Why are there Images of censuses of Ciutadella de Menorca but they aren't indexed?

I have read that less than 20% of the images on FamilySearch are indexed. It is much faster/easier to create the image than to create and connect the index. It also takes considerable effort - many hours of work by mostly volunteers - to get a project ready to index.

Also, some records may never be indexed. There are projects that have been microfilmed or digitally photographed as a way to preserve the records, but the original record holder/creator has not permitted those records to be indexed.