Hu-.iterL c~^ c.

S. HRG. 99-314

ENUMERATION OF UNDOCUMENTED ALIENS IN THE

DECENNIAL CENSUS

HEARING

BEFORE THE

SUBCOMMITTEE ON ENERGY, NUCLEAR

PROLIFERATION, AND GOVERNMENT PROCESSES

OF THE

COMMITTEE ON

GOVERNMENTAL AFFAIRS

UNITED STATES SENATE

NINETY-NINTH CONGRESS

FIRST SESSION

SEPTEMBER 18, 1985

Printed for the use of the Committee on Governmental Affairs

54-218 O

U.S. GOVERNMENT PRINTING OFFICE

WASHINGTON I 1985
COMMITTEE ON GOVERNMENTAL AFFAIRS

WILLIAM V. ROTH, JR., Delaware, Chairman

TED STEVENS, Alaska THOMAS F. EAGLETON, Missouri

CHARLES McC. MATHIAS, JR., Maryland LAWTON CHILES, Florida

WILLIAM S. COHEN, Maine SAM NUNN, Georgia

DAVE DURENBERGER, Minnesota JOHN GLENN, Ohio

WARREN B. RUDMAN, New Hampshire CARL LEVIN, Michigan

THAD COCHRAN, Mississippi ALBERT GORE, JR., Tennessee

JOHN M. DUNCAN, Staff Director

MARGARET P. CRENSHAW, Minority Staff Director

SUBCOMMITTEE ON ENERGY, NUCLEAR PROLIFERATION, AND GOVERNMENT PROCESSES

THAD COCHRAN, Mississippi, Chairman

WILLIAM S. COHEN, Maine JOHN GLENN, Ohio

JAMES H. LOFTON, Staff Director

JUNE L. WALTON, Chief Counsel

LEONARD WEISS, Minority Staff Director

CHRISTINA WEST, Chief Clerk

(ID
I

•C67* 9

CONTENTS 4pf-A Opening statements: Page

» Senator Cochran 1

Senator Glenn 2

WITNESSES

SEPTEMBER 18, 1985

Doris Meissner, Executive Associate Commissioner, Immigration and Naturalization Service, accompanied by Robert Warren, Acting Director for Statistical Analysis 3

John Keane, Director, Bureau of the Census, accompanied by Peter Bounpane, Assistant Director for Demographic Censuses, and Jeff Passel, chief,

population analysis staff 13

John Noonan, professor, University of California School of Law 33

ALPHABETICAL LIST OF WITNESSES

Bounpane, Peter: Testimony 13

Keane, John:

Testimony 13

Prepared statement 19

Meissner, Doris:

Testimony 3

Prepared statement 8

Noonan, John:

Testimony 33

Prepared statement 38

Passel, Jeff: Testimony 13

Warren, Robert: Testimony 3

ADDITIONAL MATERIAL SUBMITTED FOR THE RECORD

Statement of Roger Conner, executive director, Federation for American

Immigration Reform [FAIR] 53

"Analysis of Procedures the Census Bureau Could Use Regarding Counting

Undocumented Aliens in the 1990 Census," by Daniel Melnick, Congressional Research Service, September 17, 1985 64

"Adjusting the State Populations Used for Reapportionment to Account for

Aliens,' by David C. Huckabee, Congressional Research Service, August 3,

1984 69

(in)

ENUMERATION OF UNDOCUMENTED ALIENS IN

THE DECENNIAL CENSUS

WEDNESDAY, SEPTEMBER 18, 1985

U.S. SENATE,

SUBCOMMITTEE ON ENERGY, NUCLEAR

PROLIFERATION AND GOVERNMENT PROCESSES,

COMMITTEE ON GOVERNMENTAL AFFAIRS,

Washington, DC.

The subcommittee met at 2:06 p.m., in room SD-342, Dirksen

Senate Office Building, Hon. Thad Cochran (chairman of the subcommittee) presiding.

Present: Senator Cochran.

OPENING STATEMENT OF SENATOR COCHRAN

Senator COCHRAN. The subcommittee will please come to order. I

want to welcome you all here today for our hearing. This hearing

is on the enumeration of undocumented aliens in the decennial

census.

It is our intention to examine the practice of enumerating undocumented aliens and the legal history and requirements for enumeration, as well as legal alternatives.

The Constitution requires the apportionment of the House of

Representatives among the States according to their respective

numbers and establishes the decennial census to be carried out in

such a manner as Congress directs. The Bureau of the Census has

the responsibility of conducting the census and has made special efforts to ensure that an accurate and complete accounting of the

Nation's population is accomplished.

This accounting has included undocumented aliens who are

present in the United States.

I want to commend the Bureau of the Census for its diligence

and commitment to fulfilling its responsibilities. But frankly, I am

concerned about the fact that the U.S. House of Representatives is

apportioned on the basis of an accounting of our population which

includes persons who are not citizens, who don't have a right to

vote.

I think it is important that we understand fully what the census

practices are with respect to illegal aliens, persons who are not citizens, and what impact their inclusion in the decennial census has

on the allocation of U.S. Representatives among the States.

No one really knows how many illegal aliens there are in the

United States, but most agree that the number is large and increasing. Estimates have ranged from 2 to 12 million.

(l)
In the 1980 report to the Select Commission on Immigration and

Refugee Policy, the Census Bureau estimated that in 1978, there

were between 3 and 6 million illegal immigrants in the United

States, with a growth rate of 250,000 to 500,000 per year.

Most recently, the Bureau has estimated that it counted over 2

million illegal immigrants in the 1980 census. That figure is only

slightly less than the total population of the entire State of Mississippi, just as an aside.

Illegal immigration is a very important social issue confronting

our country, and as everyone knows, we are working today to wrap

up legislation to finalize our action on legislation reported out of

the Judiciary Committee for immigration reform.

Whether our Constitution and laws require the enumeration and

representation of undocumented aliens is a question that requires

our careful examination.

So that we may obtain a better understanding of the facts and

legalities surrounding the issue, we have invited representatives of

the Immigration and Naturalization Service, the Bureau of the

Census, and one of the country's legal scholars to present testimony to this hearing.

We have with us Executive Associate Commissioner Doris

Meissner of the Immigration and Naturalization Service; Robert

Warren, Acting Director of Statistical Analysis, who will assist us

at the hearing; and Dr. Jack Keane, Director of the Census Bureau,

Peter Bounpane, Assistant Director for Demographic Censuses and

Jeff Passel are here to explain enumeration procedures. Prof. John

Noonan of the University of California, Berkeley, will discuss the

legal side of the issue.

At this point in the record I would like to insert a statement by

Senator Glenn, who was unable to be here today.

[Senator Glenn's statement follows:]

OPENING STATEMENT OF SENATOR JOHN GLENN

Mr. Chairman. I wish to express my appreciation for the work you and your staff

have done in beginning to focus on the complex issue of counting undocumented

aliens in the Decennial Census.

I am familiar with this subject because it came up in hearings I conducted as

chairman of this subcommittee some 5 years ago pertaining to the results of the

1980 Census. At that time, of course, the primary problem concerned "undercounts",

but we did touch on the issue of enumeration of illegal aliens.

The decision of whether to count or not count undocumented aliens is one ripe

with controversy. It touches on fundamental Constitutional issues. Of particular interest to me, and certainly to my colleagues, are the political impacts such as reapportionment and redistricting, plus the principle of "one man, one vote". As I've indicated before, some States obviously benefit when Congressional apportionment is

determined on the basis of total population count, illegal aliens included, while

other States claim this results in an imbalance in Congressional representation.

I think anytime we deal with fundamental Constitutional issues, we must tread

delicately. There has been an on-going debate over the constitutionality of any legislative provision affecting the counting of illegal aliens and this issue remains far

from settled. However, I am interested to note that one of our witnesses here today,

through precedential Supreme Court decisions, has provided his interpretation that

restrictions on counting undocumented aliens would be constitutionally permissible.

Even if one assumes that these constitutional issues can be overcome, a far more

pragmatic problem has to be dealt with. That is essentially the mechanics of operational and managerial procedures available to implement and enforce any such

provision. I have a preliminary analysis from the Congressional Research Service

made at my request which outlines possible operational approaches if it were decid-
3

ed to exclude undocumented aliens from the Census count.1The CRS report suggests three possible alternatives:

1. Exclude undocumented aliens from the census count by placing a notice on the

questionnaire asking them not to complete it and instructing census workers not to

include persons found to be undocumented aliens.

2. Include undocumented aliens in the census count but add a question that required them to identify themselves. Subsequently, remove them from the count used

for the apportionment.

3. Do not change the field procedures but estimate the number of undocumented

aliens counted in the census in each State and subtract that number from the

State's count when apportionment is calculated.

While each of these methods has its distinctive advantages, each has its own inherent disadvantages. Certainly it may be possible to invent a more perfect means

of accomplishing this objective. However, until we have reached that stage, it seems

that each of the currently available methods has significant potential drawbacks.

Finally, during one of my prior hearings on this issue, the then-Director of the

Census Bureau, Mr. Vincent P. Barraba, testified that there was no truly reliable

means or procedure to either estimate the total number of illegal aliens, and further, to exclude those people from the census count itself. That statement was made

in 1980. However, I note that in 1983, the Census Bureau, did, in fact, issue a study

which was prepared by one of the witnesses here today, Mr. Jeff Passel, which broke

down State-by-State those illegal aliens who were included in the 1980 Census. I am

anxious to hear about the specific procedures involved in the compilations of this

report and to find out what new developments occurred in this 3-year interim to

enable the Census Bureau to produce this report.

I look forward to being present with you, Mr. Chairman, to hear the testimony

today on this most important subject.

Senator COCHRAN. I want to welcome the witnesses and express

my appreciation for your being here and for your cooperation with

the subcommittee. We received your statements, which we have reviewed, and for which we thank you very sincerely.

Now, I invite Doris Meissner and Robert Warren to come to the

witness table.

We appreciate your being here and giving us the benefit of your

statement concerning the legal requirements for enumerating illegal aliens. We invite you to present your testimony. You may abbreviate the written remarks. All of your statement will be included at this point in the record as if it had been verbally stated.

Thank you for being here. You may proceed.

TESTIMONY OF DORIS MEISSNER, EXECUTIVE ASSOCIATION

COMMISSIONER, IMMIGRATION AND NATURALIZATION SERVICE, ACCOMPANIED BY ROBERT WARREN, ACTING DIRECTOR

FOR STATISTICAL ANALYSIS

Mrs. MEISSNER. Thank you, Senator Cochran. On behalf of the

Immigration and Naturalization Service, we are pleased to appear

at this hearing, and in line with your suggestion, would ask that

our testimony be admitted into the record, and I will briefly summarize.

I am accompanied by Robert Warren, who is, as you mentioned,

the Acting Chief of our Statistical Analysis Branch and who will

assist in answering questions as you ask them.

Our testimony addresses the history of and the current scope of

illegal immigration into the United States. We are all proud, of

course, of our heritage as a nation of immigrants. We continue to

have an economic allure to people around the world, and the free1 See p. 64.
doms and values that we enjoy are those that are hoped for by

many people in many other countries. That means that we continue to draw people into this country, and we, of course, assume and

hope that this draw will be through legal channels.

We are in a period of very high immigration into the United

States. Immigration into the United States is as high for the last

two decades or so as it was prior to World War I. So, we should be

thinking of ourselves as being in period of time when immigration

is on the upswing and will likely continue to be so.

But accompanying that legal immigration has been a very, very

high incidence of illegal immigration. That, of course, is your concern in this hearing, and that is a very, very critical concern of the

Immigration and Naturalization Service.

We apprehended last year over 1 Vi million people, and that is an

annual figure that has been established during the 1980's and is

likely to continue.

This apprehension total represents activity. It doesn't represent

individuals. Some individuals are apprehended more than once.

Nonetheless, it is a dramatically high number, and it is a number

that we see increasing every year. To give some comparison, 20

years ago, in 1965, we apprehended only 110,000 a year. So that is

really a tenfold increase in 20 years and something that is of serious concern.

It is our view that absent some legislative relief to give more authority to the executive branch to deal with the problem that

brings about illegal immigration, that this increase is simply going

to continue into the foreseeable future.

You, of course, know that as we speak, the Senate is debating the

issue of reform legislation. We want to express our appreciation to

the leadership that the Senate has shown over the past several

years in consistently passing legislation that we believe would help

us. We hope it passes again this time, but in the specific, we hope

that it passes the House so that we can move forward in implementing employer sanctions which, to us, are critical.

Nonetheless, we have a large and illegal immigrant group in the

United States. Our present estimates are that there are 4 to 6 million people in the country here illegally. We break this total into a

"permanent illegal immigration population" or "settlers" of about

3 to 4 million and then a moving group that is referred to as "commuters" or "sojourners" of about 1 to 2 million additional people.

The settler population is growing by about a quarter million a

year, and it is unlikely to stop growing unless some positive actions

are taken that will change it.

The estimates that I have given you are consistent with those

that the Census Bureau has developed, and they are also consistent

with the remarks that you made at the beginning of the hearing.

As far as the Census Bureau and the Immigration Service are

concerned, we have worked very closely together on the issue of

numbers of illegal aliens. It is important to us and to the Census

Bureau to be as precise about this issue as we can be.

For the 1980 census, we shared some important information with

the Census Bureau, which, in retrospect, I think, was very helpful

to them in being able to come up with accurate estimates. We
would be happy to describe that methodology later if you wish to

go into it.

But it is important to say that that cooperation and that kind of

exchange of information is continuing, and we have been participating with the Census Bureau in their planning for the 1990

census.

In addition to the kind of assistance we were able to give for the

1980 census, we will probably be able to be considerably more helpful in the next several years, because our own ability to extract information from our information systems through a very aggressive

automation effort has improved enormously.

We have a number of data bases that have important information in them about the number of immigrants coming into the

country, for instance, the number of people naturalized, that is

those who receive U.S. citizenship, that are important check points

for the Census Bureau to use to evaluate data that they are developing. That kind of cooperation and that kind of exchange of information is going on and will increase as we get closer to the 1990

census.

So let me simply finish by saying that we believe from the point

of view of overall numbers and the extent of the problem that the

only thing that is really going to make any measurable difference

is strong legislative solutions which we hope will be forthcoming

from the Congress quite quickly.

In the interim, however, we are continuing to work with the

Census Bureau and would foresee that cooperation will continue in

the future as they go forward with the 1990 census to enumerate

this population in the most effective fashion.

Thank you.

Senator COCHRAN. Thank you very much, Mrs. Meissner. Of the

3 to 4 million settlers, as you call them, who are in our country

today and who are illegally here, how many do you expect will

become citizens of the United States?

Mrs. MEISSNER. There would be very few who could become citizens unless some kind of a legalization program were enacted. Most

of those people are in an illegal status and will remain in an illegal

status unless there is some legislative relief that would allow them,

through a legalization kind of approach, to gain a legal status.

Some portion of those people will, over time, marry U.S. citizens,

in which case they would have a vehicle to enter the legal system.

Some portion of them will have children in this country, and when

those children grow up and become 21 years of age, the children

having been born here could then confer permanent residence

upon their parents. Additionally, some number could, through the

right kind of job or job situation, perhaps apply under certain sections of the act for legal status. But all of those taken together still,

I think, would add up to quite a small percentage of those actually

entering the legal stream.

Senator COCHRAN. I have forgotten the number of those who

would be affected by the amnesty provision of the bill that we have

on the floor of the Senate today. What is that number, do you

recall? How many would become legally here who are now illegally

here if we enact the bill that is on the floor today?
6

Mrs. MEISSNER. We believe that at most 2 to 2.5 million, would

be eligible to apply with a January 1980 eligibility date.

How many of those actually would apply will only be known by

experience.

Senator COCHRAN. It is not an open-ended thing?

Mrs. MEISSNER. NO, no, because the bill is written such that only

people who enter prior to 1980 and remain would be able to apply,

and a goodly proportion, in fact, the majority of the illegal alien

population probably, as time goes on, entered since 1980.

Senator COCHRAN. There have been discussions from time to time

in the Congress and in the courts about whether or not those who

are citizens should be counted for the purpose of deciding how

many seats in Congress should be allocated among the States.

Has your agency or has the Department, to your knowledge,

taken a position on that one way or the other? I am not aware of

any. I just wonder if you are.

Mrs. MEISSNER. No. We have no position, and I think it is very

unlikely that we would have a position on that issue. Should the

issue come forward in the frame of a lawsuit, then, of course, the

Justice Department would defend the Government's position, but

the Government's position would be developed in an agency other

than the Justice Department.

Senator COCHRAN. There was a suit in 1980, I think, litigating

the issue, and it was dismissed because the person who filed the

suit was said by the court not to have standing in the suit. You

didn't participate or INS didn't participate in that as such? I don't

recall. As a friend of the court or anything, you didn't file a brief

or take a position?

Mrs. MEISSNER. NO, to my knowledge, it never got far enough to

require that.

Senator COCHRAN. I appreciate your being a lead-off witness and

putting in context the numbers that we are dealing with and what

is at issue. I think the Census Bureau witnesses will be able to

answer this question. Let me ask it of you. Do you have any

records that would indicate where these 3 to 4 million or 6 million,

as many as we might have, where they are? In other words, if we

enacted legislation that said that you can't count, for the purpose

of apportioning House seats, illegal aliens, what States would be affected? Do you have that information that you could share with us?

Mrs. MEISSNER. Well, we do. I think Census probably would wish

to elaborate, but it is important to know that the illegal alien population is very disproportionately arranged. Basically, it is California, Texas, Florida, Illinois, and New York which are affected.

Almost half, as far as we know, of this population is in California.

Senator COCHRAN. YOU talked about the growth rate of the illegal aliens, and you put that number at 250,000 per year. What we

are seeing, I guess, then, is that every 2 years, we get enough illegal aliens in the country to entitle a State to another Congressman.

About 500,000 constituents make up a congressional district.

Mrs. MEISSNER. That is a correct extrapolation, but it is not

really a fair representation of what would likely happen, because

of a phenomenon called clustering, which is that illegal aliens go

where legal aliens are. Under the pattern we presently see, the ille-
gal alien population is concentrated in about five States and mostly

in California. These States are where the incremental increases

would likely be in the future, as well.

Senator COCHRAN. YOU have been very helpful to the committee.

