British Sign Language (BSL) route map: children’s rights impact assessment

What decision are you impact assessing?

The Welsh Government will publish its British Sign Language (BSL) route map, which will represent the first steps toward realising our ambition of creating a Wales that respects, promotes and facilitates BSL, through short- term actions to be completed within 18 months. These actions will lay the groundwork for future policies and strategy, to create lasting change and greater inclusion for deaf BSL signers.

The actions within the BSL route map have been informed by the short-term recommendations produced by the BSL Stakeholder Group. The recommendations by the group were published on 30 September 2025. 

The short-term actions within the BSL route map, which have been shaped by the lived experience and resilience of the BSL group members, will lay the groundwork for future policy and strategies, to create lasting change and greater inclusion for deaf BSL signers. 

The BSL route map contains 4 key themes and 10 actions. The 4 key themes are: 

1. BSL data collection and evidence
2. Promotion of BSL as a language 
3. Welsh Government BSL provision
4. Pathways within public services

Children and young people

The BSL route map are in relation to deaf BSL signers of all ages, including children and young people.

In developing the BSL route map, the intersectional nature of the deaf BSL signing community, including children and young people, has been considered and has helped to shape the route map. 

The lived experiences of children and young people, through representative organisations and charities has been considered as part of BSL Stakeholder Task and Finish Group meetings. These discussions are reflected within the recommendations produced by the group and the short-term actions within the route map. The route map contains actions in relation to mapping BSL provision within early years, understanding BSL capability within the education workforce, and promoting the role of BSL within the education sector.

The BSL route map contains a further action specifically relating to safeguarding for all deaf BSL signers, including children and young people.

These actions are outlined in further detail below.

Integration

The themes and actions contained within the BSL route map are cross-government as well as intersectional. The actions relate to promoting and recognising BSL as a language across multiple Welsh Government policy areas. Cross-government actions which relate to specific policy areas, will be deliverable as part of existing policy objectives and strategies. The BSL route map will contribute to improving BSL outcomes as part of a wider policy initiatives. The BSL route map seeks to promote and facilitate BSL should be strengthened across all policy areas, including early years, children and young people within across all public services.

The Welsh Government BSL policy team have worked with relevant Education and Early Years policy officials, providing updates on the main themes discussed within BSL Stakeholder Task and Finish Group meetings, and to discuss the final recommendations produced by the group. These recommendations have informed that actions within the BSL route map. Officials will continue to engage during the delivery of the route map. 

What existing research and data on children and young people is available to inform your specific policy?

Research

In developing the impact assessments for the BSL route map, we have undertaken a rapid evidence review of existing research on inequalities and language barriers faced by deaf BSL signers. Barriers for children and young people have been considered as part of this rapid review. A high level summary of findings have been set out below.

Research relating to BSL provision within education highlights considerable challenges within education for deaf children and young people (Wilks and O’Neill, 2022).

Research shows that the age of first-language acquisition, including BSL, significantly affects linguistic and cognitive outcomes. The British Deaf Association (BDA) have stated that delayed exposure to BSL often leads to language deprivation, impacting cognitive and emotional development.

Research highlights that a lack of early BSL provision and exposure contributes to significant educational attainment gaps (Wilks and O’Neill, 2022). Early sign language acquisition can prevent language deprivation and promote cognitive, linguistic, and social development (Wilks and O’Neil 2025).

Gaps in educational attainment for deaf children and young people, resulting from language barriers, have been highlighted within recent reports. Deaf children frequently leave compulsory education with a reading level of an 8 year-old (Rowley, 2023) and are less likely to attain GCSEs in comparison to the national average (Wilks and O’Neill, 2022).

Research shows that deaf students generally have a lower educational attainment compared to hearing children. In 2019, deaf learners were 10.7% less likely to achieve A*-C grades in the core subjects of English/Welsh language and Maths combined, in comparison to their hearing peers. The attainment gap between deaf children and their hearing peers at Key Stage 2 is approximately 7.%. (National Deaf Children’s Society). Statistics cited by the National Deaf Children’s Society show that 73% of deaf children are achieving the Foundation Phase Indicator compared with 92% of hearing children.

