United Nations Development Programme

Measuring Peace, Justice and

Inclusion

UNDP Oslo Governance Centre – SDG 16 Policy Brief

Advancing Inclusive Decision-Making for

Sustainable Development: Representation
in the Public Ser vice through SDG 16.7.1b
This brief focuses on how to promote the inclusion and participation of marginalized groups in
public institutions through SDG indicator 16.7.1b that measures representation in the public service.
The Covid-19 pandemic has further reinforced the need to ensure representation in public service
(health, education, police, administrative personnel), not only as an end in itself but to ensure more
effective delivery of services and to regenerate trust in public institutions, reaching the furthest
behind first. Using data to understand better who is able to participate in decision-making processes
and who is excluded is a first step in addressing some of the structural inequalities that persist across
different development contexts.

Representation in public service monitoring framework of the 2030 Agenda for

Sustainable Development and Member States
Promoting inclusive representation in the public encouraged to report on it.1
service is a first step towards achieving more
participatory decision-making processes and Promoting meaningful participation of women,
more inclusive and accessible public youth and excluded groups in decision-making
institutions. Recognizing that representation in processes is also critical to sustaining peace. As
the public service can reflect progress towards part of prevention and peacebuilding efforts,
more inclusive and sustainable development, institutional reforms that address structural
indicator 16.7.1b was adopted as part of the inequalities and promote inclusive governance are
necessary to address factors that can fuel conflict,
 UNDP Oslo Governance Centre

such as exclusion of particular groups from service must necessarily go beyond passive
decision-making processes, including participation representation to active representation.3 More
in the public service.2 inclusive policy outcomes are achieved through
active representation as priorities of different
In addition, the right to participate in public
communities are better articulated and services are
affairs is guaranteed by multiple international
delivered in a more inclusive and responsive
normative frameworks such as Article 21 of the
manner. 4
Universal Declaration of Human Rights, Article 25
of the International Covenant on Civil and Political Additionally, representation in the public service
Rights and other international treaties focusing on needs to be looked at from a lens of
the rights of particular groups (women, minorities, intersectionality, recognizing the multiple
persons with disabilities). (See Box 1) structural barriers people face in participating
in public life, which needs to be factored into
However, while symbolic representation can in
understanding why some groups (indigenous
itself have beneficial outcomes in terms of
women, for example) may be less well represented
inclusion, meaningful representation in public
in the public service than others.

Box 1. Key international standards on the right to participate in public affairs

Universal Declaration of Human Rights (Art. 2) - “Everyone has the right to equal access to public service in his
country”.

International Covenant on Civil and Political Rights (Art. 25) – “Every citizen shall have the right and the opportunity,
without any of the distinctions and without unreasonable restrictions … c) to have access, on general terms of equality,
to public service in his country”.

Convention on the Elimination of All Forms of Discrimination against Women (Art. 7) – “State Parties shall take
all appropriate measures to eliminate discrimination against women in the political and public life of the country and,
in particular, shall ensure to women, on equal terms with men, the right: … b) to participate in the formulation of
government policy and the implementation thereof and to hold public office and perform all public functions at all
levels of government”.

Convention on the Elimination of All Forms of Racial Discrimination (Art. 5) –“State parties undertake to …
guarantee the right of everyone, without distinction as to race, color, or national or ethnic origin, to equality before the
law, notably in the enjoyment of … (c) Political rights, in particular the right to participate in elections-to vote and to
stand for election-on the basis of universal and equal suffrage, to take part in the Government as well as in the conduct
of public affairs at any level and to have equal access to public service”.

Convention on the Rights of Persons with Disabilities (Art. 29) – “State parties shall … promote actively an
environment in which persons with disabilities can effectively and fully participate in the conduct of public affairs, without
discrimination and on an equal basis with others, and encourage their participation in public affairs.”

Declaration on the Rights of Persons Belonging to National or Ethnic, Religious and Linguistic Minorities (Art.
2) – “Persons belonging to minorities have the right to participate effectively in decisions on the national and, where
appropriate, regional level concerning the minority to which they belong or the regions in which they live, in a manner
not incompatible with national legislation”.

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Understanding which population groups make up

the public service (and who is excluded) is Box 2. Empirical studies on the benefits of
important to understand who is influencing building a representative public service
public decision-making and policy outcomes, Public sector
which, in turn reflects how power is being • Increasing women’s participation as elected officials
and in the public service at the municipal level in Brazil
exercised.
led to the adoption of more women-friendly policies
Evidence shows that promoting representative and public services for women.
public service can help improve the reach and Police personnel
effectiveness of services for a broader • Female victims of sex crimes in the United States are
population, reaching previously excluded more willing to report those crimes to women police
groups.5 Empirical evidence6 further suggests that officers.
• Increasing the representation of ethnic minorities in
representation of different groups in the public
the police in England and Wales resulted in less
service can strengthen confidence and trust in biased and fairer interactions with minority
government7 and increase people’s willingness populations, leading to a decrease in complaints
to participate and contribute to policy making. against the police.
(See Box 2) Education personnel
• Increasing the representation of female teachers in
A more representative public service can:8
Ghana is positively associated with the performance
• Increase the performance and innovation of of girls on math and science exit exams.
the public service by building on the diverse • Having female teachers in schools in India led to
better academic outcomes of female students.
knowledge, competencies and experiences of
• Increasing the proportion of minority teachers in the
its workforce. United States increased minority students’ pass rates
• Improve service delivery through better on state exams.
understanding and addressing the needs of
Front desk administrative personnel
different groups in policy making. • Gender matching between young job seekers and job
• Serve as a source of employment for different counselors in Denmark’s unemployment programme
population groups. had a more successful outcome.
• Provide a channel participate in decision- Healthcare personnel
making and exercise leadership in policy • Increasing the representation of minority healthcare
making, particularly for marginalized professionals in the United States has led to an
populations. increase in use of preventative health services by
members of the group, contributing to a reduction in
cardiovascular mortality rates for the population
group.
Measuring representation in the Sources: J. A. Grissom, E. C. Kern, L. A. Rodriguez, "TheRepresentative