We appreciate your being here and Mr. Warren being here to help

us in our examination of this issue. Thank you very much.

Mrs. MEISSNER. Thank you very much.

[Mrs. Meissner's prepared statement follows:]
gqwrtrntnt af |«stire

DORIS MEISSNER

EXECUTIVE ASSOCIATE COMMISSIONER

IMMIGRATION AND NATURALIZATION SERVICE

BEFORE

THE

SUBCOMMITTEE ON ENERGY, NUCLEAR PROLIFERATION,

AND GOVERNMENT PROCESSES

COMMITTEE ON GOVERNMENTAL AFFAIRS

UNITED STATES SENATE

CONCERNING

LEGAL REQUIREMENTS FOR ENUMERATING ILLEGAL ALIENS

SEPTEMBER 18, 1985
Chairman Cochran and members, of the Subcommittee on Energy, Nuclear

Proliferation, and Government Processes

I am pleased to represent Commissioner Nelson in testifying concerning the

history and current scope of the illegal alien problem in this country. I will

also present our views about how this problem can be brought under control

before the 1990 Census. I will be glad to provide whatever information that I

can for your deliberations; however, I am aware that the complex legal and

operational questions surrounding your topic are outside the perview of the

Service. Therefore, my testimony will be brief. Mr. Robert Warren will be

available to provide more detailed statistical information.

The conditions which have led to our present problems in immigration are

neither new nor unusual. The United States has for many years presented an

attractive way of life to people from much of the world. The individual

freedoms of its residents and the opportunity to better one's place in life

have encouraged immigration since the very beginning of our country. Because

of this, we have developed as a nation with all the benefits which people from

every part of the world can enjoy.

The political freedom and economic opportunities available here have also led

to a substantial flow of illegal aliens to this country, and indications are

that the situation has been getting worse for some time, ftgain during the last

fiscal year, the number of illegal aliens apprehended at the border increased.

More than 5 million apprehensions have occurred since the 1980 census was done.

Total apprehensions increased steadily from 110 thousand in 1965 to the present

level of a million and a quarter each year. In the absence of effective new
legislation many more illegal aliens are likely to be in the United states in

1990.

The most widely accepted estimates of the illegal alien population .at the

present time are in the 4 to 6 million range, with permanent residents

accounting for perhaps 3 to 4 million and other illegals estimated at between 1

to 2 million. The Census Bureau recently reported that the number of illegal

residents was growing by nearly a quarter of a million each year in the •aarly

1980's. At that rate, the population will double every 10 years; the problem

will keep growing until positive action is taken to gain control over the entry

and presence of aliens in our country.

Fortunately, a vital piece of legislation that we believe will restore control

over immigration is presently before Congress. S 1200, the Immigration Reform

and Control Act of 1985, is a multi-faceted approach to the variety of

immigration problems that we face in this country. It has the necessary

elements of authority for enhanced enforcement of the law, humanitarian concern

for aliens who have established strong and abiding commitments to the United

States, and provisions whereby the legitimate needs of employers may be met.

Through the placing of sanctions on the knowing hiring of illegal aliens, the

bill addresses one of the primary reasons aliens enter illegally or, after

legal arrival, violate the conditions of their admission. In addition to

effectively stemming the flow of illegal immigration, the bill recognizes the

need to legalize aliens who have resided in our society for several years.

We believe that prompt passage of effective legislation can bring about a

situation by 1990 in which the flow of illegal immigration is curtailed and

those found to be eligible have been legalized. If so, the illegal alien
11

population could be reduced to a level where it would not pose a practical

problem for the 1990 census. On the other hand, failure to enact legislation

and provide the resources to support it will greatly add to future dollar and

societal costs. The question of what to do about the millions of illegal

aliens now included in the census total, although not specifically identified

will be only one of many problems that will grow more acute if we fail to act.

Regardless of the outcome of pending legislation, we will continue tj provide

as much statistical information as possible about immigration to the Census

Bureau and others interested in this important component of our population. In

1980 we provided detailed information about legal aliens and naturalized

citizens that enabled the Bureau to estimate the total number of illeg.'J. aliens

counted in the census. The estimates were done by subtracting estinv-.tes of the

legally resident foreign-bom population (citizens and aliens) from the census

count of the foreign-born. The INS provided the detailed figures for both

citizens and aliens used to estimate the legally resident population.

The INS also has participated in preliminary planning for the 1990 census.

Following sample selection procedures set up by the Census Bureau, our district

offices pulled information from a sample of files for recent immigrants so that

the Bureau could test new methodology for estimating undercount in the 1990

census. Also, a member of the Statistics staff was co-chair of a Federal

subcommittee on planning 1990 census questions on country of birth, citizenship

and year of immigration.

During the next few years we will continue to implement our extensive plans for

automated data processing. The timely and detailed information produced by the

new systems will be useful for evaluating the 1990 census. For example, the

number of immigrants admitted during the five years prior to the census is
12

extremely useful for estimating the number of illegal aliens counted in the

census who entered during the previous S years. Also, the census data for the

number of naturalized citizens for various periods of entry can be evaluated

using INS statistics. In the 1980 census this comparison led to the conclusion

that the Census Bureau's question on citizenship needed to be revised.

Finally, the census count of foreign students ty country of origin and

residence in the U.S. can be compared to the information in the INS' automated

foreign student data base. In addition to making more information available we

will continue to share our insights into the process of immigration and

continue to work with the Census Bureau and othe-. groups interested in the

impact of immigration on our society.

In summary, the United States has demonstrated ir. the past that it can control

its borders when it is determined to do so. During the last twenty years the

pressures to immigrate to this country have exceeded our legal limits, which

are higher than those of any other country in the world.

The illegal alien population grew so rapidly in the 1970's that illegal

immigration became a major problem facing the nation. The population grew so

large that it is estimated that over two million illegal aliens were counted

(although not individually identified) , and millions more probably were not

counted, in the 1980 census. Since 1980 the illegal population has grown at a

rate that would cause it to double in less than 10 years.

The INS will continue to provide information to develop an effective

immigration policy and assist the Census Bureau in preparing for the 1990

census.

If the pending Immigration Reform and Control Act is enacted this year we

should be able to regain control of immigration to this country before the 1990

census. If so, the issue of whether to count illegal aliens in the population

used for apportionment would continue to be a legal question.
13

Senator COCHRAN. Let me now ask the witnesses from the

Bureau of the Census, Dr. John Keane, who is here, to come forward. I will let you introduce those who are with you. We appreciate your being here and helping us understand the issues.

Welcome, Dr. Keane.

TESTIMONY OF JOHN KEANE, DIRECTOR, BUREAU OF THE

CENSUS, ACCOMPANIED BY PETER BOUNPANE, ASSISTANT DIRECTOR FOR DEMOGRAPHIC CENSUSES, AND JEFF PASSEL,

CHIEF, POPULATION ANALYSIS STAFF

Mr. KEANE. Thank you, Mr. Chairman. You have already identified them. I will just say that Mr. Bounpane is on my right and Dr.

Passel is on my left.

We certainly share this committee's interest in the topic. With

your permission, I would like to just give an oral overview.

Senator COCHRAN. Please do. We will include your entire statement in the record at this point.

Mr. KEANE. Let me divide my overview into three areas: The historical perspective; enumeration practices, especially in the 1980

census; and research that the Census Bureau has done to estimate

undocumented aliens in the 1980 census.

Beginning with the historical perspective, the Constitution tells

us to count the whole number of persons, essentially meaning those

resident in the country. The issue, of course, has been debated

within Congress in 1929, 1931, and 1940. One legal opinion of note

is that of the Legislative Counsel's Office of the Senate, and that

opinion concluded: "There is no constitutional authority for the enactment of legislation excluding aliens from enumeration for the

purposes of apportionment of Representatives among the States."

And the courts have taken up the issue. The one that comes most

to mind is fairly recent. In 1979, when the Federation of American

Immigration Reform, commonly known as FAIR, filed a lawsuit

seeking to exclude undocumented aliens from the 1980 apportionment counts, and the three-judge court found, "It•" meaning the

Constitution, "•requires the counting of the whole number of persons for apportionment purposes," and illegal aliens are clearly

persons.

So there we have a constitutional basis, a congressional legislative counsel opinion and a three-judge opinion in a lawsuit.

Going on to the second part of the overview, let me focus on enumeration practices. In connection with the 1980 census, we provided materials in 32 languages, as well as in English, of course, to

facilitate that process. In connection with Spanish, questionnaires

were readily available in that language. We hired enumerators

with foreign language skills to further the effort.

We set up numerous assistance centers geographically dispersed

around the country with printed telephone numbers on the questionnaires where people could be reminded and could get help in

calling.

We convinced the Immigration and Naturalization Service to

curtail its law enforcement activities around census day. We were

also successful in getting numerous people engaged in testimonials

and support from Hispanic leaders and celebrities.
14

Then we hired special enumerators to canvass a variety of places

other than housing units, including migrant camps.

The third part of my overview is the research into the area of

undocumented aliens counted in the 1980 census. Without going

into detail on the research, it was independent of the census. We

used aggregate data sets. The net result of that effort is that we

estimate that in 1980, we counted about 2 million undocumented

aliens.

Just for illustrative purposes and I do not underline the word illustrative, we did an estimate of apportionment, excluding undocumented aliens. Without getting into details the methodology does

have some shortcomings that affect the quality of apportionment

estimates in our judgment. What would have happened is two

States would have lost a seat and two other States would have

gained a seat.

Summarizing, there are severe limitations, in our judgment, to

using those estimates of undocumented aliens at the State level.

One of the shortcomings is simply the reliance on sample data.

Second is that the estimates took a long time to produce. In other

words, we were not able to submit the estimates until 3 years after

the data was due by law.

Finally, Doris Meissner mentioned that there was cooperation

with the Immigration and Naturalization Service, and there surely

was, which we welcomed. One of the aids that the INS gave us was

the use of the alien registration data file. This file was essential in

making our estimates. Unfortunately, such a file no longer exists,

so that the same methodology would be valueless, presumably, in

the future.

On balance, the apportionment formula requires data of acceptable quality for all States, not just a few with the large, undocumented alien populations. We have confronting us methodological

difficulties. We have gaps in necessary data now because, as I mentioned, the INS file would not be available. Very likely, there

would be operational difficulties in the field were we to design and

implement a new methodology after all these years of taking the

census essentially in the same way.

We, therefore, do not believe that these estimates should be used

for apportionment. Thank you.

Senator COCHRAN. Are there statements to be made by any of

your associates?

Mr. KEANE. No.

Senator COCHRAN. Dr. Keane, let me thank you again and express my appreciation for your statement and your cooperation

with our committee.

I notice that one part of your statement includes some research

findings. On page 11 of your prepared statement, you identify the

places of residence for the over 2 million undocumented aliens

which are estimated to be included in the 1980 census. Among

those States listed are California, New York, Texas, Illinois, and

Florida, where 81 percent of all of those undocumented aliens are

said to reside.

Which of those States would end up losing representation in Congress if the 1980 census count separated illegals from citizens?

Mr. KEANE. New York and California.
15

Senator COCHRAN. SO New York would lose one Member of Congress and California would lose one?

Mr. KEANE. Yes, and again I emphasize, if I may, that this was

for illustrative purposes only. We are very uneasy with the data

and the estimates that we had to make.

Senator COCHRAN. Which States, as a matter of curiosity, would

have gained representation in Congress? You mentioned two States

would gain a seat in Congress.

Mr. KEANE. Georgia and Indiana.

Senator COCHRAN. Georgia and Indiana. But it was in Indiana

where they had this litigation, wasn't it, about whether or not undocumented aliens should have been counted for apportionment?

Isn't that where they litigated that?

Mr. KEANE. There is a suit that has since been resolved.

Senator COCHRAN. Oh, I see. They filed a suit and they worked it

out?

Mr. KEANE. If I recall correctly, the evidence was not sufficient

for the judge to, I assume, admit the suit to a further stage.

Would you care to comment?

Mr. BOUNPANE. Senator, if I could clarify that a little, the Indiana suit was not on the issue of illegal aliens. Their suit was on a

different issue, about an aspect of the enumeration when we make

numerous calls to count persons and cannot find them at home.

The question was whether we should use the computer procedures

to count those persons. That issue has been resolved.

Senator COCHRAN. SO they decided a computer was better or

smarter than a person? [Laughter.]

The point is, there would be an impact on the representation of

at least four States, if, in 1980, the law had required the Bureau to

separate its count of illegals from citizens. That is your testimony?

Mr. KEANE. Under certain assumptions. Remember, our estimate

is that we counted approximately 2 million undocumented aliens;

but that is not necessarily our estimate for the number that are in

the country.

Senator COCHRAN. The fact of the matter is, there are more than

that in the country; there are more illegals than 2 million in the

country, especially now, and even in 1980 there probably were; is

that correct?

Mr. KEANE. The research that we have done to date would suggest that in 1980 there were somewhere between 2V2 to 4 million

undocumented aliens.

Senator COCHRAN. You mentioned several problems that would

be encountered if the law required you to make some finding of

numbers of illegals as compared to the numbers of citizens. I heard

all of that. I am sure that there would be problems encountered.

But it is not your testimony that it couldn't be done, is it?

Mr. KEANE. Certainly, at this point, with what we know and can

do, it would be very difficult. I see at least three sets of major difficulties confronting us. One is the one you just alluded to; that is,

we have never asked a question about legal status. How do you do

it? How would you know a person is answering honestly? Does a

person necessarily know if the individual is a legal immigrant or

not? That might seem obvious, but it is not altogether obvious in

all instances.
16

A second category of difficulties besetting us would be legal considerations. We have neither the expertise nor necessarily the responsibility, and perhaps Professor Noonan will elaborate on that.

But at least to us, at this point, it is clear that it causes us to have

reservations.

Finally, perhaps more importantly than the others, because it

could be so risky, is the perceptual problem. Would the Census

Bureau suffer were some kind of an approach such as this invoked?

Would we suffer from perceptual problems? Would we be perceived

perhaps as an enforcement agency? If so, what kind of harmful

ruboff might that have on the amount and quality of cooperation

people would give us in the 1990 census and thereafter?

If we were to breach that enviable level of cooperation which we

get now, how would we recover in 1990? How would we compensate

from their effort? Besides that, what ruboff might it have outside

of the decennial census? After all, we have about 250 surveys annually that we do and 3 other major censuses.

Overall, that is descriptive of why we are so careful and want to

be so cautious in that general area.

Senator COCHRAN. I understand that we are seeing a growth in

the number of illegals; according to the INS testimony, a growth

rate of some 250,000 aliens per year. Do you agree with that estimate of the growth rate of the population of the illegal aliens that

we are witnessing?

Mr. KEANE. That is within our range, although it is on the high

side. Our range for the 3 years 1980 through 1982, is that on the

average the net annual increase would be somewhere between

100,000 and 300,000.

Senator COCHRAN. Assuming that we would have the average

200,000 a year, then over time, that grows into millions, and by the

1990 census, we could have as many as 4 million additional illegal

residents of the United States being counted in that census. Assuming 500,000 persons per Congressman, instead of just two States

gaining a seat in Congress or two States losing a seat in Congress,

we could see many others affected.

Would you agree that it is likely that we could, by 1990, have 4

to 5 million more illegal aliens counted for the purpose of apportioning the House of Representatives?

Mr. KEANE. I would agree that is a possibility. I don't necessarily

think that it would be a likelihood. It depends on what assumptions you make.

Senator COCHRAN. The assumption is that the current growth

rate would continue. Is that an accurate assumption? Is that based

on facts that we do have?

Mr. KEANE. If it were, say, at the low end of our range, 100,000,

as opposed to at the high end, that would make quite a difference

in the number of them over that time. Surely it is, it seems to me,

a reasonable conclusion to come to that if the current rate continues, without pinpointing that for the moment, that there would be

quite a few more, and were we to invoke some kind of a new apportionment system, that there would be some consequential impacts.

Senator COCHRAN. We would have more States affected, would

we not?
17

Mr. KEANE. Well, I don't know. The concentration might continue; as you pointed out, 81 percent in five States. Even within those

States, for instance, Los Angeles County had, according to our research, one-third of all the undocumented aliens in the country.

So the concentrations are geographically high. Unless there were

quite a departure in that pattern, I don't know that so many States

would be affected.

Would you care to elaborate, Mr. Passel.

Mr. PASSEL. The apportionment formula is a funny formula. It is

very sensitive to small numbers, right around the 435th seat. It is

very difficult to predict what States would be affected and how

many.

It is difficult to do that without knowing what the populations

were going to be in 1990. It would have been hard to predict in advance, for instance, the particular States in 1980 would have been

the ones to gain or lose.

If there are more undocumented aliens, it is possible that more

States could be affected. It is also possible that the same or fewer

States could be affected, depending on exactly where the undocumented aliens are and exactly what the populations of all 50 States

are and how they rank out with the apportionment formula. But it

could, indeed, be more. But it could be fewer, as well.

Senator COCHRAN. In a hearing we held earlier this year, we

talked about problems in taking the census in other countries and

how the lack of confidence or support among the population made

it very difficult in some countries to get an accurate counting of

people within the country.

I wonder if, in your dialog and communication with others

around the world, you could tell us, do they count persons who are

inhabitants for the purposes of apportioning seats in Parliament in

Great Britain, or do they count those who can vote?

Mr. BOUNPANE. Senator, I don't think we know the answer to

that. We would be glad to try and find out and submit that to you

for the record.

Senator COCHRAN. Yes, I would like to know, if you know. I guess

I could call them up and ask them. [Laughter.]

I thought maybe you might know. It just occurred to me that I

wonder whether other countries that have representation in a central government count people who are passing through or who are

legally residing there for the purpose of deciding how many representatives should be in the Parliament.

Mr. KEANE. We will take that as an assignment because you

asked and because you pigued my curiosity, too.

Senator COCHRAN. I am curious. It would be interesting to know

the answer to that.

[The information referred to follows:]

There are very few countries that use census data for representation purposes.

England, Wales, and Australia use census figures for representation, but adjust the

figures for underenumeration. Most countries count everyone and ask questions on

citizenship, when did the individual come to the country, where the individual resided five years previously, and whether the individual is in the country as a representative of a foreign government (diplomat) or a member of a foreign military service stationed in the country. In general, other countries do not exclude "illegal" or

sojourner aliens in their census counts.
18

Senator COCHRAN. I appreciate your being here and helping us

look at the issue. I thank you for helping the committee in the way

that you have.