Actions: BSL route map

The BSL Stakeholder Task and Finish Group discussions have built upon themes within existing research, considering the intersectional nature of the deaf BSL signing community. One of the BSL Stakeholder Task and Finish Group meetings was specifically in relation to the topic of early years and education. The BSL Stakeholder Task and Finish Group produced a set of priority recommendations to inform the actions within the BSL route map, some of which relate to early years education, language acquisition and BSL provision within education.

The BSL route map aims to strengthen the promotion, facilitation and recognition of BSL and remove language barriers for all deaf BSL signers, including children and young people. The route map contains the following actions relating to education and early years. These actions directly respond to the short term recommendations produced by the BSL Stakeholder Task and Finish Group:

• BSL capability within the education workforce: as part of the implementation of the Strategic Education Workforce Plan, the Welsh Government to work with partners to develop an understanding of how many existing school practitioners and local authority advisory teachers can sign BSL, to ensure sufficient provision to develop the BSL ability of practitioners for the future.
• Promoting the role of BSL within the education sector: the Welsh Government will promote BSL as a language within educational settings and raise further awareness of the linguistic and cultural identity of BSL. BSL should be promoted and recognised within educational settings as a language which is separate to communication tools and sign systems. 
• Mapping early years BSL provision: the Welsh Government to work with partners to map and review how deaf children are identified through early years healthcare screening, and to understand the pathway of support that is provided. This work will assess the current provision of BSL available to enable early language acquisition for deaf children and their families from the point of diagnosis, identifying where there are existing barriers and gaps.

Using this research, how do you anticipate your policy will affect different groups of children and young people, both positively and negatively? 

BSL Stakeholder Task and Finish Group meetings have considered existing research, and group discussions have built on the main themes identified within research. These discussions brought both lived experience and expertise from the group.

The short terms actions within the route map consider all deaf BSL signers, including children and young people, people with protected characteristics and people living in low-income households. 

The work of this BSL route map will sit alongside the Disabled Peoples Action Plan recognising BSL with its own unique cultural, historical and linguistic identity. The Disabled Peoples Action Plan contains actions which relate to children, including deaf children having timely access to BSL for deaf babies and children. Actions within both the BSL route map and the Disabled Peoples Rights Plan will help progress work towards our goal to promote and facilitate BSL.

Outcome and impact of actions

The BSL route map will have a positive impact for all deaf BSL signers across Wales, including babies, children and young people. 

The BSL route map sets out our shared overall ambition: to build a society that empowers the deaf BSL signing community, and to create a Wales that promotes equitable access and which promotes, facilitates and values BSL as a vital part of Welsh society. The short-term actions within the route map are intended as a starting point, to underpin the pathway for future policy development and actions across the Welsh Government.

By firstly focusing on the delivery of short-term priorities, which focus on promotion and raising awareness, mapping and scoping, and data collection, we can build the foundation for future progress.

The route map sets out the actions that the Welsh Government will take forward within 18 months. The delivery of these actions will commence upon publication.

By initiating these foundational activities early, we aim to sustain momentum and ensure that long term goals are actively prepared for. Setting a period of 18 months for the completion of short-term actions, allows us to set measurable, time-bound actions to deliver meaningful change to deaf BSL signers.

What participatory work with children and young people have you used to inform your policy?

In developing the BSL route map, it has been essential to consider the lived experiences of children and young people, through representative organisations and charities.

The BSL Stakeholder Task and Finish Group was established in January 2025. The group brought together a diverse and representative mix of stakeholders, including deaf organisations and charities, each contributing valuable expertise and lived experience. Discussions were undertaken in BSL as the primary language of the group. The group was co-chaired by two deaf BSL signers. This structure set a precedent for inclusive, language-centred collaboration.

Though the group did not directly contain children or young people, there were representatives from the National Deaf Children’s Society, as well as educational and teaching representatives. The experiences of children and young people were regularly considered and discussed by the group.

The terms of reference of the BSL Stakeholder Task and Finish group set out that: 

Members are responsible for sharing the views held by members of their communities (such as the views of deaf children and young people), as well as pertinent research/resources/information that will support the Group to achieve its outcomes.

