Use of Federal Low- Income Assistance Varies Greatly by Program and by Subgroup

The proportion of those eligible who are actually enrolled in 12 selected  low-income programs varies substantially both between and within  programs, but several factors must be considered to understand the  implications of this information for program access. For Entitlement Programs, the Proportion of Those Eligible Who Were Enrolled Ranged from about 50 Percent to More Than 70 Percent, but Participation Rates Are Higher among Some Groups

For four of the five entitlement programs we examined, the proportion of  eligible people who were enrolled varied from around 50 percent in the  Food Stamp Program to more than 70 percent in the EITC and SSI  programs; and within programs, different types of participants, such as  children or the elderly, were enrolled in varying proportions. HHS and USDA are the  only two agencies to regularly estimate participation rates in low-income  programs. Coverage rates also have limitations such as data  sources, and estimation methodologies that make it inappropriate to  compare the estimates across programs. Recognizing the differences in goals, design, administration, and funding  in the 12 programs, it may be neither feasible nor desirable to provide  program benefits to all those eligible. Many Factors Influence Participation but Their Impact on Entitlement and Non- Entitlement Programs Differs

Many factors influence access to means-tested programs, including the  benefits provided by the program, ease of access, misperceptions about  program requirements, and eligibility verification procedures put in place  to ensure program integrity, based on our literature review and agency  interviews. Program Administrators Have Strategies That Improve Both Access and Integrity, but Federal Agencies Have Generally Focused More on Measuring Program Integrity Outcomes

Program administrators have implemented many strategies to achieve  desired program outcomes, including those related to program access and  program integrity, but while agencies have generally taken steps to  monitor and disseminate information on program integrity, few track and  report on the extent to which they are serving their eligible populations. Because the most fundamental purpose of these programs is to serve low- income individuals and families, all track measures that provide some  information about program participation and access. Participation or coverage  rate information can guide program administrators in setting priorities and  targeting scarce resources, even among programs that were not intended  to serve everyone eligible for program benefits. Federal  agencies responsible for administering only four of the programs we  covered in this review—CCDF, food stamps, WIC, and EITC—either  currently collect and report information on the extent to which they are  reaching their target populations in key performance and program reports  or plan to do so. Appendix I: Objectives, Scope, and Methodology

We designed our study to provide information on (1) the proportion of  those eligible who are participating in 12 selected low-income programs;  (2) the factors that influence participation in those programs; and   (3) strategies used by federal, state, and local administrators to improve  both access and integrity, and whether agencies monitor access by  measuring participation rates. Those  eligible could also have access to state and local programs that address  similar needs.
Why GAO Did This Study

Federal agencies that administer means-tested programs are responsible for both ensuring that people have appropriate access to assistance and ensuring the integrity of the programs they oversee. To balance these two priorities appropriately, it is important for agencies to have information on program integrity and program access. Knowing the proportion of the population that qualifies for these programs relative to the numbers who actually participate can help ensure that agencies can monitor and communicate key information on program access. To better understand participation in low-income programs, this report provides information on: (1) the proportion of those eligible who are participating in 12 selected low-income programs; (2) factors that influence participation in those programs; and (3) strategies used by federal, state, and local administrators to improve both access and integrity, and whether agencies monitor access by measuring participation rates.

What GAO Found

For 12 federal programs supporting low-income people, we found that the proportion of those eligible who are enrolled varies substantially both between and within programs. Among entitlement programs--those programs that provide benefits to all applicants that meet program eligibility criteria--these rates range from about 50 to more than 70 percent. Among non-entitlement programs--those with limited funding--these rates ranged from less than 10 percent to more than 50 percent. While it may be neither feasible nor desirable for programs to serve 100 percent of those eligible for benefits, information on the share of those eligible who are enrolled in means-tested programs and on particular recipient groups such as the elderly or families with children, can help program managers more effectively address issues related to program access. However, participation rate estimates must be interpreted carefully because of limitations in the data sources and estimation methodologies used to calculate the estimates. Many factors influence access to low-income programs--including the type of benefits, ease of access, misperceptions about program requirements, and application and eligibility verification procedures. These factors can impact not only the share of eligible people who participate in low-income programs, but other aspects of program access as well, including the composition of the program caseload and how programs work together to serve low-income individuals and families. Federal, state, and local administrators have implemented many strategies to achieve the goals of access and integrity, but federal agencies generally put more emphasis on tracking information and outcomes related to program integrity than program access. To better ensure that program administrators achieve program integrity goals, agencies have begun to develop measures to track and report on program integrity. Federal agencies have developed participation rate estimates for several low-income programs, but only four--CCDF, food stamps, WIC, and EITC--either currently collect and report information on the extent to which they are reaching their target populations or plan to do so. Such information can guide administrators in setting priorities and targeting scarce resources, even among programs that were not intended to serve everyone eligible for program benefits.