Introduction
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Questions about marriage and children were again included, as they had been at the 1911 and 1951 Censuses. The former had asked for marriage details for all married women, the latter for all married women under the age of 50. The 1961 Census questions related to all women who were or had been married, and so repeated the enquiry made fifteen years earlier by the 1946 Family Census conducted on behalf of the Royal Commission on Population. The questions about children were the same as in 1951, except that they extended to all women who were or had been married. It was not regarded as practicable within the limits of the census to include particulars about the date of birth of each child, as had been done in the specialised enquiry for the Royal Commission. The innovation at the 1961 Census, though the Family Census had previously included the question, was the date of termination of the first or only marriage. This enables statistical use to be made of their experience as regards duration of marriage and number of children in the case of women whose first or only marriage was terminated by widowhood or divorce after the end of their childbearing life. This is particularly important in estimating the trends in the size and pattern of families for successive generations over as long a period as possible, as the proportion of widows predominates in the higher age groups. In Wales and Monmouthshire the question on the ability to speak Welsh was included as previously. The question was first asked in 1891, and was given its present form in 1931. Each census since the first in 1801 has included questions about housing and households. In 1961 the scope of the question was wider than before, because of the great Use of the data to the Ministry of Housing and Local Government and to local authorities. As before, the record made during the enumeration lists all buildings, residential premises and temporary places of abode, and all households occupying them, as the basis of the enumeration is the household schedule. The number of structurally separate dwellings (that is, houses or flats or other quarters built or adapted for separate occupation and forming a private and structurally separate unit) was obtained as previously, together with the number of households with sole occupation or sharing such dwellings, and the number of living rooms occupied by each household. In 1961 the enumerators were asked to note whether the building was wholly or partly residential, and whether it contained one or more dwellings. In 1951 questions had been included to throw light on housing conditions. In 1961 the questions about piped water supply, water closet and fixed bath were repeated as before, with the addition of a new question about hot water supply; the 1951 questions about cooking stove or range and kitchen sink were restricted to households sharing dwellings. A new question asked about housing tenure, whether the accommodation occupied by each household was held by them as owner-occupiers; occupied in connection with employment or as part of business premises; rented from a Council (or New Town Corporation) or a private landlord (if so, whether furnished or unfurnished); or occupied on some other terms. The analysis of private households by size and various characteristics of their members has become increasingly important. Previously, while visitors were left out of this analysis it was not considered sufficiently important to attempt the task of bringing in the members away from home on Census night, which would be very laborious in the absence of information given at their place of usual residence. But the need for a more accurate distribution of households by size as usually constituted had become more important by 1961, and accordingly a new question was introduced, for private households only, asking for particulars of persons usually living in the household who were absent on Census night. The information collected under this head will not affect the main count of population numbers, but will be used solely in the analysis of households by size and other characteristics. Sample. —
At an early stage of the census preparations consideration was given to possibilities of reducing the amount of clerical work before the census results could be mechanically processed, and the various topics for inclusion were examined to see whether full analysis was required, as previously, or whether sample analysis would serve their main purpose. It appeared that a 10 per cent sample analysis would give adequate results for many subjects, notably the analysis of the working population. The sampling fraction chosen, 10 per cent, was selected partly on grounds of convenience but mostly on an assessment of the likely reliability of figures in the projected tabulations, and of the margins that might be tolerated. The use of sampling in this field reduces the total numbers of staff required in the Census Office as well as speeding up the production of the census results. The sampling method was introduced at the enumeration stage and the effect of this was to reduce the number of questions for nine tenths of the people. Nine out of ten private householders received a form with fewer questions than previously this century. The tenth received a form not much larger in content than the 1951 questionnaire. In other establishments, (hotels, hospitals, ships, etc.,) the extra questions were asked of every tenth person. The sample was so arranged as to be fully representative over the country as a whole, and everyone had the same possibility of being included. The questions chosen for sample treatment were those relating to occupation, employment, place of work, status in employment, education, scientific and technological qualifications change of usual residence or duration of stay at present usual residence, and persons usually resident in private households who were absent on Census night. Order-in-Council. —