[Mr. Keane's prepared statement follows:]
19

STATEMENT OF THE DIRECTOR OF THE BUREAU OF THE CENSUS

John G. Keane

Before the Subcommittee on Energy, Nuclear Proliferation,

and Government Processes

Committee on Governmental Affairs

U.S. Senate

September 18. 1985

The Census Bureau welcomes this opportunity to discuss the enumeration of

undocumented aliens 1n decennial censuses. I am accompanied by Mr. Peter

Bounpane, the Assistant Director for Demographic Censuses, and Dr. Jeffrey

Passel of the Population Division.

I shall provide a historical perspective on why we include undocumented aliens

In the census, discuss how we enumerate them, and comment on our research to

estimate the number of undocumented aliens counted 1n the 1980 census.

HISTORICAL PERSPECTIVE

The Constitution

Article 1, Section 2, of the Constitution, as amended by the Fourteenth

Amendment, specifically provides that "Representatives shall be apportioned

among the several States according to their respective numbers, counting the

whole number of persons 1n each State, excluding Indians not taxed." The

Constitution gives to the Congress the authority to direct the manner 1n

which the census 1s conducted. The Congress has directed the Secretary of

Commerce to conduct the census and the Secretary has delegated that authority

to the Census Bureau.

Traditional understanding of the Constitution and the legal direction provided

by the Congress has meant that for every census since the first one in 1790,

we have tried to count residents of the country, regardless of their status.
20

It Is the phrase "whole number of persons" that has generally guided decisions

as to who should be included in the census count for apportionment.

From 1790 to the present, Congress has recognized that the total population,

regardless of legal status, was to be Included in the decennial census. The

First Decennial Census Act, adopted 1n 1790, says: "Be it enacted, that

every person whose usual place of abode shall be In any family on the aforesaid

first Monday in August next shall be returned as of such family." Although

the wording varied over the decades, the concept remained the same•to enumerate

all of the inhabitants. The current wording, "the tabulation of the total

population by States," was contained 1n the amendment to Title 13 of the

V

United States Coda passed by Congress on June 18, 1929. The Census Bureau

has never sought to count separately the number of undocumented aliens in

the United States as a discrete group or to differentiate respondents in any

way based on legality of residence in the United States.

Tlie Congrass

The Congress has debated the Inclusion of aliens for apportionment purposes

several times. In 1929, Senator Arthur H. Vandenberg included in the record

a legal opinion provided by the Legislative Counsel's Office of the Senate.

This opinion concluded that "there is no constitutional authority for the

enactment of legislation excluding aliens from enumeration for the purposes

of apportionment of Representatives among the States." This opinion also

says that "persons" as used in the Constitution includes aliens as well as

V

citizens. During the 1931 debates in Congress on the same subject, this

legal opinion was again included in the record of the hearings.

1/ 46 Stat. 21

J7 71 Cong. Rec. pp. 1821-1822 (1929)
21

During a discussion In April 1940 on the floor of the House on the Inclusion

of aliens, the subject of "Illegal" aliens was raised explicitly. Asked whether

"aliens who are in this country in violation of law have the right to be counted

and represented," Congressman Emanuel Celler responded: "The Constitution says

that all persons shall be counted. I cannot quarrel with the founding fathers.

They said that all should be counted. We count the convicts who are just as

dangerous and just as bad as the Communists or as the Nazis, as those aliens

here Illegally, and I would not come here and have the temerity to say that the

convicts shall be excluded, 1f the founding fathers say they shall be included.

3/

The only way we can exclude them would be to pass a constitutional amendment."

The Courts

In 1964, the Supreme Court addressed the requirement that apportionment of the

House of Representatives was to be based on total Inhabitants. "The debates at

the Convention make at least one fact abundantly clear: that when the delegates

agreed that the House should represent 'people' they Intended that 1n allocating

Congressmen the number assigned to each State should be determined solely by

the number of the State's inhabitants. The Constitution embodied Edmund Randolph's

proposal for a periodic census to ensure 'fair representation of the people,' an

Idea endorsed by Mason as assuring that 'number of Inhabitants' should always

be the measure of representation in the House of Representatives."

The most recent review of this Issue occurred In connection with the 1980 census.

In 1979, the Federation for American Immigration Reform (FAIR) filed a lawsuit

3/ 86 Cong. Rec. 4372 (1940)

4/ Wesberry v. Sanders, 376 U.S. 1, 13 (1964).
22

against the Census Bureau seeking to exclude undocumented aliens from the

1980 census apportionment counts. The plaintiffs argued that Including

undocumented aliens 1n the population base for apportionment defeated the purpose

of apportionment, that 1s, equal representation for equal numbers of "people of

the United States."

In defending the Census Bureau, the Government's attorneys argued that the

Constitution requires that all persons be Included. The legal argument centered

on the wording of the Constitution, which specifies persons as the basis for

apportionment, without distingushlng among Inhabitants other than Indians not

taxed and slaves.

The Three-Judge District Court that heard the FAIR case decided the lawsuit

on procedural grounds (lack of standing). However, the court also addressed the

substance of the case. They said: "It [the Constitution] requires the counting

of the 'whole number of persons' for apportionment purposes, and while illegal

aliens were not a component of the population at the time the Constitution

5/

was adopted, they are clearly 'persons'." The appellate court affirmed

the opinion; the Supreme Court denied plaintiffs' request to review the

decision.

ENUMERATION PRACTICES

Census Planning

The Census Bureau discusses Its plans with the Congress before every decennial

census. From May 1974 until January 1980, Congress held 16 hearings on the

plans for the 1980 census. In the September 1976 hearings. Census Bureau

officials testified on the procedures on whom to count and where to count

them. The Census Bureau refers to these procedures as "rules of residence."

5/ D.C.D.C. (1980) 486 F. Supp. 564
23

They have remained virtually unchanged since the 1790 census, that 1s, to count

every person who 1s a resident at his/her usual place of residence. There have

been only small changes in Interpretation, and these changes mainly did not

Involve the "who" but rather the "where." Consistent with the interpretation

of the Constitution and the law, the procedures have always provided that a

citizen of a foreign country living 1n the United States 1s to be enumerated.

In addition, the Census Bureau 1s guided by practical considerations. If

the Census Bureau were directed to enumerate undocumented aliens separately

in order to remove them from the apportionment count, we would run the risk

of being perceived as an enforcement agency. Most likely such a perception

would occur among those respondents who could suffer Injury as a result of

being Identified as undocumented aliens. This, In turn, could have a major

effect on the cooperation we receive, not only from this segment of the

population, but from the population at large. In a free society, we are

entirely dependent upon respondent cooperation. The Census Bureau goes to great

lengths to avoid misperceptions that could adversely affect that cooperation.

We must convince the population that 1t 1s safe to be Included in the census.

For those who are undocumented aliens, we must assure them that we will not turn

their names over to the Immigration and Naturalization Service, and that they

will not be deported as a result of responding to the census.

As a practical matter, the rules for counting people must be kept simple and must

be understood readily by our enumerators. Determining the legal status of aliens

1s not simple at all 1n many Instances, and Involves legal considerations on which
24

the Census Bureau has no expertise and for which responsibilities are given

by law to other Federal agencies.

Another consideration to keep 1n mind 1s that if we are required to exclude

undocumented aliens, we would need to ask additional questions on a 100-percent

basis.

Previous Censuses

The next section describes the Census Bureau's efforts to Improve coverage 1n the

1980 census for all residents, Including undocumented aliens. Here we provide

the background that led up to these efforts.

The Census Bureau has always attempted to count every person residing in each

state or territory on census day. Foreign diplomatic personnel living on embassy

grounds (living on foreign soil and thus not in a state) and foreign tourists

(who do not rsside here) have been excluded as nonresidents. Americans living

overseas are excluded, but those traveling overseas on business or vacation are

Included.

The decennial census population count represents the most precise person-byperson count achievable in this country within existing resources. Contact is

made with every known housing unit Identified by the Census Bureau, either by

mail or in person. Using special procedures and forms, census takers enumerate

individuals who do not live in housing units where they are found. Admittedly,

the census 1s not perfect. Some housing units and people are missed. Each

census, however, tries to achieve a better count than the one before.

Following the 1950, 1960, and 1970 censuses, the Census Bureau prepared, and

announced publicly, estimates of the undercount. The published estimates

of the percent of the population that was missed in 1950, 1960, and 1970 are
25

3.3, 2.7, and 2.5, respectively. While these percentages are relatively

small, the Census Bureau recognized that the estimated undercount was not

uniform for all segments of the population. Some demographic and geographic

segments of the population had undercount rates that substantially exceeded

the rates estimated for other segments. Because of these variations 1n the

undercount rates, the Census Bureau focused considerable attention on minimizing

any differential counting In the 1980 census.

1980 Census•Precensus Activities

For the 1980 census, the Census Bureau developed numerous procedures to Improve

coverage and reduce the undercount. Procedures that were successful 1n the

1970 census for reducing the undercount were extended 1n 1980 to cover more areas.

Innovative techniques, based on successful tests during the decade, were Incorporated Into the 1980 census. In an effort to obtain maximum public cooperation,

the 1980 census also Included the most extensive census promotional/advertising/

public relations campaign we have ever used.

Some special programs were designed specifically for certain racial and ethnic

populations to help reduce any coverage differential between these groups and

the rest of the population. While we undertook programs directed at these groups,

the purpose was to Increase cooperation overall, not just for specific groups

such as undocumented aliens.

These programs apparently were successful in reducing the undercount. Our

research shows that coverage of the 1980 census was significantly Improved

over the 1970 census.

1980 Census Enumeration

During the 1970s, many legal Immigrants from Asia and Latin America came to this

country. It 1s generally assumed that the number of undocumented aliens also
Increased during this period. To aid 1n the enumeration of this diverse

population, we provided census materials 1n languages other than English 1n

the 1980 census. A message 1n Spanish on the regular census questionnaires

Informed Spanish-speak1ng householders that they could obtain a Spanish language

questionnaire either by marking a box on the questionnaire and mailing 1t back or

by telephoning the census district office. Followup enumerators also were given

Spanish-language questionnaires. There were special translations of the questionnaire into 32 other languages to use as respondents required. Whenever possible,

we hired enumerators with language skills to work in selected areas where we knew

a language other than English was routinely spoken. He also set up walk-1n

assistance centers 1n some areas with large numbers of non-English speaking

persons.

To help people who did not understand how to fill out their questionnaires, the

Census Bureau established questionnaire assistance telephone lines and printed

the telephone numbers on the questionnaires.

Because undocumented aliens have particular reasons for wanting to remain

anonymous, the Census Bureau took special steps to convince this group that the

census 1s confidential and that no harm could come to anyone by answering the

census. We successfully convinced the Immigration and Naturalization Service

(INS) to curtail its law enforcement activities around Census Day in most areas

where there were large numbers of undocumented aliens. This was necessary because

INS arrests around census time could have been perceived as a cooperative effort

between INS and the Census Bureau. We also obtained testimonials and support from

Hispanic leaders and celebrities who encouraged undocumented aliens to answer the

census. Although our attempt to get the Conference of Catholic Bishops to publicly

support the census was unsuccessful, many Bishops and local Catholic clergy
27

Individually encouraged their parishioners, many of whom may have been

undocumented aliens, to answer the census.

As mentioned, we also hired enumerators to canvass a variety of places other

than housing units where people reside. Counts were made of people living in

group quarters such as nursing homes, prisons, hospitals, dormitories, fraternity

or sorority houses, halfway houses, and rooming or boarding houses. We also

canvassed hotels and motels, missions, flophouses, bus depots, railway stations

and other places where people were known to spend the night. In major urban

areas, we visited places where transient persons congregate such as employment

offices, pool halls, and street corners.

These special enumerators also enumerated migrant farm camps, where we might

expect some undocumented aliens to reside. Migrant camps included temporary

living quarters for transient agricultural workers (such as pickers, harvesters,

and cultivators) as well as temporary living quarters for persons employed

at logging camps, fisheries, and so forth.

The only significant procedural difference between the 1970 and 1980 censuses

regarding the enumeration of migrant camps concerned those 1n the migrant camp

who listed their usual residence as elsewhere. In 1970, persons living in

migrant camps at the time of the census were not asked about usual residence and

were counted as residents of the area where the camp was located. In 1980,

persons 1n migrant camps were allowed to provide a usual residence other than

the camp. If they did they were counted 1n the census at the place they

called their usual residence. Very few persons In migrant camps listed

another address, so the 1980 process was basically the same as 1970.
28

No specific coverage Improvement program was directed toward undocumented

aliens. Rather all such programs were directed toward Improving the coverage

of all residents of the United States.

UNDOCUMENTED ALIENS COUNTED IN THE 1980 CENSUS

Research Program

The Census Bureau's increased Interest 1n the undocumented alien population

developed primarily as a result of our efforts to measure census coverage

through demographic analysis. This demographic analysis involves constructing

an estimate of the total population of the United States from data sources

essentially independent of the census and then comparing the estimate to the

census count. The components used to estimate the total population are births,

deaths, emigration, and immigration. Including undocumented immigration.

In developing estimates of coverage with demographic analysis, it would have

been preferable to include estimates of the total number of undocumented

aliens residing 1n the United States 1n the independent population estimates.

However, since definitive estimates were not available for the total undocumented

alien population, an alternative procedure had to be considered. The estimated

number of undocumented aliens Included in the census was first estimated and

subtracted from the census count. Thus, undocumented aliens would not be

Included in either the census count or the independent population estimates.

The resulting comparison would produce estimates of census coverage for the

legally resident population in the 1980 census.

Through their research efforts, Census Bureau demographers have estimated

the number of undocumented aliens counted in the 1980 census. The estimates

were not made by attempting to ascertain the legal status of individuals.
29

Rather, they were made by comparison of statistical aggregates. We subtracted

an estimate of aliens residing 1n the country legally, developed primarily with

INS data, from an estimate of all aliens counted in the 1980 census. The

difference between the two 1s assumed to represent undocumented aliens Included

In the 1980 census. Census figures for the alien population come from the

sample phase of the census. The sample questionnaire, distributed to about

19 percent of the population, Included questions on country of birth, citizenship,

and year of immigration.

Before the final estimates could be produced, the data had to be corrected

for known deficiencies 1n the 1980 census figures on aliens enumerated as well

as the INS figures on aliens registered 1n the 1980 Alien Registration Program.

The census data required adjustment for mlsreporting of citizenship status

as naturalized citizens, failure to report country of birth, and mlsreporting

of nativity. The INS data required adjustment for underregistration and had

to be updated to include the aliens entering between the registration period,

January 1980, and Census Day, April 1, 1980.

Research Findings

The Census Bureau research just described led to an estimate of 2,057,000

undocumented aliens counted in the 1980 census. Subsequent work has allowed

us to subdivide the national estimates to provide estimates of undocumented

aliens counted in the 1980 census for each of the SO states and the District

of Columbia. Of the 2,057,000 undocumented aliens estimated to be Included

in the 1980 census, over 80 percent reside in 5 states:

81X

California 1,024,000 (50%)

New York 234,000 (11*)

Texas 186,000 ( 9%)

Illinois 135,000 ( »

Florida 80,000 ( 4»>

54-218 0-85
Of the remaining states, 33 had fewer than 10,000 undocumented aliens in the

1980 census. In many, the number was near zero.

Illustrative Effect on Apportionment and Limitations

For Illustrative purposes, we subtracted these estimates of undocumented

aliens counted In each state from the 1980 census counts of the total population

used for apportionment. We then used the resulting estimate of legal residents

In each state to compute an alternative apportionment.

In considering this alternative apportionment, certain assumptions made 1n

the development of the state estimates of undocumented aliens and their potential

effects should be made explicit. In terms of the quality of the estimates,

the most relevant assumptions are related to the fact that the various data

adjustments described earlier were available at the national level only. No

state-specific data were available so that there was no basis for adjusting

differentially among the states for mlsreportlng of citizenship and nativity

In the census and for underreglstratlon 1n the INS data. We do not expect

the assumptions used to be exact because there are certainly differences among

the states 1n these various factors. Because of the variation among states

and several other factors which could not be taken Into account explicitly,

the estimates of undocumented aliens counted 1n the 1980 census for states

must be viewed as approximations.

This alternative apportionment differs from that provided to Congress on

January 1, 1981. Two states would gain a seat. Two other states would lose a

seat. Unfortunately, the method used to apportion Representatives among the

states can be extremely sensitive to rather small differences, in large states
31

13

as well as small. For example, If the largest state estimate of undocumented

aliens were changed by only 6 percent, then that state would lose an additional

seat. Shifts of only a few thousand undocumented aliens counted 1n the census

for any of three states estimated to have a small undocumented alien population

could shift a seat for any of the three.

There are a number of other features of the method used to estimate undocumented

aliens counted In the 1980 census that would limit the utility of such estimates

for apportionment purposes. First, the estimates are based on sample data from

the census, rather than data collected on a 100-percent basis. Also, the estimates

of undocumented aliens made for the 1980 census were not completed until 1984,

nearly 3 years after the date required for apportionment. Even more Important

for 1990, however, the data set which enabled us to produce subnatlonal estimates•

the INS Allen Registration Data•no longer exists; the program was canceled

after 1981. Thus, we no longer have a methodology that would enable us to produce

estimates of undocumented aliens counted 1n the 1990 census for states.

The Census Bureau plans to continue Its research on undocumented Immigration.

Not only 1s this research valuable 1n Its own right, but these estimates are

crucial to us for measuring total immigration to the United States.

CONCLUSION

In closing, I would like to reiterate that the Constitution requires that we

enumerate residents. Even 1f the Congress and the states were to change

this requirement, technical and practical considerations must be addressed. We

would be required to ask every person a citizenship question, and then determine

the legal status of each one. This Involves legal considerations for which the
32

Census Bureau has neither expertise nor responsibility. Furthermore, the

Census Bureau could be perceived as an enforcement agency, and-this could

have a major effect on census coverage.

In addition, the estimates of undocumented aliens counted 1n the 1980 census

for states have serious limitations for use In determining Congressional

apportionment. They have been a valuable source of Information on this

d1ff1cult-to-measure population, particularly for states with large numbers

of undocumented aliens. However, the apportionment formula requires data of

acceptable quality for all states, not just the few with large undocumented

alien populations. He, therefore, do not believe that these estimates should

be used for apportionment purposes.

