Innovations for the 2020 Census - Interim Report - Census Bureau
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Innovations for the 2020 Census Interim Report February 12, 2020
Innovations for the
2020 Census
Executive Summary.
Innovations for a 21st Century Census . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Chapter 1.
History and Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
The Importance of the Census . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Technological Innovation and the Decennial Census . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
What it Takes to Get it Done . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Chapter 2.
Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Planning for a 21st Century Census . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Establishing Where to Count . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
Responding to the Census . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Leveraging Administrative Data . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Reengineering Field Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
Improved Information Technology (IT) Systems, Including Mobile Computing,
Cloud Infrastructure, and Enterprise IT Solutions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
Chapter 3.
Outreach, Communication, and Partnership . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
The 2020 Census Advertising and Communications Program . . . . . . . . . . . . . . . . . . . . . . . . . 31
Innovations for the 2020 Census Surrounding Digital Communications . . . . . . . . . . . . . . . . 35
2020 Census Innovation: A Bigger Digital Presence . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
A Bigger, Better, and More Targeted Partnership Program . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
2020 Census Innovation: Wider Outreach in Schools and Communities . . . . . . . . . . . . . . . . 41
The Higher Education Initiative . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44
Complex Households and the Undercount of Young Children . . . . . . . . . . . . . . . . . . . . . . . . . 46
Chapter 4.
Protecting the Census: IT Systems, Business Processes, and Data Confidentiality . . . . . . . 51
Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55
References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56
U.S. Census Bureau
Innovations for the 2020 Census i
Executive Summary.
Innovations for a 21st Century Census
The 2020 Census has incorporated many innova- the U .S . Census Bureau more efficiently reach all
tions to promote greater participation across the households across the nation .
nation, streamline data collection procedures, and
ensure the security of the data collected . These Motivating people to participate . The 2020 Census
innovations are prevalent throughout the census employs state-of-the-art marketing tools to target
cycle and are intended to improve the national multicultural audiences throughout the country .
address roster, marketing, ease of self-response, Data analytics will be used to carefully monitor
field management of nonresponse followup, and self-response rates to identify areas for additional
completeness of the final data set . The 2020 marketing attention, application of mobile response
Census is utilizing Web-based technology to units, and other follow-up activities .
enhance self-response rates, participation among
the traditionally undercounted, and manage the Facilitating self-response . The introduction of
vast field operations of nearly 500,000 staff . Internet and telephone alternatives will greatly
enhance people’s ability to respond to the 2020
Identifying where to count . Using the geospatial Census . Respondents will also continue to have
technology of aerial photography and Geographic the choice to respond using the traditional paper
Information Systems, the Census Bureau’s Master version of the questionnaire .
Address File (MAF) is the most complete list of
residential locations ever assembled . This tool helps
U.S. Census Bureau
Innovations for the 2020 Census 1
Streamlining nonresponse followup . The oversight out to the entire higher education community,
and management of hundreds of thousands of school districts nationwide, businesses large and
field enumerators that contact households that do small, local civic organizations, faith-based groups,
not self-respond is a challenging undertaking . The and many others to engage their support for the
Census Bureau has employed a series of electronic census . The response has been exhilarating as, to
technologies to facilitate an efficient system to hire, date, more than 265,000 partners have agreed to
train, communicate with, and manage this large help .
workforce . New software capabilities optimize daily
route assignments, monitors progress, and ensures Data security . The introduction of Web-based data
rapid quality control of field work . collection options requires ongoing cybersecurity
vigilance to safeguard household responses from
Expanding outreach, digitizing communication, outside interference . The Census Bureau has intro-
and widening partnerships . The Census Bureau has duced a wide range of best-practice security inno-
conducted extensive outreach and communication vations to protect the privacy and confidentiality of
at the national, state, and local levels to educate 2020 Census data .
and motivate the general public about their civic
duty to participate in the census . We have reached
2 Innovations for the 2020 Census
U.S. Census Bureau
Table 1 .
INNOVATIONS FOR THE 2020 CENSUS
I. Census Operations
Innovation Specific Activities Outcome
Knowing where to count: • Geographic information systems . • Greater address and location
The Master Address File (MAF) • Aerial photography . accuracy .
• Early coordination with the • More recent data .
U .S . Postal Service, and state, • Reduced resource requirements .
local, and tribal governments .
Motivating people to respond • More robust partnerships and • Marketing messages will reach
communications campaign . 99 percent of the population up
• Partnership specialists in the to 61 times .
community . • Partnership specialists serving
as trusted voices to enhance
participation .
Facilitating self-response • Web-based option . • Ease of participation .
• Mobile response capability . • Improved response options for
• Telephone response option . the traditionally hard-to-count .
• Improved language program . • Reduced nonresponse followup
requirement .
Streamlining nonresponse • All electronic recruitment, hiring, • Management efficiencies .
followup management, timecards, payroll, • Improved data quality .
and assignments .
II. Outreach, Communication, and Partnership
Innovation Specific Activities Outcome
Outreach • Address populations hard to • Advertising focus on multicul-
reach . tural and hard to count .
• Engagement of institutions of • Expanded outreach to students .
higher education (letters to over • More precise targeting of
6,000 presidents) . communications and partnership
• Improved system for tracking assistance to enhance response
partners called the Customer rates .
Relationship Management system .
Communication—Partnerships • Partnership recruitment . • Improved utilization of partner-
• Integrated communications ship capabilities in hard-to-count
campaign . areas .
• Utilization of digital advertising . • Expanded reach to households .
III. Protecting the Data
Innovation Specific Activities Outcome
Cybersecurity • Partnership with industry and • Ability to protect, detect,
government agencies . respond, and recover firmly iden-
Fraud Protection tified events .
• NIST framework assessment .
Data Privacy • Model based response . • Protect and preserve the integ-
rity of the data .
