Implementing Rules of Filipino Sign Language Act

Legal basis and institutional authority

The rules are issued pursuant to Section 13 of Republic Act No. 11106 and to implement the Filipino Sign Language Act (Preamble).
The Komisyon sa Wikang Filipino (KWF) shall establish a national system of standards, accreditations, and procedures for FSL interpreting, with involvement of the Deaf community and stakeholders (Article II, Section 7).
The rules impose implementation responsibilities on concerned national government agencies (NGAs), GOCCs, LGUs, and SUCs, and require equivalent accountability in autonomous regions (Article I, Section 4).

Policy declaration and intent

The State shall promote, protect, and ensure the full and equal enjoyment of human rights and fundamental freedoms of persons with disabilities, consistent with the United Nations Convention on the Rights of Persons with Disabilities (Article I, Section 5).
State agencies shall uphold inherent dignity, individual autonomy, and independence by guaranteeing accessibility and eliminating all forms of discrimination in public interactions and transactions, to ensure full participation and inclusion in society (Article I, Section 5).
The State shall take appropriate measures to ensure that deaf Filipinos can exercise the right to expression and opinion, and it shall recognize and promote the use of sign language embodying the cultural and linguistic identity of the Filipino Deaf (Article I, Section 5).
Relevant cultural agencies are encouraged to undertake activities recognizing Filipino Sign Language as the national sign language (Article I, Section 5).
The rules connect implementation with the Early Years Act (Republic Act No. 10410) and the Enhanced Basic Education Act (Republic Act No. 10533), which recognize Filipino Sign Language in education from early childhood up to secondary level (Article I, Section 5).
The rules treat the implementing framework as a measure fulfilling State commitments to the International Covenant on Civil and Political Rights, International Covenant on Economic, Social, and Cultural rights, CEDAW, and the Convention on the Rights of the Child (Article I, Section 5).

Coverage, scope, and implementation governance

Implementation of the rules covers all concerned NGAs, bodies, instrumentalities including GOCCs, LGUs, SUCs, and various public sector entities (Article I, Section 4).
Equivalent units in autonomous regions must formulate, adapt, and implement similar rules and regulations (Article I, Section 4).
Agencies are recommended to adopt appropriate legislative, administrative, and other measures to recognize and support the Filipino Deaf’s cultural and linguistic identity as provided by the Act (Article I, Section 6).
Agencies are required to guarantee accessibility and non-discrimination to deaf recipients of services, and to ensure a barrier-free workplace environment for all deaf employees (Article I, Section 6(B)).
Agencies must give due consideration to intersectionality factors affecting deaf persons, including gender, age, ethnicity, socio-economic status, and other relevant factors (Article I, Section 6(B)).
National and agency-level information and communication policies must guide implementation in education, justice, health, all workplaces, public services/transactions/facilities, and media (Article I, Section 6(A) and Section 6(B)).

National and agency information policies

The KWF shall promote the National Information & Communication Policy for the Filipino Deaf and Filipino Sign Language to guide implementation across education, justice, health, workplaces, public services/transactions/facilities, and media (Article I, Section 6(A)).
The National Policy shall include minimum standards on:
- instruction and training on and about FSL in the civil service, including Continuing Professional Development (Article I, Section 6(A)(1));
- testing of FSL competency among both hearing and deaf prospective workers in the civil service, prioritizing teachers in early and basic education, and priority as interpreters, translators, and support staff for access to justice (Article I, Section 6(A)(2));
- interpreting to and from FSL and spoken languages, including specific standards for technical specialized interpreting in legal/judicial, medical, broadcasting, educational/academic, and other domains (Article I, Section 6(A)(3));
- interpreter insets in broadcasting (Article I, Section 6(A)(4));
- translation of FSL to print for documents and copyrighted materials (Article I, Section 6(A)(5));
- development of materials in FSL, including copyrighted materials (Article I, Section 6(A)(6)).
Each agency shall formulate and implement an Agency Information & Communication Policy guaranteeing inclusion of FSL and deaf Filipinos in all policy, operations, and practices (Article I, Section 6(B)).
Each agency’s Agency Policy must:
- declare FSL as the national and official sign language for all transactions, services, and facilities involving the deaf, without prejudice to individual preference (Article I, Section 6(B)(1));
- address information and communication needs according to urgency, complexity, duration of interaction, and predictability of frequency, grounded on the deaf client/beneficiary profile and preferences, and considering gender, age, SES, and other factors (Article I, Section 6(B)(2));
- equip all employees with fundamental understanding of deafness, manual communication, Deaf culture, FSL, interpreting, and accessibility (Article I, Section 6(B)(3));
- identify required FSL competency levels for different personnel categories and plan training for reasonable accommodation decision-making and accessibility to deaf clients (Article I, Section 6(B)(4));
- publish online in FSL: (a) Frequently Asked Questions on frontline services, programs, forms, and other information—particularly critical or urgent protection from violence—and (b) most commonly used/typical sentences for easy reference (Article I, Section 6(B)(5));
- determine financing and resources needed for implementation (Article I, Section 6(B)(6));
- undertake other relevant actions within its mandate (Article I, Section 6(B)(7)).
Agencies are encouraged to institutionalize the participation of the Filipino Deaf and continuously gather relevant statistics for long-term targets of ideal service provider-to-deaf client ratios (Article I, Section 6(C)(2) and Section 6(C)(3)).

