A. Introduction

1. The meeting of the Southern African Development Community (SADC) Census Managers was held in Pretoria, South Africa, from 19-23 March 2001. The objective of the meeting was to critically review and discuss a report, particularly the findings and recommendations, by a consultant who evaluated the United Nations Population Fund (UNFPA)/SADC Census Support Project. The report focused on the preparedness of SADC countries to undertake the 2000 round of censuses of population and housing. Eight of the SADC member states are undertaking censuses during 2000-2002. Other member states will undertake large demographic surveys during the period. All the SADC member states were represented at the meeting except Angola and the Democratic Republic of Congo. Also in attendance were two representatives of the United Nations Statistics Division (UNSD). The SADC Statistician and the Project Manager for the Regional Statistical Training Programme represented the SADC Secretariat. A list of participants and an abridged work programme are in Annex 1 and Annex 2, respectively.

B. Opening remarks

2. The Statistician General of Statistics South Africa (SGSSA), Mr. Pali Lehohla, officially opened the meeting in his capacity as focal point of Census and Population statistics in SADC. In his remarks he underscored the fact that SADC member states had benefited from the UNFPA-funded Census Support Project through training workshops and exchange of experiences among member states. He expressed satisfaction at the level of participation and enthusiasm demonstrated by participants during the workshops and meetings organized under the project. He highlighted the achievements of the project, which included the agreement by SADC countries on core census questions and the willingness among the member states to exchange documents on census undertakings.

3. He stated that other collaborative efforts had been initiated as a direct result of the project. Notable among these is the Census Analysis Project spearheaded by the University of Pennsylvania, which will assist SADC member states to build capacity on census analysis. The SGSSA disclosed that concerned parties to the project had agreed in July 2000 to evaluate activities carried out under the UNFPA/SADC Census Support Project and accordingly sanctioned for a consultancy to undertake an evaluation.

4. In conclusion he expressed his gratitude to the UNSD and UNFPA for executing and funding the project respectively and also requested the participants to discuss issues with transparency and objectivity during the meeting.

5. The representative of SADC Secretariat, Mr. Elliott Odirile, in his remarks concurred with the sentiments of the SGSSA and added that the meeting needed to map out a way forward for the process initiated through the project. He emphasized that the process should be undertaken with the cooperation and collaboration of all SADC member states with Statistics South Africa as the focal point so that ownership of the project remains with SADC as a region and UNFPA and UNSD as cooperating partners.

6. He urged the participants to critically review the consultant’s report and concluded by appealing for frankness and openness in sharing experiences.

7. In his remarks, the representative of UNSD, Dr. J. P. Banda congratulated Mr. Pali Lehohla on his appointment as SGSSA on behalf of UNSD. He also thanked the SGSSA for agreeing to host the meeting at very short notice in the midst of a pilot census.

8. Dr. Banda pointed out that while UNSD was not a funding agency, it supports population and housing census programmes through production and issuance of census methodological handbooks and provision of requisite technical assistance. In the execution of the UNFPA/SADC Census Support Project UNSD conducted a number of census workshops, which were found useful by member countries in the region. He also informed the meeting that the UNSD is planning to produce a special issue of the Demographic Year Book to focus on census-related issues as its contribution to the 2000 round of census activities.

9. Dr. Banda also took the opportunity to announce the United Nations Symposium, which will take place in August 2001 in New York, on “Global Review of 2000 Round of Population and Housing Censuses: Mid-decade Assessment and Future Prospects”. In conclusion he requested the meeting to come up with a short statement reflecting on experiences and the context of the SADC region with regard to the six themes of the symposium.

C. Assessing the impact of training workshops

10. The consultant, Mrs. Celestina Kabalu, presented the first part of her report on evaluation of census activities in the SADC region within the context of the UNFPA-funded Census Support Project. The terms of reference for the consultancy were as follows:

· To assess the impact of training on the planning and implementation of census programmes;

· To evaluate census activities in light of the laid-out census plans

She visited six countries, namely, Botswana, Namibia, South Africa, United Republic of Tanzania, Zambia and Zimbabwe. The workshops she evaluated were on Census Management, Census Questionnaire Design, Census Mapping and Cartography, Sample Survey Design and Census Data Processing. In collaboration with the SADC Secretariat a questionnaire was designed for data collection and evaluation. The consultant also interviewed some participants of the various training workshops during the visits to the countries.

