IRR of Filipino Sign Language Act

Legal basis, construction, and coverage

These Rules and Regulations implement Republic Act No. 11106, known as the “Filipino Language Act,” which declares Filipino Sign Language as the national sign language and the official sign language of government in transactions involving deaf persons, and mandates its use in schools, broadcast media, and workplaces (Preamble).
These Rules and Regulations are liberally construed in favor of deaf Filipinos to respect, protect, and fulfill the rights of the Filipino Deaf as a linguistic and cultural minority (Section 3).
Coverage includes all concerned national government agencies (NGAs), bodies, instrumentalities, including GOCCs, and local government units (LGUs), and state universities and colleges (SUCs), and various entities in the public sector (Section 4).
Autonomous regions’ equivalent units shall formulate, adapt, and implement similar rules and regulations (Section 4).
Government offices, instrumentalities, GOCCs, and levels of governance are included across national and local implementation (Section 6).

Policy, purpose, and implementation goals

These Rules and Regulations prescribe procedures and guidelines for implementing Republic Act No. 11106 to facilitate compliance and achieve its objectives (Section 2).
The State shall promote, protect, and ensure the full and equal enjoyment of human rights and fundamental freedoms of persons with disabilities, including eliminating discrimination and guaranteeing accessibility and full participation (Section 5).
National and local agencies shall uphold respect for inherent dignity, individual autonomy, and independence in public interactions and transactions (Section 5).
The State shall take appropriate measures to ensure deaf Filipinos can exercise the right to expression and opinion, and shall recognize and promote sign language embodying the specific cultural and linguistic identity of the Filipino Deaf (Section 5).
Cultural agencies are encouraged to undertake activities recognizing Filipino Sign Language as the national sign language (Section 5).
Implementation advances commitments to international human rights instruments cited in Section 5, including UN Convention on the Rights of Persons with Disabilities, ICCPR, ICESCR, CEDAW, and CRC (Section 5).
These Rules and Regulations further vision taken with Republic Act No. 10410 and Republic Act No. 10533 recognizing Filipino Sign Language in deaf learners’ education from early childhood up to secondary level (Section 5).

Definitions and key concepts

“Accessible formats / accessible materials” means alternatives to print that address communication needs of persons with disabilities; for the deaf, these include interpretation in sign language texts written in plain or easy to understand language (Section 7).
“deaf” refers to individuals unable to fully use their hearing to process information; it includes people who may or may not be signers, including hard of hearing persons, orally schooled individuals, cochlear implant users, and others who use other modes such as speech and speech-reading, and also persons with hearing loss who use isolated gestural non-standard signs (Section 7).
“Deaf” (noun) refers to a subset of deaf Filipinos who use Filipino Sign Language and identify as a linguistic and cultural community supporting its goals and values; all Deaf Filipinos are deaf, but not all deaf Filipinos are Deaf (Section 7).
“Deaf community” is a group of Deaf individuals who share a culture and language, including rules of behavior and norms, and in the Philippines, the group of Deaf Filipinos sharing Filipino Sign Language and its associated culture (Section 7).
“Deaf relay interpreter” is an interpreter who is Deaf and relays information (together with a hearing interpreter) between a linguistically isolated deaf person and hearing non-signers (Section 7).
“deaf people’s organization” is an association comprised of and run autonomously by deaf individuals (Section 7).
“Filipino Sign Language (FSL)” refers to the visual language used by Deaf Filipinos, distinct from spoken Filipino, visual-spatial in nature, rule-governed in structure, and influenced by American Sign Language while being documented as distinct from it (Section 7).
“interpreting” is the process of rendering a message from a source language to a target language, and for this Act means producing/rendering a message to and from FSL or non-standard manual communication based on FSL principles (Section 7).
“sign language competency” is the ability to use language receptively (visually) and expressively (signing) (Section 7).
“manual communication” includes various forms of visual-spatial communication utilizing the hands, covering the spectrum of true visual languages to artificial sign systems (Section 7).
“national sign language” and “official sign language” mean the sign language used in official functions of government (Section 7).
“qualified sign language interpreter” is an interpreter competent to deliver required and/or preferred interpreting skills of a deaf client (Section 7).
“sign language interpreter” is typically a hearing person producing/rendering a message from spoken language into a natural sign language and/or vice versa (Section 7).
“translation” is the transmission/rendering of a message from FSL to written English, Filipino, or other Philippine language (e.g., in legal affidavits) (Section 7).
“Universal Design” refers to design usable by all people without the need for adaptation or specialized design, while not excluding assistive devices when needed (Section 7).
“VCAD” (Visual Communication Assessment for the Deaf) is a tool conducted one-on-one by a Deaf administration to determine communication features and preferences of a deaf person involved in a case; recommendations are submitted to the trial court or relevant agency (Section 7).

