Tuesday, August 24, 2010

Part IV

Department of Commerce Bureau of the Census

Proposed Urban Area Criteria for the 2010 Census; Notice

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DEPARTMENT OF COMMERCE SUPPLEMENTARY INFORMATION: The I. History Census Bureau’s urban-rural Over the course of a century in Bureau of the Census classification is fundamentally a defining urban areas, the Census Bureau delineation of geographical areas, has introduced conceptual and [Docket Number 100701026–0260–02] identifying both individual urban areas methodological changes to ensure that and the rural areas of the nation. The the urban-rural classification keeps pace Proposed Urban Area Criteria for the Census Bureau’s urban areas represent with changes in settlement patterns and 2010 Census densely developed territory, and with changes in theoretical and encompass residential, commercial, and AGENCY: Bureau of the Census, practical approaches to interpreting and other non-residential urban land uses. Department of Commerce. understanding the definition of urban The boundaries of this ‘‘urban footprint’’ areas. Prior to the 1950 Census, the ACTION: Notice of proposed criteria and have been defined using measures based request for public comment. Census Bureau primarily defined primarily on population counts and ‘‘urban’’ as any population, housing, and SUMMARY: This notice provides the residential population density, but also territory located within incorporated Bureau of the Census’ (hereafter, Census through criteria that account for non- places with a population of 2,500 or Bureau’s) proposed criteria for defining residential urban land uses, such as more. That definition was easy and urban areas based on the results of the commercial, industrial, transportation, straightforward to implement, requiring 2010 Decennial Census (the term ‘‘urban and open space that are part of the no need to calculate population density; area’’ as used throughout this notice urban landscape. Since the 1950 to understand and account for actual refers generically to urbanized areas of Census, when densely settled urbanized settlement patterns on the ground in 50,000 or more population and urban areas (UAs) of 50,000 or more people relation to boundaries of administrative clusters of at least 2,500 and less than were first defined, the urban area units; or to consider densely settled 50,000 population). It also provides a delineation process has addressed non- populations existing outside description of the changes from the final residential urban land uses through incorporated municipalities. For much criteria used for Census 2000. The criteria designed to account for of the first half of the twentieth century, Census Bureau is requesting public commercial enclaves, special land uses that definition was adequate for comment on these proposed criteria. such as airports, and densely developed defining ‘‘urban’’ and ‘‘rural’’ in the The Census Bureau’s urban-rural noncontiguous territory. , but by 1950 it became classification is fundamentally a In delineating urban and rural areas, clear that it was incomplete. delineation of geographical areas, the Census Bureau does not take into Increasing suburbanization, identifying both individual urban areas account or attempt to meet the particularly outside the boundaries of and the rural areas of the nation. The requirements of any nonstatistical uses large incorporated places led the Census Census Bureau’s urban areas represent of these areas or their associated data. Bureau to adopt the UA concept for the densely developed territory, and Nonetheless, the Census Bureau 1950 Census. At that time, the Census encompass residential, commercial, and recognizes that some federal and state Bureau formally recognized that densely other non-residential urban land uses. agencies use the Census Bureau’s urban- settled communities outside the The Census Bureau delineates urban rural classification for allocating boundaries of large incorporated areas after each decennial census by program funds, setting program municipalities were just as ‘‘urban’’ as applying specified criteria to decennial standards, and implementing aspects of the densely settled population inside census and other data. Since the 1950 their programs. The agencies that use those boundaries. Due to the limitations Census, the Census Bureau has the classification and data for such in technology for calculating and reviewed and revised these criteria, as nonstatistical uses should be aware that mapping population density, necessary, for each decennial census. the changes to the urban area criteria delineation of UAs was limited to cities The revisions over the years reflect the also might affect the implementation of of at least 50,000 people and their Census Bureau’s desire to improve the their programs. surrounding territory. The geographic classification of urban and rural The Census Bureau is not responsible units used to analyze settlement territory to take advantage of newly for the use of its urban-rural patterns were enumeration districts, but available data, as well as advancements classification in nonstatistical programs. to facilitate and ease the delineation in geographic information processing If a federal, tribal, state, or local agency process, each incorporated place was technology. voluntarily uses the urban-rural analyzed as a single unit—that is, the classification in a nonstatistical overall density of the place was DATES: Any comments, suggestions, or program, it is that agency’s calculated and if it met the minimum recommendations concerning the responsibility to ensure that the threshold, it was included in its entirety criteria proposed herein should be classification is appropriate for such in the UA. Outside UAs, ‘‘urban’’ was submitted in writing no later than use. In considering the appropriateness still defined as any place with a November 22, 2010. of the classification for use in a population of at least 2,500. The Census ADDRESSES: Please submit written nonstatistical program, the Census Bureau recognized the need to identify comments on the proposed criteria to Bureau urges each agency to consider distinct unincorporated communities Timothy Trainor, Chief, Geography permitting appropriate modifications of existing outside the UAs, and thus Division, U.S. Census Bureau, the results of implementing the urban- created the ‘‘census designated place’’ Washington, DC 20233–7400. rural classification specifically for the (CDP) 1 and designated those with FOR FURTHER INFORMATION CONTACT: purposes of its program. When a populations of at least 2,500 as urban. Vincent Osier, Chief, Geographic program permits such modifications, the Standards and Criteria Branch, Census Bureau urges each agency to 1 A CDP is a statistical geographic entity Geography Division, U.S. Census describe and clearly identify the encompassing a concentration of population, housing, and commercial structures that is clearly Bureau, via e-mail at different criteria being applied to avoid identifiable by a single name, but is not within an [email protected] or telephone confusion with the Census Bureau’s incorporated place. CDPs are the statistical at 301–763–9039. official urban-rural classifications. counterparts of incorporated places.