Thank you for the opportunity to appear before you today. My colleagues and

I will be pleased to answer any questions.
33

Senator COCHRAN. We will now have before the committee John

Noonan, who is professor of law at the University of California at

Berkeley. We have a very fine detailed analysis of the legal issues

surrounding this question, which has been prepared by Professor

Noonan.

We thank you for that and ask you to make any kind of an oral

presentation that you see fit to the committee. Thank you for helping us.

TESTIMONY OF PROF. JOHN NOONAN, UNIVERSITY OF

CALIFORNIA SCHOOL OF LAW, BERKELEY, CA

Mr. NOONAN. Thank you, Mr. Chairman. It is a pleasure to be

here and to offer what enlightenment I can. I think I should state

for the record that I am here at the invitation of the committee;

that the only instructions I received were to look at this question

as a fresh question and to come up with the best answer I could,

whichever way that answer fell.

As you know, in my written statement, I go through the arguments pro and con on the question: Does Congress have the power

to exclude illegal aliens from being counted for purposes of determining representation in the House? In this overall presentation

now, I should like to summarize the arguments both ways and my

answers to one set of arguments, because I now do have a position.

I began with the argument in the negative, that Congress does

not have the power. I start with the district court decision, FAIR v.

Klutznick that the Director of the Census referred to, and then

there is an actual holding in the Young v. Klutznick, district court

decision. I don't think either one of those cases is responsive to the

question, because neither one of them dealt with the exercise of

congressional power. So, although they are of some interest, they

are essentially dicta, both in the FAIR case where the district

court case was overruled, and in the Young case: They don't respond to the exercise of congressional powers. They are not determinative.

Then we come on the negative side to the practice of the Census

Bureau. I think it is fair to say that in any understanding of our

Constitution, practice is of considerable importance. Clearly, the

Census Bureau has thought it right to count aliens of all description. However, when we look at why this count goes on, we see that

the Census Bureau is influenced by certain interpretations of the

Constitution. It really isn't an independent practice. It is a practice

influenced by, dependent upon certain interpretations of the Constitution.

I would say at first blush it looks as though there is a case here

to be made for what the Census Bureau does. It is certainly true

that article 1, section 2 speaks of "number of persons," "whole

number of persons," "actual enumeration;" and the 14th amendment, section 2 also uses "number" and "whole number." Whenever you talk about numbers, I suppose you think of counting and

what you are supposed to count: persons.

That is plausible, but I think most people who have had anything

to do with the constitution realize that rarely is the blindly literal

interpretation the correct one. Certainly, the Census Bureau itself
34

doesn't take it quite literally, because they don't count foreign diplomats and embassies, and they don't count foreign travelers if

they are in a hotel. They really shifted from the literal word in the

Constitution to another term that isn't there at all: residents. So I

don't find that they are actually following the text.

I do see, particularly in the litigation that was engaged in over

the Census practice in 1980, that there has been a lot of citation of

Supreme Court decisions going back as far as Yo Wick v. Hopkins

on section 1 of the 14th amendment, which says that aliens are

persons for purposes of section 1. I think there was a natural spillover argument that that affects how section 2 should be read.

But, of course, section 1 and section 2 are different. Section 1 persons, ever since 1888, have included corporations. I don't think anybody has supposed that the Bureau of the Census should go around

counting corporations because they are persons. The section 1 reading is not going to transfer to section 2 in that case. Similarly, I

suppose if the situation ever obtained that there was a foreign

army on our soil, I doubt very much that the Bureau would take it

literally and count the troops by flying over them so that we could

get all the residents in the country. [Laughter.]

I think we are asked to do something more than just take the

literal meaning of the terms.

I think a fairly strong argument for what is the practice is there

is some sense of fairness; that where there are a lot of aliens, there

are a lot of governmental burdens, and some how, those areas

ought to have representation in Congress because they are going to

have to provide a lot of governmental services.

I think that is a beguiling argument, but not a persuasive one. It

is not the way we have representation in Congress. It is not the

principle of our Government that representation depends on the

burden of a particular area. Representation depends on the persons

that are counted, so it is begging to question to say: Well, we

should do it by burden.

Finally, I would say probably the strongest argument for the negative is the intention of the framers of the 14th amendment. I don t

think there is much doubt that the canny Senators and Congressmen from the Northeast wanted a formula that would help them,

in the Northeast have more women than the West and more aliens

than in the South or the West, and it was obviously to the interest

of the Northeast that "persons" be taken in the broadest sense possible.

That intention is something we ought to respect, if we can. But I

think there are two things to be said about it. One is that the problem of the illegal alien was not present in the minds of the framers

of the 14th amendment. They just did not categorize aliens in those

terms.

Second, ever since Wesberry v. Sanders, it is not the 14th amendment that is controlling here, but article 1, section 2, and that answers that question in a way that prohibits the interpretation that

would give weight to the intention of the framers of the 14th

amendment.

Moving to the affirmative side, I would say Congress has five

powers that bear upon direction to the Census Bureau. First of all,

in article 1, section 2 itself. The census is to be done "in such
35

manner as they (the Congress) direct." I don't think any of those

words are surpluseage. I think they must be given a content. They

mean that it is not for the courts to say, it is not for the executive

branch, it is not for technical experts to say. It is for Congress to

direct the manner in which the census is taken.

Second, there is the section 5 of the 14th amendment, which

gives Congress the power to enforce, "by appropriate legislation,"

the entire article. The Supreme Court, in Katzenbach v. Morgan,

has interpreted that language to mean that Congress has a distinct

grant of legislative power to enforce all of the 14th amendment by

appropriate legislation.

On top of those basic powers, there are the powers of article 1, by

which Congress can regulate commerce with foreign nations and

can establish uniform rules of naturalization, two powers that obviously give Congress great latitude as to all aliens.

Finally, although it is a perhaps strong argument to evoke, I

think that article 4 is not irrelevant in its requirement that the

United States guarantee" a republican form of Government' and

protect against "invasion."

The Supreme Court has drawn a firm line between treating

aliens for purposes of economic benefit and for purposes of political

function. Addressing itself mainly to the States, the Court has imposed certain requirements on the States as to economic benefits

given aliens. But as to political function, it says the States may

treat aliens differently.

To quote Justice White in the Cabell case, "The exclusion of

aliens from governmental processes is not a deficiency in the democratic system but a necessary consequence of the community's process of self-definition." As he went on to say, "By definition, aliens

are outside the political community." Well, if the States can draw

that line, I am sure Congress can draw it, exercising the several

powers to which I have referred.

The decisive argument, I believe, is that under Westerly v. Sanders, Congress should draw the line. The teaching of Wesberry v.

Sanders, is that it is unconstitutional to dilute votes in congressional elections. That violates the provision in article 1, section 2 that

the House be elected "by the People," and clearly, if you take a

fantastic case, you could have a rotten borough situation in which

10 voters and 500,000 illegal aliens constituted a congressional district. The 10 voters would have very valuable votes.

If you take a more realistic case, where there may be 50,000 illegal aliens in the county, still, those who vote there have more valuable votes than those in the rest of the State, and the dilution is

not only between the States, it is within the State, as in the case of

California. I don't believe the Census Bureau testimony touched on

that dilution within the State. I think the courts, if they had the

Wesberry argument put squarely before them, might do this exclusion themselves. But without putting it to the courts, Congress, in

the exercise of the powers already given by the Constitution,

should carry out the constitutional mandate to prevent the dilution

of votes by illegal aliens.

Senator COCHRAN. Professor Noonan, I appreciate so much your

taking the time and making the effort to give us the benefit of your
36

expertise in this area, looking at the law, the cases, the Constitution.

I have had the notion, and it has been no more than a notion, I

suppose, that Congress ought to be able to legislate in this area

without having to go to the extreme or amending the Constitution.

But I couldn't find any easily reachable authority for that, other

than my own inate sense of fairness and good judgment and that

kind of thing. [Laughter.]

I appreciate the work that you have done in coming up with this

analysis for us. I guess to put it in a sentence, it is your judgment,

based on your review of the law, that Congress does have the

power to exclude aliens or to direct the exclusion of aliens for the

purpose of apportioning seats in the U.S. House of Representatives.

Mr. NOONAN. Yes, Mr. Chairman, that is my conclusion.

Senator COCHRAN. I know that we are going to see a continuation

of debate in this area, because the Judiciary Committee not only

has reported out this bill of immigration reform, but I understand

that others on that committee are considering offering a resolution

to amend the Constitution to more clearly define the view of Congress in this area.

But I have in mind introducing a bill which would direct the

Bureau of Census to differentiate between illegal aliens, those not

entitled to vote, and citizens, for the purpose of counting those on

whose presence the apportionment of seats depends.

I wonder what your reaction would be to a bill; whether or not

you feel that it would be legally sufficient to effect a change in the

law if it is short of constitutional amendment on the subject that

simply directs; the operative phrase here would be. "That the Secretary should make such adjustments in total population figures as

may be necessary using such methods and procedures as the Secretary determines appropriate in order that aliens in the United

States in violation of the immigration laws shall not be counted in

tabulating population for purposes of Subsection (b) of this section."

Subsection (b) is simply the typical statute. It just simply describes apportionment of the seats of the House of Representatives.

What would be your view of the legal effect or efficacy of that?

Mr. NOONAN. I believe that would be a fully constitutional exercise of the several powers that Congress has to correct the manner

in which the census will be taken for these purposes.

I think I might add that it is clear that an important consideration is that that bill would be aimed at the political function of

representation and not get into the question of economic benefits,

which is a different area and I suppose is one where people are

very sensitive towards any improper discrimination. But this bill is

relating to an area where the community is defining itself by leaving out those who illegally are here.

Senator COCHRAN. That is consistent with my attitude about the

legislation that I am contemplating introducing. We have debated

in the course of considering the immigration reform bill allocation

of resources and responsibilities of states as compared with the

Federal Government toward the alien population; those undocumented aliens who are in this country.
37

I think we are sorting through those issues in a sensitive and fair

way, and this is a separate issue completely, in my view, and it is

our attitude in this Subcommittee to focus narrowly on the issue of

apportioning seats in the House of Representatives.

So this hearing today is for the purpose of looking at that, both

from the practical consequences, what problems would we run into

if the law were changed to require this differentiation, this separate counting, as it were. We realize there would be some difficulties in counting, and we will look at that further and consider it

further.

I deeply appreciate your being here. Rather than embarking on

sort of a session of just discussing all the reasons for your conclusion, I think you very generously gave us your time and the benefit

of your analysis looking at specific cases; tracing the development

of those cases over time. It was interesting, I think, to look at the

Constitution as a whole in bringing up article 4, for example, as an

additional basis for the conclusion that was reached. The Matthews

case, those others which were discussed, leads me to share your

conclusion that Congress does have the power, and not just the

power, but the responsibility to legislate in this area.

Thank you very much for being here, and again, we express our

appreciation for your hard work and your help to us in our hearings, all of the witnesses. Thank you very much.

Mr. NOONAN. Thank you.

[Mr. Noonan's prepared statement follows:]
38

TESTIMONY

OF JOHN T. NOONAN, JR.

PROFESSOR OF LAW, UNIVERSITY OF CALIFORNIA, BERKELEY

BEFORE

SUBCOMMITTEE ON ENERGY, NUCLEAR

PROLIFERATION, AND GOVERNMENT PROCESSES,

COMMITTEE ON GOVERNMENTAL AFFAIRS,

UNITED STATES SENATE

SEPTEMBER 18, 1985
39

ACTUAL ENUMERATION OF THE ALIEN

Has Congress the power to exclude aliens unlawfully within

the country from the "actual Enumeration" of persons upon whom

the Constitution prescribes that representation shall be based?

I. Arguments in the Negative.

Three principal arguments deny Congress the power to exclude

aliens who are in the country in violation of law from

enumeration for the purpose of determining representation in the

House of Representatives.

1. The text of the Constitution. The Constitution, Article

I, section 2 declares:

Representation and direct taxes shall be

apportioned among the several States which may

be included within this Union, according to

their representative Numbers, which shall be

determined by adding to the whole Number of

free Persons, including those bound to

Servitude for a Term of Years, and excluding

Indians not taxed, three fifths of all other

Persons. The actual Enumeration shall be made

within three years after the first meeting of

the Congress of the United States, and within

every subsequent term of ten Years, in such

manner as they shall by law direct. (Italics

supplied)
The Constitution speaks twice of "Numbers" and once of

"Enumeration" without any qualifications as to those to be

counted, except for the untaxed Indians and the "other Persons,"

slaves, who are counted at three-fifths. The "whole number of

free Persons" appears to include aliens, legally or illegally

within the United States.

The Fourteenth Amendment, section 2, removing the reference

to slaves, has not altered the basic emphasis on numbers:

Representation shall be apportioned among

the several States according to their

respective numbers, counting the whole number

of persons in each State, excluding Indians

not taxed....(Italics supplied)

The text again makes an exception that emphasizes the otherwise

inclusive nature of the enumeration. Moreover, there is

provision for reduction of the representation in proportion to

the number of male adult citizens who are denied the vote, but no

provision for reduction because of other voteless persons in a

state. It is plain that the Constitution contemplated that the

voteless would be counted•women, before the Nineteenth

Amendment; children of every age; prisoners; and aliens.

2. The Analogy of Decisions and Dicta of the Supreme Court

of the United States. The Supreme Court has decided cases

bearing on the rights of aliens, and in the course of doing so,

has created analogies and issued dicta that point to the

conclusion that for most purposes of constitutional law all

aliens must be counted as "persons."
41

In Yo Wick v. Hopkins 118 U.S. 356, 369 (1886), enforcing the

due process and equal protection clauses of the Fourteenth Amendment

on behalf of lawfully-resident aliens, the Court said:

These provisions are universal in their

application, to all persons within the territorial

jurisdiction, without regard to any differences of

race, of color, or of nationality.

If "persons" under section 1 of the Fourteenth Amendment includes

everyone without regard to "any differences...of nationality," it

is reasonable to believe that "persons" in section 2 of the Fourteenth Amendment includes everyone without regard to nationality.

The Supreme Court has found it unconstitutional to deny such

social benefits as public education to children unlawfully within

the country, Plyler v. Doe 102 S. Ct. 2382 (1981). In doing so

the Court has taken note of the danger of a "shadow population"

and "the spectre of a permanent caste of undocumented resident

aliens," ibid., 2395. Failure to count, and to provide

representation for, such aliens would indeed make their presence

ghostly and increase the likelihood of their becoming a kind of

inferior, exploited caste. The Court drew attention to the

statement of Senator Jacob M. Howard during the debate on the

Fourteenth Amendment that the rights conferred by the first

section belong "to all persons who may happen to be within their

[the states'] jurisdiction." The Court quoted the teaching of Yo

Wick, supra. The Court found that a state could not draw a line

between lawfully and unlawfully resident alien children in making

education available.
If the states cannot withhold such an important benefit as

education, and if as a matter of course the states oust provide

police and fire protection and make available the highways, it is

only right that the undocumented aliens be represented in

Congress. Only in this way will the states with large numbers of

undocumented aliens be assured of getting their fair share in the

federal programs which would assist them in meeting their

obligations to the strangers in their midst. To have the Supreme

Court impose upon the states obligations towards the alien, and

to have representation in Congress not reflect the distribution

of the alien population, would be a species of unfairness. As

the burdens of government increase with the existence of an alien

population, legal or illegal, so should representation increase.

3. Actual Litigation of the Issue. In FAIR (Federation for

American Immigration Reform) v. Klutznick 486 Supp. 564 (D.D.C.

1980), appeal dismissed 447 U.S. 918 (1980), affirmed per cur jam

(0. C. Cir., November 6, 1980) cert, den. 101 S. Ct. 1697, the

plaintiffs sought an injunction to prevent the Census from

counting aliens illegally in the country. Not only was the case

dismissed on the grounds of lack of standing, but the court

commented on the merits. It quoted Representative Emmanuel

Cellar speaking in the House of Representatives and specifically

arguing that the Founders intended everyone, including illegal

aliens, to be counted. The court then said at 576, "We see

little on which to base a conclusion that illegal aliens should

now be excluded."
43

In Young v. Klutznick 497 F. Supp. 1318 (E. D. Mich. 1980),

reversed 651 F. 2d 617 (6th Cir. 1981), the plaintiffs sought an

order directing the Bureau of the Census to avoid an undercount

of minorities and aliens. No distinction was drawn between legal

and illegal aliens. The district court cited with approval FAIR

v. Klutznick, supra. It issued an order, saying inter alia at

1339, that it was "the right of every person within the United

States of America on April 1, 1980 to be counted in the

census." The decision was reversed on the ground that a causal

connection had not been established between a census undercount

and injury to the plaintiffs; the district court's statement on

the right to be counted was undisturbed.

Constitutional text. Supreme Court dicta, actual decisions

thus support the view that Congress has no power to exclude

undocumented aliens from being counted.

II. Arguments in the Affirmative

1. The Text of the Constitution. The Constitution itself is

ambiguous and open to interpretation on this question. "Persons"

in the Constitution is not used in the same sense in every

context. For example, it is settled law that "persons" in

section 1 of the Fourteenth Amendment includes "corporations,"

Santa Clara County v. Southern Pacific Railroad 118 U.S. 394

(1888). Yet no one has supposed that the Bureau of the Census

should count corporations when counting persons under section 2

of the Fourteenth Amendment. This commonsense reaction•that

"persons" in section 1 means something different from "persons"
44

in section 2•demonstrates that "persons" in the abstract is an

ambiguous term whose meaning is to be determined by the context

and purpose of the Constitution.

2. The Powers Conferred by the Constitution on Congress.

Article 1, section 2 says that "the actual Enumeration" is to be

made by Congress "in such manner as they shall by law direct."

The language confers on Congress the power to make the actual

count in such ways as Congress shall determine; it confers broad

discretion on Congress to determine what "the actual Enumeration"

shall be.

The Fourteenth Amendment, section 5/ confers on Congress the

"power to enforce, by appropriate legislation," the provisions of

the amendment. The Supreme Court has recognized that this

section gives Congress "a positive grant of legislative power"

and a wide latitude, including the power to make determinations

that will lead the Supreme Court to change its own reading of the

Constitution, Katzenbach v. Morgan 384 U.S. 641 (1966).

