Ai, Food Insecurity, and California's Vulnerable Populations

Artificial Intelligence, Food Insecurity, and California’s Vulnerable Populations Report #285 | December 2024 Milton Marks Commission on California State Government Organization and Economy www.lhc.ca.gov LITTLE HOOVER COMMISSION Dedicated to Promoting Economy and Pedro Nava* Efficiency in California State Government Chair The Little Hoover Commission, formally known as the Milton Anthony Cannella Marks “Little Hoover” Commission on California State Government Vice Chair Organization and Economy, is an independent state oversight agency. Dion Aroner David Beier By statute, the Commission is a bipartisan board composed of five public members appointed by the governor, four public Asm. Phillip Chen members appointed by the Legislature, two senators and Gil Garcetti two assemblymembers. José Atilio Hernández* Jason Johnson In creating the Commission in 1962, the Legislature declared Asm. Liz Ortega its purpose: Janna Sidley ...to secure assistance for the Governor and itself in *Served on study subcommittee promoting economy, efficiency and improved services in the transaction of the public business in the various departments, COMMISSION STAFF agencies and instrumentalities of the executive branch of Ethan Rarick the state government, and in making the operation of all Executive Director state departments, agencies and instrumentalities, and all expenditures of public funds, more directly responsive Tamar Foster to the wishes of the people as expressed by their elected Deputy Executive Director representatives... Krystal Beckham Daniel Harris-McCoy The Commission fulfills this charge by listening to the public, Ashley Hurley consulting with the experts and conferring with the wise. In the course of its investigations, the Commission typically empanels Shara McAlister advisory committees, conducts public hearings and visits Allie Powell government operations in action. Cover image created with Imagen 3 Its conclusions are submitted to the Governor and the Legislature for their consideration. Recommendations often take the form of legislation, which the Commission supports through the legislative process. Contacting the Commission All correspondence should be addressed to the Commission Office: Little Hoover Commission 925 L Street, Suite 805, Sacramento, CA 95814 (916) 445-2125 | LittleHoover@lhc.ca.gov This report is available from the Commission’s website at www.lhc.ca.gov. Letter from the Chair December 13, 2024 The Honorable Gavin Newsom Governor of California The Honorable Mike McGuire The Honorable Brian Jones President pro Tempore of the Senate Senate Minority Leader and members of the Senate The Honorable Robert Rivas The Honorable James Gallagher Speaker of the Assembly Assembly Minority Leader and members of the Assembly DEAR GOVERNOR AND MEMBERS OF THE LEGISLATURE: Millions of Californians depend on state and county government assistance for basic needs. There are millions more yet who are not enrolled in any assistance programs and cannot afford to buy enough food for themselves and their families. Following Governor Newsom’s 2023 executive order implementing AI in state government operations, the Little Hoover Commission launched a study on how artificial intelligence can help California better serve its vulnerable populations, with a particular focus on addressing food insecurity. In this report, the Commission provides recommendations on how the state can expand its existing AI efforts to include utilizing AI tools to combat food insecurity, as well as address social challenges and support disadvantaged communities. The Commission respectfully submits this work and stands prepared to help you take on this challenge. Sincerely, Pedro Nava, Chair Little Hoover Commission 1 | LITTLE HOOVER COMMISSION Table of Contents EXECUTIVE SUMMARY ......................................................................3 INTRODUCTION .................................................................................5 RECOMMENDATIONS .......................................................................6 Increase CalFresh Enrollment........................................................................6 Improve Existing Systems..............................................................................7 College Students............................................................................................12 Language Access and Immigration..............................................................14 CalFresh Retention........................................................................................15 Electronic Benefit Transfer (EBT).................................................................16 Farms and Farmers........................................................................................17 Food Hackathon.............................................................................................19 Coordination and Oversight.........................................................................19 AI AND VULNERABLE COMMUNITIES: A FRAMEWORK ..............21 NOTES ...............................................................................................23 ARTIFICIAL INTELLIGENCE, FOOD INSECURITY, AND CALIFORNIA’S VULNERABLE POPULATIONS | 2 Executive Summary Millions of Californians depend on state and county vulnerable communities, such as the education assistance for essential needs. More than 5.5 million achievement gap, lack of economic opportunities, residents currently receive food assistance through and high cost of living. This framework emphasizes CalFresh, also known as SNAP or food stamps. And a aligning AI initiatives with pressing social issues, similar number of additional residents who are not developing versatile tools that can be adapted across enrolled in CalFresh cannot afford to buy enough nu- agencies, and tailoring solutions to the unique needs tritious food for themselves and their