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Fewer than half of low-income students retain their state food benefits in the transition from high school to college or the workforce, even though they might still be eligible, according to a new report from the California Policy Lab, a nonpartisan research group affiliated with the University of California, Berkeley, and UCLA.
The report, released today, drew on data from 2010 to 2022 from five state agency partners: the California Departments of Education and Social Services, the California Student Aid Commission, the University of California Office of the President and the California Community Colleges Chancellor’s Office. It found that only 47 percent of high school seniors who participated in CalFresh were still enrolled in the state food assistance program two years after graduation.
“That’s a significant drop-off, and our goal is to shed some light on the causes of that drop-off and if there are ways to address it,” co-author Jesse Rothstein, professor of public policy and economics at UC Berkeley and the faculty director of the California Policy Lab’s UC Berkeley site, said in a news release.
Researchers estimated that 40 percent of those students were no longer eligible for CalFresh because of specific eligibility requirements for college students. But the remaining 60 percent were likely eligible.
Researchers also found disparities in which students maintained their CalFresh benefits. Students who participated in CalFresh for longer in high school were more likely to continue to participate afterward. Students who attended University of California campuses were also more likely to continue participating in CalFresh than those attending community colleges. The report suggests this is because community college students are more likely to live at home with their parents, whose incomes are factored into the eligibility for CalFresh, which can prevent them from meeting the program’s income requirements.
Some community college students, including Hispanic and Filipino students, were less likely than their peers to continue receiving food benefits. The report recommended targeted outreach to these students to help them stay enrolled in the program.
Nearly 25% of college students in 2020 reported
limited or uncertain access to food. Despite being potentially eligible,
most didn’t receive Supplemental Nutritional Assistance Program (SNAP)
benefits—formerly known as “food stamps”—which could help them pay for
food.
A recent law gave the Department of Education
authority to share students’ Free Application for Federal Student Aid
data with federal and state SNAP agencies to identify and help students
who may be eligible for benefits.
But Education hasn’t made a plan to start sharing this data—nor have states received guidance about this opportunity.
The U.S. Department of Agriculture (USDA) and the Department of
Education have taken some steps to connect college students with
Supplemental Nutrition Assistance Program (SNAP) benefits to help them
pay for food, but gaps in planning and execution remain. Effective July
2024, a new law gave Education authority to share students’ Free
Application for Federal Student Aid (FAFSA) data with USDA and state
SNAP agencies to conduct student outreach and streamline benefit
administration. However, according to officials, Education had not yet
developed a plan to implement these complex data-sharing arrangements.
This risks delays in students getting important information that could
help them access benefits they are eligible for. Following the passage
of this new law, Education began providing a notification about federal
benefit programs for students who may be eligible for them. However, it
has not evaluated its method for identifying potentially eligible
students. According to GAO analysis of 2020 Education data, Education’s
method could miss an estimated 40 percent of potentially SNAP-eligible
students.
USDA encouraged state SNAP agencies to enhance student outreach and
enrollment assistance. However, USDA has not included important
information about the use of SNAP data and other student data in its
guidance to state SNAP agencies. These gaps in guidance have left states
with questions about how to permissibly use and share students’ data to
help connect them with benefits.
Student Food Assistance at a College Basic Needs Center
Officials from the three selected states and seven colleges GAO
contacted described key strategies for communicating with students about
their potential SNAP eligibility. These include using destigmatizing
language, linking students directly to an application or support staff,
and coordinating outreach efforts with SNAP agencies. Officials from the
states and colleges GAO contacted said it is helpful to have staff
available on campus to assist students with the SNAP application. Some
colleges have found it helpful to partner with their respective SNAP
agencies to obtain information on the status of students’ applications.
Why GAO Did This Study
According to a national survey, almost one-quarter of college
students were food insecure in 2020, yet GAO found many who were
potentially eligible for SNAP had not received benefits. The substantial
federal investment in higher education is at risk of not serving its
intended purpose if students drop out because of limited or uncertain
access to food. Studies have found using data to direct outreach to
those potentially eligible can increase benefit uptake.
GAO was asked to review college student food insecurity. This report
addresses (1) the extent to which Education and USDA have supported data
use to help college students access SNAP benefits, and (2) how selected
states and colleges have used student data to help connect students
with SNAP benefits.
GAO reviewed relevant federal laws and agency documents. GAO also
interviewed officials from Education, USDA, and national higher
education and SNAP associations. GAO selected three states and
interviewed officials from state SNAP and higher education agencies and
seven colleges in these states. GAO visited one selected state in person
and interviewed two virtually. States were selected based on actions to
support food insecure students and stakeholder recommendations.