In accordance with the procedure set out in the Census Act, 1920, a draft Order-In-Council, prescribing the date of the census the persons by whom and with respect to whom the returns were to be made, and the substance of the questions to be asked, was laid before Parliament on the 6th April, 1960. The draft Order was explained fully in the House of Commons and was accepted without opposition; at the same time the House approved the inclusion of questions about the first or only marriage where this had terminated, about housing tenure, education, scientific and technological qualifications change of usual residence in past year or duration of stay at present usual residence.. These questions required the affirmative procedure because they are not already specifically authorised by the Census Act, 1920. There was a general debate about the draft Order in the House of Lords on the 1st June, 1960, following which the inclusion of these questions was agreed to. The Census Order, 1960, (S.I. 1960 No. 1062,) was made on 23rd June, 1960. The second schedule containing the substance of the questions is given in Appendix C. Regulations. —
The detailed machinery for the taking of the census and the precise forms of return to be used in all cases were prescribed in the Census Regulations, 1960, (S.I. 1960 No. 1175,) which were signed by the Minister of Health on the 11th July, 1960, and laid before Parliament on 18th July. There was no discussion of them in either House. Local Organization. —
(a) Census Officers
. As at every previous census since 1841, the local arrangements for the enumeration were based on the area covered by the local registrar of births and deaths, with some modifications of area so that generally the census districts were limited to a maximum of 100 enumeration districts (that is, approximately 75,000 population). Thus, there were 1,315 census districts for the 1,184 registration sub-districts. In the main the registrars acted as Census Officers; the 1,315 Census Officers comprised 1,093 registrars of births and deaths, 137 other registration officers and 85 others appointed as required. Superintendent registrars were appointed to act as Census Advisory Officers in 115 cases, mainly in the larger centres of population, to deal with enquiries about the census from any quarter, and to recruit and instruct in their general duties a sufficient number of enumerators for the area. The local duties comprised the checking of the boundaries and contents of enumeration districts set out in the draft plans prepared by the central Census Office, the selection, appointment and instruction of enumerators, control of the enumeration and dealing with enquiries or difficulties from the public. (b) Enumerator
. The persons appointed to deliver and collect the forms are traditionally called 'enumerators'. They also compile an enumeration record of their district, with the provisional count of numbers and a list of all buildings, residential premises and households. The completeness of the census count depends very largely upon the assiduity with which the enumerator searches for all residential premises and any temporary dwellings, caravans, boats, etc., where anyone may spend Census night, and in the confidence which he can inspire in the ordinary householder that the census is necessary and the answers kept secret. There is far more in the Job than mere issue and collection of forms. The identification of buildings by type, of structurally separate dwellings and private households is a complex process dependent upon detailed instructions. The census schedules themselves have to be fully understood so that advice can be given to people in difficulty. But above all the work requires tact and courtesy, so that the returns may be secured from the public without friction or offence. Instructions for the recruitment of enumerators were sent out in early January. The power of appointment was delegated to the local Census Officers, as it was not practicable to exercise central control. Guidance was given, and advice or assistance was available in the event of difficulty. To widen the field of recruitment as far as possible, a general press notice was issued, which was very well covered by the local press and notifications were sent to Government Departments, to local authorities and local education authorities. Arrangements were made for close co-operation with the managers of local Employment Exchanges of the Ministry of Labour, and, in particular, that Census Advisory Officers and Census Officers should ascertain whether the managers had suitable people to put forward for possible appointment from persons registered with, or applying to, them for employment. As it was essential to select persons who would be willing and available to carry out the duties some weeks ahead, in the main selection was confined to persons able to undertake spare time duties, or housewives and retired persons. Some 69,000 enumerators were appointed in England and Wales. As previously many were local government officers and civil servants. Applications for appointment were received in great numbers in nearly all urban areas, but in some rural areas there was difficulty in making up the numbers required. Instructions were given that as far as practicable no enumerator should be assigned to a district in which he was known by the residents, as people might be reluctant that the confidential information on a census schedule should be made available to an enumerator personally known to them. But this was not always possible, particularly in rural areas. All enumerators signed an undertaking that they understood the nature of their duties and their obligation to keep secret the information collected, and that they were aware of the heavy penalties for any breach of confidence. (c) The Enumeration
