Vol. 76 Wednesday, No. 164 August 24, 2011

Part II

Department of Commerce

Census Bureau Urban Area Criteria for the 2010 Census; Notice

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DEPARTMENT OF COMMERCE classification of urban and rural of these areas or their associated data. territory to take advantage of newly Nonetheless, the Census Bureau Bureau of the Census available data, as well as advancements recognizes that other government [Docket Number 110714393–1393–01] in geographic information processing agencies use the Census Bureau’s urban- technology. rural classification for allocating Urban Area Criteria for the 2010 DATES: Effective Date: The Census program funds, setting program Census Bureau will begin implementing the standards, and implementing aspects of criteria as of August 24, 2011. their programs. The agencies that use AGENCY: Bureau of the Census, the classification and data for such FOR FURTHER INFORMATION CONTACT: Department of Commerce. nonstatistical purposes should be aware Vincent Osier, Chief, Geographic ACTION: Notice of final program criteria. that the changes to the urban area Standards and Criteria Branch, criteria might affect the implementation SUMMARY: Geography Division, U.S. Census This notice announces the of their programs. Bureau of the Census’ (hereafter, Census Bureau, via e-mail at Bureau’s) final criteria for defining [email protected] or telephone The Census Bureau is not responsible urban areas based on the results of the at (301) 763–3056. for the use of its urban-rural 2010 Decennial Census (the term ‘‘urban SUPPLEMENTARY INFORMATION: The classification in nonstatistical programs. area’’ as used throughout this notice Census Bureau’s delineation of urban If a federal, tribal, state, or local refers generically to urbanized areas of areas is designed to identify densely government agency voluntarily uses the 50,000 or more population and urban developed territory, and encompass urban-rural classification in a clusters of at least 2,500 and less than residential, commercial, and other nonstatistical program, it is that 50,000 population). This notice also nonresidential urban land uses. The agency’s responsibility to ensure that provides a summary of comments boundaries of this ‘‘urban footprint’’ the classification is appropriate for such received in response to proposed have been defined using measures based use. In considering the appropriateness criteria published in the August 24, primarily on population counts and of the classification for use in a 2010, Federal Register (75 FR 52174), as residential population density, but also nonstatistical program, the Census well as the Census Bureau’s response to through criteria that account for Bureau urges each government agency those comments. nonresidential urban land uses, such as to consider permitting appropriate The Census Bureau’s urban-rural commercial, industrial, transportation, modifications of the results of classification is fundamentally a and open space that are part of the implementing the urban-rural delineation of geographic areas, urban landscape. Since the 1950 classification specifically for the identifying both individual urban areas Census, when densely settled urbanized purposes of its program. When a and the rural areas of the nation. The areas (UAs) of 50,000 or more people program permits such modifications, the Census Bureau’s urban areas represent were first defined, the urban area Census Bureau urges each agency to densely developed territory, and delineation process has addressed describe and clearly identify the encompass residential, commercial, and nonresidential urban land uses through different criteria being applied to avoid other nonresidential urban land uses. criteria designed to account for confusion with the Census Bureau’s The Census Bureau delineates urban commercial enclaves, special land uses official urban-rural classifications. areas after each decennial census by such as airports, and densely developed I. Summary of Changes Made to the applying specified criteria to decennial noncontiguous territory. 2010 Census Urban Area Criteria census and other data. Since the 1950 In delineating urban areas and the Census, the Census Bureau has resultant classification of territory The following table compares the reviewed and revised these criteria, as outside these urban areas as rural, the final 2010 Census delineation of urban necessary, for each decennial census. Census Bureau does not take into areas criteria with the provisions that The revisions over the years reflect the account or attempt to meet the were proposed in the August 24, 2010, Census Bureau’s desire to improve the requirements of any nonstatistical uses Federal Register (75 FR 52174).

Criteria Proposed 2010 Census criteria Final 2010 Census criteria

Identification of Initial Urban Census tract and block population density, count, and Census tract and block population density, count, and Area Cores. size thresholds. Use of National Land Cover Data- size thresholds. Use of National Land Cover Data- base to identify territory with a high degree of imper- base to identify territory with a high degree of imper- vious land cover. vious land cover. Inclusion of Noncontiguous Bodies of water and wetlands as identified in the Na- Bodies of Water. Territory Separated by Ex- tional Land Cover Database. empted Territory. Inclusion of Noncontiguous Maximum hop distance 0.5 miles, maximum jump dis- Maximum hop distance 0.5 miles, maximum jump dis- Territory via Hops and tance 2.5 miles, and no hops after jumps. Solicited tance 2.5 miles, and no hops after jumps. Jumps. comment on returning to the maximum jump distance of 1.5 miles implemented for pre-Census 2000 delin- eations. Inclusion of Enclaves ...... Two types of enclaves are identified when surrounded Two types of enclaves are identified when surrounded solely by qualifying land territory, and one type of en- solely by qualifying land territory, and one type of en- clave can be included when surrounded by both land clave can be included when surrounded by both land that qualified for inclusion in the urban area and that qualified for inclusion in the urban area and water. water.

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Criteria Proposed 2010 Census criteria Final 2010 Census criteria

Splitting Large Urban Ag- The urban agglomeration encompasses at least The agglomeration consists of urbanized areas defined glomerations. 1,000,000 people. Split occurs at the metropolitan separately for Census 2000. Split location is guided statistical area boundary (or metropolitan New Eng- by location of Census 2000 urbanized area bound- land city and town area), and compensates for incor- aries. Potential split locations will also consider met- porated place and census designated place bound- ropolitan statistical area, county, place, and/or minor aries to attempt to avoid splitting places between civil division boundaries as well as distance from urban areas. each component urbanized area. Merging Individual Urban N/A ...... Merge qualifying territory from separately defined 2010 Areas. Census urban cores that share territory contained within the boundaries of the same Census 2000 urban area. Merge only occurs if an area is at risk of losing urbanized area or urban status and is prevent- able by the merge. Inclusion of Indentations ...... 5 square mile maximum area of the territory within the 3.5 square mile maximum area of the territory within indentation to be added to the urban area. the indentation to be added to the urban area. Inclusion of Airports ...... Annual enplanement of at least 2,500 passengers and Currently functioning airport with an annual be contiguous to the urban area. enplanement of at least 2,500 passengers and is within 0.5 miles to the urban area. Additional Nonresidential N/A ...... Inclusion of groups of census blocks with a high degree Urban Territory. of impervious surface and are within 0.25 miles of an urban area. Assigning Urban Area Titles Clear, unambiguous title based on commonly recog- Clear, unambiguous title based on commonly recog- nized place names derived from incorporated places, nized place names derived from incorporated places, census designated places, minor civil divisions, and census designated places, minor civil divisions, and the Geographic Names Information System. the Geographic Names Information System. Minimum Population Resid- At least 1,500 persons must reside outside institutional At least 1,500 persons must reside outside institutional ing Outside Institutional group quarters for the area to qualify as its own group quarters for the area to qualify as its own Group Quarters. urban area. urban area. Density Criteria for Military Census blocks on military installations with 2,500 or N/A. Installations. more persons are automatically given a population density of 1,000 persons per square mile; census blocks between 1,000 and 2,500 population are auto- matically given a population density of 500 persons per square mile.

Throughout this Federal Register Notice populations existing outside was calculated and if it met the and the urban area criteria for the 2010 incorporated municipalities. For much minimum threshold, it was included in Census, the Census Bureau uses the of the first half of the twentieth century, its entirety in the UA. Outside UAs, term ‘‘contiguous’’ where the term that definition was adequate for ‘‘urban’’ was still defined as any place ‘‘adjacent’’ was used in the proposed defining ‘‘urban’’ and ‘‘rural’’ in the with a population of at least 2,500. The 2010 urban area criteria. United States, but by 1950 it became Census Bureau recognized the need to clear that it was incomplete. identify distinct unincorporated II. History Increasing suburbanization, communities existing outside the UAs, Over the course of more than a particularly outside the boundaries of and thus created the ‘‘census designated century of defining urban areas, the large incorporated places led the Census place’’ (CDP) 1 and designated those Census Bureau has introduced Bureau to adopt the Urbanized Area with populations of at least 2,500 as conceptual and methodological changes (UA) concept for the 1950 Census. At urban. to ensure that the urban-rural that time, the Census Bureau formally Starting with the 1960 Census and classification keeps pace with changes recognized that densely settled continuing through the 1990 Census, the in settlement patterns and with changes communities outside the boundaries of Census Bureau made a number of in theoretical and practical approaches large incorporated municipalities were changes to the methodology and criteria to interpreting and understanding the just as ‘‘urban’’ as the densely settled for defining UAs, but retained the 1950 definition of urban areas. Prior to the population inside those boundaries and Census basic definition of ‘‘urban’’ 1950 Census, the Census Bureau the large unsettled or sparsely settled which was defined as UAs with a primarily defined ‘‘urban’’ as any areas inside those boundaries were just population of 50,000 or more and population, housing, and territory as ‘‘rural’’ as those outside. Due to the defined primarily on the basis of located within incorporated places with limitations in technology for calculating population density, as well as places a population of 2,500 or more, but with and mapping population density, with a population of 2,500 or more the additional allowances to classify delineation of UAs was limited to cities located outside UAs. The enhancements certain New England towns and other of at least 50,000 people (in the 1940 made by the Census Bureau to the areas urban by ‘‘special rule’’. That Census) and their surrounding territory. methodology and criteria used during definition was easy and straightforward The geographic units used to analyze this period included: to implement, requiring no need to settlement patterns were enumeration calculate population density, to districts (similar to census block 1 A CDP is a statistical geographic entity understand and account for actual groups), but to facilitate and ease the encompassing a concentration of population, housing, and commercial structures that is clearly settlement patterns on the ground in delineation process, each incorporated identifiable by a single name, but is not within an relation to boundaries of administrative place was analyzed as a single unit— incorporated place. CDPs are the statistical units, or to consider densely settled that is, the overall density of the place geography counterparts of incorporated places.

