Introduction
All children and young people in Wales have the right to be healthy, respected, and able to reach
their full potential. These rights are protected by the United Nations Convention on the Rights of the
Child (UNCRC), including the right to non-discrimination (Article 2 of UNCRC), the right to have
decisions made in their best interest (Article 3), the right to life, survival and development (Article 6
of UNCRC), and the right to express their views and have them taken seriously (Article 12 of
UNCRC).
Despite efforts from Welsh Government to promote equality and inclusion through the LGBTQ+
Action Plan, progress in delivering meaningful improvements for LGBTQ+ children and young
people has been limited, with many continuing to experience barriers.
Ensuring that LGBTQ+ children and young people can access inclusive education (Article 28 & 29 of
UNCRC), appropriate healthcare (Article 24 of UNCRC), and supportive services is essential to
realising their rights, as set out in the UNCRC, and enabling them to thrive as equal members of
society.
What Children, Young People and Families Have Told Us
Our advice and engagement work highlights a consistent pattern of challenges experienced by
LGBTQ+ children and young people.
Bullying is consistently raised as a concern, with children and young people reporting experiencing
persistent bullying, verbal harassment, social exclusion and being “outed” by peers. For some, this
behaviour extended beyond the school environment into the wider community, creating ongoing
safety concerns and contributing to isolation. One young person commented, “harassment is
camouflaged by banter.” Another young person highlighted the importance of awareness of
LGBTQ+ rights, commenting, “everyone should be more aware that LGBTQ+ people have rights
too.”
These experiences undermine children’s rights under Article 19 of the UNCRC, which requires
protection from all forms of violence, alongside Article 2 which sets out to ensure the right to be
free from discrimination. Persistent bullying can also prevent children from fully enjoying their right
to education under Article 28.
School responses and safeguarding were frequently perceived by young people and families as
inadequate. Parents and young people reported that bullying was often not taken seriously and that
interventions were reactive rather than preventative. One young person commented, “bullying is
only ever spoken to when observed but nothing ever changes.” With regards to varying support one
student commented “they come up with excuses to permit these things.” And “it feels like we
aren’t taken seriously.”
One young person commented: “If we have a [designated] ‘safe space’ it’s just proof that action is
not being taken as the [whole] school should be the safe space.”
It is essential that the systems in place to respond to incidents and bullying consider the best
interest of the child, in line with article 3 of the UNCRC. A young person also commented,
“punishment without education doesn’t change someone’s behaviour.”
School avoidance and educational disengagement have been linked to experiences of bullying
and discrimination. Some LGBTQ+ children and young people developed Emotionally Based
School Avoidance (EBSA) as a result of feeling unsafe in school, leading to reduced attendance and
disengagement from education.
When children feel unable to attend school because they do not feel safe or included, their rights
under Articles 28 and 29 of the UNCRC are compromised. These articles recognise not only the
right to education but also the importance of education taking place in an environment that
supports every child’s development.
Mental health and wellbeing were reportedly affected by these experiences. Families reported
increased anxiety, self-harm, suicidal ideation and suicide attempts, often associated with
sustained bullying, discrimination and a lack of support. Difficulties accessing timely mental
health services can further exacerbate distress.
These experiences raise significant concerns in relation to Article 24 of the UNCRC, which
recognises every child’s right to the highest attainable standard of physical and mental health and
access to appropriate healthcare services.
Intersectionality and additional vulnerabilities were also highlighted. LGBTQ+ children and
young people with Additional Learning Needs (ALN) often faced compounded disadvantages,
including heightened vulnerability to bullying and greater barriers to accessing appropriate
support. A young person reflected, “LGBTQ+ people should be respected like everyone else while
also having their boundaries and beliefs respected. Being LGBTQ+ shouldn’t change the rules for
yourself, you are still a being.”
Access to gender-affirming care was identified as a concern by some families. Concerns centred
on the potential disruption or withdrawal of treatment and the impact this could have on young
people’s wellbeing and mental health.
Access to appropriate healthcare should be guided by the child’s best interests under Article 3,
their right to express views about decisions affecting them under Article 12, and their right to the
highest attainable standard of health under Article 24 of the UNCRC.
What do we know?
Evidence from Wales highlights that LGBTQ+ children and young people continue to experience
bullying, discrimination and poorer wellbeing outcomes than their peers. Evidence cited within the
Welsh Government’s LGBTQ+ Action Plan found that 60% of LGBT learners frequently or often
heard homophobic language in school, while 49% heard biphobic language and 51% heard
transphobic language. LGBTQ+ people in Wales are also more likely to report loneliness than their
heterosexual peers. SHRN data suggests that transgender and gender diverse (TGD) young people
report poorer mental health and well-being compared to cisgender peers.
Taken together, this evidence suggests that many LGBTQ+ children and young people continue to
face barriers to enjoying their rights without discrimination (Article 2), to education (Articles 28 and
29), and to health and wellbeing (Article 24).
The evidence highlights the importance of inclusive schools, supportive families and accessible
services in improving wellbeing and educational outcomes. However, there remains limited Wales
specific evidence on the mental health experiences of and outcomes for LGBTQ+ children and
young people. Strengthening data collection, research and evaluation would support better
understanding of the barriers LGBTQ+ children and young people face and would help identify
where progress is being made.
Consistent with Article 12 of the UNCRC, listening to children’s voices and lived experiences is
essential to ensuring that policies and services respond effectively to their needs and improving
outcomes across Wales.
In addition to this it is important to consider that LGBTQ+ children and young people are growing up
in a wider context where prejudice and hostility remain prevalent. In 2023–24, hate crimes
recorded across Wales indicated that 19% were motivated by hostility towards sexual orientation
and 5% by hostility towards transgender identity7. While these figures are not specific to children
and young people, they highlight the continued presence of anti-LGBTQ+ prejudice in Wales and
the importance of creating safe, inclusive environments where children can learn, participate and
thrive within their communities.
