California Policy Lab (CPL), Jesse Rothstein, Johanna Lacoe, Sam Ayers, Karla Palos Castellanos, Elise Dizon-Ross, Anna Doherty, Jamila Henderson, Jennifer Hogg, Sarah Hoover, Alan Perez, and Justine Weng
Food insecurity is widespread among college students in the United States. Food benefits delivered through the CalFresh program, California's version of the federal Supplemental Nutrition Assistance Program (SNAP), can reduce hunger by helping students pay for groceries, but may not reach all eligible students. To date, higher education systems have lacked good estimates of the share of their students who are eligible for CalFresh and the share who actually receive benefits. To address this information gap, the California Policy Lab (CPL) partnered with the California Community College (CCC) Chancellor's Office, the University of California Office of the President (UCOP), the California Department of Social Services (CDSS), and the California Student Aid Commission (CSAC) to build a linked database of student-level administrative data on college enrollment, financial aid, and CalFresh participation. This database covers all students enrolled at CCC or UC campuses from academic years 2010-11 through 2021-22, along with corresponding FAFSA submissions and CalFresh participation. Using these data, we are able to measure how many college students are likely eligible for CalFresh, and of those how many participate. CalFresh eligibility does not perfectly overlap with student need. Some students who are food insecure may not be eligible for benefits, while some eligible students may not be in great need. This in part reflects the rules of the program, which are designed to capture need but do not always do so perfectly. We attempt to measure eligibility according to the actual rules. Our estimates complement other work that uses survey data to measure students' basic needs (California Community Colleges League, 2022). We estimate that in Fall 2019, on the eve of the COVID pandemic, 16% of California community college students (256,000 students), 31% of UC undergraduate students (69,000 students), and 6% of UC graduate students (3,000 students) were likely eligible for CalFresh benefits. However, the majority of these students did not receive benefits -- only 30% of eligible community college students, 22% of eligible UC undergraduates, and 29% of eligible UC graduate students were actually enrolled in CalFresh. We emphasize that our eligibility determinations are estimates based on information available in existing data, which imperfectly capture some elements of the CalFresh eligibility determination process. They may somewhat overstate or understate student eligibility. However, extensive investigation led us to conclude that the errors are likely not large and that our estimates are a good approximation of the share of students who would be found eligible under individualized determinations. As we discuss below, the higher eligibility rate among UC undergraduates as compared to CCC students reflects program rules that make it easier for UC students to qualify than for CCC students with similar resources. We also find differences in eligibility across groups of students within each segment, reflecting both variation in need and program rules. Among both CCC and UC students, Black and Hispanic students, for example, are more likely to be eligible than are White or Asian American students, and students receiving federal, state, or institutional financial aid are much more likely to be eligible than are students not receiving aid. Benefits receipt generally mirrors this, although there are differences across groups in the share of eligible students who receive benefits. The take-up rate, which is the share of eligible students who participate in CalFresh, is higher for Black students (and, at the UC but not at CCCs, Hispanic students) than for White students, and for students on financial aid than for students who are not. Our report indicates there is much room to improve CalFresh participation among eligible students. Through detailed analyses of the paths to eligibility and of variation in participation rates, we hope to shed light on opportunities for policymakers, higher education administrators, community-based organizations, student groups, and advocates to better connect eligible students to benefits. [Additional support was provided by the Woven Foundation.]