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Appendix C. NORS Dataset-Level Documentation 

The Administration for Community Living (ACL) administers formula grants to states/territories under 

Title VII of the Older Americans Act (OAA). These grants fund state long-term care Ombudsman 

programs, which are responsible for identifying, investigating, and resolving complaints made by or on 

behalf of residents of nursing homes, board and care homes, assisted living facilities, and similar adult 

care facilities. These programs also work to bring about changes at the local, state, and national levels to 

improve long-term care.

Each year, all OAA Title VII grantees submit an annual performance report (APR) to ACL. The report

includes data about resident cases and complaints, priority long-term systems issues identified by the 

program, organizational structure of the program and any conflicts of interest, long-term care facilities, 

program staff and volunteers, funding, and program activities. These data comprise the National 

Ombudsman Reporting System (NORS) dataset, one of many administrative and survey data collections 

on aging and disability programs overseen and managed by ACL. 

The purpose of this appendix is to provide NORS dataset-level documentation as a resource and 

reference during the development of the data structure that connects ACL datasets and the future 

platform through which end users will access ACL data. The NORS dataset-level documentation includes 

an overview of the APR data collection and methodology, changes to the data collection over time, 

information management systems, data review and processing, key variables, and additional notes and 

resources. Additionally, NORS variable-level documentation is provided in the Excel Workbook entitled

ACL DR II – Variable Level Documentation.xlsx, which includes information on all variables from all 

datasets considered in the ACL DR II project.

Overview of NORS APR Data Collection and Methodology 

The purpose of the NORS APR data collection is to help track and evaluate program performance, 

understand long-term care resident experiences and problems, and capture changes in long-term 

services and support, policies, and practices. These data are used, in part, to measure program outputs 

(e.g., number of complaints, number of Ombudsman consultations) and assess performance against

program outcome measures (e.g., decrease the number of complaints not resolved to the satisfaction of 

the resident).

The NORS APR used for federal fiscal year (FFY) 2020 consists of 91 items1 and is organized into nine

major sections: Cases and Complaints, Complaint Examples, Systems Issues, Organizational Structure, 

Staff and Volunteers, Organizational Conflicts of Interest, Funds Expended, Facility, and Program 

Activities. Table 1 below provides further details on each section:

Table 1: NORS APR

Section of APR Number of Items Type(s) of Data Collected

Cases and Complaints 13 Numeric

Complaint Examples 6 Numeric, Text

Systems Issues 9 Numeric, Text

Organizational Structure 4 Numeric

1 This is the minimum number of items, including optional items.
2

Section of APR Number of Items Type(s) of Data Collected

Staff and Volunteers 10 Numeric

Organizational Conflicts of Interest 4 Numeric, Text

Funds Expended 14 Numeric, Text

Facility 8 Numeric, Text

Program Activities 23 Numeric, Text

The NORS APR is an annual administrative data collection. All grantees are required to submit data

covering an annual reporting period of October 1 to September 30. OAA Title VII grantees have until 

January 31 of the following calendar year to prepare and submit the data to ACL. Then ACL staff conduct 

reviews, request any corrections, and typically certify the complete grantee APR data by March 31.

Additional resources that provide detailed explanation of the NORS APR are listed and described in

Table 2 below. Older Americans Act Performance System (OAAPS) files can be downloaded from the 

following website: https://oaaps.acl.gov/app/Resources/refMaterials. File names and versions may 

change.

Table 2: Additional Resources – NORS APR

File Name Description Location

ResTechDoc_VIITbl1CaseLevels.pdf Provides the codes, definitions, 

examples, and reporting tips for case 

data requirements

OAAPS

ResTechDoc_VIITbl2ComplaintCodes.pdf Provides the codes, definitions, 

examples, and reporting tips for 

complaint codes

OAAPS

ResTechDoc_VIITbl3PrgInfo.pdf Provides the codes, definitions, 

examples, and reporting tips for 

statewide program information and 

activities

OAAPS

ACL_Title_VII_Data_Validations.pdf Describes the business rules enforced for 

each variable and when the validations 

take place

OAAPS

Major Changes in NORS APR Data Collection and Availability, 2010–2020 

Annual NORS APR data are available for public access from the AGing, Independence, and Disability 

(AGID) Program Data Portal (https://agid.acl.gov/) for the years 2000 to 2018.

2 The APR data collection 

form was essentially the same during this time period but transitioned from the so-called legacy APR to 

a new form, the current APR, in FFY 2020. Beginning with the reporting period of October 1, 2019, to 

September 31, 2020, all grantees recorded their NORS data using the current APR form. ACL data 

restructuring efforts will use the NORS APR data formatted according to the current APR.