families. of diverse populations. To ensure transparency and accountability, we propose an “AI for All” dashboard In September 2023, Governor Newsom issued to track California’s progress in deploying AI solutions an executive order on the implementation of and supporting vulnerable communities effectively. generative AI (GenAI) in government operations. The order emphasized California’s values, highlighting By committing to an inclusive and equitable concerns about GenAI’s potential negative impacts AI strategy, California can lead the nation in on “historically vulnerable” and “marginalized” transforming public services. With thoughtful communities. policy and technological innovation, the state has the potential to revolutionize aid delivery systems, This report builds on that foundation, providing ensuring no resident is left behind. To this end, we recommendations for using AI tools to combat recommend that the state take the following actions: food insecurity and offering a broader framework for leveraging AI to address social challenges RECOMMENDATION 1: INCREASE CALFRESH ENROLLMENT and support disadvantaged Californians. These A significant number of Californians do not enroll in recommendations fall into four broad categories: CalFresh despite being eligible. The California De- ◊ Increasing Access to Food Aid: Leverage AI partment of Social Services should solicit AI-powered to reduce barriers to CalFresh enrollment and solutions to close this gap. retention, focusing on underserved groups such RECOMMENDATION 2: IMPROVE EXISTING as college students, non-English speakers, and SYSTEMS immigrants. AI should be used to improve how Californians ◊ Improving Systems and Coordination: Use access food aid and social services, enhance support AI to enhance food aid systems like CalSAWS for county workers, and streamline public feedback and BenefitsCal while addressing program silos through BenefitsCal and CalSAWS. The CalSAWS through better coordination and oversight. governance structure should also be expanded ◊ Innovative Food Access Solutions: Apply AI to to include state representatives, community improve EBT programs and encourage public par- organizations, and the public in order to foster ticipation through hackathons aimed at tackling innovation and ensure solutions address real-world food access challenges. needs. ◊ Supporting Small Farmers: Provide grants RECOMMENDATION 3: COLLEGE STUDENTS to help small farmers adopt AI technologies, College students are often food insecure but have ensuring equitable access to advanced a hard time enrolling in CalFresh due to complex agricultural tools. eligibility requirements and other barriers. The state This report concludes with a framework for using should increase CalFresh enrollment among college AI to address broader social challenges affecting students using AI- and data-driven solutions. 3 | LITTLE HOOVER COMMISSION RECOMMENDATION 4: LANGUAGE ACCESS AND IMMIGRATION Limited English skills and concerns relating to immigration status are known barriers to accessing food aid. The state should leverage the multilingual and explanatory capabilities of GenAI to support CalFresh enrollment and service delivery for non- English speakers and immigrants. RECOMMENDATION 5: CALFRESH RETENTION A high proportion of CalFresh enrollees do not re-enroll despite being eligible to do so. The state should explore AI solutions to study and improve CalFresh retention. RECOMMENDATION 6: ELECTRONIC BENEFIT TRANSFER (EBT) To improve the efficiency and effectiveness of EBT programs, the state should use AI to enhance user experience, streamline access to resources and support, and help optimize resource distribution. RECOMMENDATION 7: FARMS AND FARMERS Farmers can benefit from AI technology, but this technology is cost-prohibitive to many smaller farmers. The state should establish grants to support AI adoption by these farmers. RECOMMENDATION 8: FOOD HACKATHONS There is interest and ability within the public to develop novel technological solutions to society’s problems. The state should host inclusive hackathons to explore technology-based solutions to the problem of food access. RECOMMENDATION 9: COORDINATION AND OVERSIGHT Food aid programs in California are fragmented across multiple agencies, programs, and stakeholders. A Food Security Council should be established to help coordinate and oversee the state’s efforts in this area. ARTIFICIAL INTELLIGENCE, FOOD INSECURITY, AND CALIFORNIA’S VULNERABLE POPULATIONS | 4 Introduction Millions of Californians depend on state and county transform its service delivery and ensure that no one assistance for essential needs. In August 2024, is left behind. more than 5.5 million residents—14% of the state Leveraging AI can help California address a critical population—received food assistance through problem: inadequate access to food. In the process, CalFresh, also known as SNAP or food stamps. A the state can modernize its data systems and social similar number of additional residents who are not service infrastructures to better connect individuals enrolled in CalFresh cannot afford to buy enough to the benefits for which they are eligible. This will nutritious food for themselves and their families. This not only enhance current efforts but also establish a tragedy is made worse by the high cost of housing, model for using technology to address other pressing healthcare, childcare, and utilities in California, social issues. making government support crucial.1 About 4.5 million Californians—11.4% of the state’s Better use of technology—especially through data households—cannot afford to buy “enough food for sharing and artificial intelligence (AI)—could help an active, healthy life”.5 Around 1.6 million California more vulnerable Californians access the aid they are residents (4.1%) experience actual hunger.6 This is entitled to but may not be receiving. slightly lower than the national averages of 13.5% In September 