Unconscious Bias in Local Government: From Ice Hockey to Inclusive Councils

Introduction: Why Unconscious Bias Matters in Local Government

Unconscious bias is the silent saboteur of fairness. It operates beneath the surface of our decisions shaping who gets hired, who gets promoted, whose voice is heard in meetings, and even how services are designed and delivered. It’s not rooted in malice or intent, but in the shortcuts our brains take to process information quickly. These mental shortcuts, while often useful, can lead to deeply unfair outcomes especially in systems that pride themselves on objectivity and meritocracy.

In local government, where the mission is to serve diverse communities equitably, unconscious bias can quietly erode the very values councils are built upon: fairness, inclusion, transparency, and trust. When left unexamined, it can reinforce structural inequalities, limit the potential of underrepresented groups, and damage public confidence in local institutions.

Peter Mitchell’s reflection, written during a particularly testing week at Croydon Council, offers a powerful metaphor drawn from Malcolm Gladwell’s Outliers. He describes how children born earlier in the year dominate professional ice hockey in North America not because they are more talented, but because they are slightly older and bigger when selection begins at age five. This early advantage snowballs into more training, more opportunities, and eventually, professional contracts. The system appears fair based on performance but is in fact structurally biased.

“A system that selects entirely on merit – a laudable goal – produces entirely biased and discriminatory results.” Peter Mitchell

This analogy is striking because it mirrors what happens in local government and other public institutions. We often assume that our systems recruitment panels, promotion boards, service eligibility criteria are neutral. But if we don’t actively interrogate them, they can replicate and reinforce existing inequalities.

For example, a council might believe it is hiring “the best person for the job,” but if interview panels unconsciously favour candidates who share their background, accent, or communication style, then the process is no longer fair. Similarly, if service design doesn’t account for the lived experiences of disabled residents, ethnic minorities, or neurodivergent individuals, then those services may unintentionally exclude the very people they aim to support.

Unconscious bias matters in local government because it affects real people residents who rely on services, and staff who want to thrive in their roles. It matters because councils are often the largest employers in their areas and have a responsibility to lead by example. And it matters because the decisions made in town halls ripple out into communities, shaping lives and opportunities.

Peter’s reflection invites us to pause and ask:

Where might unconscious bias be operating in our own systems? Who might be missing out not because they lack talent or potential, but because the system wasn’t built with them in mind?

Recognising unconscious bias isn’t about blame it’s about awareness. And awareness is the first step toward building fairer, more inclusive councils that truly reflect and serve the communities they represent.

Case Studies: Councils Taking Action

While unconscious bias can be deeply embedded in systems, several councils across the UK are demonstrating that change is possible and impactful when inclusion is made a strategic priority. These examples show how local authorities are moving from unconscious bias to conscious inclusion through targeted initiatives, community engagement, and structural reform.

Antrim and Newtownabbey Borough Council: Inclusive Summer Schemes

Antrim and Newtownabbey Borough Council has taken a proactive approach to inclusion by funding summer schemes for Special Educational Needs (SEN) schools across the borough. In 2025, schools including Riverside, Jordanstown, Rostulla, Hill Croft, and Thornfield received grants of £5,000 each to run creative and interactive programmes .

Activities ranged from kite-making and pizza workshops to drumming and mug decorating designed not only to entertain but to empower children with disabilities and autism. The funding also enabled schools to invest in new equipment that will benefit pupils year-round, extending the impact beyond the summer holidays.

The council partnered with the Mae Murray Foundation to deliver inclusive family events at venues like Antrim Forum and Crumlin Leisure Centre, ensuring accessibility through sensory spaces, quiet zones, and wheelchair-friendly facilities. The Mayor, whose own daughter attends a special school, described the schemes as “invaluable” for both pupils and parents a testament to the council’s commitment to equity in practice.

Belfast City Council: Deaf Charter and Disability Action Planning

Belfast City Council has embedded inclusion into its strategic planning through its Disability Action Plan 2022–2025, which aims to promote positive attitudes toward disabled people and encourage their participation in civic life . The council offers services such as:

• British Sign Language (BSL) video relay systems

• Portable hearing loops in public buildings

• Braille signage and EasyRead formats

• Autism Impact Award accreditation for key venues

In a landmark move, Belfast signed the BSL/ISL Charter, committing to remove barriers between service providers and Deaf communities, and to increase awareness of Deaf issues . This charter empowers Deaf residents by ensuring communication access and representation in council services a direct challenge to unconscious bias in public engagement.

