So I propose a different schema: New York Boroughs: 9 Cities (incl. NYC): 8 Counties: 6
and have separate relations for the counties and boroughs (e.g. Brooklyn and Kings County), sharing the same ways. Your proposal sounds entirely reasonable to me. The notion that cities are contained within a county is baked into the hierarchical organization, and something has to give when that isn't true. Letting the hierarchy not line up seems better than choosing different levels. In the old way, there's the awkward question about how L5 should be rendered, and why it should look different than L8, and that's all unnnecessary mess. Your proposal defers the interesting choice to the renderer, which is whether one cares about counties or boroughs, but such deferring is in my view a feature.
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