New edition of Breadlines Knee-Deep in Wheat by Janet Poppendieck

Breadlines Knee-Deep in Wheat is a classic in the history of U.S. food policy, written by sociologist  Janet Poppendieck, focused on the connections between agricultural crisis and food programs for the poor in the Great Depression.

The new edition from the University of California Press, published this month, includes a foreword by Marion Nestle and a delightful new epilogue bringing the story up to date from the book's original publication in the 1980s to the present. And by "the present," I mean the book includes material as recent as the key January 2014 compromise over the Supplemental Nutrition Assistance Program (SNAP) provisions new Farm Bill. (In terms of the publishing mechanics, how is this even possible?).

I read the new manuscript last year at the request of the publisher (and recommended republication):

The book is well-written and detailed, making bureaucratic correspondence come alive as lively argument. It has an authoritative and believable voice, while still carrying passion for the plight of the poor and hungry. I knew this already from reading Poppendieck’s more recent books on the emergency food system and on school meals reform. The pig slaughter story will stick in my head permanently now. The use of archival material adds novelty, but the book serves well even digesting and interpreting known topics.

Immediately today I will add this book to my U.S. food policy syllabus and place an order request to my university library.

Bread for the World publishes 2014 Hunger Report

The faith-based anti-hunger advocacy organization Bread for the World today released its 2014 report on Ending Hunger in America.  This organization stands out for its economically sensible poverty-centered approach to thinking about the problem of hunger. 

It is right for such an organization to press for greater generosity in federal nutrition assistance programs (as Step #3 out of 4 steps).  But it also seems wise for Bread for the World to give jobs and education their proper place (as Steps #1 and #2). 

The #1 plank has the tag-line: "The best defense against hunger is a good job."

USDA Under Secretary Kevin Concannon speaks at the Friedman School

Kevin W. Concannon, USDA Under Secretary for Food, Nutrition, and Consumer Services spoke this month at the Friedman School's weekly Wednesday seminar.  He gave a broad overview of USDA's nutrition assistance programs and nutrition education initiatives.

Kevin W. Concannon has served as President Obama's and Secretary Vilsack's Under Secretary for FNS since July 2009.

He oversees the U.S. Food and Nutrition Service (FNS) which serves 1 in 4 Americans, and has lead responsibilities for promoting healthful diet through the Center for Nutrition Policy and Promotion.

Working in partnership with State and local organizations, FNS oversees the Supplemental Nutrition Assistance Program (SNAP), formerly known as the Food Stamp Program; child nutrition programs including National School Lunch, School Breakfast, and Summer Food Service Programs; The Child and Adult Care Food Program; the Special Supplemental Nutrition Program for Women, Infants, and Children (WIC); the Commodity Supplemental Food Program; Food Distribution Program on Indian Reservations; The Emergency Food Assistance Program; and other nutrition programs.

A video of the presentation and discussion is available from iTunes.

IOM report considers time constraints as part of assessing SNAP benefit adequacy

The Institute of Medicine, part of the National Academies, today released a consensus report on the adequacy of Supplemental Nutrition Assistance Program (SNAP) benefits.

The committee that prepared the report was led by Julie Caswell of UMASS Amherst.  Members included Mary Muth, Philip Gleason, Jim Ziliak, Barbara Laraia, Diane Schanzenbach, and others.  The committee had invited me to Washington for a workshop in spring 2012 to give a presentation (.pdf) about the economics of the SNAP benefit formula, the procedure that the federal government uses to assign a benefit amount to each participant household based on its income and other characteristics.

In one notable conclusion of today's report, the committee suggested that the federal government should account for the difficulty low-income families face in finding sufficient time to cook at home.  The implication is that the government could consider increasing SNAP benefits to provide low-income households with sufficient resources to purchase more convenient and easy-to-prepare foods:

Time—USDA-FNS should recognize the cost-time trade-offs involved in procuring and preparing a nutritious diet. The dollar value of the Thrifty Food Plan (TFP), with its strong reliance on preparation of meals from basic ingredients, does not account for time constraints faced by most households at all income levels, particularly those with a single working head of household, which necessitate purchasing value-added or prepared foods with a higher cost. USDA-FNS should examine the impact of accounting for cost-time trade-offs, for example, by:

• applying a time adjustment multiplier to the cost of the TFP or reviewing options for adjustments to the current cost of the plan, and

• adjusting the earned income deduction to reflect more accurately time pressures for participants who are working. 