public service Bureaucracy in Education” (2015); N. M. Riccucci, G. V. Ryzin,

“Representative Bureaucracy: A Lever to Enhance Social Equity,
Coproduction, and Democracy” (2016); S. Park, J. Liang, “A Comparative
The 2030 Agenda for Sustainable Development Study of Gender Representation and Social Outcomes” (2019), Guul, T.S, The
Individual‐Level Effect of Gender Matching in Representative Bureaucracy
recognizes that responsive, inclusive, (2018), Dhillon A., K. J. Meier, “Representative bureaucracy in challenging
participatory and representative decision- environments” (2020), Meier KJ, Funk KD. “Women and Public
Administration in a Comparative Perspective: The Case of Representation in
making at all levels (SDG target 16.7) is necessary Brazilian Local Governments” (2017); M. Alsan, O. Garrick, G. Graziani “Does
to achieve more peaceful, just and inclusive Diversity Matter for Health? Experimental Evidence from Oakland” (2018)

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societies. Indicator 16.7.1 aims to measure related to social benefits, taxation, IDs and
progress towards this target by examining licenses). (See Box 3)
representation of different population groups in
The piloting of this methodology in 13 countriesi
three areas of public life: a) parliaments, b) public
in 2018/2019 confirmed its applicability across
service and c) the judiciary. SDG 16.7.1b focuses
diverse development contexts:
specifically on representative and participatory
decision-making in the public service. A globally
accepted methodology to measure representation
in the public service was adopted in March 2020, Box 3. Disaggregation of public service
and States are encouraged to start collecting positions
data and reporting on this indicator in 2021.
SDG 16.7.1b requires public service data to be
SDG 16.7.1b examines the extent to which women, disaggregated by:
youth, persons with disabilities and other 1. Administrative level: central and sub-central
nationally relevant population groups are level
represented in the public service, compared with 2. Demographic characteristics:
• Sex (male; female)
the proportion of those groups in the general
• Age group (below 35 years; 35-44; 45-54; 55-
population. Specifically, the indicator measures: 64; 65 and above)
• Public service employees - Career civil • Disability status (disability; no disability)
• Population subgroup (country-specific)
service employees (appointed/elected
3. Occupational categories (based on the
positions are excluded). International Standard Classification of
• At multiple levels of government - Occupations, ISCO-08):
Government agencies at both central and • Four occupational categories in the public
sub-central level (i.e. local government units service:
are excluded). o Managers (ISCO-08 Major Group 1),
o Professionals (ISCO-08 Major Group 2),
• Across decision-making levels - Across four
o Technicians and Associate Professionals
occupational categories (from managers to (ISCO-08 Major Group 3)
clerical workers) – also called decision-making o Clerical Support Workers (ISCO-08 Major
levels in the broader literature on Group 4)
representation. • Four occupational categories of frontline
• On several occupational categories – A service workers:
o Police personnel
focus on four categories of public sector
o Education personnel
employees on the frontline of service delivery,
o Health personnel
directly interacting with the general public, o Front desk administrative personnel (e.g.
namely police personnel, health personnel, social benefits, taxation, IDs, licenses)
education personnel and front desk
administrative personnel (handling services Source: SDG Indicators Metadata Repository

Egypt, Fiji, Georgia, Germany, Ghana, Indonesia, Jamaica,

i

Macedonia, Malaysia, Mauritius, New Zealand, South Africa, Tunisia.

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• National classifications of public sector Understanding the gaps and putting in place
employee could be easily transposed to the measures to reduce disparities between groups,
ISCO-based classificationii used by 16.7.1b, for example, by promoting the active participation
enabling the collection of internationally of women and disadvantaged groups in policy
comparable data. making, can also complement or contribute to
• In addition to sex, age and disability status, progress on several other SDG Indicators. (See
data on representation in public Table 1)
institutions could also be disaggregated by
nationally relevant population groups (e.g.
racial or ethnic groups, sexual minorities, etc.).
• The necessary data could be obtained from
available administrative records maintained
by Human Resource Information Systems
(HRIS).iii

Collecting disaggregated data on the public

service (e.g. by agency, by decision-making level,
or by national population group) can be done by
combining personnel data with other
administrative databases or with employee
survey data.

