Abstract

Literature on categorization often invokes historical legacies to explain why states adhere to statistical categories that inadequately capture their population, and especially minority groups. The failure of the 2011 German census to produce reliable numbers on the country’s largest religious minority, Muslims, could be viewed as a case in point. However, this ignores the fact that in the late 1980s officials successfully counted Muslims. This article traces how officials changed their approach to Muslim enumeration over the course of designing the 2011 census. Drawing on internal ministerial documents and interviews, I show that the reversal of statistical visibility was the result of a recoupling process. Through this process, old state-religion laws that officials had previously ignored now became rigorously applied to the census. An extra-statistical debate on religious education triggered this recoupling by reviving narrow, legal categories of religion and alerting church representatives and legal experts to imprecise census terms. Using the German case and other empirical examples, I describe a more uneven influence of historical legacies than commonly suggested by research on categorization. Rather than viewing legacies as having a stable, or even growing, influence on categorization, I argue that they only take effect when they become politicized and enforced by powerful actors. I call for a more nuanced analysis of the role historical factors play in determining trajectories of census categorization, especially those that are invoked to explain the reluctance of European states to collect ethno-cultural data.