Census 2031 Strategy for England and Wales

The census of population and housing is unique within the statistical system. It has been at the heart of population statistics for England and Wales for over two centuries. It produces statistics that are widely used by central and local government, charities and businesses, and by the public.

Census data support decision-making for public services, planning and local investment, provide essential information for equalities monitoring and are vital contributors to economic statistics and policy-making. The census is also unique in its part in public life: it reaches out to the whole of England and Wales to take part and the whole population is included in the statistics, down to small communities and areas.

The census is therefore a major component in delivering the Office for National Statistics (ONS)'s mission statement:

"To deliver trustworthy, independent, high-quality statistics that underpin the UK's most critical economic and societal decisions and inform the public."

Delivering the census is the biggest statistical exercise the ONS undertakes. But it takes more than us to make it a success. It relies on the involvement of a huge range of partners, from commercial suppliers who deliver vital components of the process to local government and the community groups who help us to reach every community and place in England and Wales.

Making the census a success is about how we work as well as what we do. This strategy for Census 2031 in England and Wales reflects that. Trustworthiness, value, inclusion and collaboration are central to how we will deliver the census, so that we can produce high-quality outputs that meet user needs. You will see these principles repeated through the different levels of the strategy, along with the central importance of the security of personal data. They also demonstrate our commitment to meeting the standards set in the Code of Practice for Statistics against its pillars of trustworthiness, quality and value.

The start of a census programme is an exciting moment. Decisions made now will prepare Census 2031 for success and ultimately provide those core census statistics that will underpin the statistical system for years to come. Building on our experiences from 2021 and census experiences around the world, we must design a census that will work for the 2030s, facing new challenges and opportunities in society and technology.

Every census throws up challenges. Building flexibility into our plans in 2021 helped us to deliver a successful census despite the impact of the coronavirus (COVID-19) pandemic. Looking forward to 2031, we need to prepare for the challenges we know we will face, but also be prepared and vigilant for changes and challenges we cannot yet see.

The Census 2031 Strategy shows how we will do that. The vision and mission set out what we aim to achieve. The goals, objectives and approaches show how we will do it, reflecting the breadth of the census activity and central themes like inclusion, quality, leaving a legacy, and the importance of collaboration across the UK. And the principles will support us, guiding our decision-making as we seek to achieve that vision.

Mary Gregory, Executive Director for Population, Census and Social Statistics

In June 2025, the UK Statistics Authority (The Authority) recommended that a questionnaire-based census of England and Wales be held in 2031. The UK government commissioned that census and the Office for National Statistics (ONS) has begun its preparations for the 23rd full census of England and Wales. A taskforce worked throughout 2025 to set Census 2031 up for success and established the Census 2031 programme, which starts now.

Part of those preparations has been the development of a strategy for Census 2031. This strategy takes a structured approach and creates a common thread from our vision to programme activities, which will incorporate specific aims such as our quality targets, when they are agreed. It encapsulates the whole of what we are trying to achieve and how we plan to do it, and aligns with the ONS's mission and the Authority's strategic priorities.

The strategy provides a clear picture of the purpose and scope of the census. Alongside forthcoming publications including on our design for Census 2031, it will inform stakeholders and partners, and aid scrutiny and assurance. The strategy's comprehensive approach will help those we engage with to understand what we are doing and how that work supports the delivery of a successful census.

As well as describing the breadth of the work involved, the strategy also highlights priorities in how we plan and deliver Census 2031. These are captured both in the different levels of the strategy set out in this article and in the principles that underpin it. Among these are priorities set out in the UK government's letter commissioning the census, including importance of inclusivity, demonstrating value for money, and collaboration across the UK. While the scope of this strategy is the England and Wales census, it sets out how we will work closely with partners across the UK to ensure that high-quality UK census statistics are produced alongside comparable outputs from each census.

