STATUS OF THE 2010 CENSUS OPERATIONS

HEARING
BEFORE THE

SUBCOMMITTEE ON INFORMATION POLICY,

CENSUS, AND NATIONAL ARCHIVES
OF THE

COMMITTEE ON OVERSIGHT
AND GOVERNMENT REFORM
HOUSE OF REPRESENTATIVES
ONE HUNDRED ELEVENTH CONGRESS
FIRST SESSION
MARCH 5, 2009

Serial No. 1114

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COMMITTEE ON OVERSIGHT AND GOVERNMENT REFORM

EDOLPHUS TOWNS,
PAUL E. KANJORSKI, Pennsylvania
CAROLYN B. MALONEY, New York
ELIJAH E. CUMMINGS, Maryland
DENNIS J. KUCINICH, Ohio
JOHN F. TIERNEY, Massachusetts
WM. LACY CLAY, Missouri
DIANE E. WATSON, California
STEPHEN F. LYNCH, Massachusetts
JIM COOPER, Tennessee
GERRY E. CONNOLLY, Virginia
ELEANOR HOLMES NORTON, District of
Columbia
PATRICK J. KENNEDY, Rhode Island
DANNY K. DAVIS, Illinois
CHRIS VAN HOLLEN, Maryland
HENRY CUELLAR, Texas
PAUL W. HODES, New Hampshire
CHRISTOPHER S. MURPHY, Connecticut
PETER WELCH, Vermont
BILL FOSTER, Illinois
JACKIE SPEIER, California
STEVE DRIEHAUS, Ohio

New York, Chairman

DARRELL E. ISSA, California
DAN BURTON, Indiana
JOHN M. MCHUGH, New York
JOHN L. MICA, Florida
MARK E. SOUDER, Indiana
TODD RUSSELL PLATTS, Pennsylvania
JOHN J. DUNCAN, JR., Tennessee
MICHAEL R. TURNER, Ohio
LYNN A. WESTMORELAND, Georgia
PATRICK T. MCHENRY, North Carolina
BRIAN P. BILBRAY, California
JIM JORDAN, Ohio
JEFF FLAKE, Arizona
JEFF FORTENBERRY, Nebraska
JASON CHAFFETZ, Utah
AARON SCHOCK, Illinois

RON STROMAN, Staff Director

MICHAEL MCCARTHY, Deputy Staff Director
CARLA HULTBERG, Chief Clerk
LARRY BRADY, Minority Staff Director

SUBCOMMITTEE

ON

INFORMATION POLICY, CENSUS,

AND

NATIONAL ARCHIVES

WM. LACY CLAY, Missouri, Chairman

PAUL E. KANJORSKI, Pennsylvania
MICHAEL R. TURNER, Ohio
CAROLYN B. MALONEY, New York
PATRICK T. MCHENRY, North Carolina
LYNN WESTMORELAND, Georgia
ELEANOR HOLMES NORTON, District of
JOHN L. MICA, Florida
Columbia
JASON CHAFFETZ, Utah
DANNY K. DAVIS, Illinois
STEVE DRIEHAUS, Ohio
DIANE E. WATSON, California
DARRYL PIGGEE, Staff Director

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CONTENTS
Page

Hearing held on March 5, 2009 ..............................................................................

Statement of:
Mesenbourg, Thomas, Acting Director, U.S. Census Bureau; Robert
Goldenkoff, Director, Strategic Issues, U.S. Government Accountability
Office; David A. Powner, Director, Information Technology, U.S. Government Accountability Office; and Glenn S. Himes, Ph.D., executive
director, civilian agencies, Center for Enterprise Modernization, the
Mitre Corp. ....................................................................................................
Goldenkoff, Robert .....................................................................................
Himes, Glenn S. .........................................................................................
Mesenbourg, Thomas ................................................................................
Powner, David A. .......................................................................................
Letters, statements, etc., submitted for the record by:
Clay, Hon. Wm. Lacy, a Representative in Congress from the State of
Missouri, prepared statement of ..................................................................
Goldenkoff, Robert, Director, Strategic Issues, U.S. Government Accountability Office, prepared statement of ...........................................................
Himes, Glenn S., Ph.D., executive director, civilian agencies, Center for
Enterprise Modernization, the Mitre Corp., prepared statement of .........
Maloney, Hon. Carolyn B., a Representative in Congress from the State
of New York, prepared statement of ...........................................................
McHenry, Hon. Patrick T., a Representative in Congress from the State
of North Carolina, prepared statement of ...................................................
Mesenbourg, Thomas, Acting Director, U.S. Census Bureau, prepared
statement of ...................................................................................................
Powner, David A., Director, Information Technology, U.S. Government
Accountability Office, prepared statement of .............................................
Towns, Hon. Edolphus, a Representative in Congress from the State
of New York, prepared statement of ...........................................................
Watson, Hon. Diane E., a Representative in Congress from the State
of California, prepared statement of ...........................................................

20
26
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20
48
3
28
62
18
9
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49
13
91

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STATUS OF THE 2010 CENSUS OPERATIONS

THURSDAY, MARCH 5, 2009

HOUSE OF REPRESENTATIVES,
ON INFORMATION POLICY, CENSUS, AND
NATIONAL ARCHIVES,
COMMITTEE ON OVERSIGHT AND GOVERNMENT REFORM,

SUBCOMMITTEE

Washington, DC.
The subcommittee met, pursuant to notice, at 10 a.m., in room
2154, Rayburn House Office Building, Hon. Wm. Lacy Clay (chairman of the subcommittee) presiding.
Present: Representatives Clay, McHenry, Maloney, Norton,
Driehaus, Towns, Westmoreland, Chaffetz, and Issa.
Staff present: Darryl Piggee, staff director/counsel; Jean Gosa,
clerk; Michelle Mitchell and Alissa Bonner, professional staff members; Charisma Williams, staff assistant; Leneal Scott, information
systems manager; Lawrence Brady, minority staff director; John
Cuaderes, minority deputy staff director; Jennifer Safavian, minority chief counsel for oversight and investigations; Dan
Blankenburg, minority director of outreach and senior advisor;
Adam Fromm, minority chief clerk and Member liaison; Kurt
Bardella, minority press secretary; Chapin Fay, minority counsel;
and Dr. Christopher Bright, minority senior professional staff
member.
Mr. CLAY. The Information Policy, Census, and National Archives Subcommittee of the Oversight and Government Reform
Committee will come to order.
Good morning and welcome to todays hearing. We will receive a
progress report from the Bureau on its preparations for the 2010
census. We will also examine recommendations made by GAO for
improvements needed to address the Bureaus operational challenges and discuss GAOs most recent report on the Bureaus overall readiness for conducting the decennial census.
Without objection, the Chair and ranking minority member will
have 5 minutes to make opening statements, followed by opening
statements not to exceed 3 minutes by any other Member who
seeks recognition.
We will also recognize each side after the opening statements for
10 minutes each, in agreement with both sides.
Without objection, Members and witnesses may have 5 legislative days to submit a written statement or extraneous materials for
the record.
I will open with my statement and recognize our esteemed colleague, Mr. McHenry, for his opening statement.
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2
We are at a critical stage of preparation for next years decennial
census. This will be the Bureaus largest and most expensive census operation, costing taxpayers over $14 billion. The Bureau must
use all of these resources to ensure an accurate, fair, and complete
count on April 1, 2010.
As chairman, my mission is to help the Bureau to conduct the
most accurate census in U.S. history.
Last time, in 2000, the census missed 3 million Americans and
1.4 million homes. Most of those that were missed were poor, many
were minorities, and the majority were from urban areas; and that
is just not good enough.
My standard is very simple: everyone counts and every person
must be counted.
The undercount is extremely damaging to States and local communities. It deprives them of proper political representation, Federal formula dollars, and vital information. For every person the
Bureau misses, their local community will lose thousands of dollars
of Federal funding for 10 years. And given the economic emergency
we all face, no city or State can afford to miss anyone.
The Bureau has less than 1 month to complete preparations for
address canvassing. This essential operation will ensure the accuracy of its master address list automation, and it will play a critical
role in the success of the 2010 census.
For the first time, addresses will be collected and verified using
handheld computers. Today we will focus on the Bureaus progress
toward strengthening its integrated IT systems and how they can
reduce any risks that would jeopardize an accurate enumeration.
I want to thank all of our witnesses for appearing here today,
and I look forward to their testimony.
We will also be joined today by our chairman on the Oversight
Committee, Mr. Towns or New York, and the ranking member of
the full committee, Mr. Issa of California. Thank you both for joining us.
[The prepared statement of Hon. Wm. Lacy Clay follows:]

