Symposium
2001/54 24 September 2001 English only |
Symposium on Global Review
of 2000 Round of
Population and Housing
Censuses:
Mid-Decade Assessment and
Future Prospects
Statistics Division
Department of Economic and Social Affairs
United Nations Secretariat
New York, 7-10 August 2001
The Case of South Africa*
Pali Lehohla **
CONTENTS
B. Approval process for a
census in south africa
C. Strategic choices among
data-collection methods for South Africa
1. Is a sample census possible?
2. If a “sample census” is not
possible, when should a full census next occur?
3. Option of a six-month
postponement, to March 2002
4. The benefit of a 2002
census for SADC collaboration
D. Adapting new technologies
to census operations
2. GIS as a tool to censuses
processes
E. Maintaining census-related
activities during the intercensal years
F. Identifying and resolving
problems
G. Post-enumeration surveys:
are they worth it or not?
1. Lessons from the 1996
census
1.
South Africa's first all-inclusive census
took place in 1996. In continuing the
practice of conducting a census of the population every five years, as well as
in conforming to the Statistics Act, a population census is due in South Africa
in October 2001. Of all the countries of the world, 21 countries conduct
population censuses at intervals of five years. In the last two decades in
particular, seven countries with a population of more than a million people
conducted a census every five years.
These are Australia, Canada, Finland, Islamic Republic of Iran, New
Zealand, South Africa and Turkey. The rest are by and large islands in Oceania
and each has a population size of far less than a million inhabitants. Let us now look at the continental spread of
countries that carry out censuses every five years.
2.
In Africa, only South Africa has a
five-yearly cycle of taking a census.
In North America, Canada is the only country that undertakes a census
every five years. In South America, the Falkland Islands are known to have
undertaken a census every five years.
Among the Asian countries, three have undertaken a five-yearly
census. They are Islamic Republic of
Iran, Maldives and Turkey. In Europe
the following countries have had a five-yearly cycle: Channel Islands, Finland,
Isle of Man and Sweden (although the Swedish practice was short lived). Oceania
has the largest number of countries that undertake a census at five-yearly
intervals—11 in number. They include Australia and New Zealand.[1]
3.
The census in South Africa is undertaken
within the context of harmonization of the statistics of the Southern African
Development Community (SADC). In this
connection, the 14 member states have initiated an ambitious programme of
harmonizing statistics in an attempt to influence and achieve measurable
economic integration. The census was
among the first programmes aimed at harmonization. Milestone workshops and
agreements, including one on the census questions, have been concluded among
the states. Eight of the SADC member
states will have conducted or will be conducting a census of the population in
the years 2000 to 2002. The community
nominated South Africa as the focal point for this activity. The United Nations Population Fund (UNFPA),
United Nations Statistics Division (UNSD), United States Agency for
International Development (USAID) and the Swedish International Development
Authority (SIDA) contributed generously to see through the implementation of
this project.
4.
South Africa, by act of Parliament,
conducts a census of the population every five years. In preparation for this, Statistics South Africa, (StatsSA),
prepared a cost estimate of R623 million for this purpose, nominally an
increase of R190 million over the
amount spent on the 1996 census. This budget was presented to State Expenditure
for funding. However, State Expenditure allocated only R240 million for the
activity then. The amount of allocation
was seen to be too little to execute a census, even by the 1996 standards.
5.
StatsSA subsequently presented the budget
as approved to the Statistics Council, a statutory body that advises the
minister responsible for statistics and the head of Statistics South Africa in
its meeting of 22 April 1999. Council advised StatsSA to have a wider
consultation with all stakeholders for options. The first consultation was with
a reference group that aimed at giving shape to a technical discussion document
(TDD). As a follow-up to these
consultations, the TDD was tabled to a larger group of stakeholders for
discussions and recommendations in July.
