As for community - don't forget this is State Level funding. The State knows Cities and Counties. It doesn't know what a nebulous and ill defined 'community' means. Heck that alone may take years of infighting to determine what it means.
Well, I agree community is a fairly nebulous term. States recognize voting districts, though. And politicians make sure those district borders miraculously fall along the true borders between unlike areas. Might as well find some beneficial use to district zoning fraud.