[Federal Register Volume 72, Number 120 (Friday, June 22, 2007)]
[Notices]
[Pages 34434-34438]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E7-12160]


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DEPARTMENT OF COMMERCE

Bureau of the Census

[Docket Number: 070306047-7048-01]


Procedures for Participation in the 2010 Decennial Census Local 
Update of Census Addresses (LUCA) Program

AGENCY: Bureau of the Census, Department of Commerce.

ACTION: Notice and request for comments.

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SUMMARY: The Bureau of the Census (Census Bureau) is requesting public 
comment on the proposed procedures for developing the specific 
components of an address list review program, known as the Local Update 
of Census Addresses (LUCA) program. The Census Bureau will use the LUCA 
program to help develop the housing unit and group quarters (e.g., 
college dormitory, nursing home, correctional facility, etc.) address 
information that it will need to conduct the 2010 Decennial Census. The 
program will be available to tribal, state, and local governments, and 
the District of Columbia and Puerto Rico (or their designated 
representatives), in areas for which the Census Bureau performs a 
precensus address canvassing operation (excluded are sparsely settled 
areas in the states of Alaska and Maine). The LUCA program includes 
federally recognized American Indian tribes with reservations and/or 
off-reservation trust lands, states, and general-purpose local 
governments, such as cities and townships, for which the Census Bureau 
reports data. This notice provides information about the three proposed 
options available to participants for reviewing and annotating the 2010 
Census LUCA materials, as well as a description of the feedback 
materials that will be provided to participants following their 
participation. A future notice will announce the establishment outside 
the Department of Commerce (DOC) of the Census Address List Appeals 
process that will be established by the Office of Management and Budget 
(OMB) for the 2010 Census LUCA Operation. The Census Bureau and the OMB 
will publish a separate Federal Register Notice seeking comments on 
this Appeal process at a later date.

DATES: Any comments, questions, suggestions, or recommendations 
concerning these proposed procedures should be submitted in writing by 
August 6, 2007.

ADDRESSES: Please send any correspondence about the 2010 Census LUCA 
program procedures to Ms. Teresa Angueira, Associate Director for 
Decennial Census, U.S. Census Bureau, Washington, DC 20233.

FOR FURTHER INFORMATION CONTACT: For information about the Census 
Bureau's 2010 Census LUCA program, contact Mr. Robert A. LaMacchia, 
Chief, Geography Division, U.S. Census Bureau, Washington, DC 20233-
7400; telephone (301) 763-2131; fax (301) 763-4710; or by e-mail at 
[email protected].

SUPPLEMENTARY INFORMATION:

The Census Address List Improvement Act of 1994

    The Census Address List Improvement Act of 1994 (Pub. L. 103-430, 
Oct 31, 1994, 108 Stat. 4393) mandates the procedures to be used by the 
Census Bureau for developing the decennial census address list, and 
address lists for other censuses and surveys conducted by the Census 
Bureau. The Act's provisions direct the Secretary of Commerce to: (1) 
Publish standards defining the content and structure of address 
information that tribal, state, and local governments may submit to be 
used for developing a national address list; (2) develop and publish a 
timetable for the Census Bureau to receive, review, and respond to 
submissions; and (3) provide a response to the submissions regarding

[[Page 34435]]

the Census Bureau's determination for each address. The Act provides 
that OMB's Administrator of the Office of Information and Regulatory 
Affairs, acting through the Chief Statistician and in consultation with 
the Bureau of the Census, shall develop an appeals process for tribal, 
state, and local governments to appeal determinations of the Census 
Bureau. The Act also directs the U.S. Postal Service to provide the 
Secretary of Commerce with address information, as may be determined by 
the Secretary to be appropriate for use by the Census Bureau.
    The Act authorizes the Census Bureau to provide designated 
officials of tribal, state, and local governments (who agree to pledges 
and conditions of confidentiality) with access to census addresses 
information. Prior to Census 2000, the Census Bureau was limited to 
providing block summary totals of addresses to tribal, state, and local 
governments. Census 2000 marked the first decennial census where tribal 
and local governments, which signed the required confidentiality 
agreement, were able to review the census address list.