• Privacy and confidentiality best
practices .
U.S. Census Bureau
Innovations for the 2020 Census 3
As mandated by the U.S. Constitution, since 1790 our nation gets just one chance each decade to count its population.
The 2020 Census will employ up to 500,000 office and field staff nationally, which is the largest nonmilitary
mobilization of the American public.
Chapter 1.
History and Process
THE IMPORTANCE OF THE CENSUS
As mandated by the U .S . Constitution, our nation the number of representatives from each
gets one chance each decade to count its popu- state may change, as well as the boundaries
lation . The decennial census is designed to count and population centers of each congressional
everyone living in the United States . It is mandated district .
by Article I, Section 2 of the Constitution . In 1790,
• Second, the census generates the population
Secretary of State Thomas Jefferson headed the
counts that help determine how the govern-
first census conducted by 650 U .S . Marshals . It is
ment will allocate hundreds of billions of dollars
now conducted by the Census Bureau, a bureau
in federal funding each year . These funds are
within the Department of Commerce, located
used for infrastructure and services includ-
in Suitland, Maryland . For the 2020 Census, the
ing health care, schools, emergency response,
Census Bureau will employ as many as 500,000
and social services, among others . By having
census takers and other temporary workers, many
a complete and accurate count of the nation’s
with local or direct ties to the neighborhoods they
population, services tied to population are more
count .
effectively and fairly apportioned .
The decennial census has three significant • Finally, the census creates one of the most
purposes: statistically sound data sets in the world .
People use census data for economic, political,
• First, the census count determines the appor-
commercial, health, and related uses . Urban
tionment of congressional seats in the House
and rural planners, as well as researchers, use
of Representatives . Each state receives at least
the data to track population growth and move-
one representative, the remaining 385 members
ment . The data also inform business decisions .
of the House of Representatives are appor-
For example, Census Bureau data help stores
tioned among the states based on the count of
decide how to stock their shelves and compa-
each states’ total population . After each census,
nies decide where to open a business .
U.S. Census Bureau
Innovations for the 2020 Census 5
The importance of census data will continue to are in the midst of a technological and data revolu-
grow . Our country has evolved through the indus- tion, where businesses and technology companies
trial and agricultural revolutions, which shaped the rely on timely data for cutting-edge decisions and
way our businesses and households operate . We innovations .
TECHNOLOGICAL INNOVATION AND THE DECENNIAL CENSUS
The 2020 Census builds on the long history of
technological innovation that drives the decennial
census .
The census requires the largest nonmilitary mobi-
lization of the American people . Each decennial
census is a time to create a better, more effective
system to count a larger and ever-more complex
population . Historical innovations with roots in the
Census Bureau include:
• The Hollerith machine . A precursor of the
Built by the Census Bureau for the 1960 and 1970 censuses,
modern computer, this machine was created in
the Film Optical Sensing Device for Input for Computers
the late 1800s to read census data cards .
(FOSDIC) is another Census Bureau innovation.
an electronic format . The first scantron machine
ever built was used in censuses from 1960–1990 .
In the 2000 census, the Census Bureau relied on
the biggest optical character recognition system
in existence at that time .
• A geospatial database of all of the roads in
the entire country . This mapping database was
created in 1990 and updated for the 2000 and
2010 censuses . This database became the foun-
dation of all Global Positioning System (GPS)
and online mapping programs . At the time, it
was the only comprehensive road mapping
database of the country available for down-
load and public access . It is referred to as the
The Hollerith machine, precursor of the Topologically Integrated Geographic Encoding
modern computer, started in the late 1800s to read
and Reference System (TIGER) . The TIGER
census cards, and is part of the long Census Bureau history
automates the geographic support processes to
of technological innovation.
meet the major geographic needs of the Census
Bureau’s censuses and surveys .
• Optical character sensing and recognition
The Census Bureau also pioneered new ways of
via a computerized text reader . The Census
conducting surveys and diverse hiring, including:
Bureau built the Film Optical Sensing Device for
Input for Computers (FOSDIC) reader, which • The mailout/mailback survey . Until 1960,
converted the census paper questionnaires into Census Bureau surveys were conducted entirely
6 Innovations for the 2020 Census
U.S. Census Bureauby enumerators going door to door . Mail was trained enumerators . Walker believed that it
tested as a vehicle in 1960 and became the was important to hire people who reflected the
norm during the 1970 Census, resulting in signif- communities that they counted, which in turn
icant savings in time and resources . would increase participation . For this reason, he
sought to hire a diverse workforce that included
• Statistical sampling . Statisticians at the Census
widows of Union veterans, freed slaves, and
Bureau created the foundation for the statistical
disabled soldiers . This diversity of hiring also
sampling field that has become the worldwide
included employees in the regional and head-
standard, dating back to work on the 1940
quarters offices, where women and minorities
census .
generally worked as clerks or in the tabulation
• Workplace diversity . From 1790 to 1870, divisions . With the advent of the Hollerith tabu-
U .S . Marshals and their temporary assistants lating machine in 1890, women and minorities
acted as census takers . Due to the increase moved into the role of keypunchers . When the
in the scope and complexity of the census, Census Bureau became a permanent agency
Francis Amasa Walker, then-superintendent of in 1902, half of the permanent employees were
the Census Office, replaced the marshals with women .
Each decennial census hires hundreds of thousands of new workers, the largest nonmilitary
mobilization of the American public. The emphasis on hiring directly from local communities
has historically provided new inroads to women and minorities who had previously experienced
barriers in the workplace.
U.S. Census Bureau
Innovations for the 2020 Census 7Accessing genealogy records
Every 10 years, another set of census data from 72 years prior is released. These records are
a major input for genealogy and ancestry programs, allowing people to access information
about their family history.
