BILL ANALYSIS Ó
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THIRD READING
Bill No: AB 191
Author: Bocanegra (D)
Amended: 6/27/13 in Senate
Vote: 21
SENATE HUMAN SERVICES COMMITTEE : 4-2, 6/25/13
AYES: Yee, Evans, Liu, Wright
NOES: Berryhill, Emmerson
SENATE APPROPRIATIONS COMMITTEE : 5-2, 8/30/13
AYES: De León, Hill, Lara, Padilla, Steinberg
NOES: Walters, Gaines
ASSEMBLY FLOOR : 54-23, 5/29/13 - See last page for vote
SUBJECT : CalFresh: categorical eligibility
SOURCE : Author
DIGEST : This bill requires the Department of Social Services
(DSS) to design and implement a program of categorical
eligibility for CalFresh for the purpose of establishing the
gross income limit for the federal Temporary Assistance for
Needy Families (TANF) and state maintenance of effort funded
service for any household that is categorically eligible and
includes a member who receives, or is eligible to receive,
medical assistance under the Medi-Cal program.
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ANALYSIS :
Existing law:
1.Provides for the federal Supplemental Nutrition Assistance
Program (SNAP), under which each county distributes nutrition
assistance benefits provided by the federal government to
eligible households, and the CalWORKs program, under which
each county provides cash assistance and other benefits to
qualified low-income families and individuals. In California,
federal nutrition assistance benefits are administered through
CalFresh.
2.Provides for the Medi-Cal Program, which is administered by
the Department of Health Care Services (DHCS), pursuant to
which medical benefits are provided to public assistance
recipients and other low-income persons.
3.Requires DSS to develop a program of categorical eligibility
under CalFresh for needy households who meet all other SNAP
eligibility requirements, in accordance with federal law.
This bill requires DSS, to the extent permitted by federal law,
to design and implement a program of categorical eligibility for
CalFresh for the purpose of establishing the gross income limit
for the federal TANF and state maintenance of effort funded
service for any household that is categorically eligible, as
defined, and includes a member who receives, or is eligible to
receive, medical assistance under existing law.
Background
CalFresh . CalFresh food benefits for low-income, needy
Californians are wholly funded through the SNAP program at the
U.S. Department of Agriculture (USDA). CalFresh is administered
locally by county welfare departments, and the federal, state,
and county governments share in the cost of administration of
the program.
Generally, eligibility for the program is determined by the USDA
and is consistent across the nation, although states may seek
waivers to modify some elements of the program. It includes a
gross and net income asset test, work requirements, and other
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documentation requirements. From that information, a caseworker
calculates eligibility and benefits based on specified income
and deductions.
Categorical eligiblity . Federal law provides two pathways for
SNAP eligibility: either by meeting federal eligibility
requirements, or by being automatically or "categorically"
eligible for SNAP, based on being eligible for other low-income
assistance programs. In April 2012, there were 46 million
people in 22 million households benefitting from SNAP, according
to a summary of the program by the Congressional Research
Service in 2012.
Traditionally across the country, categorical eligibility
establishes the eligibility for SNAP benefits through
eligibility in the state TANF program or other specified public
benefits. In California, this translates to categorical
eligibility for CalFresh benefits if the recipient is eligible
for or receiving the CalWORKs benefits, or county-run General
Assistance programs. Additionally, the 1996 welfare reform law
permitted states to convey categorical eligibility to recipients
of a TANF "benefit," beyond cash aid, based on a wide range of
benefits and services. TANF benefits other than cash assistance
typically are available to a broader range of households and at
higher levels of income than are TANF cash assistance benefits.
In total, 43 jurisdictions have implemented what the USDA has
called "broad-based" categorical eligibility.
Participation rate . California's SNAP participation rates have
consistently ranked among the lowest in the nation. In 2010,
just 55% of all eligible individuals participated in CalFresh,
according to USDA data, which is an improvement over prior
years. Since the beginning of the recession, CalFresh
enrollment has increased approximately 21% from FY 2009 to FY
2010. Still, that growth has not met the growing need for
nutrition assistance, according to a 2013 report, "Lost Dollars,
Empty Plates," published by the California Food Policy
Advocates.
According to the report, more than 4.1 million Californians were
participating in CalFresh as of November 2012, up from 3.9
million participants a year earlier. The USDA's target
participation rate for states was 71% in 2011. Between 2004 to
2008, CalFresh served approximately one-third of California's
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eligible working poor and no more than half of all eligible
individuals in the state. From FFY 2002 to 2006, CalFresh
served no more than 11% of the state's eligible seniors, 60
years or older.