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7
Mr. CLAY. I will now yield to the distinguished ranking minority
member, Mr. McHenry of North Carolina, for a 5-minute opening
statement. Thank you.
Mr. MCHENRY. Thank you, Mr. Chairman. I want to congratulate
you on attaining the chairmanship. It is certainly historic for Congress and historic for your family, because your father had the
same jurisdiction during his chairmanship, and I know that he is
certainly proud of the legacy.
Mr. CLAY. Stop making me blush. Thank you.
Mr. MCHENRY. But it is an historic moment and I certainly appreciate it. I want to work in a bipartisan way with you to ensure
all the things that you said in your opening statement, I concur,
and I do have this hope that we can work in a bipartisan basis to
ensure that all Americans are counted. I have the same concerns
as Chairman Clay about the undercount. I am looking forward to
hear the Bureau explain their procedures for the undercount and
the overcount.
Back in 2008, the full Oversight and Government Reform Committee met to discuss the challenges and funding problems facing
the Census Bureau, and identify ways to facilitate a full and accurate count in 2010.
Today, almost a year later, we have the opportunity to ask the
Bureau exactly where they are in their preparations for the decennial census; where it should be; and how, with Congresss help, it
can get there.
The decennial census is a huge undertaking, the largest peacetime mobilization this country has ever seen. The data that are collected affect how government and businesses allocate the resources
from the State level all the way down to the small towns and communities in my district, in Chairman Clays district, and all across
America. Therefore, it is important that the Bureau be as open and
honest as possible about their preparation for a full count in 2010
and any associated problems that they might incur.
I think I speak for both myself and the chairman when I say this
subcommittee will not point fingers if problems existthey always
will with such a massive undertakingand we will certainly work
with you to change existing plans, and we will work with you early
and often to make that happen. This includes letting us know
about any funding needs that may come up along the way. The Bureau recently received $1 billion in the stimulus and another $2.7
billion is currently in the 2009 omnibus before the Senate today,
as well as appropriations for 2010.
Congress has demonstrated its intent to ensure the Census Bureau has every resource it needs to conduct a full and accurate
count. With a sufficiently funded Census Bureau, we can ensure a
fair and thorough 2010 census that counts everyone and leaves no
justification for using any accounting methods.
Finally, I would like to stress the importance of protecting the
integrity of the census without manipulation from either party. I
know that is rare to hear in Congress.
As was reported today, yesterday, in a meeting with the Senate
Commerce Committee leaders, Commerce Secretary Designee Gary
Locke expressed his desire for a Census Bureau free of political
pressure from the White House. I am encouraged by his comments

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8
and hope that President Obama accepts the Governors wishes, and
restores control of the Census Bureau to the Department of Commerce. Following that, the next census director, who the President
has yet to appoint and name, must also state his opinion on a nonpartisan and accurate census.
Based on new reports, Governor Locke did express his intention
to employ statistical sampling as a accuracy check. I am certain
that during the Governors confirmation hearings he will clarify
what exactly that means. And what it must not mean is that sampling will be used in any way to manipulate the census data for
partisan gain.
Chairman Clay and I share this goal to ensure that every American, every individual in this country, regardless of any race or socioeconomic status or any locational issues or challenges, or any
other characteristic, is not counted. We want to make sure every
American is counted.
All ideas brought before this subcommittee to help us achieve
this goal will be given thorough consideration, and I am confident
that together we can formulate a plan to ensure a full and accurate
count in 2010.
Thank you, Mr. Chairman.
[The prepared statement of Hon. Patrick T. McHenry follows:]

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12
Mr. CLAY. Thank you, Mr. McHenry. I look forward to our endeavors together. Thank you.
Now I recognize the chairman of the Oversight and Government
Reform Committee, the gentleman from New York, Mr. Towns.
Welcome to the subcommittee.
Chairman TOWNS. Thank you very much. Let me thank you and,
of course, the ranking member, Mr. McHenry, and, of course, the
ranking member of the full committee, Congressman Issa.
This is a very, very important subject, and, of course, the census
is a top priority for the committee, and I will be following it very,
very closely and will be willing to work with you to make certain
that we are getting a fair and accurate count.
There is no question that the census is a sensitive issue from a
political point of view, because it has a direct impact on how seats
are apportioned among the States for this body and the House of
Representatives. But my goal is for the committee to carry out its
oversight work in a responsible, non-partisan manner. I hope we
can keep our focus on the management practices and making certain that they have enough staff to do the job that needs to be
done; and lets not get caught up in the political stuff that really
does not help us to be able to come up with an accurate count.
Of course, I look forward to working with you, Chairman Clay,
Mr. McHenry, and, of course, the members of the committee, as
well as the ranking member in the full committee, to make certain
that this time we get it right. I do believe that we can get it right,
but it is going to require all of us focusing on accurate counting
rather than the politics of the situation.
So thank you very much, Mr. Chairman, and I yield back on that
note.
[The prepared statement of Hon. Edolphus Towns follows:]

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15
Mr. CLAY. Thank you very much, Mr. Chair.
I now recognize the gentleman from California, Mr. Issa.
Mr. ISSA. Thank you, Chairman Clay.
Since 1790, America has endeavored to count accurately all the
persons in the United States. It is certainly, today, not as automated as we would like in this coming census, but we have tools
we didnt have in 1790. We dont have to go up river and check and
see who heard that there was a trapper somewhere beyond the last
station that anyone knew existed. So in many ways we will have
a more accurate count than we did at our founding.
It is a given, though, that we will not have a perfect count. But
since estimates begin after the account, it is critical that we have
an actual count from which so many estimates are made of other
materials. That is the goal of this committee. I can see that it is
the goal of this committee on a bipartisan basis.
And the chairman of the full committee, as welltalked about
the importance of an accurate count and of the census in general,
I think he did so for a reason that many people today, at this hearing, may not yet understand, and that is that we have the shortest
Constitution in the world and, yet, it includes the requirement to
count every 10 years every person in the United States. Not every
citizen; not every voter. Every person. For that reason, it is something that has been non-partisan since our founding, and I am sure
will remain so.
Today, I look forward to hearing from our witnesses how we may
strive to be more efficient, if possible, but more effective than ever
before in that endeavor, because I am sure that the man or woman
up the river in 1790 didnt get counted for reasons of difficulty in
getting to that count, and I am sure there will be people like that
in this decade. But I would like to hear how we can reduce to the
absolute minimum any undercount or error in counting.
With that, Mr. Chairman, I thank you and yield back.
Mr. CLAY. I thank the gentleman from California and I appreciate your comments and your historic perspective on the census.
I now would like to recognize our colleague from Ohio, Mr.
Driehaus, for an opening statement.
Mr. DRIEHAUS. Thank you, Mr. Chairman, and thank you very
much for calling this hearing this morning.
As has already been stated by the Members, it is critically important that we get the count right when it comes to the census. I happen to represent, Mr. Chairman, the city of Cincinnati in my congressional district, and the city of Cincinnati led the charge in challenging the count in the last census because we had so many people, especially in low income and minority communities in Cincinnati, that were not counted. Obviously, this is an issue that is
near and dear to our mayor, Mark Mallory, who has led the charge
on behalf of the mayors of cities across the country to make sure
that we are in fact ensuring an accurate count of all people, as has
been mentioned by Mr. Issa.
So I fully support the efforts of the committee, and I would like
to invite you, Mr. Chairman, and the committee, if you are considering field hearings on the topic, to come on out to Southwest Ohio
and Cincinnati. I am sure our mayor would greet us with open

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arms, and we certainly want to make sure, in Cincinnati, that we
have a fair count.
So I thank you and I look forward to the testimony today.
Mr. CLAY. I thank the gentleman for the invitation. Your mayor
is a wonderful leader of that community and we look forward to the
visit.
I want to recognize the gentleman from Utah, Mr. Chaffetz.
Mr. CHAFFETZ. Thank you. I simply want to echo the sentiments
of the chairman and of the ranking member, the idea and the notion that we have a fair and accurate count. I also just want to expressand I hope it can be carried back to the men and women
who will be the foot soldiers, if you will, who will be out there participating in this census.
I hope they understand the important duty they take on, but also
the thanks from their Government. It is going to be tough, difficult
work over a long period of time, but there is a great deal of appreciation for the men and women who will serve and spend their
time, effort, and talents in order to execute this census in a fair
manner. Just please know that this committee, this body of the
U.S. Congress, appreciates their service, to all those who are serving this country for this very important endeavor.
With that, I yield back the balance of my time. Thank you.
Mr. CLAY. I thank the gentleman from Utah for his opening
statement. I know they have a stake in this upcoming census.
Mr. CHAFFETZ. I am just glad to be counted on this panel, Mr.
Chairman. [Laughter.]
Mr. CLAY. I recognize the gentlewoman from New York, Mrs.
Maloney.
Mrs. MALONEY. Thank you so much, Chairman Clay, for calling
this hearing. And thank you also to Chairman Towns for attending,
as well as Ranking Members Issa and McHenry. Thank you so
much for being here on this important issue.
Well, it must be the year before the decennial, since the census
is so much in the news. As Yogi Berra used to say, its deja vu
all over again. This is just like it was in 1999. We have press conferences, press releases, charges, countercharges, accusations. So
the census must be next year.
Today we have a hearing to see how the census is doing in getting ready for 2010. But this hearing is where the similarities to
2000 end. The controversies of the 2000 census were over the attempts by the scientists at the Census Bureau to use methods to
improve a more accurate count. These were ideological differences
over how to accomplish that goal.
Today we have a census that has real operational problems, a
census that is facing many last minute operational changes that
have not gone through field testing to the extent that operational
issues were field-tested in 2000. We are not anywhere near the
level of attention and testing that took place in 2000.
Lets just look at one area: the fingerprinting operation. This was
added just last summer by the Bush administration. Hundreds of
thousands of applicants that census will want to hire will have to
be fingerprinted. The images run through the Justice Departments
computers and then the results returned to the field offices next
year. None of this operation has been field-tested anywhere close

