DATA METHODOLOGY

CFPA is able to estimate the number of individuals that participate in the Food Stamp Program from the Health and Welfare Agency. However, we are not able to obtain data on the number of Californians that are actually eligible because of the complicated system of determining eligibility for benefits. Households are eligible based on a number of factors, including income, immigration status, drug felon status, assets, and car ownership. This makes it difficult to discern the universe of eligible individuals from the number participating to understand program underutilization.

Currently, CFPA is adopting a methodology of using the 100% FPL to estimate the number of individuals eligible for the Food Stamp Program. Comparing this to the number of participants will show an estimate of the number of individuals who are eligible for food stamps, but are not receiving their benefits. This provides a quantitative estimate of underutilization in the Food Stamp Program.

Using the 100% FPL provides a sort of check-and-balance. It is possible that some households living above the poverty level would qualify for food stamp benefits, which means that using 100% FPL would underestimate how many are eligible for the program. (This explains why some data show that there are more people receiving food stamps than there are poor.) On the flip side, it is possible that a family living below poverty level would not qualify for food stamps based on their assets. (Food stamp eligibility standards include a resource test, can disqualify families with assets over $2,000, and a vehicle asset test, can disqualify families who own a car valued above $4,650.) So, using the 100% FPL overestimates the number of those eligible for the program in this regard.

Comparing the number of people living in poverty to the number of Food Stamp Program recipients may not fully account for how many eligible individuals are potentially un-served by the program. Yet, using the number of poor to estimate how well the program reaches those in need is still a good measure. Other states, such as Texas have been using this methodology with close quantitative measures of accuracy and very little controversy. (CFPA does have a statewide participation number of 45%, but counties differ considerably in their participation numbers, largely in part to outreach efforts. So, applying one number to all 58 counties may have less accuracy.)

The estimated number of eligibles for the WIC program was adopted from the Department of Health Services, WIC Branch (http://www.wicworks.ca.gov/about/detailed.html). A WIC consultant who used a conglomeration of methods to estimate the aggregate of eligible infants, eligible children (1 to 5 years), eligible pregnant women, and postpartum and breastfeeding women. A panel of experts on the Committee on National Statistics of the National Research Council reviewed the methods used to estimate the number of eligible WIC participants.

Using an average of the most recently available annual data from 1997-1999, the estimated number of potential eligible infants was calculated utilizing the numbers of live births by expected six low-income sources of payment for delivery: Medicare, Medi-Cal, Title V, Other Government Programs, No Charge, Medically Indigent (The County Medical Services Program). The estimated number of eligible children (1 to 5 years) was calculated by multiplying the estimate number of eligible infants by 4, assuming that infants will continue to be eligible up to age 5 years old. Mortality is not built into this calculation. The estimate number of eligible pregnant women was calculated by multiplying the number of estimated eligible infants by 0.667 (2/3). This factor reflects an assumption of the length of pregnancy during the year prior to the birth of the infant. The estimated number of eligible postpartum and breastfeeding women was calculated by multiplying the estimate umber of eligible infants by 0.76, a factor adopted the consultant.

Because this methodology uses sources of payment for delivery to determine potential eligibles, there is a possibility of overestimating the number of those eligible to receive WIC benefits. For example, payment for delivery through Other Government Programs includes the Civilian Health and Medical Program of the Uniformed Services (CHAMPUS), where many of the patients live above 185 percent of the federal poverty level. The actual number of those living at or below 185 percent poverty level and thus, eligible to receive WIC benefits, are not classified as such. Other Government Programs also includes the Healthy Families Program, which has an income limit of at or below 250 percent of the federal poverty level. Access for Infants & Mothers Program, has an income limit between and including 200-300 percent of the federal poverty level. Therefore, collecting data from both of these programs may result in estimates that reflect families above the WIC income limit.

On the other side, this methodology has factors that may underestimate the number of WIC program eligibles. For example, women who are pregnant and/or postpartum and breastfeeding may have incomes above the Medi-Cal income limit. In 1999, 19 percent of California’s children up to age 18 were uninsured, and those children who are eligible for WIC services are not included within these estimates. A third cause for potential underestimation of WIC eligibles, may be due to the fact that those with family incomes below poverty experienced a sharp increase in their uninsured rates between 1994 to 1999, unlike any other group in California during this period.

Other causes for inaccuracies in WIC data estimating program eligibility numbers, is that expected sources of payment for delivery data through California’s Medically Indigent and Title V Programs. The County Medical Services Program provides payment for those whose incomes’ may exceed 185 percent of the federal poverty level, with pregnant women transitioned into the Medi-Cal pregnancy-related programs, because they do not provide payment for deliveries. There may also be error in estimating WIC eligibles, because those qualified for Title V program benefits (California Children Services, Genetically Handicapped Services Program, Comprehensive Perinatal Services Program) are eligible under Medicare and/or Medi-Cal for perinatal services.

Caseload and participation numbers for every county was recorded for this point in time. Participation was used as a measure of number served by the WIC program, because caseload is sometimes higher or lower than actual program participation for WIC sites. Thus, the number of eligible WIC participants, compared to those actually participating, provides a measure of how well this program is being utilized. However, by comparing 1999 estimates of WIC eligibles with 2002 actual participation data, may have caused some inconsistencies in our estimation of how well the WIC program is utilized by those eligible to receive benefits.

CFPA’s estimates of children eligible for USDA school and community nutrition programs are taken from the California Department of Education, Nutrition Services Division “CalWORKs/School Meals” data file available at http://www.cde.ca.gov/demographics/files/afdc.htm. The “eligible” children are in fact, those that have applied for free or reduced-priced meals and have been “certified” to receive free or reduced-priced meals (FRP) based on their families’ annual income. The certified-eligible children may underestimate the children that are actually living at or below 130% or 185% of the poverty level, who do not apply for free or reduced-priced meals due to lack of information or the stigma commonly associated with federal food programs. Children who do not apply or do not meet the income guidelines set forth in the USDA free and reduced-priced meal program are eligible to receive meals for which they pay full price.

CFPA estimates of children not participating in the school and community nutrition programs are based on data provided by the California Department of Education Resource and Information Unite (RIM). The School Breakfast Program (SBP) and National School Lunch Program (NSLP) participation data are average daily participation among children eligible for free or reduced-price meals during March 2001. The Summer Food Service Program (SFSP) data is an average daily participation in the Summer Food Service Program from July 2001. CFPA does not include the children who pay full price meals in any of our participation data as the focus is shifted towards low-income populations.

If you have any questions regarding CFPA’s data methodology, please contact George Manalo-LeClair at (415) 777.4422 x 103 or george@cfpa.net.