A sample of the 1940 Census results—Autauga County, Alabama
8 Innovations for the 2020 Census
U.S. Census BureauThe Evolution of Innovation
1830
Uniform Printed Schedules
Statistical Atlas/Data Visualizations
1870
1890
Hollerith Tabulating Machine
1902
Permanent Census Bureau
1940 Statistical Sampling/Long Form
1950
UNIVAC
1960
1970
FOSDIC
Mail Out/Mail Back 1990 TIGER
American Community Survey
2010
2020
Online Response
U.S. Census Bureau
Innovations for the 2020 Census 92020 Census
A complete and accurate count of the population and housing
in the United States
Self-Response Group Quarters
Motivate People Nonresponse
to Respond Followup
Establish Tabulate Data and
Where to Release Census
Count Results
Count everyone once,
only once, and in the right place.
10 Innovations for the 2020 Census
U.S. Census BureauWHAT IT TAKES TO GET IT DONE
Conducting the decennial census is a complex encouraged to send it back . In 2020, people
and monumental task . It progresses through a will be invited to respond via the Internet, over
series of key phases as outlined on page 15 . the telephone, or by returning a paper census
questionnaire .
Establish Where to Count
Account for People Living in Unique Situations
The decennial census begins with the develop-
ment of the list of household addresses, which The decennial census must include everyone
determines where we count the population . The living in the United States . Special operations
Census Bureau maintains the most complete are used to enumerate the people living in
and accurate address list of the United States in nontraditional housing units . This includes
existence, and each decade it must be checked people in nursing homes, college dormitories,
to ensure that new housing has been added, the military, migratory farm workers, people in
housing that no longer exists is removed, and prisons, and people experiencing homeless-
that all housing units are accurately placed ness . Special operations are also conducted to
within the correct geographic boundaries . account for people living in very rural or remote
In past decades, this has required well over areas, federal employees, and military person-
100,000 census listers to walk every street in nel stationed overseas . These operations are
America to check the addresses . described in detail on the next page .
Motivate People to Respond Nonresponse Followup
Then the Census Bureau must motivate people The Census Bureau must also include all of the
to respond to the mailings that will initiate the people who do not respond to the census after
Self-Response operation, when every house- they have been contacted . This is by far the
hold is encouraged to provide their responses most expensive phase of the decennial census
to the census questionnaire . Self-response data because it involves hiring, training, and deploy-
provided by the household are more accurate ing hundreds of thousands of census takers
and cost-effective for the Census Bureau . The who must knock on doors and interview every
2020 Census employs a nationwide commu- nonresponding household .
nications campaign to educate and motivate
people to participate in the enumeration . Process, Tabulate, and Release Census Results
Finally, data collected by the Census Bureau is
Self-Response
tabulated, and the apportionment counts are
The Census Bureau then begins the process of delivered to the President by December 31,
gathering data on the people living in the coun- 2020 . Redistricting data are then delivered to
try . Up until 1960, this was done by sending a the states by March 31, 2021 followed by detailed
census taker to interview every housing unit . statistics on the American population .
From 1970 to 2010, a census questionnaire was
mailed to every housing unit and people were
U.S. Census Bureau
Innovations for the 2020 Census 11THE 2020 CENSUS ENCOMPASSES NUMEROUS LINES OF BUSINESS
NECESSARY FOR A SUCCESSFUL NATIONAL ENUMERATION
Line of Business Activity
Real estate 2,856,000 square feet of rentable office space
248 area census offices
6 regional census centers
10 telephone call centers
2 paper data capture centers
Human resources Up to 500,000 people to hire and train
Printing 1.6 billion printed items
Mailing/postage $230–$240 million in postage
588 million mail pieces
IT security Secure deployment, mentoring, and protection
Equipment 56,000 Laptops
30,000 Tablets
477,000 Smartphones
Marketing $500 million advertising/communication campaign
to motivate, remind, and thank participants
94 hours of video content tailored to all
segments of the population
Counting People Living in Unique Situations
Enumeration at Transitory Locations. Counts transitional shelters, soup kitchens, regularly
people at transitory locations who do not have scheduled mobile food vans, and targeted
a usual home elsewhere . Transitory locations nonsheltered outdoor locations .
include recreational vehicle parks, campgrounds,
racetracks, circuses, carnivals, marinas, hotels, Update Enumerate. Counts people in very
and motels . remote areas where the Census Bureau conducts
a direct enumeration, visiting and interviewing
Federally Affiliated Enumeration Overseas. each housing unit .
Counts by home state the U .S . military and
federal civilian employees stationed or deployed Update Leave Enumeration. Counts people
overseas and their dependents living with them . in areas where the majority of housing units
do not have or receive mail through city-style
Group Quarters Enumeration. Counts people addresses, receive mail at post office boxes, have
living in group quarters (e .g ., college/university been affected by major disasters, or are season-
student housing, residential treatment centers, ally vacant housing . The address is updated
nursing/skilled nursing facilities, group homes, and the people living there will be offered three
correctional facilities, workers’ dormitories, and different ways to complete the questionnaire
domestic violence shelters) . including Internet, phone, or by mailing back a
completed paper questionnaire .
Service-Based Enumeration. Counts people
experiencing homelessness or utilizing
12 Innovations for the 2020 Census
U.S. Census BureauCounting Hard-to-Reach Populations in Northern Alaska
In January, the 2020 Census count began country is counted, the tundra is thaw-
in Alaska’s Toksook Bay, a rural village on ing and parts of rural Alaska turn to an
the Bering Sea that can only be reached impassable swamp . Therefore, the census
by snow machine or bush plane when the takers begin in January in Alaska—when
ground is still frozen . the tundra is frozen and the population is
easier to reach .
As the census is committed to counting
every person once, only once, and in the As in previous decennial census counts,
right place, special efforts must be made the Census Bureau director visited rural
to enumerate people who live in hard- Alaska in January 2020 to mark the
to-reach places such as rural Alaska . official beginning of the national count .
