Counting People in the Information Age (1994) / Chapter Skim
Currently Skimming:
5 Administrative Records
5 Administrative Records
Pages 136-177
The Chapter Skim interface presents what we've algorithmically identified as the most significant single chunk of text within every page in the chapter.
Select key terms on the right to highlight them within pages of the chapter.
From page 136... ...
. that would develop one or more detailed design options for a 2010 administrative records census." The Panel on Census Requirements in the Year 2000 and Beyond, in its interim report, gave strong support to the recommendations in our letter report and also urged greater attention to enhanced uses of administrative records in the Census Bureau's current estimates programs.
|
From page 137... ...
to support and extend the latter's research on the population coverage of IRS and Social Security Administration records. We believe that the Census Bureau's announced plans for using administrative records in the 1995 census test are consistent with the relevant recommendations in our interim report, subject to certain reservations discussed later in this chapter.
|
From page 138... ...
Key recommendations in this section are that health care legislation should not preclude uses of new health care records in the decennial census and that the Census Bureau should be invited to participate in the design of new health care record systems to help ensure their suitability for statistical uses. We then proceed to a description of the main features of an administrative records census and a discussion of the many issues that arise.
|
From page 139... ...
We also take note of some important developments over the past few months that are relevant to this discussion. Access Effective use of administrative records by the Census Bureau requires a legal right to access, the establishment of close and mutually beneficial ongoing relationships between the Census Bureau and the custodians of administrative records, and reasonable assurance of continued access to data that are suitable for the intended statistical uses.
|
From page 140... ...
It is not necessary to sacrifice either confidentiality or the benefits of information: both are possible if legislation provides for responsible access and demonstrated, effective means to protect confidentiality. In the report, the committee identifies ways in which access to health care enrollment information would permit the Census Bureau to reduce the cost of decennial census operations and improve the quality of current population estimates.
|
From page 141... ...
They felt the need for some mechanism, such as an individual ombudsman, an expanded role for OMB or a data protection board, "to develop and oversee policies on data sharing, and to provide a balance between the interests of data providers and data users." The panel also applauds the Census Bureau's initiative to establish and maintain its Administrative Records Information System, which now provides detailed information about major federal and state administrative record systems that may have potential statistical and research uses beyond those that are directly related to the programs for which they were established. The coverage, content, and structure of administrative record systems changes frequently, and it is im
|
From page 142... ...
Proposed legislation that calls for the establishment of major new administrative records systems should be carefully monitored to ensure that possibilities for important statistical uses of the records are recognized and are not unnecessar~ly foreclosed. We believe it is especially important for the Census Bureau, other statistical agencies, and the Statistical Policy Office of OMB to play a role in the development of new record systems in connection with health care reform.
|
From page 143... ...
The panel urges Congress, in considering legislation relevant to health care reform, not to foreclose possible uses of health care enrollment records for the decennial censuses and other basic demographic statistical programs. Recommendation 5.2: To facilitate statistical uses of new health record systems, the responsible executive branch agencies should invite the Census Bureau and other federal statistical agencies to participate actively in the development of content and access provisions for these record systems.
|
From page 144... ...
The Census Bureau has had contacts with privacy advocates in connection with previous censuses and has informed us that it plans future discussions that will focus specifically on statistical uses of administrative records in the 1995 census test. However, there has been some reluctance on the part of the agencies involved to enter a public debate for fear that calling attention to these questions might lead to discontinuance of important existing activities, such as the use of income tax return and Social Security data in the Census Bureau's intercensal population estimates programs.
|
From page 145... ...
Only the IRS Taxpayer Opinion Survey series specifically addressed statistical uses of administrative records, and that was done in the context of surveys dealing primarily with the experience and views of knowledgeable taxpayers (not the general adult population) relating to tax compliance issues.
|
From page 146... ...
For these reasons, the panel believes that further research on public views about the use of administrative records is needed. Recommendation 5.4: The Census Bureau, in cooperation with other agencies and organizations, should support a program of research on public views about statistical uses of administrative records in government.
|
From page 147... ...
in the 1995 census test" (Bureau of the Census, 1994a:25~. Record linkage that is, the identification of records belonging to the same unit, either within a single data set or in two different data sets is critical to enhanced uses of administrative records, whether in the context of a full administrative records census or a more traditional design.
|
From page 148... ...
AN ADMINISTRATIVE RECORDS CENSUS: KEY FEATURES AND ISSUES As noted above, we agreed, at an early stage of our work, with the Census Bureau's conclusion that a census based primarily on administrative records was not a feasible option for 2000 (Bureau of the Census, 1992c)
|
From page 149... ...
