The chaos of Karnataka’s caste survey

The story so far:

On April 11, a nearly 10-year-old Socio-Economic and Educational Survey (popularly called the Caste Census) prepared by the Karnataka State Commission for Backward Classes was dusted off and accepted by the Chief Minister Siddaramaiah-led Cabinet. Two days prior, the listing of the Caste Census in the Cabinet’s agenda for discussion had surprised many. For the Chief Minister had on multiple occasions announced a discussion only to rescind it as political implications were believed to be far-reaching and difficult to handle.

The data was collected by the commission through government-appointed enumerators in April-May 2015 from about 1.35 crore households covering a population of 5.98 crores — nearly 95% of the then projected population of 6.35 crores (Census 2011 population figure for Karnataka is 6.11 crores). While the survey was conducted by H. Kantharaj Commission, the survey report, data and recommendations were submitted by K. Jayaprakash Hegde’s Commission in 2024.

Though the survey findings and recommendations were ready by late 2017, Mr. Kantharaj could not submit the report since the member-secretary had not signed it. Subsequently, the Janata Dal (Secular)-Congress coalition government and the BJP government that succeeded it also did not receive the report.

As population figures became clear after the Cabinet received the data, causing tremors in the political landscape, the fault line between the politically dominant Vokkaliga and Veerashaiva-Lingayat communities and other backward class communities became clear. The Cabinet met again on April 17 to discuss the recommendation, but did not decide on the matter. While further debate has been deferred again for May 2, no clear decision on the commission’s recommendation is expected. Meanwhile, the issue has reached the doors of the Karnataka High Court.

What are the major findings?

The vexed survey is being keenly watched for population figures of castes/communities for political reasons, though its goal had been to provide insights into ‘backwardness’ that the government could use to develop programmes aimed at uplifting such communities.

The survey has pegged the total population of backward classes in the State to be about 70%.

Muslims are the single largest bloc with about 75.25 lakhs or 12.58% of the total population, followed by Veerashaiva-Lingayats, a dominant and politically strong land-owning community in North and Central Karnataka, with 66.35 lakhs or about 11% of the population.

The population of Vokkaligas, a dominant and politically strong land-owning community in the Old Mysore region, has been put at 61.58 lakhs or about 10.29% of the State’s population.

The Scheduled Castes constitute 18.2% or about 1.09 crore of the population, and the Scheduled Tribes number at 7.1% or 43.81 lakhs. Together, both constitute 24.1% of the population. The general category comprising Brahmins, Arya Vaishya, Mudaliars, Nagartharu and a section of Jains are about 29.74 lakhs or about 4.9% of the population.

What has the Hegde Commission recommended?

The commission has recommended an increase in the total reservation matrix for backward classes from the current 32% to 51%. Based on the weightage given to communities on socio-economic and educational parameters, it has recommended re-classification of castes; Instead of the current five categories, it has recommended six. It has proposed the removal of exemption from creamy layer policy for castes in Category 1, which are the ‘most backward’.

Kurubas, the politically stronger and perceived to be educationally forward among the backward class communities, have been moved from ‘more backward’ to ‘most backward’ category, along with a few other castes. Kurubas constitute 43.72 lakh or about 7.31% of the population. Chief Minister Siddaramaiah belongs to the Kuruba community.

The socio-economic and educational data of the communities are yet to be released. Only the methodology used in the survey, the questionnaire, population data and recommendations for reclassification have been provided to the Cabinet Ministers so far. The government is yet to officially release the report for public discussion.

How have the politically dominant communities reacted?

The dominant communities have rejected the findings of the report outright, stating that they were “unscientific”. Both Rajya Vokkaligara Sangha and All India Veerashaiva Mahasabha have sought another survey, questioning the authenticity of the population data.

Citing data from previous commissions, they claimed that Vokkaligas should be around 12% to 14% and Veerashaiva-Lingayats around 17% to 22% of the population. They said that many households from their communities have been left out of the survey, and that there was confusion in enumerating members of sub-castes. The data is too old to be accepted was another complaint.

Cabinet Ministers from these communities have already met separately and closed ranks to register their protest. Moves are afoot for joint meetings of representatives from both communities to plan protests together. Legal avenues are also being explored.

Other communities, including Brahmins, Christians and Yadavas/Gollas, have also stated that their population figures have been under-reported.

How has the commission justified its survey?

The commission said that the survey was scientific and unbiased, and carried out using government machinery. Nearly 5% of the population was left out due to reasons such as migration, being absent at home during enumeration and lack of cooperation.

While enumeration in rural areas was 99% to 100%, cities had a lower percentage, with only Bengaluru hitting 85%, the commission said, noting that even the national Census leaves out 3% of the population. Given the geography and population size, some are bound to be left out, it said.

Are there other issues in the report?

Experts have been critical of the removal of exemption from creamy layer policy to the Category 1 castes that are labelled as the ‘most backward’ among the backward classes. Among the castes listed in ‘most backward’ communities are about 50 nomadic and semi-nomadic communities that have neither found representation in government jobs nor the political realm, with literacy levels still lower than 50%.

Eyebrows were raised over moving the Kuruba community from ‘more backward’ to ‘most backward’ category. The community has for long been perceived to have taken reservation benefits in education and public employment. They have had good representation in politics too. The report does not provide insights into “adequate representation” that the courts have relied upon to justify the reclassification of categories.

The recommendation of enhanced reservation for OBCs to 51% breaches the Supreme Court’s 50% ceiling for reservation. With 24% reservation for SC/ST and 10% EWS (yet to be implemented in Karnataka), the reservation matrix will reach 85%, which could invite legal trouble.

Why has the survey come up for discussion now?

Considered a political minefield, the survey was in cold storage for nearly a decade. The Congress, in its manifesto ahead of 2023 Assembly elections, had promised to accept the findings. Ruling dispensations have been under pressure after Bihar announced its caste census findings. Neighbouring Telangana has gone ahead with enhanced OBC reservation.

Leader of Opposition in Lok Sabha, Rahul Gandhi’s nudge during the recently-concluded Congress session at Ahmedabad is believed to have spurred the Congress government here to accept the report. Party insiders also believe that the survey was brought up for discussion by Mr. Siddaramaiah to consolidate his position as leader of backward classes and ‘checkmate’ Deputy Chief Minister D.K. Shivakumar, who is said to be waiting on the wings to succeed him.

What happens next?

The State Cabinet is set to discuss the report again on May 2. The discussion so far has been only around the procedures in data collection. Public Works Minister Satish Jharkiholi has indicated that it could be a year before the report is accepted.

Law and Parliamentary Affairs Minister H.K. Patil has said that the Cabinet is no closer to a discussion on the survey report. Speculations are rife over a Cabinet sub-committee being set up to discuss the issue before it is brought to the Cabinet again at a later date.