Review of Pilot Census

Introduction:-

Pilot Census is a comprehensive test of all the census procedures. The essential characteristics of a pilot census are coverage of areas and population at the preparatory stages for testing of validity and suitability of the entire census plan and its organization. The main goal of Pilot census is to test in real terms the cartography, methodology, organizational structure, data collection method, questionnaires, logistical planning, interaction and coordination among all the resources planned to be engaged in the census.

For effective results, the conditions in the pilot census must be as close as possible to those that are planned for complete census enumeration. On the other hand, sufficient time is required to reflect upon the implementation challenges identified during the pilot census, their analysis, recommendations for improvements, and accordingly to reform the census processes for an effective and efficient census operation. The tradeoff is obvious, however, the peculiar domestic needs/ requirements are also important to be given due consideration and not overlooked while taking important decisions on the matter. Therefore, this Pilot Census review would be of high importance regarding further decision making on implementation of timelines earlier envisioned and deliberated for the main census field operation.

Aim and Objectives of Pilot Census:

A pilot census ensures that technology can be tested as part of a complete, end-to-end business process and highlights major implementation challenges with functionality or capability. However, the pilot census alone is insufficient to fully test technology due to its reduced size, reduced public profile and non-existence of some risks that are present in a fully-fledged census operation. The pilot test should be accompanied by activities to test whether technology solutions are scalable, secure, accessible and robust enough for the real census. Stress tests should be conducted during the testing phase to ensure technology use can handle the maximum load of each module or business case and sustain data integrity.
There are a number of risks or drawbacks associated with the introduction of technology that should be considered and managed, otherwise these could lead to increases in expenditure, delays to the census timetable or impacts on the quality of the census. These include:

• Incompatibility or other integration issues between different hardware and software applications;
• Solution outage or failure (which could be for many reasons—lack of connectivity, hardware failure, battery life, GPS black spots, software bugs, device theft);
• Lack of skills or knowledge by system users, particularly temporary census staff; Insufficient or inadequate communication between technology staff and business staff, particularly leading to misunderstanding of requirements;
• Hacking, online attack or other information technology security event;
• Maintaining, upgrading or decommissioning old or legacy systems;
• Lack of documentation or reliance on a small number of key people;
• Huge amount of digital data available, creating a potential distraction for staff.” [1]

Pilot census is a critical part of the census planning process and comprehensive test of census procedures. In the light of international experiences, recommendations from various national/ international bodies associated with statistical data collection, analysis and dissemination, domestic peculiar conditions related to the process, and recommendations of Census Advisory Committee the overall aim of the Pilot Census of 7^th Population and Housing Census-2022 was set as follows:

“To test effectiveness, applicability and timeliness of the new methodological and organizational procedures such as census training to master trainers and enumerators, census field operation, coordination mechanism between PBS head/regional offices to the provincial/ regional local administration and field staff (PBS field representatives, supervisors/ enumerators), and census manuals and CAPI procedures (hardware especially tablets and software solutions). Also to check efficiency of all the post‑enumeration activities, such as the collection and checking of enumeration materials, the Information and Communication Technology (ICT) infrastructure and the entire data processing system.”

The overall aim of Pilot Census of 7^th Population and Housing Census-2022 has been further sub-divided into twelve specific objectives. The Pilot Census was aimed at testing the following:

1. Effectiveness and comprehensibility of training materials and procedures to impart trainings to the master trainers and enumerators.
2. Capabilities of enumerators to comprehend the census concepts within a short span of time and implement in the field with maximum efficiency and accuracy.

• Applicability and suitability of census questionnaire, clarity of its wording, sequence of questions, and response biases.

1. The enumeration workload and time required to carry out the enumeration.
2. Suitability of coordination mechanism for logistic support in the field and necessary communication to and from PBS representatives in the field and other field staff such as enumerators/ supervisors etc. to devise effective strategy to deal with day to day issues.
3. Census tablets and other hardware for their suitability in the field, especially durability of tablet battery and charge banks to keep tablets alive during the whole enumeration time of a day.

• Census software and GIS for their reliability, accuracy, efficiency and security.
• Digital block maps with high-resolution imagery and capability to properly identify to the enumerators their assigned blocks and to help recognize block overlapping/ non-coverage etc.

1. Compatibility between the hardware and different census software and to sort out issues prior to start of full scale census enumeration.
2. Network availability and proper and easy log-in capability of the devices.
3. Proper, effective and secure data synchronization and transmission to the central database.

• Real-time monitoring in the field and at PBS headquarters to deal with block identification/ overlapping, non-coverage and other issues requiring regular and immediate action from the concerned in the field and at PBS headquarter.

Committee to Finalize Modalities of Pilot Census:

In order to finalize modalities of Pilot Census especially regarding to sampling and field operation for 7^th Population and Housing Census-2022, a committee was constituted on 29^th March, 2022 with the following ToRs:

1. To decide on the sample size keeping in view the objectives of Pilot Census.
2. To decide on level of sample either Census District or Admin District.

• To finalize the operation modalities of Pilot Census.

Several meetings of the committee were held to decide on the important issues regarding Pilot Census such as time period, sampling methodology, areas identification for electronic vs manual data collection and enumeration procedure. The committee also studied pilot census conducted by various countries for successful planning of the pilot census.

