Preparations for the second General census of the population of the Russian Empire started almost immediately after materials of the first census had been published. The "Summary of Opinions on Separate Articles of the First General Census of the Population of 1897, Voiced by Different Institutions and Persons" was compiled in 1908. Serious criticisms expressed in the "Summary" included the absence of "nationality" as a concept in the census form of 1897.

The second General census was planned for 1910, but the treasury found it hard to provide funding, which led to repeated postponements. After extended discussions it was finally decided to hold the census in December 1915.

Nikolay Belyavsky, Director of the Central Statistical Committee, told the State Duma (the Russian parliament) that December was a good month for conducting the census, since the "movement of the people declines" at that time of the year.

However, history intervened: World War I broke out on 1 August 1914. In September, Pavel Georgievsky, Chairman of the Statistical Council at the Ministry of Internal Affairs, announced: "Due to the war that has begun, the proposal to hold the Second All-Russian Census of the Population in December 1915 cannot be carried out."