The 2010 Census LUCA Program Process

    The Census Bureau is using the 2010 Census LUCA program to help 
develop the address information it needs to conduct the 2010 Census. 
The 2010 Census LUCA program is available to tribal, state, and local 
governments (or their designated representatives) in areas for which 
the Census Bureau is developing its address list in advance of the 2010 
Census. Jurisdictions or parts of jurisdictions with special 
enumeration needs are not eligible to receive 2010 Census LUCA 
materials. These areas may include remote, sparsely populated areas, 
and/or resort areas.
    Beginning in January 2007, the Census Bureau mailed pre-invitation 
letters and LUCA information booklets (called the Advance Notification 
package) to tribal, state, and local governments eligible to 
participate in the nationwide 2010 Census LUCA program. The purpose of 
the Advance Notification package is to provide tribal, state, and local 
governments with samples of the LUCA program materials and lead-time to 
begin planning their strategy for participation in the 2010 Census LUCA 
program. In August 2007, the Census Bureau plans to mail the LUCA 
invitation letters and registration materials to tribal, state, and 
local governments, formally inviting them to participate in the 2010 
Census LUCA program. The Census Bureau plans a telephone follow-up to 
non-responding governments, followed by a final reminder/closeout 
letter in November 2007 to all non-responding governments.
    The 2010 Census LUCA program differs from the Census 2000 LUCA 
program. One notable change is that, for the first time, states will be 
invited to participate and review the Census Bureau's address list for 
the entire state (with the exception noted in the next paragraph), 
selected substate areas, and selected address types. When conflicts 
arise between the geographic assignment and depiction of the same 
address from different levels of government, the Census Bureau will 
attempt to validate the most local level of government's version of the 
address.
    Another change from Census 2000 LUCA concerns the suppression from 
the state and local LUCA address list of all addresses contained within 
the boundary of any American Indian reservation or off-reservation 
trust land recognized by the federal government. These addresses appear 
only on LUCA materials provided to participating tribal governments. 
This is in keeping with the Census Bureau's recognition of the unique 
government-to-government relationship between the federal government 
and federally-recognized tribal governments. The Census Bureau 
encourages tribal governments to coordinate their work with non-tribal 
governments in overlapping areas, to ensure that all addresses are 
identified for census purposes. If a tribal government chooses not to 
participate in the LUCA program, the Census Bureau encourages the tribe 
to delegate authority to review the address list to a state, county, or 
local government.
    Using information gathered from various surveys and evaluations of 
the Census 2000 LUCA program, the Census Bureau has streamlined the 
2010 Census LUCA program. For the 2010 Census LUCA program, all 
eligible LUCA participants will review their entire address list at one 
time, instead of in phases based on address type as was done for the 
Census 2000 LUCA program. Each tribal, state, and local government that 
participates in the 2010 Census LUCA program will have 120 calendar 
days, from the time it receives its materials, to conduct its review of 
the census address list and maps.
    Tribal, state, and local governments will be required to return 
their completed registration package to the Census Bureau, postmarked 
by November 19, 2007, to be eligible for the full 120-day review 
period. The last date that the Census Bureau will accept 2010 Census 
LUCA registration packages from tribal, state, and local governments is 
December 31, 2007. Participants who register late will have a shorter 
review period. The latest date will be April 4, 2008 (receipt date), 
for which LUCA participants can return their submission to the Census 
Bureau in order for the Census Bureau to review and process the 
submission in time for the nationwide Address Canvassing Operation.
    For the 2010 Census LUCA program, participants can choose from one 
of three options described below.\1\ Participants will receive review 
materials in either paper or computer-readable formats, or may use 
Census Bureau-supplied software to update their jurisdiction's map 
features and address list. Jurisdictions with more than 6,000 addresses 
will be required to participate using a computer-readable address list.
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    \1\ Puerto Rico participants will be restricted to Option 1 
because of address matching complexities unique to Puerto Rico.
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    A nationwide field check, called the Address Canvassing Operation, 
is planned for February 2009 through June 2009 to verify the census 
address list, including the qualifying updates supplied by 2010 Census 
LUCA participants. During this operation, Census Bureau field staff 
will add, delete, and correct entries on the census address list and 
make needed corrections to the census maps. Census Bureau LUCA feedback 
to LUCA participants will be based on the results of Address 
Canvassing.
    Section 3 of the Census Address List Improvement Act of 1994 
requires the Administrator of the Office of Information and Regulatory 
Affairs at the Office of Management and Budget (OMB), in consultation 
with the Census Bureau, to develop an Appeal process outside DOC to 
resolve any disagreements that may remain after participating 
governments receive the Census Bureau's Detailed Feedback/Final 
Determination materials. The Census Bureau and OMB will jointly 
publish, at a later date, a separate Federal Register Notice describing 
the Appeal process.
    Described below are the three participation options for the 2010 
Census LUCA program.