Congress has also the powers conferred under Article I,

section 8: "To regulate Commerce with foreign Nations" and "to

establish an uniform Rule of Naturalization." The United States

as a sovereign also has the duty and right under Article IV,

section 4, "to guarantee to every State in this Union a

Republican Form of Government" and to "protect each of them

against Invasion."

These powers•the Article I, section 2, power carried over

and strengthened by the Fourteenth Amendment, sections 2 and 5;

the foreign commerce power; the naturalization power; and the
45

power to guarantee a republican form of government and to prevent

invasions•are ample to legitimate the exercise of congressional

authority to regulate representation based on undocumented

aliens. As Justice Jackson, writing for the Court, said in

Harrisades v. Shauqhnessy 342 U.S. 580 at 588 (1952); "It is

pertinent to observe that any policy towards aliens is itself

intricately interwoven with contemporaneous policies to the

conduct of foreign resolution, the war power, and the maintenance

of a republican form of government. Such matters are so

exclusively entrusted to the political branches of government as

to be largely immune from judicial inquiry or interference."

Where the courts should not interfere, it remains for Congress to

set down the law constituting the proper rule.

3. The Decided Cases. Only one case litigated the issue of

whether illegal aliens had to be counted, and it was decided on

procedural grounds, FAIR v. Klutznick, supra. The other relevant

case. Young v. Klutznick, supra was reversed on appeal, and the

validity of its order to the Bureau of the Census was never

examined on the merits. Neither case addressed itself to the

power of Congress to make a determination of the issue. Neither

case is a precedent on this question.

4. Dicta of the United States Supreme Court. The Supreme

Court, upholding the exclusion of short-term resident aliens from

Medicare, recognized that it is not necessary that "all aliens

must be placed in a single homogenous legal classification,'"
46

Matthews v. Diaz 426 U.S. 67 at 78 (1976). There were, the Court

said through Justice Stevens, at least the following categories:

1. The overnight visitor

2. The unfriendly agent of a foreign power

3. The resident diplomat

4. The illegal entrant (ibid, at 80)

It is not the policy of the Bureau of the Census to count all

foreign diplomats, although in the most literal sense they are

obviously persons, Affidavit of Daniel B. Levine, Deputy Director

of the Census Bureau, filed in FAIR v. Klutznick, supra. If

there was an invading army on American soil, one does not suppose

the Bureau of the Census would count the enemy troops. There is

no necessity that the Bureau count any alien who is unlawfully

within our borders.

The Supreme Court has recognized that the states may exclude

lawfully-admitted resident aliens from certain public offices.

In a dictum the Court said a state could reserve for citizens

those offices which "perform functions that go to the heart of

representative government," Sugarman v. Douqall 413 U.S. 642 at

647. In Foley v. Connelie 435 U.S. 391 (1978) the Court,

upholding a state discrimination against aliens, declared that

"the right to govern is reserved to citizens" and acknowledged at

296 "the right...of the people to be governed by their citizen

peers." Recently, in Cabell v. Chavez-Salido 454 U.S.. 432

(1982), the Court (5-4) upheld California's exclusion of resident

aliens from the occupation of peace officer, accepting the

argument that "although citizenship is not a relevant ground for
47

the distribution of economic benefits, it is a relevant ground

for determining membership in the political community." The

Court, through Justice White, went on to say:

The exclusion of aliens from governmental

process is not a deficiency in the democratic

system but a necessary consequence of the

community's process of self-definition.

By definition, aliens, the Court observed, are outside the

political community.

If it is proper for the states to distinguish aliens from

citizens as participants in the political process, it is a

fortiori proper for Congress, which has far greater power as to

aliens, to do so•especially is it proper where the function

"goes to the heart of representative government." If "the right

to govern is reserved to citizens" in the allocation of public

offices in a state, the right to govern is a fortiori to be

reserved to citizens in determining representation in the

Congress. If the exclusion of even lawfully-admitted aliens,

residents of long-standing, is constitutional, if it is not a

deficiency but "a necessary consequence of the community's powers

of self-definition," then, a fortiori, it is constitutional and

even necessary for Congress to exclude from "the governmental

process" aliens who have entered the country in violation of our

laws.

5. Holdings of the Supreme Court. In Wesberry v. Sanders

377 U.S. 1 (1964), the Court ordered the Georgia legislature to

redistrict the congressional districts in the state because of
48

marked disparities in their populations. The plaintiffs had

contended that living in a large congressional district they were

deprived of "the full benefit of their right to vote" in

violation of Article I, section 2, of the Constitution. The

Court accepted their claim and disapproved of "vote-diluting

discrimination." The Court, through Justice Black, went on to

state:

To say that a vote is worth more in one

district than another would not only run

counter to our fundamental ideas of democratic

government, it would cast aside the principles

of a House of Representatives elected by "the

People," a principle tenaciously fought for

and established at the Constitutional

Convention, ibid, at 8.

The delegates at the Convention, the Chief Justice continued,

wanted "every man's vote to count." He referred to "the Great

Compromise" that gave every state two senators and made

representation in the House proportionate to numbers, and then

said at 14, "The principle solemnly embodied in the Great

Compromise•equal representation in the House for equal numbers

of people"•would be defeated if a state were "to give some

voters a greater voice in choosing a Congressman than others."

Wesberry v. Sanders does not, of course, mandate absolute

equality of congressional districts thoughout the country: the

Constitution itself. Article I, assures every state, however

small, of one congressman. But it is apparent that counting
49

large numbers of illegal aliens violates the principle of

Wesberry v. Sanders. In districts where there are large numbers

of such persons, the vote of those voting in the district counts

more than the vote of those voting in districts of identical

population where there are more persons voting. To take extreme

examples:

District A: Population 400,000;

200,000 voters,

100,000 undocumented aliens

District B: Population 400,000;

300,000 voters,

no undocumented aliens

In District A, 101,000 votes are a majority sufficient to

elect a Congressman; in District B, 151,000 votes are

necessary. A vote in District A is worth more than a vote in

District B. There is dilution of the votes in District B and

discrimination against the citizens of District B.

Why has this discrimination not existed where other voteless

groups have been counted? The answer is clear. There was no

reason to think in 1787 that there would be an unequal

distribution of women, or of children, or of convicts or of

aliens. In the two cases where it was foreseen that the

distribution of the voteless would not be random, explicit

provision was made for their exclusion (the untaxed Indians) or

for being counted at three-fifths (the slaves). What is new

today is the presence of large groups of undocumented aliens not

randomly distributed but concentrated in certain congressional
50

districts. It is true when the Fourteenth Amendment was adopted,

the distribution of voteless women and voteless aliens was

unequal•of women because of the male migration westwards, and of

aliens because of the substantial immigration from Europe to the

Northeast, (Joseph B. James, The Framing of the Fourteenth

Amendment, Urbana: University of Illinois Press, 1956, pp. 23 and

185.) Consequently Senator Henry Wilson of Massachusetts and

Representative Roscoe Conkling of New York opposed basing

representation on the number of voters, Congressional Globe, 39th

Cong. 1st Sess. 359 and 1256. But this intention to make the

right to vote more valuable in one part of the country than

another cannot be accorded recognition today. Since Wesberry v.

Sanders, it has been clear that the controlling text of the

Constitution is Article I, section 2, clause 1: The House of

Representatives shall be chosen "by the People." In the light of

that command and its interpretation in Wesberry it is

unconstitutional to constitute congressional districts which

unequally represent "the People."

The People, who have a right established by Article I,

section 2, to elect the House of Representatives, are clearly the

citizens, not aliens who have entered the country against the

law. It is the member of the political community, self-defined

to exclude aliens, that are represented in the political

process. It destroys the basic constitutional norm established

by Wesberry v. Sanders when voters in districts characterized by

large numbers of illegal aliens have "a greater voice in choosing

a Congressman" than voters in districts where there are few such
51

persons. The "shadow population" pointed to by Plyler v. Doe,

supra, then functions to swell the value of votes in their

district; and this, according to Wesberry v. Sanders, the

Constitution forbids.

As Chief Justice Warren put it in Reynolds v. Sims 377 U.S.

533, 567 (1964), the case requiring redistributing of state

legislative districts:

To the extent that a citizen's right to vote

is debased, he is that much less a citizen.

To create unequal election districts is one way to debase a

citizen's vote. To create election districts unequally swelled

by shadow populations, illegally in the country, is another way

to debase the value of a citizen's vote.

Such a situation threatens the republican form of government

guaranteed by Article IV. As Reynolds v. Sims at 573 quotes

Thomas Jefferson: A "government is republican in proportion as

every member composing it has equal voice in its concerns...by

representatives chosen by himself." A government where those who

are by definition nonmembers determine the number of

representatives subverts the republican form. The "members" do

not have equal voice. As in Animal Farm, some members are "more

equal than others"•those who come from the districts where a

vote is worth more.

Congress has power to correct this situation. Applying the

rule of Reynolds v. Sims that electoral districts for a state

legislature be equal, the Court pointed out that the states are

not required "to include aliens, transients, short-term or
52

temporary residents," Burns v. Richardson 384 U.S. 73 (1966) at

92 (Brennan, J., upholding districting by Hawaii that did not

count military transients in achieving equality of voting

districts). Analogously, Congress, exercising its powers under

Article I and the Fourteenth Amendment, may determine that

illegal aliens not be counted.

Conclusion

The argument that the Constitution textually requires the

enumeration of every person is superficially appealing, but

unpersuasive on examination of the ambiguity of "Persons." The

statements of the Supreme Court on the rights of aliens under the

Fourteenth Amendment relate to section 1 rights and do not govern

section 2. The Supreme Court itself has recognized the right of

Congress to discriminate between types of aliens. No case has

denied Congress the right of exercising its multiple powers under

the Constitution to direct that aliens unlawfully within the

country not be numbered in "the actual Enumeration." On the

contrary, the principles laid down by the Supreme Court in

Reynolds v. Sims and Wesberry v. Sanders require that such

aliens, when they exist in large numbers, not be counted in

determining congressional districts. The claim that

representation should reflect population needs is appealing but

overridden by the Constitution's direction that the participants

in the political process•the citizens of the country•be equal

in their votes. At the very least Congress has power under both

Article I and the Fourteenth Amendment to direct that such aliens

not be counted.

Senator COCHRAN. That concludes our hearing. We stand in

recess.

[Whereupon, at 3:05 p.m., the subcommittee was recessed, subject

to the call of the Chair.]
53

ADDITIONAL MATERIAL SUBMITTED FOR THE RECORD

STATEMENT OF

ROGER CONNER

EXECUTIVE DIRECTOR

FEDERATION FOR AMERICAN IMMIGRATION REFORM (FAIR)

BEFORE THE

COMMITTEE ON GOVERNMENTAL AFFAIRS

SUBCOMMITTEE ON ENERGY, NUCLEAR PROLIFERATION, AND

GOVERNMENT PROCESSES

CONCERNING

INCLUSION OF ILLEGAL ALIENS IN POPULATION TOTALS

USED FOR REAPPORTIONMENT OF CONGRESSIONAL SEATS

FOLLOWING THE 1980 CENSUS

SEPTEMBER 18, 1985

WASHINGTON, D.C.
54

Mr. Chairman arid Members of the Committee, on behalf of the Federation

for American Immigration Reform (FAIR), I thank you and the Committee for

holding'these hearings. I am pleased to present the views of FAIR concerning

the inclusion of illegal immigrants in the population totals used to divide

congressional seats among the states.

FAIR is a national non-profit membership organization. Our national

advisory board is chaired by Colorado Governor Richard Lamm and includes, to

name only a few, former Senator Walter D. Huddleston, former Attorney General

William French Smith, and former ranking minority member of the House

Judiciary Committee Robert McClory.

FAIR'S two primary goals are to end illegal immigration to the United

States and to limit legal immigration to a level consistent with the national

interest. FAIR is concerned that the inclusion of the illegal immigrants in

the reapportionment base (the population total used to divide congressional

seats among the states) will result in both increased institutionalization of

illegal immigration and the creation of political groups or representatives

who see a continued flow of illegal immigrants as in their political

interests. FAIR believes that immigration has had a dramatic effect on the

American political system in the last twenty-five years, and those special

interests who benefit from the distortions caused by immigration are the ones

who fight immigration reform the hardest.

FAIR has been concerned about the inclusion of illegal immigrants in the

reapportionment base throughout its life as an organization. FAIR was

organized late in 1978 and filed suit against the Census Bureau on this issue

soon after the 1979 decision to include illegal immigrants in the

reapportionment population totals.

In 1979, FAIR filed suit against the Census Bureau (among others) to stop
55

the Bureau from including illegal immigrants in the reapportionment base.-*

FAIR was joined in its suit by more than three dozen Members of Congress, and

by a inner-city civil rights organization from Los Angeles.

FAIR'S case was intricate and multi-faceted, but its central issue was

that the inclusion of illegal immigrants in the reapportionment base violates

the constitutional principle of "one person, one vote."2That is, by

including illegal immigrants in the reapportionment base, the Census Bureau

would dilute the votes of persons who live in areas with few illegal

immigrants and enhance the votes of persons who live in states with many

illegal immigrants.

FAIR and its co-plaintiffs noted that the inclusion of illegal immigrants

in the reapportionment base would shift congressional seats away from states

with few resident illegal immigrants and toward states with many resident

illegal immigrants. Since FAIR filed suit before the 1980 Census, it could

only speculate about the outcome (in terms of shifted congressional seats) of

that Census. FAIR predicted, however, that both California and New York would

benefit from the inclusion of illegal immigrants - California by gaining

additional congressional seats and New York by not losing as many

congressional seats as it otherwise would have. This prediction was made on

the basis of projections of the likely illegal immigrant populations of the

various states (both California and New York were known to have large illegal

immigrant populations).

The State and City of New York intervened as Defendants in FAIR'S suit.

New York argued that they were entitled to have all of their residents.

1

FAIR v^ Klutznick, 486 F.Supp. 564 (D.aC. 1980)(three-judge court),

appeal dismissed, 447 U.S. 918 (1980), affirmed per curiam (D.C. Cir., 1980),

cert, den. U.S. , 101 S.Ct. 1697 (1980).

^esberry v. Sanders, 377 U.S. 1 (1964).
56

temporary and permanent, legal and illegal, counted for reapportionment. They

argued that even tourists and diplomats should be counted, since both the

State and the City had to provide services to foreign visitors.

The position of the Census Bureau was that they were required by the

words of the Fourteenth Amendment to count every person in the United States

on Census Day, and that they were simply conducting an actual head-count

(enumeration) without any adjustments or corrections. They intended to make

every effort to count every human being in the country on April 1, 1980.

FAIR pointed out that the Census Bureau did, in fact, systematically

exclude certain groups of aliens (foreign tourists, diplomats, temporary

residents and others) from the reapportionment base. In addition, the Census

Bureau routinely adjusted figures prior to reporting the reapportionment base.

The Bureau was thus not conducting an actual enumeration.

In addition, FAIR pointed out that there was no indication that the

authors of the Fourteenth Amendment wanted illegal immigrants to be counted .

for reapportionment purposes. There were no illegal aliens at the time the

Fourteenth Amendment was drafted. Thus there was no way that the drafters of

the Fourteenth Amendment could have intended to include an unknown class of

aliens under the Fourteenth Amendment.

FAIR also noted that the 1980 Census questionnaires deliberately omitted

any questions which could be used to determine whether a person responding was

an illegal immigrant or not. The Census Bureau claimed that it would be

impossible to include any such questions in 1980 (although similar questions

had been used in several prior decades), and that any such attempt would

reduce the number of legally-resident persons who would respond to the 1980

Census.

The court agreed that the inclusion of illegal immigrants in the
57

reapportionment base would affect reapportionment after the 1980 Census. The

court also agreed that the inclusion of illegal immigrants in the

reapportionment base would harm citizens. The court did not agree with FAIR'S

interpretation of the Fourteenth Amendment as not including illegal

immigrants.

The court, however, decided the case only on procedural grounds. It held

that FAIR and its co-plaintiffs did not show "with requisite specificity"

which citizens would be harmed. Therefore, the court held that FAIR did not

have "standing" to continue the suit.

FAIR was in a difficult position. The court held that FAIR and its coplaintiffs could not show, prior to the Census, which citizens would be hurt.

Yet the deliberate design of the 1980 Census forms was to omit the questions

necessary to produce that information after the Census. FAIR could not bring

its suit again until information was developed to show which states, and thus

which citizens, were hurt by the Census Bureau's decision to include illegal

immigrants in the reapportionment base..

FAIR had to wait until last year to receive that information. Through a

complex series of analyses and calculations, the Census Bureau produced a

partial count of the number of illegal immigrants in the united States. The

Bureau found in 1984 that at least 2.1 million illegal aliens answered the

1980 Census (and hence were included in the 1980 reapportionment base).3 Just

^he Census Bureau count of 2.1 million illegal immigrants represents

only a part of the illegal immigrant population in the United States on Census

Day 1980. The Bureau itself estimates that it did not count even half of the

illegal immigrants.

In addition, the Bureau counted only one of three groups of illegal

immigrants; the Bureau counted only "permanent settler" illegal aliens, and

did not include "sojourner" illegal aliens (who work for a few years and then

return home), or "border crosser" illegal aliens (who. repeatedly cross the

border). He are not sure exactly how the Bureau decided which illegal aliens

were "permanent settlers" or "sojourners" or "border crossers," or even

whether those differences are significant.
58

a few days ago, in testimony before the House Judiciary Committee, a Census

Bureau representative raised the estimate of the 1980 illegal immigrant

population to 2 1/2 to 4 million.

The Congressional Research Service of the Library of Congress, at the

request of then-Senator Walter D. Huddleston, calculated the effect on

reapportionment of the inclusion of the 2.1 million illegal immigrants who

answered the 1980 Census. (The calculations used the lower 1984 figures since

the Census Bureau did not correct itself until this month.) The Congressional

Research Service used the computer program required by law to be used by the

Census Bureau for reapportionment.4

Even at the lower 1984 figure for illegal immigrants, there was an effect

on congressional reapportionment. As FAIR had predicted in its suit four

Thus, we do not know exactly how many illegal immigrants were in the

United States on Census Day 1980. We have the number the Census Bureau

included in the reapportionment base - 2,056,574 - but that number represents

the lowest possible number, the "lowest bound." The actual illegal immigrant

population is probably much larger, perhaps as many as eight million.

