Written evidence from Connected by Data[1] (TEB15)

Public Administration and Constitutional Affairs Select Committee

Transforming the UK’s Evidence Base inquiry

Our response focuses on the pivotal role of communities in data and statistics production and utilisation, recognising the distinct needs of different communities defined by factors such as locality, identity, and other characteristics that shape how people’s lives are lived. We advocate for inclusivity, community empowerment, and a nuanced understanding of the plurality of the data landscape and the diversity of the UK’s evidence base.

Our response draws on the Data Values Manifesto developed by the Global Partnership for Sustainable Development Data and research we carried out for the Joseph Rowntree Foundation on community needs for data, statistics, insight and evidence.

■        Build trust in the UK’s evidence base: As concern about data increases and novel data sources are introduced into the UK’s evidence base, there is a need to re-establish the social licence around that evidence base through suitable participatory and deliberative processes, transparency, and accountability.

■        Support community use of data and statistics: The purpose of official data and statistics extends beyond government and business utility: it should encompass communities and civil society organisations.

■        Empower communities to define labels, measures and methodologies: We advocate for a collaborative approach that empowers communities to shape data modelling and statistical methodologies. This honours their expertise, respects their values, and fosters transparency and accountability.

■        Include community-generated data in the UK’s evidence base: Integrating community-generated data into the decision-making process offers insights that conventional methods might overlook, enhances representation and enables tailored policies.

■        Balance quantitative and qualitative approaches in decision making: It is important to strike a balance between quantitative data and qualitative insights to achieve informed and empathetic decision-making: quantitative data offers trends and patterns, while qualitative insights provide context and human stories.

■        Safeguard communities through ongoing impact assessment: Responsible generation and use of data and statistics demands continuous impact assessment, including community consultation, that evaluates potential harms and benefits to communities.

By placing communities at the heart of the UK’s evidence base, we envision a future where data-driven decisions resonate deeply with the people they affect, promoting inclusivity, transparency, and societal well-being.

Build trust in the UK’s evidence base

As the UK’s evidence base is transformed and data plays an increasingly pivotal role in informing policy-making and societal decisions, it is crucial to continually re-establish public trust in the evidence base, and in the process of creating and using it. Public participation should be embedded in the governance of data and statistics; as the Data Values Manifesto puts it, “Invest in public participation for accountability”.

Recent years have seen heightened public concerns about data privacy and the potential misuse of personal information, influenced by news stories such as those around the use of data in the health system, to allocate A level grades during the pandemic, and Cambridge Analytica’s use of Facebook data for election campaigning[2]. These public concerns include questions about who is served by the collection, sharing and use of data and statistics. At the same time, the use of new data sources such as administrative data in research and statistics can provide useful insights, but visibility about what data is being used and shared is low, and can be surprising and concerning to those the data is about, especially as it can be characterised as the private sector sharing citizen’s personal data with the government.

The use of data to create evidence and inform decisions – particularly in policymaking – is frequently justified as advancing public good, and research on public attitudes on data finds that people are generally happy for data to be used for public benefit[3]. However, research by ADR UK and the Office for Statistics Regulation has found that “the public want to be involved in making decisions about whether public good is being served”[4].

Much of our response will focus on various ways in which communities should be brought into the operational processes that lead to the production of statistics. But public engagement, and participatory and deliberative processes, are also essential in the overall governance of data and statistics. This should include:

■        the use of deliberative exercises to establish the social licence for the use of novel forms of data, such as administrative data, or new analytical techniques, in the creation of statistics

■        the inclusion of public voice in the governance of statistics, for example through public representatives within existing governance structures or the establishment of separate public panels and groups

■        a culture of openness and transparency that increases accountability by inviting engagement, scrutiny and challenge from academia and civil society organisations

Involving the public in deliberations about data collection and usage cultivates a sense of trust, fostering an environment where people feel comfortable sharing information about themselves and the use of that data for public benefit. Transparency throughout the process is crucial, from data collection to analysis and dissemination. Being open about the intentions, methods, and potential implications of data usage establishes a foundation of accountability to the people who will be affected by the creation and use of the UK’s evidence base.

Support community use of data and statistics

The value of official statistics lies not only in their ability to inform policy and economic decisions but also in their potential to empower communities with insights into their own dynamics and to enable them to be active stakeholders in the democratic decision-making process. A successful transformation of the UK's evidence base must democratise access to data and statistics. In particular, the introduction of new sources of data derived from that held by the private sector must not come at the cost of the ability of the public to see, understand and debate the basis on which policy decisions are being made.