Evolving out of the discussions and recommendations, the Statistics
Council and StatsSA formulated a Cabinet Memo that sought government’s decision
on the nature of a census in 2001. The
undertaking was subsequently approved and funds allocated in October 1999,
giving StatsSA two years to plan and implement the census. In terms of time, this marked an improvement
of a year on the planning process compared to that of Census ‘96.
6.
Justification for the next census is based on the strong
demand for data at the local-area level. The public and the private sector, as
well as government, require small-area statistics. This means that the demand
for statistics goes well below the geography of provinces, district councils
and local government entities. In many
instances a village or suburb level is what users require. This is needed for purposes of targeting
the clusters of population that are of interest.
7.
A “road show” of user consultations was
mounted from February 2000 to July 2000.
In this period there were about 16 workshops conducted with different
stakeholders. Each of the nine
provinces hosted a provincial workshop to contribute to the content and
possible framing of the questionnaires.
Below is an outline of the memo that solicited participation. The memo also had a detailed list of
questions and explained the intended purpose as well as the results as observed
from the 1996 census.
8.
This memorandum is intended for providers
and users of census data and other interested parties in order to start a
discussion on the contents of the census questionnaire. Although the census
questionnaire used in 1996 worked well, there is still a need for revision of
contents and formulations. The goal is to create a questionnaire that:
·
Decreases the time for data collection (shorter interviews);
·
Improves the quality
of the data (more accurate answers,
fewer unknowns);
·
Decreases the data processing time and costs (more pre-coding); and
·
Decreases the total expenditure of the census. The budget is only about R16 per capita,
which is not much by international comparison. The enumeration in 1996 took
three weeks. This time the goal is to complete the enumeration in one week to
10 days without sacrificing quality.
9.
Financial
constraints led StatsSA to have a dialogue with experts and other users on what
option would be best for South Africa regarding the census. There were two
options open to South Africa, one for a sample survey and the other for a
census, but later rather than sooner. Below is an outline of the pros and cons
and a final verdict. The assessment in the consultative workshop proceeded in
several stages.
10.
Firstly, it was
considered whether a reduced or "sample" census was feasible and
cost-effective and whether it would produce the desired information. If it met
these three requirements, it would be the obvious way to proceed. However, it
clearly emerged from the expert inputs, and somewhat surprisingly to the other
participants, that the answer to all three questions was "no".
11.
To achieve a
precise and unbiased sample requires that each enumerator area (EA) in the
sample, a "patch" of 75-150 households, be "listed" in
advance—i.e., the separate households have to be identified and noted. (This
would have to be done in some 15,000 enumerator areas for a likely-sized
sample.) This listing ensures that an appropriate sample of households can be
drawn for the enumerator to visit, and that the enumerator can later be checked
upon, to ensure that he or she does not bias the sample by skipping the
difficult-to-reach households in favour of the easy ones. Orderly listing is
easy to envisage in a formal suburb with addresses, but much more difficult in
a rural area or an informal settlement.
12.
The user
consultations revealed that these rather intricate processes are actually more
difficult to conduct and control than a full census enumeration. In a full
enumeration, one requires only the outline
of the enumerator area—now available from the current Geographic Information
System (GIS), although requiring improvement—and then instructs the enumerator
to attempt to reach every household, and keep a record as he or she proceeds.
As a consequence, the population estimates emerging from the sampling process
would be more controversial. This is an undesirable feature when allocations of
parliamentary seats and tax revenues depend upon them.
13.
Moreover, the usual
means of cost-saving in a sample survey—that one has to visit only the sampled
enumerator areas—falls away when one is seeking to achieve population
estimates. Before the sample can be multiplied up to yield figures for the full
population, all the “patches” that are not
in the sample would also have to be visited and the number of households
identified and counted. This would largely dissipate the notion of cost saving.
14.
This in turn
affects the kind of data that are yielded. To update the GIS one wants a widely
"dispersed" sample—i.e., one that visits as many “patches” as
possible—but this minimizes the savings. Conversely, the savings improve as one
visits fewer patches, but then one cannot use the resulting data to
satisfactorily upgrade the GIS down to enumerator-area level.