2023, Governor Newsom issued an and 5.1%, respectively. executive order on implementing generative AI Other sources of data give food insecurity figures (GenAI) in government operations.2 In particular, the for California that are markedly higher than the order emphasized California’s values, highlighting figures provided by the USDA. Using data from the concerns about GenAI’s potential negative impacts US Census Household Pulse Survey, the California on “historically vulnerable” and “marginalized” Association of Food Banks has estimated that 22% communities. It also directed state agencies to come of all California households and 27% of households up with guidelines for assessing GenAI’s impact on with children were food insecure in September 2024.7 these populations and for ensuring its use leads to Indeed, the higher figures may be more accurate, as equitable outcomes.3 the lower USDA rates have been shown to be skewed Technology alone cannot solve California’s many by recall bias and cultural factors.8 complex challenges, and there are well-documented Food insecurity is notably higher in Black, risks related to artificial intelligence, such as bias, Latino, Native American, non-citizen Asian, and inaccuracy, and privacy and data security concerns.4 undocumented immigrant households as well as That said, advanced technology—and AI and data households with children.9 Households with a single innovation, in particular—can play an important role parent, disabled child or parent, veteran, or formerly in supporting vulnerable Californians. This report, incarcerated member are more likely to be food while focusing on food insecurity, also addresses insecure.10 service delivery more broadly, offering ideas for policymakers and public sector IT leaders on how AI Certain other groups—agricultural workers, former can be harnessed to aid the state’s disadvantaged foster youth, and college students—also tend populations. to experience higher rates of food insecurity.11 Geographically, food insecurity is higher in rural California is already leading the nation in GenAI areas and the Central Valley and North Coast/Shasta policy. By committing to an inclusive approach to AI Cascades in particular.12 that prioritizes equitable outcomes, the state can 5 | LITTLE HOOVER COMMISSION Recommendations Increase CalFresh Enrollment A preferred method might be use the state’s existing program aimed at developing new AI applications: According to the California Department of Social the Request for Innovative Ideas (RFI2) procurement Services, enrollment in the state’s biggest food initiative.17 The California Department of Social assistance program, CalFresh, has increased from Services could frame its problem statement in simple just 55 percent of those eligible in 2011 to 77 and straightforward terms: California has historically percent in 2021.15 This is undoubtedly a positive struggled with lower-than-average CalFresh take-up trend, but it is notable that nearly a quarter of all rates, and many counties continue to face significant eligible Californians still do not enroll in CalFresh. challenges in enrolling eligible residents. CDSS is The enrollment rate also varies dramatically across seeking AI or data-driven solutions to close this gap. counties, from around 40% in San Luis Obispo Indeed, the exact nature of the solution does and Trinity Counties to full enrollment in Lake and not need to be predetermined in the solicitation. Imperial Counties. And more than 50% of those who Possibilities could include AI tools to streamline leave the CalFresh program are income eligible but the application process or reduce eligibility worker do not re-enroll. burden or facilitate outreach or target underserved Regional differences in CalFresh enrollment rates populations. In short, vendors will simply need to be most likely reflect county-by-county variations in creative, leveraging the best available data to develop funding, staff experience, procedures, and historical innovative approaches. factors. Nolan Sullivan, Director of the Health & MAKE INCLUSIVE DEVELOPMENT Human Services Agency for Yolo County—where MANDATORY 46% of those eligible were enrolled—testified to the To ensure that these solutions address food Commission that his office’s efforts are impacted by insecurity both effectively and inclusively, the high need, staffing shortages, challenges particular process should include input from a broad range to rural and college student populations, and of stakeholders, such as county eligibility workers, funding constraints stemming from county match CalFresh recipients, community-based organizations, obligations.16 healthcare providers, social service agencies, food USE AI TO INCREASE CALFRESH banks, local government officials, and academic ENROLLMENT experts. Vendors should be required to conduct AI tools could help increase CalFresh enrollment comprehensive user research—through surveys, by improving knowledge of the program and its interviews, and focus groups—with these groups eligibility requirements, streamlining application to identify key pain points and inefficiencies in the paperwork, and assisting with cultural and current system. linguistic issues, among other benefits. There are Additionally, vendors should also be required to different ways to achieve this goal. For example, pilot proposed solutions with a representative the Legislature could task the Department of Social sample of stakeholders before full deployment. Services with developing an AI solution designed During this testing phase, vendors would gather to increase CalFresh enrollment or streamline feedback and improve their designs. Solutions administrative tasks. must be evaluated based on measurable outcomes ARTIFICIAL INTELLIGENCE, FOOD INSECURITY, AND CALIFORNIA’S VULNERABLE POPULATIONS | 6 such as increased worker efficiency and improved Improve Existing Systems applicant satisfaction. By embedding inclusivity and accountability into every