The legislative mandate for this report requires inclusion of information about “relevant research on the SSI program by the Social Security Administration (SSA) and others.” Section
1 of this appendix describes major ongoing projects. Section
2 presents a bibliography of studies regarding SSI payment levels, recipients, and reform proposals that were published in the past 10 years by both public and private entities.
Using Survey of Income and Program Participation (SIPP) data matched to administrative records, SSA researchers have developed a model of financial eligibility for SSI that has been used to estimate the rate of participation among the eligible elderly and the effects of various options to modify the SSI program (see Davies et al. 2001/2002). The model suggests that the rate of participation among the eligible elderly was about 62 percent in 1991. The comparable participation rate estimate at the end of 1996 was also 62 percent. The model has recently been updated to use the 2004 SIPP matched to administrative records.
The model was also utilized to simulate the potential effects of several approaches to expand the SSI program to fight poverty among the elderly. Approaches focusing on incremental changes in the Federal benefit rate, the general income exclusion, and the resources test appear roughly equally effective in reducing the poverty gap among the elderly on a cost-equivalent basis, while two approaches focusing on relaxing the earned income exclusion are less effective (Davies, Rupp, and Strand, 2004). More recently, the model has been expanded to address SSI participation and financial eligibility among the working-age disabled, and to assess SSI benefit restructuring options for the entire SSI population. The working-aged model allows for the identification of working-aged persons by their SSI financial eligibility status, DI insured status, and participation in both programs. The model recently has been used to assess SSI’s role in complementing and enhancing the safety net for the working-aged population (Rupp, Davies, and Strand, 2008), focusing on the role of SSI in providing cash benefits to some DI beneficiaries during the 5-month waiting period and beyond, and increasing health insurance coverage among the disabled by providing access to Medicaid. The model has been used to simulate the effects of several approaches to changing in-kind support and maintenance rules and options for altering the calculation of the Federal benefit rate for certain living arrangement categories (Balkus et al. 2009). Simulation results are applied to current elderly, working-age, and child SSI populations to provide up-to-date estimates for potential program changes. The financial eligibility model has also been utilized to study eligibility for Medicare buy-in programs (see Rupp and Sears 2000; Sears 2001/2002). More recently the model has been extensively utilized to estimate the size of the population potentially eligible for the Medicare Part D low income subsidy.
The National Survey of SSI Children and Families (NSCF) was designed to address a number of SSA policy and program objectives. One objective was to address issues specifically pertaining to the effects of the Personal Responsibility and Work Opportunity Reconciliation Act of 1996 (welfare reform). However, the survey as designed is useful for the study of a broader range of issues of current interest to policy makers. Most importantly it allows for the analysis of a nationally representative cross-section of SSI beneficiary children aged 0-17 and young adults aged 18-23. Among the questions the survey answers are the following:
The NSCF data collection began July 2001 and concluded June 2002. The NSCF sample size was considerably larger for SSI children and young adults than the sample size available in other surveys. Altogether, 8,535 interviews were completed for the NSCF, including 5,006 who received SSI benefits in December 2000 and 5,033 who received SSI benefits in December 1996. A public use file and documentation from the NSCF are available on the SSA website at
http://www.socialsecurity.gov/disabilityresearch/nscf.htm. Davies and Rupp (2005/2006) provides an overview of the survey and describes some key features. Other analyses underway using these data are discussed in section c below. Although it was a cross-sectional data collection effort, longitudinal data on SSI program participation are being added to the NSCF through continuing efforts to update the match between NSCF and SSI administrative records.
SSA researchers have conducted a number of research studies designed to provide a better understanding of the SSI program, the elderly and disabled target populations, program interactions, and the role of the SSI program in the United States social safety net. Koenig and Rupp (2003/2004) estimated the prevalence of households and families with multiple SSI recipients and provided an assessment of the poverty status of multirecipient households. Rupp and Davies (2004) tracked survey respondents from the 1984 SIPP for 14 years using administrative records on SSI and DI participation and death events to assess the relationship between self-reported health status, disabilities, mortality, and participation in the SSI and DI programs. Weathers et al. (2007) uses a unique longitudinal dataset based on administrative data from the National Technical Institute for the Deaf (NTID) linked to SSA administrative records to conduct a case study of SSI children who applied for postsecondary education at NTID. An ongoing study uses SSA administrative records from August 2005 through August 2007 to analyze SSI recipients who lived in counties and parishes affected by Hurricanes Katrina and Rita.
