4. Content determination framework background

The proposed framework for the 2016 Census Program and beyond builds on experience in previous Canadian Census Programs^{Footnote 1} (Statistics Canada 2008b, p. 8), the United Nations (UN) principles of census-taking (United Nations 2008), and approaches developed in other countries, in particular, the United Kingdom (Office for National Statistics 2006). It reflects the views on 2016 Census content criteria presented in the National Statistics Council's Seeking Solutions document.^{Footnote 2} The intent is to have a process that is transparent to data users and all Canadians, and takes into account the Canadian context.

Chapter VI of United Nations (2008) states that the topics to be selected should be based upon a balanced consideration of:

• the needs of the broad range of data users in the country
• achievement of the maximum degree of international comparability, both within regions and on a worldwide basis
• the probable willingness and ability of the public to give adequate information on the topics
• the total national resources available for conducting the census.

The United Nations Economic Commission for Europe (UNECE 2006, p. 8) of which Canada is a member, suggests the following criteria:

• The topic carries a strong and clearly defined user need.
• There are no other means than the census to collect data on the topic.
• Data on the topic are required for small population groups and/or at detailed geographical levels.
• The topic is of major national importance and relevant at the local level.
• Data on the topic are expected to be used in multivariate analyses with other census topics.
• The content does not differ drastically from previous censuses and where appropriate a new or modified topic can still provide comparison with previous censuses.

As well, the UNECE notes when a topic should not be included in a census:

• It is sensitive or potentially intrusive, or requires lengthy explanations or instructions to ensure an accurate answer.
• It imposes an excessive burden on respondents, or seeks information not readily known or that people are unlikely to remember accurately.
• It enquires about opinions or attitudes.
• It is likely to present major coding problems or extensive processing or significantly add to the overall cost of the census.

The Office for National Statistics (ONS) process for the development of content for their 2011 Census questionnaire saw possible census topics broken into themes, like labour market/employment, migration, income, etc., with initial content directions. These initial directions (i.e., what might be new topics required, what topics might be excluded as not working well or not much use made) were shared with data users in a first report on content directions for the 2011 Census (Office for National Statistics 2005).

In that report the ONS asked data users to provide their views on where they agreed or not with the proposed directions, and why certain themes must be on the census, and what topics were needed for multivariate analysis and for what purposes. Data users were also presented with the user requirement criteria to be used to evaluate the strength of requests for information, comprised of six elements, namely:

• user need
• small population groups and small geographical areas
• alternative sources
• multivariate analysis
• national importance and UK comparability
• continuity.

Users were likewise presented the four additional criteria for ONS to consider, namely:

• respondent burden and data quality
• operational considerations
• questionnaire design
• legislation and international recommendations.

The ONS response to the consultation, where the assessment of each topic was presented, notably in terms of the user requirement criteria and the ONS considerations and other reasons for collection, was subsequently released. In this report the ONS outlined the weights for each user requirement criterion and associated scoring range for the various classifications within each criterion (Office for National Statistics 2006).

The National Statistics Council proposed a set of criteria to be used by Statistics Canada in designing the questionnaire for the 2016 Census (National Statistics Council 2010). All questions, the Council said, should meet at least one of five proposed tests as was presented in the statement from the National Statistics Council Seeking Solutions. The National Statistics Council suggested that the consultation process be one whereby Statistics Canada would access the need for each question to ensure that it, at a minimum, meets one of the following tests for inclusion in the census:

• It is required by legislation or Cabinet direction.
• It is needed for small-area data uses for which there is no alternative data source.
• It is needed to create benchmarks for measuring difficult-to-reach groups and ensuring that subsequent surveys or data derived from administrative sources can be sampled or weighted to reflect accurately the overall population.
• It is needed to assess progress on issues of national importance, for example the economic integration of new immigrants.
• It is to be used as a basis for postcensal survey sampling of relatively small or dispersed groups, for example, urban Aboriginals or people with health conditions that limit their activity.

The National Statistics Council provided a further criterion, that even if a question met this requirement, it would still face tests of its overall importance to the Canadian statistical system and the needs of data users as weighed against cost and the intrusiveness of the question.