This data can be used not only for reporting on

progress on SDG 16, but also as part of reporting
Data availability on representation in
to international human rights mechanisms,
particularly on the realization of the right to the public service
participate in public life. General Recommendation Administrative records are the main data
No. 23 adopted by the UN Committee on the source for monitoring representation of relevant
Elimination of Discrimination against Women groups in the public service workforce.
(CEDAW), for example, provides that states parties
should include in their reporting statistical data, In most countries, these records are maintained
disaggregated by sex, showing the percentage of by a public service commission or a similar
women relative to men who enjoy the right to entity administering a centralized registry of
participate in public life, including to hold public public sector employees at national level. At the
office and perform public functions (Article 7).9 sub-national level, the Ministry of Local

ii
The International Standard Classification of Occupations 2008 (ISCO- used to facilitate the management of human resources (HR). It
08) provides a system for classifying and aggregating occupational combines a number of necessary HR functions, such as storing
information obtained by means of statistical censuses and surveys, as employee data, managing payroll, recruitment, benefits
well as from administrative records. administration, time and attendance, employee performance
iii
A Human Resource Information System (HRIS), also known as a management, and tracking competency and training records.
Human Resource Management System (HRMS), is a form of software
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Government or Ministry of Municipal Affairs, may within the police service commissions or the
be responsible for maintaining a similar registry. Ministry of Interior, who manage centralized
human resources databases on police personnel.

Box 4. International databases on public It should be noted that personnel data being
service employment reported on needs to be carefully handled. Access
to databases that contain personal identities
Gen-PaCS Dataset (Gender Parity in the Civil Service) should be regulated by the statistical legal
(partnership between UNDP and the University of
framework to ensure the right to privacy and
Pittsburgh, Gender Inequality Research Lab) - A global
dataset of publicly available statistics on gender prevent the misuse of potentially sensitive
equality in public administration in 167 countries data. Data must be managed in line with the
between 1951-2020. It contains information on public human rights-based approach to data and the
administration employment and wage gaps. The
fundamental principal of official statistics to
dataset will be available in 2021.
uphold confidentiality and data privacy.
ILOSTAT (ILO) - Collects statistics on labor-related
topics in 150 countries. It includes statistics on all While some global databases compile data on the
persons directly employed by the government sector public service disaggregated by sex and age
and publicly owned resident enterprises. Data available groups, internationally comparable statistics
since 2010.
aligned with the newly adopted methodology
Gender Statistics Database (EIGE) – Collects statistics for SDG 16.7.1b are not yet available. (See Box 4)
on the representation of men and women in decision-
making positions across various domains, including the
Some of the main challenges in compiling and
public administration. It includes data on 27 EU reporting on SDG 16.7.1b includes the following:
member states, the UK, EEA countries and EU
candidates/potential candidates. Data available since • Data on public employees are not always
2003. systematically collected or collected in a
manner that enables the production of
Worldwide Bureaucracy Indicators (WB) – This is a
statistics.
new cross-national database on public sector
employment. It provides data on the general • There is no international standard for the
characteristics (sex, age, education, location), wages collection, archiving, processing, and
and occupation of public sector employees. Data covers analysis of public service data by a human
132 countries and is available since 2000.
resource information system.
OECD.Stat (OECD) - Disseminates statistics on the • Discrepancies exist in the way each country
representation of women in government since 2007. It defines the scope of its public
provides data across four occupational groups, part- administration, and the degree to which it is
time vs. full-time positions, and age groups. The
database mostly covers OECD countries, the Western
centralized.
Balkans, Latin American and Southeast Asian countries. • The International Standard Classification of
Occupations (ISCO-08) has not been fully
In some settings, individual ministries and implemented globallyiv and there is
agencies maintain their own registry, such as significant variation in the way national

iv
In the countries that ISCO-08 has not been implemented it is
recommended to use the definitions provided by the classification to
aggregate the national classification into the defined groups.
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institutions classify public service positions,

sometimes even in the same country. Box 5. Strengthening the production of
• While a majority of countries collect data on statistics on public service in Bangladesh
the overall representation of women or of
various age groups in the public service as a The 2013 Statistics Act states that the Bangladesh
Bureau of Statistics (BBS) shall generate, store,
whole, further disaggregated data by
publish, and authenticate the quality of official
ministry or by decision-making level is statistics produced by national agencies. In 2017,
often not readily available. Bangladesh launched the SDGs Tracker platform to
• The availability of data on the representation monitor the implementation of SDGs. While
government agencies have identified appropriate
of persons with disabilities, indigenous
data sources for each SDG indicator, including
peoples, ethnic or other nationally relevant relevant official administrative sources, BBS
population groups in the public service is administers the platform and is responsible for
limited. authenticating data provided by focal points from
more than 150 public agencies. Before publishing
Official reporting on SDG indicator 16.7.1b is data on the platform, it is authenticated by the
expected to start from mid-2021 and will proceed Technical Working Committee chaired by the
Director General of BBS. To further ensure good
in three steps: quality, timely generation and disaggregation of data
on SDG indicators, in 2020, the BBS prepared an
1. Compile disaggregated data - National
‘Action Plan and Methodological Guidelines’ for SDG
institutions will need to compile indicators. These guidelines are fully aligned with the
disaggregated data as requested by the SDG Indicators Metadata repository, but they also
16.7.1b methodology (by administrative level, consider the national context and the specificities of
the national statistical system.
demographic characteristics, decision-making
level and categories of frontline service For SDG 16.7.1b, these Guidelines specify data
workers). sources, relevant classifications, computation
2. Compute proportions of different procedures, data delivery deadlines and minimum
disaggregation dimensions, which include sex
populations groups across different levels –
(female, male), disability (with a disability, without
It will be necessary to compute proportions of disability), religion (Muslim, Hindu, Buddhist,
women, youth, persons with a disability and Christian, others) and national population group
nationally relevant population groups across (ethnic, non-ethnic) variables. Besides, to ensure that
key stakeholders are aware of the methodology and
each decision-making level in the public
have the necessary skills to generate the data and to
service (at both central and sub-central level), report on SDG 16.7.1b, the BBS conducted a training
and across categories of frontline service for government representatives, with UNDP's
workers. support. The comprehensive Methodological
Guidelines, coupled with the country’s robust legal
3. Generate representation ratios compared
framework giving the BBS a strong coordinating role,
to national populations - Countries will and with increased capacities of key officials, have
generate representation ratios by comparing allowed Bangladesh to produce quality data fully in
the proportion of various demographic line with the official metadata for SDG 16.7.1b.

