CENSUS OF INDIA 1981
SERIES 22 Uttar Pradesh
Part I-A.
ADMINISTRATION REPORT ON ENUMERATION
(for o~cial use only)
RAVINDRA GUPTA Of the Indian Administration Services Director of densus Operations UTTAR PRADESH UTTAR PRADESH ADMINISTRATIVE DIVISIONS 1981
Not.:-,. WMr. the Di"rict I Tahllt tIfI_ dift.,. ',otrt/f. H.adquart.rs'no",., fM for,..r .pp.arl within brock. fl. for exo,.pl., PAURI (Gllrhr«) r 2. TM Tohlll Headquart.rs of rehri" Protopnogo is oC T.hrl.
• STATE CAPITAL
@ DISTRICT HEADQURTERS
o TAHSIL HEADGURTERS
« :r
A o 'C0NTEN'fS
'Page 1. Map of Admrnistrative Division U.P. .' 2. PREFACE (v)
3. Names ofCenslis Commissioners and Census Supermtendents DlI;ectors ...... (Vll)-{VIll) Names of Census Commissioners for Indl~ and Census Supenntendent~jDrrectors for Utter l'Iradesh List qfDlI;ectors or Censqs operatIons 1981 Census 4. -REPORT CHAPTER I - INTRODUCTION 1-7 The Census Act-The OrganisatIon Office BuIldmg - Ba~klog CHAPTER II-PREPARATORY STEPS 9-15 JurisdIctional Changes and list of VilIages-DlstnctjTehsIl creat_!:d after 1971 Census-PrOcurement and updatmg of Map~-Develqpll1g the census sch~dules-Pilot survey-~irst Pre-test-Second Ple-test-Tramm_g-Forms ,and ,Book- le~ .~f Instrucqons..-,Edlt ~nd Tabu~atron-Help of State -Government-Flllij,l ,Sc,hedules Ad,opted 1)1 1981. f;-ensus
CHAPTER III-PREPARATIONS FOR THE ,CENSUS '. 17-20 Third Conference of Directors of Census..LoperatlOns Fourth Directors Conferences---lFifth Directors Conference.- Census Calendar,-S,te level Conferences and Meetmgs. CHAPTER IV -lB~-'BlNG-UP 'OF'THE 'ORGANISATION 2'1-23 RegIonal .offices, RegIonal offices ,Establlshment-DIstnct level staff. ( CHAPTER V - TOURING] 25-27
Staff Car-Touring by otherofficers of the Drrectorate -AvaIlabihty.of~IUP¢fp~mg-k>-Raeg~Jl~ljletwV,y.'Drr.Q4Ws and other officers of the Drrectorate-Tounng by Djstnct Census officels-Relaxatton m ;winter tQur;s , - , CHAPTER VI-CENSUS SCHEDULES-TRANSLATION, PRINTING.ANI? :ruSTttlllUp,ON . . I • 29-30 Estimate of Requirements-Translatron-Dlstnbutlon of Census Schedules-Locai Ppntmg-Tran'sp6itation o( ConSIgn- \ ments; CHAPTER VIl- PROCUREMENT OF MAPS . '/ . 31-32 Tah~ MalpS-=-Town ,and ·ward ''Maps~tafI7Tn Map Unit. .'
CHAJ.>TER VIII-PREPARATION OF RURAL AND URBAN FRAME: 33-39 Urban AgglomeratIOn - Standard urban areas-Local Code-State Code-DlstrictjTahsIljTown Codes-VIllage Code - Trhsil M~ps"VIllji_ge .p..eglSterjTown ,RegIster-.Charge IR~grsters. CHAPTER IX - ENUMERATION AGENCY 41--44
CHAPTER X - HOUSELISTIN? OPERATIPN~ .' ,,' ", j ,. 45-51 Back Ground-;EconomlC~ Censu~-,:;Prep1,!ratory,.st~PJ!..:....R~)onal oJIic,;~s-C~ry*o1l_.of J;p~JPera!lon ~lo~s~TraiPing of Tramers-Traming of FIeld WorKers~House Numbenng ang Housellsting-Movement of Records-Generatioh and Release of Housebstmg Totals-A comparison WIth 1911 ,PopulatIOn Provisional-PGpulahon FlgUres~P.6.bhCity. " CHAPTER XI - ENUMERATION . 53-63 Re-carvatlon of Blocks-Abndged House IIst-SelectlOn of20 per cent Sample of EnumeratIOn 'Bloc:ks-:l:'ramlng-State le're1 1\:unmg of officers-Traintng at District level-Commencement qf EnumeratIOn-Intensive (Superv1sion..and Compile coverage-Public Complamts""':Canvassmg of DliIerent Questio'ns..,....,Eronomic 'Questton.;,...:[ndlvidual :Slip (Sample) Enume~ation of the Houseless-Enu_meraUQn of .PtIsrill}S .-sP,e9i1,!I-Non"SYIwhro,J;lous ~EmWletatio)1-.:;Enu merat!on in FaIrs'and ExhlbitiOns-Enume,ratlQn.ip Special charges,-Mov91:el}t of Records...,.C~n11lrlUnicatlOn Of,P;;OVI slOnal Resuits-Val'lation between ProvJsiontli P_optilation ana FjnalrPqpulaiion-R~lease~ of ~rovIsi91!al 'Tota1s. CHAPTER XII-..Dli-EGrI\fJ3S, ISSUEE>:BY·THE,STATE..G0YER~M-I;NT 65 CHAPTER XIll- CENSUS CIRCULARS "\-68
CHAPTER XIV - PUBLICITY MEASURES • . 69-70 Third Directors Conference-Discussion on Publicity-VarIOus Measures of PublIcity, pages
CHAPTER XV-POST-ENUMERATION CHECK AND CENSUS EVALUATION STUDY 71-72 post Enumeration Check-The calendar of operatlons for Post Enumeration Che<:k-Census EvaluatIOn Study CHAPTER XVI - GENERAL. ADMINISTRATIVE, ACCOUNTS, STORES AND STATIONERY AND REGIONAL TABULATION OFFICES ETC. .' 73-81 - Accounts-AccouIiting ProcedUre of Clerical ASSistance to Districts, Tahsds and Locall}odl;s-Speclal allowance to offiCIals of 19 Tahsils for census work_"Honoranum to offiCIal of 165 MUnICIpal Boards for attendmg to work connected with 1981 cenSUS-Monthly and Quarterly Returns of Exp~nditure-Permanent Advance-Indent for Stationery and Stores-Traming Allowance to Enumerators and Supervisors-payment of HonorarIUm to Enfunerat)on Staff In Connection WIth 1981 Census-Census Medals-Award of Comm~I1datJon Celilficate by the State GOvernment RegIOnal Ta)ulation offices-AccommodatIon for RegIOnal Tabulation' offices-Furniture for .RegIOnal Tubulation offices-Telephone-Typewnters.
CHAPTER xvn - CONCLJlSION . 83-84
5. APPENDICES'
Appendices " 85-264 1. Notification placing the servIces of the Director of Census operations at the dIsposal of Government of Ind la ll. Th~ Dlfj:ctor of Census operl\t!ons has .taken ·overcharge-Clrcular. m. NotificatIon regarding the takiQg of 1Q81 Census IV. Staff POSItion ~s on 24-4-1979r V. RegIstrar General, India's Circ$r No.1 regarding Classification of Rmal and urban units-1981 Census. vi. R~glstrar General India's Cltcular No.2 regardmg o~ganisation of Census of IndIa 1981-general InstructIOns vn. :Qrrect9r of Censu,S operatIob,'s Crrcular ;No. ! Regarding ,Importance of c,ensus,and bnef HIstory mcluding Census Act 1948 etc. VllI. Formates population Record used in Pilot stud} IX. Form{of Pretest X. Formates pfIndiVldual Slip and Household ~chedUte.
XI. Radiogram~No. 0.168/111-15(2)/,(8 GAD dated 8 Jtme 1978 {rom State Goverhnlent Regarding Co-ope ration to Census staff. Xll RadIogram No. G.248/ill-15(2) 78 GAD dated 4 September from State ~overrullent regardmg assi'stances to Census ktaff. XJll. Important instructIons.
XIV. ~Change of Census Calendar 1981 Census-First Stcp-Houselisting including'snowbound areas of hill districts-second step-EnUmeration.
XV pOSItion of staff for quarter endmg 31-~-1980. XVI. l'osition of staff Quarter ending 31-3-1981 including Regional offices.
XVII. DetaIls _ of tours undertaken~ by the Director durmg the year 1979-80,-10 and 1980-81 XVill. Traltllng matenals sent for.Househsting operatIons. XIX. Training materials sent for enumeration. XX. List of 704 Towns. XXI. VIllage/Town ,Register. XXII. LIst of Distnct Census Officers/City Census Officers. XXIII. Dlstrict:'wlse number of Enumerator and SupefVIsor.,...House lIsting. XXIV. Direc~or of Census operations letter l;-l'o. AF/11-80{DCO-uP/A:130 dated ,9 January 1981 regarding Appointment of staff on consolidated salazy for enumeratu;m. XXV. Statement showmg comparatIve/population figures of housebstmg 1980 and 1971 €enS'USes. XXVI. Enumeration Manual xxvn. Census of India 1981 (Enumeration) Supervisor's J;>iary. xxvrn. Budget for Enumerator and Supervisor.
XXlX~ Ec?nomic QuestIons: J
(ii) XXX. List of VilJages in Non-synchronous Areas. pages
XXXI. Circular and letters from various heads of Depa:tments!offices of Cc!ltral and State GOV{ I_fnn r: t. XXXII. Distribution of posters. XXXIII. Radio talk by Director of Census operations p.P. XXXIV. press note for release on 9-2-1981-The Starting day of Census of 1981. XXXV. Message of Hon'ble Prin;le. Miriistei of India. XXXVI. Message~of Hon'bIe Chief Minister and Chief Secretary'of U.P. Government through AIllndi~ Radio. XXXVII. Form I-post El}umeration Ch.eck. Form-U Form-ID XXXVIII. ",Calendar fo;r Field work of PEC and CBS. XXXIX. Yearly Budget...... XL. Name of Municipal Boards having population below on'e lakb. XLI. Distri-;;t-wise Budget and actual expenditure on ac,Count of paynient of honorarium :0 Census functiona- - ries in connection with 1981 censUs for the years 1980-81 and 1981-82. - XLII. Budget Estimate and actual expenditure for 1978-79, 1979-80, 1980-81 and 1981..g2 in cOl1l)ection with 1981 Census. XLill. Staff'for Regional Tabulation office. XLIV. Details of R.T.O's. Buildings. XLV. Details of furniture purchased at Regional Tabulation offices.
XLV1.' List of some concrete suggestions made in the R~port.
6 CENSuS IN ACTION (Photographs) between .page 98-99
(m)
¥BEFAtC'E
Ii! .q.as been. cus.t.omar-y 1:0 pubh.sh ~n A-dmiilistra_tion.. R.epprt after ea~h Census. It is a re.cord 0f the .first pha.s~ .Qf the CenSUS Operati@ns relating to the .0rganIsatIOn. of ,bouseHsting and enumeratIon. There will b~ a separate repor-t dealing with the subsequent phase i,.e. tabv.latiol} of ce.Q.~us data. As mentIOned at the begmnIng of thIS report, till 1951 census.orgamsation followed a 'p!1oeni-x' approach. The office of the DirectOJ; of Census Opera tions came into existence a yeal or two before the enumeFatIOn and was wound-up ~ year er two thel'eafter. Such reports had, therefo~e, immense value for one's ~uccessClr. Although, now there is a suffiCIently bi!!: and organised office on permanent b~SlS, it takes some ·tIIl)_~ to get a hang of the census operations. I tIust lbat this report would be of h~lp in this ;regard. Indian Censl1s is a mammotb undertak-ing and by far the largest adminis trative exercise lD the wOIld toelay,. Although in the general administrative cu11mre, the _posting in thi~ organisation does not evoke sufficient enthusiasm, it IS. a unique experience which strains one's mental and physical capacities to the limit. I consider myself privileged to have been associated with the Census of 1981. In this task~ I had the priVIlege of having a fine team of officers and staff. to each one of them r oifel' my thanks. r am specially thanKful to Shri J.P. Baranwal, Assistant Director, Census wbo assisted me in preparmg tl.l1s reDort. He worked with dIlIgence and devotipn in collecting and compIling the required material for the report and also attempting preliminary drafting tor various chapters. I am also' grateful to Shri Lal Krishan, Deputy~Director for going metlculously through the manuscript, making corrections and oftering valuable suggestion~~. Mrs. Naseem Siddi_qui, Senior Stenographer, Shri Ram Das, Junior Stenographer and Shri Roop Kisbore Nigam, Typist also deservi< my thank& for excellent typing of this voluminous report and its annexures. In- the end, I would like to t'ender my grateful thanks to Shri P. Padmanablla, the RegistxaJ General, India who i:q,spired all of us in, this gIgantic task. The credit for successful completion of the Census really goes • (Q ~lS patient, inspiring and courteous guidance.
Lucknow RAVINDRA GUPTA Dated: Oct. 12, 1982 Director of Census Operations 'Uttar Pradesh
(v) "FEW PEOPLE OUTSIPE REALISE THAT CENSUS IS AN ADMINIS TRA~IVE OPERATION OF GREAT DIMENSIONS AND IN ADDITION, IT IS A 8CIBNTIFIC _?ROGRESS. INDIAN CEN~U~ I"N" PARTICULAR, COVERS THE LARGEST POPULATION IN THE WORLD AND IT l~ ALSO ONE OF THE MOST E<;':ONO~ICAL ADMINISTRATIVE OPERATIONS. CENSUS AS AN INSTnUTION GOBS BACK TO 'IHE 'R~MOTB PAST, BUT IT II) NO LONGER A MERE COUNTING OF H.cJ\DS, IT INVOLVES EX1RACTION OF INFORMAtION "WHICH PLAYS A VITAL ROLE IN THE DBTf:RMINATION OF MANY OF OUR ADMINI~TRATIVE POLICIES. THB FACTS ELICITED DURING THE. COURSE. OF THE OPERATION YIELD VALUABLE SCIENTIFiC DATA OF SOCIOLuGICAL JMPORTANC~. IN MANY MATTERS IT PROVrDE ') A USEFUL GUIDE FOR THE BFFECTIV,BNE5S OR OTHERWISE. OF OUR ECONOMIC POLICIES. THE THEORY OF POPULATION I') IN IT,)ELF AN INTERESTING PART OF ECONOMICS. THE OENSUS HELPS US TO TE~T AND ADAP,"( THAT THEORY TO FACTS.
-SARDAR VALLABH BRAI PATEL
vi ,. NAMES Of CENSUS COMM[SSIONERc; FOR INDIA AND CENSUS SVPERINTEND,ENTS/DIRECTORS FOR UTTAR PRADESH
Year Census Commissioners for India C:ln~U3 S Ip~nntendentsl Directors for the present Uttar Pradesh 2 3
1872 Mr. W.W. Hunter Mr. w.e. Plowden (North Western provmces and R.lmpur only). lS'S'l Mt. W.C. Plowden Mr. 'B1mund White 1891 Mr. I.A. B!'.ineS' Mr. D.C. B:ullie 1901 Mr H.H. Rlsley-' \ir.R.Bum Mr. E A. G.lft 19I1 Mr. E.A,. G.llt Mr. B.A.H Blunt 1921 Mr. I.T. Marten Mr. B.H.H. B.{ye 1931 Mr I H. Hutton M·. A.C. Turner 1941 Mr M.W.M. Yeatts Sbri Bhagwan S'lhay 1951 Mr M W.M. Ye~tts_a Sllr! R-ljeshwari Prasad Shrl R A. Gopalaswami 1961 51tr1 A. Mitra Shri P.P. Bhatr~lI.r 1911 S!1ri A. Chandra Sekhar Shri D M. SintYk' 1981 Shri P. Padmanabha - Shri Ravindra GuPta
1. GIVen a higber appointment durlUi the Census. 2 Uiuortunltely di.:d in the midst.
[Vii; 1 DCOUP/82-2 LIST OF l>IRECTORS ~,CI!;NSUS 'OPUAnONS' 1'&1 CENSUS
SI. State/Union Territory Nameof :f)ireCtorof No. CensUs Operations 2 3
STATES
Andhra Pradesh S~ri S.S. Jaya Rao. I.A.S. 2 Assam SlmN.K. Choudhury, I.A.S. 3 :BIhar Shri B,D. 1.*1, VA.S. 4 Gujltrat Shrl B..S. Chbaya. {,A S. 5 Haryana Shri O.P. Bharadwaj, I.A:S. 6 Himachal Pradesh Shri K.L. Ne.t.l.A;S.,
7 Jammu" Kashmir Sbri A.H. Khan, I.A;51 r Karnataka S'li'i B.IC. DlS, I.A.S. 9 Kerala Sari M. v. tr. Namblar. I.~ .s. 10 Madhya Pradesh Shrilt.C. Dubey. LA.S. ' 11 Maharashtra Shri P.P. M'hana,I.A.S. 12 Manipur SnriR..K.'Bieendra Singh, M,e.s. 13 Me,halaya Sltri 1. Tayena. I.A.S. ' 14 Naaaland 'ShriDaniel~t, l.r.A.S. 15 Orissa S!tri A.R, NaiIIf:la. 1.A.S.
16 Punjab ShriD.N.Dhir,I.A,S·1 11 ltajasthan Shri I.,e. SrIvastava, I.A.S. 13 Sikkim Shri J.K. Tha~a. I.A.s. 19 Tamil Nadu Sl:tri A.P. MuthUswami, I.A.S. 20 Tripuca Shri S R. Chakrab~rty. I.A.S. 21 Uttar Pradesh. Shri R.'1vindra GUllta, I.A S. 22 West Denpl Sbei S.N. Ghosh, I.A.S.
UNION TeRRITORIES I 1 Andadlan and Nicobar Islands Sllri B K. Singh.I.A.S. 2 Arunachal Pradesh Shti M.D. R.ai, I.A.S. 3 Cbandiall.rh Shri Ardaman Singh .. Delhi Shl'i V.K. Dttalla. I.A.S. 5 Goa. D~man' &: Diu and Dadra do Nagar Haveli Sbri 8.K. Gandbe, I.B.S. 6 Lakshadweep Shrl P.M. N.lir, LA.S. 1 Mizoram S11r. P. L:l.lnithanga, I.A.S. 8 Pondicherry Slid P.L. S~my, I.A.S.
[vIii} CHAPTER I INTRODUCTION
I had the pnvilege of organismg the 12th popula chance. In fact, you would have to not merely iSsue tion census. the f(lurth after Independence. I joined clear cut circulars and instructions but also set up an this office in the forenoon of 24th April, '1979. A copy efficien:t progress reporting system for youTself." It would of relevant notIfication is.at Appendix-I. a circular w.a~ not be' out of place to mention that organisation sent to aU eoncerned that I had taken ove r as Direc of the _1991 Census would be a m).lch tougher job. tor of Census Operations, U.P. on the date of JOID 1.05 Before I carryon with the narration of i~ itself, it is at Appendix II. Prior to my \ joining my experiences ~f 19~1 Census, it would be worth here, I was working as Special Secretary to the while looking back a bit. The crnsus of population is Government o~ U.P. in the Industries Department. defined as 'the total proSess of collecting, compiling and publishing demographic, economic and social 1.02 I had come in contact with ,my prede~essor data p~rtaining at a specified time or times to all Shri D. M. Sinha, soon after my first posting in tilt person$ in a country or delimited territory'. This State. W"t were posted in the adjoining districts of modern idea began to evolve only in the 17th century, Rampur and Bareilly.. in the Rohilkhaad Division. although some' kind of population counts are known He was' a very gregarious fellow with a great love for to have been taken in ancient times. In India too one music. He also had a hand in' the Itermination of tpy findS a detailed acco.unt of census in the
pur, 1821-Garhwal and Almora, 1823-Dehra Dun, 1.12 The citizen will be vouchsafed absolute 1824-Allahabad, 1826-Banares, 1828-30-BareiJl confidentiality for the info,rmation he renders, which and Pilibhit, 1831-Agra, ,1837-Azamgarh. 1838- neither he nor government will be entitled to use for, Fatehpur. 1840-HamIrpur, 1845-Farrukhabad and or agaIUst him in any public or private proceedings. 1846-Fatehpur. In 184748, a cen<;us was organised in most of the areas which had by then come under 1.13 The safeguard imposes upon the citizen the British rule. Shortly afterwards, Etawah and Mampuri duty to give truth(.ul information. ' had another enuJTleration ill 1849 and 1850 respecti- vcly. . 1.14 There should be legislation to confer san ctity on the Operation. ] .08 Meanwhile in 1849, the East India Company had taken ,a decision for taking quinquenmal census. 1.15 The operation will be a combination of A full scale census was accordingly organised in 'dejure' and 'defacto' procedures, where the person 18.52-53 by Mr. G. J. ChrIstian in the North-Western enumerated wIll be accounted for as far as possible in Provinces (approximately present Uttar Pradesh except his usual residence. Oudh, Tehri-GarhwaI and. Rampur) with the exclu~-' 1.16 The enumerati~n will have to be conducted sion of Dehra Dun and Jhans\. This was a regular by an unpaid enumerating staff. The question of house to house enumeratlon of all people on one single payment was considered as early as 1877 and there night, i e., the night of the 31st Decemb~r, 1852. The after periodically, but was rejected. The decision was next census was to be held in 1861 throughout India to press into service the existing hierarchy of official, which could, however, not materialise due to 1857 or semi-officials anJ honorary workers from the vil disturbances. It was only on the 10th January, 1865 lage upward through the tahstl, the sub~vision, the that the next census could be taken. It was organised district, the 'division and the province each of which by Mr. W. C. Plowden and covered aU the non-hill levels would take the census, so to say, ai a badge of districts of the th:n North-Western Provinces. The honour and national service. censU's ofOudh was taken in 1869 by Mr. J. C. Gulliany. Assistant Settlement Officer on Special DJty. 1.17 There should be a preliminary census count follow.cd by a final count. the preliminary count pro 1.09 Statistical organisation moved fast at the viding not only an advance estimate of the final close of this decade. An experimental census of the outcome but servicing to detect remediable defects OD lower provinces of Bengal was 'organised in 1869. In the eve of the final count. 1865 the Govemment of India and the Home Govern ment had agreed upon the principle that a general l.l8 The census count was to be organised on.the population census would be taken in 1871. Model basis of the information deem~d necessary and destra census schedules and questionnaires had already been ble. by the government. In other wo;ds,. the authorities p;tie-ntly worked out., The years 1.867~72 were spent would have to have fairly preCIse Ideas from the in taking a census by the actual counting of heads in beginnin.g of the form in which information should be as much of the country as was practicable. This series, abstracted, processed and published. commonly known as the Census of 1872, was not a synchronous project nor did it cover all territory 1.19 What would be the most convenient, ~ate poss(~ssed or controlled by the British. Though based for census taking 'l The committee observed, . Wlt~ on uniform schedules, it was not centrally supervised, out, therefore, fixing any definite date and havIng III mod(lrated or compiled. But, inspired by modern view the advantage accming from the use. of a moonlit conCl~pts, it marked an auspicious beginning and night for such a purpose as an enumeration, the com. contained the rudiments of all basic demographic, mittee recommend the early part of February 1881 social and economic tables. within two or three days of the full moon, .a~ jthe d~t~ 'best suited for a synchronous census o~ntlsh Indta. 1.10 In 1877 a committee was set up of three census veterans of 1872 w.e. Plowden of North 1.20 Right in 1878, the government rejected the Western Provinces, H. Beverlay of Bengal and W. R. idea of a commission of more than one person to Comish of Madras to report to the Government. conduct the censuS. The commission would be mono They laid down several basic principles of census lithic, with one person in supreme charge at the centre taking which have continued. to this day. with counterparts in each province or s~te severally 'bl to the former. In each province or state 1.11 The census should be canvassed, that is, responst e I • • • enumerators should be appointed to enumerate and the hierarchy would descend throuah the Dlvlslona Commissioner down the District to. the it should not be loft to the citizen to file his own Colle~tor Tahsildar or Circle Officer of the tahsil or CIrcle return. 3 down to the school teacher, or talati or revenue accoun 1.24 Although the Census Act is over 30 years tant of each village. The police would be kept out. old, no rules have so far been framed under the Act. The entire machinery of the government would be It is necessary that the rules are framed as soon as pressed into a supreme effort, which from humble possible. The Census Schedules are determined cen and slow beginnings would have to be built up into trally for the whole of India. Tb.ere ar_!: no variations a swift crescendo of a single curfew-bond night. from state to state. It is, therefore, not clear as to why Thereafter, the first results (the bare nose-count) the schedules should be notified by the State Govern would have to be brought out in a matter of days, ments in their official gazette. It would be better to while the detailed results might wait, but not too substitute 'Central Government' for 'State Govern long, for the entire census organisation would have to ment' in Section 8 of the Act. There is no provision be wound up in the third year of the decade. Thus in the Act for requisition of vehicles as in the Repre preparations would begin on the Zero year of the sentation of Peoples Act. In most of the states, decade, the count would be taken around February vehicles had to be requisitioned. It is, therefore, of year one and the census wound up with the major necessary to include an enabling provision. publications accomplished in year three of the de cade. The merit of the Census Commissioner of India 1.25 The Census Act also provides for the pro would be assessed not only by how smoothly he had secution of Census Officers for negligence, indifference succeeded in all stages but how economically he had etc. and of citizens for giving false answers or refusing got through all of them. to answer or interfering in any way etc. When ever a prosecution has to be launched, pre~ous 1.21 The Cenaus of 1881, under the first Census sanction of the State Government (or an officer Commissioner, W. C. Plowden, was a great step authorised in its behalf-Collector) is required and forward towards a modem, synchronous and comp thereafter, a complaint has to be filed in a court rehensive operation in which much effort was spent as prescribed in Section 14. This is not It very effec not only on more complete coverage but also on classi tive procedure. Moreover, one is not inclined to fication of demographic, econmic and social cha use these penal provisions. More or less all classes racteristics. The population census has now ~~ome of Government/Semi-Government employees have the most important primary source of basic popula statewise association. There are also federations of tion data for administration and for many aspects various employees' associations. Any action, there of economic and social planning. It serves as a base fore, runs the risk of an association strike. Launching or benchmark for current statistics, and provides the prosecutions against members of general public statistical frame for most sample surveys. , is also not a feasible proposition. At a time, when 1.22 Since a census is taken once in 10 years, it is Census Officers are worried about keeping up with an up-hill talk to generate an awatenesa of" census, the time schedule, it is difficult for them to pursue not only in the public but also in the administrative such prosecutions along with their multifarious duties hierarchies of the State Government. The Govern One has, therefore, to seriously think of ways and ment fanctioneries at all -levels are so taken up with means to strengthen the hands of the CeniUS Officers. their day-to-day administrative duties that it is extre The OrEanisatift mely difficult to include census anywhere in their 1.26. Till 1951, Census Organisation was func priorities. Since the accuracy and completeness of tioning like the proverbial phoenix. It came into data have no, direct bearing on the welfare of the being just on the eve of the census, in the people, it is impossible to arouse the sufficient year 'zero' and wound up as soon as census was interest of the public representatives. over; within 2 or 3 years of its creation, normally The Census ~ct year 'three' of the d~cade. The Office of the Registrar 1.23 Almough, the Committee of 1877 had Oeneral-cum-Census Commissioner, India was made recommended conferment of legal sanctity to census permanent after the 1951 Census. After the 1961 taking, it was only in the year 1948 that the Censua Census, a decision was taken to keep nuclei in the Act was passed by the parliament through Act No. State Directorates as well. Consequently, a staff of XXXVII of 1948. Since the Aat is frequently required 10 persons in the Administrative Section, 35 in Tech for consultation and its copies are not readily avail nical Section and 9 Class IV (54 in all) was carried over able, it was annexed to my Circular No. I. It is under in 1967. The staff strength had risen to 486 when I Section 3 of this Act that the Central Government joined. The details are given in Appendix IV. issue a notification for the taking of the census. The 1.27 When I joined. Shri S. S. S. laiswal was relev"nt notification for taking of the 1981 Census functioning as Deputy Director Illcharge. The other is at Appendix III. Deputy Director was Shri S. K. Agarwal who was 1 DCOUP/82-3 4 looking after the technical work. The third post was deputation from the State Civil Servlces. SectlOnwise lying vacant for which a p::rson was to be taken on break-up of the ~taff in posItion is given below :
DIRECTOR
.j. .), .j. • .j. .j. .j. D~i):ltY Director (Iu,;harge) D!ptlty Director DeputyDlrector A~slst.mt D;rector A~sl~tant ASSistant .). (Techn.ical) (Techmcal) (AdmmistrdtlOn) (Vacant) Director. Director .j. (Vacant) Central Zone (K~npur SImple Registra City) --- tIon (V .. cant) (Vdcunt) .j. oj. .j. oj. oj. .j. Assistant A'3slst:tnt A'3sistn.nt Techntcal Printmg Section Central Record Director D'n::tor (Va 11 Dlre::tor (C;:ll S ~;::tlOn (Dlstnct and Library Room (Techmcal) StatistIcS) and Errat'l) Census Hand oj. Book and { S'Jclal StudIes) .j. ------~------{ I'lv~stlgltor lllvestlg'l.tor Investigator 4 Tabulation- Tabulatlon- .1 Tlblhtlon T IbulitlOn- TabulatlOn- Officer Officer Offi~er 3 Officer 4 Officer 2 Prmting Upper DlVrsion .j. S ltI~Oca!- StatlstIcal- SL1.tlstlc.ll- Inspector Clerk 1 .j. A~slstant 1 Assistant 14 Assistant 3 ProofReader 2 Assistant- .j. CJmputor 70 C~mpJtJr 13 CJmputor 9 Statistical ComPlIer 10 { Asslst'lnt Asslstant- Asslstant- Assistant 2 .j. CompIler 2 C::>mpller 94 Compiler 12 Computor t Lower DIVISIOn Assistant 6 t Clerk 1 Compiler 4 Library ...... Upper Dlvision- Clerk 1 Asslstant- Compiler 1
.t.} • .} .} .j. • A.lmmistratIOn Planning & Co-ordInatIOn State Tabulation Unit Map SectIOn -----~---- H~'ld Assistant 1 Tabuhtwn Officer 1 TabulatIon Officer 1 Senior G~ographer He'ldCIerk 3 St ltistlcal ASSistant 4 Statistical Assistant 1 Geographer Assistant 2 Computor 3 Computor 2 TabulatIOn Olficer Accountant ASSistant CompIler 6 ASSIstant CompIler 4 ArtIst Uppel DIVISIOn Clerk 12 Hmdt Tra!_lslator Sent or Dnughtsm'tn 3 Lower DIVISIOn Clerk 16 Draughtsman 10 SenIOr Stenographer I Map Assistant 2 Junior Stenographer 1 Ferro Prmt Machme N.1Zlr(Stattstlcal Assttst:mt) 1 Operator Assistflnt Nazlr (Computor) 1 Hlnd Press Machine Jumor Gestetner Operator 1 O;nrator ASSIstant Compiler 8 Group 'D' Staff 45 ------'-\ -----
/' 1.28 Shn Jalswal had received intimation of my be set right immediately after I would join. However, appomtment nearly a month before I joined. Soon inspite of minor irritations and blckerings a+ times after gettmg the intimation, he started calhng on me. which are Ul1a voidable in such a huge and diverse He was full of census and was always talking of the staff, tbe over an discipline gradually improved and beauttes of the job and the bonhomie fin the census We could S~e the Census Operations smoothly through. brotherhood. Albeit, he confessed that there were My frequent visiti> to ditfr~llt office buildings and some problems of office dIscipline which will, he felt, taking of all levels of s(aff into confidence helPed a lot. 5
1.29 There were several reasons for this state per month. It housed District Census Hand BOOK, of affairs. The Directorate had five Codtng and Social StUdies, Printing Unit and the Library. At PunchIng Cells at Gorakhpur, Varauasi, Kanpur, the time of writing the report, it was being used as a Lucknowand Meerut during the 1971 Census. While Library only. It was lU a very bad shape and a pro it Was pOSSIble to close down Gorakhpur, Varanasi posal for repairs at government cost was turned down. and Meerut Cells, Kanpur and Lucknow Cells conti nued after 1973-74 because of severe employees 52. Gltasiari Mandi agitation. The strength of these two Cells in 1973 This building has a carpet area of 2,058 sq. ft. was 85 and 87 respectively, i.e. 172 in all. One can Its monthly rent was Rs. 794.20 per month. It say that this office carried surplus of this magnitude housed the Vital Statistics Section. With the hiri.ng dunng the 1971 inter-censal period. As Shri Jaiswal of Govinda Bhavan, this sectlon was moved from this had admitted, the powers of the Director were buildmg and it was used by the Coding Cell. This vested In the Office of the Registrar General, India at was hter on vac1ted with effect from 30-4-1982 when DelhI. There were three Deputy Directors and the Prem Bazar was aVailable to the Coding Cell. Al Deputy DIrector Incharge W:lS the first among equals. though .cheap, it was in a very bad state of repairs. This created a lot of ill-feeling amongst the officers. Both the landlord and the Government were un This lowered their prestige in the employees. Fur WIlling to spend money. ther, there was large scale misuse ofmedlcal reimburse ment facility This meant a lot of young men without Maqbara Building any work, insufficient control and a lot of money. This building has a carpet area of 5,080 sq. ft. Obviously, there had to be indtsciphne. There was with a rent of only Rs. 325 00 per month. This also a lot of discord between the sched uled ca ste was functioning <:.s Central Record Room. employees on the one hand and the rest on the other. Chhota Imambara I sincerely hope that the position in 1989 would be much better. The converslon of one post of Deputy ThIS building has '1 carpet area of 4,905 sq. ft. Director into that of Joint Director would also go with monthly rent of only 201.00. It had records a long way. and stores pertaining to 1971 Census. 1.31 The Maqbara and Chhota Imambara buil Office Buildings dings had been declared protected monuments. 1.30 When I took-over, the Directorate had 7 Therefore, we were required to give them up. Since we were short of space on the basis of our entitlement buildings ~t its disposal. The administrative sectIon and there was some increase in staff also, consequently, was located at 6, Park Road. It is a three-storeyed these buildings were reta.med. Chhota Imr, mbara buildIng with 6 flats. Two flats on the ground-fi?or building was later on vacated in April, 1982. The with a carpet area of 2,800 sq. ft. were In our possesSIon. Its rent was Rs. 1,725.00 per month. The details following new buildings were also hired:- of other buildings are as follows:- (i) 27, Ram Mohan Rai Marg: This building has a carpet area of 2,476 sq. ft. with a monthly rent of C-12, Mahanagar Extension Rs. 3,721. 50. It housed part of the Coding Cell, This building has a carpet area of 4,750 sq. ft. and the total requirement for which was 27,500 sq. ft. was hired on a rent of Rs. 2,550.00 per month. It (ii) 25. Naval Kishore Road, Govinda Bbavan: housed Map Section, State Tabulation Unit and This is a six-storeyed building with a carpet area of Coding and Punchmg Cell. The building was in need 18,409 sq. ft. It was hired on a monthly rent of of major repairs. Rs. 46,380.1~. This housed the main office divisions and the Direct Data Entry System. B-15, Mahanlgar Extension This building has a carpet area of 2,550 sq. ft. (iii) C-9, Mahanagar Extension: This was occupied with effect from 13-2-1981 On a monthly rent of It was hired a t a rent of Rs. 732.00 per month. Rs. 3,943.50. It has a carpet area of 2,629 sq. ft. on Planning and Co-ordin', tion and Punching Cell were the ground-floor. Later on the 1st Floor with a carpeL located in this building. area of 2,200 sq. ft. was also occupied with effect from 25-8-1981 on a monthly rent of Rs. 3,300.00. Capitol Building It was used by the Coding Cell to start with and was This building with a carpet area of 2,800 sq. ft. handed over, later on, to the Special Tabulation had boon with us since 1961. Its rent is Rs. 312.50 Section. (;
(IV) Prem Bazar' This accommodation with a I .33 The dispersal >f offices to so many locations carpet area of 7,885 sq. ft. and monthly rent of Rs. was quite bother come from the point of VIW of super 17,741 .25 was originally hired by the Regional Tabula vision. The telephone exchang, s were loaded to the tion Office, Faizabad (II). It was there ,fter retained limit and we were not able to get telephone connection by the Directorate with effect from 1-5-1982 to house In each building. In the b;:ginning, I had sent a pro the Coding Cell and thereby reduce number of buil posal for 40,000 sq.ft. l f 'pac~ in the P.C.F. building. dings. It was turned down because the space was very costly. (v) Leela Building (Portions) This has a carpet A proposal to purchase 16, A.P. Sen Road building area of 2,038 sq. ft. hired on a monthly rent of Rs: having a plot area of 41,000 sq. ft. and bUllt up area 4,587.00 with effect from 17-6-1981 originally for of about 29,000 sq. ft. was taken up. It could not the Codmg Cell. After Prem Bazar was available it unfo;tunatJly mltUt·J. Proposed for constructIOn of was used for PrImary Census Abstract work. Census Office building in Aliganj Scheme was beint; pursued. (vi) 952-953. Mabanagar (Kukrail)' ThIS was OCCUPI ed with effect from 1-7-1982. This has a carpet area of Backlog 3,221 sq. ft. and monthly rent at the rate of Rs. 1.75 per sq. ft. ThIS was in use of the Codmg Cell. It I .34 At the time of my JOInIng there was still was earlIer wIth the Lucknow Regional Tabulation some backlog of 1971 Census. It pertained to Office till AprIl, 1982. finalisation of Town/Village Studies, theIr printing. finalisation and printing of DIstrict Census Hand (vii) Sitapur Road Godowns. These are owned book Part-C and printing' of some reports and by Central Warehousing Corporation. Two god owns tables of 1971 Census. with a carpet area of 9,520 sq. ft. each were hired with effect from 3-12-1981 on:l monthly rent ofRs. 9,520.00 A. Social Studies each for housing the 1981 Census records. It was a 1.35 Initially this state was assigned the restudy lucky find. These were just constructed but conti of 5 villages and town studies in respect of 20 towns nued to bother us because of p;)or quality of cons as detailed below truction. Ytllagel (Viii) B-3, Mahanagar: It was hired with effect from 1-8-1982. It has a carpet area of 1,747 sq. ft. District TahiIl VIllage
and monthly rent at the rate of Rs. 1.50 per sq. ft. 1 Allahabad I Phulpur Bhadkar Uparhar It became necessary to hire additional accommodation 2 Saharanpur Deoband Bilaspur because of the deCIsion to generate information on 3 Azamgarh Ghosi Pakri Buzurg religIOn of head of household and language mainly 4 Pithoragarh Munslari Ghorpatta Malla Kheragarh spoken in the household. It was tried to organise 5 Agra Beri Chahar this work in C.W.H.C. godowns originally but this Towns was not allowed. Later, We tried to run two shifts Diatnct Towns in C-9, Mahanagar Extension for sometime. The staff found it very inconvenient and hence this buil 1 Ballia Bailia ding was hired. 2 Agra Patehpur Sikri 3 RaeBareh Jais 4 Allahabad Phulpur 1.32 At the time of writing, this report, 25, Nawal 5 Jhansl Samthar Klshore Road, was functioning as the main office. 6 Rampur Tanda It housed the Administration, Planning and Co 7 Agra Tundla Unnao ordination, Map and Vital Statistics Sections and the 8 Unnao 9 Gonda Utraula Direct Data Entry System. B-25, C-22, Mahanagar 10 Mathura Vrmdaban Extension, 27, Ram 'Mohan Rai Marg, Prem Bazar 11 Gorakhpur Gorikhpur and Kukrail were being used by the Coding Cell. 12 Hardoi Bilgram C-9 and B-3, Mahanagar were with the special tabu 13 Meerut Garhmukteshwar 14 Budaun Kalaala lation section and Leela building with the Primary 15 Meerut Modtnagar Census Abstract Cell. Capitol building was being 1"6 VaranaSl Mughal Saral used for Library mainly. The building at 6, Park 17 Azamgarh KopagaD,) Road was housing the District Census Hand Book 18 Banda Chttrakut Dham and Social Studies Sections. Maqbara continued in 19 DehraDun Rjshlkesh Nainital use as Central Record Room. 20 Nainital 7
1 .36 At a regional meeting held at Bhopal during Name of PublicatIon PrintIng POSition 1978, It was decided to drop the first 11 town studies. Subsequently, the study of Mughal Sarai was also 1 2 suspended. Another study on Modinagar was being 6 Part II-B(ill) -General Printed. Under bmdmg at handled by the office of the Registrar General, India. Econoffilc Tables Government of India Press, Thus five villages for restudy and seven town studies Coimbatore. were retained in this state Of the seven towns, 7 Part n-B(lv)-General Sent for pnntIng to Govern on<:, Nainital was already printed and another, EconOmIC Tables ment of India Press, COlmba namely, Chitrakut Dham sent to press. However, tore on 24-11-1976. No proof on findIng the information collected on towns, namely, was received tIll then. Kakrala, Garhmukteshwar and Bilgram too sketchy 8 Part II-C(u)-Soclal and Sent for pnntIng to Govern and inconsistent, I requested the Registrar General, Cultural Tables ment of India Press, Naslk on India to drop these studies also and this was accepted. 19-7-1978. Proof of only 128 pages were received. B. District Census Hand Book 9 Part II-D(I)-MIgratlOn Sent for printmg to Govern Tables 1 37 As per 19i1 Census programme, It was ment of India Press, COlmba tore on 15-12-1976. No required to publIsh 3 volumes of District Census proof was received. Hand Book Part A, Band C. Parts A and B for 10 Part II-D(h)-Migratlon Printed. Under binding at Go all the 54 districts had been printed before my join Tables vernment of India Press, ins. However, manuscript of Part C was ready only Coimbatore. for ten districts. For remaining 44 districts, some 11 Part VIII B-AdmlDistra- Dropped. computorised tables from the Office of the Registrar tion Report on Tabulation
General, India were pending. In view of the time 12 Part IX-Census Atlas Manuscript sent In November involved, it was decided to drop this publication and 19~7 to Government of Indi~ preserve the manuscript for future use. The Registrar Press, MInto Road, New General, India later reconsidered the matter and it Delhi. was decided that these may be sent to the press frts were sent to the press for the printing after my taking over :- Name of PublIcatton Printing POSitIOn 15 Part YI-B-Speclal SUrYey Under prmt at Umon Terrttory .------~------Reports on Selected Town- Press, Chandlgarh. 2 Chitrakut Dham.
