By Richard H. Levey

The best way for data and statistics to reflect traditionally underrepresented populations is for groups and individuals representing these populations to participate in data gathering, analysis and presentation. When this is done, public policy and sustainable development goals incorporate a wider range of concerned parties.

These ideas are fundamental to The Copenhagen Framework on Citizen Data. The framework was supported by the United Nations Statistics Division, which in November 2022 tasked an expert group with codifying ideas around citizen data.

Citizen data is that which originates from initiatives in which citizens either initiate or are sufficiently engaged in the process of designing and participating in the data capture process, including surveys and censuses. By incorporating this data, underrepresented populations are more likely to have their views on a variety of issues, such as the environment, health and human rights incorporated into policymaking.

Within the framework, citizen participation in data capture is ranked by the amount of agency given along a five-point participation ladder. Levels 1-3 are considered as having “insufficient” participation, according to the report authors, while levels 4 and 5 are deemed “sufficient.” The rankings are:

1. Information. The information flows one way, from officials to citizens, with no process for feedback or negotiation, and little opportunity for input into data production. The news media, pamphlets, posters and responses to inquiries fall into this category.

2. Consultation. While citizen opinions or other participation is invited, there is no assurance that feedback will be taken into consideration. This category includes attitude and user satisfaction surveys and public forums such as townhall meetings and public hearings.

3. Conciliatory: Limited Participation. In this category, citizens begin having influence, although “tokenism” is still apparent, such as a small sample of individuals from underrepresented or marginalized groups represented while decisions remain in the hands of officials.

4. Partnership. Under this structure, influence is redistributed through negotiations, with citizens, supporting civil society organization and officials all serving as empowered stakeholders. Planning and decision-making responsibility is shared through structures such as joint board and planning committees.

5. Self-determination of citizens / communities. Community-level stakeholders initiate and lead design and data collection functions, and actively control the entire data process with grassroots-level influence and limited-to-no imposition from officials.

Placing an emphasis on citizen-led data processes yields outputs that better reflect populations being analyzed. In addition to incorporating data from groups or communities that have been traditionally under- or unrepresented, these outputs help ensure equitable and effective service delivery, inform legal and policy initiatives, provide deeper understanding of complex issues, dynamics and powers within communities, provide evidence for scientific research and increase public understanding and awareness of issues within local communities.

There are a few issues not covered in the report. Data collection efforts require financial support and expertise in collection, aggregation, hygiene and analysis, much of which may be beyond the resources of community-level organizations. Additionally, for data to be useful a longitudinal approach, involving multiple rounds of data collection over time, is often required.

A full copy of the report is available here: https://unstats.un.org/UNSDWebsite/statcom/session_55/documents/BG-4c-CGD_Framework-E.pdf

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