Methodology of Pilot Census

As per recommendation of Census Advisory Committee (CAC) to conduct the Pilot Census to test the whole procedure. PBS initiated and completed preparation of Pilot Census including deployment of staff, establishment of support centers, preparation of training manuals/materials etc. Pilot Census of Population and Housing Census-2022 has been conducted from 20^th July, 2022 to 3^rd August, 2022 in 33 selected Admn Districts all over Pakistan, including Azad Jammu & Kashmir and Gilgit Baltistan. Three days training to the Master Trainers was arranged at PBS headquarter during 5^th‑7^th July, 2022, whereas training to the enumerators by the Master Trainers in the field at the selected 27 stations was imparted during 13^th – 17^th July, 2022. The enumeration and supervisory staff was provided by the district administration of each province/ district. The enumerators were deputed from various provincial departments and enumeration was completed under the supervision of tehsil and district administration of concerned jurisdiction. The enumeration was conducted for Pilot Census using tablet devices, being digital census, therefore, two software modules were prepared and used for this exercise.
 

Sampling Methodology

PBS technical committee deliberated on the methodology based on the comparative studies of different countries and keeping in view the ground realities of Pakistan. Initially it was planned to select 2 blocks from each census district (tehsil/district) i.e. 1000 blocks selection from 489 Census districts or to take 2 blocks from each admin districts (156 districts) i.e. 312 blocks.

The proposed sample size was presented to technical committee and detail deliberations were made. However, keeping in view the objective of pilot census which includes the complete test/run of all technologies adopted, it was decided with consensus that the sample from clusters of districts may be selected with parameters like density, accessibility, topography of area instead of selecting sample from all districts. For this purpose, detailed study was done on the block wise information collected by field services and support services about different characteristics. After detailed discussions, it was decided keeping in view the requirement regarding human and financial resources that the sample of not more than 500 blocks may be selected based on area characteristics. It was decided by technical committee as the objective of the pilot was to check the whole process of digital census so there may not need of representativeness of results, therefore efforts may be made to best possible sample with same specific characteristics.

Keeping in view the recommendations, the detailed study was carried out for sample areas having different characteristics i.e. topography (plain, river side residential blocks) accessibility of areas population and area density. Further attributes like electricity line and internet connectivity was also made part of analysis to select best possible sample for true checking of the systems.

Sample Selection for Pilot Census

The technical committee studied the block wise information collected by field services section and support services section regarding certain parameters in the area frame updated through census 2017. Information regarding following characteristics were found in the frame for each block.

• Block area and type
• Issues approaching block (Accessibility)
• Estimated distance from district headquarters
• Conveyance type from district headquarters to the block
• Access/Approach within the block

For selection of sample for pilot census, it was decided that sample may be selected from the clusters and these clusters will be formed by considering the different characteristics like density, type etc.

Field Operation
Pilot Census was conducted from 20th July, 2022 to 3rd August, 2022 in 33 selected Admn. Districts including Azad Jammu & Kashmir and Gilgit Baltistan. Initially, 429 blocks were selected for enumeration, however, later on due to security/ other issues 12 blocks from Census Districts Haveli and South Waziristan were dropped. Out of the remaining 417 blocks, 368 blocks have been fully enumerated.

Enumeration
In the field, enumerators were responsible to complete one block within the time span of fifteen days. The given days were further divided as follows: first three days for listing of structures, next ten days for enumerations, one day to enumerate leftover structures / households and one day for homeless population.

Progress of Field Work:
For Pilot Census, 417 blocks were selected for enumeration. Three blocks each from districts Washuk, Cholistan and Islamabad were dropped due to flood/rain, non availability of a 4×4 vehicle and non-availability/ replacement of enumerator, respectively, at the initial stage of the Pilot Census field operation. Out of the remaining 414 blocks, 368 blocks (88.9%) have been fully enumerated, whereas work in 46 blocks (11.1%) could not be completed due to various reasons, such as rain, big blocks, delay in provision of tablets, battery drainage issue, map related issues etc. In the remaining 46 blocks, only 60% of enumeration work was completed.

Issues in Pilot Census Enumeration

Enumeration issues:
Enumerators were not clear, for example in:
• Under construction structure if some family is living.
• Structure number on Khanqah.
• PSIC codes of masjid, petrol pump, bara, filtration plant.
• Code of daily wages labor.
• Unable to distinguish services, manufacturing and retail trade activities.
• Manpower engaged for economic activity.
• Listing of leftover households for enumeration.
• Listed household temporary absent.

Procedural issues:
• Some enumerators put household numbers on gates instead of structure number.
• Some enumerators were not doing listing as per prescribed procedure.
• Enumerators working in scattered areas repeatedly asked for permission for enumeration along with listing.
Big blocks found during pilot, question regarding cut off point that when and where big block should be declared was asked repeatedly due to non-provision of assigning one block to another enumerator in the application and remained unaddressed.

Hardware and Software/IT Related Issues:
Hardware and software are critical components of the success of a digital census system. It is dependent not only on their compatibility, but also on the suitability of the hardware in the field and the overall reliability, accuracy, efficiency, and security of the software bundle used during the census operation. The following sub-sections discuss the hardware and IT related issues faced during pilot census.

Hardware Related Issues:
NADRA was required to provide new tablet devices per PBS specifications for pilot census. Due to time and other constraints, they rented out pre-owned tablet devices with low specifications through BISP.

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