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Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
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Once, Only Once, and in the Right Place

Residence Rules in the Decennial Census

Panel on Residence Rules in the Decennial Census

Daniel L. Cork and Paul R. Voss, Editors

Committee on National Statistics

Division of Behavioral and Social Sciences and Education

NATIONAL RESEARCH COUNCIL OF THE NATIONAL ACADEMIES

THE NATIONAL ACADEMIES PRESS

Washington, D.C.
www.nap.edu

Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
×

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The project that is the subject of this report was supported by contract no. YA132304CN0005 between the National Academy of Sciences and the U.S. Census Bureau. Support of the work of the Committee on National Statistics is provided by a consortium of federal agencies through a grant from the National Science Foundation (Number SBR-0112521). Any opinions, findings, conclusions, or recommendations expressed in this publication are those of the author(s) and do not necessarily reflect the views of the organizations or agencies that provided support for the project.

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Suggested citation: National Research Council (2006). Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Panel on Residence Rules in the Decennial Census. Daniel L. Cork and Paul R. Voss, eds. Committee on National Statistics, Division of Behavioral and Social Sciences and Education. Washington, DC: The National Academies Press.

Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
×

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Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
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Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
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PANEL ON RESIDENCE RULES IN THE DECENNIAL CENSUS

PAUL R. VOSS (Chair),

Department of Rural Sociology, University of Wisconsin–Madison (emeritus)

JORGE CHAPA,

Center on Democracy in a Multiracial Society, University of Illinois at Urbana-Champaign

DON A. DILLMAN,

Social and Economic Sciences Research Center and Departments of Sociology and Community and Rural Sociology, Washington State University

KATHRYN EDIN,

Department of Sociology, University of Pennsylvania

COLM A. O’MUIRCHEARTAIGH,

National Opinion Research Center and Harris School of Public Policy, University of Chicago

JUDITH A. SELTZER,

Department of Sociology, University of California, Los Angeles

C. MATTHEW SNIPP,

Department of Sociology, Stanford University

ROGER TOURANGEAU,

Joint Program in Survey Methodology, University of Maryland, and Survey Research Center, University of Michigan

DANIEL L. CORK, Study Director

MICHAEL L. COHEN, Senior Program Officer

AGNES E. GASKIN, Senior Program Assistant

BARBARA A. BAILAR, Consultant

MEYER ZITTER, Consultant

Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
×

COMMITTEE ON NATIONAL STATISTICS 2005–2006

WILLIAM F. EDDY (Chair),

Department of Statistics, Carnegie Mellon University

KATHARINE G. ABRAHAM,

Joint Program in Survey Methodology, University of Maryland

ROBERT M. BELL,

AT&T Labs—Research, Florham Park, New Jersey

ROBERT M. GROVES,

Survey Research Center, University of Michigan, and Joint Program in Survey Methodology, University of Maryland

JOHN C. HALTIWANGER,

Department of Economics, University of Maryland

PAUL W. HOLLAND,

Educational Testing Service, Princeton, New Jersey

JOEL L. HOROWITZ,

Department of Economics, Northwestern University

DOUGLAS S. MASSEY,

Department of Sociology, Princeton University

VIJAYAN NAIR,

Department of Statistics and Department of Industrial and Operations Engineering, University of Michigan

DARYL PREGIBON,

Google, New York, New York

SAMUEL H. PRESTON,

Population Studies Center, University of Pennsylvania

KENNETH PREWITT,

School of International and Public Affairs, Columbia University

LOUISE RYAN,

Department of Biostatistics, Harvard University

NORA CATE SCHAEFFER,

Department of Sociology, University of Wisconsin–Madison

CONSTANCE F. CITRO, Director

Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
×

Acknowledgments

THE PANEL ON RESIDENCE RULES in the Decennial Census of the Committee on National Statistics (CNSTAT) is pleased to submit this final report and wishes to thank the many people who have contributed to our work over the panel’s lifetime.