The
Secretary of Education should develop a written plan for implementing
provisions in the FAFSA Simplification Act related to sharing FAFSA data
with SNAP administrators, to aid in benefit outreach and enrollment
assistance. (Recommendation 1)
Department of Education
The
Secretary of Education should, in consultation with USDA, evaluate its
approach to identifying and notifying FAFSA applicants who are
potentially eligible for SNAP benefits and adjust its approach as
needed. (Recommendation 2)
Department of Education
The
Secretary of Education should inform colleges and state higher
education agencies that FAFSA notifications are being sent to applicants
who are potentially eligible for SNAP benefits. (Recommendation 3)
Department of Agriculture
The
Administrator of USDA’s Food and Nutrition Service should, in
consultation with Education, issue guidance to state SNAP agencies—such
as in its SNAP outreach priority memo—to clarify permissible uses of
student data, including FAFSA data, for SNAP outreach and enrollment
assistance. (Recommendation 4)
Department of Agriculture
The
Administrator of USDA’s Food and Nutrition Service should issue
guidance to state SNAP agencies—such as in its SNAP outreach priority
memo—to clarify the permissible uses and disclosure of SNAP data to
support SNAP student outreach and enrollment assistance. (Recommendation
5)
And the Community Eligibility Provision, which reimburses tens of thousands of schools that provide free breakfast and lunch to all students, may tighten its requirements, potentially pushing some 12 million kids out of the program.
These moves come at the same time the House Republican budget plan calls for deep cuts to the Supplemental Nutrition Assistance Program, or SNAP. The program fed more than 42 million low-income people per month nationwide in 2023. In 2022, 40% were younger than 18.
This recent shift reflects a stark reversal of earlier, nationwide efforts to keep families fed during the pandemic. Many districts, such as Baltimore, organized grab-and-go meals sites days after schools were shuttered in March 2020 with no identification or personal information required. Those initiatives led to the nation’s food insecurity rate dropping to a 20-year low when it reached 10.2% in 2021, down from a 14.9% high a decade earlier, according to the USDA.
It has since crept back up to 13.5% and now, five years after schools utilized USDA waivers to deliver meals in innovative ways, they are bracing for what could be massive cuts from the federal government.
Latoya Roberson, manager at Mergenthaler Vocational-Technical High School in Baltimore (Baltimore City Public Schools)
Elizabeth A. Marchetta, executive director of food and nutrition services for Baltimore City Public Schools, said 31 campuses — serving 19,000 children — would lose out on free breakfast and lunch if the Community Eligibility Provision changes go through. They are among 393 schools and 251,318 children statewide who would be shut out.
“It would be devastating,” Marchetta said. “These are critical funds. If we are not being reimbursed for all of the meals we’re serving … the money has to come from somewhere else in the school district, so that is really not great.”
Map: Eamonn Fitzmaurice/The 74, Data:Food Research & Action Cen
Nearly 48,000 schools in more than 7,700 districts benefited from the Community Eligibility Provision in the 2023-24 school year. The program reimburses schools that provide universal free meals based on the percentage of their students who automatically qualify for free and reduced-price lunch because their families receive other types of assistance, like SNAP.
In 2023, after the COVID-era policy ended where any student could receive a free school meal regardless of income, President Biden lowered the percentage of high-need students required for a school to qualify from 40% to 25%, greatly expanding participation.
House GOP Budget Committee Chairman Jodey Arrington now seeks to raise the rate to 60%. The budget proposal would also require all students applying for free and reduced-price meals to submit documentation verifying their family income.
School meal debt, a barometer of food insecurity among students, is already on the rise. It will almost certainly increase if universal school meals disappear for students whose families make too much to qualify for free and reduced-price lunch but too little to afford to buy meals at school. At the same time, kids who are eligible for free and reduced-price meals could lose that benefit if the required paperwork becomes harder.
In the fall of 2023, across 808 school districts, the median amount of school meal debt was $5,495. By the fall of 2024, that amount reached $6,900 across 766 districts, a 25% increase, according to the School Nutrition Association.
It was just $2,000 a decade earlier. A trio of Democratic senators is pushing to erase the $262 million annual debt total, with Pennsylvania Sen. John Fetterman saying in 2023, “‘School lunch debt’ is a term so absurd that it shouldn’t even exist. That’s why I’m proud to introduce this bill to cancel the nation’s student meal debt and stop humiliating kids and penalizing hunger.”
Research shows students benefit mightily from free meals: those who attend schools that adopted the Community Eligibility Provision saw lower rates of obesity compared to those who did not. Free in-school meals are also credited for boosting attendance among low-income children, improving classroom behavior and lowering suspensions.
Joel Berg, CEO of Hunger Free America.
Joel Berg, the CEO of Hunger Free America, said further cuts will greatly harm the poorest students.
“Over the last few years, things have gone from bad to worse,” he said. “We were all raised seeing Frank Capra movies, where, in the end everything works out. But that’s not how the real world works. In the real world, when the economy gets a cold, poor people get cancer.”
Hunger Free America found the number of Americans who didn’t have enough to eat over two one-week periods increased by 55.2% between August-September 2021 and August-September 2024. The states with the highest rates of food insecure children were Texas at 23.8%, Oklahoma at 23.2% and Nebraska at 22.6%. Georgia and Arkansas both came in at 22.4%.
