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# Census and County Governments

*Jacqueline Byers*

*Director of Research and Outreach*

*National Association of Counties*

October 2007

## Introduction

An accurate census count is essential to county officials as they take
actions to govern democratically and to deliver services efficiently and
equitably. Just as with the federal government, counties use decennial
data for their own redistricting. Census statistics, broken down at the
geographic levels, are also a foundation for any strategic plan that a
county is likely to undertake. Population, age, housing and income data,
for example, are at the root of decision-making for any community
development plan. Likewise, census data is used in vital revenue
allocations since it often an essential element in formulas for the
distribution of both state and federal funding.

Local governments, especially county governments, are often the first
responders and the last resort. They are responsible for providing
services to all residents within their jurisdictions, regardless of
their status. An accurate census count, especially of those who are most
difficult to count, which includes the newly arriving residents, is
imperative for a local government to do its job effectively. The people
most likely to have the highest demand for social services from the
local government are frequently the most likely to be missed in the
Census. With the current mood of the nation towards immigration issues,
as symbolized by repeated headlines of local governments trying to
establish laws about the availability of local services, getting an
accurate count in 2010 will be a challenge.

In addition to being consumers of most of the information compiled by
the Census Bureau, county governments have been active partners in past
census data collection efforts. This dual role of county leaders and
county staff makes county governments uniquely qualified to comment on
past successes, potential innovations and new requirements as the
federal government commences its plans for the 2010 Census.

## How do counties use the census?

Counties use census information in many ways as they meet the
increasingly diverse needs of their constituents. Traditionally,
counties have performed state mandated duties which include assessment
of property, record keeping, maintenance of rural roads, administration
of elections and judicial functions, and poor relief. In the last few
decades, counties have moved into other areas, undertaking programs
relating to more comprehensive public health programs, child welfare,
consumer protection, economic development, training for employment,
planning and zoning, and water quality, to name just a few. Counties use
census data to determine who they are and who they are becoming. In this
rapidly changing world, trying to meet the needs of all segments of the
population without accurate information is impossible. No other source
of data can provide the information that is so vital to accurate
budgetary and programmatic planning.

As many people in this country found out in 2000, counties conduct
elections for local, state and federal offices. Many of these counties
must comply with Section 5 of the Voting Rights Act which requires them
to provide language assistance to voters. Data from both the 2010 Census
and the American Community Survey will be used for this purpose.

Census information is essential to these and other charges of county
government. The list below provides examples of county activities that
make intense use of census data.

-   Reapportionment at the federal level

-   Drawing federal, state, county, city and other district lines

-   Drawing school district boundaries

-   Land use planning

-   Urban and rural planning and development

-   Analyzing labor supply

-   Forecasting housing needs

-   Understanding changing community demographics

-   Targeting program funds

-   Targeting services for children and adults who speak other languages

-   Forecasting future state and local transportation needs

-   Planning for local mass transit

-   Developing special programs for low income families

-   Locating special needs populations

-   Establishing emergency management programs and priorities

-   Planning for hospitals, nursing homes, clinics and other health
    services

-   Planning services for people with disabilities

-   Developing public safety plans

-   Understanding consumer needs

-   Developing and attracting new businesses

-   Distribution of state and federal funds

Reporting at the block, tract, county and state levels facilitates
county decision making. Increasingly, county governments are also
turning to benchmarking or outcomes-based assessments of local
government programs. Many of the data elements that will be collected in
the 2010 census, gender, race, ethnic origin, relationship and tenure
are used by governments to plan. These are among the many categories of
data that are critical in exercises to assess government performance and
fairness. In addition, the census has, over the years, developed
innovative data series, digital files and reports that allow for
sophisticated modeling. Whether focused on general outcomes or specific
planning challenges, data complied in the decennial census is crucial
for quality policy analysis.