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17
to the type of testing that was done prior to 2000 for similar operations. What if it fails or slows the hiring process? This would really hurt the operations of the census.
Or let us look at the proposed second mailing of census forms.
Here you have an operation that was looked at in 2000, and rejected in 2000, that has been added to 2010 without a clear explanation as to how the problems that led to its rejection in 2000
would be dealt with.
Or how the management systems that handle payroll and the
enumerators work, since we have had to revert to a paper census,
after going to a handheld seemed unworkable after spending millions of dollars.
None of them have been given testing anywhere close to what
was done in 2000.
Hopefully, we will hear good news today. But I suspect that we
will not hear enough that will convince us that there is not real
operational problems in the Census Bureau.
Mr. Chairman, as we look at the 2010 census in the coming
months, I hope that you and the committee will also take the time
to start looking at 2020something I know that the Government
Accountability Office is already doingas to how we can avoid this
type of situation in the future. As you know, I, along with Chairman Dent and Charlie Gonzalez and many others, have put forth
bipartisan legislation to make the Census Bureau an independent
agency, to allow it to work over the next 10-year cycle of the census
without interference, without changing guidelines, without having
its budget diminished and changed and moved around. I hope that
the committee will be able to look at that in the coming months
as we deal with the problems we will be facing in 2010.
Thank you very much, and I thank all the panelists for being
here and all my colleagues.
[The prepared statement of Hon. Carolyn B. Maloney follows:]

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20
Mr. CLAY. I thank the gentlewoman for her opening statement
and realize that the census is a work in progress, and we have to
continue to attempt to perfect it. So I thank you and look forward
to working with you.
If there are no additional opening statements, the subcommittee
will now receive testimony from the witnesses before us today.
I want to start by introducing our panel. We have with us Mr.
Thomas Mesenbourg, the Acting Director of the U.S. Census Bureau. Welcome.
Mr. Robert Goldenkoff, Director of Strategic Issues at the GAO.
Thank you for being here. Mr. Goldenkoffs responsibilities include
directing work on the 2010 census.
He is accompanied by Mr. David Powner, Director of Information
Technology Management Issues. Good to see you again, Mr.
Powner.
And last, but certainly not least, Mr. Glenn Himes, who is executive director of the Center for Enterprise Modernization at the
MITRE Corp.
I want to welcome all of you all to our hearing today.
It is the policy of the Oversight and Government Reform Committee to swear in all witnesses before they testify. Would all of
you please stand and raise your right hands?
[Witnesses sworn.]
Mr. CLAY. Thank you. Let the record reflect that all of the witnesses answered in the affirmative.
Each of you will have 5 minutes to make an opening statement.
Your complete written testimony will be included in the hearing
record. The yellow light will indicate it is time to sum up; the red
light will indicate your time has expired.
Mr. Mesenbourg, you may proceed with your opening statement.
STATEMENTS OF THOMAS MESENBOURG, ACTING DIRECTOR,
U.S. CENSUS BUREAU; ROBERT GOLDENKOFF, DIRECTOR,
STRATEGIC ISSUES, U.S. GOVERNMENT ACCOUNTABILITY
OFFICE; DAVID A. POWNER, DIRECTOR, INFORMATION
TECHNOLOGY, U.S. GOVERNMENT ACCOUNTABILITY OFFICE; AND GLENN S. HIMES, PH.D., EXECUTIVE DIRECTOR,
CIVILIAN AGENCIES, CENTER FOR ENTERPRISE MODERNIZATION, THE MITRE CORP.
STATEMENT OF THOMAS MESENBOURG

Mr. MESENBOURG. Chairman Clay, Chairman Towns, Ranking

Member McHenry and Issa, and members of the subcommittee, I
appreciate the opportunity to report on the Census Bureaus preparations for the 2010 census. The census is upon us. April 1, 2010
is only 392 days from today and I can report we are well on our
way toward a successful enumeration.
A complete and accurate address list is the cornerstone of a successful census. Throughout the decade, we regularly updated the
address list we used in census 2000. In 2007, we invited tribal,
State, and local governments to review our address list for accuracy
and completeness as part of the Local Update of Census Address
Programs [LUCA]. 11,500 government entities registered for

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LUCA, and over 8,100 provided updates. That accounted for an additional 8 million addresses that we have added to our address list.
Address canvassing, the first major operation in the 2010 census,
starts on March 30th and runs through July 17, 2009. During address canvassing, 140,000 Census Bureau employees will walk almost every street in America, checking and updating 145 million
addresses. Then, in late September, we will validate the listings for
group quarters, which include dormitories, group homes, prisons,
and the like. This is the first time that group quarters are part of
address canvassing, and their inclusion will improve the accuracy
and the coverage of the final count.
In December 2008, we conducted the address canvassing operational field test. The test provided an opportunity for our field
staff to test the key functionality of the handheld computers in an
environment that approximates a real census. Headquarters staff
and all of our 12 regional directors participated in the test. The
Government Accountability Office and the Commerce Departments
Inspector General staff observed the test. The positive results demonstrated the significant improvement that we have made since
dress rehearsal and reinforced our confidence in the operations
production readiness.
In April 2008, the Secretary announced the decision not to use
handhelds to collect data during the nonresponse followup operation. Late last spring, we completed the high level plan for enumerators to use paper forms to collect information from non-respondents, just as we have done in previous censuses.
In October 2008, we re-scoped the field data collection automation contract responsibilities. The Census Bureau took over responsibility for a number of operations, including the help desk and the
operational control system, which is the nerve center for our 494
local census offices that will be responsible for 2010 data collection
operations. We made these re-scoping decisions to reduce the overall risk to the census. We have done these operations before and
we are confident in our ability to do them again.
At the end of January 2009, we completed the schedule for development, testing, and deployment of the 2010 operational control
system that will support 2010 data collection activities, including
nonresponse followup. We are making good progress on system development and testing is scheduled to begin April 20, 2009. We will
also continue to closely monitor the development and testing of the
paper-based operations themselves.
We agree with GAO for the need of a comprehensive testing program. We believe, over the past 11 months, we have established a
very robust testing program that is responsive to the recent GAO
testing recommendations. GAO made nine recommendations outlining 28 steps that should be taken to strengthen our testing program. We have already implemented 16 of the steps they specified,
and 8 others are planned to be implemented. Of the remaining four
steps, two of the steps take place later in the cycle and we will implement them at the appropriate time, and an additional step we
are going to seek clarification from GAO about their intent on
those.
We are also taking steps to address GAOs concerns related to
cost estimates. We appreciate GAOs recommendations and we re-

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cently provided them with an action plan, and we certainly are
committed to implementing those steps outlined in that plan.
In closing, I believe that our current plan has significantly reduced the risk to the 2010 census, and we are prepared to meet the
challenges that lie ahead. Members of the subcommittee, the Census Bureau is on track for a successful census, and I am happy to
take your questions.
[The prepared statement of Mr. Mesenbourg follows:]

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Mr. CLAY. Thank you for your testimony, Mr. Mesenbourg.
Mr. Goldenkoff, you may proceed for 5 minutes.
STATEMENT OF ROBERT GOLDENKOFF

Mr. GOLDENKOFF. Chairman Clay, Chairman Towns, Ranking

Members McHenry and Issa, and members of the subcommittee,
thank you for the opportunity to be here today to provide a
progress report on the 2010 census. I am here with Dave Powner,
a Director in GAOs Information Technology team.
As requested, in our remarks today, I will provide a broad overview of the status of key census-taking operations and Dave will
focus on the finding and recommendations contained in our report
on IT testing, which we are releasing today.
This mornings hearing is particularly timely. Exactly 1 year ago
today, GAO designated the 2010 census a high risk area for three
reasons. First, there were weaknesses in the Census Bureaus IT
acquisition and contract management function; second, there were
problems with the performance of handheld computers used to collect data; and, third, the ultimate cost of the census is uncertain,
although it is currently estimated at more than $14 billion.
At the same time, just over 1 year from now, it will be census
day. Little time remains to address the challenges that have
emerged thus far and make final preparations for the numerous operations that will take place throughout 2010. The poster board to
my right, which is a timeline of key census-taking activities, shows
some of the work that lies ahead and the need to stay on schedule
in order to keep the census on track. Because of legally mandated
deadlines, the Bureau cant call a timeout or press a reset button.
In short, todays hearing is a convenient weigh station on the
road to census day, a time to look back on the Census Bureaus efforts over the past year to address the operational challenges that
have emerged thus far, as well as to look ahead to what the Bureau needs to do in the coming months to help ensure a successful
headcount.
Importantly, the Bureau has made commendable progress over
the past year in rolling out key components of the census and has
strengthened certain risk management efforts. Still, the census remains high risk because the dress rehearsal of all census operations that was planned for 2008 was curtailed. As a result, critical
activities, including some that will be used for the first time in a
census, were not tested in concert with one another or under census-like conditions.
The bottom line is that key census-taking activities, including
those that will ultimately drive the final cost and accuracy of the
count, continue to face challenges and the Bureaus overall readiness for 2010 is uncertain.
One such challenge is building the Bureaus address list. Because
a complete and accurate address list is the foundation of a successful census, the Bureau has a number of operations aimed at including every residence in the country and works with the U.S. Postal
Service, agencies at all levels of Government, as well as a number
of non-governmental entities.
In a few weeks, the Bureau will send thousands of workers to
walk every street in the country to update the census address list

