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OFFICE OF MANAGEMENT AND • What criteria should be used to A. Accounting for Residual Areas BUDGET define a set of statistical areas of B. Development of Multiple Sets of different types that together classify all Statistical Areas Alternative Approaches to Defining the territory of the Nation? C. Settlement Types Within Metropolitan Metropolitan and Nonmetropolitan and Nonmetropolitan Areas DATES: Comments must be received on Part VI. Sources Cited Areas or before February 12, 1999. Part VII. Frequently Used Terms Appendices AGENCY: Executive Office of the ADDRESSES: Written comments should A. Revised Standards for Defining President, Office of Management and be submitted to James D. Fitzsimmons, Population Division, Bureau of the Metropolitan Areas in the 1990s Budget (OMB), Office of Information B. OMB Memorandum M–94–22, ‘‘Use of and Regulatory Affairs (OIRA). Census, Washington, DC 20233–8800; Metropolitan Area Definitions’’ ACTION: Notice of intent to review the fax (301) 457–2644. C. Summary of the Conference on New Electronic Data Availability and standards currently used to define Approaches to Defining Metropolitan Comments: This Federal Register Notice metropolitan areas and to propose and Nonmetropolitan Areas is available electronically from the OMB standards for defining nonmetropolitan Part I. Background home page on the World Wide Web: areas following the 2000 census. <
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Part II. Issues Posed by the Review current MAs. Reducing the required wide range of data is available for The MA standards are reviewed for core population threshold for statistical counties, with the result that areas possible revisions before each decennial areas, however, probably still would composed of counties also have census. The current review began early leave some residual territory, the considerable data available for them. in this decade and already has included amount dependent on the core size (The range of Federal Government data commissioned research, publications, requirement. available at the county level that also is, Another approach would be to presentations, discussions, and a or could be, available for smaller areas classify areas based on a measure of conference (see Appendix C for notes is under review.) Counties also are settlement form such as population from the 1995 ‘‘Conference on New familiar to data users, and their density. This approach would account Approaches to Defining Metropolitan relatively small number may be seen as for all of the territory of the country, and Nonmetropolitan Areas’’). This although some of the resulting statistical an advantage. These issues are taken up review process has elicited the views of areas probably would be small in in more detail in Part III.D. Federal Government data providers, geographic extent, population size, or data users in the private and academic 3. What criteria should be used to both. sectors, and other analysts who use MA aggregate the geographic units into A related issue is the classification of statistical areas? data and definitions. Results to date types of locales, such as inner city, include both points of general suburban, exurban, and rural, and The current MA system is based on agreement and questions remaining to whether such types should be identified the observation that large urban centers be resolved. within metropolitan and have both form and function. The form, A. Points of General Agreement nonmetropolitan areas. The definitions or structural component—what we see of MAs in the past have not included There seems to be general agreement on the landscape—is measured using such categories. such variables as population size and on the following: 2. What geographic unit should be • density. Settlement form largely The Federal Government should used as the building block for defining continue to define standard statistical statistical areas? determines the identification of central areas at the metropolitan level. cities and central counties. The • MAs currently consist of entire Familiar components of settlement, counties, except in New England where functional component—interactions of such as those represented by today’s towns and cities form the building people and activities among places as MA definitions, should be in evidence blocks. Problems with using counties in measured by daily commuting flows—is in a new system. this capacity have been apparent since key to the identification of qualified • Revised standards should broaden the earliest discussions of MAs, as outlying counties. Substantial territorial coverage by including and revealed in this 1946 comment on the agreement exists that population density officially recognizing nonmetropolitan relative merits of the MCD-based (or possibly housing unit density) and components of the settlement system. • metropolitan district program: daily commuting continue to be the best These statistical areas should be *** [T]he metropolitan district, defined according to simplified means for defining areas consistently based on small subdivisions of a county, nationwide. At the same time, however, standards that are applied consistently comes much closer to representing the in all parts of the country using the many observers concur that both the central concept of a metropolis and its structural and functional components of same geographic building blocks. satellite territory than does the • If the revised standards define cities and their surroundings have metropolitan county or group of metropolitan and nonmetropolitan areas changed significantly since MAs were counties. The metropolitan county arose using sub-county building blocks, an first defined. These components also as a mere approximation to the associated, alternative set of county- have grown increasingly complex and metropolitan district, made necessary by based areas also is desired. difficult to measure. Part IV presents a the fact that intercensus population data classification based solely on measures B. Questions Remaining to Be Resolved were compiled on a county rather than of form (see Part IV.D), as well as other on a minor civil division basis. The use 1. What criteria should be used to define of smaller territorial units than classifications (see Parts IV.A, B, and C) areas that exhaust the territory of the metropolitan counties * * * leads to a based on a combination of measures of Nation? much more precise analysis of labor and form (to identify central cores) and One criticism of the current MA housing markets (Bureau of the Census measures of function (to identify standards is that they do not account for 1946). outlying areas integrated with the core). all of the territory of the United States. These observations are still pertinent 4. Should the definition process follow Although tremendous variation in today. Wide regional variation in county strictly statistical rules, or should it take settlement patterns exists throughout size presents a problem when into account local opinion? the country, the current system defines comparing data for different MAs. individual MAs and leaves all territory Further, the large size of some counties The current standards take local outside MAs simply as can mask smaller, densely populated opinion into account in specified ‘‘nonmetropolitan.’’ It has been clusters of settlement, so that patterns of circumstances. Application of strictly suggested that all parts of the U.S. social and economic linkages within statistical rules for definition purposes territory, from the most to the least counties are difficult to recognize. The would have the advantage of populated, should be assigned to a use of smaller geographic building minimizing ambiguity and making statistical area at the metropolitan or blocks, such as county subdivisions or definition of areas less time-consuming. nonmetropolitan level. One approach to census tracts, might help alleviate these Consideration of local opinion, account for more of the country’s problems. territory would define statistical areas Although there were critical however, can provide room for around cores of some minimum size comments, a key advantage to using accommodating some issues of local that contain less than the 50,000 counties as the geographic building significance without impairing the population minimum required by block also was apparent in the 1940s: a integrity of the system. Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices 70533
5. What should be the frequency of the immediate purposes of this countries; (4) the migration of factory updating? discussion. out-sourcing and back-office operations to low-wage countries; and (5) the speed A. Functional Integration In the past, many observers have and flexibility of global finance and argued for minimizing changes in area 1. Introduction ability to move large sums of money definitions during the course of a MAs have represented areas of urban around the world instantaneously. All decade to ensure that data bases can be of these developments suggest a change maintained consistently and influence extending beyond city limits. The concept of the MA—a core area whereby individual places and areas economically. The counter-argument is become less important than the network containing a large population nucleus, that definitions should be updated to structure itself, and small places become together with adjacent areas that have reflect changed conditions as rapidly as single nodes in a complex system of substantial measurable interactions with the data permit. The frequency of social and economic linkages created that core—relies heavily on the notion updating depends in part on decisions and organized under constantly shifting of functional integration in determining concerning basic geographic units, economic and political circumstances. geographic extent. This section criteria for aggregation, and, ultimately, These innovations point to the growing discusses metropolitan and data availability. Recent practice has interdependence of places in general nonmetropolitan area functional been to review areas annually on the and some blurring of individual place integration, identifying commuting as basis of Census Bureau population identities. estimates and special censuses. the most appropriate indicator of It is equally clear, however, that the functional integration. Nation remains the sum of many Part III. Form and Function in economic and social parts. Local and Metropolitan and Nonmetropolitan 2. Increasing Complexity of Commuting regional economies and labor markets Area Definitions Patterns continue to show different specialities The functional measure used in the and levels of performance. Local and Metropolitan and nonmetropolitan MA standards has been the daily areas have characteristics that are regional character still exists, built in journey to work. Commuting identifies part upon identification of place of structural, relating to population the extent of each MA in an equitable settlement form (population density, for residence or work and awareness of the and uncomplicated way. By establishing locality’s history and geography. instance, is a structural measure), and place-to-place links between workers’ functional, reflecting geographic The challenge in defining homes and places of employment, metropolitan and nonmetropolitan areas patterns of social and economic linkages commuting has provided a measure of that contribute to the development of an is to select appropriate functions or the economic interactions within an activities that capture economic and entire area (examples include daily area. MAs are units with distinctive commuting patterns and shopping social integration within areas and the identities based, in part, on where differences between areas. Before trips). If a metropolitan and people live and where they go to work. nonmetropolitan classification is purely reconsidering commuting as a measure Recently, however, some scholars of functional integration, the following structural, such as would be the case have suggested that as the United States with areas based solely on population section discusses alternative measures becomes more interdependent, both of spatial interaction. density (and as was the case with internally and with the rest of the metropolitan districts before 1950), then world, the concept of metropolitan 3. Alternative Measures only the degree of settlement is functional integration needs to be • The Internet provides the newest considered. Settlement form sometimes examined more closely (Berry 1995). In major medium for information flows corresponds to patterns of activity and addition, the increasing popularity of across the United States. The aspatial can serve as a surrogate for functional working at home raises questions about nature of the Internet, however, poses elements. If a system is purely the relevance of commuting in defining difficulties for measuring functional functional and defined solely by metropolitan and nonmetropolitan integration, which assumes the ability to measuring activity, then there is no areas. identify the origins and destinations of clear depiction of the urban center from Researchers (Fisher and Mitchelson flows. The origin of each Internet which influences arise and around 1981, Lewis 1983, Gordon and session—the location of the user— which activity takes place. Current MAs Richardson 1996, Dear and Flusty 1998) generally is identifiable, but the make use of both structural and have commented on the growing destination is unclear: is it the location functional measures. complexity of metropolitan form and of the service provider, the location of This portion of the Notice addresses commuting patterns. Harvey (1989) and the server on which a web page resides, the topics of functional integration, Fishman (1990) have noted changes in or the physical location of the owner of metropolitan character (structural urban form that reflect larger economic the web page? Although Internet use characteristics), central cores, and forces. These changes call into question generally involves a telephone call to a geographic units used to define the dominance of a large population specific provider location, this is only to metropolitan and nonmetropolitan center over adjacent communities that gain access to the wider web; the areas. Throughout this discussion, the have high levels of social and economic distance between the user and the phrase ‘‘metropolitan and interactions with the center. Others, like location of the owner of the accessed nonmetropolitan areas’’ means those Pressman (1985) and Castells (1989), web page is unimportant. Because the areas defined around urban centers of have identified a new, broader link between a user and a web page varying size and complexity. functional integration, citing a variety of recedes into the background, such ‘‘Metropolitan’’ refers to those areas technological innovations, including: (1) linkages defy identification as measures defined around larger cores (current the expansion of cellular phone and of functional integration between MAs have cores with at least 50,000 Internet use; (2) the global supremacy of communities. population); ‘‘nonmetropolitan’’ refers American entertainment, news, and • Telephone traffic patterns were to areas defined around smaller cores. advertising; (3) the market swings used in early MA definitions until These terminology conventions are for driven by political events in distant commuting data became more widely 70534 Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices available and standardized. Issues represented only three percent of all primarily to the attributes of the county concerning telephone service coverage workers in 1990. Ninety-seven percent as a place of work or as a home for a largely have disappeared in recent of workers still commute to work and concentration of non-agricultural decades. have separate location spheres for place- workers.’’ In practice, this has meant an • Cellular telephone systems provide of-work and place-of-residence. This emphasis primarily on population a measure of the functional extent of long-term pattern reflects the nature of density as one aspect of what makes an metropolitan and some nonmetropolitan many jobs, for instance, where service outlying county ‘‘metropolitan.’’ This areas and highlight the role played by provision is location-specific or product section addresses the suitability of highway corridors. Coverage is uneven, manufacture occurs in a fixed location. including measures of metropolitan however, due to competition between • The spatial patterns of commuting character—focusing on population companies and the spatial segregation of are more complex today than in density—in standards for defining areas different companies’ customers. previous decades, but no less important. in the next decade. Standardizing the rapidly changing The spatial structure of the urban information about users and coverage 2. Density and Other Measures of environment is less consistently Metropolitan Character areas is difficult. monocentric than was the case in the • Media markets, or penetration early part of the twentieth century. The initial inclusion of population patterns, offer an image of regions to Given the diffusion of persons and jobs density in the MA criteria reflected marketers and advertisers, but many of away from the core, commuting patterns some common, contemporary the data are proprietary and exhibit are less likely to resemble a hub-and- assumptions about U.S. settlement uneven coverage. The advent of the patterns in 1949: spoke model than a polycentric • Internet, national editions of structure of multiple employment nodes An easily understood built newspapers, and cable and satellite serving a region’s needs. The increased environment: cities were densely settled television blurs the traditionally local complexity of these patterns, however, centers of population and economic flavor of media markets. has not meant a decrease in their activity set against a backdrop of • Consumer spending could, in sparsely settled territory. importance. • principle, provide a view of the Over time, commuting patterns in Population density as a proxy for functional extent of regional and many areas have become more distance from the central business metropolitan areas. Consumer complicated to delineate. Jobs have district: population density declined as expenditure surveys, however, do not followed people out of the central city distance from an urban center increased. • Relationship of distance from the provide much data for individual (and the central county), but the urban center and population density metropolitan and nonmetropolitan areas traditional urban core, with an with social, economic, and cultural because of limited sample sizes. employment-intensive central business attributes of the population: urban and In general, these alternative measures district, still exists amidst high job rural communities, for example, were of functional integration are not as growth in suburban areas. Commuting understood to be different in useful as commuting patterns because often is multidirectional, with no single characteristics ranging from industry they: (1) sometimes depend on data that dominant flow. The net commuting flow and occupation to educational are not collected by Federal agencies between any two areas may be quite attainment and family size. and that may be subject to errors of low, while the gross flows may be • Most important, metropolitan form unknown kind and magnitude; (2) substantial. and function were invariably linked; sometimes are not generally accessible Work is still a dominant organizing that is, metropolitan territory that was by the public (i.e., the measures are activity in most people’s lives. While linked socially and economically proprietary, sometimes copyrighted or urban settlement form has changed, the necessarily had visible landscape for sale); (3) are without observations basic movement of workers traveling to characteristics and was typified by high that are evenly distributed across the a different location from where they live U.S. territory; and (4) are not relative population density. continues. The geographic extent of Five decades of urban, suburban, and measurable in terms of specific, metropolitan and nonmetropolitan areas common geographic units. exurban growth may have subsequently ‘‘depends upon the commuting range, altered the meaning of ‘‘metropolitan 4. Continued Usefulness of Commuting itself historically determined by social character.’’ Since 1949, additional Patterns as a Measure and technological conditions’’ (Harvey measures of metropolitan character— Notwithstanding criticism of 1989). The journey-to-work activity is rapid population growth, percentage of continued reliance on information about nearly universal, even as the geographic urban population, and presence of UA the daily journey to work, it remains the nature of commuting has changed in population—have been added to the most reliable and broadly available recent decades. The challenge is to standards to measure other important measure of functional integration for model and measure the current nature attributes. Up-to-date MA standards two principle reasons: of commuting patterns to delineate should continue to reflect the evolving • Commuting to work is still a metropolitan and nonmetropolitan nature of settlement patterns and significant activity for the vast majority areas. demographic characteristics in the of workers. Recent years have seen a rise B. Metropolitan Character United States. Change in this aspect of in alternative work-residence the standards is not new: for example, arrangements. Shortened or irregular 1. Introduction the 1980 MA standards eliminated a work weeks, flextime, full-and part-time Since SMAs were first defined in metropolitan character criterion work at home, and telecommuting some 1949, counties have needed to exhibit, pertaining to non-agricultural workers; or all of the time are gaining in in addition to integration (as measured the steep drop in agricultural importance. The Census Bureau by commuting), other attributes referred employment nationwide had made such reported a 55 percent increase in those to collectively as ‘‘metropolitan a criterion irrelevant. working at home between 1980 and character’’ to qualify as outlying. As the Enormous variation in population 1990, from 2.2 million to 3.4 million March 1958 MA standards noted, ‘‘The density still exists in the United States, workers. Still, those working at home criteria of metropolitan character relate from the densely populated sections of Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices 70535 some older cities to the sparsely settled integration with central cores than areas throughout the United States. If MA areas of the interior West. An increasing with higher population densities. cores were to have a minimum of share of the Nation’s population, Consequently, population density has 100,000 persons, then other sets of areas however, resides in a built environment become less relevant as a direct measure could be defined using cores of (1) at that is of neither extremely high nor of ways in which communities are least 10,000 persons and less than extremely low density. The percentage linked socially and economically. 50,000 persons, and (2) at least 50,000 of the population living in rural areas C. Central Cores persons and less than 100,000 persons. has declined from approximately 29 to Identifying coherent nonmetropolitan 24 since 1950, and the percentage of the 1. Introduction areas based around smaller population population living in central cities of Cores of metropolitan regions centers provides a potential metropolitan areas has declined from 33 continue to be vital centers of activity improvement for analysts and to 31 despite increases in the number of even as the decentralization of many researchers who are dissatisfied with a central cities. In contrast, the percentage economic and social functions system that leaves nonmetropolitan of the Nation’s population living within continues. Central business districts areas largely undifferentiated. MAs but outside central cities has contain significant clusters of doubled, from 23 to 46. The Nation’s 3. New Criteria for Defining Cores government facilities; corporate population steadily has been moving headquarters; finance, insurance, and away from landscapes of population In addition to using places and real estate firms; entertainment density extremes, both high and low. Census Bureau-defined UAs based on Population growth in complexes; and services that cater to population and population density to nonmetropolitan America is occurring these facilities. Many establishments define metropolitan or nonmetropolitan predominantly in the smaller cities and located in suburban areas provide cores, at least four other criteria could towns, particularly in areas adjacent to services to central city clients and be used. One alternative would be to use or near MAs. One consequence of this depend heavily upon them. While the housing unit density as the primary growth of intermediate density areas is core has changed over time, it remains defining characteristic. A second a blurring of many of the sharp a key component of metropolitan alternative would be to combine two differences in population density that regions. characteristics, population and The MA standards always have once existed between urban and rural employment. This would involve explicitly incorporated central cores as areas or between metropolitan and calculating ratios that compare the one of the major components in the nonmetropolitan areas. number of individuals employed in a definition of individual areas (see Table Improvements in communications geographic area to the number of technology and transportation 1). Two kinds of changes in central core requirements are under consideration— residents in the same area. The explicit infrastructure also have blunted the use of such an employment differences between high-density and changing minimum population requirements and changing criteria for measurement in the definition of a core low-density areas. In the past, would be a logical extension of the use telephones, well-paved roads, and the definition of cores. of another employment-related statistic, railroads connected rural areas with 2. Changing Minimum Population commuting patterns, to define those their urban markets, but the friction of Requirements areas that are integrated with the core. distance was much higher than today; ideas and cultural attitudes traveled One option under review would raise A third option would be to rely solely according to weekly, monthly, and the minimum population level for the on employment as the defining seasonal rhythms. definition of MA cores from 50,000 to characteristic by delineating cores on In 1949, settlement form still was 100,000. Doubling the current threshold the basis of employment density, intertwined closely with function. Areas would take into account the significant defined as the number of jobs per unit having high population densities also increase (over 100 percent) in the of area. were those that were linked closely with Nation’s population since 1930 (the first A fourth alternative would use urban centers. The 1949 SMA standards year in which the 50,000 person commuting data directly to identify were written before the construction of minimum was used in identifying cores cores as those areas that exhibit strong interstate highways and could not have of metropolitan districts) and the evidence of multi-directional anticipated the changes in commuting consequent relative decrease in the commuting. In this approach, multi- and settlement patterns brought about significance of a core of 50,000 directional commuting indicates by high-speed highways. These population. The new threshold would interdependence within the core of an highways improved access to rural, low facilitate greater comparability with urban area and could be used to define density areas that previously were another major statistical data set, the inner city and inner suburban territory. beyond the scope of most urban public use microdata samples (PUMS) Outlying territory integrated with a influences and daily commuting. With from the decennial census, which are particular core would contain mostly used extensively by researchers less expensive long distance telephone uni-directional commuting flows toward service, interstate highways providing examining metropolitan and that core and could be used to define quick and easy access to cities and nonmetropolitan issues (Fotheringham outer suburban territory. towns, satellite uplinks and commercial and Pellegrini 1996). television broadcasting nationally, and Along with an increase in minimum These different approaches to the Internet, population density is a less population size for MA cores, the defining cores of metropolitan and significant variable. Population density classification would be expanded to nonmetropolitan areas reflect changes in no longer correlates with differences in address smaller cores as well. By settlement and commuting trends, as industry, occupation, family structure, including provision for one or two well as technological improvements in and other variables to the extent that it additional sets of areas, the new geographic analysis; yet, they remain did 30 to 50 years ago. It is more standards could better account for consistent with the tradition of difficult to argue that sparsely settled gradations in population focused identifying the Nation’s large urban areas must meet different criteria of around urban centers of varying size centers. 70536 Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices
D. Geographic Building Blocks for demographic data. Because of their meaningful comparisons of Metropolitan Areas and geographic extent, however, counties demographic and economic data. Nonmetropolitan Areas can include territory and population not • Data Availability and Utility. Data functionally integrated with a specific 1. Introduction for a geographic building block should core. Sub-county entities offer greater be available from a wide variety of This section addresses the relative resolution when analyzing economic sources and should facilitate the linkage merits of various potential geographic and demographic patterns, and of various data sets. building blocks. The geographic unit increased precision when defining • Stability of Boundaries. The ability used to define metropolitan and statistical areas. These smaller units are of the geographic building block to be nonmetropolitan areas is important to at a disadvantage, however, because flexible in portraying demographic and data providers and users due to: (1) its fewer economic and demographic data economic change over time in areas is effect on the geographic extent of a series are available for sub-county important when defining and analyzing statistical area; (2) its meaningfulness in entities than for counties, and there social and economic linkages between describing economic and social would be less comparability of units communities. integration between communities; and defined on this basis with previously • Familiarity. The geographic unit (3) the ability of Federal agencies to defined metropolitan and used to define metropolitan and provide data for comparable statistical nonmetropolitan areas. nonmetropolitan areas should be areas and their components. The choice meaningful and recognizable to a wide of whether to use counties or county 2. Characteristics of the Metropolitan range of data users. subdivisions as building blocks for MAs and Nonmetropolitan Area Building was a central issue in the 1940s during Blocks Table 2 details the advantages and development of the MA program; disadvantages of using each of five resolution of the issue at that time The geographic entity used as a geographic units (counties, county favored greater availability of data over building block should have the subdivisions, census tracts, ZIP Codes, greater geographic precision in defining following characteristics: and grid cells) as building blocks in social and economic linkages. • Consistency. The geographic relation to the characteristics outlined The concerns raised in the 1940s also building block should be delineated in above. The following paragraphs are central issues in this review. a consistent fashion across the Nation. summarize the significant issues from Counties are familiar geographic units The degree to which this is the case Table 2 and discuss related issues of offering the advantage of a wider range both within a state and from one state confidentiality and data reliability. of statistically reliable economic and to another affects the ability to make BILLING CODE 3110±01±P Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices 70537 70538 Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices
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Counties. Except in New England, criteria and guidelines established by defined consistently nationwide and all counties currently are used to define the Census Bureau. Census tracts have would encompass a similar amount of MAs. Counties are well-known, with a consistent population size range territory. Although grid cells may offer boundaries that rarely change, and they (between 1,500 and 8,000, with an advantages from delineation, are useful for analyzing data over time. optimum of 4,000) to ensure statistical measurement, and analysis standpoints, Data currently are available for counties reliability of data. Census tracts vary in their lack of familiarity and relationship from a wide variety of Federal, state, size and shape and tend to reflect with geographic areas that are more real and local agencies and less frequently contemporary local settlement patterns. and familiar to people offer significant are limited by disclosure and statistical Census tracts are meant to facilitate disadvantages to their use. In addition, reliability issues than sub-county units. analysis of time-series data at a sub- adoption of grid cells would require Counties, however, are established county level, and are generally stable. data providers to convert from use of according to state laws and have as their Because they are defined in terms of current geographic entities. Selection of primary purpose the administration of population count, however, census grid cell size would require careful local government and provision of tracts are capable of portraying change consideration of confidentiality and programs and services. As a result, there over time by changing boundaries. If a statistical reliability concerns. is little consistency in population size tract increases in population, it can be and land area among counties split to form new census tracts that 3. Quality and Availability of Data throughout the United States. The large aggregate to the original boundaries. For In general, the quality of data for size of counties in the West often poses the 1990 decennial census, particular areas is related to the challenges to measuring and analyzing approximately 30 percent of all census allocation of questionnaire responses to localized shifts in population. tracts had boundary changes. Although specific geographic entities and to the County Subdivisions. County demographic data generally are statistical reliability of the data derived subdivisions currently are used to available for census tracts, a key from a sample. The geographic precision define MAs in New England, and before disadvantage is the dearth of economic of data is only as good as the 1950 were used to define metropolitan data available at the census tract level. completeness of location information districts. County subdivisions include Data for census tracts, however, are provided in the response, and the MCDs, such as towns and townships, becoming increasingly important for quality of geographic codes assigned to and census county divisions (CCDs). understanding and analyzing patterns of it. This limitation affects the ability to MCDs are governmental or home ownership and economic report data at varying levels of administrative entities defined development, as well as the general geography. according to state laws. CCDs are social and physical environment within Respondent confidentiality also must defined for statistical purposes by local metropolitan and nonmetropolitan be considered when determining which officials using nationally consistent areas. geographic area to use as a building criteria and guidelines issued by the ZIP Codes. The U.S. Postal Service block, particularly if data are to be Census Bureau. As with counties, the (USPS) establishes ZIP Codes to reported for components of population sizes and land areas of facilitate efficient mail delivery. ZIP metropolitan and nonmetropolitan county subdivisions vary both within Codes are linear rather than areal (i.e., areas. In general, the larger the number state and from one state to another. they are routes that mail carriers walk of observations (persons, households, Governmentally functioning MCDs in or drive) and as a result do not have the Northeast as well as most CCDs discrete boundaries. In some instances, establishments within a specific generally have stable boundaries; when the volume of mail is particularly industry) within a geographic entity, the elsewhere, MCD boundaries may change high, a ZIP Code may refer to a specific greater the ability to protect respondent because of annexations or mergers. building, a floor within a building, or confidentiality. Redistricting of administrative MCDs, even a specific office. Because ZIP Not all Federal data can be provided particularly in Virginia and North Codes exist for operational purposes, for every level of geography, and the Carolina, can result in substantial they can be taken out of use when the frequency with which Federal data are changes each decade. Accounting for population of an area declines or when available also can vary by level of these changes could require significant the USPS consolidates post offices. The geography. Sample size limitations for retabulations of data for metropolitan USPS, however, sometimes reuses such some demographic survey data make and nonmetropolitan areas, potentially ZIP Codes in a different location, thus survey results reliable only at higher compromising comparability of data creating a false sense of comparability if levels of geography. The diffuse nature over time. The volume of economic and used as geographic areas. Despite their of modern manufacturing processes demographic data collected and shortcomings as geographic units, ZIP renders some economic data, for published for county subdivisions Code use is, nevertheless, ubiquitous for instance the amount of value added to varies, with greater amounts available collecting and reporting information on a product at each step in the for MCDs with functioning governments demographic and economic manufacturing process, difficult to and lesser amounts for MCDs without characteristics as well as for carrying portray at levels of geography below the functioning governments and CCDs. out surveys and market analysis studies state or Nation. Data that are available Despite variations in population size that report on consumption patterns and only from the decennial census place and instability of boundaries for some lifestyle characteristics. limitations on the frequency of updating MCDs and CCDs, county subdivisions Grid Cells. Grid cells are not in use some statistical areas. The uncertain could provide a compromise between currently by Federal statistical agencies. availability of intercensal population the disadvantages posed by the If established, however, they could estimates for census tracts, and the geographic extent of counties and the provide ideal units for analyzing likelihood that tract-level commuting more limited availability of economic population change within stable data from the American Community data for some other sub-county boundaries. If relatively small in Survey will not be available for all geographic units. geographic extent, they also could be census tracts until 2008, also will affect Census Tracts. Local officials define useful in measuring population change the ability to update metropolitan and census tracts using nationally consistent across space. Grid cells would be nonmetropolitan areas. 70540 Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices
4. Summary familiarity among data users. Counties approach addresses issues raised in The choice of a building block should and census tracts, therefore, are used in Parts I and II of this Notice. focus on achieving the most precise the examples of alternative methods for All four of these approaches differ geographic delineation of metropolitan defining metropolitan and from the current (1990) MA standards in and nonmetropolitan areas possible, nonmetropolitan areas that follow in many respects but have points in given the constraints of data availability. Part IV. common with them as well. The first Collecting, processing, and tabulating three approaches share with the current Part IV. Alternative Approaches to standards a reliance on commuting data at sub-county levels of geography Defining Metropolitan and are important technical issues that must patterns, but depart from the standards’ Nonmetropolitan Areas be resolved within individual Federal other criteria for inclusion of outlying areas in an MA. None of these three statistical agencies if a sub-county This part presents four alternative approaches uses population density, geographic unit is to be used to define approaches to defining metropolitan metropolitan and nonmetropolitan presence of urban population, or rapid and nonmetropolitan areas: (1) a population growth to evaluate outlying areas. commuting-based, county-level Counties and census tracts offer the areas. The fourth approach uses approach; (2) a commuting-based, population density as an indicator of the greatest promise as potential building census tract-level approach; (3) a blocks for metropolitan and relative intensity of social and economic directional commuting, census tract- nonmetropolitan areas based on current activity rather than attempting to level approach; and (4) a comparative availability and reliability of statistical identify individual cores or to quantify population density, county-level data, general stability of boundaries over core-outlying area relationships. approach. Table 3 summarizes how each time, consistency of definitions, and BILLING CODE 3110±01±P Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices 70541
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Although these approaches use either complex and burdened with ad hoc recognized as a consolidated counties or census tracts as the building components. This first proposed metropolitan region. blocks for statistical areas, each could be alternative approach explicitly aims to There are several advantages to this implemented using other geographic provide a simpler method of defining approach. First, counties are familiar units discussed in Part III.D. The metropolitan and nonmetropolitan geographic units for which a wide range population and commuting thresholds regions. of statistically reliable social and presented for these approaches were Four kinds of areas are identified in economic data are readily available. selected by analyzing 1990 population Second, the use of counties eases this approach: metropolitan regions, and commuting patterns but are comparison with current and past MA defined around cores of at least 100,000 intended primarily for illustrative definitions. Third, because of the greater persons; mesopolitan regions, defined purposes and are subject to modification availability of data for counties than for around cores of at least 50,000 persons based on further research and on sub-county entities, statistical area and less than 100,000 persons; and comments received in response to this definitions using counties can be Notice. In general, each approach micropolitan regions, defined around updated more frequently than others. should be read, considered, and cores of at least 10,000 persons and less The potential availability of nationwide commented upon in terms of its than 50,000 persons. Counties not annual county-level commuting data adequacy in defining and describing included in a metropolitan, from the Census Bureau’s American social and economic ties among mesopolitan, or micropolitan region will Community Survey starting in 2003 communities throughout the United constitute rural community areas. raises the possibility of reviewing all States. In this approach, counties are the definitions on an annual basis. Under building blocks (see Figure 1). While the current standards, definition activity A. A Commuting-Based, County-Level this is in keeping with the current during intercensal years is largely Approach to Defining Metropolitan and standards for most of the United States, limited to cases where new MAs can be Nonmetropolitan Areas it is a departure from current practice in designated on the basis of population The MA has been successful as a New England. Outlying counties are estimates or special censuses. standard statistical representation of the included in metropolitan, mesopolitan, There are, however, disadvantages to social and economic linkages between and micropolitan regions solely on the this approach as well. Because of their urban centers and outlying areas. This basis of commuting. Adjacent areas are geographic extent, counties can include success is evident in MAs’ continued combined when commuting rates territory and population not use across broad areas of data collection, indicate that the central counties are functionally integrated with a specific presentation, and analysis. linked socially and economically. When core. The large geographic size of some Nevertheless, some users of metropolitan regions are combined, the counties often poses challenges to metropolitan and nonmetropolitan area initial metropolitan regions are measuring and analyzing localized data have strongly expressed the view recognized as primary metropolitan shifts in populations. that the current standards are overly regions and the combined entity is BILLING CODE 3110±01±P Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices 70543
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1. Criteria for Defining Metropolitan defined before the combination will be region) qualifies as an outlying county Regions Using the Commuting-Based, designated as primary metropolitan of the other. County-Level Approach regions and the area resulting from the 3. Identification of Rural Community combination will be designated as a a. Requirement for Qualification as a Areas Metropolitan Region consolidated metropolitan region. e. Titles of Metropolitan Regions Counties not included in a Each metropolitan region must metropolitan, mesopolitan, or include a Census Bureau-defined UA of The first name in the title of a micropolitan region will form the at least 100,000 persons. metropolitan region or primary components of rural community areas. b. Identification of Central Counties of metropolitan region will be the name of Contiguous counties will be grouped a Metropolitan Region the incorporated place with the largest according to local opinion to form population in the metropolitan region. individual rural community areas The central county or counties of the The names of up to two additional metropolitan region are those counties within each state, subject to specified incorporated places that are at least one- conditions. Titles for rural community where at least 50 percent of the third the size of the largest incorporated population resides in the qualifier areas will be based on the same criteria place will be included in the used to title metropolitan, mesopolitan, UA(s), or that contain at least 50 percent metropolitan region or primary of the population of the qualifier UA(s). and micropolitan regions. metropolitan region title in order of A central county of one metropolitan descending population rank. B. A Commuting-Based, Census Tract- region cannot be included as an The title of a consolidated Level Approach to Defining outlying county in another metropolitan metropolitan region will include the Metropolitan and Nonmetropolitan region in the initial steps for defining Areas metropolitan regions (see IV.A.1.d names of up to three incorporated below). places, including the first named This second approach employs a two- incorporated places in the titles of stage process. First, it identifies c. Inclusion of Outlying Counties component primary metropolitan statistical settlement areas based around A county is included in the regions (to a maximum of three) in order cores of at least 10,000 persons and their metropolitan region as an outlying of descending population rank of associated daily influence areas. county if at least 25 percent of its incorporated places. Second, it identifies metropolitan, resident workers commute to the central 2. Criteria for Defining Mesopolitan mesopolitan, and micropolitan regions. county or counties, or at least 15 percent Regions and Micropolitan Regions Census tracts are the geographic units of its resident workers commute to the used in this approach. In the first stage, central county or counties and at least The criteria for defining mesopolitan each statistical settlement area core is 15 percent of its employment is regions and micropolitan regions are the identified and linked with all qualifying accounted for by workers residing in the same as those for defining metropolitan statistical settlement area outlying central county or counties. regions, with two exceptions: the census tracts on the basis of commuting, A county that qualifies as an outlying requirements for qualification and the creating a system of overlapping areas. county of more than one metropolitan criteria pertaining to combining Any core or outlying census tract may region will be included in the mesopolitan and micropolitan regions. be part of two or more statistical metropolitan region with which it has For the sake of brevity, only the settlement areas. This outcome is meant the highest commuting exchange. A requirements for qualification and to depict the overlapping and nested county that has a combined commuting criteria for combining adjacent nature of social and economic linkages exchange with central counties of two or mesopolitan regions and micropolitan between communities throughout the more metropolitan regions that meets or regions are presented here. United States. To account for all the exceeds the thresholds listed above, and a. Requirements for Qualification of territory of the United States, rural is contiguous with counties already Mesopolitan Regions and Micropolitan community areas are identified qualified for inclusion in those Regions representing census tracts not contained metropolitan regions, will be included within statistical settlement areas or in the metropolitan region with which Each mesopolitan region must contain their daily influence areas. it has the highest commuting exchange. no part of a metropolitan region and The second stage of this approach The counties included in the must include a Census Bureau-defined results in a non-overlapping metropolitan region must form a UA or, outside of UAs, an incorporated classification, where each statistical area continuous geographic entity. A central place of at least 50,000 persons and less is mutually exclusive of all other county of one metropolitan region than 100,000 persons. Each statistical areas (see Figure 2). Criteria cannot be classified as an outlying micropolitan area must contain no part are employed to assign each census tract county of another metropolitan region at of a metropolitan or mesopolitan region to only one metropolitan, mesopolitan, this stage in the definition process. and must include an incorporated place of at least 10,000 persons and less than or micropolitan region. Census tracts d. Combination of Adjacent 50,000 persons. not included in any of these areas are Metropolitan Regions designated as either urban-influenced or b. Combining Adjacent Mesopolitan Two adjacent metropolitan regions are rural-influenced, depending on whether Regions and Micropolitan Regions combined if a central county of one the tracts meet specified criteria relating metropolitan region qualifies as an Two adjacent mesopolitan regions (or to commuting ties with cores of outlying county of the other. If two or two adjacent micropolitan regions) are metropolitan, mesopolitan, or more metropolitan regions are combined if a central county of one micropolitan regions. combined, the metropolitan regions as mesopolitan region (or one micropolitan BILLING CODE 3110±01±P Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices 70545