1 Part I-A General Report Under prmtIng at Government 16 Part YI-C-5peclal Survey Sent to Government of India of India Press, RIng Road, Report-Bhadkar Uparhar Press, Simla for prlOting. New Deihl 1.40 Registrar General's final instructions to 2 Part I-B General Report Dropped print DCH Part-C were received in October, 1980. 3 Part I-C Subsidiary Dropped for prmtlng. Manu However, tIll going to press, the SPS had not managed Tables scnpt to be preserved. to get even one printed. The SPS gets such books 4 Part II-A (Supplement) Manuscnpt was sent to printed outside in registered private presses. Initial Standard Urban Areas Government of India Press Coimbatore on 18-2-1978 and ly, their rates were very low. A new schedule of no proof was received. rates was notified in May 1982. However, the SPS 5 Part II-B(,fI-General Prmted. Under binding at was still busy locating suitable and willing presses. Econoffilc fables Government of India Press, He had finalised one press in Aligarh who appeared Shlmla. to be quite promising.
CHAPTER II PREPARATORY STEPS
When I johied this organisation (24th April. 1979), Jurisdictional Changes and List of Villages preparation for the 1981 Census were already under 2.04 In Qrder to ensure a cQmplete coverage at wa.y, i.e, ~on~ction of relevant maps, preparation Cemus, there is an absolute need to prepare a hst of of village and tQwn lists etc. I immediately held meet administrative units, that is, diVIsions, dIstricts, tah ings with the officers of the department and went lIiIs, villages and towns. So, one of the foremost re· thro.ugh the dIfferent repo.rts of 1971 Census, in parti quirements, amQngst the preparatory measures for oular the Administration Report o.n Enumeration, no.t 1981 Census, was to. have an uptodate list of these only o.f my predecessor but of several other states to. administrative units and jurisdictional changes after acquaint myself with the vario.us: facets o.f census the 1971 Census. preparations. These reports gave me a broad picture. I found the KaInataka repQrt by the present RGI 2.05 In this regard, the Registrar General, IndIa particularly useful. But much water had since flowed advised all the Directors of Census OperatIOns, to down the Gomti as these reports were 10 years Qld. obtain a list Qf such administrative units and make a cQmparison WIth those of 1971. The list Qf villages 2.02 A co.mmunication had in the meantime as per 1971 was sent to Tahstldars for updating. been received in February, 1979 from the Registrar Similarly, list of wards was sent to local bQdIes. General, India a~ Circular-1 (Appendix-V) dealing with classification of rural and urban units for the 2.06 A communication was sent to all the District 1981 Census. Soon thereafter, was received Demi Officers VIde this DirectQrate Letter No. PC-76/DCO~ Offi~la.J Letter No. 9/22/79-CD(CEN) dated .Tune 19, UPj19-76 dated February 22, 1978 to. send the details 1979 (Circular-2) on o.rganiS'ational steps for the of all the jurisdictIonal changes effected after 1971 Census of India 1981 from the Registrar General in their respective dIstricts. Lists o.f VIllages and tah~ India (Appendix VI). Penned by the Registrar Gene sil maps were updated accordingly and sent 'again to. ral. India himself who. had seen thro.ugh the 1971 concerned districts for confirmation. Census of Karnataka, its lucid and comprehensive details on each and every aspeot of the 1981 Census 2.07 The Go.vernment of IndIa (Home Mtnistry) pro.vided the much so.ught after guidelines. The requested the Chief Secretary, Uttar Pradesh vide preparationil thus gained momentum and prQper letter No. 9jI7/79-CD (CEN) dated May 10, 1979 to directio.n. ensure that the boundaries of administrative units remain undisturbed during the census 2.03 I immediately tQok the opportunity of ad period. It was advised that no changes what~ dressing all the District Officers and Administrators soever be mad~ in the boundaries during the period o.f Nagar Mahapalikas of the State (vide my Demi from January 1, 1980 to June 30, 1981. State Go Official Letter No. PC-373/DCO-UP/19-79 dated vernment obliged by directing all the District Officers August 10. 1979 which forms the State Census Cir vide their Letter No. 2866/3-15 (2)/78-GAD dated cular 1-Appendix-VII). It dealt with the 'importance June 25, 1979 to ensure that alljurisdictiQnal changes of census. the Census Act of 1948. the census hierarchy are co.mpleted not later than October I, 1979. How and the different phases of work pertaining to the 1981 ever, Bara Tahsil in Allahabad wa.s created o.n No Census. In qdick succession, I theUlssued two Circulars vember Lt, 1980 notwithstanding above directIOns. 2 and 4 in connecti on with the appointments of Dis As all arrangements for census had already been made, trict Censufl Officers and Charge Officers at different this CQuid not be giVen due effect in the 1981 Census. levels and different steps to be taken up in setting up Census hierarchy in the distncts. Side by side, I 2.08 In 1971, there were 11 dlVlsions, 54 dIstricts trIed to visit all the dlstncts to create consciousness and 232 tahsils in Uttar Prades.h. Thereafter. two fo.r 1981 Census. I succeeded in VIsiting abQut 50 di~trlcts and 10 tahsils belo.w, were created raisin& dhtricts. This was very taxIng but prQved to. be the number of d Istncts and tahsds to. 56 and 242 quite useful. respectively.
9 District/Tahsil created after 1911 Census difficult task as most of the local bodies did not have uptodate town/ward maps. In most cases. District Tahsil revised ward boundaries had not been shown in the 1 Ghazlabad 1 Kotdwara (Garhwal) town maps. Normally, ward maps were copied out from town maps, whh the result, their size' was small 2 Lalitpur 2 Bageshwar (AImora) and layout details-- were insufficient. It was quite 3 Sitarganj (Nainital) , a task to get them p~epared in prop~r shap~. 4 Garhmukteshwar (Gbuiabad) 5 Dadri (Ghaziabad) 2.14 After the Houselisting Operation it was observed that the population of a number of enumera 6 Talbehat (Lalitpw:) tor blocks surnassed estimates which necessitated 7 Kulpahar (Harekyur) recarvation of 'these blocks. Wherever corrections 8 Dhaurehara (Kheri) were possible, they were made but in many cases 9 Mahmudabad (Sitapur) fresh maps had to be prepared. 10 Bhinga (Bahraich) Del'eIoping the Census Schedules 2 09 Further, Rohilkhand division was renamed ag Bareilly division. Garhwral, Meerut and BareiUy 2.15 Prior to 1941 Census, data were collectpd divisions had also been reorgnised and a new divi on family SChedules. In the Census of 1941, the family sion of Moradabad, consisting of Bijnor. Moradabad schedule was replaced by ,the individual slip. The and Rampur districts was created. Out of Ka'llpur other innovation was that enumerator was required . district two new districts, i.e., Kanpur Nagar and to fill~up the slips with the help of numerals and Kanpur Dehat were created vide Uttar Pradesh Go symbols. At th~ Census of 1951, beSIdes the indI vernment Notification No. 5·4(6)/1976 (44) dated June vidual slip, the enumerator was required to fill-up the 7, 1976 which were merged again with effect from the national register of citizens in respect of hill area. mi.dnight of July 11/12. 1977. These districts were At the 1961 Census, however, this reiPster was given revlved with effect from April 23, 1981. up and instead, a. population record was introduced. Another innovation of 1961 Census was the intro Procurement and Up~aiing of Maps duction of the household schedule for ebcitms infor matIOn of the economic activities of the !household as 2.10 Maps play the most important role In the a unit. The household schedule was based on the conduct or correct population count. A detailed ac fact that all enterprises in the subsistence sectors, count is being given in the Chapter-VII on Procure particularly, agricultural and household industry, ment of Maps. are centred not on the individual, but the household as a whole. These schedules have continued 2.11 The first step in this direction was ~aken by mutatis-mutandis in 1971 and 1981 also. this Directorate as early as 1975 when all the local bodie In the State were required to prepare reorganised 2.16 Before the census schedules can be filled up, ward maps and to supply a copy of such maps to the it is necessary to prepare a frame for enumeration. Directorate. but only a few units responded till the end The Census of India has a tradition of listing all of 1978. The work, however, gained momentum only houses and. numbering them on the eye of each cen in 1979 when I joined and stressed the importance sus. This operatIOn is called houselisting operation of th;}se maps upon the district authorities. .and is carried out essentially to ensure that the Census 'enumerator visits every householf in the area 2.12 The basio work in the preparation of tahsil allotted td him and covers the entire popUlation. Be maps was done by the map unit. Updated maps were fore 1961, each state was left to devise its own form sent to ta.hsils for verification and finalised thereafter. of houselist. At the 1961 Census, however, the The process was repeated at the time of allotment of houselist schedule was prescribed on a uniform basis code numbers to VIllages and carVE,tion of blocks. for the country as a whole. The schedule was design Teams had to be sent out to districts several times to ed to collect some basic data on housing and manu get the work through. facturing establishments also. It also provided an advance estimate of the population. This practIce 2.13 In the Case of urban areas, the basic work continued in 1971 and 198}. In 1971, however, was done by the local bodies. They were asked to an establishment schedule was introduced for eliciting prepare town and ward maps. This proved to be a information on establishments. In 1981, as will be i.l seen later, the scope of the househst was considerably a Pilot Study l11l1tnt:: s.att::s tAnanra rraUCSll, Gu]arat, reduced as the mformatlOn on housing etc. was Haryana, Jammu & Kashmir, Karnataka, Kerala, tranc;ferred to the hous~hold schedule canvassed at Rajasthan, Uttar Pradesh and West Bengal) durmg the time of enumeration The estabhshment sche the period 12th to 22nd June, ] 978. Based on the dule was replaced by the enterprise list, whIch experience ga.med from the Pilot Study, the FIrst was canvass~d under the technical "upervision of the Pretest was held In Seprember-October. ] 978 in Centnl Statl~t1cal OrganisatIOn. all states a11d union terrItOrIeS (except Lakshadwcep, Mizoram, Dadra & Nagar Havelt atld Pond lche rry). After th'} Pli<.),t Study and the First Pretest, the Sec 2 17 Evolving th~ cemus question'1aire is a very ond Data Uo,e,s' Conference was convened in Decem ngorous proces'> One has to bear certain fundamental ber, 1978 in which d~tulcd dlSCU<;Sl()Q'; were held on principles in mind. Although, census should try th~ ~chedule" a'1d lllqruction&. Thereafter, the to serve immediate baseline data needs, it must Sr:coud Pr0to~t wa-; conducted in the second half of maintain comparability of data with the previous Jun", 1979 Cemuses. The questionnaire must be simple so that it could be easily canvassed by the enumerator and the concepts should be such as can be easily Pilot Survey comprehended by the enumerator as well as the enumerated. The question should pertain to national needs rather than local interests and concentrate on 2 .19 Th'} Plbt Stwty w'\<; design:ld to a~se'l~ the demographic and socil)-economic characterIstics. suihblhty of the mdi'lldu:l.I slip with particular Census should not permit opinion surveys and should reference 10 economlC que,tlon. Althoug[l the study avoid subjective element It should also be kept enVIsaged c'\rrYlllg out of preliminary opemtIons of in view that the census IS a gigantic and costlyopera census a,; w~ll, VIZ drawmg up of notlonal map, tion WIth a large army of enumerators who have to numberIng the houses etc. no househ<;tmg operations be employed on a part-time basis after a brief training were carned out and only the 1971 Cemus houselhts and receiving only a nominal honorarium. were brought up-to-datt'. Alongwith the indivldu!ll slip, the population record was also filled in.
2 18 The first step towards evolving the census 2 20 The formats of the individual slip a.nd questionnaires IS to consult the data users. This the in5tructlOns for filling in the various It.~mS had process for the 1981 Census, could be said to have 1>:;en di5Gussed a.t a workshop held at TrIvandrum on begun as early as in 1974' which was sponsored as 25-26 May, 1978. The field work in the selected the World PopulatIOn Year by the UUlted NatIons. blocks wa'> carried out th:-ough the staff (Computors The subject was discussed in a data base seminar of the and A%lstlll'1t Compdcrs) of the Dlrcctora1:Q itself. Indian ASSociatlOn for the Study of Population They were supervised by Tabulation Offioers. All (IASP) in collaboration with the IndIa Econometric were Impart-od thorough training at the Directorate. SOCIety and the Indian Statistical Institute. The Some semor offioors also VIsited different umts during Indian Association for the Study of Population orga the period of the survey to have a fir'rt hand know nised another seminar at Bangalore in December, ledge about thO} difficulties and problem'; encoun 1976 followed by a sympo<;ium at Delhi III November, tered. 1977 III collaboration WIth the Central Statistical Organisation and the Indian StatIstIcal Institute where the 1981 Census wa'! discussed in quite some Th':} R...::gl'ltrar Gcn0rdll, India, also kindly VlSl detaIl. The ee l1SUi organtsation was associated with t;xl twv. rur
1 PCOUP/8~-1 12
viz Moradaboo and Saharanpur only as detailed below:-
- -~--__-_-_ ------DI<;tllct Name of VIllage Code No 1971 1971 Ceno;us pOl'uiatton 3 4 5 __- --~_- -_~. --~~ - -- .--~~~- -~---~------~----~~--~~~ ~~ -~~- 1 Moradabad Sambhal Rasulpur Darta 227 1,979 Moradabad Salempur 179 535 Hasanpur Yakubpur 332 1,017 BIian Abdulpur 63 432 TivarapattI-uf (-KagI;Jura 46 1,105 Khambn Gando 3\18 256 BIkanpur Khaga 295 849 Nagla Shahpur 317 893 Amroha Narampur 159 709 Basa'l"a Taga 136 \,335 2 Saharanpur Saharanpur Khadarpur 152 922 Dera MIlkhana 547 113 Makka Bans 429 365 Bakarpur 221 748 Deoband Turmet Khen 2S 487 Gopab 399 1,984 PatrOl Bakal 219 593 Nakur Pahragpur 55 440 Bal Kherl , 378 412 Rauapur Khunl 30 531 ---_- 2 22 Out of 20 VIllages s~lected, 15 haVIng popu 2 24 Forma.ts Oof Indtvtdual Shp and Po.pulation latIOn hs') th'lon 1,003 Were c:>ovcrcd completely. In RecOord canvassed in PIlo.t Study are gIven as Appen th:: remaming 5 VIllages, 4 111 Moradabad and 1 111 dix VIII for ready reference. Sah.ua.'1pur dIStrict. only one blo.ck each was covered. First Pre-test The towU5 selected for tho) Pilot Study Included the 2.25 Dunng th" fir:>t pre ·test the enquiry was capital city of Lucknow where five enumeratlon confined to. demographiC, sDcial, cultural and eco. blocks were covered besides Sltapur and Rath (In nomic ch~racteri'>tics. MIgration and fertilIty de Hamlrpur DIstnct) wh~re three and two blocks, reS~ tails were canvassed Oon a sample baSIS. FOor this pectlvely wcre covered B.)th 111 th'" ca~e of rural purpOose, th~ enum ~n.to.rs were required to. select and urban area", the enumeratIOn blo.cks o.f 1971 a. sample of hous;;holds accordmg to. a laid down Census were co.mldered for s~lectlon of blocks. The prOoc~dure. ThIS pre~test was also conducted In instructIon bJoklets an1 furms utlhsed dunng the 20 rural and 10 urbJ.u units Df Uttar Pradesh d urmg Pilo.t Study were supphed by the Offiee of the Registrar the months o.f September (l.11d Octo.ber, 1978 The General, IndIa selectio.n Oof umt'> wa'> mad~ o.ngmally fro.m the dlS trlcts Ghaziabao, Ahgarh, Gorakhpur and Varanasi. Ho.wever, due to acute floo.d in Varanasi it 2.23 After completIon of th., PIlot Survey the was. S.Ubstituted by Falzabad The lIst of vlllaJ,[cs data wa, co.llected and tab:llat~d m the DIrectorate a"'ld urbJ.n. enum~ra.tlon block<> selected fOor fir
*Now III flapur TahSIl. @Tnwn JI1 Garmukteshwar TahSIl. 13
- - -~------Tah,ll BB. 1971 No of Nv PJpCI\lt,O 1 Hamlets
-~~-----_------_------2 3 4 5 6 ------_- 2. Ahgarh KOll 72 Elampur Gana 95 419 194 Kishangarhi 316 5-+8 Hathras 78 Nagla Bhoora 119 39-+ 1 150 Nagla Pratap 223 392 1 285 KewaIgarht 385 481 2 3. Gorakhpur GOldkhpur 715 Humayunpur 1005 379 1106 Mlrzapur -1715 587 Dansgdon 145 Panapar 157 519 G 645 Amroha 733 651 1 1559 Kaldaba Khurd 1752 446 1 4. Falzabad Falzabad 120 Pur Hus,am Khan 245 485 2 126 Kurawan 257 437 2 134 Ram Bazar 268 411 1 198 Barehta ManJha 368 267 1 210 Mohtanmnagar Uparhar 386 496 2
Ll~t of Utban EnumeratIOn blocks selected for 8 Revlslonal round October 6-7, 1978 first pre-test. ------9 CompilatIOn of Fnumerator's October 8, 1978 District Towns Ward E B. 1971 Abstract No Popu- latIOn __--~ 10. Filled 1ll scheuu[e5 to be returned Odober 9, 1978 1. Gha.lldbad Ghazlabad M D. 6 137 405 to their respective Supervisors 603 9 178 at the headquarters. :. Ahgarh Ahgarh M.B. 1 22 588 6 175 484 14 359 306 3 GOlakhpur Gorakhpur M B 5 117 745 2.2, The field work in the sele.;ted bloch wa5 11 260 595 C'arned Out through the ~tafT of the DIrectorate Itsclf. 4.!Falzabad Falzabad M B. 1 16 360 3 49 338 Thc w'rk of cnumt-rator!> was supervised by the Ta 6 97 450 bulation Officcrs. Deputy Directors and ASsIstant
2.26 The calendal of operation was a~ follows:- DIrectors exerched over-all supervISIOn. The first Pre test was full dnll for the] 981 Census during which Preparation of N oHonal September 22, 1978 a M\lps. preparation of notIonal maps. canvassrng of House
2 House numbenng September, 22, 1978 hold Schedule, Hou!>ehold E,tclbh"hment Schedille
3 Flllmg 01 HouselJ;,t and House- September 23-26, 1978 and Indl\'ldU'l1 SlIp and filling up of the PopulltlOn hold e,tabllshment schedule; ReCOld were taken up. The !>ample "lIp wa~ canvassed 4. PleparatlOn of Houselht Abs- September 27, 1978 only In sample hou,eholcts. The schedules ar..:: gIven a') tract. AppendIx-IX for reference
5. PteparatiOn' of Household lIst September 27, 1978 and belectton of sample hoube holds. Second Pre-test
6 EnumeratIOn, Ie, fillmg ot IndI September 28-5 October 2.28 The second Pr~-te"t (June 1979) W.l' the last vIdual Slip" (both uOlver~al and 1978 ' s.llnplc), Population RecUld and of the empll ical1e,tc; to whIch the cen"ll, que,tlt)f111- [numeratOI's Complla(Jon Sheets aire'l were put to fil1ab~c them for the 1981 Census.
7 EnumeratIOn of Hou5ele,s Po Night of October 5-6, It wa'> a comprehen~lve study III the delllographi~1. pulatIOn 1978 socIal, cultural, economic, llllgratIOn and fertIlity 14
chara,;t~ristics. ThIs Pre-test was taken up ta.l, M':;erut, Mathura, Allahabad and Va.ranasi as in a rura.l and an urb~n block of the dIstrIcts Nami- per detaIls given below:- List of units selected for second Pre-test
DIstrtct TahsIl/Town Vlildge/Wdrd Enu:neration 1971 Censw; Block No. Population ------RU/al Areas Nalllital Nalllital 219 Jcohkote 224 543 Meerut Meerut 52 Murhpur Gulab 123 464 Mathu a MathUla 100 Dhaurcrd Banger 2-+5 309 Allahabad Chali 107 Jhalba 314 4.46 V~,r::.nasl VaranaSI 722 BaJldpur 1067 671 Urban Areas Nalllltal M.B. 2 Nalllital 14 519 Meerut M B. 2 Meerut 38 675 Mathura M.B 7 Mathura -140 446 Allahabad M.C. 8 Allahabad 247 472 VaranaSI M C. 8 Varanasl 330 370
2.29 Th<: ldea b~hmd the sdectIon of rural blocks and Its abstract w~re abo prepared. The house-' was to study the mfluence of urba.nisatlOu. Such hold sch:::dules aho collected mfonnatlOn regardmg rural UUlt.> w.:re sclect~d m th~ proXlmlty of tow~ the main hving faCIlitIes enjoyed by the household. or CIties. Th:! fiold work wa:; conducted by the local The enumerators also pr.:pared the house list and sta.ff 0.f thJ dIstncts ThJY were lokhpals, teachers enum~ra.tor ab~tra.vts. D"gree holders and technI and r.;lvenue 1D3pectors. An honorarIum of cal personnel survey was also conducted In all the Rs. 40.0() wa.s gIven to them. The work was super blocks. These p~rsons were requested to fill in Vised by the Tabula.tlOn officers of this office All the cards and scnd them on to the C.S.I.R., New DelhI. UUlts were ViSIted by me. Th~ caLndar of opera The enumerator only maintamed a reCvrd of the tion:; for th.:: S300UJ Pre-te:>t wa:> ai follows.- cards Issued. An enterpnse lIst was also to be 1. Trammg of DIstnct Census Offi- May 26-27, 1979 canvassed In the Pretest. But its format could not cers (In the Drrectorate) b~ finab~d by the Central StatIstical OrganisatlOn 2. Trammg of Enumerators (At May 29-30, 1979 up to the time of the conduct of this Pre-test. It dlstnct headquarters) was pretested later 1U ten rural blocks of Ghazlabad 3, PreparatIOn of notIOnal mlps, June 1, 1979 DIstrIct. FIeld work was carried out by the staff layout sketches and numberIllg of th~ Dlrectorate. The supervIsion work in these of hou&es units was done by the officers of the office of the 4. Fliling of Hou~elist June 2- 4, 1979 RegIstrar G~neral, IndJa, and of Econolllics and 5. PreparatIOn of Househst Abs- June 5, 1979 tract and abndged Househ&t. StatIstics Department of the State. VarIOUS sche~ E EnumeratIOn (Fllllllg of IndlVl- June 6-13, 1979 dules used 1U the Pretest are reproduced at Appen~ dual Sllps-both Ulllversal and dL'{ X. Sample, HousehoU Schedule mclLldlllg PopulatlOn Record Training: EnumeratIOn of Houseless June 13/14, 1979 2.31 The whole work of pilot study and fiEt (NIght) Pretest was oarried out by the staff of the DIrectorate 8 Revlslonal Round June 14-15, 1979 who were traiu,td at Lucknow. For the second 9. PrepatatIOn of Enumerator's June 16, 1979 Pre-test the District Cen.ms Offic..::rs ff concerned Abstract districts w~re asked to attend the tralUmg at state 10. Return of filled schedules to su- June 16, 1979 headquarters on May 26 & 27, 1979. All the five perVlsors DIstrict Census Offi,cers attended the training. In 2.30 During this Pre-test, the rouseFst was filled turn, the District Census Officers imparted the train after house-nulrbeung of all houses In the sample ing to theIr field staff at dIstnct headquarters. The UUltS. The enumerator" al.;o prepared a notional TabulatIOn Officers who were deputed to superVl'.;e map of the blocks. Both the uUlvcrsal and sample the work of enumera.tors a.lso attended the above shps were canvassed In ,11 the blocks. The house traming. The trainlllg of supervisory officl:rs of hold schedules alongwlth the population record my directorate "as conducted at Lucknow which 15
was overseen by a. senior officer o.f the office of the III-15(2)/78 GAD dated 8-6-1978 and No. G-248/ RegIstrar Goneral, IndIa. III-15(2)/78 G AD dated 4-9-1978 (AppendIX XI and XII). Forms and Booklets of Instructions 2.32 For PIlot Study, first Pre-test and the second Final Schedules Adopted in 1981 Census : Pre-test the mstructIOn booklets and forms were supplied by the office 0.1' the Registrar General, Indla 2 35 As a result of the Pilot Study and two Pre well HI advance. These were both III Enghsh and ' tests, the tentatIVe schedules took the shape of fma Hmdl, but those In Hmdi were utIlIzed by us. The hty. More so, the Registrar General, India held nJ.t1ona.l ma.ps were prepared. on sheets WhICh '\Vim! further diSCUSSIons \vlth the experts and a number deVIsed by my map umt. of meetmgs' were held WIth dJiferent agenCIes so a.s to diSCUS~ thc SUItabIlIty of various schedules d~~ Edit and Tabulation vI:>ed. Fmally the folIowmg schedules were taken 2.33 The filled in schedule~ of all the above three up for cJ.llva"slllg dunng the 1981 Census:- surveys were first edIted m thI5 DIrecto.rate a data. were culled on to the tabular form as per ms 1 HouselI:>t tru.::lIons r.::eeivi!d from the Registrar General, IndIa. 2 HOU3eh\)ld Schedule Thereafter housmg, fertIlIty, mIgratIOn, econo.mic. 3 IndIVidual SlIp social and cultural tables ,,"ere sent to Registrar G~n~ral, India. 2,36 The h')useh~t ,,:;rved as a frame for enter Help of State Government pfl:>es for which a separate enterprIse lIst was can vassed dUrIng the houselistmg operatIOn. 2.34 On our request the State Government m: .. ud I'l,tructlono; to concerning Dlstnct Offi:;ers 2,37 Fmal formats of different schedules call for a.U pJHible help tv the cl}nsus workers: 111 conduc va%cd dUrIng the 1981 Census arc placed at Appen ting th~')') surveys rtde theu' radiogram No. G-168/ diX XIII
CHAPTER III PREPARATIONS FOR THE CENSUS
C.::n.
