CONSOLIDATED FEDERAL FUNDS REPORT (CFFR) FISCAL YEAR 1995 INTERNET **** TECHNICAL DOCUMENTATION The CFFR is a presentation of Federal Government expenditures or obligations in state, county, and subcounty areas of the United States. U.S. Territories and the District of Columbia are included. The data were obtained from information systems which exist in various Federal Government agencies. These data have been consolidated and tabulated in a standard format. This documentation consists of the following materials: Attachment 1 Abstract Attachment 2 Filename Conventions Attachment 3 Data File Attachment 4 Program Identification File Attachment 5 Federal Agency Code File Attachment 6 Geographic Presentation and Coding in the CFFR Attachment 7 Object Codes and Program Identification Codes NOTE Questions about the subject matter should be directed to Governments Division, Bureau of the Census, Washington, D.C. 20233. Phone (301) 457-1565. A:\INTERNET\95NET.WPD Last update: 6/25/96 ATTACHMENT 1 ABSTRACT TYPE OF FILE: Summary statistics, unit of observation is each Federal government expenditure or obligation. UNIVERSE DESCRIPTION: The universe is Federal Government expenditures or obligations in state, county, and subcounty areas of the United States. U.S. Territories and the District of Columbia are included. SUBJECT-MATTER DESCRIPTION: Data were obtained from Federal government agencies. The CFFR covers Federal expenditures or obligations for the following categories: grants, salaries and wages, procurement contracts, direct payments for individuals, other direct payments, direct loans, guaranteed or insured loans, and insurance. Dollar amounts reported represent either actual expenditures or obligations. The INTERNET documentation contains three separate files: CFFR Data File gives the FIPS geographic code, state abbreviated name, county name, place name, population, congressional district code, program identification code, object/assistance type code, agency code, and amount in whole dollars. For each unique FIPS code, all programs are listed and for each program, all records with different object categories are listed. CFFR Program Identification File contains program identification codes and their respective program titles. CFFR Federal Agency File contains all four-digit (FIPS-95) codes identifying specific agencies. GEOGRAPHIC COVERAGE: State, county and subcounty areas of the United States and U.S. Territories and the District of Columbia. RELATED PRINTED REPORTS: Federal Expenditures by State, Consolidated Federal Funds Report: County Areas All two publications are also available for fiscal years 1983 through now; however, only the publication Federal Expenditures by State is available for the Federal Government fiscal years 1981 and 1982. ATTACHMENT 2 FILENAME CONVENTIONS The CFFR data takes up 45M of storage. The data are available as a single file and as individual files for each "state", as defined below. The individual files can be downloaded one at a time or as a single archive. All files have a common naming convention - yycffxxx.exe. The "yy" is replaced by the last two digits of the desired year, "cff" stands for CFFR, and "xxx"is replaced by either a two-character state postal abbreviation or some descriptive combination of characters. The ".exe" shows that the file is a self-extracting archive. The filenames are all in lowercase characters. 95cffcom.exe contains a single zipped file of the 1995 CFFR data. This archive expands into 95cffcom.dat. 95cffind.exe contains the 1995 CFFR data in 57 subfiles, one for each U.S. state, one for the District of Columbia, five for outlying areas, and one for all records coded at "United States Undistributed." The subfiles created by the expansion of this archive will have the names 95cffal.dat for Alabama data, 95cfftx.dat for Texas data, etc. The subfiles can be downloaded individually. When doing so, the names will follow the convention 95cffxx.exe. The file with U.S. Undistributed records has "us" for the state abbreviation.. Federal monies that cannot be distributed geographically are coded to this "state." There are also two reference files, the program identification file and the agency file. The program identification file has a general name yycffpid, and the agency file has a name yycffagn. The "pid" stands for program identification and "agn" stands for agency. The two files are used to cross reference all records in the data file. 95cffpid contains all program identification codes and names for fiscal year 1995. Record layout is shown in Attachment 4. 