stage of development, California is unusual in that its counties, rather these efforts will ensure that the AI applications are than the state, handle much of the administration responsive to the actual needs of those who will be of social services programs that provide food aid using these tools. and other services, like CalFresh, CalWORKs, and Medi-Cal.18 This decentralized approach comes with Recommendation 1: A significant number of advantages and challenges. In a large and diverse Californians do not enroll in CalFresh despite being state like California, tailoring services to local needs eligible. The California Department of Social Services is beneficial. However, this approach can lead to should solicit AI-powered solutions to close this gap. What is Food Insecurity? The US Department of Agriculture, which monitors food insecurity and oversees the nation’s largest food aid programs, defines food security as “access by all people at all times to enough food for an active, healthy life.” It categorizes food security into four levels (quoted verbatim).13 FOOD SECURITY: ◊ High food security: No reported indications of food-access problems or limitations. ◊ Marginal food security: One or two reported indications—typically of anxiety over food sufficiency or shortage of food in the house. Little or no indication of changes in diets or food intake. FOOD INSECURITY: ◊ Low food security: Reports of reduced quality, variety, or desirability of diet. Little or no indication of reduced food intake. ◊ Very low food security: Reports of multiple indications of disrupted eating patterns and reduced food intake. The distinction between “low food security” and “very low food security” is crucial. Very low food security represents actual hunger, which carries the risk of malnutrition and can harm both physical and mental development in children. By contrast, low food security does not necessarily entail hunger but does come with health risks as well as difficult trade-offs between buying healthy food and meeting other needs such as housing, transportation, utilities, and medicine.14 7 | LITTLE HOOVER COMMISSION inconsistent service delivery, and some counties While GetCalFresh remains a much loved model, struggle to meet their administrative funding BenefitsCal builds on its legacy by offering even obligations. greater functionality. BenefitsCal has not only expanded access to multiple benefits programs but To balance unified administration with the need also enables users to save data, reducing repetitive to respect local differences, California has spent data entry and saving time. Additionally, the platform decades coordinating the data and case management has improved multilingual capabilities and provides for its biggest welfare programs, culminating in the notifications through its message center, text, and California Statewide Automated Welfare System email. (CalSAWS). CalSAWS integrates and automates tasks like eligibility determination, benefits calculation, and With BenefitsCal established as a permanent data management for all 58 California counties. And, platform—and the transition away from GetCalFresh through its public-facing BenefitsCal site, individuals underway—we recommend making it a central and community organizations can apply for and focus of the state’s efforts to improve social services manage benefits for CalFresh, CalWORKs, General delivery using AI. To identify impactful innovations, Assistance/General Relief, and Medi-Cal.19 we can consider how AI can help overcome known barriers to CalFresh adoption outlined in the Los CalSAWS operates as a Joint Powers Authority with Angeles Food Policy Council report, Fresh Ideas for 60 members representing California’s 58 counties, CalFresh.22 (See table below, p. 9) including three representatives from Los Angeles County.20 Its Board of Directors, elected annually by AI-powered solutions targeting these barriers will CalSAWS members, consists of 12 representatives— not only enhance the user experience but also typically county program directors—from six promote more equitable access to essential services. geographical regions, along with an ex-officio As BenefitsCal takes center stage in the state’s representative from state government. This regional service delivery strategy, these innovations will representation structure also applies to CalSAWS’ help streamline processes, reduce administrative various committees, each addressing different burden, and foster trust among users. By proactively aspects of social services programs, IT, and staff addressing obstacles to participation with AI, training and support. California can ensure that more residents benefit from essential programs, setting a national example COMMIT TO AN AI-ENHANCED for how technology can drive meaningful change in BENEFITSCAL public services. In recent years, California has made significant strides in improving how residents apply for and IMPROVE FEEDBACK MECHANISM manage social services due to the adoption of more We also believe that AI can further enhance accessible electronic platforms. A notable example is how CalSAWS receives feedback for technical GetCalFresh, developed by Code for America.21 This improvement. The current system, called the platform dramatically reduced the time required CalSAWS Enhancements Requests Roadmap, to apply for food assistance by simplifying the allows the public to submit proposals for system application process and providing a user-friendly improvements for consideration by CalSAWS. It is interface. The streamlined approach of GetCalFresh hard to locate, however, and most submissions earned praise for increasing access to food aid, appear to come from individuals with technical setting a new standard for service delivery. expertise. Moreover, this Roadmap is kept separate ARTIFICIAL INTELLIGENCE, FOOD INSECURITY, AND CALIFORNIA’S VULNERABLE POPULATIONS | 8 AI Solutions to CalFresh Enrollment Barriers Barrier AI Solution Not knowing