National Population Census 1991

Nepal has a long history of census taking. The first population census of Nepal was taken in 1911 and this practice was continued roughly every ten years. However, there is some evidence to show that a population count in one form or another took place even before 1911. An enumeration covering adult males reportedly took place during the regime of Bhimsen Thapa (1806-1838). This was possibly done with a view to recruiting adult men into the army. The existence of a Guthi (Cooperative Society) indicates the practice of counting houses in Kathmandu Valley even before the Bhimsen Thapa period (1806-I838). However, these censuses were conducted for limited purposes and were also confined to small areas of the country. Even the scope of four censuses (1911, 1920, 1930 and 1941) which were conducted during the Rana Regime (1846-1950) was also limited. Although, these censuses used a short census schedule to collect information on the name of the head of the household, age of persons by sex, occupation, ability to work, number of livestock and means of transportation, the final results were presented in aggregates, i.e. head counts only.

The first scientific census taken in the modern sense of the term started with the 1952/54 census which was conducted in two parts of the country separated by two years in time.The eastern part of the country with the exception of Mahottari district was covered in 1952. Mahottari district was counted along with the rest of the country in 1954. A brief description of the census operation covering mainly the censuses of 1952/54, 1961 and 1971 is presented below: Prior to 1952/54 there was no separate Field Organization for conducting censuses. The censuses prior to 1952/54 were conducted through administrative fiat authorizing the district administration to collect various types of information including population counts. The district administrators in turn seem to have relied mainly upon the land revenue agents for providing such information concerning all persons in a village or a group of villages under the jurisdiction of these agents.

a) 1952/54 Census

The need for a separate organization for conducting censuses was realized only at the time of the first modern census of 1952/54 and accordingly, a central office was set up to carry out the tasks of census taking. Under the Central Office separate field offices and sub-divisional offices were created for the purpose of conducting censuses. The field level officers were in charge of recruiting and training the enumerators. In 1952/54 village chiefs and revenue agents acted as. enumerators. Their work was supervised and thoroughly checked by trained workers (supervisors) employed by the census organization temporarily for this purpose.

b) 1961 Census

Village chiefs and land revenue collectors/agents were also involved in the tasks of census taking in 1961. Village chiefs (Mukhiyas) and revenue agents (Patwaris) acted either as enumerators or assisted in the tasks of field supervisors. The supervisors were recruited National Population Census 1981 - Overview - 2 - from local people in each district and had been given theoretical and practical training at the same district headquarters. There was one supervisor on average for each census sub-zone. The tasks of a supervisor were closely scrutinized by a section officer deputed to each census zone. In 1961, 15,933 enumerators were involved in the tasks of census taking. The fifty-five administrative districts of the time were divided into 18 census zones and 102 sub-zones comprising 456 census areas and 28,400 villages. The village was the unit of enumeration in 1961 but the district was the smallest unit for which data was made available.

c) 1971 Census

With the introduction of the Panchayat System in 1962, the country was divided into 14 zones and 75 districts and 28,400 villages were regrouped into nearly 4,000 village Panchayats. The census of 1971, therefore, rearranged some of the districts and created 17 census zones and employed one zonal census officer in each zone for supervising and administering the census operation. He (the zonal officer) was assisted by one non-gazetted class I official and other subordinates. Seventeen training centers were established for training the supervisors and enumerators. The zonal officers and their assistants were recruited and trained at the center. There were about 12,000 enumerators and 500 supervisors who were involved in the actual enumeration. However, the level of education of the enumerators was very poor. The minimum educational qualifications required to be an enumerator were the ability to read and write only. The census schedule was pre-tested in two village Panchayats and one urban area. The 1971 census data was obtained at the ward level. Though the population count by sex at the ward level was published in separate booklets, the main census publications containing standard tables about various socio-economic cum-demographic characteristics of the population were made available at district level only. For the first time in 1971 the census data was processed through computer.

e) 1981 Census

Since 1952/54, the censuses of Nepal have been collecting data on "Place of birth" for all persons counted in the census. This topic is also found in the list of priority items recommended by the UN for 1980 round of censuses (ESCAP, 1978; pp. 32-35). To improve the data on migration, 1981 census collected more information such as -duration of residence and reason for migration. The practice of computer processing was also continued in 1981.

d) 1991 Census

The two question on migration introduced in 1981 were dropped but a question was added on "place of residence one year ago" for all persons aged one year and above. The unit of prior residence was the district and the data so collected was published in 75 (districts) by 15 (ecological-development regions) matrix.

Census preparation and field work activities were apparently better as the Technical Committee was formed well in advance for the improvement of census questionnaire and related activities. Census promotion activities were quite extensive. All available media were used for information and education purposes, including local folk media. Audience-specific materials for different ethnic and religious groups were also developed and microphone announcement in local areas was also done.

Data Processing, although cumbersome and time-consuming in nature, did not take much time this time, due to computer technology.