The Centre Government recently announced that the much delayed Census 2021 will be held in two phases beginning October 1, 2026 and March 1, 2027.

About Census-2027

• The Population Census-2027 is India’s 16th decennial census, aimed at collecting comprehensive demographic, social, economic, and caste data.
• Authority: Conducted by the Office of the Registrar General and Census Commissioner, Ministry of Home Affairs, under the Census Act, 1948 and Census Rules, 1990.
• Key Features:
  • Digital Census: Use of mobile and web applications for data collection.
    • First digital census in India.
    • CMMS Portal: For management and monitoring of census activities.
  • Two-Phase Process:
    • Houselisting and Housing Schedule (April 1 – September 2026): This phase collects information about housing and household amenities.
    • Population Enumeration (February 27 – March 1, 2027): This phase will focus on counting individuals, including detailed socio-economic data, including caste for the first time in post-independence India.
  • Self-Enumeration: Option available for households updating the National Population Register (NPR) online.
  • Caste Enumeration: First time since 1931 that caste data (beyond SC/ST) will be collected.
    • A drop-down caste directory in the mobile app to avoid data duplication.

Historical Overview of the Census in India

Pre-Independence Census

• Ancient and Medieval Period:
  • Rig Veda (800-600 BC): Mentions population count.
  • Arthashastra (321-296 BC) by Kautilya: Advocates census for taxation.
  • Ain-e-Akbari (1595) under Mughal Emperor Akbar: First detailed census covering population, industry, and wealth.
• British Colonial Era:
  • Early Attempts (1800-1850s):
    • The first census in India was conducted in 1800, though only partial data was collected.
    • The first complete census of India was conducted in 1830 by Henry Walter in Dacca (now Dhaka).
    • In 1824, the first city census was conducted in Allahabad, followed by Banaras by James Prinsep in 1827-28.
  • 1871 Census: First nationwide census under British rule. 
    • This was the first structured attempt at collecting demographic data across all of British India during the reign of Governor-General Lord Mayo.
    • Census included questions on religion, caste, occupation, and language.
  • 1881 Census:
    • The first modern synchronous census covering all of British India (except Kashmir). The focus was on complete coverage and demographic classification.
    • Introduced questions on sex, marital status, and detailed caste information for Hindus.
  • 1931 Census:
    • Last census to record comprehensive caste data. It enumerated 4,147 castes.
    • Played a significant role in shaping the later reservation policies, particularly in the Mandal Commission Report of 1980.

Post-Independence Census

• 1951 Census: Conducted after independence under the Census Act, 1948.
  • Excluded caste enumeration for the general population but recorded data for Scheduled Castes (SCs) and Scheduled Tribes (STs).
  • Focus shifted to socio-economic parameters like education, literacy, and employment status.
• Subsequent Censuses (1961–2001):
  • 1961 Census: Expanded the scope to include detailed data on migration, literacy, and employment, with a focus on categorizing workers by industry.
  • 1971 Census: Introduced a two-phase system—houselisting and population enumeration. Focused on fertility rates and migration.
  • 1981 Census: Expanded the scope further with questions on toilet facilities and housing amenities, reflecting the importance of public health data.
  • 1991 Census: Introduced new questions on ex-servicemen, economic status, and refined definitions of literacy and employment.
• 2001 Census: Technological advancements, including the use of Intelligent Character Reading (ICR) for digitizing handwritten data.
  • Focused on assets, sanitation, and land ownership, along with new questions on disability, mode of transport, and employment status.
• 2011 Census: Focus on modern amenities, including data on computers, internet usage, and mobile phone access.
  • Enhanced disability questions and migration data collection expanded to include village/town names.

Key Shifts in Census Over Time

• From Caste Enumeration to OBC Recognition:
  • Pre-Independence: Caste was systematically recorded, providing valuable socio-economic insights. 
    • The 1931 Census enumerated 4,147 castes.
  • Post-Independence: Caste enumeration was limited to only Scheduled Castes (SCs) and Scheduled Tribes (STs), with the Other Backward Classes (OBCs) not formally included.
  • Recent Shift: The 2027 Census will reintroduce caste enumeration for the first time in independent India, targeting the OBCs, to better address socio-economic inequalities.
• Technological Evolution:
  • Earlier Censuses (Pre-2001): Data collection was primarily manual, with forms processed by hand.

• • 2001 Census Onwards: Introduction of digital data collection methods like Intelligent Character Recognition (ICR), allowing for faster and more accurate processing of data.
  • 2027 Census: The first digital Census, aiming to improve accuracy and efficiency in data collection and analysis.
• Expanding Scope of Data:
  • Pre-2001 Censuses: Focused primarily on basic demographic data—age, sex, religion, literacy, and employment.
  • 2001 Census Onwards: Expanded to cover more nuanced socio-economic data such as disability, assets, land ownership, housing amenities, and mobility patterns.
  • 2027 Census: Will include caste enumeration and digital methods, alongside a continued emphasis on socio-economic indicators.

