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 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. An updated version of the model uses the 2004 SIPP matched to administrative records. We are
developing a participation rate estimate for the elderly based on the 2004 model and examining patterns of differences from previous estimates in the literature.
We used the model 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, we expanded the model 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. We used the expanded model to assess SSI’s role in complementing DI and enhancing the safety net for the working-aged population (Rupp, Davies, and Strand, 2008). We simulated 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 for current elderly, working-age, and child SSI populations provide up-to-date estimates for potential program changes. We also studied eligibility for Medicare buy-in programs with the financial eligibility model (see Rupp and Sears 2000; Sears 2001/2002). In unpublished internal research, we used the model 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) addressed 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, the NSCF includes 8,535 completed interviews, including 5,006 who received SSI benefits in December 2000 and 5,033 who received SSI benefits in December 1996. NSCF documentation is 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 using these data are discussed in section c below. Although it was a cross-sectional data collection effort, we continue to update the match between NSCF and SSI administrative records with longitudinal data on SSI program participation.
A number of studies by SSA researchers 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) estimates 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) tracks 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. Another 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 (Davies and Hemmeter 2010). Hemmeter (2009) examines the occupational distribution of SSI disability recipients aged 18-61 who work. Hemmeter and Gilby (2009) analyzes age-18 redetermination outcomes for SSI youth, including appeals of initial cessations and subsequent reapplications for benefits after a period of ineligibility.
Several studies focus on the distributional effects of the SSI program through its interactions with other Federal and State programs. One on-going 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. (2008) 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. Strand (2010) 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. Rupp, Davies, and Strand (2008) finds that over one-third of the working-age population is covered by SSI in the event of a severe disability, providing disability benefit coverage to many who are not DI-insured and enhancing the potential bundle of disability cash benefits among a substantial segment of those who are DI-insured. Rupp and Riley (forthcoming) analyzes longitudinal patterns of interaction between DI and SSI and finds that a quarter of the year 2000 cohort of first-ever working age disability awardees were involved with both programs over a 60 month period. On-going research by Rupp and Riley 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. Meijer, Karoly, and Michaud (2009, 2010) analyzes eligibility for the Medicare Part D Low Income Subsidy, which is based on a simplified SSI methodology. Kemp (2010) conducts a descriptive analysis of the SSI Student Earned Income Exclusion.
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 utilize 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 studies employment and caregiving patterns of parents of SSI children (Rupp and Ressler 2009), examines employment and program outcomes among young adults after their eligibility redetermination at age 18 (Hemmeter, Kauff, and Wittenburg 2009), and analyzes factors affecting out-of-pocket medical expenses and unmet health care needs of disabled children (DeCesaro and Hemmeter 2009). These papers appear in a special issue of the Journal of Vocational Rehabilitation (volume 30, number 3) devoted to SSI children and young adults and the transition to adulthood. The special issue also includes 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 (Davies, Rupp, and Wittenburg 2009), as well as two papers that focus on SSA’s Youth Transition Demonstration (Fraker and Rangarajan 2009; Luecking and Wittenburg 2009). The articles from the special issue are available on SSA’s web site at
http://socialsecurity.gov/policy/JVR.html.
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. The evaluation includes a survey of beneficiaries with disabilities and participants in the Ticket to Work program that collects 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 have concluded with an overall response rate of 78 percent, with responses from more than 20,000 beneficiaries with disabilities. We delayed Round Four of the survey because of the Ticket to Work program changes implemented in 2008. We completed Round Four in 2010.
We submitted the first evaluation report to Congress in 2004 (Thornton et al. 2004)
1, and also published the first interim evaluation report early in 2006 (Thornton et al. 2006)
1. We submitted the third, post-FY 2005, evaluation report to Congress in October 2007 and the post-FY 2006 report in October of 2008.
The reports indicate low but growing participation rates with the vast majority of ticket assignments going to State vocational rehabilitation agencies. The findings thus far indicate that the Ticket to Work program has significant potential, but the program needs improvements in beneficiary awareness and Employment Network (EN) incentives. Survey findings show that many more beneficiaries are interested in joining the workforce than is reflected in Ticket to Work participation. Most beneficiaries remain unaware of the Ticket to Work program despite various efforts 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 not receiving benefits for sustained periods. The evaluation has also found that employment success may take longer to achieve than 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 four years after Ticket to Work participation began. Participation by ENs had been anemic, and the evaluation indicated that the initial payment rules were insufficient for ENs to cover their costs. Our initiatives to reduce EN costs helped but were not enough to help ENs reach financial viability. In July 2008, we implemented new regulations for the Ticket to Work program. In the evaluation, we reviewed these new rules and found that they are likely to increase the early payments to ENs significantly, thereby making the program more financially attractive to a broader range of service providers. This development, in turn, holds promise for expanding EN availability and reinvigorating the program.