Interpreting standards and accreditation timeline

FSL is recognized, promoted, and supported as the medium of official communication in all transactions involving the deaf, and it is the official language of interpreting, without prejudice to other forms of communication based on individual choice (Section 7 of Article II).
A national system of standards, accreditations, and procedures for FSL interpreting must be established by the Komisyon sa Wikang Filipino (KWF) with involvement of the Deaf community and stakeholders, including the Department of Social Welfare and Development (DSWD) for implementing Republic Act No. 7277’s “qualified sign language interpreters” within auxiliary aids/services (Article II, Section 7).
The national system must include components for training, continuing education, and professional development; assessment and accreditation of interpreters; and policies on interpreting as a profession, including compensation rates and benefits, working conditions, grievance procedures, and a code of ethics (Article II, Section 7).
The national interpreting standards must include Deaf Relay Interpreting, based on FSL principles (Article II, Section 7).
The system must be established as soon as possible and completed within three years (Article II, Section 7).
The University of the Philippines, together with SUCs, is encouraged to conduct continuing research on the national interpreting standards system (Article II, Section 7).

FSL in education systems (ECCD to CHED)

The Department of Education (DepEd), TESDA, and all other national and local agencies involved in deaf education shall use and coordinate on use of FSL as the medium of instruction (Article III, Section 7).

Early childhood education (ECCD)

The ECCD Council, in coordination with DepEd, shall issue an Agency Information and Communication Policy that adapts FSL as the visual language and medium of instruction in early education (Section 8(1)(a)).
The ECCD Council shall ensure inclusion of children with disabilities, including the deaf, in early education frameworks, policies, guidelines, standards, curricula, checklists, financing, and reporting (Section 8(1)(b)).
The ECCD Council shall institute pre-/in-service training following national standards for all teachers and staff (Section 8(1)(c)).
The ECCD Council shall specify needed specialized sign language competency for the agency based on KWF minimum standards (Section 8(2)).
The ECCD Council shall coordinate with the Professional Regulation Commission (PRC) to employ alternative procedures in licensing of deaf teachers; hire teachers and staff; designate Filipino Deaf–FSL consultants/specialists; and engage Deaf organizations and researchers experienced in FSL for sustainable implementation (Section 8(3)).

Basic education (K–12)

