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Using British Sign Language in government communications

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Guidance for government communicators on providing British Sign Language content, translations and interpretation to support accessible and inclusive public-facing communications.

Introduction

Why accessible communications matter

Around 12 million people (one in five) in the UK have some form of hearing loss or are Deaf or hard of hearing[1]. The Royal National Institute for Deaf People (RNID) estimates this figure will rise to 14.2 million by 2035.

The British Deaf Association (BDA) estimates there are 87,000 Deaf British Sign Language (BSL) users in the UK, while approximately 150,000 people use BSL. This total figure includes hearing users such as family members, carers and professionals[2], but excludes professional BSL users, interpreters and translators unless they use BSL at home. Furthermore, around 450,000 people in the UK are Deafblind or have dual sensory loss[3], with approximately 12,000 of them using BSL as their first language.

BSL is a complete, natural language involving a combination of hand shapes and movements, lip patterns, facial expressions and shoulder movements. It has its own vocabulary, grammatical structure and syntax distinct from English; its word and sentence order does not replicate spoken English and it cannot be translated word for word. For many Deaf people, particularly those who have been Deaf from birth or early childhood, BSL is their primary language, and written English may be a second language.

Due to systemic barriers in accessing education or early language deprivation, many Deaf people leave secondary school with an average reading age equivalent to a 9-year-old hearing person. This barrier was first highlighted in Conrad’s 1979 study[4], and more recent research[5] continues to find similar results. While many Deaf individuals do become highly skilled readers[6], reading written text at the speed of natural speech remains a major challenge – meaning captions alone are not always a sufficient or accessible option.

This gap becomes even wider when considering how information is shared in daily life. Unlike hearing audiences – who continuously and effortlessly absorb “incidental information” from everyday channels like the radio, television and casual conversations – the Deaf community cannot access spoken language. Because they are cut off from these organic, daily information streams, standard written government English frequently falls short of their accessibility needs.

Ultimately, these combined linguistic and environmental factors mean that captions and written English are simply not adequate substitutes for BSL. The government has a duty to communicate effectively with all citizens so that everyone can access vital public information and engage with the issues that affect their lives. To achieve this, we must actively understand the distinct requirements of the Deaf community and ensure our communications are truly inclusive and accessible.

About this guide

This guide helps government communicators plan and commission BSL content, translations and interpreting for public-facing communications. It focuses on external audiences and policy or legislative communications, while noting that organisations should also support internal BSL users through reasonable adjustments in recruitment, training and everyday work.

This is not Statutory Guidance as listed in the British Sign Language Act 2022 under section 3. It has been reviewed and verified in collaboration with the Cabinet Office’s Disability Unit and the Translation and Interpreting Working Group of the British Sign Language Advisory Board.

The Equality Act 2010

Government communications must comply with the Equality Act 2010, which makes it unlawful for public authorities to discriminate when exercising their functions and providing services. 

One form of discrimination includes a failure to make reasonable adjustments for disabled people. ​The Duty to make reasonable adjustments (section 20) is a proactive, anticipatory duty. This means that public authorities (including government communicators) should not wait until a disabled person wants to use a service before they give consideration to their duty to make reasonable adjustments. They should anticipate the requirements of disabled people and the adjustments that may have to be made for them. ​This includes active consideration of using BSL in government communications.

The duty to make reasonable adjustments does not mean that there is a legal requirement to translate every document into BSL. What is a reasonable adjustment will depend on the circumstances, and a range of factors, including the audience, the message, urgency and resources. It may be noted that the government has previously lost a legal challenge for a failure to make BSL translation available for COVID-19 briefings.   

You can read more about how to avoid unlawful discrimination, and in particular how to make reasonable adjustments, in the Equality and Human Rights Commission Code of Practice on Services, Public Functions and Associations.

When decisions are made and communicated, public authorities are required to comply with the Public Sector Equality Duty (PSED) (section 149). This requires public authorities to have due regard to equality considerations when exercising their functions. This includes having due regard to the need to eliminate unlawful discrimination, advance equality of opportunity and to foster good relations. 

Undertaking a PSED analysis is an effective way to ensure the needs of disabled people are factored into decision-making and communication planning from the outset. This process is particularly useful for determining where BSL provisions are required. For more information, read the government’s official PSED guidance for public authorities.