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Starting with the 1960 Census and of the criteria to delineate urban areas. necessarily qualify to be included in a continuing through the 1990 Census, the This new automated urban area UA or UC. Census Bureau made a number of delineation methodology provided for a (3) Adoption of 500 persons per changes to the methodology and criteria more objective application of criteria square mile (ppsm) as the density for defining UAs, but retained the 1950 compared to previous censuses in criterion for recognizing some types of Census basic definition of ‘‘urban,’’ which individual geographers applied urban territory. The Census Bureau which was defined as UAs with a the urban area criteria to delineate adopted a 500 ppsm population density population of 50,000 or more and urban areas interactively. This new threshold at the same time that it defined primarily on the basis of automated approach also established a adopted its automated urban area population density; and places with a baseline for future delineations to delineation methodology. This ensured population of 2,500 or more located enable the Census Bureau to provide that census blocks that might contain a outside UAs. The enhancements made comparable data for subsequent mix of residential and non-residential by the Census Bureau to the decades. urban uses, but might not have a methodology and criteria used during population density of at least 1,000 this period included: Changes for Census 2000 ppsm, could qualify for inclusion in an (1) Lowering, and eventual The Census Bureau adopted six urban area. For the 1990 Census, elimination, of minimum population substantial changes to its urban area geographers could interactively modify criteria for places that formed the criteria for Census 2000: analysis units to include census blocks ‘‘starting point’’ for delineating a UA. (1) Defining urban clusters (UCs). with low population density that might This made recognition of population Beginning with Census 2000, the Census contain non-residential urban uses, concentrations independent of the size Bureau created and implemented the while still achieving an overall of any single place within the concept of an urban cluster. Urban population density of at least 1,000 concentration. clusters are defined as areas of at least ppsm. Adoption of the lower density (2) Identification of ‘‘extended 2,500 and less than 50,000 people using threshold facilitated use of the cities’’—incorporated places containing the same residential population density- automated urban area delineation substantial amounts of territory with based criteria as applied to UAs. This methodology, and provided for very low population density, which change provided for a conceptually comparability with the 1990 were divided into urban and rural consistent, seamless classification of methodology. This change did not result components using 100 persons per in substantial increases to the extent of urban territory. For previous censuses, square mile (ppsm) as the criterion. This urban areas. the lack of a density-based approach for kept the extent of urban territory from (4) Increase in the jump distance from defining urban areas of less than 50,000 being artificially exaggerated by thinly 1.5 to 2.5 miles. The Census Bureau settled corporate annexations. people resulted in underbounding of increased the jump distance from 1.5 to (3) Implementation for the 1990 urban areas where densely settled 2.5 miles. A ‘‘jump’’ is the distance Census of nationwide coverage by populations existed outside place across territory with low population census blocks, and use of interactive boundaries or overbounding when cities density separating noncontiguous analysis of population density patterns annexed territory with low population qualifying territory from the main body at the level, or by groups density. Areas where annexation had of an urban area. The increase in the of blocks known as ‘‘analysis units,’’ lagged behind expansion of densely jump distance was a result of changing using Census Bureau-developed settled territory, or where communities planning practices that led to the delineation software. This enhancement of 2,500 up to 50,000 people were not creation of larger clusters of single-use allowed greater flexibility when incorporated and were not defined as development. In addition, research analyzing and defining potential UAs, CDPs, were most affected by the conducted prior to Census 2000 showed as opposed to using enumeration adoption of density-based UCs. As a that some jumps incorporated in UA districts and other measurement units result of this change, the Census Bureau definitions in 1990 were actually longer defined prior to data tabulation. no longer needed to identify urban than 1.5 miles as a result of the (4) Implementation of qualification places located outside UAs for the subjective identification of criteria for incorporated places and purpose of its urban-rural classification. undevelopable territory. As used in CDPs for inclusion in a UA based on the (2) Disregarding incorporated place previous censuses, only one jump was existence of a densely populated ‘‘core’’ and CDP boundaries when defining UAs permitted along any given road containing at least fifty percent of the and UCs. Taking place boundaries into connection. place’s population. This eliminated account in previous decades resulted in (5) Introduction of the hop concept to certain places from the urban area the inclusion of territory with low provide an objective basis for classification because much of their population density within UAs when recognizing small gaps within population was scattered rather than the place as a whole met minimum qualifying urban territory. For Census concentrated. population density requirements, and 2000, the Census Bureau officially For Census 2000, the Census Bureau excluded densely settled population recognized the term ‘‘hops,’’ which is took advantage of technological when the place as a whole fell below defined as gaps of 0.5 miles or less advances associated with geographic minimum density requirements. within a qualifying urban territory. information systems (GIS) and spatial Implementation of this change meant Hops are used primarily to account for data processing to classify urban and that territory with low population territory in which planning and zoning rural territory on a more consistent and density located inside place boundaries processes result in alternating patterns nationally uniform basis than had been (perhaps due to annexation, or the way of residential and non-residential possible previously. Rather than in which a CDP was defined) no longer development over relatively short delineating urban areas in an interactive necessarily qualified for inclusion in an distances. This provided for a more and manual fashion, the Census Bureau urban area. However, it also meant that consistent treatment of short gaps with developed and utilized software that non-residential urban land uses located low population density, some of which automated the examination of inside a place’s boundary and located had been treated as jumps in the 1990 population densities and other aspects on the edge of an urban area might not urban area delineation process (and not

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permitted if identified as a second datasets and continued research since analysis units (geographic building jump), while others were interpreted as the 2000 Census show the potential for blocks). For the 2010 Census delineation part of the pattern of urban development further improvements for the 2010 process, the Census Bureau proposes and grouped with adjacent, higher Census. replacing block groups with census density blocks to form qualifying II. Differences Between the Proposed tracts as the analysis unit during the analysis units. delineation of the initial urban area (6) Adoption of a zero-based approach 2010 Census Urban Area Criteria and the Census 2000 Urban Area Criteria core. Similar to the way block groups to defining urban areas. The urban area were used in 2000, if a does delineation process in previous For the 2010 Census, the Census not meet specified proposed area censuses had generally been an additive Bureau proposes moderate changes and measurement and density criteria, the process, where the boundary of a UA enhancements to the criteria to improve focus of analysis will shift to individual from the previous census providing the upon the classification of urban and census blocks within the tract, and starting point for review for the next rural areas while continuing to meet the delineation will continue at the block census. The changes made for Census objective of a uniform application of level. During the initial urban area core 2000 were substantial enough to warrant criteria nationwide. The proposed delineation (see section B.1 in the the Census Bureau to re-evaluate the changes and enhancements recognize proposed urban area criteria below for a delineation of all urban areas as if for that the Census Bureau’s urban-rural description of an initial urban area the first time, rather than simply making classification provides an important adjustments to the existing boundary. national baseline definition of urban core), the maximum size threshold for The Census Bureau adopted this zero- and rural areas. qualifying census tracts will be three based approach to ensure that all urban The following summary describes the square miles compared to the two areas were defined in a consistent differences between the Census 2000 square mile threshold adopted for block manner. urban area criteria and the urban area groups for Census 2000 (Figure 1). The six changes described above criteria proposed for the 2010 Census. Changing the urban area core represent the major modifications delineation analysis unit to the census implemented for the 2000 Census. They Use of Census Tracts as Analysis Units tract offers advantages of increased illustrate the substantial shift in in the Initial Phase of Delineation consistency and comparability, since approach adopted by the Census Bureau For the Census 2000 urban area census tracts are more likely to retain in its procedure for delineating urban delineation process, the Census Bureau their boundaries over time than block areas. However, the availability of new used blocks and block groups as groups.