Definitions governing interpretation and implementation

Accessible formats / accessible materials are alternatives to print addressing communication needs of persons with disabilities, including interpretation in sign language texts written in plain or easy-to-understand language (Article I, Section 7(a)).
Deaf describes individuals unable to fully use hearing to process information, whether signers or not, including hard of hearing persons, orally schooled persons, persons with cochlear implants, and others using other communication modes including speech and speech-reading, including those using isolated gestural non-standard signs (Article I, Section 7(b)).
Deaf (capitalized) as a noun refers to a subset of deaf Filipinos who use the natural visual language of the Deaf community and support its goals and values as a linguistic and cultural minority; all Deaf Filipinos are deaf, while not all deaf Filipinos are Deaf (Article I, Section 7(c)).
Deaf community is the group of Deaf individuals sharing culture and language, including Filipino Sign Language and the associated cultural interest, values, rules of behavior, and norms (Article I, Section 7(d)).
Deaf relay interpreter relays information between a linguistically isolated deaf person and hearing non-signers, together with a hearing interpreter (Article I, Section 7(e)).
Deaf people’s organization is an association comprised of and run autonomously by deaf individuals (Article I, Section 7(f)).
Filipino Sign Language (FSL) is the natural visual language evolved over centuries, distinct from spoken Filipino, rule-governed with structural phonology, morphology, syntax, and discourse features, influenced by American Sign Language but documented as distinct (Article I, Section 7(g)).
Interpreting is producing/rendering a message from source language to target language, for this Act referring to producing/rendering messages to and from FSL or non-standard manual communication based on FSL principles (Article I, Section 7(h)).
Sign language competency is the ability to use language receptively (visually) and expressively (signing) (Article I, Section 7(i)).
Manual communication is various forms of visual-spatial communication utilizing the hands, from true visual languages to artificial sign systems (Article I, Section 7(j)).
National sign language and official sign language are the sign language used in official government functions (Article I, Section 7(k)-(l)).
Qualified sign language interpreter is an interpreter competent to deliver interpreting skills needed and/or preferred by a deaf client (Article I, Section 7(m)).
Sign language interpreter typically refers to a hearing person rendering messages between spoken and natural sign languages (Article I, Section 7(n)).
Translation for this Act is transmitting/rendering a message from FSL to written English, Filipino, or other Philippine language, such as in legal affidavits (Article I, Section 7(o)).
Universal Design is design of products, environments, programmes, and services usable by all people to the greatest extent possible without adaptation or specialized design, without excluding assistive devices needed for particular groups (Article I, Section 7(p)).
Visual Communication Assessment for the Deaf (VCAD) is a one-on-one tool conducted by a Deaf administrator to determine communication features and preferences of a deaf person in a case, with recommendations submitted to the trial court or relevant agency (Article I, Section 7(q)).

Interpreting standards and accreditation timelines

FSL shall be recognized, promoted, and supported as the medium of official communication in all transactions involving the deaf, and it shall also be the official language of interpreting, without prejudice to other communication forms by individual choice (Article II, Section 7).
The KWF shall establish a national system of standards, accreditations, and procedures for FSL interpreting with involvement of the Deaf community and stakeholders, commencing as soon as possible and completing within three years (Article II, Section 7).
The national system shall include:
- training, continuing education, and professional development (Article II, Section 7);
- assessment and accreditation of individual non-professional and professional interpreters (Article II, Section 7);
- policies on interpreting as a profession, including compensation rates and benefits, working conditions, grievance procedures, and code of ethics (Article II, Section 7).
The standards shall cover Deaf Relay Interpreting based on FSL principles (Article II, Section 7).
Implementation shall not prevent use of other forms of communication depending on individual preference (Article II, Section 7).
The University of the Philippines, together with SUCs, is encouraged to conduct continuing research on the national system of standards for FSL interpreting (Article II, Section 7).

