Administration Report on Enumeration, Part
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CENSUS OF INDIA 1961 VOLUME XV UTTAR PRADESH PART VIll A ADMINISTRATION REPORT ON ENU.:MERATION P. P. BHATNAGAR 0/ the Indian Administr.ative Servia Superintendent of Census OperationJ, Uttar Pradesh PRINTED IN INDIA BY THE SuPERINTENDENT. PRINTING AND STATIONERY, U. P. LUCKNOW 1963 PREFACE IT is customary for the Census Superintendent to write administrative reports on the occasion of every Census. The idea behind writing such reports is not only to acquaint the succeeding Superintendent with the arrangements made for the Census operations, but also to record his suggestions for the consideration of the Registrar General (Census Commissioner) and his own successor at the next Census. 'i\ ' .t I beli~ that an apology is needed for presenting a rather lengthy report. The previous reports have all been, brief,,,presuming that the officer appointed to conduct the next Census would be familiar witA~verything that was required to be done and would need merely a few suggestions to effect improvement here and there. The actual position, however, is just the opposite. The officer appointed for conducting the operations usually knows nothing about the work and he has to set up the 'entire machinery including his office from the very start. Unless he is fortunate to get one or two persons on his staff who had worked with his predecessor, his staff is as ignorant about the Census as he himself. When I joined as Superintendent of Census Operations in 1959, I knew little about the administrative arrangements involved and I feverishly read up the administrative reports of the previous Censuses but could not understand the implications of many of the things recorded therein. It was only after I had passed through the grind that I could understand their full import. I, therefore, feel that the Census Superintendent should record a detailed report explaining every arrangement at length so that his successor may have a fairly good idea of the task ahead and may avoid the pitfalls which surround the unwary. With the above end in view, I have contrived to give a comprehensive account 0f the various administrative details connected with Enumeration, the difficulties experienced at differ ent stages of the Operations and the manner in which they were overcome. The report also contains my suggestions, for whatever they are worth, for effective improvements at the next Census. Besides, I have given in the Appendices all forms devised centrally or locally which were used in Enumera tion. and have reproduced all important letters and circulars issued by the Government of India, the Registrar General, the State Government or by me. It has been my endeavour to present my successor a clear picture of the operations involved, and if it is at all helpful to him in his difficult task, I shall consider my labour amply rewarded. This report differs from its predecessors in one other matter also. The practice so far has been to deal with Enumeration and Tabulation together. The Registrar General considered it advantageous that the two phases should be dealt with separately. First, the two operations are conducted at different periods with sufficient gap between them. During Enumeration one has not to bother about the problems of Tabulation except to find suitable accommodation for housing the Tabulation Offices and to get Sorter's Tickets printed in advance. It is, therefore, convenient for all concerned to consult the two reports separately. Secondly, the complexion of the two opera tions is not only different, but the operations are conducted by entirel~ different machinery. The district administration is vitally concerned with Enumeration and the report on Enumeration is of interest to District Officers, which the report on Tabulation is not, as they have little to do with it. Thirdly, it is possible to write the report on Enumeration immediately after its completion, when the details are still fresh in memory. Many aspects of Enumeration fade out from memory by the time Tabulation is over, and if one waits to write a report on both the operations together, important details about Enumeration are likely to be lost sight of. For these reasons the report on Enumeration is being brought out now. The report on Tabulation will follow. Though the expenditure on the Census is borne by the Centre yet the entire machinery for Enumeration is furnished by the State at no cost basis, a contribution which cannot be too well acknowledged. I am very much thankful to the Government of Uttar Pradesh for their extremely helpful attitude throughout the Census Operations, to Sri Govind Narain and Sri L. C. Jain, Chief Secretaries whom I repeatedly bothered~ to all Secretaries to Government and all Heads of Depart ments who gave me the utmost co-operation in the fulfilment of my task. I am very grateful to the Defence, Cantonment and Railway authorities