DepEd shall issue an inclusive Agency Information and Communication Policy adopting FSL as the medium/language of instruction (Section 9(1)(a)).
DepEd shall review, amend, and formulate frameworks, plans, policies, activities, and practices for curriculum development and support, teachers, training, materials, ICT, assessment, monitoring, and evaluation for implementation (Section 9(1)(b)).
DepEd shall treat FSL as a recognized language in the Mother Tongue Based-Multilingual Education program where FSL is the mother/first/visual language (L1) of deaf learners, and written English, Filipino, and/or other Philippine languages function as literacy languages (L2) as auxiliary mediums of instruction (Section 9(1)(c)).
DepEd shall designate Filipino Deaf–FSL consultants/specialists and engage Deaf organizations and researchers to sustainably implement FSL Act in classrooms, alternative learning systems, and delivery platforms such as online distance education, including National Council for Children’s Television programs, activities, and projects (Section 9(1)(d)).
DepEd shall provide qualified sign language interpreters and accessible materials for all programs and activities for all deaf learners and for Deaf teachers and staff (Section 9(2)).
DepEd shall develop policies for hiring Deaf teachers and designate qualified sign language interpreters (Section 9(2)).
DepEd shall discourage routines assigning interpreting duties to teachers for non-instructional activities such as law enforcement interviews, affidavit preparation, court proceedings, polling place electoral-related duties, and other non-instructional related activities (Section 9(2)).
DepEd shall specify needed specialized sign language competency based on KWF minimum standards (Section 9(2)).
DepEd shall continue inclusion and intersectionality of deaf learners on an equal basis, and implement FSL in all programs including Indigenous Persons and Madrasah programs and national testing (Section 9(3)).

Technical-vocational education

TESDA shall issue an Agency Information and Communication Policy adopting FSL as the medium of instruction in all its programs and activities and ensuring access in enrollment and training on equal basis (Section 10(a)).
TESDA shall review and enhance policies and frameworks covering curriculum development, standards, assessment, and accreditation, and ensure implementation in TESDA programs and projects, including the long-term goal of hiring Deaf teachers and trainers (Section 10(b)).
TESDA shall specify needed specialized sign language competency based on KWF minimum standards (Section 10(b)).
TESDA shall, in consultation with Deaf organizations and interpreter organizations, plan training in interpreting in FSL (Section 10(c)).
TESDA shall provide qualified sign language interpreters and accessible materials for all programs and activities (Section 10(d)).
TESDA shall designate Filipino Deaf–FSL consultants/specialists and fully engage with Deaf organizations and FSL-experienced researchers for sustainable implementation (Section 10(e)).
TESDA shall actively promote and include deaf training graduates in transition programs for employment (Section 10(f)).

Higher education

CHED shall issue an inclusive Agency Information and Communication Policy adopting FSL as the medium of instruction for deaf enrollees (Section 11(a)).
CHED shall review and enhance higher education policies, standards, and frameworks for curriculum development and support, teachers, training materials, ICT, assessment, financing, monitoring and evaluation, particularly for teacher education programs, ensuring implementation (Section 11(b)).
CHED shall formulate policies, coordinate, and monitor institutional financing and provision of qualified sign language interpreters and accessible materials by higher education institutions in compliance with Republic Act No. 10931 to enable deaf enrollees to avail on equal basis (Section 11(c)).
CHED shall institute and monitor measures and fully engage with Deaf organizations and FSL-experienced researchers for designation of Filipino Deaf–FSL consultants/specialists (Section 11(d)).
CHED shall specify needed specialized sign language competency based on KWF minimum standards (Section 11(b)).

Deaf teachers and teacher education

PRC, with CHED, shall issue an Agency Information and Communication Policy covering review of teacher licensing policies and an alternative transitional assessment procedure as affirmative action to consider current conditions, background, and socio-economic circumstances of deaf teacher education graduates (Section 12(a)).
PRC shall ensure full accessibility and language and culture fairness in assessment procedures for deaf teacher education graduates (Section 12(b)).
PRC shall promote licensing and mobilization of Deaf teachers in formal education, alternative learning systems, and other delivery platforms; and coordinate with ECCDC and DepEd to ensure entry of Deaf teachers/users of FSL into public schools, daycare centers, and national child development centers (Section 12(c)).
PRC shall issue guidelines on FSL, competency testing, and mandatory continuing trainings (Section 12(d)).
CHED shall include FSL as a curricular or co-curricular offering in higher education programs, particularly in teacher education (Section 13).

Training and evaluation

UP with KWF, professional sign linguistics and linguistics researchers, in collaboration with CHED, DepEd, and ECCD Council, shall develop guidelines for training material development for education of the deaf used by SUCs and their teachers and staff (Section 14).

