Context:

When the Centre did not extend the deadline of June 30, 2024 to freeze administrative boundaries for the purpose of the Census, hopes were raised that the decennial Census operations, initially scheduled to begin in 2020 as a prelude to Census 2021, would at least commence in October 2024. However, these expectations were belied when the Budget 2024-25 recently allocated ₹1,309.46 crore for the Census, a significant reduction from 2021-22 when ₹3,768 crore was allocated for the decadal exercise, thereby indicating that it may not be carried out even after the considerable delay. The next Census, therefore, continues to be on hold with the government yet to announce the new schedule.

Census Conduct in India

Historical Context

India’s first comprehensive Census, conducted synchronously across the country, was carried out in 1881 under colonial rule. Since then, Census operations have occurred every decade, with the notable exception of the 2021 Census, which faced substantial delays.

Census Phases

The decennial Census is managed by millions of enumerators who are appointed and trained by the government. The Census process is divided into two main phases:

●     Housing Census: This phase collects data on housing conditions, household amenities, and the assets owned by households.

●     Population Census: This phase gathers detailed information on various aspects including population, education, religion, economic activity, Scheduled Castes and Tribes, language, literacy, migration, and fertility.

Freezing Administrative Boundaries

Administrative boundaries such as districts, sub-districts, tehsils, and police stations are typically frozen between two Census periods. This process is necessary because State administrations may create new districts or reorganize existing ones, which affects the accuracy of data collection.

Delays in the 2021 Census

Schedule and Postponements

The Census is conducted under the Census Act of 1948, which predates the Indian Constitution. This Act does not specify a fixed date for the Census or a timeline for releasing its data. The 2021 Census was initially scheduled to begin in 2020, but due to the COVID-19 pandemic, the Census was postponed indefinitely.

The freeze on administrative boundaries was initially set from January 1, 2020, to March 31, 2021, but was extended multiple times: first to December 31, 2020, then to December 31, 2021, followed by June 30, 2022, and finally to December 31, 2022. On December 14, 2022, the Minister of State for Home, Nityanand Rai, confirmed that the Census 2021 and related activities had been postponed until further notice. While many countries have completed their Census operations post-pandemic, India’s Census remains delayed.

Implications of the Delay

●     Administrative Functions: Census data is essential for administrative purposes and welfare schemes. Former Union Home Secretary G.K. Pillai highlighted that delays in the Census impact the allocation of funds by the Finance Commission, which could disadvantage States.

●     Welfare Schemes: Outdated Census data affects the distribution of benefits. For example, under the National Food Security Act of 2013, 75% of the rural population and 50% of the urban population are entitled to subsidized food grains. According to the 2011 Census, India’s population was approximately 121 crore, and PDS beneficiaries were about 80 crore. However, economists Jean Dreze and Reetika Khera have pointed out that with a projected population of 137 crore in 2020, PDS coverage should have increased to about 92 crore people.

●     Sample Surveys: Census data serve as the framework for other national surveys, such as the National Family Health Survey (NFHS-5). The outdated 2011 data affects the accuracy of these surveys.

●     Delimitation and Reservations: Census data are used for delimitation of constituencies and determining reservations for Scheduled Castes and Tribes. Changes in administrative units and demographics since 2011 highlight the need for updated data. The Census is also critical for understanding migration patterns, which became evident during the pandemic’s migration crisis.

Importance of Timely Census Conduct

●     An Absolute Necessity

Conducting the Census on a priority basis is crucial. The lack of a Census since 2011 has left a significant portion of the population without access to various schemes, benefits, and services. Additionally, the implementation of the Women’s Reservation Act, which reserves 33% of seats in Parliament and Assemblies for women, hinges on the completion of the Census.

●     Financial and Logistical Considerations

To facilitate the Census, it is essential that sufficient provisions are made in the 2025-26 Budget. The 2021 Census, postponed to 2026, will require substantial preparation, including house listing, housing census, and updating the National Population Register (NPR). Preliminary arrangements, such as preparing updated maps, finalizing questionnaires, and training staff, have been ongoing in anticipation of the Census. The allocated ₹1,309.46 crore could be used for these preliminary activities, including finalizing enumeration areas and training for digital data collection.

●     Readiness and Future Schedule

Officials from the Census Directorate in Tamil Nadu, for example, are prepared to undertake the Census once a new date is fixed. They need only refresher training. The Constitution (Eighty-Fourth Amendment) Act of 2001 prohibits delimitation of constituencies until after the first Census conducted post-2026. If the Census is delayed until 2027, the Centre must announce a reference date soon and set a new deadline for freezing administrative boundaries.

Questions on NPR and Caste Census

Clarifications on NPR and NRC

The NPR, initially prepared during Census 2011 and updated in 2015, will be revised in the upcoming Census. The draft NPR includes new questions, such as "mother tongue" and "place of birth of father and mother," which have been contested by some States and citizen groups. These questions are perceived as steps toward compiling the National Register of Citizens (NRC). The Centre has clarified that NPR data will not be used for NRC preparation. A decision is needed on whether to retain these contentious questions in the NPR format.

Debate on Caste Information

There is growing demand for a caste-based census to better understand the economic conditions of marginalized communities. The Union Government, in a Supreme Court affidavit dated September 23, 2021, deemed a comprehensive caste census administratively challenging and unfeasible, aside from traditional data collection for Scheduled Castes and Scheduled Tribes. The Centre now faces the decision of whether to include caste information in the next Census.

Conclusion

The absence of a Census since 2011 has had significant repercussions, leaving many welfare schemes out of reach for a large segment of the population. The urgency of conducting the Census cannot be overstated, given its impact on policy implementation and resource allocation. The delay in the Census underscores the need for timely and reliable data, especially in determining migration patterns and other demographic changes. While many countries have managed to complete their Census operations, India’s Census remains on hold, affecting various aspects of governance and policy-making.

Source: The Hindu