how the benefits work and how AI-Powered Assistance: AI chatbots provide step-by-step to apply guidance, simplifying the CalFresh application process by responding to questions in real time. Difficulty completing the complicated Smart Autocomplete: AI auto-fills forms using information application from other data sources, saving the applicant time and reducing errors. Program eligibility screening requires a lot of Automated Document Upload and Analysis: AI extracts and documentation verifies necessary information from uploaded documents, minimizing user effort and confusion. Mobility issues such as inadequate Fully Digital Processing: AI-powered assistants and online transportation platforms allow people to apply for benefits entirely online — no telephone interviews or office visits required. Stigma and shame toward receiving Anonymous AI Support: Chatbots offer anonymous, help from the government/Concern that judgment-free guidance, while supportive messaging reduces participation might impact immigration status stigma and fear. Prior experience with benefit termination due AI-Powered Reminders and Follow-Ups: AI sends automatic, to procedural issues personalized reminders about missing documents and upcoming deadlines to prevent loss of benefits. Perception that household income exceeds Eligibility Predictions: AI analyzes user data to provide eligibility limits/Perception that the benefit feedback on eligibility and the benefits they could receive from levels are too low to justify applying applying. 9 | LITTLE HOOVER COMMISSION from the more typical public feedback link located costs, and enhance service delivery—demonstrating at the bottom of the main BenefitsCal page.23 We a sustainable model for scaling AI tools across state believe that the two should be merged, and that government and to external partners. AI can synthesize a blend of technical and practical A prime opportunity for this lies in leveraging feedback in meaningful ways. the GenAI customer support tool currently being To broaden participation and increase inclusivity, developed by the California Department of Tax we recommend incorporating GenAI tools designed and Fee Administration (CDTFA) to strengthen its to digest, summarize, and synthesize large volumes customer service efforts. of relatively unstructured text.24 A user-friendly CalSAWS has already demonstrated an openness to interface could accept feedback in various forms— using GenAI to enhance customer service through whether brief or detailed, technical or colloquial— its “GenAI Call Summary Assist” initiative.26 This tool, and organize it with other comments, similar to the piloted in Fresno County, automates the creation “bundles” feature used in the Enhancements Request of summaries of client calls with eligibility workers. Roadmap. (Bundles are categories of requests “based While it occasionally makes small transcription on ‘pain-point’ type”).25 This new feedback portal errors, it has significantly reduced the amount of should be prominently located on the main page of time workers spend on administrative tasks, enabling the BenefitsCal website. them to focus more on serving clients. By leveraging AI’s capacity to process unstructured The CDTFA’s GenAI tool could complement CalSAWS’s text, CalSAWS and BenefitsCal could gather efforts by providing on-demand access to policy insights from a range of contributors, including information for call center staff, reducing wait times CalFresh recipients, caseworkers, public servants, and improving the accuracy of responses. This tech workers, and the general public. Drawing tool searches knowledge bases to deliver precise on a combination firsthand experience, technical answers, minimizing the risk of incorrect information knowledge, and creative ideas, this AI-improved being shared with customers.27 system could bring to light innovative and useful proposals that might otherwise not have emerged, Combining CalSAWS’s “GenAI Call Summary Assist” potentially steering the systems in new and impactful with the CDTFA’s on-demand policy information directions. tool would provide a seamless customer service SCALE AI SOLUTIONS FOR STAFF SUPPORT experience, where eligibility workers can both reduce The State of California should actively explore ways documentation time and access precise, policy- to integrate and scale its GenAI solutions across aligned information during calls. This integration not various programs. In particular, it could help CalSAWS only strengthens customer service by reducing wait round out its customer service capabilities by times and improving accuracy but also demonstrates providing access to AI tools being developed in state a practical model for scaling AI across state agencies. This would not only streamline support for operations. eligibility workers but also serve as a proof of concept EXPAND CALSAWS GOVERNANCE for how AI solutions developed within one program As technology becomes increasingly central to can be adapted and deployed in others. Such public service delivery, it is essential that innovation collaboration would minimize bureaucracy, lower in CalSAWS is shaped by the perspectives of the state, community-based advocates, and public ARTIFICIAL INTELLIGENCE, FOOD INSECURITY, AND CALIFORNIA’S VULNERABLE POPULATIONS | 10 beneficiaries. Expanding representation within the governance with insights from the lived experiences governance bodies of CalSAWS to include these of those directly impacted by the system. Including three important stakeholders will ensure that new a voting seat for a public representative will help developments are informed by those closest to the ensure that decisions remain user-centered and system’s challenges, balancing fiscal responsibility, responsive to the needs of beneficiaries, promoting policy priorities, service delivery needs, and user trust and accountability. experience. In particular, we propose expanding membership The State of California provides