It is expected that members that represent an organisation, consult with their organisations between meetings and feedback views to the BSL stakeholder group.

Membership

The membership of the BSL Stakeholder Task and Finish Group included:

• Association of Sign Language Interpreters (ASLI) 
• Association of British Sign Language Teachers and Assessors (ABSLTA) 
• British Association of Teachers of Deaf Children and Young People (BATOD) 
• British Deaf Association (BDA) 
• Centre of Sign Sight Sound (COS)
• Deaf Ethnic Women's Association 
• Deaf Friendly Ltd 
• Independent representatives, including teachers of the deaf.
• National Deaf Children’s Society (NDCS) 
• National Registers of Communication Professionals working with Deaf and Deafblind People (NRCPD) 
• Royal National institute for Deaf people (RNID) 
• Signature 
• Social Care Wales 
• Swansea Bay University Health Board 
• Velindre University NHS Trust 
• Wales Council for Deaf People (WCDP)
• The Welsh Government

The short-term actions within the route map are intended as a starting point, to underpin the pathway for future policy development across Welsh Government and to begin the journey to achieving our overall vision.

By firstly focusing on the delivery of short-term priorities, which focus on raising awareness, mapping and scoping, and data collection, we can build the foundation for future progress.  

There are no foreseen negative impacts as a result of the proposals and actions outlined within the BSL route map.  Where there is potential for negative impacts identified throughout the delivery of the route map and by the BSL Stakeholder Group, Welsh Government will review and develop actions to mitigate any negative impacts identified, where appropriate and proportionate to do so.

In developing the BSL route map, the intersectional nature of the deaf BSL signing community, including children and young people, has been considered and has helped to shape the route map. Intersectionality, including protected characteristics and equality, will be considered throughout implementation of the route map. A further Equality Impact Assessment has been completed which details this further.

How does your proposal enhance or challenge children’s rights, as stipulated by the UNCRC articles and its Optional Protocols?

UNCRC articles or options protocols which relate to our proposed legislation

Article 1

Everyone under 18 years of age has all the rights in this Convention. The Welsh Government observes this article in taking forward the policy proposals and actions contained with the BSL route map.

Status: Enhances

Article 2

The Convention applies to everyone whatever their race, religion, abilities, whatever they think or say and whatever type of family they come from. The BSL route map observes this article and recognises intersectionality, the route map is for all deaf BSL signers across Wales.

Status: Enhances

Article 3

All organisations concerned with children should work towards what is best for each child. The Welsh Government observes this article in is best for each child. The Welsh Government observes this article in taking forward the policy proposals and actions contained with the BSL route map. The BSL Stakeholder Task and Finish Group has involved representative organisations.

Status: Enhances

Article 4

Article 4 Governments should make these rights available to children. The Welsh Government observes this article in taking forward the policy proposals and actions contained with the BSL route map.

Status: Enhances

Article 5

The Welsh Government observes this article in taking forward the policy proposals and actions contained with the BSL route map. Governments should respect the rights and responsibilities of families to direct and guide their children so that, as they grow, they learn to use their rights properly. The Welsh Government observes this article in taking forward the policy proposals and actions contained with the BSL route map.

Status: Enhances

Article 6

All children have the right of life. Governments should ensure that children survive and develop healthily. The Welsh Government observes this article in taking forward the policy proposals and actions contained with the BSL route map.

Status: Enhances

Article 12

Children have the right to say what they think should happen, when adults are making decisions that affect them, and to have their opinions taken into account. The views of children and young people have been considered through representative organisations, charities and sectors who have been part of the BSL Stakeholder Task and Finish Group discussions. The BSL Stakeholder Group has reconvened to continue engagement throughout the delivery and implementation period.

Status: Enhances

Article 15

Children have the right to meet together and to join groups and organisations, as long as this does not stop other people from enjoying their rights. The long-term ambition of the BSL route map is to promote and facilitate the use of BSL across public services. 