The fifth evaluation report is a series of short papers focused on the employment efforts of working-age SSI recipients and SSDI beneficiaries and on our work incentives and supports designed to encourage their employment. Each paper explores a specific aspect of the ticket evaluation. These papers improve our understanding of beneficiary employment experiences and the factors that both enhance and inhibit successful employment outcomes. This report does not discuss the effects of the new regulations the agency implemented in July 2008. The sixth evaluation report will include preliminary effects of the new regulations.
Highlights from the fifth report include a study using our National Beneficiary Survey to identify and analyze working-age beneficiaries with disabilities who had work goals or expectations. These “work-oriented” beneficiaries are a key target population for the Ticket to Work program. They make up 40 percent of working-age disability beneficiaries and are about 9 times more likely to participate in employment-related activities. The findings show that significant numbers of beneficiaries are attempting work and many are leaving cash benefits, at least temporarily. At any given point in time, about 21 percent of these work-oriented beneficiaries had jobs, while 45 percent had jobs at some point during the four-year period after we interviewed them. Ten percent of work-oriented beneficiaries left cash benefits due to work in at least one month during this four-year period.
This report also includes a long-term analysis of beneficiaries who first received SSDI benefits in 1996, followed over ten years. This analysis found that by 2006, 6.5 percent of these beneficiaries had their cash benefits suspended due to work for a least one month, and 3.7 percent had completely terminated their SSI or SSDI cash benefits due to work. At the end of ten years, 2.7 percent of the 1996 cohort had exited due to work, remained alive and of working age, and remained off the SSDI rolls. Most of these beneficiaries who exit cash benefits do so without participating in Ticket to Work or the state vocational rehabilitation programs, but those who exit after Ticket to Work program participation tend to have better long-term employment outcomes.
Another study shows that while benefit suspensions and terminations for work are usually not permanent, they do tend to continue for many months. Among those who leave cash benefits for at least one month, SSDI beneficiaries will typically spend about half of the next four years in zero benefit status, and SSI recipients will spend about one-third of the next four years in zero benefit status.
We modified the Ticket evaluation contracts 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 2004, we awarded funds to 41 service providers nationwide to provide outreach services to the homeless population. We trained these service providers and gave them training materials so they could assist homeless individuals with our disability application process. In October 2007, Westat, the evaluation contractor, released the final evaluation report. We are currently conducting a longitudinal evaluation of HOPE. Findings from this analysis will be available later in 2011.
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, we piloted new projects in five States, choosing three new projects in Florida, Maryland, and West Virginia. These three projects joined 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 YTD projects in Colorado and New York have ended. The Florida, Maryland, and West Virginia projects are implementing the interventions and services and will end in 2012. A comprehensive final report of the six random assignment projects is due in August 2014.
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 confusing and often conflicting sets of rules that prevent many disabled persons from working. 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 developed 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. The contractor, Mathematica Policy Research, Inc., completed the final DPN evaluation in May 2010. See http://www.doleta.gov/disability/.
Both welfare agencies and the federal disability system seek to support people with disabilities and help them become more independent. However, the two systems often have differing missions and organization, definitions of disability, operational and financial issues, and work rules and incentives, making it challenging for the Temporary Assistance for Needy Families (TANF) and Supplemental Security Income (SSI) programs to work together. TANF clients who apply for SSI may also confront conflicting messages from TANF agencies regarding work requirements and benefit eligibility.
To improve our understanding of the relationship between the TANF and SSI populations and programs, our Office of Program Development and Research and the Administration for Children and Families (ACF) launched the TSDTP in October 2008. Working with ACF, TANF agencies in California, Florida, Michigan, Minnesota, and New York, select counties in these States, and the evaluation firm MDRC, we will analyze program data and pilot-test program interventions for TANF clients with disabilities. SSA, ACF, TANF agencies, and low-income individuals with disabilities and their families benefit from effective and efficient services - moving toward employment when possible, making informed decisions about applying for SSI, receiving SSI as quickly as possible, and reducing administrative costs. The project will conclude in September 2012 with our recommendations regarding a larger demonstration project on coordinating TANF and SSI.
We are conducting research to create an occupational information system (OIS) for the agency's disability program adjudicative needs. The OIS will be a long-term replacement for the occupational information contained in the Dictionary of Occupational Titles (DOT) and other companion volumes such as the Selected Characteristics of Occupations and the Revised Handbook for Analyzing Jobs. The Department of Labor has not updated the DOT since 1991 and has no plans to conduct further updates. The new OIS will serve as the primary source of information about jobs and job requirements critical to evaluating disability including information not contained in the DOT.