groups in the public service with the

As a custodian agency for SDG 16.7.1b, UNDP is
proportion of the same groups in the national
supporting countries in adjusting their data
population, across each decision-making
collection process to be able to report on this
level.
indicator. For example, Bangladesh has worked
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extensively to align its national data collection Beyond collecting sex-disaggregated data, several
framework with the data requirements for SDG countries and international organizations are now
16.7.1b, and to increase awareness of key experimenting with the collection of
government stakeholders on the importance of complementary data on gender identity – via
collecting such disaggregated data. (See Box 5) censuses, surveys and administrative records – and
developing recommendations to this end.11 (See
Box 6)
Policy implications of data on It can be insightful to link data on the public
representation in the public service service to other administrative registers to
enrich the analysis of this data and derive policy
This section highlights how countries can use data
recommendations. For instance, in the United
on the composition of the public service to
Kingdom, any public or private organization with
promote the employment of underrepresented
250 or more employees must publish gender pay
groups in the public administration, including in
gap data and report to the government via an
decision-making positions.
online system.12 This information highlights
sectors where there is higher wage gap and
I. Women’s representation incentivizes them to adopt equality and diversity
policies.
While data on women’s overall representation in
the public service is available, disaggregated data Over the past decade, several countries have
on women’s representation in various developed their own benchmarks to track
ministries or across decision-making levels progress in building more inclusive public
remains scarce. This makes it difficult to detect administrations, drawing from both
specific ‘pockets’ of female underrepresentation administrative data and employee surveys.
across the public service. Finland has a “Diversity Barometer” and France
has implemented a “Diversity Label” to better track
It is noteworthy that out of 47 country reports representation in public service.13 Meanwhile,
submitted to the most recent Voluntary National Armenia has piloted UNDP’s Gender Equality Seal
Reviews at the 2020 High-Level Political Forum on Award methodology to mainstream gender and
Sustainable Development, only 12v (28%) of promote representation within key governmental
VNRs referenced data on women's institutions.14
representation decision-making. Most countries
did so as part of reporting on SDG 5 (Gender The publication of sex-disaggregated workforce
Equality), which has an indicator (SDG 5.5.2) on the data by national statistical offices or other
“proportion of women in managerial positions” agencies can facilitate changes in the
across both private and public sectors, rather than recruitment, selection and promotion policies
specifically on female representation in the public of public agencies. For instance, Ireland has
service (SDG 16.7.1b).10 revised its recruitment and promotion practices to
eliminate requirements that may directly or

v
Bangladesh, Costa Rica, Georgia, Honduras, Kenya, Kyrgyzstan,
Nepal, North Macedonia, Samoa Seychelles, Ukraine, and Zambia.
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indirectly discriminate certain groups of people.

