Review of diversity in the public sector workforce and boards in Wales: summary

The Equality Act, 2010 introduced the Public Sector Equality Duty (PSED). The aim of the PSED is to ensure that those subject to it consider advancement of equality when carrying out their day-to-day business, including developing policy, design and delivery of services and in relation to employees. In Wales, specific duties set out additional statutory requirements for public bodies to help improve performance against the PSED (Employment information, pay differences and staff training: A guide for listed public authorities in Wales (Equality and Human Rights Commission)).

The Welsh Government’s long-term aim for equality and human rights in Wales and the supporting National Equality Objectives 2024-2028 include goals in relation to improving representation and inclusive workplaces. The objectives link to distinct and underlying equality action plans targeted at protected characteristic groups as defined within the Equality Act 2010, and wider human rights treaties and United Nations Conventions.

Whilst the Commissioner for Public Appointments publishes an annual report of public appointments which includes diversity analysis of regulated appointees and re-appointees, this does not include non-regulated appointments or provide a full picture of diversity.

This report presents the findings of two complementary pieces of research undertaken by the Equality, Race and Disability Evidence Units, Welsh Government. Overall objectives of the research were to: provide an indication of the diversity of public sector boards in Wales; ascertain whether diversity data for board members is being collected effectively; better understand the value of diversity in public sector bodies and identify barriers and appropriate strategies to increase diversity in Boards and wider public sector workforce.

The research involved surveys of public sector bodies and board members in Wales and a desk-based review of relevant literature.

The surveys were used to answer more specific research questions which were, in the main, distinct from those relevant to those addressed by the literature review. Findings from the surveys and literature reviews have therefore been analysed and reported separately in this report. Section 1 reports on findings from the surveys. Section 2 reports on findings from the literature review. Where relevant, the conclusions and future considerations sections draw on evidence from both the surveys and the literature review.

The surveys targeted Public Sector Bodies in Wales listed in the Order in Council as following the Governance Code on Public Appointments. 39 Public Sector Bodies (including NHS bodies and advisory panels) were invited to take part in the surveys between 10 May 2023 and 7 July 2023. The first survey asked Public Sector Bodies about their approach to collecting diversity information and 29 survey responses were received. The second survey asked Board Members questions about their characteristics in order to assess current levels of diversity. Responses to the second survey were received from 222 Board members spread across 30 Public Sector Boards and Welsh Government. However, the group that responded may not be representative of all boards and this needs to be considered in interpreting the findings.

The overall number of Board members is not readily available therefore it is not possible to determine an accurate response rate and there is a level of uncertainty as to how representative the findings are. The data should give some indication of the diversity of public sector board members as a whole. However, findings should be considered with caution as the information is provided by a volunteer sample, and some groups may be under or overrepresented in the data.

The literature review explored available literature on diversity monitoring for boards and the wider workforce in public sector bodies in the UK and comparable countries.

To what extent is diversity data being collected on boards in Wales?

Of the 29 Public Sector Bodies who responded to the survey, 8 (28%) stated that they do not collect or hold any equality data on their Board members because this information is collected and held by the public appointments team in Welsh Government for regulated appointments.

The remaining 21 Public Sector Bodies stated that they collect and hold some equality information about their Board members, with all stating that they collect and hold information on at least 3 of the equality characteristics asked about. Of these 21 Public Sector Bodies:

• all collect information on age
• most collect information on ethnicity, Welsh language skills, impairment, religion or belief, sex and sexual identity. However, there is a lack of understanding and consistency in collection of information on sex and gender
• just over half (11) collect data on gender identity
• there is a lack of standardisation in how diversity data is collected and reported across different Public Sector Bodies; this makes it difficult to report diversity information across all Public Sector Bodies as a whole

What were the findings regarding the current level of diversity of Public Sector Board members?

Compared to Census 2021 population results for Wales, the survey suggests a slight under representation of Black Asian and Ethnic minority people (5% compared to population of 6.2%).

There was a larger under representation of disabled people (14% compared to the general population of 21% in Census 2021).

The age distribution of Boards tends to be skewed towards older age groups with 56% responding aged 55 or over which compares to 35% in the general population in Census 2021.

There were more females than males on Public Sector Body boards. 57% of Board members who responded to the Survey identified as female and 42% identified as male. In Census 2021, 52% of the adult population in Wales reported their sex as female.

The survey found that 9% of those Board members that responded identified as Gay or Lesbian, Bisexual or another minority sexual orientation (LGB+). This is higher than the percentage of those identifying as LGB+ according to the 2021 Census (3%).

Of the respondents that answered the question on gender identity, no respondents (0%) stated that the gender they identify with is different to their sex registered at birth. This proportion is broadly comparable to figures from the 2021 Census (0.4%).

Compared to Census 2021 data, there was a higher proportion of Board members who identified as Christian (49% compared to 44%) and a lower proportion of Board members who reported as having no religion (39% compared to 47%). The proportion of Board members identifying with another religion (5%) was broadly similar to Census 2021 figures (4%).

