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Memorandum submitted by the Welsh Language Board (DIW 2)
DIGITAL INCLUSION IN WALES
1.1 The Welsh Language Board appreciates the opportunity to respond to this review. The Board's main functions are to promote and facilitate the use of the Welsh language, and in so doing we aim to ensure that services of a high standard are available to the public in Wales through the medium of Welsh. Service provision is an integral part of digital inclusion, which is defined as follows:
"The best use of digital technology, either directly or indirectly, to improve the lives and life chances of all citizens and the places in which they live.[1]"
The purpose of this response is to ensure that plans for a digital future give appropriate consideration to increasing the opportunities Welsh speakers in Wales[2] have to use their chosen language. This is particularly relevant in terms of service provision. The advice below is presented in accordance with Section 3 of the Welsh Language Act 1993[3]:
The Board will advise persons exercising functions of a public nature on the ways in which effect may be given to the principle that, in the conduct of public business and the administration of justice in Wales, the English and Welsh Languages should be treated on a basis of equality."
The Welsh Language Board
1.2 The Welsh Language Board (the Board) was established as a statutory body by the Welsh Language Act 1993 to promote and facilitate the use of the Welsh language. The Act establishes the principle that in the conduct of public business and the administration of justice in Wales the English and Welsh languages should be treated on the basis that they are equal. The Board has statutory functions and powers to ensure that public bodies draw up language schemes which detail how the above principle will be realised in practice. Welsh language schemes have been agreed with a number of UK Government departments and with the Welsh Assembly Government and they contain commitments to address the needs of Welsh speakers as digital services are planned and provided to the public in Wales. Part of the Board's work is to ensure that the Government and other service providers act in accordance with these commitments.
The Welsh Affairs Committee requests observations concerning the recommendations of the UK Government Communities and Local Government Department's consultation document on digital inclusion, specifically in relation to their implementation in Wales. In order to ensure that that Department gives proper consideration to the Welsh language and the needs of Welsh speakers as it undertakes the task of preparing and implementing digital inclusion plans, and other aspects of its work, we trust it will prepare a Welsh language scheme to be presented to the Board in the near future.
The policy context
1.3 The Prime Minister of the United Kingdom states:
"Everyone has a right to expect a first-class service, wherever they live and whatever their background[4]."
In Wales, high standard service provision is considered dependent on offering services in both Welsh and English, in accordance with the 1993 Welsh Language Act. The principle that both languages should be treated on the basis of equality when providing public services was established by that Act and that principle is relevant to all discussions about the development of digital technology. `
The Welsh Assembly Government Action Plan for the Welsh Language, Iaith Pawb, draws attention to the close relationship that exists between digital inclusion and social inclusion and aims to: "... enhance communities, their culture and languages, to promote social inclusion and help combat the digital divide, to raise the status of the Welsh language with respect to ICT (Information and Communication Technology), to support the continued growth of the Welsh language and to help minimise digital exclusion due to language[5]."
1.4 The consultation document 'Delivering Digital Inclusion: An Action Plan for Consultation' supports the above view by identifying that '... there is a strong correlation between digital exclusion and social exclusion'.[6] We ask that the Welsh Assembly Government's aim of increasing the availability of Welsh language services is given appropriate consideration in plans to reduce social exclusion by means of digital inclusion. This should ensure that digital inclusion plans do not exclude Welsh speakers in Wales on the basis of language.
1.5 The Department for Communities and Local Government's consultation document differentiates between the benefits of digital inclusion. Firstly, full access to digital technology can empower communities and citizens and secondly, digital technology can be used to improve services. These benefits are discussed below, with the focus mainly being on the development of services that facilitate the use of the Welsh language. We also devote attention to the responsibilities of the various tiers of Government in Wales to ensure that everyone in Wales benefits from the advantages of digital inclusion.
Empowering citizens and communities
1.6 The consultation document explains how the lack of availability of digital technology can lead to social exclusion and what the ensuing disadvantages are for individuals and businesses. Of course, these disadvantages are equally relevant to both Welsh speakers and non-Welsh speakers. We are pleased that the Welsh Assembly Government is implementing plans, such as the Regional Innovative Broadband Support Scheme, to improve access to digital technology throughout Wales as they will bring benefits to all who reside in Wales.