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(1) Lowering, and eventual Changes for Census 2000 ppsm, could qualify for inclusion in an elimination, of minimum population The Census Bureau adopted six urban area. For the 1990 Census, criteria for places that formed the substantial changes to its urban area geographers could interactively modify ‘‘starting point’’ for delineating a UA. criteria for Census 2000: analysis units to include census blocks This made recognition of population (1) Defining urban clusters. Beginning with low population density that might concentrations independent of the size with Census 2000, the Census Bureau contain nonresidential urban uses, of any single place within the created and implemented the concept of while still achieving an overall concentration. an urban cluster. Urban clusters (UCs) population density of at least 1,000 (2) Identification of ‘‘extended are defined as areas of at least 2,500 and ppsm. Adoption of the lower density cities’’—incorporated places containing less than 50,000 persons using the same threshold facilitated use of the substantial amounts of territory with residential population density-based automated urban area delineation very low population density, which criteria as applied to UAs. This change methodology, and provided for were divided into urban and rural provided for a conceptually consistent, comparability with the 1990 components using 100 persons per seamless classification of urban methodology. This change did not result square mile (ppsm) as the density territory. For previous censuses, the lack in substantial increases to the extent of criterion. This kept the extent of urban urban areas. of a density-based approach for defining territory from being artificially (4) Increase in the jump distance from urban areas of less than 50,000 persons exaggerated by sparsely settled and 1.5 to 2.5 miles. The Census Bureau resulted in underbounding of urban overbounded incorporated places. increased the jump distance from 1.5 to (3) Implementation for the 1990 areas where densely settled populations 2.5 miles. A ‘‘jump’’ is the distance Census of nationwide coverage by existed outside place boundaries or across territory with low population census blocks, and use of interactive overbounding when cities included density separating noncontiguous analysis of population density patterns territory with low population density. qualifying territory (area of high at the census block level, or by groups Areas where annexation had lagged population density) from the main body of blocks known as ‘‘analysis units,’’ behind expansion of densely settled of an urban area. The increase in the using Census Bureau-developed territory, or where communities of 2,500 jump distance was a result of changing delineation software. This enhancement up to 50,000 people were not planning practices that led to the allowed greater flexibility when incorporated and were not defined as creation of larger clusters of single-use analyzing and defining potential UAs, CDPs, were most affected by the development. In addition, research as opposed to using enumeration adoption of density-based UCs. As a conducted prior to Census 2000 showed districts and other measurement units result of this change, the Census Bureau that some jumps incorporated in UA defined prior to decennial census data no longer needed to identify urban definitions in 1990 were actually longer tabulation. places located outside UAs for the than 1.5 miles as a result of the (4) Implementation of qualification purpose of its urban-rural classification. subjective identification of the gap in criteria for incorporated places and (2) Disregarding incorporated place developed territory. As used in previous CDPs for inclusion within a UA based and CDP boundaries when defining UAs censuses, only one jump was permitted on the existence of a densely populated and UCs. Taking place boundaries into along any given road connection. ‘‘core’’ containing at least fifty percent account in previous decades resulted in (5) Introduction of the hop concept to of the place’s population. This the inclusion of territory with low provide an objective basis for eliminated certain places from the urban population density within UAs when recognizing small gaps within qualifying area classification because much of their the place as a whole met minimum urban territory. For Census 2000, the population was scattered rather than population density requirements, and Census Bureau officially recognized the concentrated. excluded densely settled population term ‘‘hops,’’ which is defined as gaps For the 2000 Census (Census 2000), when the place as a whole fell below of 0.5 mile or less between qualifying the Census Bureau took advantage of minimum density requirements. urban territory. Hops are used primarily technological advances associated with Implementation of this change meant to account for territory in which geographic information systems (GIS) that territory with low population planning and zoning processes resulted and spatial data processing to classify density located inside place boundaries in alternating patterns of residential and urban and rural territory on a more (perhaps due to annexation, or the way nonresidential development over consistent and nationally uniform basis in which a CDP was defined) no longer relatively short distances. This provided than had been possible previously. necessarily qualified for inclusion in an for a more consistent treatment of short Rather than delineating urban areas in urban area. However, it also meant that gaps with low population density, some an interactive and manual fashion, the nonresidential urban land uses located of which had been treated as jumps in Census Bureau developed and utilized inside a place’s boundary and located the 1990 urban area delineation process software that automated the on the edge of an urban area might not (and not permitted if identified as a examination of population densities and necessarily qualify to be included in a second jump), while others were other aspects of the criteria. This new UA or UC. interpreted as part of the pattern of automated urban area delineation (3) Adoption of 500 persons per urban development and grouped with methodology provided for a more square mile (ppsm) as the density contiguous, higher density blocks to objective application of criteria criterion for recognizing some types of form qualifying analysis units. compared to previous censuses in urban territory. The Census Bureau (6) Adoption of a zero-based which individual geographers applied adopted a 500 ppsm population density approach to defining urban areas. The the urban area criteria to delineate threshold at the same time that it urban area delineation process in urban areas interactively. This new adopted its automated urban area previous censuses had generally been an automated approach also established a delineation methodology. This ensured additive process, where the boundary of baseline for future delineations to that census blocks that might contain a a UA from the previous census provided enable the Census Bureau to provide mix of residential and nonresidential the starting point for review for the next comparable data for subsequent urban uses, but might not have a census. The changes made for Census decades. population density of at least 1,000 2000 were substantial enough to warrant

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the Census Bureau to re-evaluate the longer defined by the Office of 2000 and the 2010 Census urban area delineation of all urban areas as if for Management and Budget). Thirteen definitions. the first time, rather than simply making commenters specifically suggested Comments Pertaining to Proposed Hop adjustments to the existing boundary. basing the urban agglomeration splits on and Jump Criteria The Census Bureau adopted this zero- the location of the current urban area based approach to ensure that all urban boundaries; those commenters who The Census Bureau received seventy- areas were nationally defined in a expressed favor for maintaining separate five comments regarding the proposed consistent manner. UA status for areas identified as part of hop and jump criteria designed to The six changes described above potential agglomerations can be include noncontiguous, but qualifying represent the major modifications assumed to favor splitting along Census territory within an urban area. Of these, implemented for Census 2000. They 2000 UA boundaries. Five commenters forty commenters suggested lowering illustrate a substantial shift in approach advocated the use of commuting data to the maximum jump distance threshold adopted by the Census Bureau in its determine how and where to split large from 2.5 to 1.5 miles. These commenters procedure for delineating urban areas. agglomerations. Twenty-six commenters suggested that, in addition to preventing The availability of new datasets and favored splitting urban agglomerations the consolidation of functionally continued research since Census 2000 within metropolitan statistical areas, separate urban areas, a shorter showed the potential for further with some wondering whether the lack maximum jump distance would improvements for the 2010 Census. of such a provision in the proposed improve the overall delineation by criteria was an oversight. preventing inclusion in the urban area III. Summary of Comments Received in of long stretches of qualifying territory Response to Proposed Criteria The Census Bureau received sixty-five comments regarding the minimum that are more appropriately classified as The notice published in the August rural, especially with the presence of population threshold to identify which 24, 2010 Federal Register (75 FR 52174) large expanses of exempted territory and urban agglomerations should be split. Of and requested comments on proposed long distance commuting patterns. these, six commenters favored the criteria for the 2010 Census urban areas. Further, one commenter expressed proposed 1,000,000 person threshold. In response, the Census Bureau received concern that retaining the existing 2.5- Thirty commenters favored a 250,000 179 comment letters from regional mile maximum jump threshold person threshold and eleven planning and nongovernmental indicates that the Census Bureau has commenters suggested keeping the organizations, municipal and county moved away from a morphological 50,000 person threshold implemented officials, Members of Congress, state concept of urban towards one based on for the Census 2000 delineation. Among governments, federal agencies, and function relationships. individuals. other suggested minimum population Thirty-three commenters favored no thresholds, commenters also suggested change to the 2.5 mile maximum jump Comments Pertaining to Proposed using a threshold consistent with distance threshold. Reasons for Criteria for Splitting Large Urban Federal Transit Administration and retention of the 2.5 mile maximum jump Agglomerations Federal Highway Administration distance provided by these commenters The proposed criteria for splitting funding thresholds, or no minimum included retaining consistency with the large agglomerations formed during the population threshold at all. Census 2000 urban area delineation, the delineation process drew the largest In addition to requests for ability to account for future number of comments. Of the 179 clarification, the Census Bureau also urbanization and extended responses received, 160 commented on received comments expressing concern suburbanization, and mitigation of the the proposed criteria for splitting large about the arbitrary nature of the presence of undevelopable land not agglomerations. Of these, 102 proposed criteria for splitting and identified by the Census Bureau. One commenters expressed concern about merging urban areas as well as a lack of commenter suggested that the 2.5 the potential merger of specific pairs of local input. Other suggestions include maximum jump distance allowed is too urban areas, with 87 commenters the identification of combined urban restrictive in coastal areas where large expressing concern about the impact on areas through commuting patterns, areas of wetlands are present, even if planning and policymaking as well as examining each urban agglomeration such territory is identified as exempted. the potential loss of federal funding as individually to determine the location One commenter suggested different a result of the loss of individual UA of each split boundary, defining maximum jump thresholds should be status. Other commenters expressed agglomeration splits along county and applied to urban areas of different concern about the loss of local control sub-county boundaries, and retaining population sizes, with longer jumps over funding allocation and policy the current split boundaries defined for allowed for larger initial urban cores. decisions, lack of consistency with the the Census 2000 delineation. Three commenters expressed concern Census 2000 urban classification, and In response to the comments that the proposed criteria do not allow loss of meaningful data. regarding criteria for splitting large for a second iteration of hops after Twenty-five commenters supported agglomerations, the Census Bureau will jumps; one commenter agreed with the splitting large urban agglomerations adopt criteria ensuring that urbanized proposal to not allow hops after a jump along metropolitan statistical area areas defined for Census 2000 continue had been made. Two commenters boundaries or (in New England) New to be identified as separate urbanized requested clarification on the sequence England city and town area (NECTA) areas for the 2010 Census, but only if of hops and jumps in relation to the boundaries. Ten also supported the these areas continue to qualify as identification of airports, wondering proposal to avoid splitting incorporated urbanized under the 2010 urban area whether it is possible to hop or jump places and CDPs between urban areas. delineation criteria. The boundary used from an urban area to additional Six of the comments suggested splitting to split large agglomerations will be qualifying territory if airports are urban areas along NECTA Division in based on the locations of Census 2000 included in the urban area after the hop New England where available or urban area boundaries. To the extent and jump criteria have been Primary Metropolitan Statistical Area possible, this will facilitate continuity implemented. One commenter boundaries (although the latter are no and comparability between the Census suggested that all intervening census