17 18
(ix) It was emphasised that the success of censuS ShOllld be complete adherence to rules in [. ppoint would entlrely depend upon the mtensIty and qualIty ments/promotions und confirmations. A very useful of training of the enumerators and supervIsors. There guide paper was circula ted to us. should be atleast four rounds of trammg prececlllg every operatIOn. In the basIc round, the InstructlOm Second Conference of Directors of Census Operations mu~t b~ N d verb.ltIm followed by pn ctlcal train 3 05 The second conference of the DIrectors ing. h later rounds, refresher tn InIng should be of Census OperatIons was held at Mysore during u:1dert.lken wIth greuter emphcs s on pracllc<' I January, 16-19, 1980 to review the arrangements for aspe~i. The Registrar General, India emphasised thr,t houselI'itmg operations, to finalIse the instructions thIs dnll sh')uld be strictly adhered to a t all levels. for fillmg up the abndged houselIst, household sche- to He did that himself by sllbJcctmg us ~. verbulm .~dule, and mdlVIdual shp and for the preparatIOn of reading of houselisting InstructIons. I mu~t confess enumerator's working sheets and abstracts. th'it this was a pretty heavy gOIng but I can HOW say t111t It W1S the rnJst imp)rtant Lctor fllr good tn m- 3 06 The conference was inaugurated by Shri ing and should not be relaxed at any level. R.A. Nalk, Revenue Commissioner of the Govern ment of Karnataka. (x) It W1S decid ed to set up ReglOnal Offi,ces for :l p )p'llJ.tIJn of five m1lh'Jn e ch f0r emumeratIop. 3 07 DIscussing the arrangf!ments for house For the househsting, the number of dIkes w~ s kept hsting, the Registrar General, India emphasised at less than half of the tot,' I c,o nrIVed. A I;ltmb~r ,·f mtensIve touring by the Directors of Census Opera Directors of Census OperatL1 ns pre~5ed tIOns and Deputy Directors of Census Operations. that all the Regional Offices should be opened be Stressing on the Importance of intenSIVe trainIng, he fJre the lvmseIistmg opc-r2,tIOn Itself Ho"ever, thl<: desired that the need for complete coverage must be put across to all field workers W1S not 19reed tl). After my experience of the 1981 census, I would assert that this must be" dCllle for the 3.08 The houselist provides a frame for enu next census. meration. However, the two operations are con (xi) One important decision th~ t wr s tr ker in ducted qUIte some time apart, requinng an updating cOl'1ectiou with the 1981 Census was the introduc of the frame. ThIS is done through an ~bridged tIOn of nrnpling in enumeration. It w,s decided to houselist to be updated during enumeration. The c~l1ect the 1'1formHIon in regard to migrrtlOn :'l1d instructlOns for preparation and updatmg of the abri fertility a'>l'ects on the ba~is of 20 ~~ sample of the dged houselist, filhng up of the household schedule, total number of blocks. the mdividual slip, enumerator's working sheet, enumerator's abstract etc. were read verbatim dis (Xll) I~ was deCided that the enUmer:ltlOl1 would cussmg the pomts raIsed from time to time. As be Immediltely followed by a P::lst enumer~: tiop check mentioned earlier, this was a good exerCIse and helped to measure accuracy in populatIOn count and rccuracy us to develop an inSIght into the enumeration opera in the recording of some p2rticulars of individuals. tIOn. This had been going on since 1951. It Wi,S stressed that dlff~r~nt ~rium~r;}tors should be deployed for Post 3.09 The progress of househsting arrangements, Enumeratiol Check. installation of DIrect Data Entry System, preparation of maps etc. were dIs~ussed in detail state by state. (xlii) It was also deCided to conduct a census It was also observed that special studIes would agaIn evaluation study alongwith the Post Enumeration be taken up but after the 1981 Census OperatIOns Check l n a sub-sample of the S. R. S. sample are over. block'> to obtain an e<;tim'lte of omission and the extent of age mlsreporting at younger ages in the Third Conference of Directors of CensQs Operations cen<;'Us 3 10 The third conference of the state Directors (XIV) It W,\,> decided to h()ld houseIistin,g opera of Census OperatIons was held at Vlgyan Bhawan. tIt.)l1 <; m )re or less at the s 1me time in eVery state New Delhi during November 15-18, 1980 to review .11Jrt'lg th! 1981 C~nsus and provision: 3 II The conference was maugurated by Shn (IIi) The household schedules will be processed Giani Zatl Smgh, Home Minister, Government of 100% so far as Part-I is concerned and handled India The Illaugural ,>esslOn Was attended by several on the computor. ~enlOr officers of the Home M1l11~try, Planning Com ml",lon, Central Statl5tlcal Org:lhlsatlOn, Directorate (IV) ThiS WIll be followed by tabulatIOn of the of Prmtlllg, InformatIOn and Broadca5tlllg, All India Individual slips 111 so far as scheduled ca<;tes Radio and Doordaf';han. and scheduled tribe;; are concerned through loo~,-;; data entry 3 12 While makmg a general review of the (v) Thereafter, further tabulation wIll be carned orgalllsatIon for enumeratIOn, the Registrar General, out of the 60·~ balance of .:;lip'> which would IndIa stressed that due care should be taken m revl "tIll remain ,Ion of blocks on the ba'>iS of hou'>eh,ting population, wntmg of fre'>h charge registers, preparation of the 3 16 The orgamsation of edit and codmg cells, abrIdged housel!"ts, selection and app0111tment of tabulation plans and statistical quahty control for 1981 Censu;; were also discussed at length. In the enumerators !sup~rvlsor", dlstnbutlOn of census pa<.t Censuses, cent per cent checking had been resorted matenal and tramIng of enumer.ltors and sup~rvlsors In It The Importance of trainlllg wa" rep~atedly emphasl to the edIt and coding cells, was decided to test ,ed a statistical qualIty control plan on a sample and ex p~rimental basis If successful, the census statIstical 3 13 It \Va'> decIded that provl~lonal results should quality control technique was to be adopted fully. be communicated to the RegIstrar General, India ThiS would re.:;ult in con<;iderable swings in manpower late,t by the 10th March, 1981 for being released at and finances the national level by 17th of 1981 The March~ 3 17 It was deCided to contInue and expand the Director, of Census Opera tlons were Instructed to social studies during the 1981 Census. It was deCIded release their results on March 23, 1981 after the to take projects on rural based crafts, urban studies, release of provl'>lonal totals by the Regl5trar General, restudy of villages, special projects by the Dlrectors, IndIa OrgalllsatlOn of generation of Pr.tmary Cen a glossary of scheduled castes, a compendmm of sche sus Ab,tract was discussed 111 ,>ome detaIl The duled tribes and ethnographic studies tabulatIon system of 1981 Census would avoId the breaking up of pads and sortlDg of IndiVidual slips. Fourth Directors Conference The data for the Primary Census Abstract Will be 3 18 The Fourth Conference of DIrectors of Censll'> obtamed from Part-ll of the household schedule Operations Was held at Nainital on 28-30 May, 1981. namely the populatIOn record primarily to dl'>CU Fifth Directors' Conference duled to begin from September '25, 1980 Was drawn up 3.19 The fifth and last conference of Directors was and sent to the districts vide my Census Circular 25 held at Srinagar from August 23 to 25, 1982. The 3.23 Though the actual count was fixed for conference was inaugurated by the MinIster of State February-March, 1981 as per pre-plan, it became for Home Affairs, Government of IndIa, Shn imperatlVe to revise the calendar for enumeratIon also N. R. Laskar. The important items discussed at the as the time left between housellsting and enumeratIOn conference related to preparation of PrImary Census Was found to be very short for the preparation Abstract, Pubhcation of Part-lIA and B and District for enumeration. This reVIsed calendar was commum Census Handbooks, progress of codIng work, pro~ cated to districts Vide my Circular 26 gress of tabulatIOn by lang'lag~ and religion, installa tion of the Direct Data Entry System and finahsation 3.24 For non-synchronous areas, a separate of social studies. Smce it was the last conference, it calendar had to be drawn up for houselisting as also ended on a very emotional note. for enumeratiOn. Circular 29 and 30 dealt with the subject. Census Calendar 3.20 Census is a timebound programme. A 3.25 The final census calendar adopted for house calendar of op~rations is a useful tool not only for listing and enumeration in this State IS given as Ap momtoring the progress but also for guidance to the pendix XIV. Charge Officers With this end in view, the census calendars were chalked out for the conduct of the State level Conferences and Meetings Census of 1981 in the State. The 1981 Census proved 3. J() The State level conferences are merely train to be a baffling exercise owing to CIrcumstances mg conferences for District _Census Officers. In beyond our control. The state faced a severe drought the sequence of prepanltions for the 1981 Census, in 1979 followed by unptecedented floods In 1980. a conference of DIstrict/City Census Officers and Ad In b'!tw.)on, there were mid-term polls both to the ditional District/City Census Officers was convened L,k Sabha and th:: VIdhan Sabha. The State also in the second week of October, 1979. But due to went thro'.lgh a trying law and order situatIOn. acute drought SItuatIOn In the State, it h~d to be post 3.21 Originally, a census calendar was drawn for poned. Instead a meeting of DIstrict/City Census houselisting operatIons s;:,hedule to be conducted in Officers of one day duration Was convened between the month ('[February, 1980. Howevet', consequent October 26 and November 13, 1979 at different Divisio up::m the declaration of mid-term poll for Lok Sabha, nal Headquarters, to discuss the vanous aspects of 1981 Census Operations. the hOolseIisting o~rations had to be shifted from February to ApnJ, 1980. This necessitated a revision in the original calendar as shown III my Census Circu 3 27 The first State level conference of District/ lar 2. The revised calendar was circulated through City Census Officers and Additional District/City Census my Circular 19. Officers was organised from January 28th to 30th, 1980 at the state capital for impartlng training for 3.22 In the meantime the mid-term poll for the houselisting operation. Owing to postponement, State Assembly of Uttar Pradesh was declared, again a refresher training conference was convened on July llecessitating a change in the census calendar for both 30 and 31, 1980. The third conference was orgamsed *he operations-houselisting and enumeration. The in two p~ 1ses from October 30 to November 5, 1980 '-t'vised calendar for houselisting which was now sche- at N J inita I to impart tra imng for ertumera don. CHAPTER IV BUILDING-UP OF THE ORGANISATION As I bave already mentioned earlier, the 'Phoenix.' Division the number went up to 13. I also decided a pproach to census wa~ given up after the 1961 Census, to have an extra hand at the Hoooqu1rters. when It was decided to keep a nucleus dunng the inter 4.05 In our first Directors' Confet(nce, I plecded censal penod. A technical staff of about 45 pftLsons witb the R("gl~trar General to gIve me 12 PQs.s in<.tead was retained after 1966. This staff swelled to over of 9 in the first instalment. I thought that officers 400 during the 1971-81 inv0r-oensal penod. As such should be in positIon well in time for the census opera the organisation needed no building up at the Head tion I oontinued to follow this up. However. quarters. Indeed, I was hard put in mid-1979 to before I could get an answer from tbe Registrar keep all these people busy. The staff posItion In the General, I got: a telepbonio call flommy Qoun1ier part Directorate, on the date I joined, has already been from Rajasthan saying that Registrar General h8.\. indicated m Chapter 1. The staff positIon as on agreed to transfer 2 out of 9 sanctioned posts to 31-3-1980 and 31-3-1981 is sbown at Appendices XV Rajasthan. He had also been pressing the Registrar and XVI respectively General for two extra posts and had also asked me if 4.02 Ut~ar Pradesb had 3 posts of Deputy I could spare two posts while we were having a cun Directors and 6 posts of Assistant Directors durmg versatIOn regarding problems III getting people on the inter-censal period. One of the Assistant Directors deputation. This cQmpletely put me off for a whIle· pos~ was transferred to Meghalaya At tbe time of ImmedIately rang up the Registrar General who immedi my JOIning, one post of Deputy Dmctor and two posts ately denied thIS to my immense rehef. He also clarified of Assistant Directors were lymg vacant. These were that addihonal posts III tbe first lllstalment could not filled by Sbr! H.O K. Lavania (12-9-1979), Sbri be made available since he had already moved the Manmohan Krishan (24-8-1979) and Sbn N.C. Smha file for sanction of posts. Based on my experien(;e of (22-4-1980) Shri C.L. Chehra one of the Assistant census operations, I am of the VIew tha t all the posts Directors was transferred. He was replaced by Shri of Deputy Directors for Regional Tabulation Offices Harbhajan Singh on 19-11-1979. must be sanctioned in one instalment and more or less alQng with the post Qf the Directol. This would Regional OtBces greatly help in organising census operations smoothly. I It wouk' also give the Deputy Directors time 10 get J 4.03 It wa~ decided to establish 20 Itegional tltc pre liminarie:> done properly. This mostly iDvolvei Tabulation Offices for census tabulation on the baSIS the preparation 0.1 the maps and the census frame a of one Regional Tabulation Office for 5 milhon. well as colleotion of information for the VIllage an The post of Deputy DIrectors for tbe RegIOnal Tabul Town DIrectory. lation Offices were sanctioned in two Instalments with effect from October I, 19'79 (9 posts) and March 1, 4.06 I wish that the proct'1>:" of taktng officers on deputatiQn CQuid be simplified a bit. After obtaining 1980 (11 posts). the names of willing officers from the State GQvern 4.04 I thougM that establlshJag the 20 RegIOnal ment, they have to be sent to the Registrar General TabulatIOn Offices. would involve setting up of affioos who in tum has to 0 btain clearance of the Union almost in every other distrIct. Secondly, f-lOOC we Public SerVIce Commission before the file could be bave to func1:ion through thet Sate machinery, I sent to the Home Minister. The clearance from the thought that setting-up of offices at the divisional Union Public Servic@ Commission took a lot of time. headquarters would be more useful. It would help in The Registrar General used hIS good office and was establish'ng a haison With the Divisional Commissioners. able to cut down mitial time of 4 months to a month Thirdly, I also felt that the staff support at the Re or two. Owing to this delay, officers often backed glon'lol Ofih~s n3 21 22 batchmate, contacted him with a VIew to get the file ral to sanction a post of Statistical ASSIstant, one expedited Although, It cannot be termed as post of Upper Division Clerk and another post of interference In the work.mg of the U P.S.C, but peQn and offered to surrender two posts of Deputy the U.P.S C took strong objection and advised the Directors and four posts of Assistant Directors Registrar Genera!, IndM that such approaches should Four posts ofDy. Directors were retaineB at O.R.G. not be made The na.mes of vanouS RegIOnal and four posts of Assistant Directors were given to D~puty Dlcectors with their date of Joming and places this Directorate in their place The RegIstrar Genera I of posting are given below: - kindly agreed to sanction these posts. On 1earnl):g this arrangement, other States also moved fer sImi Name of Deputy Director Date of Jotnmg Region lar staffing pattern and succeeded in gettmg slml1, r ------_------staff strength without surrendering any senior posts. SjShn Later on'" when I wanted to have some posts of De 1 He Gupta 24-1.2-79(AN) BareIlly puty DIrectors and Assistant Directors at the He, d .2 Daya Ram 29-12-79 Agra quarters, I was told tpat these posts had been 3 Nalendra Kumar 27-12-79 Fmzabad at surrendered by me and new ~sts could not be had Bara Bankl at that juncture Till that tIme, I had not k.nown Varana,1 4 Mol! Lal 29-1.2-79 that additional staff had been prOVIded as a norm to 5 H C Joshi 19-01-80 Garhwal at all other States and Union Territories. When 1 Dehra Dun found this, I requ~sted the Registrar Generzl 10 {) R.S. Verma 28-01-80 Allahabad do the same for Uttar Pradesh and make the 7 Tarkendra Valshna\ 17-06-80 Kumaun at Namltal surrendered posts available to me. After a lot of 8 TP Pathak 19-07-80 Gorakhpur argument with the officers of the Registra r Genera I 9 Alit Smgh .- 31-03-80 Jhan51 Office, I found that these p::\sts had not b\!en 10 Phool Smgh " 16-04-80 Moradabad ~urrendered and "ere lYIng vacant Afler diS 11 V.G. Rele 13-10-80 Meerut CUSSIon, the Registrar General agreed to make avaIl 12 Akhlaq Ahmed 10-10-80 Lucknow able these posh to me 13 J.C. Seth 13-12-80 Kanpur Regional Offices Establishment 4.09 To start \\1\h, one postofStausl}C" J Ass]st, TIl 4.07 Another thmg that I would lIke to mentIOn (Rs. 425-700); one post of Junior Stenogrrpher IS that the terms of deputatlon are no longer attractiw. (R<;. 330-560), one post of Lower Division Clerk At the 1971 Census, central scales of pay and (Rs. 260-400) and OITe Peon (Rs 196-232) were allowances were much superior to those available m ,>anctioned This was augment(d by one Investi the Sta.tes. The value of money wa.s much better gator (R~. 550-900), one Upper DIVISIon Clerk-ut11l and the cost of cars was also wlthm reach. So one CashIer (Rs. 330-560) and a Farrath (Rs 1gC-232). found that a lot of Deputy Dlrector~ came on depu tatton, had cars and were US lUg them for theIr touring. 4.10 The techn1cal strff and the senIor ckncLl Thl~ was no longer so in 1981 It would be neces~ary asslst,lUce was p:ovided by transfer/promot1( n from 111 1991 to offer attractIve terms fo r people to come on the Headquarters. Some posts of LowerDlvision deputation. Apart from pay and allowance", provl"lon clerks were a Iso filled by promotion from the Group of reSIdential telephone and transport IS absolutel) 'D' Staff At the cleflca I level, suffiCIent number of neoessary. Gettmg the vehIcles from the State Govern persons Were not aV, J]~ble to man the posts of He, d ment or from open market \'va'> a very tedIous job. Clerk~ and Upper DIV1&IOn Clerks. In f,ome RegIon<: I Tabulation Offices, therefore. the,e P05tS "fTe filkd PrOVISIon for transport for efficlen~ runnmg of opera tIOn )s absolutely essentJ.a1 DUrIng the 1981 Cemu'l, by taking people on deputation from Sta te Governm(n t It was not po'>sible to get "ufficient peopb on ueputatlOl1 Offices. All possible accommodation we s gIVen to from State Government In variOUS States The the staff at He.udquarters In the m!tter of cho.ce Reg~~tral Gene.raJ had, therefore, to gIVe ad/we pro ofJ?~s!ing. SIllce the office staff is mo&tly from the mot~ol1s to A,)"lstant Directors With two year~ regular eastern Utta r Pn:desh, there wa s a lot of problems In serVIces a.gai11st five and In some cases even less. I manning RegIOnal TabulatIOn Offices In western had also to broadaase my area of chOICe "lUce suffiCIent part of the State. Since these Were temporary posts number of ProvinCial Civil Sl!fVlce,> offiC:':r'> were not for about 2 years duration, 1hey Were filled by glvlrg ..vailable. ad lue promotion" and direct recrullment "'ts rot resorted to. WhIle this was welcomed by the emp 4 08 In order Lo strengthen the "taff support In loyees. they were obViously inconveDlenced beeL use th~ R!gion:ll Onc~s, I requseted the RegIstrar Ge:le- many of them had to keep two establi~hmenls. 23 4.LI Since the Regional Deputy DIrector hed - -__ J~~trlct -=-=----Tahsi1TMuDlCI pal Boards to b~ very mJblle, need wa s felt for providing a com 6 Harralya p~tent deputy with administratIve brckgrour.d to 7 Bastl him. It was not p)!'slble to provide an AssIstant 8 Khahlabad 4 GorakhpUl 9 GOlakhpur DIr.::c~or I, therefore, senta proposal to th€Registrar 10. Bansgaon G~neral for providIng AdmlllistratIve Offic(TS III 7 5 Deona 11 Salempur big RegIOnal TabulatIOn Offices m the scale of Rs. 6 Azamgarh 12 Phulpur 650-l200 In heu ofa post of InvestIgator. RegIs 7 Ghazlpur 13 Saldpur tru General very kindly agret:d to the propose 1 and 14 Muhammadabad 8 Varanasl 15 Gyanpur these pJsts Were manned mostly by TahsIldars on 16 Varanasl d:p ItatIon One of the po sts In Falzabad RegIOnal 17 Chandauh TabulatIOn Office was filled by transfer on deputatIOn 9 Mlrzapur 18 Mtrzapur from Census cadre. However, these persons could 19 RobertsganJ 10 Moradab.. d 1 Sambhal M B b! I n pOSItion only after the census w~, s over. 2 Amroha M B. District Level Staff 11 Sahal dnpUl ) Haldwar M B 12 Meerut 4.12 The f"IIowll1g p03tS wcre sanctlOncd by 4 Meerut Cant! 13 Etawah 5 Etav.ah M B the Registrar General for cemu,> work at distrIct, _!±_!~_tp_~ _____ ~_ ___ 6_ _.J_~unpur ~!3:__ ___ ~_ tahSIL, mUl1lcipal corporJ.tJon and other level!' As 4 15 The ~tafI wa~ selected and appomted by the .1 mltter off4ct, these posts Were created by the State C)lkctor!' everywhere. Later on when wme proh G()Yernment letter No 5369/Three-15(6)/79 GAD lem~ w.?re raised by MUlllclpal CorporatIons, It Wf ~ dated September 25.1979 These posts were created deCIded to change the appoInting authOrIty from 111 the scale of pay of the State Government . Collector!> to the Administrators In theIr ca~es. In Name of post Number Scale of pay mOst oflhe Collectolutcs [nd T~hslb, a prnell& kept ------_------~------~1. Upper DIVISIOn Cler~ 78 Rs 230-385 fo r fillIng tempo ra ry vr canCles Theile p, neh Were 2. Lower DIVISIOn Clerk 347 Rs 200-320 med III most cases. In some of the MUnICIpal 3 Peons 56 Rs 165-215 CorporatIons also, people Were appoInkd from jhe~e --~------4.13 Extens ion of these posts wa s done by the plnels. After the census 'when these people Were Sta te Government from time to time till May 31, retrenched, they Were not brought b[ ck on the col1cc 1981. For these posts, Central Government allotted torate Pflnel This problem came &pecially In Agra. the funds d irectIy to the Sta te Government. The I had a lot of petitions from these people. cxp:ndlture 111 1981-82 was debitable under Gr:;nt 4.16 In Uttar Prade&h, the populatIon of c tahsIl NJ. 20-Head of Account '265-0ther AdrnmI&trhtlve 011 an average IS about 5 lUkh. There are normally S!rvlces-Non~Plan-Gha-Census-Ml11or He<:d Cen 4 development block~ In a tahsI1. There are &erveral sUs. Th~ norms of clef1c.al assistance to tah~lb and tahsIls 111 WhICh the number IS as large as 8. In severa] mUl1Icipal boards were : States, the reVenue dIvisIons and the development In TahSil In MUillclpal Boards blocks are co-terminus. SInce the ~taff wa~ provided -----~-----___ -~-- --_ ------Lower DIVISion Clerk-l (WithIn 1-2 lakh populatIOn) on the basl~ of number of reVenUe divisIon~, We got Upper DIYISlOn Clerk-l approximately J/4thofthe stafffor all revenuedlVl Lower DIYI,lOll ClClk-l ~lon!>. The~e people were mo~tly overworked 2rd I For every addltlon ..t1 1 la~h al\Vay~ got repre~entatIons from DIstrict C{;nsus Offi population cer~ for a!ldltIona I staff. I had plee ded for c. ddltom 1 Upper DIVISion Clerk-l ~tafI WIth the RegIstrar General WItt.out &V"J] Al Lov.er DIVISion Clerk-l though, as mentIoned above, he allowed an honor<: 4.14 In th.: f"llo \Vmg tahsils and mUl1lclpal boa rds, rJum of Rs. 25.00 to one extra hand In]9 tahslh, I w.; Iud to deviate from the standard pattern. In would suggest tha t in the Interest of census, provn 'on 19 tah~lls an hon.orarIum ofRs. 25 00 was &':.l1ctIon(d of clencal as&I::.taece should be mrdc ,,11 doek,p ...Ind jn 6 municIpal board~ 6 Upper DIVI&IOn Clerk!' ment block ba~I~ . had to be appo)11ted as detaIled below: 417 Two Statl&tical AS!>I!,t&ntil one C{)mputor - ~- ~~----~~------~------~-~- -_------and 20 ASSistant ComplIers Were also attrched In DistrIct TahsIl/MUnICipal Board~ ------~-_-~---~------Nagar Mlhapahkas/D1 strIct Offices for assistlllg the Garh\\-al 1 Paun 2. Lansdowne Cen::.us Officers ThiS was done keeping III view pro 2 Almora 3 RaOlkhet per utIlIzatIon of the staff avaIlable at the Her d 3 Ba~tl 4. DomanaganJ quarters. There were mIxed reports about theIr 5 Bansl performance. CHAPTER V TOURING Soon a.fter gettmg my bearings, I started off on conc.::rned, it b.::comes all th0 more necessary for suplve tourmg. I wa'> I co v~rcd a~ ma"1Y a. eighteen districts in additlOn to covering nearly throo dlstncts a day During these a VISit to DelhI and Madras I tried to c;)ver two visits I was addressing all the Sub-diVISional Officers/ district, per day a'ld at thiS rate It took me three monthc; Charge/Additional a'ld Assistant Charge Officers. r~ to go owr th-:: whob of th~ state If I rem;,mber cor Viewing progress and removmg difficulties on th~ spot. rectly, half-a-dozen dIstricts were still left out. While The tourmg wa'> rendered treaGherous oocause of taking this first round of tour to districts, I came to the severe floods in 1980. All the road ~ were shot to conclusion th'l.t with too ma.ny districts, distances and dIfficulties of terrain, it would bc well nigh im piec~s and often the Journ"y was very painful. In the end, all my muscles wer0 crying out for rehef. There possible to go round quickly through th<: state. There was, however. no alternative but to travel by road after, I decided to call divl"ional meetings of the Dis The pressure wa'> also greater this time- because of tri,;t C~mU'; om ~} ,';f Additional District Census the crowding of house listing artd enumeratIon opera Offio.:m a'ld tour problem areac; only tions. 5 02 Stnc~ c~mus i'i a deoen'lial process a con scious effort ha<; to b~ m'lde to get tM district admmis 5.05 There was a time when a simple letter evoked tration going This fint round of districts went a satisfactory response, Now-a-days, a number of long way in ensuring this I fOll'ld hardly any con demi-offi~ialletters a.lso fail to register proper respome sciousncss about the impending censU'; operations, One is confronted by a frightening spectacle of the a'ld at several pla'X'), no officers had 1>~en entrusted di5trict admini,tra.tion weighed down under their own with the cemm work, It also helped me in establish work Severe drought followed by severe flood. ing a rapport with th>: District Offi~ers and the Sub a.'ld highly inflammable law and order SItuation made dlVisiom.1 Officers It glwe me a'l Idea of the lay of the life of district officials rea.lly dIfficult Often the land so to S1.y From this point of view, there th'!y were at their wit's end. In such CIrcumstances, fore such an initial exercise is very u-reful. reaching them and g(}tting them to look a.fter censu,> was not only a difficult job but also extremely Impor 5.03 I start0d a monthly round of divisional tant. Even under normal times, establishing personal meetmgs With, as I m~ntIonl}d, visits to problem rapport with the dIstrict administration from the ar01.1 , Wh1-;h invariably included the Mahapalika District Oflhers down to Assistant Charge Officos towns. ThiS was useful while pre aratory steps cannot b~ over emph1l'iised. I was fortunate in get were ulldor way. However, later on, during trai'ling ting th~ whole-hearted-support of the Chief Secretarv pen'Xl aile!; actual field operations, I again found the other ooncerned Secretaries and DiviSIOnal Commi~-' need for visits to dlstrircts and sub-district levels sioner3 in keeping a watcb over the progress of cen<;u'l for establishmg rapport With Charge Officers/Super operations and giving it a fillip. visors and Enumerators. First-hand disoussions with Charge Oflbers are extremely useful and your prosence 5.06 The details of tour undertaken by me till in the field raises the morale of the field workers, March, 1981 are at Appendix XVII for reference makes them rl;)n.hse the importance of the job and fires In all I covered 48,575 kms. by road. 8,516 kms. their enthUSIasm. Basically, in any field operation, by rail and 14,344 km'l by air till then. superior presence is essential for keeping the lower level functionaries on their toes, a'O well a'i, for first Staff Car hand knowledge of the work SlUce the census invol My touring was mostly undertaken in the staff veS a f~ir amount of technical a"1d ac'Ldemic content (Ambassador) Car available with the Directorate with whIch the 110rmfl.1 st1.te functionary is no longer since March, 1970. A Jeep Wagoneer was made 25 26 available In 1969 for implementatIOn of Sample India used his good offices with other Government Registration Scheme. However, it was rendered of India Departments to Is<;ue Instructions for makmg unserviceable in 1972 because of cracked engme avaJiable vehicles to Directors of Census Operations. block. I moved the office of the Registrar General, We were able to get only 3 Jeeps from the office of for getting the vehicle diesehsed because import of the Deputy Director General, Northern Region, engme block had not been pos'>lble and mllea~ Geological Survey of IndIa, Lucknow The jeeps were gIVen by the vehIcle wa" very poor It took a lot of made avaIlable to us as late as February 27, 1981. effort and lllltiatlVe on the part of Regl~trar General, These were released subs.equently one on 27-4-1981 IndIa to get the proposal through The vehIcle became and two on May 7, 1981 This courtesy of Geological avaIlable for USe In September, 1980 The diesehsatlon Survey of India helped us much as the drivers of the'le costed R~ 35,394 00 For a state hke Uttar Pradesh. Jeeps rendered a servlc~ of high order However, it these two vehIcles, both rarely roadworthy at the same helped us malI1ly In the conduct of po'>t Enumeration time, were qUite llladequate dUrIng the actual opera Check/Censll'; Evaluation Study tion" Because of thiS madequacy of tramp:)rt at the Headquarters, I wa" put to hardship many a 5 10 Further, in p.lrsuJ.n:;) of my request the time I had to even cancel my tour" sometIme'> at State Government w~re kmi enough to issue lUstruc- ( tlOns vide thetr letter No 4047jThree-15/2/78-TC-4 short notlce dated July 15, 1980 to all District Officers and Head<; 5.07 The absence of qUIck and sufficient transport of the Departments of the State that State Government was al<;o felt at the time when mltenals and form'> etc vehicles should be mad;! avatlable on reqUISitIOn to were reqUIred to be sent to meet the last mmu te the RegIOnal D~puty Directors of Cenms Operations, demands Smce no credit faclhty was available for superVISlng- the fi~ld work tn the dlstncts during with the p~trol depot'> m the dlstrIct~ for censuS the penod of July I. 1980 to March 31,1981, but the vehicles, dunng my tour, cash payment had to be made Regional Deputy DIrectors found It often very difficult ,for petrol etc. to acqUIre the State Government vehicles and natu rally the census work had to suffer. The problem Touring by other Officers of the Directorate had become acute because m every dIstrict a large 5 08 RegIOnal Deputy Directors and theIr staff number of dep:lftm~ntal vehicles had been req uisl were lllstructed to be mobile all the time They were tioned by Dlstnct Officer<; In connection with relief required to submit thel .. tour reports regularly to me. and law & order dutle<; To keep the RegIOnal Deputy Directors mformed 5 II A<> such, a proposal was sent to the Registrar of the latest progress, D,strict Census Officers were General, India, to allow the ReglOnal Deputy made to report their progress to Regional Deputy Directors of Census Operations to hire vehicles for DIrectors and III turn the RegIOnal Deputy Directors t he conduct of 1981 Census RegIstrar General, India were a<;ked to submit theIr consolidated report to me klUdly granted this request and the RegIOnal D~puty every month Officers from the Headquarter~ Directors were allowed to hire vehicles till May. were also pres<;ed into <;ervlce to sort out problems 1981. The rates of hire ranged f.-om R" 90.00 to and difficultIes In the field No amount of tourIng by R ~ 150 00 per day This w.!nt a long way for the Regional Officer.. can really be termed a'l enough Regional DepLlty Directors to see through the Cell'lu~ "moothly. Availability of transport for touring to Regional Deputy Directors and other O:ticers of the Directorate 5 12 I would suggest that Regional Deputy Direc tor,> must be prOVided with vehicles by the Govern 5 09 Be"ide~ two "taff car~ availa1:Jle at the Dlf'':c ment otherWIse theIr effectiveness would be nominal torate, which were lUJstly lU my use, no tran<;port in the next census In the 1971 Census, mos.t of th~ was available for touring by the Regional D~puty Deputy 01 rectors used their private vehicles for Directors and other Officers of the Directorate The touring. But the cost of vehicle and POL had become Registrar General, India wa<; requested by all the prOhibitive m only a decade to rule out thl" pos<;i Directors of Cemus Operations that Regional Officer~ blltty in 1981 Thing'> would certainly not Improve must be provided with jeeps The Regi'ltrar General III 1991 tried his level best but could not succeed. The main rea<;on for turning down the proposal being the peflod Touring by District Census Officers for which the vehicles were required It was sugge<;ted that the jeeps could later be given to other departments 5 13 In Uttar Pradesh, all the TahsIldars and against their requirement, but for reason'> unknown, Sub-divisional Officers have not yet been provided it also made no impact. Hence Registrar General. Jeeps, The development blocks had been provided 27 vehicles bLlt there has hardly been any replacement 5.15 In order to supplement POL charges incurred by and large. Half the vehicles were off the road and by the District Administration, provision w~ also the r..:maining in a poor state of repair. They have made lU census budget, so that touring by the been on road mostly, thanks to investments coming district level officers and also by charge officer& forth dUring electlOns. Further, those serviceable were might not suffer. They were allowed to debit doing relief and law & order duty. expenditure on census budget for monthly consump tion as noted below : 5 1 ~ The D [stnct Cen~clS Officer" were evenly dlvld;:,j b~twe('n SU:,-dlVlsional Officers and extra Dlstnct At Tah~Il TOwns Q,-icel, . In ~')m; dIstnct'>. AddItional Distnct Magis Oms'l~ level (per having Offlcer~ Dcvclop- popUlation ,1 (?~) tl te:> aha worked as DistrIct Census Officers. (per month) 'nlJnt Block 50,000 Or T 1: S ; 1-d! '/lsian d Officers, normally had vehIcles but per month) above (per town th' otl· ~rs Jld not. Dlstrict Statistical Officers/Dis per month) tf! ,t E ~)n')mic Officers and Basic Shiksha Adhikaries 1. Hill Dlstncts 1,000 00 150.00 1,000.00 w"e Addlt!Jnal District Cemus Officers. None of 2 Other Dlstncts 500 00 100.00 500 00 --- th '[il Iud a~cess to a vehIcle The pOSition even at the dl'>t;:ict level, therefore, was nothing to write Relaxation in Winter Tours by District Census Officers h: me about. As such, a request was made to the State 5.16 Sub-divisional Officers , Tahsildars, Naib G,wernmeut to authorISe DistrIct Officers to reqUisi Tahsildars, who were appointed as District Census tion State Government vehicles for being used by Officers, Sub-divisional Census Officers, Charge Census Officers. State Government quickly oblig~d Officers and Assistant Charge Officers had to under issuing orders to this effect. By the orders, all the take winter tours for their routine work. This was District Oificers and Heads of the Departments were likely to hamper cell'iU~ work. I therefore, requested asked to make available State Government vehicles to the State Government for giving relxation in winter For the purpose, District Census Officers on demand. touring Consequently upon my request, State Govern the District Officers were authorised to requisition ment issued orders that tours undertaken by these Government vehicles from all the departments barring officers for census duty would be counted towards ;) few wl1lch have to render essential serVIces. However, their Rormal winter tours. Officers who were this arrangement to facilItate the touring of DIstrict appointed Distnct Census Officerv Were given full Census Officers dId not cut much ice as there were relaxatIOn as regards their winter tours. This arrange many hu.-dles in making the State Government ment greatly helped the smooth conduct of Censul vehicles available for census work Often old vehicles Operations were made available and their replacements were hard to come by. As mentioned earlier, most of the 5.17 My overall impression was that the arrange vehicles were busy In floods-drought relief WOI k and ment of vehicles was not really satisfactory. The in the maIntenance of law and order situations In District O_fficers were most cooperative and the the distncts Even where vehicles had been released district level OfficerS/Charge Officers willing but the from such duties the concerned officers were reluctant constramts Were insurmountabl~. Vttar Pradesh is a to give them ag'l.in for census work ComeqJ.ently, poor state. On the one hand, the man/vehicle ratio i. most of the reqUISItIOns faIled SometImes, District the lowest in the country and on the other the vehicles AdmimstratlOn could not prOVIde petrol as they were are not in good repair and with meagre POL allotments. short of fund.