Administration Report Enumeration, Part I-A, Series-18, Rajasthan
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For Official Use Only CENSUS OF INDIA 1981 SERIES-I 8 RAJASTHAN PART I-A ADMINISTRATION REPORT ENUMERATION I. c. SRIVASTAVA of the Indian Administrative Service Director of Census Operations, Rajasthan PREFACE~ 1 .". The Indian Census with its rich tradition of over a century is, to borrow from Abraham Lincon;s definition on democracy, the most authentic account of the people, for the people and by the people. In the Enumeration Operations which constitute, in their own way, probably the largest administrative exercise of the world the people living in the remotest corners of the country cooperate to supply details and information about themselves and their families to the Enumerators most of whom are chosen from among the government officials placed, closest to the people. The present volume seeks to summarise the experiences and the trials and tribulations which the officers and the staff of the Directorate as well as District Administration had to undergo in organising the field operations of 1981 Census in both the phases-Houselisting and Enumeration. The volume will, hopefully fulfil the needs of those officers who would wish to look back and derive usefully from the organisational details of 1981 Census before drawing up the administrative arrangements for the conduct of 1991 Census. Although an attempt has been made to present an objective picture of the 1981 Census in Rajasthan State, many suggestions based on our view and experience of the Census mayor may not be found useful for adoption or implementation in the changed circumstances of the next Census. Nevertheless the report will be found interesting and useful in many ways by the officers at the headquarters as well as in the field, who will be called upon to perform their duties as Census Officers in various capacities. The circulars received from the Registrar General, India, State Government orders and circulars together with those issued by' the Directorate have been listed separately besides being referred to at appropriate places in various chapters. A brief summary of suggestions made in different chapters has also been added so as to focus attention on some of the problems which are likely to arise in the next Census. I. C. SlUVASTAVA JAIPUR Director, May 9, 1983 Census Operations. Rajasthan. (iii) PREFACE CHAPTER I-Introduction • 1 CHAPTER II-Preparatory Steps • 3 CHAPTER JII-Preparations for the Census 5 CHAPTER IV-Building up ofthe Organisation 10 CHAPTER V-Touring and Training 14 CHAPTER VI-Census Schedules-Translation, Printing and Distribution 16 CHAPTER VII--Procurement of Maps 19 CHAPTER VIII-Rural and Urban Frame • 21 CHAPTER IX -Enumeration Agency 28 CHAPTER X-Houselisting Operations 30 CHAPTER XI-Enumeration • 35 CHAPTER XU-Directives issued by the Central and State Governments 46 CHAPTER XIII-General 50 CHAPTER XlV-Post Enumeration Check and Census Evaluation Study 64 CHAPTER XV-Suggestions 68 CHAPTER XVI-Conclusion • 72 ACKNOWLEDGEMENT 73 ANNEXURES 75 (v) "WE COUNT EVERYONE AND EVERYONE COUNTS FOR US." CHAPTER I INTRODUCTION The Administration Report has been prepared segments of popUlation with all the peculiarities in keeping with the past practice whereby the Director, and complexities of regional or strata variations? Census Operations of a State leaves behind a detailed Infactthe ever-growing demands of data-users for report encompassing various administrative and speedy and authentic statistics have out-paced the organisational aspects. This report is intended to output of data, even by computerization. be a distilled gist of the experiences of, besides the Director himself, Deputy Directors, Collectors, 3. I was appointed Director of Census Opera Additional Collectors, Charge Officers and other col tions, Rajasthan by Registrar General, India vide his leagues who have gone through the two phases of Order No. 11/85/79/Ad.I dated 16-7-1979 (Annexure 1) Census work-Houselisting and Enun;leration-and 4. The work relating to the conduct of Census overcome numerous difficulties. The report does Operations, organisation of tabulation work. and not, however, include the post-enumeration period the publication of Census volumes unique as it is (after March, 1981)activiti~s viz., the.compilation ~nd in many respects, calls upon the officers to evolve tabulation of Census data In the RegIOnal TabulatIon an approach and mode of working which turns out Offices, the compilation and finalisation of various to be quite different from other normal administra statistical tables in the Central Tabulation Unit tive duties of a government officer. In this context, of the Directorate, and the work relating to process my experience as Collector in three districts certainly ing and production of data by the Computer for stood me in good stead and provided a true