Status: Enhances

Article 23

Children who have any kind of disability should have special care and support so that they can lead full and independent lives. The work of this BSL route map will sit alongside the Disabled Peoples Action Plan recognising BSL with its own unique cultural, historical and linguistic identity. The Disabled Peoples Action Plan contains actions which relate to children, including deaf children having timely access to BSL for deaf babies and children. Actions within both the BSL route map and the Disabled Peoples Rights Plan will compliment our goal to promote and facilitate BSL.

Status: Enhances

Article 24

Children have the right to good quality health care and to clean water, nutritious food and a clean environment so that they will stay healthy. Rich countries should help poorer countries achieve this. The long-term ambition of the BSL route map is to promote and facilitate the use of BSL across public services. The BSL route map contains actions relating to healthcare: mapping BSL provision in early years.

Status: Enhances

Article 26

Funding for this Plan will be mainstreamed across policy areas; this is a cross-government Plan.

Status: Enhances

Article 28 and 29

This article ‘Children have a right to education’ and ‘education should develop each child’s needs and personality to the full’ has been considered as part of developing the BSL route map and within BSL Stakeholder Task and Finish Group discussions.

There are a number of actions in the route map which relate to early years education, language acquisition and BSL provision within education.

Status: Enhances

Article 30

This article ‘Children have a right to learn a language’ strongly reflects the overall vision of the BSL route map. The BSL route map aims to strengthen the promotion, facilitation and recognition of BSL and remove language barriers. The route map contains an action in relation to mapping BSL provision in early years; this specifically relates to BSL provision for babies and young people. 

Further actions relate to BSL provision with education.

Status: Enhances

Article 31

All children have a right to relax and play and join in a wide range of activities. This has been considered as part of the development of the route map and has links with some of the actions within the route map such as mapping early years BSL provision.

Status: Enhances

Article 34

This article ‘the Government should protect children from sexual abuse’. The BSL route map contains an action specifically relating to safeguarding for all deaf BSL signers, including children and young people.

Status: Enhances

Human Rights and UN Conventions

The Welsh Government has committed to addressing the  UNCRC Concluding Observations within relevant policy development. Recommendations produced by the BSL Stakeholder Task and Finish Group, which have informed the actions within the BSL route map, are relevant to this proposal. Action within the BSL route relate:

• Paragraph 47 (education): there are a number of actions in the route map which relate to early years, education, language acquisition and BSL provision within education.
• Paragraph 33 (special protection measures): the BSL route map contains an action specifically relating to safeguarding for all deaf BSL signers, including children and young people.

Equality and human rights is embedded in the actions within the BSL route map. The BSL Stakeholder Group and BSL route map, will contribute to our overall ambition of creating an equal Wales with inclusion at the centre of Welsh Government policy. A respect for fundamental human rights as well as equality is built into all Welsh Government work and the BSL Route Map.

All Ministerial Advice regarding the BSL route map will confirm that we have considered the UNCRC when developing this policy.

The Children’s Rights Impact Assessment will be published alongside the BSL route map.

The Welsh Government are committed to continuing to strengthen our engagement with the deaf BSL signing community, building on models of deaf leadership. Welsh Government officials continue to engage with representative organisations through the reconvened BSL Stakeholder Group, throughout the delivery and implementation of the BSL route map. We will also consider the best approaches for communicating our progress to children and young people.

Following the completion of the work of the BSL Stakeholder Task and Finish Group, the group has reconvened under a new Terms of Reference, to support the delivery of the route map and the implementation of the short-term actions. The BSL Stakeholder Group will help support and monitor the implementation of actions contained within the BSL route map, offering their lived experience, views and analysis. 

The BSL Stakeholder Group will play a critical role in shaping the direction, monitoring progress, and maximising the impact of the route map, acting as a crucial link between deaf BSL signers, policy makers, and service providers. We will continue to work closely with deaf BSL signers and representative organisations, as well as other partners, to monitor and review our implementation and impact.

We will also take advice to help us find the best ways to directly and indirectly engage with deaf BSL signers and young people with lived experience in helping us to understand whether we and our partners are making progress through the delivery of the route map.

BSL policy officials will also regularly review the CRIA and continue to look for opportunities for supporting children’s rights as we move into implementation. We will align future reviews of the CRIA within any future reviews of the BSL route map.Ongoing reviews of the CRIA will inform future actions and strategies.