>. In the majority of districts, g~n;:ral To make matters worse, 1980-81 was an exceptional admmistratIOn POL allo:ments were running in mmus. year. We had two general elections, a really bad At several 'places, petnl stations had refused to drought followed by really bad floods and to add supply petrol bacause of their pending bills. to it all a bad law and order situation. CHAPTER VI CENSUS SCHEDULES-TRANSLATION, PRINTING AND DISTRIBUTION The pOSition of Hindi speaking states in regard to, Distribution of Ceas!ll Scbodal .. printing of schedule~ and instructions booklets is 6.04 The allotment of census schedules 1\ftd thtir very much easier. Since the bulk of the census distribution for houselistina and enumeration schedules are used in Hmdi, the Office of the Registrar -separa tely arc given in appendices XVIII and XIX. General, India makes arrangement for theIr printing centrally. All I had to do was to make arrangement for the printing t)f various abstract forms used at the Local Printlne enumerator. supervisor, charge and district levels 6. OS In Government of India (allocation of buai. and the special brief manuals used by the enumera ness rules) all printina work ia to be don,e thtQuah tors and supervisors. Of course, various circulars Central Directorate of Printing. Since the Govern issued by me had also to be printed, although, they ment of India pressel are not available everywherc. were first issued in cyclostyled form to the Regional we were allowed to approach the State Government Offices and District Census Officers. press for printing work. Private presses were en gaged only when the State Government presl inti Estimate of Requirements mated its inability to handle the work. The State Government Press at Aishbagh, Lucknow was very 6.02 The requirements of census schedules wero cooperative but they could not continue to handle worked out by the Office of the Registrar General, our printing because of printing of ballot papers and India on the basis of population estimates. Oftice of school book covers etc. Some work was given to thc the Registrar General, India also decided the volume U.P. C09perative Federation Press run by the Provincia of reserve. What I did Was to break up this reserve Cooperative Federation. However, later on the work into headquarters, regional offices, district, charge had to be given to Prein Printing Press, Oolapnj, and the supervisors reserve. The reserve for local Lucknow after obtaining the quotations because the printing was calculated along the lines indicated by U.P. Co-operative Federation Press Was very the Office of the Registrar General, India. The re tardy. I must put on record that the Prem Prin quirement of schedules for enumeration had to be ting Press went out of their way to accommodate UJ. revised because the houselisting population had Their quality of printing was excellent and they also exceeded the estimate worked out by the Office of the worked on holidays to meet our tiaht time schedule. Registrar General, India There was no problem in The supply of paper, was met by the Office of the getting the schedules from the Office of the Registrar Registrar General, India centrally and we had no General, India. They were very prompt and accom problem on this score. modated all demands very cheerfully. The quality . of printIng of census schedules was excellent. Transportation of Consignments 6.06 The census schedules and instructions book· Translation lets were transported to district headquarters both 6.03 Translation of Instruction Booklets in Hindi by road and rail. Big consignments had to go by road Was also undertaken centrally. Meetings of Direc because of time factor. At the time of enumeration, tors of Hindi speaking states and the officers of the trucks were sent directly to various Regional Offices Office of the Registrar General, India were convened by Office of the Registrar General, India so as to for the purpose. It was only the translation of super ensure expeditious supply of forms and to avoid visor', manual and some abstracts that was done unnecessary handling at the state headquarten. locally. Translation of the manual for filling up of There were some problems in organising supplies enterprise list was attempted by the Central Statisti. to hill districts as also districts 'Y.hich are not on rail cal Organisation which was vetted by the Director of trunk routes. By and large, I should say that there Census Operations, Bihar and myself on the instruc were not many problems. Some trucks from Delhi tions of the Registrar General, India. did not reach their destination and some were delayed 29 30 because of diesel problem. Some rail consignments repeatedly told not to use schedules printed m red did take a lot of time and alternative supply had to be ink and the supply of schedules was more than ade': arranged. quate. Movement of Unused Forms Last Minute Demand 6.08 I may me~tion here that transport of unused 6.07 In an operation of thIS sIze, there are always forms from the dlstncts could be ordered a10ngwith frantIC last minute demands. We had our share. filled m schedules to Re;;lOnal Tabulation OFfices. It Was often found that the dlstnct officers had mis I had not done so and hence there wa" a lot of prob calculated their reqUlrllment. Although, the traming lem in gettmg unfilled schedules as also the second material was printed In red ink to distingUIsh It from copy of househ'lt later on. The scale of reserve the census schedules, it Was later found III the Regional was m0re than liberaL It .,hould be red aced conSI TabulatIOn Offices that schedules meant for tralUlUg derably III case of InstructlOn booklets. Ch:mces 01- had been filled in some blocks. They had to be loss of many large c::>nslgnmcnts are really remote replaced at the Regional Tabul::.tion Offices WhICh Thc reserve for forms a'1d schedules sho,lld be cer 3.dded unnecessary load to the work of the to.bulation tamly larger but that also could be slashed by half staff. It Wa$ qUite 8affiini because people had been atleast. CHAPTER VII PROCUREMEl"Ii'T OF MAPS To ensure complete coverag'! at a pop"3iatlon 1979 and then 111 January, 1980 wIth reqUIred entnes, census. up-ta-date JunsdictlOnal :maps showlllg the An office copy of each tahsIl map Wa') rehIlled III the ,>malkst admtnlstratlVe untt'> Ill-;ludmg th.e urban concerned bhsil office f,)[' refeIeace for sub,equent local bodIes are a Slile-rj'U(,-nOll census wark. The n1'lp'> recelVed from the districts were agalll scrutinlL:cd and dl'>;;repancres rectIfied. by 7 02 InstructIOns r.:gJ.1u111; procurement and sendmg 1.echmcal stalT from M.ap Unn 0; t1:IS DIrec p{CparatlOn of diScrICt, tahsIl and town maps were torate to the distrIcts, rccep.,ed from thlr A~gls~r.lr GeneraL India vide hiS Deml-Omclall 'tter Nv I j24j77-RG(E) dated 11 1.1978· 7 05 Th,.e reve-nu:! sta;f beIng o'/crburdened. \vith work, could not al'v~ys come ('ut 1n ready co-operation Tahsil Maps lU some cases and more time than e' 31 Ton aDd Ward Map. 7.08 After houselisting operations. it was obser ved that a number of enumerator blocks far exceedec' 7 07 B~<;idcs each dhtnct and tahsIl, all ulban population norms which necessitated recarvation 9f local bodIes (viz. Nagar Mahap:lltka, Municipal blocks. As the time between the houselistina ope Board, Ca:'ltonment Board, Town Area., and Notlfied ratIon and the population count was very short. a Area Committee) were reqtmed to p:.-eparc theIr wholesale recarvation was out of question It was, town m:p3 sh.)w:ng rcorg\:1 scd war,ls on them therefore, decided to leave the blocks as such with a In 1973-74, the State Gf)v~;·n'n':;].t uecH1e1 to I'eorga varIation of + 15% from the optimum SIze. Small nlS:; th~ c1 ~c'bn wl"ds In all th~ towns ofU~t<': Pradesh. sized blo;;ks were also not touched. The bigger Comequently new reorg:mised wards were nOtified. blocks were split up into 2 or more blocks as required As a re:mlt. all the ward maps collected by this Dire No amalg.lJnation Was permitted. ThIS meant that ctorate durmg the 1971 C~U'luS became outdated. Abridged House Lists had to be prepared a fresh for W'len the first step m thIs direction by the Direcorate these blocks. as early as in 1975 ,falled In procunng revised maps Staff in .Map Unit n~cessary instructions were Issued by the State Govern ment to alllo~al bodies (vide their Letter No 4008/ 7 09 Th~ strength of the map UUlt on the date Q T-9/1/75 dated 1O-2-1 76) to prepare latest town maps I took ov:or (~4th Apnl, 1979) is given b-~low .- showing reorij1.nised ward boundaries and supply a copy to the Directorate. The response _was quite Sl DeilgnatlOn Pay Scalo Number No t:1": of thin till cnd of March, 1979, for various reasons. post Most of them were not cle'l.r about their boundarIes. They dId not have any map of their town. Even some 1 Sonlor Gllographol Rs.650-960 1 2 Geographe': Rs.550-9OO 1 of the blgg'!r urban umts lIke Mahapal1kas and 3 Al ttst Rs.425-7oo 1 MuniCIpal Boards did not possess up-to-date maps 4 Semor Draughtsman Rs.425-700 3 5 Draughtsman Rs.330-560 10 showing their extended boundaries. Generally. most 6 Map AS>lstant Rs.330-480 ! of the towns had no cartographiC facility. The situa 7 Fe-ro Mach1llo Ope~ator Rs 260-430 1 8 Hand Machlllo tion of ward maps was still worse. Separate ward Operator R~ .260-400 (Vacant) maps were required to delIneate enumerator blocks 9 Compute.t; Rs 330-560 3 and sup:::rvisor circles distinctly on them. There was 10 ASSistant CompIlN , Rs 260·400 ~lso no indication in anY maps of uninhabIted areas, ;"'aste or cultivated lands and Important land marks, 7.10 Fmdmg this strength inadequate Registra.r lanes and by-lanes in the wards whIch _made them General, I'1dl:l W:1<; requested to sanction s;)me morc unfit for delineating_nearly equal sized enumerator sta.ff. In J!lly-August, 1981 two. SonlOr Artists, two blocks. These difficulties were, however, surmount Senior Draughtsmcn and six Draught m~n were ed by repeated visits, exhortations and co-operation a.dded to thi~ umt. Even WIth this additional strength by the local bodies. It was indeed a yeoman' s task the map umt had a hard time, as they had not only to which should carefully be borne in mine! while do tM ma.pping work but also procurement of prep,lring for the nex t census. maps from Tahc;ildars and looal bodies. CHAPTER VIII PREPARATION OF RURAL AND URBAN FRAME When I took over a<; DIrector of Census Opera 8 05 Wlth regard to preparatIon of rural/urban tLm'>, 1 was im'TIediately seized with the probbm of frame, the first st;)i) was to determine the JurisdictIonal finali;ing the rural-urban frame. The Regi3trar changes in the dIstricts, tahslls, towns, development General, India had already issued instructions 111 thiS bbcks, nyaya p:lUchayats and VIllages which had regard through his first Circular. The criteria wer~ taken place after the 1971 Census. Based on the lU v~ry clear and I had no difficulty In gomg ahead .. formati()n as received from the State Government and Dlstnct Officers, the H,ts of villages/towns pre 8.02 The definitIon of urban arcas as adopted In pared at the time of 1971 Census were updated. Offi 1971 Census had worked satlsfa.ctonly. In order, CIals from the Directorate were also sent to the di,> theref.:>re, to ensure comparablhty WIth the prevIOUS tricts The tahsil maps based on the revised Juris Q Censuses and to provirl a basls for analysis of trends dictional- boundaries indicatlllg ther~1ll theurban areas of urbanisation in the country, the same criteria Were w~re then prepared and sent to the DIstrict Officers retaIned for the 1981 Census. for confirm3.tion. After getting confirmation from the Distr~ct Officers, IlJ.structlOns for the preparation 8 03 Consequently GTcspective of their demo of hsts of vlllages/towns were Issued VIde my Census graph.ic characteristics, all notiiied local bodies like, Circular No 1 la general and Circdar No.6 ill part~ Municipal Corporations, Municipal Boards, Canton cular. ment Board,>, Notified Area and Town Area Commi 8 06 The hsts of VIllages were prepared for each ttees were to be includ ~ ~ in ttJ.e lists of Towns. Besi tahsil k 33 34 datd Mo ch 13 1979 [u, COT1fir;n:lti~m and addition Government Notification No 2198,'11-2-100 of the new tOWll'l t,) the list prepared. It was empha (l )-78 dated 26-5-1980 with effect from J .me sised that jurisdlctl.Jll:ll challge5 li1 th..-: existing to'.vm 1, 198'). ThiS was acco:nmodat::d III our b~ c;Jrnmwllc.lted with full detall~. urb::tn frame. 8 10 All the D"stnct Offic~rs obltgcd by sending 8 12 The number of towns 1:1 the State went up their re[):)rts fairly quickly. The f(~;1orts were closely frOl'll .325 i 1 1971 to 70-l i'11931 as 5hown III Appendix scrutIi1ISed and th;: J.rban fra.m\! w.~s fi.1alil>cd ,It the XX. Out of 382 tOW.IS whIch were actually addeJ to the 1Ist of tOVv,lS 1!1 1981, 198 W0re entirely new and Headquarters. 18~ w..:re thos~ whIch existed as town:> p~lor to 1961 8.11 Insoite of cL;ar InstructIOns about fixity l)f Ccnsas out Wt';.; (L:cIas;,lile(: a ~ such hI 1961 and 1971. boutldarIes f~0m Octvber. 1979, JUrISdictIOnal cha:lgcs F,llZZaad-cum-Ayodllya MuniCIpal Board of 1971 was w~J'e given ciTect tv. Detd.il~ are a~ under' bifurcated into tW0 tOWlIS, viz., FaEabad MuniCIpal Board and Ayodhya MclUlcipal Board In 1981. Two (I) Bara Tahsll III Allahabad W.iS created 111 (11s towns of 1971 Ccnsu;, nam.::ly, RasulpLlr Dhu1ri trict AllahabaJ and Patlah In Etah. How CC;J.sus Town of M'.!;:rut and Markundi - Census Town ever, these two newly created tahsl1s were not Jf Mlrzapur were dropP0d from the ltst of towns for taken 111to cvnSlderatlOn for censuS purpose the 1981 Census as they did not satisfy the cnteria as this wv'lIJ have dIsrupted our arrangements. tald down fur Census Tuwils Further, two Illdepen (il) The crcativn of new tah~il Dehrawal out of dent town3 of 1971 Census, vi::., Malyana and KUlla tahsil Cha.)dauh i.l Llistrict Varanasi was got merged Into :Mcerut MunICipal Board and Ghazia under c JnsderatlOn. Upon our mterventlOll, bad MunICIpal Board r.;spective!y afwr 1971 Census. the proposal \Vas di!ferred. The 704 towns of the state consist of 5 MuniCipal (itt) Thr,ngh Gazette NotlficatlVn No. 5808jN- Corporations, 187 MUl1lc.:>al I})ards, 22 Cantts, 47 2-52(1) 72 dated December 14, 1973, State Notified Areas, 418 Town Areas and 25 CensuS' Government upgraded Gulaothl Town Area Towns. in dlstnct Bulanushahr as MuniCipal Board. 8.13 The explanatIOn for abrupt increase In thc Fvr some reason, it was downgraded to Town number of towns In 1981 Census over the 1971 Census Area vide Notification No. 4031/11-2-52(1)/72 malllly lies In the fact that all town areas were subjected dated February 27, 1990· However, since to a thr.:e-way demographic test 111 1971. As a result, thIS did not entail any JurisdictIOnal change, only 47 Town Areas qualIfied for the 1971 urban no object10n wa& ralsed. frame. Thb pOInt was discussed 111 the first Director (IV) Therc was a proposal to extend the linllt~ cf of Census operatIOns Conference and it was clanfied BJlandshahr MUnIcipal Board and Blsalpur th~jt all ~ atutory towns h,'d to be classified as UI ban Municipal Board In dlstnct PIlibhl1 At il respective of their demographIC charactenstlcs. our behest, the government was good enough 8 14 A sp<>cial mcn~lC)n lS lequI1('d in case of New to postpone th~ jurisdictional change tIll Okhla lndustnal n~v..Jopm ~nt A uthori:y (NOIDA)' June, 1981- The New Okhla Indus:nal Developmcllt Au1hofl(Y (v) 11 revenue vIllages of tahsil Sl:canjrabad h area, s:r1c,Jy speakmg. could be classlfied as a town. dlstnct Buland,hahr were tu be irdnsf0rreJ It s~alt ..'d {l,S project of indUStrIal devclcFment whIch to Haryana u,ldcr Dikshit Award. For this was b 1ggel In sccpe and S17e thJn 'he mduslIlal arat:s also State Government w:1s request~d to post bClUg d'~ve1Jped by Uttar Pradesh State Industrial P;}.lC the transfer till the c.Jmplction of 1981 Dcvdopment CorporatIon. The orIginal concept Cens.ls. Since no actual transfer took place under went a change and N~w Okhla Industrial Dcve by the tim~, e!l!.l'11eratiol of these 11 VIllages lopm.;nt Authonty lllcludcd a hu£c dev.;[opment of was done in the State. residentIal areas. At thc tim:! of 1981 Censu5,..thc resi (Vi) A new deve1opm;!nt block named Pati, was dential ap:aS had not come up while the population created in tahSil Champawat of district Pitho in the indus~rlal area WaS very small. At the same time ragarh with effect from M~y 1,,1980. A the residential populatIon of villages acquired for New request was made to Commissioller-cum Okhla Indust! ial D;:,velopment Authority' was contI Secretary, Agricultural Production and Rural nuing to reside m theIr original locations. Development to postpone its execution. 8.15 Considering all the facts, it ,,~as decided to ' (vii) Bisauli Town Area in district Budaun was treat New Okhla Industrial Development Authority upgraded as Municipal Board vide State as a VIllage for the purposes of 1981 Census and was 35 given a separate code number at the end of tne village Covrdination in KA VAL towns b:ocause of the dual register. It was, however, made a special charge census hierarchy of the District Magistrate and the and it had 75 enumerator blocks. Mukhya Nagar Adhikari. There were problems: else where also when Registrar General, India decided Urban Agglomeration that t4e census taking in the outgrowths would have 8.16 The concept of urban agglomeration adopted to be supervised by the town ad mini nrabon. The for 1971 Census continued for the 198] Census. Th IS problems were of course resolved but thi~ is an area wa, an improvement on the town group concepf of wh~re proper supervision is called for. 1961 where the urban spread was nol necesaarily oon tinuous. It is common knowledge that some settle 8.20 While.on the subject, I would like to mention ments lIke residential colonies, railway colonies, the ca<;e of I I.T., Kanpur in Kanpur U.A. The university campuses. military camps etc. come up I.I.T., Kanpur was treated as an independent town in outside the statutory limits of the oity/town but adjoin the 1971 Census and therefore, the U.A. proposal ing it. Such areas may not, by themselves, qualify to for 1981 wa~ procesl'ed on the same bas;is. It was be treated as towns but as they form a continuous while reviewmg the prepa.ration of Town Directory spread with the ad joining town, it would only be rea in a meeting of Charge Officers itt Kanpur tha1i I listic to treat them as: urban. Such towns together with di9Covered the I.I.T. was not a town but part of Kanpur Nagarmahapalika although the water supply their outgrowths have been treated as one urban and sanitt'ry arrangements were being looked after unit and called urban agglomerations. by the I.I.T. Even then the Nagarmahapalika autho 8.17 An urban agglomeration may, therefore, rities were blissfully ignorant oj their town limits and constitute :- had to be convinced. But b): then it was too late to make amendments to the urban frame. (a) A city with continuous outgrowth (the out growth being outside the statutory limits but 8.21 In some ca~S', like, Debra Dun, Meerut. falling within the boundaries of the adjoin Ghaziabad, Shahjahanpur, Lucknow and newly pro ing village or villages). posed u.A. of Roza, spot scrutiny was felt nece!tsary. Some of these places were also visited by officers of (b) A town with outgrowth or more adjoining . towns with their outgrowths as'in (a), or the Registrar Generars Office . (c) A city and one or more adjoining towns with Debra Dun U.A.: This comprised Dehra Dun M.n., their outgrowths, all of which form a conti Dehra Dun Cantt. and Forest Research Institute and nuoqs spread. An urban agglomeration excee College Area in 1971. For 1981 it wac; proposed to ding a population of one lakh was oaned a include Raipur C.T., Clement Town Canit. and Majra city urban s,gglomeration otherwi. it was C.T. In addition, it wac; also suggested tltat Adhoiwala, a town urban agglomeration. which is located between Raipur town and Dehra Dun M.B. might be included as outgrowth. As Majra town 8.18 Id entification ofurhan agglomeration invo lved wa'f not found to be really contiguous to Clement location of towns which were oontiguous ou the Town Cantt, the Registrar Genera.l, India did not oneh and and identifica.tion of outgrowths (OG)of favour Its inclUSIOn in the Dehra Dun U.A. . towns on the other. It was the second task which really posed problems. Instructions Welre sent Dis Meerut U.A. : In 1971 it comprised three compo trict Officers vide Census Circular No.7. The di!r nent towns, viz., Meerut M.B., Meerut Cantt. and tricts/ nagarmahapalikas were required to send their Malyana Town. Malyana had since statutorily morged proposals' alongwitb notional maps, clearly indicating with Meerut M.B. In addition, 17 rural units were the contiguous villages and the area of outgrowths in merged with Meerut City thus enlarging the area of them. Th(}se proposals were scrutinised at Headquar Meerut City. Although Ma1yana. cea$ed to be a com ter~ and the Regional Deputy Directo.t'S were asked to ponent, it was neoossary to include K anker Khera and p:;:rsonally visit th~ outgroWths a.~d -give th~ir xe'port. Baksarkhera T.A~. in U.A. Some of the places were abo visited by me and head Ghaziabad U.A. :' In 1971 it comprised of Ghazia quarters officeri. bad M.B. and Ghaziabad Railway Colony. It Wa9 8.19 The Registrar General, India was speci211y decided to include Razapur (K amla Nehru and Shas warried about the urban agglomerations of Ghazia trinagar) outgrowth as a third component. It became bad, M~erut and Dehra Dun. These were specially possible because of the extension of Ghaziabad Citv looked into. There were some problems of lack of juri~iction after 1971 with the inclusion of zo village~. 1 DCOUP/82-7 36 Shabjaho.opur U.A. : Shahjahanpur U.A. compri3ed bad and Datauji were contiguous to Firo.zabad M.B. o.f Sha.hjahanpur M.B. and Shahja.hanpur Cantt. For a.nd eQuId fo.rm a U A. with Firo.zabad M.B. This 1981, it wM pro.po.sed to. extend the U A by adding was gone into. tho.ro.ughly thro.ugh spo.t enquiries and '3 outgrowths viz., Lo.dhipur, H~thaura Buzurg and co.rrespondence with tp,e Office 'of the Registrar Rasulpur. Ro.za N.A. alongwith villages Ahmad General, Indm. It was found that III spIte of part Nlazpur and BaHia wa~ also considered fo.r being mergers, the actual abadis were cut off from Firoza included in it. Howev~r, o.n the SPo.t enquIry revea.led bad M.B lImIts: by stretches ()[ fields The Reglstrar that Roza N.A. neIther quahfied as a component of General also di~ not favour a core to"n "ith o.nly Sha.hjahanpur U.A. nor a! a separate U.A. Fo.r one o.r two o.utgrowth~ to form an urban agg:lomera Shahjahanpur U.A., only Shahjahanpur M.B. alo.ng tion. M'oreover any change in the list of towns and wi~h Lo.dhipur outgrowth and Shahjahallpur Cantt, urban agglomeratIom at such a late stage when house were co.nsidered to. be fit to. Co.nstitute the U.A. listing itself was. over was not co.n~idercd desira.ble. Therefo.re, It was decided that they should be treated Lucknow U.A. : In Luckno.w U.A., orIginally, it a~ sepa.rate to.WllS' a.nd should no.t co.nstItute a. U.A. wa, proposed to. includ.e 13 o.utgrowth!). Ho.wever, with Firozabad M.B on the basis o.f Co.ntigUIty o.nly Ramsagar Misra Nagar (renamed rndra Nagar) and H.A.L. Co.lo.ny, Aliganj 8.25 There were finally 13 cares III which addi-: Extensio.n Scheme, Hind Nagar Colo.ny and P.A.C. tlOn~ were made to the 1971 Urban Aggl~meration Area, Kanpur Ro.ad were taken to co.nstitute the lIst. Theil' details are given below : Urban Agglo.meratIo.n. Name of Urban , AddItIOns In 1981 over 1971 8 22 Besides, Almora u,A. and Firo.zabad u,A. Agglomerations pMed some difficulties in their co.nditutio.n. Almo.ra U.A. oo.mprised o.f Almo.ra M.B. and Almo.ra Cantt. in 1971. It wa') pro.posed to. add one outgrowth, viz. 1 Dehra Dun U A. (I) Adhoiwala 0 G. Narsinghbari on the ground that it co.vered a pro.ject (Ii) Clomcut Town Cantt. colony. However, this did not meet the appro.val o.f (Ill) Raipur CT. Registrar General, IndIa. It did no.t fulfil the requisite' 2 *MussooriC U A (I) Mussonc M.B demographic particulars:. At Qne Sltage, it was: Po.inte-d (Ii) Landbur Cantt. o.ut by the District Officer, Almora that th~re were 3 Hatdwar U A. (i) Bharat Heavy ElO~tl icals certain 'po.rtio.ns of villages Municipal Bahar and Ltd., Ranipur N A. Munioipal Bo.hak which had neither been included in 4 Meerut U A (i) Kankar Khe It T A. Municipal Board lmtits no.r in any revenue village. (II) Baksar Kho 'a T.A. These two. villages did not also. find place In revenue (Malayana C.T. of 1971 SimI) records. In an assessment report of Board o.f Revenue merged In Moe' ut M B.) ~ publ~hed in 1964, it was reported that these two 5 OhaZlabad U.A. (J) Razapur (Kamla Nehru and places have been incorporafled in Nagarpalika Almora. Shastnnagar) O.G. Whereas Executive Officer ~agarpalika agreed only 6 *Modinagar U A. (I) Modinagar M.B. to. their partial inclusion in the Nagarpalika. Fo.r this (11) &gumabad Budhana C.T. Sltrange pheno.menon, Census records for 1951, 1961 7 *Bilari U A. (I) Bilan M.B and 1971 were checked up but no mention was found (11) Rustaronagar Sithaspur C.T oft~e~. It was: however, clear that these did not! form 8 Bc1retlly U A. (I) Kudcsia Colony O.G. (11) I V.R·I Colony 0 G. the part o.f M unicjpal notification. As suoh, it was decided that these wo.uld be identIfied Wlth the rural (Iii) Ncwada Joglyana 0.0. charge. (IV) Central Jail and Klshoro Sadan 0.0. 8.23 In respect o.f one VIllage PandekheIa in tahsil (v) I.W P. Colony 0 G. Almora, it wa~ detected that a~ the time o.f 1971 (vt) ClutterbuckgaDJ T.A. Censu" this village waii mis!red thQugh its existence 9 SllahjahanpuT.. U.A, 0) Lodhipur c:> O. was traced till 1961. This was corrected and shown in 10 Jhansi U A (I) HansaTlgird C.T. the' village list fo.r 1981 Cen~us. 11 Lucknow U A (I) Ramsagar MISla Nagar Clll ny and HAL Colony 0.0 8.24 After the finalisation o.f the list o.f tQwns (11) AhganJ Extension Scheme and urban agglomerations, it was o.bserved that 2 0.0 erSitwhiIe (tifl 1971) villages but treated as cens:us (ui) Hind Nagar Colony and tQwns fo.r the 1981 Cerl!;;us, viz. Sukhmalpur Nizama- P.A.C. Area 0.0. 37 changes had also to be made due to some villages Name of Urban A51dltions in 1981 over 1971 having been partly or wholly included in the urban A"lom_er_a~l_o_n _____ areas. 1 2 8.29 In thiS connection, it is pertinent to mention 12 *Gorakhpur U A. (i) Basharatpur 0.0. (II) JatGpur Uttan 0 G. here that, on a close scrutiny of the tahsil maps bearing (III) !fumayunpur Uttari O.G. village boundaries with reference to the villaJewise 13 Varanasl iI.A. (I) ,Tl11sipur 0.0. area figures reported by the tahsils, it was observed (ii) 'Sheo4aspur 0.0. that in many cases there were obvious inconsistenCies (Iii) Karaundi O.G. i n the two. The maps were sent to tahsiIdars for re- (IV) Ashapur O.G. scrutiny and the position reviewed in regional,-level (v) Maruadih N.A. (VI) Maruadlh O.G. meetings wIth them. Some improvement was effec (VIl) Ramnagar M.B ted by this effort but much still remains to be dODe. (vm) Phulwana ct. I strongly recommend that thiS should be taken up ------~-- *Newly t~oatod as urban agglomeratIOn 1TI 1981. during the inter-censal period preceding the 1991 Census. With repeated attempts over the decades Staqdard Urban _Areas only, accuracy in delineation of village boundaries 8.26 A new concept of Standard Urban Area was will be possIble to make cartographic presentation introduced in 1971 Censui. This was followed for at Censuses more and more trustworthy and a study the 1981 Census also. The essentIals for the consti of urbanisation more precise. tution of a Standard Urban Area were: (i) It should have a core town of a minimum Location Code population of 50,000. 8.30 It is customary to evolve a sys!em of location (ii) The contiguous areas made up of other urban code numbers in Census for the purposes of con as well as rural administrative units should venient identification of each unit to be covered. All have mutual socio-economic links with the the census schedules invariably bear these numbers, so as to identify them with the a:(ea to which they core town; ancJ. J (hi) In all probabihty this entire area should get relate. The writing of details liky District, ta~sil. fully urbanised'in a period of two or three Village, Town etc. on every schedule and slip would decades. involve scriptory work out of proportion to its ~ttiity. • As' such, an easy method of location code to identify 8.27 Forty-one Standard Urban Areas were the schedules with their particular areas has been evol- _deterlIlined on this basis in 1971 and .some basic . ved. The location code is, therefore, a simple device data were pre~nted for 1951, 1961 and 1971 for such by which -every enuIlleration block, located in any areas and their compon~njs. _Similar data would admihistrative unif in the state, can be identified by also b~ presented for the Standard Urban A.reas of assigning specific code numbers for different ley~ls 1981 Cens\ls, the,idea being to present_basic data for of administrative units. Each such enumeration S~a~dard Urban ~reas for four to five 4ec~es so that block can then be referred to by a combination of the urbanisation process in, them could Qe studied such numbers. ' over time. I 8.31 In order to avoid any confusion and to 8.28 Two more Standard Urban Areas namely, maintain uniformity in the states on the subject, Fatehpur and Banda were added.-to the 1971 list bring through his Circular No.4 the Registrar General, ing the total to 43 in 1981 Census. While checking India spelt out a uniform pattern of assigning location the 1971 frame of old 41 Stan4ard Urban Areas with code numbers to be adopted by all the states. the 1981 Census frame on the basis af tahsil maps' finalised for the 1981 Census after adjustment of village 8.32 The location code had five -elements, viz., boundaries, it was observed that there were some State/District/Tahsil/Village/E.B. in rural areas and cases of villages which did not now fall within the State/District/Town/Ward/E.B. in urban areas. In Standard Urban Area boundary. On the other hand, order to distinguish TOWBS from TahsiIs, they were some villages which had not Qeen included in the Stan given code in Roman numbers. Thus 22/15/2/55 dard Urban Area boundary in 1971 fall within the (149) represented an enumeration block number }49 boundary finalised at the 1981 Census. This was falling in village number 55 in tahsil number 2 of pasically due to different delineation of village boun district number 15 in iitate number 22. Similarly. daries at the 1971 and 1981 Censuse!l. This necessi 22/5/II/7(20) would mean an, enumeration block tated some ma!ginal adjustqlents in sop}e affected number 20, falling in ward number 7 of town number Standard Ur~an Areas. Besides, some depictional II-in district number 5 of state number 22: 38 8.33 The State/Union Territory Codes ~ere de~i Panchayat in a Development Block. the villages.?f ded by the Registrar General, India, DistnctjTahsll/ next Nyaya Panchayat would be taken up, movtng Town codes by us and the Village/Ward a~d Enume in a zig-zag fashion all the way. The structure of the rator's Block codes by the respective Charge Officers. location code was explained in my Circular No.6. While assigning location code numbers to D~striC1:$, 8 37 However, the list of towns underwent some Tahsils and Towns, the following points were kept chan~es after the issue of Circular No.6 necessita ting in view: thereby a change in the oode structure of towns par.ti (i) New Districts, Tahsils and Towns created cularly in districts of Moradab ad, Meerut and GhZZl£ after 1971 Censu-s. bad. In district Moradabad 10ya Town Area wr s (ii) Jurisdictional changes in District/Tahsil added to the list of towns afterwards when it wa5 effected after such new creation. declared to be a Town Area vide State GoveI1'ment Notification No. 8994fT/IX-l/79-42T(1)/77 dated (iii) Merger of wholly/partly village(s) in different December 10, 1979. Subsequently, KaHa and Mal towns/cities. yana Census Towns,were declared to be J_Derged in (iv) Updated list of towns received from the Ghaziabad M.B. and Meerut M.B. respectIvely by a State Goverument. State Government Notification. Firstly Kharkhoda T.A. was allotted code number in District Ghazia tate Code bad which was later on shifted in District Meerut, 8.34 The Registrar General, India listed all the as being a town of District Meerut. States and then Umon Territories in alphabetical order for the purpose. Uttar Pradesh thus, was Tahsil Maps .lssi gned code 22. 8.38 As mentioned earlier, the responsibihty District/rahsil/Tolf D Codes for preparation oftahsiI maps was reaIIy shouldered by the map s~ction. In the first instance, tahsil mrps 8 .35 Th districts were assigned code numbers were sent to districts for marking development blocks. starting fe.) north-west to south-east but keeping nyaya panchayats, towns etc, keeping in view the in view th geographical contiguity within each present jurisdiction. Thereafter fresh maps were administrat division. In the same way every prepared and sent agam for assianing viIIuge code tahsil was erialised and numbered contiguously numbers. This was a tedious' exercise. Teams within the district commencing from number 1. from the Map Section and Planning and As regards towns, these ware arranged accordiag CoordinatIon Cell of the Directorate were sent to their population and numbered within each district. to each district several times. The represen HOWl::ver, constituent units of an urban agglomera.tion tatives from charges would come late Or not at all were assigned code numbers just below it, though even though the programmes of each team Were separately. In order to distinguish between towns· communicated well in advance. Several of those who and tahsils, the code number for town') ware given did, would send maps back without removing mistakes in Roman figllres. However, the third elem~nt,. pointed out. The problem was further confounded that is, ward number In each town was assigned code by the maptitude of our own staff. There were number in arabic numerals. several instances when the Map/p & C people gave Village Code contrary advice. 8.36 A revenue village together with all its ham Village Reiister/Town Register lets, whether p;)pulated or unpopulated, was taken 8.39 The~e are In effeot village and town lists to be one ufut for the purpose. Accordingly, every giving oode numbers a.nd number ofenuIDerator blocks "uch village was assigned a code number within each alongwith the vlllage code number ofpre -census . .village tahsil. Villages were given code numbers in a zig Registers and Town Registers were got prepared lU zag (serpentine) fashion starting from the north~west quadruplicate, tn the proformae shown at AppendIX point of the tahsil down to the south-east point. XXI. For facility of presentation of primary census abs tract, development block and nyaya panchayat wise, 8.40 All efforts were made to ensure that locauop it was ascertained that the numbering of the villages codes were indicated on all the schedules and forms. would be comiYreted within the first development Special emphasis was laid on the subject durm~ the block before proceeding to the next one. In the train~ classes at each level in both the operatIons. same fashion only after assigning the numbers to all To fa~ilitate tbe work, rubb~r stamps bearmg sta te tbe villages of the first (north-western most) Nyaya district/tahsil 0 r town codes were got prepared in the Charges Cor affixing on the schedules before hand. urban charge and urban special charge. Charge This worked successfully. However, despite all registers were required to be prepared in triplicate, precautions stray cases of omissions and mistakes one for Charge Officer, another for the office of the could not be avoided. These were noticed partI Regional Deputy Director and the third one for the cularly at tabulation stage which posed a great pro Headquarters. - blem at times during processing. 