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blocks separating an initial urban core the Multi-Resolution Land wildlife areas, steeply sloped terrain, and its noncontiguous qualifying Characteristics Consortium (MRLC) 2 and other defined open space with territory must have a minimum and suggested using the NLCD 2006 restricted development properties as population density of at least 500 ppsm. update as well as incorporating exempted territory classes. One commenter suggested not allowing additional wetlands datasets based on In response to the comments received, multiple hops, and another opposed ground-truth samples, more current the Census Bureau will continue to take including any noncontiguous densely imagery, and/or projection models, and into account exempted territory when settled territory via hops and jumps. locally produced surface data where delineating urban areas, as it has for Based on the comments received as available. Commenters also expressed several decades. The Census Bureau well as a general desire to maintain concern about the objectivity in will also continue to only consider comparability between the Census 2000 determining whether these territories conditions where exempted territory is and 2010 Census criteria, the Census will not be developed as well as not be on both sides of a road, otherwise Bureau will continue to use the included in the overall population development would not be fully maximum jump distance of 2.5 miles, as density calculation of urban areas. constrained. However, based on well as the maximum hop distance of Five commenters opposed the concerns raised by commenters and to 0.5 miles. The Census Bureau notes that identification of wetlands as exempted maintain decennial comparability, for the comments pertaining to the territory, citing NLCD data vintage and the 2010 Census urban area delineation, maximum distance of a jump did not quality, the compatibility of the NLCD bodies of water included in the Census strongly favor either retention of the 2.5- to data within the Census Bureau’s Bureau’s MTDB will be the only specific mile maximum jump distance Master Address File/Topologically class of territory identified as exempted. implemented for the Census 2000 or Integrated Geographic Encoding and Similar to the Census 2000 delineation reversion to the 1.5 mile maximum of Referencing (MAF/TIGER) database criteria, additional exempted territory previous decades. In response to (MTDB), lack of local input in defining will include land area in which the concerns that application of the hop and wetlands, and the proper vetting of populations of the census blocks on jump criteria allows urban areas to NLCD prior to inclusion in the criteria both sides of a road segment are zero reach too far into rural territory, the as issues of concern. Commenters also and the road connection crosses at least Census Bureau will not allow for a suggested that the combination of 1,000 feet of water. This methodology is second iteration of hops after a jump. wetlands and water features as designed to identify unpopulated The Census Bureau will also retain the exempted territory with a 2.5-mile wetlands and floodplains adjacent to proposed requirement for an overall maximum jump distance threshold water that separate areas of urban density of at least 500 ppsm for all exaggerates the amount of urban development. Nonetheless, the Census noncontiguous qualifying territory (both territory defined and noted that only Bureau decided to break from the the high density destination and considering wetlands as exempted does Census 2000 delineation criteria by not intervening territory). not account for other types of land considering national parks and national monuments as exempted territory Comments Pertaining to Proposed cover/uses that act as barriers to urban because of concerns regarding the data Criteria for Identifying and Linking development. One commenter also quality and vintage. The Census Bureau Across Exempted Territory questioned how close wetlands territory must be to road segments as well as why also decided not to include any of the The Census Bureau received thirty- it is necessary to be located on both proposed wetlands classes in the three comments pertaining to the sides of the road, to be considered category of exempted territories. The proposed criteria for recognizing exempted territory. presence of large expanses of wetlands territory in which urban development is The Census Bureau received three territory coupled with a maximum jump constrained due to either topographic or comments opposing the identification of distance threshold of 2.5 miles would land cover/land use conditions during water features as exempted territory facilitate the over extension of urban the inclusion of noncontiguous, but suggesting that wide expanses of water territory in certain locations around the qualifying urban territory. Sixteen should clearly separate urban areas. One nation. The consideration of wetlands as commenters agreed with the proposed commenter suggested the use of Radio exempted territory imparts a regional criteria to identify wetlands as Detection And Ranging (RADAR) bias to the delineation process due to exempted territory in addition to water mapping to better identify water the greater prominence of wetlands in features, national parks, and national landscape features as exempted some parts of the country, such as the monuments as was done for the Census territory. Three commenters opposed southern and southeastern United 2000 delineation. Five of these the identification of all exempted States. The Census Bureau has decided commenters, however, suggested that territory in the urban area delineation against adding additional classes of wetlands only be identified as exempt if criteria. These commenters suggested exempted territory until a larger and the maximum jump distance was that the exempted territory criteria more robust category of land cover/land lowered to 1.5 miles. In addition to allow for the extension of urban areas use types acting as barriers to urban identifying wetlands as exempted across county boundaries, which is development can be identified territory, five commenters suggested counter to the overall intent for defining consistently and uniformly for the entire additional classes of land cover urban areas by the Census Bureau. Note United States and Puerto Rico. restricting development, such as that the Census Bureau’s urban area farmland, forested land, conservation Comments Pertaining to Proposed criteria have always allowed for the Criteria To Qualify Territory Containing easement properties, and steeply sloped extension of urban area boundaries territory in which mountain passes are a High Degree of Impervious Surface across the county boundaries. Other Land Cover present. Although still in agreement commenters suggested adding Twenty-three commenters responded with the identification of wetlands as floodplains, regional parks, national exempted territory, commenters to the proposed use of the NLCD to expressed additional concerns regarding 2 The NLCD includes data for the entirety of the assist in identifying and qualifying as the vintage of the 2001 National Land United States, Puerto Rico, and the U.S. Virgin urban, sparsely populated urban-related Cover Database (NLCD) developed by Islands. territory associated with a high degree