What is happening to support children and young people?
Welsh Government policy and legislation demonstrate a significant commitment to improving
outcomes for LGBTQ+ people. Through the LGBTQ+ Action Plan (2023), Welsh Government set out
its ambition to make Wales the most LGBTQ+ friendly nation in Europe and committed to
addressing inequalities across education, health, housing, community safety and participation in
public life. However, continued monitoring and action are needed to ensure these commitments
translate into meaningful and consistent improvements in the lives of LGBTQ+ children and young people across Wales.
The Curriculum for Wales also introduced mandatory Relationships and Sexuality Education (RSE)
in 2022, ensuring learners receive inclusive and age-appropriate education about relationships,
diversity, rights and identity.
Schools and education settings have responsibilities under the Equality Act 2010 to eliminate
discrimination, advance equality of opportunity and foster good relations between different groups.
Schools are responsible for developing anti-bullying policies, inclusion strategies and wellbeing
initiatives. The Welsh Government’s Rights, Respect, Equality guidance provides statutory
guidance on preventing and responding to bullying, including bullying related to sexual orientation,
gender identity and gender expression.
Support services and community organisations also play an important role. Across Wales, third
sector organisations provide youth groups, peer-support networks, advocacy services and
information resources that help LGBTQ+ children and young people access support, build
confidence and connect with others who share similar experiences.
Ongoing developments and challenges remain. Recent legal developments, including the
Supreme Court judgment in For Women Scotland Ltd v The Scottish Ministers (2025), have
prompted Welsh Government to review the LGBTQ+ Action Plan. Health boards, local authorities,
schools and community organisations continue to work together to improve access to support and
promote wellbeing. However, evidence suggests experiences remain inconsistent across Wales,
with some children and young people continuing to face barriers to accessing inclusive services
and support that meets their needs.
What needs to happen?
Publish guidance for supporting transgender and gender-diverse learners
Following publication of the EHRC Code of Practice, the Welsh Government should publish
comprehensive guidance for schools that reflects the legal framework while providing clear,
practical advice on supporting transgender and gender-diverse learners in Wales, consistent with
children’s rights and safeguarding responsibilities.
Strengthen inclusive educational environments
All children and young people have the right to learn in environments free from discrimination,
bullying and prejudice. Schools should be supported to take a whole-school approach to inclusion,
ensuring that policies, curriculum content, staff training and wellbeing support reflect the diversity
of learners and foster a sense of belonging for LGBTQ+ children and young people.
Creating inclusive learning environments is fundamental to ensuring children can enjoy their rights
to education without discrimination under Articles 2, 28 and 29 of the UNCRC.
Tackling hate crime and prejudice-based bullying
As the Welsh Government progresses its work to strengthen the reporting of racist incidents in
schools, we would like to see this work broadened to include other forms of prejudice-based
bullying, including homophobic, biphobic, transphobic and misogynistic incidents. Developing a
consistent, intersectional approach to data collection would provide a more complete
understanding of children’s experiences of discrimination, recognising that many children
experience multiple and intersecting forms of prejudice. Improved data would support more
targeted interventions, strengthen accountability and help ensure that schools are safe and
inclusive environments for all learners. A more robust reporting framework would support implementation of Articles 2, 3 and 19 of the
UNCRC by helping to identify patterns of discrimination and harm, ensuring children’s best
interests are considered, and strengthening measures to protect them from violence and
prejudice.
Improve access to mental health and wellbeing support
Access to timely, appropriate and inclusive support services is essential. Mental health services,
school-based support and wider wellbeing provision should be equipped and resourced to meet
the needs of LGBTQ+ children and young people, with professionals receiving appropriate training
and support to provide affirming and inclusive care.
This would support children’s right to the highest attainable standard of health under Article 24 and
help ensure their best interests remain a primary consideration in decisions affecting their care
(Article 3).
Listen to and involve children and young people
Policies and services affecting LGBTQ+ children and young people should be developed with them,
rather than for them. Welsh Government, local authorities, schools, health services and third
sector organisations should continue to create opportunities for LGBTQ+ children and young
people to influence decision-making and shape the services they use. Embedding meaningful participation in policy and service design is essential to fulfilling Article 12
of the UNCRC.
Improve evidence and accountability
Improving data collection, research and evaluation would strengthen understanding of the
experiences and outcomes of LGBTQ+ children and young people in Wales and help identify where
progress is being made. Regular monitoring of the implementation of the LGBTQ+ Action Plan and
other relevant policies will be important in ensuring that commitments lead to meaningful
improvements in the lives of children and young people.
Strengthening monitoring and accountability would support implementation of Article 4 of the
UNCRC, which requires governments to take all appropriate measures to realise children’s rights in
practice.
What are we doing?
Our work on this issue
We have listened to the voices and experiences of LGBTQ+ children and young people through our
engagement and casework. Through our Community Ambassadors scheme, we have met with
LGBTQ+ school groups to help shape our responses to Welsh Government consultations and
policy development.
We have met regularly with Welsh Government officials to advocate for the publication of
comprehensive guidance for schools and have participated in Welsh Government focus groups on
the LGBTQ+ Action Plan process evaluation.
Over the next year we will:
- Continue to amplify the voices and experiences of LGBTQ+ children and young people,
including through our outreach and engagement and Community Ambassadors scheme. - Engage with Welsh Government and key stakeholders on the development of guidance,
policy and practice. - Monitor progress on commitments affecting LGBTQ+ children and young people and
advocate for improvements where needed.