Communities have nuanced demands for data and statistics that reflect their specific contexts, challenges, and aspirations. Communities may require tailored data collection strategies, dissemination methods, and engagement platforms. Prioritising data for public release may involve trade offs between different community needs, in terms of the data extracts that can be safely published. As the Data Values Manifesto says, the goal should be “open and responsive data systems so that all people share in the benefits of data”.

In the pursuit of an inclusive UK evidence base, the government should learn from participatory research approaches. Participatory research allows communities to share their perspectives, validate methodologies, contribute to shaping research questions, and to focus on the kinds of evidence that empower rather than objectify communities. This collaborative approach not only enriches and ensures the utility of the evidence base, but also empowers communities to take an active role in generating insights that are relevant and have value to them.

To support the use of data and statistics by communities, they should be accessible and understandable. Evidence should be available in user-friendly formats with clear and concise explanations of methodologies and findings. The government should also promote data capability and literacy among communities and civil society organisations. The ability to interpret, analyse, and critically engage with data empowers individuals to actively participate in discussions, decision-making, and advocacy. Investing in data literacy initiatives and subsidising digital infrastructure – such as community-accessible compute – equips communities with the tools they need to make use of the UK’s evidence base. In that context, particular care has to be taken to support the transition to new data sources when communities may have invested resources in gaining familiarity with current ones.

Empower communities to define labels, measures and methodologies

The first principle of the Data Values Manifesto is to “support people to shape how they are represented in data”. During our work with the Joseph Rowntree Foundation, communities talked to us about the importance of the labels used in data, such as how an area being labelled as “deprived” can have impacts on the self-worth of people living there.

Effective data-informed decision-making hinges on the accuracy and clarity of the labels, measures and methodologies used in data collection and analysis. Communities are not just passive subjects of data; they are experts in their own contexts and should play an active role in shaping the definitions that underpin evidence generation. No one understands the intricacies of a community better than the community itself.

Often, standardised terms and definitions imposed from external sources can distort the picture of what’s being experienced by communities. Official data and statistics must embrace a collaborative approach of dialogue and co-creation, so communities can collectively shape labels and measures that reflect their culture, context, and priorities, and methodologies that lead to higher engagement and higher quality data. This is already happening in places – the ONS has documented the substantial research and consultation process behind the development of the sexual orientation question in the 2021 census for example.

A co-design approach to labels, measures and methodologies not only yields more accurate data but also empowers communities by acknowledging their agency and expertise. It is the ethical thing to do. It respects the dignity and agency of the people represented in data, and the diversity of cultures and contexts in the UK, by ensuring that data models and collection methods align with their values and beliefs. When communities contribute to shaping evidence generation, they become invested in its outcomes and are more likely to engage positively with the data produced. A participatory approach fosters trust and transparency, laying the foundation for a more ethical and collaborative evidence-generating ecosystem.

Include community-generated data in the UK’s evidence base

The UK’s evidence base arises from an array of sources, including official surveys and administrative or ‘exhaust’ data from our day-to-day interactions. Within this mix, communities should be recognised as active generators of valuable data that can offer unique insights into their realities. Doing so fosters more accurate, actionable, and equitable policy decisions. Within the environmental data movement, this has been characterised as a “Right to Contribute Data”. A good example of how community-generated data can be brought into the UK’s evidence base is Jack Monroe’s campaign for the “Vimes Boots Index”, based on their own data collection about the prices of budget supermarket food over a number of years, which informed the ONS’s experimental statistics tracking the price of the lowest priced grocery items.

Traditional data sources are invaluable but might not always capture the nuances of rapidly evolving communities or reflect the diversity of experience in different localities. Communities possess first-hand knowledge of their circumstances that adds context and local expertise to official statistics. Including grassroots data allows for the identification of trends, challenges, and opportunities that might not be evident through traditional means. Valuing and integrating this data creates a more holistic evidence base that better captures the realities of our society, and this can lead to more targeted policies that are sensitive to the specific needs of different communities.

Moreover, community engagement in data production cultivates a sense of ownership and agency. When individuals and groups see themselves reflected in the data, they are more likely to engage in the decision-making processes that affect their lives. This empowerment not only strengthens democratic principles but also results in more effective and sustainable policy outcomes.