Option 1--Title 13 Full Address List Review

    The Full Address List Review option will require that the 
participant sign the Confidentiality Agreement in accordance with Title 
13, United States Code. Jurisdictions selecting this option

[[Page 34436]]

should first determine that they have the time and resources to review 
and comment on the 2010 Census LUCA Address List. This option is also 
the only option that governments can choose if their jurisdiction 
contains only noncity-style addresses (e.g., rural route/box number, 
post office box, general delivery, descriptive addresses), because it 
is the only option that allows the participant to challenge the count 
of addresses in a census block, as described below.
    The Full Address List Review participants will receive the 2010 
Census Address List, the Address Count List (a count of addresses 
within each census block), and maps or digital shape files of their 
jurisdiction. Participants who select this option must have the means 
to secure the census address list and maps or shapefiles containing 
confidential Title 13 information, as described in the 2010 LUCA 
Security Guidelines, which will be included in the invitation package 
to be shipped to all eligible governments in August 2007. The 2010 
Census Address List and the Address Count List will be available as a 
paper or computer-readable product. The Census Bureau maps will be 
available in paper format for tribal and local governments (not state), 
or shape files for use in their Geographic Information System (GIS). 
Alternatively, the participant may choose to use the Census Bureau-
supplied software that combines the census address list and shape files 
within an easy-to-use GIS tool. Details regarding this software are 
contained within the promotional materials that eligible tribal, state, 
and local governments have been sent and will also be covered in the 
training workshops to be held in summer/fall of 2007.
    Although the 2010 Census Address List will contain city-style 
(house number and street name, used for mail delivery or E-911) as well 
as noncity-style addresses, participants can only add and/or provide 
updates (including deletions) for city-style addresses. Each address 
added by a participant must be ``geocoded,'' that is, associated with a 
census tract and census block number identifying its location. The 
census tract and census block numbers appear on the Census Bureau-
supplied maps, digital shape files, and the Census Bureau-supplied GIS 
software tool.
    The Census Bureau limits address updates to city-style addresses 
because noncity-style addresses are not usually locational and are 
subject to change. However, participants may challenge the address 
count for a census block on the Address Count List regardless of the 
type of addresses it contains. Participants do this by providing what 
they believe is the correct number of addresses for the census block. 
Participants cannot provide both updates for individual addresses on 
the 2010 Census Address List and challenge the count of addresses on 
the Address Count List for the same census block.
    As is true for all three options, the LUCA participant may make 
updates and/or corrections to the features and boundaries on the Census 
Bureau maps (with one exception: State participants cannot update 
boundaries unless they are the designated reviewer for a county, 
township, city, town, or reservation). The Census Bureau maps will be 
available to participants in paper format, or as digital shape files 
for use in their GIS. Alternatively, participants may choose to use the 
Census Bureau-supplied software that combines the Address List, the 
Address Count List, and shape files within an easy-to-use GIS tool.
    A nationwide field check, called the Address Canvassing Operation, 
is planned for February 2009 through June 2009 to verify the census 
address list, including the qualifying updates supplied by 2010 Census 
LUCA participants. During this operation, Census Bureau field staff 
will add, delete, and correct entries on the confidential census 
address list and make needed corrections to the census maps.