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and maps in an operation called address canvassing. Census workers will use handheld computers to collect data. As you know, when
the devices were tested, they experienced performance problems
such as freeze-ups and unreliable transmissions. The Bureau took
steps to fix these issues, and the results of a small scale test held
last December are encouraging. Nonetheless, more information is
needed to determine the Bureaus overall readiness for address
canvassing, as the field test was not an end-to-end systems test,
did not validate training, help desk support, and other requirements, and did not include urban areas.
Uncertainties also surround the Bureaus ability to implement
operations that will be used for the first time in a decennial census,
including a targeted second mailing to reduce the nonresponse followup workload and the need to fingerprint temporary census
workers. The Bureaus readiness for these activities is uncertain
because they have not been tested under census-like conditions.
Another challenge facing the Bureau is reducing the undercount.
As with past numerations, the Bureau is putting forth tremendous
effort to reach groups that are often missed by the census, such as
minorities, renters, and people with limited English proficiency.
For example, the Bureau plans to provide language assistance
guides in 59 languages, an increase from 49 languages in 2000. The
Bureau also plans to deploy a comprehensive communications campaign consisting of, among other efforts, paid advertising and the
hiring of as many as 680 partnership staff who will be tasked with
reaching out to local governments, community groups, and other
organizations in an effort to secure a more complete count.
Although the effects of the Bureaus communication efforts are
difficult to measure, the Bureau reported some positive results
from its 2000 census marketing efforts with respect to raising
awareness of the census. Still, a longstanding challenge for the Bureau is converting that awareness of the census into an actual response.
In summary, just 13 months remain until census day. At a time
when major testing should be complete and there should be confidence in the functionality of key operations, the Bureau, instead,
finds itself managing late design changes and developing testing
plans. The Bureau has taken important steps toward mitigating
some of the challenges that it has faced to date, yet much remains
uncertain, and the risks to a successful census continue.
I will now turn it over to my colleague, Dave Powner, who will
discuss the Bureaus management.
[The prepared statement of Mr. Goldenkoff follows:]

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Mr. CLAY. Thank you so much, Mr. Goldenkoff.
Mr. Powner, you are recognized for 5 minutes.
STATEMENT OF DAVID A. POWNER

Mr. POWNER. Chairman Clay, Chairman Towns, Ranking Member McHenry, and members of the subcommittee, the accuracy of
the 2010 census depends in large part on the proper functioning of
IT systems, both individually and when integrated together.
Mr. Chairman, your oversight of the Bureaus acquisition of IT
systems was critical last year. In particular, the field data collection system is no longer spiraling out of control, and that contract
is $500 million less than the initial estimates provided at your
hearings last summer. Your oversight is needed once again in the
technology area to ensure that between now and census day these
systems are rigorously tested.
Today, we are releasing our latest report, completed at your request, which highlights that significant testing remains. Six major
systems need to complete systems testing, and much integration
testing needs to occur. Plans for conducting this testing are not
completely in place. In order to ensure effective test execution, the
Bureau needs comprehensive metrics to monitor test completion
and effective executive level oversight to keep the pressure on and
to manage risks.
Our report contains 10 detailed recommendations that the Bureau has agreed to address. For example, integration testing includes testing of the interfaces or the handshake between systems.
Our work found that not only were there not complete plans or
schedules for integration testing of these interfaces, but there was
not even a master list or inventory of interfaces. Not having such
basic information at this stage is unacceptable, and our recommendations call for the Bureau to develop a master list of interfaces, prioritize the interfaces based on criticality and need date,
and to use this to develop all needed integration plans.
To the Bureaus credit, we are seeing more plans and better
metrics, but there is still much work ahead in both areas.
I would like to stress the need to prioritize. It is likely the Bureau will not have enough time to test everything, and testing the
most important aspects of certain systems, interfaces, and operations is critical given the limited time remaining.
Mr. Chairman, again, thank you for your leadership, and I look
forward to your questions.
[The prepared statement of Mr. Powner follows:]

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Mr. CLAY. Thank you so much, Mr. Powner, and thank you for
this report outlining what remains ahead for the Bureau. We certainly will exercise that oversight to ensure that they meet these
standards.
Dr. Himes, you are recognized for 5 minutes.
STATEMENT OF GLENN S. HIMES

Mr. HIMES. Thank you, and good morning. Thank you for the opportunity you have given to The MITRE Corp. to update the committee on critical operations for the 2010 decennial census. The
MITRE Corp. is a not-for-profit organization chartered to work in
the public interest. MITRE manages three federally Funded Research and Development Centers [FFRDCs]: one for the Department of Defense, one for the Federal Aviation Administration, and
one for the Internal Revenue Service.
Governed by Part 35.017 of the Federal Acquisition Regulations,
FFRDCs operate in the public interest with objectivity, independence, freedom from conflict of interest, and full disclosure of their
affairs to the respective Government sponsors. It continues to be
our privilege to serve with the talented engineers and other professionals who support the Census Bureau in its efforts to prepare
and conduct the 2010 decennial census.
We are pleased to report that since MITREs last appearance before this committee in July, that the Bureau has demonstrated continued improvements in managing and overseeing preparations for
the 2010 decennial census. These improvements include an increase in processes and tools to monitor program progress and to
identify potential risks.
We are also pleased to report that many significant issues with
the field data collection automation control have been resolved. Approximately a year ago we expressed concerns about the cost,
schedule, and performance risks for the FDCA program to the Census Bureau.
A risk reduction task force established by the Secretary of Commerce and the Director of the Census Bureau recommended a rebalancing of work from the contractor to the Government. The goal
was to enable the contractor to focus on the software system necessary to perform the address canvassing operation. Based on our
observations, it appears that the rebalancing has achieved its intended effect, and the risks to the address canvassing operation are
substantially reduced.
Although the rebalancing was essential, much of the progress is
due to positive steps by the Census Bureaus FDCA program management office and the contractors development team. Both organizations should be commended for establishing an effective working
relationship and overcoming the large challenges they faced in the
past year.
Although we are cautiously optimistic about the address canvassing operation, risks remain within it and other operations for the
2010 decennial census. These risks are natural for such large programs. Census Bureau personnel update and monitor these risks
on a regular basis, and constant attention will be required until the
decennial is completed.

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We remain committed to helping the Census Bureau prepare for
a successful 2010 decennial census. Thank you for inviting us to
this hearing, and I would be happy to answer your questions.
[The prepared statement of Mr. Himes follows:]

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Mr. CLAY. Thank you so much, Dr. Himes, for your testimony.
We will begin under a 10 minute rule for each side, and I will
start with Mr. Mesenbourg.
Mr. Mesenbourg, it sounds like the Bureau has come a long way
since our last meeting. I commend you and your staff. A lot of the
work was inspired by GAO findings, so I want to also commend Mr.
Powner and Mr. Goldenkoff, along with Mr. Goldenkoffs predecessor, Matthew Siree, for the great work their teams have done
on the 2010 census.
It was GAO that first brought to this committees attention the
problems with FDCA. They recommended consistent oversight, to
which this subcommittee has been committed. I also want to commend Dr. Himes for the important role MITRE has played in helping the Bureau to resolve problems.
Lets go straight to testing. GAO made 10 recommendations to
ensure that testing activities for key systems are completed. What
action is the Bureau taking or planning to address GAOs recommendations?
Mr. MESENBOURG. Mr. Chairman, we have provided a detailed
response to GAO, but let me just sum up some of the major steps
that we have done.
Last April, when the decision was made to re-plan the census
and to shift from the handheld use in the nonresponse followup to
a paper base, we did a thorough review at that point of our testing
program. We did an inventory of the testing and we found some
data gaps, and then we addressed those by adding additional tests.
We also, later last year, appointed a testing officer with responsibility over all testing for the decennial census, and we have made
testing metrics a key part of every operational review. So we look
at the census. We have about 51 key operations that we are doing,
and those are things like nonresponse followup. We have 25 systems that those operations interact with, and we have 244 interfaces between systems.
So late last year we also appointed an integration manager who
has responsibility to make sure all of the activities that we took out
of the FDCA contract now will fit together and will be integrated.
We clearly face some challenges, given the de-scoping of the census. So we took over about 11 key paper operations. And I think
we are being responsive to Mr. Powners comment of trying to
prioritize.
So we are implementing what we would call a thread test, and
those are key activities within a process, for example, our first
focus is on nonresponse followup and group quarters evaluation.
Testing on those activities and the operational control system will
begin on April 20th. We think those two operations test a huge
amount of the functionality that we will use in the other nine operations.
Mr. CLAY. OK, let me stop you right there and ask you in the
report, GAO stated that in May 2008 the Bureau established an inventory of all testing activities specific to all key decennial operations, but that the inventory had not been updated since that
time. What is the current status of testing activities for the 2010
census?