Although census tracts will be used in when analyzing territory beyond the including noncontiguous territory via the delineation of initial urban area qualifying tracts, for example on the hops and jumps. cores, as in Census 2000 census blocks edge of the urban area or when Test delineations of initial cores in will continue to form the analysis units selected areas of the United States

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(Figure 2) show slight decreases in the initial analysis unit is changed from territory and only slight increases in the block group to the census tract.2 population qualifying as urban when

Table 1 provides a comparison of the number defined using census tracts. density for the cores also are provided number of cores defined using block Population, land area, and population for comparison. groups as analysis units with the

TABLE 1—COMPARISON OF INITIAL URBAN AREA CORES DEFINED USING BLOCK GROUPS OR CENSUS TRACTS AS ANALYSIS UNITS

Population Number of Population Land area density cores in cores (sq. miles) (people per (Census 2000) square mile)

Block group as analysis unit when defining cores ...... 904 42,213,521 15,027 2,809 Census tract as analysis unit when defining cores ...... 924 42,384,952 14,525 2,918

The small reduction in initial urban Maximum Distances of Jumps to the 1.5 mile maximum that was in area core territory shown by the test use from 1950 through 1990. data is due to the use of census tracts, The Census Bureau is considering Use of Land Use/Land Cover Data which are larger geographic units, and reducing the maximum jump distance to therefore less likely than block groups to 1.5 miles based on data users’ comments that the 2.5 mile distance adopted for The Census Bureau plans to use the qualify under the density requirements. the 2000 Census was too generous in newly available National Land Cover As a result, when using census tracts, some situations and resulted in the Database (NLCD) developed by the the delineation process shifts to census overextension of urban area territory. Multi-Resolution Land Characteristics block-level analysis sooner than would The Census Bureau seeks comment on Consortium to identify business districts be the case when using block groups. whether the jump distance should revert and commercial zones, located both on

2 Two initial core test delineations were geographic area, and proximity criteria used for the Both tests used Census 2000 population counts and performed for eight test delineation regions Census 2000 urban area delineation. The second geography and implemented the impervious surface covering an area of approximately 392,900 square test used the proposed criteria for the same items, and enclave criteria proposed for the 2010 Census miles. The first initial core test delineation used the but also reflected the 2010 Census proposed use of in this notice. same population count, population density, census tracts in the identification of initial cores.

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the edge and in the interior of an urban qualification criteria objectively (Figure restrict development, such as marshes, area that would not qualify as urban 3). This nationwide dataset will assist wetlands, and estuaries, which will be based on residential population the Census Bureau in identifying, and included as exempted territory. Without measures alone. The NLCD is a qualifying as urban, sparsely populated such recognition, these types of consistently defined national land cover urban-related territory associated with a undevelopable land covers would dataset 3 that would enable the Census high degree of impervious surface land otherwise prohibit two or more Bureau to add further territory to the list cover. It also will assist the Census communities to connect via a jump, of exempted territory and enforce its Bureau to identify land cover types that even though they share functional ties.

Qualification of Airports for Inclusion in Elimination of the Central Place metropolitan and micropolitan Urban Areas Concept statistical areas program.5 The list of principal cities identified by the OMB is For Census 2000, airports with an The Census Bureau proposes to quite similar to what would emerge if annual enplanement (departing discontinue identifying central places as the urban area process created a list of passengers) of 10,000 or greater part of the 2010 Census urban area central places. The Census Bureau no qualified for inclusion in an urban area delineation process. A central place is longer sees a need for a second if adjacent to other qualifying territory. the most populous place within an representation of the same concept in its For the 2010 Census, the Census Bureau urban area or any other place that meets statistical and geographic data products. proposes lowering the minimum annual specified population criteria. Starting Therefore, the Census Bureau proposes enplanement threshold to 2,500 with the 1990 Census, the identification to eliminate the use of central places in passengers to provide a better inclusion of central places was no longer the 2010 Census urban area delineation of airports, particularly those adjacent to necessary for the process of delineating criteria. urban areas. For Census 2000, the urban smaller initial urban cores. Based on Requirement for Minimum Population annual passenger boarding and all-cargo area delineation process moved away from a ‘‘place-based’’ definition of urban Residing Outside Institutional Group data published by the Federal Aviation areas, which caused some central places Quarters Administration for the 2007 calendar to be split between urban and rural The Census 2000 urban area year, lowering the enplanement territory. Moreover, the Office of delineation criteria resulted in the threshold would result in an additional Management and Budget (OMB) identification of 24 urban clusters 4 152 airports included in urban areas. identifies principal cities as part of the consisting entirely or predominantly of

3 The NLCD includes data for the entirety of the extracted from the Air Carrier Activity Information 5 See the ‘‘2010 Standards for Delineating United States, , and the U.S. Virgin System published for the 2007 calendar year reports Metropolitan and Micropolitan Statistical Areas,’’ Islands. 409 airports had an annual enplanement of at least Federal Register, Vol. 75, No. 123, Monday, June 4 The Federal Aviation Administration (FAA) 10,000 passengers in any year between 2000 and 28, 2010. annual passenger boarding and all-cargo data 2007.