1. Census Management Workshops

11. Two workshops were conducted on Census Management with the main objectives to enhance the capacity of national statistics/census offices in successfully conducting population and housing censuses and intercensal demographic surveys. The meeting was informed that during the time of the missions most countries were busy with census preparations and some of the participants who attended the workshops were in the field. Comments of the participants who were interviewed included the following:

§ Census Management workshops were very useful in that some census managers found the exchange of country experiences very beneficial and assisted some in avoiding problems they could otherwise not have anticipated during the preparations and conduct of the censuses in their countries;

§ The United Nations Census Management handbook should be customized to suit the prevailing situation in the SADC region. It was argued that some concepts and definitions were unique to the SADC especially with regard to economic activity;

§ More time should have been spent on discussing census budgeting;

§ Inadequate time was allocated to the discussion of country experiences.

Discussions

12. In the discussions, which ensued, some participants indicated that the basis for budgeting was adequately covered. It was felt that examples used in the workshop should have been drawn from the SADC countries rather than from the United States. Questions were raised about the ideal census management structure. It was pointed out that countries might have different structures depending on their legal set up. What is, however, important is to establish effective networking arrangements with various organizations and persons that are crucial to the success of the census. It was suggested that since SADC was trying to harmonize its statistical series it may be necessary to modify the United Nations recommendations, which provide general guidelines, to suit the conditions obtaining in the region. It was observed that concepts of households, dwellings and so forth needed to be carefully reviewed within the regional context.

2. Census Questionnaire Design Workshop

13. The main objective of the workshop was to harmonize concepts and introduce common core census questions for the SADC region. The consultant reported that most countries in the region had included the agreed-upon core questions. Comments from participants of the above workshop included the following:

§ Questions discussed at the workshop had already been decided at an earlier meeting of senior officers;

§ Some participants felt that they should have been taught how to design a questionnaire.

Discussion

14. The idea of SADC adopting core questions was applauded. It was, however, pointed out that beyond the core questions countries should have the liberty to develop additional questions. A question was raised whether there were mechanisms in the offing to streamline and develop core questions for censuses and Poverty/ Living Conditions surveys in the region.

15. Some participants expressed disappointment with SADC for not taking the initiative to urge countries in this regard as it was recommended in an earlier meeting held in Namibia. The SADC Statistics Committee should have approved such a recommendation. The meeting noted that the way forward is for member states to implement agreed-upon recommendations without necessarily waiting for the intervention of the SADC Secretariat.

16. It was also suggested that there was a need for a manual for guiding countries in collecting data using core questions and that conclusions and recommendations of SADC Statistics Committee meetings should be transmitted to the relevant substantive technical staff in the national statistical offices for implementation purposes. Web sites could be used for disseminating proceedings of such meetings.

17. It was clarified in the meeting that participants were not taught how to design a questionnaire because countries in the region were adopting different data-capturing approaches. The emphasis was therefore on content.

3. Census Mapping and Cartography Workshops

18. Two census workshops were conducted whose objectives were to train participants in concepts of census cartography and Geographic Information Systems (GIS) and encourage participants from SADC member states to establish contact and share professional experience. The workshops were considered very useful in terms of fostering cooperation in the area of cartography in the SADC region. Countries appreciated the assistance from other member countries that have the requisite expertise.

19. While countries visited by the consultant were at different levels in the use of GIS, they nonetheless expressed confidence that cartographic work would be completed in time. The consultant was assured by the countries that population maps would be ready when census results are disseminated. Some participants were happy with the workshop to the effect that they developed their own cartographic manuals based on the notes and experiences of other countries although GIS necessitated acquiring expensive equipment.

Discussions

20. One country indicated that despite the problems of equipment and fuel, mapping would be completed although the exercise started late. Other countries had increased teams of mappers in order to be on target. A protracted discussion ensued on the merits and demerits of aerial mapping. It was pointed out that there was a danger of basing enumeration area demarcations exclusively on aerial photographs. It was agreed that it was always important to ensure quality control in all forms of mapping and in some cases field visits are essential for verification purposes even if aerial photography is the mode of mapping.