FSL in instructional materials, justice, workplaces, health, and services

DepEd Instructional Materials and Council Secretariat shall develop guidelines for selection, production, procurement, and distribution of print and video materials in FSL for public schools, day care centers, and national child development centers in accordance with existing laws and implementing rules (Article IV, Section 15).
DepEd and ECCD Council, LGUs, and DILG shall engage local deaf people’s organizations/cooperatives for recognition, capacitation, and support in producing FSL materials, consistent with Executive Order 417 (Article IV, Section 15).
Annual data from DBM, COA, DepEd, and DILG shall be submitted to NEDA to ensure affirmative action measures concretely benefit Deaf Filipinos (Article IV, Section 15).
Allowable expenditures related to this provision may be charged to the ECCD Council, LGU Special Education Fund, or other relevant fund (Article IV, Section 15).

Justice system

Agencies must guarantee accessibility and eliminate discrimination against deaf Filipinos in the justice system through institutional use of Filipino Sign Language, with services, support, and interventions for deaf Filipinos and their families in all public hearings, proceedings, and court transactions, quasi-judicial agency proceedings, and other tribunals (Article V preface).
Department of Justice shall issue an Agency Information and Communication Policy declaring FSL official language in DOJ offices and attached agencies for programs, activities, projects, hearings, proceedings, transactions involving deaf Filipinos (particularly women and children), including arrest of deaf respondents, and accessibility in correctional facilities (Section 16(a)).
DOJ shall review, amend, enhance, implement, and monitor policies and ensure implementation of the FSL Act and these Rules (Section 16(b)).
DOJ, together with Judiciary and DILG, shall formulate standards for VCAD-based assessment of communication characteristics and preferences to determine appropriate interpreting and support/transition interventions, including medico-legal and preliminary transactions with PNP, quasi-judicial bodies, and other tribunals, and preparation of affidavits (Section 16(c)).
DOJ and, with DILG administrative offices, DSWD, and Supreme Court Office of the Court Administrator, shall compile and maintain a database of cases involving deaf individuals for monitoring and research, protecting privacy and confidentiality where required (Section 16(d)).
Supreme Court shall be enjoined to issue a Supreme Court policy declaring Filipino Sign Language as official language in legal interpreting and in all courts and offices for hearings, proceedings, and transactions involving deaf Filipinos (Section 17(a)).
Supreme Court shall review, amend, enhance, implement, monitor, and ensure compliance with cited international commitments (Section 17(b)).
Supreme Court shall formulate standards for interpreting and documentation in court proceedings and handling cases involving deaf parties, with administrative guidelines for subpoenas, compensation, etc., particularly for deaf children and unschooled deaf individuals (Section 17(c)).
Supreme Court shall include FSL modules (as determined in Section 7 and Section 21) as part of Mandatory Continuing Legal Education for judges, lawyers, and court personnel (Section 17(d)).
Supreme Court shall designate Filipino Deaf–FSL consultants/specialists and engage Deaf organizations and FSL researchers for sustainable implementation in courts and offices (Section 17(e)).
Supreme Court shall develop, implement, and monitor policies for designation of qualified sign language interpreters, translators, and VCAD administrators (Section 17(f)).
DILG shall issue an agency policy declaring FSL official language in DILG offices, attached agencies, and LGUs for programs and transactions involving deaf persons in proceedings under Katarungang Pambarangay/Lupong Tagapamayapa (Section 18(a)).
DILG shall review relevant sections of the Revised Local Government Code (R.A. 7160), including Katarungang Pambarangay, and review DILG Administrative Circular No. 14-93 on conciliation procedure (Section 18(b)).
DILG shall monitor, consolidate, and report disaggregated data on deaf persons, especially deaf women and children, and report LGU policy implementation reviews and amendments to ensure implementation (Section 18(c)).
DILG shall institute, coordinate, and monitor inclusion of FSL in Local Government Academy programs and online webinars covering local policy-making, deafness orientation, Deaf culture and FSL, FSL instruction, and FSL interpreting following national standards (Section 18(d)).
DILG shall monitor LGU coordination with social services for financing and monitoring of FSL interpreting and materials needs for administration of justice (Section 18(e)).
DILG shall formulate Local Government incentives for implementing this section (Section 18(f)).
NCMF/BARMM shall issue a policy declaring FSL official language for programs and transactions involving Deaf Muslim Filipinos, including in BARMM (Section 19(a)).
NCMF/BARMM shall formulate, implement, and monitor policies; designate Filipino Deaf–FSL consultants/specialists; and engage Deaf organizations and FSL researchers for sustainable implementation (Section 19(b)).
NCMF/BARMM shall establish and sustain an interpreting system appropriate for Muslim context and Shariah courts using regional/international cooperation from Muslim Deaf experts and organizations for technical assistance (Section 19(c)).
All other quasi-judicial and administrative entities and tribunals shall similarly comply with the justice system accessibility mandate (Article V, Section 20 preface).

