diff --git a/middleware/confidenceScoreFallback.js b/middleware/confidenceScoreFallback.js
index 8593ed60..d208d02f 100644
--- a/middleware/confidenceScoreFallback.js
+++ b/middleware/confidenceScoreFallback.js
@@ -72,13 +72,13 @@ function checkFallbackLevel(req, hit) {
         return 0.8;
       case 'street':
         return 0.8;
+      case 'localadmin':
       case 'locality':
       case 'borough':
       case 'neighbourhood':
         return 0.6;
       case 'macrocounty':
       case 'county':
-      case 'localadmin':
         return 0.4;
       case 'region':
         return 0.3;
@@ -89,6 +89,7 @@ function checkFallbackLevel(req, hit) {
       default:
         return 0.1;
     }
+
   }
 
   hit.match_type = 'exact';
@@ -96,11 +97,9 @@ function checkFallbackLevel(req, hit) {
 }
 
 function checkFallbackOccurred(req, hit) {
-  // at this time we only do this for address queries, so keep this simple
-  // TODO: add other layer checks once we start handling disambiguation
-
   return (requestedAddress(req) && hit.layer !== 'address') ||
-         (requestedStreet(req) && hit.layer !== 'street');
+         (requestedStreet(req) && hit.layer !== 'street') ||
+         (requestedCity(req) && hit.layer !== 'locality' && hit.layer !== 'localadmin');
 }
 
 function requestedAddress(req) {
@@ -115,4 +114,8 @@ function requestedStreet(req) {
           req.clean.parsed_text.hasOwnProperty('street');
 }
 
+function requestedCity(req) {
+  return req.clean.parsed_text.hasOwnProperty('city');
+}
+
 module.exports = setup;
diff --git a/package.json b/package.json
index 3511e9aa..c7da591e 100644
--- a/package.json
+++ b/package.json
@@ -53,7 +53,7 @@
     "morgan": "1.7.0",
     "pelias-categories": "1.1.0",
     "pelias-config": "2.3.0",
-    "pelias-labels": "1.4.0",
+    "pelias-labels": "1.5.0",
     "pelias-logger": "0.1.0",
     "pelias-model": "4.3.0",
     "pelias-query": "8.8.0",
diff --git a/query/search.js b/query/search.js
index bed5a63c..945276e9 100644
--- a/query/search.js
+++ b/query/search.js
@@ -120,7 +120,7 @@ function generateQuery( clean ){
 }
 
 function getQuery(vs) {
-  if (hasStreet(vs)) {
+  if (hasStreet(vs) || isCityStateOnlyWithOptionalCountry(vs)) {
     return {
       type: 'fallback',
       body: fallbackQuery.render(vs)
@@ -137,4 +137,17 @@ function hasStreet(vs) {
   return vs.isset('input:street');
 }
 
+function isCityStateOnlyWithOptionalCountry(vs) {
+  var isSet = function(layer) {
+    return vs.isset('input:' + layer);
+  };
+
+  var allowedFields = ['locality', 'region'];
+  var disallowedFields = ['query', 'category', 'housenumber', 'street',
+                          'neighbourhood', 'borough', 'postcode', 'county'];
+
+  return allowedFields.every(isSet) && !disallowedFields.some(isSet);
+
+}
+
 module.exports = generateQuery;
diff --git a/test/unit/middleware/confidenceScoreFallback.js b/test/unit/middleware/confidenceScoreFallback.js
index 5fcd03de..138bee8c 100644
--- a/test/unit/middleware/confidenceScoreFallback.js
+++ b/test/unit/middleware/confidenceScoreFallback.js
@@ -203,6 +203,40 @@ module.exports.tests.confidenceScore = function(test, common) {
     t.end();
   });
 
+  test('fallback to localadmin should have score deduction', function(t) {
+    var req = {
+      clean: {
+        text: '123 Main St, City, NM',
+        parsed_text: {
+          number: 123,
+          street: 'Main St',
+          state: 'NM'
+        }
+      }
+    };
+    var res = {
+      data: [{
+        _score: 10,
+        found: true,
+        value: 1,
+        layer: 'localadmin',
+        center_point: { lat: 100.1, lon: -50.5 },
+        name: { default: 'test name1' },
+        parent: {
+          country: ['country1']
+        }
+      }],
+      meta: {
+        scores: [10],
+        query_type: 'fallback'
+      }
+    };
+
+    confidenceScore(req, res, function() {});
+    t.equal(res.data[0].confidence, 0.6, 'score was set');
+    t.end();
+  });
+
   test('fallback to country should have score deduction', function(t) {
     var req = {
       clean: {
@@ -237,6 +271,100 @@ module.exports.tests.confidenceScore = function(test, common) {
     t.equal(res.data[0].confidence, 0.1, 'score was set');
     t.end();
   });
+
+  test('city input granularity with locality result should set score to 1.0', function(t) {
+    var req = {
+      clean: {
+        parsed_text: {
+          city: 'city name',
+          state: 'state name'
+        }
+      }
+    };
+    var res = {
+      data: [{
+        layer: 'locality'
+      }],
+      meta: {
+        query_type: 'fallback'
+      }
+    };
+
+    confidenceScore(req, res, function() {});
+    t.equal(res.data[0].confidence, 1.0, 'score was set');
+    t.end();
+  });
+
+  test('city input granularity with localadmin result should set score to 1.0', function(t) {
+    var req = {
+      clean: {
+        parsed_text: {
+          city: 'city name',
+          state: 'state name'
+        }
+      }
+    };
+    var res = {
+      data: [{
+        layer: 'localadmin'
+      }],
+      meta: {
+        query_type: 'fallback'
+      }
+    };
+
+    confidenceScore(req, res, function() {});
+    t.equal(res.data[0].confidence, 1.0, 'score was set');
+    t.end();
+  });
+
+  test('city input granularity with region fallback should set score to 0.3', function(t) {
+    var req = {
+      clean: {
+        parsed_text: {
+          city: 'city name',
+          state: 'state name'
+        }
+      }
+    };
+    var res = {
+      data: [{
+        layer: 'region'
+      }],
+      meta: {
+        query_type: 'fallback'
+      }
+    };
+
+    confidenceScore(req, res, function() {});
+    t.equal(res.data[0].confidence, 0.3, 'score was set');
+    t.end();
+  });
+
+  test('city input granularity with country fallback should set score to 0.1', function(t) {
+    var req = {
+      clean: {
+        parsed_text: {
+          city: 'city name',
+          state: 'state name',
+          country: 'country name'
+        }
+      }
+    };
+    var res = {
+      data: [{
+        layer: 'country'
+      }],
+      meta: {
+        query_type: 'fallback'
+      }
+    };
+
+    confidenceScore(req, res, function() {});
+    t.equal(res.data[0].confidence, 0.1, 'score was set');
+    t.end();
+  });
+
 };
 