95cffagn contains all agency codes and names for fiscal year 1995. Attachment 5 contains record layout. ATTACHMENT 3 DATA FILE CFFR DATA FILE RECORD LAYOUT: DATA ELEMENT RECORD LENGTH RECORD POSITIONS FIPS Code 10 1-10 State Code 2 1-2 County Code 3 3-5 Place Code 5 6-10 STATE - State abbreviated name 2 11-12 COUNTY - County Name 24 13-36 PLACE - Place Name 24 37-60 POP - Population (zero-filled) 9 61-69 CONG DIST - Congressional District 34 70-103 PROG - Program ID Code 6 104-109 OBJ - Object Type Code 2 110-111 AGENCY - Agency Code 4 112-115 SIGN - Funding Sign 1 116 AMOUNT - Funding Amount (zero-filled) 12 117-128 This file is sorted by FIPS Code (State/County/Place). ATTACHMENT 4 PROGRAM IDENTIFICATION FILE CFFR PROGRAM IDENTIFICATION FILE RECORD LAYOUT: Field Data Element Positions 1 Program identification code 1-6 2 Program title 7-80 The file is in ascending sort order by program identification number. Since both alpha and numeric codes are used, however, alphabetic codes follow numeric codes. ATTACHMENT 5 FEDERAL AGENCY CODE FILE CFFR FEDERAL AGENCY CODE FILE RECORD LAYOUT: Field Data Element Positions 1 Federal agency code (4-digit FIPS-95 Code) 1-4 2 Blank 5-6 3 Federal agency name 7-132 The agency code is used to identify a specific federal agency. For instance, Code 1236 represents Farmers Home Administration. Code 8900 designates the Department of Energy, and so on. The file is in ascending sort order by federal agency code. Since both alpha and numeric codes are used, however, alphabetic codes follow numeric codes. ATTACHMENT 6 GEOGRAPHIC PRESENTATION AND CODING IN THE CFFR Background The Consolidated Federal Funds Report Act calls for reporting by State (including territories), county or parish, congressional district or municipality. At the subcounty level, the Act refers to municipality as any subcounty unit of general local government. For this reason, the geographic basis for presentation in the Consolidated Federal Funds Report is the government classification system developed by the Bureau of the Census in its Census of Governments program. The CFFR county area report contains data by State and county. The District of Columbia and the United States Territories of American Samoa, Guam, Northern Mariana Islands, Puerto Rico, and the U.S. Virgin Islands are included. In addition to county area, municipal governments which are independent of any organized county are included here as county equivalent areas. Appendix A in the report contains a listing of these municipalities. Government Units There were 85,006 government units in the United States according to the 1992 Census of Governments, broken down as follows: U.S. Government. . . . . . . . . . . . . . . . . . . . . . .1 State governments. . . . . . . . . . . . . . . . . . . . . 50 Local governments. . . . . . . . . . . . . . . . . . . 84,955 County . . . . . . . . . . . . . . . . . . . . . . . .3,043 Municipal. . . . . . . . . . . . . . . . . . . . . . 19,279 Township . . . . . . . . . . . . . . . . . . . . . . 16,656 School district. . . . . . . . . . . . . . . . . . . 14,422 Special district . . . . . . . . . . . . . . . . . . 31,555 Total government units . . . . . . 85,006 Exact definitions of government units are available in Volume I of the 1992 Census of Governments, Government Organization. This documentation describes the structure and organization of State and local governments throughout the Nation. The Consolidated Federal Funds Report presents data by State and county area, making use of government units to represent geographic areas. For States and territories, government jurisdictions have fixed, stable boundaries which correspond to well-defined geographic areas. For county and subcounty government units, however, there can be significant differences between the concept of a government unit and a specified geographic area. Where county governments exist they correspond to generally accepted geographic boundaries. However, many areas of the United States lack county government. Organized county governments are not found in Connecticut and Rhode Island, as well as in some territories, and the District of Columbia. Numerous cities, such as Baltimore, MD (which is not located within a county government area), and San Francisco, CA (which is a consolidated city/county government), also exist independently of any county government. County equivalent areas are included in the Consolidated Federal Funds Report as if they were legitimate counties to ensure consistency in the geographic presentation of the data. A complete listing of these areas can be found in appendix A of the published report. Subcounty units of local government consist of municipalities and townships. Municipal and township governments are not pure geographic areas. These subcounty jurisdictions can overlap, frequently annex land, consolidate to form new governments, and undertake other legal actions which affect their political condition and consequently their geographic boundaries. It is important to note that the CFFR covers Federal Government payments to government units and other recipients located in the geographic areas over which these governments have jurisdiction. The Federal payments to the New York City area could represent monies allocated to the city government, a private company located in the city, or private citizen residing in the city. No attempt is made in the CFFR to provide information on the recipients of Federal money. Such information could be obtained from analysis of the category of Federal expenditure of financial obligation being reported, or reference to the data sources, which frequently include information on recipient types. The Federal Assistance Award Data System and the Federal Procurement Data System both contain information describing the recipient