CalFresh participants received more than $612 million in federal
monthly nutrition assistance benefits for eligible children,
adults, and seniors, for an average household benefit of $332
per month during FY 2012.
Prior Legislation
AB 6 (Fuentes, Chapter 501, Statutes of 2011) made a number of
broad changes to CalFresh policy, including implementing "Heat
and Eat," to draw federal funds and to simplify verification of
utility costs for CalFresh applicants.
AB 1560 (Fuentes, 2012) was identical to this bill. It was held
on the suspense file in the Senate Appropriations Committee.
AB 433 (Beall, Chapter 623, Statutes of 2008) established
categorical eligibility for CalFresh benefits for individuals at
or below 130% of the federal poverty level, regardless of the
level of their assets.
AB 2205 (Evans, 2006) would have established CalFresh
categorical eligibility for Medi-Cal recipients if they were
eligible for or receiving services from the CalWORKs program.
This bill was vetoed by Governor Schwarzenegger.
FISCAL EFFECT : Appropriation: No Fiscal Com.: Yes
Local: Yes
According to the Senate Appropriations Committee:
For existing Medi-Cal recipients currently eligible but not
participating in CalFresh, and those newly eligible under this
bill, potential annual costs of $12.2 million (General Fund)
for CalFresh administration and California Food Assistance
Program (CFAP) benefits and administration. Increased federal
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funding in the range of $375 million in CalFresh benefits,
generating $6.7 million (General Fund) through increased sales
tax revenue.
For every 5% of the 600,000 to 700,000 individuals potentially
eligible for CalFresh/CFAP (assuming 30% to 35% of the 2
million newly eligible Medi-Cal recipients under federal
health care reform effective January 1, 2014, would be
eligible), annual costs of $3 million to $3.5 million (General
Fund) for state benefits and administration. Increased
federal funding in the range of $50 million to $60 million in
CalFresh benefits, generating $0.9 million to $1.1 million in
increased sales tax revenue.
For every 100,000 newly eligible children directly certified
for free school meals under the National School Lunch Program
and School Breakfast Program, increased federal funding of $75
million could be received and state reimbursement of up to $8
million (General Fund) would potentially be required. To the
extent only a portion of those newly eligible ultimately
participate in the program, costs could be considerably less.
SUPPORT : (Verified 8/30/13)
AARP
AFSCME
Alameda County Community Food Bank
Asian Law Alliance
California Association of Food Banks
California Catholic Conference
California Food Policy Advocates
County Health Executives Association of California
Feeding America San Diego
Food for People, Inc.
Greenlining Institute
Health Access California
Interfaith Community Services
Jewish Family Service of Los Angeles
Jewish Family Service of San Diego
Latino Coalition for a Healthy California
National Association of Social Workers
San Diego Hunger Coalition
San Francisco and Marin Food Banks
Second Harvest Food Bank
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St. Anthony Foundation
Women Organizing Resources Knowledge & Services
ASSEMBLY FLOOR : 54-23, 5/29/13
AYES: Alejo, Ammiano, Atkins, Bloom, Blumenfield, Bocanegra,
Bonilla, Bonta, Bradford, Brown, Buchanan, Ian Calderon,
Campos, Chau, Chávez, Chesbro, Cooley, Daly, Dickinson,
Eggman, Fong, Fox, Frazier, Garcia, Gatto, Gomez, Gonzalez,
Gordon, Gray, Hall, Roger Hernández, Jones-Sawyer, Levine,
Lowenthal, Medina, Mitchell, Mullin, Muratsuchi, Nazarian,
Pan, Perea, V. Manuel Pérez, Quirk, Quirk-Silva, Rendon,
Salas, Skinner, Stone, Ting, Weber, Wieckowski, Williams,
Yamada, John A. Pérez
NOES: Achadjian, Allen, Bigelow, Conway, Dahle, Donnelly, Beth
Gaines, Gorell, Grove, Hagman, Harkey, Jones, Logue,
Maienschein, Mansoor, Melendez, Morrell, Nestande, Olsen,
Patterson, Wagner, Waldron, Wilk
NO VOTE RECORDED: Holden, Linder, Vacancy
JL:ej 8/30/13 Senate Floor Analyses
SUPPORT/OPPOSITION: SEE ABOVE
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