British Sign Language (BSL) national plan 2023-2029: consultation analysis

4. Overall views on the BSL National Plan 2023-2029

Revision of actions

Question 2.1 – Are there any actions that should be revised in the BSL National Plan 2023-2029? (Closed question)

There were 73 responses to this question.

The most common answer to this question, supported by 51% of respondents, was that there are actions that should be revised in the BSL National Plan 2023-2029. On the contrary, 22% of respondents did not agree with revisions of actions in the BSL National Plan 2023-2029, while 27% were undecided or uncertain (answered “Don’t know”).

Question 2.2 - Are there any actions that should be revised in the BSL National Plan 2023-2029? (Open question)

There were 44 responses to this question in the online consultation. Additionally, the thematic analysis considered findings from four community consultation events’ reports.

Need for actual implementation of those BSL National Plans, including a commitment to funding

The most prevalent theme among responses was respondents who called the Scottish Government to proceed with actual implementation of the actions (and ensuring there is funding for that to happen), which would enable assessment of those interventions in practice rather than only in theory. Respondents in this theme felt that the language used in the BSL National Plan 2023-2029 is not detailed or specific enough and does not commit the Scottish Government to specific actions in pursuing the stated priorities. Finally, a small number of respondents reported that the consultation document and draft BSL National Plan 2023-2029 as presented were difficult for BSL users to understand. This theme was particularly common among organisation respondents, as it was mentioned in the responses of approximately half of the organisation respondents to this question.

“As it stands, the actions of the BSL National Plan 2023-2029 lack the required substance. The BSL National Plan 2023-2029 needs tangible goals and a commitment to achieving these.” (Organisation)

“I feel currently it is a bit woolly and difficult to pin down what is actually going to be done. Words like "explore", "seek views" ...unless funding and action follow we are all wasting our time.” (Organisation)

Greater focus on education and more BSL courses

The next prevalent theme, was discussions around improvements in the focus on the education of deaf and hard-of-hearing young people and children. This theme was more common among individual respondents and among respondents who are BSL users. Overall, there was significant support among the respondents to the online consultation and the community events to include the commitment to providing more BSL courses as part of the BSL National Plan 2023-2029 across early years, children, young people, parents, and tutors. A small number of respondents suggested that there should be higher standards for BSL teachers than BSL Level 1 knowledge, particularly there was support for training teachers to a minimum of Level 6. Furthermore, a small number of respondents suggested that the provision of BSL education should be expanded beyond age 5 and to more advanced language levels. Finally, respondents in this theme also discussed that there should be greater consideration of the different circumstances of people in the deaf community. Specific topics raised in relation to this point included support for provision of BSL courses for young people who might not have learned BSL at an earlier age, or people who lost hearing later in life, as well as for audiology services, and for provision of BSL courses for children with cochlear implants.

“The key themes emerging from parent feedback included the need for a commitment to fund BSL provision, including free classes for families in the early years and beyond into school age, with more information on language and communication choices for parents available and promoted in early years services.” (Community Event)

“Why stop at age 5 – it does not make sense. We need to make sure support is extended until 16.” (Community Event)

“Why stop at L3? Why not L6? Why put limits to our own language? Hearing children don’t have any language limits. We should have the same opportunities as hearing children in accessing our language.” (Community Event)

Specific recommendations

The next common theme among responses, was respondents who gave specific recommendations on topics that should be given greater consideration in the BSL National Plan 2023-2029. This theme was more common among organisation respondents than among individual respondents. A few respondents felt that there should be a greater emphasis on BSL accessibility particularly in the workplace, but also in higher education. Proposed measures to support greater accessibility mentioned in consultation responses, included the provision of a live interpreter for interviews, and encouraging businesses to take measures to make their workplace and roles offered more BSL-friendly. Furthermore, a small number of respondents felt that more could be done to support families and children, including BSL support for hearing parents who have deaf children, as well as improving the information provided to parents of deaf children. Finally, a small number of respondents suggested that there should be increased awareness and training surrounding BSL among health and social care staff to ensure people are provided with necessary accommodations.