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There are several advantages to this workers living in the statistical qualifier UA. A census tract that is in approach. Identifying overlapping settlement area core must work within the core of one statistical settlement area statistical areas in stage one of the the core. This last criterion ensures that and outlying to one or more other delineation process depicts the multiple places that are strictly ‘‘bedroom statistical settlement areas will be linkages among communities. Using communities’’ are not identified as cores included in the statistical settlement census tracts as building blocks offers of statistical settlement areas. area in which it is part of the core. greater resolution when analyzing social c. Qualification of Outlying Areas A census tract that qualifies for and economic patterns and increased inclusion as an outlying census tract in precision when defining statistical A census tract is included in a more than one statistical settlement area areas. Census tracts are defined statistical settlement area as an outlying will be assigned to the statistical nationwide using a consistent set of census tract if at least 25 percent of settlement area with which it has the population guidelines; they are capable resident workers in that tract commute highest level of commuting exchange. of portraying change over time and to work in the core, or if at least 25 At no time may a statistical settlement across space as their boundaries are percent of the employment in the area contain discontiguous census updated to reflect population and census tract is accounted for by workers tracts. settlement pattern changes. residing in the core. b. Combining Statistical Settlement There are disadvantages to this d. Titles of Statistical Settlement Areas approach as well. First, the limited Areas The title of a statistical settlement availability of economic and Statistical settlement areas will be area will include the name of the demographic data for census tracts at combined if the entire core of one is incorporated place with the largest this time limits their use in analysis. integrated with the entire core of the population. The names of up to two Second, it is more difficult to compare other according to the commuting additional incorporated places that are areas defined using census tracts with thresholds contained in IV.B.1.c above. MAs defined currently and in the past at least one-third the size of the largest using counties. Third, the uncertain place will be included in the statistical c. Qualification of Outlying Census availability of intercensal population settlement area title in order of Tracts in Combined Statistical estimates for census tracts and the descending population rank. Settlement Areas likelihood that tract-level commuting e. Identification of Daily Influence Areas After two or more statistical data from the Census Bureau’s settlement areas are combined, a census American Community Survey will not A census tract is included in the daily influence area of a statistical settlement tract will qualify for inclusion as an be available for all tracts until 2008 outlying census tract in the combined could result in a lack of data to update area if at least 5 percent but less than 25 percent of the resident workers in area if its commuting exchange with the areas during much of the coming combined statistical settlement area decade. As a result, metropolitan, that tract commute to work in the core of the statistical settlement area, or if at core(s) meets the criteria outlined in mesopolitan, and micropolitan regions IV.B.1.c above. could be defined after the 2000 least 5 percent but less than 25 percent decennial census, but not updated until of the employment in the census tract is d. Distinguishing Between Metropolitan 2008 or later. Fourth, tract-level accounted for by workers residing in the Regions, Mesopolitan Regions, and commuting data from the 2000 census core of the statistical settlement area. Micropolitan Regions may be less certain in some f. Identification of Rural Community Any statistical settlement area that nonmetropolitan areas (where lists of Areas contains a Census Bureau-defined UA of commercial addresses are less complete Census tracts not included in any at least 100,000 persons will be and geocoding place-of-work locations statistical settlement area or daily designated a metropolitan region. Any therefore is more difficult) than in influence area will form the components statistical settlement area not identified current MAs. These uncertainties in the of rural community areas. Contiguous as a metropolitan region will be quality of place-of-work geocoding may census tracts will be grouped according designated as a mesopolitan region if it reduce the reliability of journey-to-work to specified conditions. Titles for rural contains a Census Bureau-defined UA of data for census tracts with small community areas will be based on the at least 50,000 persons and less than numbers of commuters. same criteria used to title statistical 100,000 persons, or if outside a UA, an 1. Criteria to Establish Statistical settlement areas. incorporated place of at least 50,000 Settlement Areas and Their Daily persons. Any statistical settlement area 2. Identification of Metropolitan Influence Areas not identified as a metropolitan or Regions, Mesopolitan Regions, and mesopolitan region will be designated a. Requirement for Qualification as a Micropolitan Regions as a micropolitan region. Statistical Settlement Area Stage two in this approach provides e. Titles of Metropolitan Regions, Each statistical settlement area must criteria for identifying mutually Mesopolitan Regions, and Micropolitan include either a Census Bureau-defined exclusive metropolitan, mesopolitan, Regions UA or, outside of UAs, an incorporated and micropolitan regions, and then place of at least 10,000 persons. classifies the remaining territory as Each metropolitan, mesopolitan, or urban-influenced or rural-influenced. micropolitan region title will include b. Identification of the Central Core of the name of the incorporated place with a Statistical Settlement Area a. Assigning Territory in Individual the largest population. The names of up The core of a statistical settlement Statistical Settlement Areas to two additional incorporated places area consists of the census tract(s) in A census tract that is part of the core that are at least one-third the size of the which 20 percent or more of the of more than one statistical settlement largest place will be included in the population falls within the UA or place area will be assigned to the statistical metropolitan, mesopolitan, or identified in the previous step. In settlement area in which it has a larger micropolitan region title in order of addition, at least 70 percent of the population within the associated descending population rank. Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices 70547 f. Identification of Urban-Influenced and mesopolitan, or micropolitan region. concept can be visualized by imagining Rural-Influenced Census Tracts Any census tract that does not meet typical commuters driving toward a After all metropolitan, mesopolitan, these commuting criteria will be hypothetical center of metropolitan or and micropolitan regions are defined, classified as rural-influenced. nonmetropolitan population in the any unassigned census tract will be C. A Directional Commuting, Census morning and away from it in the identified as urban-influenced if at least Tract-Level Approach to Defining evening. This approach measures the 5 percent but less than 25 percent of the Metropolitan and Nonmetropolitan mean weighted direction of all resident workers in that tract commute Areas commuting flows from a particular tract to work in the core of a metropolitan, toward a population center, rather than mesopolitan, or micropolitan region, or The directional commuting approach measuring the percentage of workers if at least 5 percent but less than 25 also is a census tract-based system. It who commute between central cores percent of the employment in the relies on the direction and relative and outlying areas (see Figure 3). census tract is accounted for by workers strength of commuting flows to measure ′ residing in the core of a metropolitan, social and economic linkages. This BILLING CODE 3110±01±P 70548 Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices
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The spatial characteristics of region must contain no part of a then local opinion will be sought to commuting flows never have been metropolitan or mesopolitan region and determine the census tract’s assignment. explicitly incorporated into the MA must contain an incorporated place of at Metropolitan, mesopolitan, and standards, even though the links least 10,000 persons and less than micropolitan regions may not contain between residence and work are 50,000 persons. discontiguous census tracts. Under this inherently spatial. New research using approach, it is possible that the mean b. Identification of Metropolitan Region, disaggregated commuting flow data can weighted commuting flows from census Mesopolitan Region, and Micropolitan measure flow characteristics that have tracts close to a population center may Region Population Centers been observed by highway and transit point in a direction away from the planners for decades. Population centers are not cores per center and in an opposite direction of The directional approach uses the se but rather are starting points for the more remote tracts; in such instances, weighted mean direction of commuting statistical analysis of commuting flows. the central census tracts will be flows by census tract to associate census The center point used in measuring included in the metropolitan, tracts with population centers. If the directionality of commuting flows mesopolitan, or micropolitan region. weighted mean flow of a given census toward a metropolitan region is the 2. Identification of Rural Community tract is in the direction of a nearby ‘‘internal point’’ (see Part VII, Areas population center, then the tract is ‘‘Frequently Used Terms’’) of the included within the same statistical area qualifier UA of 100,000 or more Census tracts not included in a metropolitan, mesopolitan, or as that center. persons; in the case of mesopolitan micropolitan region will form the The directional approach for creating regions, the center point used is the components of rural community areas. areas has one major advantage. It can internal point of the qualifier UA of at Contiguous census tracts will be mitigate shortcomings with geocoding least 50,000 and less than 100,000 grouped according to local opinion, place-of-work data by generalizing persons, or, outside UAs, the internal subject to specified conditions, to form commuting flow. Lack of sufficient point of the most populous incorporated individual rural community areas place-of-work address information may place having at least 50,000 persons. within each state. make the geocoding of tract-level The center point used in measuring commuting data from the 2000 directionality of commuting flows D. A Comparative Density, County-Level decennial census difficult in some toward a micropolitan region is the Approach to Defining Statistical Areas nonmetropolitan areas where lists of internal point of the most populous The three approaches to defining commercial addresses are less complete incorporated place having at least metropolitan and nonmetropolitan areas than in current MAs. Uncertainties in 10,000 persons and less than 50,000 just described rely upon commuting as the quality of place-of-work geocoding persons. the measure of linkages between central may reduce the reliability of sub-county and outlying areas. Journey-to-work journey-to-work data in the absence of c. Calculation of Mean Weighted Direction of Commuting Flows data, however, do not accurately depict techniques such as directional statistical the activity patterns of people without methods. Statistical areas are delineated based a regular, fixed work location, such as Several disadvantages also are on the weighted mean direction of those who work in sales, contracting, associated with this approach. The commuting flows for census tracts with construction and landscaping trades, linkage of a census tract with a center respect to population centers. A and as day- and itinerant-laborers; also of population is subject to a specified trigonometric formula is used to missed are people who work at home (or level of angular tolerance and is subject produce a weighted mean direction of people not counted in the workforce). In as well to limitations of the commuting flow for each tract of residence. Based addition, the daily journey to work does data. Implementation of this approach at on that value, a tract is assigned to the not describe the many other, non-work the census tract-level limits annual relevant nearby population center—the activities that define relationships updating of all metropolitan, UA or place that lies directly in the path between individuals and communities, mesopolitan, and micropolitan region of the flow vector. such as trips associated with shopping, definitions using commuting data from To associate census tracts’ mean recreation, and social and religious the American Community Survey until commuting flows with population activities. at least 2008. Other disadvantages centers, it is necessary to specify an Residential population density can associated with this approach are angle of inclusion. This means serve as a surrogate for other measures similar to those outlined in the determining a level of tolerance so that of activity in the absence of nationally commuting-based, census tract-level when a directional mean flow is toward consistent and reliable data sets approach discussed above. a center of population but does not describing all daily and weekly 1. Criteria for Defining Metropolitan ‘‘hit’’ it directly, the flow is still movements of individuals. Under this Regions, Mesopolitan Regions, and associated with the center. fourth proposed approach, an index is calculated to reflect relative settlement Micropolitan Regions d. Qualification of Census Tracts for intensities of counties. The index Inclusion in a Metropolitan Region, a. Requirements for Qualification number assigned to any given county is Mesopolitan Region, or Micropolitan Each metropolitan region must determined by multiplying its Region include a Census Bureau-defined UA of population density ranking ratio at the at least 100,000 persons. Each A census tract qualifies for inclusion state level with its ranking ratio at the mesopolitan region must contain no part in a metropolitan, mesopolitan, or national level (see below). This provides of a metropolitan region and must micropolitan region if the largest flow of a relative measure of activity intensity include either a Census Bureau-defined resident workers in the census tract is for comparative purposes nationwide by UA of at least 50,000 persons and less in the direction of the metropolitan, taking into account both the national than 100,000 persons, or if outside a mesopolitan, or micropolitan region and state contexts. For instance, Natrona UA, an incorporated place of at least population center. If the flows are split County, Wyoming, which constitutes 50,000 persons. Each micropolitan evenly between two population centers, the Casper Metropolitan Statistical Area, 70550 Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices has a low overall population density intensity of activity or potential activity b. All counties within a given state are when compared with most other within a geographic area. ranked according to population density. counties in the United States, but it There are disadvantages to this The highest-density county is assigned would be assigned a value that also approach as well. The obvious the rank N, where N equals the number reflects its relative importance within drawback is that social and economic of counties in the state. The second- Wyoming. linkages between counties are not highest-density county is assigned the described directly. Also, the large land rank N–1; third-highest, N–2; and so This approach has several advantages. area of some counties tends to lower forth. For example, if there are 100 First, because the classification is based overall population densities, and as a counties in a state, then the county with solely on residential population density, result, the index value for such a county the highest population density has a each county’s index value can be would be relatively low in spite of rank of 100; the county with the second calculated quickly after 2000 decennial relatively high population densities in highest population density is 99. census population counts become some parts of the county (San c. The state ranking ratio (SRR) of available (and without waiting for the Bernardino County, California provides each county is calculated by dividing later processing of journey-to-work a good example). Because population the rank of the county by the total data). Thereafter, the classification density is calculated by dividing total number of counties in the state, using could be updated annually using Census population by total land area, local, sub- the following equation: Bureau population estimates. Second, a county variations in population SRR = N [N–1, N–2,...]/N wide range of statistically reliable social distribution patterns are not revealed. and economic data are readily available d. After assigning each county a for counties. Third, the use of counties 1. Steps in Defining Density-Based ranking ratio within the state, steps a, b, facilitates comparability with past MA Statistical Areas and c are repeated at the national level. definitions, even though this approach a. The overall residential population In this iteration, N will represent the differs markedly from the current MA density for each county is calculated by number of counties within the United standards. Fourth, population density dividing total population by total land States (see Figure 4a). can provide information about the area. BILLING CODE 3110±01±P Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices 70551
