3b. The Anti-Racism Interim Governance Group (AIGG)

The Anti-Racism Interim Governance Group (AIGG) – Overview

In response to the recommendations of the ERG and IPP a group was formed to determine how best to create the infrastructure for an anti-racism observatory for Scotland and determine collective ambition to bring about meaningful system change for those who experience racialised inequity. The Interim Governance Group (IGG) was established by Ministerial Appointment in April 2022.

AIGG Purpose

The Interim Governance Group (IGG) was established to support the Scottish Government’s review of its race equality policy and work. In the Terms of Reference, the Scottish Government stated that “work is being undertaken to design new, multi-year anti-racist work to commence in 2023”.

In part, it was formed as part of the fulfilment of the recommendations of the Expert Reference Group on COVID-19 and Ethnicity (ERG). Specifically, the recommendation to establish an independent observatory/repository(AIGG, 2022a), The group was asked to consider, gather evidence, and propose a model to support the establishment of an independent observatory.

The task was also to build awareness in communities that new anti-racism infrastructure was being developed in Scotland, and to hear from them about how the infrastructure could best work for them.

Whilst supporting the development of an observatory the IGG’s remit was wider than this.

The terms of reference(AIGG, 2022b) for the Group was to:

provide independent oversight and to hold SG accountable for progress against the actions in the Immediate Priorities Plan (IPP)
provide scrutiny and advice on the work to establish a programme of systemic change on race equality
consider, gather evidence, and propose the model to support the establishment of an independent observatory
support and advise on the transition to a permanent governance body
provide advice and feedback to Scottish Ministers

The terms of reference highlighted that the group has no statutory powers, it was stated that the IGG would offer “scrutiny of government processes and delivery will inform Scottish Ministers’ decision-making regarding the future of anti-racist policy”(AIGG, 2022b)

In the first meeting, it was stated that there was “a need to shift the culture within Scottish Government to make progress, citing that there are too many working groups often working in silo, rather than taking a joined-up approach”(AIGG, 2022a)

Group Membership

The AIGG was formed from academic experts, young people, community and organisational leaders with a specific interest in anti-racism in Scotland.

The Terms of Reference noted that “as far as possible, membership will reflect gender balance, will include those with experiences of intersecting marginalisation(s), and the realities of systemic racism and expertise in tacking it. Membership will take into account the need to ensure continuity and institutional memory. Members will be appointed on merit by the co-chairs, and will focus on individuals having extensive knowledge and/or experience of policy making in Scotland, design and implementation of policy/systems. Membership categories will also need to include: community members and grassroots organisations, young people, scrutiny and governance expertise, expertise in gathering and using inequality data expertise/leadership from the public, private and third sector.

Change of Name

Following the recommendation of a guest expert Professor Camara Jones, the IGG changed its name to become the Anti-Racism Interim Governance Group (AIGG).

The Scottish Government on the recommendation of the AIGG has started to use the term ‘antiracism’ instead of ‘anti-racist’. The AIGG advocates for the Scottish Government to be “anti-racism” instead of “anti-racist” since the problem is systemic and not about individual people. It is also not sufficient to simply be “anti-racist” – we all must be actively working against racism as the issue. Therefore, explicitly foregrounding the naming of racism is of fundamental importance when progressing anti-racism work (Scottish Government and CRER, 2023).

Summary of work

Between April 2022 and Sept 2023, 12 formal AIGG meetings were held. During this time, the AIGG produced several documents which articulated their thinking around the development of the Anti-Racism Observatory for Scotland and Scotland’s processes and systems for accountability on anti-racism and equality work.

AIGG Working Groups & Workshops The following hybrid workshops were held:

Workshop 1: Nov 2022, Glasgow.
Workshop 2: May 2023, Glasgow.
Workshop 3: May 2023, Edinburgh.

