Apologies for crossposting.

Those of you who have seen the consultation document on civil
registration will be aware that it is aimed at a wide audience. ONS has
now prepared a briefing for those of us who are more likely to want to
comment on data collection aspects of the registration process. This is
appended. ONS wants replies by December 6.


---------- Forwarded message ----------
Date: Tue, 23 Nov 1999 11:55:56 -0000
From: "Cadogan, S J" <[log in to unmask]>
To: "[log in to unmask]" <[log in to unmask]>
Subject: Consultation on "Registration : Modernising a Vital Service " - B riefing Note on Statistical Issuses

> Dear All --
> 
> Please see the attached briefing note on statistical issues in relation to
> the consultation on the review of civil registration.  
> 
> Please feed back comments as soon as possible and no later than 6
> December.
> 
> Consultation on "Registration:Modernising a vital service" - briefing note
> on statistical issues
> 
> 1.	Introduction
> 
> 1.1 Vital statistics are based on information collected at civil
> registration.  They are essential to planning and evaluating all public
> services for central and local Government. This is especially true for
> public health and health care. Vital statistics enable us to measure the
> size of health problems, to decide priorities for intervention, to set
> targets for Health Authorities and other statutory bodies, and to monitor
> progress towards them. 
> 1.2 ONS is undertaking a fundamental review of the civil registration
> system, to assess how the registration service must change to continue to
> meet the needs of individuals and families. This provides an opportunity
> to put the case for improving the information gathered. A public
> consultation is currently being undertaken, with the aim of obtaining as
> wide a spectrum of views as possible on the reforms that are needed. The
> questions posed in the consultation document (Registration: Modernising a
> vital service , available on the Internet at http://www.ons.gov.uk)  have
> significant implications for the future collection, linkage and analysis
> of vital statistics information. Views should be sent to the review team
> (relevant details of the consultation document and response process are
> provided in Appendix 1). The consultation period ends on 6 December 1999.
> 1.3 This note provides additional briefing to users of vital statistics
> data to highlight the possible impact on the quality, quantity and
> continuity of information, which may result if major reforms of
> registration are implemented.  The ideas put forward in the consultation
> document offer the prospect of radical change to the registration system.
> These will assist users, clarify employment of registrars, implement
> technological solutions and meet new government policy objectives. There
> is little doubt that many of these will be welcome. It is also important
> that vital statistics, which are one product of the system, are
> safeguarded and, where possible improved in making these changes.
> 
> 1.4 As the consultation document aimed to reach a wide audience, ranging
> from the customers of registration systems to service providers and policy
> makers, it was not possible to spell out in detail the implications of
> change to specialist users. A commentary on the issues for vital
> statistics users is therefore given below. 
> 
> 2.	Issues affecting vital statistics
> 
> 2.1  The following questions, asked in the consultation document, have a
> particular bearing on vital statistics. References in parentheses are to
> relevant sections of the document:
> 
> Q1 Should it be possible to register births and deaths in a range of ways?
> (2.2)
> 
> The public would like to have some choice in how they register births and
> deaths, either through a wider choice of places and times or by using the
> post, phone or Internet. Registration of deaths by post would require
> close co-ordination between doctors, coroners and the registration
> service, almost certainly via electronic links. There would need to be
> safeguards to ensure that quality and coverage of data collected was not
> compromised.
> 
> Q2 Should electronic links be developed with hospitals, coroners,
> undertakers, crematoria and government departments? How should they be
> used? (2.3)
> 
> Electronic collection and dissemination of data offers the possibility for
> a joined up service which communicates information about deaths
> simultaneously to all interested parties - including GPs. These links can
> be used to address existing problems with data quality.  Quality control
> measure could be built into an electronic system to improve the accuracy
> and validity of the information collected. At present, when responsibility
> for certification is passed from doctor to coroner information is often
> lost. All information from medical records, laboratory investigations done
> by clinicians, and post mortem findings could be available to the eventual
> certifier through electronic links. Such systems could also automatically
> include reminders and follow-up messages for the cases.
> 
> Q5 Should there be national standards for birth and death registration
> services and if sowhat should these be? How should they be enforced? (2.4)
> 
> If information is collected in a variety of ways and places, there is a
> need to safeguard coverage and quality of information. Can this be
> provided by national standards? What mechanisms would be needed? What
> areas should the standards cover?
> 
> Q6 Would quality of information be affected by changing the system? (2.4)
> 
> Changing any system affects the quality of information, for better or
> worse. Changes need to be carefully managed to ensure that improvements
> are achieved and the likelihood of deterioration in quality minimised.