significant funding on two key governance bodies. The Joint Powers to CalSAWS, with allocations increasing annually. In Authority Board of Directors, which provides 2023-24, CalSAWS received $355 million, including strategic oversight of CalSAWS, should include $105.3 million in general funds, with funding representatives from the state, the Advocates Group, projected to rise 2024-25 and 2025-26.28 These funds and the public. This will bring diverse perspectives support system development, implementation, to high-level decisions. The Change Control Board, operations, maintenance, and vendor transition which is responsible for prioritizing system changes, activities. Given the state’s financial role and policy should also be expanded to include these same leadership, we recommend allocating voting seats representatives to ensure its decisions reflect the to the California Department of Social Services priorities of all stakeholders. (CDSS) and the Department of Health Care Services The California Legislature should formalize these (DHCS) on key CalSAWS governance bodies. Their governance changes through new legislation. This representation will ensure alignment with statewide action would ensure that CalSAWS governance policy priorities, including technological innovation. consistently reflects the diverse perspectives of key The CalSAWS Advocates Group has been an stakeholders, embedding additional accountability important voice for community-based organizations, and transparency into the system’s decision-making their staff and volunteers, and recipients of food processes. By mandating voting representation aid.29 Their work reflects a deep knowledge of from the state, the CalSAWS Advocates Group, and the challenges and barriers users face when benefits recipients, the Legislature can help align accessing public benefits. The Advocates Group has technological innovations within CalSAWS with successfully pushed for several improvements to the needs and insights of policymakers and the CalSAWS, demonstrating the value of their practical, communities they serve. community-informed insights.30 And their mission Recommendation 2: Leverage AI to improve how statement and current priorities align with the spirit Californians access food aid and social services, of many of the recommendations in this report.31 enhance support for county workers, and streamline Granting the Advocates Group a voting seat on public feedback through BenefitsCal and CalSAWS. CalSAWS governance bodies will thus ensure that Expand the CalSAWS governance structure to include decision-making continues are informed by realities state representatives, community organizations, and on the ground and supports ongoing improvement in the public to foster innovation and ensure solutions service delivery. address real-world needs. We also recommend including a public representative, ideally someone currently receiving benefits such as CalFresh or Medi-Cal, to provide 11 | LITTLE HOOVER COMMISSION College Students Why Does Food Insecurity Despite growing efforts to address food insecurity Occur? among California’s college students, many continue to struggle with access to nutrition assistance In a frequently cited review of academic programs like CalFresh. A 2022-23 study by the studies on food insecurity, Engelhard California Student Aid Commission found that 66% of and Hake note that “[f]ood insecurity is college students faced food insecurity, up from 39% an economic condition, driven primarily in 2018-19.32 The problem was most severe among by lack of money and other critical African-American and Latino students, and female resources.”35 students were more likely to be food insecure than male students. Thus high cost of living—including housing, utilities, transportation, Despite this widespread need, CalFresh take-up healthcare, and food—combined with among eligible students remains extraordinarily low wages, unemployment, or sudden low. The California Policy Lab partnered with the “income shocks” such as job loss, health California Community College Chancellor’s Office, the crises, or eviction, are primary drivers of UC Office of the President, the California Department food insecurity. of Social Services, and the California Student Aid Commission to create a “linked database of student- Other household and community factors level administrative data” that includes information contribute to, or are associated with, on college enrollment, financial aid, and CalFresh food insecurity. These include limited participation.33 access to transportation, residing in a low-income neighborhood, household In analyzing this data, the California Policy Lab found instability, smoking, low financial literacy, that, in Fall 2019, many students were likely eligible and low education levels.36 for CalFresh benefits but few were actually enrolled. For example, around a third of UC undergraduates Additionally, the steps involved in buying and a fifth of Community College students were likely and preparing food can themselves be eligible for CalFresh, but of those who were eligible, sources of food insecurity. In lower- only about one in four were actually enrolled in the income neighborhoods, lack of quality program and receiving food aid. food retailers—often referred to as “food deserts”—means residents may only Key barriers include lack of awareness of the have access to unhealthy options from program, the relative complexity of the enrollment places like corner stores, although this process for college students, stigma, and fear. Many issue is complex.37 feel embarrassed using CalFresh and/or the EBT card or fear accidentally misusing benefits. Some People living in poverty also often eligible students worry about potential liability for face unpredictable work schedules, undocumented relatives.34 The following actions, long commutes, and lack of childcare, which are centered around data innovation and/ making it harder to shop for and prepare