The British Sign Language Act 2022

In 2022, the British Sign Language Act became law, officially recognising BSL as a language of Great Britain, covering England, Scotland and Wales. It does not extend to Northern Ireland, recognising that equality law is devolved there and that both British and Irish Sign Languages are used among the Northern Irish Deaf community.

The Act requires core ministerial departments named in the schedule to report on how they promote and use BSL in public communications. These reports and the departments’ 5-year BSL improvement plans are published on GOV.UK. 

Agencies, non-departmental public bodies and other arm’s length bodies are not in scope, but are encouraged to use BSL translations and interpreting where it meets audience needs.

Section 3 of the BSL Act (2022) notes that ‘The Secretary of State must issue guidance, or arrange for guidance to be issued, about the promotion and facilitation of the use of British Sign Language’. An independent British Sign Language Advisory Board advises the UK government on implementation of the Act and represents the Deaf and Deafblind community. New guidance is being developed with support from the Cabinet Office’s Disability Unit, and will be published in due course. 

Planning your communications

You should always consider BSL from the start of any communications planning, rather than as an afterthought.

Audience identification and inclusivity

When planning your communications, follow these principles to ensure you reach and engage Deaf BSL users effectively.

  • Identify whether your audience includes Deaf BSL users, people with hearing impairments, those with additional sensory or cognitive disabilities, Deafblind people or parents and guardians of Deaf children.
  • Where communications affect these audiences or contain information they are entitled to know, take all reasonable steps to ensure they can access and respond to it in BSL.
  • While particular attention should be paid to new policies, changes to law, health, welfare, financial and emergency communications, Deaf BSL users have a broad range of interests across society.
  • Departments should go beyond the minimum and actively consider including Deaf people in communications about wider societal issues – all citizens have a stake in government policy across every area of public life, not only when topics directly relate to disability or welfare.

Understanding and removing barriers

Using the Government Communications principles of behaviour change, consider the specific barriers Deaf and Deafblind people face regarding their capability (such as their literacy levels), opportunity (for example, availability of BSL formats), and motivation to engage with government communications, and plan how to remove or reduce them.

This may involve creating bespoke BSL content or adapting existing audio-visual content for digital, social media, traditional media and partner channels.

Timelines and urgent communications

To ensure equal access and prevent information delays for Deaf BSL users, time your publishing schedules according to the following principles:

  • Allow realistic lead times (typically 4 to 8 weeks depending on content size) and integrate BSL translation timelines into your overall communications schedule.
  • Publish BSL translations alongside other formats at the same time rather than delaying publication.
  • For urgent communications, commit to BSL as a priority and tell your audience when it will be available. Where a full translation isn’t immediately feasible, consider an executive or summary translation to avoid delays.
  • If producing communications quickly in response to unexpected circumstances, continue engaging key stakeholders, make initial communications as accessible as possible and plan how and when BSL and other alternative formats will follow.

User responses

Creating accessible content is only half the battle – Deaf BSL users must also have an equal opportunity to respond to government communications, consultations and services. Apply these measures to enable two-way engagement:

  • Plan early how BSL users can respond to your communications, especially consultations or calls for evidence.
  • Provide them with an opportunity to respond using BSL, such as through video relay services (VRS) available across multiple platforms or by accepting BSL videos that you will need to have translated into English.

Decide what to translate

The BSL Act requires active consideration of BSL for public announcements on policy or changes to the law. This specifically covers plans, strategies, policy, other consultations and responses, press conferences, social media and websites.

There is no one-size-fits-all approach, and departments will implement this differently based on their audiences.

Use the following criteria to prioritise and scope your content:

  • Prioritise core topics: Focus initially on education, health, welfare, justice, financial and emergency content. While these areas require particular attention, remember that Deaf BSL users have a broad range of interests across all aspects of society.
  • Optimise full-document BSL translations: Deaf people have the right to equivalent content access, but they rarely watch long, continuous videos. When translating full documents, break the content into a series of bitesize videos aligned with specific chapters or sections rather than publishing a single multi-hour video. Audiences do not want to watch a three-hour translation of a document.
  • Utilise summary translations: Where appropriate, and in consultation with Deaf stakeholders, consider producing summary or executive translations instead of full documents. This approach maintains efficiency while allowing you to monitor user engagement and assess effectiveness.

