Census (Return Particulars and Removal Of Penalties) Bill [Lords]

(Limited Text - Ministerial Extracts only)

3rd reading: House of Commons & Committee: 1st sitting: House of Commons
Monday 7th October 2019 Commons Chamber

[The Parliamentary Secretary, Cabinet Office (Kevin Foster)]

I will not prolong this part of our debate. The purpose of the clause is simple. It amends the Census Act 1920 in respect of England and Wales to remove the penalty for not responding to census questions on sexual orientation and gender identity. This means that those questions will be voluntary. As I am sure hon. Members will recall, this reflects the approach taken by the Census (Amendment) Act 2000, which removed the penalty attaching to a failure to answer a question on religion in the census.

Clause 2 amends the Census Act (Northern Ireland) 1969 to remove the penalty for not responding to census questions on sexual orientation and gender identity, in order to replicate the changes that we are making in law for England and Wales. The power to include questions on sexual orientation and gender identity already exists under the Northern Ireland legislation. Clause 2 does not create new powers to ask those questions; it simply ensures that if they were asked in a future census in Northern Ireland, they would be voluntary.

Finally, clause 3 sets out the territorial extent, commencement and short title of the Bill. The territorial extent of the Bill is England, Wales and Northern Ireland. The Bill does not extend to Scotland, where the matter is devolved and where the Scottish Parliament is dealing with the relevant legislation.

Question put and agreed to.

Clause 1 accordingly ordered to stand part of the Bill.

Clauses 2 and 3 ordered to stand part of the Bill.

New Clause 2

Questions on gender identity

“(1) Any question or questions asked about gender identity under the Census Act 1920 or the Census Act (Northern Ireland) 1969 must be framed so as to enable statistical information to be obtained about gender identity within different ethnic groups.

(2) The ethnic groups in subsection (1) must include Sikhs.” —(Preet Kaur Gill.)

This new clause would mean that if the census included a question on gender identity, it would have to be written in such a way as to provide information about gender identity in different ethnic groups.

Brought up, and read the First time.

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[Christian Matheson]

It is Labour’s hope that the ONS will listen to the case put by my hon. Friend the Member for Birmingham, Edgbaston, and I will deal with that in a moment.

The campaign for an ethnic tick box turns on the recognition of Sikhs as an ethnic community by law, and many in the Sikh community feel that individuals should be able to identify as ethnically Sikh in the next census to ensure a more accurate picture of the community. The primary concern, as my hon. Friend stated, is that public bodies do not currently have enough information about Sikhs. I found the homelessness figures to be shocking and was unaware of the situation. More data would help inform the approach of the education, health, local government and business sectors towards the Sikh community. It is important to target services effectively, so data about such minority groups is vital because underreporting could allow discrimination to go unnoticed.

Labour fully supports the campaign by my hon. Friend and the all-party parliamentary group, which has been tireless and persuasive in pressing for a change so that the census includes a section on ethnic identity, with an option to choose being a Sikh. Indeed, to respond to my hon. Friend the Member for Wolverhampton South West (Eleanor Smith), I believe that there is not only legal precedent in this matter, but a pending court case that will seek a judicial review of the ONS’s decision.

However, in conversations with the Minister outside the Chamber, he convinced me that this particular Bill might not be the appropriate vehicle for that matter to be addressed, so I ask him to address that concern in his contribution. I understand that today’s Bill is concerned only with the section of the census relating to sexuality and gender identity. Will the Minister explain how the way in which new clause 2 is worded may cause difficulty for that section? Will he also address the view presented by the ONS that questions on gender, identity and sexual orientation may not be included if new clause 2 is passed at this stage?

I hope that the ONS listens carefully to the campaign of my hon. Friend the Member for Birmingham, Edgbaston, because the discussions around having a Sikh tick box within the overall question on ethnicity may have been going on for 20 years and will not go away anytime soon. The sooner we can resolve the matter to the satisfaction of the Sikh community, the sooner we can get things right.

[Kevin Foster]

I thank the Members who have contributed to the debate. The hon. Member for City of Chester (Christian Matheson) said that he would not press Labour’s new clause 3. I am glad that the Labour Front-Bench team found the letter of interest and that it answered their concerns. From conversations with the ONS, I know that it is keen to ensure that everyone is counted in terms of the homeless community, that outreach work is done and that special measures are put in place to try to ensure as many people as possible fill in the census form. The Labour Front Bench raised the particular issue of those in the LGBT community who may be affected by homelessness in a different way and have a fear of it that differs from the rest of the community. A very worthwhile issue was brought up. I was therefore only too happy to send the letter, rather than wait until tonight. A copy of that letter has been placed in the Libraries of both Houses if Members want to consult the Government’s comments.

Turning to the substance of the debate, new clause 2 was passionately moved by the hon. Member for Birmingham, Edgbaston (Preet Kaur Gill) and it confirms the importance of ensuring that the 2021 census provides detailed information on our society, and especially the Sikh community. The Government will be guided by the advice and recommendations of the Office for National Statistics, which has advised that the new clause’s effect can be achieved through analysis of information collected under its existing proposals for the 2021 census.

Most importantly, the new clause is potentially damaging to the integrity of the census and threatens the inclusion of a question on gender identity, which would be counter to the whole aim of this Bill. For clarity, the new clause would not make any changes to the proposals for a question on sexual orientation; it would make changes only to the question on gender identity. Under the ONS’s existing proposals for the 2021 census, it will already be possible to produce statistical information about gender identity within different ethnic and religious groups.

