Pursuant to the General Assembly’s directive (Item 270 F.1 of the 2025 Budget Bill), the Virginia Department for the Deaf and Hard of Hearing (VDDHH) has prepared this report on the anticipated statewide transition from analog Telecommunications Relay Services (TRS) to digital relay services based on Information & Communication Technologies (ICT). The report addresses seven key areas: technical features of new relay technologies, cost estimates and projections, timeline and implementation plans, legislative considerations, impacts on existing programs, and impacts on relay providers, users, state agencies, and other stakeholders. Key findings of this report include:

The features of RTT and any other digital telecommunication technology that is being considered for use as related to statewide relay services.

Real-Time Text (RTT) offers real-time character-by-character text transmission over IP networks, enabling faster, more natural communication than traditional TTY devices. In addition to RTT, the VDDHH has reviewed other modern communication technologies that may enhance or supplement relay services. These include Direct Video Communication (DVC), which enables American Sign Language (ASL) users to connect directly with Commonwealth of Virginia state agencies’ call centers; Communication Facilitators (CF), who provide live support for DeafBlind individuals; Remote Conference Captioning (RCC), which ensures full captioned access during conference and group calls; and emerging Artificial Intelligence (AI) technologies such as sign language recognition, haptic communications, and other modern solutions that can expand functional equivalency for users. Coordination with 911 call centers will also be essential to ensure that digital relay technologies, including RTT, are fully interoperable with Next Generation 911 systems and emergency response protocols.

(i) The estimated cost for the Commonwealth to transition from analog to digital relay services and an accompanying explanation of the methodology used for the cost estimate.

The cost estimates account for infrastructure, training, vendor contracts, and operations associated not only with RTT but also with the integration of DVC, CF, RCC, and future AI-based or digital communication technologies, along with training and system updates at 911 call centers to ensure they can receive digital relay services. The methodology includes capital costs, pilot testing, and projected implementation costs.

(ii) A six-year projection of anticipated operating costs for a statewide digital relay platform and an accompanying explanation of the methodology used for the cost estimate.

Virginia Relay’s projected operating costs over the next six years consider declining use of legacy analog relay services, expected inflation, and the introduction of new technologies. These projections assume that while some cost savings will occur as analog usage drops, new initiatives and equipment upgrades will require sustained funding. Estimates incorporate anticipated usage trends, moderate annual inflation, and necessary technological upgrades to maintain service quality.

(iii) A proposed timeline for transitioning from analog to digital relay services and an operationalization plan for the agency's preferred digital relay platform.

Transitioning to digital relay services may necessitate amendments to current Code of Virginia statutory language to explicitly include relay services that are supported on a digital telecommunications infrastructure as opposed to an analog infrastructure. Impacts to VDDHH programming, including the Technology Assistance Program (TAP), are expected to be moderate, with adjustments required for device distribution and training. A phased transition plan will ensure continuity of service. The plan prioritizes extensive user education, upgrades to equipment for digital compatibility, and close coordination with relay providers. Analog relay services will remain in place until digital telecommunication and information technologies alternatives, e.g. broadband, Voice-Over Internet Protocols (VOIP), wireless/cellular are fully operational and adopted by telecommunication carriers and/or broadband providers, and users have been successfully transitioned, minimizing disruption to callers.

(iv) A description of any potential legislative impacts or proposed changes associated with a transition to digital relay services.

Transitioning to digital relay services may require updates to the Code of Virginia and Virginia Administrative Code. Statutory language should be modernized to explicitly include internet-based relay services and emerging new technologies. For example, using the term “Information and Communication Technology (ICT)" in place of “telecommunications". Relay users will benefit from more reliable, faster, and modernized communications.

(v) A description of any potential impact (including cost) to existing DDHH programming, including the Technology Assistance Program.

The transition to RTT and related digital relay technologies represents a necessary modernization of Virginia’s telecommunications services for individuals who are Deaf, Hard of Hearing, Deafblind, or who have speech disabilities. VDDHH would modernize relay services using the existing appropriation levels however appropriation for the TAP will need to increase.

(vi) A description of any potential impact (including cost) to relay service providers, users, state agencies, or relevant third parties resulting from a transition to digital relay services.

Relay users will benefit from more reliable, faster, and modernized communications as the system transitions to digital. At the same time, users may need support in learning new technologies or obtaining updated devices. State agencies and other third parties, such as 911 emergency services, will require training and system updates to ensure they remain accessible and responsive to relay calls in the new digital environment.

The Commonwealth’s transition to digital relay services is fully achievable within the current appropriation of approximately $2.06 million annually. Rather than expanding the budget, the transition strategy takes advantage of declining analog costs to create a fiscal cushion that supports investments in CF, DVC, and emerging technologies. By building on proven cost trends and carefully phased implementation, this transition achieves modernization while remaining firmly within the budget already established by the General Assembly. No additional funds will be required for execution of this plan.

In conclusion, the transition to RTT and emerging digital relay technologies represents a necessary modernization of Virginia’s telecommunications infrastructure for individuals who are Deaf, Hard of Hearing, DeafBlind, or have speech disabilities. This report lays out a path forward that balances innovation with continuity, ensuring that no Virginians reliant on relay services are left behind during the transition from analog to modern communication.