1.7 It is essential that opportunities for Welsh speakers and non-Welsh speakers to benefit from digital technology are available within communities across Wales. A wide range of local community initiatives such as CREDU, the Welsh Assembly Government supported digital laboratory network for young people, are already in existence. In addition, web access is available on computers at Welsh local authority libraries and various other locations. Such facilities must offer the same opportunities to both Welsh speakers and non-Welsh speakers in Wales, and arrangements need to be put in place to offer access to technology in the public's language choice (e.g. the use of Welsh interfaces such as the Windows XP Language Interface Packs, ensuring that Welsh speaking staff are available to assist etc). The increasing availability of online services is an indirect benefit of digital inclusion, and individuals must be able to access them in their language choice.
1.8 Digital inclusion must also provide opportunities for everyone to gain access to information via broadcasting. We see a key role for providers and regulators in the field of broadcasting to secure better services for Welsh speakers, on television, on radio and on the web. The Welsh Language Board presented a response to OFCOM's recent consultation on the future of digital broadcasting, highlighting the needs of the public in Wales from the standpoint of Welsh-medium broadcasting[7]. We trust that developments in digital inclusion will aim at increasing the opportunities to use technology to gain information and services in Welsh through broadcasting.
Effective Services
1.9 One of the most important objectives of digital inclusion is to ensure that "....greater use of digital technology to plan, design and deliver services leads to significant improvements[8]." There are a number of current examples where the use of technology to provide services has improved Welsh language access. Directgov and Transport Direct, for example, offer opportunities for Welsh speakers to gain access to a wide range of Welsh language information and services. The availability of Welsh language digital services has the potential to make definite improvements in the lives of Welsh speakers in Wales.
1.10 Unfortunately, the standard of Welsh language digital service provision is inconsistent. It may be argued that past failures to give the Welsh language appropriate consideration when planning and providing digital services has led to the social exclusion of Welsh speakers - the very effect digital inclusion is meant to prevent. Below are some examples of service areas where this has occurred:
Administration of Justice
Historically, a number of digital systems developed by the Government to provide services have not included the capacity to use Welsh and have therefore excluded Welsh speakers. The LIBRA software system, for example, has been developed over the last decade to facilitate the administration of the Courts in England and Wales. The system was introduced in 2008 to assist the work of the Courts, but, as it does not have Welsh language capability, the Courts in Wales are no longer able to present bilingual summonses to the public.
OASYS software is used by the officers of the Probation Service in Wales to produce reports on offenders prior to sentencing. This system does not allow reports to be produced in Welsh even if the people likely to read the reports, be they offenders, Probation Officers or Court personnel, are all Welsh speakers.
An increasing number of Court services are now provided on-line. An example of such services is the 'moneyclaim online' resource, which allows claimants and defendants to make claims for money online. This resource is not available in Welsh.
In 2008 a new online system was introduced for applications to join the Police force in Wales or England - www.policecouldyou.gov.uk. It is not possible to submit applications in Welsh through this system.
Education
On page 43, the consultation document refers to Becta services in the education sector. Becta provides advice and information on educational matters and uses its website for this purpose. Some services provided online by Becta can be used in Welsh, for example applying for an ICT mark, however not all such services are available in Welsh.
Local Government
Over recent years, there has been a significant increase in the use of technology by Local Authorities to provide services for the public. Computer systems are now used to produce and present electoral forms to the public in Wales but the systems used are often unable to produce these forms in Welsh. As a result, Local Authorities cannot present these forms bilingually and are therefore breaching the commitments made in their statutory Welsh language schemes.
Information technology has an important role in the way the public in Wales present their personal details. Housing Association tenants in Wales can use the website http://www.Allpayments.net to pay their rent. This is a convenient and extremely effective service but it is available only in English. Tenants may also use 'allpay' points that are available throughout Wales in centres such as Post Offices, but again this service is only available in English.
Health
Technology plays a prominent role in the provision of health services. A Health Trust in Wales provides standard appointment letters in English only as the software used cannot produce bilingual material.
Central Government
It is not possible to receive Welsh language versions of Tax Credit Award and Renewal notices. The reason given is the computer system's inability to produce Welsh language documents. At present there are no plans to change this system and no date has been offered for the availability of Welsh language Tax Credit Award and Renewal notifications.