Constitutional and Legal Framework of the Census in India

Constitutional Mandate

• Article 246: Grants the Union Government authority over the Census under Entry 69 of the Union List in Seventh Schedule.
  • No legal requirement for decennial periodicity, but traditionally conducted every 10 years since 1881.
• Article 81: The total number of Lok Sabha seats be determined based on the population of the first Census after 2026.
• Article 82: The Delimitation Commission must base its work on the Census data of the first Census after 2026.

Legal Framework for the Census

• Census Act, 1948:
  • Section 3: Mandates the government to conduct the Census whenever they consider it necessary or desirable.
  • Section 4: Empowers the Census Commissioner to collect and publish data.
  • Section 6: Imposes penalties for non-compliance with the Census process.
  • Section 8: Allows the government to seek information from individuals during the Census.
• Census Rules, 1990:
  • Details the procedure for data collection, responsibilities of enumerators, and confidentiality of data.
  • Ensures the privacy of respondents by prohibiting unauthorized disclosure of personal information.

Legal and Constitutional Changes

• 84th Constitutional Amendment (2002): Freezes the number of Lok Sabha seats based on the 1971 Census until the first Census after 2026.
  • Determines that delimitation will occur based on the 2027 Census.
• Delimitation Act, 2002: Governs the redrawing of constituency boundaries based on Census data.
• Reintroduction of Caste Enumeration (2027): Caste data, last collected in 1931, will be included in the 2027 Census.

Significance of the Population Census

• Policy Planning and Governance: Census data guides policy formulation for development and governance.
  • It helps identify rural-urban disparities in infrastructure, ensuring targeted policies for rural and urban areas.
• Delimitation and Electoral Reforms: Post-2026, provides data for delimitation of Lok Sabha and State Assembly constituencies, as per 84th Amendment Act, 2001 (froze seats based on 1971 Census until 2026).
  • Enables implementation of 33% women’s reservation in Parliament and State Assemblies.
• Social Justice and Welfare Programs: Census data is used to design affirmative action policies for SCs, STs, and OBCs.
  • Supports sub-categorization within backward classes (e.g., Justice Rohini Commission for OBCs) to address intra-group inequalities.
• Socio-Economic Development: Census data provides insights into education, health, and employment.
  • The 1991 Census showed literacy rate gaps, prompting policies to improve rural education.
• Infrastructure Planning: Census data supports planning for housing, transportation, and basic amenities.
  • The 2011 Census data helped the government plan the Swachh Bharat Abhiyan to address sanitation needs.
• Addressing Social and Economic Inequality: Census identifies socio-economic inequalities based on caste, class, and region.
  • The 1931 Census led to the Mandal Commission Report, recommending reservations for OBCs.
• Research and Analysis: Census data supports academic research in fields like economics, sociology, and public health.
  • NSS and NFHS use Census data to estimate poverty and discrimination.
• National Population Register (NPR) and Security: If NPR updation is included (as planned for 2021), it strengthens demographic databases for governance and security.
  • Controversial due to potential NRC linkage, requiring careful implementation to maintain public trust.

Challenges in the Population Census

• Data Accuracy and Coverage: Ensuring complete coverage of all populations, especially in remote areas, is a major challenge.
  • In the 2011 Census, some areas in Jammu and Kashmir and Himachal Pradesh faced delays and incomplete enumeration due to geographic challenges.
• Political and Social Sensitivities: Collecting data on caste, religion, and ethnicity can lead to political controversies.
  • The inclusion of caste enumeration in the 2027 Census has led to debates and opposition in certain regions due to its potential political implications.
• Logistical and Administrative Difficulties: The magnitude of the Census process makes it prone to administrative inefficiencies and logistical issues.
  • Training enumerators for new digital methods in the 2027 Census is a large-scale task that may face delays.
• Public Reluctance and Non-Compliance: Some individuals may be reluctant to provide accurate information due to fears of data misuse or privacy concerns.
  • In previous Censuses, some people from tribal communities have refused to participate due to distrust in the process.
• Technological Integration: Implementing digital Census methods presents challenges related to technology adoption and digital literacy.
  • The shift to a digital format in the 2027 Census will require widespread access to smartphones and internet connectivity, which may be limited in rural areas.
• Caste Classification Issues: Classifying and categorizing castes accurately across diverse regions can lead to inconsistencies.
  • The 2011 Socio-Economic and Caste Census (SECC) faced difficulties in caste classification, leading to over 46 lakh caste entries due to unstandardized reporting.
• Financial and Human Resources: The Census requires significant funding and human resources, which may not always be available.
  • The 2021 Census was delayed in part due to funding constraints and the COVID-19 pandemic.