One question is whether encouraging greater food spending on convenient foods would have any health or environmental consequences.  For example, convenience foods tend on average to have more sodium and more packaging than their traditional counterparts.

Clearly, an increased benefit to allow for convenience foods would be a special boon for highly time-constrained households -- think for example of the dreadfully tight time budget for a low-income working single parent.  Yet, many other low-income SNAP participants are retired, or live in households that include a non-working adult.

Some low-income households are able to -- and even want to -- cook at home.  For these households, it might be counter-productive to increase the maximum benefit to a level based on the price of expensive convenience foods, while simultaneously forbidding the households to economize on food and use the savings for non-food needs such as housing and transportation.

While you're thinking this over, I thought it would be helpful to conclude with some real data from the American Time Use Survey for 2011.  Most of the leisure time segment at all education levels is for television and other screen-time recreation. Source: American Time Use Survey. Note: the amount of work time appears smaller than you may expect, because the data include both weekdays and weekends, averaged for working and non-working persons aged 15 and older.

SNAP benefits surpass 10% of all grocery spending

In 2010, for the first time, SNAP benefits appear to have surpassed 10% of all grocery spending.

This seems to me like a significant threshold.  The program formerly known as food stamps is not just an important part of the safety net.  It plays a big role in the U.S. retail economy more generally.  It should be a national priority to seek economic growth of the sort that reaches all the way to the low-wage labor market.  The last time we had that type of poverty-reducing economic growth for a sustained period was the late 1990s.

I provide more detail about recent program trends in "The New Normal: The Supplemental Nutrition Assistance Program (SNAP) (gated)," published this week in the American Journal of Agricultural Economics (AJAE).  The paper came out of a lively conference session, organized by Benjamin Senauer and including papers by himself and Mark Rosegrant, Mike Boehlje, Brent Gloy, Jason Henderson, and Tim Beatty.

This figure compares administrative data on SNAP benefits to USDA's two data series on aggregate food spending.  Depending on the measure of food spending used, SNAP now represents 10% to 17% of the food retail economy.

Figure 4.

Total SNAP benefits, as a percentage of food at-home sales in food stores and in total, 1981–2010

Author's computation based on USDA/FNS annual SNAP data (converted from fiscal year to calendar year by interpolation) and USDA/ERS annual national food spending data by calendar year.

House bill would cut food assistance programs, protect farm subsidies

According to the Associated Press summary, the appropriations bill passed by the Republican-led House of Representatives would cut WIC and international food aid, while protecting most farm subsidies.

The AP report said the bill:

• Directs the Agriculture Department to rewrite rules it issued in January meant to make school meals healthier. Republicans say the new rules, the first major overhaul of school lunches in 15 years, are too costly.
• Forces USDA to report to Congress every time officials travel to promote the department’s “Know Your Farmer, Know Your Food” program, which supports locally grown food, and discourages the department from giving research grants to support local food systems. Large agribusiness has been critical of the department’s focus on these smaller food producers [note: see earlier post for context].
• Prevents USDA from moving forward with new rules that would make it easier for smaller farmers and ranchers to sue large livestock companies on antitrust grounds. The proposed rules are meant to address the growing concentration of corporate power in agriculture.
• Delays for more than a year new rules for reporting trades in derivatives, the complex financial instruments blamed for helping precipitate the 2008 financial crisis. A Republican amendment adopted Thursday would require the Commodity Futures Trading Commission, which funded in the bill, to first have other rules in place to facilitate its collection of derivatives market data.
• Prevents the FDA from approving genetically modified salmon for human consumption, a decision set for later this year.
• Questions the scope of Obama administration initiatives to put calories on menus and limit the marketing of unhealthy foods to children.

The tart AP article was mentioned in our comments section recently, and was covered by Alex Tabarrok at Marginal Revolution under the rueful headline, "Not from the Onion."

Odd food stamp policy story

The income cutoffs and benefit formula for the SNAP (food stamp) program are not as crazy as you sometimes read.

The AP's Matt Apuzzo today tells the sad story of Georgia resident Mark Milota, whose $25 increase in monthly unemployment benefits put him over the income cutoff for the SNAP program (food stamp benefits).

The Georgia Department of Human Resources explained in a letter to him last month that, because of the stimulus, he was ineligible for food stamps. He now makes $1,538 a month — $21 too much for a family of two to qualify.

"We have to pay him that $25 a week," said Brenda Brown, assistant commissioner at the Georgia Department of Labor. "And he doesn't have the option not to accept it."