We thank the staff of the U.S. Census Bureau, under the leadership of director C. Louis Kincannon, deputy director Hermann Habermann, and associate director for decennial census Preston Jay Waite, for their accessibility and cooperation in providing information and materials to the panel and for several valuable interactions with the panel. Philip Gbur and Frank Vitrano acted superbly as lead liaisons between the Census Bureau and the panel, and Vitrano was a particular pleasure to work with as the lead technical contact between the panel and the Bureau. Ed Byerly, head of the Census Bureau’s internal residence rules working group, merits recognition for guiding panel members and other participants through lengthy, comprehensive “walk-through” sessions at two of the panel’s five public meetings. In plenary sessions and in smaller working group activities, the panel also benefited from its interaction with other talented members of the Census Bureau staff, including Robert Fay, Eleanor Gerber, Nancy Gordon, Deborah Griffin, Karen Humes, Elizabeth Krejsa, John Long, Sue Love, Elizabeth Martin, Louisa Miller, Laurel Schwede, Dave Sheppard, Annetta Clark Smith, and Maria Urrutia.

Our Panel on Residence Rules on the Decennial Census was one of three simultaneous CNSTAT panels studying different topics related to the upcoming 2010 census and the emergence of the American Community Survey as a data collection vehicle. As our work has progressed, we have found multiple points of overlap with the other two panels—the Panel on the Functionality and Usability of Data from the American Community Survey and the Panel on Coverage Measurement and Correlation Bias in the 2010 Census. We have

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Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
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benefited from our interaction with our colleagues on these panels, and we particularly thank their respective chairs, Graham Kalton and Robert Bell, for their cooperation with activities of our panel.

To assist in its work, the panel commissioned two papers for presentation at its meetings and to inform our deliberations. Terri Ann Lowenthal, an independent consultant and a former congressional staff member with expertise in the census, outlined the congressional and regulatory perspectives on census residence issues and reviewed legislative and judicial precedents. We thank her for her contribution, as well as for her ongoing work of informing the broader census stakeholder community of legislative developments in her series of “News Alerts” from the Census Project (http://www.censusproject.org). In the second paper, futurist Joseph F. Coates reviewed broad societal trends that may complicate the definition and interpretation of residence in the next 25 years. His paper provoked a stimulating discussion at the panel’s December 2004 meeting, and we appreciate his work.

This report has been reviewed in draft form by individuals chosen for their diverse perspectives and technical expertise, in accordance with procedures approved by the Report Review Committee of the National Research Council (NRC). The purpose of this independent review is to provide candid and critical comments that will assist the institution in making the published report as sound as possible and to ensure that the report meets institutional standards for objectivity, evidence, and responsiveness to the study charge. The review comments and draft manuscript remain confidential to protect the integrity of the deliberative process.

We thank the following individuals for their participation in the review of this report: Margo Anderson, History and Urban Studies, University of Wisconsin–Milwaukee; Beth Osborne Daponte, Institution for Social and Policy Studies, Yale University; Vincent Fu, Department of Sociology, University of Utah; Kimberly Goyette, Department of Sociology, Temple University; Martha Jones, Division of Workers’ Compensation Research Unit, Department of Industrial Relations, State of California; Steven Ruggles, Minnesota Population Center, University of Minnesota; Nora Cate Schaeffer, Department of Sociology, University of Wisconsin–Madison; and John H. Thompson, Office of the Executive Vice President, National Opinion Research Center, Chicago, Illinois.

Although the reviewers listed above provided many constructive comments and suggestions, they were not asked to endorse the conclusions or recommendations nor did they see the final draft of the report before its release. The review of the report was overseen by Kenneth Wachter, Department of Demography, University of California, Berkeley, and Stephen E. Fienberg, Department of Statistics, Carnegie Mellon University. Appointed by the NRC, they were responsible for making certain that an independent examination of the report was carried out in accordance with institutional proce-

Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
×

dures and that all review comments were carefully considered. Responsibility for the final content of this report rests entirely with the authoring panel and the institution.

In addition to the Census Bureau staff, we wish to thank the other expert speakers who contributed to our plenary meetings: Patricia Allard, Brennan Center for Justice, New York University School of Law; Robert Goldenkoff, U.S. Government Accountability Office; David McMillen, National Archives (formerly with the U.S. House Committee on Government Reform); Jim Moore, U.S. House Committee on Government Reform; and Peter Wagner, Prison Policy Initiative.

