PRO. 29 (N) --300-- CENSUS OF INDIA 1961 VOLUME V GUJARAT ADMINISTRATION REPORT PART VIII-A-ENUMERA'tION By R. K. TRIVEDI Superintendent of Census Operations, GUjARAT PiuNrED AT SUBHASH PRINTERY, AHMEDABAD . 1963 i CONTENTS PAGE PREFACE v CHAPTER I-INTRODUCTION 1 Introduction' .' I 2 Separate Census Organisation for Gujarat 1 3 Census Legislation 1 4 Notifications under the C~nsus Act 2 5 First and Second Pre-tests 2 6 Census Conference, September 1959 3 7 Census Schedules 3 (i) House-lists • . 3 (ii) Household Schedules. 4 (iii) Individual Enumeration Slips • . • • 4 (iv) Centralisation of Instructions and Uniformity of Illustrations 5 8 Translation of schedules and instructions 5 9 Census preliminaries for Gujarat on the eve of bifurcation 5 10 Appointment· of Office Staff 6 11 Office Accommodation and Equipment 7 (i) Location 7 (ii) Accommodation 8 (iii) Office Furniture • 8 (iv) Stationery and Forms 9 12 (a) Paper • . 9 (b) Typewriters, Duplicators, Calculating ~achines, etc. 9 (c) Library 10 13 Printing 10 (a) Printing of Census Schedules, their Storage and Distribution 10 (b) Printing of Forms, Registers, Instructions, etc. 10 14 Procurement of Maps 11 15 (a) Urban Classification • • 12 (b) Organisation of Census in Urban Areas • 12 16 Touring 13 (a) Touring of Census Superintendent-Availability of Transport 13 (b) Facility of Transport. (c) Touring by other Officers . Ifr 17 Any special Administrative or other difficulties 18 Accounts-Budget 19 Receipts 20 Method of keeping Census Accounts °4 . 16 21 Financial Powers 22 Permanent Advance . I. 16 23 Some initial difficulties in the matter of finance • 17 17 24 Miscellaneous ., 17 (a) Conferences of Superintendents of Census Operations 17 (b) Telegraphic Address . • . • • . 17 (c) Facilities given by Railways and Postal authorities for Census despatches I' 18 (d) Census Records . .f, 18 25 The Census Publicity . l ii CHAPTER II-ENUMERATION PAGB 1 Introduction 22 2 (a) Census Programme 22 (b) The First Circulars and Tours • 22 3 (a) Preparation of Registers 23 (b) Preparation of Census Vmage Register 23 (c) Preparation of Census Charge Register 23 4 (a) Formation of Census Divisions 23 (b) Preparation of more check registers. 24 5 The urban and rural location code number 24 6 Preparation of maps and verification of local jurisdiction 25 7 Appointment of District Census <;>fficers and Taluka Charge Officers 26 8 Census Circulars • 26 (a) Circulation of Census Instructions 26 (b) Circulars about Scheduled Castes and Scheduled Tribes, Synonyms and Generic Names 27 (c) Circulars about Mother tongue • 27 9 Distribution Chart and Despatch of Forms 27 10 Appointment of Census Enumeration Agency 27 11 Training 28 (a) Training in he use-numbering and house-listing 28 (b) House-numbering Operations : Difficulties and Deficiencies . 29 (c) Desirability of permanent maintenance of house-numbers . 29 (d) Affixing number plates by Gram Panchyats 29 (c) Quality of House-list, verification of shortcomings in house-lists 30 (f) Where and how house-numbering add house-listing went wrong or failed to be very satisfactory 30 12 (i) Training course for Enumeration 31 (ji) Training programme 31 (iii) Checking and Supervision 31 (iv) Travellin~ Allowance to Reserve Staff 32 tv) Manual of Instructions on Enumeration 32 (vi) Facilities regarding attendance" etc. 32 13 Di~tribution of schedules and maintenance of reserves 33 14 Enumeration . 33 (a) yeneral 33 (b) Ar,ral1gcments for Special Areas . 34 (c) CeXsus of Cities, large Municipalities and Cantonments 34 (d) Cen~s of houseless and mobile population . 34 (e) 'Enumeration of Special Charges 34 (f) Difficulties about Enumeration of Mother tongue, if any 35 iii CHAPTER I1-ENUMERATION-Contd. PAGE (g) Preliminary Assessment of quality pf Enumeration 35 (i) Coverage 35 (ii) Response 35 (iii) Care in filling up demographic questions 30 (iv) Care in filling up economic questions 36 (v) Care in filling up Household Schedules 36 (vi) Difficulties aris;ng out of confusion over concepts and definiticns 37 (vii) Arrangements for filling up last minute deflections .. 38 15 Provisional Totals. 38 16 Post Enumer,ation Check 39 (i) Drawing of Sample 39 (ii) Organisational set-up 39 (iii) Training 39 (iv) Suggestions for future 39 17 (a) District and Taluka Census Clerks and other Special Staff 40 (b) Staff for City Corporation and Special Charges 40 18 Honorarium to Enumeration Staff 41 19 Whetl.er census enumeration should be wholly paid ? 42 20 Recognition of Services of Enumeration Staff 42 21 Enumeration of technically qualified personnel 43 22 Special Studies 43 23 General. 44 (a) The Next Census 44 (b) The Registrar General 45 APPENDICES 1 Census Notifications 46 II Longish letter of Registrar General, India, No. 3/9/5i-RG, dated 12-3-1959. 