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e. Each county is assigned an index 2. Identification of Residential Density- 3. Titles of Density-Based Statistical number (I) by multiplying its state Based Statistical Areas Areas ranking ratio (SRR) and the national This approach would produce index The title of a density-based statistical ranking ratio (NRR) using the following values for all counties that can be used area will include the name of the equation: for classification into as many density- incorporated place with the largest SRR x NRR = I based levels as needed. A five-level classification that ranges between an population within that area. The names This produces an index value that can index value of 0.0 to .19 at the low end of up to two additional incorporated be used to classify and compare and a value of .80 to 1.0 at the high end places that are at least one-third the size counties throughout the United States in captures most recognizable aspects of of the largest place will be included in terms of population density, and thus the settlement pattern of the United the title in order of descending relative social and economic importance States. Contiguous counties in the same population rank. (see Figure 4b). classification level then can be BILLING CODE 3110±01±P identified as individual density-based statistical areas. Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices 70553
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Part V. Additional Issues for Part IV.B. An outlying area that does not system that would be consistent with Consideration qualify for inclusion in a metropolitan metropolitan and nonmetropolitan areas This portion of the Notice briefly or nonmetropolitan area could fall may be appropriate. Measures that could be employed in discusses a few issues that were not within the influence area of a delineating inner city, inner suburban, fully addressed in Parts I through IV. metropolitan or nonmetropolitan area. outer suburban, and exurban territory These issues are: (1) how to account for Still, the extent of residual territory is include, in some combination: residual areas or exhaust the territory of reduced rather than eliminated. A third approach involves using • median housing unit age or year of the Nation within a statistical area additional measures of social and housing unit construction; classification; (2) how best to meet data economic linkages, such as newspaper • commuting interchange with producers’ and users’ desires for both circulation, media market penetration, central core; county-based and sub-county-based and commodity flows, in addition to • directionality of commuting classifications; and (3) how to identify commuting criteria, to eliminate patterns; various settlement categories, such as residual territory. These other measures • population or housing density; and • inner city, suburban, exurban, and rural would be used as a last resort after all road density. areas, in ways that are useful when outlying areas are added to a High population density, older analyzing and understanding settlement metropolitan or nonmetropolitan area housing stock, multidirectional and economic patterns within on the basis of commuting. This commuting, and contiguity with the metropolitan and nonmetropolitan approach eliminates residual areas by inner city are typical of inner suburban areas. assigning all territory to metropolitan or areas, for example. Outer suburban areas A. Accounting for Residual Areas nonmetropolitan areas but in doing so are typified by moderate population establishes a two-tiered system of density and age of housing stock and Three of the four approaches qualification. As a result, outlying areas moderately unidirectional commuting presented in Part IV for defining within a particular metropolitan or flows. Exurban areas typically are of low metropolitan and nonmetropolitan areas nonmetropolitan area may be linked population density, but are relied on commuting patterns as a with the core, but by different criteria. distinguished from other sparsely measure of linkages between outlying settled territory by newer housing and and central areas. In all three of these B. Development of Multiple Sets of unidirectional commuting flows. approaches, however, some residual Statistical Areas Part VI. Sources Cited territory could not be linked with the Some data users have expressed an central areas. This section discusses interest in both a county-based Berry, Brian J.L. 1995. ‘‘Capturing Evolving methods for minimizing this residual classification, which offers greater Realities: Statistical Areas for the American territory when defining metropolitan availability of data, and sub-county- Future.’’ In Dahmann, Donald C. and James D. Fitzsimmons (eds.) Metropolitan and and nonmetropolitan areas. These based classifications, which offer greater methods could be used individually or Nonmetropolitan Areas: New Approaches geographic precision when defining to Geographical Definition. Working Paper in combination. metropolitan and nonmetropolitan 12. Population Division, Bureau of the One means of reducing residual areas. Data providers and users could Census. territory is to establish a minimum choose the classifications that best fit Bureau of the Census. 1946. ‘‘Report of the commuting threshold low enough to their research and analysis needs, Census Bureau Subcommittee on ensure that all or nearly all territory is guided by advice about appropriate uses Metropolitan Areas.’’ included within a metropolitan or of each classification. The substantial Castells, Manuel. 1989. The Informational nonmetropolitan area. Although this City. Oxford: Basil Blackwell. downside to this approach is the Dear, Michael and Steven Flusty. 1998. approach would result in areas that potential confusion resulting from the ‘‘Postmodern urbanism.’’ Annals of the account for all the territory of the existence of two or more parallel Association of American Geographers Vol. Nation, the necessary commuting classifications. Data providers also 88 (1): 50–72. threshold would be so low as to call into would be faced with increased costs for Fisher, James S. and Ronald L. Mitchelson. question the meaningfulness of social preparing data according to two or more 1981. ‘‘Extended and internal commuting and economic linkages between centers classifications. in the transformation of the and some outlying areas. As a result, the intermetropolitan periphery.’’ Economic C. Settlement Types Within Geography Vol. 57 (3): 189–207. conceptual integrity of metropolitan and Fishman, Robert. 1990. ‘‘America’s New nonmetropolitan areas would be Metropolitan and Nonmetropolitan Areas City,’’ The Wilson Quarterly Vol. 14: 24– compromised. 48. A second method involves identifying Data providers and users have Fotheringham, A.S. and P.A. Pellegrini. 1996. cores of varying minimum sizes around expressed a desire for official ‘‘Disaggregate Migration Modeling: A which metropolitan and classification of a variety of settlement comparison of Microdata sources from the nonmetropolitan areas are defined using types—such as inner city, inner and U.S., U.K., and Canada,’’ Area Vol. 28 (3): a commuting threshold that is outer suburb, and exurban—within 347–357. Gordon, Peter and Harry W. Richardson. sufficiently high to portray meaningful metropolitan and nonmetropolitan 1996. ‘‘Beyond polycentricity.’’ Journal of linkages. This approach does not areas. A key aspect of this issue has the American Planning Association Vol. 62 eliminate the possibility that residual been the lack of an official designation (3): 289–295. territory will remain, but reduces the of what constitutes ‘‘suburban’’ Harvey, David. 1989. The Urban Experience. extent of residual territory to a more territory. Designations of such Baltimore: The Johns Hopkins University meaningful set of areas. This approach settlement types are not essential to Press. is taken in Parts IV.A and IV.C. defining social and economic linkages Lewis, Peirce. 1983. ‘‘The geographic roots of A variant of this second approach among communities within America’s urban troubles.’’ University Park, PA: The Pennsylvania State reduces the extent of residual territory metropolitan and nonmetropolitan University, College of Earth and Mineral by defining influence zones associated areas, but they are useful for analyzing Sciences, Vol. 52 (3) with each metropolitan and and understanding settlement patterns. Pressman, N. 1985. ‘‘Forces for spatial nonmetropolitan area, as outlined in A separate settlement classification change.’’ In Brotchie, J., et al., eds. The Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices 70555
Future of Urban Form. London: Croom Internal point—A point, generally Population growth rate—The change Helm. marking the central location within a in a population during a given period, Part VII. Frequently Used Terms geographic entity. as determined by births, deaths, and net * Mesopolitan region—A geographic migration, and commonly expressed as (An asterisk (*) denotes terms proposed entity containing a core area of at least a percentage of the initial population. for the purposes of this Notice) 50,000 persons and less than 100,000 Primary metropolitan statistical area Census county division (CCD)—A persons plus adjacent communities (PMSA)—A county or group of counties statistical subdivision of a county, having a high degree of social and that meet specified statistical criteria established cooperatively by the Census economic integration with that core. and receive local opinion support for Bureau and state and local government Metropolitan area (MA)—A collective recognition as a component of a authorities, for the presentation of term, established by OMB and used for consolidated metropolitan statistical decennial census data in 21 states where the first time in 1990, to refer to area under OMB’s metropolitan area minor civil divisions either do not exist metropolitan statistical areas, standards. or are unsatisfactory for the collection, consolidated metropolitan statistical Qualifier urbanized area—The presentation, and analysis of census areas, and primary metropolitan urbanized area that results in statistics. statistical areas. qualification of a metropolitan area. Census tract—A small, relatively * Metropolitan region—A geographic * Rural community area (RCA)—A permanent statistical subdivision of a entity containing a core area of at least geographic entity containing geographic county, delineated cooperatively by 100,000 persons plus adjacent units not included within a statistical local statistical areas program communities having a high degree of settlement area, metropolitan region, participants and the Census Bureau. social and economic integration with mesopolitan region, or micropolitan Census tracts for the 2000 decennial that core. region, nor within associated influence census will have between 1,500 and Metropolitan statistical area (MSA)— areas, and defined partly in accordance 8,000 inhabitants. A geographic entity, defined by OMB for with local opinion. Central city—The largest city of a statistical purposes, containing a core * Statistical settlement area (SSA)—A metropolitan statistical area or a area with a large population center and geographic entity containing a core of at consolidated metropolitan statistical adjacent communities having a high least 10,000 persons and surrounding area, plus additional cities that meet degree of social and economic communities that are linked socially specified statistical criteria. integration with that center. Central county—The county or and economically, as measured by Qualification of an MSA requires the commuting. counties of an MA containing the largest presence of a city with 50,000 or more city or urbanized area, and to and from Urbanized area (UA)—A statistical inhabitants, or the presence of an geographic area defined by the Census which commuting is measured to urbanized area and a total population of determine qualification of outlying Bureau, consisting of a central place(s) at least 100,000 (75,000 in New and adjacent densely settled territory counties. England). MSAs are composed of entire Consolidated metropolitan statistical that together contain at least 50,000 counties, except in New England where area (CMSA)—A geographic entity people, generally with an overall the components are cities and towns. defined by OMB for statistical purposes. population density of at least 1,000 * Micropolitan region—A geographic An area becomes a CMSA if it meets the people per square mile. entity containing a core area of at least requirements to qualify as a Donald R. Arbuckle, 10,000 persons and less than 50,000 metropolitan statistical area, has a Acting Administrator, Office of Information persons plus adjacent communities population of 1,000,000 or more, and Regulatory Affairs. having a high degree of social and contains component parts that qualify as economic integration with that core. Appendix A—Revised Standards for primary metropolitan statistical areas Minor civil division (MCD)—A type of Defining Metropolitan Areas in the (PMSAs), and local opinion favors governmental unit that is the primary 1990s PMSA designation. Whole counties are legal subdivision of a county, created to components of CMSAs, except in New Part I. Overview govern or administer an area rather than England, where they are composed of Part I gives the structure of this document. a specific population. MCDs are cities and towns. Part II describes the changes from the County subdivision—A legal (minor recognized by the Census Bureau as the previous standards and the reasons for the civil division) or statistical (census county subdivisions of 28 states and the changes. Part III gives the official county division) subdivision of a District of Columbia. metropolitan area standards for the 1990s. Part IV gives a list of definitions of key terms county. New England county metropolitan area (NECMA)—County-based areas and guidelines used in the standards. The * Daily influence area (DIA)— terms in Part IV are listed in alphabetical Territory that is minimally associated defined by OMB to provide an alternative to the city-and town-based order. with a statistical settlement area. In Part III, sections 1 through 7 contain the Functional integration—The linkage metropolitan statistical areas and basic standards for defining metropolitan of geographic entities according to consolidated metropolitan statistical statistical areas in all States except the New patterns of social or economic areas in New England. England States. They specify standards for interactions. Outlying county—The county or determining: how large a population nucleus Geocoding—The practice of assigning counties that qualify for inclusion in a must be to qualify as an MSA (section 1); the data to a specific geographic location metropolitan area based on commuting central county/counties of the MSA (section and a set of geographic codes. ties with central counties and other 2); additional outlying counties with * Geographic building block—The specified measures of metropolitan sufficient metropolitan character and integration to the central county/counties to geographic unit, such as census tract, character. qualify for inclusion in the MSA (section 3); county subdivision, or county, that Population density—A measure of the the central city or cities of each MSA (section forms the basic geographic component number of people per geographic unit, 4); whether two adjacent MSAs qualify to be of a metropolitan or nonmetropolitan usually expressed in terms of people per combined (section 5); four categories or area. square mile or per square kilometer. levels of MSAs, based on the total population 70556 Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices of each area (section 6); and the title of each 7. The presence of a small portion (less (b) At least 10 percent, or at least 5,000, of MSA (section 7). than 2,500 population) of the largest city of the population lives in the qualifier Sections 8 through 10 provide a framework a CMSA in a county no longer precludes urbanized area(s); for identifying PMSAs within an MSA of at consideration of that county as a PMSA (2) From 40 to 50 percent of the employed least one million population. If such PMSAs (section 8B(4)). Such a small portion of a city workers commute to the central county/ are identified, the larger area of which they does not alter the characteristics of the counties, and either are components is designated a CMSA. PMSA. (a) The population density is at least 35 Sections 11 through 15 apply only to the 8. We have added standards for intercensal persons per square mile, or New England States. In these States, updating of metropolitan areas (section 16). (b) At least 10 percent, or at least 5,000, of metropolitan areas are composed of cities These standards existed separately, but we the population lives in the qualifier and towns rather than whole counties. felt they should be incorporated into the urbanized area(s); Sections 11, 12, and 13 specify how New published standards. (3) From 25 to 40 percent of the employed England MSAs are defined and titled. 