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Mr. MESENBOURG. At this point, we do have a comprehensive inventory of all of the testing that we need to do. Given the time constraints that we are under, there will be some operations that we
have performed in the past that we will not test as thoroughly as
we will some of the new activities.
Mr. CLAY. Where is the Bureau on the development of the operations control system for paper-based operations?
Mr. MESENBOURG. OK, at the end of January, we integrated the
schedule for the operational control system that will control 11
paper-based operations in the census. We integrated that into the
master activities schedule. So that is done. And we do have a detailed plan at this point, and schedule, for what we are calling Release0. Release0 will focus on the nonresponse followup and the
group quarters enumeration. Then we will follow with a Release
1, which will take on additional operations such as remote Alaska.
So I believe we have a detailed plan that we can move ahead, and
each one of those releases will have testing as part of the sign-off.
Mr. CLAY. And at what date certain can we expect you to report
to this subcommittee that adequate plans for total end-to-end testing are in place?
Mr. MESENBOURG. To be honest, there will not be end-to-end
testing of all operations, because what we will have to do is we will
test at key functionality, which will show up in other operations.
What we are going to do, for example, the push of the nonresponse
followup into thethat functionality we can test based on the dress
rehearsal responses. We will put up a mock environment that will
send workload to be identified for nonresponse followup, and we
will be able to test that in the operational control system that will
control nonresponse followup.
Mr. CLAY. Now, you heard Mr. Powner say time is of the essence,
and you still have six major systems that still need to be tested.
Are you cognizant that time is of the essence, that we are closing
in on a year to go?
Mr. MESENBOURG. Mr. Chairman, we are very cognizant that
time is of the essence. We have an extremely tight schedule, and
it is going to be critically important that we stick to that schedule.
Mr. CLAY. OK, thank you for that response.
Mr. Driehaus, you may followup.
Mr. DRIEHAUS. Thank you, Mr. Chairman. I just have one very
brief question for Mr. Mesenbourg.
Mr. Mesenbourg, I am particularly concerned about the number
of houses that are currently in foreclosure across the country, and
the transience we are seeing in our population. You know, the
movements of population that we are seeing, especially in the inner
cities, that are traditionally difficult to count, you know, we are
seeing folks move around at record levels; and I am concerned as
to whether or not the Census Bureau is taking the necessary steps
to account for that movement and how you are coping with that.
Mr. MESENBOURG. It is a growing problem, there is no doubt
about that. The address canvassing operation that we will start at
March 30th will visit every address, whether occupied or vacant. So
the critical first step is to ensure that we have a complete address
list for the 2010 decennial census. So that is job one, to make sure
we have the list.

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Mid-March of next year we will mail out report forms to almost
every household in the United States. If that address is vacant,
then they will not respond the form and they will go into the nonresponse followup operation. We will send an enumerator to that
address to see if anyone is there. If they are there, we will collect
the data. We will go back six times to make sure that we can reach
a person. If it is unoccupied, of course, we will miss them.
We have taken some steps to address this issue, so we have
added two questions to the 10-question 2010 census form that gets
at coverage problems. One of those questions relates to do you have
a relative living with you that you may not have listed on the report form. That will kick off an action to put that into a followup
activity that will try to identify why that person wasnt listed. So
that will be one way that we will attempt to address the issue of
foreclosures and people moving in to non-traditional living arrangements.
But I think a key message of both our advertising and our partnership program will be is to get out into the local community and
to convince them, through trusted voices in the community, that if
you are doubling up or if you are living in a non-traditional living
arrangement, that it is important that you be counted and that you
are listed on the report form.
Mr. CLAY. Thank you so much.
Mr. McHenry, you are recognized for 10 minutes.
Mr. MCHENRY. Thank you, Mr. Chairman.
Thank you all for testifying today. We certainly appreciate it.
This is an important matter that we take very seriously, and I
know you do as well.
Mr. Mesenbourg, thank you for your service. I know it has only
been brief. You are serving Government only 36 years, and we
thank you for it. When the short-timer, Mr. Jackson, sitting behind
you, is only there for 20 years, we certainly know you have expertise and great knowledge based on experience, so thank you.
So, Mr. Mesenbourg, it is my understanding there are plans to
conduct a post-enumeration survey as part of the 2010 census. Is
this correct?
Mr. MESENBOURG. We do have plans to do a coverage measurement program as part of the 2010 census.
Mr. MCHENRY. OK. What is the sample size of this service?
Mr. MESENBOURG. Sample size is going to be about 300,000 housing units.
Mr. MCHENRY. OK. Is this comparable to the 2000 census?
Mr. MESENBOURG. It is comparable to the 2000 census.
Mr. MCHENRY. Is it the same number or
Mr. MESENBOURG. It is very close to the same number.
Mr. MCHENRY. Do you recall what the 2000 number was?
Mr. MESENBOURG. I dont, off the top of my head, but certainly
we can get you that number.
Mr. MCHENRY. Certainly. And has the Bureau increased or
changed the post-enumeration survey for this census?
Mr. MESENBOURG. We have made some changes to do a better
job trying to identify duplicates in the census. That was an issue
in 2000. The focus of the 2010 coverage measurement program is
to provide better information about the components of error. So we

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will be providing data not only on the net error, but also components of error such as duplicates, omissions, and so on.
Mr. MCHENRY. Has this been changed in the planning process or
is this a change from the 2000 census?
Mr. MESENBOURG. This has been the plan during the entire decade.
Mr. MCHENRY. OK. And how does the Bureau tend to use the
post-enumeration survey? You outlined generally, but more specifically?
Mr. MESENBOURG. We are using it primarily to provide measures
of the error and as input to improving the 2020 decennial census.
Mr. MCHENRY. OK. And is there any thought that the Bureau
would use this survey to adjust or change the 2010 count?
Mr. MESENBOURG. The plan does not include any plans to use
the coverage measurement for adjustment.
Mr. MCHENRY. OK. Are there any other thoughts to that or any
other considerations to that?
Mr. MESENBOURG. Not in our current plan there isnt.
Mr. MCHENRY. OK. Yesterday, as I mentioned in my opening
statement, it has been reported that Commerce Secretary Designee
Gary Locke met with leaders of the Senate Commerce Committee
and, according to the news reports, stated that so-called sampling
will be used minimally as an accuracy check. I believe he is referring to the post-enumeration survey. Is that how you would read
it?
Mr. MESENBOURG. Well, the coverage measurement will provide
estimates of the number of housing units and the number of persons. Then you will have the apportionment number also. But I am
not sure what Governor Locke had in mind.
Mr. MCHENRY. Yes, it is hard to impute from politicians what
they mean. So that would be somewhat in keeping with what you
have outlined, just as a survey to check the accuracy. OK.
Now, in terms of a fair and accurate census, what is your definition of a fair and accurate census?
Mr. MESENBOURG. Well, we see job one as to count everyone, and
we see an expanded advertising and partnership program as a key
part of doing that. We also have done a number of additional
things from an operational perspective that we hope will improve
the count. This will be the first time we are using a short form only
census, so 10 questions, 10 minutes to fill it out. We also will be
using a bilingual form, English-Spanish, that will target 13 million
households in areas where English is not often spoken at home.
We will be using a second mailing, a targeted second mailing,
doing a blanket mailing to traditionally low response, low mail response areas, and then sending a replacement form out to another
group, to the non-respondents. And we hope and expect that a
much more robust partnership program will get the message out to
the local community that it is critical to participate in the census.
Mr. MCHENRY. So, in short, do you believe the Bureaus main
goal for the 2010 census is to count every person once, only once,
and at the right place?
Mr. MESENBOURG. That has always been our goal.
Mr. MCHENRY. All right. So that means a count of people. That
means an exact enumeration in counting.

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Mr. MESENBOURG. We will make every effort we can to get a response, an actual response back from every household in the
United States.
Mr. MCHENRY. Two of the greatest challenges, you have mentioned this and I am glad the Bureau has really thought through
the undercount and overcount numbers, and appreciate the fact
that you have programs directly focused on the undercount. Would
you describe the challenge of the undercount and the overcount as
one of the most challenging of the challenges the Bureau faces in
the 2010 census?
Mr. MESENBOURG. Well, I think it would be clear getting people
to participate is the biggest challenge. So missing people is, in my
mind, a more significant challenge than addressing the duplicates.
We have done both things, we have added two coverage questions
to the 2010 census.
One is to help us get at undercount, where someone incorrectly
or mistakenly left a person off the report form that should have
been on the report form; and we have added another question to
help address the overcount, where someone may have included,
lets say, for example, a college student that should have been
counted at the dorm where they spend most of their time. So there
are two questions there, and answers to those questions will generate a telephone call as part of our coverage followup operations
to try to gather more information to get the person counted in the
right place.
Mr. MCHENRY. Well, I think we all understand the sensitivities
of ensuring that undercounted communities and people are focused
upon and ensure that we actually get them counted, which takes
a lot of effort, a lot of resources, and we want to be of assistance
to that with you and the stakeholders in this.
With that, I would like to yield the remainder of my time to the
deputy ranking member, Congressman Westmoreland, from Georgia.
Mr. WESTMORELAND. Thank you, Congressman McHenry.
First to Mr. Goldenkoff and Mr. Powner. You know, I have been
in quite a few of these oversight hearings and I have seen a lot of
reports from the GAO, and I have never seen one that said you all
are doing a good job. So I know that you all do a very good job.
But this comes pretty close, when it says that there are no new recommendations. Now, is that because you didnt go in and look at
everything again, or are you just going on a past report? Either one
of you.
Mr. GOLDENKOFF. I think what you are referring to is our testimony today, and the reasons that there were no new recommendations is that all our recommendations
Mr. CLAY. Maybe if you move it closer to you, Mr. Goldenkoff.
Mr. GOLDENKOFF. I think what you are referring to is our testimony where we said that there were no new recommendations.
That was just because our testimony was based on previously
issued work, most of which did contain recommendations.
Mr. WESTMORELAND. OK.
Mr. POWNER. And, Congressman Westmoreland, I just want to be
clear.
Mr. WESTMORELAND. OK.