2 The ACL DR II project will be conducted from September 25, 2019 to September 24, 2021. The project 

incorporates NORS APR data for 2010 to 2018; 2019 data were released on December 2, 2020; 2020 data will be 

available in spring 2021.
3

Additional resources that provide detailed explanation of the legacy to current NORS APR revisions are 

listed and described in Table 3 below.

Table 3: Additional Resources – Legacy to Current NORS APR Revisions 

File Name Description Location

ResTechDoc_VIICrosswalkANorsOverview.pdf Crosswalk of NORS legacy APR to 

current APR

OAAPS

ResTechDoc_VIICrosswalkBComplaintCodes.pdf Crosswalk of NORS legacy APR 

complaint codes to current APR 

complaint codes

OAAPS

ACL DR II – Crosswalk Review.xlsx Review and comment on crosswalk and 

revisions from legacy APR to current 

APR for OAA Title III, VI, and VII

ACL DR II 

Project 

Files

ResTechDoc_VIIIntroNorsRevs.pdf Lists variables and describes shift from 

aggregated (legacy approach) to caselevel (current/revised approach) data 

collection for NORS case and complaint 

data.

OAAPS

Note: OAAPS files can be downloaded from the following website: 

https://oaaps.acl.gov/app/Resources/refMaterials. File names and versions may change.

Description of NORS APR Data Submission, Information Management System, and Final 

Datafiles 

Historically, grantees have submitted NORS APR data to ACL through the Ombudsman Reporting Tool. 

As the NORS APR shifts from the legacy to the current version, the information management system for 

NORS APR data is also changing. The replacement system, called OAAPS, is the new data submission 

portal for OAA Title III, Title VI, and Title VII grantees to report annual performance data. Additionally, 

OAAPS offers a range of tools and features that support data processes, including validating data 

submissions, checking and highlighting year-to-year variances, reviewing and approving data 

submissions, exporting data, and producing analysis reports.

The current APR for NORS went into effect on October 1, 2019, for the FFY 2020 reporting period. 

OAAPS is open for use by Ombudsman programs. State Ombudsman program submissions are a 

combination of required data uploads of cases and complaints, optional data uploads of numeric 

program activities, and narrative manual entry. Ombudsman programs upload datafiles that match the 

prescribed OAAPS templates, in a valid file format (CSV, XLSX, XML).

All legacy APR data for NORS since 2009 have been formatted according to the current APR and loaded 

into OAAPS. Single-year and multiyear NORS APR datafiles can be exported from OAAPS into Microsoft 

Excel. These OAAPS-formatted datafiles contain 11 variables. Each variable is listed and described in 

Table 4 below, which also includes an indication of which variables can be used together to uniquely 

identify records or serve as keys for relating NORS data with other datasets. 
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Table 4: NORS APR Datafile Variable List

Variable Name Unique ID/Key Description

FiscalYear Yes Fiscal year of the NORS APR, used to determine the time

period represented in the variable

GeoID3 Yes Geographic identifier, used to determine the geographic 

area represented in the variable (Grantee Entity, State, 

Census Division, ACL Region, Census Region, or National)

Component No Short title for section of the NORS APR containing the 

variable

ACLRefNumber Yes Combination letter and numeric code to uniquely identify 

the NORS APR item corresponding to the variable

SectionName No Long title for section of the NORS APR containing the 

variable

Field No Short title for variable

FieldLabel No Long title for variable

Type No Format type for variable (numeric, currency, or text)

NumericValue No Value of variable, if numeric formatted

CurrencyValue No Value of variable, if currency formatted

NonNumericValue No Value of variable, if text formatted

Additional resources that provide detailed explanation of OAAPS, including tools, features, and OAAPS 

formatted NORS, data are listed and described in Table 5 below.

Table 5: Additional NORS APR Resources – OAAPS

File Name Description Location

ACL_Title_VII_Sample_CC_Guide.pdf Explains how to use an approved upload 

template to submit cases and complaints data 

into OAAPS

OAAPS

ACL_Title_VII_Non_CC_Sample_Guide.pdf Explains how to use an approved upload 

template to submit non cases and complaints 

data in OAAPS

OAAPS

OAAPS_Title_VII_User_Guide.pdf Provides comprehensive information and 

instructions on OAAPS system, including user 

management, data reporting and submission, 

data review, and analysis reports

OAAPS

Note: OAAPS files can be downloaded from the following website: 

https://oaaps.acl.gov/app/Resources/refMaterials. File names and versions may change.

Feasibility and Validity of Merging NORS APR Data 

NORS APR data can be validly merged within each year, across years, and across some datasets.

3 Not available from OAAPS formatted datafiles. Constructed in the ACL Data Restructuring project to test technical 

and conceptual linkages within and across datasets. Based on GeoID variable in constructed files uploaded to AGID. 

Replaces the Org variable produced by OAAPS.
5

Feasibility of Merging NORS APR Data Within Each Year 

OAAPS formatting provides all NORS APR data within a single datafile. The data are not organized into 

separate datafiles that would require merging within each year. 

