ONS welcomes the UK Statistics Authority’s Monitoring Review: Issuing ONS market sensitive statistics at 09:30 and would like to record its response to the conclusions alongside its publication. ONS welcomes the emphasis the Review places on 'equal access', in line with Protocol 2 of the Code of Practice for Official Statistics:
"Statistical reports should be released into the public domain in an orderly manner that promotes public confidence and gives equal access to all, subject to relevant legislation."
ONS takes seriously its obligation to provide equal access and uses many different channels to release information at 09:30, to reach as a wide an audience as possible, including our website, our social media accounts and lock-in briefings. Through lock-in briefings we reach broadcast and print media, which in turn facilitates the mass release of our information far more quickly than ONS could, as well as contributing to improved reporting of the statistics; for example through improved interpretation of the key messages. As new channels have come on stream, ONS has embraced these, for example Twitter and Facebook, and will continue to do so.
No one channel on its own can provide completely equal access to every user. The Monitoring Review notes that using multiple channels may imply different users seeing the data at slightly different times depending on the channel they use, but recognises that it helps ONS maximise reach. The review identified a number of further steps which ONS could take to improve compliance with the Code of Practice. ONS agrees with these steps which are listed in conclusion number 7 below, along with the specific actions ONS proposes to undertake.
The ONS response to each of the conclusions is presented below.
1. Issuing statistics at a standard time is right in principle because it promotes the statistical service’s reputation for impartiality and consistency, and gives users the chance to understand and engage the producer body during normal working hours - but the exact choice of time is fairly arbitrary. The time of 09.30 was adopted in the Code of Practice for Official Statistics as a reasonable time of day but it has little or no intrinsic merit over other times in the working-day.
ONS response
Agreed.
While ONS agrees with the statement, the publication time of 09:30 is now well established and users are accustomed to this time. ONS is not planning to move away from the well-publicised time of 09:30. However, in response to the monitoring review, ONS is considering staggering release times of datasets to further promote the principle of equal access, while recognising that the time(s) of release should be published in advance and the release should be orderly.
2. An argument can be made for some degree of flexibility if this would help to avoid delays due to pressure on the website, and hence promote equality of access in practice. For example, the key figures and text from a statistical release might be issued at 09.30, the full text at 10.00 and the more detailed tables at 10.30 or as soon as possible thereafter. Whilst this would be, strictly speaking, a contravention of the Code of Practice as currently drafted, it would be possible for the Statistics Authority to issue an explanatory note to the effect that under some circumstances, priority should be given to the requirement for equality of access and, in that case, a staggered release starting at 09.30 would be acceptable as long as it had been pre-announced.
3. At the level of principle, the aim should be to take all reasonable steps to achieve equality of access, and within that, to release official statistics in an orderly way starting with key figures and supporting text at 09.30 on the day of release. Any later staggered release times should be pre-announced and met as closely as possible.
ONS response
Agreed.
ONS is working on improvements to how it publishes datasets, focussing on optimising the time it takes to transfer large time series datasets. This should improve its record of publishing at 09:30. ONS is planning to continue to publish all key figures and statistical bulletins at 09:30 but will consider publishing a few typically large and complex datasets (Labour Market Statistics, Producer Price Index, Consumer Price Inflation, United Kingdom Economic Accounts, Consumer Trends, UK Trade, Index of Production and Retail Sales) as soon as possible thereafter but by 10:00 at the latest, by agreement with the ONS Board and the UK Statistics Authority and in consultation with users. The changes to publication will be announced in advance.
4. Such an approach would have implications for the structure of statistical releases and for the lock-in arrangements. Only those statistics being released at 09.30 could be provided in the lock-in and the lock-in might need to continue until those statistics appear on the website. That would be a significant change of practice and is something about which ONS would need to consult both the users who attend lock-in briefings and those that do not. A consequence of releasing only key figures at 09.30 would be that extra care would need to be taken in the presentation to ensure that the key figures on their own would not be seen as misleading when, later in the day, set in the context of the full statistical release.
ONS response
ONS will discuss the practicability of this with the news agencies as part of the re-accreditation process to assess the implications of limiting the volume of information provided before 09:30, including meeting their user needs. ONS has reason to suspect, however, that most would strongly prefer to provide all of the data at 09:30 as is the case under the current arrangements.
5. ONS may also wish to consider whether some of the other issues raised in this report require further investigation. For example, the identification of sets of statistics as market sensitive is not necessarily clear-cut. Whilst the sets (or parts of the sets) of statistics currently so identified undoubtedly have the potential to influence markets at the time of their release, there may be others that will do so, possible only for a limited period of time. For example, the markets may become sensitive to changes in some tax statistics for a period. ONS may need to keep the list under review and establish a process for agreeing with those bodies that have a regulatory interest – such as the Bank of England and the Financial Conduct Authority – when to add and remove sets of statistics from the list.
ONS response
An agreed list of market sensitive statistics, approved by the National Statistician, is published on our website http://www.ons.gov.uk/ons/guide-method/the-national-statistics-standard/code-of-practice/statement-of-compliance/index.html. The list is informed using analysis by the Bank of England on market movements from releases. The list covers across government releases and not just ONS. A decision to change the list has to be agreed by the National Statistician.
ONS will review the list annually and consider whether new statistics are market sensitive as they come on stream. Any changes to the list would be submitted to the National Statistician for approval. In addition ONS reviews the inclusion of other statistics as the need arises. For example the House Price Index was first released ONS considered whether this should be included in the market sensitive list.