In large portions of Alaska that are not Traveling in subzero temperatures and
connected by roads and have irregular working with local residents, Census
mail service and no access to Internet, Bureau staff will make sure that every
census takers must do an in-person person in Alaska is counted . The count
count . In the spring, when most of the began on January 21, 2020 .
Every decennial census begins with counting villages in remote Alaska on the Bering Sea, which can
only be reached by traveling frozen terrain in winter months. In warmer temperatures when the ice
thaws, much of the region is impassable.
U.S. Census Bureau
Innovations for the 2020 Census 13Chapter 2.
Operations
PLANNING FOR A 21ST CENTURY CENSUS
The decennial census requires the largest nonmili- These innovation areas represented significant
tary mobilization of the American people and infra- cost-savings opportunities, as they rely heavily
structure conducted by the U .S . government . The on new technology and working smarter . The four
majority of this work and the associated costs are innovation areas explored through research, devel-
related to three key areas of the census: determin- opment, and testing for the 2020 Census design
ing where to count, providing an opportunity for mirror the operational progression of the decennial
the public to respond, and following up with those census . Each area leverages data and technology
that do not return a census questionnaire . When in new ways to increase efficiency and potentially
the Census Bureau began efforts to modernize the contain costs as the Census Bureau establishes
census design by leveraging technology and data, where to count people, motivates and enables
we focused on the following four innovation areas: households to respond to the census, and follows
up with those households that do not submit the
• Reengineering address canvassing .
census questionnaire .
• Optimizing self-response .
• Utilizing administrative records and third-party
data .
• Reengineering field operations .
U.S. Census Bureau
Innovations for the 2020 Census 15ESTABLISHING WHERE TO COUNT
One of the most labor-intensive tasks for any continuous updates from the U .S . Postal Service
decennial census is compiling an accurate and and state, local, and tribal governments .
complete list of all the household addresses in the
United States . This list is the basis for delivering the Housing blocks were classified into three
invitations to respond to the census and following categories:
up with those households that do not submit a
• Active blocks were those images that had
census questionnaire . It is developed throughout
changed from their 2009 counterparts and/
the decade using data from the Census Bureau,
or the Census Bureau was unable to confirm
U .S . Postal Service, and state, tribal, and local
completeness of the MAF . For these active
governments .
blocks, a lister walked the route to observe and
document the updates in housing units, and
In previous years, Census Bureau listers checked
included these updates in the new MAF .
the accuracy and completeness of the address list
by walking the 11 million blocks in the country . From • Passive blocks were those for which no change
major streets and rural roads, to back alleys and was made and blocks in which the in-office
unconventional living arrangements, census listers address update kept up with changes on the
would manually ensure that every housing unit was ground . Instead of sending a lister to the field,
accounted for in the Master Address File (MAF) . the address list remained as-is, unchanged from
the 2010 Census .
For the 2020 Census, the Census Bureau first
utilized aerial and satellite images from the National • On-hold blocks were those captured in
Geospatial-Intelligence Agency to supplement images not clear enough to make a determi-
nation: perhaps blurry, or under cloud cover,
New for the 2020 Census, the Census Bureau utilized aerial and satellite images to update the
master address list on file.
16 Innovations for the 2020 Census
U.S. Census Bureauor a problem with the image that would not Innovation Outcomes
allow for a clear delineation . In these cases,
These innovations reduced boots-on-the-ground
we requested new images from the National
operations by 70 percent: a drastic shift from 2010
Geospatial-Intelligence Agency . A determina-
when virtually 100 percent of the country—600
tion was then made as to how the blocks should
million miles—was walked by Census Bureau staff .
be classified .
The 2010 Census address canvassing operations
The Address Canvassing operation was part of a
consisted of a nearly 100 percent in-field canvass-
suite of processes employed by the Census Bureau
ing of the nation’s blocks in FY 2009 . This involved
to update and validate the address list for the 2020
the opening of 151 early local census offices (LCOs) .
Census . The Census Bureau conducted biannual
The 2020 Census re-engineered address canvass-
processing of the U .S . Postal Service’s Delivery
ing operations consisted of 100 percent in-office
Sequence File, and regular processing of address
address canvassing of the nation’s blocks, followed
data from tribal, state, and local governments . The
by in-field canvassing of just over a third of the
Census Bureau has long partnered with such orga-
nation’s blocks in FY 2019/2020 . This involved the
nizations to create a full address list, but this time
opening of 39 early area census offices (ACOs) .
partnerships began earlier in the decade with more
effort devoted to maintaining and building these
Following preliminary assessment of the field oper-
relationships . The Census Bureau also relied on the
ational costs of the in-field and in-office address
use of aerial imagery to identify areas where the
canvassing operations as well as the estimated cost
address list had been stable and unchanged, where
of the early ACOs/LCOs, the 2010 Census address
it was keeping up with changes on the ground, and
canvassing operations cost approximately 2 .5 times
where differences existed between the address list
more than the 2020 Census address canvassing
and the number of housing units visible in imagery .
operations in nominal dollars .
These coordinated efforts contributed to a more
accurate 2020 address list at a much earlier date
than in previous decennial census counts .
Address Canvassing Characteristics: 2010 and 2020
2010 Census 2020 Census
Early field offices 151 39
Total field offices 494 248
Number of staff budgeted for Address Canvassing1 130,000 42,000
Address Canvassing productivity (cases/hour)2 15.37 21.08
1
Number of staff are estimated “Deploy to Field” (production and quality control) .
2
2020 Census Address Canvassing productivity rates are expected, 2010 Census Address Canvassing productivity rates are
actual (production) .
