Populated places are probably among elements of human geography those you can most widely find represented in maps in general. I here want to discuss a bit the somewhat peculiar situation of their mapping in OpenStreetMap.
First: What is a populated place? Humans throughout history, when developing a non-nomadic lifestyle, have had the tendency to settle in a highly non-uniform pattern across the land they live on. They tend to settle in local concentrations colloquially called settlements. In the context of geographic data and cartography the term populated place is usually used more often, which is not exactly a synonym for settlement, but closely related, i am going to explain that relationship in the following.
Settlements in general should not be understood to be strictly discrete. The non-uniform patterns of human settlement are dynamic and change over time by new settlements forming, existing ones being abandoned, settlements merging etc. What can be said almost universally is that settlements develop some form of identity and get identified with names. And these identities and names – in contrast to those of unpopulated places – even detach themselves from the physical structures the settlement manifests in. For example a place under environmental pressure (changing water levels of a waterbody close-by, moving sand dunes etc.) might change its location while retaining its identity. In more recent history we even have settlements that get explicitly and deliberately moved as a whole, for example when a reservoir or an open pit mine are built.
So – to get back to the original question: A populated place is essentially that non-physical identity of a human settlement, detached from the physical structure (like the sum of all the buildings in that settlement) or the legal delineation, representing the collective understanding of the people living in and around that settlement about its identity.
In OpenStreetMap populated places are classified in a hierarchy according to their number of inhabitants. I discussed this already in the past. These classes are somewhat loosely defined individually, but very broad consensus exists about the hierarchy itself.
Nodes and Polygons
Populated places are mapped mostly with nodes but there is some not insignificant use of polygons for mapping populated places as well. This is the source of frequent discussions in the OSM community, and i want to analyze this in a bit more detail here.
First the plain numbers:
| place | city |
town |
village |
hamlet |
isolated_dwelling |
|---|---|---|---|---|---|
| count | 15k | 118k | 1.8M | 2.1M | 858k |
| polygons | 23% | 12% | 7% | 6% | 2% |
The mapping of larger settlement classes (city, town) has reached a level of near-completeness in many parts of the world, their numbers do not increase substantially any more. The smaller ones, however, continue to grow in numbers as mapping gets more detailed.
Reasons for mapping with nodes instead of polygons are:
- It is clearly the most common approach used by mappers in OpenStreetMap.
- It is most widely supported by data users.
- It is the easiest to map if you just want to add a place that is unmapped so far.
- Most standalone populated places have a verifiable location in the form of a functional center (where you can place a node in a verifiable fashion), but most populated places do not have a verifiable perimeter.
- Even if there is a verifiable perimeter, mapping that with a polygon as a representation of the populated place fails to record information on the functional center.
The fourth point probably requires a bit more explanation since the concept of verifiability in OpenStreetMap is typically only discussed w.r.t. tagging but rarely w.r.t. geometries. Concretely, my statement means that if you’d do an experiment and ask a thousand people familiar with a place to specify its location on a map the locations selected by these thousand people will usually converge to a single position, which you can see as the verifiable location of the place. If you’d ask the same people to draw the outline of the populated place the different drawings will usually not converge to a single perimeter, but will reflect fundamentally different ideas of what is part of the populated place and what is not.
Reasons for mapping with polygons instead of nodes are:
- Polygon superiority beliefs – there is a widespread belief in the OSM community that mapping things with a polygon is inherently better than mapping them with a node – either in general or just specifically for populated places.
- The concept of a populated place as an identity detached from the physical or legal structures of the settlement can be difficult to deal with so people have a tendency to conflate it with other concepts easier to grasp – like the builtup area of the populated place or an administrative division the place is (fully or predominantly) part of. These concepts often seem more tangible and therefore mappers are more confident in mapping them. Also there is substantial influence of Wikipedia/Wikidata, which does not make the distinction between the different concepts of a human settlement and therefore substantially pushes towards such conflations.
- There are some (rare) cases where a populated place lacks any kind of functional center but has a clear perimeter.
- Concrete use cases where you want the information about a populated place together with a polygon representation of it.
All of these considerations are overshadowed by one of the core rules of OpenStreetMap – One feature, one OSM element. This rule is largely agreed on by mappers mapping populated places with nodes and mappers mapping them with polygons alike.
But, of course, those mappers who conflate the concepts of populated places and administrative division or builtup areas are going to have a different view of what one feature is than those mappers who separate these.
All of these factors together have led to the following practical approaches to mapping populated places:
- Node with
place=city/town/village/hamlet/isolated_dwelling, mapping of builtup areas and administrative boundaries completely independent of that. This is the clearly dominant form of mapping. - Polygon with
place=city/town/village/hamlet/isolated_dwellingrepresenting an aggregate of builtup areas considered by the mapper to belong to the populated place, double taggedplace=*andlanduse=residential(or sometimeslanduse=farmyardforplace=isolated_dwelling). - Polygon with
place=city/town/village/hamlet/isolated_dwellingforming an abstract hull around the buildings that the mapper considers to belong to the populated place but not representing a verifiably builtup area, usually double taggedplace=*andlanduse=residential. - Polygon with
place=city/town/village/hamlet/isolated_dwellingrepresenting the boundary of an administrative unit the place is conflated with, double taggedplace=*andboundary=administrative. - Polygon in the form of a boundary relation with
place=city/town/village/hamlet/isolated_dwellingrepresenting the boundary of an administrative unit the place is conflated with, double taggedplace=*andboundary=administrativeand with a node as additional member of the relation with therole=labelorrole=admin_centreplaced at the functional center of the populated place. Note this approach is indiscernible from the use of boundary relation members withrole=labelfor hand placing labels of administrative units – as it is supported by some maps – and use of members withrole=admin_centrefor the feature from which the place or parts of it is administered, which is not necessarily at the functional centre of the place.