Experts

The terms of reference highlighted that the group had the “authority to commission research, reach out to other experts as needed”(AIGG, 2022b)

Over the period of work, various individuals and organisations were asked to attend meetings to share their expertise and experience. Notably the AIGG worked with:

MacRoberts LLP: Robin Fallas and Chris Murphy. Attended several meetings to provide advice regarding infrastructure modelling options.
Professor Camara Jones: international anti racism expert from Leverhulme Visiting Professor in the Department of Global Health & Social Medicine. Attended a one-day workshop in December 2022 to support the development of AIGG expertise in relation to data and data systems, racialisation and anti-racism.
NHS Race & Health Observatory: meeting with Marie Gabriel CBE, Chair, and Dr Habib Naqvi, Chief Executive, July 2022, to discuss Observatory modelling and infrastructure.
The Promise Scotland: Fiona Duncan, Chair, attended the May 2022 AIGG meeting to provide an overview of the Promise Scotland.
Welsh Government: Riaz Hassan, Head of Anti-Racist Wales Action Plan (ARWAP) Implementation Team, attended April 2022 formal AIGG meeting to present the ARWAP and outline Welsh Government approach to accountability.
Professor Kevin Fenton: Regional Director for London in the Office for Health Improvement and Disparities (OHID) within the Department of Health and Social Care (DHSC). Attended a series of meetings with the AIGG Co-Chairs in relation to establishing national infrastructure

Work on Accountability & Oversight

“Measuring the impact of these frameworks or indeed undertaking any analysis of outcomes by ethnic group is undermined by the long-noted and pervasive lack of data collection, analysis, disaggregation and publication. The Evidence Finder and Equality Data Improvement Programme both aim to address some of these data challenges, although stakeholders have encouraged the Scottish Government to be more committed on the use of data to inform policy” (Scottish Human Rights Committee (SHRC), 2024)

The AIGG was asked by Scottish Government to determine and agree the required National Anti-Racism Accountability and Oversight infrastructure for Scotland. A primary function of the AIGG was to explore accountability process in relation to anti-racism in Scotland, specifically to reflect upon and to track the work of the implementation of the IPP.

The AIGG members reviewed the accountability processes in place for tracking and monitoring the IPP recommendations and created an alternative accountability mechanism which was supported through a series of online survey questions which asked questioned related to delivery, resourcing, partnerships, skills, and prioritisation. These questions were distributed across Scottish Government directorates who are involved in responding to the visions and goals of the Expert Reference Group on COVID recommendations which became embedded into an Immediate Priorities Plan 2021- 23.

Responses to this form assisted the AIGG to offer feeding back to Ministers in the document Contributing to systemic change through building anti-racism into reporting and accountability mechanisms: a review of process within Scottish Government

