An agency may not violate 28 C.F.R. Part 35 {“Nondiscrimination on the Basis of Disability in State and Local Government Services”} by, on the basis of an individual’s disability: excluding the individual from participation in the services, programs, or activities of the agency; denying the individual the benefits of the services, programs, or activities of the agency based on the needs of the individual; discriminating against the individual; or failing or declining to make a reasonable accommodation or a reasonable modification to existing policies, practices, and procedures.