> Electronic certification and registration would, for example, allow the
> use of interactive technology and integration with training modules. On
> the other hand, there would be less control over data obtained through
> linkage. 
> 
> Q14 Should birth registration records be updated and if so with what
> information?
> 
> The registration system currently provides a record of key life events.
> However the separate records do not reflect individuals' current status
> (changes in name, address, sex) or provide linkage to marriage, divorce or
> death. What types of longitudinal updating are acceptable?  
> 
> Q16 How should the balance be struck between individual's privacy and
> public interest in registration records? (4.5)
> 
> When is it acceptable to use registration records for other purposes? How
> will wider uses of information impact on the facts the public is willing
> to provide reliably? 
> 
> 
> 
> 
> Q20 What information should be recorded in the register and on
> certificates? (5.5)
> 
> Would the option of issuing 'short death certificates' (certified copies
> of the death register entry without the cause of death, which the family
> could choose to use as proof of fact and date of death for some purposes),
> improve the recording of causes of a sensitive nature? 
> 
> Q22 Should there be a more flexible and integrated approach to the
> collecting and sharing of information within government? (6.2)
> 
> Current legislation restricts the range of information collected at
> particular events (e.g. marriage), improvements to sources (e.g. to death
> certification) and availability at any occasion (e.g. ethnicity). There is
> some concern from the public about collection of information, which does
> not seem relevant to the actual registration itself. A more flexible
> approach could reduce the burden on the public in supplying information at
> what is often a stressful time, particularly for the bereaved. It may be
> possible to share information already collected, notably by the Health
> Service. Individuals would need to agree to this but it would reduce the
> volume of information that the individual would be asked to provide.
> 
> Q23 Who should provide birth and death registration services?
> 
> Should registrars be employees of Local Government, the Civil Service,
> Health Services or some other organisation? Would any of these options
> contribute to or detract from the quality of information provided? 
> 
> Q25 How should the registration service adopt wider use of technology in
> service delivery? (7.4)
> 
> Adopting wider use of technology is essential to respond to continuing
> change, moving to electronic storage and access to data. Using electronic
> certification and registration would enable links between all the relevant
> authorities to be made, and with built-in checks and warnings to improve
> data quality 
> 
> Q26 What are acceptable uses of civil registration records? (7.4)
> 
> Making records available in electronic format would open the way to a
> wider range of uses.
> 
> Q27 Should the registration of key life events remain free of charge? If
> so, should other fees be set at a level to ensure full cost recovery
> across registration services as a whole?
> 
> Individuals have no choice about registering a birth or a death. It is in
> society's interest that all events are registered. Is there evidence from
> comparable societies of any systematic biases being introduced by charges?
> 
> 
> A full list of questions asked in the consultation document is included in
> Appendix 2.
> 
> 3.	Flexibility for Future Change
> 
> 3.1 The consultation document puts forward the proposal, the context of
> Question 22, to free the exact content and method of collection of
> information through the repeal of the Population (Statistics) Act (section
> 6.2).
> 
> 3.2 At the moment, the ability of the registration system to adapt to new
> circumstances and requirements is compromised by old legislation and
> systems. As a result, it is difficult to adapt design, contents,
> instructions and use of data to changing requirements without recourse to
> changing primary or secondary legislation. Individual level data can be
> made available to external users but this cannot include the information
> collected under the Population (Statistics) Acts, even if this is now
> regarded as no more sensitive than other data (e.g. marital status of
> deceased). 
> 
> 3.3 Certificates cannot be easily altered (e.g. adding a fourth line to
> the cause of death section) as there can only be one prescribed form in
> use at any time, so it is difficult to pilot changes and expensive to
> change all stocks of certificates simultaneously. Moves towards electronic
> and/or interactive certification, which could improve both our service to
> the public and the quality and timeliness of statistics, are prevented. 
> 
> 3.4 Collection of more relevant information is hampered by legal
> constraints. For example, information on the effect of family size and
> position on the health of children is limited by the Population Statistics
> act. Registrars are only allowed to ask married women registering births
> about their previous children to whose father the mother had ever been
> married.
> 
> 3.5 Freeing the exact content and method of collection of information from
> current legislative constraints, as indicated in Chapter 6 of the review,
> would address these issues. 
> 
> 4.	Linkage
> 
> 4.1 The consultation document discusses a 'one stop shop' for customers of
> the registration systems (section 2.3). Implicit in this discussion is an
> exchange of information between departments and agencies within government
> (Question 2). This also opens the possibility of a sharing of information
> already collected, for statistical uses (Question 22 and discussion in
> Section 6.3 more generally). 
