The Welsh language – not only the language of the School playground, but the language of the community

Background

Following the publication of a consultation document by Neath Port Talbot Council on 21 October 2020 on its proposal to open a new English medium primary school in Pontardawe to replace three other primary schools (Ysgol Gynradd Alltwen, Ysgol Gynradd Gofre’r Graig and Ysgol Gynradd Llangwig ), the Welsh Language Commissioner received a complaint from a person who believed that the Council had not given appropriate consideration to the Welsh language during the consultation process.

The Council is subject to the Welsh language standards, which require them, when publishing a consultation document, to consider and seek an opinion regarding the effects of the proposals on the use of the Welsh language and on not treating the Welsh language less favourably than English.

After carrying out an investigation, the Commissioner ruled that the Council had failed to comply with the Welsh language standards on the basis that the consideration given to the Welsh language in the consultation document was insufficient. Enforcement action was imposed on them to review and amend their internal guidelines and provide training to their staff, as well as requiring them to publicise the failure by publishing the investigation report on their website.

Following receipt of the Commissioner’s decision, the Council appealed to the Tribunal on the basis that there had been no failure to comply with the specific standards. Following a hearing, the Welsh Language Tribunal confirmed the Commissioner’s decision.

Implications

The Welsh Language Tribunal gave its seal of approval to the need for “conscientious consideration” when consulting on a policy decision, such as the reorganisation of primary schools. The Tribunal confirms that there is a specific duty when consulting, namely to seek people’s opinions on the possible effects of the policy but also to consider those effects.

In terms of the specific consideration, this means including a discussion of the possible effects on the Welsh language within consultation documents. In terms of the length and breadth of that approach, the Tribunal has confirmed that it should be a conscientious approach. This is not an informal approach or an impact study as such, but an approach to the possible effects that could manifest themselves in such cases.

As such, local authorities should not limit the consideration that is required, but rather each case must be looked at individually before deciding what constitutes conscientious reliance on the possible effects on the Welsh language.

Indeed, and on the basis of this decision, local authorities will have to consider not only the direct effects of its policy decisions on the Welsh language, but also the wider indirect effects of its policy decision on the Welsh language when. For example, the Tribunal noted in this case that the wider indirect should be considered – such as community effects – and that it was not sufficient to consider the direct effects on the schools alone.

Following this decision, local authorities must include enough information in documents to enable the wider community to really consider all the potential effects in order to enable them to respond if desired.

In welcoming the ruling, the Welsh Language Commissioner Efa Gruffudd Jones said:

“This case sets an important precedent and organisations will be required to consider the judgement carefully.”

“I have received a number of complaints regarding consultation documents, and some specifically about the reorganisation of education and this is not the only case relating to assessing the impact on the Welsh language to reach the Tribunal.”

“One of our constant aims is to increase people’s opportunities to use the Welsh language and it is necessary to ensure that public bodies fully consider the linguistic impact on communities when developing and implementing plans.”

“Responsibility for the welfare of the Welsh language belongs to more than one body and our public bodies have a duty to offer comprehensive services through the Welsh language and to consider the Welsh language in all policy areas. Following this decision by the Tribunal I will take the opportunity to remind them again of their duties and responsibilities.”

The Commissioner was represented by Daniel Taylor, Emyr Lewis and Tomos Lewis of Blake Morgan who instructed Gwion Lewis KC of Landmark Chambers. In welcoming the Tribunal’s decision, Tomos Lewis (Legal Director) and Daniel Taylor (Associate) said:

“We are extremely proud to have successfully represented the Commissioner in this appeal and are delighted that the Tribunal unequivocally supported the position taken by the Commissioner in relation to her interpretation and subsequent enforcement of compliance with the relevant Welsh language standards.

“The Tribunal’s decision emphasises that public bodies must take their obligations under the Welsh language standards seriously. Those who are subject to the Welsh language standards must now give conscientious consideration as to the possible effect their policy decisions may have on the Welsh language, including not only the direct effect of such policy decisions on the Welsh language, but also wider indirect effect that such policy decisions may have on the Welsh language.

“This decision follows a similarly supportive decision of the Tribunal last summer and confirms that the Welsh Language Measure, which has now been in force for over a decade now, has teeth to it.”