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of impervious surface land cover. commenters expressed concern that the the block group to the census tract. The Eighteen comments favored adoption of minimum population density threshold small reduction in initial urban area the proposal to qualify territory based of 500 ppsm was too high, proposed core territory is due to the use of census on the percentage of impervious increasing the maximum land area tracts, which are larger geographic units surfaces. Ten commenters, however, threshold to four square miles, and and therefore less likely than block expressed concern about the vintage of suggested applying the Census 2000 groups to qualify under the density the data, questioning the relevance of block group-based delineation criteria requirements. Similar to the way block using the 2001 NLCD as it is more after using census tracts as analysis groups were used for Census 2000, if a representative of urban conditions at the units to capture lower density territory census tract does not meet specified time of Census 2000 and does not in mountainous areas resulting from area measurement and density criteria, account for subsequent development. census geography primarily being the focus of analysis will shift to Commenters suggested using the NLCD defined along visible features. The two individual census blocks within the 2006 update, supplemental land cover/ letters opposing the use of census tracts tract, and delineation will continue at land use datasets based on ground-truth as analysis units both questioned the the block level. As a result, when using samples, more current imagery, and/or relevance of this criterion when census tracts, the delineation process projection models, as well as local delineation of initial urban cores also shifts to census block-level analysis opinion and locally produced surface occurs at the census block level. An sooner than would be the case when data, where available. Five commenters additional concern was about the using block groups. This methodology is who favored using impervious surface reduced population density iterative as additional qualifying census data conditioned their support on the measurements resulting from the tracts and blocks are added to the initial premise that the maximum jump inclusion of water area in census tracts urban core until no such qualifying distance threshold should revert to 1.5 (although population density is based territory exists during this phase of the miles to prevent the over extension of only on land area). One letter requested delineation. urban territory. Other commenters clarification on the iterative nature of expressed concern about the overall the initial urban core building process Comments Pertaining to Proposed quality of the NLCD, how well these once the delineation criteria moves Criteria for Inclusion of Enclaves and data match data in the MTDB, that down to the census block level. Indentations introduction of these data were not In response to the comments received The Census Bureau received six properly vetted, and requested that the regarding these criteria, the Census comments regarding proposed criteria Census Bureau provide public products Bureau will replace census block groups for inclusion of territory in indentations merging impervious surface data with with census tracts as the analysis unit and enclaves formed during the information for census blocks. during the delineation of the initial delineation process. Three commenters After considering the comments urban area core for the 2010 Census supported the proposed criteria for received, the Census Bureau, as urban area delineation as described in including indentations, by way of described in the proposed criteria, will the proposed criteria. Changing the criteria similar to those implemented for include impervious surface data when urban area core delineation analysis the Census 2000, citing the jagged delineating urban areas as a means to unit to the census tract offers advantages nature of the current urban area identify business districts, commercial, of increased consistency and boundaries. Conversely, one commenter and industrial zones, located both on comparability, since census tracts are opposed the indentation criteria if the the edge and in the interior of an urban more likely to retain their boundaries only purpose was to produce a more area that would not qualify as urban over the decades than census blocks and cartographically pleasing depiction of based on residential population block groups. The Census Bureau boundaries. One commenter suggested measures alone. In response to the decided to retain the minimum 500 modifying the enclave criteria by comments, the Census Bureau will use ppsm threshold to maintain the 2006 NLCD update wherever comparability with the Census 2000 lowering the maximum area threshold available and will use the 2001 NLCD in urban area delineation. This population of five square miles and requiring the areas of the Nation not yet covered by density threshold was chosen to allow majority of the enclave boundary to the 2006 NLCD update in its efforts to the Census Bureau to account for the border territory qualifying as urban. One promote a more publicly replicable inclusion of open space and other commenter questioned if these criteria urban area delineation. For the 2010 nonresidential urban uses within census are still necessary. Census urban area delineation, the most tracts and blocks that also contain In response to the comments received consistent, comprehensive, and residential development. The Census regarding the criteria for the inclusion of accessible impervious surface database Bureau also decided not to adopt the enclaves and indentations, the Census for the United States and Puerto Rico is suggested maximum census tract size Bureau decided not to make any the NLCD. criterion of four square miles and to changes to the proposed enclave and include a maximum census tract size indentation criteria to maintain Comments Pertaining to Proposed Use criterion of three square miles to avoid comparability from one decade to of Census Tracts as Building Blocks adding large amounts of sparsely settled another. In situations where an enclave The Census Bureau received twenty- territory to urban areas. Water area, as is identified and is contiguous to both one comments regarding the proposed depicted in the Census Bureau’s MTDB, qualifying territory and a water feature, use of the census tract as the analysis has never been included in population the territory within the enclave can only unit (or geographic building block) density calculations for the urban area be captured if the line of contiguity with during the delineation of the initial delineation program. the qualifying territory is greater than urban area core. Of these, sixteen Research by the Census Bureau has the line of contiguity with the water commenters favored the proposal. Three indicated that the initial urban cores feature. These criteria are designed to commenters also supported the use of tend to experience slight decreases in qualify internal and fringe territory that census tracts as analysis units, but territory and only slight increases in may not qualify as urban due to large suggested modifications to the initial population qualifying as urban when census blocks with a substantial urban core delineation criteria. These the initial analysis unit is changed from presence of open space (parks, golf

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courses, etc.) but should be considered accordance with the Census 2000 from the urban area delineation criteria. part of the urban footprint. delineation, the inclusion of airports Eight commenters agreed with the will represent the last step in proposal. The one commenter who Comments Pertaining to Proposed identifying qualifying urban territory. disagreed requested that the Census Criteria for Inclusion of Airports However, upon further consideration Bureau should continue to identify The Census Bureau received ten and review of data, the Census Bureau central places until it is clear that the comments pertaining to the proposed has decided to also include airports elimination of these criteria will not criteria for including airports in urban within 0.5 miles of the urban area. This impact the designation of principal areas; all ten agreed with the proposal process simulates the connection of cities of metropolitan and micropolitan to include census blocks in their noncontiguous qualifying territory via statistical areas. entirety approximating the territory the hop criteria. All other urban land In response to the comments received, encompassed by major airports. One cover/land use not qualifying through the Census Bureau is finalizing its commenter, however, disagreed with residential population count and proposal to discontinue identifying the proposal to lower the minimum density measures will be represented central places as part of the 2010 Census enplanement threshold to 2,500 through the enclave and indentation urban area delineation process. The passengers, noting that commercial hubs criteria designed for the Census 2000 Census Bureau notes that the are better represented than facilities delineation and supplemented with the identification of central places is no with a mixture of charter or business impervious surface data introduced for longer necessary for the process of flights and joint-use (military/general the 2010 Census. aviation) airports according to delineating urban areas and can result commercial enplanements only. This Comments Pertaining to the Proposed in some central places being split commenter also suggested that the Criterion Requiring at Least 1,500 between urban and rural territory. criteria should take into consideration Persons Residing Outside Institutional Moreover, the Office of Management the number of flights. Two commenters Group Quarters for an Area To Qualify and Budget (OMB) always had its own favored the inclusion of cargo flights in as an Urban Area criteria to identify principal cities as addition to general aviation Five commenters supported the part of the metropolitan and 3 enplanements when identifying airports proposed criterion requiring that an area micropolitan statistical areas program. according to the minimum enplanement must encompass at least 1,500 persons The list of principal cities identified by threshold. Another commenter noted living outside institutional group the OMB is quite similar to what would that more recent enplanement data quarters (GQs) in order to qualify as an emerge if the urban area process created (2009) are available through the Federal urban area. Two commenters opposed a list of central places. The Census Aviation Administration (FAA) than this criterion, with one stating that an Bureau no longer sees a need for a were referenced in the proposed criteria. urban area should qualify only on the second representation of the same Additional comments included requests basis of population residing outside concept in its statistical and geographic for data content clarification such as group quarters and the other suggesting data products. Principal cities of whether the data include commercial that qualification as an urban area metropolitan and micropolitan only, military activities, or all should be based on total population statistical areas are identified based on enplanements, as well as whether the without distinction based on status different set of criteria and as part of the Census Bureau will consider cargo within institutional group quarters. One metropolitan and micropolitan area weight in identifying major airports. commenter requested that the Census delineation process. This decision will The Census Bureau also received one Bureau more closely examine the nature have no impact on the metropolitan and comment requesting the recognition of of the land use associated with large micropolitan area delineation process. rail yards, sea ports, and utilities group quarters before disqualifying Comment Pertaining to the Shape Index facilities as qualifying as urban territory territory as urban as it contradicts the Used When Measuring Compactness of in addition to airports. proposed criteria relating to population Census Blocks Upon considering the comments density and impervious surfaces. received, the Census Bureau will retain In response to the comments received, The Census Bureau received one the Census 2000 criteria to include the Census Bureau is finalizing the comment concerning the shape index whole census blocks representing provision that all qualifying urban areas proposed to identify census blocks airports in urban areas. In order to must encompass at least 1,500 persons considered compact during the qualify, an airport must report a living outside institutional GQs without delineation of the initial urban area minimum annual enplanement of 2,500 change to avoid the delineation of an cores. This commenter suggested passengers as reported by the FAA for urban area comprising only a few modifying the compactness criterion to at least one calendar year from 2001 to census blocks in which an institutional only include those census blocks that the most current data available for the GQ was located. The Census Bureau score 0.310 or higher according to the delineation. All identified airports must recognizes that although the population proposed shape index formula, as be currently in service and providing densities of these areas exceed the opposed to the proposed shape index services for the urban area in which it minimum thresholds specified in the value of 0.185 or higher. is to be included. The 2,500 passenger urban area criteria, and the total The Census Bureau will retain the threshold was chosen to provide for a populations exceed 2,500, they lack shape index threshold as proposed. more complete coverage of airports, most of the residential, commercial, and Internal research and investigation has particularly those near smaller initial infrastructure characteristics typically shown this to be a reasonable metric for urban cores. The annual passenger associated with urban territory. measuring compactness for all census boarding data will include only Comments Pertaining to the Proposal to blocks having the potential to qualify as commercial service enplanements urban without excluding census blocks (primary and nonprimary) to promote Eliminate the Central Place Concept consistency with the Census 2000 urban The Census Bureau received nine 3 See the ‘‘2010 Standards for Delineating area criteria as well as to facilitate a comments regarding the proposed Metropolitan and Micropolitan Statistical Areas,’’ more replicable delineation. Also in elimination of the central place concept Federal Register, 75 FR 37246, June 28, 2010.