*By law (2 U.S.C S 2(a)), the division of congressional seats among the

states - reapportionment - is made by applying a complex statutory formula

known as the method of equal proportions to tie reapportionment base. The

only variable in the formula is the population of the states; if, by migration

or otherwise, one state's population increases more than other states'

populations, the larger state will get more congressional seats.

The method of equal proportions, adopted in 1941, weighs claims of each

state for each congressional seat against the claim of every other state. The

seat is assigned to the state whose claim for that seat is numerically the

highest.

The method of equal proportions multiplies each state's population by a

fraction that incorporates the "priority" of a particular congressional seat.

To see if a state should have received a second seat (beyond the

Constitutionally-mandated first seat) after the 1970 Census, for example, the

state's population was multiplied by the constant 0.70710678.

The first non-mandated seat after the 1970 Census went to California

(which had a "priority value" of 14,212,042). New York, whose priority value

for a second seat (12,913,236) was second highest, got the second seat. The

fourth available seat in 1970 went to California, since its next priority

value for another seat (found by multiplying the constant for another seat -

0.40824829 - by its population) was greater than the priority value of

multiplying any other state's population by the constant for a second seat.
59

years before, both California and New York benefitted from the inclusion of

illegal immigrants. California gained an extra seat it would not have without

counting illegal immigrants and New York did not lose a seat it would

otherwise have lost.

Two other states - Georgia and Indiana - were hurt by the inclusion of

illegal immigrants. Georgia did not gain a seat it was entitled to by

population growth, and Indiana lost one of its seats. The effect on those two

states was dramatic; Indiana went through a wrenching reapportionment process

to decide which of its seats would be eliminated, and Atlanta's black

community was denied a seat of its own to which it would have been entitled by

population growth. Thus, according to its own calculations, the Census

Bureau's 1979 decision to include illegal immigrants in the reapportionment

base increased the value of a Californian's and a New Yorker's vote, at the

expense of a Georgian's and a Hoosier's.

The Bureau's social engineering will not be confined to the 1980

reapportionment. The Bureau apparently does not intend to alter its policy of

including illegal immigrants for the 1990 Census.

The Census Bureau was reluctant to predict for this Committee the effect

on the country of including illegal immigrants in the 1990 reapportionment

base. But such predictions are not that difficult.

Even using the 1984 lower 2.1 million figure for illegal immigrants in

the reapportionment base in 1980, and making a few assumptions about

population growth and illegal migration, we can calculate the effect on the

1990 reapportionment process. Even more states, perhaps as many as five more

states, will be hurt.

If the proportion of illegal immigrants counted in the Census remains the

relative to the states' populations (that is, if illegal immigrants
60

remain the same percentage of each state's populations), the Congressional

Research Service calculates that after the 1990 Census, five more states will

be hurt. Connecticut, Michigan, Missouri, North Carolina, and Pennsylvania

will all lose one seat to the states with big illegal immigrant populations.

California and New York will get two more seats each, and Texas will gain

another seat.

Thus, over twenty years, ten states will have been affected, for better

or worse (and mostly for the worse), because illegal immigrants were included

in the reapportionment base. And that calculation is based on only a partial

count of illegal immigrants in the Census.

If more illegal immigrants were actually counted, the shifts would be

even more dramatic. If, for example, the higher 4 million illegal immigrant

figure just admitted by the Census Bureau was used in recalculating the 1980

reapportionment, California would have received two more seats, and Alabama

and Missouri would have lost one seat each.

This social engineering by the Census Bureau was the result of an

administrative decision, not of an informed reading of the Constitution. The

Bureau's position at this hearing is essentially the same as its position in

the FAIR suit. It has not directly acknowledged its adjustments of the

reapportionment base to exclude groups of aliens. Nor has it responded to the

constitutional arguments eloquently and accurately presented by Professor

Noonan.

The Bureau, in perhaps its most telling omission, has not explained to

the Committee why it decided to eliminate the information needed to correct

its administrative decision. The Bureau, by removing any questions which

could be used to calculate the number and distribution of illegal immigrant

respondents, insured that its social engineering could not be reversed. No

one would have sufficient information to make any corrections in a reasonable
61

time.

Without that information, no person, using the FAIR v. Klutznick court's

standards, could prove "with requisite specificity" which citizens would be or

were harmed by the Bureau's decision. Thus, no person would have standing to

challenge in court the Bureau's infliction of constitutional injury on

American citizens.

The Census Bureau says it doesn't make policy decisions. In the past,

that description may have been accurate. In this case, however, a conscious

Census Bureau policy was made to include a category of persons which had not

been included in the past, and which, as Professor Noonan pointed out, like

corporations and foreign diplomats, were never intended to be counted for

reapportionment purposes.

Nor was the Census Bureau simply implementing a policy decision made by

someone else when it spent millions of dollars to encourage illegal immigrants

to respond to the 1980 Census. The Bureau even went to the Justice Department

and got the Immigration and Naturalization Service to suspend enforcement of

the immigration laws for nine months before and following the 1980 Census.

(That suspension of immigration law enforcement was unlawful, and was not

adequately explained during the testimony of the INS before this Committee.)

Such practices could only be interpreted as the single-minded pursuit of a

policy decision by the Census Bureau, not as the simple execution of a dulyauthorized program.

In pursuing its policy to transfer voting power to states with large

illegal immigrant populations, the Census Bureau exceeded its own

constitutional powers; its actions were ultra vires. The only branch of

government with the power to determine the methods and means of conducting the

54-218 0-85
62

Census is Congress.5Although Congress has, through the Census Acts,6

delegated power to the Census Bureau to conduct the Census, that delegated

power is ministerial and does not include the power to dilute the votes of

citizens.

There are three possible remedies to the Census Bureau's unconstitutional

policies. The most drastic would be an amendment to the Fourteenth Amendment.

Such an amendment could clarify the wording in the Fourteenth Amendment

regarding which persons are to be counted for reapportionment purposes.

Unfortunately, the only way to amend the Fourteenth Amendment is through

another Constitutional amendment, and such amendments are extremely difficult

to enact (among other reasons, many people have an appropriately negative

response to changing the Constitution, however valid the reason).

Yet there may be no need for an amendment, since Congress has the power

to direct the Census Bureau to stop its odious violations of constitutional

rights. Under the analysis explained by Professor Noonan, with which I

concur. Congress does have the power to require the Bureau to conduct the

Census in accordance with the Constitution and the intent of the Framers.

Congress is given that power by the Constitution. It has, in fact, delegated

certain powers to the Census Bureau, and it is those statutes which govern

both the taking of the Census and reapportionment.

Even congressional action, however, would not be necessary if the Bureau

would simply reverse its own internal decision. The Census Bureau could

easily return to the position it took prior to the 1980 Census: that aliens

^th Article I and the Fourteenth Amendments to the Constitution provide

that Congress is to determine how the Census is to be conducted. Burns v.

Richardson, 384 U.S. 73 (1966).

6

13 U.S.C. S 1, et seg.; Census Act of 1976; P.L. 94-521; 90 Stat. 2459.
63

who are not permanent residents should not be counted for reapportionment

purposes. They could add those few questions about citizenship required to

determine the number and distribution of illegal immigrants among the states.

They could, if the necessary questions were restored to the Census forms, make

the needed adjustments prior to reporting the reapportionment base, as they do

with foreign tourists and diplomats.

This is not a radical suggestion. The problems with illegal immigrants

in the reapportionment base come from a 1979 Census Bureau decision; the

decision can be reversed and the Census restored to its historical nonpartisan, non-political status by a similar administrative decision.

We strongly urge this Committee to require the Census Bureau to make that

administrative adjustment. The Census Bureau has a hard-won reputation as an

impartial ministerial body; it should not allow the petty politics of the late

1970's to endanger that reputation. Nor should the Congress allow the Census

Bureau to violate the constitutional rights and voting power of an entire

nation merely to satisfy an erroneous theory about the distribution of

political power and voting strength.

Thank you for allowing me bo present the views of the Federation for

American Immigration Reform (FAIR). I would be happy to answer any questions.
64

CONGRESSIONAL RESEARCH SERVICE

September 17, 1985

To: Senator John Glenn

(Attention: Brian DeAlbach)

From: Daniel Melnick, Specialist,

American National Government

Subject: Analysis of Procedures the Census Bureau Could Use Regarding

Counting Undocumented Aliens in the 1990 Census

This memorandum responds to your request for a brief analysis of the

operational considerations that the Census Bureau might face if it was

decided to exclude undocumented aliens from the calculations used to

determine the apportionment of the U.S. House of Representatives. You

asked that this memorandum assume that the decision had been made and not

discuss its legality or arguments for or against the proposal.

LIMITATIONS

Our analysis is based on available information. We did not perform

any tests of the alternative procedures discussed.

Consequently, we are limited to identifying some of the alternative

procedures that could be used and highlighting their strengths and

weaknesses. It is possible that other procedures could be developed

which would be superior to the ones we were able to identify.

THREE ALTERNATIVE APPROACHES

If it were decided to exclude undocumented aliens from the census

counts used for apportionment three of the possible operational

approaches that might be used are:

A. Exclude undocumented aliens from the census count by placing a

notice on the questionnaire asking them not to complete it and

instructing census workers not to include persons found to be

undocumented aliens.

B. Include undocumented aliens in the census count but add a
65

question that required them to identify themselves.

Subsequently, remove them from the count used for the

apportionment.

C. Do not change the field procedures, but estimate the number of

undocumented aliens counted in the census in each State and

subtract that number from the State's count when the

apportionment is calculated.

The remainder of this memorandum outlines some of the strengths and

weaknesses of each of these procedures.

I. Exclude undocumented aliens from the census count by placing a

notice on the questionnaire asking them not to complete it and

instructing census workers not to include persons found to be

undocumented aliens.

A. Strengths

1. This procedure would provide one count for all purposes

served by the census. The same set of numbers would be used

for apportionment, redistricting, federal funds allocation,

and social research.

2. This might be the simplest procedure to administer. The

bureau would be given a clear mandate to exclude

undocumented aliens.

54-218 0-85-4
66

Weaknesses

This procedure might inhibit some people from responding to

the census questionnaire even though they are legal

residents of the United States. Some recipients might fear

reprisals based on the answers that they provided to the

census takers. In addition, some undocumented aliens might

complete the form if they believe that doing so may later

enhance their prospects for legalization.

Census workers who must find people not filling out the mail

questionnaire might encounter confusion when approaching

nonresondents. How will they know whether a nonresponding

household is supposed to respond? This might results in an

undercount of legal residents, if enumerators assumed some

of this group to be undocumented aliens.

II. Include undocumented aliens in the census count but add

question that required them to Identify themselves.

Subsequently, remove them from the count used for the

apportionment.

Strengths

1. This procedure would provide a direct count of undocumented

aliens, making it possible to judge their impact on various

jurisdictions.

2. If it were later decided to include undocumented aliens in

the apportionment [i.e. if the decision were changed] this

procedure would provide a basis for including them.

Weaknesses

1. The procedure would rely on persons to identify themselves

as undocumented aliens. The Bureau could be in the position

of having to verify a legal status --a function which it is

not equipped to perform.
67

2. The inclusion of the question might give the census form a

punitive appearance. Persons who are legal residents might

be less likely to respond if they felt that the census

procedure was being used as an administrative tool. Persons

who are undocumented aliens might be less likely to complete

the form or to identify themselves as undocumented if they

were concerned that the information might later be used to

identify their legal status.

III. Do not change the field procedures, but estimate the

number of undocumented aliens counted in the census in

each state and subtract that number from the State's

count when the apportionment is calculated.

A. Strengths

1. This would be a low cost option. Costs would be limited to

the effort of census demographers and statisticians.

Possibly supplemental procedures would be needed, but these

would not have a major impact on the census procedure.

2. The decision to exclude undocumented aliens could be

overturned if it was subsequently decided that the procedure

did not work.

B. Weaknesses

1. While unofficial estimates of the number of undocumented

aliens counted in the 1980 census have been produced by a

member of the Census Bureau's staff, the methods are still

experimental. These estimates were produced at the State

level. Estimates for places within states have not yet been

produced. If the same experimental methods were developed

for official use, this procedure would result in one set of

figures for the apportionment and a different set for all

other purposes. Critics might question how states will

redistrict with figures including undocumented aliens that

were not figured into the reapportionment.
68

As with any adjustment procedure, the exact methods used to

figure the number of undocumented aliens in each State

relies upon the assumptions selected by the statisticians

and demographers. Some of the choices they might make could

be criticized as being arbitrary. States that are disadvantaged by these decisions might object that the results

depended upon the assumptions and could change if different

and equally plausible conditions were assumed.

I trust this brief analysis meets your needs. If if there is any

other way in which I can be of help, please do not hesitate to c-dA me,

CWtact
69

Congressional Research Service

The Library of Congress

Washington. DC 2054O

August 3, 1984

TO: The Honorable Walter Huddleston

Attn: Roger LeMaeter

FROM: David C. Huckabee

Analyst in American National Government

Government Division

Politics Section

SUBJECT: Adjusting the State Populations Used for Reapportionment to.

Account for Aliens

In accordance with your request and our telephone conversation

relating to using Jeffrey Passell and Karen Woodrow's estimates of the

undocumented immigrant population counted in the 1980 Census by State to

compute apportionments, I am submitting this memorandum and accompanying

tables. U

We agreed that I would use "unrounded" numbers (if I could obtain

them) for the State-by-State estimates of undocumented aliens rather than

the numbers published in the report available from the Census Bureau. The

Population Division of the Census Bureau sent me these numbers (see

Appendix I). These are the estimates that I used in my calculations.

Several caveats should be noted about these estimates. First, outside of

the Census Bureau, there has been little systematic research in the area

1/ Jeffrey Passell and Karen A. Woodrow. Ceopgraphic distribution of

undocumented immigrants: estimates of the undocumented aliens counted in

the 1980 Census by State. U.S. Bureau of the Census. Population Division,

Washington, D.C.

A paper presented at the annual meeting of the Population Association

of America, Minneapolis, Minnesota, May 3-5, 1984.
70

to which these Census estimates can be compared. I am sending a copy of^report

describing the methodology of the study, as well as citations to other

studies, but a summary from Fassel and Woodrow's caveats about their

assumptions may be useful.

Although there are numerous limitations (which I will describe below)

that should be considered in using these data for apportionments, the

results of my analysis may be summarized as follows. Under your first

option, subtracting the estimates of the total number of undocuuented

aliens from each State's population results In the following changes from

the 1980 apportionment currently In effect. California and New York each would

lose one seat In the House. Indiana and Georgia each would gain a seat.

Under option two, where you assume that the Census Bureau underestimated the

number of undocumented aliens counted by fifty percent (so that the

number of undocumented aliens reported as having been included in the

census count is doubled, with these totals then subtracted from the State's

apportionment population) California would lose three seats and New

York one, with Alabama, Georgia, Indiana, and Missouri each gaining

one seat each.

Method Used to Compute the Allen Population

The basic sources for Passell and Woodrow's estimates of the

undocumented alien population were (1) questions on the foreign-born

population in the Census, and (2) the alien registration data for

January 1980 collected by the Immigration and Naturalization ServiceData from these sources were adjusted by the authors to account for
71

the deficiencies they knew existed in the numbers. 2/ Based on these

analyses, Passell and Woodward's estimate that at least 2.06 million

undocumented aliens were Included in the 1980 Census. Passell and

Woodward report that the geographic distribution of undocumented

aliens "is quite similar to that of legally resident aliens, but

some important difference do exist. The major differences are accounted

for mostly by the fact that the undocumented group has a much larger proportion

from Mexico"•the country that the authors report to be the source of the

greatest number of undocumented aliens. Table 1 below sets out Passell

and Woodward's (rounded) estimates of undocumented aliens counted In the

census and the total number of legally resident aliens living In,each State.

TABLE 1. Estimates of the Undocumented Aliens Counted In the 1980 Census

and the Legally Resident Aliens by State of Residence

(Population in thousands) 3/

State

Passell and Woodward's

estimates of the population

of undocumented aliens

Passell and Woodward's

estimates of the population

of legally resident aliens

Alabama 5

Alaska 1

Arizona 25

Arkansas 3

California 1024

Colorado 19

Connecticut 4

Delaware 1

Florida 80

Georgia 12

11

6

75

6

1520

38

90

6

427

30

2/ Ibid., p. 6.

3/ Ibid., p. 29.
72

TABLE 1. Estimates of the Undocumented Aliens Counted In the 1980 Census

and the Legally Resident Aliens by State of Residence

(Population In thousands)•Continued

Passell and Woodward's

estimates of the population

of undocumented aliens

Passell and Woodward's

estimates of the population

of legally resident aliens

Hawaii

Idaho

Illlnola

Indiana

Iowa

-1 *

5

135

8

2

Kansas

Kentucky

Louisiana

Maine

Maryland

8

4

7

-1 *

32

Massachusetts

Michigan

Minnesota

Mississippi

Missouri

17

S

9

4

7

Montana

Nebraska

Nevada

New Hampshire

New Jersey

0

3

7

0

37

New Mexico

New York

North Carolina

North Dakota

Ohio

13

234

9

1

10

Oklahoma

Oregon

Pennsylvania

Rhode Island

South Carolina

11

15

7

2

4

69

7

306

33

17

19

19

39

10

66

174

123

32

6

25

4

8

23

10

281

22

832

26

3

76

22

35

107

35

15

* Negative numbers appeared because of the method used. For the purposes of

the apportionments computed In this analysis all negative numbers were set to zero.
73

TABLE 1. Estimates of the Undocumented Aliens Counted In the 1980 Census

and the Legally Resident Aliens by State of Residence

(Population in thousands)•Continued

Passell and Woodward's

estimates of the population

of undocumented aliens

Passell and Woodward's

estimates of the population

of legally resident aliens

South Dakota

Tennessee

Texas

Utah

Vermont

0

6

186

9

0

2

16

505

16

5

Virginia

Washington

West Virginia

Wisconsin

Wyoming

34

22

1

8

1

62

80

6

30

3

Passell and Woodward succinctly summarize their concerns about these

estimates in the following paragraph.

