Evaluation of Reflecting Wales in Running Wales 2020 - 2023

The findings of this independent evaluation of the Reflecting Wales in Running Wales 2020-2023 will directly inform the structure and focus of the strategic approach from May 2026, to ensure that the regulated public appointment process across Wales better reflects the diversity of the nation’s population. It explores progress made since the publication of the original Reflecting Wales in Running Wales framework, identifies persistent barriers to representation, and highlights opportunities for systemic change and next steps.

The evaluation draws on a mixed-methods approach, including interviews with policy leads, data analysis, and looking at case studies from across sectors. It focuses on representation across protected characteristics, socio-economic background, and Welsh language, with particular attention to the journey so far and the ambition post May 2026.

The Public Accounts and Public Administration Committee (PAPAC) published its Report on Public Appointments and Supplementary Report on 27 March 2025. The reports were highly critical of historic delivery in public appointments in Wales, particularly around:

• the expiry and lack of evaluation of the Reflecting Wales in Running Wales strategy.
• inconsistent governance and data
• leadership pipeline gaps
• the regulatory framework, with a call for a dedicated Welsh Public Appointments Commissioner.

The Welsh Government’s formal response to the report was submitted to the committee on 9 June 2025.

Key findings

• Progress and commitment: There is growing awareness and commitment among public bodies to improve representation, with several organisations embedding diversity and inclusion into strategic plans
• Data gaps: A lack of consistent, disaggregated data limits the ability to track progress and target interventions effectively. This also impacts on WG’s ability to consider intersectionality in relation to protected characteristics
• Structural barrier: Ensure easy access to leadership development opportunities on the Academi Wales website, unconscious bias in recruitment, and underrepresentation of Welsh speakers from diverse backgrounds
• Good practice: Innovative approaches—such as targeted mentoring schemes, inclusive recruitment practices, and community engagement—are showing promising results in some organisations

Recommendations

• Conducting an independent evaluation of current practices delivery of the 'Reflecting Wales in Running Wales' initiative
• greater focus on strengthening accountability
• improving data collection and transparency
• investing in leadership pipelines, and fostering inclusive organisational cultures.

The report also calls for a renewed cross-sector commitment to the principles of 'Reflecting Wales in Running Wales', ensuring that leadership in Wales is truly representative of its people.

This evaluation summarises the journey to date in supporting the Welsh Government’s broader ambitions for equality, inclusion, and a vibrant, bilingual Wales. Whilst this evaluation looks at the challenges in implementing this strategy at the beginning of this Senedd term, the evaluation also focuses on next steps and how to build on all the positive steps achieved during 2024-2025. The vision is to strengthen our public sector boards by having a more inclusive and diverse membership and that the initiatives to achieve this become embedded as best practise over the next phase.

The concept of 'Reflecting Wales in Running Wales'

This evaluation will look at:

• the concerns raised by PAPA Committee on the 'Reflecting Wales in Running Wales' strategy
• assess what has been put in place already to address the shortcomings highlighted by the committee.

The report does not attempt to revisit the issues raised by the PAPA Committee report but rather will focus on the recommendations and actions taken against those recommendations to date. The committee were content with the strategy itself, but critical on the slow pace and the lack of commitment to its timely delivery.

The report will also consider any gaps and make recommendations on Phase 2 delivery post May 2026.

Scope

Welsh Government in its response to Recommendation 7 and 8 of the PAPA Committee report committed to an independent evaluation of the strategy. The evidence from this evaluation will shape the future approach and ensure that actions are grounded in what works.

The evaluation will consider whether to reinstate or formally renew 'Reflecting Wales in Running Wales' as a standalone strategy beyond 2026. There is no doubt that diversity and inclusion will remain a central and visible part of the public appointments reform programme throughout the remainder of this Senedd term, which provides a strong platform from which to build.

Welsh Government will update the committee on the evaluation and next steps at the next PAPA Committee and no later than early 2026.

This evaluation focuses on regulated public appointments, which are overseen by the Office of the Commissioner for Public Appointments (OCPA) under the Governance Code on Public Appointments to ensure fairness, transparency, and merit-based selection. These roles typically have significant influence on government policy, public services, or governance.

Non-regulated appointments made or approved by Welsh Ministers to bodies not listed in the Order in Council (are not subject to the Governance Code) still carry public accountability and should follow robust, transparent processes aligned with the standards for regulated appointments. Although non-regulated appointments are not obligated to follow the full regulated process, they are strongly encouraged to do so wherever possible.