What are the data challenges?

In order to successfully implement interventions which improve diversity and the outcomes of people from minority groups high quality data is required to monitor and evaluate.

Boards of Public Sector bodies can be relatively small. This can make it difficult to draw meaningful conclusions on how representative Boards are, particularly for certain characteristics. Small numbers also mean data cannot be reported publicly as it risks disclosing personal information.

Diversity data is not collected consistently across Boards using the same definitions of characteristics.

What are the most effective diversity data collection and monitoring methods?

Self-reporting staff surveys on diversity are the easiest ways of collect large amounts of diversity data.

It is important to measure attitudes towards inclusion in addition to diversity data.

It is essential to build trust to gather data from all groups, and to be transparent with how this data might be used. Using staff networks and allowing anonymity are recommended.

Existing administrative resources, particularly self-service HR portals, as well as employee induction are effective opportunities for data capture.

Results of the data collection should be publicly available for accountability reasons although disclosure must be considered.

How important is diversity in public sector board members and the workforce?

The more diverse a public service, the more attentive and responsive it is to the diverse needs of diverse populations.

In the private sector, more diverse boards tend to outperform companies with more homogenous boards.

Diverse role models positively impact on progression throughout the organisation for groups who share characteristics with senior leaders.

Diverse boards have a greater problem-solving potential through a broader range of life experiences.

Diverse public sector bodies tend to receive a more diverse pool of applicants for positions/appointments, with greater potential for talent acquisition.

Diverse public sector body leadership is often able to make policy which more accurately accounts for the diverse needs of the public which it serves.

Diverse public sector bodies improve the experience customers from minority backgrounds have when interacting with the public sector body.

What are the barriers to diversity and strategies that could be used to increase diversity?

The literature suggests that a key driver for ongoing disparity in public sector bodies is a progression gap, which gets more prominent the more senior in the progression ladder, linked to the recruitment style which favours particular groups.

The literature also suggests that Socio-Economic background may be a key barrier to progression in the public sector, and historical societal inequities must be considered in recruitment and promotion to create an environment of equal opportunity.

A lack of available data is a barrier to the implementation of effective interventions. Proper data disclosure creates accountability and can improve diversity in organisations.

Some private sector policies are good examples of ambitious diversity policies which have had a positive effect.

Sharing diversity objectives and clear accountability for senior leaders can improve diversity and representation.

Perception of fairness is just as key for improving diversity and inclusion as structured and implemented policies. Formally recognised staff networks and visible diverse role models can support a feeling of fairness.

Training is key so issues around diversity and inclusion are understood and policies are not seen as a tick box exercise. Training on unconscious bias and inclusive practices for those involved in the appointment process is important.

Considerations arising from the evidence to improve and more effectively report on the diversity of public sector boards and workforces in Wales

Diversity data collection exercises of public sector bodies need to be standardised and taken regularly as part of routine administrative data collections.

An overall picture of Public Service Board representation is not currently available in Wales on a regular basis. The regulated public appointments data held by the Public Appointments Team at Welsh Government could be explored further as a source of information.

Socio-Economic Background could also be considered for collection as part of diversity data as it is suggested it could be as significant a barrier as protected characteristics.

There are existing guidelines for diversity on boards of publicly held companies in the private sector which public sector bodies could adopt or learn from for a more ambitious diversity policy.

Accountability is a key reason why disclosure is so effective as a method of improving outcomes for the diversity of an organisation. Policies are more likely to be effective if it is public knowledge who is responsible for their implementation.

Public disclosure of the collected diversity data, as well as any diversity targets is a key aspect of changing an organisation to have a culture of diversity and inclusion.

An organisation can improve its culture of diversity and inclusion by having policies which focus on employee welfare and wellbeing, and while these policies don’t need to be targeted, it needs to be ensured that they are appropriate for all groups.

A perception of fairness within an organisation is key to improving diversity outcomes. Policies implemented by organisations with a perception of unfairness are unlikely to be as successful as they otherwise might be.

Those responsible for appointing candidates to public sector body boards may benefit from training that informs them of the ‘business case’ benefits of board diversity. This training could also be carried out for all recruitment panel members throughout public sector bodies.

The tools for high level data collection in the public sector largely already exist, and HR/online portals could be an effective tool for data collection and measurement.

In all approaches, intersectionality should be considered when designing interventions. A policy which would solve problems for one group could be ineffective, or even actively detrimental to others.

Report authors: Equality Evidence Unit, Welsh Government

Views expressed in this report are those of the researchers and not necessarily those of the Welsh Government.

For further information please contact:
Equality, Race and Disability Evidence Units
Welsh Government
Cathays Park
Cardiff
CF10 3NQ

Email: EqualityEvidenceUnit@gov.wales

Social research number: 26/2025
Digital ISBN: 978-1-83715-446-3