Box 6. Producing statistics on gender This includes reframing qualities or attributes listed
identity in job descriptions so that they do not discriminate
on the grounds of sex, gender, disability or
An increasing number of countries are introducing
ethnicity.15 Uganda has developed ‘Guidelines for
new concepts and methods for the collection of official
statistics on sex and gender identity. While at this stage Mainstreaming Gender in Human Resource
there are no international standards on measuring Management’ in the public service, to guide the
gender identity, some countries have made significant planning, monitoring and evaluation of gender
efforts to improve their data collection tools mainstreaming into human resource
(administrative records, surveys and censuses) by 16
management. And in Kyrgyzstan, a new legal
going beyond a female-male binary distinction.
framework requires public agencies to recruit a
In Nepal, Pakistan and Kenya, have already qualified applicant of the less-represented sex,
introduced variables on gender identity in their when all else is equal. 17
censuses. In India, the Assam Public Service
Commission added a “transgender” option in the Collecting data on women’s representation
gender category of the civil service examination form. across decision-making levels and across
However, these efforts are still at an early stage and
ministries and agencies is also useful to detect
measuring gender identity remains at a nascent stage
glass ceilings (barriers that block women from
in a majority of countries.
moving up the ranks of an organization) and glass
In Canada, this process started with extensive walls (barriers that keep men and women
consultations with representatives of transgender
separated into different sectors, departments, and
groups, academia and experts to clarify statistical
occupations).18 In South Korea, the
concepts and classifications. Specific questions for
social surveys were then developed and validated underrepresentation of female managers in the
among transgender and cisgender communities. In public service has been addressed through the
2018, Statistics Canada published new standards adoption of a quota system for female managers.19
distinguishing ‘sex at birth’ from ‘gender’. This new In Malaysia, a similar quota system requiring 30%
framework is based on a non-binary gender spectrum
of senior positions to be filled by women has
and reflects cisgender, transgender and non-binary
increased representation of women at the premier
gender identities. In 2019, standardized questions on
sex at birth and gender status were incorporated into grade level in the public sector from 18.8% in 2004
several surveys, as well as in the 2019 census test. to 32.2% in 2010.20
Conclusive results confirmed their inclusion in the 2021
Census.
Public sector employment data showing that
women are underrepresented in certain
Source: Statistics Canada, Sex at birth and gender technical report
on changes for the 2021 Census, 2020; United Nations Economic ministries or agencies, or at certain decision-
and Social Council, In-depth review of measuring gender identity, making levels, can also point to a need to
2019; Kanya National Bureau of Statistics, 2019 National
improve working conditions in the public
Population and Housing Census Volume IV: Distribution of
Population by Socio-Economic Characteristics, 2019; Zarir service. For example, the Public Service Gender Pay
Hussain, “Matter of pride: Indian state lets trans people register for Gap Action Plan of New Zealand guarantees
civil service exam”, October 30, 2020, Reuters.
flexible-by-defaultvi working arrangements in all

A flexible-by-default approach treats all roles as suitable for flexible

vi

working arrangements unless there is a genuine business reason for

any role not to be. See Flexible-Work-by-Default Guidance.
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public agencies.21 Meanwhile, some governments groups. In France, students from disadvantaged
use incentive mechanisms to promote gender social backgrounds are supported in their
equality and better working conditions across the preparation for the National School of Public
public service: in Chile, public agencies that Administration exams. In Serbia, young Roma in
develop workplans to improve gender equality are 24 municipalities were provided volunteer
rewarded based on the results achieved.22 opportunities for skills development and
employment in the public service.26

In sub-Saharan Africa, the median age of the

II. Youth representation population is 18, and more than 36% of the
Including younger adults in the public population is aged between 20-34 years old.27 This
administration can bring new knowledge, makes it critical to have reliable data on public
different skills and fresh perspectives to a policy service employment across age groups to
making process. Yet while data on representation better understand youth employment barriers
across age groups is relatively accessible, it tends in the public service. It is in this context that
to be underutilized. South Africa, through its National Youth Policy
2015–2020, committed to scaling up its public
Most countries do not have youth representation service internship programme to 60,000 internship
as a ‘diversity objective’ within a public opportunities, and linking the programme to
administration, but initiatives aimed at government agencies' human resource
attracting young employees are gradually development strategies.28
increasing. For instance, Sri Lanka has a National
Action Plan for Youth Employment that includes Conducting additional research to identify
quotas for young people in the public service. challenges and factors that influence young
Similarly, South Korea has also established youth people's preferences to pursue a career in the
employment quotas in public agencies and public public or the private sectors can help better
enterprises (at least 3% of the total workforce).23 target outreach efforts. For example, research
conducted among youth in Egypt showed that
Since 2015, the United Kingdom has been most young women seek employment in the
implementing the "Civil Service Fast Stream” public service due to its status, the security and
programme to attract talented graduates to a benefits it provides, and limited employment
public service career. Through continuous opportunities in the private sector. These factors
monitoring and an in-depth analysis of the contributed to relatively high unemployment rates
characteristics of graduates in the programme, the among young women as they chose to wait for
government made additional steps to increase the public sector opportunities rather than go to the
programme’s socio-economic diversity.24 As a private sector.29 This has led to efforts to actively
result, in 2018, 31.2% of applicants were from focus on improving labor standards and working
minority ethnic groups, an increase of more than conditions in the private sector and supporting
10% since 2015.25 school-to-work transition programmes to increase
Some governments have created specific employment opportunities for young women.
recruitment programmes for young people An analysis of age-disaggregated data across
from minority and other underrepresented public agencies can also shed light on youth
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preferences of employment in particular public service and to address the significant barriers they
offices and can help identify why certain offices or may face in accessing public service employment.
sectors are struggling to attract young people.
To overcome the data scarcity one strategy is to
These insights can inform recruitment policies
collect the data on public service using the
and improve outreach to educational
Washington Group on Disability Statisticsvii
institutions. Initiatives to attract more young
short set of questions that can be integrated to
people to work in the public service may also
Labour Force Surveys or other similar surveys.
include a stronger focus on training programmes,
South Africa National Statistics Office used the
networking opportunities as well as mobility and
short set of questions in the pilot for 16.7.1b to
other initiatives that may be appealing to youth.
produce public services statistics using the human
resources management information system of the
III. Representation of persons with Department of Public Service Administration. The
experience indicated that it would be feasible to
disabilities
use the Washington Group methodology to collect
With a representative public service workforce, the data on persons with disabilities within the public
government can serve as a model and an service. The Washington Group is currently in the
advocate for diversity, equality and inclusion, process of developing a harmonized framework
including for the private sector. This is for the collection of disability data for
particularly important for one of the most administrative data systems.31
underrepresented population groups in the public
Governments collecting disability-related data
service: persons with disabilities. When compared
usually have diverse tools at their disposal. Some
to the availability of data on the representation of of them collect data by integrating diversity
women and youth in the public service, data on elements in their administrative data. For
the representation of persons with disabilities instance, South Africa’s Department of Public
in the public service is very limited. For example, Service Administration collects disability-related
a survey conducted by the European Public information of persons applying or hired, and
Administration Network in 2015 showed that while keeps this data in the Personnel and Salary
most public administration diversity strategies Centralized System.32 Other countries, such as the
focus on women and persons with disabilities, United Kingdom and Canada, generate disability
European countries generally do not collect data data through employee surveys or use various
analytical tools such as inclusion indices (USA,
on the disability status of public sector
New Inclusion Quotient Index).
employees.30 Even more scarce is data on women
or racial or ethnic minorities with disabilities. Countries that generate data on the representation
This data is essential to understand the extent to of persons with disabilities in the public service
which population groups with intersecting and have used it to inform various reform initiatives.
overlapping identities (women with disabilities, for These initiatives are often accompanied by the
example) are underrepresented in the public development of relevant regulatory
frameworks and privacy protection measures.