Milota said he was told that, without the stimulus money, he would have received about $300 a month in food stamps.

The Consumerist picks up the "government shoots itself in foot" story line. The commenters are outraged and have a great suggestion:

The REAL problem here is that government programs like food stamps have "hard cutoffs". Instead, they should have "graduated reduction". The way this can work is that for every $3 over a certain amount, the program benefit is reduced by $1. If this were applied to Mark Milota's case, then for being over the level by $21, his food stamps would be reduced by only $7.

The funny thing is that this is how the SNAP benefit formula already works. The poorest participants get the maximum benefit. People close to the income cutoff generally get a smaller benefit.

The story about Mr. Milota seems odd. I wonder if Mr. Apuzzo got the details wrong or quoted Mr. Milota overstating the situation.

The income cutoff for a family of two is indeed $1517, so if Mr. Milota started with $1513 monthly, it makes sense that his extra $25 monthly would make him ineligible. But, I have trouble seeing how he could have lost $300 monthly in food stamp benefits in this situation.

The eligibility rules give Mr. Milota a maximum monthly benefit ($367 monthly) minus 30% of his net income after deductions. The deductions, subtracted from his income, include a standard deduction ($144), an excess shelter deduction (probably a couple hundred dollars and at most about $400, I think), and some other deductions that are typically smaller. Unless his is a very unusual case, with much higher deductions than that, he had several hundred dollars in net income. I would be surprised if the $25 in new unemployment benefits caused a net loss for Mr. Milota. If he did have a net loss, I'd be still more surprised if it were $300. It seems more likely that somebody looked up and misunderstood the rules, thinking that Mr. Milota would be eligible for the maximum benefit despite having monthly income substantially greater than the federal poverty standard.

I don't think that yet more complex stimulus package legislation, anticipating every obscure boundary case in food stamp eligibility rules, would have been wise policy making. The "government gone bad" story line seems misplaced here.

Thanks to Jack at Fork & Bottle for pointing me toward this story.

Update (6/23/2009): Corroborating the gist of this post, the Center on Budget and Policy Priorities estimates that only perhaps 1/3 of 1% of unemployment insurance recipients might have been disadvantaged by the stimulus benefits.

Nutrition in the stimulus

For all the pomp about the circumstances of cuts to spending in the Senate's version of the stimulus bill, the Senate has actually included some better child nutrition provisions than the House.

Either way, there are significant differences in the child nutrition (and other nutrition-related) provisions in the House and Senate bills. FRAC has an overview of the differences between the two versions. As details are being ironed out as we read, call your Representative and Senators and let them know that these are both important to the safety net for the growing number of unemployed Americans, as well as some of the most far-reaching ways that taxpayer dollars can be used- SNAP (formerly food stamps) generates $1.80 for every dollar spent.

Some key differences:

• School Food Service: Senate has $100 million for school food service equipment. This is extremely important to enabling school food service to prepare fresh, healthy meals with local ingredients. Without, they are much more tied to the unhealthy, highly processed (and not to mention gross!) meals produced off-site with low quality ingredients.Keep the Senate version!

• SNAP: House has $20 billion, Senate has $16 billion to increase monthly food stamp allotment. Keep House version!

• WIC: Senate has $380 million to fund growing WIC caseload (as this is not an entitlement program). Keep Senate version!

The House also has a few hundred million dollars more for after school supper programs and senior meal. And the final bill most keep the provision in both versions which suspends 3-month waiting period for jobless adults to enroll in food stamps-- we know that the majority of food insecurity in American households occurs for short periods of time-it is essential as part of the stimulus package to make sure these benefits are available.

Not sure if it's better for folks to contact the Conference Committee members (below) or their own Representatives or Senators:

Who's on the Conference Committee:
The House and Senate have appointed conferees to work out their differences and craft a bill for a final vote in both chambers by the end of the week.

House conferees: Approps. Chair David Obey (D-WI), House Ways and Means Chair Charles Rangel (D-NY), Ed and Labor Chair George Miller (D-CA), Transportation and Infrastructure Chair James Oberstar (D-MN).

Senate conferees: Finance Chair Max Baucus (D-MT), Appropriations Chair Daniel Inouye (D-HI), Majority Leader Harry Reid (D-NV), Ranking Finance Mbr: Charles Grassley (R-IA), Ranking Approps Mbr: Thad Cochran (R-MS).
cross-posted to The Jew and the Carrot and La Vida Locavore