9. Qualifying percentages and ratios are workers commute to the central county/ Sections 14 and 15 show how CMSAs and considered to one decimal and ratios on the counties and either the population density of PMSAs are defined and titled. basis of two decimals (in each case, one less the county is at least 50 persons per square Section 16 sets forth the standards for decimal than previously) (Part IV). The mile, or any two of the following conditions updating definitions between decennial previous standards implied a level of exist: censuses. accuracy that was not justified. (a) Population density is at least 35 persons Part II. Changes in the Standards for the 10. Several technical adjustments were per square mile, 1990s made (Part IV). For example, localities in (b) At least 35 percent of the population is Puerto Rico officially known as aldeas in urban, The metropolitan area standards for the 1980, are now termed comunidades. (c) At least 10 percent, or at least 5,000, of 1990s generally reflect a continuity with the population lives in the qualifier those adopted for the 1980s, and they Part III. Official Standards for Metropolitan urbanized area(s); maintain the basic concepts originally Areas (4) From 15 to 25 percent of the employed developed in 1950. The substantive Basic Standards. Sections 1 through 7 workers commute to the central county/ modifications of the standards are specified apply to all States except the six New counties,4 the population density of the below. Some other modifications have been England States, that is, Connecticut, Maine, county is at least 50 persons per square mile, made that involve word changes but not Massachusetts, New Hampshire, Rhode and any two of the following conditions also substance. Island, and Vermont. They also apply to exist: 1. Effective April 1, 1990, the set of areas 1 Puerto Rico. (a) Population density is at least 60 persons known as Metropolitan Statistical Areas per square mile, (MSAs), Primary Metropolitan Statistical Section 1. Population Size Requirements for (b) At least 35 percent of the population is Areas (PMSAs), and Consolidated Qualification urban, Metropolitan Statistical Areas (CMSAs) will Each metropolitan statistical area must (c) Population growth between the last two be designated collectively as Metropolitan include: decennial censuses is at least 20 percent, Areas (MAs). The reason for this change is to A. A city of 50,000 or more population, or 2 (d) At least 10 percent, or at least 5,000, of distinguish between the individual areas B. A Census Bureau defined urbanized area the population lives in the qualifier known as MSAs and the set of all areas. of at least 50,000 population, provided that urbanized area(s); 2. A small group of counties containing a the component county/counties of the (5) From 15 to 25 percent of the employed portion of a city’s urbanized area will now metropolitan statistical area have a total workers commute to the central county/ qualify as outlying, even though their population of at least 100,000.3 counties,4 the population density of the population density is relatively low. This county is less than 50 persons per square change allows the inclusion in metropolitan Section 2. Central Counties mile, and any two of the following conditions areas of entire urbanized areas. The central county/counties of the MSA also exist: 3. Counties included solely because they are: (a) At least 35 percent of the population is contain at least 2,500 population in a central A. Those counties that include a central urban, city now will be assigned outlying county city (see section 4) of the MSA, or at least 50 (b) Population growth between the last two rather than central county status (section percent of the population of such a city, decennial censuses is at least 20 percent, 3A(6)). This will ensure that additional provided the city is located in a qualifier (c) At least 10 percent, or at least 5,000, of outlying counties will not be designated urbanized area; and B. Those counties in the population lives in the qualifier solely because of commuting with a county which at least 50 percent of the population urbanized area(s); including a small portion of the central city. lives in the qualifier urbanized area(s). (6) At least 2,500 of the population lives in 4. The largest city, and other cities of at Section 3. Outlying Counties a central city of the MSA located in the least 15,000 in a secondary noncontiguous qualifier urbanized area(s).5 urbanized area within a metropolitan A. An outlying county is included in an B. If a county qualifies on the basis of statistical area, now may be identified as MSA if any one of the six following commuting to the central county/counties of central cities, provided that the other conditions is met: two different MSAs, it is assigned to the area requirements for central cities are met (1) At least 50 percent of the employed to which commuting is greatest, unless the (sections 4E and 4F). This allows cities that workers residing in the county commute to relevant commuting percentages are within 5 perform as central cities in secondary the central county/counties, and either points of each other, in which case local noncontiguous urbanized areas to be (a) The population density of the county is opinion about the most appropriate designated as central cities. at least 25 persons per square mile, or assignment will be considered. 5. The employment criterion for inclusion in an area title is deleted; only the population 1 Those provisions of sections 1 through 7 that are criteria remain (section 7). This change was applicable to New England are specified in the 4 Also accepted as meeting this commuting made because in 1980 only one area qualified standards relating to New England (sections 11 requirement are: based on employment. through 15). (a) The number of persons working in the county 6. A place qualifying as a central city but 2 An MSA designated on the basis of census data who live in the central county/counties is equal to with less than one-third the population of the according to standards in effect at the time of at least 15 percent of the number of employed workers living in the county; or largest city may now be included in the designation will not be disqualified on the basis of lacking a city of at least 50,000 population. (b) The sum of the number of workers commuting metropolitan statistical area title if strongly 3 An MSA designated on the basis of census data to and from the central county/counties is equal to supported by local opinion (section 7A(3)). according to standards in effect at the time of at least 20 percent of the number of employed Communities often have strong views on the designation will not be disqualified on the basis of workers living in the county. way their MSAs are titled. This change lacking an urbanized area of at least 50,000 or a 5 See section 4 for the standards for identifying allows taking these views into account. total MSA population of at least 100,000. central cities. Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices 70557
C. If a county qualifies as a central county Section 6. Levels supports separate designation, and that may under section 2 and also qualifies as an A. Each MSA defined by sections 1 include a county or counties that also could outlying county of another metropolitan area through 5 is categorized in one of the qualify as a PMSA under section 8B, also will under section 3A on the basis of commuting following levels based on total population: be considered for designation as a PMSA, to (or from) another central county, both Level A—MSAs of 1 million or more; provided: counties become central counties of a single Level B—MSAs of 250,000 to 999,999; (1) Each county meets requirements (1), (2), merged MSA. Level C—MSAs of 100,000 to 249,999; and and (4) of section 8B, and has less than 50 Level D—MSAs of less than 100,000. percent of its resident workers working Section 4. Central Cities B. Areas assigned to Level B, C, or D are outside the county; The central city/cities of the MSA are: designated as MSAs. Areas assigned to Level (2) Each county in the set has a commuting A. The city with the largest population in A are not finally designated or titled until interchange of at least 20 percent with the the MSA; they have been reviewed under sections 8 other counties in the set; and B. Each additional city with a population and 9. (3) The set of two or more contiguous of at least 250,000 or with at least 100,000 Section 7. Titles of Metropolitan Statistical counties has less than 35 percent of its persons working within its limits; Areas (MSAs) resident workers working outside its area. D. Each county in the interim Level A C. Each additional city with a population A. The title of an MSA assigned to Level of at least 25,000, an employment/residence MSA, not included within a central core B, C, or D includes the name of the largest under sections 8A through C, is assigned to ratio of at least 0.75, and at least 40 percent central city, and up to two additional city of its employed residents working in the city; the contiguous PMSA to whose central core names, as follows: commuting is greatest, provided this D. Each city of 15,000 to 24,999 population (1) The name of each additional city with commuting is: that is at least one-third as large as the largest a population of at least 250,000; (1) At least 15 percent of the county’s central city, has an employment/residence (2) The names of the additional cities resident workers; ratio of at least 0.75, and has at least 40 qualified as central cities by section 4, (2) At least 5 percentage points higher than percent of its employed residents working in provided each is at least one-third as large as the largest central city; and the commuting flow to any other PMSA the city; central core that exceeds 15 percent; and E. The largest city in a secondary (3) The names of other central cities (up to the maximum of two additional names) if (3) Larger than the flow to the county noncontiguous urbanized area, provided it containing the Level A MSA’s largest central has at least 15,000 population, an local opinion supports the resulting title. B. An area title that includes the names of city. employment/residence ratio of at least 0.75, more than one city begins with the name of E. If a county has qualifying commuting and has at least 40 percent of its employed the largest city and lists the other cities in ties to two or more PMSA central cores and residents working in the city; order of their population according to the the relevant values are within 5 percentage F. Each additional city in a secondary most recent national census.6 points of each other, local opinion is noncontiguous urbanized area that is at least C. In addition to city names, the title considered before the county is assigned to one-third as large as the largest central city contains the name of each State in which the any PMSA. of that urbanized area, that has at least 15,000 MSA is located. F. The interim PMSA definitions resulting population and an employment/residence from these procedures (including possible Standards for Primary and Consolidated ratio of at least 0.75, and that has at least 40 alternative definitions, where appropriate) Metropolitan Statistical Areas (PMSAs and percent of its employed residents working in are submitted to local opinion. Final CMSAs). the city. definitions of PMSAs are made based on Sections 8 through 10 apply to Level A these standards, and a review of local Section 5. Combining Adjacent Metropolitan metropolitan statistical areas outside New opinion. Statistical Areas England. G. If any primary metropolitan statistical Two adjacent MSAs defined by sections 1 Section 8. Qualifications for Designation of area or areas have been recognized under through 4 are combined as a single MSA Primary Metropolitan Statistical Areas sections 8 A through F, the balance of the provided: (PMSAs) Level A metropolitan statistical area, which A. The total population of the combination includes its largest central city, also is Within a Level A MSA: is at least one million, and: recognized as a primary metropolitan A. Any county or group of counties that statistical area.7 (1) The commuting interchange between was designated an SMSA on January 1, 1980, the two MSAs is equal to: will be designated a PMSA, unless local Section 9. Levels and Titles of Primary (a) At least 15 percent of the employed opinion does not support its continued Metropolitan Statistical Areas workers residing in the smaller MSA, or separate designation for statistical purposes. (b) At least 10 percent of the employed A. PMSAs are categorized in one of four B. Any additional county/counties for levels according to total population, workers residing in the smaller MSA, and which local opinion strongly supports following the standards of Section 6A. (i) The urbanized area of a central city of separate designation will be considered for B. PMSAs are titled in either of two ways: one MSA is contiguous with the urbanized identification as a PMSA, provided one (1) Using the names of up to three cities area of a central city of the other MSA, or county is included that has: in the primary metropolitan statistical area (ii) A central city in one MSA is included (1) At least 100,000 population; that have qualified as central cities of the in the same urbanized area as a central city (2) At least 60 percent of its population urban; Level A MSA under section 4, following the in the other MSA; and standards of section 7 for selection and (2) At least 60 percent of the population of (3) Less than 35 percent of its resident workers working outside the county; and sequencing; or each MSA is urban. (2) Using the names of up to three counties B. The total population of the combination (4) Less than 2,500 population of the largest central city of the Level A MSA. in the PMSA, sequenced in order from largest is less than one million and: to smallest population. (1) Their largest central cities are within 25 C. A set of two or more contiguous counties for which local opinion strongly C. Local opinion on the most appropriate miles of one another, or their urbanized areas title will be considered. are contiguous; and (2) There is definite evidence that the two 6 The largest central city included in an existing 7 areas are closely integrated with each other metropolitan area title will not be resequenced in If section 8G would result in the balance of the or displaced from that title until both its population Level A metropolitan statistical area including a economically and socially; and and the number of persons working within its limits noncontiguous county, this county will be added to (3) Local opinion in both areas supports are exceeded by those of another city qualifying for the contiguous primary metropolitan statistical area the combination. the area title. to which the county has the greatest commuting. 70558 Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices
Section 10. Designation and Titles of (3) Each additional city or town at least 50 Section 13. Applicability of Basic Standards Consolidated Metropolitan Statistical Areas percent of whose population lives in the to New England Metropolitan Statistical A. A Level A metropolitan statistical area urbanized area or a contiguous urbanized Areas in which two or more primary metropolitan area, provided at least 15 percent of its A. An area defined by sections 11 and 12 statistical areas are identified by section 8 is resident employed workers work in the qualifies as a metropolitan statistical area if designated a consolidated metropolitan largest city in the urbanized area plus any it contains a city of at least 50,000 population statistical area. If no primary metropolitan additional central cities qualified by section or has a total population of at least 75,000.10 statistical areas are defined, the Level A area 11A(2).8 B. The area’s central cities are determined remains a metropolitan statistical area, and is B. Zone B comprises each city or town that according to the standards of section 4. titled according to section 7. has: C. Two adjacent New England B. Consolidated metropolitan statistical (1) At least 50 percent of its population metropolitan statistical areas are combined as areas are titled according to the following living in the urbanized area or in a a single metropolitan statistical area provided guidelines. Local opinion is always sought contiguous urbanized area; and the conditions of section 5A are met. Section before determining the title of a consolidated (2) At least 15 percent of its resident 5B is not applied in New England. metropolitan statistical area. employed workers working in Zone A.8 D. Each New England metropolitan (1) The title of each area includes up to C. The central core comprises Zone A, statistical area defined by sections 13A three names, the first of which is always the Zone B, and any city or town that is through C is categorized in one of the four name of the largest central city in the area. physically surrounded by Zones A or B, levels specified in section 6A. Areas assigned A change in the first-named city in the title except that cities or towns that are not to Level B, C, or D are designated as will not be made until both its population contiguous with the main portion of the metropolitan statistical areas. Areas assigned and the number of persons working within central core are not included. to Level A are not finally designated until its limits are exceeded by the those of D. If a city or town qualifies under sections they have been reviewed under sections 14 another city in the consolidated area. 11A through C for more than one central and 15. (2) The preferred basis for determining the core, it is assigned to the core to which E. New England metropolitan statistical two remaining names is: commuting is greatest, unless the relevant areas are titled according to the standards of (a) The first city (or county) name that commuting percentages are within 5 points section 7. appears in the title of the remaining primary of each other, in which case local opinion as metropolitan statistical area with the largest Section 14. Qualification for Designation of to the most appropriate assignment also is Primary Metropolitan Statistical Areas total population; and considered. (b) The first city (or county) name that (PMSAs) appears in the title of the primary Section 12. Outlying Cities and Towns The following are qualifications within a metropolitan statistical area with the next A. A city or town contiguous to a central Level A metropolitan statistical area in New largest total population. core as defined by section 11 is included in England: (3) A regional designation may be its metropolitan statistical area if: A. Any group of cities and towns that was substituted for the second and/or third names (1) It has a population density of at least recognized as a standard metropolitan in the title if there is strong local support and 60 persons per square mile and at least 30 statistical area on January 1, 1980, will be the proposed designation is unambiguous percent of its resident employed workers recognized as a primary metropolitan and suitable for inclusion in a national work in the central core; or statistical area, unless local opinion does not standard. (2) It has a population density of at least support its continued separate recognition for statistical purposes. Standards for New England 100 persons per square mile and at least 15 percent of the employed workers living in the B. Any additional group of cities and/or In the six New England States of city or town work in the central core.9 towns for which local opinion strongly Connecticut, Maine, Massachusetts, New B. If a city or town has the qualifying level supports separate recognition will be Hampshire, Rhode Island, and Vermont, the of commuting to two different central cores, considered for designation as a primary cities and towns are administratively more metropolitan statistical area, if: it is assigned to the metropolitan statistical important than the counties, and a wide (1) The total population of the group is at area to which commuting is greatest, unless range of data is compiled locally for these least 75,000; the relevant commuting percentages are entities. Therefore, the cities and towns are (2) It includes at least one city with a within 5 points of each other, in which case the units used to define metropolitan areas in population of 15,000 or more, an local opinion as to the most appropriate these States. The New England standards are employment/residence ratio of at least 0.75, assignment also is considered. based primarily on population density and and at least 40 percent of its employed C. If a city or town has the qualifying level commuting. As a basis for measuring residents working in the city; of commuting to a central core, but has commuting, a central core is first defined for (3) It contains a core of communities, each greater commuting to a nonmetropolitan city each New England urbanized area. of which has at least 50 percent of its or town, it will not be assigned to any In New England, there is an alternative population living in the urbanized area, and county-based definition of MSAs known as metropolitan statistical area unless the which together have less than 40 percent of the New England County Metropolitan Areas relevant commuting percentages are within 5 their resident workers commuting to jobs (NECMAs) (see Part IV). points of each other, in which case local outside the core; and opinion as to the most appropriate (4) Each community in the core also has: Section 11. New England Central Cores assignment will also be considered. (a) At least 5 percent of its resident workers A central core is determined in each New working in the component core city England urbanized area through the is equal to at least 15 percent of the employed identified in section 14B(2), or at least 10 definition of two zones. workers living in the subject city or town; or percent working in the component core city A. Zone A comprises: (b) The sum of the number of workers commuting or in places already qualified for this core; (1) The largest city in the urbanized area; to and from the specified city or area is equal to this percentage also must be greater than that (2) Each additional place in the urbanized at least 20 percent of the employed workers living to any other core or to the largest city of the in the subject city or town. area or in a contiguous urbanized area that Level A MSA; and 9 This commuting requirement is also considered qualifies as a central city under section 4, (b) At least 20 percent commuting provided at least 15 percent of its resident to have been met if: (a) The number of persons working in the city or interchange with the component core city employed workers work in the largest city in together with other cities and towns already 8 town who live in the central core is equal to at least the urbanized area; 15 percent of the employed workers living in the city or town. 10 A New England metropolitan statistical area 8 Also accepted as meeting this commuting (b) The sum of the number of workers commuting designated on the basis of census data according to requirement are: to and from the central core is equal to at least 20 standards in effect at the time of designation will (a) The number of persons working in the subject percent of the employed workers living in the city not be disqualified on the basis of lacking a total city or town who live in the specified city or area or town. population of at least 75,000. Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices 70559 qualified for the core; this interchange also Section 16. Intercensal Metropolitan Area statistical area, or consolidated metropolitan must be greater than with any other core or Changes statistical area may be altered to include the with the largest city of the Level A MSA. A. Definitions. name of a place that has newly qualified as C. Contiguous component central cores (1) A Census Count is a special census a central city on the basis described in may be merged as a single core if: conducted by the U.S. Bureau of the Census section 16D, and that also meets the (1) Section 14B would qualify the or a decennial census count updated to requirements of section 7. Such a change is component core city of one core for inclusion reflect annexations and boundary changes made by adding the new name at the end of in the other core; and since the census. the existing title, but cannot be made if the (2) There is substantial local support for (2) A Census Bureau Estimate is a title already contains three names. Names in treating the two as a single core. population estimate issued by the U.S. area titles are not resequenced except on the D. Each city or town in the interim Level Bureau of the Census for an intercensal year. basis of a decennial census. A MSA not included in a core under sections B. Qualification for Designation of a F. Other aspects of the metropolitan area 14A through C is assigned to the contiguous Metropolitan Statistical Area. The definitions are not subject to change between PMSA to whose core its commuting is qualifications for designation are as follows: censuses. greatest, if: (1) A city reaches 50,000 population Part IV. General Procedures and Definitions (1) This commuting is at least 15 percent according to a Census Count or Census This part specifies certain important of the place’s resident workers; and Bureau Estimate. guidelines regarding the data and procedures (2) The commuting interchange with the (2) A nonmetropolitan county containing used in implementing the standards. It also core is greater than with the Level A MSA’s an urbanized area (UA) defined by the gives definitions for ‘‘city,’’ ‘‘urbanized area,’’ largest city. Bureau of the Census at the most recent and other key terms. E. If a city or town has qualifying decennial census reaches 100,000 population commuting ties to two or more cores and the according to a Census Count or Census General Procedures Bureau Estimate. If the potential relevant values are within 5 percentage Local Opinion. Local opinion is the points of each other, local opinion is metropolitan statistical area centered on the urbanized area consists of two or more reflection of the views of the public on considered before the place is assigned to any counties, their total population must reach specified matters relating to the application PMSA. 100,000. In New England, the cities and of the standards for defining metropolitan F. The interim PMSA definitions resulting towns qualifying for the potential areas, obtained through the appropriate from these procedures (including possible metropolitan statistical area must reach a congressional delegation, and considered alternative definitions, where appropriate) total population of 75,000. after the thresholds in the statistical are submitted to local opinion. Final (3) The Census Bureau defines a new standards have been met. Members of the definitions of PMSAs are made based on urbanized area based on a Census Count after congressional delegation will be urged to these standards, and a review of local the decennial census, and the potential contact a wide range of groups in their opinion. metropolitan statistical area containing the communities, including business or other G. If any primary metropolitan statistical urbanized area meets the population leaders, Chambers of Commerce, planning area or areas have been recognized under requirements of section 16.B(2). commissions, and local officials, to solicit sections 14A through F, the balance of the If a metropolitan statistical area is qualified comments on specified issues. OMB will Level A metropolitan statistical area, which intercensally by a Census Bureau Estimate, consider all pertinent local opinion material includes its largest city, also is recognized as the qualification must be confirmed by the on these matters in determining the final a primary metropolitan statistical area. 11 next decennial census, or the area is definition and title of the area. After a disqualified. decision has been made on a particular Section 15. Levels and Titles of Primary C. Addition of Counties. Counties are not matter, OMB will not again request local Metropolitan Statistical Areas and added to metropolitan statistical areas opinion on the same question until after the Consolidated Metropolitan Statistical Areas between censuses, except as follows: next national census. in New England (1) If a central city located in a qualifier Local opinion is considered for: A. New England primary metropolitan urbanized area extends into a county not (a) Combining two adjacent metropolitan statistical areas are categorized in one of four included in the metropolitan statistical area statistical areas (of less than one million levels according to total population, and the population of the portion of the city population) whose central cities are within following section 6A. in the county reaches 2,500 according to a 25 miles of each other (section 5B). B. New England primary metropolitan Census Count, then the county qualifies as an (b) Metropolitan statistical area titles statistical areas are titled using the names of outlying county and is added to the (section 7A(3)). up to three cities in the primary area that metropolitan statistical area. (c) Identifying primary metropolitan have qualified as central cities under section (2) If a metropolitan statistical area statistical areas within consolidated 4, following the standards of section 7 for qualified intercensally under section 16B metropolitan statistical areas (sections 8 and selection and sequencing. meets the requirements of section 5B for 14). C. Each Level A metropolitan statistical combination with a metropolitan statistical (d) Titling primary metropolitan statistical area in New England in which primary area already recognized, that combination areas (sections 9 and 15). metropolitan statistical areas have been may take place and thereby alter the (e) Titling consolidated metropolitan identified and supported by local opinion definition of the existing metropolitan statistical areas after identification of the (according to section 14) is designated a statistical area. largest city (sections 10 and 15). consolidated metropolitan statistical area. D. Qualification for Designation of a (f) Assignment of a county or place that, Titles of New England consolidated Central City. A Census Count serves to based on commuting, is eligible for inclusion metropolitan statistical areas are determined qualify a central city (section 4) that has in more than one area (sections 3B, 8E, 11D, following the standards of section 10. A failed to qualify solely because its population 12B and 12C, and 14E). Level A metropolitan statistical area in which was smaller than required—for example, it New England County Metropolitan Areas no primary metropolitan statistical areas did not qualify as the largest city of the (NECMAs). The New England County have been defined is designated a metropolitan statistical area (section 4A), or Metropolitan Areas (NECMAs) provide an metropolitan statistical area, and is titled was below 250,000 (4B), below 25,000 (4C), alternative to the official city-and-town-based according to the rules of section 7. or below 15,000 (4D–F). If qualification metropolitan statistical areas in that region requires comparison with the population of for the convenience of data users who desire another city, comparison is made with the a county-defined set of areas. 