15.
Worse, more than
700 of the present 843 local authorities have fewer than 4,000
households—equivalent to maybe 40 enumerator areas. If one sampled only half a
dozen of them in each of these local authorities (which is all that could be
afforded with a R240m allocation), it would clearly be very risky to take these
half dozen as representing the variation across a whole local authority.
16.
With a “sample
census” out of contention, and if only R240m were to be available for the three
years, the next question was: Should a full census rather be undertaken later,
when more funds might be available?
17.
The users were
adamant that they did not want as much as a 10-year interval between the 1996
census and the next one. Some plausible arguments were advanced, however, in
favour of a seven-year gap (that is, the next census to be in 2003 with data
becoming available in 2005). This
argument notably was supported by the notion that many population features such
as fertility or the education profile only change gradually, and that there
would be more time for careful preparation.
18.
In favour of
retaining the five-year interval (i.e., the next census in 2001), it was argued
that yet other, very important population features—notably, the geographical
distribution of AIDS-related deaths, and internal migration—were changing
rather fast. Moreover, the Reserve Bank argued that, given the importance of
population estimates in the five-yearly revision of the GDP (gross domestic
product) in national accounts, a 10-year gap would be too long and a seven-year
gap would be inconvenient.
19.
Budget
considerations and smoothing out the expenditure over two years appeared a
compelling argument for postponement by six months. The six-month postponement
appears to be the best option: a full census providing small-area data and GIS
updates, rather than a methodologically risky sample census; with slightly more
time available for better preparation; but taken soon enough to yield the fresh
information demanded by user departments regarding fast-moving demographic
changes.
20.
In addition, a
census in 2002 would have the advantage of still including South Africa in the
2001/2 round of population censuses being conducted by more than half of the
countries in SADC. There is a collaborative programme being led by StatsSA as
part of its African Renaissance thrust, aiming to harmonize the core questions,
especially those dealing with cross-border migration. Since so much migration
affects South Africa, it is highly desirable that we conduct our census near
enough in time to the others in SADC.
21.
The last
recommendation of a postponement by six months was thrown out in favour of
keeping to a five-year interval as requested by law. Thus, South Africa is poised to mount a census in October 2001,
exactly five years after the previous one.
22.
StatsSA has invested extensively in new
technology, in particular, the GIS for managing and directing cartography and
downstream activities of the census, including mapping for dissemination. It has further adapted scanning for data
processing. These new technologies
imply and demand new skills and different management tool kits.
23.
Adopting new technologies brings about
several challenges. One of them is the
capacity of management. The other is
the potential threat of failure caused by less optimal synchronization between
technology and those who manage it.
Managing an outsourced environment can be a daunting task, as we will
illustrate. The key problem lies with
the management capacity of statistics offices to engage an outsourced
environment effectively.
24.
The management of a census is that of
containing risk, largely because of its time- sensitive nature and subsequently
of wasted capital if not undertaken at the scheduled date.
a.
Risk management
25.
Bringing on board new technologies can
increase the risk profile of a census, particularly in the area of data
processing. We will explore some of the
near horror stories in some countries in the current round of census taking.
26.
Although Botswana will not be using
scanning, they had to call off a tender on data processing and appointed a new
vendor instead. Those who handle
scanning will attest to the fact that with it come issues of paper quality,
print precision and shading contrast as very important considerations. The capacity and competency of the printers
to deliver on time is also a critical issue to consider, as this can constitute
the single most important variable to undermine the success of a census. The
outsourced companies are unfortunately not often exposed to these important
facts and in their proposals may not be sufficiently open about their
limitations lest they do not get the tender.
They are at times keen to get the business instead of focusing on the
concerns of the statistics offices.
27.
Paper
and pencil quality risk. Countries that have
used scanning have horror stories to tell about their experiences either in the
testing or during the actual undertaking of the main census itself. Kenya’s data capture was delayed because of
conditions associated with the use of scanning with some devastating
consequences at the individual level. In the United Kingdom, the pilot census
revealed that ink contrast affected readability, while the United States pilot
showed that contracting to a multiplicity of producers compromised quality of
print and therefore limited the ability of the scanners to read characters
proficiently.
