Size of the electoral registers in 2023
Table 1 (below) shows the percentage change in the number of entries on the UK parliamentary registers in each nation of Great Britain between 2022 and 2023.
| Area | 2022 | 2023 | % change |
|---|---|---|---|
| England | 38,834,540 | 38,992,039 | 0.4% |
| Scotland | 4,012,887 | 3,999,957 | -0.3% |
| Wales | 2,310,148 | 2,312,156 | 0.1% |
| Great Britain | 45,157,575 | 45,304,152 | 0.3% |
In all English regions and Wales, the number of local government register entries increased slightly between 2022 and 2023 (see Table 2). The East of England saw the largest increase (0.9%). The number of local government entries in Scotland has fallen very slightly compared to the 2022 figure (-0.1%), however it remains level with the number of 2021 entries.
| Area | 2022 | 2023 | % change |
|---|---|---|---|
| England | 40,857,874 | 41,040,932 | 0.4% |
| North East | 1,943,955 | 1,947,786 | 0.2% |
| North West | 5,419,776 | 5,452,039 | 0.6% |
| Yorkshire and the Humber | 3,986,561 | 3,986,042 | 0.0% |
| East Midlands | 3,553,180 | 3,574,328 | 0.6% |
| West Midlands | 4,257,399 | 4,280,575 | 0.5% |
| East of England | 4,636,054 | 4,678,201 | 0.9% |
| London | 6,000,191 | 6,013,404 | 0.2% |
| South East | 6,796,943 | 6,823,374 | 0.4% |
| South West | 4,263,815 | 4,285,183 | 0.5% |
| Scotland | 4,250,579 | 4,244,411 | -0.1% |
| Wales | 2,362,964 | 2,365,878 | 0.1% |
| Great Britain | 47,471,417 | 47,651,221 | 0.4% |
Variations in levels of registration can be driven by changes in the size of the eligible population or by policy changes, such as extensions to the franchise. Changes can also be driven by reforms to the canvassing approaches used by EROs, as well as national and local voter registration campaigns. Our analysis below explores what the available data tells us about the effectiveness of the canvass.
Attainers
People who will reach voting age and become eligible to vote during the lifetime of the register are known as attainers. Attainers can be included on the electoral registers.
The introduction of individual registration in 2014 meant that attainers had to make their own application to register (rather than being added through a single household form) and this change coincided with a decline in the number registered.
The number of attainers on the parliamentary register in Great Britain has fallen for several years (see Table 3 below). The decline slowed in 2022 and in 2023 there has been a slight increase of 3.23%. This is the first time that the number of attainers increased since 2016. However, the overall total of 177,365 attainers in 2023 remains much lower than the numbers of attainers in 2013.
| England | Scotland | Wales | Great Britain | |||||
|---|---|---|---|---|---|---|---|---|
| Year | Attainers | % change | Attainers | % change | Attainers | % change | Attainers | % change |
| 2023 | 121,376 | 7.16% | 37,511 | -3.88% | 18,478 | -5.32% | 177,365 | 3.23% |
| 2022 | 113,266 | 1.17% | 39,025 | -4.52% | 19,517 | 0.74% | 171,808 | -0.23% |
| 2021 | 111,958 | -40.60% | 40,871 | 6.10% | 19,374 | 34.20% | 172,203 | -28.70% |
| 2020 | 188,472 | -25.90% | 38,518 | 0.90% | 14,437 | 11.60% | 241,427 | -21.00% |
| 2019 | 254,384 | -1.40% | 38,171 | -7.60% | 12,942 | 0.00% | 305,497 | -2.10% |
| 2018 | 257,938 | -4.10% | 41,296 | -4.80% | 12,948 | 1.20% | 312,182 | -4.00% |
| 2017 | 269,092 | -5.40% | 43,357 | 4.30% | 12,794 | -6.30% | 325,243 | -4.30% |
| 2016 | 284,522 | 19.00% | 41,561 | 67.40% | 13,651 | 10.60% | 339,734 | 23.00% |
| 2015 | 239,019 | -6.20% | 24,827 | -36.30% | 12,339 | -12.30% | 276,185 | -10.30% |
| 2014 | 254,836 | -32.80% | 38,963 | -38.60% | 14,065 | -24.40% | 307,864 | -33.30% |
| 2013 | 379,284 | NA | 63,471 | NA | 18,595 | NA | 461,350 | NA |
Figure 1. Percentage change in the number of attainers on the parliamentary registers in Great Britain, 2013-23 (Bar)
Attainers (cont)
The reformed annual canvass may have exacerbated the decline in attainers seen from 2014 onwards, as the need to add an attainer to the register will not be identified through the data matching process. For example, many will have potential attainers but now receive fewer communications from EROs to encourage them to become registered. The different pattern in Scotland and Wales is likely to be connected to the extension of the devolved elections’ franchise to 16 and 17 year olds (and associated increased registration activity). This seems to be offsetting a systematic problem with the registration of attainers evident in England.
Our latest accuracy and completeness study found that completeness remains lowest for attainers out of all of the age groups, and is continuing to decline. In Great Britain completeness for 16–17-year-olds has dropped from 45% in 2015, to 25% in 2018, to 16% in 2022.
Our engagement with EROs indicates that they recognise that their attainer numbers are falling, despite continued efforts to engage widely with education institutions and use education data to support this work. However, overall, a lack of staff capacity to support this work and issues with the accuracy of education data were common reasons given for not being able to do more in this area.