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that should be included in an urban its potential impacts. Additional areas defined for the Census 2000; area. comments expressed difficulty in although the actual urban territory these predicting results of changes to criteria areas comprise may differ. Comments Pertaining to the as published in the August 24, 2010 The delineation and production of Nonstatistical Uses of Urban Area Federal Register (75 FR 52174), and urban areas and their associated data Delineations requested clarification of the proposed were scheduled to begin in March 2011, Seventeen commenters expressed urban area delineation criteria. to ensure sufficient time to delineate concern that the Census Bureau does Commenters also submitted requests for and review the urban area definitions not acknowledge or consider any real-world examples of how changes to and prepare geographic information nonstatistical uses of urban areas when the urban area delineation criteria files in time to tabulate statistical data developing delineation criteria. Thirteen would manifest on the landscape, maps from both the 2010 Census and the of these commenters suggested that the of the proposed urban areas, and access American Community Survey (ACS). Census Bureau initiate an inter-agency to the delineation software to facilitate Adherence to this schedule prevented task force to identify the potential better informed public comment. any attempts toward a test delineation negative impacts, particularly on federal In response to the comments received using all of the proposed 2010 urban funding, resulting from changes to the regarding the nonstatistical uses of area criteria for the entire United States urban area delineation criteria, and Census urban areas, the Census Bureau and Puerto Rico, thus prohibiting the design mitigation measures and/or recognizes that some federal and state availability of real-world examples solutions to these issues if the proposed agencies use the Census Bureau’s urban- without showing preference to any changes were implemented. These rural classification for allocating particular location. Further, this commenters also suggested delaying the program funds, setting program schedule also dictated that the delineation of urban areas until standards, and implementing aspects of development of the delineation software provisions are adopted that would their programs. The Census Bureau coincided with the development of the prevent adverse impacts on programs remains committed to an objective, proposed and final criteria. and funding formulas relating to urban equitable, and consistent nationwide IV. Changes to the Proposed Urban areas as currently defined. urban area delineation, and thus Area Criteria for the 2010 Census Nine commenters stressed the identifies these areas solely for the importance of consistency in both urban purpose of tabulating and presenting This section of the Federal Register area delineation criteria and status from statistical data. This provides data users, provides information about the Census one decade to another to aid long-term analysts, and agencies with a baseline Bureau’s decisions on changes that were planning and policy making. Five of set of areas from which to work, as incorporated into the Urban Area these commenters specifically requested appropriate. Given the many Criteria for the 2010 Census in response that territory defined as urban in Census programmatic and often conflicting or to the many comments received. These 2000 continue to be defined as urban for competing uses for Census Bureau- decisions benefited greatly from the the 2010 Census. defined urban areas, the Census Bureau public participation, which served as a Five commenters expressed concern cannot attempt to take each program reminder that, although identified for that there are no provisions in the into account. Therefore, by not taking purposes of collecting, tabulating, and delineation criteria for local input and any one nonstatistical use into account, presenting federal statistics, the urban requested the opportunity to review and the Census Bureau does not favor one areas defined through these criteria comment on the definition of urban program over another. The Census represent areas in which people reside, areas before boundaries become final. Bureau’s designations are used to work, and spend their lives and to These commenters also expressed identify areas to receive funding for which they attach a considerable concern about the automated and urban programs and also to identify amount of local pride. In reaching our inflexible nature of the delineation areas for exclusion from rural-based decisions, the Census Bureau took into process and suggested that the extent of programs. account the comments received in each urban area should be evaluated In building upon the Census 2000 response to the proposed criteria individually. The Census Bureau also urban area criteria, the Census Bureau is published in the Federal Register on received two comments expressing developing urban area criteria for the August 24, 2010, (75 FR 52174), as well concern that the proposed delineation 2010 Census consisting of a single set of as comments received during webinars, criteria do not take into account local rules that allow for application of conference presentations, and meetings zoning laws and incorporated place automated processes based on the input with federal, state, and local officials, boundaries. of standardized nationwide datasets that other users of data for urban areas, and Two commenters criticized the timing yield consistent results. Rather than additional research and investigation for developing the urban area defining areas through a process of conducted by Census Bureau staff. delineation criteria. These commenters accretion over time, the criteria also The changes made to the proposed stated that the methodology is flawed provide a better reflection of the criteria in Section II of the August 24, because projections related to potential redistribution of population and how it 2011, Federal Register Notice, changes in the delineation criteria are affects the current state of urbanism. ‘‘Proposed Urban Area Criteria for the based on Census 2000 data and This can be done only by reexamining 2010 Census,’’ are as follows: geography. These commenters suggested all territory that qualified as either 1. In Section II, ‘‘Proposed Urban Area that the Census Bureau should delay urban or rural in earlier censuses based Criteria for the 2010 Census,’’ in the development of the proposed on different criteria, geography, and introductory paragraph to this section, delineation criteria until after 2010 population distribution patterns as the Census Bureau removed the Census data and geography become measured by those censuses. reference to Island Areas in the first available. Nonetheless, the Census Bureau will sentence because the Census Bureau, in The Census Bureau received eight apply urban agglomeration split and consultation with government officials requests for the extension of the public individual urban area merge criteria to in the Island Areas (American Samoa, comment period on the proposed urban ensure, to the greatest extent possible, Guam, the Commonwealth of the area delineation criteria to further assess the continued existence of all urbanized Northern Mariana Islands, and the U.S.

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Virgin Islands), is still considering create narrow strips of territory not 9. In Section II, ‘‘Proposed Urban Area whether to identify urban and rural qualifying as urban. Through further Criteria for the 2010 Census,’’ areas for the Island Areas. Census 2000 investigation, the Census Bureau found subsection B.3, the Census Bureau was the only census in which density- instances where one or more of these added a criterion for the inclusion of based criteria were applied to defining intervening census blocks associated noncontiguous territory via hops and urban areas in the Island Areas. with road medians created a barrier jumps to allow stand-alone census 2. In Section II, ‘‘Proposed Urban Area which prevented nearby qualifying blocks, that are not contiguous to Criteria for the 2010 Census,’’ territory from being considered territory that qualify as part of the initial subsection B.1, the Census Bureau contiguous. Furthermore, the Census urban core, but having a population corrected the initial urban area core Bureau has decided census blocks density greater than or equal to 500 delineation criteria to better represent associated with road medians sharing a ppsm, to be added to an urban area. the iterative nature of these criteria. large degree of contiguity with This criterion is designed to include After the initial urban area core with a qualifying territory should be included densely settled territory proximate to population density of 1,000 ppsm or in the urban area. the urban fringe within a relatively more is identified, additional qualifying 6. In Section II, ‘‘Proposed Urban Area larger census block that remains census tracts may be included only if Criteria for the 2010 Census,’’ separated from the initial urban area contiguous to other qualifying census subsection B.1, the Census Bureau core due to the local road network tracts. added reference to describe the review configuration. The addition of this 3. In Section II, ‘‘Proposed Urban Area of the initial urban area cores. In an criterion is also consistent with the Criteria for the 2010 Census,’’ effort to mitigate the overextension of Census 2000 urban area delineation subsection B.1, the Census Bureau territory classified as urban into rural criteria. removed reference to census blocks areas, the Census Bureau will identify 10. In Section II, ‘‘Proposed Urban within military installations. Due to census blocks qualifying as urban via Area Criteria for the 2010 Census,’’ imposed restrictions on the selection of the impervious surface criteria that are subsection B.4, the Census Bureau features that could be used as census added to the initial urban cores late in added reference to the data extracted block boundaries within military the delineation process. The Census from the FAA Air Carrier Activity installations for Census 2000, blocks on Bureau will review these census blocks Information System to clarify the dataset military installations that had a located on the edge of an initial urban that is to be used in the identification population of 2,500 or more were area core to determine if their of airports that are included in urban treated as having a population density classification as urban is appropriate. areas. The Census Bureau has decided of 1,000 ppsm even if the density was This review will also determine if these to use data representing annual less than 1,000 ppsm. Census blocks enplanements for only primary and late-qualifying census blocks are that had a population greater than 1,000 nonprimary commercial service elongated or small and consistently and less than 2,500 were treated as facilities as defined by the FAA. qualified when compared to the having a population density of 500 Limiting the enplanement data to relatively large cell size of the ppsm. The Census Bureau has removed commercial service airports offers the impervious surface data. these criteria as the restrictions on the advantage of minimizing the amount of selection of features for census block 7. In Section II, ‘‘Proposed Urban Area data manipulation required to identify boundaries within military installations Criteria for the 2010 Census,’’ airports, which in turn facilitates public is no longer in effect for the 2010 subsection B.2, the Census Bureau replication of the criteria. This also Census. removed the identification of wetlands results in consistency with the Census 4. In Section II, ‘‘Proposed Urban Area as exempted territory criteria and 2000 urban area delineation criteria. Criteria for the 2010 Census,’’ references to the MRLC’s 2001 NLCD 11. In Section II, ‘‘Proposed Urban subsection B.1, the Census Bureau wetlands class definitions. The Census Area Criteria for the 2010 Census,’’ clarified references to the MRLC NLCD Bureau decided to only consider bodies subsection B.4, the Census Bureau data used in determining impervious of water as exempted territory until a modified the criteria for including surfaces during the delineation of initial more comprehensive category of land airports in urban areas by clarifying that urban cores. The Census Bureau has use/land cover classes can be identified the qualifying airport does not need to decided to use the MRLC NLCD 2006 for the entirety of the United States and be contiguous with an urban area, but update (recently made available for the Puerto Rico. Furthermore, because the rather within 0.5 miles of the urban conterminous United States in February Census Bureau will retain the 2.5 mile area. The Census Bureau changed this 2011) to better represent land use/land maximum jump distance threshold criterion to simulate the connection of cover conditions at the time of the implemented for the Census 2000, it has noncontiguous qualifying territory via delineation. The MRLC 2001 NLCD will decided to limit the recognition of the hop criterion. be used only where the 2006 data are exempted territories to prevent the over 12. In Section II, ‘‘Proposed Urban not available. expansion of urban areas. Area Criteria for the 2010 Census,’’ 5. In Section II, ‘‘Proposed Urban Area 8. In Section II, ‘‘Proposed Urban Area subsection B.4, the Census Bureau Criteria for the 2010 Census,’’ Criteria for the 2010 Census,’’ modified the airport inclusion criteria subsection B.1, the Census Bureau subsection B.2, the Census Bureau so that the Census Bureau will only added criteria to include in the initial added criteria to include the identify functioning airports at the time urban core census blocks that are identification of land area where the of the delineation. This modification associated with a high degree of populations of the census blocks on ensures that these criteria will not impervious surface land cover and are both sides of a road segment are zero include an airport if it no longer mostly contiguous to qualifying and, additionally, the road connection services a particular urban area. territory, but fail the shape index crosses at least 1,000 feet of water. The 13. In Section II, ‘‘Proposed Urban threshold of compactness. These criteria Census Bureau added this criterion to Area Criteria for the 2010 Census,’’ the were added to compensate for the remain consistent with the urban area Census Bureau moved subsection B.4 in presence of elongated census blocks delineation criteria implemented for its entirety to follow the criteria for the defined along road medians, which Census 2000. inclusion of indentations to urban areas