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population residing in institutional agglomerations of continuously high density ‘‘corridor’’ between larger group quarters (GQs). Most of these developed territory. Although such core areas. For instance, the corridor of urban clusters comprised only the few areas do reflect the reality of high residential population density census blocks in which the institutional urbanization at one scale, the areas may between Baltimore, MD, and GQ was located. These blocks met the be cumbersome and less satisfactory for Washington, DC, was narrowest in population density requirements more localized applications. For northern Prince George’s , MD, specified in the Census 2000 criteria, example, an area of virtually continuous in the area of Beltsville, MD, and near and encompassed at least 2,500 persons. urbanization exists from northeastern the boundary between the Washington Although the population densities of Maryland through the Philadelphia area, PMSA and the Baltimore PMSA. these areas exceed the minimum central New Jersey, the New York City For the 2010 Census urban area thresholds specified in the Census 2000 area, and central Connecticut to beyond delineation process, the Census Bureau urban area criteria, and the total Springfield, MA. This area of near- proposes splitting large agglomerations populations exceed 2,500, they lack continuous urbanization encompasses along metropolitan statistical area most of the residential, commercial, and nine UAs defined for Census 2000. boundaries, resulting in the infrastructure characteristics typically Another area of continuous urbanization identification of individual UAs. In New associated with urban territory. The exists in the San Francisco Bay area, England, large agglomerations would be Census Bureau proposes that in addition including the San Francisco-Oakland, split based on the boundaries of to at least 2,500 total population, an area San Jose, and several smaller areas. metropolitan New England city and must contain at least 1,500 persons who The Census Bureau anticipates that town areas (NECTAs). In areas where an reside outside institutional GQs to many data users would find these large incorporated place or a CDP crosses the qualify as urban. agglomerations to be inconvenient for metropolitan statistical area or NECTA meaningful analysis, and therefore, boundary, the boundary splitting the Splitting Large Urban Agglomerations proposes that they be split in some large agglomeration would be modified Similar to the delineation process consistent fashion. For example, the to follow the incorporated place or CDP used for the 2000 Census, the Census Census Bureau split large boundary. The incorporated place or Bureau will use the same automated agglomerations for Census 2000 by CDP would be assigned to the resulting urban area delineation methodology for using metropolitan statistical area and UA that contains the largest proportion determining urban and rural areas in the primary metropolitan statistical area of the place’s land area (Figure 4). Urban 2010 Census. Use of this approach will (PMSA) boundaries as a guide to clusters would not be created as a result result in some exceptionally large urban identify the narrowest area along the of splitting.

This approach has the advantage of with previous decades’ criteria and outcomes—the metropolitan statistical simplicity and ease of implementation. definitions. This approach, however, area and NECTA definitions that would It also maintains some comparability results in some circularity of be used to split large agglomerations are

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those that were defined on the basis of are redefined based on 2010 Census data UAs in agglomerations of less than Census 2000 data, including Census (note, however, that inclusion in the list 1,000,000 people would be merged to 2000 urban area definitions; the 2010 below does not necessarily mean that form a single UA. If 500,000 people is UAs resulting from the splitting process contiguity will exist between two UAs adopted as the minimum threshold, will form the cores of metropolitan when redefined). The following table then all formerly separate UAs in statistical areas and NECTAs. In lists the potential agglomerations, the agglomerations of less than that addition, this approach will result in the component UAs, and the estimated threshold would be merged. Because movement of some territory and population based on the 2006–2008 UAs form the cores of metropolitan population from one UA to another. For ACS 3-year estimates (margins of error statistical areas, the merger of formerly example, the split between the are not noted in the table below; 3-year separate UAs might affect the Washington and Baltimore UAs would estimates were used because not all UAs delineation of metropolitan and occur along the Howard County, MD- met the 65,000 person threshold for micropolitan statistical areas. It is Prince George’s County, MD boundary; ACS 1-year estimates). The Census important to note that some of the territory in northern Prince George’s Bureau is considering applying a agglomerations listed below are County, MD that currently is in the 1,000,000 person minimum population contained within the same metropolitan Baltimore UA would be included in the threshold to identify agglomerations to Washington UA. The split between the be split, but seeks comment on the statistical area, and as a result, would San Francisco-Oakland and San Jose appropriate population size threshold to not be split, regardless of the threshold UAs would shift northward to follow determine which large agglomerations chosen. The agglomerations are: Dallas- the San Mateo County, CA-Santa Clara would be split. Other minimum Fort Worth; Houston-Texas City; County, CA boundary. population thresholds under Phoenix-Mesa; San Diego-Mission Viejo; Based on Census 2000 UAs, the consideration are 500,000 and 250,000. St. Louis-Alton; Pittsburgh-Uniontown- Census Bureau has identified 52 Based on 2006–2008 ACS estimates, 27 Monessen; Kansas City-Lee’s Summit; potential agglomerations consisting of of the 52 potential agglomerations have Charlotte-Gastonia-Concord; Nashville- multiple and currently separate UAs. populations less than 1,000,000; 14 have Murfreesboro; Oklahoma City-Norman; These agglomerations contain UAs that populations less than 500,000; and four Honolulu-Kailua; Stockton-Lodi- currently are contiguous as well as some have populations less than 250,000. If a Manteca; Boise City-Nampa; Modesto- that are in close proximity to each other threshold of 1,000,000 people is chosen Turlock; Santa Rosa-Petaluma; and that potentially could form a as the minimum for splitting large Beaumont-Port Arthur; and Fairfield- continuous agglomeration when areas agglomerations, all formerly separate Vacaville.

TABLE 2—POTENTIAL URBAN AGGLOMERATIONS

2006–2008 ACS 3-year Potential urban agglomeration Census 2000 UAs contained within the potential agglomeration estimated population

