Caste Census: Overview and Historical Context

 What is a Caste Census?

• Definition: A Caste Census involves the collection and tabulation of caste-based data within the broader census exercise. It aims to provide detailed statistics on the population segmented by caste, which is crucial for addressing issues of discrimination and for informed policymaking.
• Current Practice: The Indian Census, conducted every ten years by the Office of the Registrar General and Census Commissioner (under the Ministry of Home Affairs), collects data on demographics, culture, economic structure, and more. Traditionally, this has included a variety of socio-economic data, but caste-wise enumeration beyond Scheduled Castes (SCs) and Scheduled Tribes (STs) has not been included in recent censuses.

Historical Background

• Colonial Era: The British colonial administration first introduced caste census in 1881, which continued until 1931. The 1931 Census recorded 4,147 castes in India, in addition to the depressed classes or untouchables.
• Post-Independence: After India gained independence, the government discontinued full caste enumeration. The concern was that such detailed data might entrench caste divisions and perpetuate the caste system. Since the 1951 Census, only the caste data for SCs and STs has been officially recorded and published, alongside information on religions, languages, and socio-economic status.
• 2011 Census: Caste data was collected in the 2011 Census but was not released publicly. The Socio-Economic and Caste Census (SECC) 2011 faced criticism for issues related to data accuracy and underreporting.

 Importance of Caste Data

• Policy and Quota Implementation: Caste data is used to inform policy decisions and to manage reservation quotas. For instance, the Mandal Commission Report of 1979, which led to the reservation of 27% of government jobs and educational seats for Other Backward Classes (OBCs), was based on data from the 1931 Census. This data helped estimate the population of OBCs and justify reservations under Article 15(4) of the Indian Constitution.
• Historical Basis: The Mandal Commission used the 1931 Census data to determine that OBCs constituted about 52% of the population, which supported its recommendations for reservations.

 Current Status and Debate

• Government Policy: As of 2021, the Government of India has stated that it does not plan to enumerate caste-wise population data beyond SCs and STs in the Census. This policy reflects ongoing concerns about reinforcing caste divisions.
• Future Considerations: The debate continues regarding the need for updated caste data to better address social inequalities and to ensure effective implementation of affirmative action policies.

Constitutional and Legal Backing for Census in India

 Constitutional Provisions

• Union List (Seventh Schedule, Entry 69): The population census is enumerated as a subject under the Union List of the Seventh Schedule of the Indian Constitution. This means that the responsibility for conducting the Census is exclusively a Union (central) government function.
• Article 340: This Article mandates the appointment of a commission to investigate the conditions of socially and educationally backward classes. Although it does not specifically mandate a caste census, it supports the need for detailed investigation into the conditions of these classes, which can be facilitated by such data.

Legislative Framework

• Census Act, 1948: The Census Act provides the legal framework for conducting the Census in India. It outlines the procedures for the collection, compilation, and publication of census data, ensuring that the process is carried out systematically and legally.
• Collection of Statistics Act, 2008: This Act permits states and local bodies to collect necessary data, even though census data collection is a Union responsibility. This provision has enabled states to conduct their own caste censuses or related surveys, as seen in Karnataka (2015) and Bihar (2023). The Act provides a framework for states to gather and use statistical data, supplementing the Union Census data when needed.

Examples of State-Level Caste Censuses

• Karnataka (2015): Karnataka conducted its own caste census to gather detailed data on the socio-economic status of various castes within the state. This was an attempt to understand and address local issues more effectively.
• Bihar (2023): Similarly, Bihar conducted a caste census to update and improve its data on different castes, which was used to inform state-level policies and programs.

 The Census in India is a constitutional obligation governed by the Union List of the Seventh Schedule and the Census Act of 1948. Article 340 emphasizes the importance of investigating conditions of backward classes, which indirectly supports the need for comprehensive data, including caste-wise data. The Collection of Statistics Act, 2008, enables states to gather additional data, such as through state-level caste censuses, enhancing the overall understanding of demographic and socio-economic conditions.

Why Is a Caste Census Required?

A caste census is crucial for several reasons, spanning social, administrative, moral, and legal dimensions. Here’s a detailed overview:

 Social Reasons

• Comprehensive Understanding of Diversity: Caste remains a significant social structure in India. A caste census provides a detailed picture of the diverse caste dynamics in society, helping to address social inequalities and understand the true nature of social stratification.
• Low Inter-Caste Marriages: As of 2011-12, only about 5% of marriages in India were inter-caste, indicating entrenched caste boundaries.
• Caste Surnames and Marks: Prevalent caste-based identifiers and residential segregation underscore the persistent role of caste in societal organization.
• Avoiding Wrongful Inclusions/Exclusions: Accurate caste data helps prevent the inclusion of undeserving castes in reserved categories and the exclusion of deserving ones. This is crucial for ensuring that affirmative action reaches the intended beneficiaries.
• Guard Against Dominant Castes: Prevents dominant castes within reserved categories from crowding out other deserving castes.
• Sub-Categorization: Helps in creating sub-categories within reserved groups to ensure fair distribution of benefits.
• Targeted Welfare Schemes: Enables the design of welfare schemes and affirmative action policies based on precise demographic data, ensuring that resources are allocated equitably.
• Income/Wealth Criteria: Determines the income or wealth criteria for identifying the creamy layer within backward classes, ensuring that benefits are targeted at those truly in need.