6. ONS might also find it helpful to compare experience and practice with the US Department of Labor and review the current lock-in arrangements in the light of recent US findings and recommendations. This would allow ONS to benchmark its arrangements to prevent premature disclosure and ensure equality of access with another highly developed statistical agency.
ONS response
ONS is aware of the practices employed by the US Department of Labor, which are different from its own in several key respects. While ONS has no immediate plans to adopt these practices, it will continue to monitor the position.
7. We have identified some further steps ONS could take to safeguard its position and to improve its compliance with the Code of Practice. It might wish to:
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review whether all the statistics on the current list are properly regarded as market sensitive, and whether there are any market sensitive statistics not on the current list.
ONS response
Agreed
An agreed list approved by the National Statistician is published on our website: http://www.ons.gov.uk/ons/guide-method/the-national-statistics-standard/code-of-practice/statement-of-compliance/index.html. The list is informed using analysis by the Bank of England on market movements from releases. The list covers across government releases and not just ONS. A decision to change the list has to be agreed by the National Statistician.
ONS will review the list annually and consider whether new statistics are market sensitive as they come on stream. Any changes to the list would be submitted to the National Statistician for approval.
– ensure that users are aware which statistics are always available through the media at 09.30, so that they can exercise an informed choice about how they wish to access these statistics. This information would include an up to date list of statistics deemed to be market sensitive, a description of the lock-in process and a list of agencies that have been accredited to attend, together with a copy of their signed undertaking.
ONS response
Agreed.
ONS will:
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create a new section in the About us area of the ONS website that outlines our approach to publishing statistics, the Code of Practice we work to (stressing equality of access) and the different ways in which users can access our outputs, including our treatment of market sensitive data (the outputs that qualify and what we mean by market sensitive); by June 2014
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publish a list of agencies with lock-in status and a blank copy (for information) of the agreement that all approved agencies are required to comply with - done.
– consider whether to tighten the accreditation criteria for lock-ins, to ensure that those accredited are primarily in the business of publishing and communicating the data to a general audience as opposed to paying subscribers.
ONS response
Agreed.
This is already part of the accreditation process. All agencies have to demonstrate that they have a free-to-the-public interface and commit to using the lock-in facilities to ensure that ONS statistics are communicated via their freely available web channels. However, ONS acknowledges that various agencies work on different business models and that agencies have an interest in attending lock-in briefings to get the data as early as possible for their customers and paying subscribers, while recognising that they also have a public reporting duty. There is clearly a balance of interests to be managed - under the current system journalists get to use our statistics very quickly after publication, while ONS reaches a much wider audience, far more quickly than it could ever achieve by relying on its website alone. The lock-in system actively supports the notion of equality of access.
ONS will:
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review and, where possible, tighten the wording of the accreditation criteria to ensure a strong focus on public access to ONS statistics, by June 2014 (in line with the next round of re-accreditation);
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include, as part of the criteria, a requirement for accredited agencies to provide free subscription for ONS to view and monitor outputs for subscribers alongside outputs that are free to public access, by June 2014;
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continue to monitor media outputs to ensure that agencies are appropriately serving the public interest in the outputs they produce;
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continue with the re-accreditation process on a three-yearly cycle, with regular monitoring of agency outputs to ensure compliance; the next re-accreditation cycle is due for completion by June 2014.
– consider whether the amount of material released via the lock-in process should be reduced (although this might require a re-design of some releases, and might increase the load when more detailed data are published to the website).
ONS response
Agreed.
By June 2014 ONS will consider the feasibility and impact in consultation with news agencies of:
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providing data in print format only (ie not on disc);
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providing only headline story material and immediate key tables at the lock-in (ie before 09:30) and direct them to the website for other background and detailed tables, following publication on the website after 09:30.
– investigate the feasibility of prolonging the lock-in until publication on the website is confirmed.
ONS response
ONS feels that retaining influential media contacts in a lock-in room for an unknown period will reduce the quality of our existing service. It could lead to challenge if ONS is seen to be withholding outputs that should, according to the Code, be publicly available. As outlined above, ONS will consider the feasibility of moderating the format and amount of material released.
– develop better contacts with financial institutions and others in the market, in order to improve understanding of how the statistics are used. The media organisations involved in ONS lock-ins might also be approached for their feedback on the process and for a broad perspective on their customers’ needs.
ONS response
Agreed.
ONS recognises the need to develop a more systematic and sustained approach to targeting and managing key relationships with financial institutions and others in the market and are currently developing our approach. The ONS Media Relations Office regularly seeks informal feedback from agencies accredited to attend lock-in briefings. There is scope for a more systematic approach that would improve the recording and sharing of feedback.
By June 2014 ONS will:
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continue to develop its approach to strengthening its relationships with key stakeholders to improve understanding of its work and impact, and enhance its reputation and build support for ONS in the future;
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pilot an annual survey of accredited agencies, seeking feedback on the lock-in process and user needs;
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provide feedback to agencies on any changes or improvements ONS makes as a consequence of their feedback.
8. Finally, we note that responsibility for monitoring the release of statistics at 09.30 and for devising remedial action when targets are not met is quite widely dispersed. ONS might wish to consider whether it could consolidate responsibilities and whether someone with sufficient seniority should be given overall responsibility for driving efforts to improve compliance with the principle of equal access.
ONS response
ONS has made improvements to the system over the last 12 months. Monitoring of 09:30 releases is carried out by the Director General's Office. While a number of areas are involved in collating the information, the Director General's Office is responsible for ensuring reports are completed and remedial action is carried out as stated in the report. All breach reports are signed off by the Director General.