Anti-Racism Interim Governance Group (AIGG) – Timeline

Anti-Racism Interim Governance Group (AIGG) – Publications & Resources

Anti-Racism Interim Governance Group (AIGG) – Links

Anti-Racism Interim Governance Group (AIGG) – Summary of Minutes

AIGG – Summary of Minutes

Link	Description
2022/04: Interim Governance Group Minutes, April 2022	The group discussed concerns about limited accountability, the gap between policy and delivery of anti-racist action, and the need for cultural change within the Scottish Government, highlighting that too many working groups operate in silos. Members debated terminology, identified contradictions in the Terms of Reference (ToR), and agreed that Co-chairs would review and amend the ToR for sign-off at the next meeting. They also agreed to submit accountability questions on the Immediate Priorities Plan to Senior Civil Servants, requesting responses within four weeks. The OECD Anti-Racism Review item was deferred, and Co-chairs recommended that the group’s resourcing and status be aligned with The Promise. Future presentations from the Keeping the Promise division may be arranged if useful.
2022/05: Interim Governance Group Minutes: May 2022	The meeting highlighted the Co-Chairs’ recommendation that the group’s resourcing and status should be on par with The Promise, with accountability questions and updated terms of reference to be circulated for feedback. Key issues included the lack of quality disaggregated ethnicity data, which hinders systemic change, and discussions on how the observatory could drive accountability by mirroring The Promise and challenging the status quo. An overview of The Promise’s accountability structure, remit, budget, and governance was provided, alongside consideration of further engagement with The Promise to explore challenges in addressing systemic issues. The OECD Anti-Racism Review report was noted, with a workshop to follow for discussion on next steps. Immediate priorities include developing a thematic reporting mechanism led by named civil servant action owners, with proposals to the Permanent Secretary for endorsement, and the sharing of reporting papers and accountability questions for group input. The Co-Chairs also expressed the need for a new reporting mechanism to engage with senior civil servants by September 2022, while resourcing and funding for governance structures remain under discussion with the Scottish Government.
2022/07: Interim Governance Group Minutes, July 2022	The group welcomed the Safeguarding Paper with positive feedback and confirmed that a young person, supported by Intercultural Youth Scotland, will join in August. The terms of reference were formally agreed, and initial discussions on the anti-racist infrastructure scoping paper showed broad support for its principles. Accountability questions were debated, with concerns raised over their length, and it was agreed that a pilot phase should be tested in an accessible online format. Intersectionality and lived experience were highlighted as essential areas for inclusion, and a workshop with civil servants leading Immediate Priorities Plan (IPP) actions will be organised before the questions are issued. To ensure civil service engagement, the group recommended a joint cover note from the Permanent Secretary and Co-Chairs. Additionally, qualitative interviews with civil servants may be explored to supplement reporting. Community perspectives were emphasised as needing to be led by minority ethnic groups, underpinned by principles of compensation, meaningful engagement, trust, and system-focused change. The group also discussed the design of an external body, stressing the importance of communication, dissemination, engagement, and a strong online presence to build narrative and credibility. Consideration was given to phased development across one, three, and five years, with systematic change and the new Race Equality Action Plan (2023 onwards) identified as future agenda items. A series of actions were agreed, including circulation of accountability questions for feedback by 3 August 2022, nomination of three civil servants to work with Co-Chairs on piloting the questions, and arrangements for a pre-workshop with civil servants before issuing them. The Secretariat will also coordinate with the Permanent Secretary on a joint cover note, distribute final terms of reference, and share an online document for group members to provide feedback on observatory modelling. Group members are expected to return feedback on both accountability questions and observatory modelling, while also exploring the potential of qualitative interviews as a complementary reporting method.
2022/08: Interim Governance Group Minutes, August 2022	MacRoberts LLP presented three potential observatory structure models, with group members expressing a preference for a model that ensures independence from government and allows for strong community-led scrutiny. The group requested further clarification on the roles and functions of members versus the board, as well as detailed governance comparisons between The Promise (option one) and an option three organisation, including the extent of Scottish Government Ministers’ involvement in decision-making. An appraisal of these options will follow, supported by a short life working group. The sequencing of Ministerial meetings was outlined, with group members expected to participate, and actions were agreed to circulate MacRoberts’ slides and governance summaries. Accessibility considerations such as entry-level roles, internships, and apprenticeships were highlighted as important for the observatory’s development. The group also discussed revisions to the accountability questions, including ensuring geographic representation of lived experience and correcting a scoring scale error. The final version will be circulated in line with ministerial code, with members asked to provide feedback. An update on the Immediate Priorities Plan (IPP) was shared, with the improved quarter four report (May–July 2022) to be used as a live case study on reporting and recommendations, and further discussion scheduled for the next meeting. A Public Sector Equality Duty (PSED) evaluation example, based on the Scottish Child Payment Equality Impact Assessment, was shared to guide future work. To progress these actions, a schedule of short life working group and informal meetings will be set up, giving members additional opportunities to contribute to the development of observatory structures and accountability processes.
