
     employer seeks to provide an accommodation that conflicts with 
     collectively bargained seniority rules, the ADA reasonable 
     accommodation obligation of the employer and of the union, as 
     bargaining representative, are intertwined.  The union and 
     employer both participate in making the reasonable accommodation 
     determination regarding a particular individual.  It is the 
     Commission's position that, where no other reasonable 
     accommodation exists, the employer and union are jointly 
     obligated to negotiate with each other to provide a variance if 
     it will not impose undue hardship.11 

     Accordingly, consistent with the Commission's enforcement 
     guidance discussed above, an employer and a union may share with
     each other and use medical information necessary to enable them 
     to make reasonable accommodation determinations consistent with 
     the ADA.12  When the need for an accommodation is not obvious, an 
     employer and union may share reasonable documentation of the need 
     for accommodation, as described in the previous section.13  Such 
     information may only be shared with individuals with a need to 
     know the information who are decision-makers or necessary 
     consultants regarding the accommodation.14

     A Union Is Required to Keep All Medical Information Confidential

     With limited exceptions,15 Title I of the ADA obligates all 
     covered entities to keep confidential any medical information 
     obtained about applicants or employees.16  Medical information 
     includes specific information about an individual's disability 
     and related functional limitations, as well as general statements 
     that an individual has a disability or that an ADA reasonable 
     accommodation has been provided for a particular individual.  A 
     union, as a covered entity, is required to keep any and all 
     medical information confidential in accordance with Title I's 
     confidentiality provisions. 
 

     The Commission's Approach Harmonizes ADA and NLRA Requirements

     The Commission is cognizant that, under section 8(a)(5) of the 
     NLRA, an employer's duty to collectively bargain includes 
     providing information to the union upon request that is necessary 
     for the union to effectively carry out its collective bargaining 
     responsibilities, including the processing of grievances.17 
     Because Title I of the ADA, under the above-stated circumstances, 
     permits an employer to give a union medical information necessary 
     to make reasonable accommodation determinations consistent with 
     the ADA, the potential for conflicting federal requirements is 
     minimized.

     Application of Analysis to Facts of this Case

     When the Union requested disability-related information to assess 
     the grievance contesting John Doe's selection for the job, it was 
     acting in its role as collective bargaining representative. 
     Because the grievance challenges the Employer's unilateral 
     provision of a reasonable accommodation that allegedly conflicts 
     with CBA seniority provisions, it necessarily brings into play 
     the Union's and the Employer's ADA reasonable accommodation 
     obligations to the individual with a disability.  In handling the 
     grievance, the Union will need to assess the claim for reasonable 
     accommodation.  If no alternative effective accommodation exists, 
     the Union must negotiate with the Employer to provide a variance 
     if doing so would not impose undue hardship. 

     Therefore, in this case, to make the reasonable accommodation 
     determination, the ADA permits the Employer to give the Union 
     medical information in the Employer's possession that is 
     necessary to the accommodation process.  If the need for 
     accommodation is not obvious, the Employer may share 
     documentation showing that John Doe has an ADA-covered 
     disability, and stating the related functional limitations that 
     necessitate the accommodation.  Medical information may only be 
     shared with individuals with a need to know the information who 
     are decision-makers or necessary consultants regarding the 
     accommodation.

     This letter has been reviewed and approved by the Commission. 
     If you have questions or we can be of further assistance, please 
     contact me at (202) 663-7197 or Peggy R. Mastroianni, Associate 
     Legal Counsel, at (202) 663-4638.

     Sincerely,
 
 

     Ellen J. Vargyas
     Legal Counsel

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     1.     42 U.S.C. §§ 12112(a) and 12112(b)(5)(A); 29 C.F.R. § 1630.9.

     2.     42 U.S.C. § 12111(2); 29 C.F.R. § 1630.2.

     3.     A union may also act in the role of Title I covered  employer.  When acting as a covered employer, a union has the same ADA rights and responsibilities as any other covered  employer.

     4.     But see Eckles v. Consolidated Rail Corp., No. 95-2856,  slip op. (7th Cir. Aug. 14, 1996) (concluding that the ADA does not require reasonable accommodations that violate the collectively bargained, bona fide seniority rights of other employees). 

     5.     29 C.F.R. pt. 1630 app. § 1630.14(c).

     6.     29 C.F.R. pt. 1630 app. § 1630.9; ADA Enforcement Guidance:  Preemployment Disability-Related Questions and Medical Examinations at 6, 20 (October 10, 1995) (hereafter "ADA Enforcement Guidance").

     7.     ADA Enforcement Guidance at 6, 20.

     8.     See ADA Enforcement Guidance at 21-22.

     9.     Id. at 21.

     10.    Id. at 22.

     11.    Ideally, negotiation will occur prior to implementation of the accommodation in order to avoid disputes about the correct course of action.  However, as in this case, the interaction may sometimes occur after the fact in the context of a grievance proceeding.

     12.    The Commission encourages employers to inform the employee with a disability that the reasonable accommodation process may require sharing of certain medical information with union officials on a need-to-know basis.

     13.    The information an employer may share with a union is strictly limited to that which is necessary for the union to fulfill its role in the accommodation process.  Necessary information often will not encompass the entire contents of an employee's medical file.

     14.    A bargaining unit member who files a grievance challenging the provision of an ADA reasonable accommodation to an individual with a disability is not a decision-maker or necessary consultant regarding the accommodation, and thus may not be given any medical information about the disabled individual.

     15.    The statute and regulations contain narrow exceptions to the confidentiality requirements that permit disclosure of specific, limited information to certain supervisors and managers, first aid and safety personnel, and government officials investigating compliance with the ADA.  See 42 U.S.C. §§ 12112(d)(3)(B) and (C), and 12112(d)(4)(C); 29 C.F.R. § 1630.14. 

     16.    42 U.S.C. § 12112 (d); 29 C.F.R. § 1630.14.

     17.    See 29 U.S.C. § 158(a)(5).

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  Letter to National Labor Relations Board

 

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