Census (Return Particulars and Removal of Penalties) Bill [HL]

Baroness Hayter of Kentish Town Excerpts

2nd reading (Hansard): House of Lords
Monday 13th May 2019 Lords Chamber

[Baroness Hayter of Kentish Town (Lab)]

I thank the Minister for introducing the Bill and for repeating his 1981 gig. I do not know whether he will do this every 10 years from now on. I also congratulate the Government on using our spare Chamber time on a useful piece of legislation, for once. Perhaps we could also now have the public service ombudsman Bill, the Grocott hereditaries Bill or some Law Commission Bill to put our otherwise rather idle hands to good use.

We on this side of the House welcome and support the Bill for the very reasons the Minister articulated. We believe that the timing is right to include the two new questions, not only to ensure that services and policies are appropriate but to help with the development of rights and the removal of discrimination. I say this particularly as an old campaigner—first and foremost, one needs good evidence to measure problems and monitor progress in order to formulate responses and make a strong case.

However, I confess that my enthusiasm for the census comes also from speaking as an historian. A plethora of data going back more than 200 years provides us historians with a rich treasure trove. Along with other noble Lords, I am delighted that the Government still believe in the census given that, in July 2010, the then Cabinet Office Minister, Francis Maude, called it,

“an expensive and inaccurate way of measuring the number of people in Britain”,

and planned to replace it with existing public and private databases, including credit reference agencies. That would have been awful for historians and today’s users of data, since those sources are neither as comprehensive as the census nor as rich in detail and depth. We are delighted that the Government did not follow that idea.

Planners clearly need extensive data, including on children, if they are to cater for future needs. The census is the only time when everybody in the country is counted; it is therefore used by the Government to determine spending priorities and track population movements. Without accurate data, it is nigh on impossible to distribute resources effectively or target them where they are most needed. As the Minister reflected on, it is similarly important for those monitoring the impact of legislative, demographic or policy changes. Whether for campaigners, historians, faith leaders, planners or politicians, the census must be comprehensive, consistent and credible, and provide confidence that it will be used correctly, that personal data will be kept private and that its oversight will be thorough and in the public interest. To achieve accuracy, we need very high compliance. That requires confidence in the process and a willingness to participate, so the questions must have public acceptance. Their wording therefore needs extensive consultation and testing, as well as explaining nearer the time to build trust in the process.

We on these Benches consider that the White Paper and the Bill have correctly judged that the moment is right to add these two questions and to ensure they can be voluntarily answered. We might discuss some details in Committee and seek assurance on the degree of consultation, but we are very supportive of the proposals. However, I will ask a couple of wider questions about the 2021 census.

The first is about the homeless. For the census to be complete—that is, a picture of everyone in the UK on that Sunday in March two years hence—it needs to count those who are homeless as well as those who are housed. This is important both to measure the impact of demographic or policy changes and to plan services for this vulnerable group—to say nothing of the future needs of historians—but, as we know, this group is currently underrepresented on the returns. Last year Shelter met the relevant ONS team and made suggestions to improve the situation. In particular, it argued that the key to achieving an accurate count by including homeless people is really just trying harder to reach them. That might mean providing extra reassurance to the homeless about dealing with officials and stressing to every local authority the importance of that. Without accurate numbers, there is little chance that services to help those experiencing homelessness will be fairly and adequately delivered. This issue is particularly important and relevant to the debate today, given that the Bill is about groups that we know have a higher propensity to homelessness. Particularly given the broader move to an online approach, what discussions has the Minister’s department had with the ONS on ensuring that the census captures those experiencing homelessness?

Secondly, I want to ask the Minister about the Royal British Legion’s “Count Them In” campaign, which seeks the inclusion of a question to make good the patchy data on the Armed Forces community, which leaves statutory and voluntary service providers unable fully to meet the needs of that cohort at the moment. Parliament would need to approve such an addition. At the moment, nobody knows the size or demographics of the Armed Forces community resident in the UK. The legion estimates it to be about one in 10 of the population: some 2.8 million veterans, perhaps 2.1 million dependants, another 1 million dependent children and perhaps up to 250,000 hidden ex-service personnel in care homes. In 2007 the MoD estimated that there were 2.4 million veterans. These are large numbers to be left so vague, especially five years after the Armed Forces covenant was enshrined in legislation. That covenant recognises the sacrifices that the Armed Forces community makes and pledges that no one should face disadvantage as a result of their service. Local authorities have promised to deliver the principles of the covenant, but they need data to do that.

Of course, the other recommendation in the White Paper was that there should be such a question. I know the Government have agreed to add something about past UK service. While the wording has yet to be decided, it would be helpful if the Minister could update the House on this. If I have understood it, it would not be in the voluntary section and that is why it is not included in this Bill. What thought was given to not excluding it and dropping it into the voluntary section?

I will just check with the Minister whether a couple of things that appear to be from a previous era remain. Is the approach taken in the census still that there is a “head of household”, which sounds a little not of our time? I hope the question on “issue born in marriage” is no longer there. Maybe the Minister can just update us, to make sure that the language and questions are appropriate for the 21st century. For the moment, though, we very much support the Bill and look forward to its helping to produce useful and relevant data on important human rights issues in due course.