 module.exports.all = function (tape, common) {
diff --git a/test/unit/query/search.js b/test/unit/query/search.js
index 36fbd17d..f16a79ae 100644
--- a/test/unit/query/search.js
+++ b/test/unit/query/search.js
@@ -270,6 +270,181 @@ module.exports.tests.query = function(test, common) {
     t.deepEqual(compiled.body, expected, 'valid search query with category filtering');
     t.end();
   });
+
+};
+
+module.exports.tests.city_state = function(test, common) {
+  test('only city and state set should return query', function(t) {
+    var clean = {
+      parsed_text: {
+        'city': 'city value',
+        'state': 'state value'
+      }
+    };
+
+    var query = generate(clean);
+
+    t.notEqual(query, undefined, 'should not have returned undefined');
+    t.end();
+
+  });
+
+  test('only city, state, and country set should return query', function(t) {
+    var clean = {
+      parsed_text: {
+        'city': 'city value',
+        'state': 'state value',
+        'country': 'country value'
+      }
+    };
+
+    var query = generate(clean);
+
+    t.notEqual(query, undefined, 'should not have returned undefined');
+    t.end();
+
+  });
+
+  test('city-only should return undefined', function(t) {
+    var clean = {
+      parsed_text: {
+        city: 'city value'
+      }
+    };
+
+    var query = generate(clean);
+
+    t.equals(query, undefined, 'should have returned undefined');
+    t.end();
+
+  });
+
+  test('state-only should return undefined', function(t) {
+    var clean = {
+      parsed_text: {
+        state: 'state value'
+      }
+    };
+
+    var query = generate(clean);
+
+    t.equals(query, undefined, 'should have returned undefined');
+    t.end();
+
+  });
+
+  test('city/state with query should return undefined', function(t) {
+    var clean = {
+      parsed_text: {
+        city: 'city value',
+        state: 'state value',
+        query: 'query value'
+      }
+    };
+
+    var query = generate(clean);
+
+    t.equals(query, undefined, 'should have returned undefined');
+    t.end();
+
+  });
+
+  test('city/state with category should return undefined', function(t) {
+    var clean = {
+      parsed_text: {
+        city: 'city value',
+        state: 'state value',
+        category: 'category value'
+      }
+    };
+
+    var query = generate(clean);
+
+    t.equals(query, undefined, 'should have returned undefined');
+    t.end();
+
+  });
+
+  test('city/state with number should return undefined', function(t) {
+    var clean = {
+      parsed_text: {
+        city: 'city value',
+        state: 'state value',
+        number: 'number value'
+      }
+    };
+
+    var query = generate(clean);
+
+    t.equals(query, undefined, 'should have returned undefined');
+    t.end();
+
+  });
+
+  test('city/state with neighbourhood should return undefined', function(t) {
+    var clean = {
+      parsed_text: {
+        city: 'city value',
+        state: 'state value',
+        neighbourhood: 'neighbourhood value'
+      }
+    };
+
+    var query = generate(clean);
+
+    t.equals(query, undefined, 'should have returned undefined');
+    t.end();
+
+  });
+
+  test('city/state with borough should return undefined', function(t) {
+    var clean = {
+      parsed_text: {
+        city: 'city value',
+        state: 'state value',
+        borough: 'borough value'
+      }
+    };
+
+    var query = generate(clean);
+
+    t.equals(query, undefined, 'should have returned undefined');
+    t.end();
+
+  });
+
+  test('city/state with postalcode should return undefined', function(t) {
+    var clean = {
+      parsed_text: {
+        city: 'city value',
+        state: 'state value',
+        postalcode: 'postalcode value'
+      }
+    };
+
+    var query = generate(clean);
+
+    t.equals(query, undefined, 'should have returned undefined');
+    t.end();
+
+  });
+
+  test('city/state with county should return undefined', function(t) {
+    var clean = {
+      parsed_text: {
+        city: 'city value',
+        state: 'state value',
+        county: 'county value'
+      }
+    };
+
+    var query = generate(clean);
+
+    t.equals(query, undefined, 'should have returned undefined');
+    t.end();
+
+  });
+
 };
 
 module.exports.all = function (tape, common) {