The strategy is also aligned with the broader principles and mission that govern the our work including the ONS's mission statement, the pillars of the Code of Practice for Statistics (trustworthiness, quality and value) and the values underpinning them, articulated in the UK Statistics Authority's strategic priorities for the UK statistical system.

The structure of the strategy follows a modified "VMOST" model for strategic planning, where a vision and mission sit above increasingly detailed objectives, strategies and tactics. Acknowledging the scale of the census, we added an additional layer of goals, while approaches has been used for the layer below objectives (in place of strategies). There are therefore six layers to the strategy: vision, mission, goals, objectives, approaches and tactics, all of which are underpinned by a cross-cutting set of principles.

This article sets out in full the vision, mission, goals, objectives and principles in the Census 2031 Strategy. The approaches that sit below each objective are summarised here. The tactics layer provides a practical link between the objectives and approaches, and resource management.

This strategy aims to be a constant for Census 2031, without being static. As we progress through our preparations for the census, decisions will be made about the design of the census that will affect the contents of the strategy. We expect that changes would primarily be focused in the approaches, reflecting the evolution of the activity to deliver the goals and objectives. We plan to review the strategy as we progress through the census programme and to publish an updated version; if needed, this is likely to come alongside the planned white paper expected around 2028.

Our vision for Census 2031 is:

"A modern inclusive census of England and Wales, trusted by the public and valued in decision-making to shape all our futures."

To deliver that, our mission is:

"Planning and delivering a user-centred, digital-first census that combines a range of data to provide high-quality, trustworthy, inclusive statistics that meet evolving user needs, while also strengthening the wider statistical system."

The Census 2031 Strategy for England and Wales has five goals that define what we are trying to achieve. These goals are:

1. Outputs that are high-quality, trusted and meet user needs

2. Secure, accurate and inclusive data collection across the whole population

3. Coherent, comparable UK census statistics

4. Delivered on time, within budget, and with resilience

5. Early benefits and lasting legacy

These goals cover at a high level all the work required to deliver Census 2031. Their wording emphasises important aspects such as quality, trustworthiness, inclusivity, data security, coherent UK statistics, efficient and resilient delivery, and leaving a legacy throughout.

Under each goal are four or five objectives, which break down the goal into component parts to capture the actions and behaviours that will deliver them. Like the goals, these both provide a comprehensive picture of the census and emphasise important points.

Goals and objectives in the Census 2031 strategy

Goal 1: Outputs that are high-quality, trusted and meet user needs

1.1. User needs are understood and prioritised through consultation and ongoing engagement, and are central to end-to-end census design.

1.2. Timely and trusted outputs that are inclusive and accessible, widely used and meet user needs.

1.3. Our statistical methods and processing are robust, transparent and tested, to give confidence in our outputs.

1.4. Build on experience from Census 2021 to make best use of administrative data, including in processing, estimation and quality assurance.

1.5. Personal data must be confidential, secure and ethically managed at all times.

Goal 2: Secure, accurate and inclusive data collection across the whole population

2.1. Operational design serves to deliver the statistical design, supporting outputs that meet user needs.

2.2. Everyone in England and Wales can take part, using completion routes that are respondent-centred, reliable and accessible.

2.3. The census is safe, secure, simple and relevant, and seen as such - encouraging trust and participation.

2.4. Data collection optimises response nationally and locally, with minimal variability.

2.5. Communications, community engagement and support services facilitate and promote participation, especially where needed most.

Goal 3: Coherent, comparable UK census statistics

3.1. Collaborative working at all stages between the Office for National Statistics (ONS), the Northern Ireland Statistics and Research Agency (NISRA), National Records of Scotland (NRS) and Welsh Government to support co-ordinated, high-quality censuses across the UK.

3.2. Census data that enable comparable and coherent statistics across the UK, while respecting differences in user needs.