which a separate administration report is being insight into the problems that could or were likely prepared. to arise in the field in the conduct of Census Opera 2. As I look back to the period before assuming tions. charge on July 9, 1979, of the office of the Director S. My first meeting with Registrar General, of Census Operations while I was attending an Advan India at New Delhi a few days after assuming duties, ced Management Development Course at L. B. S. though formal, completely dispelled my inhibition National Academy of Administration, Mussoorie, and reservations about my new assignment. Regis I recall wistfully, the welling up of the feeling of trar General Mr. P. Padmanabha's informal, frank uncertainty on receiving orders about my deputation and helpful approach to various immediate as well to Government of India for appointment as Director. as foreseeable problems beckoned me to go ahead It then, seemed to me that I would probably be at with full vigour and also signified that his support sea in the sea of surging statistics of which I had and guidance would be forthcoming in full measure little background except whatever can be, generally, from time to time. All this coupled with the remarks imbibed by an administrative officer in course of in his first letter dated the 10th July "We are all his career. Thus the Census Operations posed a privileged to be members of this great Organisation kind of challenge to my ingenuity and initiative. and the years which you will spend in this work But my appointment to this so termed 'unimportant' will be, I am confident, a period which you would and otherwise ' innocuous' post was initially looked look back upon with both pride and satisfaction." upon by colleagues and well-wishers more with pity reassured me in my tasks ahead. and :.;ympathy. In retrospect, however, I can say with some conviction that it has been a most 6. I also received full support from Shri G. K. interesting and fruitful experience for me and my Bhanot, the then Chief Secretary who took no time colleagues to have been associated with 1981 Census. in issuing a circular to all the Secretaries to Govern After all, in the framework and totality of social ment of Rajasthan, Collectors and Heads of Depar and economic planning at various levels can anyone tments enjoining upon them to extend all possible deny the usefulness of data base for formulating plans help and cooperation to the Directorate in the con keeping in view the 'felt' or 'minimum' needs of various duct of Census besides according the same priority 2 and treatment to the correspondence and instructions entrusted with work relating to Administration issued by the Directorate as was given to State Govern and Accounts Section. Meanwhile, I had to organise ment orders. When I called on him as Director of work with the assistance of three Assistant Directors. Census Operations his first remarks were "1 have The filled up staff strength of the Directorate was already signed all the three circulars which you requ 105 against the sanctioned strength of 142. The ested for yesterday evening; what else would you like detailed position is available in Annexure 3, me to do?" It come to me as a very pleasant surprise as I had gone to see him only to explain the need for 8. As I set about my new role, my first thought the issue of three circulars in question. It was immensely was to enlarge the small team of officers available satisfying to find that they were already signed by in the Directorate by inducting, as Regional Tabu the senior-most and busiest officer of the State within lation Officers, officers of the State Government who 48 hours of my making request. All in all, the Chief had worked with me earlier and were, therefore, Secretary's Circular helped not only in gearing up personally known to me for their qualities of head the administrative machinery at various levels but and heart and hard work and efficiency. The officers in setting up the hierarchy of functionaries for and other categories of staff available in this nucleus control and supervision also. set up were required to go to the field to man Regional Tabulation Offices and as also to undertake a variety 7. At the outset, it would be useful to glance of jobs of administrative and technical nature, at the hierarchy and the administrative structures which called for capacity to coordinate and secure of the Registrar General's office as well as those in co-operation from officials at various levels of district the Directorates which are placed as Annexure 2. administration. Therefore, I had the great satis Ofcourse, the newly created post of Deputy Director faction of having experienced and efficient officers (Admn.) and the existing vacancy of Deputy Director to man the Regional Tabulation Offices. 4 (Technical) had yet to be filled in at the stage when I came in. Both the officers joined the organisation 9.