Option 2--Title 13 Local Address List Submission

    The Title 13 Local Address List Submission option will require that 
the participant sign the Confidentiality Agreement in accordance with 
Title 13, United States Code. Participants who select this option must 
have the means to secure the census address list and maps or shapefiles 
containing Title 13 information, according to the 2010 LUCA Security 
Guidelines (included in the invitation package and on the Web). Title 
13 Local Address List Submission is a new 2010 Census LUCA option 
intended for those participants who may not have the time or resources 
to update the 2010 Census LUCA Address List, but who wish to submit 
their local address list for Census Bureau use. For Option 2, the 2010 
Census Address List and the Address Count List will be available only 
as computer-readable products. The Census Bureau maps are available to 
participants in paper format or as shape files for use with their GIS. 
Alternatively, participants may select the Census Bureau-supplied 
software that combines the census Address List, Address Count List, and 
shape files within an easy-to-use GIS tool.
    Option 2 LUCA participants will receive the 2010 Census LUCA 
Address List containing city-style and noncity-style addresses and the 
Address Count List. These materials are to be used for reference 
purposes only. Option 2 LUCA participants must submit their local city-
style address list in a Census Bureau-defined computer-readable format. 
The Census Bureau cannot accept a LUCA participant's local address list 
in paper format and cannot accept computer-readable local address lists 
containing noncity-style addresses. Each address submitted by a 
participant must be ``geocoded,'' that is, associated with a census 
tract and census block number identifying its location. The census 
tract and census block numbers appear on the Census Bureau-supplied 
maps, digital shape files, and the Census Bureau-supplied GIS software 
tool.
    As is true for all three options, the LUCA participant may make 
updates and/or corrections to the features and boundaries on the Census 
Bureau maps (with one exception: State participants cannot update 
boundaries unless they are the designated reviewer for a county, 
township, city, town, or reservation). The Census Bureau maps will be 
available to participants in paper format or as shape files for use in 
their GIS. Alternatively, participants may choose to use the Census 
Bureau-supplied software that combines the Address List, Address Count 
List and shape files within an easy-to-use GIS tool.
    A nationwide field check, called the Address Canvassing Operation, 
is planned for February 2009 through June 2009 to verify the census 
address list, including the qualifying updates supplied by 2010 Census 
LUCA participants. During this operation, Census Bureau field staff 
will add, delete, and correct entries on the census address list and 
make needed corrections to the census maps.

Option 3--Non-Title 13 Local Address List Submission

    Non-Title 13 Local Address List Submission is a new LUCA option for 
the 2010 Census. It is intended for those participants who may not have 
the time or resources to update the 2010 Census LUCA Address List and/
or are unable to meet Title 13 security requirements, but who wish to 
submit their local address list for Census Bureau use. The Non-Title 13 
Local Address List Submission option will not require the participant 
to sign the Confidentiality Agreement, since they will not be receiving 
Title 13 data. Instead, participants will receive only the 2010 Census 
LUCA Address Count List in computer-readable format, which they may use 
for reference

[[Page 34437]]

purposes only. The Census Bureau maps will be available to participants 
in paper format or as shape files for use in their GIS. Alternatively, 
participants may choose to use the Census Bureau-supplied software that 
combines the census Address Count List and shape files within an easy-
to-use GIS tool.
    Option 3 LUCA participants must submit their local city-style 
address list in a Census Bureau-defined, computer-readable format. The 
Census Bureau cannot accept Option 3 LUCA local address lists in paper 
format and cannot accept noncity-style addresses contained in a 
computer-readable local address list. Each address submitted by a 
participant must be ``geocoded,'' (i.e., associated with a census tract 
and census block number identifying its location). The census tract and 
census block numbers appear on the Census Bureau-supplied maps, digital 
shape files, and the Census Bureau-supplied GIS software tool.
    As is true for all three options, the LUCA participant may make 
updates and/or corrections to the features and boundaries on the Census 
Bureau maps (with one exception: State participants cannot update 
boundaries unless they are the designated reviewer for a county, 
township, city, town, or reservation). The Census Bureau maps will be 
available to participants in paper format or as shape files for use in 
their GIS. Alternatively, participants may choose to use the Census 
Bureau-supplied software that combines the Address Count List and shape 
files within an easy-to-use GIS tool.
    A nationwide field check, called the Address Canvassing Operation, 
is planned for February 2009 through June 2009 to verify the census 
address list, including the qualifying updates supplied by 2010 Census 
LUCA participants. During this operation, Census Bureau field staff 
will add, delete, and correct entries on the census address list and 
make needed corrections to the census maps.