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Mr. POWNER. We are releasing a report today on system testing,
so not to disappoint. We have 10 new recommendations today that
we are releasing for the first time, on testing.
Mr. WESTMORELAND. OK. One of the other things that you had
talked about was the complete and accurate address list. Is that
correct?
Mr. GOLDENKOFF. That is correct.
Mr. WESTMORELAND. When do you think the best time would
have been to get a complete and accurate address list?
Mr. GOLDENKOFF. It is something that goes on throughout the
decade. The Bureau is constantly working with the Postal Service,
through the Postal Services delivery sequence file, to update the
address list.
And now, as was already mentioned, or starting in April, the Bureau will go out and actually walk every street in the country to
verify on the ground housing units, occupied housing units; and it
is a difficult task because it is not always clear what meets the eye.
There could be several families living in there, so you really have
to go within six inches of a house sometimes to see double
doorbells, two names on a mailbox that could indicate that there
might be somebody living in the basement or in the shed in the
back. So it is a very challenging task.
Mr. WESTMORELAND. I understand. But the reality of it is, I
guess, the last address check is going to be the most accurate, and
to me, at least, the Census Bureau, from information and testimony I heard today from Mr. Mesenbourg, is that they have asked
local cities and counties and others to do that, and they are trying
to make sure that the information that they have before they do
the mailing is also the most recent and most up to date and the
most correct information. Would you agree with that?
Mr. GOLDENKOFF. That is correct. You need to do it as close as
possible to census day, but at the same time allow for the updating
to take place so they can do the mail-out. So there needs to be
some buffer in there.
Mr. WESTMORELAND. Thank you.
Mr. CLAY. Thank you, Mr. Westmoreland.
My friend from New York, Mrs. Maloney, is recognized for 5 minutes.
Mrs. MALONEY. Thank you, Mr. Chairman.
I would like to ask the representatives from GAO to respond to
the earlier question on whether or not the operational testing on
payroll, personnel changes, etc., were up to the systems of 2000?
Are they at the same level? Are you pleased and agree with the
prior answers to this question, that operational testing was correct,
in place, and happening to the degree that it should to make sure
that our systems do not falter or fail?
Mr. GOLDENKOFF. I would disagree with that. One of the issues
is that there was no dress rehearsal, and the dress rehearsal, as
the name implies, is essentially a test census, as close to censuslike conditions as one can possibly get without actually conducting
the census. So because it was curtailed, what was done during the
dress rehearsal was fairly limited, there were certain operations
that just werent tested, so the Bureau is going into 2010 now conducting the actual census, in some respects, flying blind.

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For example, there was no load testing. The number of millions
of forms, millions of pieces of paper need to be process, and the Bureau never had an opportunity to test under, in a lot of cases, anything close to a load test of what would be a simulated census. So
it really fell quite short of that.
Mrs. MALONEY. Well, what are the contingencies if these systems
falter or fail? What are the contingencies?
Mr. GOLDENKOFF. In some cases, the Bureau, if it starts falling
behind, the Bureau has been good in the past with workarounds
and patches. It all depends on how bad the problem is. You know,
in some cases the Bureau will fall behind schedule, and that has
implications for downstream operations. In other cases things
might cost more money. But that is one of the issues, that in some
cases there is no backup or there is no contingency; it has to be
done and done right.
Mrs. MALONEY. I would like to followup with a question on the
budget. You really cant move forward without a proper budget. Do
you have a full 10-year cycle cost estimate for the decennial operations that you could give the committee today?
Mr. MESENBOURG. Yes. Our expectation is the life cycle cost is
going to be between $14 billion and $15 billion for the decennial
census.
If I could, I would like to just respond briefly on the payroll system. The decennial applicant payroll system is up and running.
This is the key tool that we use to process applicants and then to
pay them. So at this point in time we have over a million applicants in that system. We are actually only going to hire about
140,000 people for address canvassing, but the demand for jobs has
been so huge that we have had over a million applicants; and right
now we have about 10,000 people that are getting paid through
this system, and in another couple weeks that will jump up by
about 140,000.
Mrs. MALONEY. How much money were you given in the stimulus
plan?
Mr. MESENBOURG. We were given $1 billion.
Mrs. MALONEY. $1 billion?
Mr. MESENBOURG. $1 billion.
Mrs. MALONEY. And what are your plans for spending the additional money you were given in the stimulus plan?
Mr. MESENBOURG. The whole focus of this is to do as good a job
as we can improving the count, and the bill language directed us
to focus that money on enhanced and improved advertising and
partnership activities, and that certainly is our intention. We also
hope to invest additional moneys in our coverage followup operation, adding about another million to the workload; and then the
remainder of the funds would be there to support key 2010 activities. But in the short term, in terms of 2009, the expenditures will
be primarily focused on expanded media buys and advertising and
our partnership program.
Mrs. MALONEY. And with the remaining money to make other
choices, what is your basis for making these choices? Do you have
an analysis of what needs to be done or other areas that you need
help and support to make a more accurate census?

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Mr. MESENBOURG. Our criteria have been to focus on those activities that will contribute the most to the census. Actually, we
have provided a plan to the Office of Management and Budget in
terms of what our focus is, and we are awaiting their response at
this point.
Mrs. MALONEY. Thank you very much. My time is expended, is
no longer. I have used up my time. Thank you. Thank you for all
your hard work.
Mr. CLAY. Thank you so much, Mrs. Maloney.
I now go to the gentleman from Utah, Mr. Chaffetz, for 5 minutes.
Mr. CHAFFETZ. Thank you, Mr. Chairman.
Mr. Mesenbourg, you are a career civil servant, correct?
Mr. MESENBOURG. Yes, I am.
Mr. CHAFFETZ. With more than adequate funding, do you believe
the Bureau has the talent and capability to oversee a professionally
implemented and successful 2010 census?
Mr. MESENBOURG. I do.
Mr. CHAFFETZ. I would like your opinion, as the Census Bureau
professional, on an important matter. You are currently operating
without a Presidentially appointed, Senate-confirmed director, correct?
Mr. MESENBOURG. That is true.
Mr. CHAFFETZ. Do you believe the Bureau has the talent and expertise to continue planning for and implementing a successful
2010 census without a Presidentially appointed, Senate-confirmed
director?
Mr. MESENBOURG. Well, I am doing two jobs at this point, and
I guess what I see my job is right now is to continue to execute
the plans to conduct a successful 2010 census. I have no ambitions
to be permanent director of the Census Bureau, but my job is to
keep that train moving down the track so, when we do get a Census Bureau director, we are in a better place than we were before.
Mr. CHAFFETZ. But do you believe that the Bureau has the talent
and expertise currently in place right now to execute?
Mr. MESENBOURG. I believe we have the talent to keep the train
moving down the track. I am not going to take a position whether
we should have a director or not have a director. We have always
had a director and I would
Mr. CHAFFETZ. Fair enough.
Mr. MESENBOURG [continuing]. I think a director would be useful
for us.
Mr. CHAFFETZ. As you know, the results of the 2010 census are
used for appointment, redistricting at all levels of government, and
the allocation of Federal funds. All of this is correct, right?
Mr. MESENBOURG. That is true.
Mr. CHAFFETZ. So, in your opinion, is it better to conduct a census that is free from political influence, or do you think politicians
should be telling you how to do your job?
Mr. MESENBOURG. Well, the Census Bureau, in my 36 years, we
have made decisions, technical decisions and program decisions, on
the technical merit of the issues. We have not made decisions
based on any kind of political pressure. That has been my experience over 36 years.

