Reseacrch Brief_Final.indd - Food Bank For New York City

Research Brief
THE HUNGER CLIFF
ONE YEAR LATER:
56 million meals lost
Need for emergency food remains high
ACKNOWLEDGMENTS
Food Bank For New York City thanks its members for the time and effort they devoted
to participate in this research.
PREPARED BY
William Guillaume Koible, Research Associate
Triada Stampas, Vice President for Research and Public Affairs
ABOUT FOOD BANK FOR NEW YORK CITY
Food Bank For New York City has been the city’s major hunger-relief organization working to end
hunger throughout the five boroughs for more than 30 years. Nearly one in five New Yorkers relies
on Food Bank for food and other resources. Food Bank takes a strategic, multifaceted approach
that provides meals and builds capacity in the neediest communities, while raising awareness
and engagement among all New Yorkers. Through its network of more than 1,000 charities and
schools citywide, Food Bank provides food for more than 63 million free meals for New Yorkers in
need. Food Bank For New York City’s income support services, including food stamps (also known
as SNAP) and free tax assistance for the working poor, put more than $100 million each year
into the pockets of New Yorkers, helping them to afford food and achieve greater dignity and
independence. In addition, Food Bank’s nutrition education programs and services empower
more than 275,000 children, teens and adults to sustain a healthy diet on a low budget. Working
toward long-term solutions to food poverty, Food Bank develops policy and conducts research to
inform community and government efforts. Learn how you can help at foodbanknyc.org.
BOARD OF DIRECTORS
CHAIR, Rev. Henry Belin
EXECUTIVE VICE CHAIR, Todd Aaron
VICE CHAIR, Jewel Jones
TREASURER, Arthur J. Stainman
SECRETARY, John F. Fritts, Esq.
Mario Batali
Gloria Pitagorsky
Peter L. Bloom
Lee Brian Schrager
Anthony C. Bowe
Eric Schwartz
Gail Grimmett
Michael Smith
Carla A. Harris
Stanley Tucci
Tam Ho
Robert Weinmann
Seraina Maag
Margarette Purvis
President and CEO
Introduction
Nearly 1.8 million New York City residents (approximately one in five) rely on the nation’s
Supplemental Nutrition Assistance program (SNAP, formerly known as Food Stamps). When
across-the-board cuts to SNAP benefits went into effect on November 1, 2013, more than a million
households in New York City lost, on average, nearly $18 per month in benefits.1 The food pantries
and soup kitchens in Food Bank For New York City’s citywide network reported immediate and
widespread increases in visitor traffic that month.
Hunger in NYC
• Almost 1.8 million New Yorkers rely on SNAP (food stamps).
• Nearly 1.4 million New Yorkers rely on emergency food for basic nutrition.
• NYC’s meal gap – the shortfall that
1.4 million food-insecure New Yorkers
face in a year – is 250 million meals.
Nearly one year later, has this increased
need been sustained, or was it a one-time
phenomenon? To answer this question, Food
Bank issued a follow-up survey to food pantries
and soup kitchens across the five boroughs
about client demand at their sites in September
2014, compared to September 2013 (two
months prior to the cuts). The findings presented
in this research brief provide a snapshot into the
need that continues to confront New York City’s
emergency food network since those sweeping
cuts to SNAP took effect.
The Hunger Cliff: More than 56 Million Meals Lost – and Counting
The SNAP cuts that took place on November 1, 2013 were legislated by Congress in the Healthy,
Hunger-Free Kids Act of 2010, as a tradeoff to pay for a six-cents-per-meal increase in federal
school lunch reimbursements.2 For the first time in the history of the program, all recipients saw their
benefits reduced.3 Note that more than one in three SNAP households in New York State have
children, and close to one third include someone who is elderly.4
What is the Meal Gap?
The Meal Gap represents the meals missing
from the homes of families and individuals
struggling with food insecurity (the lack
of sufficient money or other resources
to secure adequate, nutritious food yearround for all household members).
Factors like poverty and local food costs
determine how big a city’s meal gap is.
So far, these cuts have resulted in an 11-month
loss of more than 56 million meals in New York
City alone – more food than most food banks
across the country distribute in a year.5
Even before SNAP benefits were cut, foodinsecure New Yorkers were facing an
annual shortfall of 250 million meals in 2012.6
Emergency food programs like food pantries
and soup kitchens, approximately 800 of which
currently serve the five boroughs as part of
Food Bank For New York City’s network, work
to fill this meal gap, but current distribution falls
more than 100 million meals short of the need.