National Insurance cards are sent to the public in English only. This is the case, even if the individual applying for a card has registered their language choice as Welsh. The reason given is that the computer system used to produce and automatically distribute the cards cannot do so in Welsh.
1.11 A number of examples are presented above to illustrate instances where the need for Welsh language provision has not been taken into account when planning and developing digital services for the public in Wales. In some cases, the standard of these services is dependent on an effective method of offering language choice. Members of the public who need access to services in the Health or Justice sectors, for example, can often be in a vulnerable situation and therefore will lack confidence. Lack of access in their language of choice can make it difficult for users to benefit fully from the services available and can result in a sense of social exclusion.
We ask that all tiers of government in Wales, and in particular, UK Government departments, ensure that the Welsh language is taken into account from the outset when planning, designing and providing digital services so that they can be offered in accordance with the principles of the Welsh Language Act 1993.
1.12 Digital inclusion has considerable potential to enhance the lives of Welsh speakers by offering improved access to services. However, the use of digital technology when planning, designing and providing services can lead to the social exclusion of Welsh speakers and can contradict the principles of digital inclusion. Detailed planning work will be required from all tiers of government in Wales, and their partners, to ensure that digital inclusion fully benefits Welsh speakers.
Recommendations for action
1.13 The Department of Communities and Local Government's consultation paper on digital inclusion includes a number of recommendations. These include drawing up a Digital Inclusion Charter and establishing a Digital Inclusion Champion. The Welsh Language Board supports these steps and wishes to make some proposals about the contents of the Charter, the steps that need to be taken following its publication and the functions of the Champion so the issues above may be addressed.
Digital Inclusion Charter
1.14 The requirements of providers' Welsh language schemes, including those of UK Government Departments, to mainstream the Welsh language into polices and initiatives should be taken into account, when drawing up the Digital Inclusion Charter. The Charter should ensure that Welsh speakers are not socially excluded by technology by giving appropriate attention to the principle established by the Welsh Language Act 1993 that both Welsh and English should be treated on the basis of equality when providing public services in Wales. The charter should aim at enriching the lives of citizens, and take the specific needs of the significant percentage of the population of Wales that is Welsh speaking, into account.
1.15 The consultation paper proposes 'put[ing] in place a programme of research and evaluation to quantify the different benefits arising from direct access to meet specific needs[9]' so the Charter's principles may be implemented.. We recommend that the UK Government works with relevant partners in Wales in order to explore opportunities to meet the specific needs of Welsh speakers when developing and implementing these research and evaluation programmes.
1.16 The consultation document recommends that it would be constructive to 'develop and disseminate self-assessment and development tools to enable digital inclusion to be embedded in policy, programme and service design'.[10] We agree that this is a key step and the Welsh Language Board has already developed a bilingual software accreditation scheme, which enables the developers of software and information technology systems to assess systems' compliance with the bilingual software standards developed by the Board. This resource will be available for use on the Board's website by the end of August 2009 and copies may be sent to organisations before this date.
1.17 In its discussion of the direct benefits of digital inclusion the consultation document suggests that there is a need for
'....the introduction of a set of baseline measures for digital inclusion so that progress can be effectively monitored.'[11]
We are in agreement that this is a key step and believe that attention should be given , after the Digital Inclusion Charter is published, to establishing measures to assess the progress made in securing the availability of Welsh language digital services. One of the objectives of Iaith Pawb, the Welsh Assembly Government Action Plan for the Welsh Language, is to ensure that more services are available through the medium of Welsh. The Welsh Language Board is currently developing a language indicator to measure the progress made by organisations that have Welsh language schemes in developing Welsh language digital service provision.
Digital Inclusion Champion
1.18 The consultation document recommends that the Champion should ensure that digital technology assists Government Departments to '[...]. develop and implement policy rather than hamper it.' A number of Government departments have adopted Welsh language schemes that include policies on the use of the Welsh language in technology. The Digital Inclusion Champion must have adequate understanding of the Government and its Departments' Welsh language policies when undertaking this aspect of his work.