New York-Philadelphia-Connecticut...... New York-Newark, NY-NJ-CT; Philadelphia, PA-NJ-DE-MD; Allentown- 29,028,337 Bethlehem, PA-NJ; Lancaster, PA; Pottstown, PA; Reading, PA; Trenton, NJ; Hightstown, NJ; Vineland, NJ; Poughkeepsie-Newburgh, NY; Bridge- port-Stamford, CT; Danbury, CT-NY; Hartford, CT; New Haven, CT; Nor- wich-New London, CT; Waterbury, CT; Springfield, MA-CT. Los Angeles-Riverside-San Bernardino ...... Los Angeles-Long Beach-Santa Ana, CA; Riverside-San Bernardino, CA; 15,492,749 Camarillo, CA; Hemet, CA; Oxnard, CA; Santa Barbara, CA; Santa Clarita, CA; Simi Valley, CA; Temecula-Murrieta, CA; Thousand Oaks, CA. Chicago-Kenosha-Racine-Round Lake Beach ...... Chicago, IL-IN; Kenosha, WI; Round Lake Beach-McHenry-Grayslake, IL- 8,944,789 WI; Racine, WI. Boston-Providence-Worcester ...... Boston, MA; Providence, RI-MA; Worcester, MA-CT; Barnstable Town, MA; 6,692,295 Leominster-Fitchburg, MA; New Bedford, MA; Dover-Rochester, NH; Manchester, NH; Nashua, NH; Portsmouth, NH. Baltimore-Washington ...... Aberdeen, MD; Baltimore, MD; Washington, DC-VA-MD; St. Charles, MD .. 6,585,315 San Francisco-Oakland-San Jose ...... San Francisco-Oakland, CA; San Jose, CA; Antioch, CA; Concord, CA; 5,870,212 Livermore, CA; Vallejo, CA. Dallas-Fort Worth ...... Dallas-Fort Worth-Arlington, TX; Denton-Lewisville, TX; McKinney, TX ...... 5,006,527 Houston-Texas City ...... Houston, TX; Texas City, TX; Galveston, TX; The Woodlands, TX ...... 4,599,176 Detroit-Ann Arbor-Port Huron ...... Detroit, MI; Ann Arbor, MI; Port Huron, MI; South Lyon-Howell-Brighton, MI 4,326,040 Atlanta-Gainesville ...... Atlanta, GA; Gainesville, GA ...... 4,196,670 San Juan-Aguadilla-Ponce ...... San Juan, PR; Aguadilla-Isabela-San Sebastia´n, PR; Arecibo, PR; Fajardo, 3,591,491 PR; Florida-Barceloneta-Bajadero, PR; Guayama, PR; Juana Dı´az, PR; Mayagu¨ez, PR; Ponce, PR; San Germa´n-Cabo Rojo-Sabana Grande, PR; Yauco, PR. Phoenix-Mesa-Avondale ...... Phoenix-Mesa, AZ; Avondale, AZ ...... 3,328,183 San Diego-Mission Viejo ...... San Diego, CA; Mission Viejo, CA ...... 3,273,255 Seattle-Bremerton-Marysville ...... Seattle, WA; Bremerton, WA; Marysville, WA ...... 3,206,057 Cleveland-Akron-Canton-Lorain-Elyria ...... Cleveland, OH; Akron, OH; Canton, OH; Lorain-Elyria, OH ...... 2,722,194 Tampa-St. Petersburg-Lakeland-Winter Haven ..... Tampa-St. Petersburg, FL; Lakeland, FL; Winter Haven, FL; Brooksville, 2,719,812 FL. Cincinnati-Dayton-Middletown ...... Cincinnati, OH-KY-IN; Dayton, OH; Middletown, OH; Springfield, OH ...... 2,426,070 Denver-Boulder-Longmont ...... Denver-Aurora, CO; Boulder, CO; Longmont, CO; Lafayette-Louisville, CO 2,339,587 St. Louis-Alton ...... St. Louis, MO-IL; Alton, IL ...... 2,184,037

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TABLE 2—POTENTIAL URBAN AGGLOMERATIONS—Continued

2006–2008 ACS 3-year Potential urban agglomeration Census 2000 UAs contained within the potential agglomeration estimated population

Orlando-Ocala-Kissimmee ...... Orlando, FL; Ocala, FL; Kissimmee, FL; Lady Lake, FL; Leesburg-Eustis, 1,814,061 FL. Pittsburgh-Uniontown-Monessen ...... Pittsburgh, PA; Uniontown-Connellsville, PA; Monessen, PA ...... 1,792,892 Kansas City-Lee’s Summit ...... Kansas City, MO-KS; Lee’s Summit, MO ...... 1,468,106 Salt Lake City-Ogden-Layton ...... Salt Lake City, UT; Ogden-Layton, UT ...... 1,439,004 Indianapolis-Anderson ...... Indianapolis, IN; Anderson, IN ...... 1,367,392 Charlotte-Gastonia-Concord ...... Charlotte, NC-SC; Gastonia, NC; Concord, NC; Rock Hill, SC ...... 1,282,839 Nashville-Murfreesboro ...... Nashville-Davidson, TN; Murfreesboro, TN ...... 983,180 Raleigh-Durham ...... Raleigh, NC; Durham, NC ...... 974,582 Palm Bay-Melbourne-Titusville-Vero Beach ...... Palm Bay-Melbourne, FL; Titusville, FL; Vero Beach-Sebastian, FL; Port 938,675 St. Lucie, FL. Oklahoma City-Norman ...... Oklahoma City, OK; Norman, OK ...... 875,469 Honolulu-Kailua (Honolulu County) ...... Honolulu, HI; Kailua (Honolulu County), HI ...... 854,430 McAllen-Harlingen ...... McAllen, TX; Harlingen, TX ...... 753,816 Greensboro-High Point-Winston-Salem ...... Greensboro, NC; High Point, NC; Winston-Salem, NC ...... 741,457 Sarasota-Bradenton-Punta Gorda ...... Sarasota-Bradenton, FL; North Port-Punta Gorda, FL ...... 726,695 Bonita Springs-Naples-Cape Coral ...... Bonita Springs-Naples, FL; Cape Coral, FL ...... 659,480 Harrisburg-York-Lebanon ...... Harrisburg, PA; York, PA; Lebanon, PA ...... 651,160 Greenville-Spartanburg ...... Greenville, SC; Spartanburg, SC; Mauldin-Simpsonville, SC ...... 568,737 Pensacola-Fort Walton Beach ...... Pensacola, FL-AL; Fort Walton Beach, FL ...... 506,715 Stockton-Lodi-Manteca ...... Stockton, CA; Lodi, CA; Manteca, CA ...... 501,544 Spokane-Coeur d’Alene ...... Spokane, WA-ID; Coeur d’Alene, ID ...... 441,042 Boise City-Nampa ...... Boise City, ID; Nampa, ID ...... 422,639 Modesto-Turlock ...... Modesto, CA; Turlock, CA ...... 414,571 South Bend-Elkhart ...... South Bend, IN-MI; Elkhart, IN-MI ...... 408,373 Salinas-Santa Cruz-Watsonville ...... Salinas, CA; Santa Cruz, CA; Watsonville, CA ...... 388,071 Charleston-Huntington ...... Charleston, WV; Huntington, WV-KY-OH ...... 354,568 Santa Rosa-Petaluma ...... Santa Rosa, CA; Petaluma, CA ...... 351,752 Rockford-Beloit ...... Rockford, IL; Beloit, WI-IL ...... 337,215 Atlantic City-Wildwood ...... Atlantic City, NJ; Wildwood-North Wildwood-Cape May, NJ ...... 280,698 Appleton-Oshkosh ...... Appleton, WI; Oshkosh, WI ...... 263,213 Beaumont-Port Arthur ...... Beaumont, TX; Port Arthur, TX ...... 249,716 Macon-Warner Robins ...... Macon, GA; Warner Robins, GA ...... 232,780 Kingsport-Johnson City ...... Kingsport, TN–VA; Johnson City, TN ...... 208,241 Fairfield-Vacaville ...... Fairfield, CA; Vacaville, CA ...... 207,859