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Mr. CHAFFETZ. The census is based on the Constitution, correct?
Mr. MESENBOURG. That is true.
Mr. CHAFFETZ. Do you recall which article or whatnot?
Mr. MESENBOURG. That is embarrassing to say, not.
Mr. CHAFFETZ. Article 1 of the Constitution deals with the powers of Congress, the legislative branch of our Government, correct?
Mr. MESENBOURG. True.
Mr. CHAFFETZ. So regarding anything having to do with the conduct of the census, it should be the Congress that has the authority
and jurisdiction, do you agree?
Mr. MESENBOURG. You are getting me into territory I am not an
expert on. It is clear the Congress has a responsibility to oversee
our operations, yes. I would agree with that.
Mr. CHAFFETZ. How will the Bureau protect the integrity of the
census from outright fraud?
Mr. MESENBOURG. From, I am sorry, outright?
Mr. CHAFFETZ. Just outright fraud. What protectors are in place
to make sure that doesnt happen?
Mr. MESENBOURG. We have a whole series of quality control operations that we have in place that check the operations. So, for
example, when we start address canvaswell, I will give you a better example. Right now we are about 90 percent done with the
large block enumeration, and after thatnow we have started to
send QC people, other enumerators out to check the quality of that
work. Every operation that we do will have a QC operation attached to it, and that will be one check.
Another check in terms of housing unit counts, in-person counts,
will be our pop estimates programs that makes most of those. That
is another quality check that we have.
Mr. CHAFFETZ. So if you have an enumerator who fraudulently
fills out data and then submits these facts, do you believe there is
a check and a balance in place to deal with that?
Mr. MESENBOURG. I do believe that we have a check in place that
will identify that problem, yes.
Mr. CHAFFETZ. What is to keep somebody who gets the form in
the mail and then knowingly fills it out incorrectly, I mean grossly
incorrectly? How do we deal with that?
Mr. MESENBOURG. Well, there will be some additional checks
against some administrative records, information that we have access to. But that is going to be very, very difficult to catch every
one of those, if a person added an extra individual in the process.
But we will do some re-interviewing there, so if it is systematic on
the part of an enumerator, then we would catch it.
Mr. CHAFFETZ. Thank you, Mr. Chairman.
Mr. CLAY. Thank you, Mr. Chaffetz.
Mr. Mesenbourg, lets go back to the operational control system.
The OCS is the brains of the whole system of the field operations.
When will end-to-end testing for the OCS be in place?
Mr. MESENBOURG. The first testing will be done April 20th
through May 1st. So what we have done because of the timing
pressures that we are under, we are going to address key operations on an incremental process. So the actual final testing will
not be done on all of those interfaces until next March.

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Mr. CLAY. Mr. Powner or Mr. Goldenkoff, is that adequate, as far
as the response to ensure success?
Mr. POWNER. I think the key is it is a tough challenge for them
because not everything is in place. So part of what they are dealing
with is you want to test what you have now, but I think it is very
important, as was stated, that you come back and retest. The key
here, though, is there is a lot of these examples in place. We have
six major systems, we heard 244 interfaces, 44 operations.
OK, so when you start looking at all that, getting it all done and
testing it in an integrated fashion, end-to-end, as you are asking,
Mr. Chairman, see, we dont see all the prioritization and the plans
in place. So, going forward, what is very important is that we see
the appropriate plans. But then we have key metrics so we know
exactly what is done, how well it is done, and then what remains
ahead to complete. And the OCS is just one example of many challenges that they face going forward between now and census day.
Mr. CLAY. OK, Mr. Goldenkoff, the Bureau has many challenges
facing its final preparation and conduct of the 2010 decennial census. What do you think places the 2010 census at greater risk and
what can be done about it?
Mr. GOLDENKOFF. I think there are really two great risks: one,
time is running out and, two, the lack of testing of key operations.
So as was already stated here today, the Bureau needs to prioritize
what it can do, what it cant do; figure out where, within all those
different operations and activities that havent been tested, where
the Bureau is most vulnerable; and, second, make sure everything
stays on track.
A third area is perhaps more marketing and promotion, because
the non-response or the response rate, rather, is key to success.
Mr. CLAY. You know, address canvassing is set to begin nationwide within a few weeks. The Bureau never was able to carry out
an end-to-end test of the new handheld devices with all the procedures in the field. How prepared is the Bureau to conduct address
canvassing and how can the Bureau be confident that everything
will work as the Bureau hopes without having tested it all?
Mr. GOLDENKOFF. Well, I think thatyou know, the Bureau does
not know what it doesnt know because, again, the lack of testing.
They had the operational field test in Fayetteville, NC, and what
that demonstrated was that, under the conditions in Fayetteville,
NC, the handhelds functioned well. The problems that we had seen
in earlier tests did not reemerge.
The problem is that, obviously, the country does not all look like
Fayetteville, NC; you have urban areas, you have more rural areas.
So the question is how will those handhelds perform, for example,
in an area with lots of skyscrapers? Will they be able to lock on
to a satellite signal? Will they be able to transmit data? And that
is what nobody really knows. It is a big question mark.
Mr. CLAY. Should we be worried about the census being conducted on time?
Mr. GOLDENKOFF. I think that, come April 1st, forms will go out;
by law, they need to. The question is really accuracy and quality
of the census. Accuracy and cost, rather. That is really what it
comes down to. Key operations they will get done, they need to get
done. It is just a question of how much will things cost and how

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good will the results be. At the end of the day, the data need to
be delivered to the President come December 31, 2010. So whether
they need to compress operations or speed things up at some point,
they are under the gun. So things will happen on time, it is just
a question of cost and accuracy.
Mr. CLAY. Sure. Thank you.
Mr. Powner, when the Census Bureau provided comments on
GAOs report, it stated that it was putting much more focus on
testing new things for 2010 and not testing things that have
worked before. What is GAOs assessment of the Bureaus comment?
Mr. POWNER. We would not agree with that. Clearly, it is important to test new things, but if you have old things that are critical
and you change software and hardware associated with that, that
needs to be tested; and that was really the focus of our report. It
is really based on a prioritization. So the prioritization might be
new things, but it could very well be older things also.
Mr. CLAY. Thank you for that response.
Now I will recognize the gentleman from Georgia, Mr. Westmoreland, for 5 minutes.
Mr. WESTMORELAND. Thank you, Mr. Chairman. Just following
up on some of the comments that the gentleman from Utah had.
Mr. Mesenbourg, what quality controls are you going to have on
these enumerators? The gentleman from Utah questioned about
them filling out the forms wrong, but what kind of quality controls
do you have on these enumerators?
Mr. MESENBOURG. OK, every major operation we have a QC activity related to that, so we will actually go, take a sample of the
enumerations, and we will have a different person go back and attempt to collect that same data; and that provides us a clear signal
in terms of the quality. If there are issues related to a specific
interview, we call that operation a re-interview operation to identify problems. If we identify a problem, then we will zero in on that
enumerator and then do 100 percent check of all of their work. But
every operation we do we are going to have a QC step built into
it to check the quality of it.
Mr. WESTMORELAND. OK. And lets say that you do correctly
identify an enumerator. What kind of corrective actions could be
taken?
Mr. MESENBOURG. They could be terminated, and certainly they
would be out of the enumeratoring business as soon as we identified that.
Mr. WESTMORELAND. OK. I know that the Bureau, as you have
mentioned, will automatically mail a second census form to these
traditionally, I guess, hard to count areas or the no response. That
is correct, right, you will do a second mailing?
Mr. MESENBOURG. Second mailing, a blanket second mailing to
areas that have a traditional very low mail response. We will do
a blanket mailing and then we will have another group that sort
of intermediary, possibly, under 50 percent. Then we will mail the
non-respondents, the household that hadnt returned a form will
get a form there.

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Mr. WESTMORELAND. OK. So you feel comfortable that you are
going to hit these under-response areas very well with a second
mailing.
Mr. MESENBOURG. We have tested the second mailing during the
decade. We used it during the dress rehearsal. We are confident
that it will be beneficial.
Mr. WESTMORELAND. So you believe the second mailing is going
to enhance your response.
Mr. MESENBOURG. Yes.
Mr. WESTMORELAND. How will you ensure that the data capture
isnt wrongfully counted twice for those returned forms from both
mailings? What is your system in place there to check that?
Mr. MESENBOURG. OK, in terms of data capture, forms will be returned and go through one of our automated three data capture
systems, actually do OCR on the forms. Then we will do a matching operation; every form will have a unique 22 digit identifier on
that. If we cant match, that generates a whole host of additional
investigative work.
Mr. WESTMORELAND. OK, so
Mr. MESENBOURG. So we have an automated process to make
sure that we are not getting duplicate returns in.
Mr. WESTMORELAND. Thank you.
Mr. Goldenkoff, do you believe, because of all the stuff that we
have been hearing in the news about we need a director, we dont
have a director, whatever, you and Mr. Powner, do you believe that
the Bureau has the right talent in-house to oversee this 2010 census?
Mr. GOLDENKOFF. The Bureau employees are extremely dedicated, extremely competent, and they have lots of experience. The
concern is that here it is getting, with 10 yards to go until the goal
line, census day, there is no permanent quarterback in place. And
the other issue to consider, as well, not only who is calling the
shots, who is being held accountable by Congress to the American
taxpayers. This is also the time when the Bureau starts planning
for the next census, the 2020 census.
So you need somebody in place who will take on, who will be responsible and held accountable for that as well, and making those
sorts of decisions. So clearly the competency is there, there is no
question about that; we have seen it in past decennials. But we
need someone who is a strategic leader and someone who goes
through the conventional selection process.
Mr. WESTMORELAND. OK. Given that this short formand it is
only a short form for the censusdo you think that better equips
the Bureau to conduct this census than in previous
Mr. GOLDENKOFF. Most definitely. It should improve the response late because it is less burdensome than having a short form
and a long form. I mean, back in 2000, studies have shown that
the response rate to the short form was higher than to the long
form. So you would be more willing to spend 10 minutes than 40
minutes on the long form.
Mr. WESTMORELAND. Right. It makes it a little easier for them
to fill it out.
Mr. GOLDENKOFF. That is correct.

