Scotland's New Ethnicity Classification for Scottish Official Statistics and Recommended for Scotland's 2011 Census

1. Background

Why is the ethnicity classification being reviewed?

1.1 In 2002, the then Communities Minister promised to review Scotland's official ethnicity classification to:

" seek to achieve a clearer understanding of the issues and then identify a way forward which will meet two objectives: first, the need for service users and others to be able to define their own ethnicity in an equitable way across the range of minority ethnic groups in Scotland; and, second, a meaningful and consistent approach for service providers who need to use the data to inform their planning and policy making."¹

1.2 This followed recommendations by the Race Equality Advisory Forum ( REAF) in 2001 ² and some community concerns about the classification used in Scotland's 2001 Census (see question 1, page 26); in particular the different use of colour and geography across the ethnic group categories.

1.3 The Scottish Government ( SG) worked in partnership with the General Register Office for Scotland ( GROS) to conduct the review (as SG is responsible for Scottish Official Statistics and GROS is responsible for the census). A timeline showing each stage of the review is set out at Annex A.

How has the classification been formulated?

1.4 The new classification (see question 5, page 29) is for Scottish Official Statistics and is recommended for Scotland's 2011 Census. However, public authorities and other organisations across the whole of Scotland are also likely to adopt it for the collection of ethnicity statistics. It was developed over several years using repeated cycles of evidence gathering and assessment, involving consultation and research (including question testing).

1.5 Consultation, both formal and informal, was conducted with a wide range of data users, ethnic groups, stakeholders and other interested groups. Research, including in-depth interviews, focus groups, desk research and fieldwork with public bodies such as Glasgow City Council, The City of Edinburgh Council and NHSScotland was also undertaken. Question testing was also conducted with individual members of the public from a range of ethnic groups.

1.6 The aim was to design a statistically robust classification which meets the information needs of data users and is broadly acceptable to respondents and communities. As well as addressing the initial concerns of REAF and communities, SG and GROS took this opportunity to modernise the whole classification. The evidence was assessed against the above criteria and a set of UK Guiding Principles for the design of census questions was also employed (see Annex B).

Why are ethnicity statistics important?

1.7 Ethnicity statistics are vital because Government and public authorities are encouraged to collect them to meet statutory obligations under race relations legislation ³ for tackling discrimination and promoting equality. They are also used to inform resource allocation, policy formulation and service delivery and they help to provide a better understanding of Scotland's ethnic diversity. Ethnic groups must be classified before they can be counted and their progress monitored. Organisations look to SG and GROS to provide a robust classification for these purposes.

1.8 Scotland's census gives the only robust national and local count of individual ethnic groups in Scotland because many groups are too small in number for surveys to capture effectively (note that, just 2% of Scotland's population were from a minority ethnic group according to the 2001 Census). Therefore, the census is a key source of ethnicity statistics which Government, public bodies and others rely on.

1.9 Every person resident in Scotland will complete the census in 2011, including the ethnicity question. Given this, it was necessary to consult widely on the classification. Ethnicity is a complex issue because it encompasses aspects of identity, race, history, culture, discrimination and inequality. Inevitably, the review generated varied opinions (and often opposing views) about how ethnicity should be defined and classified.

Why is a national identity question being developed?

1.10 For many (but not all) people, national identity is closely related to ethnicity. In this context, national identity refers to the country or countries, nation or nations which a person feels most connected to or has a strong affinity with. This may be one of the countries of the UK, or a non- UK country such as Poland, India or the USA for example. It may be a mixture of both. It is a subjective (and sometimes changing) concept which is different, but related to, more concrete concepts such as nationality or citizenship ( i.e. passport entitlement) and country of birth.

1.11 It is also very closely related to, but differs from, ethnicity. For instance a person can have a strong sense of national identity that differs from the ethnic origin or heritage. For example a person could express a 'Scottish' national identity and an 'Asian: Indian' ethnicity or a 'Scottish' national identity and a 'White: English' ethnicity. For those expressing a 'Scottish' national identity and a 'White: Scottish' ethnicity, the two concepts are very closely related.