Content options

Select the most appropriate communication method based on your audience and content type:

  • Face-to-face interpreting: Interpreter present in room or on live TV for press conferences, public announcements, ministerial speeches and consultations.
  • BSL translations, full or summary: For consultations, strategies, reports and other publications, including embedded website or portal content.
  • Bespoke presented BSL content: Website or social media content created (presented) specifically for BSL users, can often be more effective than BSL translated materials, and recent research has shown that 91% of Deaf BSL users prefer this format.
  • Informal ‘Q and A’: For consultations, public announcements and website content where BSL users are the primary audience.
  • Walk-throughs: Step-by-step service guides for website content where BSL users are the primary audience.
  • Remote interpreting: For consultations and public communications where BSL user responses are anticipated.
  • Tactile BSL: Communication using touch for Deafblind individuals with low literacy who don’t use Braille; requires an in-room support worker to relay content.
  • Easy read BSL versions: For Deaf people who use BSL and who also have additional learning disabilities.

Using captions

Captions and subtitles or written English and Welsh are not an adequate substitute for BSL. BSL is the primary language for many Deaf people, particularly those Deaf from birth or early childhood, and deaf literacies are variable.

Use captions for those who are hard of hearing but are not BSL users – this also benefits many hearing people who regularly use subtitles. When using captions, ensure they are large, white on a solid black background (not transparent) and use a dyslexia-friendly font. Transcripts should describe video action and be compatible with screen readers and Braille readers. Best practice is to have the option to switch captions on or off according to personal preferences, rather than having just BSL standalone or just BSL with embedded captions. Give the choice to the viewer themselves.

You should publish BSL translations alongside other formats rather than delaying. For urgent communications, commit to BSL as a priority and tell your audience when it will be available. Where full translation isn’t feasible, consider an executive or summary translation to avoid delays.

If producing communications quickly in response to unexpected circumstances, continue engaging key stakeholders, make initial communications as accessible as possible, and plan how and when BSL and other alternative formats will follow.

Translation considerations

You should integrate BSL translation timelines into your overall communications schedule, as translations can take several weeks depending on content length. Plan how BSL users will be able to respond to your communications, especially consultations or calls for evidence, by providing them with an opportunity to respond using BSL. This could be through video relay services, which are available across multiple platforms, or you could accept BSL videos, which you’ll need to have translated by professionally qualified sign language translators.

Producing video translations

For bespoke content and ‘Q and A’ formats, work with Deaf presenters rather than translators. Explore varied formats including Q and A, walk-throughs and overlays rather than defaulting to video overlay. Consider translator positioning, surrounding graphics and imagery – remove unnecessary visuals so the focus remains on the BSL itself.

BSL and English do not synchronise. When creating a BSL translation from a narrated video, capture sufficient B-roll footage to allow the translator time to fully convey the spoken content.

To ensure your videos are also accessible for Deafblind users and those with partial sight, follow these production requirements:

  • Position the translator in a separate box rather than overlaying moving imagery.
  • Use a plain background (royal blue works well) without patterns or graphics.
  • Ensure high contrast between the translator’s skin tone and clothing (navy blue is often preferable to black or white).
  • Use plain clothing without patterns, jewellery or ties where possible.
  • Maximise the translator’s size on screen.
  • Use white subtitles in a large size on a solid black background.
  • Audio narration and captions may complement the BSL signing where appropriate.

Live and remote interpreting

Book at least two interpreters for assignments over one hour, following National Union of British Sign Language Interpreters guidance, as remote interpreting is unsuitable beyond 40 minutes. If you are booking to support individuals to actively participate in the conversation (such as a roundtable consultation) you should book at least one interpreter to be their voice and another to translate the other participants’ discussions.

Book early and provide full event details including the programme, topic and any technical terminology in advance. Provide your interpreters with relevant papers at least 2 days ahead of the meeting.

For online events, use Zoom rather than Microsoft Teams or Google Meet as it is considered the most accessible online platform. Ensure to schedule regular breaks. Ask Deaf and Deafblind BSL users about chat accessibility preferences, as written chat can conflict with visual attention and present literacy challenges.

