Scotland's Census 2031 - Topic consultation report

1) Introduction

2) Evaluation of responses

3) Updated view on topics under consideration - existing census topics

Our consultation document set out our initial view on existing census topics under consideration for collection again in 2031. In this report, we have updated our views based on the evidence we have received from the consultation. The classifications used to describe our updated views are set out in the table below:

The table below summarises our updated view for each existing census topic:

Housing and Accommodation

A total of 75 consultation respondents told us that they had used census data on housing and accommodation. This included 53 responses from organisations and 22 from individuals summarised in the chart below:

Accommodation type, self-contained accommodation and household tenure

Information on accommodation type, self-contained accommodation and household tenure is used extensively by local authorities to create local area profiles and to analyse trends in housing stock. Census data is used to prepare Housing Needs and Demand Assessments (HNDA) and Local Housing Strategies (LHS).

In addition, the data are used across local and central government to inform forecasts for future housing needs and to target investments in new builds, housing adaptations and energy efficiency programmes. They are also used to assess housing suitability for specific vulnerable populations such as older people, UK armed forces veterans or those with long-term health conditions.

A range of other public and third sector organisations also use this information for equality monitoring, particularly in relation to variations in housing situations across different ethnic groups and for academic research on trends in housing stock.

We are therefore recommending that we continue to collect information on accommodation type, self-contained accommodation and household tenure in Scotland’s Census 2031. NRS are currently exploring whether administrative data from the Scottish Assessors Association could be used to provide statistics on this topic.

Number of bedrooms

Similarly, data on number of bedrooms are widely used by local government for local area profiling, to better understand current housing supply and to identify future housing stock requirements at national and sub-national level. Bedroom information is also used to identify areas with overcrowding and under-occupancy, which help to understand current and future housing stock requirements. Consultation respondents told us that census data allowed for small area analysis on housing occupancy that would not be possible using data from other surveys.

Respondents from both government and non-governmental organisations told us that information on bedrooms is often combined with other census data such as age and health variables to assess the suitability of housing for specific vulnerable populations, including  older people and those with long-term health conditions. Bedrooms data also supports equality monitoring, particularly with regard to how overcrowding differs for different ethnic groups and has been used to identify household risk factors related to child poverty.

We are therefore recommending that we continue to collect information on number of bedrooms in Scotland’s Census 2031. NRS are currently exploring whether administrative data from the Scottish Assessors Association could be used to provide statistics on this topic.

Type of central heating

Local authorities have used data on central heating to better understand local energy needs, particularly in rural areas and communities which may not have access to mains gas. As such, this data feeds into the analysis of energy efficiency and fuel poverty and helps to inform decisions on where resources and interventions should be prioritised. This information also informs local and central government work on energy efficiency and decarbonisation strategies.

Central heating data has been also used by local authorities and by NHS public health researchers to inform fuel poverty analysis. The granularity of census data allows for detailed analysis of fuel poverty at small area level, which would not be possible using data from other sources. Respondents from a range of organisations also told us that information on type of central heating was regularly combined with other census topics for purposes such as equality monitoring and for analysis on how fuel poverty impacts health outcomes.

We are therefore recommending that we continue to collect information on type of central heating in Scotland’s Census 2031. NRS are currently exploring whether administrative data could be used to provide statistics on this topic.

Cars & Vans

We received limited evidence from consultation respondents on uses of census data on number of cars or vans available to the household. Historically this information has been used by central and local government to support transport modelling and policy monitoring, and as a proxy for household deprivation, however responses to this indication did not note any specific use cases for data on cars and/or van availability.

Some user need on ownership of electric vehicles was identified through the topic consultation.

We are therefore recommending investigating this topic further to determine whether there is still a user need for census data on car or van availability and whether changes to the current question could be made to meet changing user needs in this topic.

Demography and migration

A total of 108 consultation respondents told us that they had used census data on demography and migration. This included 72 responses from organisations and 36 from individuals summarised in the chart below:

Age & Sex

Basic demographic information on age and sex is used across local and central government as well as NHS health boards for a wide range of purposes including: planning and forecasting demand for services such as health services (public health, screening, immunisation), provision of social care (especially for ageing populations), education (school roll forecasting, school estate planning) and transport (service needs for younger/older populations).

Basic demographic information is also used by local authorities to better understand housing requirements (type, size and accessibility requirements for future housing stock) and feeds into legislation such as Regional Development Plans, Local Housing Strategies and Local Development Plans.

Research organisations and charities have used age and sex data to better understand population change and demographic trends, in particular monitoring trends such as young adults leaving rural areas and monitoring broader demographic changes between censuses.

Perhaps most importantly, consultation respondents told us that age and sex information is regularly combined with other census information to understand the demographic characteristics of different groups (e.g. ethnic minority groups or UK armed forces veterans) and to monitor how outcomes change for different demographic groups (e.g. labour market or health outcomes). As such, use cases for other existing census topics gathered in this consultation almost invariably cite multivariate analysis using age and sex as being a key benefit of census data.

We are therefore recommending that we continue to collect information on age and sex in Scotland’s Census 2031.

The UK Government Statistical Service Harmonisation team (based in ONS) are currently reviewing standards relating to age, sex and gender identity. NRS will therefore review the recommended standards when developing and testing questions on sex and gender and accompanying guidance, informed by legislation, stakeholder input and relevant guidance.

The final question set will be set out in legislation laid by Scottish Ministers and be scrutinised by the Scottish Parliament.

Marital or civil partnership status

Local authorities across Scotland have used census data on marital or civil partnership status to feed into area profiles of local populations. These profiles inform wider work around policy development, service planning and service needs assessments to support outcomes in housing, education, childcare and social care for different types of family. Consultation respondents told us that  a greater understanding household and family composition allows Local Authorities to identify vulnerable households (e.g., single adult or lone parent households) and to support targeted interventions and resource planning.

This information has also been used, alongside other census variables, by central government in labour market and employability analysis specifically in regard to how labour market participation differs based on marital/civil partnership status. It was also noted that census data around family structures is particularly important given the lack of reliable alternative sources.

Census data on marital and civil partnership status has also been used by central government and other non-departmental bodies for equality monitoring, particularly in regards to workforce representation where it is used as part of organisations’ equality monitoring frameworks to ensure their workforce accurately reflects the population.