3.3. High-quality estimates that meet user needs for England and Wales separately and together.

3.4. Publication of high-quality and timely UK census statistics.

Goal 4: Delivered on time, within budget, and with resilience

4.1. Programme management that is effective, assured and responsive to its operating environment.

4.2. Planning and delivery that secures and maintains the support of government, including funding.

4.3. Compliance with ethical, privacy, security and other standards and best practice.

4.4. Benefits of census, value for money and impact on society all demonstrated.

4.5. Delivery of census builds trust in the ONS and official statistics.

Goal 5: Early benefits and lasting legacy

5.1. The census contributes to the evidence base and options for a recommendation on how administrative and collected data work together for the best population statistics in future.

5.2. The census builds on and develops skills and capability within the ONS, without undermining other ONS priorities.

5.3. Systems and infrastructure are designed and developed targeting opportunities for re-use.

5.4. Disciplined innovation and open research that delivers lessons and capabilities before and beyond Census 2031.

5.5. Seek to deliver social value throughout Census 2031 preparation and delivery.

The levels of the strategy below the objectives provide the more granular detail of how census work supports the goals and objectives. Each objective is broken down into a set of approaches, which describe how we will deliver it.

We summarise these approaches in sections 6 to 10 of this article. By maintaining traceability through all levels from the vision through to the programme's tactics under the objectives and approaches, we will ensure that every action contributes directly to strategic intent while remaining adaptable to emerging challenges.

Underpinning the whole strategy is a set of cross-cutting principles. The Census 2031 principles provide the foundational values that guide how we design, deliver and evaluate the census programme. These principles ensure that every decision aligns with the overarching aim of producing a modern inclusive census, trusted by the public and valued in decision-making. By embedding these principles into our strategy, we create a clear framework for prioritising actions, managing risks, and still maintaining public confidence.

These principles are closely aligned with the UK Statistics Authority's Code of Practice for Statistics, which emphasises trustworthiness, quality and value. By adhering to both the census principles and the Code, we ensure that our outputs meet statutory requirements and uphold the integrity expected of official statistics.

The six principles for Census 2031

Inclusive

Throughout planning, data collection, processing and dissemination, we will focus on removing barriers to participation, producing outputs that are reflective of our communities, and are accessible to all.

Trustworthy

The census will be impartial, transparent and protected under the UK Statistics Authority's independent oversight.

The Office for National Statistics (ONS) will ensure systems, suppliers and operations are designed to withstand shocks and adapt to changes in the operating environment, maintaining continuity and confidence in delivery.

Collaborative 

We will deliver through a collaborative approach that aligns cross-UK and cross-government priorities, integrates delivery partners across the UK statistical system, and works with local partners to deliver national and local priorities in a way that builds trust and reaches all communities.

Quality               

We are committed to delivering census outputs that are accurate, consistent, timely and relevant, ensuring they meet the needs of decision-makers. We will build on lessons learnt and embed expertise to continuously improve and strengthen future statistics.

Value   

The census will deliver value that extend beyond financial efficiency and return on investment. The census will be designed and built to maximise societal, strategic and cultural impacts while ensuring responsible use of resources.

Secure

We will protect census data, systems and outputs through robust security, cyber resilience, data governance and strict access controls, maintaining public trust and meeting all legal obligations. Our delivery approach will anticipate, reduce and manage risks, ensuring resilience, continuity and confidence in outcomes. Our dissemination approaches will protect the confidentiality of census data.

Objectives

Objective 1.1: User needs are understood and prioritised through consultation and ongoing engagement, and are central to end-to-end census design

Our approach to achieving this objective includes: inclusive consultation and engagement to explore and prioritise users' needs for information about population and housing in England and Wales. Those needs will be factored into the design through each phase of the census, and shared for wider Office for National Statistics (ONS) user need consideration. We will help users to understand whether and how their input has been incorporated.

