Equality and Human Rights Mainstreaming strategy: consultation analysis

Executive Summary

The Scottish Government ran a public consultation on the Equality and Human Rights Mainstreaming Strategy (the Strategy) from 30 October 2024 to 5 February 2025. The Strategy sets out a framework that will guide the work that the Scottish Government, the wider public sector and partners will do to embed equality and human rights in all that it does. We intend to conclude all three elements of this work, so they are launched as a coherent package. We will publish the Strategy, along with the associated toolkit and Action Plan in line with our Programme for Government (PfG) commitment.

The Scottish Government would like to thank all individuals and organisations who took the time to consider and respond to this consultation. Your collective input is invaluable in helping to inform our next steps.

The consultation posed a total of 48 questions, including 20 closed questions (e.g. receiving yes / no / don’t know responses) and 28 open-text questions (receiving free text responses). The consultation sought views from stakeholders, including members of the public, on the Strategy’s proposed vision and objectives, six key drivers, a supporting Action Plan and toolkit and reporting. Responses to the consultation were accepted through three formats, including (i) the Citizen Space online platform, (ii) email (including PDF attachments), and (iii) by participating in consultation engagement events.

A total of 123 consultation responses were received. Respondents included individuals, local authorities, public sector organisations, academic institutions and third sector organisations. In addition, two Scottish Government-led consultation events were held, with approximately 100 attendees in total. This report provides a summary of the consultation responses, including notes from the consultation engagement events.

Key findings

This section of the report includes a summary of key findings from the consultation responses, including quantitative (closed questions) and qualitative (open questions) responses for each section of the consultation. Percentages have been rounded up to the nearest decimal place. Chapters two to 10 of this report will cover consultation responses for each section in more depth. Additionally, a full breakdown of the numbers and percentage response to each closed question is included in the Appendix A and the consultation questions in Appendix B.

Overall, there was broad support for the proposals put forward.

Proposed vision and objectives

Support for the vision was high among those who responded, with 73% agreeing, just under a quarter (22%) disagreeing, and 6% unsure. Organisations were more likely than individuals to agree (77% and 61%, respectively). Respondents who left open comments described the vision as necessary and highlighted which aspects resonated most with them, such as creating strong communities through the realisation of human rights and supporting the commitment to tackle systemic inequalities and structural barriers. Suggestions for improving the language of the vision were made by both those who agreed and disagreed with the vision. Recommendations included using simpler language, less jargon and avoiding overgeneralisations.

Over three quarters (77%) of those answering agreed with the objectives, 14% disagreed, and 9% were unsure. Those leaving open comments approved for different reasons, expressing support for the emphasis on transparency and accountability and agreement with the intersectional approach.

Respondents to this and multiple other consultation questions requested more detail, particularly around implementation strategies. Many raised questions about the objectives and how they would be actionable. There were concerns that the objectives did not have measurable or achievable impacts and that the Strategy's success could not be assessed without including targets. Several respondents also reiterated the importance of including and collaborating with people with lived experience throughout the consultation.

Strengthening leadership

Respondents overwhelmingly supported the driver to strengthen leadership, with 87% of those answering agreeing, 10% disagreeing, and the remaining 3% unsure. Almost all organisations (97%) agreed, compared to 58% of individuals. Among those who commented, several expressed broad support for this driver, acknowledging the important role leaders have in mainstreaming equality and human rights. Others noted that strong leaders lead by example, not only by initiating culture change but also by giving permission to the changing culture by embracing it. Concerns about the quality of leadership and existing commitment to human rights and equality issues within the public sector were also mentioned by some.

Of those answering, 80% agreed with the Strategy’s focus on different levels of leadership. Several respondents, mostly those who supported the focus but some who did not, suggested that the definition of leadership should be wider than outlined in the consultation paper. They suggested it include, for example, community and civic leaders and third-sector organisations that partner with the public sector.

Just under half (47%) of those answering felt that the core elements of strengthening leadership had been captured in the consultation, 35% felt they had not, and 17% were unsure. Several respondents who commented reiterated their support, and several others recommended using frameworks and defined metrics for collaborative engagement and inclusion. Other recommendations included increased training and development for leaders, a clear route to national collaboration on best practices, and ensuring leaders have diverse lived experiences.

Developing accountability and transparency

Respondents were asked about the importance of accountability and transparency as a key driver for mainstreaming equality and human rights. Among those answering, 93% agreed, 4% disagreed, and 3% were unsure. Open comments expressed support for various reasons, including that it would allow stakeholders to monitor progress, build public trust, and lead to more equitable treatment for all people. Others expressed concerns about the financial resources and capacity needed to implement the driver.

Just under half (48%) of those answering felt that the core elements of accountability and transparency had been captured in the consultation. Over one third (35%) felt they had not, and 17% were unsure. Several respondents requested more information, particularly about how this driver would work in practice and which regulatory bodies would have oversight. Several others emphasised the importance of ensuring the data is accessible, with several recommending a simplified request system under the Freedom of Information Act and some others requesting improved oversight.

Ensuring an effective regulatory and policy environment

There was overwhelming support for an effective regulatory and policy environment. 90% of those answering agreed with the aim of creating regulations and policies that meet the Public Sector Equality Duty (PSED) and tools to support these policy developments. Almost all organisations agreed (97%). Respondents who provided more detail felt this driver was critical to achieving systemic change; others noted it could help ensure equality and human rights are considered during the development of new policy and legislation. Several respondents, including those who agreed with the driver, raised questions about its implementation, particularly about aligning with existing equality duties.