Workplaces (civil service and government offices)

The Civil Service Commission (CSC) shall issue an agency policy declaring FSL official language in the civil service and all government workplaces and facilitate adaptation of reasonable measures encouraging use of FSL among deaf and hearing employees (Article VI preface).
The CSC shall specify needed specialized sign language competency for agencies based on KWF minimum standards (Article VI preface).
After adoption of these Rules and Regulations, there shall be an incremental increase in recruitment and training of interpreters in FSL across the six domains covered by the Act: educational system, justice system, workplaces, health system, all other public transactions and services, and the media (Section 20).
CSC shall conduct a personnel audit of the bureaucracy and, together with DSWD and concerned agencies and offices and in consultation with organizations of Filipino Deaf, shall recommend to DBM appropriate staffing measures for progressive realization of an ideal interpreting service–deaf client ratio (Section 20).
Interpreters’ service pools may be sourced within agencies or outsourced externally, with primary importance on interpreters’ qualifications and quality of interpreting delivered (Section 20).
Within thirty (30) days after adoption of these Rules and Regulations, CSC shall promulgate policies, rules, and regulations for incremental increase or training of government employees in interpreting; these must cover transitional and long-term capacity-building plans for plantilla positions for the next five (5) years, including outsourcing, public-private partnerships, and other sustainable options, including interpreters, translators, and VCAD administration (Section 20).
UP with KWF shall formulate training materials development guidelines for employees of DOJ, Judiciary, DOH, DSWD, PCW, CWC, and CHR (Section 21).
Based on CSC audit and strategic placement, government employees including appointing authorities and LCEs of LGUs and executive managerial positions providing services to Filipino deaf community shall regularly undergo training (Section 21).

Health system

The Department of Health (DOH) shall issue an agency policy declaring FSL official language in DOH offices, constituent/attached agencies, and facilities for all health programs, activities, and projects for transactions involving the deaf, and shall consider impacts at all levels of health care, health systems, service delivery networks, and health technology assessment (Section 22(a)).
DOH shall review and enhance policies and practices in curricula, training and relevant testing for medical/health service providers and allied health professions; community-based support care; pharmacies and diagnostic clinics; HMOs; and transactions with PhilHealth, SS, GSIS, and other frameworks to ensure implementation (Section 22(b)).
DOH shall specify needed specialized sign language competency based on KWF minimum standards (Section 22(b)).
DOH shall ensure barrier-free services and materials, particularly in Sexual & Reproduction Health (especially relating to VAWC), mental health, and HIV-AIDS, considering intersectionality with gender, age, and socio-economic status (Section 22(c)).
DOH shall designate Filipino Deaf–FSL consultants/specialists and engage Deaf organizations and FSL researchers for sustainable implementation (Section 22(d)).
DOH shall develop, promote, and monitor policies for designation of qualified sign language interpreters and provision of accessible materials for all health programs, activities, projects, centers, and facilities, including public and private centers and institutions (Section 22(e)).