Objective 1.2: Timely and trusted outputs that are inclusive and accessible, widely used and meet user needs

Our approach to achieving this objective includes: prioritising outputs according to users' needs, resulting in timely and inclusive estimates produced to a clear, published timeline and using relevant geographies. We will promote and support use of census data by a wide range of users. Our user-centred outputs will meet diverse needs (including microdata for research, such as the ongoing Longitudinal Study), supported by expert analysis and using innovative output methods where appropriate. We will work towards designation of census outputs as accredited official statistics, engaging with the Office for Statistics Regulation (OSR) throughout the census process. We will ensure that census and our other estimates that rely on the census are accurate and coherent with one another, through rebasing and reconciliation of mid-year population estimates and the clear communication of any revisions.

Objective 1.3: Our statistical methods and processing are robust, transparent and tested, to give confidence in our outputs

Our approach to achieving this objective includes: using robust processing and estimation methods, and proven technological advances to produce high-quality estimates, achieving our quality goals (which will be published). We will build on the Census 2021 quality assurance process, including engagement with users. Our methods will be subject to external, independent assurance, and novel methods and technologies will be used transparently and ethically. We will publish information about how census statistics are produced so that expert and non-expert users can understand the process and quality of the statistics.

Objective 1.4: Build on experience from Census 2021 to make best use of administrative data, including in processing, estimation and quality assurance

Our approach to achieving this objective includes: evolving our use of administrative data in the census based on experience of Census 2021 and exploration of other innovative uses, while ensuring our work is complementary to wider research on using administrative data in statistics (see Goal 5). We will use administrative data through the stages of statistics production and add value to outputs through linkage of census and administrative data, potentially providing additional outputs or replacing census questions. We will be transparent about when and how we have used administrative data.

Objective 1.5: Personal data must be confidential, secure and ethically managed at all times

Our approach to achieving this objective includes: data protection being a priority in census design. Digital products and services will comply with our ONS Security Principles, with new products and services adhering to the UK government's Secure by Design principles. Where necessary, ethical advice will be sought from the National Statistician's Data Ethics Advisory Committee (NSDEC). Personal information will be protected in dissemination through our outputs design, including using robust statistical disclosure control (SDC) methods and geographies designed to support them, and where de-identified microdata are used for education and research they will be protected appropriately. Personal information will be stored securely until its release as historical records after 100 years.

Objectives

Objective 2.1: Operational design serves to deliver the statistical design, supporting outputs that meet user needs

Our approach to achieving this objective includes: having a census statistical design that will result in clean, consistent data covering the whole population, enabling outputs to meet user needs. Our operational design will be integrated with and aligned to the statistical design to optimise response to the census, supporting high-quality outputs that represent the whole population, following coverage adjustment. We will collect data accurately through questions and questionnaires designed and tested to balance respondent-centred design and the needs of data users, informed by relevant harmonised standards and accompanied by guidance for respondents.

Objective 2.2: Everyone in England and Wales can take part, using completion routes that are respondent-centred, reliable and accessible

Our approach to achieving this objective includes: our statistical and operational designs and engagement plans being informed by understanding respondent experience, minimising the burden on those taking part. We will have strategies to contact and optimise response from people in different types of residence or living arrangement, supported by a complete and up-to-date address list and a digital-first approach that includes alternative routes to take part for those who need them.

Objective 2.3: The census is safe, secure, simple and relevant, and seen as such - encouraging trust and participation

Our approach to achieving this objective includes: channels for completing the census being respondent-centred and rigorously tested. Respondents will be able to access the support they need (including to respond separately from their household) as well as information on data security and data protection. A census communications campaign will encourage participation, making clear how the census is relevant to residents and communities. Personal data will be stored and managed securely (see Objective 1.5) and the physical safety of staff, the public and delivery partners will be protected. Contact materials, completion routes and support will be bilingual in Wales.