The validity of the estimates of undocumented aliens counted in

the census necessarily depends on a number of factors. Including the

accuracy of the estimates of legally resident aliens; the validity of

the various assumptions for allocation of estimates to the State

level; the validity of the various assumptions used to modify the

1980 census data; the assumptions for allocation of estimates to the

State level; and the census coverage of legally resident aliens. The

utility of the estimates for generalizing about undocumented aliens

depends further on the coverage of this group in the 1980 census.

The estimates presented here should generally be regarded as lower

bounds on the numbers of undocumented aliens in each state. As

discussed by Warren and Passel (1984), the national estimates were

designed to provide a firm lower bound; for States, the greater

number of assumptions required weaken this firm nature of the bound,

but probably not by very much, 4/

Although these estimates may realistically report the distribution of

the undocumented alien population, using estimates such as these for

4/ Ibid., p. 20.
74

apportionment is not without risk. First, the Issue of timing oust be

addressed. In 1980, the Census Bureau was still "cleaning up" numbers for

various States In late December•days before the December 31 deadline for

reporting the results of the reapportlonment. Although the Census Bureau

might be able to produce estimates of the number of undocumented aliens

counted for each State sooner than four years after census day as they did

for this census, could they be expected to produce reasonably accurate

estimates eight months after the date? A difference of a few hundred

persons in a State population count can, and has, made a difference in

past apportionments in how many seats are awarded to a State.

Second, If the Census Bureau adjusts the counts used for apportionment

to exclude the undocumented alien population, should the Bureau add back

figures for persons that the Bureau estimates that were failed to be counted?

If this happened the Bureau either would have to develop a rapid means of

adjusting for the "undercount" as well as for estimating the number of undocumented

aliens counted In the census, or the reapportlonment date would have to be moved

back to accommodate the necessary research to adjust the apportionment populations.

Since the apportionment must be done to be effective in the next Congress

following the proclamation of how many seats will be assigned to the States,

a substantial slippage of the delivery date for the data would severly hinder

State redistrlctlng. Delaying the reapportlonment too long could result

in postponing the effective date of the reapportlonment to the middle

of the decade between censuses.

I know that you are aware of the constitutional issues, since Senator

Huddleston was a party to the FAIR suit, so I will not restate then here.
75

Table 2., below, summarizes the results of the trial apportionments that

you requested* In addition to the options you requested, X also included

several other scenarios that others might suggest as alternatives to your

proposals.

TABLE 2. 1980 Apportionment Based on Various Assumptions About the Impact

of Accounting for the Undocumented Allen Estimates of Passell

and Woodward

Change If Change un- Change if Change if

1980 undoc. doc. aliens all aliens undoc. aliens

appor- aliens doubled and are counts are

State tionment subtracted subtracted subtracted added

Alabama 7

Alaska 1

Arizona S

Arkansas 4

Calif- 45

+1

-3

+1

-3 +2

Colorado 6

Conn. 6

Delaware 1

Florida 19

Georgia 10

Hawaii 2

Idaho 2

Illinois 22

Indiana 10

Iowa 6

Kansas 5

Kentucky 7

Louisiana 8

Maine 2

Maryland 8

Mass. 11

Michigan 18

Minnesota 8

Mississippi 5

Missouri 9

+1 +1

-1

+1

+1

+1 +1

(This table summarizes the changes set out In the apportionment data contained In

the appendices.)
TABLE 2.

76

1960 Apportionment Based on Various Assumptions About the Impact

of Accounting for the Undocumented Alien Estimates of Passell

and Woodward•Continued

Change if Change un- Change if Change if

1980 undoc. doc. aliens all aliens undoc. aliens

a jpor- aliens doubled and are counts are

State tionment subtracted subtracted subtracted added

Montana 2

Nebraska 3

Nevada 2

N.H. 2

New Jersey 14

New Mexico 3

New York 34 -1 -1 -2

N.C. 11 • 1

N.D. 1

Ohio 21 -1

Oklahoma 6

Oregon 5

Penns. 23 -1

R.I. 2

S.C. 6

S.D. 1

Tennessee 9

Texas 27

Utah 3 •

Vermont 1

Virginia 10

Washington 8

W.Va. 4

Wisconsisn 9

Wyoming 1

(This table summarizes the changes set out in the apportionment data

contained in the appendices.)

In addition to the data for the 1980 Census, you also requested shnilar

data for population projections for the 1990 Census. The population projections
77

used to compute these apportionments were Issued In 1983 by the Census

Bureau. The Census Bureau has stated numerous caveats about the limitations

of these projections summarized from their Introduction.

This report presents projections of the resident population of

each State by five year age groups and sex for July 1, 1990 and 2000.

These projections represent the first series of State population

projections released by the Census Bureau that are based on the 1980

census results and that are consistent with the middle series of

national population projections published as Current Population

Reports, Series P-25, No. 922. This set of projections Is

provisional in that it was developed with a cohort-component

projections model employing residual measures of migration. The

projections presented here are not forecasts of each State's future

growth patterns. They present the results of continuing the

migration patterns by age and sex estimated for the

1970-1980 decade. 5/

Projections of this type have been Inaccurate in the past. If we

adjust these numbers to reflect the number of undocumented aliens counted

In the 1980 Census, the numbers become even more speculative. Table 3

below reports apportionment figures for the alien populations that you

specifically requested, figuring the Impact of subtracting the number of

undocumented aliens estimated to have been counted in 1980 by the Census

Bureau, and twice that number to account for a possible undercount of half

the undocumented aliens.

If we had estimates of the trend of the migration of undocumented

aliens In the States we might be able to extend those trend lines into the

future using the same assumptions that the Census Bureau used in producing

Its population projections for 1990. Because we lack such information, we

5/ U.S. Department of Commerce. Bureau of the Census. Population

estimates and projections. Provisional projections of population of States

by age and sex: 1980 to 2000. Serlos P-25, No. 937.
78

are'presenting your requested 1990 projections' In two ways. The first

method assumes that the same number of undocumented aliens that were

estimated to have been counted In the 1980 Census for each State will be

estimated to have been counted In the 1990 Census. We merely subtracted

the appropriate figures from the Census Bureau's 1990 total State

population projections. The second method assumes that the undocumented

alien population will change at a rate proportional to the change In the

State's total population. Thus we calculated the proportion of the

State's population that was estimated to have been undocumented aliens.

We then multiplied this figure by the State's estimated 1990 population

and subtracted the result from the State's projected population. Neither

of these methods should be regarded as estimates of the Impact of

Including the undocumented aliens in the population figures that will be

used for the 1990 Census. There are too many unknowns to even

characterize these figures as rough estimates. These figures should be used

for illustrative purposes only.

TABLE 3. 1990 Apportionment Based on Various Assumptions About the Impact

of Accounting for the Undocumented Allen Estimates of Passell

and Woodward

Projected Change if Change if 80 Change if Change if I

1990 80 est. of undoc. aliens X of 80 un- of 80 undoc.

appor- undoc. aliens doubled and doc. aliens are doubled

State tlonment subtracted subtracted subtracted S subtracted

Alabama 7 +1 +1

Alaska 1

Arizona 7

Arkansas 5

Calif. 48 -1 -3 -2 -3

(This table summarizes the changes set out in the apportionment

data contained in the appendices.)
79

TABLE 3. 1990 Apportionment Based on Various Assumptions About the Impact

of Accounting for the Undocumented Allen Estimates of Passell

and Woodward•Continued

Projected Change if Change if 80 Change if Change if 7.

1990 80 est. of undoc. aliens Z of 80 un- of 80 undoc.

appor- undoc. aliens doubled and doc. aliens are doubled

tionment subtracted subtracted subtracted & subtracted

Colorado

Conn.

Delaware

Florida

Georgia

7

5

1

23

11

+1 +1 +1 +1

Hawaii

Idaho

Illinois

Indiana

Iowa

2

2

20

10

5

Kansas

Kentucky

Louisiana

Maine

Maryland

Mass. 10

Michigan 16

Minnesota 8

Mississippi 5

Missouri 9

Montana 2

Nebraska 3

Nevada 2

N.B 2

New Jersey 13

New Mexico 3

New York 29

N.C. 11

N.D. 1

Ohio 19

-1

+1

-2

+1

(This table summarizes the changes set out In the apportionment

data contained in the appendices.)
80

Table 3. 1990 Apportionment Based on Various Assumptions About the Impact

of Accounting for the Undocumented Allen Estimates of Passell

and Woodward•Continued

Projected Change If Change If 80 Change If Change If X

1990 80 est. of undoc. aliens X of 80 un- of 80 undoc

appor- undoc. aliens doubled and doc. aliens are doubled

State tionment subtracted subtracted subtracted & subtracted

+1

Oklahoma 6

Oregon

Penns.

6

20

R.I. 2

S.C. 6

S.D. 1

Tennessee 9

Texas 31

Utah U

Vermont 1

Virginia 10

Washington 9

W.Va. 4

Wisconsisn 9

Wyoming 1

(This table summarizes the changes set out In the apportionment

data contained In the appendices*)

Appendicies

The appendices that follow include a copy of the Census Bureau1s "unrounded"

estimates of the undocumented alien population counted In the 1980 Census for

each State (Appendix A)* Appendices B and C-J are the summary pages from the

calculations of the apportionments that are summarized further in the tables
81

above. We have not included all the "priority" lists that show how each seat

Is assigned by the apportionment formula. We are including the priorty list

for Appendix B as an illustration of what Is available. The priority list is

labeled Appendix C. If you need this data for all the tables we can

provide this as well.

I trust that this will meet your needs In this matter. Please feel

free to call me If I can further assist you- I can be reached on 287-7877.
82

Appendix A: Unrounded Estimates of the Undocumented Alien Population

UNITED STATES DEPARTMENT OF COMMERCE

Bureau of the Census

Washington. DC 20233

July 19, 1984

Mr. David Huckabee

Congressional Research Service

Library of Congress

Washington, D.C. 20540

Dear Mr. Huckabee:

Enclosed are unpublished estimates of undocumented aliens resident in

the 50 states and counted in the 1980 census. Drs. Passel and Woodrow

have indicated to me your interest in using these estimates for the

purpose of examining the effects of inclusion of undocumented aliens in

the apportionment process.

The figures shown are the unrounded version of the estimates contained

in table 1 of the paper, "Geographic Distribution of Undocumented

Immigrants: Estimates of Undocumented Aliens Counted in the 1980 Census

by State", by Passel and Woodrow. As such, they are subject to all of

the limitations discussed in that paper. For your reference, a copy of

the paper is also enclosed.

As requested, you have been placed on the mailing list for "Enumeration

of Undocumented Aliens in the 1980 Census and Implications for 1990"

to be presented by Drs. Passel and Woodrow at the American Statistical

Association Meeting, August 13-16, in Philadelphia.

Sincerely,

ROGEB/A. HERRIOT

Chief, Population Division

Bureau of the Census

Enclosures
83

Estimates cf Undocumented Aliens Counted

in the 1980 Census, by State

All States 2,056,574

Alabama 4,794

Alaska 1,283

Arizona 24,759

Arkansas 3,344

California 1,023,711

Colorado IB,536

Connecticut 4,119

Delaware 814

Dist. of Columbia 13,877

Florida 80,258

Georgia 11,939

Hawaii -859

Idaho 5,013

Illinois 135,497

Indiana 7,531

Iowa 2,375

Kansas 8, OBI

Kentucky 4,485

Louisiana 7,130

Maine -610

Maryland 32,134

Massachusetts 17,496

Michigan 7,724

Minnesota 9,283

Mississippi 3,949

Missouri 6,836

Montana 366

Nebraska 3,444

Nevada 6,620

New Hampshire 148

New Jersey 36,752

New Mexico 13,166

New York 234,495

N. Carolina 9,311

N. Dakota 799

Ohio 9,814

Oklahoma 11,486

Oregon 14,557

Pennsylvania 7,443

Rhode Island 1,743

S. Carolina 4.259

S. Dakota 100

Tennessee 6,438

Texas 186,1B0

Utah 0,553

Vermont -2

Virginia 34,488

Washington 22,139

W. Virginia 1,445

Wisconsin 8,327

Wyoming 1,004

Source: Unrounded figures consistent with a paper presented at the annual

meeting of the Population Association of America, Minneapolis, Minnesota,

May 3-5, 1984, entitled "Geographic Distribution of Undocumented

Immigrants: Estimates of Undocumented Aliens Counted in the 1980

Census by State", by Jeffrey S. Passel and Karen A. Woodrow.
84

Afycadix *: 1»»0 Apport UaaMC if Paaaell and Woodrov'a MiMM of the

enteJ AJieoa Were Subtracted fro* the Fopolatioa Figure* Deed for

Jteapportiooing Seat* io the Houae of «epre*eotati»ee

SlAIi

AZ

M

C*

CO

at

M.

FL

CA

H<

ID

IL

IN

10

11

MO

«T

NM

OH

OH

OH

•A

Rl

sc

SD

TN

TX

UT

VI

VA

WA

wv

MS

WY

ASJUSTtD PQP'A»TIOW

3866767

7693107

2762169

//'.<'--.il

?e?o?M

3103457

594411

9669734

5457376

9t6«X)

938922

11287964

5482648

7911012

7355177

3666948

4196842

1174660

4184312

5719541

9760670

4067865

7616689

4911058

786324

1566S62

792564

920462

7327406

1286807

17377793

5865118

651896

10787605

30137B0

2348106

11869785

945411

3114949

690078

45B4312

14047703

1452484

611456

6311791

4108074

1948199

4697008

469812

p-rs-jlfhTATIVtS

7

1

S

4

44

6

c

1

19

11

'7

7

TOTAL REPRESENTATIVES 43S
85

Appendix C: Priority List for 1980 Apportionment if Passell and Woodrov's

Estimates of the Undocumented Aliens Were Subtracted from the Population

Figures Used for Reapportioning Seats in the House of Representatives

SEQ ST

51 CA

52 NY

53 TX

54 CA

55 PA

56 IL

57 OH

58 NY

59 FL

60 MG

61 CA

62 TX

63 NJ

64 CA

65 NY

66 PA

67 IL

68 OH

69 NC

70 CA

71 TX

72 MA

73 FL

74 IN

75 NY

76 GA

77 MG

78 VA

79 CA

80 MO

81 PA

82 WS

83 IL

84 TN

85 NY

86 TX

87 OH

88 CA

89 HJ

90 LA

91 MD

92 WA

93 MN

94 FL

95 AL

96 NY

97 MG

98 CA

99 PA

100 KY

101 TX

102 IL

103 OH

104 NC

105 CA

.106 MA

107 NY

108 IN

109 GA

PRIORITY

016012327.42

012249064.18

009929336.79

009244720.69

008385780.70

007978260.21

007627988.51

007071999.85

006830463.29

006541176.02

006537005.29

005732704.74

005181258.38

005063541.88

005000659.51

004841532.29

004606250.25

004404020.81

004147264.63

004134364.48

004053634.76

004044326.15

003943569.45

003876817.51

003873493.70

003855376.62

003776549.38

003756003.37

003494175.51

003472642.35

003423480.63

003321286.15

003257111.09

003241598.04

003162694.25

003139931.59

003114113.26

003026044.43

002991400.64

002967615.38

002958755.33

002904811.57

002876414.87

002788524.96

002747298.59

002672964.33

002670423.92

002668720.11

002651816.35

002585852.68

002563743.31

002522947.08

002412181.45

002394424.13

002386975.74

002334992.57

002314854.76

002238281.42

002225902.52

110 SC

111 CN

112 VA

113 TX

114 PA

115 FL

116 CA

117 OK

118 NJ

119 MG

120 IL

121 10

122 NY

123 CO

124 MO

125 CA

126 OH

127 WS

128 AZ

129 TX

130 TN

131 PA

132 NY

133 CA

134 MS

135 FL

136 IL

137 LA

138 MD

139 NC

140 MG

141 CA

142 WA

143 KA

144 OH

145 MN

146 OR

147 TX

148 NY

149 MA

150 NJ

151 AR

152 AL

153 PA

154 IN

155 GA

156 CA

157 VA

158 NY

159 IL

160 KY

161 FL

162 TX

163 CA

164 OH

165 MG

166 MO

167 PA

16B NY

169 WV

2

2

3

7

6

5

11

2

4

5

6

2

9

2

3

12

6

3

2

8

3

7

10

13

2

6

7

3

3

4

6

14

3

2

7

3

2

9

11

4

5

2

3

8

4

4

15

4

12

8

3

7

10

16

8

7

4

9

13

2

002202601.52

002194475.45

002168529.35

002166758.43

002165198.91

002159981.87

002159100.77

002131064.23

002115239.87

002068501.21

002059977.59

002058396.29

002041509.B3

002029607. 14

002004930.81

001970980.99

001969537.84-

001917545.27

001904314.18

001876467.64

001871537.33

001829926.95

001825981.83

001813038.67

001779567.82

001763617.75

001740998.71

001713353.38

001708238.03

001693113.69

001688924.11

001678546.69

001677093.59

001665326.24

001664563.18

001660698.76

001660361.64

001654888.76

001651662.70

001651089.23

001638457.55

001613737.14

001586153.43

001584763.05

001582704.12

001573950.91

001562641.97

001533381.95

001507755.37

001507748.95

001492942.60

001490528.95

001480177.45

001461717.98

001441553.84

001427401.30

001417700.30

001397629.52

001386933.10

001377584.70
86

Appendix C: Priority List for 1980 Apportionment if Passell and Woodrow'a

Estimates of the Undocumented Aliens Were Subtracted from the Population

Figures Used for Reapportioning Seats in the House of Representatives

170 CA

171 WS

172 TX

173 NJ

174 IL

175 TN

176 NC

177 CA

178 FL

179 NY

180 MA

181 SC

182 OH

183 CN

184 PA

185 MG

186 OK

187 IN

188 CA

189 TX

190 GA

191 LA

192 MO

193 NY

194 IL

195 10

196 VA

197 WA

198 MN

199 CO

200 CA

201 FL

202 OH

203 PA

204 NJ

205 TX

206 AL

207 NY

208 NB

209 CA

210 AZ

.211 MO

212 MG

213 IL

214 NC

215 KY

216 CA

217 NY

21S WS

219 MA

220 TX

221 PA

222 OH

223 MS

224 UT

225 TN

226 FL

227 CA

228 IN

229 GA

17 001373045.74

4 001355909.39

11 001338870.86

6 001337794.94

9 001329709.47

4 001323376.85

5 001311480.06

18 001294519.91

B 001290835.79

14 001284049.82

5 001278928.06

3 001271672.46

9 001271330.BB

3 001266980.87

10 001250077.80

S 001236165.65

3 001230370.39

5 001225957.18

19 001224493.29

12 001222216.70

5 001219176.98

4 001211523.90

4 001207906.80

15 001195385.36

10 001189328.26

3 001188415.54

5 001187752.40

4 001185884.35

4 001174291.45

3 001171794.12

20 001161656.31

9 001138410.07

10 001137112.86

11 001130737.90

7 001130643.01

13 001124275.75

4 001121579.95

16 001118180.82

2 001107726.59

31 001104955.58

3 001099456.20

5 001098145.79

9 001090195.54

11 001075787.88

6 001070818.95

4 001055669.93

22 001053533.75

17 001050348.58

5 001050282.76

6 001044240.35

14 001040876.SO

12 001032218.11

11 001028557.27

3 001027433.86

2 001027061.26

5 001025083.17

10 001018224.88

23 001006686.36

6 001000989.81

6 000995453.80

230 NY

231 IL

232 NJ

233 MG

234 VA

235 TX

236 CA

237 KA

238 OR

239 PA

240 OH

241 LA

242 NY

243 MO

244 AR

245 CA

246 FL

247 WA

248 NM

249 MN

250 TX

251 NC

252 IL

253 SC

254 MO

255 CN

256 NY

257 CA

258 MA

259 MG

260 PA

261 OK

262 AL

263 OH

264 NJ

265 WS

266 CA

267 TX

268 IN

269 NY

270 GA

271 FL

272 10

273 TN

274 IL

275 CO

276 CA

277 VA

278 PA

279 KY

280 NY

281 MG

282 TX

283 OH

284 WV

285 ME

286 CA

287 NC

288 IL

289 AZ

18 000990278.12

12 000982055.81

8 000979165.46

10 000975100.49

6 000969795.74

15 000969003.31

24 000963828.80

3 000961476.46

3 000958610.15

13 000949502.48

12 000938940.35

5 000938442.26

19 000936709.36

5 000935640.47

3 000931691.49

25 000924472.12

11 000921019.04.