> 
> 4.2 There is growing interest in the possibility of using record linkage
> and register-based statistics to gather information about the population
> at reduced cost and burden on the public and improved detail for small
> areas. Such developments allow opportunities to update population figures
> for sub-groups between decennial censuses. Some Nordic countries use
> central population registers to supply information which enables
> individual level linkage to a range of other datasets which might cover
> household and family structures, building information, employment and
> business and education. In some countries these register-based statistics
> take the place of enumerated censuses.
> 
> 4.3 Registration data is of unique value for this sort of statistical
> analysis through its full coverage of the population, allowing analysis of
> sub-groups and small areas, for sampling and for linkage to other sources.
> requirements include linkage identifiers (e.g. NHS number); geographic
> references; quality standards of coding and accessibility with suitable
> mechanisms of control to meet confidentiality requirements.
> 
> 5.	Follow-up Surveys
> 5.1 Section 6.3 of the consultation document mentions the possibility of
> follow-up enquiries to meet some of the need for information.
> 
> 5.2 The information, which it is reasonable to collect at time of
> registration, is limited, sometimes for sound methodological and practical
> reasons but also out of consideration for the informants, particularly the
> bereaved. Follow-up surveys for additional information, as has already
> been done, for example, by the infant feeding surveys, could be used to
> meet the needs of other government departments for very detailed
> information on a small proportion of registrations as well as for
> validation and sample survey research. As a first step, permission could
> be sought for follow-up contact at time of registration.
> 
> 5.3 The balance that is chosen between information collected at
> registration and through sample follow-up will have a direct impact on the
> uses that can be made of the data (for example the geographic detail
> available for analysis). 
> 
> 6.	Pilots and Parallel Runs
> 
> 6.1 Experience shows that data discontinuities have serious repercussions
> on the ability to monitor the circumstances of the population. Pilots, to
> test potential improvements to certificates, are important in assessing
> the impact of changes on data quality and consistency. Parallel running
> and dual coding of changes help to quantify changes and so provide
> continuity of time series information. These activities can be hampered by
> current legislation, which requires that only one form be in use at any
> time. Changes to legislation should enable future adaptation of
> regulations, forms and procedures to exploit improvements in technology
> and to respond to emerging service and information needs. For example,
> electronic certification could be used to improve the quality of
> information on cause of death. 
> 
> 7.	Collect Information for Both Sexes
> 
> 7.1 There are several instances in the registration data where
> old-fashioned views of the roles of men and women continue to determine
> the information that is collected. The system could be changed to reflect
> an aim to collect matching data for both sexes by, for example, at birth
> registration recording occupation details for both parents; on husband's
> death registration recording wife's occupation; on death registration
> replacing the phrase: "occupation (if any) of the mother" with "occupation
> of the mother"; at marriage recording mothers' occupation for bride and
> groom as well as fathers'. The effect of the present variation in the data
> according to sex is that some analyses are restricted to men only.
> 
> 7.2 There are in addition other adjustments to the data collection process
> which might be considered (such as collection of GMC number of doctor on
> deaths records, collection of date of birth on marriage records, etc). 
> 
> 8.	Conclusions
> 8.1 The views of statistical users of registration information, on the
> issues above and any others, will be of great value in meeting the
> objectives of the review, to make changes for the better without losing
> what is most valued.
> Appendix 1 - Chapter 9 of Registration: Modernising a vital service
> 
> 9	The next steps - your views
> 
> 
> 9.1 The next steps
> This review is strongly linked to the Government's programme of
> modernising public services. This document seeks views on a range of
> questions. The responses will be used in developing Civil Registration in
> the 21st century.
> 
> 9.2 Your views
> The pre-consultation stage of the Review sought views and radical ideas
> for reform in the Civil Registration Service in England and Wales from
> many organisations. The Review Team received options and ideas from
> registration practitioners, local government, central government
> departments, service users and the public via their input to the
> Modernising Government White Paper. These have been used in drawing up
> this consultation document. 
> 
> The Review Team now wants views on specific questions from providers and
> users of the registration service, and in particular from the public. 
> 
> Please keep your response as short as possible and clearly show the
> question(s) to which you are responding. If you wish to respond in more
> general terms, please indicate the areas or issues which you are covering.
> It is not necessary to respond to every question. Please make it clear
> whether you are responding as an individual or on behalf of an
> organisation. Responses will not be acknowledged unless this is requested.
> As responses may be published, respondents should make it clear if they do
> not wish their response to be published.