The Washington Group is responsible for methodological

vii

development on disability measures suitable for censuses and

national surveys. https://www.washingtongroup-disability.com/
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For instance, employment quota schemes for

persons with disabilities are available in around
100 states parties to the Convention on the Rights
of Persons with Disabilities. Two-thirds of these
countries have quota systems for both the private
and public sectors, and 24 apply this scheme only
to the public sector.33 In 2018, Norway launched a
nationwide “Inclusion Initiative” which required
public agencies to set an employment target of
5% for persons with disabilities and report on an
annual basis on the progress achieved and
measures implemented to reach the target.34
Similarly, in 2005, Ireland introduced an
employment target of 3% for persons with
disabilities in public agencies, and this target has
been gradually increasing to reach 6% by 2023.35
Ireland’s National Disability Authority conducts
annual statutory monitoring of employment of
persons with disabilities in the public sector. Also,
Turkey has introduced employment quotas for
persons with disabilities in the public service (4%)
and they are recruited through the state-run
employment agency.36 In Peru the employment
quota for persons with disabilities is at 5% for
public agencies. (See Box 7)

Governments can also use affirmative measures

and specific policy initiatives to promote the
employment of persons with disabilities in the
public service. For instance, public agencies in
Australia can advertise vacancies targeting
persons with disabilities generally or persons with
specific disabilities. This affirmative measure is
available regardless of duties listed, and it is not
restricted to jobs with disability-related
functions.37

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 UNDP Oslo Governance Centre

An analysis of the data on the representation of disabilities by posting all vacancies on a Disability
persons with disabilities within the public service Works Australia’s employment register.38
can help identify significant challenges faced in the
Raising awareness of public sector employers
recruitment processes. This analysis can lead to the
on disability issues, equality legislation and
adoption of anti-discriminatory regulations,
specific measures to support the recruitment of
the revision of internal human resource
persons with disabilities can have a significant
management procedures and the development
impact too. For example, in Mexico, the
of additional guidance on interview, selection
government trained more than 8000 public service
and hiring processes. For example, considering
employees and conducted 46 workshops to raise
that people with disabilities often rely on specific
awareness about disability and inclusion issues in
networks to find job opportunities, the Victorian
2016-2017.39 In Israel, large public sector

Box 7. Legal framework for the employment of persons with disabilities in the public sector of
Peru

Peru was the first Latin American country to ratify the Convention on the Rights of Persons with Disabilities (CRPD) in
December 2007. Its key national legal act on promotion, protection and fulfilment of the rights of persons with
disabilities is the General Law on Persons with Disabilities of 2012 (29973). The Law sets high standards for promoting
the employment of persons with disabilities in the public and private sectors. The Law requires the state to reserve 10%
of its budget to allocate on the promotion of temporary employment programmes for persons with disabilities.
Furthermore, the Acts provides that throughout the recruitment process in the public sector, applicants with a disability,
who comply with the position requirements and achieve a passing examination grade, shall receive a bonus of 15%
over the final grade obtained during the assessment.

The Act also sets an employment quota for both public and private agencies. Notably, it calls no less than 5% of public
sector employees to be persons with disabilities and private entities with more than 50 workers are required to have
no less than 3% of the employees who are persons with disabilities.

In addition, prior to any recruitment process, public entities must verify their compliance with the 5% quota. Public
entities that do not comply with the employment quota shall be subject to penalty fees which then are used to fund
professional development, placement and employment programmes for persons with disabilities.

In order to incentivize the recruitment of persons with disabilities in the public and private sectors, the Law calls for the
deduction of expenses on the total amount of wages paid to these people at a rate set by the Ministry of Economy and
Finance (50% if the company has up to 30% of its workforce made up of persons with disabilities and 80% if this
percentage exceeds 30%).

The Civil Service National Authority is mandated to supervise the public entities in coordination with the National
Council for the Integration of Persons with Disabilities (CONADIS). The Act creates a strong national legal framework
which, coupled with the effective implementation, and continuous monitoring can lead to increased representation of
persons with disabilities in public agencies of Peru.