For presentations, consult interpreters on positioning to ensure Deaf and Deafblind attendees have clear sightlines. It may be appropriate to use the ‘pinning’ function on Zoom to ‘pin’ the interpreters in order for them to be seen by all attendees. For Deafblind attendees, they may ask that only those speaking or interpreting have their cameras turned on, and that this is restricted to a maximum of 4 people at one time.

BSL has different grammar and syntax from English, so interpreters will lag slightly behind speech. Maintain a normal speaking pace and pause between sentences when reading from a script. Allow approximately 20 seconds for translation in remote settings.

BSL interpretation conveys meaning rather than word-for-word translation, so occasional misunderstandings can occur. Where possible, verify that critical information has been understood correctly. When using more than one interpreter, they can monitor each other and correct any misunderstandings as they arise.

Commission and quality assure

 Procurement routes

Currently, the primary procurement route is through the Crown Commercial Service Language Services framework (RM6141), specifically Lot 4 – Non-spoken Language Services. However, your department may have other options; always consult your local commercial team early to identify interpreting and translation providers, confirm that existing contracts cover BSL services and find the best route for you. Discuss timescales for urgent or live communications upfront.

Onboarding and supplier checklists

Onboard and engage suppliers early to assess their capabilities, quality assurance processes, subcontracting arrangements, timelines and whether their schedules allow for stakeholder engagement and approvals. Review their previous BSL work as part of this upfront assessment.

  • Consider whether a summary translation is more appropriate than a full document translation before work begins.
  • Finalise and approve source documents in plain language, ensuring the content complies with the GOV.UK Style Guide before translation begins. Share these approved documents with translators and interpreters in advance so they understand the context and can produce an accurate translation.
  • Account for any translator or interpreter specifications such as gender, age, ethnicity and regional BSL variations. Commission or request local professionals where content targets a specific regional audience, as there are regional variations in signs across the UK.
  • For complex or lengthy content, use multiple translators to support quality control and break your content down into sections to keep videos at a manageable length.

Quality assurance and testing

First and foremost, take an audience-first approach by working with disability networks or trusted stakeholders alongside your supplier to ensure content is fit for purpose.

Early user testing is essential for validating content, comprehension, and style while ensuring your feedback reflects the diversity of your audience. Engaging BSL users within your department and disability network right at the start will help streamline this testing process.

To maintain standards, implement quality-control checks throughout production, using only registered and qualified professionals. There should be no concerns about data protection during this process, as all registered interpreters are bound by the National Registers of Communication Professionals working with Deaf and Deafblind People (NRCPD) code of conduct, which includes a strict confidentiality clause.

Where available, prioritise Deaf translators, as their first-hand lived experience of BSL often results in more authentic translations that better resonate with how Deaf BSL users present and receive information.

As a final step, independently quality-check the translation before publishing, ensuring all final edits are thoroughly reviewed by a BSL user, translator or interpreter. This helps guarantee that translations remain fully accessible to Deaf BSL users with additional disabilities, including those with low vision.

Key terms

For broader accessibility terminology including captions, video relay, text relay and alternative formats, visit the Government Communications guidance on accessibility standards.

  • British Sign Language (BSL): A complete, natural language using hand shapes, movements, lip patterns, facial expressions and shoulder movements. It has its own grammar and syntax, distinct from English.
  • B-roll footage: Supplementary video footage used to fill gaps in a production, cover transitions or extend sequences. In BSL video production, sufficient B-roll is essential because BSL translation does not synchronise with English narration, giving the translator space to fully convey the spoken content.
  • Deaf (with capital D): Refers to people who identify culturally and linguistically as part of the Deaf community, typically using BSL as their first or main language.
  • Deafblind: A combined sight and hearing impairment. Deafblind people may use tactile BSL, where a support worker relays signed content through touch.
  • BSL or English Interpreter: A qualified (typically hearing) professional who translates spoken English into BSL (or vice versa) in real-time. Deaf intralingual interpreters can work between BSL and other forms of BSL for users who are Deafblind, have learning disabilities, are migrants with a different sign language or have experienced language deprivation so do not have full BSL fluency.
  • Sign Language Translator: A qualified Deaf professional who converts written content into BSL video (or vice versa).
  • Tactile BSL: A method of BSL communication using touch for Deafblind individuals with low literacy who don’t use Braille. Requires an in-room support worker.
  • Video Relay Service (VRS): A service that enables a Deaf BSL user and a hearing person in separate locations to communicate through a remote sign language interpreter using video technology. The Deaf user signs to the interpreter via video link, and the interpreter relays the message in spoken English to the hearing person and vice versa. VRS is commonly used for telephone calls, accessing services and contacting organisations. Government communicators should provide VRS as a response channel where BSL users are a primary audience.
  • Video remote interpreting (VRI): A form of remote interpreting in which the Deaf person and hearing person are typically located together in the same place, while the interpreter participates remotely via a video connection. It can also be used if the interpreter is physically present with the Deaf person and the hearing person is online or vice versa. VRI is often used when an in-person interpreter is unavailable or at short notice, although it may not be suitable for all situations, particularly complex, lengthy or Deafblind interactions. Government communicators could also consider using VRI as a response channel where BSL users are a primary audience and meetings are arranged and an in-person interpreter cannot be found.