28.
Questionnaire
delivery risk. In Zambia, for instance, the census was
postponed by two months, from August 2000 to October of the same year, because
the questionnaires for scanning were not delivered in time. They were printed in the United Kingdom.
29.
South Africa has its horror stories too.
Three months before the census, in June 2001, South Africa had to contract with
a company in the United States to print half of the consignment of the
questionnaires because the local producer would not print an adequate number to
meet the required lead times for distribution. To date the South African
component has delivered only 4 million questionnaires, since they started eight
weeks ago, of the 14 million they were supposed to deliver, and they are not in
a position to deliver the balance in the next two weeks. The United States component has completed 7
of the 10 million, with the remainder coming by 14 August in time for
distribution.
30.
Paper
flow and identification risks. The testing
phase of the scanning in April already revealed that there are areas that
require serious attention. The quality
of printing was inadequate; the bar codes on the questionnaire at times were
not machine-readable and the numbers had to be transcribed by hand,
subsequently causing serious delays in processing. StatsSA insisted that each page of the questionnaire have a bar
code for purposes of identification and ensuring that sheets in a questionnaire
are uniquely associated. The imposition
caused the printer to punch windows on the questionnaire to meet this
requirement. While this worked somewhat
well in the field, the trailing threads of paper from the windows caused the
scanner to jam often. The processing
of the questionnaires from the pilot is behind schedule by about four weeks
when it was allocated 12 weeks initially.
31.
Knock-on
effects. With the printing in the United States,
it has been necessary to fly some officials who were responsible for scanning
to the US to continuously check and confirm quality. The strategy has worked well but has caused further delays in the
processing of the pilot census.
32.
Costs.
The cost of paper for scanning can be
prohibitively expensive and a comparison for South Africa suggests that the
cost will be upwards of twice the cost of ordinary paper. When you add the risk of speedy delivery and
the associated freight charges, Zambia and South Africa should be licking their
wounds.
b.
Conclusion
33.
The scanning technology can be very
efficient when handled with the necessary care—for instance, in the case of
Turkey and later Ghana; indeed, the United States and the United Kingdom are
success stories in scanning. However,
the possible problems that run counter to the critical path for census
execution can be so many as to threaten the entire project.
a.
Background
34.
Census 1996 captured EA boundaries
digitally, retaining verbal boundary descriptions on 02 forms. The EA
boundaries were digital, but referred to a paper-based background. When the
results were reconciled for Census 1996, it was found that there were a number
of severe shortcomings in the demarcation. These included :
·
Inaccurate capturing of the boundary
locations;
·
Unacceptable shapes and topology for the
EAs;
·
Vague boundary descriptions;
·
No addresses or problems relating them to
a specific position; and
·
Little or no relation of boundary
descriptions to physical features on the ground.
35.
Demarcation for Census 2001 was an
attempt to rectify these shortcomings; it meant that this would be a different
ball game as compared with previous censuses. Several resources were considered
to be of crucial importance in a solution of the demarcation problem. The
resources were of two kinds:
·
Improved technology, not only better, but
also more economical; and
·
The availability of data captured by
other organizations.
In
view of this, the census-mapping process depended on some fundamental vector
data sets.
b. The EA backdrop
36.
Consideration was given to the
acquisition of the following backdrop:
· From
the Department of Land Affairs: aerial photos, orthophotos and place name
details;
· From
the Independent Electoral Commission (IEC): information on population numbers
as provided by municipalities; digital information from the corporate database
on EAs which were split;
· From
the metros and local authorities: aerial photography; and
· From
private companies and parastatals: the most recent mapping and aerial photography,
mapped villages, satellite imagery, street names, etc.
c. Unresolved problems
37.