“Actions under 'workforce'. Should include working with private and 3rd sector employers to educate on how to make roles accessible to Deaf people, provide interpreters and train colleagues in BSL and create a Deaf positive work culture.” (Individual)

“Providing information about BSL and Deaf community to parents at place of diagnosis (hospital) via specialised and positive role model such as Deaf person trained in this role […] Funding early childhood BSL immersion programmes for families (e.g., Deaf au pair with incentives, BSL-only weekends, family camps, etc) […] Deaf support workers for families (e.g., one person for all liaison, same as one central interpreting agency).” (Organisation)

BSL National Plans should be informed by people with lived experience of BSL usage, and local needs

The second most common theme was raised by BSL users who felt that not enough was done to reach out to the community and incorporate their views. Important points may be missed without such engagement, and wrong assumptions can be made. Respondents in this theme suggested that BSL community stakeholders should be engaged in the policy planning process. Additionally, a small number of respondents argued that local needs, especially from underrepresented areas should be considered. In that way the actions and plans relating to the BSL National Plan 2023-2029 will ensure all needs of the BSL community, including in local areas, will be reflected and accounted for. This theme was more common among organisations and among BSL users.

“Engaging in a comprehensive assessment in collaboration with BSL community members, experts, and relevant stakeholders would be beneficial to determine if any actions should be revised. This evaluation should consider the evolving needs and priorities of the BSL community and identify areas where improvements or adjustments may be necessary.” (Individual)

“Actions tend to be driven by our communities of interest – the BSL users are key drivers for development of most actions based on their feedback. In consultation with our local BSL communities, there was a strong sense of wanting things that are local and relevant to them for their daily life. Will public bodies have the freedom to create sub priorities based on local needs?” (Organisation)

Additional priorities from the previous BSL National Plan 2023-2029

Finally, the last prevalent theme among responses to the online consultation and community events, related to the inclusion of additional priorities to the BSL National Plan 2023-2029, such as access to healthcare, accessibility to transport, and mental health. Some of these respondents felt that there was not enough progress since the BSL National Plan 2017-2023 to justify removing actions included in the previous BSL National Plan 2017-2023 from the new BSL National Plan 2023-2029. Additionally, it was argued that there should have been more monitoring and reporting from the Scottish Government on the progress since the BSL National Plan 2017-2023.

“Where is transport in the BSL National Plan 2023-2029? BSL access on buses, trains, etc.? Transport is important for Aberdeen/NE Scotland. It needs to be put on the map again, as it’s important for Deaf people to be able to travel around Scotland. Access to transport needs to include public announcements, for example, CalMac, to ensure that announcements on the public address system during crossings are accessible.” (Community Event)

“Why is health and mental health not included? “Absolutely necessary” to include mental health.” (Community Event)

Additional actions

Question 3.1 - Are there any additional actions that should be considered for inclusion in the BSL National Plan 2023-2029? (Closed question)

There were 72 responses to this question.

A significant majority of respondents (67%) supported that additional actions should be considered for inclusion in the BSL National Plan 2023-2029. Only 4% of respondents answered that there are no additional actions that should be considered for inclusion in the BSL National Plan 2023-2029, while a significant number of respondents (29%) answered that they did not know.

Question 3.2 - Are there any additional actions that should be considered for inclusion in the BSL National Plan 2023-2029? (Open question)

There were 50 responses to this question in the online consultation. Additionally, the thematic analysis considered findings from four community consultation events’ reports.

Expanding opportunities to learn BSL

The most frequent theme focused on increasing opportunities to learn BSL. Over half of the total respondents discussed this theme, and the majority of these were individuals. There was an equal divide among respondents who were and were not BSL users.

For a small minority of respondents, efforts to increase BSL acquisition amongst users and non-users would both promote accessibility (through the widespread use of BSL) and increase awareness of its community, culture, and heritage. Fully funded opportunities to learn BSL, including in-person and online methods to maximise accessibility, were discussed as an urgent priority for families of BSL users from the point of need.

