Human Rights Incorporation and Implementation Oversight Board minutes: September 2025

Attendees and apologies

• Kaukab Stewart MSP, Minister for Equalities
• Professor Alan Miller, University of Strathclyde 
• Andrew Crawford, Scottish Public Services Ombudsman 
• Professor Angela O'Hagan, Scottish Human Rights Commission 
• Catherine Whitaker, COSLA
• Charlie McMillan, Human Rights Consortium Scotland
• Charlotte Thomas, BEMIS
• Christopher Clannachan, Equality Network 
• Francesca Malila, CEMVO
• Heather Fisken, Inclusion Scotland 
• John Wilkes, Equality and Human Rights Commission 
• Juliet Harris, Together 
• Lucy Mulvagh, Alliance 
• Manira Ahmad, Public Health Scotland 
• Rebecca Spillane, Improvement Service 
• Samuel White, Law Society 
• Shivali Fifield, Environmental Rights Centre for Scotland 
• Simon Cameron, COSLA

Items and actions

Welcome and Introductions

The Minister welcomed members to the second meeting of the Human Rights Incorporation and Implementation Oversight Board, then briefly outlined meeting etiquette as the meeting was being held in a hybrid format. Apologies were noted, and new members were acknowledged.

The Minister spoke about the Scottish Government’s ongoing commitment to human rights, against the backdrop of the wider global context where human rights are being challenged and rolled back. She emphasised the Scottish Government’s ongoing commitment to the proposed Human Rights Bill, acknowledged the considerable work done so far by government and stakeholders to develop the Bill to this point, and emphasised the importance of maintaining momentum across the rights incorporation and implementation agenda.

Update on progress

Officials noted that minutes from the March and informal June meetings of the Board have been cleared and are now online, alongside the agreed Terms of Reference for the Board.

An update was provided on the Human Rights Bill Discussion Paper, that was published in July 2025. This document sets out the Scottish Government’s consolidated thinking to date on the Bill, policy positions, alternative positions that have been considered, and the rationale where these have not been pursued.

Officials explained areas of prioritisation for further development and engagement, based on their significance to the overall framework and the extent to which they are subject to ongoing developmental work. These areas include the rights in the group protection treaties, the scope of application of the proposed duties, the approach to developing and defining minimum core obligations for the incorporated economic, social and cultural rights and the approach to reflecting a right to a healthy environment in the proposed framework.

The update also covered wider progress against the Incorporation & Implementation Delivery Plan, engagement with the UK Government, and early rights implementation work currently underway.

Reflections on the Human Rights Bill Discussion Paper

Officials provided a more focussed overview of the Human Rights Bill Discussion Paper and noted the considerable internal work undertaken ahead of publication. They also outlined the external engagement that has taken place since publication of the Paper in July. The complexity of the Paper was also acknowledged, with officials flagging the recent publication of a summary version to aid accessibility and engagement with the main Paper.

Members welcomed publication of the Discussion Paper, describing it as a positive step forward that supports transparency and broadly reflects the recommendations of the Taskforce. The importance of maintaining momentum towards the introduction of the Bill was emphasised, with several members noting that the next twelve months represent a critical period for human rights in Scotland.

The Scottish Human Rights Commission noted that it met with Scottish Government officials in August to discuss the Discussion Paper, and that a separate meeting on proposed powers for the Commission is scheduled for October. In relation to wider engagement, several members emphasised the importance of transparency, particularly in understanding which proposals remain open to change, so they can plan and manage resources effectively.

Concerns were raised about the terminology used in the proposals, particularly the potential risk of embedding a hierarchy of rights and protections in relation to the group protection treaties.

Members stressed the importance of ensuring that proposals brought forward by Ministers are both workable and deliverable. It was noted that the complexity of the duties proposed could present challenges for implementation and securing wider support. Examples from UNCRC Act 2024 implementation were discussed to illustrate the practical difficulties involved.

While the work currently underway is vital to ensure the proposals are in the strongest possible position, members stressed that accountability from the next government will be essential. It was noted that this can only be achieved through clear and public commitments.

Maximising the scope of the Bill’s proposed duties was identified by members as a key priority, while acknowledging the ongoing challenges in engaging with the UK Government.

The right to a healthy environment was discussed with the lack of reference to the Aarhus Convention within the Discussion Paper noted. Members recognised the complexity of this area and officials noted that engagement would continue to support progress.

Next steps: Engagement & refreshing the Delivery Plan

Members were referred to the paper circulated in advance for this item. Discussion here focussed on next steps for engagement and refreshing the Delivery Plan, noting the progress made across the actions and engagements in the plan since members last scrutinised its contents in March.

The period between now and December was identified as a key window for external engagement. Members were encouraged to reflect on the Delivery Plan and provide feedback, with the team open to further discussion on specific areas. The Minister encouraged a focus on practical action that would drive forward the different activity across the Delivery Plan during this critical period, and welcome the ongoing constructive challenge of members and their wider networks.

During discussion, members raised several areas of interest and priority that they wished the Board to consider in the context of forthcoming engagement.

Several members raised the importance of integrating human rights budgeting into the implementation process, noting its alignment with preventative approaches in public service reform.

Some members noted the role of private and third sector actors in delivering public services, given funding pressures and resources required to discharge new or additional duties. They also emphasised the importance of meaningful capability building and called for this to be adequately resourced and mainstreamed.

Members discussed their capacity and their need to prioritise engagement. They asked for government to be clear on where current position are fixed, and where there is room to further refine proposals. 

Members raised the minimum standards process, and asked for clarity on how these standards will be developed. There was a strong emphasis on ensuring that engagement includes those most marginalised and that real-time feedback mechanisms are in place.

Members noted the importance of demonstrating how the Bill is relevant to the public, and how it will make a difference in people’s lives. The Minister acknowledged the importance of targeting energy and resources effectively, reducing duplication, and building upon previous work.

It was agreed that following the meeting, a summary of next steps for engagement would be shared more widely through the Scottish Government’s Human Rights Division Newsletter. It was also agreed that a refreshed Delivery Plan would be circulated with members, bringing contents up-to-date and setting out proposed actions and engagements until the pre-election period next year. Members would be invited to share further comments over correspondence in advance of providing their advice and oversight on the progress across the refreshed plan at the next meeting of the Board.

Any other business

The Minister thanked members for their time and noted the next meeting is expected to be in December, hosted online. Officials will be in touch shortly to confirm a date and relevant arrangements.