21. Countries were advised to take particular care when considering outsourcing for services because some companies may not be conversant with or specialize in census mapping. It is always advisable to ensure that local staff is trained in order to ensure that the project is sustained.

22. The meeting noted that sharing of cartographic expertise in the region should be promoted further through the establishment of a fund to support such exchange of staff between countries. It was also underscored that census mapping should be expeditiously done because it is a basis for creating master sample frames.

4. Sample Survey Design Workshop

23. The workshop covered basic principles of survey design, whose objective was to upgrade skills in the use of sampling techniques in censuses. Comments from the participants who attended the workshop included the following:

· The workshop was found to be a very good refresher course;

· Some of the software prescribed at the workshop should be made available to member states;

· The workshop, which covered laboratory exercises, was very practical and useful;

· More workshops on sampling should be conducted and if possible replicated in SADC member countries.

Discussions

24. Most participants felt that designing of sample surveys should be strengthened in national statistical offices. It was stated that lack of proper documentation was the main problem in national statistical offices and not lack of sampling statisticians. It was emphasized that the workshop should be replicated at the national level in member countries. The meeting was, however, informed that replication might be possible if those trained at the subregional level could conduct the training workshop at the national level. One country plans to replicate the entire workshop, which has been conducted under the SADC project. Suggestions on how the training could be replicated at the country level were invited from the participants.

5. Census Data Processing Workshop

25. The workshop introduced participants to new technologies for processing population census data. The workshop had two parts. One catered for data processors and the other introduced Census Managers to the fundamentals of data processing. IMPS (Integrated Microcomputer Processing System) was the software used during the training. It was pointed out that the software was good for editing and dissemination. The following included the comments from participants who took part in the workshop:

· Time allocated was too short;

· Other software packages, other than IMPS, should have been introduced at the workshop;

· There was a need to replicate the training at the national level in all the member states;

· For countries to get maximum benefit from using IMPS, a UNFPA expert with a background in IMPS should be based at the Country Support Team in Harare, Zimbabwe;

· Some participants felt that they did not have the necessary programming background to derive maximum benefit from the workshop.

Discussions

26. Although most countries were apprehensive or ambivalent about the use of scanning, owing to high costs and capacity vis-à-vis subsequent use of the equipment, it was generally agreed that scanning was the way forward mainly because the process would facilitate the speedy release of census results. The meeting learned that for scanning to yield desired results meticulous planning should be undertaken and all the necessary precautions should be taken to follow the stipulations for its meaningful application. It was also stated that collaborative institutional arrangements, in the case of one country in the region, went a long way to maximize the successful application of scanning. The adoption of the scanning process should, however, be gradual, starting with small surveys and progressively building to large-scale surveys including censuses.

Recommendations

27. The recommendations of the meeting after reviewing and discussing the findings of the evaluation of the workshops by the consultant include the following:

§ There is a need for an adapted census manual for the SADC region to cater for the unique circumstances obtaining in the region;

§ A mechanism should be put in place within the region to upgrade census budgeting skills;

§ Regular budget monitoring should be a part and parcel of census activities;

§ Communication within national statistical/census organizations should be improved to facilitate the sharing of information on SADC census activities and decisions;

§ The workshop on sample survey design should be replicated in member states;

§ Development of statistics in SADC should be proactive by implementing approved decisions of the SADC Statistics Committee to ensure ownership;

§ Member states should adopt new technologies to enhance data-processing activities and in particular scanning should eventually be introduced in SADC after extensive testing with small data sets;

§ National statistical offices should send qualified officers to SADC workshops to enable them to get maximum benefit from workshops and ensure that the officers train others at the country level.

D. Evaluation of census activities

28. The consultant indicated that all countries had prepared work plans but actual dates of implementing various census activities were not documented. This implies that for activities which had been postponed the revised dates could not be obtained. In most cases census activities did not start in time due mainly to lack of funds. It was observed that governments’ commitment to fund censuses was low compared to other activities such as elections.

29. Generally donor funds pledged for censuses are released after government financial commitment is obtained and the lack of commitment is manifested in the postponement of censuses by a number of countries in the region. High turnover of staff is another constraint in some countries, which has adversely affected census preparations. The consultant was of the opinion that assistance to countries, which are facing financial constraints, should continue to be obtained from multilateral and bilateral donors.

