Encyclopaedia Britannica, 11th Edition, "Celtes, Konrad" to "Ceramics" / Volume 5, Slice 6

by Various

The Federal census, which began in 1790 and has been taken every ten years since under a mandate contained in the Constitution of the United States, was the outgrowth of a controversy in the convention which prepared the document. Representatives of the smaller states as a rule claimed that the vote, and so the influence, of the states in the proposed government should be equal. Representatives of the larger states as a rule claimed that their greater population and wealth were entitled to recognition. The controversy ended in the creation of a bicameral legislature in the lower branch of which the claim of the larger states found recognition, while in the upper, the Senate, each state had two votes. In the House of Representatives seats were to be distributed in proportion to the population, and the convention, foreseeing rapid changes of population, ordained an enumeration of the inhabitants and a redistribution or reapportionment of seats in the House of Representatives every ten years.

The provision of the Constitution on the subject is as follows:— “Representatives and direct taxes shall be apportioned among the several states which may be included within this Union according to their respective numbers, which shall be determined by adding to the whole number of free persons, including those bound to service for a term of years and excluding Indians not taxed, three-fifths of all other persons. The actual enumeration shall be made within three years after the first meeting of the Congress of the United States, and within every subsequent term of ten years, in such manner as they shall by law direct.”

In 1790 the population was reported classed as slaves and free, the free classed as white and others, the free whites as males and females, and the free white males as under or above sixteen years of age. In 1800 and 1810 the same classification was preserved, except that five age-groups instead of two were given for free white males and the same five were applied also to free white females. In connexion with the census of 1810 an attempt, perhaps the earliest in any country, was made to gather certain industrial statistics showing “the number, nature, extent, situation and value of the arts and manufactures of the United States.” In 1820 a sixth age class was introduced for free white males, an age classification of four periods was applied to the free coloured and the slaves of each sex, and the number of aliens and of persons engaged in agriculture, in manufactures and in commerce was called for. The inquiry into industrial statistics begun in 1810 was also repeated and extended.

In 1830 thirteen age classes were employed for free whites of each sex, and six for the free coloured and the slaves of each sex. The number of aliens, of the deaf and dumb and the blind were also gathered.

The law under which the census of 1840 was taken contained a novel provision for the preparation in connexion with the census of statistical tables giving “such information in relation to mines, agriculture, commerce, manufactures and schools as will exhibit a full view of the pursuits, industry, education and resources of the country.” This was about the first indication of a tendency, which grew in strength for half a century, to load the Federal census with inquiries having no essential or necessary connexion with its main purpose, which was to secure an accurate enumeration of the population as a basis for a reapportionment of seats in the House of Representatives. This tendency was largely due to a doubt whether the Federal government under the Constitution possessed the power to initiate general statistical inquiries, a doubt well expressed in the 9th edition of the Encyclopaedia Britannica by Francis A. Walker, himself a prominent member of the party whose contention he states:—

“The reservation by the states of all rights not granted to the general government makes it fairly a matter of question whether purely statistical inquiries, other than for the single purpose of apportioning representation, could be initiated by any other authority than that of the states themselves. That large party which advocates a strict and jealous construction of the constitution would certainly oppose any independent legislation by the national Congress for providing a registration of births, marriages and deaths, or for obtaining social and industrial statistics, whether for the satisfaction of the publicist or for the guidance of the legislature. Even though the supreme court should decide such legislation to be within the grant of powers to the general government, the distrust and opposition, on constitutional grounds, of so large a portion of the people, could not but go far to defeat the object sought.”

The difficulty stated in the foregoing quotation, although now mainly of historic importance, exerted great influence upon the development of the American census prior to 1900.

The pioneer work of the census of 1840 in the fields of educational statistics, statistics of occupations, of defective classes and of causes of death, suffered from numerous errors and defects. Public discussion of them contributed to secure radical modifications of scope and method at the census of 1850. Before the census law was passed, a census board, consisting of three members of the president’s cabinet, was appointed to draft plans for the inquiry, and the essential features of its report prepared after consultation with a number of leading statisticians were embodied in the law.

The census of 1850 was taken on six schedules, one for free inhabitants, one for slaves, one for deaths during the preceding year, one for agriculture, one for manufactures and one for social statistics. The last asked for returns regarding valuation, taxation, educational and religious statistics, pauperism, crime and the prevailing rates of wages in each municipal division. It was also the first American census to give a line of the schedule to each person, death or establishment enumerated, and thus to make the returns in the individual form indispensable for a detailed classification and compilation. The results of this census were tabulated with care and skill, and a preliminary analysis gave the salient results and in some cases compared them with European figures.

The census of 1860 followed the model of its predecessor with slight changes. When the time for the next census approached it was felt that new legislation was needed, and a committee of the House of Representatives, with James A. Garfield, afterwards president of the United States, at its head, made a careful and thorough study of the situation and reported an excellent bill, which passed the House, but was defeated by untoward influences in the Senate. In consequence the census of 1870 was taken with the outgrown machinery established twenty years earlier, a law characterized by Francis A. Walker, the superintendent of the census, who administered it, as “clumsy, antiquated and barbarous.” It suffered also from the fact that large parts of the country had not recovered from the ruin wrought by four years of civil war. In consequence this census marks the lowest ebb of American census work. Tie accuracy of the results is generally denied by competent experts. The serious errors were errors of omission, were probably confined in the main to the Southern states, and were especially frequent among the negroes.