8; 43 It would be necessary to spend a little mOre Charge Registen energy on the preparation of charge registers. In 8.41 Charge register is an important means of big~er urban charges, these were prepared very care control in the hand of Charge Officers. Basically, lessly. Another problem was their preparation In it defines the supervisor circles. the enumerator blocks tripliclte. While one copy was well prepared in therein and the persons incharge. They have to be most of the charges, two additional copies presented prepared for each operation. They also include a lot of problems. The third problem was incor inform:l.tion on population, number of households pHation of special charges in the charge register. and number of occupied residential houses for post Locltion code numbers were also not properly given op~ration use. The preparation of charge registers in mlny special charges. Lastly, columns relatjng was dealt within my Circular No.8 and 10. to p:Jplllation etc. were not filled in a large number of cases after the operation was OVer. A lot of this 8.42 The format of charge register for tahsil problem could be attributed to postponement of charge. forest charge and special charge (rural) was houselisting and lack of preparatory period for kept the same. A different format was adopted for enumeration. CHAPTER IX ENUMERATION A:GENCY The Census hierarchy is given in chart opposite. trates (Finanoo and Revenue). In one oa'S!) in Hamir It is self-explanatory. I w~l, h~wever, like t~ deal pur, Di1tr'iot Development Ofti~r was m~e the here with the various problems faced in carrying on District C"n 41 42 charges Irrespective of th~ir S1.,,":. It was only i 9.10 While there WR:; no probl(rn III 1he ~ ppoint Municipal Corporation and Meerut that the Urban arC) ment o.f supervisory personnel, there were djfficulti(s a was split into several cha.rges. In the Mahapalikas, in Io.cating and appointing supervisors £nd enumer~ Sahayak Nagar Adhikaris and Assigtant Engin~ers: tors. The requirement for the field staff Vvorked out functio.ned as Charge Oflbers. As per no.tificatlOn, to roughly 36,000 supervisors and 180,000 enumera o.nly the Sub. Div. Officer was respo.nsible fo.r the tors. The enumerators were largely chosen from entire area o.f the tahsil. Ho.wever, o.n finding that amongst the primary school teachers, lelffipals &li.d several town areas had no bakshies while some o.f th~ panchayat sewaks (Appendix-XXID). By end bakshies were not co.mpetent eno.ugh to. handle the large, lady teachers were not appointed in rurd work or were not wIlling to work, it was, latcr on, areas. Because of this, in some tahsils shortf ge of decided to make Naib Tahsildars, incharge o.f th<' enumerators was reported. The supervisors c~me ontir~ N. T. Circle. from GrBmsewaks, Kanoongoes, Head Masters of primary schools and assistant teachers and h¢ed 9.07 In order to. improve supervision, the Blo.ck masters 'of senior basic schools. In some tehsils, Development Offioors were apPo.inted a.s additional gralI)sewaks and the assistant teachers of senior basic Ch'lrge Officers. In fact, the block wa~ made the schools were apPJinted as enumerators. Representa focus for training and supervision. All, the Naib tions were received. In some cases, lekhpa]s were Tahsildars, S.D. Is. and' A.D. Os. (Statistics) were made supervisors and there also, representation notified as Assista.nt Charge Officers-ror their respective came. -Suitable instructions were alrerdy ir.cluded jurisdiction. To. strengthen supervisio.n in the urban in our circulars. On receiving such repr (f(U!fT,(J ~ areas, Assista.nt Econo.mics/Statistios Officers were these instructions were repeated. In a few Cafes notified as Assistant Charge Officers. In a number of te2chersof hjghe~ secondry schools were 2.1SO 2 ppointed districts, all the -A.D.Os. were used as Assistant Charge as enumerators with Nagarpalika stf if e_s supnviwn:. Officers, each handling 4-5 supervisors. This positio.n was rectified to the extent possible. Ho.wever, teachers of such a school in SandHa t2hsil 9.08 In a large number of Sta tes, the reVenUe sub of Hardoi were quite outraged and refus¢d to be division is coterminus with the development block. reconciled. They alleged that the young executive Cmsequently, they have a manageable charge. I offiCer of the Municipal Board had done that on a Iso deba ted the lea sibilil Y 0 f ha ving the rura 1 charge purpose to spite them. a t the development block level. Then, considering the Identity of (he reVenUe sub-division and the effecti 9.11. While there was hardly any problem in the ven!~s of ~h~ rev~nu~ hierarohy, I fin'tlly oP~ed for rUt-ll areas, there was a lot of problems. in locating the tahsil as the unit for rural charge. field workers in bigger Municipal Boards Hnd MunicipaJ 9.0! Th~ Block Development Officer is a higher Coqrorations. By and large, the" strergth of bl'sic paid officer tod~y in relation to the T",hsildar. There education staff in the urban areas is 1/5th or J/6th were representations from some quarters against the of the intensity in rural areas. To I'dd to it, they are B.O.Os. flluctioning as Additional Charge Officers. also better o.rg'lnised. The Municipal Board staff On the other hand, the Tahsildar of Rarnpur district is alsO insufficient to bridge the gap. Likewise, they went ahead and supp')rted this demand. Altho.ugh, are also not moved very much by the importance of I h'ld no working problems later, the strte suffered census. We were, therefore, forced to recruit a in resp::ct of the clerical support to the rural charge large number of state/central government staff which OfficerS. The clerical staff was provided for a rural was equally if not more disenchanted wi1h census. charge. Therefore, states where the rural charges were smaller, received better support in this regard. 9.12 In all the Mahapalikas, as also some of the In Uttat Pradesh, on an average, we have four deve Municipal Boards, the basic education staff was also lopment blocks per tahsil. I had pressed that the no.t willing to work. We succeeded in persuading olerioal support may be given in rela tion to the number them to work in Agra, Allahabad and Kanpur both o.f development blocks; but J did not succeed. It in houselisting and enumeration Varanasi teachers "Will be useful to persue this matter well in advance in did not wo.rk in ho.uselisting but with the effective the next census. One upper division clerk and one intervention of the district o.fficer as well as the lower divisio.n clerk, at the tahsil level, were inadequate Directo.r of Education we could bring them round for to handle the heavy work load. Altlfuugb, these enumeratio.n. The Lucknow teachers did not work chaps worked round the clock, the in2.dequacy of at all. In Bareilly Municipal Board also the teachers staff was reflected in the quality of charge registers, were not WIlling. They were p~rsuaded to work but distribution of material etc. wanted a helper for house numbering. They stated 43 th1.t th~y WJuid not me GERU'. Anticipating this Director,in sheer frustration, issued a notice under k':l i "f :J bj::ctlon, an order had alrea,ly been placed the Indian Census Act to the Rc'g end P,cv emi Fund L)r bl ick wax crayom to a Calcutta fIrm. At thiS Commlss'oner, Mr. SethI. He W~'.s fune lIs. I stlg" th~ h::n;;listlng was p1stpmerl. Wh~n the went and saw h'm myself. Hl: dId net go threugh the :1 ,u,;ht '1g wa~ actu1.11y uniertaken in Sept~mber usual etIquette and Gff.~red h'msclf fu arrest. I O;t ,b;r, 198;) th~ teach-O:fs ag'1.lU balbd. _Wh~n had to summon pJl my d'pkmatlC skll<, to paCIfy p ;:'"'-:.ll~lOn fa lb:l, the DIstrict M:tgistn.te was forced him. U" had been sp'c1ally sent to Kr.rpur and In tv t,lke aet'on agllust th 'ir leadcr~ un.~er the Indlan the few months h" kd been lllchrrg'_ hrc n.ecCfccd C:nms Act. Fortunately, thiS dtd the trick ~.nd. there 1U Insttlling seme ellment cf dl~c pI H. Hl ftIt w;,'; n) r;;p~reusslOns lU the state. Howwe/, the th:1t dC'plcyment of hIS st3.ff in lelt~US We dd put the -;:C.ntiw oHLer of the M'In'clp 11 B01.r.i b~c:l.me ~. cIcek b?ck. Hc~ he.d abc t:t tW(' Y"ars t, retIre and c1"nl ty. T:l'! L)c'\I·S;lf-3:)V~rnm;l1t M _11stcr, had hiS w,fe gi1.lnfdly cmpkycd 111 Dclh!. He was U.P hzded ffom Baf0111y a!l.: th'.: teaclrrs compL~in wllllI:g to resign and resJde w_th h s \v fc. I am glr.d eli to h1m about the eX';c'Utlve dlkcc. H·; wa.'> to say that he was suffi::lently me llJ£ed to e ffr r rr,.e al"w;j of h'3 dUtl:;s. Orj'::rs of h'5 P:JStillg te-ok and my Deputy DIrector a cup of tea. He agreed gJm~ tlm~ ani th~ r~plac~m~nt t'lok qu.te; some tunC'. to relIeve staff If h!s bess in DelhI gave perm1ssicn. The R-;gistrar General, Ind'a also p jehcc' m. Hcw 9.13 The p-lm1.:y seh -01 teachl'rs p:.>sec some ever, th:re was no sHccest> and w(' gc t no v( lunteers p~obbms 1n th'.: rural areas as w:ll. The ~5~eted from the office cf the P£oviG('ut Fund ('cmmls dlstr:cts were Lllcknow, Van'.11a~l, Uttarka~hl sioner, Kanpclr. Bd'1)~, F,lt~hp'lr ani Blll'1. H')w:ver, they were p)d'.la i~ 1 to w)ik Tho:: m un c~ntent!en <'f the 9.16 The p~,sitlcn of the State Ge v' rl1mcut WJ,;; If 1 t~1.'~h~t5 ut,~fdct!0n of the ollLtanlll1g d'?ma:1c s offices was no better. In ~p te (f ~tnct instn:ctlens by th~ State Governm~nt In Va. ·an:'.~l, sCome frem th~ St~.te Gevernmcnt ane' als(, ccnce&S'en in t-;'l-::h~:s th·~y also comphiae,i th1.t h'l.'.; not bsen reg'llar office heurs. the av?!I~.b.Uy cf E.i~:ff wrs net g V~::1 h);l)rarmm fJf work m 1971. It wa~ Lund up to the mark. The;re were fermal p_'cttst fr0ID th1.t th~ir compla.int wJ.s cO_'rpet, but the h~nnrarium th<: consolldatlcn and sales tu.x authcnt es. Wh,le had b;;en w;thh~l1 fJf bad w:Jrk th~re were empbyees who were nct wIllmg to kaye their seats f:-om the office, some emplcyces just 9 14 M'ln'cipl.l Board k\th'Jrites w·~re J.1>0 CO!1- van1sh~d. Th'.::y hac', neithr:;r Hllcrtec to the ch(:'1 ge cernd ab)ut th~lr own work an 1, therefore, w:re n0t officer nGr were th,.':y p e3~nt h their c.wn dlices. keen to Inv.Jlve th'm cntirf' shff In co:usus. At som~ Ono:: rCp1rt was that s~lch employtes harl not'fied phces, I [.:lUn:i that none of the mU;)'lclp.d empkye:es their oflb~r thlt C~:}sus woull cont1nue tIll March, had b~en apPJint·~J. Th:s wa,; ells.overed by me 1981 and they wcdd rEp::-rt f~r duty crJy afta. duri!lg my m p~ct;-:m3, wh block !lg into tlleir When all effvrts to go;t suffic1ent number of Govcrn p:01:>lem3 in t'Cl.tlllg e,lumcrat1cn staff. CC'mp;>.~-ed m~nt empbyccs fil.,bd, 1t was dc-;ided to dfpky C,Vl} tJ th~ P.lC1:lv pl.tlOn of staff L'om ether g~vernm'l1t defence volunteers. I held meeting s 1U all KAVAL offi~~s, \u'I:JIV)m~lt of .:rna,c1p.ll staff was mere thnn towns w1th the OVII Defence AuthcrIties and area sJ.tlsf\ctory. wardens. EnthusIastIc cccperr.t;cn WC'.s fcrthc( m ing in the m:.etin s. HGwever, net many vcluntters cam~ fOfWU-d fJr train1ng a:1.1 fewer actu2.lIy werked 9 15 Th~ real p~obl~m was fa,ced 1U gett"ng d'lfI_1g el1um'~ratlcn. h \Cds from va~ious g')vernmoo:nt offices, sp~cIaIly in KI\. V I\.L towns 3.n:i Meerut. The Registrar Geneial, In ita h.l.J '.vritt'~n to all th; Ministri~s. The MlUlstries 9.17 FlUally. it was decicecl to deploy unewplc y ~n i Qbl g~i by l;,·.l'ng tn>tructi()ns 1::l all hearts of ed graduates. The Rrglstrar Geneml, India kndly depJ.rtm~nts :'1.'11 h'!1. is ef offices. I also wrote demi ~reed to appcint, in ac"ance, the tabul~+icn stril Offi~l3.11y to all C::lncerm:i. My D::P:lty DlfeGtors ill these towns. The regular staff 1ll my office was M.l, I, myself m~t ffi'V1Y ofth;~e Oentol Government also pl'essed into service in Luckncw. In Kanpur, H~,d~ of o.ffi;JS Th~y w::re al'io symp'1.thetic but even this C1..:1 n<'t relieve the poslt!Cn completely anr., I mT;t ny th \t pl.:-t C pJ.t:on nf Centra} Gevernm"nt th~reforc. a let of unemployed graduates were press ,':1.[ 'V\, v~"y I'll b;l'nL' 'VillI-: ht~ w~rc rcc~]\,ed ed into sev ceo The details are ~ Iven in App~r£ lX fo:n 'IJ. '1'):15 C'!1t 'al offic.'s, th~ 1U:,1 w.ere net avdl XXI V Som~ of th 'SC' nnC'mpkyu 1:)', 1. U2.1cs wC'rk :\bb. Th; 1 Jt, W:ic 11s') rcvls~l rft~n un::'tcr the ed With a great ZEal. One such (~numC"2tor handed l'1ft'.l'!nc~ ,)f t~~lr ,;taff In Kanpur, my Dep:lty over 30 bkcks durin; heusel ~tlUg in K[J1pur. 1 DCOUP'S;'-8 44 There were a large number of enumerators who had start WIth unemployed graduates wellmtJme. Smee done more than 10 blocks in' housclisting. At the they would be working whole-time, they would tim~ of enumeration, the number of blocks had to cover a much larger area and thus get a larger sum be reduced The city census officers were advIsed as remuneration. Since the number of enumt:ratcrs to entrust not more than 3 blocks to a whole-time would be much less, the government could also thmk enum!rator Since nfusion of unemployed graduates of paying them hIgher rates or in the alternative, was made a s a last resort in January, 1981, they they could be compensated by giving them lump ~um could not bi handled as well as they could have T.A. A smaller work force would also be e2.sier been. At the next census, it would be necessary to to h?ndle. CHAPTER X HOUSELISTING OPERATIONS Back GroQnd tions in 1980. The only difference was that in the previous censuses, the operations were conducted It had b::en decided to conduct housellsting entirely under the leadershIp of the Registrar General, op.!rations simultan~ously through out the country. India, but now, the technical supervision for Enter The pmo:l tentatwely fixed was February, 1980. prise List would be forthcoming from the Director HJwever, owmg to reasons beyond our control, the General, Central Statistical Organisation. op ~rattons had to be staggered in several States. Th~ inItial p:)stp::mement was due to mid-term Lok 10.03 The above decision brought forth active Sabha eleotlOn in January, 1980. It was decided to involvement of the State Statistical OrganIsations. coniuct the houselist1ng in April-May, 1980, How The Director, Economic Intelligence and Statistics, ever, the op;:rations had to be p:Jstp:med again Uttar Pradesh and his officers at the state hea.d because of Assembly election in May and were finally quarters, Divlsional Deputy Directors and the held in September-October, 1980. In snow-bound District Statistics OfficerS/District Economic Office IS areas, however, the househsting was conducted in down to the ASSIstant Development Officers (Sho June, 1980. In retrosp~ct, the p:>stpJnement tistlCs) In the development blocks were all actively of houselisting op~ration from Ap:il to September involved. The involvement of this organisatIOn, as October proved to be unWIse. FIrstly, it left us 1 menttoned earlier, was extremely useful; in fact, hardly four months for preparations for the final critIcal to the success of 1981 Census. While the count. Secondly, since house listIng basically provides canvassing of the Enterprise List dId not make any a frame for enumeration, there IS no time reference change in the content of the houselisting operations, therefor. Whtle it would be advisable to conduct it did prOVIde an extra honorarium of Rs. 15.00 to these operations in a limited time span through out the enumerators. the country, there is a lot of flexIbIlity in handling houselisting operations. We could have allowed Preparatory Steps som~ mJN t11m and let the operations be completed 10.04 As per original schedule, it was planned by June. to convene a state level conference of DistrictjCity Census Officers in the 3rd week of October, 1979. BCOllQmic CensQs In view of the burden of drought relief and election 10 02 Th~ other imp Jrtant feature of the house work it was felt that a state level meetings would not hst1ng op~ra1!ions in the 1981 Census was the can be advisable. Therefore, divisional meetings we:e vasstng of an Enterprise List alongwith the House held from October, 26 to November, 13, 1979. List. Central Statistical Organisation had con These meetings proved very useful. Since visits to ducted an economic census in 1977 with a view to all the districts in the state were time taking and un remove data glps in the unorganised sector of non duly strenuous, 1 resorted to divisional meetings on agricultural economy covering unregistered manu a regular basis. In the initial rounds of these meet facturing, trade, transport, and services. As the ings my attention was confined to preparatory steps economic census covered a large number of units for the house listing operations, namely ; prone to high rates of mobility, mortalIty and varia (1) Appointment and briefing of Charge Officers tion in out-put and turn over, it was to be repeated about the 198'1 Census Schedule and task s every five years. However, since the countrywide ahead. h:msehsting op'!rations were to be condUcted in 1980 ani the pJpulation count in 1981, it was not (ii) Preparation of tahsil, town and ward maps. c()usldered feaSIble to organise the second Economic (iii) Ascertaining of Nyaya Panchaya t boundanes. Census in 1982. Secondly, the Enterprise List was (iv) Identification of Urba. Agglomerations. basically the Establishment Schedule which had been canvassed in earlier census alongwith the Houselist. (v) Allotment of code numbers to villages, It wa.s, th~refore, decided to organise the second tahsils/towns. Economic Census alongwith the houselisting opera- (vi) Preparation of town/village registers. 45 46 (VI:) Cl,'·vJ.tion of E:1u;n~rator Blocks and allot h r)llsehstm2 was prescribed to be twice the size of m::nt uf ~.)de nUlnb~rs thereto. blccks fOJ enUmeratIOn i.e. a pcpulatlcn of 750 for (VllI) Ilenuficatlon of p~rsollnel for app.)mtment rural areas and 600 for urban areas. In order to as .c:num~r IO. \Jj Only nme R~glonal Offices Were sanctIOned 10.09 A aeviatlOn of ± 15 per cent was allowed from during hou"dbtIng. I hal requested the Regi&trar the prescnbed size to give fleXlbIl,ty in fixmg well General, Indla:d sanction lhree more Regional Offices defined boundarIes. However, one came across a to COver all JIV SDl., H_)w.;v~r, that was not p0sslble. large number of blccks whIch wer~ eIther too small Th:)'[eaft~r, ekven m He offic.::s w.:;re sanctlOned from or toe big wlth;)ut well-defined boundaries. This C'ctober, 1980. ThiS \las based on the norm of one specially happ~ned in our blgg~r towns. The main R~g )nal fJ.b'lhtlJn O.no:::.; f0r five mtlhon PJPula reason b~mg lack of up-to-date and correct tOWl> maps tlO,l L1 a ,tat~ I b ULt.lr PJ aJesh, one must have the as well as lack of famillanty WIth the area. To facllit, te active aSsIstance of Reg1cnal Offic~rs. The p;epara carvatwn of the enumcrc.tor blccks III bIgger towns, t Jry st~p3 dr"': ~q l.llly imp Jrtant. It IS, th·.::refure, illstructlons wele Issued fur usmg the UUlt of mohallas. ab.)Jlutc!y nxessary that the R,_g onal Officers are The Identity of mohallas had remaIned ill tact m thc put III PJSltlon, ill:Jre or 1<':S5, slmul'aneously with the face ofchallg'ng w. rd boundarIes. They were adVIsed Director of Census Op:)ratlons. Early sanction of to carve out atleast one blcck for every mchalla. these pJsts IS dso necessary fur alloNmg suffiCient tIme While an effort was made to enforce thIS decision, it to man th';ln. Gt:ttmg ~UItablc and w:llmgs officers on app~arcd that the munIcipal authontles did not have dcputatlcn IS a \<::ry time takmg piocess., We had to suffiCIent motlvatlOn to unp~ove upon thelI earlIer senJ offiCials fcum the Dm;"torate III uI1manned dIVI shp-shod work. sions. Such sup;:rv\~ory effort from the headquarters 10.10 After the comp!ctIOn of the c rvr.tlcn cf can only hw~ a llmltej sUcc~ss. blocks charg~ reglsters were to be prepared m order to define sup::rvlsor CIrcles and enumerator blccks and to ~arV.lti1)l of &l.l nuation Blocks give th~ nam~s of sup~rVIsors and enumeratcrs. In 10. )7 III ~gld to p:~plTatory step" p-'cparatlOn larg;r urban areas, thIS werk was also not upto the of maps, IdentlficatI0n of urban aggIOII1el-atlOn, prepa mark. The block boundaries were not prcperly ratIon of VIllage lIsts have aJrealty been dIscussed III defined. Teams of offiCials were also sent from the tarlipr chapters Here I would like to diSCUSS the headquarters dUrIng the months of June-July to reVIew rroblems III carVatioll of enumerator blocks. DetaIled and streamline the work. lllstructions were spnt to dIstricts m thiS regard vlde CIrculal No 8, oatee Nov'lllber 19, 1979. The Training of Trainers cnumen. "or'~ blcck for ccnsn~ parpo~e I~ the baSIC uml 10.11 The fir:;t State: level confcrel\Ce of the District/ ()~ ~peratl~:;_'i ':he size of the euu'11era10t's block for City Census Officers, Addltlv!lal DiStrIctS/CIty Census 47 Officers and Charge Officers of Nagarmahapabkas was. ki'~dly inauguratea by the then chIef Secretary was held from 28th to 30th of January, 1981 In TIlak Shri R.B. Saxena. ThG first day wa.s spent in going H~ll, S~cretanat BuIlding, Lucknow. The conference through the ins~ructions while the I>ecor:d day was wa.s m:1uglrate.l by the th~n ChIef Secretary, Govern devoted to plactlCal training. ment of Uttar Pradesh, Shn D.K. Bhattacharya. The Reg:Arar G~neral, IndIa, was also kInd enough to Training of Field Workers pJ.rtrclpate 10 the conference. He thanked the Chief S~crC'tary for the help gIven by the State Government 10.14 Distnct Census Officer~JCity Censu:. Offi. C"IS 10 ocglDtsmg 1981 C~nsus and gave an lliummatmg wer(" requir~d to orgaLl'l.e thlce days ttair.ing mtroductlOn to what lay ahead. Deputy RegIstrar Q:1mps for charge officers/ addltionalJas:;istant charge G~n'!ral (C & T) Shn K. K. Ch3.karvorty and Shri offie:;)rs of heIr dIstrlct/toWllS. They were aho a<;kcd Nltrajan of the Central StatIstIcal Orgl.ntsatlOn also to gIVe a Nund of refresher tralUlUg at the tahsIl asslsted us through out the conf'~rence. The Reg strar level. Detaikd InstructIons were sc:nt tv dIstricts G~neral, In:ila, rIg1ltly emphaSIsed the need to gJ lide Circulat No. 11, dated Decemb0r 7, 1979 for the th,Jug'l the lUstructlon booklets word by word. This traIning of fi31d staff and ollber" The greatest we prooeeded to dQ on the 28th and 29th The read cmph1.S1S was la.id on verbatim r"".dmg of m~truc'ion ing of the lllstructions on fillIng of th;: e-nterpnse lIst booklets 1U the first round of traming and mtensive turn~d out to be a little dIfficult because the ImpressIon plactlcal work out m subsequent rounds. Roll up was very dim. At my request the Reg strar General, boards. of househsting schedules were prepared and In:lta was ktnd enough to get It rep.lllted. In the di')trib'Jtcd as traIn lUg aid3. B;:came of tho lImItatIon mJrnmg of the 30th, all the officers were taken for of SIze th) pnnted words could not be very large and p'JDtical tramlUg m the Lucknow MunIclpal Corpora I found that they could not bJ rt.:"1.d by traInee:, m the ttoU area. They were diVIded into 15 teams. It was back rows. I abo found that people could convenien insIsted that each officer drew a nctional map, tly look at the punted scbedules in the instruction prep3.red a lay-out sketch and did hcuse numberIng booklets and follow the tramer. WIth a view to bef()re filling up a few p:lges of the h ousehstI,lg minimise movement and induc.e a proper class atmos~ ani th~ e lterp:lse lIst. I alongw,th Shri Chakarvcrt)' ph0re the ch.. rge offic.:rs were mstructed 10 keep tbe D ~p-lty R ~g'strar G~nernl, w~nt round all th~ selecte,:'. tlaming, cla~s size to 40·50 only For pract!cal bbcks and kept th~ offic~rs on theIr toes. We got t, ammf'., it was made oblIgatory fOI e\elY trainee to back in the afternoon to Tllak Hall for removal of go round the chosen tlaining block and prepare the diffi~'.lltteS an':! doubts. Th~ Chief Secretary was kmd natlOnal mlp and 13Y out sket( r with numberIng of enJuglt to g ve mJre tim~ at the end of the conference. houses oofJr'~ fillmg up sch';)duh;~. H~ invited CJrtlln~nts from the officers In regard to 1015 In the urban areas, tre charg~ officers were op~rational dJifi;ultles. H~ was good enough to required to draw up the If traming programme ward assure that any difficulty bloug~t to h's notice wc,uld wise, while ;n th'~ rural aN as, th~ d.Nclopm~nt block b~ bo1cj JUtJ. ThIS g,,!atly help;;d in bUlldmg ~p the was made the focus for training. The Block Deve ... morale of the jistrict ltvel cffiGers. lopment Officer was required to arrange atlea:;t three 10lations WIth 3-4 Nyaya Panchayats attached to each 10 .12 Som~ of the offi-;en were doubtfld of the need f..)r verbatlm r<.!a.ding cf lU'ltructiom whllJ it was location. The number of enumerators in a deve .. being done. M9ny of tl'em were also not very keen lopment block ra.nged from 150 to 200 Wlth 30-40 on a rlgorcus pracUc::!l work out. Many of tbem had superVIsors. It was also advised that a training class for s'Jpervisors should be organised first r.nd th m the been as,;oci:l.ted in 5J1O'. c~paclty or the. otller, with superVIsors would jom thdt respective enUlUcratolS. 1961/1971 c.)U~us bJing government SJrv,mts of long standmg ane felt t1)lt they could h"ndle :l.Lytpi(lg. I Three rounds of traimng were prescrIbed for the field workers. The first round wa, of two days aDd the (lID fla.d to S3Y that all tht'se n-:>ti')113 w;}re disproved second ane tbird rounds of one d"y each. Supervi~ and lU tre aftern:>on sessbn of the 30.h officers were convmccd of the lffi-;:lcy of th'! traming method. sors would bave four rounds. Thf speoi:::.l/forcst charges and smaller urban charges were attached to 10.13 Smce mON than six months had elapsed tahstls for trainmg. SlUce th..:: first oonference (f District/City Census Offi cera It was d ]cld0d to hold a refresher traIUIDL! for 10.16 For the first time 1L1 1981 Census, It was dec;ided to gi\'c T AiDA to trainee s. In order to avoid them m Tilak Hall on July 30 and 31st , 1980. Some of the Dhtrlct Census Officers/City Census Offief rs preparation of thousandG of T.A bills, special ordcra ad aho ohapger in the meanwblk. This conference were issaed by the Government of Uttar Pradesh for 48 providing 3 training allowance of Rs. 4.00 per day in floods while in Moradabad and Aligarh due to serious the hIlls and Rs. 3.00 per day in the plain. This pro Ia wand order sltua tion. In the KAVAL towns, vision m:!de the field-workers qUite happy. tramin!; schedule was tardy owmg to the sheer pro b lems of lU3.nagement and gettlng the field workers. 10.17 In most of the districts, fiest and second rounds of training had been conducted before the 10.21 Some of the lapses have already been men postponem;:nt of houselisting to September-Oetob:;,:r. tioned. At several places, It was noticed by me that Smce a lot of tim~ had elap3,~d, It was decided to all the fidd wo:k~rs for a devdopment block had been impiem:nt the fi~ld tramL1g schedule again. Another called together for trainmg. In fact III one tahsil, I important reason WJ.S the decIsIOn to appomt on;;: found that enumerators and superVIsors for the entlfe enumerator per block. Since only four months were tahSIl had been called. The entire tahsIl compound left for organismg en,llmration after the houselisting was flooded with lekhpals, VIllage level workers; pan_ operatlOll'l, the Registrar G~neral, India kindly agreed chayat sewaks and pflmary school teachers. They had to the deploym~nt of the flll strength of fi~ld worbr~ no place to sit and there were not enough people from the hOllselistmg stage. in the tahsil to put some order in the proceedings. It 10.18 The first ro"Und oftra1Ulllg for t!llumerators was also noticed that the instructioIl booklets were was organised from AUf?i.lst 15 to 31st, the 3econd not read verbatim or that the first round of training round from September 16 to 24th with the houselisting had been hmited only to reading of Illstructions. commencing from September 25th. The refresher There were also complaints from field workers that a training of charge officers was conjucted In the first charge/addItIOnal charge officers had not reported at half of August in whIch officers from the DIrectorate the place of traming,. I also found III some places also p:uticipated. For emuring proper planning of the ,N',.llb Tahsildar and the Block Development field tramiN:, the District Ccns:J.s Officers/City Census Offic(!r takmg a back seat with the census clerk con Officers were required to bflllg copies of their tramlU§, ductlllg the traimng. programmes in pre&cribed proform:! in the State level conference. Charge Officers w;;:re abo required to 10.22 The shortcommgs noticed during the train- keep an a ttendance register. The trammg was gene 1l1g w;;:re immedmtdy communIcated to all districts. rally good and often the absence was eIther due to In fact, I also sen.. telegraphic instruction to District non-receipt of information or urg~nt offiCial work C;,!llSUS Officersjelty Census Officers as glVen be However, it was generally found that the nttendanc~ low:- register was. not being used to enmre additwual classeS "ALL INSTRUCTIONS MUST BE READ for ab3entee5. It was mry;tly fO'Jnd that fidd work VERBATIM AND EXPLAINED ON THE FIRST ers who were absent in til:! fir'>t Dual w~re called for DAY OF TRAINING(.) RIGOROUS PRACTICAL the second and third rounl. Slllce thes~ p~JplC) h:ld not TRAINING(.) TRAINEES MUST PREPARE NO b.!en b1ven the baSIC traming- they could not compre TIONAL MAPS AND LA YOUT SKETCH (.) hend what was hapP;:llIug In the 2nJ an'i 3rd rounds THERE SHOULD BE A TRAINING BLOCK SpeCIal instructIOils had to b;;: Issued to Identify such FOR EV2RY TEN TRAINEES (.) IT COULD BE A absentees and hold sp~cIal classes for them. HALF SIZED(.)" 10.19 By and large, It was found that the Illtima 10.23 The Deputy Directors and officers at the tion of the trallllllg plOgramme had not been given headquarters were continuously on the move. In welllU advance. The Ca:uge O,1kers had also been order to ensure proper filling up of the schedules in3tructed to dlstnbute lnstructlOn bookbts before the HlstructlOll5. were also issued that the enumerator' commencement oftbe traiulllg programme. However should be reqUired to fill some houselist and enter this did not generally happ.m. In most of tll' prise list forms and they should be check!ed by the places the Instruction booklets were distllbuted In thee superVIsors and assistant charge officers and then alone first round of tralnmg, WIth the res!llt, most of the the enumerator was to fill the schedules for the entire first day was lost. block. 10.20 Law and orJ~r pDblems and floods hit the smooth running of operations. Months of August House Numbering and Houselisting and September :lre r<>-iny months. ConSIdering these 10.24 ln 1966, a decision was taken to enforce a odds and t~e vastness of tae State, the conduct of permanent house numbering scheme. An effort was training for houselisting was satisfactory. In Etawah made by the State Government to enforce this scheme and Jaunpdr tlaining had to be postponed due to In urban areai; without much avail. According to the 49 instruCtion!, m enumerator had to prep:J re a layout census operatIOns. An additional post of Deputy sketch in -whtch all structures were to be located and ChIef Executive Officer should also be provided for then numbered tn an intelligible order. In urban City Census Officer's work. areas and staff colonies the buIlding numbers affixed by the local authodties could be adopted if they 10.27 While the various concepts and procedures were satisfactory. In practice, it Was found that were well explained in the instructIon booklets this exception for urban areas created a lot of diffi during the field visits it Was revealed that some field culties for the enumerators In some dIstricts, the workers were stIll not very clear. I had also drafted District Census Officers wisely took the decision that a manual for enumerators and another for super census building numbers should be given every visors, to take care of antiCipated problems. Some where. The difficulty arose mamly because of two common errors detected by us were: reasons, one, that the buildmg numbers given by the local authOrities were not always in sequence and (i) I,lcorrect recordmg of Village code numbers they were cumbersome. The second important and en!.lmer tor block numbers. reason was that there were a lot of structures autho (Ii) Incorrect understandmg of buIlding and rised/unauthorised, which bore no numbers. While census houc;e definitIOn the instructions took care of such situatIOns, the (Iii) One househst canvassed for two blocks or instructions devoted a lot of space to house numbering 20 entries against lO on one page of the exceptions in urban areas. They went in detail about houselist. various situations that the enumerator migl-tt com e across. It would be better to ignore these excep (IV) LeavlUg blank space or page 1U between. tions and apply house numbering procedure uniformly (v) Housel!sts filled separately for different ham lets in a block in rural areas. 10.25 Anticipating that enumerators in urban areas migllt object to the use of 'Geru' for house (vi) Improper understanding of enterprise out numbering, we arranged black wax-crayons for muni side a census house in Col. 7 of the houselist. cipal corporations and municipal boards. The tea (Vll) Confusion about the understandmg of an chers of Bareilly Municipal Board wanted a helper for enterprise itself. house numbering. They continued to press this (viii) Incorrect totals. demand even after the wax crayons were supplied. The Di'ltrict Magistrate had to resort to strong (ix) EnterprIse indicated In the housellst not action against their leaders. The teachers gave brought on the enterprise list. anxious moments in almost all the KAVAL towns. (x) Use of training mrterial for actual house As mentioned earlier, they were persuaded to work in listing. Agra, Kanpur and Allahabad. In Varanasi and 10.28 The Registrar General, India had issued Lucknow they did not work at al1 in the h0uselisting. instructions for preparation of abridged house list at 10.26 Non-synchronous houselisting operations the charge level, after the houselisting operations were were conducted from June 3 to 24, 1980 in snow bound over. The abndged houselists were to be prepared areas of Uttarkashi, ChamaIi and Pithoragarh after the houselisting block had been split, wherever distnct<;. Elsewhere the house listing operations were necessary into smaller units in accordance with the conducted from September 25 till October 15. Non enumeration block size. Since the time at our dis synchronous operation<; were completed on schedule posal was only four months, It was decided to get in June. However, n"rmal operatIOns dragg~d on in the abridged houselists prepared by the enumerators Moradabad and Aligarh because of communal tension themselves while preparing the duplicate houselist. and serious law and order problem and in the KAV AL This work was done conveniently without any extra towns and Meerut because of problems of manage time. The only problem later was the preparation ment. In Kanpur the City Census Officer was of abndged houselist again wherever househsting taken on deputation and posted as Deputy Director, blocks were too big and they had to be split into Census for Municipal CorporatIOn area so that he smaller units. ThIS work Was ltmited to less than could devote himself full time to this work. As 10 p~r ceD.t of the blocks. Whde spli'tmg blocks I had Up Nagar Adhlkari. he was so busy with his normal laid stress on carving out compact units. This dutie3 that he could not do full justice to 1m job as presented some problems spC'cially m large towns. City Census Officer. In large towns an officer of tbe The city census officers insisted on just splittmg th!} ran:": of Assistant Director/Dep'Jty Director of Census previous abnd;ed house list into reqUIred number of Operations WO:.lld have to be provid~d to oversee units. It was actually done also in a number of 50 c.a.S( s. In retrospect I feel that this ~hould have been ~peratiGU, it was i Menaed to g~nerate houselisting allo\\ed. It should only have been ensured that totals. On leceipt of Registrar General's Circular hous'! nJmbers were continuous. It would have No. 12, my Circular No 17 dated January 5, 1980 saved time and bother both Ind~ed, Registrar, was issued to all the District Officer, and AdnllUls Gen~ral, India's Circular No 10 also advised the trators of Nagar MahapalikCls, contaInlllg the detfuled same lUS!ruc~lOns re.[prding the abstractIOn of houselistlng Movement of Records data. For this purpose, separate houselist abstracts 1029 Detailed InstructIOns regardIng handling for supervisor Circles, charges and districts originally and despatch of househsting records after field opera ba,cd on enumerator's houseltst abstract were int tions were sent to districts vide CIrcular No 18 d~,ted roduced For the district, th're were separate h()Use January 5, 1980 list abstracts-one for rum! charges aid the other for urban charges. Separate ab,tract Was got prep:lfcd 10 30 The foIlowmg calendar was set for collec for KAVAL towns The reqUired u:.rmber of copies tIOn and transmi"sion of househsting record~ from of the above ab~tracts w::re got printed ccut~ally at field to my office .- the Dicctorate and supplied to the di,tricts according (I) Handing over of records by Enumerators to their need to Supervisors-October 15, 1980 (ii) Receipt of records in charge office alongwlth 1O.35 Great emphasis was laid on preparation Supervisor's abstract.-October 16-17, 1980. of abstracts at all level'), because these were going (iii) Despatch of records alongwlth Charge Abs to be the basic control figures for enumeration frame. tract to District/City CenS:1S Officer-October Morcovei", 1:1e total number of handicapped wa" 21-22, 1980. also to be determined from the houselist. (iv) Despatch of records along with Dlstrict/ A Comparison witll 1971 Population City Abstract to the Directorate-October 10 36 All the District Officers and AdmInIstrators 25, 1980 were addressed VIde Letter No. 1l02/DCO-UP/ 10 31 Whik sendlllg instructlOm It was made 49-79 dated June 23, 1980 to compare th~ houseltst clear that Enumerators would have to prepare three populatIOn of each Village /town with 1971 population b .lndks 'Ka" K!n' ani 'GJ.' for each enU'1lerator to sort out any abnorm::tl fluctuations. They were re· block, containin~ the tollowing records :- quested to investigate Wide fiuctuatlOns and find Bundl() 'lea' (1) N ~tlOnal Map -1 Copy out reasons therefor. The preIimlU'H), investigations (II) Layout Sketch -1 Copy into the abnormal variations helped us to identify (m) Hou~~list -1 Copy org:misatlonal defiCiencies, and UnIdentified populatIOn Bundle 'Kh,' (1) HOllschst -1 Copy specially in bIg urban centres. (ll) Homeh,t abstmct -I Copy Bundle 'G3.' (1) Entcrpnse h,l Provisional Population Figures (il) Ent~,rrIse lv;t 10 37 The statement showmg the district-Wise Ab,WI::' crLlde totals of p:)puhtion as recorded at the house 10 32 Besldes, un:lsed formo; etc. were to be !t,ting operattons (d~nved at on the basis of District kept separately In bundle Ab~tracts) alon~ with the p0pulation of 1971 Census is given at Appen,iIx XXV. 10 33 Th~s~ bundles were sent by the enumerator alongwlth his ab3tract to the supervls r. In turn super 10 38 The fig'lres could be finally sent to the VisorS, after th roug'1 checking of records, sent Office of the Registrar G~neral. India only on February these th,ce bundles of records t') Cl1clrg~ 0fficer, 7, 1981 a bit late because of the following problem In th~ CfJ.arge O'fi 'C:. charge abstract W.lS prepared ~tations wherefrom figures could be Intimated a bit 'Ka' bundle all)n~wlth the unused forms were retained late insplte of best efforts In the Charg~ for being med In the enumeration. 