Review of 2021 Census Topics

The City of Whittlesea recognises that individuals within the community may identify as a gender other than the sex they were assigned with at birth or a gender that is not exclusively male or female. We also recognise that sex and gender, while used interchangeably, are two distinct categories and concepts. Sex refers to the chromosomal and anatomical characteristics associated with biological sex, while gender is part of an individual’s personal and social identity. We therefore recommend the following key points for consideration in reviewing this topic for the 2021 Census:
1. That the ABS seek input from Australia’s leading gender identity academics, advocates and key stakeholders on the most appropriate way to collect data on gender / sex.
2. That the 2021 Census asks of survey respondents either their sex or their gender and not both as the two are distinct in meaning and interpretation.
3. For a question on gender, that the ABS enable an individual to nominate the gender with which they identify, including response option/s in addition to male and female.
4. That the 2021 Census online survey form include all response options, rather than a separate opt-in process for individuals identifying as neither male nor female.

We live in a global and local environment where the increasing norm is for the right to identify without prejudice and discrimination. Thus it seems timely and appropriate that the nation’s main statistical and demographic bureau, the Australian Bureau of Statistics also collect information on sex / gender which allows for non-binary categories of self-identification as part of the standard survey form. An increased understanding of people who identify with genders other than male or female is critical to inform all policy, planning and programming of national importance. It is important the completion of the Census form, and therefore engagement with this crucial data collection, is as inclusive as possible and enables maximum participation.

The special procedure introduced in the 2016 Census which gave survey respondents the opportunity to complete an alternative online form relating to their sex / gender identification reveals the increasing significance of capturing this type of demographic information in its own right, but also to enable cross-tabulation with other components of the Census. However, the opt-in process in the 2016 Census may have inhibited participation in the Census for this section of the population and may mean that their data is not accurately reflected in the results. It is therefore timely that the ABS provides an ‘other’ category (or categories) in the sex/ gender question.

The topic will can be easily understood if we ask either sex or gender and not both. The structure of the question should include the male, female and other option/s, as informed by experts and key stakeholders.

The inclusion of non-binary or transgender identification has already been considered and included by the ABS in previous Censuses. It has been acknowledged that the topic of gender and sex is complex and terminology can be confusing, so it is important to consult with key stakeholders to ensure that the question wording and response options are clear, appropriate and accurate.

We recommend the ABS consult with experts to determine the most appropriate response options for a question on sex / gender. A respondent selecting from pre-determined categories will be more efficient and cost-effective to code than self-nominating their sex / gender with an open-ended field. Concise wording of the question will be important to clarify whether the Census is asking about sex or gender identification.

By including non-binary or transgender categories as part of the standard data collection procedure, rather than an opt-in procedure requiring the individual to request a separate form, the accuracy and reliability of the data will improve. It will be important to consult experts to ensure the response options provided will remain contemporary to enable continued monitoring of trends over time.

To our knowledge, no other data collection mechanism can capture national data on sex / gender with the level of rigour of the ABS Census.