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Mr. WESTMORELAND. And probably not as deep questions or personal questions as it was.
Is my time up, Mr. Chairman?
Mr. CLAY. Yes, sir. Thank you, Mr. Westmoreland.
I recognize the gentleman from Utah for 5 minutes.
Mr. CHAFFETZ. Thank you, Mr. Chairman.
Mr. Powner, do you believe that there is enough talent to oversee
and conduct the 2020 census?
Mr. POWNER. From a technology point of view, for 2020, the Census Bureau needs more IT talent on board, clearly. If you look at
what happened last summer with the FDCA problems, fortunately,
we have organizations like MITRE. They hired some external folks
to come in and help at executive levels. There are folks that are
trying to do a good job there right now, but going forward we need
more IT talent internal to the Bureau.
Mr. CHAFFETZ. Like previous decennials, the Bureau is using
paper and pencil for nonresponse followup. But unlike previous
years, we have better maps for enumerators, a targeted second
mailing of the census form to the hard-to-count areas, and likely
a better applicant pool from which to hire these enumerators.
Shouldnt all these factors lead to a more accurate census?
Mr. GOLDENKOFF. Yes, they should lead to a more accurate census. You can handle the nonresponse followup workload faster,
which is important because it reduces recall error. So all those
things you mentioned should lead to that direction.
Mr. CHAFFETZ. And if you could summarize for me again real
quickly the major hurdles you see and if any of these hurdles, you
know, what the consequences would be if we are unable to overcome those hurdles.
Mr. GOLDENKOFF. Well, first, time is running out. There is just
no time for missteps. There is no slack in the schedule. So to the
extent that challenges or glitches emergeand those things are inevitablesomething comes up in testing, there is not a whole lot
of time left to figure what the workaround is.
Second, the population is complex, demographically complex. So
as I said in my statement, a key challenge is converting that
awareness of the census into an actual response. The Bureau has
been very good in terms of getting the word out. Ninety percent of
the population or so is typically aware of the census, but the actual
response rate is much lower. So that would be another hurdle.
Mr. CHAFFETZ. Would you concur or disagree that the census is
rooted in Article 1 if the Constitution, which enumerates the powers of the legislative branch?
Mr. GOLDENKOFF. I will pass on that one.
Mr. CHAFFETZ. I guess the question is who do you believe the
census director reports to?
Mr. GOLDENKOFF. Well, legally, to the Commerce Secretary.
That, I believe, is in statute.
Mr. CHAFFETZ. And is it your experience from past decennials
that the director often briefed the President, but never reported to
him?
Mr. GOLDENKOFF. Well, from what we have seen in news accounts and also from some experience during the Bush administra-

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tion, there was some contact between the census director and the
White House, OMB, and that is not necessarily a bad thing.
Mr. CHAFFETZ. But communication is a little different than actually reporting to.
Mr. GOLDENKOFF. Right, they are two different things. It is one
thing for the White House to be aware of and make sure that the
census stays on track, but that is not a reporting relationship. But
in terms of holding the Bureau accountable, it is a very powerful
tool to have White House involvement. The thing is that the White
House, it has to be that right balance between focusing on management and operational issues versus the science of the census. You
dont want the White House or any political influence on the
science of taking the census.
Mr. CHAFFETZ. Very good.
Thank you, Mr. Chairman.
Mr. CLAY. Thank you, Mr. Chaffetz.
Just one question for Dr. Himes. You know, the Bureau is working with MITRE on mitigation plans. What are your greatest concerns about timetables in the plans?
Mr. HIMES. Sir, I think, again, our greatest concern would be
those that GAO has put together, the time to test and verify where
the systems are working, particularly from a system view. So we
think that there are tools in place that gives Census better insights
into the status of their systems than they have had in the past;
and the people that are working on them have substantial experience, but it is still a fairly large burden considering the amount of
time remaining to track that whole activity end-to-end.
Mr. CLAY. Thank you so much for that response, Dr. Himes.
I will yield to Mr. Westmoreland.
Mr. WESTMORELAND. Thank you, Mr. Chairman. I appreciate
that.
I didnt have any other questions, but when Mr. Goldenkoff
passed on the Article 1 if the Constitution question, I felt like we
might want to discuss that a little bit further, that the GAO understands that we feel like the origin of the census is rooted
Mr. GOLDENKOFF. Oh, no question, Article 1. I misunderstood the
question.
Mr. WESTMORELAND [continuing]. In Article 1 of the Constitution, which enumerates the power of the legislative branch.
Mr. GOLDENKOFF. Yes.
Mr. WESTMORELAND. So I just wanted to make sure that you understood that and you were just passing on the question maybe
for
Mr. GOLDENKOFF. No, I guess I misunderstood the question. I
apologize.
Mr. WESTMORELAND. OK.
Mr. GOLDENKOFF. But, definitely, it is Article 1, Section 2, and
that spells out the basic requirements of the census.
Mr. WESTMORELAND. Mr. Chairman, I would like to just make a
comment, if I could. We all understand how important this census
is for redistricting, for the allocation of Federal money, and I am
very pleased with the testimony that we have heard today, because
I think that everybody on that panel wants to have an accurate

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count, an enumeration of everybody in this country, people who are
here at the time of the census.
So I think that is the reason that there has been so much about
whether the White House wants to have it reported to or to the
Commerce Secretary, there is or is not a director. I feel very confident from just the information I have heard from the Census Bureau and the Acting Director there, and from the GAO and the
things that they have looked at, that this process is going forward
about as well as it could, and that there has been a lot of hard
work put into it. So I think that the reason there is so much going
on right now is everybody wants to make sure that every person
is counted.
So I appreciate all of you coming.
I want to thank the chairman for having this hearing, because
I think he recognizes the importance to each and every one of us,
and the fact that we get a very accurate count. So with that, Mr.
Chairman, I yield back the balance of my time.
Mr. CLAY. Thank you, Mr. Westmoreland.
In conclusion, let me thank the witnesses for their testimony
today.
Mr. MCHENRY. If I could ask just one.
Mr. CLAY. You have another question?
Mr. MCHENRY. Yes, just one.
Mr. CLAY. OK, I will yield to Mr. McHenry.
Mr. MCHENRY. Sorry, Mr. Chairman. I just wanted to get this on
the record.
Mr. Mesenbourg, from the Census Bureaus perspectiveand I
am sure these are questions you would like to answerany and all
information attained from the census forms cannot be used for any
other person, including tax or law enforcement purposes, is that
correct?
Mr. MESENBOURG. That is correct.
Mr. MCHENRY. OK. Many of us have received feedback from our
constituents regarding privacy concerns, obviously, very much in
mind today, especially. But information given by people to the Census Bureau is confidential by law, is that correct?
Mr. MESENBOURG. By law, by Title 13.
Mr. MCHENRY. All right. And getting people to respond is one of
the main challenges, as you mentioned, so is therebecause people
maybe have a mistrust of Government, what efforts are you taking
to ensure that people know that any information given to them is
kept only within the Census Bureau and not shared with any other
Government agency, department, or any other individual?
Mr. MESENBOURG. Well, that information will be on the report
form that everybody receives but, probably more importantly, it is
going to be a key focus of our advertising message and our partnership program. So it is one thing for the Census Bureau to tell people it is confidential. In the hard-to-reach segments of the population, our partnership program is aimed to get a trusted voice in
that community to tell people that live in that communityand our
partnership specialist will be hired from the community that they
are working inthat you can trust the Census Bureau that they
will hold your data confidential.

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Mr. MCHENRY. Finally, if you and your staff could prepare a followup for this. This is too long of a question and our time is short.
I would like to know the Census Bureaus full plan to minimize the
undercounts and overcounts. I know you already have plans in
place, but if we could receive that, I think that would be important
for committee members to hear the full breadth and depth of our
plan so we can also see ways that we can engage other stakeholders.
Mr. MESENBOURG. Certainly.
Mr. MCHENRY. Thank you, all.
And thank you, Mr. Chairman. I certainly appreciate it.
Mr. CLAY. Very good. Thank you.
The first major operation of the 2010 census, address canvassing
begins on March 30th. There will not be any other opportunities to
build a complete and accurate address list. Time is of the essence.
It is critical that the Bureau work with GAO, MITRE, and use
every resource available to get this right. Six major systems still
need to be tested, the life-cycle cost estimate needs to be validated,
and testing must be prioritized.
Let me thank all of the witnesses for coming today and thank the
members of this committee for their singular focus and their commitment to seeing that the 2010 census be successful.
On that note, this hearing is adjourned.
[Whereupon, at 11:40 a.m., the subcommittee was adjourned.]
[The prepared statement of Hon. Diane E. Watson and additional
information submitted for the hearing record follow:]

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