1.19 The consultation paper proposes that the Digital Inclusion Champion will work with the UK Government to establish 'an expert Taskforce, representing the views and ideas of the public, private and third sectors and drawing on the best expertise available.'[12] Welsh language technology expertise must be included within the makeup of the Taskforce so it can address bilingual service provision needs in the sectors referred to above.
1.20 The Champion will also need to consider the best use of standards, guidelines or legislation to address digital inequality in his work across Government Departments. Software and IT systems are increasingly used in the development, design and provision of services and the Welsh Language Board has published 'Bilingual Software Standards and Guidelines' to offers detailed standards for the development of bilingual software. We trust the Champion will take full advantage of this detailed document as he considers how to address the types of digital inequality referred to in section 1.10 above.
1.21 Raising awareness of digital inclusion will also be a key part of the Champion's role. Appropriate consideration will need to be given to Welsh language provision in this undertaking and some possible methods are listed below::
· hosting bilingual events such as conferences, seminars and awareness workshops in Wales · liaising with stakeholders in Wales either in their chosen language or bilingually · ensuring that all the information the Champion offers online about disseminating and sharing good practice is available in Welsh
1.22 The Digital Inclusion Champion has a key role in increasing awareness and understanding of how technology can be used to provide language Welsh services, and thereby prevent Welsh speakers from being socially excluded.
Other Key Actions
1.23 We believe that some of the other steps detailed in the Department of Communities and Local Government's consultation document will assist in preventing digital exclusion on the basis of language[13] in Wales. Below are examples of the opportunities contained with these proposed actions:
· the considerable variation in the terrain of Wales and obstacles this might create in ensuring the availability of digital technology for people in every part of the country should be taken into account when analysing risks to communities and localities
· the 'Digital Inclusion and Data Sharing Advisers' appointed to support the work of Local Authorities and Local Strategic Partners in Wales, must have adequate understanding of language technology and bilingual software standards, if they are to enable these organisations to meet their bilingual service provision commitments
· we note that there is an intention to conduct research into the attitudes and experiences of ICT operated service users. It would be useful to seek the views of Welsh speakers in order to understand their specific needs and the problems they encounter accessing Welsh language digital services.
· researching methods of assisting local strategic partners to share personal information about individuals would be of obvious benefit. The development of effective technological methods for sharing information about service users' language choice in Wales would be extremely advantageous, for example, as Justice or Health agencies work together to provide services for individuals, or in the development of the resource 'Tell Us Once'.
Conclusion
The Board sees that digital inclusion has considerable potential as a means to reduce social exclusion in Wales. The digital divide could be partially bridged by ensuring that digital inclusion offers opportunities to enhance the lives of both Welsh speaking and non-Welsh speaking Welsh people alike. However, the reverse can also be true, and there are a number of examples where the use of technology in the development, design and provision of services socially excludes Welsh speakers. We trust that the recommendations and comments made above will be of benefit to plans for digital inclusion and will ensure that Welsh speakers are not socially excluded as a result of them.
22 January 2009
[1] Page 8 'Delivering Digital Inclusion : An Action Plan for Consultation'' - HM Government (October 2008) [2] 20.8% according to the 2001 Census, compared to 18.7% in 1991. [3] Section 3 of the Welsh Language Act 1993 [4] The Prime Minister: 'Excellence and Fairness: achieving world class public services' (June 2008) [5] Pages 27, 28 - Iaith Pawb - Welsh Assembly Government 2003 [6] Page 6 'Delivering Digital Inclusion: An Action Plan for Consultation', (HM Government, October 2008). [7] www.ofcom.org.uk/consult/condocs/psb2_phase2/responses/?lang=cy [8] Page 9 'Delivering Digital Inclusion : An Action Plan for Consultation'' - HM Government (October 2008) [9] Page 66 'Delivering Digital Inclusion : An Action Plan for Consultation'' - HM Government (October 2008) [10] Page 67 'Delivering Digital Inclusion: An Action Plan for Consultation' (HM Government, October 2008). [11] Page 67 'Delivering Digital Inclusion: An Action Plan for Consultation' (HM Government, October 2008). [12] Page 68 'Delivering Digital Inclusion: An Action Plan for Consultation (HM Government, October 2008. [13] Pp 65-73'Delivering Digital Inclusion: An Action Plan for Consultation' (HM Government, October 2008). |