Respondents were also supportive of integrating BSL as a language within the education system, either through bilingual schools or by including BSL as a language option for all children. It was considered essential that staff within education, as well as public services more widely, be taught BSL as a compulsory part of their training.

Informal opportunities to learn BSL were also seen as important for life-long language development, with a small minority of respondents noting that they had limited adult language skills as opportunities to learn beyond early years were restricted. Examples included BSL-friendly TV, mentoring, peer-to-peer learning, and BSL cafes (such as those organised by Deafblind Scotland).

“Access to BSL tuition must be provided free of charge to deaf children and the families of those with deaf children. It is shameful families are having to spend thousands of pounds on BSL courses to try to provide their children with an essential way to communicate.” (Individual)

“The BSL National Plan 2023-2029 is a significant opportunity to ensure BSL becomes an accredited school qualification within the full Scottish Credit and Qualifications Framework. The 1 + 2 language initiative to promote the learning of languages in primary school provides a clear model through which BSL could be included. Developing these opportunities would have the benefit of strengthening and enriching the inclusive education experiences of all children and young people.” (Organisation)

“As a child, you are taught BSL, and if it is not reinforced, you end up losing that language. I grew up with hearing people, so I didn’t learn how to interact with the deaf community. I was taught from a very young age to sign, but I don’t know enough to conduct a whole conversation. I can tell people, ‘You look nice,’ and I can understand when they reply, but I can't reply the same way.” (Community Event)

Increasing awareness of, and collaboration with, the BSL community

The next key concern was raising awareness of, and increasing collaboration with, the BSL community across Scotland. The majority of the respondents who raised this theme were individuals.

With regards to awareness, responses referred to: (i) an improved knowledge of local dialects and signs within BSL training, (ii) an inclusive definition of the D/deaf community to include not only BSL users but also deafened, deafblind, and hard of hearing people, (iii) formally recognising that deaf people may use alternative communication methods and aids (as opposed, or in addition, to BSL), and (iv) an intersectional approach to addressing inequalities and barriers identified within the BSL National Plan 2023-2029. It was hoped that greater awareness might reduce the prevailing bias within healthcare and education for spoken language over BSL.

In parallel to this, respondents were supportive of establishing formalised networks and forums to enable consistent, long-term collaboration with the BSL community in order to ensure services and initiatives remained responsive to their evolving needs and experiences.

“There is scope to include a commitment to the intersectionality of BSL using which recognises multiple barriers to accessing support for deaf people of different genders, nationalities, ethnicities, ages, disabilities and income levels including a commitment to subsidising funding for BSL and interpreting courses for disadvantaged groups.” (Organisation)

“The direction of the BSL National Plan 2023-2029 needs to be stated more clearly, i.e., for all deaf (including deaf, deafblind, deafened, hard of hearing and hearing loss), not just deaf and deafblind alone users of BSL – this was highlighted after the launch of the BSL National Plan 2017-2023.” (Organisation)

“This BSL National Plan 2023-2029 may be detrimental to the wider deaf community if the definition and clarification of Deaf and deaf/hard of hearing people is not communicated. Without this definition, the wider society may assume that the whole deaf community means that people are 100% deaf, which is not the case in the majority of cases.” (Community Event)

Targeting focus on social care and wellbeing

The third most common theme called for an increased focus on social care and wellbeing within the BSL National Plan 2023-2029. Of those who responded to this question, the majority were organisations and a large minority were BSL users.

Respondents were aware of its existing inclusion within the BSL National Plan 2023-2029 and discussed the key priority in detail within Question 1.1f, however, as reflected in the latter, there was widespread consensus that the focus on this should be increased.

In particular, respondents discussed a lack of progress within mental health services, elderly care, and additional support for harassment, hate crime, and cyberbullying. A small number of respondents suggested that measures taken in the previous BSL National Plan 2017-2023 had been insufficient and that mental health should be reintegrated more strongly. A small number of respondents also called for the inclusion of sports and recreation within this priority, such as swimming pools, cookery classes, or bowling lanes.