This data has been used by charity/third sector organisations to analyse trends in family structures and parental setups to better understand household relationships, family types, co‑parenting, and separated families.  We also received evidence from community groups who have used census information on marital and civil partnership status to identify support needs among widowed or separated individuals, plan support for older or isolated adults and to understand the household patterns of minority communities.

We are therefore recommending that we continue to collect information on marital and civil partnership status in Scotland’s Census 2031.

Student status

Census data on student status is used by Local Authorities for local population projections to identify areas with high student populations. This feeds into wider work to better understand the characteristics of the local population and the drivers of population change at local area level.

We are therefore recommending that we continue to collect information student status in Scotland’s Census 2031. NRS are currently exploring whether administrative data could be used to provide statistics on this topic.

Household and family relationships

Census information on household and family relationships has been used by local authorities, NHS health boards and charities to plan health and social care and support services. This data is used to understand where people live alone, where families with young children are concentrated and where relationship/household stress may be higher. Understanding this allows these organisations to plan for care at home and care home, health and social care interventions.

Local authorities told us that they use this information to better understand housing needs in the local area as it allows them to assess demand for different property sizes and to better understand whether existing housing stock is meeting the needs of different family types (e.g. single parent or multigenerational households). As such, this information feeds into Local Housing Strategies and Housing Needs and Demand Assessments.

Information on household and family relationships have also been used by local and central government and by other organisations to carry out Equality Impact Assessments and Fairness Analysis to identify vulnerable household types.

Local and central government as well as non-departmental public bodies told us that they often combine information on household structure with other census variables to analyse inequalities across different family structures, for example analysis on labour market participation, levels of unpaid care and health outcomes across different family types.

This data also supports area profiling and local service targeting by local authorities, charities and community groups. It helps to identify areas which have, for example many older single person households, where young families live and areas with a high proportion of multi-generational households.

We are therefore recommending that we continue to collect information on household and family relationships in Scotland’s Census 2031.

Country of birth and year of arrival to UK for non UK born

Census data on country of birth and migration has been used by local and central government to better understand the composition and geographic distribution of migrant populations and to analyse changes in demographic composition of migrant groups over time at national and sub-national level. Public sector organisations also use this information in workforce analysis to better understand migrant workforce participation and barriers to employment for migrant populations.

Academic researchers have also used this information in combination with other census variables, notably language and national identity variables, to carry out broader cultural and linguistic analysis and to compare the characteristics of migrant and non-migrant populations. Charity/third sector organisations have similarly used this information with other census variables to better understand the demographics of migrant communities.

Country of birth has been used by NHS health boards, Health and Social Care Partnerships and charities/third sector organisations to assess health inequalities for migrant populations, in particular analysis on how migrants differ in health indicators, disability prevalence, and unpaid care patterns. This information allows these organisations to tailor their provision of inclusive and culturally sensitive health and social care provision.

Monitoring bodies and charities have also used this information to support equalities monitoring and anti-racism work. It is used with other census variables to help identify barriers faced by migrant communities, particularly around labour force participation. Census information on migrant year of arrival is also used by these organisations to see how outcomes differ for recent migrants, longer term migrants and UK born populations particularly with regards to employment, education, and housing outcomes.

Researchers and academics have used this information to support policy research on internal migration and population flows for population estimates and modelling to study how migration is influencing population change in Scotland.

We are therefore recommending that we continue to collect information on country of birth and year of arrival to UK in Scotland’s Census 2031.

Address one year ago

Scotland’s Census 2022 also collected information on the respondents address one year ago. This information allows us to differentiate between international migrants and internal migrants who have moved between UK addresses.

Local and central government have used this information to support the production of annual population estimates which underpin allocation of funding, service planning, and government statistical outputs. It has also been used to support public sector population modelling and projections.

Address one year ago has been used by non-departmental government bodies to quality assure internal migration estimates, particularly with regard to flows between Scotland and the rest of the UK. It has also been used as a benchmark for comparing new methods of estimating migration flows by academic researchers.

We are therefore recommending that we continue to collect information on address one year ago in Scotland’s Census 2031.

Passports held

Information on passports held was collected for the first time in Scotland’s Census 2022. We received limited evidence of use cases from consultation respondents for passports held data. One organisational responses highlighted census passports data as being useful for understanding the number of dual citizens in the UK and to feed into local level Long-term international migration estimates.

During our consultation for Scotland’s Census 2022, we received evidence that information on passports would be a useful proxy for citizenship and would facilitate equality related work and contribute to the understanding of migrants. Since being published, data on passports from the census is used in government statistics to estimate migration.

We are therefore recommending that we continue to collect information on address one year ago in Scotland’s Census 2031.

Ethnic group, national identity, language and religion

A total of 112 consultation respondents told us that they had used census data on Ethnic group, national identity, language and religion. This included 75 responses from organisations and 37 from individuals summarised in the chart below:

Ethnic group

For local and central government, data on ethnic group feeds into the creation of local area profiles which in turn are used to inform strategic planning, resource allocation and policy development to ensure that the needs of diverse ethnic communities are being met in areas such as housing, education, health and more. These profiles feed into specific policies such as Local Housing Strategies, Development Plans and Outcome Improvement plans.

Public sector organisations also noted that census ethnic group data supports local government work on Equality, Fairness and Rights Impact Assessment (EFRIA) process by allowing them to assess how proposed policies may impact different ethnic groups. This in turn helps local authorities to ensure compliance with the UK Equality Act 2010.

Ethnic group data is also used across public sector organisations for wider equality monitoring specifically to monitor performance against Public Sector Equality Duty (PSED) requirements, equality impact assessments (EQIAs), workforce diversity assessments and wider equality reporting. Public sector bodies told us that this data has, for example, been used to compare the composition of their workforces with local populations to monitor workforce diversity, target recruitment efforts and evaluate the representativeness of public sector bodies.

NHS health boards and Health and Social Care Partnerships told us that this information is used to monitor inequalities across ethnic groups around health outcomes and to plan culturally inclusive services.