Objective 2.4: Data collection optimises response nationally and locally, with minimal variability

Our approach to achieving this objective includes: the data-collection operation being designed to meet our response rate and variability goals (to be published), with strategies for targeting resources to optimise response and flexibility to adjust to an evolving and challenging operating environment. These strategies will be based on pre-census intelligence, assessment and testing (including the 2027 Census test), and adaptive to operational information and early data from census data-collection. Field staff roles will be designed, recruited, trained and deployed to be flexible and support strategies for optimising response. Administrative data will be used where appropriate to support the census operation, and we will explore use of artificial intelligence to support operations, for example, in support services for the public and field staff.

Objective 2.5: Communications, community engagement and support services facilitate and promote participation, especially where needed most

Our approach to achieving this objective includes: a multifaceted nationwide communications campaign that reaches both the whole population and population groups facing barriers to taking part, with consistent Census 2031 branding. Engagement with communities and local government will build on the experience of Census 2021 and since, including local community engagement through census engagement staff and local authority liaison managers. Comprehensive support will be provided for those needing help to complete the census, including language support. Communications, engagement and support will be bilingual in Wales. Tackling misinformation and disinformation will be built into our communication, engagement and support plans.

Objectives

Objective 3.1: Collaborative working at all stages between the ONS, NISRA, NRS and Welsh Government to support co-ordinated, high-quality censuses across the UK

Our approach to achieving this objective includes: a cross-UK agreement on collaboration on the three 2031 censuses, and bringing the three census offices (Office for National Statistics (ONS), the Northern Ireland Statistics and Research Agency (NISRA) and National Records of Scotland (NRS)) together with Welsh Government colleagues regularly at senior and working levels, including within the ONS's census programme governance. Co-ordination will be sought in census operations and campaigns, including sharing contracts, resources and communications opportunities where appropriate, while respecting the independence of each census.

Objective 3.2: Census data that enable comparable and coherent statistics across the UK, while respecting differences in user needs

Our approach to achieving this objective includes: seeking to have the same census day across the UK and working towards comparable and coherent statistics through close collaboration with NRS and NISRA. Our topic, question and outputs development will support comparability. We will also support comparable output geographies through Government Statistical Service (GSS) Geography policies and geography harmonisation, and cross-UK collaboration.

Objective 3.3: High-quality estimates that meet user needs for England and Wales separately and together

Our approach to achieving this objective includes: understanding user needs specific to England and to Wales, ensuring that outputs for England and for Wales meet those needs, are of sufficiently high quality, and are easily accessible.

Objective 3.4: Publication of high-quality and timely UK census statistics

Our approach to achieving this objective includes: understanding user needs for UK census statistics, preparing the England and Wales census to support meeting those needs, and co-ordinating the production of timely UK census statistics, working closely with NISRA, NRS and Welsh Government.

Objectives

Objective 4.1: Programme management that is effective, assured and responsive to its operating environment

Our approach to achieving this objective includes: the census programme being designed to be resilient and enable successful delivery of this complex, high profile and long-term programme that is sensitive to changes in its external operating environment through: clear accountability; optimal organisational design; alignment with business architecture; flexibility and collaboration; organisational compatibility. We will also have robust risk and resource management, proactively monitor changes in the operating environment, and take a phased approach enabling us to test, validate and iterate the design, and to build capability and capacity in the Office for National Statistics (ONS) and with suppliers.

Objective 4.2: Planning and delivery that secures and maintains the support of government, including funding

Our approach to achieving this objective includes: working closely with UK and Welsh governments to build awareness, confidence and support for the census through the white paper and secondary legislation, and ensuring full funding through business cases and ministerial decisions, supported by ongoing evaluation and effective cost management.

Objective 4.3: Compliance with ethical, privacy, security and other standards and best practice

Our approach to achieving this objective includes: having a culture of engagement, awareness and assurance to ensure Census 2031 is compliant and up to date with relevant legislation, standards and guidance, including those applying to devolved governments where relevant. We will engage with the Office for Statistics Regulation to assure alignment with the Code of Practice for Statistics (see Objective 1.2), while also prioritising data protection (see Objective 1.5) and engaging with national and international partners and networks to benefit from best practice and collective experience.