“Specialised support for the Elderly Deaf community and Dementia sufferers such as care home provision. (There are currently none in Scotland). Any elderly Deaf BSL users going into care declines rapidly due to a lack of communication and stimulation, and their quality of life diminishes.” (Organisation)

“Mental health improvement support was felt to not have progressed well over the years and still needs to be a priority. Deafblind people have been shown to have a 3-fold risk of depression, and many during the consultation talked about the mental health challenges of living with deafblindness with key examples of the need for better access to specialist language support during these challenging times.” (Organisation)

Broadening accessibility to public life

The fourth most frequent theme was the need for BSL accessibility to public life beyond essential services. Access to, and confidence in, public transport was particularly important, as well as broadening access to civic engagement, entertainment, culture, and the arts. For example, a small number of respondents referred to issues with accessibility and awareness within TV shows, films, and theatres. There was also support for free companion travel and accessible help points on public transport, as well as BSL accessible announcements on diversions or emergencies when travelling. Additional areas included higher or further education and social or activity clubs.

An important sub-theme noted the regional differences in access to public life for BSL users across Scotland and called for initiatives which sought to address these inequities.

“For example, the provision of grants for BSL interpreting support to allow BSL users to access social activities within mainstream groups/clubs. Currently, they often have to depend on volunteers/family members/members of the group to access these or else miss out on pursuing interests.” (Organisation)

“A lot of the activities and resources tend to be produced or aimed at the central belt in Scotland – more actions need to be considered for those in different geographic areas (Aberdeen, Aberdeenshire, Moray, Highlands) so that BSL users have equal opportunities to access information, leisure, culture, heritage and more in their local areas.” (Organisation)

Addressing issues within the BSL professional workforce

Addressing issues within the BSL professional workforce was identified as the next most common theme, receiving support for inclusion in the BSL National Plan 2023-2029. This encompassed multiple sub-themes, including: (i) increasing the number and quality of BSL/ English interpreters available both in-person and remotely across Scotland, (ii) improving pay and support mechanisms to increase workforce retention rates, (iii) expanding training routes to becoming a registered BSL/ English interpreter and Guide Communicator, and (iv) enhancing cultural awareness education within existing training to ensure all communication professionals are appropriately equipped to meet the diverse needs of the community.

More specifically, respondents were interested in increasing the diversity of interpreters (mentioning a lack of both male and LGBTQIA+ interpreters explicitly). There was also support for an increase in Guide Communicators, as these were described as more valuable to BSL users and differed from the transactional support of BSL/ English interpreters.

“Growing the pool of interpreters is not enough if we are seeing people leave the profession. We also need in place support to retain skilled workers in Scotland.” (Individual)

“Develop programmes to train and certify more BSL interpreters and educators to address the shortage of professionals in these fields.” (Individual)

Streamlining management and delivery

The sixth most common theme concerned the management and delivery of initiatives resulting from the BSL National Plan 2023-2029. The majority of the respondents who discussed this theme were organisations.

As reflected in other questions across this consultation, respondents were particularly concerned about the BSL National Plan 2023-2029’s alignment with existing policies, such as the See Hear strategy and the previous BSL National Plan 2017-2023. This included ensuring that any additional initiatives implemented as a result of the new BSL National Plan 2023-2029 should not duplicate or merge with adjacent initiatives, but complement and build on these instead.

Moreover, responses frequently suggested that the BSL National Plan 2023-2029 also include standardised guidelines and increased funding to ensure consistency across relevant services and organisations. Respondents also suggested establishing communities of practice to ensure lessons learnt and best practice could be shared quickly and effectively across Scotland.