30. The consultant informed the meeting that census mapping would be complete, in most countries, before census enumeration. Lack of adequate equipment was, however, a problem in some countries. It was reported that most countries had developed census structures. In one country the census programme was divided into sub-programmes, headed by different people. The various groups in the census structures generally held regular meetings to monitor progress being achieved and instituting corrective measures as and when necessary.

Discussions

31. From the discussions it was clear that one of the countries was facing serious financial and resource constraints to conduct the census by the year 2002. Donors are not forthcoming to provide resources for the census and the competing demands in the country for funds seem to relegate the census to the bottom of priorities. It was suggested that there was a need to intensify lobbying at the highest possible levels particularly at the political level. More effort and time should be spent in working out ways and means of lobbying for donor support. Countries were advised to explore the possible assistance from UNFPA from country funds. There is a need to make a case for censuses as a source of management information.

32. Countries were advised to be cautious in conducting censuses during an election year, because governments generally give priority to elections when it comes to funding. Innovative ways of seeking funds and resources to support censuses may include approaching the private sector and perhaps having face-to-face discussions with the PARIS 21 group who have set up a Trust fund for assisting developing countries’ advocacy in statistics. It was also pointed out that in soliciting for funds from donors, there was a need to specify the type of assistance required from donors. In view of the resource constraints some member states were facing, some participants wanted to know what role the SADC Secretariat could play in mobilization of resources for censuses for member countries. The representative of the SADC Secretariat indicated that in order for them to assist in lobbying for census resources, it was imperative for member countries to submit work plans and budgets and other requisite information. Management information should be provided to the SADC Secretariat on a regular basis so that they are kept abreast of the situation in each member country. At the moment such information was not available at the SADC Secretariat.

Recommendations

33. The following recommendations were made:

§ Countries should be submitting relevant information to the SADC Secretariat at the end of June and December of each year, to enable the Secretariat to monitor progress of the 2000 Round of censuses of population and housing in the region. On the basis of such information the SADC Secretariat would explore ways of assisting needy countries;

§ Non-traditional donors for censuses should be approached to support census programmes including the private-sector companies and some non-governmental organizations.

E. United Nations Symposium on Global Review of 2000 Round of Population and Housing Censuses: Mid-Decade Assessment and Future Prospects.

34. The UNSD representative indicated that the main purpose of the symposium is to address the question: “When and under what circumstances do censuses succeed?” In so doing the symposium would identify issues and problems inherent in the current round of censuses and seek solutions that may guide census planning during the next round through six themes relating to:

· Strategies of involving stakeholders in census activities;

· Strategies for choosing among data collection methods as sources of demographic and social statistics;

· Adapting new technologies to census operations;

· Maintaining census-related activities during intercensal years;

· Identifying and resolving problems of census mapping; and

· Post-enumeration surveys: are they worth it or not?

Participants were requested to draft a short statement on issues and reactions to the above themes in the context of the SADC experience in undertaking censuses. The meeting was informed that details, main papers and statements in relation to the symposium would be posted on the UNSD web site.

F. Country reports

ZAMBIA

35. Zambia carried out its fourth comprehensive census in October 2000 since the attainment of the country’s political independence. The census night was 16 October 2000, and the census was conducted on a de facto and de jure basis. Previous censuses were carried out in 1969, 1980 and 1990. The main objectives of the Zambian 2000 census of population and housing were to achieve a high population coverage; generate relevant data at the lowest level of geographical area of governance and planning, ensuring conformity with international standards of the United Nations and adherence to the SADC recommendations; and also ensuring the timely release of data.

36. The census was originally planned to be conducted in August 2000. Actual planning and budgeting of the census started in 1997. The meeting was informed that the approval of the census plan by Cabinet, which included the management structure, was obtained late, by March 2000. The census management structures included policy and technical committees. The estimated budget for the census was US$ 20 million. In carrying out the census the National Statistical Office established bonds with collaborating partners who contributed in various ways to the success of the census.

37. Cartographic work started in September 1998. The mapping systems, used for statistical work, elections and local government, were harmonized. Sketch maps based on quick counts were used in areas where detailed maps had not yet been completed by the time of conducting the census. Publicity was mounted using various means such as radio, television, print media, billboards, T-shirts etc.