or AI, could reduce these barriers to CalFresh nutritious meals.38 enrollment among college students. ARTIFICIAL INTELLIGENCE, FOOD INSECURITY, AND CALIFORNIA’S VULNERABLE POPULATIONS | 12 MAKE THE LINKED DATABASE PERMANENT notify students about renewal deadlines, ensuring To help reduce this gap, the state should establish they maintain their benefits. the linked database used to identify students IMPROVE COORDINATION BETWEEN eligible for CalFresh as a permanent resource. It SUPPORT UNITS should be housed within and regularly monitored To streamline CalFresh enrollment, AI tools can by a designated California state agency, ensuring enhance coordination between financial aid offices, compliance with all privacy and data security Basic Needs Centers, and county eligibility workers, standards. making it easier for students to access vital benefits. Many eligible students are unaware they qualify Expanding on the work of the California Policy Lab, for CalFresh, but embedding AI-powered tools into this database would identify students who are likely familiar college systems can bridge this gap. eligible for CalFresh benefits. Unlike the database built for the California Policy Lab study that uses only Financial aid officers, for example, could use AI de-identified data, however, the permanent database screeners during routine interactions with students would contain identifying information. Through an to quickly determine eligibility. If a student is eligible opt-in system, authorized financial aid officers, staff for benefits, financial aid staff can refer them to from Basic Needs Centers (which provide essential support services in the campus Basic Needs Center resources like food and housing assistance at or county eligibility workers for assistance with the California’s public colleges and universities), county application process. eligibility workers, or students themselves would be notified about their potential eligibility, prompting Colleges could further simplify the process by enrollment and/or proactive outreach and assistance. integrating AI-powered screeners and chatbots on their Basic Needs Center websites. These AUTOMATED AI-DRIVEN NOTIFICATIONS tools would provide students with on-the-spot In addition to the linked database, the state should eligibility assessments, answers to frequently asked implement automated, AI-driven notifications questions, and step-by-step guidance throughout the to engage students directly. This represents a application. By meeting students where they are and technologically enhanced version of a pilot in reducing the complexity of the process, AI tools can which postcards were sent to students who were empower students to confidently pursue benefits likely eligible for CalFresh encouraging them to they may not otherwise seek out. apply, resulting in a 69% increase in applications.39 These AI tailored notifications—delivered via email, In addition, students could opt in to authorize text, or app alerts—would reach students at key financial aid officers and Basic Needs Center staff moments in their academic and financial journeys to receive notifications about important deadlines. to raise awareness and encourage them to apply for These AI-generated alerts could notify staff when CalFresh. students need to renew their benefits or submit missing documents, enabling proactive outreach. Messages could be customized based on factors This would allow college staff to remind and support such as financial aid status or academic milestones. students, ensuring they stay on track and do not lose These notifications could also emphasize well-being, benefits due to incomplete paperwork or missed positioning CalFresh as a tool to support health and deadlines. academic success, helping to reduce stigma around using the benefit. And AI-driven reminders would 13 | LITTLE HOOVER COMMISSION Together, these solutions will reduce barriers and For instance, an eligibility worker could use an AI increase CalFresh enrollment, as well as foster closer tool—developed by the state and disseminated collaboration between campuses and counties. By to all counties—to help with translation needs by streamlining the CalFresh process through familiar typing questions into the system. The applicant could student spaces and support systems, more eligible respond by typing or speaking in their preferred students can access and retain the benefits they language and their response would be translated into need to succeed. the preferred language of the eligibility worker. This solution would streamline multi-lingual interactions Recommendation 3: College students are often and thereby improve service quality. food insecure but have a hard time enrolling in CalFresh due to complex eligibility requirements and The state should also consider deploying a other barriers. The state should increase CalFresh multilingual GenAI explainer chatbot to assist enrollment among college students using AI- and Californians with social services inquiries. (As noted data-driven solutions. above, the current chatbot is limited in its abilities and should be upgraded.) This chatbot would provide Language Access and support in multiple languages, expanding access to Immigration crucial information for non-English speakers. California has the highest percentage of immigrants Additionally, this chatbot would fill existing gaps and is the most linguistically diverse state in the in live chat services at the county level. While U.S. However, language access and fears relating BenefitsCal offers users the option to connect with to immigration status are recognized barriers to live chat assistance if their county offers it, most CalFresh enrollment.40 With its multilingual and counties do not provide this service. By centralizing explanatory capabilities, AI offers a powerful tool the chatbot, California could ensure consistent, high- to help overcome these obstacles, making the quality support for all residents without