This report addresses needs raised in House Joint Resolution 276 (1987) concerning telecommunications access for hearing and speech impaired Virginians. The resolution directed the Virginia Department for the Deaf and Hard of Hearing to:

* study the accessibility of telecommunications devices for the deaf;

* evaluate assistive services and devices;

* examine the impact of existing programs on telecommunications access for persons with hearing and speech impairments;

* consult client groups, the telecommunications industry in Virginia and other relevant state agencies; and

* recommend strategies and funding to improve the accessibility of services and the independence of certain persons through the telecommunications system.

Technology has made it possible to reduce communications barriers for persons with disabilities. Though telephones are seen as a necessity by most consumers, a disproportionate number of hearing impaired persons do not have telephone service. Special telecommunications equipment can be prohibitively expensive for those individuals. However, equal access to services is an established principle, and in many cases is mandated by federal and state statutes.

For hearing impaired persons, the greatest single problem in dealing with hearing persons is communication. Individually and in groups, hearing impaired persons experience isolation, and may function with their own language and culture.

Persons with severe to profound hearing impairments have lower average incomes and academic achievement levels than the population as a whole. Those with lesser impairments also face functional barriers. The decreased potential for independence caused by poor access to telephone service affects these individuals disproportionately. Strategies to remedy poor telecommunications access include special assistive devices called TDDs, and message relay services.

Six analyses were performed in response to the resolution. These were:

* Accessibility of service organizations: To measure the telecommunications accessibility of services for the deaf, addressed in the resolution, 446 service organizations around Virginia were evaluated for TDD ownership and use. Over 83% of sampled organizations were not accessible by TDD, and existing TDDs were found to be underutilized.

* Telephone use by persons with hearing impairments: The resolution directed a measurement of the impact of existing programs in Virginia on telephone use. Therefore, three groups of persons with severe hearing impairments were surveyed for TDD ownership and use. The three samples correspond roughly to groups of low, average and high income within the deaf community. Proportions of those without TDDs were 82% (low income), 66% (average income), and 40% (high income). Applied to projections of deaf Virginians, the percentages yield estimates of 20,000 to 40,000 deaf Virginians in need of TDDs. These estimates exclude the aged hard-of-hearing and persons with speech impairments.

* Telephone company services: Another component of existing programs is represented by specialized services available from Virginia telephone companies. Nineteen of 24 companies surveyed, or 79%, are not accessible by TDD in this manner. Companies reported limited use of available long-distance discount rates by TDD users. Use of discounts is limited by the small number of TDDs owned by private individuals.

* Message relay services: To address accessibility of telecommunications services for the deaf and the impact of existing programs as specified in the resolution, message relay services were examined. The study addressed their service areas, call volumes, hours of operation and annual budgets. Of eight organizations which responded, three have a primary mission to relay messages to and from persons with hearing impairments. Populations in different regions of Virginia are not served uniformly or proportionately. Two of the three message relay services limit their hours of service or the nature of messages accepted for relay, due to resource limitations. An annual volume of approximately 412,100 relayed calls requires funding of approximately $507,000 a year. Currently, an estimated 1.46% of the potential telephone service demand is being met through Virginia's relay services for this population.

* Other Virginia programs which may impact on access: A range of private and public programs have the potential to reduce the need for TDDs in Virginia. Three of four state agencies place assistive devices with clients who have a range of physical and sensory disabilities. However, placement of only one telebrailler could be verified. For two statewide service clubs, hearing aids were apparently placed more often than TDDs. A limited number of TDDs is loaned, rented or sold by message relay services in two separate metropolitan areas.

* Telecommunications access programs on other states: To illustrate strategies to improve telecommunications access elsewhere, programs in 21 other states were analyzed for funding, program benefits and client criteria. Programs emphasized TDDs, telebraillers and message relay services. Fund sources varied widely, with annual budgets from a few thousand dollars to $15 million annually. A range of disability, age, residency and income criteria were reported.

Based on the results of this study, the Department proposes development of an effective telecommunications access program. This proposal will balance TDD distribution with message relay services to assure effective communications for individuals and on the system level. The proposal expands and builds on current community service efforts, which have been limited by scarce resources. Financial support of community based message relay services will be coordinated with distribution of TDDs to private individuals.

No solution is without disadvantages. This proposal is a first step, and does not preclude future funding of a centralized, full-service message relay service staffed entirely by professional relay personnel.

Recommendations

Specific recommendations to implement a balanced system of telecommunications services for hearing impaired and speech impaired persons include:

* An executive order from the Governor that all state agencies and state funded activities become TOD-accessible.

* Also by executive order, monitoring by the Department of public agency accessibility by TDD. Annual reports of monitoring data should be made to the Governor.

* Promoting use of telecommunications access strategies by individuals, private, and public organizations.

* Central coordination of state efforts to improve telecommunications access. Proposed costs are $51,730 in FY 1989, and $44,230 in FY 1990.

* State financial assistance to message relay services. Proposed costs are $40,000 in FY 1989 and $500,000 in FY 1990.

* Distribution of TDDs to private persons in need with functional impairments of speech or hearing. Proposed costs are $250,000 in FY 1989 and $500,000 in FY 1990.

* Amendments to the Code of Virginia will be required for program and regulatory authority.