Just under half (45%) felt the consultation paper captured the core elements of ensuring an effective regulatory and policy environment for mainstreaming. Respondents’ comments highlighted existing policies and legislation, such as the PSED and Equality Impact Assessments (EQIA), and questioned whether the Strategy would create new processes or integrate new requirements into existing approaches. Other comments about ensuring an effective regulatory and policy environment included making the current EQIA process more effective and creating ways to collaborate and share best practices.

Utilising evidence and experience

Almost all respondents (92%) agreed that utilising evidence and experience is a key driver for mainstreaming equality and human rights. All organisations agreed with this key driver, compared to 68% of individuals. Those who expanded on why they agreed noted that this driver could support evidence-based policy, informed decision-making, identify unfairness and challenges, monitor progress, measure impact and effectiveness, and build credibility. Others highlighted considerations, such as the importance of collaborating with people with lived experience and using thorough data collection methods. Some requested more information on the proposed approach.

Just over half (53%) felt the Strategy captured the core elements of utilising evidence and experience 34% did not, and 14% were unsure. Those who commented reiterated their desire for more information, particularly on what data is required and how it will be used, how lived experience panels could work in practice, and possible analysis approaches. Many respondents suggested improvements to data collection and analysis, such as identifying evidence gaps and using existing evidence and resources.

Enhancing capability and culture

The fifth driver aims to equip all public sector staff with the skills, knowledge and motivation to integrate equality and human rights into everything they do. There were high levels of support for enhanced capability and culture; 88% of those answering agreed, including almost all organisations (97%), compared to 58% of individuals. Those who agreed felt that cultural change is central to the Strategy’s success, is critical for creating policy that reduces inequality, and can help create a culture that values diversity, inclusion and respect and change attitudes and behaviours.

Over half (53%) felt the core elements of enhancing capability and culture had been captured, one third (33%) did not, and 14% were unsure. Several respondents who disagreed felt the driver was too idealistic, that it was unclear how it would be applied to the wider public sector, that there was a risk of it being a ‘one size fits all’ approach, or that existing challenges, such as high workloads, could be a barrier to action. Other suggested improvements included using pilot programmes, making training mandatory, planning and coordinating training, and offering practice placements.

Just under half (48%) of those answering agreed the Strategy will provide a foundation to influence a culture of mainstreaming equality and human rights within Scotland’s public sector. Just over one fifth (22%) disagreed, and 30% were unsure. Many felt that the Strategy could provide a foundation to influence a culture of mainstreaming equality and human rights but others highlighted potential implementation challenges.

Improving Capacity

The consultation proposed that the public sector requires the resources and budget to fully integrate equality and human rights into everything they do. Of those answering, 92% agreed that improving capacity is a key driver, 7% disagreed, and 1% were unsure. All organisations agreed. Many comments expressed agreement that capacity needs to improve to ensure the Strategy achieves its aims. Comments noted that adequate resources, such as time, staffing and funding, were vital to enable organisations to prioritise human rights and equality. Some raised concerns about their organisation’s existing capacity, citing this as a barrier to undertaking work on equality and human rights.

Just over half (52%) felt that the core elements of improving capacity had been captured in the consultation paper. While many repeatedly emphasised the importance of funding, some requested more information or highlighted the importance of improving capacity to enable accountability and transparency. Collaboration, sharing best practices, and utilising local expertise were recurring themes throughout the consultation and were reiterated again in this section as a recommendation for improving capacity.

Supporting change through an Action Plan and toolkit

The consultation paper proposes that two supporting resources – the Action Plan and a toolkit – would support the Strategy to achieve change. Just under half (48%) of those answering felt the proposed approach to a collated Action Plan would drive change, 26% did not, and 27% were unsure. Organisations were more supportive than individuals (52% and 36%, respectively). Many comments agreed that a collated Action Plan could drive change, especially if it included clear and detailed actions to facilitate robust measurement. Doubts about whether the Action Plan alone could achieve the desired outcomes were raised by some, for different reasons, including a view that wider cultural change is required. Others felt insufficient detail had been given to determine if change would result from the Plan.

Almost seven in ten (69%) respondents felt there is a need for a cross-public sector toolkit to support mainstreaming of equality and human rights; 16% disagreed and 13% were unsure. Open comments were wide-ranging, with several agreeing with the need for a cross-sector toolkit and some expressing more negative views. Those who felt the toolkit was not needed had concerns that it may increase bureaucracy or complexity, and others felt there was already sufficient guidance and toolkits available. Respondents provided ideas for accessible toolkit design or made suggestions for delivery and implementation. A few respondents repeatedly noted the importance of regularly revising and analysing the toolkit's content and the Strategy’s drivers and objectives.

Of those answering, almost three fifths 59% agreed with the consultation paper that additional reporting requirements should not be created, compared to 16% who did and 25% who were unsure. Many comments called for reporting on mainstreaming to be incorporated into existing reporting mechanisms. Perceived advantages of this included optimising resources, reducing administrative burden, avoiding duplication of effort and simplification. Some others who supported more reporting felt it may aid transparency and accountability.

Conclusion

Widespread support was recorded for the Equality and Human Rights Mainstreaming Strategy. Support for the individual drivers was very high, and respondents often provided consideration and further recommendations for what they felt should be considered during the final development stage. Questions about implementing the Strategy and about the toolkit and Action Plan were raised throughout the consultation, as was a recommendation to collaborate with people with lived experience. Concerns about capacity and funding, and proposals for greater staff training and development were other common themes.