All other public transactions, services, and facilities

GSIS, SSS, PhilHealth, Pag-ibig, PAGCOR, and similar agencies shall issue policies declaring FSL official language in their offices and facilities for transactions involving the deaf (Section 23(a)).
Such agencies shall review and enhance existing policies and frameworks to ensure FSL Act implementation (Section 23(b)).
Such agencies shall designate Filipino Deaf–FSL consultants/specialists and engage Deaf organizations and researchers for sustainable implementation (Section 23(c)).
Such agencies shall develop, promote, and monitor policies for designation of qualified sign language interpreters and provision of accessible materials in all programs, activities, projects, centers, and facilities (Section 23(d)).
Philippine Statistics Authority (PSA) shall issue an agency policy for FSL (Section 24).
Within one (1) year after adoption, PSA shall facilitate creation of a database of the number of deaf Filipinos and deaf signers, disaggregated by gender and age, based on consultation with NGAs, LGUs, and Filipino Deaf (Section 24).
The database shall include education, justice, health, workplaces, media, and all other services data, as enumerated (Section 24(1)-(6)).
PSA shall gather, consolidate, and report numbers of qualified interpreters, translators, VCAD administrators, and other support personnel relevant to implementing the Act, and report the proportion of regional and national services providers to deaf clients/beneficiaries (Section 24).
DILG shall issue an agency policy declaring FSL official language in DILG offices, attached agencies, LGUs, and local bodies for transactions involving the deaf (Section 25(a)).
DILG shall review and mend relevant sections of R.A. 7160 and related local legislation to ensure compliance (Section 25(b)).
DILG shall specify needed specialized sign language competency based on KWF minimum standards (Section 25(b)).
DILG shall monitor, consolidate, and report disaggregated data on deaf persons, particularly deaf women and children, including demographics, use of FSL and interpreting by Local Governments, and report policy review and implementation by LGUs for compliance (Section 25(c)).
DILG shall institute, coordinate, and monitor inclusion of FSL in Local Government Academy training and online webinars and incorporate orientation on deafness, Deaf culture, FSL instruction, and FSL interpreting following national standards (Section 25(d)).
DILG shall monitor LGU coordination with social services for provision, financing, and monitoring of FSL interpreting and materials needs (Section 25(e)).
DILG shall formulate and integrate provisions on FSL use, interpreting, and accessible materials into Local Government incentives such as Seal of Good Local Governance, Good Financial Housekeeping, Performance Incentive Funds, Seal of Child-Friendly Local Governance, GADtimpala Scoring System, and other incentives (Section 25(f)).
Agencies and LGUs shall establish a network of qualified non-professional and professional government interpreters (Section 26).
A centralized facility coordinated across regional units for sign-to-point transition and for administration and coordination of VCAD shall be established transitionally and supported for long-term function (Section 26).
The head of agencies or LCEs shall issue policies institutionalizing FSL Focal Points among social services staff; the FSL Focal Points’ tasks shall be part of regular key result areas and considered in performance evaluation (Section 26).
Heads of agency or LCEs shall ensure FSL Focal Points undergo capacity-building and training on management of FSL interpreting (Section 26).
FSL Focal Points shall ensure provision of accessible materials in FSL for various services of the local government (Section 26).
The National Commission on Muslim Filipinos shall formulate, coordinate, implement, and monitor policies, plans, programs, and projects on interpreting for Muslim Deaf particularly in BARMM and for other Deaf Muslims, with recommended cooperation for international assistance for guidance on culturally appropriate interpreting, especially for deaf women and children (Section 26).

FSL in media and public promotion

MTRCB shall issue an agency policy declaring Filipino Sign Language official language for broadcast media interpreting and related guidelines, including coordination with KBP, the Deaf community, and stakeholders to create a national system of standards, procedures, and