Specific targets for public appointments are not provided as they vary annually and include both new appointments and reappointments.

Reflecting Wales in Running Wales – Strategy Goals (2020–2023)

The strategy sets out 5 transformational goals:

1. Gather and share data – consistent, reliable diversity data across public appointments.
2. Build a robust pipeline – outreach, mentoring, and development to attract diverse talent.
3. Secure open and transparent recruitment – inclusive processes with clear criteria.
4. Support diverse Boards – training for Chairs and members to harness diversity.
5. Sustain cultural change – leadership commitment to embed inclusion and equity.

Following a scrutiny session 17 October 2024 on Welsh Government’s approach to public appointments under the 'Reflecting Wales in Running Wales strategy', the Public Accounts and Public Administration Committee (PAPAC) published its Report on Public Appointments and Supplementary Report on 27 March 2025. The reports were highly critical of historic delivery in public appointments in Wales, particularly around:

• the expiry and lack of evaluation of the 'Reflecting Wales in Running Wales' strategy
• inconsistent governance and data
• leadership pipeline gaps
• the regulatory framework, with a call for a dedicated Welsh Public Appointments Commissioner

The PAPA Committee also raised serious concerns about the Welsh Government’s approach to public appointments, including:

• Lack of transparency in recruitment and decision-making
• Failure to collect and publish diversity data, despite previous commitments
• Inaccessible processes for disabled applicants and underrepresented groups
• Inadequate accountability
• Non-committal language in response to recommendations
• Limited progress on Welsh language assessment and inclusion.

Summary of identified gaps

Other considerations

• Welsh Language: Strategy promotes bilingual inclusion; response lacks clarity on Welsh language assessment of Board members
• Intersectionality: Strategy embraces intersectional inclusion; response does not address multiple barriers faced by applicants
• Leadership Accountability: Strategy calls for ministerial leadership; response avoids direct ministerial commitments

Although the scrutiny found little to celebrate in the initial delivery of the 'Reflecting Wales in Running Wales' strategy, which was the PAPA Committee’s particular focus, a lot of important steps have been taken since 2024 to put the work back on track. Recent data shows that progress has been made although there is more to do. Point 7 below details progress to date.

Opportunities for alignment

To realign with the strategy, the Welsh Government could:

• Set up a Working Group to oversee Phase 2, setting out a clear mission and timetable with robust evaluation and measurable outcomes
• Commit to annual reporting on diversity metrics
• Launch targeted outreach and mentoring programmes.
• Provide mandatory training for Chairs and Boards on inclusive governance
• Embed Diversity, Equality and Inclusion throughout the appointment process.

Approach

This is mainly a desk based evaluation to investigate progress to date. As well as looking at key documents, Including PAPA Committee reports and listening to recordings of the hearings, I have also interviewed policy leads to contextualise written reports and documents with practice. This has provided an opportunity for frank discussions around progress to date as well as discussions on how to build for the future. One common theme is an acceptance that there was a lack of clarity around accountability and a weak governance structure to support delivery when the 'Reflecting Wales in Running Wales' was first launched. The lack of dedicated resource meant that there was a lack of structured oversight which in turn meant that the monitoring progress was weak. However, under the new Director of People and Places, good progress is being made, and there is a clear commitment to achieving the goals set out in 'Reflecting Wales in Running Wales'.

The Anti racist Wales Action Plan and the Welsh Language standards have a structure to monitor public appointments through the Anti Racist Wales Action Plan Leadership Group and the Welsh Language Commissioner’s Annual Report. It is less clear how other areas representing protected characteristics have linked with the vision set out in 'Reflecting Wales in Running Wales'.

The challenge going forward is to ensure that all aspects of Equality and Diversity are represented, and that intersectionality is truly addressed. Welsh Government is committed to improving the diversity of public boards across all characteristics, including race, gender, disability, LGBTQ+, Welsh language, socio-economic background, and geography.

This evaluation report has been shared with 2 independent peer reviewers.

Data sources

Central data tracking was not set up when the 'Reflecting Wales in Running Wales' was first launched. It was therefore difficult to map progress.

Three sources provide the current diversity baseline: CAIS 2023–24; the Commissioner’s Annual Report; and the 2025 Diversity in Public Sector Workforce and Boards Review. There is positive diversity progress on appointments made between 1st April 2024 and 31st March 2025.