We argued for the latest technologies and
the benefits they bring about, including cost savings and possibly planning to
do away with the old way of doing things, in particular, foot-soldier listing
and verbal descriptions of boundaries.
It was to our horror that we noted that listing and verbal descriptions
of boundaries remain very important despite the emergent technologies. While
the problem of identifying boundaries was to some extent associated with poor
enumerator training on mapping, it was also clear that verbal descriptions,
even in the presence of clear maps, enhance the usability of the maps by the
enumerator. The pilot highlighted critical areas that we are desperately
addressing with the people we will earmark as field supervisors. These relate
to the following:
·
The clarity and legibility of the 09 map
has been reported as problematic in some areas;
·
In some cases the place names are not
correct or complete; and
·
Structures are not being correctly
identified.
38.
We believe that when these issues have
been well contained and controlled for in the next three weeks, we will be on
the road to a successful census.
d. Benefits of the
approach
39.
In general, the technology itself has
worked. The capturing of EA boundaries is almost complete. For each EA we have
captured extensive EA metadata, such as types, entities, institutions, contact
details and addresses. This information is put into a detailed database structure.
40.
Despite limited time frames to demarcate
EAs, the technology was used to delimit Supervisor Units, (a Supervisor Unit is
a grouping of five EAs within the same area type; a GIS utility combines
adjacent EAs of the same area type). An exception report is generated, and the
operator resolves all exceptions (similar to the IEC’s Voting Districts).
41.
EAs were re-numbered spatially. A GIS
utility re-numbered adjacent EAs within a municipality. These will help with geographic sampling for
surveys where the assumption of spatial contiguity in numbering will now
hold—unlike in the past where this assumption was thought to be true and indeed
was false.
e. Risks and
associated costs
42.
The process of arriving at the 2001
enumerator areas was broken down into smaller chunks. A GIS system had to be
acquired, as the organization did not have the appropriate tools to perform the
task that lay ahead. Hardware, which included high-end servers, personal
computers (PCs), printers and networks, for both the head office and provincial
offices, was acquired and installed. Due to the large volume of image data the
GIS server is an incredible 1.8 TB system. Software for the appropriate GIS
technology was benchmarked and acquired. Software included database software,
GIS software and image-processing software. The contracts included software
customization, database development, programming and training and four
full-time GIS resources on site for two years for capacity-building of the
StatsSA team. The system was up and running by the end of May 2000. The spatial
database was rapidly being updated with data as received from various data
suppliers. The GIS hardware and software cost in the region of R30 million. As
the project grew and as the data grew, and as deadlines were threatened, the
GIS system had to be expanded, resulting in more expenditure.
43.
The capturing of enumerator areas cost in
the region of R9 million. The process followed up until the end of April 2001
was to make use of the local knowledge of provincial office staff to take the
final decision on the EA boundaries. However, by May 2001, the time lines had
slipped seriously (the sending of data and maps to provincial offices and the
lack of skilled personnel at provincial offices to manage and demarcate EAs
contributed most to slippages). This process was basically stopped and
intervention was taken to allow the contractor to demarcate and capture
directly on-screen. Two additional demarcation-capture sites were set up at the
head office. One of the teams was made up of a “crack” team consisting of the
best demarcators StatsSA had from provincial offices and the head office. The
demarcation and capturing process was done by mid-July 2001. The intervention
had cost the GIS project R5 million (from the R9 million mentioned above).
f. Conclusion
44.
Having used the up-to-date backdrop,
technology and process during the 2001 demarcation phase, it is clear that
census taking, especially census mapping, will never be the same. A review of
the 2001 census-mapping process is currently under way, and it will provide
invaluable inputs for the conduct of the next census in 2006.
45.
Preliminary indications are that most of
the shortcomings being identified at this time could be attributed to the
increased ability to compare the 09 maps with the terrain. Many of these
shortcomings would have gone undetected in the past.
46.
Statistics South Africa runs, by act of
Parliament, a census every five years.