1
Food Bank For New York City analysis of reported SNAP participation and benefit data by the New York State Office of Temporary and Disability
Assistance and the New York City Human Resources Administration.
2
Public Law 111-296.
3
“November 1 SNAP Cuts Will Affect Millions of Children, Seniors and People with Disabilities.” Center on Budget and Policy Priorities. October 24, 2013.
4
Characteristics of Supplemental Nutrition Assistance Program Households: Fiscal Year 2012. United States Department of Agriculture. February 2014.
5
Food Bank For New York City analysis of reported SNAP participation and benefit data by the New York State Office of Temporary and Disability Assistance
and the New York City Human Resources Administration.
6
Gundersen, C., Engelhard, E., Satoh, A., & Waxman E. Map the Meal Gap 2014: Food Insecurity and Child Food Insecurity at the County Level.
Feeding America, 2014.
FOOD BANK FOR NEW YORK CITY
|
THE HUNGER CLIFF, ONE YEAR LATER
|
1
Meal
Gap by Community District
Meal Gap by Community District
MealAnnual
GapMeal
by Gap
Community
(in millions) District
Brooklyn
88
Bronx
53
Annual
Meal Gap (in millions) 45
Manhattan
Queens
55
Brooklyn
88 9
Staten Island
Bronx
53
NYC
Manhattan
45 250
Queens
55
Staten Island
9
NYC
250
Source: Food Bank For New York City analysis of Gundersen, C., E. Engelhard, A. Satoh, & E. Waxman.
Map the Meal Gap 2014: Food Insecurity and Child Food Insecurity Estimates at the County Level.
Feeding America, 2014.
Source: Food Bank
For New York
City analysis
of Gundersen,
C., E. Engelhard, A. before
Satoh, & E. Waxman.
Because
SNAP
benefits
are
often exhausted
the end of the month – particularly in New York City,
Map the Meal Gap 2014: Food Insecurity and Child Food Insecurity Estimates at the County Level. Feeding America, 2014.
where
foodFood
costs
areFor
higher
thanCity
average
recipients
are among
those&who
turn to emergency
Source:
Bank
New York
analysis–ofSNAP
Gundersen,
C., E. Engelhard,
A. Satoh,
E. Waxman.
Map
the
Meal
Gap
2014:
Food
Insecurity
and
Child
Food
Insecurity
Estimates
at
the
County
Level.
food
providers
for
needed
food.
Indeed,
even
before
benefits
were
reduced,
more
than
40New
percent
Because SNAP benefits are often exhausted before the end of the month – particularly in
Yorkof
Feeding
America,
2014.
SNAP
recipients
Neware
York
City were
pantries
and soup
helpwho
keepturn
foodtoon the
City,
where
food in
costs
higher
than utilizing
averagefood
– SNAP
recipients
arekitchens
among to
those
7
table.
emergency food providers for needed food. Indeed, even before benefits were reduced, more
Because
SNAP benefits are often exhausted before the end of the month – particularly in New York City,
than 40 percent of SNAP recipients in New York City were utilizing food pantries and soup kitchens
where
food
costs
are Recession
higher
– SNAP
recipients
are among
turn have
to emergency
7
Since
Great
of average
2007,
New
York City’s
food pantries
andthose
soup who
kitchens
struggled to
to helpthe
keep
food
on thethan
table.
food providers
for
needed
food.
Indeed,
even
before
benefits
were
reduced,
more
than
40
percent
meet increased need with diminished resources. The five years between 2007 and 2012 saw New of
York
Since
the
Great
Recession
of were
2007,
Newby
York
City’s
food
soup
have
struggled
SNAPCity’s
recipients
in New
Yorknetwork
City
utilizing
food
pantries
soup
kitchens
tokitchens
help
food
on the
emergency
food
shrink
25
percent
– and
apantries
loss
ofand
nearly
250
foodkeep
pantries
and
soup
table.to7 meet increased need with diminished resources. The five years between 2007 and 2012 saw
New York City’s emergency food network shrink by 25 percent – a loss of nearly 250 food pantries
8
It is within
thishave
already
grave to
– with
trying
fill the gaps.