of Federal Government financial transactions. The CFFR tables in the diskette presents selected data for subcounty areas-the municipalities and townships. Many of these subcounty jurisdictions cross county boundaries. In the CFFR, such governments are assigned to only one county and are identified by a split flag. All financial data attributable to the municipality or township are shown in the principal county area to which the government is assigned. In some cases, this results in the sum of the subcounty governments' population exceeding the total county population. In most cases, the affect of this assignment on the statistical presentation of the data is negligible. However, users should be aware of this treatment, particularly if using data for one of these multicounty jurisdictions. The municipalities of over 50,000 population which exist in more than one county area, and their respective counties, are shown in text table A of the CFFR publications. All government units identified in the Census of Governments are assigned a numeric code for processing purposes. This government unit (GU) code was essential for processing of CFFR data, since data submitted by other Federal agencies had to be converted to a GU code structure. This process is described in the following section "Methodology". The geographic presentation is in accordance with the government unit numeric code. The order is alphabetical by State (with the District of Columbia treated as a State area), followed by the U.S. Territories. Within a State, county areas are generally listed alphabetically, but with some exception for the county equivalent areas. At the subcounty level, the presentation within a county area is generally alphabetic, with all municipal governments listed first, followed by all township governments, then all independent cities. There are frequent exceptions to the alphabetical sort order, however. Numeric code assignments again serve as the key, and these may not follow a purely alphabetic sequence. The government structure of New York City deserves special mention. Classified for census purposes as a municipality, the city is actually comprised of five county areas (Bronx, Kings, New York, Queens and Richmond). None of these are presented separately in the CFFR. New York City is presented as a single county-equivalent area. METHODOLOGY Geographic coding of all data in the CFFR was based on the CFFR geographic reference file, developed for this survey. In summary, this file was developed by equating government unit codes representing general purpose governments to Bureau of the Census geographic place codes. A file for this purpose was developed at the Census Bureau for bringing together all data elements required in the allocation formula of the General Revenue Sharing Program. This file is maintained by the Census Bureau, and updated continuously to account for new incorporations, mergers and annexations, and disincorporations of government units. With the Census Bureau geographic place codes assigned, all general purpose government units were then matched to an equivalent Federal Information Processing Standard (FIPS) state, county, and place code. This was accomplished originally by matching against the Geographic Identification Coding Scheme (GICS) file developed for the 1980 Census of Population, which contained both Census Bureau geographic and FIPS place codes for all incorporated jurisdictions. These codes have been updated and corrected annually by use of the FIPS file update tapes and change notices. The FIPS 55 File (Coding for Named Populated Places, Primary County Divisions, and Other Locational Entities of the United States and Outlying Areas) also contains General Services Administration (GSA) location codes, which were added to the CFFR geographic file. GSA codes were needed because some Federal agencies submitting data to the FAADS reporting system used them for geographic identification. An additional phase in creating the CFFR geographic reference file involved the creation of government unit codes to represent United States totals, and undistributed data at the United States, State, and county area levels. These designations were needed for three reasons: 1. To ensure that tabulation programs applied against the data file had records in which to put summed detail data. 2. To enable geocoding for data that were submitted in summary form, such as by State (data would be assigned to each appropriate State undistributed code). Government units were, in effect, proxies for geographic areas, and amounts reported to a State area could not have been legitimately assigned to a State government code (which were used essentially for totals). 