Administrative Reasons

• Designing Policies: Accurate caste data is essential for designing effective welfare schemes and policies, including reservations in education and employment.
• Equitable Distribution: Helps in distributing resources and opportunities more fairly based on social and economic indicators like education level, employment status, and income.
• Election and Representation: Influences choices for elections and cabinet positions, which can be affected by caste considerations. Accurate data helps in ensuring fair representation and decision-making.

Moral Reasons

• Correcting Inequities: Lack of caste data has allowed elites among upper castes and dominant OBCs to disproportionately control national assets, income, and power.
• Fulfilling Constitutional Mandates: Ensures compliance with constitutional mandates related to social justice, equality, and welfare for all citizens.
• Income Disparities: Addresses issues like the disproportionate distribution of national income, where the richest 1% control 22.6% of national income while the poorest 50% receive only 15%.

Legal Reasons

• Constitutional Policies: Enables effective implementation of constitutionally mandated policies of social justice, such as reservations in education and public employment.
• Supreme Court Rulings: Supports legal claims of backwardness based on caste data, as the Supreme Court has recognized caste as a relevant criterion for defining social and educational backwardness.
• Updating Historical Data: Corrects and updates historical data on caste demographics, which may have evolved over time, ensuring that policies reflect current realities.

Opposition to Caste Census

 Reasons for Opposition

• Fuels Demand for Increasing Reservation:
• Potential Revelation: A nationwide caste census could reveal that the population share of Other Backward Classes (OBCs) is greater than the 52% estimate by the Mandal Commission. This could lead to increased demands for raising the 27% reservation quota currently allocated to OBCs, potentially escalating political and social tensions.
• Non-Feasibility:
• Complex Classification: Including a caste-related question in the census would result in a vast number of caste entries, including various clan, gotra, and sub-caste names. The complexity of tabulating and classifying this data could be challenging, especially given that census enumerators are part-time workers without specialized training in caste classifications.
• Delay Issues: The difficulty in properly categorizing and tabulating this data could lead to significant delays in the release of census results.
• Absence of Constitutional Mandate:
• Lack of Requirement: Unlike the data collection for Scheduled Castes (SCs) and Scheduled Tribes (STs), there is no constitutional mandate for including caste data for Other Backward Classes (OBCs) or Backward Castes Communities (BCCs) in the census. This makes it a contentious issue without a clear legal obligation.
• Reinforcement of Caste Identities and Social Division:
• Political Manipulation: There are concerns that caste data could be exploited by politicians for electoral gains, leading to increased caste-based and vote-bank politics, and reinforcing social divisions rather than fostering integration and unity.
• Social Impact: The focus on caste might perpetuate existing divisions and lead to further stratification of society.
• Privacy and Stigmatization:
• Potential Harm: Publicly identifying individuals by caste could exacerbate stigma and discrimination, particularly against lower or marginalized castes. This could conflict with the principle of treating all citizens equally, regardless of their social background.

 Previous Attempts at Conducting Caste Census

• 2011 Socio-Economic and Caste Census (SECC):
• Parliamentary Resolution: In 2010, a unanimous resolution was passed by Parliament to include caste enumeration in the 2011 Census.
• Conduct Issues: The SECC-2011 faced several issues:
• Legal Framework: It was not conducted under the Census Act, 1948, as no amendment was made to include caste enumeration.
• Implementation: The census was conducted by the Union Ministries of Rural Development and Urban Development, which lacked experience in sociological and anthropological surveys.
• Questionnaire Design: The questionnaire was poorly designed with open-ended questions about caste, leading to confusion among enumerators.
• Data Classification: Enumerators struggled to distinguish between genuine castes, alternative caste names, larger caste groups, sub-castes, surnames, and clan names.

 Way Forward

• Amend Census Act 1948:
• Mandatory Enumeration: Amend the Census Act to make caste enumeration a mandatory part of the census. This would ensure that caste data is collected systematically and legally.
• Integration with Socio-Economic Surveys:
• Comprehensive Database: Integrate caste data collection with broader socio-economic surveys to create a comprehensive database addressing multiple dimensions of social and economic inequality.
• Utilize Existing Data Sources:
• Alternative Data: Consider that existing surveys, such as the National Sample Survey (NSS) and previous SECC data, might provide sufficient information for policymaking without requiring a full caste census.
• Improve Data Collection Methods:
• Census Commissioner Responsibility: Collect caste data as part of the regular Census by the Census Commissioner, incorporating specific questions about sub-castes, caste names, and surnames.
• Expert Consultation: Involve sociological and anthropological experts to develop a draft list of castes specific to each state and consult the public before finalizing the list for enumerators.