Explained: How India conducts its Census—and what is new in 2027

Indian Express

16-06-2025

The government has formally announced that the 16th Census of India will take place in two phases, with the reference dates set as March 1, 2027 for most of the country and October 1, 2026 for snow-bound and remote regions such as Ladakh, Jammu & Kashmir, Himachal Pradesh, and Uttarakhand. This census marks a significant milestone: it will include the first nationwide caste enumeration since 1931.
Notification under Section 3 of the Census Act, 1948, came out in the Gazette on June 16, 2025, with house-listing and housing enumeration running for several months before the population count begins in early 2027. The timing has already ignited political debate, especially over its implications for future delimitation of electoral constituencies and parliamentary seat distribution.
Why the Census Matters
The Census serves multiple critical functions. It is the basis on which electoral constituencies are drawn and seats reserved for Scheduled Castes and Scheduled Tribes. Central grants to states and districts are often population-based, as are subsidies and ration allocations. Ministries ranging from Education to Rural Development use Census data to locate schools, primary health centers, and infrastructure projects. It helps the judiciary, planners, and scholars alike understand trends in migration, urbanisation, employment, and fertility. The Census is also crucial to the implementation of constitutional provisions. Article 82 of the Constitution mandates delimitation of constituencies based on the most recent Census. Article 330 and 332 reserve seats for SCs and STs in legislatures based on their population proportions.
But beyond administration, the Census has also become a national mirror, reflecting changing patterns of identity, occupation, living conditions, and family structure. From capturing the impact of economic reforms to identifying vulnerable or underserved communities, it enables governments to deliver targeted welfare and better plan for the future.
How the Census Is Conducted
The process is carried out in two broad phases: the House-listing and Housing Census, followed by the Population Enumeration. These phases are separated by several months and preceded by freezing of administrative boundaries (districts) by the states, a preparatory mapping exercise and training of enumerators. A total of 30 lakh enumerators, primarily school teachers, are estimated to be deployed for the conduct of Census. There are, in addition, almost another 1,20,000 functionaries at the district and sub-district levels who manage, oversee or support the Census work and about 46,000 trainers required to conduct the training.
House-listing Phase
In this phase, every structure in the country is visited to record the characteristics of buildings and households. Enumerators collect data on the head of the household, the number of members, on the use of the building (residential, commercial, etc.), the materials used in its construction, the number of rooms, ownership status, sources of water and electricity, the type of toilet, fuel used for cooking, and the availability of assets like TV, phone, vehicle, etc. This information helps build a profile of housing stock, access to amenities, and living conditions across India.
Generally, this phase is conducted between March 1 and September 30 of the year preceding the population enumeration year. Various states, depending upon their convenience, choose the months in which to conduct the house listing exercise. In this census, it is expected to be conducted in 2026.
Population Enumeration
This follows the housing census and focuses on individual data: name, age, sex, date of birth, relationship to the head of household, marital status, education, occupation, religion, caste/tribe, disability status, and migration history. Enumerators fill out a schedule for every person, even the homeless, and the process captures demographic and socio-economic details that form the heart of the Census database.
The data is processed centrally and released in stages—first the provisional population totals, then more detailed tables disaggregated by various indicators. Robust quality control mechanisms, including re-checks and audits, are built into the process.
Sources said, in this Census, the process of enumeration is expected to be completed within 20-21 days in the month of February, 2027. It is expected the provisional data will be out within 10 days of the completion of the enumeration exercise, and final data in another six months.
How the 2027 Census is Proposed to Be Conducted
The 2027 Census will be the first digital census in India's history, with the use of mobile apps, online self-enumeration, and near-real-time monitoring. It is also the first since 1931 that will collect caste data for all communities.
In a significant shift from 2011, the 2027 Census plans to allow self-enumeration for the first time, where households can log into a government portal or use an app to fill out their own details. Once self-enumeration is done, the system will generate a unique ID. Individuals who have self-enumerated will have to just present this ID when Census enumerator comes to their house.
Enumerators would also use handheld devices or smartphones preloaded with the Census app. While a dual system, including paper enumeration is envisaged, sources said it is expected all enumerators will use the digital medium since smartphones are now ubiquitous and remuneration for digital census is higher. This digitisation is expected to reduce errors, speed up processing, and enable tighter quality control.
The RGI has already erected the digital infrastructure key to this shift. Enumerators have been trained to use mobile apps, geotagging tools, and cloud-based data upload systems. Real-time dashboards have been planned to track progress, flag inconsistencies, and push updates. The Census Management and Monitoring System (CMMS) would allow supervision and resolution of field issues without delay.
How Will This Census be Different From the 2011 Census?
Both in terms of methodology and content, Census 2027 will be different from 2011.
Process and Technology
Apart from the process being digital and allowing self-enumeration, Census 2027 will include:
Also, responses for some of the questions being canvassed were descriptive in nature. Data processing of these descriptive responses required human intervention and at times took years for a few questions, delaying data dissemination. It also involved risk of data biasness and errors because of diverse judgement of enumerators.
To fix this, the 2027 Census will use a digital system where enumerators would select options from pre-loaded lists—called code directories (with separate code for possible responses)—on a mobile app. These lists included standardized codes for things like Scheduled Castes and Tribes, different languages, jobs, and places of birth.
This approach required enumerators to select entries from standardized drop-down menus or picklists. This makes sure that entries were uniform across the country and could be quickly processed by computers. It is a major step towards making the census more modern and reducing errors caused by manual entry.
New Questions in the 2027 Census Questionnaire
The RGI had prepared detailed questionnaire for both phases of the Census in 2018 itself. A test of the enumeration was conducted in 2019. Sources said the questionnaire for 2027 will almost remain the same with addition of caste enumeration.
The house-listing operation will collect data under 34 columns, while population enumeration will have 28 columns, capturing extensive demographic, social, and economic data.
House-listing Phase
New questions included:
Population Enumeration Phase
Among the most significant changes:
Challenges in the Field and How They're Addressed
Digital literacy among enumerators is a major concern. To resolve this, extensive training modules, simulations, and region-specific language interfaces have been designed. The app has been designed with user-friendly prompts, drop-down menus, and offline sync.
Quality control involves supervisors reviewing flagged forms, and periodic checks by Census officers. Errors like unrealistic age ranges or duplicate entries could be caught and corrected before submission.