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(subsection B.6). The Census Bureau Adoption of these criteria will facilitate presenting data from the 2010 Census, reordered the delineation criteria so that continuity and comparability between the American Community Survey the inclusion of airports will represent the two decades’ urban definitions. (ACS), the Puerto Rico Community the last step in identifying urban 18. In Section II, ‘‘Proposed Urban Survey, and potentially other Census territory, as was done for the Census Area Criteria for the 2010 Census,’’ the Bureau censuses and surveys. 2000 delineation. Although the airport Census Bureau modified subsection B.8, A. 2010 Census Urban Area, Urbanized inclusion criteria do allow for the which addressed the criteria for Area, and Urban Cluster Definitions qualification of noncontiguous facilities assigning urban area titles, to allow for to urban areas, they prohibit an airport more equal representation of local For the 2010 Census, an urban area from serving as a source area from places if the urban area does not contain will comprise a densely settled core of which hops and jumps can originate. a place with an urban population of at census tracts and/or census blocks that 14. In Section II, ‘‘Proposed Urban least 2,500 people. This change is also meet minimum population density Area Criteria for the 2010 Census,’’ intended to promote consistency with requirements, along with contiguous subsection B.5, the Census Bureau the Census 2000 criteria for titling urban territory containing nonresidential clarified the criteria for the inclusion of areas. urban land uses as well as territory with enclaves in urban areas. The criteria 19. In Section II, ‘‘Proposed Urban low population density included to link distinguish between the two types of Area Criteria for the 2010 Census,’’ outlying densely settled territory with enclaves completely surrounded by subsection B, the Census Bureau added the densely settled core. To qualify as qualifying land territory, and a third new criteria to identify and qualify an urban area on its own, the territory enclave type completely surrounded by additional nonresidential urban-related identified according to the criteria must qualifying land and nonqualifying territory that is not contiguous with, but encompass at least 2,500 people, at least water. near qualifying urban areas. The Census 1,500 of which reside outside 15. In Section II, ‘‘Proposed Urban Bureau added these criteria in its effort institutional group quarters. Urban areas Area Criteria for the 2010 Census,’’ to capture large commercial and/or that contain 50,000 or more people are subsection B.6, the Census Bureau industrial land uses separated from an designated as urbanized areas (UAs); modified the maximum area of the urban area by a relatively small amount urban areas that contain at least 2,500 territory within the indentation that is of undeveloped territory. As a final and less than 50,000 people are added to the urban area from less than review, the Census Bureau will examine designated as urban clusters (UCs). The five square miles to less than 3.5 square the territory surrounding the urban term ‘‘urban area’’ refers to both UAs miles. The Census Bureau changed this areas associated with a high degree of and UCs. The term ‘‘rural’’ encompasses criterion for the 2010 Census urban area impervious surface land cover and all population, housing, and territory delineation to reduce the amount of determine whether they should be not included within an urban area. territory qualifying through indentations included in an urban area. As a result of the urban area without lowering the maximum length 20. In Section II, ‘‘Proposed Urban delineation process, an incorporated of the potential closure lines. Area Criteria for the 2010 Census,’’ place or CDP may be partly within and 16. In Section II, ‘‘Proposed Urban subsection C, the Census Bureau partly outside an urban area. Any place Area Criteria for the 2010 Census,’’ the modified the definitions for contiguous, (incorporated place or CDP) that is split Census Bureau moved subsection B.6 in exempted territory, group quarters, and by an urban area boundary is referred to its entirety to follow immediately the impervious surface to clarify how these as an extended place. Any census criteria relating to splitting large key terms relate to the 2010 urban area geographic areas, with the exception of agglomerations and merging of delineation criteria. Additional census blocks, may be partly within and individual urban areas. For Census definitions are provided for enclave, partly outside an urban area. 2000, the splitting of large urban hop, indentation, initial urban area All criteria based on land area, agglomerations occurred prior to the core, institutional group quarters, jump, population, and population density, inclusion of indentations to urban areas. and noninstitutional group quarters, all reflect the information contained in the Splitting the urban agglomerations terms used in the proposed criteria. Census Bureau’s Master Address File/ before the addition of urban territory 21. Throughout this Federal Register Topologically Integrated Geographic through the indentation criteria enabled Notice and the urban area criteria for the Encoding and Referencing (MAF/ the Census Bureau to better identify 2010 Census, the Census Bureau uses TIGER) Database (MTDB) produced for where the corridor of contiguity the term ‘‘contiguous’’ wherever the the 2010 Census. All calculations of between urban areas was truly at its term ‘‘adjacent’’ was used in the population density include only land; narrowest, which aided in determining proposed 2010 urban area criteria. This water area contained within census the best split location. The Census change was made for the purposes of tracts and census blocks are not used to Bureau reordered the delineation clarity. calculate population density. criteria to remain consistent with the The Following Sets Forth the Urban B. UA and UC Delineation Criteria criteria implemented for the Census Area Criteria for the 2010 Census. 2000. The Census Bureau defines urban 17. In Section II, ‘‘Proposed Urban V. Urban Area Criteria for the 2010 areas primarily on the basis of Area Criteria for the 2010 Census,’’ the Census residential population density measured Census Bureau replaced subsection B.7 The criteria outlined herein apply to at the census tract and census block with a new set of criteria for splitting the United States 4 and Puerto Rico. The levels of geography. Two population large agglomerations based on Census Bureau will use the following density thresholds are used in the comments received. The Census Bureau criteria and characteristics for use in delineation of urban areas: 1,000 adopted criteria that will ensure that identifying the areas that will qualify for persons per square mile (ppsm) and 500 Census 2000 urbanized areas will designation as urbanized areas and ppsm. The higher threshold is continue to be recognized as separate urban clusters for use in tabulating and consistent with population density urbanized areas if these areas continue criteria used in the 1960 Census through to qualify as urbanized under the 2010 4 The United States includes the 50 States and the 1990 Census urban area delineation Census urban area delineation criteria. District of Columbia. processes; it is used to identify the