11 If section 14G results in the balance of the latest available Census Bureau Estimate or The NECMA for a metropolitan statistical Level A metropolitan statistical area including a noncontiguous city or town, this place will be Census Count of the population of the other area includes: added to the contiguous primary metropolitan city. 1. The county containing the first-named statistical area to which it has the greatest E. Area Titles. The title of a metropolitan city in the metropolitan statistical area title. commuting. statistical area, primary metropolitan In some cases, this county will contain the 70560 Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices first-named city of one or more additional government; in Puerto Rico, any place number of persons working within its limits metropolitan statistical areas. recognized as a zona urbana or a comunidad are exceeded by those of another city in the 2. Each other county which has at least half by the Bureau of the Census in consultation area. of its population in the metropolitan with the Commonwealth government. Outcommuting—The number (or percent) statistical area(s) whose first-named cities are (Hawaii and Puerto Rico do not have legally or workers living in a specified area, such as in the county identified in step 1. defined cities corresponding to those of most a city or a county, whose place of work is The NECMA for a consolidated States.) located outside that area. metropolitan statistical area also is defined (c) Any township in Michigan, Minnesota, Qualifier Urbanized Area—The qualifier by the above rules, except that the New New Jersey, or Pennsylvania, and any town urbanized area(s) for a metropolitan England portion of the consolidated in the New England States, New York, or statistical area are: metropolitan statistical area which includes Wisconsin, at least 90 percent of whose 1. The urbanized area that resulted in New York City is used as the basis for population is classified by the Bureau of the qualification under section 1B or the defining a separate NECMA. No NECMAs are Census as urban, provided it does not contain urbanized area containing the city that defined for individual primary metropolitan any part of a dependent incorporated place. resulted in qualification under section 1A. statistical areas. Commuting Interchange—The commuting 2. Any other urbanized area whose largest The central cities of a NECMA are those interchange between two areas is the sum of city is located in the same county as the cities in the NECMA that qualify as central the number of workers who live in either of largest city of the urbanized area identified cities of a metropolitan statistical area or the areas but work in the other. in paragraph one above, or has a least 50 consolidated metropolitan statistical area; County—For purposes of the standards, the percent of its population in that county. some central cities may not be included in term ‘‘county’’ includes county equivalents, Secondary Noncontiguous Urbanized any NECMA title. such as parishes in Louisiana and boroughs Area—An additional urbanized area within a The title of the NECMA includes each city and census areas (formerly census divisions) metropolitan statistical area that has no in the NECMA that is the first-named title in Alaska. Certain States contain cities that common boundary of more than a mile with city of a metropolitan area, in descending are independent of any county; such the main urbanized area around which the order of metropolitan statistical area (or independent cities in Maryland, Missouri, metropolitan statistical area is defined. primary metropolitan statistical area) total and Nevada are treated as county equivalents Standard Metropolitan Statistical Area— population. Other cities that appear in for purposes of the standards. The term used from 1959 to 1983 to describe metropolitan area titles are included only if In Virginia, where most incorporated the statistical system of metropolitan areas, the resulting NECMA title would consist of places of more than 15,000 are independent and the areas as individually defined. It was no more than three names. of counties, the standards usually regard each preceded by Standard Metropolitan Area Levels for NECMAs are determined such city as included in the county from (SMA) from 1950 to 1959, and superseded by following section 6A of the official which it was originally formed, or primarily Metropolitan Statistical Area in 1983. That metropolitan area standards. formed. In certain exceptional cases, the city term was adopted when the current system Percentages, Densities, and Ratios. itself is treated as a county equivalent, as formally recognizing consolidated Percentages and densities are computed to follows: metropolitan statistical areas and their the nearest tenth (one decimal); ratios are (a) An independent city that has absorbed component primary metropolitan statistical computed to the nearest one hundredth (two its parent county (Chesapeake, Hampton, areas was put in place. The term decimals); and comparisons between them Newport News, Suffolk, Virginia Beach); and Metropolitan Area (MA) is used to describe are made on that basis. (b) An independent city associated with an the system and the areas collectively, but the Populations. In general, the population urbanized area other than the one with which individual areas will retain the MSA, CMSA, data required by the standards are taken from its parent county is primarily associated (for and PMSA nomenclature. the most recent national census. However, in example, Colonial Heights). Urban—The Bureau of the Census certain situations either (1) the results of a A county included in a metropolitan area classifies as urban: (a) The population living in urbanized special census taken by the Bureau of the is either a central (section 2), or an outlying areas; plus Census, or (2) a population estimate (section 3) county. An outlying county must (b) The population in other incorporated or published by the Bureau of the Census may be contiguous with a central county or with census designated places of at least 2,500 be used to meet the requirements of the an outlying county that has already qualified population at the most recent national standards (section 16). for inclusion. census. Review of Cutoffs and Values. OMB has Employment/Residence Ratio—This ratio Urbanized Area—An area defined by the promulgated these standards with the advice is computed by dividing the number of Bureau of the Census according to specific of the Federal Executive Committee on persons working in the city by the number criteria, designed to include the densely Metropolitan Areas, following an open of resident workers with place of work reported. (These items are taken from the settled area around a large place. The period of public comment. After the 1990 definition is based primarily on density most recent national census.) For example, a decennial census data become available, the rather than governmental unit boundaries. city with an equal number of jobs and Federal Executive Committee will review the An urbanized area must have a total working residents has an employment/ census data and their implications for the population of at least 50,000. (See qualifier residence ratio of 1.00. cutoffs and values used in the standards, and urbanized area and secondary noncontiguous Interim Area—An area that meets the will report to OMB the results of its review. urbanized area). requirements of sections 1 through 4, or Definitions of Key Terms sections 11 through 13, for metropolitan Appendix B—OMB Memorandum M– Central Core—The counties (or cities and statistical area qualification, which needs to 94–22, ‘‘Use of Metropolitan Area towns in New England) that are eligible for be further examined to determine: (1) if it Definitions’’ initial delineation as primary metropolitan qualifies for combination with any adjacent statistical areas because they meet specified interim area, (2) its final level, based on May 5, 1994 population and commuting criteria. population; and (3) if the area has 1 million M–94–22 City—The term ‘‘city’’ includes: or more population, the identification of MEMORANDUM FOR HEADS OF (a) Any place incorporated under the laws primary metropolitan statistical areas, if any, DEPARTMENTS AND AGENCIES of its State as a city, village, borough (except and the preferences, expressed through local FROM: Leon E. Panetta in Alaska), or town (except in the New opinion, for consolidated or individual SUBJECT: Use of Metropolitan Area England States, New York, and Wisconsin). identity. Definitions These comprise the category of incorporated Largest Central City—The largest central On December 28, 1992, the Office of places recognized in Bureau of the Census city of a metropolitan area is the central city Management and Budget issued revised publications. with the greatest population at the time of the metropolitan area (MA) definitions to reflect (b) In Hawaii, any place recognized as a initial metropolitan area designation. Once shifts in population and other demographic census designated place by the Bureau of the determined, the largest central city will not changes that had occurred during the Census in consultation with the State be replaced until both its population and the preceding decade. At the time the revisions Federal Register / Vol. 63, No. 244 / Monday, December 21, 1998 / Notices 70561 were announced, we provided guidance of the Office of Management and Budget’s data-are available and usable for specific (OMB Bulletin 93–05) to Federal departments metropolitan area standards review that is to purposes. Population and housing density and agencies concerning the use of MA be completed by spring 2000. The conference data are useful for some purposes within the definitions for statistical purposes. provided an open forum for discussion of definition task. Employment density also During the past year, we have received a proposed alternative approaches to defining received mention. substantial number of letters from Members metropolitan and nonmetropolitan areas, as Should there be hierarchies or multiple of Congress, local government officials, and well as discussion of the current others involved with administering various metropolitan area standards. Presentations of sets of areas? As already noted, there were Federal programs. For the most part, their findings from four commissioned studies of comments favoring use of different correspondence has been related to alternative approaches to defining areas were geographic units to define sets of areas that nonstatistical uses of the MA definitions in the centerpiece of the conference. Papers would be available for different purposes. the allocation of Federal program funds. from these studies were published in There also was discussion—without any Their concerns have highlighted the need to Metropolitan and Nonmetropolitan Areas: clear outcome—of classifying entities within reiterate the purposes for which OMB defines New Approaches to Geographical Definition, a nationwide metropolitan/nonmetropolitan metropolitan areas and our advice with Population Division Working Paper No. 12, definition framework into such categories as respect to other uses agencies may make of Bureau of the Census. these definitions. inner city and suburban. The metropolitan area classification Conference Points of General Agreement What kinds of areas should receive official provides a nationally consistent set of • The Federal Government should define recognition? Inner city, suburban, and definitions suitable for collecting, tabulating, standard metropolitan and nonmetropolitan exurban all received mention as areas that and publishing Federal statistics. The areas. should be recognized within metropolitan definitions of metropolitan areas are • The metropolitan and nonmetropolitan and nonmetropolitan areas, but this issue established and maintained solely for areas defined should cover the entire was not fully addressed. statistical purposes. In periodically reviewing territory of the United States and better Should a new system provide nationwide and revising the MA definitions, OMB does account for the full range of settlement territorial coverage? There was strong not take into account or attempt to anticipate patterns than do the current, dichotomous agreement that the areas defined should any nonstatistical uses that may be made of metropolitan areas and nonmetropolitan cover the Nation’s entire territory. the definitions, nor will OMB modify the residual. definitions to meet the requirements of any • Metropolitan and nonmetropolitan areas Should the definition process follow nonstatistical program. should be defined according to the same set strictly statistical rules or allow a role for We recognize that some legislation of rules for all parts of the country. local opinion? There were reservations specifies the use of metropolitan areas for • A county-based set of metropolitan and regarding the usefulness of local opinion in programmatic purposes, including allocating nonmetropolitan areas is necessary, but also a program of standard statistical areas, but Federal funds. For example, the Health Care there should be alternative, sub-county unit- the majority view expressed was that Financing Administration uses MAs to define based areas. soliciting local opinion can serve a useful labor market areas and gather hospital wage • Familiar components of settlement— data that are used in developing a hospital purpose, particularly in providing room for including those represented by today’s accommodation on some issues of local wage index for the labor related portion of a metropolitan area definitions—should be in significance without threatening the integrity hospital’s standardized Medicare payment. evidence in a new system. The Department of Housing and Urban of the national system. The incorporation of Development’s Community Development Conference Views on Major Questions local opinion, two individuals noted, should Block Grant (CDBG) program targets 70 The conference explicitly addressed a list come early in the definition process. percent of CDBG funds to ‘‘entitlement of major questions that are fundamental to What should be the frequency of updating? communities’’ which include cities of 50,000 any set of areas defined by the Federal There was little discussion of this topic, as or more or central cities of MAs. We will Government. These same questions had been the frequency of updating depends heavily continue to work with the Congress to clarify addressed in the commissioned studies that the foundations of the metropolitan area on decisions concerning basic geographic were the centerpiece of the conference. units, criteria for aggregation, and data definitions and the resultant, often Presented here are summaries of the availability. unintended consequences of their use for conference discussions of these questions. nonstatistical purposes. What should be the basic geographic units Should the Federal Government define In cases where there is no statutory for defining areas? There was strong metropolitan and nonmetropolitan areas? requirement and an agency elects to use the consensus that there must be a county-based The overall view was strongly in favor of MA definitions in a nonstatistical program, it set of defined areas for reasons of data metropolitan and nonmetropolitan areas is the sponsoring agency’s responsibility to availability, comparability, and familiarity, being defined, although a few individuals ensure that the definitions are appropriate for but also there were comments favoring seemed to support the idea of ceasing the such use. When an agency is publishing for additional sets of areas based on sub-county Federal Government’s activity in this arena comment a proposed regulation that would units for greater precision and special use the MA definitions for a nonstatistical altogether. Areas defined by the Federal purposes. There were suggestions that purpose, the agency should seek public Government offer to a wide community of multiple sets of areas should be provided, comment on the proposed use of the MA data users the advantage of direct data along with documentation on appropriate definitions. comparability, i.e., data from different uses of those sets. There also were I would appreciate your sharing this sources for areas with the same boundaries. suggestions that the Census Bureau and the information with others in your department This advantage may rise in importance in the or agency. Office of Management and Budget should facilitate ‘‘do-it-yourself’’ definitions by face of programs shifting to states. There also Note: The latest version of OMB Bulletin making readily available as much small-area were those who argued in favor of a standard 93–05, referenced above, is OMB Bulletin No. data as possible. set of areas on the grounds that such areas 98–06, issued on June 23, 1998. What should be the criteria for aggregating were useful for non-statistical program Appendix C—Summary of the the basic units? Commuting data as obtained administration. Others noted that the absence Conference on New Approaches to from the decennial census were regarded as of a standard set of areas probably would Defining Metropolitan and the best measure for defining areas by most produce competing sets of areas from Nonmetropolitan Areas individuals addressing this question. Other different Federal agencies. data-including electronic media and This conference, held on November 29–30, newspaper market penetration data, local [FR Doc. 98–33676 Filed 12–18–98; 8:45 am] 1995 in Bethesda, Maryland, constituted part traffic study data, and wholesale distribution BILLING CODE 3110±01±P