2022/10: Interim Governance Group Minutes: October 2022	The meeting covered a range of updates and discussions across several workstreams. Intercultural Youth Scotland (IYS) presented feedback from the youth panel on observatory modelling, stressing the importance of genuine accountability through an independent board. Updates were provided on various short life working groups (SLWGs), including community research, accountability questions, and the Immediate Priorities Plan (IPP). The community research group outlined its approach, workplan, and timescales, with a final report expected in February 2022, while the accountability questions group shared its finalized questions and guidance, due to be issued shortly for civil servant responses. The IPP group confirmed the next quarterly report would be delayed to avoid confusion with the accountability questions release. Co-Chairs emphasized the value of informal discussions to date and encouraged members to engage in at least one or two working groups, depending on capacity. Further discussion focused on strategic issues, including ensuring the revised scoping paper explicitly references the observatory and clearly links it to Scottish Government anti-racist policy. Concerns were raised about resourcing for community engagement, with group members stressing that adequate support is essential to avoid reputational risks. The Co-Chairs have been in dialogue with Scottish Government officials and ministers to secure clarity on resources and have requested a meeting with the First Minister. Cricket Scotland was cited as an example of how an observatory could function as a hub of expertise and accountability in tackling institutional racism. The IPP "top ten" priorities were also outlined, though it was noted that feedback often lacked detail and intersectional considerations. Actions agreed included: updating a group member’s role/title in records; circulating IYS and IPP slides; tracking group member interest in SLWGs; issuing accountability questions with a four-week deadline; and ensuring the scoping paper revisions reflect group feedback, particularly around the inclusion of the term "observatory."
2022/11: Anti-Racism Interim Governance Group Minutes, November 2022	At the meeting, members reviewed previous actions using a visual tracker, which were agreed by the group. Co-Chairs encouraged wider participation in working groups, while acknowledging the heavy volume of requests. A significant discussion centred on the need for resourcing and long-term strategic buy-in, with multi-year funding highlighted as crucial for safeguarding relationships and credibility. It was noted that a draft letter from Ms McKelvie and Ms Robison is being prepared, with final details dependent on budget allocations across Ministerial Portfolios. Transparency in decision-making and funding processes was emphasised. Updates were provided on the Infrastructure and Modelling SLWG, where the lack of visible community input in the OECD report was raised, alongside the need for greater knowledge of models to allocate resources effectively. The SCADR public panel will be invited to a pre-data meeting on 6 December, ahead of discussions with Professor Camara Jones later that week. These sessions will include community researchers, AIGG members, and wider data experts, with hybrid formats planned. Intercultural Youth Scotland requested that some meetings be recorded or held in the evenings to accommodate young people’s schedules. The Community Research SLWG presented its participatory approach, which includes accessible materials, multilingual translations, community surveys, town hall events, and a Community Participatory Action Group. Timelines for achieving research outcomes by February 2023 were discussed, with translation costs flagged as a necessary budget consideration. From the Government’s perspective, the AIGG must clearly document resourcing options explored. A Glasgow/hybrid workshop on 30 November was confirmed, with members encouraged to attend in person. Agreed actions included updating group membership details, inviting the SCADR panel to the pre-data meeting, coordinating attendance preferences for Professor Jones’ sessions, clarifying recording permissions, and confirming translation costs for surveys. Deadlines were set for group members to respond to Secretariat by 25 November and for final meeting arrangements to be confirmed with Glasgow University by 28 November.
2022/12: AIGG – Meeting with data experts, including Professor Camara Jones
2023/01: Anti-Racism Interim Governance Group Minutes, January 2023	The meeting reviewed previous actions, presented in a visual tracker format and verbally agreed. The Community Research Short Life Working Group (SLWG) shared updates on their research, confirming ethics approval and explaining the use of a Community Participation Action Group (CPAG) to analyse survey responses. MacRoberts LLP outlined earlier modelling information, including different accountability and governance structures, advising that the “Promise” model offered the greatest independence. Members requested more detail on Observatory modelling, leading to the proposal of a ‘Promise Plus’ model, which MacRoberts will review once the group provides a list of points and questions. A hybrid/Edinburgh workshop scheduled for 6 February will focus on developing the Observatory’s first year and legal framework, with members encouraged to attend in person where possible. Feedback from Intercultural Youth Scotland highlighted the need for Observatory structures to remain accessible and community-focused. A discussion followed on CPAG composition, referencing the Terms of Reference, with a proposal to create a glossary of terminology to support the community research approach. Community researchers emphasised the importance of this and suggested a separate SLWG meeting to explore the issues further. It was agreed that the February workshop could also provide space for deeper discussion. Key actions include preparing a bulleted list of model elements for MacRoberts, issuing workshop details, and setting up the additional community research meeting.