Our meeting drew attendants from several other federal agencies and interested groups. We can not list them all, but we do wish to thank those whose active contributions helped further the work of the panel: Allen Beck, Bureau of Justice Statistics; John Drabek, Office of the Assistant Secretary for Planning and Evaluation, U.S. Department of Health and Human Services; Robert Parker, U.S. Government Accountability Office (retired); D.E.B. Potter, National Center for Health Statistics; Susan Schechter, U.S. Office of Management and Budget; Ed Spar, Council of Professional Associations on Federal Statistics; and Katherine Wallman, U.S. Office of Management and Budget.

The panel appreciates the efforts of the reports office of the Division of Behavioral and Social Sciences and Education. Eugenia Grohman provided careful editing of the manuscript, Kirsten Sampson-Snyder patiently shepherded the report through scheduling and review processes, and Yvonne Wise managed the production of the finished volume.

Logistical support for the panel was provided with great skill and cheerfulness by Agnes Gaskin, senior program assistant. Research assistance was provided by Marisa Gerstein prior to her resumption of graduate studies in early 2005. The panel also benefited greatly from the long experience and wise counsel of CNSTAT consultants Barbara Bailar and Meyer Zitter. The panel is particularly indebted to the regular and active participation in its meetings of Constance Citro, director of CNSTAT. We simply could not have wished for a more experienced and talented group of committee staff as we worked our way through the history of residence rules in the census and particular problems regarding the concept of residence and its implementation in the 2000 census, and as we explored alternative ways to better ensure that future censuses will count each person living in the country once, and only once, and in the correct place.

I speak for the entire panel in expressing our profound gratitude to the panel’s study director, Daniel Cork. His uncanny ability to somehow bring to the screen exactly the relevant paragraph from some obscure report or a needed statistic from some data set regularly delighted panel members and routinely kept us on task. He carefully guided the panel during the process of coming to consensus regarding a final set of recommendations, and he drafted

Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
×

the text of our report during a time when his efforts were also very much in heavy demand by another CNSTAT panel.

Finally, I thank my fellow panel members for their generous contributions of time and expert knowledge. We worked extraordinarily well together, somehow always maintaining a wonderful sense of spirited camaraderie despite occasional disagreements over matters of emphasis or substance.

Paul R. Voss, Chair

Panel on Residence Rules in the Decennial Census

Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
×
   

 2–F  Plans for 2010

 

51

   

 2–F.1  One Rule: Proposed Residence Rules Revision

 

51

   

 2–F.2  Assessment

 

51

II
Residence Rules Meet Real Life: Challenges in Defining Residence

 

59

3

 

The Nonhousehold Population

 

61

   

 3–A  The Concept of “Group Quarters”

 

62

   

 3–B  Students

 

67

   

 3–B.1  Colleges and Universities

 

67

   

 3–B.2  Boarding Schools

 

76

   

 3–C  Health Care Facilities

 

77

   

 3–D  Correctional Facilities

 

82

   

 3–D.1  Prisons

 

84

   

 3–D.2  Jails

 

99

   

 3–D.3  Juvenile Facilities

 

101

   

 3–E  Children in Foster Care

 

103

   

 3–F  Military and Seaborne Personnel

 

105

   

 3–F.1  Personnel Stationed at Domestic Bases or Living in Nearby Housing

 

106

   

 3–F.2  Shipboard Personnel

 

110

4

 

Complex and Ambiguous Living Situations

 

113

   

 4–A  Multiple Residence and Highly Mobile Populations

 

113

   

 4–A.1  “Snowbirds” and “Sunbirds”

 

114

   

 4–A.2  Modern Nomads: Recreational Vehicle Users

 

118

   

 4–A.3  Commuter Workers and Commuter Marriage Partners

 

120

   

 4–A.4  Residential Ambiguity Due to Occupation

 

123

   

 4–A.5  Minority Men

 

124

   

 4–A.6  Migrant Farm Workers

 

127

   

 4–B  Complex Household Structures: The Changing Nature of Families

 

131

   

 4–B.1  Children in Joint Custody

 

133

   

 4–B.2  Cohabiting Couples

 

140

   

 4–B.3  Recent Immigrants

 

141

   

 4–B.4  Issues Unique to Native Americans

 

144

   

 4–C  The Homeless Population

 

146

   

 4–D  People Missed by Census Questions and Operations

 

151

   

 4–D.1  Census Day Movers

 

