At its November 20, 2025, meeting the FCC voted to begin a Further Notice of Proposed Rulemaking (Further Notice) in Docket 03-123 to modernize Telephone Relay Service (TRS). Telephone Relay Service is a free, nationwide public service that allows persons with hearing or speech disabilities to place and receive telephone calls, making the telephone network accessible to everyone. The service uses an operator, known as a Communications Assistant (CA), to act as an intermediary in the conversation.
Currently, the Commission recognizes six forms of TRS, three “analog” services, and three Internet-based services. The three analog forms of TRS are TTY-based Relay Service (Telephone Text Relay), Speech to Speech Relay Service (STS), and Captioned Telephone Service (CTS). The analog forms of TRS are in part overseen by state TRS programs. As communications technologies have evolved, analog relay services have seen declining or minimal usage, while Internet-based forms of TRS continue to advance and communication service providers and equipment manufacturers integrate accessible communications functionalities into their services and devices. Addressing these concerns will help ensure that relay services remain effective, accessible, and sustainable for individuals who are deaf, hard of hearing, deafblind, or have speech disabilities. (Docket 03-123, October 30, 2025, Fact Sheet.
Currently, TRS providers provide analog relay services for intrastate, interstate, and international calls. They are reimbursed for intrastate analog TRS calls from the relevant state universal service fund and reimbursed for interstate and international calls from the interstate universal service fund. With the advent of Internet TRS, the FCC determined that it would speed up the deployment if states did not have to finance or run the IP-based services. However, with analog TRS in severe decline, the agency has concluded that its rules for states have not kept pace with the new technology and must be updated. Thus, in the Further Notice the Commission makes the following proposals:
Seek industry comments on terminating the mandatory status of TTY Relay for state-based TRS programs to afford states the flexibility to adapt their programs to local needs and technological realities. The FCC believes several alternative services such as IP-relay service will be available to ensure that functionally equivalent communication is available to the remaining users of TTY Relay, in those states that choose to terminate the availability of this service through the state TRS program
Seek comments on how TTY Relay users can transition to modern alternatives.
Proposes to recognize Internet Protocol (IP) STS as a compensable form of TRS that would include video-assisted STS as an integrated or add-on component.
Seeks comments on the application of certification, mandatory minimum standards, and other requirements to the provision of IP STS and to ensure effectiveness of STS outreach.
Seek comments on TRS users requiring additional assistance to transition to IP-based alternatives and how best to help where it may be needed. How many such individuals exist, `what are the reasons they are unable to transition, and what means are available to ensure that such individuals remain able to communicate after the retirement of the copper facilities serving them. “For example, are subsidies available at the state or federal level to ensure that analog TRS users who cannot otherwise afford to subscribe to Internet access services are able to transition to a VoIP line or other IP-based communications channel”?
Seek comments on how state programs may change as analog TRS services transition to IP-based services.
Seek comments on the need for and whether to establish a temporary national certification process for providers of TTY Relay and STS.
Seek comments on applying user eligibility, registration, verification, and call detail records requirements to all forms of TRS.
Propose to delete or modify TRS rules that are obsolete, burdensome, or unnecessary.
Industry comments on the Further Notice are due 30 days after it appears in the Federal Register. Reply comments are due 30 days later.