FSL in education and instructional delivery

The Department of Education (DepEd), TESDA, and other education-related national and local agencies shall use and coordinate on the use of FSL as the medium of instruction in deaf education (Article III, Pursuant to Section 4 of the FSL Act).
For early education (ECCD):
- The ECCD Council, in coordination with DepEd, shall issue an Agency Information and Communication Policy for the Filipino Deaf and FSL to adapt FSL as the visual language and medium of instruction, ensure inclusion of children with disabilities including the deaf in early education frameworks and related instruments, and institute pre-/in-service training following national standards (Article III, Section 8(1)).
- The ECCDC shall specify needed specialized sign language competency for teachers and staff based on minimum National Policy standards set by the KWF (Article III, Section 8(2)).
- ECCDC shall coordinate with the PRC to employ alternative procedures in licensing deaf teachers, hire deaf teachers and staff, designate Filipino Deaf–FSL consultants/specialists, and fully engage with Deaf organizations and researchers to implement FSL Act sustainably (Article III, Section 8(3)).
For basic education (K-12), DepEd must:
- issue an inclusive Agency Policy adopting FSL as the medium/language of instruction (Article III, Section 9(1)(a));
- review, amend, and formulate frameworks and practices on curriculum, support, teachers, training, materials, ICT, assessment, monitoring, and evaluation to implement the FSL Act and the rules (Article III, Section 9(1)(b));
- treat FSL as recognized in the Mother Tongue Based-Multilingual Education program, functioning as the mother/first/visual language (L1) with written English, Filipino, and other Philippine languages as languages of literacy (L2) as auxiliary mediums of instruction (Article III, Section 9(1)(c));
- designate Filipino Deaf–FSL consultants/specialists and engage Deaf organizations and researchers for sustainable implementation in classroom and delivery platforms including online distance education and children’s television programs (Article III, Section 9(1)(d)).
DepEd shall provide qualified sign language interpreters and accessible materials for all programs and activities for all deaf learners, including deaf teachers and staff (Article III, Section 9(2)).
DepEd shall develop policies for hiring Deaf teachers and designate qualified sign language interpreters, and it shall discourage routinely assigning interpreting duties to teachers for non-instructional activities (including law enforcement interviews, affidavit preparation, court proceedings, and polling/electoral-related duties) (Article III, Section 9(2)).
DepEd shall continue inclusion of deaf learners on an equal basis and use of FSL across programs including Indigenous Persons and Madrasah programs and national testing (Article III, Section 9(3)).
DepEd shall specify needed specialized sign language competency based on KWF National Policy minimum standards (Article III, Section 9(2)).
TESDA must issue an inclusive Agency Policy that:
- adopts FSL as medium of instruction in all its programs and activities and ensures equal access in enrollment and training (Article III, Section 10(a));
- review and enhance policies and frameworks on curriculum, standards, assessment, and accreditation to ensure implementation, including the long-term goal of hiring Deaf teachers and trainers (Article III, Section 10(b));
- in consultation with Deaf organizations and interpreter organizations, plan FSL interpreting training (Article III, Section 10(c));
- provide qualified sign language interpreters and accessible materials for inclusive services (Article III, Section 10(d));
- designate Filipino Deaf–FSL consultants/specialists and engage Deaf organizations and researchers for sustainable implementation (Article III, Section 10(e));
- promote and include deaf training graduates in employment transition programs (Article III, Section 10(f)).
TESDA shall specify needed specialized sign language competency based on KWF minimum standards (Article III, Section 10(b)).
CHED must issue an inclusive Agency Policy requiring:
- adoption of FSL as medium of instruction in higher education for deaf enrollees (Article III, Section 11(a));
- review and enhance higher education institutional standards including curriculum, teacher training, materials, ICT, assessment, financing, monitoring, and evaluation, especially teacher education programs (Article III, Section 11(b));
- formulate and monitor financing and provision of qualified sign language interpreters and accessible materials to enable equal access to tertiary education under Republic Act No. 10931 (Article III, Section 11(c));
- institute and monitor measures and engage Deaf organizations and researchers for designation of Filipino Deaf–FSL consultants/specialists (Article III, Section 11(d)).
CHED shall specify needed specialized sign language competency based on KWF minimum standards (Article III, Section 11(b)).
PRC, with CHED, must issue an Agency Policy requiring:
- review of licensing policies and a transitional alternative assessment procedure as affirmative action to consider current conditions, background, and socio-economic circumstances of deaf teacher education graduates (Article III, Section 12(a));
- assurance of full accessibility and language and culture fairness in assessments (Article III, Section 12(b));
- promotion and mobilization of Deaf teachers across formal education, alternative learning systems, and other delivery platforms, with coordination to ensure entry of Deaf teachers/users of FSL into public schools, daycare centers, and national child development centers (Article III, Section 12(c));
- issuance of guidelines on FSL, competency testing, and mandatory continuing trainings (Article III, Section 12(d)).
CHED must include FSL as a curricular or co-curricular offering in higher education programs, particularly teacher education (Article III, Section 13).
UP with KWF, professional sign linguistics and linguistics researchers, in collaboration with CHED, DepEd, and ECCDC, shall develop guidelines for training material development in education of the deaf for use by all SUCs and their teachers and staff (Article III, Section 14).

