Formalisation should mean that construction workers can access enforceable protections and welfare—not simply that their names appear in a database. India needs to connect safe and decent work with accessible state-board registration, reliable benefit delivery and social protection that remains usable when workers change jobs or move across state borders.
Formalisation means protection, not just registration
India’s construction-worker system has two related but distinct parts. The national e-Shram portal is intended to identify unorganised workers and support coordination across schemes. State and Union Territory Building and Other Construction Workers (BOCW) Welfare Boards administer construction-worker welfare schemes. A record in one system should not be treated as proof of eligibility, registration or payment in the other.
| System | Its role | What a record does not establish on its own |
|---|---|---|
| e-Shram | A national database and coordination mechanism for unorganised workers, including construction and migrant workers; it issues a Universal Account Number (UAN). | BOCW beneficiary status, satisfaction of a state board’s requirements, or receipt of a benefit. |
| State and UT BOCW Welfare Boards | The welfare-delivery institutions for construction workers, with schemes administered at state and UT level. | Eligibility or payment under every listed scheme merely because a worker is recorded in another system. |
The Ministry describes construction-worker data from e-Shram as being shared with the relevant BOCW boards and the portal as being integrated with social-security schemes. That connection can help identify workers and coordinate services, but it does not remove the need to check the applicable board’s registration, renewal and application requirements. See the Ministry’s e-Shram portal overview and the government’s 19 December 2024 account of the portal and scheme integrations.
Who can register with a BOCW board?
The threshold described by the Ministry
In its 10 August 2023 explanation of Section 12 of the BOCW Act, the Ministry of Labour and Employment said that a construction worker aged 18 to under 60 who had performed construction work for at least 90 days in the preceding 12 months could register as a board beneficiary. This is a specific beneficiary-registration threshold; it is not the same as e-Shram’s broader database registration. The Ministry’s explanation is available in its BOCW Scheme release.
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Check the rules that apply now and where the worker is applying
The government says the four Labour Codes took effect on 21 November 2025, and the Ministry’s Labour Codes page lists draft Central Rules for 2025. The Ministry describes the BOCW Act as subsumed in the Occupational Safety, Health and Working Conditions Code, 2020. Because rules and administration can depend on the issue and jurisdiction, workers and advisers should check current notifications, applicable state rules and the relevant board’s instructions before relying on the 2023 explanation for an individual application. The Ministry’s Year End Review 2025 and Labour Codes page provide the government’s stated commencement and rulemaking status.
What welfare-board schemes may cover
State and UT boards administer schemes in areas including life and disability, health and maternity, transit housing, skills, and financial assistance for workers’ children. The actual scheme terms, eligibility conditions and administration are state-led; a category appearing in a national description is not a promise that every worker qualifies or will receive a payment. The Ministry’s BOCW and ISMW portal describes the board role and welfare areas.
For a worker, the useful question is not only whether a scheme exists, but what the local board requires to apply, how it communicates a decision, when payment is due and where to seek review if an application stalls. Those details should be made clear by the responsible board rather than inferred from a national registration record.
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Why migrant workers need a system built for mobility
Workers who move for construction jobs may face a mismatch between where they are employed, where they are registered and which board handles their case. The Ministry has advised local facilitation, self-certification, simplified registration and renewal, worker identification, registration drives and avoiding domicile-based barriers to registration outside a worker’s home state. These are directions and recommendations, not proof that every board has implemented them consistently. They are set out in the Ministry’s 10 August 2023 BOCW Scheme release.
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- Offer assisted routes: use local help desks, facilitation centres and registration camps, alongside digital channels, so that lack of reliable internet or confidence with online forms is not an automatic barrier.
- Reduce avoidable friction: explain acceptable proof, renewal dates and any self-certification option in workers’ languages, and avoid unnecessary repeat visits where rules permit a simpler process.
- Keep records usable across moves: design coordination so that a change of employer or work location does not make a worker’s history or application impossible to retrieve.
A practical roadmap for dignity-centred formalisation
1. Make enrolment understandable and reachable
Publish plain-language instructions for both e-Shram and the relevant state board, distinguishing what each registration does. Provide assisted enrolment for workers with limited digital access, make requirements legible in local languages and explain how to correct inaccurate records. The Ministry’s stated facilitation and simplification directions offer a basis for this approach; effective access should be assessed by whether workers can complete the process, not by whether an online form exists.
2. Connect registration to the benefit-delivery chain
For each scheme, boards should make eligibility, required documents, application status, renewal dates, payment timelines and appeal routes easy to find. A worker should be able to tell whether an application was received, whether more information is needed, who is responsible for the next step and how to challenge a delay or rejection. Clear status communication is a roadmap recommendation, not a claim that all boards currently provide these services.
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3. Treat safe work as part of formalisation
A worker is not meaningfully protected by a database entry alone. Formalisation must connect access to welfare with safety, health protections, fair working conditions, skills opportunities and practical routes to raise concerns. The International Labour Organization’s Decent Work Country Programme for India 2023–2027, published on 9 April 2024, supplies a broader decent-work framework developed with tripartite constituents and consultations.
4. Protect worker agency as data is linked
Linking records across systems can support coordination, but workers need understandable information about why their data is collected and shared, ways to correct errors, and accessible channels for questions or grievances. These are safeguards a dignity-centred roadmap should require; official descriptions of data sharing and integration do not, by themselves, establish how consistently privacy protections work in practice.
5. Measure outcomes separately from infrastructure
Government reporting should distinguish the number of people enrolled from the number eligible, successfully registered with a board, renewed, approved for a scheme and actually paid. Useful indicators include time to decision, completion of applications, payment timeliness, portability when workers move, worksite safety outcomes and grievance resolution. Where the data permits, report results by state, migration status, gender and occupation so that gaps are visible without treating a national total as a measure of protection.
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How to compare state-board performance fairly
National descriptions establish why state delivery matters, but they do not provide comparable performance data for ranking boards. A state-level scorecard should use common definitions and examine:
- How clearly eligibility and proof requirements are explained.
- Whether assisted and digital registration are both accessible.
- How much friction renewal involves and how long decisions take.
- How migrant workers are treated and whether processes work across locations.
- Whether workers can complete applications for the benefits offered.
- Whether payments arrive on time and grievances are resolved.
- What safety and health protections workers can access at worksites.
These measures are more informative than comparing registration totals alone because they follow the path from access to protection. A fair comparison also needs to disclose differences in scheme rules and reporting methods rather than treating unlike state systems as directly equivalent.
What the published numbers do—and do not—show
The Press Information Bureau reported 30,48,02,313 e-Shram registrations as of 19 December 2024, across all worker categories. The same release described 12 central schemes as integrated or mapped at that time. Neither figure is a construction-worker count, a BOCW beneficiary count or evidence that a particular worker received support. They describe the scale of the database and its scheme connections, not outcomes. The figures and their date are in the PIB release.
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Those distinctions matter for accountability: without separate reporting on eligible workers reached, board enrolment and benefits paid, a large registration total can conceal unresolved access and delivery gaps. The published sources cited here do not establish a construction-worker-specific national estimate of the unregistered population, comparable benefit take-up rates across state boards or verified worker-level outcomes.
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