Charities/third sector organisations have also used this data to identify the geographic location and characteristics of ethnic minority communities. Respondents told us that they had combined census ethnic group data with other census variables to analyse how outcomes differ across ethnic groups, particularly with regards to labour market participation, provision of unpaid care, education, and health outcomes. This work supports the planning culturally appropriate services (counselling, community support) and advocacy for improving outcomes for ethnic minority groups (in areas such as health and housing).

We are therefore recommending that we continue to collect information on ethnic group in Scotland’s Census 2031. The UK Government Statistical Service Harmonisation team (based in ONS) are currently reviewing standards for several topics for the UK, including ethnicity.

NRS will therefore review the recommended standards when developing and testing questions on ethnic group and accompanying guidance, informed by legislation, stakeholder input and relevant guidance. The final question set will be set out in legislation laid by Scottish Ministers and be scrutinised by the Scottish Parliament.

National identity

Local and central government use census information on national identity to create area profiles to better understand the characteristics of communities across Scotland. Respondents told us that this information is often combined with other census information (e.g. ethnic group, country of birth, religion) to better understand the cultural characteristics of different communities. In turn, this work helps to support inclusive service design and policy development in areas such as housing, education and employment.

Organisations from across multiple sectors told us that national identity data also supports equality monitoring. Local and central government and other non-departmental public bodies have used census data on national identity to support equality monitoring and statutory equalities work around workforce representation.  Specifically, this data helps to support compliance with public sector equality duties in accordance with the UK Equality Act 2010.

Data on national identity has also been used by charities and community groups to better understand cultural identity in different locations and populations which supports work on advocacy for representation of minority groups. This information is regularly used alongside other census data on topics such as ethnic group and religion which allow organisations to design culturally sensitive services and communications and supports advocacy for improving outcomes for different minority groups. These organisations also use this information to monitor inequalities across different groups, for example in relation to labour market participation.

This data has also been used by academic organisations to analyse changing trends in national identity over time.

We are therefore recommending that we continue to collect information on national identity in Scotland’s Census 2031.

Gaelic language proficiency

Information on Gaelic language has been used by local authorities and non-departmental government bodies to better understand where users of Gaelic live and the proportion of Gaelic users in different areas across Scotland. This helps to target resource allocation, and service planning for Gaelic using populations.

Public sector organisations also use census Gaelic language data to plan and monitor Gaelic education, specifically Gaelic Medium Education (GME) and other Gaelic learning opportunities, to ensure that educational provision reflects local Gaelic using populations.

Local authorities have used this data to identify local areas where Gaelic is significant enough to trigger enhanced services in accordance with "Areas of Linguistic Significance" in the Scottish Languages Bill and for equality monitoring purposes to see how outcomes in areas such as labour market participation and education differ for Gaelic and non-Gaelic users.

Local authorities and public health bodies have used census Gaelic language data to shape how health and social care services are delivered in Gaelic using communities by ensuring services (e.g., healthcare, cultural programming, public information) are available in Gaelic where populations require it.

This data has also been used by academics and researchers to understand trends in usage of Gaelic language over time and is often combined with other census variables to analyse the demographic profile of Gaelic using communities. It has also been used by media organisations to inform Gaelic public programming.

In 2025, the Scottish Parliament passed the Scottish Languages Act to make provision about support for the Gaelic and Scots languages, education in relation to Gaelic and Scots and for other connected purposes.

We are therefore recommending that we continue to collect information on Gaelic language proficiency in Scotland’s Census 2031, but will investigate further whether any changes to the existing question set are required to comply with the provisions of the Scottish Languages Act.

Scots language proficiency

Similarly to data on Gaelic language proficiency, Local Authorities use census data on Scots language usage to understand the proportion of Scots users in different areas. This information supports targeted engagement in places where Scots language presence is high and helps identify gaps in local service provision, such as access to Scots‑language library materials.

Responses from charities/third sector organisations reported that  Scots language data informs planning and service provision that is inclusive and effective for Scots speaking communities for example translation services, creating suitable content for educational and promotional materials and making support services available to Scots speakers. These organisations have also used this data to inform political advocacy for Scots‑speaking communities.

Academic organisations highlighted that census data provides an authoritative source for the number of Scots language speakers in different areas, not available in other data sources, particularly in rural and island communities. As such, this data helps organisations to profile the demographic characteristics of Scots language users in different areas and to assess how outcomes differ between Scots and non-Scots users in areas such as education, health and employment.

In 2025, the Scottish Parliament passed the Scottish Languages Act to make provision about support for the Gaelic and Scots languages, education in relation to Gaelic and Scots and for other connected purposes.

We are therefore recommending that we continue to collect information on Scots language proficiency in Scotland’s Census 2031, but will investigate further whether any changes to the existing question set are required to comply with the provisions of the Scottish Languages Act.

English language proficiency

Local and central government use English proficiency data to profile communities and to identify locations where English is not the main or strongest language. This supports community planning, identification of areas requiring additional language support and development of Local Outcome Improvement Plans to provide services which meet the needs of non-English users.

Area profiling using English proficiency data also allows Local Authorities to determine where translation and interpretation support is needed to ensure that public information is provided in languages spoken by groups with low English proficiency.

Public sector organisations also told us that this data support equality monitoring work, for example within Equality Impact Assessments, while equalities monitoring bodies use the data to identify potential barriers to service access resulting from a lack of English language proficiency. This supports compliance with statutory equality duties and inclusive policy development.

Similarly, third sector organisations and researchers reported using this data to assess whether local or national policy changes disproportionately affect groups with low English proficiency.

Public health bodies, including NHS Health Boards, use English language proficiency data to develop communication strategies that reflect the needs of communities with limited English. This supports effective health and social care outreach, engagement and awareness campaigns. These organisations have also used this data to understand how limited English proficiency affects the ability to access digital health, social care and wider public services. This supports initiatives for alternative communication formats and targeted outreach.

Furthermore, NHS Health boards and academic organisations have used English proficiency data to understand linguistic factors that contribute to health inequalities. This included exploring how English language skills can impact service uptake (e.g. screening and immunisation programmes) and other health outcomes.

Charities & third sector organisations, including community and faith organisations, have used data on English proficiency to  support analysis of language‑related inequalities for example among older minority ethnic groups. These organisations also use English proficiency data to plan their services for those with limited English skills, ensuring that essential information on things like health campaigns remain accessible.