Sinceand
thesoup
Greatkitchens
Recession
of remaining
2007, Newprograms
York City’s
foodtopantries
and soup
kitchens
struggled
cit of food
and
support
infrastructure
that
SNAP
took
place. 2007 and 2012 saw New York
meetdefi
increased
need
with
diminished
resources.
The
fivecuts
years
between
7
Hunger’s New Normal:
Redefiningshrink
Emergency
in Post-Recession
York
Food 250
Bank For
New
York City.and
2013.soup
City’s7 emergency
food network
by 25
percent – aNew
loss
ofCity.
nearly
food
pantries
8
Hunger’s New Normal: Redefining Emergency in Post-Recession New York City. Food Bank For New York City. 2013.
Serving Under Stress Post-Recession: The State of Food Pantries and Soup Kitchens Today. Food Bank For New York City. 2012.
FOOD BANK FOR NEW YORK CITY
7
|
THE HUNGER CLIFF, ONE YEAR LATER
|
Hunger’s New Normal: Redefining Emergency in Post-Recession New York City. Food Bank For New York City. 2013.
2
2
Findings
More than three-quarters (80 percent) of food pantries and soup kitchens surveyed reported an
increase
in the
number
of visitors
compared
to September
2013.
is within this2014,
already
grave deficit
of food
h remaining
programs
trying
to fill the
gaps. 8 inIt September
frastructure
that SNAP
cuts
took place.
• 34.6
percent
reported
an increase of 25 percent or less;
• 27.7 percent reported an increase between 26 percent and 50 percent; and
• 18.1 percent reported an increase of more than 50 percent.
Findings
These increases are comparable to the increases in visitor traffic reported by food pantries and
soup
kitchens
in November
2013, as
compared
to thesurveyed
immediately
preceding
months
ree-quarters
(80
percent)
of food pantries
and
soup kitchens
reported
an
(September/October
2013).
e number of visitors in September 2014, compared to September 2013.
nt reported an increase of 25
less;
ent reported an increase
6 percent and 50 percent;
Changes in Visitor Traffic at
Emergency Food Programs,
September 2014 vs. September 2013
ent reported an increase of
50 percent.
ses are comparable to the
isitor traffic reported by food
soup kitchens in November
mpared to the immediately
onths (September/October
13.5%
18.1%
6.1%
No change
27.7%
34.6%
Decreased
Increased by ≤ 25%
Increased by 26 - 50%
(60 percent) food pantries
Increased by > 50%
tchens reported that they
of food, or particular types of
to make adequate meals or
September 2014.
Three in five (60 percent) food pantries and soup kitchens reported that they had run out of food,
or12
particular
types
of food,
to make
meals
pantry
bags in September 2014.
increase of
percentage
points
from needed
the 48 percent
of adequate
food pantries
and or
soup
kitchens
This isduring
an increase
of 12
points from the 48 percent of food pantries and soup kitchens
hese shortages
the month
of percentage
November 2013.
reporting these shortages during the month of November 2013.
five (37 percent) food pantries and soup kitchens reported that they had turned
during the Nearly
month of
September
because
they
had run
outsoup
of food,
or particular
types
two
in five (372014
percent)
food
pantries
and
kitchens
reported
that they had turned
d to makepeople
adequate
meals
or
pantry
bags.
away during the month of September 2014 because they had run out of food, or particular
types of food required to make adequate meals or pantry bags.
increase of 11 percentage points from the 26 percent of food pantries and soup kitchens
This is an increase of 11 percentage points from the 26 percent of food pantries and soup kitchens
ed turning people away due to such food shortages during the month of November 2013.
that reported turning people away due to such food shortages during the month of November 2013.
ee in five (61 percent) food pantries reported reducing the number of meals in their
three in five
(61because
percent)
food
pantries
number of meals in their
during the More
monththan
of September
2014
they
had
run out reported
of food, orreducing
particularthe
types
pantry bags during the month of September 2014 because they had run out of food, or particular
types of food.
is an
increase of
38 percentage
from
percentthat
of food
pantries that reported
increase This
of 38
percentage
points
from the 23points
percent
of the
food23pantries
reported
number
ofbags
meals
in their
pantry
due to
suchthe
food
shortages
during the month
he numberreducing
of meals the
in their
pantry
due
to such
foodbags
shortages
during
month
of
2013.
of November 2013.