. The basis of the enumeration was, as previously, that forms should be completed for every private household, and for every hospital, hotel or other similar establishment under arrangements made by the persons in charge. The normal private household is the family type with husband, wife and children, but persons living alone or a group of two or more persons living together also constituted households for the census. Where accommodation is sub-let and the occupants live on their own, they would be counted as a household, but persons living with a household who usually have at least one meal a day provided by that household while in residence are treated as belonging to that household. Provision was made, as on previous occasions, for separate confidential returns to be completed on request by persons over 16 where they' did not wish to give particulars to the heads of households of which they were members. Enumerators and Census Officers were instructed not to begin delivering schedules before Saturday, 15th April, but to make every effort to complete the delivery not later than Thursday, 20th April. In most districts this was achieved except for a few cases where it was difficult to make contact. Instructions were given that the forms should, if possible, be collected on the Monday following Census day, that is, 24th April. Most enumerators got very close to this target, but in some enumeration districts it took until Tuesday to collect all the forms, or nearly so. All enumerators had difficulty in recovering the forms to some extent, as there was often no-one at home when they first called, but in some areas this difficulty was considerable. In all districts a few outstanding cases remained where contact was only made after repeated visits. The concluding task for the enumerators, apart from following up the few forms still to be collected, consisted in checking the forms they had collected, and where necessary calling again on householders to supply any information that was missing. At the Census weekend and subsequently there was much activity in following up cases where individual households had not received schedules, and this continued into the second week after Census day. The few cases that still came to notice later were followed up as they were revealed. There were also cases where completed schedules could not immediately be recovered, and these too were followed up as necessary. This preliminary report, being written within three weeks of Census day, cannot hope so soon to give a full report of the census enumeration. The general impression is that the enumeration was well carried out according to instructions, and that remaining omissions or difficulties were very few once the enumerators made their second round of visits. The chief problem was the difficulty of finding people at home. The success of the operation is being carefully gauged, and a full report will be made later. Publicity. —
The success of the census depends upon the willing and understanding co-operation of the public. Suitable publicity helped very much in securing this. At each stage of the census arrangements the fullest available information was given to the Press, A number of conferences were held. There were interviews with feature writers. Information was supplied to newspapers and agencies. News and comment about the census were published from time to time in the daily newspapers, both national and local, and in the weekly and other periodicals, and this was of the greatest value in bringing the census before the public. During the week before Census day, particularly in the days round .Census day itself, the census received a wide variety of publicity. A booklet 'Why a Census?' was produced in association with the Central Office of Information and published by H.M. Stationery Office at the price of 1s 0d. The booklet was intended to give a serious but simple explanation of the census to interested members of the public and to serve as a source of information to the Press and other enquirers. Many people telephoned, called or wrote about personal problems and the kind of information they would have to give. A poster was designed and produced by the Central Office of Information and distributed by them to a large number of firms employing a fair number of people for display in industrial premises. The firms were asked to show on the poster particulars of the firm's name and the business carried on by them so that their employees should find it easier to give correct answers to the questions on industry. The measure of co-operation by firms was so high that an urgent reprint of the poster had to be made to meet requests for additional copies. Altogether 110,000 copies of the poster were distributed and the General Register Office is very grateful for this help. Census Reports. —
(a) Preliminary Report
. This Preliminary Report contains provisional figures for population, male and female, and private dwellings and households. These have been prepared from summaries sent in by the enumerators by 30th April. Enumerators still had cases outstanding to be cleared up but these would not have any significant effect on the figures. (b) Main Reports