for their fullest co-operation. I profusely thank all District Officers, Mukhya Nagar Adhikaris, Presidents of Municipal Boards and other local bodies, and Presidents of Antarim ZiJa Parishads to whom I am beholden for their utmost col1abora tion. Above all, I thank the vast multitude of Census workers numbering about 1,20,000 ii from the District Census Officer down to the humblest Enumerator, for their silent and patient labours. Most of them were drawn from the 10wCfr ranks of government servants, local bodies' employees and school teachers who carried ,out Census duties in addition to their normal work, quite often at great personal inconvenience. I am profoundly grateful to all of my learned predecessors on whom I have unashamedly drawn for the material of the report. Lastly, I must express my obligation to Shri A. Mitra, Registrar General for the valuable help and 8l1idance he gave me at all times and for his constant encouragement without which it would have been well nigh impossible to shoulder the heavy burden of the Census Operations of the most populous State of India. P. P. BHATNAGAR, l .. uCKNOW: Superintendent of Census Operations, Dated the 16th July. 1962. Uttar Pradesh. CONTENTS I-GENERAL ARRANGEMENTS Sections Page 1. Census Legislation 1 2. Appointment of Superintendent of Census Operations and Deputy Superintendents 2 3. Office Staff 4 4. Office Accommodation and Equipment- A. Selection of Headquarters and Office Accommodation 6 B. Furniture 6 C. Duplicator and Typewriters 7 D. Bicycles 7 E. Hot Weather Arrangements 7 F. Telephone 8 G. Stationery 8 5. First and Second Pretests 8 6. Census Conferences-September, 1959 and August, 1960 •• 10 7. Census Schedules (1) The House List 13 (2) The Household Schedule 15 (3) The Individual Slip 17 (4) Centralisation of Instructions 19 8. Translation of Schedules and Instructions 19 9. Paper 20 10. Printing of Census Material- A. Printing of Census Schedules at Government of India Forms Press, Aligarh 21 B. Printing of other Census Forms and Instructions and the Census Manual at the New Gove,rnment Press, Aishbagh. Lucknow 21 11. Changes in Administrative Jurisdiction and Maps 22 12. Urban Classification and Organisation of Census in Urban Areas A. Urban-Rural Classification 23 B. Organisation of the Census in Urban Areas 23 13. Tours-, A. Touring of Census Superintendent 24 B. Touring of Deputy Census Superintendents .. 24 14. Publication of Census Programme and Questionnaire' in the Uttar Pradesh Govern ment Gazette 24 15. Census Publicity .. 26 16. Accounts- A. Budget .. 28 B. Account Rules 30 C. Method of Keeping Census Accounts 31 D. Financial Powers 31 E. Permanent Advance 32 F. Miscellaneous 33 17. Miscellaneous .. .. .. .. 33 iv Sections Pagl II. ENUMERATION I. Introduction 37 2. Census Programme, First Circulars and Tours- A. Census Programme .. 37 B. First Circulars and Tours •• 38 3. Preparation of Census Registers ., 39 4. Census Divisions 39 5. The Urban and Rural Location Code 41 6. Maps for Enumeration- A. Tahsil Maps 42 B. Notional Maps of Urban Areas 43 C. Sketch Maps of Enumerations Blocks .. 43 7. District Census Officers and Charge Officers .. 44 8. Census Instructions and their Circulation- A. Circulation of Census Instructions 44 B. Circulars about Scheduled Castes 46 C. Circulars on Mother Tongue 47 D. Circulars on other subjects 47 9. Distribution and Despatch of Census Forms to Districts- A. Distribution Chart 47 B. Despatch of Census Forms to other States and Districts 50 10. Appointment of Census Enumeration Agency- A. Enumerators 51 B. Supervisors, 51 C. Reserve 52 D. Appointment letters . 52 E. Help given by State and Central Government Departments 52 F. Duties of Enumerators and Supervisors and their Training 53 G. Problems relating to Re~ruitment and Training 53 H. Quality of work of various Agencies 54 11. Housenumbering and Houselisting- A. Training· S5 B. Housenumbering 55 C. Preparation of HouseHsts 57 D. Quality of Houselisting-Typical Mistakes 59 12. Training in Enumeration 60 13. Distribution of Census Forms to Charge Officers and Field Staff 62 14. Enumeration- A. General 63 B. Enumeration of Forest Areas, Defence Establishments, Railway Colonies and other Special Charges 64 C, Census of Cities, Large Municipalities and C(lntonments ., •• 66 v Sections Page D. Census of Houseless and Mobile Population 66 E. Arrangements for Special Areas 67 F. Enumeration of Religion and Mother Tongue 68 G. Quality of Enumeration 69 H. Lighter Side of Enumeration .. 74 15. Provisional Totals and Submission of Records- A. Provisional Totals 75 B. Submission of Records 76 16. Post-Enumeration Check and Sample Verification 77 17. District Census and Charge Offices 79 18. Honorarium to Enumeration Staff .. 80 19. Recognition of Services of Enumeration staff- A. Census Medals " 82 B. Entries in Character Rolls 82 C. Cash Rewards 83 20. Special Studies- ' I. AU-India Studies 83 II. Specia1 Investigations in Uttar Pradesh 84 III.