Estimating SNAP Eligibility and Access Using Linked Survey and Administrative Records

Renuka Bhaskar, Michaela Dillon, Brad Foster, Brian Knop, 

Linden McBride, Maria Perez-Patron, and Erik Vickstrom

Center for Economic Studies

 U.S. Census Bureau

November 4, 2021

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Disclaimer: This research is released to inform interested parties and to encourage discussion. 

The views expressed are those of the authors and not necessarily those of the U.S. Census Bureau. 

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Supplemental Nutrition Assistance Program (SNAP)

Largest nutrition assistance program aimed at reducing domestic hunger by providing low-income households benefits that can be used to purchase food at authorized retailers

SNAP has been shown to reduce food insecurity, improve health outcomes and has provided essential assistance in economic downturns and disaster situations

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Source: SNAP National Data Bank estimates available from USDA

Monthly SNAP Participation, 2000-2021

Great Recession

COVID-19

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SNAP Eligibility

Standard eligibility based primarily on income being below thresholds tied to federal poverty guidelines with assets below specified limits

Many states have adopted broad-based categorical eligibility in which households may be eligible for SNAP because they qualify for other benefit programs

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Measuring SNAP’s reach

Using survey data and administrative records, USDA’s Food and Nutrition Service and Mathematica estimate that 82 percent of those eligible for SNAP nationwide received SNAP benefits in 2018

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Estimation of eligibility and participation among eligible populations is difficult

Source: SNAP Participation Rates by State, All Eligible People | USDA-FNS

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Using linked data to estimate SNAP eligibility and access

Newman and Scherpf (2013) linked administrative records on Texas SNAP participants to American Community Survey (ACS) to estimate eligibility and access to SNAP benefits

Measurement of access is different from standard estimates of participation but allows for sub-state estimates for a range of characteristics

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Source: Newman and Scherpf (2013)

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State SNAP data sharing 

As part of a joint project with USDA Economic Research Service and Food and Nutrition Service, U.S. Census Bureau has acquired SNAP data from states and applied this approach to estimate eligibility and access

Data acquisition and estimation for Special Supplemental Nutrition Programs for Women, Infants, and Children (WIC) and Temporary Assistance for Needy Families (TANF) 

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States with current SNAP data sharing agreements as of 9/2021

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Data sources

American Community Survey (ACS)

Approximately 3.5 million households sampled each year

Representative and timely information on the population

State SNAP data from participating states

Monthly records on participating clients and cases

Link ACS and state SNAP data at the individual level

State-level estimates: one year of ACS linked with two years of SNAP data

County-level estimates: three years of ACS linked with four years of SNAP data

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Data linkage

U.S. Census Bureau’s Person Validation System (PVS) (Wagner and Layne 2014)

Uses Personally Identifiable Information (PII) and probabilistic matching techniques to assign individuals an anonymous Protected Identification Key (PIK)

PII is stripped from records after PIK assignment and before researchers are granted access

PIKs are used to link individuals in state SNAP data to their ACS responses

Adjustments to ACS person weights to account for the likelihood of PIK assignment

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Eligibility estimation using methodology from Newman and Scherpf (2013)

Define SNAP Units using age and relationship status within households

Eligibility estimation

Estimate income of SNAP unit

Net income and gross income tests applied to others using SNAP unit size responses to income in the last year, considering deductions as possible

Public assistance / SSI receipt

Citizenship and college attendance used to consider other SNAP rules

Use state SNAP administrative records to assign eligibility to those living with SNAP participants

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SNAP access among eligible

Among eligible, look for benefit receipt in SNAP administrative records in the twelve months prior to survey date

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| Sep-18 | Oct-18 | Nov-18 | Dec-18 | Jan-19 | Feb-19 | Mar-19 | Apr-19 | May-19 | Jun-19 | Jul-19 | Aug-19 | Sep-19 | Oct-19 |
|--------|--------|--------|--------|--------|--------|--------|--------|--------|--------|--------|--------|--------|--------|
|        |        | SNAP   | SNAP   | SNAP   | SNAP   | SNAP   | SNAP   | SNAP   | SNAP   | SNAP   | SNAP   | SNAP   | SNAP   |
|        |        |        |        |        | SNAP   |        |        |        |        |        |        |        |        |
| SNAP   |        |        |        |        |        |        |        |        |        |        |        |        |        |
| Access? |
|---------|
| Yes     |
| Yes     |
| No      |

Month surveyed and determined to be eligible

12 months we look for SNAP receipt

Person 1

Person 2

Person 3

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SNAP data visualizations

Estimates for 21 states available on Census website

County-level eligibility and access rates, by characteristics

Characteristics of participants and non-participants

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Source: Supplemental Nutrition Assistance Program (SNAP) Eligibility & Access (census.gov)

New Jersey 

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Source: Supplemental Nutrition Assistance Program (SNAP) Eligibility & Access (census.gov)

State-level estimates (2019)

Eligibility rate: 19.5% (+/-0.5)

Access rate:     54.4% (+/-1.4)

Eligibility Rate

Access Rate

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New Jersey 

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Source: Supplemental Nutrition Assistance Program (SNAP) Eligibility & Access (census.gov)

State-level estimates (2019)

Eligibility rate: 19.5% (+/-0.5)

Access rate:     54.4% (+/-1.4)

Cumberland County (2017-2019)

Eligibility rate: 36.9% (+/- 2.8)

Access rate:     70.9% (+/- 4.5)    

Eligibility Rate

Access Rate

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Higher rates of eligibility and access among children

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Eligibility Rate

Access Rate

All ages

Ages 0-17

All ages

Ages 0-17

Source: Supplemental Nutrition Assistance Program (SNAP) Eligibility & Access (census.gov)

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Characteristics of eligible populations

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Eligible non-participants

Eligible participants

Source: Supplemental Nutrition Assistance Program (SNAP) Eligibility & Access (census.gov)

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TANF and WIC estimates

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State TANF and WIC data also linked to ACS to better understand participation in these programs

TANF participation among population in poverty

WIC eligibility and participation among infants/children

WIC participation among women

WIC data visualization for 8 states

Source: WIC Program Eligibility and Participation (census.gov)

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Future work

Continued estimation of SNAP eligibility and access

Further evaluation of SNAP unit simulation

Further evaluation of eligibility assumptions

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Thank you!

Renuka Bhaskar

Center for Economic Studies

renuka.bhaskar@census.gov

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