LUCA Feedback Process for Option 1--Title 13 Full Address List Review

    The Census Bureau will review and computer-match each participant-
submitted address and provisionally update the census address list with 
the qualifying submissions, and then verify the addresses during the 
Address Canvassing Operation. The Address Canvassing Operation will 
ensure that all the addresses exist and that they are in the correct 
census block.
    The Census Bureau will provide 2010 Census LUCA Feedback materials 
to each tribal, state, and local government that submitted an 
acceptable list of city-style addresses. The Census Bureau will provide 
the 2010 Census LUCA Feedback materials on a flow basis to qualifying 
jurisdictions during August to October 2009 after completion of the 
Address Canvassing Operation.
    The 2010 Census LUCA Feedback materials will document which 2010 
Census LUCA address submissions the Census Bureau could and could not 
verify in the Address Canvassing Operation. The 2010 Census LUCA 
Feedback materials, which will be provided in the media originally 
requested by the participant, include:
    (1) A 2010 Census LUCA Feedback Report covering the specific 
address updates submitted by the participant and actions taken on those 
addresses by the Census Bureau.
    (2) An updated 2010 Census LUCA Feedback Address List that contains 
all of the census addresses verified by the 2010 Census Address 
Canvassing operation within the participating jurisdiction's boundary.
    (3) An updated Address Count List documenting the number of housing 
unit and group quarters addresses in each census block within the 
participating jurisdiction's boundary.
    (4) An updated Address Count List displaying just the blocks 
challenged by participants. This list will document the block count 
provided by the participant and the final block count from the Address 
Canvassing Operation.
    (5) A set of updated Census Bureau maps or shape files covering the 
participating jurisdiction.
    If participants disagree with the 2010 Census LUCA Address List or 
Address Count Feedback materials, they may file an appeal through the 
process that will be established by OMB outside DOC.

LUCA Feedback Process for Option 2--Title 13 Local Address List 
Submission

    The Census Bureau will review and computer-match each participant-
submitted address and provisionally update the census address list with 
the qualifying submissions, and then verify the addresses during the 
Address Canvassing Operation. The Address Canvassing Operation will 
ensure that all the addresses exist and that they are in the correct 
census block.
    The Census Bureau will provide 2010 Census LUCA Feedback materials 
to each tribal, state, and local government that submitted an 
acceptable list of city-style addresses. The Census Bureau will provide 
the 2010 Census LUCA Feedback materials on a flow basis to qualifying 
jurisdictions during August to October 2009 after completion of the 
Address Canvassing Operation.
    The 2010 Census LUCA Feedback materials will document which 2010 
Census LUCA address submissions the Census Bureau verified in the field 
and which ones it could not verify. The 2010 Census LUCA Feedback 
materials, which will be provided in the media originally requested by 
the participant, include:
    (1) A 2010 Census LUCA Feedback Report covering the specific 
address updates submitted by the participant and actions taken on those 
addresses by the Census Bureau.
    (2) An updated 2010 Census LUCA Address List that contains all of 
the census addresses assigned within the participating jurisdiction's 
boundary.
    (3) An updated Address Count List documenting the number of housing 
unit and group quarters addresses in each census block within the 
participating jurisdiction's boundary.
    (4) A set of updated Census Bureau maps or shape files covering the 
participating jurisdiction.
    If participants disagree with the 2010 Census LUCA Feedback on 
their submitted address list, they may file an appeal through the 
process that will be established by OMB outside DOC.

LUCA Feedback Process for Option 3--Non-Title 13 Local Address List 
Submission

    The Census Bureau will review and computer-match each participant-
submitted address and provisionally update the census address list with 
the qualifying submissions, and then verify the addresses during the 
Address Canvassing Operation. The Address Canvassing Operation will 
ensure that all addresses exist and that they are in the correct census 
block.
    The Census Bureau will provide 2010 Census LUCA Feedback materials 
to each tribal, state, and local government that submitted an 
acceptable list of city-style addresses. The Census Bureau will provide 
the 2010 Census LUCA Feedback materials on a flow basis to qualifying 
jurisdictions during August to October 2009 after completion of the 
Address Canvassing Operation.
    The 2010 Census LUCA Feedback materials, which will be provided in 
the media originally requested by the participant, include:
    (1) An updated Address Count List documenting the number of 
addresses in each census block within the jurisdiction.
    (2) A set of updated Census Bureau maps or shape files for the 
jurisdiction.
    Option 3 participants will not be able to file an Appeal since 
their Non-Title 13 status means they will not receive the detailed 
address level feedback

[[Page 34438]]

necessary for an Appeal. For Option 3 participants, the Census Bureau's 
2010 Census LUCA program will be officially completed at the time the 
Census Bureau provides the LUCA Feedback materials to the participant.

Executive Order 12866

    This notice has been determined to not be significant under 
Executive Order 12866.

Paperwork Reduction Act

    This program is subject to the requirements of the Paperwork 
Reduction Act, Title 44, United States Code, Chapter 35. The Census 
Bureau has initiated its request for clearance by the Office of 
Management and Budget.

    Dated: June 18, 2007.
Charles Louis Kincannon,
Director, Bureau of the Census.
[FR Doc. E7-12160 Filed 6-21-07; 8:45 am]
BILLING CODE 3510-07-P