Background
The project took account of the results of a detailed evaluation of the 1991 Census. In particular, the value of building on the successful programme of user consultation was recognised together with the need to overcome problems with the design of the census forms and the wording of individual questions.
Methodology
Co-operation characterised the work undertaken during the life of the project from early-1995 to mid-2000. Key decisions took account of the views expressed by users, internal and external experts. An extensive programme of consultation was complemented by a comprehensive programme of research and question testing. In particular, attention focused on:
identifying users' requirements for information;
developing suitable questions using a variety of techniques including focus groups, cognitive interviewing, small-scale and large-scale tests;
designing census forms which were suitable for scanning and met agreed print and technical standards.
Implementation
Although the comprehensive programme of consultation and question testing was carried out concurrently, the following key stages may be identified:
identification of users' requirements for information and priorities for small-scale testing;
preparation and testing of questions for the 1997 Census Test;
the 1997 Census Test including detailed assessment of reactions to a new question on income, alternative questions on ethnicity and new form layouts;
the preparation of detailed business cases for census questions;
further testing of key questions and forms;
the Census Rehearsal;
final series of small-scale tests on the provision of care, academic, vocational and professional qualifications.
Decisions affecting the selection of questions were based on this detailed work.
Results
The Government set out proposals for the 2001 Census in a White Paper published in March 1999. Decisions about the content of the Census, including details of the questions, were set out in the Census Order approved by Parliament on 15th March 2000. Copies of the Census forms became available when the Census Regulations came into force on 27th June 2000. The information was updated to take account of the subsequent decision to include a voluntary question on religion.
Lessons Learned
Despite some unexpected problems with specific questions, most notably the adverse reaction to the absence of a Welsh tick-box, the work was completed successfully. Among the main lessons learned were:
the importance of the advice and guidance provided by users and the need to build on the strengths of the 2001 consultation programme;
the advantages of working with members of the Question Testing Unit of the Office for National Statistics and the value of their advice and support;
the need to retain independent print and processing experts;
better co-ordination of the legislative and census timetables;
improved awareness and recognition of the possible implications of political developments.
Conclusion
Staff from the Census Office worked co-operatively with users and others to develop effective questions, design suitable questionnaires and put forward proposals for the 2001 Census which would meet identified needs.
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