Who assigns them, in Regulation CC's own commentary. The official commentary to 229.2(dd) begins: "Each bank is assigned a routing number by an agent of the American Bankers Association." The same passage sets out the two printed forms: a paying bank is identified by both the fractional form, "which normally appears in the upper right hand corner of the check", and the nine-digit form, which "generally is printed in magnetic ink near the bottom of the check (the MICR line; see ANS X9.13)". For an electronic check, the commentary adds, the routing number is contained in the image of the check in both forms and in the electronic information related to the check in nine-digit form. So one bank identifier has two printed shapes and one electronic one, and paper checks are generally handled by collecting banks on the basis of the nine-digit version.
The digits are not arbitrary. Appendix A to Regulation CC explains the structure: "The first four digits of the nine-digit routing number (and the denominator of the fractional routing number) form the 'Federal Reserve routing symbol,' and the first two digits of the routing number identify the Federal Reserve District in which the bank is located." The appendix gives its own examples: 01 opens the routing number of a bank in the First Federal Reserve District, which is Boston, and 12 opens one in the Twelfth District, which is San Francisco. It adds a second convention: "Adding 2 to the first digit denotes a thrift institution. Thus, 21 identifies a thrift in the First District, and 32 denotes a thrift in the Twelfth District." The leading digits of a routing number therefore carry geography and institution type, which is why they cluster by region.
The number on a check is not always the bank that pays it. The same commentary states that "when a check is payable by one bank but payable through another bank, the routing number appearing on the check is that of the payable-through bank, not the payor bank." A routing number is an instruction about where to send the item, not a statement about which institution holds the money, and those can differ. This is the structural reason a reader should not treat a single routing number as an institution's identity. It also explains why the practical advice is to use the number the institution gives for the specific kind of transfer being set up, rather than reusing one number found on a check for every purpose.
Routing numbers are retired, and a retired one stops working. The rule sits in the Federal Reserve Banks' own Operating Circular No. 3, which governs their check service. Under paragraph 3.1, a sender "should not send to us any item, and we do not undertake to handle an item as a cash item, if ... the item includes in the MICR line, a routing number that has been retired by the American Bankers Association's Registrar of Routing Numbers" (Operating Circular No. 3, effective January 5, 2026). Note the precise scope: the Reserve Banks decline to handle such an item through ordinary cash-item collection, which is the channel almost every consumer check travels. The Board of Governors described the same provision when it took effect, recording that "in 2015 the Federal Reserve Banks revised Operating Circular 3 ... to provide that the Federal Reserve Banks will not handle checks drawn on routing numbers that have been retired" (82 FR 27552, June 15, 2017). Retirement usually follows a merger or a consolidation of charters. The consequence for an account holder is concrete: an old checkbook, or an autopay instruction set up years earlier, can carry a number that no longer routes anywhere.
Where to find the offices behind a number, if it matters: the commentary points to the American Bankers Association Key to Routing Numbers, "published by an agent of the American Bankers Association, which lists a city and state address for each routing number."