FSL in instructional materials procurement and distribution

DepEd Instructional Materials 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 coordination with relevant bureaus and the ECCD Council, consistent with existing laws and implementing rules (Article IV, Section 15).
Consistent with Executive Order 417, the Department of Interior and Local Government (DILG) and LGUs shall engage local Deaf people’s organizations/cooperatives for recognition, capacitation, and support in production of FSL materials (Article IV, Section 15).
DBM, COA, DepEd, and DILG annual data shall be submitted to the National Economic and Development Authority (NED) to ensure affirmative action measures concretely benefit Deaf Filipinos relative to other citizens (Article IV, Section 15).
Allowable expenditures related to instructional materials development may be charged to the ECCD Council, LGU Special Education Fund, or other relevant fund (Article IV, Section 15).

FSL in the justice system

The justice system must guarantee accessibility and eliminate discrimination against deaf Filipinos through institutional use of Filipino Sign Language, providing services, support, and interventions in all public hearings, proceedings, and transactions of courts, quasi-judicial agencies, and other tribunals (Article V, introductory paragraph).
Department of Justice (DOJ) shall issue an Agency Policy declaring FSL as official language in all DOJ offices and attached agencies for programs and hearings involving deaf Filipinos, including women and children, and including arrest of deaf respondents and accessibility in correctional facilities (Article V, Section 16(a)).
DOJ shall review, amend, enhance, implement, and monitor policies, programs, and projects to ensure implementation (Article V, Section 16(b)).
DOJ shall specify needed specialized sign language competency based on KWF minimum standards (Article V, Section 16(b)).
DOJ, together with Judiciary and DILG, shall formulate standards for institutional assessment of communication characteristics and preferences of deaf clients through VCAD to determine appropriate interpreting, assistance/support, and transitions including medico-legal communication and preliminary transactions, and preparation of affidavits (Article V, Section 16(c)).
DOJ, together with DILG administrative offices, DSWD, and Supreme Court Office of the Court Administrator, shall compile and maintain a database of cases involving deaf individuals as real parties in interest for monitoring and research, with privacy/confidentiality protections where required (Article V, Section 16(d)).
Supreme Court/Judiciary is enjoined to:
- issue a Supreme Court policy declaring FSL official language in legal interpreting and in all courts/offices for hearings involving deaf Filipinos (Article V, Section 17(a));
- review, amend, enhance, implement, and monitor policies in compliance with State commitments to UNCRPD, ICCPR, CEDAW, and CRC (Article V, Section 17(b));
- formulate standards for interpreting and documentation in court proceedings, and handling of cases involving deaf parties, with administrative guidelines for subpoenas and compensation, especially for deaf children and unschooled deaf individuals (Article V, Section 17(c));
- include FSL modules in Mandatory Continuing Legal Education as determined in Section 7 and Section 21 for awareness-raising among judges, lawyers, and court personnel on deafness, interpreting, and FSL (Article V, Section 17(d));
- designate Filipino Deaf–FSL consultants/specialists and engage Deaf organizations and researchers for sustainable implementation (Article V, Section 17(e));
- develop and monitor policies for designation of qualified interpreters, translators, and VCAD administrators (Article V, Section 17(f)).
DILG shall issue an Agency Policy declaring FSL official in DILG offices and attached agencies and across all LGUs for programs involving deaf persons engaging in Katarungang Pambarangay/Lupong Tagapamayapa (Article V, Section 18(a)).
DILG shall review relevant sections of Revised Local Government Code (R.A. 7160), including Katarungang Pambarangay, and DILG Administrative Circular No. 14-93 on conciliation procedures (Article V, Section 18(b)).
DILG shall monitor, consolidate, and report disaggregated data on deaf persons (especially deaf women and children), including FSL and interpreting use, and monitor implementation by Local Governments for compliance (Article V, Section 18(c)).
DILG shall institute, coordinate, and monitor inclusion of FSL in Local Government Academy training and webinar programs, including policy-making, orientation on deafness and FSL, FSL instruction, and FSL interpreting following national standards (Article V, Section 18(d)).
DILG shall monitor Local Government coordination with social services for provision, financing, and monitoring of FSL interpreting and materials among constituencies (Article V, Section 18(e)).
DILG shall formulate Local Government incentives for implementation in administering justice (Article V, Section 18(f)).
NCMF/BARMM shall:
- issue a policy declaring FSL official in its offices and constituent/attached agencies for programs and transactions involving Deaf Muslim Filipinos, including in BARMM (Article V, Section 19(a));
- formulate, implement, and monitor programs, designate Filipino Deaf–FSL consultants/specialists, and engage Deaf organizations and researchers (Article V, Section 19(b));
- establish and sustain an interpreting system appropriate for Muslim context and Shariah courts, using regional/international cooperation from Muslim Deaf experts/organizations for technical assistance (Article V, Section 19(c)).
Other quasi-judicial and administrative entities and tribunals must similarly comply with the access and FSL institutional use requirements described for justice system entities (Article V, Section 20).