As in previous censuses, there will continue to be separate questions on ethnicity and religion, and the data from the ethnicity, religion and gender identity questions can be analysed to provide detailed information on gender identity across different cross-sections of the population.

[Mike Gapes]

From what the Minister says, I am unclear on whether it will be possible for Sikhs to tick a specific box on the 2021 census. Can the Minister please clarify?

[Kevin Foster]

I am happy to clarify that there will be a tick box for Sikhs under the religion section but not under ethnicity. There have been 55 requests for particular tick boxes on the census that the ONS is not recommending, and having a Sikh tick box under ethnicity is one of those that the ONS is not recommending.[Official Report, 14 October 2019, Vol. 666, c. 2MC.]

As I said, the Government will be guided by the ONS’s recommendations on what the census should include. Of course, Members can discuss the issue more fully when Parliament considers the main census orders that set the questions, but the Government will be guided by the ONS’s recommendations in this area.

Anyone who wishes to identify in the 2021 census as having Sikh or Kashmiri ethnicity, or Jain or Zoroastrian religion, will be able to do so under the existing proposals using the write-in option or the new “search as you type” facility.

[Preet Kaur Gill]

Will the Minister meet me to discuss this? I have had numerous meetings with the ONS, which has not been able to explain how it will use the tools because they have never been used before. This conversation has been had on many occasions. I know he refers to religion, but we are talking about how we deliver public services in the United Kingdom. We do not use the religion category. I challenged the ONS and asked it to make that category mandatory. It said there was no public acceptability in respect of that.

What I am requesting from the Minister is some challenge back to the ONS. If there is no data on Sikhs, especially when the Cabinet Office has looked at a hundred datasets across Government, surely we should present some challenge back. In the last census 90% of Sikhs—83,000 Sikhs—ticked “other” and wrote in “Sikh” as a protest vote. I would like to feel assured that he will present some challenge back, especially given that, as legislators, we should be upholding the law and Sikhs are classified as an ethnic group.

[Kevin Foster]

I am more than happy to meet the hon. Lady to have a more in-depth conversation about this issue, and I will make sure that ONS representatives are also present so that she can put her point directly to them.

I make it clear that the census is about data collection, and it is a criminal offence for a person not to respond to the overall census, but it is right that the questions are seen as having been professionally recommended for data collection purposes, rather than a Minister personally choosing the questions and tick boxes that are included.

Today’s debate is about the questions on these two issues being voluntary, rather than coming through schedule 6, which would make them compulsory. For reasons with which many of us will agree, this is a very sensitive area of data.

Given that these analytical possibilities already exist, we believe there are no grounds for this new clause, which is potentially damaging to the integrity of the census. It would require changes to questions that have been extensively researched, tested and consulted on by the ONS in its independent advisory capacity over the three years of evidence gathering to inform the proposals for the 2021 census. It would also serve to introduce the risk of confusion and concern for individuals completing the gender identity question. My early discussions with the ONS indicated that, as was referred to by the shadow Minister, it would be likely to recommend that this question was not included in census 2021 if this new clause were passed, given the changes it would make to that question.

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[Madam Deputy Speaker (Dame Eleanor Laing)]

As indicated on the Order Paper, Mr Speaker has certified that clause 1 relates exclusively to England and Wales and is within devolved legislative competence. As the Bill has not been amended during Committee, there is no change to that certification.

The appropriate consent motion has been tabled. Does the Minister intend to move it?

[Kevin Foster]

indicated assent.

The House forthwith resolved itself into the Legislative Grand Committee (England and Wales) (Standing Order No. 83M).

[Dame Eleanor Laing in the Chair]

[The First Deputy Chairman of Ways and Means (Dame Eleanor Laing)]

I beg the Whip’s pardon; this sort of yo-yo-type procedure can be a little confusing. In order to avoid confusion, I remind hon. Members that, if there is a Division, only Members representing constituencies in England and Wales may vote on the consent motion for England and Wales.

Resolved,

That the Committee consents to the following certified Clause of the Census (Return Particulars and Removal of Penalties) Bill [Lords]—

Clauses certified under Standing Order No. 83J as relating exclusively to England and Wales and being within devolved legislative competence

Clause 1 of the Bill (Bill 412).—(Kevin Foster.)

Question agreed to.

The occupant of the Chair left the Chair to report the decision of the Committee (Standing Order No. 83M(6)).

The Deputy Speaker resumed the Chair; decision reported.

Third Reading

[Kevin Foster]

I beg to move, That the Bill be now read the Third time.

I thank all right hon. and hon. Members who have contributed to the debate. I am grateful for the support for the Bill, especially from the main Opposition parties, with which, as I touched on earlier, we have had some constructive discussions, not only on the Bill but on how the census can be taken forward to be the best it can be.

The 2021 census will provide decision makers and citizens with comprehensive data on our society. Getting the best information is essential to inform policy, planning and funding decisions across national and local public services. The Bill is simple: it provides that two questions —on sexual orientation and gender identity—could be asked in the census in England, Wales and Northern Ireland, on a voluntary basis. It does not mandate that those questions should be asked, but it does give the opportunity for them to be done on a voluntary basis. With that, I commend the Bill to the House.