Several studies focus on the distributional effects of the SSI program through its interactions with other Federal and State programs. One study is utilizing longitudinal data from the Health and Retirement Study (HRS) to assess the role of SSI and related social safety net programs in providing a buffer against the potentially adverse effects of disability shocks in the near-elderly population on financial well-being. Rupp et al. (2007) provides an empirical analysis of the SSI Federal benefit rate for assessing benefit adequacy among elderly Social Security beneficiaries and the effectiveness of the SSI benefit eligibility screens for targeting economically vulnerable elderly beneficiaries. Balkus et al. (2009) examines the distributional effects of replacing current policies on living arrangements and in-kind support with a simpler, cost neutral alternative. Rupp and Strand (2007) highlights the distributional implications of Social Security reform scenarios involving a potential shift from wage indexing to price indexing or longevity indexing in the establishment of initial benefits. Another study uses matched SIPP records to examine potential eligibility for three major means-tested programs (SSI, Medicaid, and Food Stamp) among near retirees aged 55 to 64 and eventual SSI participation upon reaching age 65. A related research project analyzes interactions between SSI, DI, Medicaid and Medicare on a cohort of SSI and DI awardees utilizing matched administrative data from SSA and the Centers for Medicare & Medicaid Services. Wamhoff and Wiseman (2005/2006) examines the financial consequences of TANF-to-SSI transfers and develops new estimates of both the prevalence of receipt of SSI benefits among families receiving cash assistance from TANF and the proportion of new SSI awards that go to adults and children residing in families receiving TANF-related benefits. Trenkamp and Wiseman (2007) addresses the connections between the SSI and Food Stamp programs.
In 2003 and again in 2005 SSA provided funding for interviewing supplemental samples of SSI and DI beneficiaries to increase the SIPP sample size available for analyses of these target groups. DeCesaro and Hemmeter (2008) examines the characteristics of DI and SSI program participants using the 2003 supplemental sample combined with the 2001 SIPP, both matched to administrative records. Using data from the Current Population Survey matched to SSA administrative records, Nicholas and Wiseman (2009) assesses the impact of using administrative records on poverty estimation among elderly SSI recipients using the official and alternative definitions of poverty. Wiseman and Ycas (2008) compares the Canadian social assistance program for the elderly with the SSI program, looking at program structure, cost and consequences for elderly poverty rates.
A number of studies are utilizing the NSCF to focus on children and young adults receiving SSI. Rupp et al. (2005/2006) presents highlights from the survey characterizing SSI children with disabilities and their families. Additional research is currently underway to study employment and caregiving patterns of parents of SSI children, to examine employment and program outcomes among young adults after their eligibility redetermination at age 18, and to analyze factors affecting out-of-pocket medical expenses and unmet health care needs of disabled children. These papers are scheduled to be published in a special issue of the Journal of Vocational Rehabilitation devoted to SSI children and young adults and the transition to adulthood. The special issue also will include a paper that introduces the issue and examines the life-cycle human capital development and longer-term SSI and earnings outcomes of SSI youth as they transition to adulthood.
The Ticket to Work and Work Incentives Improvement Act of 1999 requires the Commissioner of Social Security to provide for independent evaluations to assess the effectiveness of the Ticket to Work program and to submit three separate evaluation reports to Congress. In May 2003, SSA awarded two 5-year contracts to Mathematica Policy Research to conduct the evaluation of the Ticket to Work program. The first contract focuses on data development, qualitative data collection, and implementation of the comprehensive evaluation analyses. The second contract focuses on a survey of beneficiaries, which is designed to collect information on the health and well-being of beneficiaries and on how beneficiaries use the Ticket to Work program.
Rounds one, two, and three of the National Beneficiary Survey (NBS) have concluded with an overall response rate of 78 percent. SSA has now completed interviews with more than 20,000 beneficiaries with disabilities. Round 4 of the survey has been delayed because of changes to the Ticket to Work program that were implemented in 2008.
The first evaluation report was submitted to Congress in 2004 (Thornton et al. 2004),and SSA also published the first interim evaluation report early in 2006 (Thornton et al. 2006) ,. The third, post-FY 2005, evaluation report was sent to Congress in October 2007, and the post-FY 2006 report was sent to Congress in October of 2008. The reports indicate low but growing participation rates and domination of ticket assignments by State vocational rehabilitation agencies. The findings thus far indicate that the Ticket to Work program has significant potential but improvements in beneficiary awareness and Employment Network (EN) incentives are needed. Survey findings show that many more beneficiaries are interested in employment and working their way off disability benefits than is reflected in Ticket to Work participation. Most beneficiaries remain unaware of the Ticket to Work program despite various efforts by SSA to publicize the program. Among those who are aware, a small but significant number who have tried to use their ticket have been unable to find an EN to accept it.
Many beneficiaries who are participating in the Ticket to Work program are reaching employment success, and those who leave the disability rolls appear to be remaining off of benefits for sustained periods of time. The evaluation has also found that employment success may take longer to achieve than was previously anticipated. Among the earliest participants in Ticket to Work, a small but steady stream of new exits from disability benefits continued to occur more than 4 years after Ticket to Work participation began. Participation by ENs has been anemic, and the evaluation indicated that the initial payment rules were insufficient for ENs to cover their costs. SSA initiatives to reduce EN costs have helped but have not been enough to help ENs reach financial viability. In July 2008 SSA implemented new regulations for the Ticket to Work program. The evaluation reviewed these new rules and found that they are likely to significantly increase the early payments to ENs, thereby making the program more financially attractive to a broader range of service providers. This in turn holds promise for expanding EN availability and reinvigorating the program.
