State Trends in Supplemental Nutrition Assistance Program Eligibility and Participation Among Elderly Individuals Final Report Contractor and Cooperator Report No. 64 November 2010 By Karen Cunnyngham, Mathematica Policy Research, Inc. Abstract Elderly adults (ages 60 or older) participate in the Supplemental Nutrition Assistance Program (SNAP), formerly the Food Stamp Program, at lower rates than other eligible people. This report provides State information on the characteristics of elderly SNAP participants and eligibles and elderly participation rates that can be used both in assessing the success of past efforts and when considering additional efforts to increase elderly SNAP participation. The report is based on analyses from a Survey of Income and Program Participation-based microsimulation model, SNAP Quality Control data files, the Current Population Survey, and other data. The report finds that the estimated elderly SNAP participation rate increased steadily from 25 percent in fiscal year (FY) 2002 to 34 percent in FY 2006. The highest elderly participation rates were found in Hawaii, Florida, Maine, New York, and Oregon. The States with the largest elderly participation rate increases were Massachusetts, Michigan, Missouri, New York, and Washington. This study was conducted by Mathematica Policy Research, Inc., under a cooperative research agreement with USDA’s Economic Research Service (ERS) Food Assistance and Nutrition Research Program (FANRP): agreement number 59-5000-8-0099 (ERS project representative: John Kirlin). The views expressed are those of the authors and not necessarily those of ERS or USDA. This page has been left blank for double-sided copying. Cooperative Agreement Number: State Trends in Supplemental 59-5000-8-0099 Nutrition Assistance Program Mathematica Reference Number: Eligibility and Participation 06520 Among Elderly Individuals Submitted to: U.S. Department of Agriculture Final Report Economic Research Service 1800 M St., NW, Rm. N2176 Washington, DC 20036-5831 Project Officer: John Kirlin Karen Cunnyngham Submitted by: Mathematica Policy Research 600 Maryland Avenue, SW Suite 550 Washington, DC 20024-2512 Telephone: (202) 484-9220 Facsimile: (202) 863-1763 Project Director: Karen Cunnyngham Disclaimer: This study was conducted by Mathematica Policy Research under Cooperative Agreement Number 59-5000-8-0099 with the U.S. Department of Agriculture’s (USDA’s) Economic Research Service (ERS). Mathematica was responsible for reviewing the report. The views expressed are those of the author and are not necessarily those of ERS or USDA. This page has been left blank for double-sided copying. Acknowledgments Mathematica Policy Research ACKNOWLEDGMENTS This study was conducted under a cooperative research contract with the U.S. Department of Agriculture’s (USDA’s) Economic Research Service (ERS) Food Assistance and Nutrition Research Program (FANRP). The author would like to extend her gratitude to the many people who contributed to this research. In particular, I would like to thank John A. Kirlin, the ERS project officer, for his guidance and support throughout the project. I also received valuable input on methodology and presentation from Christine Kissmer, the project liaison from the USDA’s Food and Nutrition Service (FNS). Many people at Mathematica Policy Research made meaningful contributions to this research. Bruce Schechter and Kathy Bencio provided computer programming support, with assistance from Joel Smith and Daisy Ewell. Laura Castner reviewed the state estimates of elderly SNAP participation rates. Jackie Kauff reviewed a draft of this report as well as additional documents prepared in the course of this project, and Ronette Briefel reviewed the final report. Carole Trippe also reviewed portions of this report, Josh Leftin assisted with project management, Molly and Jim Cameron edited the report, and Donna Dorsey, Alfreda Holmes, and Lisa Walls were responsible for its production. Finally, valuable feedback and suggestions also were received from Dottie Rosenbaum, Center on Budget and Policy Priorities, and Elaine Waxman, Feeding America. v This page has been left blank for double-sided copying. Contents Mathematica Policy Research CONTENTS EXECUTIVE SUMMARY .................................................................................................. xi I INTRODUCTION ............................................................................................. 1 A. SNAP Participation Among Elderly Individuals .......................................... 1 B. Efforts to Increase SNAP Participation Among Elderly Individuals ............................................................................................... 