Limitations and challenges

This evaluation reflects on the PAPA Committee findings and their view that the Reflecting Wales in Running Wales was not owned, delivered and prioritised by Welsh Government, and looks at why this happened so that Phase 2 of 'Reflecting Wales in Running Wales' starts its work from a more robust baseline. It will not revisit ground already covered by the PAPA Committee.

Ownership

For historical reasons, and staff pressures due to redeployment to assist with the COVID pandemic, no one was nominated to be accountable for ensuring that the 'Reflecting Wales in Running Wales' was delivered effectively. Whilst there was a clear ambition and goals, there was no resourcing plan and no timetable was developed – just a high-level expectation set by 2023.

Welsh Government has since nominated the Director of People and Places to lead on the 'Reflecting Wales in Running Wales' agenda from autumn 2024. This individual has undoubtedly changed the pace of the work, provided a strong focus and greater transparency across groups, and provided clarity and leadership across the public sector in Wales.

Timeline and milestones

The 'Reflecting Wales in Running Wales', whilst it sets out a clear ambition and goals, there were no clear timelines other than a general expectation to deliver by 2023. As stated above, no action plan was developed, and initial governance arrangements were weak. However, now there is clear accountability and ownership, a commitment to address the shortcomings as stated in the PAPA Committee report and a commitment to carry on the work and make progress by 26 May.

Governance and management structures

No formal governance structures were set up when 'Reflecting Wales in Running Wales' was launched to oversee delivery. Welsh Government have acknowledged this.

There was a lack of dedicated resource to drive the strategy forward at its inception. Pandemic disruption and loss of continuity were also key factors which impeded delivery post launch.

Strengthened governance is now in place, including commitments to publish progress updates and maintain engagement with the Office of the Commissioner for Public Appointments. There is also dedicated resourcing, with a mapped out stakeholder network across Wales.

Many of the committee’s recommendations relate to internal administrative structures. Welsh Government are acting on those recommendations which over time will deliver visible benefits for applicants and boards, whilst also actioning and influencing delivery across the public sector in Wales.

The Public Appointments team has recently appointed a dedicated member of staff has recently been appointed to oversee the work.

General feedback and perceptions

Feedback from those directly involved in the process, suggests frustration that the 'Reflecting Wales in Running Wales' initiative wasn’t delivered within the original timetable, but the commitment of existing staff members, and the clear steer on what is to be achieved by the end of this Senedd term is now clearly understood by those responsible. There is a noticeable change in pace and clear accountability.

Whilst the initiative has taken time to get started, there is now a clear commitment to the goals set out in 'Reflecting Wales in Running Wales' and there is clear progress and commitment by Public Appointments Unit and EDI policy leads. It is true to say that change in key personnel, and perhaps not enough internal/ external exposure of the initiative when it was launched in 2020, and capacity stretched due to the COVID pandemic presented challenges in getting the initiative off the ground. A recently appointed dedicated member of staff within the public bodies unit will undoubtedly be able to support and advise policy officials and provide guidance and support on public appointments and how to improve Board representation for future appointments to ensure compliance and consideration.

For the initiative around Board member appointments to work, all individual EDI initiatives need to report to one central point. This will improve focus and clearly demonstrate a commitment to inclusive boards which better reflect the communities they represent, which will in turn improve public services.

The following list is a summary of progress to date:

• A Welsh-specific version of the Governance Code on Public Appointments is being developed with Cabinet Office, ensuring it reflects devolved needs, including the Welsh language and reform ambitions.
• A senior Welsh Government official will sit on the panel to appoint the next UK Commissioner for Public Appointments.
• New public-facing webpages have recently been launched, providing clearer candidate guidance, including new materials on transferable skills and support for first-time applicants has been published on the new webpages. This is an iterative process, with further improvements and expanded content planned in the coming months.
• The new process for scrutiny of significant public appointments has been confirmed, ensuring clarity on pre-appointment hearings.
• Public Bodies Reference Group and regular meetings with partnership teams are strengthening internal collaboration.
• The Partnership Team newsletter is live, with quarterly meetings embedding engagement.
• Regular meetings organised by the Leadership & Governance team with Chief Executives and Chairs have strengthened external collaboration.
• New guidance on creating inclusive boards in practice has been developed and shared with Board Chairs. It provides practical steps for valuing talent, reducing unconscious bias in board appointments, and developing an inclusive board culture.
• Appointment of a diverse group of senior independent panel members
• training provided to around 2022-2024 future leaders, where board member information was shared and prospective applicants encouraged to contact the team to discuss any adjustments or support they might need through the recruitment process
• A stakeholder mapping exercise has been completed to inform targeted outreach activities.
• The aspiring board members programme in health is being piloted before refinement and wider roll out and job shadowing.
• A dedicated Public Appointments Outreach has been advertised, with an emphasis on EDI and reaching our target audiences, they will drive the next phase of this work
• New public webpages have recently gone live, providing clear candidate guidance and accessibility information
• Promotional films and talking head case studies will support wider engagement and participation.
• Internal tools, including intranet pages, enhanced guidance, recruitment toolkits and flowcharts will support consistent delivery. 

Progress against available data

CAIS data shows sustained and significant progress across a range of characteristics:

• 20.5% of appointees were from ethnic minority backgrounds - Compared to 6.1% Wales population average
• 61.5% of appointees were women - Surpassing the 50.1% Wales population average
• 12.8% of appointees identified as disabled, an improvement on the 6.1% figure last reported
• 5.4% identified as LGBTQ+ -Slightly below the 9.4% figure from the previous year – fluctuations may reflect self-disclosure rates.
• 25.6% had Welsh language skills at level 4 or 5 aligning with Cymraeg 2050 ambitions
• 28.5% identified as coming from a lower socio-economic background – an important indicator of broader inclusivity beyond protected characteristics.

This data demonstrates progress in improving the inclusivity of public appointments. We are particularly encouraged by the significant rise in representation from ethnic minority and disabled candidates, two key focus areas in the Anti-Racist Wales Action Plan and wider equality commitments. Welsh language capability also reflects the cultural and civic expectations of devolved governance.

Current data gathering systems do not enable post-appointment data tracking, this is a recognised limitation, and options to address it will be explored as part of future reform, subject to capacity and cost.

The RWIRW strategy extension to May 2026 provides continuity while these gaps are addressed.

The 'Reflecting Wales in Running Wales' (RWIRW) strategy has been extended to May 2026, maintaining a clear commitment to diversity and inclusion while future approach and capacity are scoped.

Whilst this report notes the progress against the original report and the progress made in relation to the PAPA Committee report, the focus will turn now on what will happen from May 2026 to ensure the good practice and momentum is not lost.

Proposed way forward

Establish a working group to oversee the work post-May 2026

The 'Reflecting Wales in Running Wales' report has undoubtedly put a spotlight on the need for greater diversity within our boards. The report considers regulated appointments, but the same principles should also apply to non-regulated public appointments.

The pace of reform has accelerated over the past 6 months. Visible improvements are already being delivered including new webpages, films, internal tools, and positive diversity trends.

Post-May 2026 it is important to maintain this momentum and build on the recent good work, and that there is a seamless transition into the next phase.

I therefore recommend the establishment of a Working Group from January 2026. The first task of the Working Group would be to oversee the transition pre/post May 2026 to ensure seamless delivery and monitoring of the 'Reflecting Wales in Running Wales' principles. These would be transferred to the working group to ensure oversight and close monitoring going forward.

The accountability for the Working Group would rest with the Director of People and Places. The group would have a cross section of representatives to ensure all EDI matters were represented by the working group. Whilst the group would focus on regulated public appointments, unregulated appointments would also come within its remit.

As the number of regulated appointments are limited, the Working Group could oversee a support programme for public appointments as well as a leadership programme to ensure a pipeline of future candidates.

The working group would report to the Welsh Government to discuss progress, and share progress with ministers, so that ministerial and Welsh Government ownership is formally recognised.

Co-creation and stakeholder engagement

To inform the next phase of 'Reflecting Wales in Running Wales', Welsh Government Public Appointment team convened a national Co-Creation Event at the Principality Stadium, Cardiff in November 2025. The event brought together over 60 delegates, including current and aspiring board members and chairs, equality and inclusion organisations, stakeholders, community leaders, public body leaders, and Welsh Government officials. Its purpose was to collaboratively identify barriers, share lived experience, and shape practical solutions to make the public appointments process more inclusive, transparent, and representative of Wales’ communities.