Source: General Law on Persons with Disabilities (2012)

Government of Australia was successful in employers with more than 100 employees and less
significantly expanding the pool of applicants with than 5% of employees with disabilities have to

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 UNDP Oslo Governance Centre

publish an annual work programme outlining their adequate representation in the public
affirmative actions and outreach measures they administration. Notably, the amended Law on the
plan to implement. 40 Protection of Rights and Freedoms of National
Minorities calls for affirmative action to achieve
Public agencies can also lead by example by “appropriate representation of persons belonging
improving job retention and increasing to national minorities” in the public sector.
professional development opportunities for Furthermore, the Constitution states that “the
persons with disabilities. They can draw from ethnic structure of the population and appropriate
both quantitative and qualitative data (e.g. representation of members of national minorities
interview findings) on the educational shall be taken into consideration” in the
backgrounds, individual skills, experiences and management of public service employment.41
preferences of persons with disabilities employed
In North Macedonia public agencies are able to
in the public service to design effective
consider the ethnicity in the merit-based selection
professional development programmes, to
procedure, according to the Law on Public Sector
enhance existing skills and to tap into often
Employment of 2015. Since 2017, each public
overlooked talent.
agency has to prepare an annual employment plan
that includes information on the ethnic
distribution of the new workforce.42 This web
IV. Representation of other resource draws on the most recent census
information on the distribution of various ethnic
nationally relevant population
groups and allows agencies to plan new hires in a
groups more representative manner.

The methodology for SDG 16.7.1b considers a The affirmative policy measures introduced in the
fourth dimension of disaggregation: nationally public employment sector of Ecuador has led to
relevant population groups. Countries are the recruitment of 70 members of the indigenous,
encouraged to identify the specific population Afro-Ecuadorian and Montubio peoples to the
groups that are relevant in their context based diplomatic corps in recent years.43 (See Box 8)
on their history as well as their socio-cultural To better understand and address the
situation. However, national institutions are often underrepresentation of nationally relevant groups,
reluctant to collect data on the ethnic (or other) countries should apply an intersectional lens and
background of individuals, citing regulatory consider interwoven factors (e.g. income levels,
constraints and/or the sensitivity of such data. geography, sex, age, ethnic identity and sexual
As a result, the lack of reliable data on nationally orientation, etc.) The Council of Europe’s Advisory
relevant population groups makes it difficult to Committee on the Framework Convention for the
assess the scale of underrepresentation among Protection of National Minorities, for example,
these groups and undermines efforts to improve underlines that women belonging to some
their representation. minority groups – such as the Roma people or
The increasing availability of data on different indigenous peoples – can be disproportionately
nationally under-represented population groups under-employed in public administration systems.
can help to strengthen the case for reform. For Initiatives to reduce social exclusion and improve
instance, Serbia, a country with 19 ethnic groups the employment prospects of these women
that have minority status, amended its include specific employment programmes,
constitutional and legal provisions to facilitate vocational education and language courses. For
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 UNDP Oslo Governance Centre

instance, Hungary has employed 1100 Roma or racial conflicts. In such contexts,
women in its public service and provided them representation of marginalized groups in the
with additional training and language courses.44 public service integrates new knowledge,
New Zealand used disaggregated data on ethnic experience and perspectives overlooked before
representation to detect wage inequalities among and, more importantly, contributes towards the
indigenous Maori and Pacific female civil servants
conflict resolution process. Not only can the public
and designed measures to tackle barriers
sector be a source of livelihoods for historically
associated with the combined effects of gender
marginalized groups, but rather than perceiving
and ethnicity.45
the public service as one group exerting power
Representation of historically disadvantaged over another, broadening participation can help to
groups in the public service is particularly increase legitimacy and ownership of
important in countries with a history of ethnic

Box 8. Policies increasing the representation of indigenous peoples in the public sector of
Ecuador
The 2008 Constitution of Ecuador explicitly recognizes the demographic and cultural diversity of the population. The
Constitution guarantees the right of ‘indigenous communes, communities, peoples and nations’ to maintain and
develop their identities and ancestral traditions (Art. 57). The Constitution requires the state to acknowledge the diverse
identities and take “affirmative measures to promote real equality for the benefit of the rights-bearers who are in a
situation of inequality”. These constitutional principles give rise to various national strategies and policies aimed at
promoting equality and protecting the rights of indigenous peoples.

The new National Lifelong Development Plan 2017–2021 contains a range of policies and strategic guidelines for the
elimination of all forms of racial discrimination. One of its objectives is to ensure interculturalism and plurinationality
in the public administration and thus, facilitate the effective enjoyment of the rights of peoples and nationalities
(indigenous, Afro-Ecuadorian and Montubio peoples) in the public sector.

In the last decade, as part of the Government’s efforts to eliminate racial discrimination, a wide range of affirmative
measures have been implemented to reinforce the employment of indigenous minority groups in the public sector. For
instance, the Plurinational Plan to Eliminate Racial Discrimination and Ethnic and Cultural Exclusion requires all public
agencies to ensure that Afro-Ecuadorians, indigenous peoples and Montubios have access to jobs in a proportion no
smaller than their share of the population (Art. 3).