“Streamlining of actions and guidelines aimed at private organisations that serve the public, including support for users and staff, would be useful. This would help increase the BSL workforce and support high standards of BSL interpretation and translation.” (Organisation)

Increasing support in the workplace

The final theme called for workplace support to be included within the BSL National Plan 2023-2029. Of the respondents who raised this theme, it was supported equally by individuals and organisations, as well as BSL and non-BSL users.

A number of existing issues were identified related to both BSL awareness and the accessibility of legal support. For example, respondents referred to insufficient BSL awareness within the workplace and, consequently, the widespread inability to provide adequate support. Alongside this, respondents expressed concern about the difficulty with which BSL users could access support in the event of disability discrimination. Suggestions included enhancing monitoring and enforcement and focusing on improving BSL awareness and language skills within the entire workforce to reduce reliance on BSL/English interpreters.

“Implement policies and initiatives to increase employment opportunities for individuals in the BSL community, fostering economic independence and inclusion.” (Individual)

“Actions under 'workforce'. Should include working with private and 3rd sector employers to educate on how to make roles accessible to Deaf people, provide interpreters and train colleagues in BSL and create a Deaf positive work culture.” (Individual)

Key changes for BSL users

Question 4.1 - What is the one key change you would like to see happening for BSL users in Scotland by 2029? (Open question)

There were 69 responses to this question in the online consultation. Additionally, the thematic analysis considered findings from four community consultation events’ reports.

Reducing barriers to communication across Scotland

The most frequently discussed theme was reducing barriers to communication for BSL users across Scotland. A large minority of the total number of online consultation respondents to this question discussed this theme, with the majority being organisations.

The areas highlighted by respondents as having the most prevalent barriers to communication were healthcare, education, employment, emergency services, democratic processes, and cultural activities. The effects of these barriers for BSL users were described as reduced independence, disempowerment, and an inability to participate in daily life.

Suggestions to remove communication barriers targeted either the availability of BSL/ English interpreters or assistive technologies. For example, a significant minority of respondents addressed the inconsistent availability of interpreters across Scotland and the frequent need to cancel medical appointments due to this. A small number of respondents also supported the use of visible signals within public spaces to indicate where BSL was used and whom they could ask for support.

“By implementing and enforcing these standards, we can significantly reduce communication barriers and create an environment where BSL users can fully participate in all aspects of Scottish society. This change would empower BSL users and demonstrate Scotland's commitment to inclusivity and accessibility for all its citizens.” (Individual)

“The key change we would like to see would be the increased availability of BSL interpreters nationwide that will allow BSL users to access services effectively which in turn, will also advance equality of opportunity for them.” (Organisation)

Increasing opportunities to learn BSL

The following theme wanted to see more opportunities to learn BSL in Scotland by 2029. The majority of respondents who raised this theme were individuals.

This theme was similar in content to responses in Question 3.2, including increased efforts to increase BSL acquisition amongst both users and non-users. Parents of BSL users were particularly mindful of isolating deaf children from learning BSL away from their peers and supported the integration of BSL within educational settings as well as informal opportunities to learn amongst deaf peers (such as peer-to-peer support). This also included early years support, such as in nurseries and toddler groups.

Again, full-funded BSL education was highlighted as a critical priority for deaf people and their families from the point of need. Suggestions included online and in-person formats, family-friendly lessons, and a range of times and local locations. A small number of respondents also requested that courses be available to start flexibly throughout the year.

Moreover, the majority of respondents stated that learning opportunities should be widely state-funded over the long term, prioritising access to families of BSL users and individuals needing to transition to visual or tactile communication methods.