This unique position imposes substantial resource utilization at
intervals that are very short; however, as currently constituted StatsSA is not
in a position to sustain a five-yearly census cycle. To execute this parliamentary mandate StatsSA needs a core
structure to manage census activities.
This part of the paper looks in detail at the mandates and expected
deliverables, as well as the associated staffing requirements.
47.
The activities for the census include
planning, implementation and dissemination of the census results. It is also required that such a structure
manage its activities in accordance with the financial and labour laws of the
land. Therefore, there is a need to
have a corporate services structure that ensures that there is compliance on
deployment of financial and human resources. Although a census may be viewed as
a project and historically has deployed resources for its execution only at the
time or as near as possible to the time of the event, experience demonstrates
that there are good reasons for retaining a core team that maintains best
practice and continuity. It has been demonstrated and usually recommended that
a census be planned optimally three years prior to the undertaking. This has been the practice in most of the
Third World countries and often the lead times could even be as short as 8 to
12 months. In the more developed parts of the world a census is planned in
cycles of seven years. For instance,
Canada, which is conducting a census in 2001, had the strategic meeting for
Census 2006 in 1998. The submission is a modest attempt to seek comment on the
minimum functions that in our view would be continuous and thus require a set
of skills that would guarantee implementation.
48.
This part of the document examines the
mandates and deliverables of a permanent structure for the census. It further looks into a set of tools and
skills required for the performance of the tasks at hand and finally suggests a
structure and speculates on the levels as well as numbers of people that would
be needed. It builds on the current experiences of the census programme
team. It should be seen as a
contribution to the current discussions on the mandate and new structure for
StatsSA.
49.
The structure proposes that there be six
components, with census operations being responsible for 67 per cent of the
personnel. The components are listed as
follows:
Area of activity Staffing requirement
1.0 Project management 6
2.0 Research, testing, quality and analysis 5
3.0 User consultations and content 3
4.0 Census operations 63
4.1 Geography 31
4.2 Collection 15
4.3 Processing 13
4.4 Dissemination 4
5.0 Publicity 2
6.0 Corporate services 14
Total 93
50.
The structure is top-heavy, with 12 per
cent consisting of directors, 64 per cent being assistant- and
deputy-director-level appointments, another 11 per cent being statisticians and
the remaining 13 per cent consisting of administrative officers. This
composition of the structure reflects that a lot of the work will be done
through short-term contracts, subcontractors and outsourcing. StatsSA staff will be primarily informed
managers of the process. The operations will largely be driven internally, and
this is reflected by the more than 67 per cent of the people being in
operations.
51.
Pre-testing of census content, methods,
procedures and processes is very useful in providing a basis for decisions that
should be made during the advance planning of the census. For majority of
tests, it is usually important that as far as possible, the sample selected is
representative of the whole country. The areas selected for Census
2001—although in many respects based on purposive methods—met this criterion.
Another important point to note is that because of the time limit, the pilot
could provide answers only on procedures and processes in enumeration with very
little on actual content and data-processing procedures. The results, however, may not be generalized to the population
because the sample as drawn was not probabilistic. However, the timing of the
pilot census failed the test, as it was supposed to have occurred in October
2000 to coincide with October 2001, when the actual census was to be conducted.
The pilot census was conducted in March 2001. Following the pilot, sets of
evaluations based on experiences were instituted. They are as follows:
52.
The results of the above exercises are
summarized under areas that contributed highly to the poor performance of the
fieldwork. They are:
·
Lack of organization and supervisory capability:
Procedures not adhered to, flow of information uncoordinated, lack of
professional accountability.
·
Size of the EAs above the norm (too many
dwellings) and enumerators not being able to identify boundaries. Uncompleted
EAs.
·
High number of refusals: Lack of publicity and
poor calibre of enumerators.
·
High numbers of non-contacts: Too many empty
holiday homes and to a lesser extent poor management of callbacks.
·
Problems in administering the questionnaires:
Many questions not attended to.
·
Poor calibre of field staff associated with
unclear recruitment policy.
·
Poor training of field staff resulting in
questionable output across the board.