U.S. Census Bureau
Innovations for the 2020 Census 17The 2020 Census is now available online. Households will be encouraged to go online and fill it out, though paper
questionnaires are still available for families who prefer those.
RESPONDING TO THE CENSUS
Internet and telephone make it easier for people to respond to the census.
The 2020 Census will provide an Internet response paper questionnaires need to be scanned and
option to the general public for the first time . It will processed . Internet response also makes it easier
also be the first census to promote response over for people to respond in languages other than
the telephone . Paper questionnaires will also be English . With three modes of response—Internet,
available giving the public three ways to respond to telephone, and paper—the 2020 Census makes it
the census . People will be encouraged to respond easier than ever before for people to submit their
via the Internet because research shows that data questionnaires .
quality is improved, and costs are reduced as fewer
18 Innovations for the 2020 Census
U.S. Census BureauScreenshot of the Web landing page for the 2020 Census questionnaire.
The Census Bureau will send up to five paper mail- questionnaire in the first mailing . We call this the
ings to every housing unit, urging people to respond “Internet Choice” cohort . The remaining 80 percent
to the questionnaire online . This begins with an are the “Internet First” cohort . We encourage
invitation letter and is followed by reminder letters Internet response because our research shows that
and post cards . For approximately 20 percent of we get better data and it is more cost effective . By
the country, predominately those living in areas the fourth mailing, every household that has not yet
with low Internet connectivity, we include a paper responded will receive the paper questionnaire .
U.S. Census Bureau
Innovations for the 2020 Census 19The 2020 Census: Contact Strategy
Internet First—80% Internet Choice—20%
1 Letter 1 Paper Questionnaire +
z Letter
z
2 Letter
z 2 Letter
z
3* Postcard
z 3* Postcard
z
4* Paper Questionnaire +
Letter 4* Paper Questionnaire +
z Letter
z
5* “It’s Not Too Late”
Postcard 5* “It’s Not Too Late”
Postcard
*Mailed only to nonrespondents.
Approximately Approximately
87% of addresses will 13% of addresses will
receive English-only receive bilingual
questionnaires, letters, questionnaires, letters,
and postcards. and postcards.
20 Innovations for the 2020 Census
U.S. Census BureauReal-Time Non-ID Processing The Census Bureau works with partners across
the country to identify key locations in areas
In the 2020 Census, it will be easier than ever for a
with low self-response rates . Possible locations
household to respond without providing a census
include grocery stores and markets, houses of
ID number assigned by the Census Bureau . This
worship before and after services, community
ID number has always been required because it
festivals, public transit hubs, libraries, community
enables us to ensure that the address is correctly
centers, and other locations where people naturally
located on our geographic database . We now have
congregate .
the technology to do this automatically, in real time,
without requiring verification by Census Bureau
MQA staff will help people access the census
staff in the field . People will enter their address in
questionnaire on mobile devices in English, or one
the Internet response instrument, or provide it to a
of 12 other languages . Respondents will be able to
telephone agent, and Census Bureau systems work-
complete the form online or over the phone . MQA
ing behind the scenes will match it to the MAF . This
staff will also have language guides for the 59
means that people can respond anywhere, anytime,
non-English languages the Census Bureau supports .
using their smartphones, tablets, or computers . This
These guides help people by providing trans-
is a significant innovation that will enable organi-
lated instructions on how to complete the census
zations supporting the 2020 Census to respond at
questionnaire .
conferences, conventions, and faith gatherings .
Identification of Low Response Areas
During previous decennial census operations, part-
ner organizations were encouraged to ask people In late March, initial MQA locations will be based
to go home, find the questionnaire we mailed them, on historical response rates . The 20 percent of
and mail it back . While forms were available for tracts with the lowest historical response rates
people to fill out in some cases, processing them have been identified as areas for MQA . Partnership
was inefficient and required field verification . Now, specialists will review events and activities planned
partnership organizations can host an event with in these tracts to identify those that are best suited
mobile devices or computers that people can use for MQA . Recruiting managers will review the list
to respond to the census questionnaire . They can of MQA events for their area census office (ACO)
also just encourage people to take out their smart- and will schedule census response representatives
phones and respond to the census . Partners, like (CRRs) . When feasible, CRRs will be scheduled to
the American Library Association, can also provide work in MQA locations where they can support a
access to devices at local libraries . We believe necessary language for that community .
that this will have a significant positive impact on
self-response rates . Beginning in mid-April, the Census Bureau will start
identifying on a weekly basis MQA locations based
Mobile Questionnaire Assistance on actual response rates . The 20 percent of tracts
with the lowest actual response rates will be identi-
The Mobile Questionnaire Assistance (MQA) fied . Partnership specialists will again review events
program is a direct outcome of real-time non-ID and activities planned in these tracts to determine
processing . This is a field initiative in which Census those best suited for MQA . If no events are currently
Bureau staff will work closely with community orga- planned then partnership specialists will work with
nizations and local governments to go directly into local partners to establish a new event . Recruiting
neighborhoods and visit events, resident gatherings, managers will then review the MQA events for their
and high traffic areas with Census Bureau-issued area census office and will schedule the CRRs .
mobile devices . The goal is to boost self-response
by providing additional accessibility to make it MQA is expected to have a significant positive
easier for people to respond to the 2020 Census . impact on response rates as well, particularly
among traditionally undercounted populations .
U.S. Census Bureau
Innovations for the 2020 Census 21Language Support for the 2020 Census
English Korean
Arabic Polish
Chinese Portuguese
(Mandarin/Cantonese)
Russian 中文1
French
Spanish 日本語
Haitian Creole
Tagalog
Japanese
Vietnamese
The 2020 Census is available in 13 languages.