“The families, friends, educators and health professionals of every child whose first or preferred language is BSL are supported to learn the language and culture of BSL and the child feels supported and nurtured and acquires language at the same rate as their hearing peers.” (Individual)

“The way to have the greatest general impact would be to focus on putting in place high-quality BSL skills teaching for everyone at all levels and all ages, Deaf and hearing – so that families, Deaf children, hearing learners at school, professionals developing skills (including teachers and interpreters but also carers, audiologists, NHS staff, etc), all get taught well, affordably, on a sustained basis and to a high degree of fluency, thereby learning language skills that will last them a lifetime while also fully accessing associated information about Deaf culture, heritage and history.” (Organisation)

“It is exorbitantly expensive -- thousands of pounds, and that's just for *one* person/parent. We had to take out loans and crowdfund. It's humiliating and enraging and causes immense despair and years of profound helplessness -- because without these lessons, we could not communicate with our children. Parents of hearing children get the ability to communicate with their children for free from birth. Parents of Deaf children should get the same.” (Community Event)

Developing mental health and wellbeing support

The third most frequent theme referred to the development of mental health and wellbeing support for BSL users. The majority of respondents who discussed this theme were individuals.

As above, this theme was repeatedly discussed throughout the consultation, with particular detail in Question 1.1f. Similarly to the latter, responses called for an increased focus on mental health and wellbeing within the BSL National Plan 2023-2029. Respondents here also highlighted the need for increased support for families of BSL users, as well as an increase in deaf wellbeing services (including peer-to-peer support, mentorship, weekly support groups, and deaf cafes).

With regards to the support services themselves, respondents were interested in seeing more cultural and intersectional understandings of the needs of the community, in addition to an increase in deaf staff themselves. It was encouraged that the Scottish Government play an active role in supporting deaf support services to ensure they can continue to work with the community.

“We hope to see those from marginalised communities, such as LGBT+ D/deaf people, having access to provision and support which is fully affirmative of their identity and understanding of their intersecting experiences.” (Organisation)

“I think a mental health service specifically for BSL users would be very popular and beneficial if it was accessible all throughout Scotland.” (Individual)

Legitimising BSL as a national language

The next most common theme was increased efforts to legitimise BSL as a national language by 2029. Examples of how this might be implemented included teaching BSL as a second language in schools, ensuring the knowledge of BSL amongst all public service staff through mandatory training, and implementing BSL within all entertainment and media services (such as the news or cinemas). The BSL Highland Pack was highlighted as a specific example of good practice which could provide the foundation for nationwide strategies.

“Recognition of BSL as one of Scotland’s minority languages alongside Scots and Gaelic. Equality is not about providing access just for events; there is a risk that this just becomes a tokenistic approach. The public sector should lead by example in embedding and implementing practices that are equitable and accessible.” (Organisation)

“Normalising the use of and access to BSL through inclusion in school curricula leading to greater inclusion of BSL users in our communities and to improved equality.” (Organisation)

Addressing stigmatisation and ignorance

The fifth theme called for increased efforts to address stigmatisation and improve awareness of BSL language and culture. Respondents were unhappy with existing levels of public awareness and acceptance of BSL and tactile BSL, as well as the D/deaf community more widely. To tackle ableism and stereotypical attitudes and promote the inclusion of D/deaf people in public life, respondents supported greater availability of information about BSL language, culture, history, and heritage. It was hoped that improving awareness would support younger generations within the D/deaf community to grow up proud and empowered.

“A greater appreciation and understanding of the challenges faced by BSL users in daily life.” (Organisation)

“My parents always believe that hearing people know best. We need to change this attitude within our community. Deaf people know better about being Deaf.” (Community Event)

Improving support in the workplace

Improving support within the workplace was identified as the final theme for this question. Within this theme, it was suggested that support should be delivered in two ways: (i) to BSL users directly, such as through increased access to BSL/ English interpreters, and (ii) to organisations, promoting awareness, positive employment practices, and guidance on how to best support employees.

Alongside this, respondents were supportive of increased opportunities for BSL users to enter and remain in high-quality employment. Examples included clear pathways for transitions to employment, increased targeted paid and volunteering opportunities, and the development of an independent training centre to provide training for deaf people to enter the workforce (such as BSL teachers, classroom assistants, and social workers).

“That it becomes commonplace for a BSL interpreter to be in the workplace just as common and usual as to train people in First Aid so that those who use BSL are not made to feel "othered".” (Individual)

“Employers know how to supportively interview, recruit and employ a Deaf person.” (Individual)