1. Executive summary

In December 2018, the government presented to Parliament a White Paper, Help Shape our Future: The 2021 Census of Population and Housing in England and Wales (PDF, 967KB). This outlined the Office for National Statistics's (ONS's) proposal to collect information on sexual orientation in Census 2021 to meet the needs for better quality information for equality monitoring.

ONS research and consultation showed a clear need for information on sexual orientation, to support work on policy development and service provision and to allow local authorities to meet and monitor their requirements under the Equality Act 2010.

Although survey-based estimates at national level are regularly published, there are currently no reliable data on sexual orientation at local authority level.

For Census 2021, the recommended question on sexual orientation is:

Which of the following best describes your sexual orientation?
This question is voluntary
[ ] Straight or Heterosexual
[ ] Gay or Lesbian
[ ] Bisexual
[ ] Other sexual orientation
(Write in sexual orientation)

The sexual orientation question, which has not been asked in previous censuses, is voluntary and will only be asked of those aged 16 years and over.

Ongoing work around this topic will focus on understanding and meeting user requirements for outputs.

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2. Aim of question development report

Since the publication of the White Paper, the Office for National Statistics (ONS) has conducted and concluded the final phase of testing on the sexual orientation topic. This report provides links to previously published research and also provides the findings of additional testing that led to the final recommended question for Census 2021 in England and Wales. These recommendations will be subject to parliamentary approval through the census secondary legislation.

The questions and response options for Census 2021 have now been finalised through the census secondary legislation: The Census (England and Wales) Order 2020 as well as Census Regulations for England and for Wales.

The evidence base for the recommendations made in the White Paper and the finalisation of the question for Census 2021 is discussed in the section, Research that led to the 2018 White Paper recommendations and final recommended question for Census 2021.

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3. Research and development timeline

The 2011 Census topic consultation, conducted in 2005, identified a strong user need for information on sexual orientation. However, the topic was not included in the 2011 Census. At the time, we had significant concerns about privacy, acceptability, conceptual definitions and the effect that the question could have on overall census response.

We established the Sexual Identity Project in 2006 to meet the user requirements for information on sexual identity, the component of sexual orientation most closely related to experiences of disadvantage and discrimination. The project led to the publication of the Government Statistical Service (GSS) harmonised standard for asking questions and reporting statistics on sexual identity. Sexual orientation estimates published by the Office for National Statistics (ONS) are currently based on social survey data from the Annual Population Survey (APS), which uses the GSS questions.

In June 2015, the ONS held a formal 12-week consultation process, asking census users for their views on the topics that were required in the questionnaire in England and Wales. The aim of the consultation was to promote discussion and encourage the development of strong cases for topics to be included in Census 2021.

In May 2016, the ONS published its response to the 2021 Census topic consultation. This set out our updated view on the topics to be included in Census 2021, including:

  • a summary of proposals for new topics
  • next steps
  • an overview of our plans

This response included commitments to include a question on sexual orientation in the 2017 Census Test to assess the impact of including a question on sexual orientation on overall response and data quality and to assess the public acceptability of asking a question on sexual orientation.

The topic consultation revealed a clear requirement for information on sexual orientation for policy development, service provision and monitoring, and fulfilling duties under the Equality Act 2010.

A detailed summary of the consultation responses relating to the topic of sexual orientation can be found in the sexual orientation consultation report (PDF, 662KB). In this report, the ONS made clear commitments to the public. We have provided an update on how we met these commitments in Annex 1.

Despite a strong user need for the data, our assessment indicated that a sexual orientation question may not be acceptable to the public. To assess these concerns, we developed a research and testing plan. The details of this plan are in the next section, Research that led to the 2018 White Paper recommendations and final recommended question for Census 2021.

The plan was presented to sexual identity data users at a workshop in August 2016, where it received positive feedback.

Following this, we began a comprehensive programme of research and development. We provide a full list of the tests used in the development of the topic of sexual orientation in Annex 2. Further details are provided in the summary of testing for Census 2021.

In December 2017, we published a further census topic research update, which included the findings of the 2017 Census Test. The positive results suggested that we could develop a question that was acceptable enough to provide sufficient quality of data to meet user needs without damaging the overall quality of data on the census.

In December 2018, the government presented to Parliament a White Paper, Help Shape our Future: The 2021 Census of Population and Housing in England and Wales (PDF, 967KB). This outlined our proposals for the sexual orientation topic:

  • we should collect information on sexual orientation
  • the question should be voluntary
  • the question should only be asked of those aged 16 years or older

Alongside the White Paper, we published a further census topic research update in December 2018. This update provided additional details of the research that supported the recommendations announced in the White Paper.

The question recommendations for Census 2021 are now finalised. We have evaluated the question for its potential impact on data quality, public acceptability, respondent burden, financial concerns and questionnaire mode. We present details of this evaluation in Annex 3.

This topic was originally referred to as "sexual identity", but the name was changed to "sexual orientation" after the 2017 Census Test. We provide details of the definitions and terms used in this report, including reasons for the change in terminology, in Annex 4. Some early publications use the term "sexual identity".