We are therefore recommending that we continue to collect information on English language proficiency in Scotland’s Census 2031.

Main Language

In addition to collecting data on English, Gaelic and Scots language proficiency, Scotland’s census 2022 also collected information on main language used.

Similar to the use cases provided for English language proficiency data, we received evidence from organisations across numerous sectors which highlighted the importance of main language data for area profiling as part of broader work to understand the linguistic characteristics of communities at local area level. This is particularly important for analysis of minority ethnic communities where English may not always be a first language to better understand where there may be a service gaps for users of non-English languages.

In particular we received evidence from local government and public health bodies highlighting the importance of main language data to inform inclusive service design and for effective and community engagement to allow non-English speaking communities to be represented in local decision making. These organisations also flagged this data as important for policy development and service planning, particularly around education and healthcare to ensure that the services meet the needs of non-English speaking communities.

Charities and third sector organisations have also used census main language data to tailor service provision and communications to meet the needs of communities with a non-English first language.

Language was also flagged by multiple organisations as being important for equality monitoring.  This was linked to wider analysis on differing outcomes in areas such as health, education and labour market participation for minority communities with a non-English first language.

Organisations from across multiple sectors reiterated the importance of census main language data given the lack of alternative sources on languages used in Scotland, particularly at a sub-national level.

We are therefore recommending that we continue to collect information on main language in Scotland’s Census 2031.

To note, we received a large volume of responses which called for the inclusion of a Shaetlan language response option on the census questionnaire and in census outputs.  Our initial view is that these user needs could be met by changes to the existing census language question and/or updated output classifications for census 2031. We will continue to investigate how best to meet user requirements around Shaetlan language. 

Religion

Local Authorities have used religion data to better understand the geographic spread of different religious communities. Respondents told us that information on religion is often combined with other census information on ethnic group and national identity to create profiles of the cultural characteristics of different areas across Scotland. These profiles allow Local Authorities to  tailor services such as healthcare, education and social care to be inclusive by respecting cultural and religious practices for example initiatives such as planning culturally appropriate school meals and community events.

Public sector organisations told us that area profiles including religion information feed into specific policies such as Local Housing Strategies, Development Plans and Outcome Improvement plans to ensure that service provision is inclusive and respects the diverse needs of the community.

Local government respondents also noted that census religion data supports local government work on equality monitoring to measure inequalities in outcomes in areas such as health, housing, education and labour market across different religious groups.  This includes monitoring within the Equality, Fairness and Rights Impact Assessment (EFRIA) which assess how proposed policies may impact different religious groups.

Local and central government also use this information to ensure that their own workforces are reflective of the characteristics of local communities. This helps organisations to ensure statutory compliance with equality legislation on workforce representation and compliance with the UK Equality Act 2010.

Charities/third sector organisations have used census data on religion to better understand the size and location of different religious groups at national and local area level. This information supports monitoring of long‑term changes in Scotland’s religious landscape and informs wider demographic analysis of the changing characteristics of religious communities. It has also allowed community groups to plan cultural programmes, welfare support and outreach services which are sensitive to the religious composition of different areas.

Third sector organisations have also used census data to inform policy debates relating to religion and belief. The data provides an evidence base for parliamentary submissions and policy advocacy.

Academic researchers told us that they have used census religion data to support academic teaching and public presentations on religion and to analyse trends in the demographic profiles of different religious groups over time.

We are therefore recommending that we continue to collect information on religion in Scotland’s Census 2031.

Health, disability and unpaid care

A total of 90 consultation respondents told us that they had used census data on Health, disability and unpaid care. This included 67 responses from organisations and 23 from individuals summarised in the chart below:

General health

Public sector organisations, including public health bodies and Local Authorities have used census general health data to inform strategic planning and policy development. The data contributes to Local Outcome Improvement Plans, Joint Strategic Needs Assessments, Local Development Plans and local authority budget decisions.

This data also supports a wide range of service planning activities for these organisations including forecasting demand for services, allocating resources, identifying areas with high levels of need and for designing preventative health initiatives. Public health organisations reported that this information was of particular importance for older adults given Scotland’s ageing population.

General health data also supports planning for specialist and accessible housing. Local authorities use this data to identify demand for adapted homes, sheltered housing and accessible infrastructure. Other public sector organisations also use this data to inform strategic approaches to housing and support.

Public health bodies and researchers also noted that census general health data provides a population baseline against which survey‑based health indicators can be compared. For example, census data has been used to validate outputs from the Scottish Health Survey.

General health data is used by public sector organisations and academic researchers to support research on veterans’ health and wellbeing. Respondents noted its use in comparing outcomes for veterans and non‑veterans and informing wellbeing and support services

A wide range of organisations use census data on general health for monitoring health inequalities and to understand how health varies across different demographic and socioeconomic groups. General health is analysed both as an outcome and as a determinant, supporting work that links health with factors such as employment, education, housing and deprivation. Organisations using health data for equality monitoring include academic researchers, public health bodies and other public sector organisations. Public sector organisations told us that this information informs Equality Impact Assessments, Fairer Scotland Duty assessments and broader equality outcome monitoring.

We are therefore recommending that we continue to collect information on general health in Scotland’s Census 2031.

Long-term health problem/disability & long term health conditions

A wide range of public sector organisations, including public health bodies and local authorities reported that census data on disability and long‑term conditions  are central to building local area profiles on prevalence of conditions at small area level. This work supports service delivery and targeted health interventions at a local level.

Local authority housing services, and housing teams across public sector organisations have used disability prevalence data to assess needs for adapted homes, sheltered housing, accessibility modifications and wider community infrastructure. These data help ensure that housing supply and design reflect the needs of disabled residents.

Data on disability and long-term conditions is also used in broader strategic planning across public health bodies and other public sector organisations. These organisations highlighted that this data informs decisions around resource allocation, service design, adaptation planning, ageing‑population strategies and locality‑based interventions and also support Local Outcome Improvement Plans.

Public sector organisations and equality monitoring bodies reported that census disability data are a core component of Equality Impact Assessments, Fairer Scotland Duty assessments and wider equality outcome monitoring. These organisations have used census data to analyse inequalities in health outcomes across different demographic  groups, including ethnicity, socioeconomic status, age, and other protected characteristics. Census data has also been used to better understand employment patterns among disabled people and to analyse links between health conditions and economic inactivity,

Researchers, third‑sector organisations and advocacy groups use census disability data to better understand the prevalence of different long-term conditions and to identify locations where specialist support is required.