Ards and North Down Borough Council: Age Friendly Charter

Ards and North Down Borough Council has developed a comprehensive Age Friendly Strategy and Action Plan (2023–2027) to ensure older residents are respected, included, and supported . The strategy includes:

• The Over 50s Council, a consultative forum giving older residents a voice in local decision-making.

• The Big Guide to Age Friendly, a resource hub offering information on mental health, scam prevention, and accessible services.

• Positive Ageing Month, a campaign celebrating the contributions of older people through events and activities.

• A commitment to becoming a Dementia Friendly Borough, with training and design adaptations to support residents with cognitive impairments.

• Promotion of Age Friendly Businesses, which are assessed for accessibility, independence, and responsiveness to older customers.

These initiatives reflect a shift from reactive service delivery to proactive inclusion ensuring that older residents are not sidelined due to age-related assumptions or biases.

From Bias to Belonging

These case studies demonstrate that unconscious bias can be countered not just through training, but through structural change, community engagement, and inclusive design. Councils that invest in understanding the lived experiences of their residents and staff are better equipped to build trust, improve outcomes, and reflect the diversity of the communities they serve.

Recruitment and Promotion: Where Bias Hits Hardest

Unconscious bias often manifests most acutely in recruitment and promotion the very processes that shape who leads, who influences, and who gets a seat at the table. Despite councils’ best intentions and robust equality policies, bias can seep into decision-making in subtle but powerful ways.

Common Biases in Council HR Decisions

• Affinity Bias: Favouring candidates who “feel familiar” those with similar backgrounds, accents, education, or interests. This can lead to homogenous teams and a lack of diversity in leadership.

• Halo Effect: Assuming competence based on appearance, confidence, or presentation style, rather than actual skills or experience.

• Perception Bias: Stereotyping based on race, gender, disability, or socioeconomic background often unconsciously.

• Name Bias: Making assumptions based on a candidate’s name, which can affect call-back rates and interview opportunities.

• Accent Bias: 80% of UK employers admit to making decisions based on regional accents , which disproportionately affects working-class and minority candidates.

These biases are not just theoretical they have real consequences. A 2024 survey found that 96% of recruiters believe unconscious bias is a problem, yet many still rely on gut instinct . This reliance on intuition can result in unfair outcomes, missed talent, and reputational risk.

Legal and Ethical Risks

Unconscious bias has been cited in employment tribunal cases, such as the £1 million payout by Kings College Hospital NHS Foundation Trust after an investigation was found to be tainted by racial bias . The tribunal noted “unwarranted distrust and disbelief” of a Black employee’s account a stark reminder that bias, even when unconscious, can be unlawful if it relates to protected characteristics under the Equality Act 2010.

The Impact on Diversity and Innovation

When bias shapes recruitment and promotion, councils risk building teams that lack diversity of thought, experience, and background. This can stifle innovation, reduce responsiveness to community needs, and perpetuate inequality. Homogenous leadership teams may struggle to understand or represent the lived experiences of the communities they serve.

Strategies for Councils to Mitigate Bias

Local authorities have a unique opportunity and responsibility to lead by example in tackling unconscious bias. As major employers and service providers, councils can embed fairness and inclusion into their recruitment, promotion, and organisational culture. Below are seven key strategies, expanded with practical applications and considerations:

1. Structured Hiring Processes

Standardising recruitment processes is one of the most effective ways to reduce bias. Councils should use:

• Competency-based interview questions aligned with job criteria.

• Scoring rubrics to evaluate candidates objectively.

• Panel moderation to ensure consistency across interviews.

Avoiding informal assessments of “fit” often based on subjective impressions is crucial. While cultural fit may seem important, it can mask affinity bias and exclude candidates who bring valuable diversity of thought and experience.

Example: Some councils now use behavioural science-informed interview frameworks to reduce bias and improve predictive validity in hiring.

2. Blind Recruitment

Blind recruitment involves removing identifying information from applications, such as:

• Names

• Gender

• Ethnicity

• Educational institutions

This helps focus attention on skills, experience, and potential. Councils can use applicant tracking systems (ATS) with anonymisation features to automate this process.

Evidence: Studies show that blind applications significantly increase call-back rates for ethnic minority candidates. In one UK trial, applicants with “foreign-sounding” names were 50% less likely to be shortlisted than those with traditionally British names even with identical CVs.