Despite the small increase in 2023, attainer registration is unlikely to significantly increase through the existing registration and canvass processes alone. This is an area where an assisted registration process could be beneficial. For example, data from the education sector could help EROs identify and target attainers and other young people. HM Revenue and Customs (HMRC) data could also potentially be used by EROs to assist young people to register to vote when they are allocated their National Insurance number ahead of their 16th birthday. HMRC does not hold all the data needed to register attainers, for example it does not hold nationality data. Nonetheless, HMRC data could be transferred to EROs who would then send invitations to register to attainers asking for the missing information needed to complete registration applications. A detailed explanation of how National Insurance data could improve the registration of attainers can be found in our accuracy and completeness report.
Other register statistics
In Scotland and Wales, 16 and 17 year-olds can vote in Scottish Parliament, Senedd and local council elections. This change was introduced in 2015 in Scotland and 2020 in Wales.
In Scotland, 76,134 16 and 17 year-olds were registered on the local government registers at the conclusion of the 2023 canvass (see Table 4). This represents a -1.1% decline from 2022. The drop could be due to a lack of electoral events in Scotland since the 2022 council elections.
EROs across Scotland continue to engage with 16 and 17 year-olds using a variety of methods including direct mailing, phone/text communications, contact with schools and universities, issuing press releases, social media activity, distributing newsletters, and local advertising, as well as local activity with partner organisations.
| Year | Scotland | Wales |
|---|---|---|
| 2015 | 48,962 | NA |
| 2016 | 79,621 | NA |
| 2017 | 83,536 | NA |
| 2018 | 78,383 | NA |
| 2019 | 73,777 | NA |
| 2020 | 73,272 | NA |
| 2021 | 77,958 | 33,241 |
| 2022 | 76,955 | 36,722 |
| 2023 | 76,134 | 33,929 |
In Wales, 33,929 16 and 17 year-olds were on the local government registers on 1 December 2023. This represents a -7.6% decrease from 2022, meaning that the number of registered 16 and 17 year olds has fallen back to the levels of 2021. Taken with ONS mid-year population estimates for Wales for 2022, our canvass data suggests that just under half of 16 and 17 year-olds in Wales are currently included on the local government registers1
.
There has been an attempt by Welsh Government to support an increase in registration numbers and ensure the electoral register is complete and accurate. Between September 2021 and September 2022 Welsh Government offered each local authority election team grant funding of up to £25,000 to recruit a dedicated officer to work on improving the rates of electoral registration among the newly enfranchised and hard to-reach groups. While the grant scheme did not operate beyond September 2022, the overall settlement to local authorities was increased in 2022-23 by 9.4% to help local authorities to consider long term planning in electoral services.
At the time of the 2023 canvass, a UK citizen living abroad who has been registered to vote in the UK in the past 15 years could apply to be an overseas voter and this registration had to be renewed annually. The total number of overseas electors on the 2023 registers in Great Britain was 62,169.
| Area | 2015 | 2016 | 2017 | 2018 | 2019 | 2020 | 2021 | 2022 | 2023 |
|---|---|---|---|---|---|---|---|---|---|
| England | 97,572 | 241,097 | 205,687 | 113,833 | 185,513 | 170,196 | 94,908 | 73,407 | 57,398 |
| Scotland | 7,729 | 15,230 | 12,790 | 6,679 | 11,587 | 9,617 | 6,799 | 4,259 | 3,527 |
| Wales | 2,940 | 7,567 | 6,995 | 3,678 | 6,969 | 5,169 | 2,958 | 1,999 | 1,244 |
| Great Britain | 108,241 | 263,894 | 225,472 | 124,190 | 204,069 | 184,982 | 104,665 | 79,665 | 62,169 |
This is a decrease of -22.0% since the publication of the registers in 2022. It is a continuation in the decline of registered overseas electors that has been ongoing since 2019. The decline is likely a consequence of the fact that there has not been an election in which overseas electors can vote since the 2019 UK Parliamentary general election.
The Elections Act 2022 extends the number of overseas citizens who will be eligible to register and vote, and also changes the requirement to renew registration annually to every three years. The extension of eligibility could result in a high volume of applications close to the next UK Parliamentary general election, which EROs will need to be prepared to manage. We are carrying out targeted support and engagement activities with EROs ahead of the next UK Parliamentary general election.
The number of anonymous electoral register entries on the parliamentary registers in Great Britain decreased from 2,842 in 2022 to 2,636 in 2023 (Table 6).
Anonymous registration is available for people meeting certain requirements, whose safety, or the safety of someone in the same household, is at risk. People registered anonymously appear on the electoral register without their name and address.
| Area | 2015 | 2016 | 2017 | 2018 | 2019 | 2020 | 2021 | 2022 | 2023 |
|---|---|---|---|---|---|---|---|---|---|
| England | 2,151 | 2,194 | 2,440 | 2,550 | 3,214 | 3,064 | 2,788 | 2,539 | 2,375 |
| Scotland | 111 | 117 | 116 | 130 | 194 | 196 | 187 | 191 | 159 |
| Wales | 74 | 74 | 85 | 108 | 138 | 114 | 122 | 112 | 102 |
| Great Britain | 2,336 | 2,385 | 2,641 | 2,788 | 3,546 | 3,374 | 3,097 | 2,842 | 2,636 |
- 1. ONS (2023) Estimates of the population for England and Wales, Table MYE2 - Persons ↩ Back to content at footnote 1