Inclusion of Caste Data in Census-2027: A Double-Edged Sword

Positive Aspects

• Targeted Welfare Programs: Caste data helps in identifying socio-economic disparities within Other Backward Classes (OBCs), enabling targeted affirmative action and welfare schemes.
  • The Mandal Commission (1980) used caste data from the 1931 Census to recommend 27% reservations for OBCs in government jobs.
• Accurate Representation for OBCs: The inclusion of caste data will ensure accurate representation for OBCs, helping the government allocate resources more fairly.
  • The 2027 Census will allow a more accurate identification of the number of OBCs, aiding in better reservation policies and welfare support.
• Policy Planning and Social Justice: Caste data will provide empirical evidence for policy decisions, making it easier to address caste-based discrimination and marginalization.
  • The 2011 Census data showed that SCs and STs continue to face significant socio-economic challenges, prompting policies like financial aid and educational quotas.
• Tracking Inequalities: The Census will offer a clear picture of caste-based economic inequalities, enabling focused policy interventions.
  • Data on caste will allow the government to track gaps in areas like education, employment, and healthcare.

Negative Aspects

• Political Manipulation: The collection of caste data may lead to politicization of the Census, as different political parties could use the data to mobilize support from caste-based groups.
  • The inclusion of caste data may lead to vote-bank politics, with parties targeting specific groups for electoral gains.
• Social Fragmentation: Caste data may deepen social divides, creating a sense of competition among castes for reservations and resources, potentially leading to social unrest.
  • The debate over OBC reservations has led to tensions in states like Tamil Nadu, where there is resistance against a population-based delimitation.
• Overemphasis on Caste: Relying too heavily on caste data for policy-making could overshadow other important factors like economic status, education, and regional development.
  • The Mandal Commission report faced criticism for focusing primarily on caste without considering the economic backwardness within castes.
• Challenges in Data Accuracy: Classification issues with caste data could lead to inaccuracies, making it difficult to allocate resources effectively.
  • The 2011 SECC faced problems with caste categorization, leading to over 46 lakh caste entries, highlighting the complexity of caste data collection.
• Resistance from Communities: Certain communities may resist caste enumeration due to fear of discrimination or exclusion from benefits.
  • In previous Censuses, some communities, especially tribal groups, refused to participate due to distrust in the system.

Impact of Census on Federalism in India

• Redistribution of Political Power: Census data will affect delimitation of constituencies. This may alter political power between states.
  • The 2027 Census will guide seat allocation in Parliament and State Assemblies. States with higher population growth may gain more seats.
• Unequal Representation: States with lower population growth, like in the south, may lose political influence.
  • Tamil Nadu may lose seats due to its lower population growth compared to Uttar Pradesh.
• Resource Allocation Disputes: Delimitation could lead to disputes over resource distribution, especially for welfare programs and infrastructure.
  • Bihar may argue for more resources due to its larger population, while smaller states may feel disadvantaged.
• Regional Tensions: States with controlled population growth may feel underrepresented in national decision-making.
  • Southern states may resist changes fearing their influence in federal governance will decrease.
• National Population Register (NPR): While not confirmed for 2027, NPR updation was planned for the 2021 Census, raising concerns about its linkage to the National Register of Citizens (NRC).
  • States like West Bengal, Kerala, and Tamil Nadu opposed NPR in 2021, citing fears of marginalization of minorities and tribal groups.
• Strengthening Cooperative Federalism: Accurate data from the Census can improve welfare schemes targeted to state needs, enhancing cooperative federalism.
  • Caste and population data can help allocate resources more fairly to states that need them the most.

Way Forward for Census-2027

• Improved Technology Integration: Expand the use of digital tools for data collection and processing to enhance accuracy and efficiency.
  • Utilize AI for real-time data validation (e.g., detecting caste misreporting) and cloud-based systems for secure storage via the CMMS portal.
• Standardization of Caste Data: Establish clear guidelines for caste classification to avoid discrepancies and misinterpretation.
  • The 2011 SECC faced issues due to over 46 lakh caste entries, highlighting the need for standardized caste lists.
• Awareness Campaigns: Conduct nationwide awareness campaigns to ensure public trust and participation in the Census.
  • Partner with tribal councils, NGOs, and local leaders to address distrust (e.g., Sentinelese, Nagaland tribes’ 2011 resistance), using tribal language materials and culturally sensitive enumerators.
• Inclusive Data Collection: Ensure that marginalized groups, like tribals and migrant communities, are included in the data collection process.
  • The 2027 Census should focus on reaching remote areas to gather accurate information.
• Clear Legal and Policy Framework: Strengthen the legal safeguards to ensure confidentiality of data and prevent political misuse.
  • Example: Data protection laws should ensure that caste and personal information remain confidential.
• Continuous Monitoring and Evaluation: Set up mechanisms for continuous monitoring of the Census process to address any challenges promptly.
  • Example: Ongoing evaluations during the Census-2027 can help identify and solve problems in real-time.
• Addressing Regional Concerns: Proactively address regional concerns regarding representation and resource allocation to prevent political tensions.
  • Engage states through Inter-State Council meetings to balance representation, considering increasing Lok Sabha seats to mitigate southern states’ losses.

Conclusion

The Population Census-2027, with its digital approach and caste enumeration, is poised to reshape India’s policy landscape, social justice framework, and federal dynamics. However, its success hinges on addressing logistical, political, and social challenges to ensure accurate data and equitable outcomes.

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