1.12 Asking a national identity question before an ethnicity question helps to ensure that all people living in Scotland can express their national identity - be that 'Scottish', 'British' or any other national identity - without that becoming confused with their ethnic origin or heritage. This is particularly important for people born in Scotland or who have been living in Scotland a long time, whose parents or grandparents are not born in the UK. For example, many people with an 'Asian' or an 'African', 'Caribbean' or 'Black' ethnicity also have a strong 'Scottish' or 'British' identity.

1.13 To ensure that every Scottish resident can express these aspects of their identity, the census will ask both a national identity question and an ethnic group question - in that order. Both questions will also be recommended for relevant Scottish Official Statistics, where it is feasible to include both questions. The national identity question will undergo further testing before it is finalised in Autumn 2008.

1.14 Research has shown that questions on national identity are not always readily understood by respondents. In part this reflects the subjective and context-specific nature of the concept but it also depends on the question wording and response options. SG and GROS have tested several versions of a national identity quesiton (see Annex F) and further testing is required to develop the best question. . The national identity questions shown at Annex F, are test versions only and do not represent the final version that will be used in the Census or otherwise. The final version of the question, could be subject to substantial change to address some of the known limitations.

What are Scottish Official Statistics and how do they relate to the census?

1.15 The new classification is for Scottish Official Statistics and as such is recommended for Scotland's 2011 Census. At present Official Statistics in Scotland consist of regular and planned statistical publications produced by the SG Statistics Group and allied agencies such as GROS and NHSScotland Information Services Division ( ISD). The Chief Statistician in the Scottish Government has overall responsibility for the implementation and co-ordination of Official Statistics standards in the Scottish Administration. In particular the Chief Statistician is responsible for setting any common standards for statistical classification, in collaboration with other Heads of Profession in Scotland. The census is part of Official Statistics and is produced by GROS. It is the specific responsibility of Scotland's Registrar General, who is the statistical Head of Profession for GROS.

1.16 Over time and as applicable, the new classification will be adopted by all SG Official Statistics including sample surveys and statistical and administrative collections. SG will also recommend the use of an accompanying national identity question, where this is feasible. Whatever information source ethnicity statistics are derived from, it is important that they are comparable with ethnicity statistics collected on the census. Because the census provides a count of ethnic groups for the whole of Scotland, others can use it for comparison with their (local) ethnicity statistics, to put their figures into context. For example, most public authorities have a statutory duty under the Race Relations Act to collect information on the ethnic composition of their workforce and it is good practice to compare this against the ethnic composition locally and for the whole of Scotland to ensure that the workforce reflects the population it serves.

Who else will use the new classification and why?

1.17 It is likely (and SG and GROS would recommend) that one of the main users of the new classification will be Scottish public authorities. The Race Relations Act 1976 (as amended by the Race Relations (Amendment) Act 2000) gives public authorities a general duty to promote race equality ⁴. Public authorities must monitor the ethnic composition of their workforce and set out their arrangements for monitoring their policies for any adverse impact on race equality. The collection of statistical data on ethnicity is essential to do this effectively.

1.18 Many other organisations not covered by this legislation such as businesses, the voluntary sector, community organisations etc are also likely to adopt the classification for many of the reasons given above and because they wish to enact the spirit of race relations legislation.

1.19 The classification was developed with all of these end users in mind and views from these groups were sought. The classification was developed to meet users' information needs. Some practical considerations were also taken into account - for example, users' capacity to update questionnaires and data processing systems or to ask more than one ethnicity-related question. SG and GROS were also mindful that users benefit from a long lead in time to introduce new classifications and update operating systems. This is one of the main reasons why the new classification is being published now and in advance of the national identity question and the next census in 2011.

1.20 It is recommended that, where feasible, organisations who collect ethnicity statistics also ask the national identity question when it is ready. This ensures that all respondents have an equal opportunity to express their national identity fully - be that 'Scottish', 'British' or any other national identity - before expressing their ethnic origin or heritage. Guidance on using the classification and the national identity question will be made available by the SG in Autumn 2008 when further national identity question testing has been completed and the question is finalised.