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Caste Census in India: The Hidden Key to Real Social Empowerment
Context: The Cabinet Committee on Political Affairs (CCPA), chaired by the Prime Minister, has approved caste enumeration in the upcoming decadal Census, reversing the 2021 position where the government had declined such inclusion. This decision addresses a long-standing demand from political parties and social justice advocates and has far-reaching implications for governance, affirmative action, and electoral representation.
Historical Evolution of Caste Enumeration in India
- Pre-Independence:
- The last comprehensive caste census was conducted in 1931.
- Though data was collected in 1941, it was never published.
- Post-Independence:
Legal and Constitutional Framework
- Census is a Union subject under Entry 69 of the Seventh Schedule.
- Governed by the Census Act, 1948—but this does not mandate caste enumeration.
- Several petitions in the Supreme Court are pending, seeking directions for a caste census.
- The National Commission for Backward Classes (NCBC) formally recommended caste data collection in April 2021.
- Since 1951, the Census has only recorded caste data for Scheduled Castes (SCs) and Scheduled Tribes (STs).
- Other Backward Classes (OBCs) and other castes have been excluded.2011 Socio-Economic and Caste Census (SECC):
- Conducted as a separate exercise at a cost of ₹4,900 crore, under the Ministry of Rural Development.
- Data remains unpublished, reportedly due to inconsistencies (e.g., listing 46 lakh castes).
- Lacked legal backing under the Census Act, 1948, and was poorly designed and executed.
Changing Government Positions and Political Context
- Earlier Position (2021): The government cited logistical and practical difficulties, and ruled out caste enumeration beyond SC/ST.
- Shift in 2024:
- Rising political pressure from parties like RJD, SP, DMK, JDU, and even BJP’s Bihar unit.
- Post-2024 general election setback for BJP, especially in OBC-dominated states, catalysed change.
Administrative Status of the Pending Census
- The 2021 Census has been delayed due to the COVID-19 pandemic.
- It involves two parts:
- House Listing and Housing Census
- Population Enumeration
- The questionnaire is now being updated to include caste data.
- The tenure of Registrar General of India (RGI) extended till August 2026—a signal of preparations.
- Congress’s campaign, led by Rahul Gandhi, stressed OBC under-representation.
- Bihar and Tamil Nadu surveys showing effective caste-based targeting created momentum.
Significance of the Caste Census
- Policy and Welfare Targeting
- Enables data-driven policy by identifying gaps in welfare delivery.
- Allows better targeting of schemes under laws like the National Food Security Act. E.g., Bihar’s 2023 caste survey found 90% of people needed subsidised food, versus 84% under NFSA.
- Sub-Categorisation of OBCs
- Addresses intra-OBC inequities through “quota within quota” mechanisms.
- Dominant castes currently corner benefits—detailed data will correct this.
- Supports efforts of Justice G. Rohini Commission on sub-categorisation.
- Electoral Delimitation
- Delimitation is frozen until the post-2026 Census as per constitutional provisions.
- Caste data will impact Lok Sabha and Assembly seat redrawing, altering power balances.
- Women’s Reservation
- The 128th Constitutional Amendment (Women’s Reservation Act) links implementation to Census and delimitation.
- Caste data will inform sub-categorisation of women’s quotas, especially for OBC women.
- Legal and Judicial Clarity: OBC reservations in local bodies (as per Articles 243D(6) and 243T(6)) have faced judicial stays in states like Maharashtra, UP, Karnataka—due to lack of empirical caste data.
Arguments in Favour of a Caste Census
- Social Imperative
- Caste remains central to Indian society. Only 5% of Indian marriages were inter-caste (2011–12).
- Political representation and cabinet formation are influenced by caste affiliations.
- Constitutional Imperative
- Articles 15(4), 16(4), and 340 allow for affirmative action based on social and educational backwardness.
- Caste census aligns with these constitutional mandates.
- Administrative and Moral Imperative
- Helps identify ghost beneficiaries, improve beneficiary targeting, and ensure creamy layer exclusion.
- Prevents dominant OBCs from cornering disproportionate benefits.
Arguments Against the Caste Census
- Social Divisiveness: Risks entrenching caste identities, possibly polarising society.
- Administrative Complexity: Over 4,000 jatis; accurate classification is a logistical challenge.
- Political Fallout
- Could fuel quota demands from groups like Marathas, Jats, and Patidars.
- May breach the 50% cap on reservations upheld in Indra Sawhney v. Union of India (1992).
- Risk to Efficiency:Overexpansion of reservation could impact administrative efficiency (Article 335).
- Lessons from SECC 2011 Failure
- SECC reported 46 lakh castes due to poor questionnaire design.
- It lacked legal sanction, unlike the Census Act.
In contrast, Bihar’s 2023 caste survey, with 214 pre-listed castes, was successful.