Rare case of three different representations all tagged with place=village: Place node, aggregate of builtup areas and administrative unit
These different approaches vary quite substantially in how common they are between the different place types:
| place | city |
town |
village |
hamlet |
isolated_dwelling |
|---|---|---|---|---|---|
| way+boundary | 22% | 5% | 1.5% | 1.9% | 0% |
| rel+boundary | 90% | 77% | 60% | 71% | 43% |
| way+landuse | 0% | 35% | 41% | 42% | 32% |
| rel+landuse | 0% | 2.7% | 9.5% | 8.5% | 5.7% |
Further discussion i will do in the form of questions and answers:
What variants of mapping would you recommend to data users to support and mappers to use in mapping?
At the moment quite clearly the node with place=city/town/village/hamlet/isolated_dwelling – and only that. This is most broadly used by mappers and data users alike and limiting interpretation to those will save you from a lot of nasty problems and would support mappers in a consistent practice.
Do i need to expect any problems if i interpret node and polygon mapping alike (assuming that the differences in meaning of the different polygon mapping variants do not bother me)?
Yes. Although there is consensus that double mapping is not correct, there are still plenty of places, in particular of the higher levels like place=city, that are mapped both with a node and a polygon. As a result most data users that interpret both perform some form of de-duplication and, as a result of that, the duplicates often remain in the database for a long time, sometimes even permanently as a compromise in editing disputes.
Wouldn’t it make sense to have a concerted effort in OSM to move mapping universally to nodes since that is clearly the dominant form of mapping already?
It is unlikely that such an endeavor would be successful in the long term because removing the polygon mappings from the database would not remove the reasons why mappers use polygons to map populated places.
How about unifying to polygon mapping?
Not unless you want to add millions of completely made up polygons to the OSM database. Not to mention that – as explained – there are multiple conflicting variants of polygon mapping.
Wouldn’t the best solution be to unify the different variants of polygon mapping to the last (with the boundary relation and a role=label/admin_centre member)?
That is the technical solution to a social problem approach.
A relation would indeed be a way to allow mappers to
- abide by the one feature, one OSM element paradigm independent of their mental concept of a populated place.
- specify a single location as geometry, or a perimeter, or both.
and it would allow data users also to easily obtain and interpret the information they need.
But there are also a number of problems with that idea. The existing boundary relations are not suitable for this approach because:
- They are established only for boundary mapping, mapping landuse polygons with boundary relations or adding
role=label/role=admin_centremembers to multipolygon relations representing builtup areas has no broad support. - Boundary relation members with
role=labelare already widely used for non-verifiable manual label placement, hence overloading that with an additional use would dilute data quality and be prone to disagreements among mappers about what is the right use. Boundary relations members withrole=admin_centreare also widely used in a different meaning. - There is poor support for editing relations in editors and accordingly quite widespread aversion among mappers to using them in mapping.
The idea of creating a new relation type and creating a dedicated and well usable interface for it in editors would be hampered by the following:
- A lot of influential developers in the OSM community are strictly opposed to the introduction of any new relation types that cannot be mapped 1:1 to simple features – which would apply to any relations where interpretation of roles is essential.
- Even with consensus support from mappers getting all tools and data users to support a new relation type is a lot of work.
Note, however, one feature, one OSM element works both ways. Those mappers who distinguish between the abstract concept of the populated place, the builtup area and the administrative units (and those seem to be in the majority) will often not be comfortable with mapping these together in a single relation. It might also create semantic conflicts, for example if the administrative unit and the populated place have different names.
Wouldn’t it be prudent to use different taggings for the different forms of mapping listed above?
Yes, that would make the semantics much clearer and would make data interpretation easier. But it would not solve the problem that mappers who conflate the concept of populated places with either administrative units or builtup areas will be opposed to mapping a place node and polygons representing administrative divisions or builtup area separately. Also the widespread support of place=* on both nodes and polygons among data users will make mappers reluctant to stop using that tag for any of the approaches listed.
Conclusions
As you can see the situation is quite severely stuck. And the reasons that motivate people to follow the minority approach of mapping populated places with polygons are not all so fringy that they can simply be dismissed.
I discussed a number of potential approaches to untangle the situation above already. Overall these can be classified into
- Attempting to put pressure on mappers to change their mapping practice at large. As indicated this is unlikely to work, but that does not mean we are not going to see attempts in that direction.
- Attempting to create and push through a technical solution.
- Improving education of mappers about the different concepts involved in the mapping of settlements (populated places, legal and administrative delineations, builtup area classifications) and widening meaningful discourse on mapping of these so the mapper community is better able to make informed decisions on how they want to further develop mapping of these in OpenStreetMap.
I hope this post serves as a small contribution to the last point.
































