Although full feedback from the breakout sessions is still being analysed, early reflections indicate strong consensus around the need for clearer communication, improved accessibility, and a more transparent, user-centred recruitment process. Delegates also highlighted the importance of developing a sustainable talent pipeline, strengthening support for first-time applicants, and ensuring consistent bilingual delivery across all stages of recruitment. The findings from this event will directly inform the design of the new strategic plan to succeed 'Reflecting Wales in Running Wales' from May 2026, ensuring it is co-produced with stakeholders and grounded in evidence of what works.

Summary of key actions

• Appoint Director of People and Places as SRO to oversee the work and to be accountable for the delivery of the Reflecting Wales in Running Wales strategy
• Set up Working Group from January 2026 to ensure smooth transition post 2026 into Phase 2 and to provide a central point to provide robust governance and monitoring process going forward
• Explore options to strengthen data collection and monitoring within existing systems, while contributing to the design of the new Welsh Government ATS to ensure it meets Public Appointments requirements.
• Ensure continuity by transferring the existing RWIRW actions and recommendations to the Working Group, using these as the foundation for co-designing the next phase with stakeholders.
• Provide guidance to policy officials on inclusive recruitment principles and lessons learned from RWIRW, ensuring alignment with the new strategic approach post-May 2026.
• Build diversity and inclusion into board culture, sharing case studies and best practice on inclusive appointments through existing channels (e.g., webpages) and encourage Chairs’ networks to lead discussions on embedding diversity within board culture.
• Retain intersectionality as an ambition for future monitoring and reporting, recognising current system limitations and exploring options to incorporate this in the next phase.
• Continue to promote the new practical guide for Board Chairs that has been developed to support inclusive leadership following feedback from the Board Chairs Network, and monitor its effect, making sure the guidance is accessible and promoted by Academi Wales and partnership teams.
• Keep looking at ways to expand the pipeline for both board membership and wider leadership roles
• Continue to align with the wider ambitions of the Anti-Racist Action Plan where the ‘Leadership and Representation’ chapter sets out clear expectations for public bodies to drive cultural change through inclusive appointments

Building on the evaluation and emerging insights from the Co-Creation Event, several further actions could strengthen delivery in the next phase of 'Reflecting Wales in Running Wales':

• Development of a Welsh Public Appointments Recruitment Framework to establish clear, consistent standards and processes for all public appointments, embedding inclusivity, transparency and accountability across departments
• Introduction of a new, modern and inclusive assessment process that better recognises transferable skills, lived experience and leadership potential. This should be designed to enhance candidate experience through clearer guidance, accessible formats, and assessment methods that reflect a broader range of strengths while maintaining rigour and fairness.
• Mandatory training for all panel members and Chairs to ensure a consistent, inclusive and transparent approach to recruitment and assessment across all public appointments.
• Expansion of the Aspiring Board Members Programme beyond the health sector to include all regulated public bodies, with a broader and more representative delegate base, supporting individuals from a wide range of backgrounds, including younger people, disabled people, Welsh speakers, those from lower socio-economic backgrounds, and people from Black, Asian, Minority Ethnic and Gypsy, Roma and Traveller communities.
• Implementation of a modern Applicant Tracking System (ATS) to enable end-to-end data collection and analysis, including intersectionality, Welsh-language capability, socio-economic background, and candidate experience from application through to appointment. The system should also allow board members to securely update their details post-appointment, ensuring data remains current and reflective of serving members. In addition, it should support anonymised shortlisting, accessible design standards, and automated reporting to improve transparency, accountability, and long-term monitoring. Delivery of this action will require dedicated budget and specialist support to scope, procure, and implement the system effectively.
• Modernisation of candidate materials and packs to ensure inclusive language, accessible design, and clearer information about the recruitment process, expectations, and support available – including guidance for first-time applicants and those requiring adjustments.
• Visibility and role modelling – showcase diverse board role models through bilingual case studies, short films, and regional events to normalise and humanise board membership, helping to inspire others and raise awareness of public appointments as accessible and rewarding opportunities.
• Expand outreach and engagement to make public appointment opportunities visible, approachable, and trusted across Wales. Focus on attending regional events, building relationships with community networks, and partnering with organisations that reach underrepresented audiences. Co-design mentoring and support activities where helpful, ensuring credibility and shared ownership, with the goal of increasing participation, awareness, and confidence among new audiences.