FOOD BANK FOR NEW YORK CITY
|
THE HUNGER CLIFF, ONE YEAR LATER
|
tress Post-Recession: The State of Food Pantries and Soup Kitchens Today. Food Bank For New York City.
3
3
Soup Kitchens
Percentage of Food Pantries &
Percentage
Food Pantries &
Soup of
Kitchens
Food
Shortages
NYC's
Food Shortages
in in
NYC's
Emergency
Food
Network
Emergency Food
Network
November2013
2013
November
September
September
2014 2014
70%
70%
60%
60%
50%
50%
48%
40%
48%
40%
30%
30%
20%
26%
26%
20%
10%
10%
0%
0%
61%
60%
60%
37%
37%
23%
61%
23%
Ran out of food for
Turned people away due Reduced amount of food
adequate pantry bags or
to food shortages
in pantry bags (food
Ran out
of food for
Turned people away due pantries
Reduced
amount of food
meals
only)
adequate pantry bags or
meals
Conclusions
to food shortages
in pantry bags (food
pantries only)
Conclusions
While the increases in visitors reported in November 2013 at emergency food providers were
dramatic,
these
ndings show
that elevated
need in2013
the wake
of the Hunger
Cliff providers
has remained.
While the
increases
in fivisitors
reported
in November
at emergency
food
were dramatic
Moreover, these findings likely paint a truer picture of the emergency food network’s challenges
hese findings
show
that
elevated
need
in
the
wake
of
the
Hunger
Cliff
has
remained.
Moreover,
thes
in addressing this need than the results from November 2013, as November is a month when
indings donations
likely paint
a truer
picturefood
of the
emergency
food high.
network’s
challenges
in addressing
to the
emergency
network
are unusually
In addition,
a class action
settlementthis nee
ehan
thethe
increases
in
visitors
reported
in
November
2013
at
emergency
food
providers
were
from2013
November
2013,
as November
month when
donations
to the
emergency
foo
inresults
November
that provided
retroactive
benefitsistoawrongfully
sanctioned
households
resulted
e
findings
show
that
elevated
need
in
the
wake
of
the
Hunger
Cliff
has
remained.
Moreo
in
tens
of
millions
of
dollars
in
additional
SNAP
benefi
ts
issued
to
New
York
City
residents
that
month.
network are unusually high. In addition, a class action settlement in November 2013 that provide
Thepaint
survey fiandings
from
September
2014,
by contrast,
refl
ectresulted
neither
holiday
giving
other
ngs
likely
truer
picture
of
the
emergency
food
network’s
challenges
in addressing
etroactive
benefits
to wrongfully
sanctioned
households
in tens
ofnor
millions
of dollars i
special circumstances.
Conclusions
additional
SNAP
issued2013,
to New
City residents
that month.
The survey
from
the results
frombenefits
November
as York
November
is a month
when donations
to findings
the emerg
Although
survey
results
do
not
specifi
cally
indicate
the
kind
of
visitors
driving
the
increases
September
2014, by contrast,
reflect
neither a
holiday
nor settlement
other special in
circumstances.
ork are unusually
high. In
addition,
classgiving
action
November 2013 tha
=demonstrated, the SNAP cuts that took effect on November 1, 2013 continue to represent the
systemic
factor reducingsanctioned
the food purchasing
power of low-income
– indeed,
active biggest
benefits
to wrongfully
households
resulted people
in tens
of millions of
Althoughother
survey
do not affect
specifically
indicate
the kind
of visitors
driving the increase
factorsresults
that meaningfully
emergency
food program
participation,
like local
ional SNAP
benefits
issued
to toNew
Yorksince
City
residents
that
month.
The survey find
9
demonstrated,
the SNAP
cuts
that took
effect on
November
1,2013
2013
to represent
– continue
making it likely
that SNAP the bigges
unemployment,
have
continued
decrease
November
ember 2014,
contrast,
neither
holiday
nor
other
special
circumstances.
recipients
experiencing
reduction
in benefi
ts are responsible
for the
increases
systemic
factor by
reducing
the areflect
food
purchasing
power
ofgiving
low-income
people
– seen.
indeed,
other factors tha
The operational
stress that emergency
foodparticipation,
providers continue
experience
as a result of
this continued t
meaningfully
affect emergency
food program
like to
local
unemployment,
have
9 percentages of food pantries and soup kitchens reporting that they
need
is
refl
ected
in
the
higher
ough
survey
results do2013
not – specifically
indicate
therecipients
kind ofexperiencing
visitors driving
the i
decrease
since November
making it likely
that SNAP
a reduction
had
run
out
of
food
for
adequate
meals
or
pantry
bags
or
that
they
had
to
turn
people
away
benefits
are responsible
thethat
increases
onstrated,
the SNAP for
cuts
took seen.