3 C. Additional Existing Research on SNAP Participation and Eligibility ................................................................................................. 5 D. Research Objectives ................................................................................ 7 II METHODOLOGY ............................................................................................. 9 A. Characteristics of Elderly SNAP Participants ........................................... 11 B. SNAP Eligibility Rates and Characteristics of Elderly Eligible Individuals ............................................................................................. 12 C. SNAP Participation Rates ........................................................................ 14 III FINDINGS ..................................................................................................... 19 A. Characteristics of Elderly SNAP Participants ........................................... 21 1. Trends in National Number and Percentage of Elderly SNAP Participants ........................................................................... 21 2. Trends in State Number and Percentage of Elderly SNAP Participants ........................................................................... 22 3. Elderly SNAP Participants by Type of Eligibility ................................ 25 4. Characteristics of Elderly SNAP Participants .................................... 29 B. Characteristics of Elderly Eligible Individuals.......................................... 38 1. Elderly Percentage of Eligible Population ......................................... 39 2. Characteristics of the Elderly Eligible Population ............................. 39 3. Characteristics of the Low-Income SNAP-Ineligible Elderly Population ........................................................................... 51 C. Estimates of State Elderly SNAP Eligibility Rates ..................................... 55 1. Eligibility Rates for All Low-Income Elderly Individuals ..................... 55 2. Eligibility Rates for Subgroups of Low-Income Elderly Individuals ...................................................................................... 57 vii Contents Mathematica Policy Research III (continued) D. Estimates of State Elderly SNAP Participation Rates ................................ 59 1. Trend in National Elderly SNAP Participation Rates from FY 2002 to FY 2006................................................................ 60 2. Trends in State Elderly SNAP Participation Rates from FY 2002 to FY 2006 ........................................................................ 61 3. Comparisons of State Elderly Participation Rates Across States and to National Rates ........................................................... 64 4. Trends in the Number of Elderly Eligibles and Participants from FY 2002 to FY 2006................................................................ 66 5. Effect of Changes in Numbers of Eligibles and Participants on Participation Rates ..................................................................... 68 6. Changes Between Consecutive Years in State Elderly Participation Rates and Number of Elderly Eligibles and Participants ................... 69 IV SUMMARY .................................................................................................... 73 REFERENCES ............................................................................................................... 75 APPENDIX A: TABLES SHOWING CHARACTERISTICS OF ELDERLY INDIVIDUALS PARTICIPATING IN SNAP, FISCAL YEARS 2000 TO 2007 APPENDIX B: TABLES SHOWING THE CHARACTERISTICS OF ELDERLY INDIVIDUALS ELIGIBLE FOR SNAP, FISCAL YEAR 2009 APPENDIX C: TABLES SHOWING NUMBER OF ELDERLY INDIVIDUALS BELOW 200 PERCENT OF POVERTY, NUMBER ELIGIBLE FOR SNAP, AND SNAP ELIGIBILITY RATES BY STATE, FISCAL YEAR 2009 APPENDIX D: TABLES SHOWING ELDERLY SNAP PARTICIPATION RATES, RANKS, AND NUMBER OF ELDERLY PARTICIPANTS AND ELIGIBLES BY STATE, FISCAL YEARS 2002 THROUGH 2006 viii Tables Mathematica Policy Research TABLES II.1. State SSI Supplements Simulated in the MATH SIPP+ Model .......................... 13 II.2. State Policies Regarding Expanded Categorical Eligibility and Vehicle Assets Simulated in the 2009 Baseline of the 2005 MATH SIPP+ Model ....................................................................................... 15 III.1. Estimated National Average Monthly Number and Percentage of Elderly SNAP Participants, by Year ........................................................................... 22 III.2. Change in Estimated Elderly SNAP Participation, FY 2000 Through FY 2007 ....................................................................................................... 23 III.3. Change in Estimated Percentage of SNAP Participants