Third‑sector organisations also reported using disability and long‑term illness data to support campaigns, build evidence for policy change and support funding bids. Respondents also noted that disability data support research on veterans’ health and wellbeing, including comparisons of outcomes between veterans and non‑veterans and understanding the needs of disabled veterans.

We are therefore recommending that we continue to collect information on whether someone has a long term health condition or disability and the types of conditions they have in Scotland’s Census 2031. The UK Government Statistical Service Harmonisation team (based in ONS) are currently reviewing standards for several topics for the UK, including health and care, which includes long-lasting health conditions and illnesses, and disability.

NRS will therefore review the recommended standards when developing and testing questions on disability and accompanying guidance, informed by legislation, stakeholder input and relevant guidance. The final question set will be set out in legislation laid by Scottish Ministers and be scrutinised by the Scottish Parliament.

Provision of unpaid care

Public sector organisations and Local Authorities reported that they had used census data on unpaid care to better understand where carers live and their demographic characteristics including age, ethnicity and sex. Local authorities told us that small‑area unpaid care data allows them to identify neighbourhoods with high caring burdens and supports place‑based planning. Data on unpaid care provision feed into Joint Strategic Needs Assessments, Local Outcome Improvement Plans and wider strategic planning for integrated health and social care services.

Equality monitoring bodies reported that census data on unpaid care is used to explore inequalities affecting specific groups of carers such as ethnic minority carers, women, disabled carers and young carers. Researchers have similarly used this data to investigate inequalities in the demographic characteristics of caregivers as well as to explore how unpaid care interacts with disability and long‑term conditions.

Unpaid care statistics are used by local authorities and public health bodies to design carer support pathways, inform respite planning and understand workforce pressures linked to caring responsibilities. Respondents reported that these data underpin Local Carers Strategies and are used by organisations to target support carers.

Third sector organisations, including a number of charities, highlighted that census data on unpaid care data supports work to build the evidence for lobbying, policy development and funding bids around Scotland’s care infrastructure.

Public sector organisations and academic researchers have used unpaid care data to examine how caring responsibilities affect employment patterns, economic inactivity and other labour market outcomes. These organisations have used census data to understand how unpaid care limits economic participation. Researchers have also used this data to understand the extent of caring among children and young people and the implications for health and wellbeing.

We are therefore recommending that we continue to collect information on provision of unpaid care in Scotland’s Census 2031.

To note, during this consultation we received some evidence of a user requirement for data around unmet care needs. We will continue to investigate whether these requirements can be met with the existing census questions around unpaid care, health and long-term conditions.

Education, labour market and travel to work

A total of 78 consultation respondents told us that they had used census data on Education, labour market and travel to work. This included 55 responses from organisations and 23 from individuals summarised in the chart below:

Qualifications held

Data on qualifications has been used by local government to inform broader workforce profiling work. Consultation respondents told us that having an understanding of education levels in different areas allows local government to monitor the characteristics and performance of the local economy, create policies, strategies and interventions around employment for people with different levels of qualification, attract private investment and identify future risks to the local economy arising from qualifications gaps.

Local government respondents also told us that qualifications data feeds into strategic planning around employability initiatives such as lifelong learning programmes, apprenticeships funding allocations and other employability programmes, particularly in areas with lower educational attainment or limited access to further education. Qualifications data also informs key local government strategies and initiatives such as Local Development Plans and Local Outcome Improvement Plans.

Public health organisations including NHS health boards and Social Care Partnerships told us that they had used census qualifications data to analyse the close relationship between educational attainment and health and wellbeing and the need for health/social care interventions.

Evidence from organisations from across multiple sectors indicated that census qualifications data has been used to investigate inequalities in educational attainment for different groups. This included investigations into sex-based inequalities, differences across socio-economic groups and differences in health and labour market outcomes based on educational attainment. In particular, public sector organisations told us that this information helps them to monitor workforce representation and align their performance against their equality responsibilities. As such, this data feeds into Equality Impact Assessments and Fairer Scotland Duty assessments.

We also received evidence that qualifications data has been used by charities, third sector organisations and academics to investigate inequalities in education outcomes for minority ethnic groups as well as looking at whether older people face barriers in employment when compared to others with similar levels of qualification.

We are therefore recommending that we continue to collect information on highest level of qualification held in Scotland’s Census 2031.

Economic activity & National Statistics socio-economic classification (NS-SeC)

Responses from local government indicated that economic activity and National Statistics Socio-economic Classification (NS-SeC) data is important to support workforce profiling, skills planning and investment decisions at sub-national level. The data helps organisations assess the characteristics of the local labour market and identifying skills gaps.

Local government organisations also told us that economic activity data is fundamental to understanding overall labour‑market performance, in particular for looking at overall levels of employment. The data is used to inform local government policy development, strategies and interventions around employment, particularly in areas with high levels of unemployment. This includes Local Development Plans, Local Outcome Improvement Plans and strategies for promoting economic growth.

Local authorities have used NS‑SeC data to inform economic development, regeneration activity and wider policy interventions. NS-SeC data is also used to understand the socioeconomic composition of communities, support Local Outcome Improvement Plans and other local planning tools, and shape targeted interventions for areas with specific socioeconomic characteristics.

NHS boards told us that they incorporate economic activity and NS‑SeC data into demographic profiling to inform service planning and assess need within local populations given the close connection between socioeconomic factors and health/social care outcomes.

Numerous organisations from across different sectors told us that economic activity data is important for equalities monitoring. In particular, this data is used to examine how employment outcomes differ for groups such as older people, minority ethnic communities, disabled people, unpaid carers and UK armed forces veterans as well as for investigating sex based inequalities. This work informs public sector equalities initiatives such as Equality Impact Assessments and informing Fairer Scotland Duty assessments.

Similarly, respondents told us that NS‑SeC data is used alongside other census data on education, employment and deprivation indicators to analyse inequalities between socioeconomic groups. Organisations use these data to assess differences in employment outcomes across socio‑economic groups, understand barriers linked to deprivation or social class, and support analysis of economic inactivity.