The Language Program providing a translated response option cover over
98 percent of the households with limited English
Language assistance for the 2020 Census goes far
proficiency . This figure increases to over 99 percent
beyond anything provided in previous censuses .
when the language guides in 59 languages are
People can respond via the Internet in the 13
taken into account .
languages in the chart above simply by clicking on
that language on the first screen of the response
Innovation Outputs
instrument . Telephone agents will be available in
each of these languages as well as through dedi- The goal of these innovations is to make it easier
cated phone lines that will be promoted in commu- for every person to respond to the census by
nities through advertising and partnership support giving them more options and outlets to do so;
materials . In addition, language guides will be avail- and by removing obstacles that stand in the way
able in 59 languages . Respondents can use these of self-response . Improvements in self-response
guides to navigate through the English question- and Internet self-response have been associated
naire . Online videos in each of the 59 languages will with enhanced data accuracy . By giving three ways
be available as well . to respond, via Internet, paper questionnaire, or
telephone, a greater percentage of the population
This is a dramatic improvement over 2010 when may be motivated to respond . The Internet option
translated forms were only available by request- makes it much easier for people who do not speak
ing the form through telephone questionnaire English to respond, due to the instant availability of
assistance centers . The 12 non-English languages census materials in 12 non-English languages .
22 Innovations for the 2020 Census
U.S. Census BureauLEVERAGING ADMINISTRATIVE DATA
Data that people have already provided to the government can increase the efficiency of
Nonresponse Followup operations.
The 2020 Census innovations for Medicaid and Medicare one is living there . During previ-
leverages administrative data in Services . ous censuses, staff members
many operations . This includes would visit a home up to six
accounting for households that The Census Bureau has a long times before determining that no
do not respond to the census . history of using administrative one lived there . With the help of
Administrative data can also be records to provide quality infor- administrative data, the Census
used to remove vacant houses mation about the U .S . popula- Bureau can send a staff member
from the MAF, which is valuable tion and economy . These data once to make the determination
during enumeration and prevents are used to produce population and then do follow-up visits if
repeatedly sending census takers estimates and projections . The warranted .
to addresses where no one 2020 Census will utilize admin-
lives . Administrative data can istrative and third-party data to Innovation Outputs
improve on details census takers gain information about house-
holds that do not respond to Using administrative data
receive from proxy individuals,
the census . The Census Bureau to compile the 2020 Census
such as neighbors or apartment
will use this data to enumerate improves the data quality and
managers .
about 6 percent of nonrespond- reduce costs, but it must be
ing households after determining harnessed appropriately and
Administrative data is infor-
that the data are high quality . effectively, with proper oversight .
mation people provide to the
The Census Bureau has estab-
government . The Census Bureau
Vacant and Nonexisting lished a set of guiding principles
has access to administrative
Housing Units to determine which adminis-
records from the databases
trative sources are appropriate .
of more than 30 government The use of administrative records
However, no one-size-fits-all
agencies, including the Internal also aids in determining which
approach exists for accomplish-
Revenue Service, Social Security housing units are vacant or
ing this, and the Census Bureau
Administration, Department nonexisting (e .g ., condemned
continues to research new ways
of Housing and Urban or removed) . If administrative
to create a positive customer
Development, U .S . Postal Service, data indicates such a unit, the
experience and improve data
Selective Service System, Indian Census Bureau will still send a
quality .
Health Service, and the Centers staff member to the address—at
least one time—to verify that no
U.S. Census Bureau
Innovations for the 2020 Census 23REENGINEERING FIELD OPERATIONS
Leveraging technology to automate the hiring process, the collection of data, the distribution of
work to field personnel, and the collection of payroll and travel information.
Nearly every housing unit in the country is mailed Early testing by the Census Bureau showed that
or hand-delivered an invitation to respond to the the “notice of visit” left by enumerators on their
census, and the Census Bureau goes to great first visit generated a spike in self-response:
lengths to make sure no one is overlooked . Based simply seeing the reminder encouraged people to
on prior analyses of censuses and the American complete and submit their questionnaires .
Community Survey, the Census Bureau estimates
a 60 .5 percent response rate, which means that The innovations surrounding the field operation for
roughly 40 percent of the population will not the 2020 Census can be divided into three areas:
reply to the questionnaire prior to the start of hiring and onboarding, payroll and administration,
Nonresponse Followup (NRFU) . Even with the tech- and workload management .
nological innovations made to allow for Internet
response and removing the requirement for a Recruiting, Hiring, and Onboarding
census ID, the Census Bureau must still conduct a
In previous decennial census field operations, those
robust NRFU operation to ensure every household
seeking to become census takers, field manag-
is contacted .
ers, or administrative personnel had to fill out an
application by hand in an office, and complete an
The NRFU operation is the most expensive part of
in-person screening . A Census Bureau employee
the census . It requires the recruiting, onboarding,
would key in by hand the responses and scores: a
and deployment of as many as 500,000 census
time-consuming and error-prone process .
takers nationwide, and it is the largest nonmilitary
mobilization of the American people .
The 2020 Census has automated all aspects of the
application and screening process . This streamlines
NRFU utilizes robust technological innovations,
hiring field personnel, reduces the number of errors,
including the use of mobile devices and real-time
and allows for a more efficient process to bring
data . We have also updated the way enumerators
people on board .
(who conduct NRFU) are hired and paid, allowing
for greater efficiency and better oversight .