2023/02: Anti-Racism Interim Governance Group Minutes, February 2023	The meeting opened with a review of previous actions and updates on community research. An informational video and flyer were shared, with group members providing feedback on accessibility, design, and language, including a request to add ‘Anti-Racism Observatory’ to the heading. The Secretariat will gather comments and circulate them to both members and researchers, with further feedback to be sent directly to the AIGG researchers. Once finalised, the materials will be shared with the wider community, and responses will be analysed through a working group. Intercultural Youth Scotland (IYS) requested an update from community researchers on the recent CPAG meeting, with Co-Chairs agreeing to follow this up. The Scottish Government also provided an overview of future Race Equality Policy work linked to the Immediate Priorities Plan (IPP) and Race Equality Framework (REF), noting the need to separate these actions. Members stressed the importance of transparency on accountability mechanisms and community engagement before publication, and it was suggested that skilled facilitation should support engagement activities. Looking ahead, members discussed the scheduling of multiple meetings to shape the Observatory model, review accountability responses, and deepen understanding of the IPP. Co-Chairs stressed the importance of ongoing member engagement through May, while IYS highlighted the need for accessible timings for young people’s participation. The group then considered Observatory modelling options, reflecting on the pros and cons of each approach. Members noted that the legal information from MacRoberts was difficult to interpret, and IYS are working to translate it into accessible language. It was agreed to formally request MacRoberts to provide a simplified version and to hold an online elimination meeting with AIGG members to narrow down the options. A visioning document has also been drafted and will be shared shortly. Next steps include finalising meeting schedules, issuing a Doodle poll for availability, and setting up an interim AIGG meeting, with Co-Chairs and the Secretariat coordinating follow-up actions.
2023/04: Anti-Racism Interim Governance Group Minutes, April 2023	The Welsh Government provided an overview of the Anti-Racist Wales Action Plan (ARWAP), outlining the challenges in its development, including community trust deficits, resource concerns, and the need to address systemic and institutional racism. The plan was co-designed with communities through consultation grants, mentors, and roundtables, and is supported by several governance structures: the External Accountability Group (with lived experience and expert representatives), an Internal Support and Challenge Group, the Race Disparity Unit, and a bi-monthly Race Forum. High-level political commitment was highlighted, with the First Minister and Minister for Social Justice prioritising ARWAP and meeting regularly with accountability groups. The AIGG were invited to review ARWAP appendices containing Terms of Reference for accountability structures, with further detail available on sanctions and escalation processes. The AIGG commended the Welsh Government’s approach and agreed to pursue formal engagement between the Welsh and Scottish Governments at Ministerial and official levels to share best practice on accountability. Updates were also given on AIGG’s next steps, including two consolidation workshops and ongoing accountability reporting. The Co-Chairs reported on planned meetings with the Scottish Minister for Equalities, Migration and Refugees, and highlighted the First Minister’s recent policy prospectus now referring to the ‘Anti-Racism Observatory for Scotland.’ Scottish Government officials confirmed plans for a Race Equality Conference, stressing the importance of community input and collaborative policy development. The group noted the need for skilled facilitation and inclusive event design, while Co-Chairs confirmed they would engage with SG officials on conference planning. The meeting concluded with thanks to members and confirmation that the accountability report would be completed by the end of May.
2023/05: Anti-Racism Interim Governance Group Minutes, May 2023	Here’s a concise two-paragraph summary of your text: — Officials discussed the next steps following the Immediate Priorities Plan (IPP), including the renaming of the Race Equality team to the Strategic Anti-Racism Team, which was welcomed by the group. Questions were raised about community participation in upcoming publications, with officials acknowledging that co-production is crucial for anti-racism work, though current expertise is limited. Updates were provided on the Anti-Racism Interim Governance Group (AIGG), including progress in community-led research and the need for further input from AIGG members. Discussions also covered accountability reporting, the establishment of an Anti-Racism Observatory, and potential challenges such as increased scrutiny and demands on government resources. The co-chairs provided updates on board member recruitment for the Anti-Racism Observatory, engagement with the Deputy Director of Equalities, and proposals to extend AIGG by three months with a September launch. Appreciation was expressed for the contributions of members, including the Young Persons Panel, and plans were made to explore continued engagement opportunities. Key actions include considering community input for IPP reporting, providing additional input to community researchers, sharing a refined Anti-Racism Observatory vision, confirming member availability for the extended AIGG term, and scheduling additional meetings over the next three months.