3. Diverse Interview Panels

Interview panels should reflect a range of backgrounds, experiences, and perspectives. This helps:

• Challenge groupthink

• Reduce affinity bias

• Improve candidate experience

Diverse panels also signal to candidates that inclusion is valued, which can enhance employer reputation and attract a broader talent pool.

Tip: Councils should maintain a pool of trained panel members from across departments to ensure diversity is achievable even in smaller teams.

4. Bias Awareness Training

Training is a foundational step not a solution in itself. Effective bias training should:

• Be interactive and scenario-based

• Include real-life examples from council settings

• Encourage reflection and discussion

• Be refreshed regularly, not a one-off event

Caution: Research shows that passive or mandatory training can backfire if not delivered thoughtfully. Councils should embed training within broader cultural change programmes.

Example: Some authorities pair bias training with inclusive leadership development, coaching, and mentoring schemes.

5. Data Monitoring and Evaluation

What gets measured gets managed. Councils should track:

• Diversity metrics at each stage of recruitment and promotion

• Pay gaps by gender, ethnicity, and disability

• Representation in leadership roles

• Staff survey data on inclusion and belonging

Regular analysis helps identify disparities and target interventions. Councils should publish diversity dashboards and progress reports to maintain transparency and accountability.

Example: The London Borough of Hackney publishes annual workforce diversity reports and uses the data to inform its inclusive recruitment strategy.

6. Use of AI and Technology

AI tools can help standardise candidate assessments and reduce human bias but they must be carefully designed and audited. Councils should:

• Use AI to screen applications based on objective criteria

• Avoid tools that replicate biased historical data

• Ensure algorithms are transparent and explainable

Warning: AI is only as fair as the data it’s trained on. Councils must involve diverse stakeholders in tool selection and regularly test for bias.

Example: Some councils are piloting AI-assisted video interview platforms that assess communication skills without factoring in appearance or accent though these tools remain controversial and require ethical oversight.

7. Inclusive Culture and Leadership Commitment

Culture change starts at the top. Leaders must:

• Model inclusive behaviours

• Champion diversity initiatives

• Create safe spaces for dialogue

• Hold teams accountable for inclusive practices

Inclusion should be embedded in council values, performance frameworks, and leadership development. Councils should celebrate diversity through storytelling, staff networks, and visible role models.

Example: Croydon Council’s internal communications, like Peter Mitchell’s reflection, offer a model for how leaders can use storytelling to raise awareness and foster cultural change.

Conclusion: From Awareness to Action Building Fairer Councils

Unconscious bias is not a moral failing it’s a cognitive shortcut. But in recruitment, promotion, and service design, these shortcuts can have long-lasting effects on careers, representation, and public trust. In local government, where fairness and inclusion are not just ideals but operational imperatives, the stakes are particularly high.

Bias, when left unchecked, can quietly shape who gets hired, who gets heard, and who gets helped. It can reinforce existing inequalities, limit innovation, and erode the credibility of councils as inclusive employers and service providers. And because unconscious bias operates beneath the surface, it often goes unnoticed until its consequences become visible in workforce demographics, tribunal cases, or community dissatisfaction.

Peter Mitchell’s reflection offers a timely reminder that even systems designed to be fair can produce discriminatory outcomes if they fail to account for structural bias. His analogy drawn from Malcolm Gladwell’s Outliers illustrates how early advantages, like being born earlier in the year, can snowball into lifelong disparities. The same principle applies in local government: if we don’t actively interrogate our systems, we risk perpetuating inequality under the guise of meritocracy.

“We do need to be conscious of issues in order we tackle the vital issues of racism, discrimination and bias.” Peter Mitchell

This is not just a call for awareness it’s a call for action. Councils must embed fairness into every stage of the talent lifecycle: from how job adverts are written, to how interviews are conducted, to how promotions are decided. They must invest in inclusive cultures, diverse leadership, and data-driven accountability. And they must create safe spaces for staff to speak up, reflect, and challenge bias even when it’s uncomfortable.

The good news is that change is possible. As the case studies show, councils across the UK are already taking steps to move from unconscious bias to conscious inclusion. Whether it’s blind recruitment, diverse panels, inclusive summer schemes, or age-friendly charters, these initiatives demonstrate that fairness can be designed not just hoped for.

Ultimately, tackling unconscious bias is about building councils that reflect the communities they serve in all their diversity, complexity, and potential. It’s about ensuring that no one is excluded because of who they are, where they’re from, or how they’re perceived. And it’s about recognising that inclusion isn’t a box to tick it’s a culture to build.