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starting point for delineation of The Census Bureau will apply criteria 3. Inclusion of Noncontiguous Territory individual, potential urban areas and 1.a, 1.b, and 1.c above until there are no via Hops and Jumps 7 ensures that each urban area contains a census blocks to add to an urban area. Noncontiguous territory that meets densely settled core area that is Any ‘‘holes’’ or remaining nonqualifying the proposed population density criteria consistent with previous decades’ territory completely contained within specified in Sections 1.a, 1.b, and 1.c delineations. The lower threshold was an initial urban area core that is less above, but is separated from an initial adopted for the Census 2000 process than five square miles in area will urban area core of 1,000 or more people, when the Census Bureau adopted an qualify as urban via the criteria for the will be added via a ‘‘hop’’ along a road automated delineation methodology; it inclusion of enclaves set forth in connection of no more than 0.5 miles. provides that additional territory that V.B.4.a. Multiple hops may be made along a may contain a mix of residential and 2. Inclusion of Noncontiguous Territory single road connection, thus accounting nonresidential urban uses can qualify Separated by Exempted Territory for the nature of contemporary urban for inclusion in an urban area. development which often encompasses 1. Identification of Initial Urban Area The Census Bureau will identify and alternating patterns of residential and Cores exempt territory in which residential nonresidential land uses. development is substantially After adding territory to an initial The Census Bureau will begin the constrained or not possible due to either urban area core via hop connections, the delineation process by identifying and topographic or land use conditions.8 Census Bureau will identify all cores aggregating contiguous census tracts, Such territory offsets urban that have a population of 1,500 or more each having a land area of less than development due to particular land use, and add other qualifying territory via a three square miles and a population land cover, hydrological, and/or jump connection.9 Jumps are used to density of at least 1,000 ppsm. After the topographic conditions. For the 2010 connect densely settled noncontiguous initial urban area core with a population Census, the Census Bureau identifies territory separated from the core by density of 1,000 ppsm or more is bodies of water as exempted territory. territory with low population density identified, additional census tracts with Additional exempted territory will measuring greater than 0.5 and no more a land area less than three square miles include land area where the populations than 2.5 road miles. This process and with a population density of at least of the census blocks on both sides of a recognizes the existence of larger areas 500 ppsm will be included if contiguous road segment are zero and the road of nonresidential urban uses or other to any qualifying census tracts. If a connection crosses at least 1,000 feet of territory with low population density qualifying census tract does not exist, water. that do not provide a substantial barrier then one or more contiguous census Noncontiguous qualifying territory to interaction between outlying territory blocks that have a population density of will be added to a core when separated with high population density and the at least 1,000 ppsm are identified and by exempted territory, provided that: main body of the urban area. Because it aggregated. is possible that any given densely A census block is included in the a. The road connection across the exempted territory (located on both settled area could qualify for inclusion initial urban area core if it is contiguous in multiple cores via a jump connection, to other qualifying territory, and sides of the road) is no greater than five miles, and the identification of jumps in an a. Has a population density of at least automated process starts with the initial 500 ppsm, or b. The road connection does not cross urban area core that has the largest total b. At least one-third of the census more than a total of 2.5 miles of territory population and continues in descending block consists of territory with a level of not classified as exempted (those order based on the total population of imperviousness of at least twenty segments of the road connection where each initial urban area core. Only one 5 percent, and is compact in nature as exempted territory is not on both sides jump is permitted along any given road defined by a shape index. A census of the road), and connection, unless the territory being block is considered compact when the c. The total length of the road included as a result of the jump was an shape index is at least 0.185 using the connection (exempt distance and initial urban area core with a population π 2 following formula: I = 4 A/P where I is nonexempt distance) is no greater than of 50,000 or more. This limitation, the shape index, A is the area of the five miles for a jump and no greater than which has been in place since the block, and P is the perimeter of the 2.5 miles for a hop. inception of the urban area delineation block, or process for the 1950 Census, prevents c. At least one-third of the census census blocks are largely the result of block the artificial extension of urban areas block consists of territory with a level of boundaries defined along road medians and can over large distances that results in the imperviousness of at least twenty artificially separate qualifying territory that should inclusion of communities that are not percent, and at least forty percent of its be considered contiguous. Where appropriate, these elongated census blocks will be added to the urban commonly perceived as connected to boundary is contiguous with qualifying area to maintain contiguity of qualifying territory. 6 the particular initial urban area core. territory. 7 The Census Bureau will identify census blocks Exempted territory is not taken into qualifying as urban via the impervious surface account when measuring road distances 5 The data used to define impervious surfaces are criteria that are added to an initial urban area core limited to only those that are included in the during later iterations of the delineation criteria. along hop and jump corridors. MRLC’s 2001 NLCD or NLCD 2006 update where These census blocks located on the edge of initial In addition to the distance criteria available. The Census Bureau has found in testing urban cores will be reviewed to determine if their listed above, a hop or a jump will the NLCD that territory with an impervious percent classification as urban is appropriate. The Census qualify only if: less than twenty percent results in the inclusion of Bureau will also determine if these census blocks a. The territory identified in the high- road and structure edges, and not the actual roads were added as a result of the relatively large cell or buildings themselves. size of the impervious surface data when overlaid density destination and along the hop or 6 The Census Bureau found in testing with the with a small or thin census block. new 2010 Census geography that a number of 8 The land cover and land use types used to 9 All initial urban area cores with a population census blocks were associated with a high degree define exempted territory are limited to only those less than 1,500 are not selected to continue the of impervious surface land cover and contiguous to that are included in or can be derived from the delineation as separate urban areas; however, these territory qualifying as urban, but fail the shape Census Bureau’s MTDB nationally, consistently, cores still are eligible for inclusion in an urban area index threshold of compactness . These elongated and with a reasonable level of accuracy. using subsequent proposed criteria and procedures.

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jump corridor has a combined overall occur, the Census Bureau will apply urbanized area to an urban cluster, or population density of at least 500 ppsm, split and merge criteria guided by the losing its urban status entirely. If it is or Census 2000 urban area boundaries to possible to maintain the urban status of b. The high-density destination to be the greatest extent possible to ensure the a Census 2000 urban area, the Census added via the hop or jump has a total continued recognition of all such Bureau will merge noncontiguous urban population of 1,000 or more. urbanized areas. All territory subject to territories in descending order of Although census blocks with a either the splitting or merging criteria population 14 until the urban area status population density greater than or equal must first qualify as urban according to threshold is met.15 to 500 ppsm, but less than 1,000 ppsm, the 2010 Census delineation criteria. After application in their entirety, the and not contiguous to qualifying The rule to retain the inventory of splitting and merging criteria will not territory containing at least one census urbanized areas that continue to prevent the formation of new urban tract or census block with a population separately qualify for the 2010 Census areas consisting of territory previously density of at least 1,000 ppsm do not does not apply to urban clusters. Urban defined as belonging to a Census 2000 qualify as part of the initial urban core, clusters may be merged with other urban area. These criteria also will not these census blocks may still qualify as urban areas. The Census Bureau retains completely prevent urban areas from urban via hops or jumps.10 previously separate urbanized areas changing urban status. because these urban areas have 6. Inclusion of Indentations 4. Inclusion of Enclaves historically developed as the functional The Census Bureau will add enclaves units of 50 years of urbanized area The Census Bureau will evaluate and (that is, nonqualifying area completely delineation. Mandating this rule for include territory that forms an surrounded by area already qualified for urban clusters would artificially impede indentation within an urban area. This inclusion as urban) within the urban these areas from merging to form recognizes that small, sparsely settled area, provided that they are surrounded urbanized areas. areas that are partially enveloped by only by land area that qualified for The Census Bureau will split a large urban territory are more likely to be inclusion in the urban area based on urban agglomeration if the affected by and integrated with population density criteria and at least agglomeration consists of urbanized contiguous urban territory. one of the following conditions is met: areas that were defined separately for To determine whether an indentation a. The area of the enclave must be less the Census 2000. Potential split should be included in the urban area, than five square miles, or locations will include territory not the Census Bureau will identify a b. All area of the enclave is qualifying as urban for the 2010 Census, closure line, defined as a straight line no surrounded by territory that qualified water features, jump or hop corridors,11 more than one mile in length, that for inclusion in the initial core, and is impervious census blocks,12 where the extends from one point along the edge more than a straight-line distance of 2.5 corridor of contiguity between the of the urban area across the mouth of miles from a land block that is not part component urbanized areas is at its the indentation to another point along of the urban area. most narrow, other geographic the edge of the urban area. 13 A census block located wholly or Additional enclaves will be identified boundaries, and/or the nearest partially within an indentation will be and included within the urban area if: location to the midpoint between the included in the urban area, if at least 75 c. The area of the enclave is less than two component urbanized areas. In all percent of the area of the block is inside five square miles, and cases, the Census Bureau will split the the closure line. The total area of those d. The enclave is surrounded by both urban agglomeration at the best possible blocks that meet or exceed the 75 land that qualified for inclusion in the location that ensures the continued percent criterion is compared to the area urban area and water, and existence of all urbanized areas defined of a circle, the diameter of which is the e. The length of the line of adjacency for the Census 2000. length of the closure qualification line. with the water is less than the length of After splitting all qualifying The territory within the indentation will the line of adjacency with the land. urbanized agglomerations into their component urbanized areas, the Census be included in the urban area if its area 5. Splitting Large Agglomerations and Bureau will examine all urban area is at least four times the area of the Merging Individual Urban Areas cores sharing territory contained within circle and less than 3.5 square miles. If the collective area of the census Population growth and redistribution the boundaries of the same urban area blocks inside the closure line does not coupled with the automated urban area previously defined for the Census 2000. meet the criteria listed above, the delineation methodology that will be The Census Bureau will merge Census Bureau will define successive used for the 2010 Census may result in qualifying urban territory if an urban closure lines within the indentation, large urban agglomerations of area defined for the Census 2000 is at starting at its mouth and working continuously developed territory that risk of changing urban status from an inward toward the base of the may encompass urban areas that were 11 The Census Bureau will remove the jump or indentation, until the criteria for defined as separate urbanized areas in hop connection if the component urban areas are inclusion are met or it is determined Census 2000. Conversely, the connected via the noncontiguous qualifying that the indentation will not qualify for delineation methodology may also territory criteria. inclusion. result in separate urbanized areas that 12 The Census Bureau may remove the entire were previously defined as belonging to connection in cases where urban areas are only 7. Inclusion of Airports contiguous via elongated census blocks qualifying a single urbanized area. If such results as urban and associated with road medians. The After all territory has been added to connection will remain intact in situations where the urban area via hop and jump 10 These isolated census blocks not contiguous to additional impervious census blocks are present. connections, enclaves, and indentations, an initial core remain eligible destinations for either 13 In situations where an incorporated place, CDP, hops or jumps. These census blocks may be or minor civil division crosses the Census 2000 included via the noncontiguous qualifying territory urbanized area boundary, the 2010 urbanized area 14 All urban territory separated solely by water criteria in an effort to capture proximate densely boundary may be modified to follow these may also be merged regardless of its population. settled territory on the urban fringe within a boundaries if it is deemed that territory qualifying 15 Nonqualifying intervening territory separating relatively larger census block that is separated from as urban belongs more to a particular urbanized the merged urban territories will be included to the initial urban area core. area. avoid the formation of noncontiguous urban areas.