If you have any questions arising from this decision, please contact Tomos Lewis or Daniel Taylor.

This article can be read in the Welsh language below.

Y Gymraeg – nid iaith iard yr ysgol yn unig, ond iaith y gymuned

Mae Tribiwnlys y Gymraeg wedi penderfynu o blaid Comisiynydd y Gymraeg mewn penderfyniad arwyddocaol sydd yn cadarnhau goblygiadau cyrff i ystyried effaith eu penderfyniadau polisi ar y Gymraeg. Gellir darllen y penderfyniad yn ei gyfanrwydd yma.

Mi fydd Blake Morgan yn cynnal gweminar ar y cyd gyda Comisiynydd y Gymraeg a Gwion Lewis CB. Bydd manylion pellach yn cael ei gyhoeddi cyn gynted a phosib, ond yn y cyfamser – cliciwch yma am fwy o fanylioni gofrestru ecih diddoredeb.

Cefndir

Yn dilyn cyhoeddi dogfen ymgynghori gan Gyngor Castell-nedd Port Talbot ar 21 Hydref 2020 ar ei gynnig i agor ysgol gynradd cyfrwng Saesneg newydd ym Mhontardawe i gymryd lle tair ysgol gynradd arall (Ysgol Gynradd Alltwen, Ysgol Gynradd Gofre’r Graig ac Ysgol Gynradd Llangwig), derbyniodd Comisiynydd yr Iaith Gymraeg gŵyn gan berson oedd o’r farn nad oedd y Cyngor wedi rho ystyriaeth briodol i’r Gymraeg yn ystod y broses ymgynghori.

Mae’r Cyngor yn gweithredu safonau’r Gymraeg, sy’n ei gwneud yn ofynnol iddynt, wrth gyhoeddi dogfen ymgynghori, ystyried a cheisio barn ynghylch effeithiau’r cynigion ar gyfleoedd i ddefnyddio’r Gymraeg ac ar beidio â thrin y Gymraeg yn llai ffafriol na’r Saesneg.

Ar ôl cynnal ymchwiliad, dyfarnodd y Comisiynydd fod y Cyngor wedi methu cydymffurfio â safonau’r Gymraeg ar y sail fod yr ystyriaeth roddwyd i’r Gymraeg yn y ddogfen ymgynghori yn annigonol. Gosodwyd camau gorfodi arnynt i adolygu a diwygio eu canllawiau mewnol a darparu hyfforddiant i’w staff, yn ogystal â’i wneud yn ofynnol iddo roi cyhoeddusrwydd i’r methiant drwy gyhoeddi adroddiad yr ymchwiliad ar ei wefan.

Yn dilyn derbyn dyfarniad y Comisiynydd, fe apeliodd y Cyngor ar y sail nad oedd methiant wedi bod i gydymffurfio â’r safonnau penodol. Yn dilyn gwrandawiad, mae Tribiwnlys y Gymraeg wedi cadarnhau penderfyniad y Comisiynydd.

Goblygiadau

Yn yr achos hwn, fe roddodd Tribiwnlys y Gymraeg sêl ei fendith ar safiad y Comisiynydd y fod angen “ystyriaeth gydwybodol” pan yn ymgynghori ar benderfyniad polisi, megis ad-drefnu ysgolion cynradd. Cadarnha y Tribiwnlys bod yna ddyletswydd penodol wrth ymgynghori, sef nid yn unig i geisio barn bobl ar yr effeithiau ond hefyd i ystyried yr effeithiau hynny.

O ran yr ystyriaeth benodol, golyga hyn gynnwys ymdriniaeth o’r effeithiau posibl ar y Gymraeg oddi mewn i ddogfennau ymgynghori. O ran hyd a lled yr ymdriniaeth honno, mae’r Tribiwnlys wedi cadarnhau y dylid fod yn ymdriniaeth gydwybodol. Nid ymdriniaeth anffurfiol neu astudiaeth effaith fel y cyfryw yw hyn, ond ymdriniaeth o’r effeithiau posibl y dylid amlygu eu hunain mewn achosion o’r fath.