For FY 2011, research and development activities include review and analysis of baseline information from a sample of approximately 3,800 initial claims and 1,300 appellate level cases. The study will tell us which jobs occur most frequently in claimant vocational profiles and which jobs we most commonly cite in Step 5 framework denials. This information will help us identify the occupations with the highest prevalence in disability decisions, and consequently, which to analyze first for the new OIS. We are also conducting an investigation of international and domestic OISs, including review of prior agency work, literature reviews, and interviews with officials to inform our selection of methods and techniques. To establish a rigorous basis for developing and evaluating the OIS, we are also identifying criteria for OIS legal defensibility, scientific research, and operational feasibility. This activity involves consultation with internal and external experts and reviews of relevant legal, regulatory, professional, and scientific precedents.
In addition, we are developing a content model incorporating internal workgroup expertise, public comments, user needs analyses, and Occupational Information Development Advisory Panel recommendations to identify common themes and data elements that will inform the development of a work analysis instrument. We are also investigating various strategies used across industries to train, certify, and recruit job analysts. From that work, in FY 2012 we will develop and test a work analysis instrument and an agency strategy to recruit, train, and certify job analysts for conducting job analyses that will serve as the basis of the OIS content. We project that, by FY 2013, we will use the results from the testing to revise our content model and to inform a national data collection effort.
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Balkus, Richard and Susan Wilschke. Treatment of Married Couples in the SSI Program. Issue Paper No. 2003-01. Washington, DC: Office of Disability and Income Assistance Policy, Office of Policy, Social Security Administration, December 2003.
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________ .
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Dobkin, Carlos and Steven L. Puller. “The Effects of Government Transfers on Monthly Cycles in Drug Abuse, Hospitalization and Mortality.”
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________. The Impact of Child SSI Enrollment on Household Outcomes: Evidence from the Survey of Income and Program Participation. National Bureau of Economic Research Working Paper No. 11568, August 2005.
Elder, Todd and Elizabeth Powers. A Longitudinal Analysis of Entries and Exits of the Low-Income Elderly to and from the Supplemental Security Income Program. Michigan Retirement Research Center Working Paper No. 2007-156, University of Michigan Retirement Research Center, October 2007.
________. Public Health Insurance and SSI Program Participation Among the Aged. Michigan Retirement Research Center Working Paper No. 2006-117, University of Michigan Retirement Research Center, April 2006.
________. “The Effect of Falling SSI Generosity on SSI Participation Among the Aged Since the 1970s.” Proceedings of the 98th Annual Conference on Taxation of the National Tax Association (2005): 400-406.
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Liu, Su and David C. Stapleton. “Longitudinal Statistics on Work Activity and Use of Employment Supports for New Social Security Disability Insurance Beneficiaries.”
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Livermore, Gina, Allison Roche, and Sarah Prenovitz. “Longitudinal Experiences of an Early Cohort of Ticket to Work Participants.” Evaluation of the Ticket to Work Program, Report 5: Work Activity and Use of Employment Supports Under the Original Ticket to Work Regulations Washington, DC: Mathematica Policy Research, 2011. Washington, DC: Mathematica Policy Research, 2011.
________. “SSI and DI Beneficiaries with Work-Related Goals and Expectations.” Evaluation of the Ticket to Work Program, Report 5: Work Activity and Use of Employment Supports Under the Original Ticket to Work Regulations Washington, DC: Mathematica Policy Research, 2011.
________. “Longitudinal Experiences of an Early Cohort of Ticket to Work Participants.” Work Activity and Use of Employment Supports Under the Original Ticket to Work Regulations Report No. 10. Washington, DC: Mathematica Policy Research, 2010.
________. “SSI and DI Beneficiaries with Work-Related Goals and Expectations.” Work Activity and Use of Employment Supports Under the Original Ticket to Work Regulations Report No. 5. Washington, DC: Mathematica Policy Research, 2009.
Livermore, Gina, and David Stapleton. “Highlights of the Fifth Ticket to Work Evaluation Report.” Evaluation of the Ticket to Work Program, Report 5: Work Activity and Use of Employment Supports Under the Original Ticket to Work Regulations. Washington, DC: Mathematica Policy Research, 2011.
Livermore, Gina, and Sarah Prenovitz. “Benefits Planning, Assistance, and Outreach (BPAO) Service User Characteristics and Use of Work Incentives.” Evaluation of the Ticket to Work Program, Report 5: Work Activity and Use of Employment Supports Under the Original Ticket to Work Regulations Washington, DC: Mathematica Policy Research, 2011.
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