3. To allow geographic records at all appropriate levels of geography (State, county, subcounty) for capturing unmatched data. A program amount reported at a FIPS city code not equating to a government unit could still get geocoded at the subcounty record for balance of county, for example. There were seven variations of geographic coding used in the data originally submitted for CFFR: o State name or abbreviation (limited to noncomputerized submissions) o ZIP codes o Federal Information Processing Standard (FIPS) Codes State, county, place State, county State, place o General Services Administration (GSA) Geographic Location Codes--State, county, place o Government unit codes Data reported with these various types of geographic coding had to be converted to government unit codes. For State and county level reporting, the conversion process was straightforward. At the subcounty level, however, the conversion was much more complex. None of the geographic coding designations had a one-to-one correspondence with the government unit code scheme. Thus, specific guidelines had to be developed for geocoding data record that could not be matched to distinct government units. These guidelines involved coding at the lowest level of geography, or assigning the data to an "undistributed" or "balance" designation within that level of geography. For example, if a data record for a Federal grant award contained a geographic code for an unincorporated city that was not defined as a government unit, the grant would be assigned to the summary level "balance of county" within the State and county contained in the original geographic code. For this reason, the tables in the CFFR publication contain the geographic designations balance of county, county undistributed, State undistributed and U.S. undistributed. Some Federal agency data were submitted based upon recipient postal ZIP code. Since these data were included under the direct payments object category, they had to be assigned to State and county areas only for CFFR. There were two different procedures used to accomplish this task. The general procedure for this coding was to match the ZIP code for each data record against a cross reference file specially created for the CFFR. This file contained ZIP codes within each State and county, and the total 1980 population residing therein. The file was developed from the ZIP code Equivalency File (MARF 5), 1980 Census of Population and Housing. From this file, total population for each unique combination of ZIP code, FIPS State code, and FIPS county code was tallied and the cross reference file created. This file was sorted by ZIP code (ascending order), and for every multiple ZIP code a percentage of total population in that State, county, and ZIP code was computed. This percentage (calculated to tenths of 1 percent) was then used to distribute all CFFR data submitted by ZIP code. Several adjustments were made to this ZIP code cross reference file initially developed from MARF 5. ZIP codes for the U.S. Territories were added. ZIP codes were assigned to the territorial level (undistributed) only. Also, ZIP codes that have been revised since the 1980 Census were updated. ZIP codes for APO/FPO overseas deliveries were not assigned. Data records with such ZIP codes were treated as nondomestic payments and excluded from the CFFR. The MARF 5 file covered primarily residential ZIP codes, since it was created in association with the 1980 Census of Population. Consequently, the ZIP codes that represented postal boxes and postmasters only, institutional buildings, Federal agencies, and so forth, were not included in the cross reference file created for CFFR. Any Federal funds reported for such ZIP codes were assigned to "U.S. undistributed." Once assigned to a particular FIPS State and county, all data records originally submitted on the basis of ZIP codes were processed through the CFFR geographic reference file for compilation and publication purposes. For the largest data source that contained information based upon ZIP code, a different geocoding procedure was used. The Census Bureau's Geography Division had developed a geocoding process that reads entire mailing (postal) addresses, and assigns them to standard Census Bureau state, county and place designations. This Census geocoding system was used to geographically assign all data on disability and benefits payments to retired civilian Federal employees. The geographic assignment is based upon the entire postal address, assignment at the county level of geography is extremely precise. The problem of ZIP codes that cross county boundaries is eliminated. CONGRESSIONAL DISTRICT REPORTING The congressional district or districts for each county area and city are contained in the CFFR file. For those places that have multiple districts, all such districts are displayed. In those geographic areas with more than one congressional district, dollar amounts are not reported separately for each district. The Federal financial data in the reporting systems (data sources) used for the CFFR did not contain such detail, with the exception of partial data records of the Federal Assistance Award Data System. Several other aspects of the congressional district coding should be noted: o For States with an at-large representative, the code "00" is reported. o For Territories with a nonvoting representative to Congress, the congressional district is reported as "98". o Territories with no representatives have "99" for a congressional district code. o For municipalities that exist in more than one county area, all Congressional districts are reported, even if they service only that portion of the municipality