Further guidance and support

Government Communications has published open-source guidance on accessible communications, behaviour change principles and an inclusive communications template to help communicators understand audiences and address accessibility and equality considerations.

The BSL Advisory Board publishes annual reports on how government departments are promoting and using BSL. These include good practice case studies from departments submitted as part of their reporting obligations under the BSL Act 2022. Read good practice and case studies from the fourth BSL report (May 2025 to April 2026) on GOV.UK.

The Civil Service Deaf and Hard of Hearing Network provides advice, information, support and guidance on deafness and hearing loss. They raise awareness and the profile of deafness and hearing loss across the Civil Service while sharing and promoting good practice.

The British Deaf Association produces guidance on communicating with Deaf people and using interpreters.

Royal National Institute for Deaf people (RNID) publishes guidance on how to make events more accessible including use of BSL interpreters for one-to-one conversations and assisting those who rely on lipreading.

LumoTV commissioned research, conducted by Heriot-Watt University, which revealed that 91% of Deaf audiences in the UK prefer TV content created in BSL over sign-translated programming.

The National Registers of Communication Professionals working with Deaf and Deafblind People (NRCPD) is the national regulator of approximately 2,500 language-service professionals, including registered and trainee British Sign Language and English interpreters, sign language translators, relay-intralingual interpreters, interpreters for Deafblind people, plus a small number of lipspeakers, speech-to-text reporters and notetakers. The NRCPD can be used to find and check translator and interpreter details and their qualifications. You can also raise a complaint about registered translators or interpreters with NRCPD if needed.

The Association of Sign Language Interpreters (ASLI) is a professional membership association and support network for British Sign Language interpreters and translators in the UK. They provide the practitioners’ insurance and professional development opportunities to maintain standards. The ASLI produces guidance on working with a BSL interpreter and translator.

The Visual Language Professionals is a professional association that was founded to support, collaborate with and represent interpreters, translators, lipspeakers and Deafblind Interpreters across the UK. They can be used to find an interpreter or translator.

The National Union of British Sign Language Interpreters represents BSL interpreters. It provides guidance on working with a BSL interpreter and do’s and don’ts of working with an interpreter.

References

1. RNID, Prevalence of deafness and hearing loss, 2025

2. BDA, BSL statistics, 2026

3. Sense, Deafblindness statistics in the UK

4. Conrad, R. (1979). The deaf school child: Language and cognitive function. London: Harper Row.

5. Harris M, Terlektsi E, Kyle FE. Concurrent and longitudinal predictors of reading for deaf and hearing children in primary school. J Deaf Stud Deaf Educ. 2017;22(2):233 to 42. pmid:28426889

Kelly LP, Barac-Cikoja. The comprehension of skilled deaf readers: The roles of word recognition and other potentially critical aspects of competence. In: Cain K, Oakhill J, editors. Children’s comprehension problems in oral and written language: A cognitive perspective. New York: Guilford Press. 2007:244 to 79.

Kyle FE, Harris M. Predictors of reading development in deaf children: a 3-year longitudinal study. J Exp Child Psychol. 2010;107(3):229 to 43. pmid:20570282

6. Emmorey K, Lee B. The neurocognitive basis of skilled reading in prelingually and profoundly deaf adults. Lang Linguist Compass. 2021;15(2):e12407. pmid:34306178

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