Given the strong economy, the Census Bureau is
facing significant challenges recruiting the neces-
sary pool of applicants necessary to hire and
deploy a workforce of up to 500,000 that will
be needed for all field operations . Automating
the process has helped, but we also have
increased the pay rates, boosted advertising,
and conducted tens of thousands of recruit-
ing events all over the country . We are now on
track to reach our goal of an applicant pool
of 2 .6 million, which is necessary to absorb
attrition and ensure that we can hire from
the communities where our field staff will be
working . The Census Bureau has undertaken a
robust campaign to recruit part time enumer-
ators from the local communities necessary to
conduct NRFU . Using paid advertising, part-
nerships with colleges and universities, and
support from state and local governments,
24 Innovations for the 2020 Census
U.S. Census Bureauthe Census Bureau has generated more than 2 .2 These technological innovations also provide work-
million applicants as of February 10, 2020 . load optimization for census takers, pointing them
toward the most efficient routes for completing
Once hired, the process for collecting and process- their work . The 2020 Census is relying more heavily
ing required information for background checks, on route optimizations developed with assistance
and much of the training, is automated as well . from key private sector organizations, including Esri,
U .S . Postal Service, and United Parcel Service .
Payroll and Administration
Innovation Outputs
The Census Bureau has automated all aspects of
the payroll and administration of field personnel, The Census Bureau experienced dramatic increases
allowing for better oversight, fewer errors, and a in productivity for Address Canvassing and
more effective process for the 2020 Census . Nonresponse Followup . In fact, the 2018 End-to-
End Census Test has shown that productivity
Workload Management increased dramatically relative to the 2010 Census .
Census takers are responsible for contacting Online payroll has allowed for better oversight and
people who have not responded to the census and accountability, and enumerators’ progress can be
urging them to do so . Every household that has tracked online, in real time, reducing errors—both
not responded receives a visit . In previous decen- those deliberate and unintentional .
nial census counts, some households that sent in
a questionnaire later in the census cycle were still Leveraging digital technology for all aspects of
counted among those who had not responded, field operations has dramatically reduced the need
and warranted an unnecessary follow-up visit . The for face-to-face interactions between field supervi-
duplication of such efforts was largely unavoid- sors and employees, as well as the brick and mortar
able, given the inability to process paper-based footprint of field offices . In the 2010 Census all
questionnaires on a flow basis in order to remove operations were based on paper forms . Supervisors
responses from the nonresponse followup work- met with their staff daily to provide and receive
load . The 2020 Census allows for a daily refresh of paper maps, case work, payroll, and administrative
data, giving field personnel the most up-to-date forms . These then had to be turned into the local
information . This will lead to fewer annoying dupli- offices where they were processed . Now all of this
cative efforts and greater efficiency, by allowing work is transferred digitally using handheld devices .
for the near-immediate removal of households for The result is that we only need 248 instead of the
which census responses have been received . 494 local offices required in the 2010 Census .
Challenge: Avoid Duplication of Efforts
During previous decennial The 2020 Census will be the With both of these innovations,
census follow-up efforts, some first time that enumerators will the Census Bureau expects to
people were often frustrated rely on real-time data . On a daily significantly reduce the dupli-
because they received visits basis, responses will be removed cation of efforts: making better
from census takers if they and updated from the nonre- use of the enumerators’ time
returned their responses late in sponse followup workload . After and efficiency by avoiding
the census cycle . Enumerators extensive internal testing, the households that have already
sent to do follow-up visits were Census Bureau has contracted responded, and avoiding frustra-
given sets of data that did not with the private sector to lease tion on the part of people who
always reflect the immediate 300,000 mobile wireless devices submit their questionnaires later
changes, so it would inevitably for 10 weeks to eliminate the in the cycle .
lead to duplication of efforts . technological uncertainties and
human errors that come from
relying on multiple interfaces .
U.S. Census Bureau
Innovations for the 2020 Census 25Smartphone Technology Used to Manage
Nationwide Enumerator Workforce: 2020
Technology can efficiently and effectively manage the
2020 Census fieldwork. The costly 2010 Census
paper-based workforce operations have
been replaced. Paper questionnaires
Timesheets
Registers listing each
enumerator’s caseload
along with paper maps
Resulting in the potential for significant savings
26 Innovations for the 2020 Census
U.S. Census BureauIMPROVED INFORMATION TECHNOLOGY (IT) SYSTEMS, INCLUDING MOBILE COMPUTING,
CLOUD INFRASTRUCTURE, AND ENTERPRISE IT SOLUTIONS
Among the technological innovations for the 2020 By leasing the mobile devices and tablets, the
Census are improvements to the Census Bureau’s Census Bureau can avoid purchasing millions of
IT systems . Building on existing technology, and dollars of hardware that it will not need once the
in preparation for online responses and a reliance decennial field operations conclude .
on real-time data refresh, the 2020 Census has
invested in IT infrastructure and mobile computing The 2020 Census will rely on Cloud infrastruc-
to ensure a smooth operation . ture to scale systems, so that every computerized
application or infrastructure will be able to handle
The 2020 Census is moving away from laptops and an increased load . This will allow online systems
instead relying on smartphones and tablets for processing to be more effective and efficient, while
census takers to follow up with people who have maintaining the security and integrity of the data
not responded to their census questionnaire . captured . The Census Bureau is also using enterprise
IT solutions during the 2020 Census so that other
data collection operations will benefit from it .
U.S. Census Bureau
Innovations for the 2020 Census 27Chapter 3.
Outreach, Communication, and Partnership
INTRODUCTION
Prior to the 1970 Census, data collection was Challenge: How Do We Communicate With People
primarily a door-to-door operation . In 1970, the About the Census?
Census Bureau spearheaded the first mail-out, The census is complex, and each decade it becomes
mail-in version of the census questionnaire . more difficult to complete . Distrust in government is
greater than ever, and the public seems increasingly
Recognizing that response rates were declining, the
reluctant to cooperate with censuses and surveys .
Census Bureau launched the Partnership Program
People are concerned about sharing their personal
in 1990 . This program mobilized census supporters
information and may not recognize the value of
at both the national and local levels, encouraging
statistical information produced by the government .
the partners to help the public better understand
In addition, households are more complex, diverse,
the importance of the census . In 2000, the first
and dynamic . For example:
national paid advertising campaign was launched
to raise awareness of and increase response to the • Blended families may include children who have
census . two primary residences .