Diane Pratt-Heavner, director of media relations for the School Nutrition Association, said that as families struggle with the high cost of groceries, the government should be doing more — not less — to bolster school meals and other food aid programs.
“We’re urging Congress not only to protect the federal Community Eligibility Provision, but to expand it,” Pratt-Heavner said. “Ideally, all students should have access to free school breakfast and lunch as part of their education.”
SNAP benefits stood at $4.80 per person per day through 2020 before jumping to more than $6 per person per day after they were adjusted for rising food and other costs. Even then, the higher amount was not enough to cover the cost of a moderately priced meal in most locations.
Republicans in Congress seek to cut the program by $230 billion over the next nine years, possibly by returning to the pre-pandemic allotment of $4.80 and/or expanding work-related requirements, said Salaam Bhatti, SNAP director at the Food Research & Action Center.
Another possibility, he said, is that SNAP costs could be pushed onto states — including those that can’t afford them.
“This would be an unfunded mandate,” Bhatti said. “States would have to take away from their discretionary spending to offset the cost and if it is not a mandate, then states in rural America and in the South that don’t have the budgets just won’t do it.”
Food-related funding decreases come as the child tax credit, created to help parents offset the cost of raising children, is also facing uncertainty, said Megan Curran, the director of policy at the Center on Poverty and Social Policy at Columbia University.
The American Rescue Plan increased the amount of the child tax credit from $2,000 to $3,600 for qualifying children under age 6, and $3,000 for those under age 18. Many taxpayers received monthly advance payments in the second half of 2021, instead of waiting until tax filing season to receive the full benefits. The move cut child poverty nearly in half. The expanded child tax credit was allowed to lapse post-pandemic and now even the $2,000 credit could revert back to just $1,000.
All food-related and tax benefit cuts — plus the unknowns of Trump-era tariffs — will leave some Americans particularly vulnerable, Curran said.
“It’s shaping up to be a very precarious time for families,” she said, “especially families with children.”
Anabel’s Grocery at Cornell University addresses basic needs insecurity for students.
Jason Koski, Cornell University
College students are more likely to experience food insecurity, compared to the general population, but funding and support for programs that address basic needs in higher education remains limited.
A 2024 survey by Swipe Out Hunger, a nonprofit group that addresses hunger among college students, found while a majority of colleges have a pantry for student supports, most are supported by philanthropy and not the institution.
The campus leader survey, released last month, included responses from 347 of Swipe’s 850 partner campuses, representing over 766,600 students who engaged with basic needs resources, whether through the food pantry, SNAP enrollment program or a basic needs hub.
The most popular campus support program was a food pantry, with almost all respondents (95 percent) indicating their college offers one for students. In 2024, campus pantries distributed over eight million meals and 687,000 additional items, such as toiletries, diapers or appliance lending.
Campus leaders shared their primary win in the past year was expanding their program (56 percent) and supporting students (20 percent), but only 1 percent of respondents said they had administrative support, and 8 percent indicated they earned additional funding to aid expansion.
In a similar vein, when asked what their primary challenges were, the greatest share identified funding (47 percent), followed by staffing (16 percent), space (11 percent) and support (10 percent).
Two in five campuses identified donations as their primary funding source, which included staff payroll deductions and crowdsourcing. Only 5 percent of campus leaders said they had a dedicated budget from campus as their primary source of funding for programming.
“This severe lack of sustainable funding for antihunger programs is preventing students from accessing the food they need to survive, which in turn affects their ability to stay enrolled,” says Jaime Hansen, executive director of Swipe Out Hunger. “With rising food costs and the lack of government support, campus food pantries and similar resources are becoming the only lifeline for students. If these programs continue to be overburdened and underfunded, we can expect to see less students being able to afford to stay in college.”
A corresponding student experience survey found 40 percent of program users engaged with on-campus services weekly, and an additional 8 percent used resources every day.
The top barriers to accessing nutritious food, students reported, were time constraints due to multiple responsibilities; the cost of meal plans, including on-campus food costs; anxiety about resource scarcity (taking away from peers who need it more); elevated costs of diet-specific foods; and living far away from affordable foods.
Tackling basic needs insecurity: Some of the ways other organizations and institutions are addressing college student hunger include these efforts:
Believe in Students created an online curriculum to empower faculty to engage in basic needs support, providing relevant data and insights as well as how-to advice and encouragement.
Community colleges utilize FAFSA data to notify learners of their eligibility for SNAP or other state-level food assistance programs.
A group of students at Anne Arundel Community College contributed to a faculty-led cookbook featuring students’ nostalgic recipes adapted to utilize campus pantry ingredients.
New Jersey built a centralized website to help college students identify basic needs resources across the state.
Virginia Commonwealth University built miniature food pantries, modeled off little lending libraries, to increase access to shelf-safe food items across campus.
How is your campus addressing food insecurity among students? Tell us more.