The household registration system known as ho khau has been a part of the fabric of life in the country for over 50 years. The system was implemented as an instrument of public security, economic planning, and control of migration, at a time when the state played a stronger role in direct management of the economy and the life of its citizens. Although the system has become less rigid over time, concerns persist that ho khau limits the rights and access to public services of those who lack permanent registration in their place of residence. Due largely to data constraints, however, previous discussions about the system have relied largely on anecdotal or partial information. This report attempts to fill that gap, by bringing new data and empirical analysis to the table. The report covers five areas: 1) the history of the system
2) the size and characteristics of the population without permanent registration
3) service access of those without permanent registration
4) the debate about the system in the media and among policymakers
and 5) the fiscal impacts of increased migration. The final chapter considers possible policy directions.