2023/06: Anti-Racism Interim Governance Group Minutes, June 2023	Here’s a clear two-paragraph summary of your text: — The Co-Chairs highlighted an upcoming meeting with the Minister to discuss the Anti-Racism Observatory for Scotland (AROS), with group members to be updated afterward. They also outlined plans for the accountability paper, requesting feedback from members once it is shared. Discussions included the vision and mission for AROS, emphasizing the importance of evidencing impact and outcomes. The process for board recruitment was reviewed, with the group agreeing on an open and transparent approach. Co-Chairs will draft a job specification, timeline, and application process for feedback, after which a Short Life Working Group (SLWG) will support wider board recruitment. Preparations for the AROS launch over the summer were also discussed, including reviewing a draft research report from community researchers and finalizing vision, mission, and structural documents. Group members will be invited to provide input on the launch planning and participate in ongoing development activities.
2023/08/09: Anti-Racism Interim Governance Group Minutes, 09 August 2023	Here’s a concise two-paragraph summary: — The Co-Chairs reported that group member feedback has been incorporated into the final accountability report, which will be shared with Scottish Government officials and the Minister for Equalities, Migration and Refugees early next week. The completed community research report will also be circulated to group members for feedback prior to publication. A query was raised regarding an overspend on the community research, which the Co-Chairs will discuss further with the Scottish Government. Appreciation was formally expressed to the community researchers for their contributions. Regarding the operationalisation of the Anti-Racism Observatory for Scotland (AROS), the Co-Chairs provided updates on ongoing modelling discussions and recent feedback on proposed options. The group agreed it would be helpful to explore procurement feasibility as part of next steps. A feedback event is being considered to focus on learning, reflection, and expectations for AROS. Actions moving forward include sharing the community research report for member feedback, clarifying overspend issues with Scottish Government officials, and seeking guidance on procurement considerations.
2023/08/30: Anti-Racism Interim Governance Group Minutes, 30 August 2023	Here’s a two-paragraph summary of your text: — The final accountability report will be shared within the next two weeks with senior officials, including Louise Macdonald, Alison Byrne, and Minister Emma Roddick. The Co-Chairs emphasized that the report should be made public and referenced in the procurement specification for the Anti-Racism Observatory for Scotland (AROS). An interim procurement group will be established to use AIGG knowledge to help develop the specification. A robust procurement process is being planned to identify a suitable organisation to host AROS, with timelines and requirements to be shared with Co-Chairs and AIGG members, ensuring outputs from the AIGG are fully considered. Updates on community research noted that feedback from group members has informed the development of policy briefings and an executive summary. Suggestions included improving accessibility, analysis, and providing separate briefings for communities and policymakers, with all final documents to be publicly available. Co-Chairs will seek additional resourcing from Scottish Government to support this work. Opportunities to link the AROS launch with Canadian anti-racism initiatives were also highlighted. Moving forward, Co-Chairs will send a recommendation letter to the Minister to request continued external advisory support for the observatory’s launch, while further AIGG meetings are planned to support these next steps.
2023/09: Anti-Racism Interim Governance Group Minutes, September 2023	Here’s a two-paragraph summary of your text: — The accountability report has been sent to senior Scottish Government officials and the Minister for Equalities, Migration and Refugees, with full copies, along with an executive summary, policy briefing, and community briefing, to be shared with AIGG members and published online. A review paper mapping institutional memory will also be circulated for member comment, outlining past work and next steps. The Minister has been invited to a community-led AIGG event in Glasgow in November 2023, where the commitment to anti-racism and AROS will be acknowledged. Co-Chairs thanked all group members, the youth panel, community members, and researchers for their contributions, noting this was the final AIGG meeting. Regarding the interim design and establishment of the Anti-Racism Observatory for Scotland (AROS), Co-Chairs confirmed separate funding and outlined a 6–9 month procurement process to identify a host organisation. Interim support will be provided by two Scottish Government staff, with Professor Jackson leading a small design team and Talat Yaqoob chairing an advisory group. An interim design group may include up to four AIGG members, with reserved places for grassroots organisations. Members were invited to express interest in joining the group and share relevant external contacts. Once a host organisation is appointed, all roles will follow usual application processes, with safeguards in place to avoid conflicts of interest.

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3b. The Anti-Racism Interim Governance Group (AIGG)

The Anti-Racism Interim Governance Group (AIGG) – Overview

AIGG Purpose

Group Membership

Change of Name

Summary of work

Experts

Work on Accountability & Oversight

Anti-Racism Interim Governance Group (AIGG) – Timeline

Anti-Racism Interim Governance Group (AIGG) – Publications & Resources

Anti-Racism Interim Governance Group (AIGG) – Links

Anti-Racism Interim Governance Group (AIGG) – Summary of Minutes

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