These are the issues on which a research program must focus. We examine each of them in more detail below, but first we will sketch out some possible scenarios, and potential record sources, for an administrative records census.
|
From page 150... ...
COUNTING PEOPLE IN THE INFORMATION AGE Administrative Files /~q Edit (within address) ¢,PJ Administrative Record Census Database FIGURE 5.1 Schematic diagram of an administrative record census.
|
From page 151... ...
In fact, if we look at what other countries have done, those that have carried out an administrative records census have had not only the equivalent of a Master Address File, but also a permanent population register, i.e., a requirement that individuals register all changes of address with a local or central authority. For example, Denmark, which is the leader in administrative records censuses, having conducted them in 1981 and 1991 (Redfern, 1994)
|
From page 152... ...
Therefore, in moving toward an administrative records census, the United States would be joining a select group of countries and would be breaking new ground by taking a census based on administrative records in the absence of a population register. Record Sources for an Administrative Records Census Three major requirements emerge when one considers what types of administrative records would be most suitable for use in a census based primarily on administrative records.
|
From page 153... ...
To illustrate some of the considerations that must go into the choice of administrative record systems, but without meaning to restrict consideration of other potentially useful sources, we next review two major contenders for the role of core administrative record system in an administrative records census: the individual taxation system and the health care system. Income Tax and Social Security Records About 65 percent of the population files a tax return either as primary or secondary taxpayers (Sailer et al., 1993~.
|
From page 154... ...
Recommendation 5.5: Research on the production of population estimates from Internal Revenue Service and Social Security Administration records should continue as a joint initiative of these agencies with the Census Bureau and should focus on identifying measures that could serve to reduce coverage differentials and improve geographic precision. Health Care Records In contrast to the well-established individual tax system, comprehensive uniform health care records do not yet exist.
|
From page 155... ...
Supplementation of the core system with records from other systems that have national coverage and are consistent content across states might prove cost-effective, especially if these additional record systems tend to cover populations that are more likely to be missed in an enumerative census. In the 1995 census test, the Census Bureau is planning to experiment with the use of several such files, including those maintained for the Food Stamp, Aid to Families With Dependent Children, and Medicaid programs.
|
From page 156... ...
In many rural areas this is not yet the case. The creation of urban-style addresses for rural areas is a prerequisite for an administrative record census, and the Census Bureau is work
|
From page 157... ...
Recommendation 5.6: The Census Bureau should continue its development of a cost model for an administrative record census and should use the model to maintain current cost estimates for several versions of this option as they are developed.
|
From page 158... ...
Planning for this testing should begin immediately. As stated at the start of this chapter, the panel believes that the Census Bureau should treat the possibility of a 2010 administrative record census as a live option, to be carefully explored and evaluated during the current decennial census cycle.
|
From page 159... ...
The 1995 Census Test A Census Bureau memorandum describing plans for testing various uses of administrative records in the 1995 census test was made available to the panel in January 1994 (Knott, 1994~. A more widely distributed document, the "1995 Census Test Design Plan," which was issued in February, describes some of the uses of administrative records that the Census Bureau plans to evaluate in the test.
|
From page 160... ...
At this time, we have one general recommendation and comments on two specific features of the test plan. Recommendation 5.8: The Census Bureau should plan its uses of administrative records in the 1995 census test and other tests leading up to the 2000 census and in the census itself in a manner that will also provide knowledge and experience of value for a possible administrative records census in 2010 or beyond and for uses of administrative records in demographic programs other than the census.
|
From page 161... ...
One implication of this strategy is that attempts to obtain specific administrative record files should not necessarily be abandoned as soon as it becomes evident that they cannot be obtained in time for operational use in the 1995 census test. If obtained later, these files can still be used to simulate their use in the test or for other purposes, such as improving current population estimates.
|
From page 162... ...
Successful implementation of the Census Bureau's plan for construction of an administrative records database for the 1995 census test sites is a necessary prerequisite for obtaining the information needed to make well-informed design decisions about uses of administrative records in the 2000 census. In addition, significant resources will be needed to undertake simulation studies and other
|
From page 163... ...
Recommendation 5.9: In maintaining and updating its Administrative Records Information System, the Census Bureau should give high priority to the acquisition of detailed information about record systems that are being developed to support health care reform at the state level. The Census Bureau should seek early opportunities to obtain and use health enrollment records in one or more states and should plan for experimental uses of these records as part of the 2000 census.
|
From page 164... ...