1 Agra M. C. 'Kh,,' bundle had to be sent to the !)I~tnct Offices while 2 Lucknow M.C 'Ga' bundle was s"n~ directly to District Statistics 3 Varanasl M C. Office fur furthel proce~sl1lg In suh,eq.lent step, 4 Lakhimpur M.B 'Kh:' bundle') were sent to th'~ DIrectorate by the 5 Moradabad M B a'ld Dlstnct CCU'>us Offi:;c') for f:uther prJcessmg. The 6 All ubran area~ of Meerut Dl~trJct inventories and ]abe 'lsed 11 send in} records were 10 39 As per crude totals househ~tin:; popula got printed at th,~ Directorate and s~nt to the dlstncts tIOn C'lm'! to be 114, 705, 556 for Uttar Prar' e~h. Gene: &tion ll11d Release of :~Guse!istjt'lg Tcid.. Agctimt thiS the final nfOcessmg of homclists threw 10 34 $;)')11 Jft'~r t;l~ :o:n_;Jletwn ()f hOlls::1J5tin~ Ul' a population of 115, 215, 732. Publicity 'Why Census' was made by me on 9-7-1979. In 10.40 Publicity played an important role right this broad~t all the phases of Census were elabo from the initial stage of House)isting. As mentioned rated with special emphasis on houselisting which earlier, houselisting in this State could take place was on coming. Thereafter, an intensive programme only during September-October, 1980. The Registrar of radio and T.V. broadcasts was invitiated right General, India had already initiated the campaign from July, 1980. The adv-ertisements in this States in India as a whole through Doordarshan, All India in different newspapers started well before September, Radio and Directorate of Advertising and Visual 1980. Besides, a huge programme of training of Publicity, New Delhi right in early 1979. This onumeration staff' running in to lacs covering different made the agencies active. They followed up by ech)ons of official agencies and disperssed in alrnooks inviting us for recording talks. interviews and press and comers of the states by itself lent a lot of pub notes for this State. The first radio broadcast on licity of tho operation. 1 POO'UP/82-9 CHAPTER XI ENUMERATION Enumeration in nDn-synchrDnDUS areas Df Chamoli, maps and layout sketches for split-up blocks. This Uttarkashi and Pithoragarh districts' waS cDnducted WDrk '~as not dDne satisfactDrily in several charges as per Driginal schedule with sun-rise Df pctDber 1, putting the enumerators to a lot Df difficulties in as the reference time. In rest Df the SUl.te, calendaT identifying blDck boundaries. Df bperatiohs had to' be revised because Qf PQst pDnement of houselisting QperatiQns to September Abridged HouseUst OctDber, 19S0. The revised calendar was circu 11.04 As mentiDned earlier,- at the time Df hDuse lated vide Circular NO'. 26. listing, the- abridged house list was prepared by the hDuselisting enumeratDr' alongwith the duplicate copy Re-carvation of Blocks Df the' househst. it is an impDrtant dDcument prD 11 .02 HQuselisting blocks were carved Qut viding a frame for enumeration and later surveys. Qn the basis Qf 1971 PopulatiDn with a marlc-up Df 20 Detailed instructiDns were sent to. the districts vidt! per cent in rural areas and 30 per cent in urban areas. Circular No. 20 dated February 15, 1980. Since the rate Df growth turned out to' be much larger than expected and u~identified chunks Qf populatiDn 11 .05- The abridged houselists were duly pre came to' knDwledge during the hDuselisting Dpera pared. by the enumeratDrs after houselisting. HDW tiDns, a review Df the blQck-size became imperative. ever, they' had to be prepared afresh wherever the It was Dnly in the urban areas that a sizeable precentage hDuselisting blDCk had to' be -split up. During field Df the blDcks waS found Dversize. In SQme -urba.n inspections, it was fDund that in many cases; -the areas, as many as 50 per cent blQcklYwere Qversize. This Charge Officers had simply split the abridged hDuselist was understandable because the urban rate Qf growth to save the bDther of doing the wBrk again. In SDme was of the order Df 60 per cent and in a' number of cases, the Charge Officers had the foresight to give local bDdies, the population more than doubled. proper serial number and the serial number of the To minimise the task, it Was decided to split Dnly househDld in the freah block/blocks. In many cases such blDcks as exceeded 900 PQPulatiDn in urban this was nDt· dDne. In SDme cases, it was also found areas and 1,200 in rural areas. It was alsO' decided to that the building numbers were alsO' started frDm give newly carved Dut blocks cQde numbers at the one. Wherever these defects were identified, the end Df the serial in large charges. This was dDne to Charge OtJioors- were warned t'() set the matter 4'ight. obviate cDmplete rewrite Df the charge regIsters Th0 Registrar General, India was kind enough-, to' and change Qf houselisting blDck numbers. In obtain a sanmion of Rs. 10.00 for a population of smaller urban areas, the Charge Officers prefered 6,000 to be paid for preparation of abridged house to' rewrite the charge registers. Detailed Instruc list. For this a- sum of Rs. 1,96,580 was alIDttod flo tions Dn the subject were sent vide Circular No. 32 tbis state. dated OctQber 6, 1980. A 'supplemeht to Circular NO'. 32 was also issued after a review Df the Seiection of 2~ per cent SaDlple of Enumeration Blocks position in the field. 11.06- An important fea.ture of the 1981 Census 11 .03 In. any case, new Charge. regist~rs had was that fDr the first time, SDme questiDns in the indi to' be prepared fDr enumeratiDn. It really tODk a lDt vidual slip, were canvassed on a sample blSis. FDr Df effQrt and taxed DUI patience. Mostly the Charge Dperational reasDns it was decided to' adopt an area Officers prepared Dnly one copy and had to sample instead Df" an individual sample. It was decid be forced to prepare two further copies for use'at the ed to' adopt a 20 per cent sample of enumeratiDn blocks RegionalOffice and the headqu3;rters at Lucknow. for oanvassing six questions on migratiDn and ferti In a number of cases, these registers had to be copied lity, in addition to 16 questions canvas5e (ii) Forest charges wet" not included in the tahsil. I 1980.te, (ijj) JlUl\1lPJ! Uninh;lbjted blOGks, were, nQl,oMiqdc4., w., 1.5,1981 also came across some uninhabi1!ed blooks January in urban areas at the time of. enwncl'atio.n. , 4 (oDe-day) l~31.1981 (i'l) , Bl~k.s were UPt put,iapr.opu _ ~ p~ (v-) Pseudo nuntbers in, rural ahj1rg_cs wore not allotted' ill propor sequenae. Sbme blnob 1...... a.l91U were leftun·numbered. ' Slate Le",. TtauullC, 0( Ofllcers. (-vi} Freih" blD.o~. were ci1ihw JJ~, shoWll' Oll: j_, put in the,end •.in.·thG"l~l\ti1#, $'O\lpjt,. 1t. It Tlut tint. ttainiD& of. O&efa at '00 head. qJ.Udml; OJJmers of Bco~ I'lmJli&paa:' alll1, ('Iii) ~ urban agglomeration with a core city•. other oonstUuents and out-growths were' ~ that a proper employment profile was available addressed by D. O. -letter No. PC·DCO·UP/46/80. about the respondents. dated February 10, 1981. They were' told to. check with prominent public figur~s, officlals and (iv) The work was not: allowed to fall in arrears. people who came across during the formal course (v) The filling up of the Part II of the household o.f business, to s.ee if they ha.d been enumerated. schedule was to be completed at the end of They were also requested to. asslgn officers every day. to go around the designated looa.lities to find whether the people had been enumerated The Registrar (vi) The field workers were asked to clear the General, India himself was regularly emphasising doubts whenever they arose. this point and kept us on the run really. (vil) Regional Deputy Direators and District Census Officers Were asked to take particular PubliC Complaints ~ttention to smaller towns and special charges where the charge officers were not. well 11.28 On the whole, the enumeration progressed equipped. satisfactorily. A num!'er of represent:ati~ns were received from the public. 'I would only mentIOn broad (viii) Supervisory officials were also to identify categories o.f such representations. In the firs~ catego.ry, relucta.nce in work of charge officers and I wq.uld place complaints from indiVIduals regarding field workers and to concentrate their efforts . , non·enumera!ion. There were some genuine cases but with them. generally, it! was found that enumera!ion of the hous\! 11.23 The publicity for the operations was under. hold had been done with the help of a close relative taken at the national level. I must say that it was done or a neighbour. The PrinCIpal Census Officers bad extremely well. There was an excellent: awareness been requested to monitor ,such representations every where. The cinema slides and publicity material scrupulously. was made' aV8ilable to us and was distributed. to all tbe districts well in time. Messages were regularly 11.29 In the second category, I would place a limit issued requesting the unen~erated households to ed number of representations received regarding non· immedia.tely contaot the concerned District/City enumeration in certain areas. These complaints were Census Offioer or Charge Officer. This evoked a very largely mis..apprehensions based o.n misinfo.rmatio.n. good response. During the houselistmg we did come across areas which had been left out of the plan of enumerator's blocks. 11.24 Instructions were also gIven 110 charge All such areas were duly accounted for in the revised officers for announcing on·set of enumeration in blocks for enumeration. each block through beat of drums etc. 11.30 In the third category, I would place repre. 1l.25 The All India Radio and T.V. organisations sentatioDS' regarding enumeratio.n of caste. It:. Wo.uld were very Qo-operative and ga.ve us sufficient time to be useful to mention here that at o~e Po.mt of time, the give talks en Radio and T.V. The Deputy Directo.rs Governnwnt was considering the enumeration- of of Census Operations, Commissioners of DivIsio.ns caste Since the decisio.n was taking time, the Registrar and District Magi&trates also gave ,talkt on regional General, India in order to ensure the printing of radio. statio.ns. ~chedule on time, altered the question No. 10 from Schedule Caste/Tribe to caste/tribe. This gave rise to 11.26 It was a measure of the effectiveness of the misunderstanding tha.t the caste was to I be publIcity that we were flooded with complaints from enumerated in all cases. Representations were - individuals and organIstlOns. All the co.mplaints received from some sections that the enumerators were immediately 10 0. ked into. It was fOUnd that the have refused to note down their caste in the indiVIdual complaints were no.t often co.rrect and had been given slip. The enumerator had acted rightly because it was either through misinformation, mIsa.pprehensions or made clear in the training for enumeration that caste/ some mo.tivation. In many cases, it turned out tha. tribe was to be mentioned op.ly where indiVIdual being enumerationyas done with the help of some other enumerated belongs to. notified ~CfST. However, member of !he household without: the knowledge of these instructions did not register uniformly with all the heaG of the ho.usehold. the enumerators. During editing of schedules in the Regional Tabulation Officer. we came across a large 11.27 In order to ensure complete coverage, all number of individual slips where caste had been the District Magistrates and Administrators were returned. ,58 11.31 There were also representations !Cram ,some The instructions are quite specific. The language sections of' the community who wanted thelll&eLves as return.ed including dialects should be to be enumerated as S~C. There were three types of entered as such. Any false ret~rns should be cases. The first type arose because such sections of 'severely dealt with. Please suitably direct all charge community were using some 'Synonyms of the S.C. officers and ensure intensive supervision." notified in the State. Although the Distnct Ce.asus 11.33 There were also representErtions regarding Officers had been instructed to prepare lists of such religion. The instructions to enumerators provided for synonyms pertaining to their districts and circulate them recording whatever religion was reported. Still a to enumerators/supervisoX'.s, this problem did arise at complaint was received regarding refusal to record some places. The enumerators were also instructed to 'Bahai' as a religion in village Simramau of Kakori confront tke respondent with the.synonyms mentioned block, District Lucknow. In some areas, Muslim in the instructions or where he was doubtful with the community also took exception to recording of the list of S.C/Tribe. The enumerator was to reeord ,the religion as 'Muslim' with an abbreviation 'Mu'. ,respondent as S.C./Tribe in question No. 9 onlr if They contended that their reljgion should be recorded the respondent pointed out one of the castcs/tnbes as 'Islam'. Problem in recording Islam in Hindi , ,notified. There were some sections of the cotnmunity was that the abbreviation would have been confused who wanted themselves to be included in the iist of with the Christian community. However, this conten scheduled castes. Most of these claims were' not tion is correct and the instructions may have to be Dlaintainable. In any case, the imtructions provided fOr - modified. f{)t the next census. Some Christians also retuJnin.g only such castes as were notified in the'State. wanted to be returned as catholics or protestants etc. Third type of cases related to castes/tribes notified ,for The instructions took 'care of thts problem also. other regions of the country. These respondents insisted that they should be returned as S.C./S:T. 'as CanVJlSSing of Dift"erent Questions the caste mayor may not be notified for the State. 11.34 In the foregoing -para~hs, some of the 11.32 In the fourth category, I would place problemsincanvassing.questions 6.to lQ in the Indivi .r~resentations'regarding D)Other ,tongue. The .umber dual Slip have, incidently, been discussed. it WDllld in this categocy was the largest and conceQ1ed oAly be, therefore. aQvisfble to discuss other qUestions as Urdu. Representations were received from individuals well. At the out.. set, I would like to mention that ]Dad and institutions that Urdu was not bei)l& recorded as and book numbers were not correctly shown in quite tilother tongue. This problem ;was anticipated and a number of cases. Duplicate numbers were ,found consequently, Po lot of stress had been tSiveD in t,ke train frequently. Location codes were also not correctly O ingdasses at aU levels on this question. :Enquiries.int shown in some pads. In some ca-ses, the code was such representations revealed tha.t ~y .were mostly found as having 6 or 4 elements ,instead of 5. In some based on misapprehension and in some cases, because other cases, there was inconsistency in 'the -enUl1lerator of anxiety for getting a second ian9Uage !&tatus for block and village code numbers as well. Urdv. in the State. In Farrukhabad tahsil, it ;was founa that pamphlets)lad been distributed with I a 11.35 No problem. was encounter-ed in regard to , .f~mile of individual slip urging muslims to return ~swers to questioils 1 to 5. In JCgIlrd to question 6'On dleir mother tongue as Urdu with Persian and Arabic mother tongue, there is nothing ,to add ·to whaf .nas as second languages. In maay cases, it was fowd alre~dy bee;n menuoned. In regard to q:acstion 7,-on that Persian and Arabic were recorded as second subsidiary languages, it may be .naentioned that language even for infants. Ol!l the other hand, t~re in a number of cases, mother tongue was repeated as was a complaint from the President of Vyapar Manch, one of the languages. In regard to (lUestion lion Yahiya Gapj, Lucknow, alleging that the endmerators literacy it was found, in some cases that literacy was were recording Urdu as mother tongue in all .the cases. equated With school-going. It ,is not necessary that On ~quiry this complaint Was .surprisingly found .to a'school-going child should be litemte. be true. Care was taken to look.into all su~ tepre set).tatit1ns with despatch. J,nstructions w.ere sent to Eeonomic Question District Officers to be vigilant. The C})ief Secretary, Government of Uttar Pradesh, was also kind enolJ8h Question -U-A to issue instructions to all District Officers and Adm.i 11.36 In this question the popUlation of the country nistrators on this topic as follows: had to be divided into two broad categories of work <4During the ongoing population eensus some ers or non-workers. In case of non-workers, it was also apprehension has been expressed that Urdu is 'not to·befildieated as to how the respondent had passed his being recorded as mother tongue in some eases. time during the '~r preteding the date of enumera- S9 tion. No problems were really encountered in Question-16 answering this question. It was, however, noticed that in some cases the classification of a non-worker 11.40 This question was to be addressed to the as HjSTjD/R/BjI/O had not been done. respondents who were non-workers or marginal work ers. However, in many cases It was found that this Question-14-fJ had been answered 10 cases of full time workers also. 11.37 Through this question the workers were ]] .4] By and large, it was gratifying to note that sub-divided into full time workers and marginal these questIons were understood quite satisfactorily workers. A full tIme worker was defined as one who by the enumeration agencies. Some enthusiastiC had worked for the major part of the preceding year people drafted poems to explain economic questions m i.e. six months (I83 days) or more. There was no Hindi. Two samples are reproduced in Appendix difficulty in computmg the working period and can XXIX. vassing the question properly However, it was notIced Individual Slip (Sample) that in case of non-workers, 3S defined in 14-A, ques tion 14-B was also in the negative while according to 11.42 Through sample, indIvidual slip, questions instructions in such cases 14-B and I5-A, 15-B were on migratIOn and fertility were canvassed. Generally not to be canvassed at all. no problems were encountered in canvassing these questIOns. Some times enumerators were found to Question-15-A be not very clear when PL IS to be WrItten agamst questions 1 and 2. In cases other than PL, it was to II .38 In thIS question the main activity of all be ascertained if the place of bIrth or last residence wa s the workers was to be ascertained. Above the line, a rural area or an urban area Enumerators in many the main activity of the full time workers was to cases had a httle dIfficulty 10 categonslDg unknown be categorised CjAL/HHI/OW. Below the line, the places main activity of the margmal workers was to be cate gorised as H/ST/D/R/BjIjO. The impitcatlOn of this 11.43 Agamst questIOn 6 it was to be ascertained questIOn was properly understood by the enumerators If any chIld was born alive dunng the last one year. However, it was apparent from answers to sub SometImes It was difficult to place children just over a year questions (i) to (iv) that some enumerators had not grasped the difference between HHI/OW. It was Enumeration of the Houseless also found that an answer below the hne wa~ put in some cases where the respondent had been categori 11.44 Detailed instructIOns on the sul)ject wet:'e sed as non-worker III question 14-A. In regard to sent to Prmcipal Census Officers viae Circular No. 37 sub-questlOn (11) and (m), It was found that enumerators dated December 10, 1980. The enumerators were were not very clear about theIr relationship Sub required at the tllne of house lIsting itself to indicate question (ii) related to the descnption of work while locatIOn of houseless households 10 the remarks question (111) on the nature of mdmtry/ti-ade or serVIce column of the houselist, but the mformation related to the activity of the establishment. It wa,> \\as really not utilised at the time of found in some cases that answers to both the sub enumeration. DUrIng the training classes for question were the same. It would probably have been enumeratIOn the enumerators and supervisors better to switch the pOSItIon of these questions. were asked to do this identificatIOn again while pre paring the reVIsed notlOnal maps and layout sketch. Question-15-B As in previous cenSllS, the enumeration of houseless was done In the night of February 28 and March 1, 11.39 ThIS question envisaged recordrng of secon 1981. During the perIod of enumeratIOn itself, the dary work of full-tIme workers above the lme. and charge officers were reqUlred to confirm the location categonsation of work of marginal workers below of houseless population by 25th February and make the line. The impact of this questIon was generally necessary arrangements for petromaxes, police escor'ts, understood by the enumerators. In regard to extra enumer tors where necessary !'tc. I myself answers to sub-questions (1) to (IV) of questIOn-15-B took a round of Lucknow City and found that the mistakes SImilar to 15-A were encountered It was abo corporation staff had taken this aspect of the work notIced In some cases that answers to sub-questIOns qUite seriously. The Government of Uttar Pr" desh in j 5-A and ] 5-B were the same. This would show w n s kmd enough to Issue orders for the' suspenSIOn of that in these cases, the dIlference between questIOns nIght cinema shows on 28th of February. ThIS w:':s lS-A and 15-R was not properly understood. quite useful. 1 DCOUPj82-10 60 Enumeration of Pilgrims Special Enumeration jn Fairs and Exhibitions 1 I 45 No special buses, trains were due In the State dunng the penod of enumeratIOn and 11.46 FolIowmg fairs overlapped with the period hence we were not required to make any arrangements. of enumeration I e 9th to 28th February nistnct Charge Fair! Duration Estimated Exhlbltl:m populattc n to be cWered ------_------ \. Allahabad (a) Tah,ll Karchhana Magh Mela January 14 to March 4.1981 3,000 (b) T A JhU<;l " 5,000 (c) Allahabad Cantt 200,000 2 Jalaun Jalaun Ra'TIesh war Mela February 9 to March 3. 1981 2,000 3, Hardol HardvI M B Ra'll V~ela ExhIbItion January to February 28,1981 100 --~ ~------~-.r----- ~"-- --~ -- - 11.47 For the enumeratIOn of those residing in double counting of persons at the time of enumeration. these Mela<;jExhibitlOn for the whole enumeratIOn Instructions were. therefore, issued to issue Cards to penod following mstructions were l'>'med: persons who were enumerated. Dunng the non (I) For such an area a separrte enumerator synchronous enumeration. enumerators were also block should be formed asked to verbally adVIse such persons not to get enumerated agaIn, In February, 1981. The only (iJ) Only those persons should be enumerated problem encountered was the problem of terrain. who are likely to reSIde for the full period In a number of these VIllages, there was no Govern of enumeratIon. ment functionary to be appointed as enumerator. There was no other responSIble educated person Who (iii) Only universal individual slip should be could be entrusted with this responsibility. In many canvassed. cases. teachers from far off villages had to be appoin (iv) llf mela continues from February 1 to 28 ted as enumerators. I n several cases, an enumera and therea.fter, the enumeration should be tor would take several days to reach hIS VIllage and done on the last three days i.e. February was reluctant to visit the area again for the revisiona 26,27,28, 1981 Houseless should be coun round. ted on 28th night as usual. Enumeration in Special Charges Non·synchronous Enumeration 11 50 Special establishments and areas were 11.48 A" mentIOned earher, thIS enumeration carved out as ,>pectal charges for admlntstrative con had been done from September 11 to 30th, 1980 venience This generally related to railway estab with sunrIse of October 1, 1980 as the time of reference. lishments, industrial establishments, polIce establish ments, jails and milItary/para milItary establIshments. 11.49 During the 1961 Census non-synchronous enumeration had been dOne only in 21 villages of Movement of Records Tahsil Dharchula in Distnct PIthoragarh During the 1971 Censu<; 21 more VIllage" were added to non 11.51 The retrieval of all the records logically synchronou,> area, IS in Munsiari Tahsil, District put together IS extremely important. In order to Pithoragarh and 6 m Tahsil Almora in District reahse the fruits of enumeration, speedy retrieval Almora. The DIstrIct Census Officers of Uttarkashi becomes critical since the post enumeration check ChamoJi, Almora and Pithoragarh were requested has to be launched Within two weeks of th~ conclu to re exa~ine the position. As a result. the area SIOn of enumeratIOn. DetaIled instructions were increased to 79 VIllages and 2 urban areas of Badrinath Issued Vide our CIrcular No. 40 dated 26th Decemb~r, and Kedarnath L' ter on I felt that some more villa 1980. Broadly speaking, the revisional round closed ges should have been IUcluded In the list The on the 5th March. Records were to move from enu detaIls of Villages and towns covered non-synchro merators to supervisors on the 6th March, from nously are shown In Appendix-XXX The enumera supervisor'> to additional charge officers On the 7th, tIOn 1U these areas was conducted m accordance from addItional charge officers and charge officers of WIth usual procedure. Since there IS a migration of urban UUlts to tahSil by March 9, and to the respective I;lJpulatlOn dUrIng wmter, it was necessary to avoid RT 0 by March 11. However, records from some 61 charges could not reach R T.O.s even by the end of the (V) PreparatIOn of provISional totals for month The relevant records had, therefore, to be cltJes/U.As haVIng a population of one extracted from the tahsils for the purpose of post enu mllhon and above by Dlstnct Census meration check. One can only say that much extra care Officer and commUDIcatlOn thereof to would have to be exercised. It ma)' also be mentioned Census Directorate and Registrar that enumerator's abstract and Ln SJrne ca~es, record~ General, India 1U standard. message form. lOiIl March for the whole block were not traceable. Number of (VI) Preparation of State abstract and commUnI- pads and books did not match with the inventory at catton thereof to Registrar General, times. Since the volume of records was huge and the India 1D standard message form. 12th March time for its proper checking limited. because of the Impending post enumeratIOn check, recttflcation of 11 . 54 In order to meet thIS schedule, the enumera these discrepancies at the time of receIpt was really tors were reqUIred to prepare working sheets daily and not possible. update them during the revIsional round. They were to prepare enumerator abstract immediately after the 11 .5? Unused forms were not required to be sent completIOn of revislOnal round. The supervisors were to R.T.Os along with census records. Later on, it was reqUIred to. do cent per cent checkIng of these abs quite a problem to retneve these unused forms for dis tracts and hand over records and abstracts to the charge officer on the 7th of March. The charge posal. It would be advisable to get them Simultaneou officers were asked to arrange transport so that re sly. The charge officers were adVised to send records cOrds from block development headquarters etc. in wooden boxes of 4' x 3' x 2l-' sIze. These boxes could reach the tahsIl post haste. The charge offi turned out to be very big and cumbersome to handle. cers were req uired to prepare a charge abstract in It would be better to use gunny bags or jute cloth for WhICh they were supposed to fill in figures from the bund~ing. For 20 per cent area sample cloth-lined enumerator's abstracts. ThiS meant some work. envelopes were provided. They were quite costly and did 11.55 Immediately after the totals were struck the not last. Later on cloth bags were provided for thfl charge officers were to communIcate only the popula rest of the blocks at much less cost. tion and hteracy figures to the District Census Officer as well as to me by the quickest possible means. The Commllnication of Provisional Results Distnct C(,ll~US Officers/City Census Officers in theIr turn were requested to post the charge-wiie figures 11,.53 As per Registrar General's Circular No. 23 in the prescribed form by March 10, 1981 and dated July 10, 1980 and its subsequent supplement, communica te the same to RegIstrar General, instructions were issued to Census Officers vide our India 'lnd me through express telegrams/ Circular No. 39 dated 26th of December, 1980. The wireless/telephone/~peclal massenger. For CitIes/ comniunication of provisional results was programmed U.As haVIng populatIon of 1 million and over, the as follows:- information was to be sent to Directorate RegiMrar General, IndIa separately In the standard message (I) SubmiSSion of enumerator's abstract and form The address and telephone numbers of Office all other records by enumerators to of the RegIstrar General and the Directorate were superVIsors. -6th March sent to the DIstriCts to faCIlitate theIr commWllcation. (il) SubmiSSion of all records by the supervi 11.56 The Post and Telegraph Department had sors pertatnlog to his Circle to the charge been requested to ensure top Priority to telephones • officer. -7th March and telegram,s carrying census results. Arrangements (111) PreparatIOn of charge abstracts for pro were also made for ImmedIate transfer of rr:.essages. Visional results by the charge officers and The office was kept open round the clock from Marc!J. commUOlcatlon of charge figures to S to 11 ofr receIpt the messages The followings .state District /Clty Census Officers and Census ment shows the date and time when provisional Directorate 1D standard message form. 9th March results for varIOUS distrIcts were receIved: (IV) Preparation of District/City abstracts for proVISional results by DIstnct/Clty Census Variation bet~een Provisional Population and Final Officers and commUnIcatIon thereof to Population Census Directorate and Registrar General, 11.57 Statement gIving the proviSIOnal and final India In standard message form. 10th March population for each dIstrict IS given below:- 'I 62 Statement showing Pro,isional Population and Final PopUlation as per 1981 Census state/District Provisional Final Difference Per cent Population Population Variation 1 2 3 4 5 UTTAR l'RADESH 110,885,874 110,856,013 -29,861 -003 1 Uttarkashi 190,571 190,948 +377 +020 2 Chamoh 364,287 364,346 +59 +0.02 3 Tehri-Oarhwal 493,245 497,710 +4,465 +0.91 4 Dehra Dun 757,259 761,668 +4,409 +0.58 5 Garhwal 624,259 637,877 +13,618 +2.18 6 Pithoragarh • 479,600 489,267 +9,667 +2.02 7 Almora 772,994 757,373 -15,621 -2.02 8 Nainital 1,133,111 1,136,523 +3,412 +0.30 9 sabar8.npur 2,673,653 2,673,561 -92 N 10 Muzaffarnagar 2,288,410 2,274,487 -13,923 -0.61 11 Bijnor 1,925,637 1,939,261 +13,624 +0.71 12 Meerut 2,766,496 2,767,246 +750 +0.03 13 Ghaziabad 1,866,778 1,843 y l3Q +23,648 -1.27 14 Bulandshahr 2,349,530 2,358,270 +8,740 +0.37 U Moradabad 3,151,044 3,149,406 +1,638 -0.05 16 R,arnpur 1,177,022 1,178:621 +1,599 +0.14 17 Budaun 1,964,094 1,911,946 +7,852 +'0.4'0 18 Bareilly 2,264,770 2,273,030 +8,260 +0.34 19 Pilibhit 1,006,336 1,.008,312 +1,976 +0.20 20 Shabjahanpur 1,648,659 l,647r664 -995 -0.06 21 Aligat'h 2,565,450 2,574,92~ +9,475 +0.31 22 Mathura 1,543,568 1,560,447 +16,879 +1.09 23 Agra 2,852,474 2,852,942 , +468 +0.02 24 Stab . 1,837,575 1,858,692 +21,117 +1.15 2S Mainpuri 1,724,057 1,726,202 +2,145 +0.12 26 Farrukhabad 2,002,513 1,949,137 -53,316 -2.et 27 Btawah 1,748,737 1,742,'65.1 --,>086 -0.33 28 Kanpur 3,790,549 3,742,223 -48.326 -1.2 29 Fatehpur 1,572,770 1~572>421 -349 -0.02 30 Allahabad 3,780,665 3,797,033 +16,368 +0.43 31 ]alaun 987,432 986,238 -1,194 -0.12 32 Jhansi • 1,133,002 1,137,031 ---4,929 +0.36 33 Lalitpur 587,290 577,648 +9,642 -1.64 34 Hamirpur 1,194,114 1,194,168 +54 N 35 Banda 1,536,349 1,533,990 -2,359 -O.IS 36 Kberi 1,962,826 1,932,680 -10,146 -0.52 3.1 Su.pur 2,338,101 2,337,284 -817 -0.03 3-8 Hardoi 2,293.99'4 2,274,929 -19,065 --U.83 39 Unnao 1,826,463 1,822,591 -3.812 ~.21 40 Lucknow 2,017,172 2,014,574 -.2,598 -4>.13 41 Rlae BareH 1,888,181 1,886,940 -1,241 -0.07 42 B.hraich 2,221,1S4 2,216,245 ---4.. 909 -0.02 43 Gonda 2,838,305 2,834.$62 -3.743 -0.13 44 B,araBanki 2,012,576 .1,992,074 -20,502 -1.02 45 Faizabad 2,369,626 2,382,515 ~12,$9 -0.5<4 4Ei Sultanpur 2.037,783 2,042,778 +4,995 +0.25 47 PratapB&rh 1,807,252 1,801,049 -6,203 --U.34 48 Bast; 3,576,783 3,578,069 +1,286 +0.04 .s3 1 2 3 4 5 49 Gorakhpur 3,795,135 3,795,701 -34 N 50 Deoria 3,41$7,350 3,496,564 +9,214 +0.2' 51 Azamgarh 3,532,876 3,544,130 +11,254 +0.32 52 Jaunpur 2,527,012 2,526,734 -278 -0.01 S3 BaJIia 1,926,267 1,945,376 +19,109 +0.99 54 Ghazipur 1,941,516 1,944,669 +3,153 +0.16 55 Varanasi 3,696,768 3,701,006 +4,238 +0.1) 56 Mirzapur 2,033,834 2,039,149 +5,315 +0.26 Release of Prol'isional Totals (iii) Distribution of ma.in workers in rural/urban areas of each district. 11 .59 Soon after the completion of 1981 Census,] the Registrar Q~neral, India released the provisional (IV) Distnbution of mam workers by four cate totals for the country on March 20th, 1981. There gories of work. after on March 23rd, 1981, the Director of Census (v) Union Primary Census Abstract. Op;:rations released these figures for their respective States and Union Territories through Paper I. If (vi) District Primary Census Abstract. contained basic information for population by sex, (vii) Table giving the disabled population by type sex ratio and percentage of literates for the state and of disability in the rural and urban areas of ea.ch district. 3,000 copies in English and 750 in Hindi each district. were printed. The SupplementofPa.per I Was released on August 20, 1981. It contained the followipg 11.60 ,The informatIon for the Supplement was tables; compiled from the Charge Abstracts, whereas Paper I was based on figures directly received from the (i) Rural! Urban composition of population district. There \\as as such some minor difference for each district. between the two figures. 3,000 copies of the Supple (ii) Population of all the towns of the state. ment were got printed. It was priced Rs. 20.20. CHAPTER XII DIRECTIVES ISSUED BY TIlE STATE GOVERNMENT The successful completion of census operations 27, 1979 requesting various Heads of Offioes to make depends on total mvolvement of the State Government available their employees for houselisting and also machinery as also active cooperations of vanous give concession In regular office hours. An important Central Government Offices specially m big urban directive freezing jurisdictIonal changes from October areas for makmg available the required field workers. 1 was issued in June, 1979. I must put It on record that I got every p()sslble atten tIOn from the State Government right upto the Chief 12.05 The State Government also issued several Secretary for which I am extremely grateful circulars m regard to C.R. entnes for census work, deferingtransfers from,July, 1980 to April, 1981, mak 12.02 The census formally started with the noti lUg available State Government vehicles to Distriot fioatlOn from the Mmistry of Home Mairs under Census Officers and Regional Deputy Directors and SectIOn 3 of the Census Act, dated 28th April, 1979. importance ofcensus operations etc. The State Govern Th~ State Government issued notIfi('ations under Sec ment also declared expenditure on travelhng allowance tIOns 4, 6, 7 and 12 on September 5, 1979 and under and contingencies incurred by local bodies as proper S;:ction 8 on October 31, 1980. These nottiicatJ()ns charge on the municipal funds. The Education De took care of the legal formalities under the Census Act partment was more than helpful and they issued Several rClfculars to Basic Shiksha Adhikanes for 1'L03 The Registrar General, India wrote to all extending their fullest co-operatIon. In several cases Mmistries and important Heads of Departments for senior officers of the Directorate of Education, person extending their co-operation to the census operations. ally intervened to see that teachers co-operated. The Various heads of departments issued circulars to Agriculture Production Commissioner directed all their regional and other subordinate offices in pur Block Development Officers to fulfill their duties suance th-:!rcof. I also followed up with deml-official as additIOnal charge officers. The Revenue Department lett~r~ It may be mentioned that the beads of Central also gave exemption to Revenue Officers frem their Government Offices in Uttar Pradesh were quite winter tounng. These letters and circulars are given helpful but they w;:rc not able to persuade their emp in Appendix XXXI. loyees III sufficient numbt'rs to work as enumera tor, a.nd <;upervisors in bigger urban areas. 