• Households may include more than one family
Every decade since, the Census Bureau has
or multiple generations .
stepped up efforts . The largest, most sophisticated
push to attract partners and boost response rates • Families facing economic difficulties, or other
for any census is currently underway . This chapter crises, often pair up or stay with family or
outlines our wide-scale effort to reach a mass audi- friends .
ence and encourage participation in the decennial
• Young people such as college students and
census .
others may stay in multiple places .
• More households speak languages other than
English .
U.S. Census Bureau
Innovations for the 2020 Census 29It’s a challenge to include all these people in census
counts . The United States continues to be a highly 2020 Census Technology and Innovations—
mobile nation; about 15 percent of the population Outreach, Communication, and Partnership
moves in a given year . Also an increasing number of
Highlights
households speak languages other than English .
• Expanded social media communications
In the United States, in past censuses, the census and monitoring .
experienced a persistent undercount of minority • Established higher education outreach
populations and an overcount of the white popu- programs with universities .
lation . This is referred to as the differential under-
count, and it has a disproportionate effect in • Improved advertising and messaging .
high-density urban areas . • Leveraged data to optimize the commu-
nications and partnership campaign .
The differential undercount has existed in previ-
ous censuses because certain population groups • Created more complete partnerships with
had a greater number of the characteristics that a stronger foundation .
were observed in undercounted households . These
• Cultivated an ubiquitous digital presence
include low income, single-parent families, and
across all audiences .
many other factors contributing to the increas-
ing diversity and complexity of the population . • Achieved wider outreach in schools and
To conduct a complete and accurate census that communities .
includes everyone living in the United States, the
Census Bureau’s motivation, outreach, and promo-
tional efforts are specifically designed to address spread the message that responding to the census
households with historically lower participation is important and safe .
rates . Since the 2000 Census, the Census Bureau
has relied on a massive paid advertising campaign Many of our innovations surrounding the 2020
aimed at reaching everyone—especially tradition- Census are designed to tackle the challenge of how
ally undercounted populations . In addition, the to reach people to encourage them to respond and
campaign is part of building a strong partnership participate in the census, as discussed in detail in
program that can mobilize trusted voices to help this section .
30 Innovations for the 2020 Census
U.S. Census BureauTHE 2020 CENSUS ADVERTISING AND COMMUNICATIONS PROGRAM
Each decade since the 2000 Census, the Census stories in news media across the country in print,
Bureau has mounted an increasingly robust and social, and digital media . This campaign will include
sophisticated communications campaign . It a national events strategy that is more robust than
includes advertising in all major media outlets: paid what we saw in previous censuses . This began with
print, television, out of home (e .g . any advertising the census kickoff on April 1, 2019, and included
that reaches consumers outside of their home), events on Constitution Day in September and a
radio, and social media ads targeted at English- recruiting event in October . See table below for
speaking audiences as well as specific popula- upcoming events .
tion groups, including: Black/African American,
Hispanic/Latino, Asian, American Indian and Alaska Additional components of the outreach, commu-
Native, and Native Hawaiian and Other Pacific nications, and partnership effort include a
Islanders . Advertising is extensive, and it includes strong research foundation, paid advertising, the
mass media . Paid ads will air in English and the Partnership Program, social and digital media, the
other 12 languages supported by the 2020 Census Statistics in Schools Program, and stakeholder
Internet and telephone self-response systems . engagement—each of which build on the experi-
ence of prior censuses .
The Census Bureau will also continue to mount a
traditional earned-media campaign that will inform
2020 CENSUS PLANNED NATIONAL EVENTS
Calendar as of January 1, 2020
Planned Event Date Location
Integrated Communications Campaign (ICC) Launch January 14, 2020 Washington, DC
2020 Census Interfaith Summit February 18, 2020 Washington, DC
Counting Young Children in the 2020 Census February 22, 2020 Cleveland, OH
Invitation-Focused Media Blitz March 16, 2020 Atlanta, GA
Census Day 2020 April 1, 2020 New York, NY
It’s Time to Respond to the Census—Community Benefits April 14, 2020 Oakland, CA
Major League Baseball Event—Get a Full Count April 28, 2020 Milwaukee, WI
2020 Census Neighborhood Celebration May 13, 2020 San Antonio, TX
U.S. Census Bureau
Innovations for the 2020 Census 312020 Census Integrated Partnership
and Communications Operation
Public Relations and Events
Partnership Program
and Crisis Communications
Website Development Rapid Response
and Digital Activities Activities
Advertising and Statistics
Media Buying In Schools
Data
Social Media
Dissemination
Field Recruitment Advertising
Stakeholder Relations
and Communications
Building the Research Foundation respondent behavior so that messaging, media, and
other communications activities can be deployed
Prior to the 2020 Census, the Census Bureau built
in a manner that maximizes impact . These low
the strongest research foundation ever put in place
response scores are then combined with additional
to drive messaging and media placement for a
information including media usage data to allocate
census communications campaign . This process
groups into larger segments of the population,
began with the analysis of the public’s response to
which will drive the purchase and placement of
censuses and surveys throughout the decade, as
advertising in the campaign . These segments are
well as other sources, including third-party data .
described in the following chart .
This data is used to build predictive models that
provided estimates for the likelihood that people
Audience segmentation was based on the Census
in all population groups, and at all levels of geog-
Barriers, Attitudes, and Motivators Study (CBAMS) .
raphy, will respond to the census . These models
CBAMS was far more robust than a similar study
were then translated into “low response scores”
conducted in 2010, where it was only used to
that helped the Census Bureau, and the adver-
inform messaging . In 2020, it is driving the entire
tising firms they collaborated with, understand
campaign . First, a quantitative survey was fielded
32 Innovations for the 2020 Census
U.S. Census BureauYou can also read