Efforts to promote a more representative public service also include the adoption of guidelines for merit-based
selection processes and competitive examinations for entry into or promotion within public services. For example, the
Ministry of Labour issued a Ministerial Decision establishing staff selection standards. Under article 31 of the Decision,
peoples and nationalities who reach the final stages of a competitive hiring process in a public agency are attributed
two additional points. The aim is to have 10% of the staff of Amazon administrative district be Afro-Ecuadorians,
indigenous peoples and Montubios (4% by 2019, 6% by 2020, 8% by 2021).

By strengthening the legal and strategic framework together with the strengthened institutional structures (e.g. a
specialized National Council for Equality of People and Nationalities established in 2014), Ecuador is moving towards a
gradual increase in the representation of persons of Afro-Ecuadorians, indigenous and Montubio origin in the public
sector.

Source: Periodic report submitted by Ecuador to the Committee on Elimination of Racial Discrimination, 2020 (ERD/C/ECU/25); National Plan
for Good Living of Ecuador (2013-2017)

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 UNDP Oslo Governance Centre

governmental processes and serve as entry point 1) Improve data collection on public
for participating in decision-making processes. service employees, by incorporating
global reporting requirements from
Over the past two decades, for instance, South indicator 16.7.1b into national data
Africa has dramatically altered the racial collection systems used for the public
composition of its workforce by applying multiple service, and by building the capacities of
affirmative initiatives coupled with strong staff involved in the management of such
legislative instruments and enforcement tools, in systems across government institutions.
both the public and private sectors. Since 2011, the
National Cohesion and Integration Commission of 2) Enhance the public availability of such
Kenya has been conducting annual ethnic audits data and build data literacy skills of
in public agencies and public universities to assess potential users, including policymakers as
well as national oversight institutions, civil
the ethnic composition of their workforce, with the
society and the media, to analyze the data
aim of addressing the historical
on public service employment and draw
underrepresentation of certain ethnic groups and
attention to imbalances in representation
facilitating peaceful ethnic co-existence in the where needed.
country.46
3) Ensure that 16.7.1b data feeds into the
design of inclusive human resources
policies for the public service, by
What is next for measuring SDG
ensuring that statistical analysis and key
16.7.1b? findings lead to concrete actions to make
recruitment strategies and career
Reporting on SDG indicator 16.7.1b is expected to development policies more inclusive.
begin in 2021. Countries are encouraged to start
aligning their administrative data collection
practices with the methodologies and approaches
recommended for the indicator, including new
classifications and reporting requirements and
utilizing a human rights-based approach to data
collection.

As custodian agency for this indicator, UNDP is

committed to supporting countries in
strengthening their data collection practices and
enhancing the use of this data in policy making to
promote a more inclusive and representative
public service. Broadly speaking, three types of
measures need to be taken by countries to reap
the full benefits of collecting public service data
(see Box 9 for examples of UNDP support in these
three areas at the country level):

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UNDP Oslo Governance Centre

Box 9 – Examples of UNDP support on promoting inclusion and representation in the public
service

Enhancing statistical capacities for reporting on SDG 16.7.1b

In Bangladesh, UNDP worked with key government stakeholders to raise awareness and provide
methodological guidance for generating data on SDG 16.7.1b.

Strengthening national data ecosystems

In Georgia, UNDP supported the National Statistics Office in developing its National Strategy and
Action Plan for data collection on the SDGs. UNDP is also working with the public service authorities
to upgrade the nationwide public service human resource database.

Improving data collection policies or data collection tools/platforms used by public

administrations
In Togo, UNDP supported the development of a centralized public service data management system.

Ensuring the use of disaggregated data

The Uganda Bureau of Statistics and the Gender Monitoring Office were supported by the UN system
to collect and analyze sex-disaggregated data to inform policy making.

Engaging civil society and the media on SDG data

The National Statistics Office of Moldova is working with UNDP to develop modules on statistical
literacy and disaggregated statistical analysis for civil society organization and the media, including on
16.7.1b.

Strengthening partnerships on public service statistics

Within the framework of the GEPA Initiative (Gender Equality in Public Administration), UNDP
cooperates with the Gender Inequality Research Lab of the University of Pittsburg to compile and
analyze publicly available data on women’s participation in public administration.

Supporting inclusive human resource management practices and tools

In Malawi, UNDP worked with national partners to develop gender-sensitive recruitment guidelines
for the public service. Similarly, in Mexico, UNDP worked with national authorities to develop guidance
on gender-inclusiveness and to eliminate the use of gender stereotypes in the Mexican public
administration.

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 UNDP Oslo Governance Centre

Acknowledgements

This brief was prepared by Natalia Baratashvili, UNDP Georgia in cooperation with Mariana Neves, Marie Laberge
and Aparna Basnyat of the UNDP Oslo Governance Center and benefited from review by Malin Herwig, Joanna
Hill, Sarah Lister, Sarah Rattray and Alexandra Wilde. Alina Karlsen provided editorial support.

UNDP Oslo Governance Center leads on UNDP’s custodian role on four SDG 16 indicators including
methodological development and refinement of the indicators, as well as technical support for global reporting.

For more information, please contact [email protected] and see https://www.undp.org/content/oslo-

governance-centre/en/home.html

Cover Photo: © UNDP Afghanistan / S. Omer Sadaat / 2017

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19