Deciphering & Interpreting

"For Statistical Purposes"

Sallie Ann Keller & Michael B. Hawes

U.S. Census Bureau

October 24, 2023

The viewpoints expressed in this presentation are those of the authors’

and do not represent the viewpoints of the U.S. Census Bureau.
Origins

2

The idea of “functional separation”

Privacy Protection Study Commission (1977)

“...separating the use of information 

about an individual for a research or 

statistical purpose from its use in 

arriving at an administrative or other 

decision about that individual.”
Current Federal 

Statistical 

System 

Definition

3

Legal Definition

CIPSEA (2019)

Statistical purpose primarily means the description, 

estimation, or analysis of the characteristics of groups, 

without identifying the individuals or organizations that 

comprise such groups.

Nonstatistical purpose primarily means the use of data 

in identifiable form for any purpose that is not a 

statistical purpose, including any administrative, 

regulatory, law enforcement, adjudicatory, or other 

purpose that affects the rights, privileges, or benefits of 

a particular identifiable respondent.
Application to 

the Census 

Bureau

4

Key reference to “Statistical Purposes” in

Title 13

”[The Census Bureau may not] use the 

information furnished under the 

provisions of this title for any purpose 

other than the statistical purposes for 

which it is supplied” [13 USC §9(a)]
Why Does 

This Matter?

5

• Privacy concerns

• Potential for public harm

• Data quality concerns.

• Scientific integrity and trust

• Enhance relevance

Will our current concepts 

be practical in the future?
Discussion Points

6

Why does it matter? What has informed 

statistical purpose?

What Are Future 

Challenges?
Use case –

For Statistical 

Purpose

7

Statistical Agencies are established to use data for the 

creation of statistical products that adhere to codified 

statistical purposes that are in public’s interest and for the 

public good.

Examples for statistical purpose include:

• Decennial Census – apportionment and 

representation

• American Community Survey – to understand the 

changing shape of the nation and its communities

• Principal Economic Indicators – to understand and 

improve the economy

• Sector-specific statistics (health/education/etc) – to 

assess important aspects of society and support 

policymaking and research
Use case –

Not For 

Statistical 

Purpose

8

As noted, data have been used for non-statistical 

purposes, the most widely known example was:

• Second War Powers Act (1942) rescinded Presidential 

and Census Bureau promises regarding the 

confidentiality of the census.

• Provided the Secret Service with lists of every 

individual of Japanese descent in Washington DC 

(1943)
Use case –

Grey Areas

9

As noted, data have been used for non-statistical 

purposes, the most widely known examples include:

• The U.S. Census Bureau lending staff and 

expertise to INS (1940)

• Provision of tract and block-level tabulations 

of Japanese-, German-, and Italian-Americans 

(1941-1942)

• Custom tabulations for DHS of Arab-American 

households by country of origin at the zip code level 

(2002-2003)
Interpretation and 

understanding of 

“Statistical Purposes” 

varies by stakeholder 

group
Messaging about data protections 

may hurt rather than help • “...respondents will extract information about the 

nature of a survey from the confidentiality assurances 

given to them. If these assurances are very elaborate, 

respondents are likely to infer that the survey is 

sensitive and that they will be asked a number of 

questions that may be unpleasant, embarrassing, or 

incriminating.” -Singer, Hippler, and Schwarz (1992)

Landreth, Gerber, and DeMaio (2008) also note: • Messaging about “confidentiality,” “statistical 

purposes,” and linkage to administrative records is 

often misunderstood, or seen as vague or open-ended

• Messaging about legal protections and penalties for 

unauthorized disclosure was variously interpreted as 

“legalese,” the “fine print,” or “over the top” 

11
Need to 

Clarify 

Statistical 

Purpose

14

Given efforts to improve the usability of statistics making 

finer grain details available and with the accessibility of 

more data sources some concerns arise regarding:

• The risk of reidentification

• Risk of group harm

• Private (or partisan) capture of public goods
How do 

definitions 

compare?

15

United States – ‘statistical purpose’ primarily means the description, 

estimation, or analysis of the characteristics of groups, without 

identifying the individuals or organizations that comprise such groups 

(44 U.S.C.A. 3561)

Eurostat – 'use for statistical purposes’ means the exclusive use for the 

development and production of statistical results and analyses; and 

‘statistics’ means quantitative and qualitative, aggregated and 

representative information characterizing a collective phenomenon in a 

considered population.

Statistics Canada – “Information collected by Statistics Canada is for 

statistical purposes, defined as description or analysis of characteristics 

of a population to which the individual belongs.” (Statistics Canada, 

2017, p.18)

New Zealand – Official statistics may be produced on any matter 

relating to New Zealand including, its economic, social, cultural, and 

environmental situation (Section 43). Statistician must be satisfied 

research is in the public interest and account for the public benefit, 

contribution to the well-being of the Maori, and any risks of harm 

(Section 49). (Statistics New Zealand, 2022)
Concerns 

16

Privacy concerns/Harm to the 

individual or oganization

Confidentiality / Disclosure risks

Risk of Group Harm

Private capture of public goods, 

partisan rather than public interest 
Challenges

17

Maintaining functional separation with diverse data

sources including public and private administrative 

data, designed data collection, and opportunity 

(open) data

Statistical output and tiered access controls or 

restrictions need to be linked to approved 

purposes and uses

Proliferation of AI
Moving forward...What should a future definition 

include?

18

Balancing trade-offs for 

“Statistical Purpose”

Implementing 

controls/restrictions in a 

dynamically changing 

environment 

Managing the statistics for 

their purpose and use

Functional separation 

vis-à-vis measurement 

priorities