Oherwydd, nid cyfrifoldeb awdurdodau lleol yw cyfyngu yr ystyriaeth sy’n ofynnol, ond yn hytrach golyga bod yn rhaid edrych ar bob achos yn unigol cyn penderfynu beth sydd yn ymdriniaeth gydwybodol o’r effeithiau posibl ar y Gymraeg.

Yn wir ac ar sail y penderfyniad hwn, bydd yn rhaid i awdurdodau lleol ystyried effeithiau uniongyrchol ac anuniongyrchol ar yr iaith Gymraeg pan yn ymgynghori ar benderfyniad polisi. Er enghraifft, fe nododd y Tribiwnlys yn yr achos y dylid ystyried effeithiau’r goblygiadau eraill, megis effeithiau cymunedol, a nad oedd yn ddigonol ystyried yr effaith ar yr ysgolion yn unig.

Yn dilyn hyn, golyga bod yn rhaid i awdurdodau lleol gynnwys digon o wybodaeth mewn dogfennau er mwyn galluogi y gymuned ehangach wir ystyried yr effeithiau posibl er mwyn eu galluogi i ymateb pe dymunir.

Wrth groesawu’r dyfarniad dywedodd Comisiynydd y Gymraeg, Efa Gruffudd Jones:

“Mae’r achos hwn yn gosod cynsail pwysig a bydd gofyn i sefydliadau ystyried y dyfarniad yn ofalus.”

“Rwyf wedi derbyn nifer o gwynion am ddogfennau ymgynghori, yn enwedig rhai am ad-drefnu addysg ac nid hwn yw’r unig achos yn ymwneud ag asesu effaith ar y Gymraeg i gyrraedd y Tribiwnlys.

“Un o’n nodau cyson yw i gynyddu cyfleoedd pobl i ddefnyddio’r Gymraeg ac mae angen sicrhau fod cyrff cyhoeddus yn ystyried yr effaith ieithyddol yn llawn ar gymunedau pan yn datblygu a gweithredu cynlluniau.

“Mae cyfrifoldeb am les y Gymraeg yn perthyn i fwy nag un corff ac mae dyletswydd ar ein cyrff cyhoeddus i gynnig gwasanaethau cyflawn drwy’r Gymraeg ac i ystyried y Gymraeg ymhob maes polisi. Yn dilyn y penderfyniad hwn gan y Tribiwnlys byddaf yn manteisio ar y cyfle i’w hatgoffa eto o’u dyletswyddau a’u cyfrifoldebau.”

Fe gynrychiolwyd y Comisiynydd gan Daniel Taylor, Emyr Lewis a Tomos Lewis, yn ogystal â Gwion Lewis CB o Siambrau Landmark. Gan groesawu’r penderfyniad, fe ddywedodd Tomos Lewis (Cyfarwyddwr Cyfreithiol) a Daniel Taylor (Cyfreithiwr Cyswllt):

“Rydym yn hynod falch o wedi gallu cynrychioli’r Comisiynydd yn yr achos hwn, a bod y Tribiwnlys wedi penderfynu o blaid y Comisiynydd mewn modd oedd yn hollol gefnogol o ddehongliad y Comisiynydd o’r safonau perthnasol, a’r camau a gymerwyd gan y Comisiynydd i orfodi cydymffurfiaeth gyda’r safonau perthnasol.

“Mae penderfyniad y Tribiwnlys yn pwysleisio mai nid ar chwarae bach y dylid cyrff cyhoeddus ystyried effaith eu penderfyniadau polisi ar yr iaith Gymraeg, a bod angen i’r cyrff hynny ystyried nid yn unig effeithiau uniongyrchol y penderfyniadau hynny ar yr iaith, ond yr effeithiau ehangach anuniongyrchol hefyd.

“Mae’r achos hwn yn dilyn penderfyniad cefnogol arall a wnaethpwyd gan y Tribiwnlys llynedd, ac yn cadarnhau fo gan Fesur y Gymraeg, sydd wedi bod mewn grym ers dros ddegawd erbyn hyn, rym sylweddol iddi.”

Os oes gennych unrhyw gwestiynau yn codi o’r penderfyniad hwn neu ynglŷn a chyfraith iaith Gymraeg (gan gynnwys cydymffurfio â safonau’r Gymraeg), plîs cysylltwch gyda Tomos Lewis neu Daniel Taylor.