Proposed Urban Area Criteria for the A. 2010 Census Urban Area, Urbanized 50,000 or more people are designated as 2010 Census Area, and Urban Cluster Definitions urbanized areas (UAs); urban areas that For the 2010 Census, an urban area contain at least 2,500 and less than The proposed criteria outlined herein 50,000 people are designated as urban 6 will comprise a densely settled core of apply to the United States, Puerto Rico, 8 9 clusters (UCs). The term ‘‘urban area’’ 7 census tracts and/or census blocks and the Island Areas. The Census that meet minimum population density refers to both UAs and UCs. The term Bureau proposes the following criteria requirements, along with adjacent ‘‘rural’’ encompasses all population, and characteristics for use in identifying territory containing non-residential housing, and territory not included the areas that will qualify for urban land uses as well as territory with within an urban area. designation as urbanized areas and low population density included to link As a result of the urban area urban clusters for use in tabulating data outlying densely settled territory with delineation process, an incorporated from the 2010 Census, the American the densely settled core. To qualify as place or census designated place (CDP) Community Survey (ACS), the Puerto an urban area, the territory identified may be partly within and partly outside Rico Community Survey, and according to the proposed criteria an urban area. Any place that is split by potentially other Census Bureau mentioned above must encompass at an urban area boundary is referred to as censuses and surveys. least 2,500 people, at least 1,500 of an extended place. Any census which reside outside institutional group geographic areas, with the exception of quarters. Urban areas that contain census blocks, may be partly within and 6 For Census Bureau purposes, the United States partly outside an urban area. includes the 50 States and the District of Columbia. 8 A census tract is made up of from one to ten All proposed criteria based on land 7 For Census Bureau purposes, the Island Areas census block groups within a single county. A area, population, and population include , the Commonwealth of census block group is a collection of one to 999 census blocks within a single census tract. density, reflect the information the , , the U.S. 9 A census block is the smallest geographic area contained in the Census Bureau’s Virgin Islands, and the U.S. Minor Outlying Islands. for which the Census Bureau tabulates data and is Master Address File/Topologically The U.S. Minor Outlying Islands are an aggregation an area normally bounded by visible features, such Integrated Geographic Encoding and of nine U.S. territories: Baker Island, Howland as streets, rivers or streams, shorelines, and Island, Jarvis Island, Johnston Atoll, Kingman Reef, railroads, and by nonvisible features, such as the Referencing (MAF/TIGER) Database the Midway Islands, Navassa Island, Palmyra Atoll, boundary of an incorporated place, MCD, county, (MTDB) at the time of the initial and Wake Island. or other 2010 Census tabulation entity. delineation. All calculations of

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population density include only land; a. Has a population density of at least 3. Inclusion of Noncontiguous Territory the areas of water contained within 500 ppsm; or via Hops and Jumps census tracts and census blocks are not b. At least one-third of the census Noncontiguous territory that meets used to calculate population density. block consists of territory with a level of imperviousness of at least twenty the proposed population density criteria B. Proposed UA and UC Delineation percent,11 and is compact in nature as specified in section B.1.a and b above, Criteria defined by a shape index. A census but is separated from an initial urban The Census Bureau proposes to define block is considered compact when the area core of 1,000 or more people, may ‘‘ ’’ urban areas primarily on the basis of shape index is at least 0.185 using the be added via a hop along a road residential population density measured following formula: I = 4πA/P2 where I is connection of no more than 0.5 miles. at the census tract and census block the shape index, A is the area of the Multiple hops may be made along a levels of geography. Two population entity, and P is the perimeter of the single road connection, thus accounting density thresholds are utilized in the entity. for the nature of contemporary urban delineation of urban areas: 1,000 ppsm The Census Bureau would apply development which often encompasses and 500 ppsm. The higher threshold is proposed criteria 1.a and 1.b above until alternating patterns of residential and consistent with final population density there are no blocks to add to the urban non-residential uses. criteria used in the 1960 through 1990 area. After adding territory to an initial urban area delineation processes; it is urban area core via hop connections, the 2. Inclusion of Noncontiguous Territory used to identify the starting point for Census Bureau will identify all cores Separated by Exempted Territory delineation of individual, potential that have a population of 1,500 or more urban areas and ensures that each urban The Census Bureau proposes to and add other qualifying territory via a area contains a densely settled core area identify and exempt territory in which jump connection.14 Jumps are used to that is consistent with previous decades’ residential development is substantially connect densely settled noncontiguous delineations. The lower threshold was constrained or not possible due to either territory separated from the core by adopted for the Census 2000 process topographic or land use conditions.12 territory with low population density when the Census Bureau adopted an Such ‘‘exempted’’ territory offsets urban measuring greater than 0.5 and no more automated delineation methodology; it development due to particular land use, than 2.5 road miles across. This process ensures that additional territory that land cover, or topographic conditions. recognizes the existence of larger areas may contain a mix of residential and For the 2010 Census, the Census Bureau of non-residential urban uses or other non-residential urban uses can qualify proposes the following to be exempted territory with low population density for inclusion in an urban area. territory: that does not provide a substantial • Bodies of water; and barrier to interaction between outlying 1. Identification of Initial Urban Area • Wetlands (belonging to one of eight territory with high population density Cores wetlands class definitions 13). and the main body of the urban area. The Census Bureau proposes to begin Noncontiguous qualifying territory Because it is possible that any given the delineation process by identifying would be added to a core when densely settled area could qualify for and aggregating contiguous census separated by exempted territory, inclusion in multiple cores via a jump tracts, each having a land area less than provided that: connection, the identification of jumps three square miles and a population a. The road connection across the in an automated process starts with the density of at least 1,000 ppsm. If a exempted territory (located on both initial urban area core that has the qualifying census tract does not exist, sides of the road) is no greater than five largest total population and continues in then one or more contiguous census miles; and descending order based on the total blocks that have a population density of b. The road connection does not cross population of each initial urban area at least 1,000 ppsm are identified and more than a total of 2.5 miles of territory core. Only one jump is permitted along aggregated. This aggregation of not classified as exempted (those any given road connection. This continuous census tracts or census segments of the road connection where limitation, which has been in place blocks, as appropriate, would be known exempted territory is not on both sides since the inception of the urban area as the ‘‘initial urban area core.’’ of the road); and delineation process for the 1950 Census, After the initial urban area core with c. The total length of the road prevents the artificial extension of urban a population density of 1,000 ppsm or connection (exempt distance and non- areas over large distances that result in more is identified, a census tract is exempt distance) is no greater than five the inclusion of communities that are included in the initial urban area core miles for a jump and no greater than 2.5 not commonly perceived as connected if it is adjacent to other qualifying miles for a hop. to the particular initial urban area core. territory and has a land area less than Exempted territory is not taken into 11 The Census Bureau has found in testing the account when measuring road distances three square miles and a population NLCD that territory with an impervious percent less density of at least 500 ppsm. than twenty percent results in the inclusion of road across hop and jump corridors. A census block 10 is included in the and structure edges, and not the actual roads or In addition to the distance criteria initial urban area core if it is adjacent to buildings themselves. listed above, a hop or a jump will 12 The land cover and land use types used to qualify if: other qualifying territory and define exempted territory are limited to only those that are included in or can be derived from the a. The census tracts and blocks 10 Due to imposed restrictions on the selection of Census Bureau’s MTDB or the MRLC’s 2001 NLCD identified in the high density features that could be used as census block nationally, consistently, and with some reasonable destination and along the hop or jump boundaries within military installations for the level of accuracy. corridor have a combined overall 2010 Census, blocks on military installations that 13 For the MRLC’s 2001 NLCD, wetlands are have a population of 2,500 or more are treated as identified as belonging to one of eight wetlands having a population density of 1,000 ppsm if the class definitions including woody, palustrine 14 All initial urban area cores with a population density is less than 1,000 ppsm. Census blocks that forested, palustrine scrub/shrub, estuarine forested, less than 1,500 are not selected to continue the have a population greater than 1,000 and less than estuarine scrub/shrub, emergent herbaceous, delineation as separate urban areas; however, these 2,500 are treated as having a population density of palustrine emergent (persistent), or estuarine cores still are eligible for inclusion in an urban area 500 ppsm. emergent. using subsequent proposed criteria and procedures.