effect on November 1, 2013 continue to represent th
because they had run out of food in September 2014. In the same month, approximately three
emic factor
the
food that
purchasing
of amount
low-income
people
– indeed,
other fa
in five reducing
food pantries
reported
they had to power
reduce the
of food in
their pantry
bags
The
operational
stress
that
emergency
food
providers
continue
to
experience
as
a
result
of
this
need
because
they
had
run
out
of
food.
ningfully affect emergency food program participation, like local unemployment, have
co
eflected in the higher percentages
9 of food pantries and soup kitchens reporting that they had run out o
ease
November
– making
it likely
that
experiencing
ood forsince
adequate
meals or 2013
pantry bags
or that they
had to
turnSNAP
people recipients
away because
they had run aoutreo
Food Bank For New York City analysis of New York State Department of Labor data through September 2014.
fits are
responsible
forInthe
seen.
ood
in September
2014.
theincreases
same month,
approximately three in five food pantries reported that the
9
FOOD BANK FOR NEW YORK CITY
|
THE HUNGER CLIFF, ONE YEAR LATER
|
had to reduce the amount of food in their pantry bags because they had run out of food.
4
operational stress that emergency food providers continue to experience as a result of th
cted in the higher percentages of food pantries and soup kitchens reporting that they had
Policy Implications
Fortifying our emergency food system – the last line of defense against hunger – has never been
more crucial. That more than half of food pantries and soup kitchens ran out of food in a single
month should alarm and dismay every New Yorker who believes none of our neighbors should go
to bed hungry. Federal emergency food resources were increased in the last Farm Bill (passed in
January 2014); to respond to this crisis, our State and City governments should follow suit.
SNAP remains our nation’s first line of defense against hunger; monthly benefits enable more than
$250 million in food spending in New York City every month. However, research shows that the
adequacy of SNAP benefits was already an issue prior to November 2013 (given the 40 percent
participation rate of SNAP recipients in emergency food programs), and as these cuts indicate,
the households that rely on these resources cannot easily replace them. Congress should work to
address the issue of benefit adequacy so that this program can more effectively keep people off
food pantry and soup kitchen lines. Meanwhile, our State and City governments should redouble
their efforts to expand access to SNAP by availing of federal waivers and options to lower barriers
to access, and through targeted outreach efforts.
In addition, maximizing participation in school meals, through expansion of Universal School Meals
and Breakfast after the Bell options, will provide hundreds of thousands of New York City children
with access to a nutritious breakfast and lunch.
Acknowledging that poverty and food insecurity are closely linked, continued progress on proven
and effective poverty alleviation efforts, including expansion of the Earned Income Tax Credit
(EITC) and living wage jobs, should be a focus at all levels of government.
Methodology
To generate these findings, 567 food pantries and 148 soup kitchens (total=715) in Food Bank’s
emergency food network were surveyed about the number of visitors they saw in September 2014,
compared to September 2013.
The survey was sent in October 2014 to the email addresses of the directors of the food pantries
and soup kitchens currently listed as members of Food Bank’s agency network. The survey was
completed online, and returned to Food Bank electronically. A total of 260 completed surveys
(representing 36 percent of food pantries and soup kitchens) were randomly selected for analysis,
in proportion with the composition of Food Bank’s agency network as follows: 205 food pantries
(79 percent of the sample); and 55 soup kitchens (21 percent of the sample). The confidence
interval for results, at the 95 percent level, is plus or minus 5 percentage points.
FOOD BANK FOR NEW YORK CITY
|
THE HUNGER CLIFF, ONE YEAR LATER
|
5
FOOD BANK FOR NEW YORK CITY
Main Office
39 Broadway, 10th Floor
New York, NY 10006
t: 212.566.7855 | f: 212.566.1463
Warehouse / Distribution Center
Hunts Point Cooperative Market
355 Food Center Drive
Bronx, NY 10474
t: 718.991.4300 | f: 718.893.3442
Community Kitchen & Food Pantry
252 West 116th Street
New York, NY 10026
t: 212.566.7855 | f: 212.662.1945