. The main Census Reports are based on a carefully edited analysis of the contents of the census schedules. The schedules are checked and assembled locally and despatched to the Census Office at Titchfield where the material is prepared. Arrangements have been made to produce the analyses on the International Business Machines computer, type 705, installed for the Royal Army Pay Corps at Worthy Down, Winchester. The first of the final figures to appear will be population figures with details of sex, age, marital condition, birthplace and nationality, for each local authority area. These will be published county by county as they become available. There will also be local figures for dwellings, rooms and households with associated information. All this is information on the 100 per cent basis, On present plans it is hoped to publish the volumes in this series between December, 1961, and April, 1963. Information derived from the 10 per cent sample will be published separately. This 10 per cent information correlated as necessary with the 100 per cent information will be analysed and published after the 100 per cent information already mentioned. National summary tables for population and housing will be published as soon as they become available, in about two years. These will be followed by the tables for housing and households, for population movement, workplace movement, occupation, industry and status, education, scientific and technological qualifications, duration of marriage and family size. Consideration is being given to publishing other local information, for example, the figures showing the numbers of persons resident in each area, and figures based on the 10 per cent sample for additional household and economic characteristics, on a local or regional basis. It is not proposed to produce a report on the conurbations similar to that produced in the 1951 series, but figures will be published in the other volumes as most convenient. The information about the working population will be analysed in accordance with the 'Classification of Occupations, 1960, H.M.S.O. 1960, price 27s. 6d. net, and the 'Standard Industrial Classification, H.M.S.O., 1958, price 2s. 6d. net. As a further aid to making the figures available at the earliest possible date, they will be published without waiting until a detailed commentary can accompany them. So far as such a commentary is thought to be helpful, this will be published later when it has been possible to study the results. It is not proposed on this occasion to produce a sample of results on the basis of one per cent such as was produced in 1951. It is hoped that the sampling procedure for several of the census questions and the use of an electronic computer will speed up the production of the main census results which would otherwise be delayed by the production of a special sample analysis. Acknowledgements
. The census is a large scale operation involving much consultation with other Government Departments, with local authorities and a variety of bodies and interests, in order that the resulting information to be collected should be of the widest possible use and presented in the most generally convenient form. Acknowledgements are made for all the help received in this. Assistance was received in the enumeration from the Service Departments, who issued instructions for the enumeration of serving personnel in defence establishments, and from H.M. Customs and Excise who undertook the enumeration of shipping personnel within the ports. Assistance was received from the Ministry of Transport, and other transport authorities in drawing the attention of persons travelling on Census night to what they should do to be enumerated. Circulars were issued by the Home Office, the Ministry of Health and the Foreign Office to facilitate the enumeration of particular groups in whom they had an interest. Mention has been made above of the assistance received from the Ministry of Labour and the Ministry of Education over the recruitment of enumerators. H.M. Stationery Office undertook a major task in organising the printing and distribution of some 20 million Census schedules and of many other forms and supplies needed for the Census. Much of this work was undertaken by the printing industry to whom thanks are due. Local authorities gave much valuable assistance, both in providing up to date information of housing developments for use in planning enumeration districts, and also in facilitating the task of Census Officers, by making accommodation available and by allowing their officers to serve as enumerators. Thanks are due to the Press generally, to the British Broadcasting Corporation and the independent television authorities for their assistance in putting before the public the facts about the census and in arousing their interest. A heavy burden fell to the Census Officers, who had to assimilate the instructions for a complex operation, to recruit and instruct enumerators, to deal with enquiries from the Press and the public. To the enumerators fell the task of telling the public what was required of them, and Of securing their co-operation. Allowing that this involved everyone in the country, the relatively tiny amount of complaint and difficulty encountered shows how well the enumerators carried out their task. And first and last, thanks are due to the members of the public who showed generally that they were ready to give their co-operation. All the ready assistance given by everyone asked to play any part in the census is greatly appreciated. E.M.T. FIRTH 10th May, 1961Introduction
Registrar General