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population density of at least 500 ppsm, the Census Bureau proposes to identify place(s) that is (are) most populated or a ‘‘closure line,’’ defined as a straight within the urban area. All population b. The high density destination to be line no more than one mile in length, requirements for places and MCDs added via the hop or jump has a total that extends from one point along the apply to the portion of the entity’s population of 1,000 or more. edge of the urban area across the mouth population that is within the specific No additional jumps may originate of the indentation to another point along urban area being named. The Census from a qualifying area after the first the edge of the urban area. Bureau proposes the following criteria jump in that direction unless the A census block located wholly or to determine the title of a urban area: territory being included as a result of partially within an indentation will be a. The most populous incorporated the jump was an initial urban area core included in the urban area if at least 75 place with a population of 10,000 or with a population of 50,000 or more. percent of the area of the block is inside more within the urban area will be the closure line. The total area of those listed first in the urban area title. 4. Inclusion of Airports blocks that meet or exceed the proposed b. If there is no incorporated place After all territory has been added to 75 percent criterion is compared to the with a population of 10,000 or more, the the initial core via hop and jump area of a circle, the diameter of which urban area title will include the name of connections, the Census Bureau will is the length of the closure qualification the most populous incorporated place or then add whole tabulation blocks that line. The territory within the CDP having at least 2,500 people in the approximate the territory of major indentation will be included in the urban area. airports, provided at least one of the urban area if its area is at least four Up to two additional places, in blocks that represent the airport is times the area of the circle and less than descending order of population size, included within or adjacent to the five square miles. may be included in the title of an urban initial core. An airport is identified as If the collective area of the census area, provided that: a ‘‘major airport’’ if it had an annual blocks inside the closure line does not a. The place has 250,000 or more enplanement of at least 2,500 passengers meet the criteria listed above, the people in the urban area; or in any year between 2000 and the last Census Bureau will define successive b. The place has at least 2,500 people year of reference in the Federal Aviation closure lines within the indentation, in the urban area, and that population Administration’s (FAA) Air Carrier starting at the mouth and working is at least two-thirds of the urban area Activity Information System. inward toward the base of the population of the most populous place indentation, until the criteria for in the urban area. 5. Inclusion of Enclaves inclusion are met or it is determined If the urban area does not contain a The Census Bureau will add enclaves that the indentation will not qualify for place of at least 2,500 people, the within the urban area, provided that inclusion. Census Bureau will use the following they are surrounded only by land, by rules to identify an urban area title, 7. Splitting Large Agglomerations territory that qualified for inclusion in applying each in order until a title is the urban area based on the proposed The automated urban area delineation identified: population density criteria, and at least methodology that will be used for the a. The governmental MCD having the one of the following conditions is met: 2010 Census may result in large urban largest total population in the urban a. The area of the enclave must be less agglomerations of continuously area; or than five square miles; or developed territory. If such results b. A local name recognized for the b. All area of the enclave is occur, the Census Bureau proposes area by the United States Geological surrounded by territory that qualified splitting large agglomerations of Survey (USGS)’ Geographic Names for inclusion in the initial core, and is 1,000,000 or more people along Information System (GNIS), with more than a straight-line distance of 2.5 metropolitan statistical area boundaries preference given to names recognized by miles from a land block that is not part to identify individual UAs. In New the United States Postal Service (USPS). of the initial core; or England, large agglomerations will be The urban area title will include the c. The area of the enclave is less than split based on the boundaries of USPS abbreviation of the name of each five square miles, is surrounded by both metropolitan New England city and state or statistically equivalent entity land that qualified for inclusion in the town areas (NECTAs). In situations into which the urban area extends. The initial core and water, and the length of where an incorporated place or a CDP order of the state names is the same as the line of adjacency with the water is crosses the metropolitan statistical area the order of the related place names in less than the length of the line of or metropolitan NECTA boundary, the the urban area title. adjacency with the land. boundary splitting the large If a single place or MCD qualifies as agglomeration will be modified to the title of more than one urban area, 6. Inclusion of Indentations follow the incorporated place or CDP the largest urban area will use the name The Census Bureau proposes to boundary. The incorporated place or of the place or MCD. The smaller urban evaluate and include territory that forms CDP will be assigned to the resulting area will have a title consisting of the an indentation within the urban area. UA that contains the largest proportion place or MCD name and the direction Including such territory will produce a of the place’s land area. Urban clusters (North, South, East, or West) of the smoother and more manageable would not be created as a result of smaller urban area as it relates to the boundary for each urban area. It would splitting. larger urban area. also recognize that small sparsely If any title of an urban area duplicates settled areas that are wholly or partially 8. Assigning Urban Area Titles the title of another urban area within the enveloped by urban territory are more A clear, unambiguous title based on same state, or uses the name of an likely to be affected by and integrated commonly recognized place names incorporated place, CDP, or MCD that is with adjacent urban territory and may helps provide context for data users, duplicated within a state, the name of become more densely settled by future and ensures that the general location the county that has most of the development. and setting of the urban area can be population of the largest place or MCD To determine whether an indentation clearly identified and understood. The is appended, in parentheses, after the should be included in the urban area, title of an urban area identifies the duplicate place or MCD name for each