47 III Home Minister's address to the First Conference of Superintendents of Census Operations on 27-9-1959 55 IV-A List of books purchased 57 IV-B List of Books brought from Bombay 58 V Circulars and Forms printed for Enum~ration Period. 60 VI Budget Estimates for 1960-61 and 1961-62 . -63 VII Total amount of contribution payable by Municipalities on ad hoc basis towards cost of census operations 64 VIII Contribution from District Local Boards 66 IX Financial Powers delegated to Superintendent of Census Operations 67 X-A Title, number and location of important files and documents of current Census 68 X-B Files of 1951 Census duplicated from the Census Recmds at Bombay • 74 iv APPENDICE8-Contd. PAGB XI Details of Radio Talks • 76 XII The Census Calendar. 77 XIII-A Number of Enumeration Schedules supplied and used 80 XlII-B Number of forms supplied and used. 82 XIV Distributiotl of utters of Authority in English and Gujarati 83 XV Total number of Charge Officers, Circle Supervisors and Enumerators 83 XVI Table comparing provisional and final figures of population 84 XVII Special staff sanctioned for enumeration in Ahmedabad Municipal Corporation area 85 XVIll Paid staff appointed by Ahmedabad Municipal Corporation for houf>e-numbering and house-listing operations • 85 ANNEXURES A Important Circulars and Letters which are not reproduced but are available in the records 86 B Reprint of important circulars, notifications, etc., issued by the State Government 87 C Forms and Census Schedules 91 v PREFACE This report places on record the details of the organisation and conduct of the First Population Census of Gujarat on its emergence as a separate State from May I, 1960, so that it may serve as a guide for the future. The Administration Report of, the 1961 Census will be published in two parts, viz., (1) Enumeration and (2) Tabulation. This sub-part relates to Enumeration. The second sub-part relating to Tabulation will follow on the completion of the subsequent stages of the census operations. The organisation of Census in a newly formed State is indeed an uphill task beset with nume­ rous difficulties, viz., office accommodation, equipment, staff, etc., especially when the entire machinery of the Government is to be set up de novo at a new capital. But all these were happily solved with the help and co-operation received from the Registrar General and the State Government. The work done by my staff' and the help and guidance received from the Registrar General and ex-offiCio Census Commissiener have already been acknowledged in the body of this E.eport. I should, however, like to express here my thanks to Shri Ratubhai M. Adani, Minister, Public Works UIld Rural Develop­ ment Departments, Shri V. Isvaran, Chief Secretary, Shri G. L. Shed", Secretary, Public Works Department, and Shri N. D. Buch, then Deputy Secretary, General Administration ~epar1ment, on whose assistance I had to frequently draw upon to ensure the success of this \-ast admini.,trative undertaking. R. K. TRIVEDI AHMEDABAD, Superintendent of Census Operations, 6th August, 1962. Gujarat. CHAPTER I INTRODUCTION 1. The census is a Union subject. It is per­ Laws Order 1950, and the Census (Amendment) haps the one and the only central programme in Act of 1959. respect of which the entire work is done for the . It arms the administration with the necessary State without the local Government having any powers and authority required for the purpose financial liability. The contribution the State and meet any eventuality wherein resistance is Government, however, makes is unique and vital offered by a member of the public. It carries the in that it shoulders the entire responsibility of legal sanction that is needed for the taking of the providing the vast personnel required for census census and also enables the census authorities to taking and extends all possi.ble help and facilities invoke legal aid where one is needed to fight the so very essential for the success of this nation-wide recalcitrant elements of society that choose not to administrative undertaking. co-operate in census work. It equally gual;.ds aga­ inst any uncalled for behaviour on the part of the Separate Census Organisation for Gujarat census official and the public alike as also provi­ 2. The census in India dates back to 1872. But des for the previleged nature of the census returns the present will be the first occasion when a by guaranteeing their secrecy. separate Administration Report for Gujarat comes The fact that the census of the population of to be written on account of its having a separate India shall be taken during the year 1961 for census organisation. which the reference date will be the sunrise of Though Gujarat came into being as a sepa­ March 1, 1961 was announced to the general pu­ rate political unit from May 1, 1960 on the blic by the Government of India, in the Ministry bifurcation of the composite Bombay State into of Home Affairs Notification No.