Academic organisations told us that economic activity data is used in a wide range of analysis on inequalities and how factors such as educational attainment, ethnicity and socio-economic group impact employment outcomes.

NS‑SeC is used also together with occupation and qualification variables to develop socioeconomic profiles of the workforce at national and sub-national level. Organisations from multiple sectors told us that NS-SeC data is used to monitor the socioeconomic composition of the labour market, and specific industries/sectors. This work supports analysis of employment structures and workforce issues and helps to identify future labour market challenges.

Significantly, several respondents told us that the census is a particularly important source for reliable economic activity and socioeconomic information given limitations and quality issues around other existing data sources.

We are therefore recommending that we continue to collect information on economic activity and NS-SeC in Scotland’s Census 2031. To note, we are also recommending the continued inclusion of the Year last worked and Supervisory status questions which are used to create our economic activity and NS-SeC census outputs.

Occupation & Industry of occupation

Similar to economic activity data, local government reported using data on occupation and industry of occupation data to better understand their workforce and plan for local economic needs. This data supports workforce profiling, skills planning and investment decisions and helps organisations assess the characteristics of the local labour market and to identify skills gaps.

Charities and third sector organisations told us that data on occupation & industry is used for monitoring inequalities, for example analysing the extent to which minority ethnic groups are represented in particular industries or occupations, and whether these groups are under-represented at higher levels of seniority. Other organisations similarly told us that this information has been used to analyse whether factors such as English language proficiency influence the industries or occupations that a person works in.

Other responses from charities and third sector organisations as well as academic researchers highlighted that census data on occupation & industry data are important for monitoring changes in labour market characteristics over time. This was noted as particularly important for analysis around the changing size and characteristics of different industries and sectors and how this interacts with broader trends in demography and educational attainment.

We are therefore recommending that we continue to collect information on occupation & industry in Scotland’s Census 2031.

Hours worked

Public sector organisations reported that data on hours worked supports wider work on local workforce profiling and for  building a clearer picture of working‑time patterns within the local economy.  Respondents told us that hours worked information is often used in conjunction with economic activity, NS-SeC data and other labour market variables. As such, many of the use cases for hours worked data overlap with those outlined in the sections above.

Responses from organisations across multiple sectors reported that hours worked data has also been used in analysis of labour market inequalities, particularly in regard to how sex interacts with working patterns. Similarly respondents told us that data on hours worked is used to understand how hours of paid work interact with other factors such as unpaid care responsibilities and to analyse levels of part-time/full-time employment for different ethnic groups. Public sector bodies reported that hours‑worked data is used within Integrated Impact Assessments and other equality‑related assessments to monitor these inequalities.

We are therefore recommending that we continue to collect information on hours worked in Scotland’s Census 2031.

Address of place of work or study

Scotland’s census 2022 included a question on address of place of work or study, which is used to provide estimates of the distance that a person travels from their home address to their work/study address. As such, consultation respondents described a wide range of uses for census data on distance travelled.

Local and central government responses told us that this data is used extensively to map commuting flows. This informs the development of transport policy, helping local government to identify demand for new bus and rail routes and understand regional travel‑to‑work areas at both local and national level.

Local government responses also told us that this information helps them to understand the spatial distribution of jobs and the proximity of residents to employment opportunities. In particular, responses noted that this information is used to assess whether residents can realistically access employment opportunities, particularly in rural and remote areas. This information informs Local Outcome Improvement Plans, transport and housing policy as a well as wider economic development strategies.

Furthermore, respondents from across multiple sectors reported that distance travelled data is used to identify where transport barriers limit access to jobs and learning opportunities. As such, this data supports targeted employability interventions for disabled people, lone parents, young people and others facing geographical constraints.

Local government, NHS boards and other organisations also noted that information on distance travelled to work helped to assess requirements or opportunities around sustainable and/or active travel (e.g. walking or cycling). NHS boards for example have used this data alongside method of travel to work data to understand patterns of active travel, model travel‑related emissions, and support environmental sustainability objectives.

We are therefore recommending that we continue to collect information on address of work/study in Scotland’s Census 2031.

Method of transport to work or study

Consultation respondents described a wide range of uses for census data on method of travel which often overlap with use cases around distance travelled to work/study. These use cases support transport planning, environmental analysis, equality work and wider strategic assessments across local and national government.

Local government responses told us that method of travel data is used to support the planning and development of transport networks. Respondents noted the importance of this data for planning new bus, rail and active‑travel routes, informing Local Transport Strategies, and guiding investment decisions based on commuting patterns. This data also helps to inform planning for new housing and regeneration areas by helping to identify areas where improved transport links are needed.

Local and central government responses also highlighted the importance of method of travel data in planning for net‑zero and wider environmental strategies. Respondents highlighted the usefulness of this data for modelling emissions from commuting, identifying opportunities to reduce high‑carbon travel and informing greener‑travel initiatives.

As with distance travelled to work/study data, respondents from local government and from NHS health boards highlighted that method of transport data is frequently used to monitor active travel trends and to assess opportunities for promoting active travel such as walking and cycling. Census data supports analysis of changes in active travel uptake over time and informs the development of active travel initiatives and infrastructure.

Public sector organisations also reported that method of travel data has been used to understand and analyse the increasing prevalence of homeworking, particularly in the context of post‑COVID changes. The information is used to assess impacts on transport demand, service planning and town‑centre activity. This analysis informs analysis into wider lifestyle and mobility patterns.

Responses from charities and third sector organisations indicated that this data has also been used to analyse differences in commuting patterns for different sexes. This includes understanding how caring responsibilities and part‑time work influence modal choices and supporting policy recommendations aimed at improving transport accessibility for women.

We are therefore recommending that we continue to collect information on method of travel to work/study in Scotland’s Census 2031.

Sexual orientation and trans status or history

A total of 64 consultation respondents told us that they had used census data on Sexual orientation and trans status or history. This included 51 responses from organisations and 13 from individuals summarised in the chart below:

Sexual orientation and trans status or history

Local government cited the important of census data on sexual orientation and trans status or history for understanding the size and geographic locations of different LGBTQ+ communities. This information feeds into strategy and policy development to meet the needs of local LGBTQ+ communities. Specifically, this information has been incorporated into Local Development Plan and Local Outcome Improvement Plans as well as wider budget planning and allocation for LGBTQ+ support services.