Uses in Current Population Estimates The Census Bureau's Population Division has an extensive program of population estimates producing figures for the nation, states, counties, and places (cities, towns, and townships)
|
From page 165... ...
The feasibility of a census conducted primarily through administrative records could be substantially increased by adjustments in both the content and format of the source records. At present the Census Bureau regularly uses micro-level administrative records in its demographic programs only to generate estimates of the total population for all areas of the country.
|
From page 166... ...
Federal and state laws and policies prevent the Social Security Administration from obtaining the birth certificate information on the race and ethnicity of the mother. If no action is taken to resolve this problem, the proportion of people in the NUMIDENT file lacking race and ethnic data will continue to grow, with negative consequences not only for uses of the NUMIDENT file by the Census Bureau but also for the Social Security Administration's ability to determine how its own programs affect different racial and ethnic groups.
|
From page 167... ...
The legislation does not specifically call for access to additional administrative records (access to the IRS files mentioned above is assumed) , but it would certainly improve the prospects of the Census Bureau's ability to prepare reliable estimates for the poverty universe if access to other administrative records were possible.
|
From page 168... ...
The Social Security number, a unique key identifier, is collected and its quality benefits from the fact that special measures are taken by the Census Bureau to ensure that each number reported in SIPP is complete and valid. The wealth of other data-last name, first name, house number, street name, apartment designation, city, zip code, state, and date of birth adds to the quality of any matching and linking of SIPP to other administrative records.
|
From page 169... ...
However, there are many operational and technical problems, in addition to concerns about confidentiality, that impede ready use .... Nonetheless, we urge the Census Bureau to seek innovative ways for SIPP to benefit from the extensive information that is available on income and programs from administrative record sources." This last suggestion, that the Census Bureau seek innovative ways for SIPP to benefit from administrative records, need not be limited to SIPP.
|
From page 170... ...
The California program illustrates an important use of state administrative records for population estimates that could be emulated by other states depending on the nature and scope of their own driver's license files. Canada's Use of Administrative Records Statistics Canada has been doing extensive research into the potential use of a variety of administrative records for small-area estimation and at present makes intensive use of the personal income tax records, i.e., Revenue Canada Taxation files (corresponding to our own Internal Revenue Service Individual Income Tax Returns)
|
From page 171... ...
The income tax system file is the backbone and main underpinning of Statistics Canada's administrative record work. Some other research projects under way and proposals for expanding uses of the basic individual income tax record file have included: (1)
|
From page 172... ...
However, again because of privacy concerns about linking files from more than one source, this project was shelved in favor of a 1 percent longitudinal administrative database created entirely from the tax file with no other linkages (Leyes, 1990~. In summary, the Canadian experience illustrates that the unidimensional use of administrative records is extremely useful for postcensal estimates programs.
|
From page 173... ...
First, such an effort would bring knowledge and experience that would greatly assist the Census Bureau in future decisions about a greater role for administrative records in the decennial census. Second, it could add substantial value to the Census Bureau's current demographic data programs by providing data more frequently and with greater geographic and subject matter detail.
|
From page 174... ...
The timetable for development of standardized national health care enrollment records is uncertain at this writing, but it is quite possible that some states will lead the way by developing their own automated health care information systems. Experience working with state record systems will give the Census Bureau an opportunity to judge their suitability for statistical uses and to develop recommendations for national standards that will facilitate statistical uses.
|
From page 175... ...
In this context, the Census Bureau should give special attention to new health care records that may be developed to implement the reform of the health care system in the United States. However, simply shifting from a twentieth century conventional decennial census to a twenty-first century model based on administrative records is not the only possible and perhaps not the most promising paradigm for counting people in the information age.
|
From page 176... ...
Finally, the continuously updated Master Address File/TIGER system, to which the Census Bureau is now committed, will provide a hitherto unavailable capacity for using administrative data from different sources and assigning units to their correct geographic locations. The future holds attractive prospects for using administrative records as the keystone in developing a greatly improved small-area demographic data system that can provide data more frequently at no increase and possibly a significant reduction in costs over the decade.
|
From page 177... ...
Recommendation 5.11: The panel urges the Census Bureau to adopt a proactive policy to expand its uses of administrative records, and it urges other executive branch agencies and Congress to give their sup port to such a policy. Any proactive policy has some risks associated with it, but the panel believes that the risks are justified by the potential benefits.
|
Key Terms
This material may be derived from roughly machine-read images, and so is provided only to facilitate research.
More
information on Chapter Skim is available.