The fifth evaluation report is in progress. Unlike past reports, where SSA produced a single large document, we will produce the fifth report as a series of short papers. Each paper will focus on a specific aspect of the ticket evaluation in the same way that the chapters did for earlier Ticket to Work evaluation reports. Two of these papers have been completed: “Process Evaluation of the Work Incentives Planning and Assistance Program” and “Characteristics, Employment, and Sources of Support among Working-Age SSI and DI Beneficiaries.” Release of all papers of the fifth report is expected in 2009.
SSA is also in the process of modifying the Ticket evaluation contracts to implement the fourth survey round in 2010 and to extend the analysis to cover beneficiary and service provider response to the new Ticket to Work regulations. The evaluation contractor will produce two additional reports in 2011 and 2012 under this modification.
In fiscal years 2003-2005, SSA’s appropriations included earmarked funds totaling $24 million to conduct outreach and application assistance to the homeless and other under-served populations in support of the President’s initiative to end chronic homelessness. In 2004, SSA awarded funds to 41 service providers in 20 States and the District of Columbia that provide services to the homeless. The service providers began enrolling project participants in September 2004. Of the 41 service providers, 34 provided outreach efforts through April 2008, and the remaining seven service providers continued through October 2008. As of January 2009, HOPE grantees assisted 10,398 homeless individuals with their applications for SSI. Of those, 3,737 were awarded benefits based on disability.
In October 2007, Westat, of Rockville, Maryland released the final evaluation report of the HOPE program. The overall findings of the independent evaluation showed that HOPE programs were more effective than similar programs without HOPE funding in facilitating determinations for benefits and in obtaining positive housing outcomes. In addition, the evaluation showed that the housing status of HOPE beneficiaries had improved over time since they first applied for benefits through SSA’s HOPE grantees. Continued evaluation plans include a longitudinal study to determine whether HOPE enrollment improved the economic well-being and housing status of participants. This analysis will consist of constructing a new control group with similar characteristics to the HOPE participants. The purpose is to determine the extent to which those in the HOPE treatment group benefited by outreach efforts, compared to the control group, in terms of their allowance rates, time to determination, housing status, and other variables.
The YTD establishes partnerships to improve employment outcomes for youth ages 14-25 who receive (or could receive) SSI or SSDI payments on the basis of their own disability. The YTD projects include service delivery systems and a broad array of services and supports to assist youth with disabilities in their transition from school to employment and to help them gain economic self-sufficiency.
YTD began in 2003, with seven projects in six States. In 2007, SSA piloted new projects in five States, choosing a total of three new projects in Florida, Maryland, and West Virginia. These three projects are joining three (Colorado and two New York) of the original seven projects in a random assignment study. This study will produce the first evaluation of the empirical evidence of the effects of youth transition programs and modified SSI work incentives.
The research findings will help to assess the implications of any such impacts for the Social Security trust funds and Federal income tax revenues. Three of the sites have completed enrollment for the impact evaluation. Implementation of the interventions is underway at all the sites.
As of March 2009, 451 of the 2,005 YTD participants (over 22 percent) were employed full-time or part-time. Most are students, so the nature of the work varies widely and some of it is short term. While not directly comparable to YTD participants, the employment rate for all SSI recipients aged 18-21 was only about 11 percent as of December 2007.
The Department of Labor (DOL) and SSA jointly established the Disability Program Navigator (DPN) position. DPNs are located in DOL’s One-Stop Career Centers and help disabled individuals navigate the challenges of seeking work. The rules surrounding entitlement programs and a fear of losing cash assistance and health benefits often discourage people with disabilities from working. DOL and SSA established the DPN initiative to better inform beneficiaries and other people with disabilities about the work support programs available at DOL-funded One-Stop Career Centers. This initiative is developing new/ongoing partnerships to achieve seamless, comprehensive, and integrated access to services, creating systemic change, and expanding the workforce development system’s capacity to serve customers with disabilities and employers. As of October 2008, there were more than 4,425 DPNs in 43 States, the District of Columbia, and Puerto Rico. DOL awarded the DPN project evaluation to Mathematica Policy Research. The final DPN project evaluation is expected to be completed in 2010.
See http://www.doleta.gov/disability/.
The Administration for Children and Families (ACF), which administers the Temporary Assistance for Needy Families (TANF) program, and the Social Security Administration (SSA), which administers the Supplemental Security Income (SSI) program, are working together and in collaboration with several States and localities on the TANF/SSI Disability Transition Project. The objectives of the project are to examine the overlap in the TANF and SSI populations, document current approaches for identifying and working with individuals with a disability, and to identify approaches to work more effectively and efficiently with individuals who may be eligible for SSI. Initially SSA will measure the prevalence and outcomes of TANF applicants and recipients who have applied for SSI through data sharing agreements being developed with five States. ACF is developing and piloting promising approaches to screening and encouraging work activities.
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