Local government responses highlighted that continued inclusion of these questions on future census questionnaires would allow for a better understanding of demographic change in LGBTQ+ populations to support local authority planning for future service needs.

Local government respondents also told us that is information has helped for planning community events and youth services targeted at LGBTQ+ communities. This includes identifying areas for further engagement with LGBTQ+ community groups and areas where targeted support or outreach may be needed.

Charities and third sector organisations highlighted the importance of being able to identify where LGBTQ+ communities are located geographically in order to support local advocacy and work to support local LGBTQ+ individuals.

Local government and NHS health boards highlighted the importance of this information for planning around health and social care tailored to the needs of LGBTQ+ communities. This information helps these organisations to ensure that services address the specific health needs of LGBTQ+ populations and to ensure that they are able to target health and social care messaging. Specifically, this data has helped to inform Joint Strategic Needs Assessments for NHS health boards.

Organisations from across multiple sectors told us that data on sexual orientation and trans status is important for equalities monitoring and to understand how outcomes differ across LGBTQ+ groups, for example health outcomes, labour market participation unpaid care responsibilities.

In particular, Public sector organisations, including local and central government, and equalities monitoring bodies told us that this information feeds into work on statutory equalities work such as Equality Impact Assessments, Integrated Impact Assessments and wider work on employee equality monitoring, such as diversity and inclusion strategies, to ensure that they are meeting equality responsibilities.

Charities and third sector organisations also told us that this data allows them to evidence inequalities, inform contributions to consultations and parliamentary briefings, and support campaigns aimed at improving services for LGBTQ+ communities. Specifically, these organisations indicated that this data helps to support casework and provide advice to public sector organisations about their responsibilities under the Equality Act 2010.

These organisations also listed uses of this data for specific LGBTQ+ communities such as supporting the Pride in Veterans Standards in order to help develop inclusion and equality of treatment for LGBTQ+ veterans and monitoring of inequalities in outcomes for LGBTQ+ who are also part of minority ethnic communities.

Academic researchers told us that they use census sexual orientation data to analyse demographic patterns, inequalities and changes over time. Respondents noted that these data support work on analysis health and labour market outcomes for LGBTQ+ communities.

We are therefore recommending that we continue to collect information sexual orientation and trans status or history in Scotland’s Census 2031.

UK armed forces veterans

A total of 37 consultation respondents told us that they had used census data on UK armed forces veterans. This included 34 responses from organisations and 3 from individuals summarised in the chart below:

Consultation respondents from across multiple sectors told us that census data on UK armed forces veterans is widely used to understand the size, and location of veteran communities across Scotland. Veterans data is often combined with census information on sex, ethnicity and health variables to better understand the characteristics of veteran populations.

In particular, responses from local and central government highlighted the importance of census data on armed forces veterans for profiling the size and characteristics of veteran communities at a local area level. This informs local government work on related to employment initiatives targeted at veterans entering civilian jobs, provision of financial and welfare advice specific to veterans, provision of specialist housing services (Housing needs and demand assessments) to veterans and broader strategic planning around the needs of local veteran communities.

Local government responses also use this data to plan and develop community initiatives aimed at tackling social isolation in veteran communities and to target the provision of information to veterans on public services and support available to them at a local area level.

Several local government responses highlighted the importance of the work described above to meet statutory requirements mandated by the Armed Forces Covenant which aims to ensure that local services meet the needs of veteran communities and to complete Equalities Impact Assessments and Fairer Scotland Impact Assessments aimed to ensuring equitable outcomes for the veteran community in Scotland.

Central government responses highlighted the importance of the collection and analysis of census veterans data as part the UK wide “Strategy for Our Veterans” and associated Scottish Government Action Plan aimed at improving outcomes and identifying service gaps for veterans. As such, this data has informed policy development and strategic planning for services at a national and local authority level to support veteran communities.

Public health bodies similarly told us that census veterans data was important for profiling the location of characteristics of veterans communities given the particular healthcare needs that this community may require. This data helps NHS boards to plan services to improve the health outcomes of veterans at a local level. Organisations mentioned that this data has been used by NHS and Health and Social Care Partnerships for strategic planning  (Joint Strategic Needs Assessments) to meet the health and social care needs of veteran communities.

We received evidence from numerous charities and third sector organisations indicating that census data on veterans is used to target service planning and advocacy based on the geographic location of veteran communities. The data allows charities and third sector organisations to plan services around helping veteran personnel transition into civilian life, particularly in regard to employment opportunities.

Respondents from academic organisations told us that they had used census data on UK armed forces veterans, in conjunction with other census variables, to analyse the demographic composition of veteran communities and to better understand their circumstances,  for example in regard to health and disability outcomes and labour market outcomes.

Several organisations across multiple sectors cited the census veteran data as being of critical importance given the lack of a reliable count of veterans at a sub-national level in Scotland. As such, census data on veteran has allowed for much more granular detail providing insights which were previously unobtainable. It was also noted that having the veterans question on future census questionnaires would be critical for monitoring changes in the size and characteristics of the veterans community in Scotland over time.

We are therefore recommending that we continue to collect information UK armed forces veterans in Scotland’s Census 2031.

4) Updated view on topics under considerations - suggestions for new topics

As part of this consultation, we asked for suggestions for new topics to be included in Scotland’s Census 2031 for the first time. Once all responses had been reviewed, we carried out an initial assessment of the suggestions that we received to determine if there was evidence of a statistical user need for each one. We then discussed these with topic expert groups.

These groups were made up of Scottish Government policy and analytical colleagues who are experts in their areas and are best placed to advise on user needs and wider stakeholder views. Reviewing new topic suggestions with these groups allowed us to:

• Verify evidence received in the consultation
• Identify evidence gaps
• Get a better view of existing data sources which may meet user requirements
• Identify potential challenges around the inclusion of new topics

Feedback gathered from these discussions was added to the evidence that we received in the consultation. This information was then used to score new topic suggestions against our evaluation criteria, outlined in section 2 with a particular focus on user requirements.