151

   

 4–D.2  Census Day Births and Deaths

 

153

   

 4–D.3  Babies and Young Children

 

155

Page xiii Cite
Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
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 4–E  Ambiguity Due to Housing Stock Issues

 

156

   

 4–E.1  Hotels and Motels

 

159

   

 4–E.2  People Dislocated by Disasters

 

161

5

 

Mirroring America: Living Situations and the Census

 

165

   

 5–A  Lessons from a Review of Living Situations

 

166

   

 5–B  Needed Research on Living Situations

 

174

   

 5–B.1  Fuller Use of Internal Data

 

174

   

 5–B.2  Monitoring Social Trends

 

175

   

 5–B.3  Basic Research on Living Situations

 

176

III
Improvements for the Future

 

179

6

 

Residence Principles for the Decennial Census

 

181

   

 6–A  A Core Set of Principles

 

182

   

 6–B  Products for Implementation of the Principles

 

186

   

 6–C  Presentation of Residence Concepts to Respondents and Enumerators

 

189

   

 6–D  Instructions and Residence Questions in Recent Censuses and Tests

 

192

   

 6–D.1  Previous U.S. Censuses

 

192

   

 6–D.2  Coverage Probes

 

197

   

 6–D.3  Foreign Census Questionnaires

 

201

   

 6–D.4  Alternative Questionnaire Tests and Approaches

 

202

   

 6–D.5  Toward 2010: Mid-Decade Census Tests

 

203

   

 6–E  Changing the Strategy: Getting the Right Residence Information

 

208

   

 6–E.1  Questions, Not Instructions

 

210

   

 6–E.2  The Short Form Is Too Short

 

211

   

 6–E.3  Mode Effects

 

217

   

 6–E.4  Testing ARE in 2010

 

218

   

 6–F  A Violation by Design: The Census Day Response Problem

 

220

   

 6–G  Research Needs

 

222

7

 

Nonhousehold Enumeration

 

225

   

 7–A  Implementation Problems in the 2000 Census

 

226

   

 7–B  Rethinking the Concept

 

233

   

 7–C  Allow “Any Residence Elsewhere”

 

238

   

 7–D  Conducting the Count

 

238

   

 7–D.1  Facility and Administrative Records

 

238

   

 7–D.2  Different Forms for Different Settings

 

240

   

 7–E  Counting Prisoners in the Census

 

241

Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
×
Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
×

List of Figures

2-1

 

Basic residence question (Question 1), 2000 census questionnaire

 

26

6-1

 

Basic residence question, advance materials distributed prior to enumerator visits, 1960 census

 

193

6-2

 

Basic residence instructions and Question 1, 1970 census questionnaire

 

194

6-3

 

Basic residence question (Question 1), 1980 census questionnaire

 

196

6-4

 

Basic residence question (Item 1), 1990 census questionnaire

 

198

6-5

 

Coverage probe questions, 1970 census questionnaire

 

200

6-6

 

Coverage probes (Questions H1–H3), 1980 census questionnaire

 

201

6-7

 

Coverage treatment groups, 2005 National Census Test

 

206

6-8

 

Coverage probe questions, 2005 National Census Test

 

209

8-1

 

Introductory household count question, 2005 American Community Survey

 

259

8-2

 

Excerpt of household roster question and instructions, 2005 American Community Survey

 

260

8-3

 

Excerpt of household roster question and instructions, 1996–1998 American Community Survey

 

263

8-4

 

Question 25, 2005 American Community Survey

 

264

B-1

 

Proposed form of basic usual residence questionnaire item (UR1), 2006 Census of Population and Housing, Australia

 

307

B-2

 

Residence instructions, 2001 Census of Population, Canada

 

309

B-3

 

Basic residence questions, 2001 Census of Population, Canada

 

310

B-4

 

Questionnaire items to collect primary and secondary address information, 2000 Census of Population, Switzerland

 

320

Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
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List of Tables

2-1

 

Residence Rules for the Current Population Survey

 

55

3-1

 

Group Quarters Population by Group Quarters Type, 2000 Census

 

64

3-2

 

Undergraduate College Housing, 2003–2004

 

75

3-3

 

Patient Discharges and Distribution of Current Nursing Home Residents, by Length of Stay (in percent)

 