## Lessons from the 2000 Census

The implementation of numerous strategies that successfully increased
the response rate for the 2000 Census should be replicated. Among these
strategies was the partnership and outreach program. The diligence shown
by Census Bureau staff which encouraged and persuaded many interested
groups and organizations to sign on as partners was a testament to what
can be done. The formal recognition of the partnership also helped to
bring the importance of the coming census to the forefront.

Another, and arguably the most effective strategy, was the advertising
program. The wide ranging messages that appeared in print ads,
television ads and radio ads hit the mark. In language communications
that targeted special populations with messages that resonated were
highly effective. The more humorous ads got the attention of many young
people. A mistake made by the Census Bureau and Young and Rubicam, lead
contractors for the 2000 advertising campaign, was the use of actors for
many of the PSAs. This prevented the multiple uses of many of the videos
and other media presentations because of potential royalty payments. If
stakeholders, partners, advisory group members and others had been able
to use these media presentations at their conferences, at the complete
count committee meetings and to share with their members, the
effectiveness of the expenditures by the Census Bureau for the
advertising program would have been increased tenfold.

Another successful aspect of the advertising program was the vetting and
focus groups. By providing an opportunity for advisory committee members
and others to participate in the preview and review of potential
advertising items, some costly mistakes were avoided.

Census in the Schools is another strategy that can be very effective.
The nation is recycling today because of the introduction of the concept
through school children who carried the process home. However, a
criticism lodged prior to the 2000 Census and one to be cognizant of for
2010 is timing. The world does not function on the Census Bureau
schedule. Federal funding constraints not withstanding, where possible,
the Census Bureau should try to work within the timelines of people and
groups that can help them succeed. In 2000, the Census in the Schools
program was launched too late for many school systems to effectively
integrate the wonderful activities into their curriculums, which are
frequently planned nearly a year in advance. The effectiveness of this
program was all but neutered by this misstep.

Complete Count Committees also were very effective. Many counties and
cities across the nation established these committees, with local
funding and locally appointed leaders and representatives who were
responsible for getting the census message out. In addition to
impressing upon their local residents the importance of being counted,
in many cases they were able to outline the importance of an accurate
count to their own communities.

Timing, as mentioned above, is of the utmost importance. Census
memorabilia was made available almost upon request, with pencils,
posters and other handouts freely available to organized groups who held
census rallies or programs. The handouts became so commonplace that they
were almost overlooked at the most important time. But, what time is the
best time for the push? In an era of tighter funding, it may be
reasonable and necessary to make these handout materials available at a
time that is closer to the actual event. Even though the Census Bureau
is in 2010 mode now and is ramping up for the Big Day, it is still more
than two years away. The aim of all Census 2010 outreach activities
should be to have people respond on Census Day.

Use of the Advisory Committees is important. Each of the members of the
Advisory Committees brings unique knowledge about their constituency,
their special needs, how to reach them and what is the best time to
involve them in the process of the Census. Frequently, simple requests,
such as the best time to mail out a letter to local governments, have
been ignored by Census staff in furtherance of their own timelines, even
though these recommendations may have increased response.

Hiring the right people at the Local Census Offices is also a very
important and effective strategy. As requested prior to the 2000 Census
and again for 2010, a waiver of the citizenship requirement for
temporary census employees allows local offices to hire individuals who
can provide entry into communities that are difficult to count. The
Advisory Committees also requested that INS raids be stopped during the
immediate period before and after Census Day.

Participation in the Local Update of Census Addresses Program is the
most important thing a county can do. This is the one opportunity that
counties, especially those experiencing rapid growth, may have to assure
that every household in their jurisdiction receives a census form in the
mail. During the 2000 Census, many local governments were ill equipped
to respond in a timely way to the request for this information. Plans in
place for 2010 are attempting to rectify this problem.

## Implementing the 2010 census

In the initial stages of the ramp up for 2010, it is important not to
make the same mistakes made in the past. County governments are willing
to participate and do what they can to help get the count, but they,
like the federal government, are facing budgetary challenges.