·
Listing procedures not uniform: Total number of
dwellings/households different between
PES and census enumeration.
·
Lack of proper quality assurance procedures
during enumeration; poorly filled-in questionnaires.
53.
The following steps have been taken to
address the above problems in enumeration:
§
One experienced officer from household surveys
has been seconded to census as chief operations officer to help in planning and
implementation of activities both at the head office and in the field.
§
Four experienced technical staff from PES,
census mapping and household surveys have been seconded to enumeration. Three
of them will look at the listing procedures in detail, and one will concentrate
on the enumeration procedures and methodologies and development of manuals.
§
There is currently a move to reorganize and
strengthen the provincial offices by having project management experts attached
to their operation base.
§
The whole recruitment strategy is being
scrutinized with the view of employing experienced regional managers who in
turn are going to work in conjunction with the StatsSA regional surveys
managers as advisers on data-collection techniques. The recruitment will also
be decentralized for close supervision and implementation.
§
The
listing strategy has been revised and listing is going to start in June rather
than two weeks before enumeration. This should provide indicators on
enumerators’ workload well in advance.
§
During
listing, verbal boundary descriptions of EAs will be documented. This will assist the enumerators in locating
the confines of their EAs. Furthermore, census-mapping staff are going to be
deployed in both the initial stages of listing and also during actual
enumeration so as to maintain accuracy.
§
Currently, the publicity personnel are busy launching the integrated
publicity programme in all the provinces. The activities are going to run
through to enumeration and hopefully, this will help in raising awareness and
in turn improve on the enumeration acceptability levels among the difficult
groups.
§
To maintain a high degree of professionalism and maintain quality, a
decision has been taken to have predominantly teachers as supervisors.
§
In the current recruitment strategy, the requirements in terms of
qualifications, experience and locational factors for the fieldwork personnel
are being correctly put into place. The monitoring of the process will be from
head office, provincial and regional offices. In the pilot census, procedures
were loosely defined and thus allowed for mediocrity.
§
The enumerators’ and supervisors’ manuals currently being developed
have strictly spelled out the procedures to follow in the management of
callbacks to avoid laxity in the subsequent follow-ups (no one was sure in the
pilot that there were any follow-ups). In other words, the refusals will be a
joint responsibility of the supervisor and enumerator closely monitored by the
fieldworker coordinator.
§
The training strategy has been drastically reviewed to make sure that
80 per cent of the enumerators’
training is on the census questionnaire unlike in the pilot, where the
questionnaire was given only 10 per cent of the training time.
§
On the other hand, there has been an introduction of training
videotapes geared towards efficient and uniform messages across the board.
§
The whole recruitment strategy has been revised to accommodate the
recruitment of field staff at the regional level. This will assure that the
calibre of the field staff is of the required standard and maintain the policy
of having field staff from their area of operation. An allowance has been made
to have the whole process monitored by a wider team from the head office and
provincial office to eliminate possibilities of nepotism and so forth.
§
The time to be taken on the recruitment has been increased considerably
also to allow for intense scrutiny of the target staff.
54.
The training strategy has been reviewed
and the following procedures have been put into place:
§
The national trainers are going through intensive in-house training to
bring them up to par as far as the subject-matter areas are concerned. The programme
started immediately in April and will continue through June.
§
The national trainers are going to train together with the
subject-matter specialists, at least at the first level of training.
§
The national trainers have been integrated with the enumeration team so
that they will be able to understand the whole planning process.
§
A training videotape has been introduced as a training aid or guide for
both the trainers and the trainees.
§
Training at the regional level will be carried out by the trainers and
the regional survey managers who have vast experience in data-collection
techniques.
§
A strong monitoring and evaluation team from the head office (with both
internal and external monitors) has been proposed.The team will recommend
immediate action if the procedures are found to be wanting.
§
Two experienced officers have been seconded to the listing project as a
way of building the project base and improving on performance.