FSL in workplaces and civil service hiring capacity

The Civil Service Commission (CSC) shall issue an Agency Policy declaring FSL official in the civil service and government workplaces and facilitating adaptation of reasonable measures encouraging use of FSL among deaf and hearing employees (Article VI, introductory paragraph).
The CSC shall specify needed specialized sign language competency based on KWF minimum standards (Article VI, introductory paragraph).
After adoption of the rules, recruitment and training of interpreters in Filipino Sign Language shall incrementally increase across six domains: educational system, justice system, workplaces, health system, all other public transactions and services, and media (Article VI, Section 20).
CSC shall conduct a personnel audit of the bureaucracy and, together with DSWD and concerned agencies and offices, recommend to DBM staffing measures for progressive realization of an ideal interpreting service–to–deaf client ratio, in consultation with organizations of Filipino Deaf (Article VI, Section 20).
Interpreter pools may be sourced internally or outsourced externally, placing primary importance on interpreter qualifications and interpreting quality (Article VI, Section 20).
Within thirty (30) days after adoption of the rules, CSC shall promulgate policies, rules, and regulations for incremental increase and training of government employees in interpreting, including transitional and long-term capacity-building plans for plantilla positions over the next five (5) years, and plans for outsourcing, public-private partnerships, and sustainable options, including interpreters, translators, and VCAD administration (Article VI, Section 20).
UP with KWF, professional linguistics organizations, and Filipino Deaf linguistics researchers shall formulate training material development guidelines for employees of DOJ, Judiciary, DOH, DSWD, PCW, CWC, and CHR (Article VI, Section 21).
Appointing authorities, local chief executives (LCEs) of LGUs, and executive managerial positions involved in providing services to the Filipino deaf shall regularly undergo training based on the CSC audit and strategic placement of employees (Article VI, Section 21).

FSL in the health system

DOH shall issue an Agency Policy declaring FSL official in DOH offices and attached agencies and facilities for all health programs and transactions involving the deaf, including impacts on health care at all levels, health systems, service delivery networks, and health technology assessment (Article VII, Section 22(a)).
DOH shall review and enhance existing policies and frameworks for curricula, training and testing for all medical/health service providers and allied medical professions; community-based support care; pharmacies and diagnostics clinics; HMOs; and transactions with PhilHealth, SS, GSIS, and other health-related frameworks to ensure implementation (Article VII, Section 22(b)).
DOH shall ensure barrier-free services and materials, particularly in priority areas of Sexual & Reproduction Health relating to VAWC, mental health, and HIV-AIDS, considering intersectionality factors (Article VII, Section 22(c)).
DOH shall designate Filipino Deaf–FSL consultants/specialists and engage Deaf organizations and researchers for sustainable implementation across health concerns and facilities (Article VII, 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 in both public and private health centers and institutions (Article VII, **Section 22(e