The Office for National Statistics (ONS) and the Government Statistical Service (GSS) should actively collaborate with communities to develop frameworks that ensure the quality and reliability of community-generated data so that it becomes an acceptable part of the UK’s evidence base. This not only improves community-generated data but validates the role of communities in shaping evidence, promoting a sense of accountability among those contributing data and ensuring that it is taken into account in policy-making. By embracing community-generated data, the ONS and GSS can bridge the gap between official statistics and the lived experiences of communities, fostering a more comprehensive and nuanced understanding of society.

Balance quantitative and qualitative approaches in decision making

There is a synergy between quantitative data and qualitative insights. While quantitative data offers valuable metrics and trends, qualitative methods provide the human stories and context that breathe life into statistics. Striking a balance between these two approaches is essential for informed and empathetic decision-making, especially when considering the complexities of communities' lived experiences.

Quantitative data provides an essential framework for understanding patterns and trends within communities. It offers statistical clarity and enables the identification of correlations and causations. However, data points alone rarely capture the intricate interplay of socio-cultural dynamics, historical contexts, and personal narratives that shape society. Qualitative methods such as in-depth interviews, focus groups, and ethnographic studies allow for a deeper exploration of the "why" behind the numbers and provide a platform for individuals to share their stories and perspectives.

Official statistics and analysis should acknowledge the inherent value of qualitative data, recognising it as an indispensable complement to quantitative information. By utilising qualitative methods, decision-makers gain a more holistic understanding of community issues, and policies become more attuned to the multifaceted dimensions of people's lives. This approach fosters empathy and ensures that policies are designed with a true appreciation of the human impact.

Safeguard communities through ongoing impact assessment

The responsibility of the producers of the UK’s evidence base extends beyond its creation to encompass its impact on communities. Ethical and responsible collection, processing and use of data requires ongoing impact assessment, including identifying potential harms and benefits to communities represented and unrepresented within the data.

Safeguarding individual privacy is an important foundation in the ethical responsible production of data and statistics. However, data ethics and good data governance goes beyond adhering to data protection regulations. It requires the recognition of other harms – not least the perpetuation of systemic biases – that can arise at every stage of the data lifecycle. In our work with the Joseph Rowntree Foundation, for example, community groups talked about the impacts of both the over-collection of data and the burden of being repeatedly surveyed, and under-collection leading to invisibility in decision-making. At the Gloucestershire Data Day, community groups highlighted how data collection can undermine relationship formation and distort community activities.

To use data ethically means recognizing the power inherent in collecting data and using evidence in decision-making, and orienting every stage towards socially just outcomes. This requires an understanding of the values, preferences, and aspirations of different communities and society as a whole.

Initial risk assessment, followed by regular evaluation of the impact of data and statistics, is crucial to identify potential harms, unintended consequences, and areas for improvement. Regularly evaluating the effects of data and statistics on communities means that issues can be identified and rectified quickly, ensuring that policies remain aligned with the goal of promoting societal well-being.

Active community consultation plays a pivotal role in this process. Engaging with communities affected by data and statistics fosters a dialogue that is essential for understanding the impact of data collection and evidence-based decision making, and addressing any concerns communities might have. Communities can provide first-hand accounts of any adverse effects they experience and offer valuable insights into potential solutions. This collaborative approach respects the sensitivities and concerns of the people involved. It not only enhances the ethical use of data but also empowers communities as active participants in shaping their own welfare.

Conclusion

Creating data and statistics that are valuable for and truly reflect the experiences and needs of communities requires their active participation. Our response has highlighted a range of ways in which this can be realised including embedding public representatives in governance structures, acknowledging the significance of community-defined and -generated data, incorporating qualitative insights, and maintaining an inclusive, ethical, transparent approach.

We note that the UK statistical community is actively exploring and engaging in the topic of public participation in the creation of evidence. For example, though at an early stage, the Public Engagement in Data Research Initiative (PEDRI) includes a range of partners who “recognise the need for collective action to embed meaningful public involvement and engagement across the data ecosystem”.

However, there is significant work to do to embed deliberative practices in the transformation of the UK’s evidence base. This includes developing and sharing good practices across the statistical ecosystem, and updating the Code of Practice for Statistics to recognise the importance of public participation. Empowering communities as not merely sources of data but as active participants in decision making is essential for making the most of novel datasets and methodologies, and realising an evidence base that is useful and ethical.

August 2023

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