The major challenge facing county governments who want accurate counts
in 2010 is the changing demographics they are facing. In many instances,
there are antagonistic relationships between county officials and newly
arrived immigrants, just at a time when counties should be reaching out
to encourage them to participate in the census. The importance of in
language census information for 2010 had increased significantly since
2000. Not only is in language information more important than ever, but
developing the right message about participation is also vital.

Outreach needs to start now. Involving as many counties as possible in
the LUCA program and getting them engaged in the process is vitally
important. Many smaller counties that have not participated in the past
have been experiencing new and diverse growth at a rate greater than
larger counties. Their participation, with the help of the three
different options available for 2010, is integral to a successful
census. Mailing out the invitation letter in early August was a mistake.
Although this was the date on the Census Bureau timeline, it did not
coincide with a time that was best for local governments. Although this
was pointed out by several people on the Advisory Committee it went out
just the same.

Outreach also needs to start to members of the community through the
Partnership Program. Hiring partnership specialists and getting them to
work as soon as possible will encourage others to start being aware of
the census. As in 2000, some state governments actually provided funding
for the census and many of them, as well as many local governments, will
begin planning for their FY2009 budgets in January. In order to get the
2010 Census on their radar screens and to encourage them to allocate
funding to assist with promotion and technical assistance outreach
efforts need to start as soon as possible.

Since the 2010 Census will be a short form only census, this is a one
time opportunity to encourage participation because it's short and
quick. However, many people, not just recent arrivals, are not in the
mood to share anything about themselves with the federal government.
With the continuing invasions of privacy, restrictions and inspections
for air travelers and just an overall feeling of violation, many people
may feel unsure about completing the census form. The Census Bureau may
have a daunting task of just replicating the count from 2000 in 2010.

The advertising program planned for 2010 will hopefully not repeat the
mistakes of the past. As mentioned earlier, the leveraging of the Census
dollars spent could have been tremendous if outside organizations,
interest groups, local governments and others had been able to use the
PSAs. Local government cable television channels could have been used
for ad placements by governments at no cost. These considerations must
be taken into account as the program for 2010 is being developed.

The prospect of the handheld computes for field representatives opens a
new avenue of accuracy. If properly used, with sufficient training,
these should also dramatically increase efficiency.

## How Counties Can Help

County governments are in a unique position to assist with the 2010
Census effort since nearly every person in the nation resides in a
county. Counties can make space available for census activities. They
can also meet with the people responsible for partnership and outreach
activities and identify the key people for the various hard to count
segments of their population. Often they can provide a county employee
such as a social worker, police officer of sheriff's deputy, or parks
and recreation specialist who can help gain entry to and has the
confidence of special populations. In addition, they can personalize for
their county residents what an accurate count can mean for the
community.

Counties can also establish Complete Count Committees (or whatever they
will be called this time) and budget funds for outreach efforts that can
complement those of the Census Bureau. Most counties have websites or
some type of citizen newsletter that can carry print ads at a time
closer to Census Day as a reminder of the importance of participation.
Others have county fairs and special events that occur throughout the
year that can be used as an opportunity to promote Census Day.

In addition, counties, with appropriate lead time and information, can
participate in all of the Census Bureau's programs that will help get a
census form to every household. This will go a long way to helping get
the count out.

County governments can also provide information and advice about things
that the Census Bureau is planning and the potential effectiveness of
these activities.

## 

## 

## About NACo 

The National Association of Counties (NACo) is the only national
organization that represents county governments in the United States.
Founded in 1935, NACo provides essential services to the nation's 3,066
counties. NACo advances issues with a unified voice before the federal
government, improves the public\'s understanding of county government,
assists counties in finding and sharing innovative solutions through
education and research, and provides value-added services to save
counties and taxpayers money. For more information about NACo, visit
[[www.naco.org]{.underline}](http://www.naco.org/).

For additional information contact:

Jacqueline Byers

Director of Research and Outreach

National Association of Counties

25 Massachusetts Ave, NW, 5^th^ Floor

Washington, DC 20001

<jbyers@naco.org>