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6. Annex 1: Census commitments made on the topic of sexual orientation

In the Census 2021 topic consultation response, we made clear commitments to the public. As we had identified a clear user need for data on sexual orientation, we included a sexual orientation research and testing plan (PDF, 517KB) in the consultation response. This committed to three strands of research to begin our investigation into whether to include a question on sexual orientation in Census 2021. These are listed here, alongside an update on our progress towards meeting these commitments.

Inclusion of a question in the 2017 Census Test across England and Wales

The 2017 Census Test showed that the inclusion of a question on sexual orientation did not influence overall response to the survey. The proportion of participants who did not answer the sexual orientation question was 8.4%, which was below our threshold of 10%. Further details on the design of the test and summary of the findings are available in the 2017 Census Test report.

A public acceptability survey in England and Wales

The independent public acceptability testing (2017:1) of the Government Statistical Service (GSS) harmonised standard showed that 70% of respondents found it acceptable to include a question on sexual orientation in Census 2021. Subsequent testing of the redesigned question showed that 76% of participants found the question acceptable to include in the census.

Development of statistics from our social surveys

This strand of research examined the feasibility of using alternative data sources to obtain information on sexual orientation that meets the data user need.

In 2017, we published a series of experimental research estimates of sexual identity for the UK. A later publication examined sexual orientation by demographics using the Crime Survey for England. We have published an article detailing our work on Exploring existing data for gender identity and sexual orientation.

Neither of the studies, nor any administrative data sources, could meet the user need of estimating the lesbian, gay and bisexual population at local authority level. This reinforced the need to ask this question in the census.

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7. Annex 2: Summary of research undertaken for the sexual orientation topic, 2016 to 2020

References to tests take the form (Year: Test number). "Year" refers to the calendar year the test was undertaken in, and the test number is the position of the test within the year considering all testing that took place in that year. For example, the fifth test conducted in 2017 would be referenced as (2017:5).

A full description of each of these items can be found in summary of testing for Census 2021.

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8. Annex 3: Question evaluation

Evaluation of the sexual orientation question

The potential for impact created by the inclusion of the topic of sexual orientation is now lower for all criteria than in May 2016, except for questionnaire mode which has been assessed as “Medium”. The potential for impact on financial concerns has been assessed as “Low”.

Potential for impact on data quality: “Medium”

Our testing has shown that this question will deliver good quality data. However, the question has a write-in option and collects data that is both sensitive and not observable. Some respondents to the 2019 Rehearsal (2019:15) found this question difficult to answer.

Potential for impact on public acceptability: “Medium”

This question is new to the census. Testing (2018:24) showed that including a sexual orientation question on Census 2021 was acceptable to 76% of participants. However, this question collects sensitive data and respondents may not want a proxy to answer this question on their behalf. It is also possible, due to the sensitive nature of the question, that answers will be affected by social desirability bias. Meaning that respondents may answer in a way they consider socially acceptable instead of answering accurately.

Some respondents to the 2019 Rehearsal (2019:15) reported that they found this question unacceptable. However, although the question is voluntary the non-response rate was only 9.1%.

Potential for impact on respondent burden: "Medium"

An analysis of feedback from the sexual orientation question during the 2019 Rehearsal (2019:15) showed that some respondents found the question difficult to answer.

This question also contains a write-in response, is a new question on the census, and asks for information that cannot be directly observed.

Potential for impact on questionnaire mode: “Medium”

This question has a write-in response. This question also asks for sensitive information and responses can be subject to social desirability bias, meaning respondents may change their answer to one they consider a more socially acceptable. This bias is more of a risk on the paper questionnaire than the electronic questionnaire since it is easier to see the answers of other members of the household on the paper questionnaire.

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9. Annex 4: Definitions and terms

Sexual orientation

Sexual orientation is an umbrella term that encompasses sexual identity, attraction and behaviour. It is a subjective view of oneself and may change over time and in different contexts.

"Sexual identity" or "sexual orientation"

In May 2018, the Government Statistical Service (GSS) harmonised standard for reporting statistics on this topic changed its recommended terminology from "sexual identity" to "sexual orientation". This aligned with the protected characteristic of sexual orientation that is defined in the Equality Act 2010.

Other organisations advocate collecting data on sexual orientation. For example, the NHS has developed the Sexual Orientation Monitoring Information Standard and Stonewall provides guidance on collecting information on sexual orientation.

Based on this updated view from stakeholders, we changed the label of this topic and question from "sexual identity" to "sexual orientation" following the 2017 Census Test. Prior publications still reference sexual identity. The recommended question design makes no reference to either term and was not changed.

LGB+ and LGBT

The term "LGB+" is used to describe those who have a minority sexual orientation. This includes those who are lesbian, gay, bisexual or any other sexual orientation other than heterosexual.

"LGBT" is an umbrella term used to describe people who self-identify as lesbian, gay, bisexual or transgender, or as having any other minority sexual orientation or gender identity.

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