12.06 In the end I would like to reiterate my gratitude to the Chief Secretaries of the U.P. Govern 12 04 The Chief Secretary wrote to all Divisional ment. They frequently held meetings at my request to CommisSioners, Distnct Magistrates, Heads of De review the progress of census operations and impress partments as early as F~bruary 8, 1978 to extend all upon all concerned the importance of time schedule, nece'>sary help for the preparations of 1981 Census. completeness and accuracy in census and the need Thl~ WolS follow;:d uP. by another letter of September for their fullest co-op:!ration. 65 CHAPTER XlII CENSUS CIRCULARS Asequence of circulars ensues before every Census (ii) It should, as far as possible, contain through which the RegIstrar General, India conveys, only one important subject matter'. instructions and guidelInes to the Directors of Census (Iii) It should have three distinct main parts. Operations in states and umon terrItories to organise (a) Introduction of the subject matter. and conduct the work on umform hnes. The DIrectors (b) Treatment of the subject matter~ and then, in theIr turn, issue Cll culars to the defferent echelons under them. For the 1981 Census, the (c) Action to be taken for its implementation. sequence of census cjrcuh',rs ~tarh.d nght from Feb., I hope, if we follow such a pattern, our circulars 1978 by the Registrar Genen L Inc Ia In his 'umque would be received more enthusiastically and help the lucid InstractIve and exhaustIve style. The present District Officers in their implementation. I would Dot, Registrar General, IndIa had ahc2d) set out the pointS however, like to cramp your style, You are the best to be borne 10 mind III issuing there circulars by Judge to decide on the most effective way of guiding quoting (Reproduced below) the observations of the operations in your state." . his predecessor (Sl i A. Chandra Sekher) in the Ad~ mmistratIOn Report-1971 Enumeration-Mysore 13 .02 The gllidelilles are, 110 doubt, most educa (Now Karnataka) publIshed by him (Sri Padmanabha)' - bve and hence adoptable whole heartedly. I myself when he was the Director of Census OperatIOns ~ kept these POlllts in mind while issuing my cil culars Karnataka fo.r the 1971 Census. ' on various subjects. I issued 42 circulars in all. 13.03 Besides these circulars, J liberally issued "I have read with interest various Census Circu letters also some of lnem repetitive. This proved lars by some of the Directors of Census operations fruitful on three counts, firstly to provide clarifications, issued to the District Officers in their respective secondly, to stress important steps or points and , states and found them well written and instructive. thirdly, to maintain a continuous dialo!tue WIth the I, however, found that some of these were very cutting edge of the census hierarchy. The circular" long and contained-more than one or even two im were addressed invariably to the Plincipal Census portant subject matters. For example. there was a Officer~ Initi.llly, CIrculars were got cyclostyled in circular which ran intQ 25 cycIostyled pages and required number. But conSIdering the large number covered (i) formation of enumerator's blocks, required, (generally 5,500 copies) circulars were get (ii) preparation of general village/town register and printed for use down the line. (it'i) appointment of 'enumerators. You would readily 13 .04 Palticular mention of rdevant circulars halt appreciate that each One of these topics perhaps been made in the respective chapters of this report. deserves to be the subject matter of separate circular , The subject and Idate of Issue of various circldars are though each stage may lead on to action to be tak~n given below. The ,origiuals _are contained ill relevant in the next stage. Each of our circulars may confine files. Five sets have also been\bound for future use as itself to the specific action to be taken in a particular permanent record and kept in Plannmg and Co-ord~ stage. As you are aware the District Officers, hard mation Section and the Library. pressed as they are for time owing to their preoccupa tions, are prone to be averse to applying their mind to SUMMARY OF CIRCULARS ON ENUMERUION unduly long omnibus cyclostyled communications ISSUED and therefore, our circulars, if they faU in the above Circular No Subject Date of Issue category are likely to escape urgent attention of the District Officers. In view of the foregomg, I would By the Reg1,trar Genera1, Indm commend the following points to be borne m mind I CI~S51fication of Rural and Urban Uruts-1981 ('en~us 5-2-1979 in issuing Cens~~ CIrculars in future·: 2 OrglnisatlOn of Qmns of India 1981-g<:ncra] (i) A Census Circular should be lucid but just tnstructIons June, 1979 long enough to convey the central idea and . 3 AppJllltm:nt 0f C~mu5 OffiC~ls·Issue of n')tIil- guidance for Its implementation. c1.tlOn, June, 1979 67 I DCOUP/R2-1l D:lte of Cirwlar Subject Dlte of CIrcular Subject issue No. issue No. 5 L{)C1.tion code 16-7-1979 10 Preparation of Charge Registers November 26, 1979 - . 6 ClassIi'icatlOn cf Rural anJ Urb:!n Umts-1981 11 Traloing of Officers and lower level fot Houselisting December 7, 1979 C~nms-Clrcular No l-CI1nficatton'i thereon 11-9-1979 1, Traming Material December 10, 1979 ., FormatlJn of Urban Agglomerations 22-9-1979 13 FomlS and Schedules for Houselisting December 10, 1979 9 Loc.ttion C:Jde-am, udment to Circular Nc. 5 11-12-1979 14 Village and Town Dlfectory December 6, 1979 10 FJrro1.tIOl1 of Enum~ratlOn Blocks and pre- 1S Arrangement for stationery for Census paratIOn of the Abfldged Househ~t 20-12-1979 work 10 Distncts and Municipal Corporations December 7, 1979 11 Prep'lratlOn of the Abndg~d H')u<;ehst..am~nd- ment to circular Nt. 10 27-2-1980 16 House Numbermg and Houselist- ing January 4, 1980 12 Houselistll1g Opera tlOns-Handling and~prcces~lllg of forms i5-3-1980 17 Release of Houselistmg Totals January 5, 1980 18 Movement of Househsting RecoX;ds Janurary 5, 1980 13 H1:lsehstmg o~ratlOns-hanctlmg and process- 19 Calendar for EnumeratIOn February 12, 1980 lIlg of fOrffi3-furth 'f lfistruCtlOlW H garding Supplem!nt to C.:nsll~ Circular No. 12 2-4-1980 20 Abridged Househst February 15, 1980 14 In.,tructlons for selectIOn of 20% samplc of 21 Recarvation of Enumerator Blocks enum·]rltion blocks t15....L.1980 and Supervisor Circles Did not issue. 15 Ddm!·ttlon ,f Stanhn;l Urban Areas-1981 22 Additional prOVISIOn of Rs 100 00 in Cen~us 21-4-80 respect of allotment of Budget to Dlstnct level for 1981 Census February 12, 1980 16 Mln1.g.!m:nt of rec)rds relating to IndiVidual Shp an,j H'useh )Id Sch~dule, .It vinous 23 AdditIOnal provision of fund for leyels 9-S-1980 petrol etc. to DIstrict Censlls Officers at DIStrict levelfor 1981 Census February 14, 1980 21 Instruction> to enumJrators for filling up the HJJ,ehJld schedul~ ani Itl.dlvldu:ll SlIp-Clan 24 Honoranum for 1981 Census February 29, 1980 fic'ltion 3-7-1980 25 Revi5ed Calendar for HQuseitsting March 22, 1980 22 R1p1rttng of Provl'>10n1.1 results ani commepce- 26 Revised Calendar for Enumeration March 31, 1980 merl't ofPECjCES . E5-7-1980 27 Oencal assistance to DI~tnctsjTahsiis/ 'J J p,\)Vlslon'll PJpulatlOn Totah ;10-7-1980 and Urban Local Boaies in connection 2~ I'1>trUcti)m fJr sel2ctlOn of 20% S'l.mple of With 1981 Census work April 2, 1980 enum !r:.l.tI1n blocks-clanfic~tlOn 28 Additional Clencal assistance to Dls 26 InstructIon, f.)f sel~ctIon of 20% sample of trtct/Tahsils/Urban Local Bodtes In enum~ratlOn b!Jc1s.~-clanfiC'ltlOn reg'lrdlng connection With 1981 Census work May 2, 1980 tre'ltm ]nt of urb'ln aggl Ym~ratlOns :0-9-1980 29 Enumeration in non-synchronous 31 PLOV"l )1HI P )pulUlJn T,)tals Supplcln!nt to areas May 21, 1980 PdP.."!f 1 of 1981 23.2-1981 30 Corrigendum to Circular 29 July 5, 1980 31 Corngendum to CIrcular 14 July 5, 1980 32. Reconstitution of Enumerator Block Circular No. Subject Date of Issue and Supervisor Circles October 6, 1980 ------By th·~ Director of C~nsus cperatt,)llS U P 33 Selection of 20 per cent Sample Blocks for EnumeratIon October 8, 1980 1 PreparatIon for 1981 Census August 10, 1979 2 ApPollltment of PrinCIpal Censu~ September 11, 1979 34 Training of Officers and lower level for Olficers aRd D'slflct/City Census Enumeration October 10, 1980 Officers etc. 35 Traming material for Enurneralton • October 28, 1980 3 CollectIOn of mformatlon regardipg 36 Schedules and Forms for Enumeration December 6, 1980 Village/Town Directory October 12, 1979 4 DehneatJOn of Charges and Appoint 37 EnumeratIOn of Houseless and Nomads December 10, 1980 ment of Charge Officers September 24, 1979 5 Clerical Assistance at Dlstnct/Tahsil 38 Honorarium for Enumeratton December 23, 1980 level September 28, 1979 39 Release of ProVIsional Totals December 26, 1980 6 Location Code Number November 3, 1979" 40 Movement of Enumeration Records December 26, 1980 ./ Urban Aggiomeration November 6, 1979 41 Distnbution of Census Medals for 8 DelIneation of Enumerator Blocks Novernbel 19, 1970 o Appointment of Enumerators and mentorious work January 12, 1981 Supervisor~ .. November 26, 1979 42 Publicity for 1981 Census January 13, 1981 CHAPTER XIV PUBLICITY MEASURES A conference of Seoretaries and Directors of The distnbution of these posters was done as Information of the States was held in Now Delhi on per statement shown at 4PPCl'ldix-XXXII. D.::c'}mber 3 & 4,1980 under the aegis of the Mmistry - 14.06 Copies of a beautiful folder entitled, 'Twel- of Information and Broadcasting, Government of fth Cen9us of India' were also supplied by the Direo India. During this conf~rcnce, the RegIstrar Gene tor of Ad vertising and Visual Publicity. ral, India took the opportumty to bring home the reqUlrements of Census publicity. It wa" Impressed 14.07 These posters and folders a.longwith hand upon that th3 efforts of the pUblioity media of Minis bills were sent to dIstricts for displa y in public o1ijces, try of Information and Broadcasting would have to sohools, colleges, lIbraries, raIlway stations and other 1>-.:: augmented by State publioity medIa. The con publio placl)s. Instructions were issued to the dis ference aeoopted this plea by Registrar General, India tricts for tll~lr cxhibitlon in prominent plaoes to catoh ~nd recamm'mlied that State pUblIcity media should the atrentlOll of the public. ' render publlciiy icUppOrt: to the Census OperatIons. (b) Cinema Slides and Films Third Directors Conference-Discussion on Publicity 14.08 It has been too practice to release a docu 14.02 At the third all IndIa oonferenoo of tll,", mentary film regarding Census at tho timo of Census Direct0fs of Census Op;;rations held at New DeIhl Operations. This time too steps were ta.ken to cirou during November 15-18, 19l50 detailed, discussions late films. through Commercial CiIcuit (Cinema.) as were held on various publicity mt}asures. Apart from well as field publicity medIa of the Central as a.lso the conventional publicity measures i.e. Film, A.I.R.. the State Governmont. 'Jhe film 'To meet your T.V. and posters etc, it was fclt that local efforts need' was screened from November, 1980 to February, would also be useful. The Registrar General, India 1981 all over the state. sent a detailed communioation on publici~y measure9 vide his D.O. No. 14011/1L80-AD.lIdated November 14.09 The 35 m.m. films were mostly utilised 27, 1980 s.pelling out the different m~a,>ures which on commercial circuit, while 16 m.m. films were would be useful for Census pUblicity. entirely utilised for field publicity. / 14.03 In pursuanc~ of the above oommunication 14.10 For this state 58 prints of 16 m.m. films from the Registrar General. India my Ciroular No. 42 were required. 543 Cinema slides were received (Publicity of 1981 Census) dated January 13, 1981 from the Dir.ectorate of AdvertIsing and Visual Pub is~ued to Prinoipal Census Officers. • hcity, Government of India, through Office of the Varieus Measures of Publicity RegIstrar General for this state. The distribution amongst the district was indicated by themselves. 14.04 Following m::a.'>urC3 were adopted for Cen'>Us However, the despatch of these slides to districts from publicity: the state headquarters Was made by us. (a) Publicity through Posters and Folders ~ 14.11 As per instruetioqs from the Directorate 14.05 Th~ DIrector of Advertising and Vl'mal of Advertising and Visual Publicity, the slides were Pubhoity br,Jught out posters, folders. and pam required to be withdrawn from the Cmemas ~positi phletes in English, Hindt l..,d Urdu besides other vely by 5th March, 1981 for being disposed off locally. regional languagos. The fL,llowmg number of pos tors were sent to thIS sta te : (c) PubliCIty through All India Radio Hindi 180.000 14.12 In Census publicity All India Radio plays a very important and effective role. Initially the Urdu 65,700 Registrar General, India took up the matter with the English 10,000 Director General, All India Radio, New Delhi, at 69 70 his end and requested him to include decennial Cen (f) Publicity through messages from VIPs. sus of India 1981 in the progr~mme of the All India 14.17 Most important among the messages and Radioviz : ' instructions from the VIPs was the one from Honour (i) Rural Forum Programme able Prime Minister of India, Smt. Indira Gandhi addressed to all the Chief Ministers. This Was widel. (ii) Women's Programme circulated. The above communicatIOn is reproduced (iii) Children Programme as Appendix XXXV. The text of messages from the (iv) Industrial Labourers Programme Chief Minister and Chief Secretary to the Govern ment of Uttar Pradesh which,were broadcast by them 14.13 It Was also sought to broadcast talks from All India Radio, Lucknow are reproduced as given by different personalIties in this connection. Appendix XXXVI. Here I would hke to record my sense of gratitude to (g) Other Publicity Measures Shri M. S. Batra, Station Director, All India RadIo, Lucknow who accommodated us as and when we (i) PubliCity by Students approached him. During houselIstlOg only I wen! on 14.18 The Director. Education, Uttar Pradesh, All India Radio four times. My Regional Deputy was requested to issue instructIOns for DIrectors and AssIstant DIrectors also broadcast talks giving an tntroduction to Census to the from Regional All India Radio Stations. We also students in primary/basic schools during provided matenal and scripts to the All IndIa January, February, 1981 to generate aware-" Radio for use in different programmes. ness in specially rural masses. I am grateful to the Director, Education for issuing 14.14 The matter of two talks glVen by me on necessary instructtons on the subject vide All India Radio is mcluded in this report as Appendix his letter .No. Shivir/32029/170j80-81 dated XXXIII. January 16,1981. (d) Publlcity on T. V. (ii) Drum Beating 14.15 - The utilIty of this medIUm was limited as 14.19 Instructions were issued to make exten it had a restricted coverage. sive use of the most effective publicity mea sures, though conventional, for rural mas (e) Publicity through Press ses. It was to be used only during the period 14.16 This medium was used mamly through of enumeration. Circumstances permitting the field publicity organIsation. A press note (re taped messages were also used at some prouuced as Appendix XXXIV) was released through places. However, for convenience a com P. I. B.' on 9-2-1981 i.e. starting day of Enumeration. mon message was suggested as follows; Before the conclusion of the enumeration the following "iffifnfi r;r;r POST-ENUMERATION £HECK AND CENSUS EVALUATION STUDY post Enumeratlon Check and Census EvaluatIOn at Bhopal in December, 1980. Deputy Directon, study have been important ~urveys conducted imme incharge at Regional Offices were also trained well diately after censu'. in advance ai Lucknow. 15.02 The Pos.t Enumeratlon Check Survey was 15.05 The ReglOnal Tabulation Office was the conducted to find out as to (1) how accurately hac; focal point for co-ordinating and directmg the Post evr;ry indiVIdual been enumerated in the census EnumeratIOn Check work. The st.aff selected for (coverage error) and (Ii) how precisely have the parti Post EnumeratIon Check work was tramed by the culars of individual b6en recorded m the census (con RegIonal Deputy Directors. The Officers from State tent error). The aIm of Censu~ Evaluation Study Headquarters also partiCIpated jn these training wa~ to qua.ntify the exte~ of omission of children classes for guidance. In Vara.nasi DIviSIOn, however, at the .younger ages and the ascertamment of the cor the training wa.s per",onally given by the Deputy roctness of age-reporting of children in .he census ~irector (Vital Statistics) who wa<> algo incharge of WIth the help of births reoorded 10 Sample RegIstra Post Enumeration Check a.nd Census Evaluation tion Scheme. Study at the State Headquart.rs. Post Enumeration Check The Calendar of Operations for Post Enumeration 15.03 thr¢e sahedules called Post Enumeration Check Check Form-I, Post Enumeration Check Form-II 15.06 The Calendar IS placed at Appendix and Post EnumeratIOn Check Form-III Were can XXXVIII. For various reasons, we could not abide va'>sed, first two for the covera.ge error and the last by it. The important rea~on wa<; that fixed pay one for the content error. Form-I was to be can staff for Post Enumeration Check/Census Evaluation vas.sed in 500 sample blocks In the State out of a Study work could not be deployed in time. The to.al 4,000 bloch selec.ted throughout the country. Employment Exchanges took time in forwarding Form-II was canvassed in a 10 per cent sub-sample of names; then very large numoer of names were sem. census househo!ds in each block while Form-III was Because of their involvement in training for enumera canva'ised in the s.ame 10 per cent households. in a tion, Regional Deputy Directors took timo to sub-iample of 50 block, In the State in which Form mtervlew these people and issue appointment orders. n was. "anva'l~ed. Th~ speCImen of schedUles canvass PrOCurement of office space also came in the way. ed are enolosed as Appendix XXXVII. The sa.mple The frame for sele~on of the sample was also re wad selected by the office of Registrar General, IndIa ceived with some delay from RegIonal Tabulation and cqmmunicat 71 15. 07 In~tructioM for coding and editing of the record. The heads of housc>holds had boon reported Post Enum~r.ltion Cheek sch~ules were also received ditIer~ntly in two surveys i.e. S.J.mple Registration with dJlay. a.nd h,::nce this work at the Regional Scheme and Census.' Tabulation Offi,~~s w'" d.!layed. The. quality of work was not up to th~ mark whioh neoeuita.tcd 15.10 There were :;ome procedural difficulties inten,j,vo editmg at the Hiladquarters. al:ro. The names of newly-born children wttre' deleted in ca~ of visitors also. Now in Sample Regis CeDSus Evaluation Study tration S~hem~ we treat a family a~ vis:itor for first 15.03 The Cemus Evaluation. Study schedules six month~ and they are treated a~ usual reSIdents were canvass.ed in -'S.lmplo RegIstration Scheme only after 1st of 1anuary or July as the oa~ ma.y be. units 50 in Rural area'; and 25 lU Urban area'; of the A:; $UGh there were many ca~es where ~he birth or stato. Smce the Sample Registration Scheme, sampb death had been reported as a cage of visitor although was selected in 1967 on the ba5i'i of 1961 Census. the they were now mmal residents. We. therefore, had populatIOn lU the;e ul1it~ Iud becOffi') qui~ large. to treat all s:uch ca~ as matched. But thl~ took some and henoe the sample comprised of as many as. 160 extra time. censU:i block'i. Thls study wa'> earned out by the sam.) ')taft' a" the Post EnumeratIon Check. It wa<; 15. 11 Anoth H imp::>rtant oml~sion was that we did not enquire the res.i~ential status at the time of however S0m~ what delly.}d owing to adminIst birth or the place of birth. In ca>e a child was ratIVe reasons already mJntioned. Another import born after 1-1-1976 elsewhere, but th~ fannly had ant f.-etor was the time tcquired ill copymg of the Form-l0 for seleoted blocks. Majority of the Sample immigr~tcd permanently In the unit thereafter, it bceamo a ca~ of usual r!;}sident but could not be ~egistratlOn Sc.heme Computors had b~n promot~ matched. Most of such cases· were reported unmat- ,as Sta.tistIcal Assistant lU the R()gion~l TabuL!tion Offices. We had, th'Jrefore, a largo number of newly . ahed or'min::d in Sample Reg~ration SJhem~ although promoted Computors in the VItal StatIstics Section. this was not the true picture. ThJY WeT!;}, th'}reforo, not well versed with the 15.12 One helpful factor was that Sa.mple R6¥is 1 S::Lmple Registra.tlon S::heme. ThIs resulted in tration Scheme enumera.tors were well-versed with in~uracies in the a JPying . and comptia.tion work the reSIdents of units and were very helpful in done in the Vital Stati~ics Sxtion. achieving ilil) reconciliation ultima1ely. It was the 15.09 The most d t.ffi.oult position was faced by the part.. time enumerator who generally informed us enumerators woon they ca.me to know the nam~ of tha immigrated ca~s and pointod out .the drawback the head of households In SlJIlple Registration III the form However, in caW3, where euumerators Scheme did not correspond to those found in census were'also mnv great difficulty WAS experienood. CHAPTBRXVI GSNERAL: ADMINISTRATIVE. ACCOUSrs, STORES AND STATIONER.Y AND REGIONAL TABULATION OFFICES ETC. -\CCOUNTS proper maintenance of accounts in the Regional Tabulation Offices. The 1unior Accounts Officer Budget went to Regional Tabulation Offices and -carried out Expenditure on c~nsus wa'i debitable to the major mspections. These' inspections were very useful. head "265-A othe. Administrative Servioes A,..l It was possible to set right many short-oomings in CensuS." For financia.l years 1978-79 to 1981-82 time. grant number was 51 (Cem.u-;). There were five sub~heads under the aforesaid major head viz. "AI (I) Accounting Procedure of Clerical Asshtance ., to Dis-"r SuperIntendence", "Al(2) Enumeration", "AI (3) tricts, Tahsils and Local Bodies Abstraction and· Compilation", "Al(4) Publication" 16.06 During the 1971 Census, provision of funds aoud "Al(7) Computerisa.ti!)u of 1981 Cf.'nsus Data". for the expenditure on account of clerical ~ !!SistaDce 16.02 Sub-head "Ai(l) Superintendence" co to d~tricts, tah'ils and urban local bodles was made. vered aU expenditure on the admmistrative staff md in the 'cens.us. budget ~nd the Director of Census offioers of the Headquarters.. Sub-head "AI (2) OperatIOns allocated funds to each dIstrict. The Enumeration" covered reimbursement of expenditure expenditure was debited dIrectly to the census budget initially incurred by the State Government on account of Government of Indm. DurIng the 1981 Census, of clerical assistance to district~, tahsils and local there was a chlfnge in this pattern. ExpendIture on bodie'i in cO'1n~ctIon with 1981 Cenrus. Sub-head cleriq_~1 agsistnce was initially Incurred by the State "A1(3) Ab~tra:tion a'1d Compilation" covered ex Government which wa'> reImbursable later on by penditure on technical staff posted at Headquart.rs the Government of India.. Distnct Officers. were and Regional Tabula.tion Offices. Sub-hl)ad "Al(4) required to send figures. of monthly expenditure In publication" covered expenditure on printmg of the prescnbed proforma duly verified by the Accoun Cemus public1Hons, varion') form~ and s~hedules. tant General U.P. (I). Allahabad fOI the purpose. All the expendIture under the above sub-head:, wa~ It was decided by the Controller of Aocounts, Mmistry classified a'l -"Non-pIa'll". Sub-h1oo "AI(7) Com of Finance that sinoe the expenditure on account of puterintion of 1981 Census Data" cover.xl expendi clerical a'isntanye maurred by the State Government tUN on Direct Data Entry System. Provi'iion of was cla,>;ified by the Aocounta.nt General UP. (1), funds under thil s'lb·h~ad wa~ made in the budget for Allahabad, the latter should claim reimbursement the year 1981-82 only. The expenditure under thif> from the Pay and Aocounts Officer (Census), New sub-head wa') clas')iied as "Plan". . Delhi directly and the que')tt()n of State Government presentmg bills for setting theIr claIms of reImburse Yearly Budget ment did not I'rise. 16 03 The informatlo~ is - given in Appendix XXXIX. 16.07 The account'i for expenditure mcurred by' the State Government on clerical assi'ltance in regard Accounts Ru,les to 1981 Census were maintamed by the Accountant 16.04 Comequent upon the intr 13 74 Collectorate should be deployed for cens.us work so and allowance. Accoromgly, standard statements thlt it could be earned out efficiently. Some City were proscribed by me for the Regional Offices. Census Officers complained that the District Officers Delegation of Fill'lDeial POJfers did not give the requisite number of staff nOr did they give experienced hands. Keeping in Vlew the above 16.12 Powers of Head of Office under rule 14 of fact, the Admims.trators of Na.gar Ma.hapalikas were the Delegation of Fmancial Powers Rules 1978 were authoriSl.~ to appoint ceUSUs. staff for Nagar Mahapa conferred on me by the Registrar General, India vldl! hka concerned in'>tead of DIstrict Officers. The his letter No.15/1/79-Ad.I d3ted 15th May, 1979. expenditure was initially incurred by the Mahapalikas Powers of "Heads of Departments" as laid down in reimbursable to them later on by the Government of S~hedule V of the aforesaid Rules in regard to con India. tingent exp~nditure were also delegated to me upto the end of December, 1982 by the Registrar General. Special allowance to officials of 19 Tahsils for census India vide his letter No. 15/2/79-Ad.I dated 30th work O::tober, 1979. Originally, power to incur contingent 16.09 Reference were recelved from vartom expenditure in regard tothe purchase and repairs of districts for additional hands in the tah'>iI headquarters furniture. hiring of furniture was restricted to Rs.2,OOO.OO per annum recurring in each case and which comprised of more than 1,000 villages. Such Rs. 10,000.00 non-recurring in ea.ch case. The ta,hsils were nineteen as given in para 4.14 of Chapter position was reviewed by the Registrar General, India IV. The Registrar General. India, did not agree to when setting up of the Regional Tabulation Offices provide full-time additional clerical Msistance to was taken up and the limits were withdrawn. these tahsils, but allowed the payment of speciar allowance@R<; 25.00 P.M. to one of the tah<;i1 clerh 16.13 According to the DelegatIOn of Financial for attending to cemus work in addition to his normal· Powers, the powers delegated to the DIrector of Cen duties. sus Operations are as under: (I) Powers to create temporary posts on fixed Honorarium to official of 165 Municipal Boards (or consolidated salary in connection ,with 1981 attending to work connected with 1981 Census \ Census Operations for the period ending 28th 16.10 No clerical a~~istance was provIded to February. 1982. Municipal Boards having populatIon of less than one lakh on th~ bali'! of 1971 Celuu>. There were 165 (Ii) Powers to incur contmgent expenditure upto ~uch Municipal B'Jard'i a'> glVen in Appendix-XL. the 'limits of powers of Head of Department in Th~s.e Municip'lt B Jards demanded clerical a,><;istance respect of Items mentioned at SIs: 1, 3, 4, 5. 6,7,90). to, 11, 12, 130), (iJ), 14. 15,16.21 to enable them tl) carry out th~ Cemus Operations 23 24 a-;~()rding to the time sch~dule~ It \Va, not pos'>ibJe (b) (c), and in the Annexure to Schedule to provide full-time clerical a<;.,istance to thes.e Muni V of the Delegation of Financial Powers Rules 1978 subject to the conditiolls and restrictions cipal B;)aros. But honora.num @R .. 25.00 P.M tn the "form of inoentlve to one official in each of these laid down m Col. 4 of the Annexure of said Mumcipal Boards wa, allowed for attendmg to cen rule for the period ending December. 1982. sus work According to th~ scale of clerical asslsta.nce (Iii) Powers. to sanction the grant of recurnng and laid aown"in Regi.;;trar G~neral's letter No. 1/34/79. non-recurring honoraria upto a lImit of Ad I dated 26th June, 1979, six Municipal Boards -Rs.I00.00 1n each case to Government ofii (para 4.14 of Ch'tpter IV) havmg more than one lakh cialG other than those in his own office and to popUlation on tl-t0 ba~l<; of 30 per cent tncrt>a'le in non-officials for work done in connectIOn population of 1971 Cemus wert} also provided clerical with Census Operations. a'l,htance of one Upper Divi<;ion Clerk each. (iv) Powers of the Head of Office in respect of Monthly and Quarterly Returns of Expenditure Census Offices established in U.P. in connec tion with 1981 Census. 16. 11 Thl} MinIstries of Homt: Affairs and Finanoe carry out a monthly review of the flow of expenditure (v) Controlltngpfficer for sanctioning his own as under each gra"'lt To f 16.14 To.mn3 remtted in frcq Training AlIf)W3ntCL t~ EnumeratDrs and SUllenisor~ year. The Accountant General took a lot 0f time 16.22 The Government of India agreed to m~et the to acknowledge receipt of the deposit and then to authorise Treasury Officers to honour withdrawals expendIture that m~ght b~ incurred on TA. (j.nd D.A. of the staff appo!nted as Enumerators and SupervIsors on this account. The p'::l.yment ,was specially delayed for H6Usehsting - , for attendIng. training. performing other (lutIes and n filli 3 up oJ, scheQ.utt;~ in respect of ]981 ,Cep.sus as 16 25 The Census f::harge,Offi.cers wew tobe autho admissible under the ~tate Gpvernm_ent rules or Local rised to function as Drawmg and DisbursiJilg > Officers Bodies as the caSt:: md.Y be.' This con~s!'fion was for the drawal and disbursement of honorarJum pay allowed by the Government of IndIa for the first time able to Enumerators and_ Superv~rs. All the Census in conqectlOn With 1981 Census work. Payme~~ of Charge Officers. were not gazetted officers in their the claIms of Enumerators and Supervisors wa~ to be concerned departments and many of them were not made by the District Officers out of Census budget and even Oovernment Officers, A'l such the proposal not by the deplrtmental authorities of the Enumerators of authorising them to act as Drawing and Disbursing _and Supervisors. Since a huge number of T A. claims Officer was not vjab~ for the State Government fro-m on account of tra~ning was expected, it was apprehen the point of view of proper accounting of exp:mditure. ded that the meagre staff of tqe Disttict Census Offices Therefore. • the Tahsil Census Charg~ Officers would not be in a pO,)ition to handle the additional (TahsHdars) who are gazetted officers and Drawing burden effectIvely and efficiently Therefore, State all.d DlSbursm.g Officers in their own qght were apth,!} Government deCIded to san9tlOn training alJowance in nsed to fun::tlOn a.s Drd.wing a~d DISbursing Officers, lieu of T.A. and D.A. to Enumerators and Superv! for the drawal and disbursemellt of honora.riVJll sors. Training allowance for 4 days in regard to IJ9use p:\yablc to Enumer;t0J:S -and St,lp.ervisors of variolls listing OperatIOns and 6 procedure, funds, in advance were placed by the DetaIls of Cens~s Functlonanes Rate Government of India at tile dIsposal of State Govern ~-----~- A flQusellumbering/Houseiisting Operations ment to meet the required expe~diture. This ~dvance payment to State Government was to be treated as 1. Enumerator Rs. 20 00 2. SupervIsor Rs. 20.00 the 'd!posit credited to the State dep031t h~ad of account "848-0ther deposits-Miscellaneous depo B. Population Count 1. En\\mera~Qr Rs~ 70 00 sits-DepOSIts for payment of honorarium to Enumera~ tors m connectlOn WIth 1981 Census". Advance 2. Supervl~()r Rs. 70.00 payment \Va'> made to the Accountant General, U.P.(I), Sample Block Allahabad on behalf of State Government by debiting 3 Enumerator Rs 2000 the budget head "265-A Other AdministratIve, Ser Canvassmg of D.H. T.P. Schedule VICes-AI Census AI(2) Enumeratton-Al(2)(4) Hono- 4 Enumerator Rs 10 00 rarium to Enumerators". • C. Charge O,fficer I Addltl~nalj ASSIstant Ch~rge Officer . Rs. 200 00 fot both 16.24 The Accounta\1t General, u.P.(l) was the phases of required to furnisll certified s~atement of expenditure Census OperatJOfl> to the Pay and Accounts Officer (Cens\ls), Ministry D. Additional Dlstri.ct Census Officer/ R~. 300.00 for both of Home Affairs, New DelhI Any ~Ytspent balance AddItional City Census Officer/Sub the phase~ of lyIng in the deposit head out of above advance payment DIvisional Census Officer' Census OperatlOlU. Was to be refunded by the Accountant General, U.P. E District Census O~cer/CIty <;ensus Rs 500.00 for ~\h (1) to the Pay and Accounts Officer (Census) before Qfticer the P9.a~s of, CensuS OperatIOns. th"! close of the account of the concerned financial 77 1626 The following aRlount had\ been incurred 16.33 The medals along with the associated on axount of pa.yment of nonararium to- dliftlrent certificate were finally d!stributed as follows:- Census' functionaries: -----~------_- --,-~------:------.. '-~ ------1979-80 440,00 No of Medals Categones of recipients 1980-81 2,16,76,723.00 SIlver Bronze 1981-82 t ,21,877.00 -_------Totat 2,17,99,040 00 IteglOnal Dep~ty DIrectors 12 16.21'lThe d istnct-wise detailed figutes or' PrincIpal Census Offi.cers 4 exp:mdlfut" On account of ~!Ioyment af honorarium DIstrict Census Officers/CIty Census are !HV'en in 'AppendIX XU. Officers 7 \ AddItional DIstnct Census Officers/ CIty l6.2S The total expendIture lUCUfF 16.54 The Regional Deputy Directors were, aocommoda.tlOll IS hired'/(tlther by Direotor Con<;us o.r of course decY.lfCd Heads of Offices but they -could by Registrar General, India the r;drtJ,iicate of reasana· not b..; declar..:d Drawlllg and Disbur"mg Officers. The brhty of rent from C P.W.D. is .g~ssary. Our -ex,. pay of every region was,· therefore, drawn a~ Head- pcrwnce ha.'i boon that this is very tilme taking autl - quartuJ_ and r0ITiItt0d trhrough bauk draft Inspitc of ClluseS. unneaessary haras3ement. To ease this the fact that RegIonal Deputy Dm:ctors w.ere dlr.;ct..:d SItuatIOn, thr. RegIstrar General, India WI'S kind to send the salary bIlls lU advanc), some times It could enough to. permIt the hrring of buildinWl o.n tbe basis not be possible to disburse the pay III timo. 'n would, of Distric1: Maglf>trate's certIficate, o.f -courlJe with his therefore, be worthwhtle If thl'i prublem could be pnor permISSIOn. Befo.re that, we had to tackled m ~--~---~ Dehra Dun 4,180 224 16.59. BeSIdes, other probletns al'fo came tn, the 2 NalmtaJ 4,004 210 M :yo Landlords -were scared because of large 3 Meerut '. 20,020 1,036 movementis of. staff and records. Big builditlg~ 4 )vtoradabad 10,384 532 with' required spaoe wett. eldom a\IoHable. Tl"It'y 5 BarcIlly 11,704 616 were also &itll'!tN at fat o-ff piaGes from -tnt ce't1dal 6 Agra 18,876 980 7 AHahabad 21,384 1,148 POillt of tbt. (''1tj. • . i 8 Jhansl 9,064 ' 476 9 Lucknow 21,296 1,106 16.60. ~f:-cau..t' of non-a\-a-ilabIlity of p'QP.:r 10 Falzabad 22,924 1,190 accommodation tne Fa~zab8d Rt'llicnal TabuI.atron - 11 Gorakhpur 25,168 1,316 OJllt:e at Bara &::mki had to b~ split up mto two, 12 Varanasl 20,548 1,064 the other being set up at Luekllow, Allahabad Kanpuf 9,440 504 13 ha.d three bUIldings }iitua.t~d at three corners. on Total 198,992 10,402 the outsklrt'> of tho town. Varaua'H problem was -----~ ------~-- aceentuatod because of RegIOnal Deputy Direator's 16 56 The dctatls of buildings. taken on hire by sudden ilines-s. In G0rakhpur, we were luaky to dtfferent Regional Tabulation Offices" alongwith theIr OlieqUlre a big buildmg On the ontskirto, of tfut Ci1!y area, rent, the authorities. "'hlch granied rent reasona bhe Delogacy Ho:>tel of th-: UniverSity. This building - bility certificate are given in the statement pla-::ed at pt(}v;ously belOnged to the Governhient Polytechnic, Appe~dix XLIV. Gorakhpur I am grateful to Shri Suresh Cllqndra 16.57. An experiment was made this time to the then Secretary, Te expendIture to be incum.d towards th ... outright 16 67 At the tUllC of' wrltmg this report tell purchase. SInce hiring turned out to be mucb mar.: tclrpl10ne connectIOns it<; follows ~:crc at the HeC\ct expemlve and furnitur.! wa<; not available 011 hJfl~ at qu?.. rter~ :- most places, we had to purchase jlhe" furmturr for Telephone Place of InstallatIOn Regional Tabulation bffi~e~. The RegIOnal Tabula 1 48073 Director (Office) tion Offi:;e" WGfJ advIsed -to a~quire it ~'i eh(:apIY a'i 2 31551 Director (Residence) p)s<;ible in view of Its short term u<;e. 3 47202 Jomt Director & Deputy Director (C) 4 34037 JOInt Director (Residence) 5 31991 Deputy DIrector (V S.) 1.6.62 The expenditure towards. the purchase ~as 6 34593 Deputy l1>irector(D.p.) to be incurred by the Dm;1ctor of Census Opt'r1Itions 7 34664 Ce;JUty Director (O'CR & S S ) 6. Park Road 8 84037 C-22, Mahanagar. in t.he state under t'1(.' p'Jwers of the Head. of the 9 34295 Proposed to be ~hifted to Prem Bazar D.!partment <,-s per th; delegatIon of financIal Ie 46379 Proposed to be Shlftcd to Wazlr Hasan Budding powers rules 1973 a, d0legatcd viae Office of the Registrar Genem.l letter NQ 15/2/79-Ad I dat,~d 16 68 The .. expendIture mcuucd on account of OJto b)r 30, 1979 telephone charges at Headquarters was as follows: 16.63 The furniture procurt'd alongwith -It .. total 1979-80 - Rs 33,698 60 1980-81 Rs 64,899 05 cost for'each Regional Tabulation Office I" indicateti' 1981-82 .Rs 52,352 31 .in App:mdix XLV. . I I 6 69 All the Reglon~1 TabulatIon Officers were 16 64 RegardlUg disposal, the DIrector of E~uca also sa'lctIon~d one offi;e teleph')n-c. The RegJstrar tion, U. P was a~bd if be would utilize the furniture General, Indta persc>n~lIy ~ook up the matter with the in the schools. They welcomed thl<; anrl a~cordihgly, Director Genelal, Post alld Telegraph., who In the Regional Tabulation Offices dlsposed of their lll1m issued mstruclIom to subJrdmah: offices vide furniturJ in thi; way. Unservic.,able furniture wa') letter No'1 44/11/80-Pha dat·_;d June-, 1980 that auctio;1ed H~w ..wer, th(~ good quality furniturc tempo-rary telephone cc>nnc:ctlOns\, for the census I:1cludlllg offi;;,"s tables and chairs and racks etc. office bi! provIded most expeditIOusly a<; and when w~ brought at th:: H,:adquart~rs. at Lucknow for demand IS received. H(;wever, installation of ~eleA bemg us,~d here. phone in R(}gional Offices took much t:Ime al1d effort We were moSllly given temporary connections. Telephone 16.65 Wh~n 1 join ~d there wer'~ !