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If 2% of all parking spots must be handicapped spots, it stands to reason that 2% of drivers will eventually be handicapped in the eyes of the law.
Laws aren't designed that way but in engineering world 2% might instead be a number that could guarantee sufficient access 95% of the time. Also according to Google 1/10 of all Americans have a severe disability so 2% is actually an underrepresented portion if you don't account for other factors