Objective 4.4: Benefits of census, value for money and impact on society all demonstrated

Our approach to achieving this objective includes: having effective evaluation, aligned with the UK government's Magenta book and the latest best practice. A regularly updated Theory of Change will reflect evolution in the external operating environment and lessons from ongoing in-lifecycle assessments. Robust evidence-based assessment will track benefits realisation to assess the achievability of the anticipated cost-benefit ratio, and delivery of value for money, return on investment and wider social impacts, validated by internal and independent evaluation.

Objective 4.5: Delivery of census builds trust in the ONS and official statistics

Our approach to achieving this objective includes: delivering the census in line with this strategy, aligned with the ONS's mission statement and UK Statistics Authority's strategic priorities. Ongoing evaluation will enable us to learn lessons throughout the life cycle of the census. We will take an open approach through regular publications, stakeholder engagement and external scrutiny. Census 2031 will promote trust in the ONS by providing a positive experience of engagement with data collection and outputs, with clear census branding consistent with the ONS's, and using census engagement to engage and inform stakeholders about wider ONS activity and outputs.

Objectives

Objective 5.1: The census contributes to the evidence base and options for a recommendation on how administrative and collected data work together for the best population statistics in future

Our approach to achieving this objective includes: working closely across the Office for National Statistics (ONS) so that census is part of a wider and coherent population statistics system and feeds into work exploring options for future provision of population and housing statistics.

Objective 5.2: The census builds on and develops skills and capability within the ONS, without undermining other ONS priorities

Our approach to achieving this objective includes: having an approach to building capacity and capability that balances the needs of the wider organisation while enabling success for the census. Our planning will aim to reduce disruption on the delivery of priority ONS statistics in our organisation design, making use of relevant existing capability, experience and skills across the ONS, without jeopardising delivery of other ONS priorities. Our resourcing strategy will bolster capacity where they cannot be fulfilled by ONS personnel or are not required by the ONS in the longer term. The Census 2031 Location Strategy aims to enhance workforce resilience and support recruitment across a broad talent pool, while maintaining the cohesion needed for complex, interdependent census work.

Objective 5.3: Systems and infrastructure designed and developed targeting opportunities for re-use

Our approach to achieving this objective includes: development of systems, processes, products, skills and capability building in reuse in where appropriate, to provide wider benefit across the ONS, and other UK statistics bodies where relevant. We will bring forward development of products and services that can be used across the ONS, enabling early value to be realised. Features, services and capabilities from wider ONS initiatives will be reused where possible and appropriate. Development of reproducible pipelines and processes where appropriate will provide transparency and enable maintenance efficiencies in future production. We will focus innovation on areas from Census 2021 that need to change, reusing and improving what went well in 2021. Census 2031 will form part of the evolution of how we use a combination of data sources such as administrative, survey, commercial and census data to produce high-quality statistics that meet user needs.

Objective 5.4: Disciplined innovation and open research that delivers lessons and capabilities before and beyond Census 2031

Our approach to achieving this objective includes: focusing innovation on meeting user needs, adapting to societal change and delivering value for money; reducing risk by being a fast follower or motivating a first mover; and innovating where it adds value, reusing and improving where it makes sense. Where possible, we will ensure that innovation and testing has a wider application for production of other statistics and that results are published.

Objective 5.5: Seek to deliver social value throughout Census 2031 preparation and delivery

Our approach to achieving this objective includes: seeking to fully exploit the measures included in the Public Services (Social Value) Act 2012 and procurement policy statements to generate social value as part of the successful delivery of the census. We will be alert and adaptable to unforeseen opportunities and emerging user needs where we can provide additional social value, and will be open in publishing results of innovation and research in census development and delivery, where appropriate, to facilitate learning and capability building in the ONS and beyond.