5 000918581.95

2 000909906.40

5 000909602.13

16 000906419.77

7 000905007.13

13 000903359.88

4 000899208.30

6 000896632.25

4 000895890.85

20 000888640.50

26 000888204.06

7 000882544.12

11 000882011.57

14 000879067.99

4 000870003.33

5 000868771.98

13 000863699.43

9 000863542.69

6 000857552.25

27 000854674.79

17 000851433.60

7 000845990.74

21 000845265.74

7 000841311.96

12 000840771.80

4 000840336.76

6 000836976.88

14 000836348.27

4 000828583.64

28 000823585.25

7 OOOB19626.94

15 000818367.78

6 000817718.31

22 000805929.22

12 000805163.00

18 000802739.28

14 000799629.84

3 000795348.82

2 000795254.69

28 000794678.41

6 000783759.08

15 000778597.88

4 000777433.01
87

Appendix C: Priority Liat for 1980 Apportionment if Passell and Woodrov's

Estimates of the Undocumented Aliens Were Subtracted from the Population

Figures Dsed for Reapportioning Seata in the House of Representatives

290 FL

291 NJ

292 NV

293 CA

294 LA

295 PA

296 MA .

297 MO

298 TX

299 MO

300 WA

301 OH

302 MN

303 CA

304 MG

305 NY

306 IN

307 GA

308 IL

309 MS

310 WS

311 TX

312 PA

313 CA

314 FL

315 VA

316 AL

317 TN

318 NY

319 NJ

320 CA

321 SC

322 OH

323 CN

324 NC

325 MG

326 TX

327 IL

328 HA

329 KA .

330 NY

331 PA

332 OR

333 CA

334 MA

335 OK

336 RI

337 KY

338 FL

339 10

340 AR

341 CA

342 MO

343 OH

344 NY

345 TX

346 10

347 NH

348 LA

349 IN

13 000773397.50

10 000772376.04

23 000770092.04

30 000767732.32

6 000766234.87

16 000765513.10

8 000764305.54

6 000763947.21

19 000759315.37

7 000757792.51

6 000750019.00

15 000744414.89

6 000742687.00

31 000742553.88

13 000740642.17

24 000737306.98

8 000732649.39

8 000728597.45

16 000728311.76

4 000726505.52

7 000724763.89

20 000720349.79

17 000719074.76

32. 000718974.71

14 000716026.55

8 000709817.67

6 000709349.33

7 000707374.52

25 000707200.02

11 000698640.40

33' 000696847.10

5 000696523.66

16 000696336.49

5 000693953.98

9 000691210.48

14 000685701.02

21 000685189.34

17 000684130.16

2 000682358.03

4 000679866.59

26 000679455.76

18 000677950.17

4 000677839.80

34 000676040.97

9 000674054.07

5 000673901.59

2 000668506.51

6 000667664.18

15 000666584.45

2 000663918.10

4 O0O658805.43

35 000656441.42

8 000656267.49

17 000654094.61

27 000653806.66

22 000653302.37

5 000650921.97

2 000650864.91

7 000647586.62

9 000646135.97

350 MD

351 IL

352 GA

353 CO

354 PA

355 NB

356 MG

357 CA

358 NJ

359 WA

360 NY

361 MN

362 WS

363 VA

364 TX

365 FL

366 CA

367 NC

368 OH

369 TN

370 IL

371 PA

372 NY

373 CA

374 MA

375 AZ

376 AL

377 TX

378 MG

379 UT

380 CA

381 NY

382 NJ

383 FL

384 OH

385 IL

386 MO

387 PA

388 IN

389 GA

390 CA

391 TX

392 SC

393 NY

394 CN

395-KY

396 MS

397 WV

398 MG

399 LA

400 NV

401 VA

402 NC

403 CA

404 MD

405 MT

406 WS

407 OH

408 FL

409 PA.

7 000645653.20

18 000645004.09

9 O0O642562.49

5 000641818.05

19 000641276.68

3 000639546.18

15 000638352.93

36 000637946.38

12 000637768.73

7 000633881.71

28 000630023.88

7 000627685.04

8 000627663.87

9 000626000.29

23 000624252.03

16 000623532.78

37 000620465.07

10 000618237.42

18 000616686.30

B 000612604.24

19 OO0610112.81

20 000608368.46

29 000607910.81

38 000603916.36

10 000602892.26

5 000602196.94

7 000599509.56

24 000597675.81

16 000597124.60

3 000592974.04

39 000588227.50

30 000587297.66

13 000586661.86

17 000585707.39

19 000583326.86

20 000578803.82

9 000578773.48

21 000578673.85

10 000577921.56

10 OOOS74725.34

40 000573333.23

25 000573270.50

6 OO05C87O9.17

31 000568036.73

6 000566611.03

7 000564279.18

5 000562748.68

4 000562396.59

17 000560901.21

8 000560626.40

2 000560427.36

10 O00559911.66

11 000559216.78

41 000559174.72

8 000559152.01

2 000556015.02

9 ' 000553547.45

20 000553392.44

18 000552210.21

22 000551743.84
88

Appendix C: Priority List for 1980 Apportionment if Passell and Woodrow's

Estimates of the Undocumented Aliens Were Subtracted from the Population

Figures Dsed for Reapportioning Seats in the House of Representatives

410 TX 26 000550780.47

411 IL 21 000550552.26

412 OK 6 000550238.33

413 NY 32 000549999.21

414 WA 8 000548957.60

415 CA 42 000545698.60

416 HA 11 000545336.57

417 MN 8 000543591.13

418 NJ 14 000543143.03

419 IN 9 000540266. 11

420 NY 33 000533072.09

421 CA 43 000532856.85

422 10 6 000531475.55

423 TX 27 000529988.77

424 MG 18 000528822.72

425 PA 23 000527209.49

426 KA 5 000526622.33

427 OH 21 000526381.22

428 NM 3 000525334.65

429 OR 5 O00525052.38

430 IL 22 000524930.96

431 CO 6 000524042.22

432 IN 11 000522749.72

433 FL 19 000522338.59

434 CA 44 000520605.61

435 CA 11 000519858.63
89

Appendix D: 1980 Apportionment if Passell and Woodrov's Estimates of the

Undocumented Aliens Were Doubled and then Subtracted from the Population

Figures Used for Reapportioning Seats in the House of Representatives

STATE ADJUSTED POPULATION REPRESENTATIVES

KC 3880473 8

AK 3979 IS 1

AZ 2668348 5

AR 2278825 4

CA 21621140 42

CO 2851762 6

CN 3099338 6

DL 593597 1

FL 9579476 19

GA 5440387 11

HA 965000 2

ID 933909 2

II 11147467 22

IN 547S117 11

10 2908637 6

KA 2347046 5

KY 3652463 7

LA 4189712 8

ME 1124660 2

MD 4152178 8

MA 5702045 11

MG 9242896 18

MN 4058582 8

MS 2512740 5

MO 4904672 10

MT 785958 2

NB 1563118 3

NV 785944 2

NH 920314 2

NJ 7290654

NM 1273636 1 NY 17088298 33

NC S8S5807 11

ND 651097 1

OH 10777791 21

OK 3002294 6

OR 2333549 5

PA 11851842 23

RI 943668 2

SC 3110690 6

SD 689978 1

TN 4577874 9

TX 13856023 27

UT 1443931 3

VT 511456 1

VA 5277303 10

WA 4085885 8

wv 1946754 4

WS 4688681 9

WY 468808 1

TOTAL REPRESENTATIVES
90

Appendix E: 1980 Apportionment if Paasell and Woodrov's Estimates for All

Classes of Aliens Were Subtracted from the Population Figures Used for

Reapportioning Seats in the House of Representatives

STATE ADJUSTED POPULATION BFPRFSFNTATIVES

AL 3B74267 8

AK 393198 1

AZ 2616107 5

AR 2276169 5

CA 21124B51 42

CO 2B32298 6

CN 3013457 6

DL 588411 1

FL 9232734 18

GA 5422326 11

HA 896000 2

ID 931922 2

IL 10976964 22-

IN 5449648 11

10 2894012 6

KA 2336127 5

KY 3645948 7

LA 4157842 B

ME 1114660 2

MO 4118312 8

MA 5545541 11

MG 9127620 18

MN 4035865 8

MS 2510689 S

MO 4886058 10

MT 782324 2

NB 1558562 3

NV 769564 2

NH 910462 2

NJ 7046406 14

1264802 3

NY 16490793 32

NC 5839118 12

NO 648896 1

OH 10711605 21

OK 2991780 6

OR 2313106 S

PA 11752285 23

RI 910411 2

SC 3099949 6

SO 688078 1

TN 4568312 9

TX 13537203 27

UT 1436484 3

VT 506456 1

VA 5249791 10

WA 4028024 8

wv 1942199 4

ws 4667008 0

WY 466812 1

TOTAL REPRESENTATIVES
91

Appendix F: 1980 Apportionment if Passell and Woodrov's Estimates of the

Undocumented Aliens Were Added to the Population Figures Used for

Reapportioning Seats in the House of Representatives

STATE An.MISTFO POPULATION REPRESENTATIVES

AL 3694855 7

AK 401764 1

AZ 2742625 5

AR 2286857 4

CA 24692273 47

CO 2907370 6

CN 3111695 6

DL 596039 1

PL 9820250 19

GA 5476204 10

HA 965000 2

10 948948 2

IL 11553958 22

IN 5497710 10

10 2915762 6

KA 2371289 5

KY 3666918 7

LA 4211102 8

ME 1124660 2

MO 4248580 8

MA S754533 11

MG 9266068 18

MN 4086431 I

MS 2524587 5

MO 4923830 9

MT 767056 2

NB 1573450 3

m 805804 2

NH 920758 2

NJ 7400910 14

NM 1313134 3

NY 17791783 34

NC 5883740 11

ND 653494 1

OH 10807233 SO

OK 3036752 6

OR 2377220 5

PA 11874171 22

RI 948897 2

SC 3123467 6

SO 690278 1

TN 4597188 9

TX 14414563 27

UT 1469590 3

VT 511456 1

VA 5380767' 10

WA 4152302 8

WV 1951089 4

WS 4713662 9

WY 471820 1

TOTAL REPRESENTATIVeS *

3B
92

Appendix C: 1990 Apportionment if PasBe11 and Woodrow's Estimates of the

Undocumented Aliens Were Subtracted from the Population Figures Used for

Reapportioning Seats in the House of Representatives

STATE ADJUSTED POPULATION P.FPRFSENTATIVES

AL 4209006 7

M 520817 1

AZ 3968941 7

AR 2576456 5

CA 26501889 47

CO 3736564 7

CN 3131481 6

PL 628986 1

FL 13235742 23

GA 6162661 11

H* 1138100 2

10 1208787 2

IL 11367003 20

IN 5671769 10

10 2980925 s

KA 2455319 4

KV 4069015 7

LA 4739870 8

ME 1229400 2

MO 4458966 8

MA 5686404 10

MG 9386576 16

MN 4349117 8

MS 2757451 5

MO 5070414 9

MT 888034 2

NB 1636356 3

NV 1268780 2

NH 1138652 2

NJ 7476348 13

NM 1522834 a

NV 16222205 29

NC 6464089 11

NO 677601 1

OH 10763286 19

OK 3491914 6

OR 3304043 6

PA 11712957 21

RI 949057 2

SC 3555341 6

SD 698400 1

TN 5066162 9

TX 17312020 30

UT 2031747 4

VT 574600 1

VA 5926412 10

WA 4989661 9

WV 2035955 4

ws 6024373 l»- 9

WV 700296 1

TOTAL REPRESENTATIVES
93

Appendix H: 1990 Apportionment if Passell and Woodrow's Estimates of the

Undocumented Aliens Were Doubled and then Subtracted from the Population

Figures Used for Reapportioning Seats in the House of Representatives

STATE AP'JUSTED POPULATION REPRESENTATIVES

AL 4204212 8

AX 519534 1

AZ 3944182 7

AR 2573112 5

CA 25478178 45

CO 3718028 7

CN 3127362 6

DL 628172 1

FL 13155484 23

GA 6150722 11

HA 1138100 2

10 1203774 2

IL 11231506 20

IN 5664238 10

10 2978550 5

KA 2447238 4

KY 4064530 7

LA 4732740 8

ME 1229400 2

MO 4426832 8

MA 5668908 10

MG 9378852 17

MN 4339834 8

MS 2753502 S

MO 5O6402B 9

MT 887668. 2

NB 1632912 3

NV 1262160 2

NN 1138504 2

NJ 7439596 13

NM 1509668 3

NY 15987710 28

NC 6454778 12

NO 676802 1

OH 10753472 19

OK 3480428 6

OR 3289486 6-

PA 11705514 21

RI 947314 2

SC 3551082 6

SO 698300 1

TN 5059724 9

TX 17125840 30

UT 2023194 4

VT 574600 1

VA 5891924 10

WA 4967522 9

WV 2034510 4

MS 5016046 9

WY 699292 1

TOTAL REPRESENTATIVES
A******* f; J«*» tfptnUmmtm if !

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A. *-SJifSa 7

4* MS*27 1

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4* -ATSSA t

Ok j*>*SJVi 4*

«* *7»«0» 7

<« »i«44 •

4L 1729627* 2>

C4 61*1 »0» 11

Mt 113*100 2

10 I2073S4 2?

It imiOM 30

f« K716K1 «0

10 raof.4 S

M 2464*7* 4

«T 40**SK> 7

•

2

•.

M

17

•N 4;«%<77 •

»» 2757074. 6

MO 6O702O7 9

MT M7M6 2

Mf 1636202 *

NV 1264*36 2

MM 1138617 2

NJ 7475605 12

m 1620443 2

NV 16336604 2*

S 6463140 11

677670 1

10763306 19

8 3400099 6

3298 IBS 6

M 11713049 21

III 949050 2

•C 3554740 6

W 698399 1

TN 6065486 •

TX 17269234 20

S 2028356 4

674600 1

6932447 10

w» 4964935 9

MV 2036890 4

"•• 6023794

WV 6B9B04

TOTAL HI rm M Nuiivis 426
95

Appendix J: 1990 Apportionment if Passell and Woodrov'.s Estimates of the

Undocumented Alien Population are Used for Reapportioning Seats in the

House of Representatives So that the Undocumented Alien Population

Would be Double the Proportion to the Total State

Population as it was in the 1980 Estimates

STATE ADJUSTED POPULATION REPRESENTATIVES

AL 4203415 8

AK 518755 1

AZ 3920937 7

AR 2572251 5

CA 25144S29 45

CO 3706911 7

CN 31272BS 6

DL 628077 1

FL 13096551 23

GA 6147618 11

HA 1138100 2

ID 1200908 2

IL 11229511 20

IN 5663719 10

10 2978436 5

KA 2446553 4

KY 4063520 7

LA 4730898 8

Me 1229400 2

w 4422646 •V

MA 5669110 10

«G -: 9378625 17

MM 4338553 8

MS 2752748 5

MO 5063614 9

MT 8B7573 2

MB 1632605 3

NV 1254270 2

•• NH 1138434 *-.• •'

NJ i

Ml

7436109 13

1504887 3

NY 16017109 29

NC 6452879 11 ,

ND 676739 1

OH 10753516 19

OK 3476797 6

OR i - 3277706 6

PA .-. * - 11705698 21

SC . f

947300 "*, -:, -

-':* *

(r 3549879 ,••• •'

j*»- ...' f^'s . SD v

f:-r 698298 «&••>" V- ••:;>•• '":'.i; •. TN 5058373 9

.'*'•' TX 17040268 30 M UT 2016412 •

Jf* " -^^fV 1* VT "674600

5883994

& :'.•'. " '••*.*• WA ;'..»':•*;:••' 4958070 •:•: ".»: ;'VT

C'' ;"<*§$?' WV .*. - • 2034380 •TtSfc"' ."

' ws '• :A .£014887 p-,' -. .

IP'-M. WY . -,; ....• .$« «W830»>i-- • •- «,,**•

TOTALjREPRESENTATIVES ' M& ' o