§
All the listing procedures are currently being reviewed with the main
aim of standardizing them not only from the enumeration point of view but also
from the standpoint of the PES and household surveys. The unit of listing this
time will be the same across the board.
§
Listing will be carried out for a longer period of time and by a
completely experienced and independent team of listers drawn from across the
country.
§
All the fieldwork procedures are being reviewed by a team of
experienced personnel with the aim of improving the management of questionnaire
content and overall fieldwork supervision. The role of supervisors and
enumerators will be more closely monitored with definite measurable indicators,
unlike the pilot.
55.
In South Africa prior to the census of
1996, there is evidence of adjusting census information at least for the
censuses of 1980, 1985 and 1991. The
only well-documented adjustment process is that of the census of 1991. In the case of the other censuses, one can
infer that there were adjustments by comparing published information with the
original records. In the census of 1991
the adjustment was based on a demographic model and not a PES.
56.
The first attempt at a PES was carried
out in the census of 1996. This has been well documented and it includes
limitations.
57.
South Africa has a policy position of a
“one-number” census. In this regard, the census count is adjusted by the PES
information and the resulting adjusted population is then published for public
use. A 10 per cent sample of individual
records is also made available to the public.
In the census of 1996, South Africa had an undercount of 10.4 per cent,
which was duly adjusted by geographic level and by race, among other factors.
58.
The census figures are used for the
allocation of funds to provinces and determination of the resource split among
three spheres of government—namely, national, provincial and local governments
(municipalities).
59.
In the census of 2001 in October, a PES
is planned and will be mounted. An initial report on how well we fared in the
census using the PES has drawn our attention to several key areas of focus, as
discussed below.
60.
Several limitations of the 1996 PES that are listed in the population
census report were addressed by the PES test.
These included the following:
§
Methodologies and procedures were tried out and
revised throughout the process;
§
The questionnaire design did not make adequate
provision for those households and individuals that have moved into a new EA
after the census;
§
The exclusion of the full names of people on both the
census and the PES questionnaires, to enhance confidentiality in politically
tense areas, made the matching process difficult;
§
The matching process was especially difficult in those
areas where there were no addresses; and
§
Unclear EA boundaries, resulting in the inability to
find the matching questionnaires, were the main reason for the unresolved cases
(22 per cent) that then required statistical imputation.
61.
Reduction of unresolved cases is attributed to use of names and
stickers. The names might have had a
larger contribution in this compared to the stickers since sticker retention
was not that good in some provinces.
But the idea of stickers should not be underestimated since stickers
help more in identifying and matching questionnaires while names help more in
identifying and matching individuals in a questionnaire. What comes out very
strongly is that people do not understand the concept of stickers, and
therefore they need some explanation in the form of publicity. Fieldworkers
themselves had such problems as forgetting the sticker altogether, handing more
stickers than necessary to one household and so forth. Therefore, use of both
is highly recommended, provided good publicity about stickers has been done and
a well-thought-through approach to training fieldworkers has been applied. In addition, numbers on the aerial
photographs would definitely assist further in matching.
62.
In CHAID analysis and when using proportions, the two types of
enumeration do not appear to be different from each other in terms of number of
people included in the census. It is up to the management team to take a
decision on this, but other factors will have to be considered—for example,
what the decision means in terms of sample size, cost, accurate listings and so
forth. However, in consultation with sampling statisticians from the US Census
Bureau, they recommended against sampling within an EA. According to them, subsampling would
complicate the field operations and would make it impossible to identify
households that were included in the census but not in the PES during the
matching process.
* This document was reproduced without formal editing.
** Statistician General, Statistics South Africa. The views expressed in the paper are those of the author and do not imply the expression of any opinion on the part of the United Nations Secretariat.
[1] Technical Discussion Document (TDD) on options for 2001: “Census or Sample Survey”.
[2] Excerpts from an internal document titled “Census Users Topics”.
[3] Summary of recommendations from the TDD workshop (July 1999)
[4] Proposed structure for the census department details.
[5] Pilot census summary report.