Feasibility of Merging NORS APR Data Across Years

OAAPS formatting allows for all years of NORS APR data to be appended together. Single-year and 

multiyear datafiles can be downloaded from OAAPS into Microsoft Excel. The constructed GeoID 

variable includes all states/territories and can be used with the FiscalYear variable to validly link grantee 

data over time. 

Feasibility of Merging NORS APR Data Across Datasets

The NORS APR data can technically link4 with other datasets at the state/territory geographic level. It is 

also valid to aggregate the data to technically link with other ACL and U.S. Census Bureau datasets at the 

following geographic levels: Census Division, ACL Region, Census Region, and National. 

Additionally, the NORS dataset includes information that can be conceptually linked5 with SPR and Title 

VI. For more detailed information on available conceptual linkages, please see the resources listed and 

described in Table 6 below.

Table 6: Additional Resources – NORS Conceptual Linkages

File Name Description Location

ACL DR II – Aligning Measures 

Spreadsheets.xlsx

The SPR-NORS worksheet lists and 

describes conceptual linkages between 

NORS and SPR.

ACL DR II 

Project 

Files

ACL DR II – Aligning Measures 

Spreadsheets.xlsx

The Title VI-NORS worksheet lists and 

describes conceptual linkages between 

NORS and Title VI.

ACL DR II 

Project 

Files

Note: OAAPS files can be downloaded from the following website: 

https://oaaps.acl.gov/app/Resources/refMaterials. File names and versions may change. 

Schema for NORS Dataset 

The NORS schema in Error! Reference source not found. 7 below shows the datafile structure for NORS 

APR datafiles exported from OAAPS. The NORS schema shows the available variables for NORS APR data. 

Key variables are bolded to signify that they are used to technically link NORS APR data to other datasets 

(i.e., on the basis of geography, using 1.1 GeoID, and of time, using 1.2 Year). For convenience, the 

variables needed for technical linkages are listed first in the NORS schema, followed by other variables 

found in the dataset. Each dataset and each variable included in the ACL DR II project is assigned a 

number. The purpose of numbering each dataset and variable is to help to account for all the datasets 

and variables to be included in the database for cross-dataset analysis. The order and the magnitude of 

4 Technical linkages exist between data that match across datasets on the basis of time and geography. A data user 

might be interested, for example, in using technical linkages to produce a report about all OAA programs and 

services in their state using the most recently available year of data.

5 Conceptual linkages exist between data that match on the basis of time and geography but also on the basis of 

subject area and measurement (e.g., variable definition, variable category, method of data collection). A data user 

might be interested, for example, in using conceptual linkages between common variables in NORS and Title VI to 

examine staffing (e.g., total count of full-time and part-time staff paid using grant funds).
6

the numbering does not have any meaning. The numbering is used only to track all datasets and 

variables and can easily scale to include additional datasets and variables that may be added in the 

future. Table 6 above provides a description of each NORS variable. 

Table 7 presents conceptual linkages between NORS APR data and other datasets that match on the 

basis of geography and time as well as on the basis of subject area and measurement. Broad subject 

areas are listed in the Topic column, while datasets in which these conceptual linkages can be made with 

NORS APR data are listed in the Dataset(s) column. Specific subtopics in NORS APR data that 

conceptually link with other datasets are shown as bulleted lists under each main topic, when available. 

These subtopics provide an additional level of detail not shown in Exhibit 3: Overall Schema of the ACL 

DR II project final report entitled ACL DR II - Final Report 9-20-2021.docx.

Table 7 is designed to provide a quick view of the conceptual linkages between NORS APR data and 

other datasets. For detailed information on conceptual linkages between NORS APR data and other 

datasets, refer to the resources listed in Table 6: Additional Resources – NORS Conceptual Linkages. 

Table 7: NORS Schema 

Topic Dataset(s)

Total Expenditures

- Total Expenditures SPR, Title VI

Additional Notes, Considerations, and Key Resources for NORS 

For further information on the OAA Title VII grant program and NORS APR data, refer to these resources:

• Long-Term Care Ombudsman Program: https://acl.gov/programs/Protecting-Rights-andPreventing-Abuse/Long-term-Care-Ombudsman-Program

3.0 NORS

3.1 GeoID

3.2 Year

3.3 Org 

3.4 Component 

3.5 ACLRefNumber 

3.6 SectionName 

3.7 Field 

3.8 FieldLabel

3.9 Type

3.10 NumericValue

3.11 CurrencyValue 

3.12 NonNumericValue
2

• The National Long-Term Care Ombudsman Resource Center: https://ltcombudsman.org/

• AGing, Independence, and Disability (AGID) Program Data Portal: https://agid.acl.gov/