38. Zambia captured its 2000 census data by scanning using OMR (optical mark readers). Scanning was used in order to produce timely census results. Existing facilities at the Examination Council of Zambia were used to capture the data. At the time of the meeting 90 per cent of the questionnaires had been scanned with a 5 per cent rate of rejection. The PES was conducted in February 2001 and its results will be used to evaluate the census.

Discussions

39. Participants noted that it was important to establish effective communication during the early stages with government, policy makers and decision makers, including political and opinion leaders to facilitate approval and commitment to the census programme. It was observed that although Zambia missed most critical dates of the census, the census was carried out in the final analysis. The meeting was informed that Zambia administered its questionnaires on a 100-per-cent basis.

Challenges

· Resource mobilization was difficult owing to strict fiscal policies of government;

· Printing of questionnaires was delayed, owing to the delay in obtaining approval for tender application, necessitating the postponement of the census enumeration from August to October 2000;

· Pledges from donors and support were delayed until government commitment to the Census was known.

BOTSWANA

40. Botswana is poised to conduct a census in August 2001. According to the report, preparatory work is on schedule. The Botswana census is mandated by the constitution; therefore, there is strong government commitment to the census programme exemplified by provision, at the right time, of adequate resources for census activities. Mapping and listing of housing units is expected to be completed by the end of March 2001. The growth point areas will be revisited in order to update the lists. Eviction and demolition areas will also be revisited. In May 2001 census officials will carry out a final country inspection of the quality of mapping and housing.

41. A pilot census was conducted in August 2000 to test various operational aspects of the census. This was based on a purposive sample of 61 enumeration areas (EAs) out of 2,600 (1991). The findings from the pilot were taken into account in the preparation of the census. For example, changes were made to the questionnaire, especially items on economic activity.

42. Various organizational structures have been established in preparation of the census including district and census committees. The meeting was informed that the census office was established in 1999. Training of Technical Officers and District Census officer was conducted from 12-17 March 2001. Trainers will undergo training towards the end of March 2001. Supervisors will be trained in April 2001 and enumerators in August 2001. The meeting was informed that a PES will not be conducted, as adequate quality assurance mechanisms will be put in place and the mapping and housing listings will be used to check coverage.

Botswana has in place an elaborate publicity campaign scaled up from March and reaching the peak in July 2001. Publicity includes messages through school notes, packaging materials, census film, radio drama, billboards, booklets and other materials. Procurement of other census materials will start in April 2001 and end by early June 2001. In order to ensure that the census period is given maximum attention, other activities such as competitions, political rallies and by-elections have been planned to be conducted. The census office will mobilize about 600 vehicles to be used by field staff. The census is expected to cost about 40,000,000 Pula (about US$7.2 million).

43. It was decided to outsource data processing in order to produce a data-entry system using IMPS. Unfortunately, the consultant absconded after completing the first phase of the project. However, necessary corrective measures have been put in place to address the problem.

Discussions

44. It was observed that Botswana had one of the highest per capita costs of the census in the SADC region. It was reported that the terrain in some parts of Botswana was so rough that enumerators will have standby vehicles, especially in desert areas of the Kalahari. This will entail that more vehicles will be required. It was also pointed out that the suspension of other activities was only during the enumeration period and organizers of such other activities were requested well in advance to align their fixtures/functions in advance.

45. The meeting was informed that radios will be used to explain questions to the public. Member states were urged to take extra precautions when outsourcing census activities. There was a general feeling that the questionnaire was too big and would be cumbersome for enumerators to use in the field. It was taking about 30-45 minutes on average to enumerate one household. The meeting was assured that the questionnaire did not pose major problems during the pilot. The role of publicity by enumerators was also discussed.

Challenges

· Outsourcing of data processing has created a bottleneck in data processing.

· To ensure that there are no slippages in all the preparatory activities so that the census is conducted as scheduled and with minimal or no operational problems.

NAMIBIA

46. The preparation of the census, on an ad hoc basis, started in 1999, although the Census project budget was only approved in February 2001. The Director General of Planning is at the top of the census organization. The law empowers the National Planning Commission to collect statistics and conduct population