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the Census Bureau will then add whole the entity’s population that is within the incorporated place or CDP, that is census blocks that approximate the specific urban area being named. The duplicated within a state, the name of territory of major airports, provided at following criteria will be used by the the county that has most of the least one of the blocks that represent the Census Bureau to determine the title of population of the largest place or MCD airport is within a distance of 0.5 miles an urban area: is appended, in parentheses, after the of the edge of qualifying urban territory. a. The most populous incorporated duplicate place name for each urban An airport qualifies for inclusion, if it is place with a population of 10,000 or area. If there is no incorporated place or currently functional and had an annual more within the urban area will be CDP name in the urban area title, the enplanement of at least 2,500 passengers listed first in the urban area title. name of the county having the largest in any year between 2001 and the last b. If there is no incorporated place total population residing in the urban year of reference in the FAA Air Carrier with a population of 10,000 or more, the area will be appended to the title. Activity Information System.16 In cases urban area title will include the name of C. Definitions of Key Terms where the qualifying airport is not the most populous incorporated place or contiguous to the qualifying urban area, CDP having at least 2,500 people in the Census Block: A geographic area the intervening nonqualifying census urban area. bounded by visible and/or invisible blocks will also be included in the Up to two additional places, in features shown on a map prepared by urban area. descending order of population size, the Census Bureau. A block is the may be included in the title of an urban smallest geographic entity for which the 8. Additional Nonresidential Urban area provided that: Census Bureau tabulates decennial Territory c. The place has 250,000 or more census count data. The Census Bureau will identify people in the urban area, or Census Designated Place (CDP): A additional nonresidential urban-related d. The place has at least 2,500 people statistical geographic entity territory that is noncontiguous, yet near in the urban area, and that population encompassing a concentration of the urban area. The Census Bureau is at least two-thirds of the urban area population, housing, and commercial recognizes the existence of large population of the most populous place structures that is clearly identifiable by commercial and/or industrial land uses in the urban area. a single name, but is not within an that are separated from an urban area by If the urban area does not contain a incorporated place. The CDPs are the a relatively thin ‘‘green buffer,’’ small place with an urban population of at statistical counterparts of incorporated amount of undeveloped territory, and/or least 2,500 people, the Census Bureau places and represent distinct, narrow census block required for will consider the name of the unincorporated communities. tabulation (such as a water feature, incorporated place, CDP, or MCD with Census Tract: A small, relatively offset boundary, road median, or area the largest total population in the urban permanent statistical geographic between a road and rail feature). The area, or a local name recognized for the division of a county defined for the Census Bureau will review all groups of area by the United States Geological tabulation and publication of Census census blocks whose members qualify Survey’s (USGS) Geographic Names Bureau data. The primary goal of the as urban via the impervious surface Information System (GNIS), with census tract program is to provide a set criteria set forth in Section 1.b, have a preference given to names also of nationally consistent, small, total area of at least 0.15 square miles,17 recognized by the United States Postal statistical geographic units, with stable and are within 0.25 miles of an urban Service (USPS). The urban area title will boundaries that facilitate analysis of area. A final review of these census include the USPS abbreviation of the data between decennial censuses. blocks and surrounding territory18 will name of each state or statistically Contiguous: A geographic term determine whether to include this equivalent entity into which the urban referring to two or more areas that are territory in an urban area. area extends. The order of the state adjacent to one another, sharing either a common boundary or at least one 9. Assigning Urban Area Titles abbreviations is the same as the order of the related place names in the urban common point. A clear, unambiguous title based on area title.19 If an MCD name is used Core Based Statistical Area (CBSA): A commonly recognized place names (outside of New England), the title also statistical geographic entity defined by helps provide context for data users, will include the name of the county in the U.S. Office of Management and and ensures that the general location which the MCD is located. Budget (OMB), consisting of the county and setting of the urban area can be If a single place or MCD qualifies as or counties associated with at least one clearly identified and understood. The the title of more than one urban area, core (urban area) of at least 10,000 title of an urban area identifies the the largest urban area will use the name population, plus adjacent counties place(s) that is (are) most populated of the place or MCD. The smaller urban having a high degree of social and within the urban area. All population area will have a title consisting of the economic integration with the core as requirements for places and minor civil place or MCD name and the direction measured through commuting ties with divisions (MCDs) apply to the portion of (North, South, East, and/or West) of the the counties containing the core. smaller urban area as it relates Metropolitan and micropolitan 16 The annual passenger boarding data only statistical areas are the two types of includes primary and nonprimary commercial geographically to the larger urban area service enplanements as defined and reported by with the same place or MCD name. CBSAs. the FAA Air Carrier Activity Information System. If any title of an urban area duplicates Enclave: A territory not qualifying as 17 The Census Bureau found in testing that the title of another urban area within the urban that is either completely individual (or groups of) census blocks with a high surrounded by qualifying urban territory degree of impervious surface land cover with an same state, or uses the name of an area less than 0.15 square miles tend to be more or surrounded by qualifying urban associated with road infrastructure features such as 19 In situations where an urban area is only territory and water. cloverleaf overpasses and multilane highway associated with one place name but is located in Exempted Territory: A territory that is medians. more than one state, the order of the state exempt from the urban area criteria 18 Additional census blocks within eighty feet of abbreviations will begin with the state within because its extent is entirely of water or the initial groups also qualifying as impervious, but which the place is located and continue in failing the shape index, are also identified for descending order of population of each state’s share an unpopulated road corridor that review. of the population of the urban area. crosses water.

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Group Quarters (GQ): A place where programs. The Master Address File states as building blocks rather than people live or stay, in a group living (MAF) is an accurate and current counties, and that is conceptually arrangement that is owned or managed inventory of all known living quarters similar to the metropolitan and by an entity or organization providing including address and geographic micropolitan statistical areas. housing and/or services for the location information. The Topologically Noncontiguous: A geographic term residents. These services may include Integrated Geographic Encoding and referring to two or more areas that do custodial or medical care, as well as Referencing (TIGER) database defines not share a common boundary or a other types of assistance, and residency the location and relationship of common point along their boundaries, is commonly restricted to those boundaries, streets, rivers, railroads, and such that the areas are separated by receiving these services. other features to each other and to the intervening territory. Hop: A connection from one urban numerous geographic areas for which Noninstitutional Group Quarters: area core to other qualifying urban the Census Bureau tabulates data from Dwelling of people who live in group territory along a road connection of 0.5 its censuses and surveys. quarters other than institutions. miles or less in length. Metropolitan Statistical Area: A core Rural: Territory not defined as urban. Impervious Surface: Man-made based statistical area (CBSA) associated Urban: Generally, densely developed surfaces, such as building roofs, roads, with at least one urbanized area that has territory, encompassing residential, and parking lots. a population of at least 50,000. A commercial, and other nonresidential Incorporated Place: A type of metropolitan statistical area comprises a urban land uses within which social governmental unit, incorporated under central county or counties containing and economic interactions occur. state law as a city, town (except in New the urbanized area, plus adjacent Urban Area: The generic term used to England, New York, and Wisconsin), outlying counties having a high degree refer collectively to urbanized areas and borough (except in Alaska and New of social and economic integration with urban clusters. York), village, or other legally the central county as measured by Urban Cluster (UC): A statistical recognized description that provides a commuting. geographic entity consisting of a densely wide range governmental services for a Micropolitan Statistical Area: A core settled core created from census tracts concentration of people within legally based statistical area (CBSA) associated or blocks and contiguous qualifying prescribed boundaries. with at least one urban cluster that has territory that together have at least 2,500 Indentation: A recess in the boundary a population of at least 10,000, but less persons but fewer than 50,000 persons. of an urban area produced by settlement than 50,000. A micropolitan statistical Urbanized Area (UA): A statistical patterns and/or water features resulting area comprises a central county or geographic entity consisting of a densely in a highly irregular urban area shape. counties containing the urban cluster, settled core created from census tracts Initial Urban Area Core: Contiguous plus adjacent outlying counties having a or blocks and contiguous qualifying territory qualifying as urban according high degree of social and economic territory that together have a minimum to population count, density, and degree integration with the central county as population of at least 50,000 persons. of impervious surface land cover. measured by commuting. Institutional Group Quarters: People Minor Civil Division (MCD): The Executive Order 12866 under formally authorized, supervised primary governmental or administrative This notice has been determined to be care or custody in institutions at the division of a county in 29 states and the not significant under Executive Order time of enumeration, who are generally, Island Areas having legal boundaries, 12866. restricted to the institution, under the names, and descriptions. MCDs care or supervision of trained staff, and represent many different types of legal Paperwork Reduction Act classified as ‘‘patients’’ or ‘‘inmates.’’ entities with a wide variety of This notice does not contain a Jump: A connection from one urban characteristics, powers, and functions collection of information subject to the area core to other qualifying urban depending on the state and type of requirements of the Paperwork territory along a road connection that is MCD. In some states, some or all of the Reduction Act, 44 United States Code, greater than 0.5 miles, but less than or incorporated places also constitute chapter 35. equal to 2.5 miles in length. MCDs. MAF/TIGER (MTDB): Database New England City and Town Area Dated:August 16, 2011. developed by the Census Bureau to (NECTA): A statistical geographic entity Robert M. Groves, support its geocoding, mapping, and that is delineated by the U.S. Office of Director, Bureau of the Census. other product needs for the decennial Management and Budget (OMB) using [FR Doc. 2011–21647 Filed 8–23–11; 8:45 am] census and other Census Bureau cities and towns in the New England BILLING CODE 3510–07–P

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