Other new topic suggestions were reviewed with the expert groups but were not included in the scoring exercise, for example in cases where a strong user need could not be established, or where existing data sources are already meeting user requirements. A list of these, and the reason why they were not scored is included in Annex A.

The classifications used to describe our initial views on potential new topics for census 2031 are outlined in the table below:

The table below summarises our initial view on potential new topics based on the evidence that we received during the consultation and our discussions with expert groups:

Care experience status

Consultation respondents noted a need for robust national data on care‑experienced people to support The Promise and 2025 Bill. A Census question could provide a reliable population estimate, improve understanding of outcomes, and enable accurate planning, funding, and accountability.

NRS will undertake question and public acceptability testing to help inform a decision on whether a question should be recommended for inclusion in the census in 2031. Further consideration will also be given to whether alternative ways of meeting the user need exist.

Household adaptations

Respondents highlighted a need for better data on household adaptations to understand supply and demand of accessible homes amid an ageing population. Census data could support planning, policy (e.g. Housing to 2040), and resource allocation, and help identify households living in unsuitable housing .

NRS will consider whether to recommend collecting information on number of Household adaptations in 2031. This will include seeking the views of the Northern Ireland Statistics and Research Agency (NISRA) who included a question on household adaptions in their 2011 and 2021 censuses and how well the census question met their user’s needs. Where possible we will aim to harmonise with NISRA to increase the utility of this data.

Social isolation

There is user need for improved data on social isolation to support preventative health policies. Census data could fill gaps, enable targeted interventions and funding, and provide long-term insight into the impact of isolation across different groups.

NRS will work with data users to better understand user need for additional information on the topic of social isolation. We will then consider whether the census is the most appropriate way of collecting the information and/or whether alternative methods of meeting the user need exist.

History of recent moves

Respondents highlighted a need for more detailed migration data (including reasons for moving to Scotland) to understand demographic change, housing flows, and trends in population distribution to support planning and policy, particularly for rural and remote areas.

NRS will work with data users to better understand user need for additional information on the topic of inward migration, including specifically information on reason for migration. We will then consider whether the census is the most appropriate way of collecting the information and/or whether alternative methods of meeting the user need exist.

Single parent families (second address)

There is a requirement for data on children living across separated families to better understand shared parenting patterns and support service planning, funding, and policy development around children’s needs.

Evidence from the Office for National Statistics (ONS) shows that this data can be used to improve coverage of the census and reveal changes in society by showing more complex living arrangements, ensuring that the population is captured more accurately.

NRS will give further consideration to whether to recommend collecting information on number of second addresses in 2031. This will include seeking the views of ONS who included a question on second address in their 2021 census and how well their question met user needs. Where appropriate we will aim to harmonise with ONS to increase the utility of this data.

Income

Strong user need has been identified for income data. Organisations from across multiple sectors outlined the importance of income data for a wide range of purposes including poverty and inequality modelling, area profiling, deprivation analysis and more.

Income has previously been considered for inclusion in the 2011 and 2022 censuses. NRS is currently researching whether income statistics can be produced using existing administrative data sources to meet user requirements as opposed to including an income question on the census questionnaire. A question was tested for 2022 but was not taken forward, as a suitable question in a census context could not be developed which collected robust data and did not affect response and item non response rates.

Hours and location of parental and non-parental care

We received requests for a census topic on care provided by a child’s parent(s) within their own household, referring to the time parents spend directly looking after their children. There were also requests for data on unpaid care provided by someone other than the parent(s), typically a relative or friend, often outside the household, representing informal support that contributes additional care responsibilities beyond those of parents.

After reviewing with topic experts, there was uncertainty as to whether a census question would provide an evidence base for policy and decision making where focus is generally more on the provision of support services in areas. Topic experts also noted that informal care arrangements through family members can be difficult to measure accurately and the reason for this type of care may not be clear.

We are therefore not recommending that this topic be included in Scotland’s Census 2031.

Volunteering

Requests were also received for the inclusion of a question on volunteering. A question on volunteering was considered for Scotland’s Census 2022. The reason for this topic not being included at the time was:

“Developing a satisfactory question which would cover the wide variety of voluntary work which people might undertake is complex with a single question.

There was concern from some consultation respondents that it would not be possible to ask a satisfactory question on voluntary work. Concern was raised about potential unwillingness to report voluntary and unpaid work given implications for benefits. Voluntary and unpaid work topic report | Scotland's Census”

During our census 2031 topic consultation engagement, we noted that user needs were currently being met by existing alternative sources such as the Scottish Household Survey. In addition to this potential issues around data quality were reiterated by topic experts.

We are therefore not recommending that this topic be included in Scotland’s Census 2031.

Language used at home/workplace/community & Need for translation or interpretation support

Some user need was identified around a topic on language used at home, in the workplace or the local community as well as around need for transport/interpretation support.

After review of the evidence provided, these suggestions did not meet the evaluation criteria for inclusion in Scotland’s Census 2031 largely because user needs around these topics can be, at least partially, met through existing census topics. The census asks for respondents main language and English language proficiency.

We are therefore not recommending that this topic be included in Scotland’s Census 2031.

Renewable energy source

We received some evidence of user need for a census question on household access to renewable energy sources. The user need around this did not meet the evaluation criteria as a separate topic but we will consider if needs can be better met by reviewing response options for the question on central heating type.

We are therefore not recommending that this topic be included in Scotland’s Census 2031.

Details of moving to/within UK/Scotland

Some evidence of user need was provided for a topic on more detailed information on internal migration, specifically around the reason for moving to a different UK/Scotland address.

This topic suggestion is similar to “History of recent moves” outlined above, which NRS will investigate further. There is also an existing census question on address one year ago question which provides data on recent moves within the UK.

While we are, therefore, recommending that this topic is not considered further for inclusion in the census, we will consider how we can best share user needs with other producers of statistics to see if user needs can be met by other sources.

5) Next steps

This report represents out initial views on what census data users have told us they need from Scotland’s Census 2031. In order to develop the question set that we will recommend for inclusion in the census questionnaire, we will continue to work with users and undertake research. This includes small-scale question testing to inform our decision making which will commence in August 2026. We will also continue our work to investigate whether user needs around some census topics can be met by existing data sources and make recommendations in due course. 

Annex - Additional suggestions for new topics which were not included in scoring exercise