>ix tel.~phones Typewriters at the Headquartels :- 16.70 There were 21 (6 Hindi and 15 Engl'sh} 48073-Mam Offi~e (Director). typewrit( rs at the Headqllarten. These machines 46379~capitol Building. were quite m<;ufficlent to cOJX" With the r')ql!lrement 47357-52, Gbaslarl Mandi. of the Regional Tabulation Offices. A')p"~'clating the need, dUrIng September, 1979 to -FebruaTY, 1981, 8 I317-C-22, Maabanaga r. fifty on.e (2q Hindi and 31 English) typewriters 81017..---"8-25, Matltanagar. were sent by the Offioc of the Registrar General, India. 84562-Deputy Director IIC (Residenoe). This. supply fed the Regional Ta.bulation Offiaes. I These machines were procur CHAPTER XVII CONCLUSION J. As I reach th~ eni of my A1mini<>tration Report, remains. As long as the Director of Census is not in .' am ai!>o n~aring the tenure in this organisation. posItion, even the preliminary task of up-dating of 'this makes me a trifle sad. The job has given me maps and preparation of the census frame hardly - 0ppJrtumty not only to work through a complete gets under-way. The Registrar General, India had op!ratlon but also to establtsh lasttng associations initiated this process in early, 78. However, when I with colleagues in the Directorate, other fellow joined this organisation in April, 1979 hardly any Directors and the Officers of the Office of the Regis. head-way had been made. trar General, India. Over the months and years in th ~ org lnisatlOn, there develop!d feelmgs of be 17.04 In preceding chapters, I have discussed long ing to a census family. One of the leasons, the various facets of the operation and honestly of course, is a tenural apP:lintment, the other and the recorded my impressions. I have made some sug more important reason is the basic op:!rational thesis gestions which would require a decision at the Re of census. Throughout the operations, there has to gistrar General's level and many more, which may be b~ a great degree of co-op!ration and co-ordination considered at the Direotor's level. I sIncerely hope wIth district collectors, admiuistratOls in Nagar that they will be useful. A brlef recapitulation is Mahapahkas, other lac al authonties, heads of depart being given m Appendix XLVI . m:!'nt5 and the Secretaries. One has to mobilise 17.05 Having done my humble job in the con and operate through a vast bureaucratic structure duct ofl981 Census III the biggest state of the country, I over which one has no dIrect control. The only certainly look back at the prospect with happy satis way IS to use p~rsonal relatIonships and build them faction. However, this could not have been pOSSIble up where they do not elast already. This is becomin.i without the blessings of my supenors in this organisation incr~.l,'ngly impJrtant because one .finds that State and the State Government, as also the actlve coopera Government Officers are so Involved in a pletlhora tion of my colleagues and friends all 'around. FIrst of tasks that th~y find It difficult to give continuous and foremost, I must record my grateful thanks to attention to a job like census. There was a time Shri P. Padmanabha, Registrar General, India not so when endorsement to an official letter would get the much for the ready IllstructlOns and the advice he job done effectively. Now personalised D. O. letters gave but for the constant courtesy and patience he do not evoke that kmd of response. Even one perso always extended and the unden,tanding he had for nal VI~lt is not enough. I felt that I had to register even our mmor worrles or unreasonable requests my personal presence in the District and Nagar which were certainly many. He was an epItome of M1.hapalikas continuomly. In a state lIke Uttar patience and an ideal census personality. He was Pradesh, this was the bIggest problem. always unruffled and cheerful. Although, I threw a 17.02 I also fondly look back upon the census lot of problems in his lap but there never wa') a frown. conferences. They were really instrumental in deve It was he, who was instrumental in developing the loping the brotherhood. As secretary to government proper attitude and team spirit ill all of us like a or hea1 of dep3rtm~nt, one gets frequent opportuni true captain. I am equally obliged to Shn V. P. ties to attend all India meeting ill Delhi. But one Pandey, Deputy Registrar General (I) and Shn K. K. does not really get to know one's counterparts 1U other Chakarvorty, Deputy Registrar General (C & T). states certainly not all of them. In census, on(' really When I used to bother so often, they solved my does. These associations would be a life-lon£ gain. problems frequentlY on phone. I am also thankful to Dr. Holla, Joint R~glstrar General (VS), Shri N. G. 17.03 Censu<; IS a decennial pro ess and no Nag, Deputy Registrar General (SS), Dr. B. K. Roy routmes are set for It to move smoothly. It is also a Deputy Registrar General (Map) for their cooperation time bound process where no delays can be accommo and assistance. I am also thankful t. SjShn O. p. dated. While maintenance of a nucleus during Sharma, M. L. Gulati, K. C. Seth, S. Rajgopalan, the lnter-censal p~riod is a big help in basic planning Tirath Das, all Deputy Directors, and L. K. Prasad f0r c~n~u" the imp Jrtant task of mobilisation still Assistant Director III the Office of the Registrar 83 84 General for their ready co-operation in administra 17.07 The success of the census is particularly tive and census matters. due to unstmtlUg enthUSIasm of the DIstrict Collectors, the AdmInIstrators of Nagar Mahapahkas, District and CIty Census Officers and Charge Officers. Des 17.06 The operations entirely depend upon the pite the already heavy tasks of office, durmg the support Of the State Government. I can unhesitatingly 1981 Census they had to battIe a severe drought say that not in a single instance. lIfelt any difficulty and followed by severe floods and in many areas severe I am deeply grateful to Shri D. Bhattacharya, Shri law and order problems. They also had to organIse R. B. Saxena and Shn Tribhuwan Prasad, ex-Chief Lok Sabha elections in January, 1980 and Assembly Secretaries to Uttar Pradesh Government for their elections 1U June, 1980. However, one aI"d all, they continuous guidance, co-operation and personal in· plunged into the census stream and did not <;omplll.in. terest taken by them. I am specially grateful to Shn To them we owe our thanks. O. K. Arora, Secretary, Education. Uttar Pradesh Gl'vernment, for his ready and understanding help 17.08 Thanks are also due to the vast army of in ironing out problems in regard to education de Enumerators and Supervisors who shouldered their partment staff. I am also grateful to SjSnri S. K. task readdy and not for the monetary gain. We owe Modwel, M. C. Joshi. and B. K. Chaturvedi, Secretaries special words of thanks to the citizens of the state for to General Administration Department, dealing making the operations successful. with census, SjShri Roshan Lal and A. K. Rastogi, Seeretaries to Urban Development Department, SjShri 17.09 In the end, it is my pleasant duty to record Anand Sarup and J. L. Bajaj, SecretarIes to Plannin, my personal thanks to all my colleagues in my office. Department and SjShn K. D. Agarwal and N.C. I can recall the hectic days full of anxiety and strain Saxena, Secretaries to Revenue DepU., Uttar Pradesh wnich would some time lead me to desperatIOn. Government, for their ready cooperation. I would However, they stood by me and bore the brunt also ltke to specially thank SjShri D. P. Octania and of the task without complamt. WIthout their help, Anand Swaroop., Directors Economic Intelligence' I could not have· accomplished thIS mammoth task. and Stat~stics, Uttar Pradesh for their whole-hearted It is to them that the major credit should go for co-operation. accomllishing the 1981 Census. APPENDICBS 85 APPENDIX I APPENDIX III (Vide Chapter I) (Vide Chapter I) (TO BE PUBLISHED IN THE GAZETTE OF INDIA Notification regal dmg the takmg of the 1981 Census. P ART III SECTION 1) (Pubhshed on page 1113 of Part II-Sectlon-3 Sl.b- APPENDIX IV (Chapter I) STAFF POSITION AS ON 24-4-1979 APPENDIX II 51. DeslgnatioD Pay Scale No. of No.of (Vide Chapter I) No. posts posts No. AE/I085/DCO-UP sanctIoned filled GOVERNMENT OF INDIA 2 3 4 5 ----- MINISTRY OF HOME AFFAIRS 1 Director Office of the Director of Census Operations, U.P. 2 Dy. DIrector 1100-1600 3 2 (Administrative Section) 3 Assistant Director 700-1300 6 2 6, Park Road, 4 Investigator 550- 900 7 6 Lucknow. 5 Sr. Geographer 650- 960 Dated: Apn124, 1979 6 T.O /S.T.A. 550- 900 16 14 CIRCULAR 7 StatIstIcal ASSIstant 425- 700 32 32 Shri Ravindra Gupta, lAS has taken OVer as DIrector or 8 PnntIllg Inspector 425- 700 1 Census Operations, Uttar Pradesh 111 the forenoon of 24th 9 PrQof Reader 330- 480 2 2 AprIl, 1979. All Deml-officlal commUnlCat10n' meant for the 10 Computor 330- 560 106 104 Director of Census OpeiatIOns,Uttar PI adc~h may be addre~~ed to him on the address gIven above HIS office Telephone 11 ASSIstant ComplIer 260- 400 191 141 Number IS 48073 and hIS reSIdentIal TelephOne Number IS 12 Geographer 550- 900 42559. The reSidential address of the Director is B-2, Butler 13 Senior D/Man* 425- 700 2 3 Palace Colony, Lucknow. 14 Artist 425- 700 2 Sd/- 15 D/Man 330- 560 11 10 (S S S. JalswaJ) 550- 750 Deputy DIrector 16 Head ASSistant 425- 700 2 2 No. AE/1085/DCO-UP/of date 17 As,istant 87 88 S1. Designation pay Scale No. of No. of as urban. Accordingly, we considered whether in addition to No. pOsts posts the Usual demographic characteristics the levd of infrastructural sanctioned filled facilities in an area should also be a determinant factor·for cla sSlfYlUg an area as urb:lU. On the other hand, a dIametrically 1 2 3 4 5 oppo~ite VIeW W1S that keeping in mind the practical problems of demarcation of rural and urb3.n areas III the comp3.rahv ly 18 Senior Stenographer 425- 700 1 1 shorttlme available before the actual census Operations. It 19 Accountant 425- 640 1 1 might be worthwhile to simplify eVen the definition adopted in 1971 Census. In respect of the first suggestion, It was app 20 Junior Stenographer 330- 560 3 1 reciated that the level of infra-structural development or avai 21 Upper DIVISIOn Clerk 330- 560 13 13 lability of amenities should be an important consideration for 22 Lower DIVISIOn Clerk 260---- 400 19 16 an area to be recogLllSed as Urb'll1. But at the same tIme It W tS 23 Map ASSistant 330- 480 2 2 felt that III vieW of the compleXity of the Indian situation and 24 F.P.M O. 260- 430 1 regional va,rtatlOlls In the level of mfrastructural facIlities it would be rather dIfncult to apply thiS test uQ1form:l.lIy all over 25 H.P.M.O. 260- 400 2 the country, particularly m the short time available for the de 26 Hmdl Translator 425- 700 1 1 marcatIon of urban areas before the actu3.1 census takmg. As 27 Class IV 196- 232 52 45 regards the other suggestion, VIZ., simpitfying the present crl 28 Jr. Gest. Ope,ator 210- 270 1 eria. the consensus was that though, as a general rule, It mrght 29 Driver 260- 350 2 2 be useful and conVenient to h'lVe a SImple test by size ol1ly, It would not be desirable to mtroduce a totally new concept of 30 Head Clerk 4-25- 700 3 3 criteria other than that used In the previous censuses for demlt cation of urban areas because it would then be difficult to mak: 486 411 any meamngful comparison and analYSIS. 3. The definition @f an urban at the 1971 Census was as ·1 Senior DfMan workmg agaInst the post of ArtIst. foIlows:- (A) All places With a Mumclpahty, Corporation, Canton APPENDIX V ment Board or Notified Town Area Committee etc. (Vide Chapter II) (B) All other places which satisfied the following CrIterIa: 1981 CENSUS I. A minimum populatIOn of 5,000 IMMEDIATE II. At' least 75 per Cent of male working population engaged III non-agrIcultural pursUits; and No.2/S/79-SS III. a denSity of population of at least 400 per Sq GOVERNMENT OF INDIA Km. (1,003 per Sq. mile). MINISTRY OF HOME AFFAIRS The Directors were also giVen some discretion in respect Office of the Registrar General, India of some marglllaicases to lllclude, 1Q consultatton With the States Kotah House Annexe Governments, som~ places that h3d other distinct urban charac_ 2/A, Mansmgh Road tersttcs and to exclude cert\llU areolS Which could not be consI New Delhl-1100!! dered as urban. February 5, 1978 4. It is proposed to retain the same criteria at the 1981 Cen- sus. This WIll ensure comparability ;'Ith preVIous Censuses CENS US OF INDIA 1981 -Circuhr No.1 and provide the basis for analysis of trends of urballlsltion III Subject: Classification of Rural and Urban Units-1981 the country. .... Census 5. The above cnteria had worked more or less s1t1sfac The next decennial census WIll be the twelfth of the series torilyand brought some uniformity of concept for the coufltry and the fourth since Independence. One of the foremC>5t and as a whole. How~ver, theIr uuhty was somewhat undermined Important task that requires y.)ur p~rso ul attentIOn for the as they were not ~trlCtly apphed III some state~ for on:: reason 1981 Census IS the procedurc that you have to follow for or the other. reSUlting 111 lack of UnIformity. For example, ill dem'lrcation as e~r1y as possible of places as runl and urb:m. state some settlements were shown as Villages although they were haVlllg a populatIOn of more than 20.000 WIth a denSIty 2. It has been the tradition of the Indian Census to present of more than 400 persons per sq km. and mne than 75 per census data for rural and urban areas separately. In fact in cent of the m'llc workmg force engaged III non-agncultural all the censuses throughout the world thiS classific'ltion of cen occupation. These settlements fulfilled all the criteria for bemg sus data mto rural and urban Unlt~ IS generally recogllls~d and treated as urban and yet thcse were not claSSified as tOW,IS. In data presented accordingly. But the dlstmction between rural some cases certam places were left out despite havlI1g local and urb:lll IS not yet ame-zable to a smgle dt!fi'lltion which authorities which corresponded mUlllclpaltUeS, such as s:!llltary would be appltcable to all countries. We h'lVe given consider boards etc., as covered by 3 (l) ab.Jve On the oth:;:r h lUi, III able thought to the definitIOn or cntena to be applied for dem some states only those places were conSidered as urbln whICh arcation of an area as urban. One View laid equal emphasis were havmg a notified town area committee or Similar statu on aspects other than demographiC for classification of an area tory body, i.e., just applying 3(a) and ignonng 3(b) altogether":' 89 Y')u should consider all the criteria 10 3 (b) above, where 3 ('1). 9 Llhcwise. you may also consider the cases ('f places which is not applicable, without the exclusion of one or the other of otherWIse satIsfy the crtterla for treatment as urban units but the three condittons laid down therein. As against this, there WhiCh, in your VieW, should not be SO claSSified because of spe a re cases in some states where places with such m~1gre popula Cial clrcuffi\,tances. As In the prevIOUs case such clses should honas 3Sand 96 were treated as towns. The 'discretion' clause also be speCifically referred to thiS Office for a decision in the was alsO apphed in few states III a manner which resulted in m:ltter. 1",s of uniform apphcabibty of the definitIOn, as stresS was [aid by different states on one or the other of the criteria laid 10. Normally, all places which are district Headquarters down in the definttion. should be classifiable as urban on the basis of criterta indicated here. However, there may be some district Headquarters Which 6. In some states som::: places have a statutory body like cannot be claSSIfied as urban since they may not satisfy the town area committee, municipal corporation or a similar sta criteria. The cntena being referred to here specifically related t utorY body though not satisfying the demographic test of population, density and occupation. It may be emphasised to the demographiC cntena of population size and proportion thatfor the purpose ofcomparabihty with the 1971 census data of workers. Because It may be generally desirable to alasslfy Irrespective of their demographic characteristics, all places all dIstrict headquarters places as urban we would now have which have been notified under the hws r~lating to the establish to take a view regardmg such places which are dlstnct cad ment of local authorities and have local bodies ltke municipal quarters but not c\asslfiable under the criteria referred to. You corporations, municipaltties, municipal committees, municipal b:)ards or municipal towns, city municipalities, municipal town are requested to review th~ sHtm of all dlstnct h::adquarters committees, cantonm:::nt boards, notified areas, nottfied area places and refer to thiS office the cases of those distnct head committees, toan committees tOJl..n areas, tOJl..n boards, tOJl..n quarters which cannot be claSSified as urban under these crtteria. municipalities and sanitary boards. etc•• must be included in the Sin~e thlS IS in fact a speCial case, details of such places Wln also list oftoJl..ns. There may be other types ofloca 1authority which approximately correspond to the above mentioned local bodies have to be Illulotei preferably separately m the enclosed pro but the terms may vary among the :-.tates. In such cases, a forma N0 1. With regard to such places the fact that these speCific reference may be made to thiS Office for a deCision are not urban but are dlstnct headquarters places must be whetltersuch a place should be treated as urban or not. brought out clearly. 7. It may be emphasised that it is not only necessary to apply t 1. It IS cecogmsed that If these criteria are applied stnctly. the criteria laid doltn strictly but also to mterpret it lrl a uniform there would pOSSibly be a spurt 11 the urban population III 1981 manner for the purpose of comparability both in lette ~ 0"" sDi~it. Census since many areas which were n')t treated as urban durmg Again,irrespectlve of what the treatment was tn 1971, if a place 1971 Census Will be chsslfied a5 urban The actual decadal satisfied the three conditions mentioned in the second criterion increase in urban population would be less than what is ltkely simultaneously, then such a place must be treated as urban. to be reflected by 1981 Cemu5 In a fly lelf or analytical note There is no dIscretion in this matter and eVen if this reSUlts in thiS difference between th~ actualtncrease and apparent tncrease new places having to be included which were over-lOOked in III the urban populatton can th::n b:: brought out. But what is 1971, these must be claSSIfied as urbln areas. The detatled Importanlls that uniform appltcatlOn of the definitions must data of area and population from WhICh the density can be be ensured. d enved and the compositIOn ofthe worklllg force for each rural and urban umtprovlded at the 1971 Census wtll make It easier ror you to apply the criteria laid down above and determme 12. You may examme the cases of all rural umts having a the urban status more accurately. pOpUlation of 4,000 or thereabout in 1971 Census and which may be expected to cross 5,000 population mark by 1981 and those umts which had more than 5,000 population in 1971 Cen 8. The third criterion gIving 'discretionary' powers to the sus but wore not treated as urban. For such cases the composi tion of the workmg force, the denSity of populatton and other Directors must be re5tricted III Its apphcation. You m'1y. however, include such places that have other distinct urban factors should be examined to See whether these qualify to be characteristics and amenities, such as newly founded indUstrial categorised as urban. In the General Census report or the areas and large housing 'Iettlements hke Pochampad Project, Administrati.on report of your state your predecessor might Lef, Flank Colony of Adilabaddistrict, and UPPer SHeru Pro have already given some gUidance in this matter. All such iectSlteCamp of Visakhapatnam district in Andhra Pradesh, places I'll respect of whIch town area committee or the ltke have places of tourist interest like Kh'ljuraho of Chhatarpur district been notified after 1971 Census must also be ltsted. SImilarly in Madhya Pradesh, pilgrimage -centres hke Badrinathpuri of junsdictlonal changes tn towns and Villages after 1971 Censu; Chamoli district in Uttar Pradesh and railway colonies like should also be taken Into account and hsted Notifications Muthugounden Pudur Railway Colony of Coimbatore district issued to this effect from time to time may also be kept on re i nTamilNadu. These have been recently served With all ciVIC cord At the same time, you may also carry out an exercise amenities, though they do n')t sattsfy the crltena laid down to see If there are any areas reoogmsed as urban tn the 1971 for classificatIOn as Urban. But before treating these areas Census which do not deserve to continue as such either due to as urban, each such case should be specifically referred to this reduction in the population size or due to changes in compositlon offi~e with full particulars and jUstification in support of the pro of the workmg population or other factors. ThiS work must Vosal to enable us to take a suitable decisiol' In the matter. also be completed as early as possible. 90 13 1 expect that your office might have already done some All Directors of Census Operations, (Two copies with two exerCise m this regard You may kmdly finalise your pLOposals proforma each and for the file of the Director). and furnIsh the requIsite particulars 10 the two enclosed pro Copy to ;- forma as early a" possible, but before June, 1979 in any case, 1. Personal Sectton of R.G (5 copies) so as to give this office sufficient ti ne for finallsation of the 2 Census Ccii (5 copIes) urban frame at all India level 3. Census DiviSIOn (5 copIes) 4. D.P DIvision (5 copIes) The receipt of this clrcuhr may kmdly be acknowledged. 5. Demography DiVISion (5 copies) Sd/- 6. Map DIVISIOn (2 copies) (P padmanabha) 7. V.S. Divblon (2 copies) R~~htlar, General, India 8. Language DiviSion at Calcutta (2 copies) PROFORMA I Stat~ment sh;)wmg th~ dlstrlctwI~e list of Villages which qualify the empirical tests prescnbed for treatir,g 3. unit as mdependent town for 1981 Cemus Name of State Name 1971 Area 1971 PopulatIon Total Non- DonsHy of Other Re- Sl. Dls- Tehsil/ Loca- , __.A. __-"> % No tnct Taluk/ tlOn of r----_A._--~ male agri- ker sq. Non- speCial ma,ks Thana/ Codft Villago Acres sq P M F work- cultu- m agncul- chaTac- Anchal/ (VIII- 109 ral tural tenstle~, P:S / age) Popu- male male amenl- Block. latlOn wOlk- work- ties, mg mg etc popu- popu- If any. latlOn latlon (cate- to ganes total III to male IX worke-s --~--- 10 11 12 1 2 3 4 5 6 7 8 9 13 14 15 16 ------ Compll(d By ..•..... , ...•.....••..• Checked By .•...... •.. ------PROFORMA II Statement showing towns of 1981 Census with reference to the towns of 1971 Census N('.me of State ..... Dlstnct/Tehsll/ Towns of 1971 CensuS whIch conti- New towns added In 1981 • Towns of 1971 declaSSIfied In P S jBlock etc nue In 1981 Census Censu~ 1981 r------..A- ~ r------..A...------1 Towns With the Towns with addl- sattsfying the cn- On the baSIS of ~-----~------1Not sattsfYlng the Merged (Partly or same jUrISdIctIOn han of area terla special cnteria cnterIa wholly with other as that of 1971 (JurIsdictIOnal town) change) 5 ·1 2 3 4 6 7 1 1 1 2 2 2 2 2 • 2 3 3 3 3 3 3 4 4 4 4 4 4 etc etc etc etc erc etc. Compiled By...... Checked By ...... • ...... APPBNDIXVI Vide Chapter II) 1981 CENSUS In order to give you an Idea of the organisatIon (if our own hierarchy, I am enclosmg two organisational charts which ex IMMEDIATE plain the organisation of my office and that in the States. Un D O. No. 9/22/79-CD (CEN) lIke a couple of decades ago, we have the aci\'antage of having Government of India among our colleagues In tillS department today well qualified Ministry of Home Affam statisticians, demographers and sociologists who together constitute a pool of expertise whIch our predecessors did not P. PADMANABHA The Registrar General, India have to the same extent I would suggest that you should 21 A, Mansmgh Road, constantly consult the Deputy Directors and ASSistant Directors New Delhl-HOO!! ~nd other~ at the appropriate level In your office and generaUy June 19, 1979. InVolve all of them In major decisions through staff meetings because, as you Will find later, the Census operatl:ms can only CENSUS OF INDIA 198!-C1rcular No 2 be conducted with the total involvement of all your staff, spe Cially m the tramlng programmes and In the superVISIon of the Subject: Orgamsatlon of Census of India 198!-general ms operations themselves. I am sure YO\! WIll draw the best out trUctIons. of our colleagues so that you are able to g~t all t:te assistance My dear, you reqUIre from them I trust by now you have settled down and have familiarised At thIS point, I must mention thu th~ Dl,ect~r of Census yo\mel1 by llfld large with the work. I am now writing In some Operations In the State is almost the sole drivmg force for the del~Jl so tbat we may all be aware of the organisational task successful conduct of the Census since you would have to ener ahead of us and the framework is which we would have to operate. gize the State hierarchies which are not under your admiros As and when'speclfic Issues are decided, detailed circulars WJl1 tratlve control and through them you Will have to get a mammoth be issued from thiS office and I would hke to emphasise that task completed. We cannot and should not under estim ate the~e circulars or instructions must be gone lUto lU great detail both the responsIbtlities and the difficulties that thiS SItuation since, in the census, it would scarcely he possible to catch up entails. Obviously, the success of the census would depend later If time is lost. on your ability to carry along senior officers and others in your state with you and get things done through a system of personal The census seeks to create an inventory of the country's intervention and contact which I am confident you will do. manpower resources and demographic characteristics at a given It is essential that attention is paid to every single detail in the point of time. As has been the tradition of the India census, preparations of the Census leaVlng nothing to chance. In this opportumty is taken to collect particulars of housing and fact, you would have to not merely Issue clear cut circulars and other characteristics also, including that on economic unit instructions but also set up an c1i;lent pngres5 repartma sys such as enterprises. The Indian census has the distinction of tem for yourself. being among the few unbroken senes for over the last hundred In the census it has been the tradition to operate through years and we can look back with pride on the fact that we are !he State The basic and essential functionary now lUvolved lU contlnUlng Hus tradition. Even though the department~. ur the enumerator who IS, by and large, a primary schooneacher census is taken once in ten years, is a part of a continuing statis- and in urban areas municipal staff. Usually 5 enu~erato~ tical system and the data It prOVIdes IS of b4Sic importance, have a SUpervisor who would be generally of the rank of a which I need not emphasise here. Revenue Inspector or the equivalent level while for each talukl Tbe populauon census and the h-:)Usehsting operations which Police Station/development Bloc~ or similar area there would generate housing data are m'lbr admhlstrative exercises with be a charS<' superintendent who would be the Tehsildar or strong statistical content and lnvolve a conSiderable investment Mam1 latdar/BDO etc. At the district level, the usual practice in terms of time and money. It IS essential, therefore, that is to appoint the officer who is equivalent to the Collector or the objectlves of the Census are completely met in terms of total Deputy Commissioner as the District Census Officer. The overage, accuracy and tlmehness. Tins is where aU of us have a Collector or the Deputy Commissioner would, of course, be special responSibility. In this connection, one of the major the Census Officer for the district while for the areas which are intentions ofthe 1981 census would be to proVIde data f.:>r small municipal corporations, the Municipal commissioners would areas for local planrung purposes. We have agreed that an functIOn as such. This is broadly the system, but I would iIllPortant objectIVe of tins census would be to prOVide specific suggest t1l.at you study in great detail the administrative reports tabulatio~ and aggregatIOns fur small areas such as the Village of your predecessor which will mention any variations that Itself, the City block, etc., which would mean that in terms of may exist in your State. accuracy, the operations have to be beyond question. It is also We propose to continue to operate in a similar manner and surveys and otber staostlcal programmes also. The data gen the census will be taken in the claSSIC manner by household erated and the forms wruch w.)uld ultimately be avrulable would visits by enumerators who will collect particulars of every therefore, be of abldmg mterest and utility. • individual in the prescribed forms. 91 DCOUP/82-14 92 Obviously, in a system such as this, it would be essential Operational reasons and taking into consideration the level for you to keep the awareness of the census constantly alive of our enumerators, the worJcIoad and the need to keep and. to put It frankly, to keep the pressure on always. This our control systems easy, we have decided to adopt area sampling. can only be done through circulars and by intensive tourina This would mean' that a 20 % sample of the enumeration when you should meet the Collectors/Deputy Commissionera. blocks will ultimately be selected in which this slip will be attend their district co-ordination meetings and talk about tbe canvassed. census. Sometimes, after we have had our first Directol"" conference, I would suggest, you should request the State There should be no confusion about the universal and the Government to call a conference of Collectors/Deputy Commis sample slip. The universal slip will be canvassed and filled sioners for a full discussion on census operations. Alterna up for every person all over the country. The sample slip wIll tively, you may request the Chief Secretary for specific be filled up for every person in the sample blocks in addition allocation of time at the next Collector'S Conference. to the universal slip so far as tha t particular person is concerned. We are not making any basic change in the system of census I must share with you our initial thinking regarding the taking so far as the 1981 Census is concerned. The basic tabulation system. In order to ensUre that data are not merely phases of the Census would be : tabulated quickly but that the tabulation permits cross-tabu lation as well as easy retrieval stations with dIrect data entry A. House listing operations in mid-1980. devices are being established where we will be able to put the B. The actual census enumeration commencing Cro:m data from the individual slip or the household forms dIrectly about mid-February, 1981 to 1 March, 1981 followed on to tape. Our forms and OUr tabulatIOn system would ulti by a revlsional round till about 3rd of March, 1981. mately depend on the establishment of the direct data entry Iystems. Therefore, the tabulation plan and how we intend C. The post-enumeration check which would folio" loing about it is something I shall write to you about only later. the actual census. To the extent that this will influ~nce the establishment of re D. The tabulation of the data. gional tabulation offices, we hope to be able to cut down the large offices which we bad to establish ,st time for tabulation I shall be writing in detail on these various aspectl but purposes. I may mention that prior to houselisting operations or the enumeration, there is another major task relating to choosinc The immediate tasks which call for your attention would be of enumerators and training them and distributing the material. the following: This Involves a tremendous degree of planning and I would A. The finalisation of the lists of villages Cor which inst suggest you should commence thinking on these aspects dahl' ructions have been issued earher. now. B. Finalisation of the lists of towns and CIties for which You would have seen the formats which have been canvassed also instructions have been issued. in the second pretest and these would have given you lome idc;a , of the coutent of the questionnaires. At the houselisting opera C. Issue of notifications appointing the census officers at VarIous levels on which I shall be wrIting to you tions, we would be canvassing the houselist itself and'probably the economic census schedule also. The latter is being discuaa shortly. HoweVer. you may like to see the ones ed WIth the Central Statistical Organisation and Planning Com issued last time. which are 10 your office. mlssion and I shall be writing to you later on this. The D. The preparation of village directory and town directory, househst itself has been conSIderably modified in relation to the instructtons on whIch will follow shortlY formats of the previous census and is a baSIC document because , it is on the basls of the houselist that you will have to carve out We have wrltten to the State Government separately re the enumeratIon Blocks for the census itself. On this also sepa questing that all jurisdIctional changes be completed by first rate instructions will follow. of October this year and copies of these letters have also been forwarded to your office. I would suggest that you should The forms which WIll be canvassed in the actual census would also take this up with the State Government and meet the Chief be the individual slIp and the household form with an associated Secretary and the concerned Secretaries of the Governmen~ population record and enumerators abstract. The individual ensure that there are no jurisdictional changes after October slip is of course, the basic censut document on which the entire this year. statistical edIfice is built. I would like you to study this carefully along with the instructions because we intend discussing this As I mentioned earlier and as you would have noticed many at our conference SOO;l. aspects would call for detailed circula~ and Instructions at various points of time. I would suggest that in order to ensUre The house hold form is a complete departure from the pre that nothing is lost sight oC. a personal circular file should be vious formats, and is based on our thinking that essential housing developed and maintained for your Use and preferably for each data and other socio-economic data is more meaningful in of the senior ilfficers under you. Personally I found this always relation to the household than in relation to the st1'1lcture or useful and I would suggest your doing the same. the individual. We have also deliberately introduced certain questions in the household form relating to language spoken Now that the pretest in your St::!te is coming to a close, I in the household whlch is an innovation. These forms also, would be happy if you could study the Instructions which I would suggest, should be studied with their instructions in were issued along with the forms sO that you have a complete great detail. background regarding the operations and Its techmcal content. Another feature of the 1981 Census wiJ] be that for Ihave repeatedly mentioned how the censUs operations would the first time, we are canvassing questions on a sa~ple call for meticulous attention to detaIl and constant follow up. basis as you would have noticed. The questions relating to At every point of time and wlth regard to eVery single aspect the place of bIrth and migration and fertility are being entire organisation has to be keyed up and kept at a complete canvassed on a sample baSIS all over the country. For state of readiness. There are various phases which just cannot 93 be avoided or overlooked. For this I would susscst that you ~",~. 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