The Census exercise is not just about the data that is released after the analysis. There is a huge planning exercise that is involved. Here is an explainer about what happens before, during & after the Census exercise.
India’s decennial population census is one of the largest
administrative activity in the world. Collecting socio-economic information
with various parameters for a population of 130+ crores requires extensive
planning and execution. Factly has in an
earlier story highlighted the evolution of the census in India over the years and the
premise for upcoming 2021 census. In this explainer, we focus on the processes
involved in the planning and execution of the census exercise.
Preparatory work forms the most critical and extensive
phase of census activity
The population census activity involves multiple
activities which are carried on in sequential phases as listed in the below
The Preparatory Phase
The first phase of the census activity is
the Preparatory phase where all the planning and groundwork for the ensuing
enumeration activity takes place. There are multiple activities involved in
this phase , whose goal is to ensure that everything is in place by the time
the census enumeration activity begins on the ground.
The census activity is backed by
legislation as per Census of India Act, 1948. The activities are kick-started by the
notification issued by the Central government in accordance section 3 in the Census Act. Government of India
has released the notification for Census for 2021, which has set in motion the
census activity. The law makes it obligatory on the part of citizens to
answer the questions truthfully.
b. Universal Coverage of Area & Identification of House holds
One of the major objectives of any
population census exercise is to ensure that every area is covered and also
does not overlap. Hence, one the key preparatory activity involves locating
every local area and to ensure that resources are in place to cover the whole
area for enumeration.
While the focus of a population census is
to enumerate every individual, a household is considered as the operational
unit for enumeration. A household is
referred to as a group of persons living together. An entire house can
be occupied by a single household or can be shared by multiple households. A delimitation of the territory would be
undertaken to account for every single household.
House -numbering is a critical activity in
the build-up to the census activity. A distinct House-listing activity is taken
up prior to the census. This activity would take place during the latter half
c. Determining territorial units
The territorial units for which the primary
census data needs to be presented is finalised. These territorial units include
– villages, towns, blocks, tehsils, talukas, districts etc. Determining these
territorial blocks would help in developing the census organization and to
demarcate the jurisdiction of the hierarchy involved in the census activity.
Any delimitation or changes to the
territories in respect to the creation of new villages, towns or districts etc.
are identified in the activity. A circular for this activity for ‘Census 2021’ has already been
Demarcation of rural and Urban areas, formation of Urban Agglomerations, demarcating villages etc. are part of
the preparatory activity. Location codes
are identified for each of the villages, talukas, districts and urban areas
which helps in easy enumeration as well as analysis.
d. Preparing Maps
After the finalization of the territorial
unit, maps are prepared to help in demarcating the boundaries including that of
the country, states, districts, talukas, cities and villages. These maps would
help the census officers to identify their jurisdiction limits. The Map
division of ORGI (Office of Registrar General of India) takes up this activity.
This activity for 2021 census has begun
with a circular issued on 10 May , 2019. The territorial boundaries need to
be frozen prior to the initiation of enumeration.
e. Census organization
Population census is handled by Office of
Registrar General & Census Commissioner India, which is under the aegis of
the Home Ministry. Census Commissioner of India heads the operation. Vivek
Joshi has been recently appointed as the Census Commissioner. The Census of
India Act , 1948 has provisions for the appointment of various officers at different levels
in view of the territorial jurisdiction as well as in line with the
responsibilities. In-charge officers, supervisors and enumerators are also
appointed specifically for the purpose of census activity.
There are 33 directorates of Census Operation in
India, which work under the aegis of Office of the Registrar General & Census Commissioner.
Around 33 lakh teachers are expected to take up the responsibility
of enumerators for the activity.
f. Census Schedules
After due consultation with various
departments and stakeholders, a questionnaire is developed which is used by the
enumerators to seek information from the households. Printing and distribution
of the census schedules used to be a major activity in earlier census, which is
planned to be excluded with the implementation of mobile application for this
census. While the questionnaire to be used for 2021 census is yet to be
finalised, a sample questionnaire
was used as part of the pre-test census.
Training the enumerators and the officers
at different levels is important for the successful conduct of the census activity.
There could be personnel who have already participated in the earlier census activity as well as new
persons , irrespective of which trainings are conducted to make everyone aware
of the new questionnaire and new procedures to be followed. With the implementation
of digitalization, training presumes greater importance for the upcoming
Active participation of the entire
population being enumerated play an important role in ensuring that the data
collected is accurate and complete. Publicity campaigns to increase the
awareness are undertaken.
Digitalization being introduced for enumeration
All the preparatory work which is being done is to aid
the enumeration activity. As announced by Home Minister earlier, digitization
would be introduced in 2021 census. The procedures involved in enumeration in
view of the new technology being used, are yet to be finalised by Office of
Registrar General of India.
‘Canvasser’ method has been in practice for enumeration
wherein the enumerator visits each household to record the answer in the
schedule/App. There is a reference date which is set based on which the
enumerator records the information. The reference date for 2021 census is 01 March, 2021.
Each enumerator has the jurisdiction determined. All
the households allotted for the specific enumerator need to be completed and
the information needs to submitted to the respective supervisor who monitors
the activity under the respective jurisdiction. The hierarchy continues with
the central directorate supervising the whole enumeration activity. The digitization of enumeration is expected to
ease the activity, especially relating to the physical maintenance of the
Data Processing and analysis of data is done prior to
the release of the census data.
All the efforts put in the preparation for census and
the enumeration would come to nought if the data thus collected is not
processed and analysed. There are various tables which are prepared as part of
the census. The enumeration data which is collected is tabulated into these
Until 2011 Census, physical schedules were used to
collect the information, which was then entered into a digital format for the
data to be analysed and sorted into different tables.
The digital collection of the data is expected to
reduce the time taken to process, analyse and publish the census data. For the
2011 census, it took nearly 7 years for few of the datasets to be released to
The Census report is prepared and published highlighting key information along with their
observation about the various trends in the population.
Data about various types of information – Economic,
Socio-cultural, fertility, migration etc. are published as different tables for
easier understanding and analysis.
Mammoth activity that needs planned and coordinated
As highlighted earlier, undertaking the census for
130+ crore population in a country as diverse as India with its varied physical
and cultural landscape is a humongous activity. It has to be appreciated that
no decennial census has been missed since the inception , which is a reflection
of the effective planning and execution of the government machinery, especially
with Office of Registrar General of India, who plan and co-ordinate the whole
Even though the enumeration would be digitized and
expected to reduce the effort, the preparation activity involved would still be
very important and becomes more complex as we grow as a nation.
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