81

3-4

 

Sentence Length for Most Serious Individual Offense, New Court Commitments to State Prisons, by Offense, 1993 and 2002

 

94

3-5

 

Time Served by Newly Released State Prisoners, 1993–2002

 

95

3-6

 

Time Served by Newly Released State Prisoners, by Offense Type, 1993 and 2002

 

96

4-1

 

Classification of Farm Workers

 

129

4-2

 

Children Under Age 18 by Household Composition, 1996 and 2001 (in thousands)

 

132

4-3

 

Divorces by Whether and to Whom Physical Custody of Children was Awarded, Selected States, 1989 and 1990

 

137

4-4

 

Type of Child Custody per Most Recent Agreement, 1994–1998 (in percent)

 

139

4-5

 

Births and Deaths in the United States by Month, 2004, Provisional Vital Statistics Data

 

154

4-6

 

Criteria for Distinguishing Separate Units in Multi-Unit Dwellings, 1850–2000

 

158

7-1

 

Mode of Completion, Group Quarters Individual Census Reports, 2000 Census

 

229

7-2

 

Group Quarters Questionnaire Records in the Non-ID Process by Form Type, 2000 Census

 

231

B-1

 

Usual Residence Categories as Delineated by the Census Order 2000, United Kingdom

 

322

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Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
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List of Boxes

2-1

 

Why Is April 1 “Census Day”?

 

29

2-2

 

Types of Enumeration Areas (TEAs), 2000 Census

 

32

2-3

 

Group Quarters Categories for the 2000 Census

 

35

2-4

 

State Definitions of Residence: California

 

39

2-5

 

Franklin v. Massachusetts (1992)

 

42

2-6

 

Undercount and Overcount in the 2000 Census

 

48

2-7

 

Census Bureau’s Proposed 2010 Census Residence Rule

 

52

3-1

 

Individual, Military, and Shipboard Census Reports

 

68

3-2

 

Borough of Bethel Park v. Stans (1971)

 

72

3-3

 

District of Columbia v. U.S. Department of Commerce (1992)

 

90

4-1

 

Types of Child Custody Arrangements

 

135

4-2

 

Colonias

 

143

4-3

 

S-Night

 

149

4-4

 

Service-Based Enumeration

 

150

5-1

 

Ethnographic Research in the Census

 

167

5-2

 

Living Situation Survey

 

168

5-3

 

Alternative Questionnaire Experiments

 

169

5-4

 

Residence Rules for the 1990 Census

 

171

5-5

 

Include and Exclude Instructions in the 1950 Census

 

173

6-1

 

Illustration of Application of Residence Principles as the Basis for “Frequently Asked Questions”

 

188

6-2

 

Residence Question and Instructions in the 2000 Census and the 2000 Alternative Questionnaire Experiment

 

204

6-3

 

Coverage Follow-Up Plans for the 2010 Census

 

217

7-1

 

2006 Census Test Group Quarters Definitions

 

234

7-2

 

Kansas Census Adjustment

 

247

Suggested Citation:"Front Matter." National Research Council. 2006. Once, Only Once, and in the Right Place: Residence Rules in the Decennial Census. Washington, DC: The National Academies Press. doi: 10.17226/11727.
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8-1

 

Unduplication in the 2000 Census

 

253

8-2

 

Residence Rules for the American Community Survey

 

257

8-3

 

Cognitive Testing

 

269

A-1

 

Guiding Principles for the Residence Rules as They Apply to Individual(s) with Multiple Residences

 

296

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The usefulness of the U.S. decennial census depends critically on the accuracy with which individual people are counted in specific housing units, at precise geographic locations. The 2000 and other recent censuses have relied on a set of residence rules to craft instructions on the census questionnaire in order to guide respondents to identify their correct "usual residence." Determining the proper place to count such groups as college students, prisoners, and military personnel has always been complicated and controversial; major societal trends such as placement of children in shared custody arrangements and the prevalence of "snowbird" and "sunbird" populations who regularly move to favorable climates further make it difficult to specify ties to one household and one place. Once, Only Once, and in the Right Place reviews the evolution of current residence rules and the way residence concepts are presented to respondents. It proposes major changes to the basic approach of collecting residence information and suggests a program of research to improve the 2010 and future censuses.

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