> 
> Written or taped comments should be sent by 6 December to:
> 
> 			Alistair MacGregor
> 			General Register Office
> 			Office for National Statistics
> 			Trafalgar Road
> 			Southport
> 			PR8 2HH
> 
> 			or by e-mail to [log in to unmask]
> 
> 
> 
> 
> 
> Copies of this consultation document are being sent to Local Authority
> Proper Officers for Registration Matters, Superintendent Registrars and
> Registrars of Births, Deaths and Marriages. Copies are also being sent to
> government departments and agencies with an interest in civil
> registration, medical groups, genealogical/family history societies,
> birth, bereavement and family support and advice groups and religious
> groups.
> 
> Further copies of this publication can be obtained from
> 
> 			ONS Direct Sales,
> 			Room D.140,
> 			ONS,
> 			Cardiff Road,
> 			Newport 
> 			NP10 8XG
> 
> 			Tel: (01633) 812078.
> The document is also available on the Internet. The address is
> http://www.ons.gov.uk
> 
> There is a summary of this consultation document available which will be
> enclosed with letters sent by the General Register Office replying to
> public enquiries and requests for certificates. Copies of the summary will
> also be made available at register offices throughout England and Wales
> and local authority information points. A supply of the summary can be
> obtained from the
> 			General Register Office,
> 			ONS Main Store
> 			Segensworth Road
> 			Titchfield
> 			Fareham
> 			Hants PO15 5RR
> 
> 			or e-mail [log in to unmask]
> Appendix 2 Questions asked in Registration: Modernising a vital service
> 
> Consultation Questions
> 
> 
> VIEWS ARE INVITED ON THE FOLLOWING QUESTIONS:
> 
> Q1 Should it be possible to register births and deaths in a range of ways?
> (2.2)
> 
> Q2 Should electronic links be developed with hospitals, coroners,
> undertakers, crematoria and government departments? How should they be
> used? (2.3)
> 
> Q3 Should the registration service offer people a facility to notify the
> birth/death or marriage to public and private sector organisations? (2.3)
> 
> Q4 Should the registration service become a focal point for services
> linked to birth and
> bereavement? (2.3)
> 
> Q5 Should there be national standards for birth and death registration
> services and if so
> what should these be? How should they be enforced? (2.4)
> 
> Q6 Would quality of information be affected by changing the system? (2.4)
> 
> Q7 Should people be able to marry anywhere? (3.1)
> 
> Q8 Should there be national standards for civil marriage ceremonies and
> what should
> these be? (3.1)
> 
> Q9 Should it be possible for the preliminaries to marriage to be
> undertaken in a range of ways? (3.2)
> 
> Q10 Should the registration service provide supportive services e.g. baby
> naming, reaffirmation of vows, information on coping with bereavement or
> bringing up children or the legal status of unmarried parents? (3.4)
> 
> Q11 Is there scope for a more integrated approach for marriages? (3.5)
> 
> Q12 What level of access should be available to registration records of
> varying ages?
> What uses are acceptable? How should historic records be defined? (4.3)
> 
> Q13 Should paper certificates, other than for personal commemorative use,
> be replaced by electronic transfer of information to approved users on
> request? (4.3)
> 
> Q14 Should birth registration records be updated and if so with what
> information? (4.4)
> Q15 What contribution should civil registration make to proving identity
> and how? (4.4)
> 
> Q16 How should the balance be struck between individual's privacy and
> public interest in registration records? (4.5)
> 
> Q17 What should the arrangements be for historic registers? (4.6)
> 
> Q18 Should birth registration cater for a wider variety of circumstances.
> If so, what should they be? (5.2)
> 
> Q19 Should death registration cater for a wider variety of circumstances.
> If so, what should they be? (5.3)
> 
> Q20 What information should be recorded in the register and on
> certificates? (5.5)
> 
> Q21 Should there be greater flexibility to correct errors in registration
> records? (5.6)
> 
> Q22 Should there be a more flexible and integrated approach to the
> collecting and sharing of information within government? (6.2)
> 
> Q23 Who should provide birth and death registration services? (7.2)
> 
> Q24 Who should provide marriage, baby naming, reaffirmation of vows? (7.2)
> 
> Q25 How should the registration service adopt wider use of technology in
> service delivery? (7.4)
> 
> Q26 What are acceptable uses of civil registration records? (7.4)
> 
> Q27 Should the registration of key life events remain free of charge? If
> so, should other fees be set at a level to ensure full cost recovery
> across registration services as a whole? (8.2)
> 
> Q28 Should there be a standard marriage fee? If so how should it be set?
> (8.2) 
> 
> 
> 



%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%%