Official Statistics in the UK

Innovations in Governance

Mike Hughes

Office for National Statistics

20 February 2009

Outline

• Background to present system

• National Statistics System

• Legislation - the new approach

History

• 1941 - Central Statistical Office (CSO)

• 1968 - Government Statistical Service (GSS)

• 1996 - Office for National Statistics

• 2000 - Launch of current National Statistics System

• 2008 - Statistics Act

Characteristics of ‘Statistics UK’

• Decentralised (GSS in 30+ departments)• Coordinated through NSI (= ONS)• ONS reported to Finance Ministry pre 2008• Devolved ( 4 ‘UK’ Nations )• European Union ( 27 ‘Other’ Nations )• Global ( UN, IMF, World Bank )• Largely non-statutory pre 2008

Genesis of ReformsStatistics - part of the Political Process ?

• Counting ‘problems’ ?• Unemployment

• Crime

• Release ‘problems’ ?• Pre-release ‘Spin’• ‘Burying’ bad news

Political statements

• Labour Party Manifesto (1997)An independent national statistical service

• Green Paper on Statistics Reform (1998)Tony Blair (the then PM)………….

– Government is pledged to clean up and modernise politics. We want a new relationship between Government and citizens, based on openness and trust

National Statistics System 2000

• New post- National Statistician• New body - Statistics Commission• Code of Practice• Quality kite mark and new emphasis on quality with Quality Reviews

• Greater accountability (Work Programme and Annual Report)

• Framework Document• New beginning ?

The phrase ‘National Statistics’

• Not an organisation• Not a group of people

A designated set of statistical products which:-

• are produced in accordance with Framework for National Statistics

• meet standards set in National Statistics Code of Practice

• are subject to regular Quality Reviews

UK Official Statistics - 4 Types

NNNSNNONSStatistics

OtherGSS

Statistics

National Statistics

Non-GSSStatistics

Role of Statistics Commission

• Independent ‘Watchdog’• Represented suppliers and users• Advised Ministers of concerns about quality

• Commented on Work Programme, Code of Practice, Quality Reviews

• Operated with total transparency• One-off Task - Review need for statistical legislation

Strengths of previous system

• More rigorous external oversight (via Statistics Commission) and greater internal focus on:–Professional standards–Quality Management–Relevance and Customer Service–Confidentiality–Joined-up Government–Transparency and Consultation

Fault Lines in previous system

• Ministerial control of ‘Scope’• Confusion between ‘National Statistics’ and

‘Other Statistics’• Pre-release Access• Lack of funding and commitment• Lack of accountability to National Statistician• Lack of enforcement powers• Inconsistent compliance with Code• Low impact on public trust + confidence

Does statistical legislation

provide the answer ?

Public Trust in Official Statistics

• Only 17 percent (1 person in 5) believe that UK official statistics are produced without political interference

• 60 percent (3 persons in 5) think that the government uses official statistics dishonestly

• Most common reasons for not trusting official statistics are:

– They contradict people’s personal experience– They are perceived to be open to manipulation

Confidence in Official Statistics

However…..More confidence in:• Quality / Methodology of official statistics• The Office for National Statistics itself

Conclusion……..• Production/Outputs = Good quality• Delivery and Presentation = Untrustworthy

Models for legislation

Model 1Give Commission statutory powers reporting to

Parliament

Model 2Give Commission statutory powers and make ONS

non-ministerial department, both reporting to Parliament

Model 3Give ONS statutory powers as a non-ministerial

department, reporting to Parliament subsuming Commission role

STATISTICS ACT: MAIN FEATURES

• New body - The UK Statistics Authority • Authority independent of Ministers – directly

accountable to Parliament • Creates new Executive Office (= ONS)• Abolishes the Statistics Commission –

functions subsumed within the Authority• Statutory Code of Practice and new

Assessment function• Covers United Kingdom

THE UK STATISTICS AUTHORITY

• Established as ‘Non-Ministerial Department’. Replaces oversight role Treasury Ministers had over ONS

• Authority’s Board has majority of Non-Executives with a Non-Executive Chair

• Executives on the Board comprise the National Statistician and two others

• Staff within the Authority and ‘Executive Office’ to be civil servants

• Special funding arrangements – 5 year budget

THE STATISTICS AUTHORITY OBJECTIVE

Statutory objective

To promote and safeguard the production of statistics that serve the public good.

By promoting and safeguarding: • the quality of official statistics • good statistical practice • the comprehensiveness of official statistics

PRE-RELEASE ACCESS

• Excluded from Code of Practice, but……..

• The Government has set out new rules and principles relating to the granting of pre-release access to statistics - in secondary legislation

• Scottish, Welsh or NI Ministers can create their own rules

• Compliance with rules subject to assessment by the UK Statistics Authority

STRENGTHS OF LEGISLATION

• 2000 Reforms embedded in Legislation

• Ministerial Role transferred to Authority

• Authority’s UK-wide remit• Statutory Code• Statutory accreditation of statistics

• Opportunities for Data Sharing

ISSUES

• Ministerial control over ‘Pre-Release practices’

• Lack of clear separation between scrutiny and executive (production) roles

• Board has responsibility for, but no authority over, official statistics in other Government bodies

• Definition of “Official Statistics”• Weak arrangements for UK co-ordination

Thank you

THE NATIONAL STATISTICIAN

The National Statistician’s statutory role comprises advisory and executive functions

• the Government’s (Authority’s) Chief Advisor on statistical matters

• the Chief Executive of the Authority • the establishment of an Executive Office (i.e.

the ONS-as-is).• may not exercise the Authority’s functions

relating to Assessment and the Code of Practice

ASSESSMENT FUNCTION

Authority has particular legal duties to: • independently set professional standards in

a new Code of Practice • ‘assess’ all National Statistics against those

standards (both current NS and additional statistics nominated by Ministers)

• prepare and publish a work programme for the re-assessment of National Statistics

• prepare and publish a Statement of Principles of Assessment

Non-Legislative Provision

A central ‘Publication Hub’

A web portal through which all National Statistics are published under the new system, thereby separating statistical release from political or policy comment

Combined with:• Release Calendar• Catalogue of all statistical releases• Media Briefing Facility