lying in the multiple county area. ATTACHMENT 7 OBJECT CODES AND PROGRAM IDENTIFICATION CODES All CFFR data on Federal Government expenditure are classified by broad object category, in accordance with the CFFR Act. These also correspond, in general, to the classification used in the annual Federal Budget. The object code assigned to each data record submitted for the CFFR consisted of two alphabetic characters used to designate the broad object category of Federal expenditure to which each data record belonged. Following is a listing of the object codes used and the expenditure category represented by each: Object Code Category SW Salaries and Wages PC Procurement Contracts DR Direct Payments for Individuals (Retirement and Disability only) DO Direct Payments for Individuals (Other than Retirement and Disability) DX Direct Payments Other than for Individuals GG Grants (Block, Grants, Formula Grants, Project Grants, and Cooperative Agreements) DL Direct Loans GL Guaranteed/Insured Loans II Insurance Since much of the CFFR data were also available by program, all data were assigned a program identification code. Detailed program identification is available for most data on grants, direct payments, loans and insurance. Salaries and procurement data, on the other hand, were generally not available by Federal program. Instead, these object categories are broken down into subcategories for the Department of Defense and selected other agencies. Each subcategory is treated as if it were a separate Federal program. The program identification code format was patterned after the Catalog of Federal Domestic Assistance (CFDA) program number. This is a six-character number, the first two characters of which identify the Federal department or agency that administers the program, followed by a decimal and three numeric characters. The CFDA program number was used as the program identification code for most data taken from the Federal Assistance Award Data System (FAADS). However, if a CFDA program number did not exist, a pseudo CFDA code was assigned by the agency submitting the data. This pseudo code consists of two numeric characters (representing the agency prefix in the CFDA), followed by a decimal and three alphabetic characters. For all other CFFR data submissions, a unique six-character alpha-numeric pseudo program identification code was assigned by the Census Bureau. The first two characters of this code are alphabetic, followed by a decimal and three numeric characters. Pseudo program identification codes and their associated program titles for which data were included in the Consolidated Federal Funds Report are listed below. It should be noted that for the programs listed, the CFFR object codes will correspond to the first two characters of the pseudo program identification code. CODE PROGRAM Grants GG.100 Tennessee Valley Authority-Payments in Lieu of Taxes GG.200 Federal Government Annual Payment to the District of Columbia GG.300 Payment to Washington Metropolitan Area Transit Authority-Interest Subsidy on Federal Guaranteed Debt GG.400 Treasury Payment to Puerto Rico-Return of Taxes and Customs Duties Collected GG.500 Interior Department-Shared Revenues with States (Includes Mineral Leasing Act) GG.501 Payments to the Territories - Interior Department GG.600 Corporation for Public Broadcasting--grants GG.700 State Justice Institute CODE PROGRAM Salaries and Wages SW.100 Salaries and Wages-Defense Department (Military-Active) SW.200 Salaries and Wages-Defense Department (Military-Inactive) SW.400 Salaries and Wages-Defense Department (Civilian Employees) Salaries and Wages SW.500 Salaries and Wages-All Other Federal Government Civilian Employees Except U.S. Postal Service, Defense and FBI SW.600 Salaries and Wages- U.S. Postal Service SW.700 Salaries and Wages- U.S. Coast Guard uniformed employees Procurement PC.100 Procurement Contracts-Defense Department PC.200 Procurement Contracts-All Other Federal Government Except U.S. Postal Service Defense PC.300 Procurement Contracts-U.S. Postal Service Direct Payments for Individuals (retirement and disability) DR.100 Federal Retirement and Disability Payments- Military DR.200 Federal Retirement and Disability Payments- Civilian DR.300 Federal Retirement and Disability Payments- Coast Guard/Uniformed Employees 17.FEC Federal Employee Compensation DR.500 Federal Retirement and Disability Payments- Foreign Service Officers CODE PROGRAM Direct Payments for Individuals (retirement and disability) - continued DR.600 Federal Retirement and Disability Payments- National Oceanic and Atmospheric Administration/Commissioned Corps DR.700 Federal Retirement and Disability Payments- Public Health Service/Commissioned Corps DR.800 Federal Retirement and Disability Payments- Tennessee Valley Authority Direct Payments for Individuals (other than retirement and disability) DO.200 Unemployment Compensation Benefit Payments DO.300 Federal Government Payments for Excess Earned Income Tax Credits Direct Payments (other) DX.100 U.S. Postal Service-Other Expenditures DX.200 Federal Employee Life and Health Insurance Premium Payments--Employer Share DX.300 Legal Services Corporation-grants payments