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urban area. If there is no incorporated other types of assistance, and residency building blocks, and that is place, CDP, or MCD name in the urban is commonly restricted to those conceptually similar to the metropolitan area title, the name of the county having receiving these services. This is not a and micropolitan statistical areas. the largest total population residing in typical household-type living Noncontiguous: Refers to two or more the urban area will be appended to the arrangement. People living in GQs are areas that do not share common title. usually not related to each other. GQs boundaries, such that the areas are include such facilities as college C. Definitions of Key Terms separated by intervening territory. residence halls, residential treatment Rural: Territory not defined as urban. Census Block: A geographic area centers, skilled nursing facilities, group bounded by visible and/or invisible homes, military barracks, correctional Topologically Integrated Geographic features shown on a map prepared by facilities, and workers’ dormitories. Encoding and Referencing (TIGER): the Census Bureau. A block is the Impervious Surface: Paved, man-made Database developed by the Census smallest geographic entity for which the surfaces, such as roads and parking lots. Bureau to support its mapping needs for Census Bureau tabulates decennial Incorporated Place: A type of the decennial census and other Census census data. governmental unit, incorporated under Bureau programs. The topological Census Designated Place (CDP): A state law as a city, town (except in New structure of the TIGER database defines statistical geographic entity England, New York, and Wisconsin), the location and relationship of encompassing a concentration of borough (except in Alaska and New boundaries, streets, rivers, railroads, and population, housing, and commercial York), or village, generally to provide other features to each other and to the structures that is clearly identifiable by specific governmental services for a numerous geographic areas for which a single name, but is not within an concentration of people within legally the Census Bureau tabulates data from incorporated place. CDPs are the prescribed boundaries. its censuses and surveys. statistical counterparts of incorporated Metropolitan Statistical Area: A core Urban: Generally, densely developed places for distinct unincorporated based statistical area associated with at territory, encompassing residential, communities. least one urbanized area that has a commercial, and other non-residential Census Tract: A small, relatively population of at least 50,000. A urban land uses within which social permanent statistical geographic metropolitan statistical area comprises a and economic interactions occur. division of a county defined for the central county or counties containing an Urban Area: The generic term used to tabulation and publication of Census urbanized area, plus adjacent outlying refer collectively to urbanized areas and Bureau data. The primary goal of the counties having a high degree of social urban clusters. census tract program is to provide a set and economic integration with the of nationally consistent small, statistical central county as measured by Urban Cluster (UC): A statistical geographic units, with stable boundaries commuting. geographic entity consisting of a densely that facilitate analysis of data across Micropolitan Statistical Area: A core settled core created from census tracts time. based statistical area associated with at or blocks and adjacent densely settled Contiguous: Refers to two or more least one urban cluster that has a territory that together have at least 2,500 areas sharing common boundaries. population of at least 10,000, but less people but fewer than 50,000 people. Core Based Statistical Area (CBSA): A than 50,000. A micropolitan statistical Urbanized Area (UA): A statistical statistical geographic entity defined by area comprises a central county or geographic entity consisting of a densely the U.S. Office of Management and counties containing an urban cluster, settled core created from census tracts Budget, consisting of the county or plus adjacent outlying counties having a or blocks and adjacent densely settled counties associated with at least one high degree of social and economic territory that together have a minimum core (urbanized area or urban cluster) of integration with the central county as population of 50,000 people. at least 10,000 population, plus adjacent measured by commuting. Executive Order 12866 counties having a high degree of social (MCD): The and economic integration with the core primary governmental or administrative This notice has been determined to be as measured through commuting ties division of a county in 29 states and the not significant under Executive Order with the counties containing the core. Island Areas having legal boundaries, 12866. Metropolitan and micropolitan names, and descriptions. MCDs statistical areas are the two types of core represent many different types of legal Paperwork Reduction Act based statistical areas. entities with a wide variety of This notice does not contain a Exempted Territory: Pre-existing characteristics, powers, and functions collection of information subject to the landcover that offsets the pattern of depending on the state and type of requirements of the Paperwork urban development. MCD. In some states, some or all of the Reduction Act, 44 United States Code, Group Quarters (GQs): A place where incorporated places also constitute Chapter 35. people live or stay, in a group living MCDs. arrangement, that is owned or managed New England City and Town Area Dated: August 17, 2010. by an entity or organization providing (NECTA): A statistical geographic entity Robert M. Groves, housing and/or services for the that is delineated by the U.S. Office of Director, Bureau of the Census. residents. These services may include Management and Budget using cities [FR Doc. 2010–20808 Filed 8–23–10; 8:45 am] custodial or medical care, as well as and towns in the New England states as BILLING CODE 3510–07–P

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