SSI eligibility and participation among the oldest old: evidence from the AHEAD.

This article models Supplemental Security Incon (SSI) eligibility and participation among persons age 70 or older using data from the Study of Assets and Heal Dynamics Among the Oldest Old. An econometric model estimates the influence of socioeconomic characteristic on the probability of SSI participation among eligible units. Finally, a policy simulation is conducted by increasing the unearned income disregard from $20 to $125. Summary The proportion of elderly SSI recipients aged 70 or older has been growing in recent years, perhaps because of rising life expectancies overall and a higher incidence of poverty among the oldest old. In 1999, 84 percent of all elderly SSI recipients were 70 or older. This article examines Supplemental Security Income (SSI) eligibility and participation among the oldest old. The analysis was based on 1993 data from the Study of Assets and Health Dynamics Among the Oldest Old that were used to build a detailed SSI eligibility model to identify individuals who meet the federal criteria for SSI income and resource eligibility. The participation rate among those eligible for federal SSI benefits is 53.9 percent, which is generally consistent with the findings of other studies. Furthermore, eligible participants would receive a significantly higher federal SSI benefit than eligible nonparticipants. Correspondingly, eligible participants have significantly lower incomes and assets than eligible nonparticipants. An econometric model is used to estimate the influence of various demographic, financial, and health care use characteristics on the probability of SSI participation among eligible individuals and couples. The model corrects for measurement error in calculated benefits and for misclassifying someone as ineligible. The empirical results show that the effect of higher SSI benefits on the probability of participation is substantial-a $100 increase in benefits would increase the probability of participating for an average eligible unit by 15 percentage points. Many of the demographic, financial, and health care use variables also are important predictors of SSI participation among the oldest old. The eligibility and participation models are also used to simulate the effect of increasing the SSI unearned income disregard from $20 to $125. Those made eligible by this policy change would receive a very low federal SSI benefit on average, suggesting that they are on the margin of eligibility under the original program rules. The simulated participation rate is 48.8 percent-5 percentage points lower than under the original program rules-reflecting the low benefit that new eligibles would receive. Only 36 percent of those made eligible by the new program rules are predicted to participate. These SSI eligibility and participation models are potentially useful tools for policy analysis. It is fairly straightforward to use these models to change a feature of SSI eligibility, reestimate the group of eligible individuals and couples, and predict participation among those who are eligible under the simulated program rules. New eligibles can be compared with those eligible under original program rules. New participants can be compared with old participants. Although these models focus only on individuals aged 70 or older, this type of analysis can be helpful in estimating the potential distributional effects of proposed SSI policy changes. Introduction Congress initiated the Supplemental Security Income (SSI) program in 1972 to provide a safety net for disabled and aged individuals who are poor. SSI is federally funded and administered by the Social Security Administration, replacing the state-run Old-Age Assistance, Aid to the Blind, and Aid to the Permanently and Totally Disabled programs. Eligible individuals and couples receive a federal SSI benefit based on monthly income (earned and unearned) and asset levels. The first SSI benefits were paid in 1974. …