requiring enrollment process more accessible and inclusive. individual counties to staff their own chat services. NON-ENGLISH LANGUAGE SPEAKERS CALFRESH AND IMMIGRATION STATUS The BenefitsCal website offers access in 20 Misunderstanding and anxiety about food languages, including English, and is generally written aid eligibility is common in documented and in a plain, user-friendly manner. However, this only undocumented immigrant communities.42 guarantees that non-English speakers can access the Immigrants, or those living in households with application portal, some supporting materials, and immigrants, may be reluctant to apply due to fear the site’s rudimentary chatbot. of deportation or accusations of fraud. Language barriers may further compound these challenges. More pressing challenges relate to when even moderately complex questions arise during the Many documented immigrants are eligible to apply application process or eligibility interview, where for CalFresh, including green card holders, refugees, dynamic multi-lingual support may be lacking. people who have been granted asylum, and people Indeed, a shortage of bilingual staff and improper holding or applying for specific special visas.43 handling of different languages has led applicants Moreover, undocumented individuals can apply for with limited English skills to believe that they receive CalFresh on behalf of their children who are U.S. substandard service when they visit county benefits citizens or legal residents. And households that offices.41 This is one area where a GenAI could make include undocumented members can also apply, a significant impact. though only eligible individuals can receive benefits.44 ARTIFICIAL INTELLIGENCE, FOOD INSECURITY, AND CALIFORNIA’S VULNERABLE POPULATIONS | 14 At a minimum, the BenefitsCal website requires a In addition to recommending changes to federal more explicit and user-friendly section addressing policy, the California Policy Lab report recommends the eligibility criteria for documented versus that California and its counties take several actions: undocumented individuals. This section should be multi-modal (text, email, phone) notification of prominently displayed on the BenefitsCal landing the need to renew benefits or missing paperwork, page and should be given a clear title such as “Helpful auto-population of data, and improved interview Information for Non-Citizens”. This section should scheduling. address common questions and concerns in a warm BenefitsCal has already made progress in several of and supportive manner. This will be a significant these areas. Through its online interface, recipients improvement on the status quo, in which information can complete their recertification and eligibility about immigration status and benefits eligibility is updates with minimal friction. The portal pulls from dispersed amongst a range of documents. stored pools of user data, reducing the need for Given the sensitivity and complexity of the issue, recipients to enter the same information repeatedly. a GenAI-powered explainer bot that is trained to The system also sends automated reminders through respond to immigration-related questions with text and email on an opt-in basis. However, there is guaranteed anonymity could also be helpful. room for additional improvement, which can partly Preliminary testing of ChatGPT has demonstrated its be facilitated by AI. potential in providing helpful guidance in this regard, IMPROVE INTERVIEW SCHEDULING AND and fine-tuning based on federal and state guidelines NOTIFICATIONS would help ensure accuracy. One immediate opportunity is to improve the renewal interview scheduling process. Currently, Recommendation 4: The state should leverage the counties inform applicants of their CalFresh interview multilingual and explanatory capabilities of GenAI to date and time by mail. Applicants cannot choose a support CalFresh enrollment and service delivery for preferred date/time, although they can reschedule non-English speakers and immigrants. their assigned time if necessary. CalFresh Retention A simple improvement would be to provide an online To remain eligible for CalFresh, recipients must system for scheduling interviews, similar to booking submit forms indicating any changes to household medical appointments. This would give recipients income or composition along with documentation more flexibility and control over scheduling, reducing every six months. In addition, they must submit to an the chances of an inconvenient interview time. interview every 12 months. A promising AI application is predictive outreach. AI The requirement to fill out paperwork and give proof could identify recipients at higher risk of missing their of CalFresh eligibility semi-annually is burdensome renewal deadlines and trigger proactive support, and has caused large numbers of people to leave whether through more frequent reminders or CalFresh despite being eligible for benefits. A direct outreach from county workers. This targeted California Policy Lab study found that, between 2005 approach would CalFresh increase retention by and 2018, CalFresh “exits” occurred far more often in intervening before deadlines are missed. months when paperwork was due.45 Moreover, the study showed that, between 55% and 75% of people who left CalFresh between 2014 and 2019 “were income eligible in the month they left”.46 15 | LITTLE HOOVER COMMISSION CalFresh could also leverage AI to provide Electronic Benefit Transfer (EBT) personalized notifications tailored to individual needs.47 AI-powered Natural Language Processing The Electronic Benefit Transfer (EBT) card is used by (NLP) can adjust the tone of messages based on past Californians to access food assistance benefits, such interactions, offering more empathetic language to as those provided through programs like CalFresh.49 recipients who have previously expressed frustration The card looks and functions like a debit card. Users with the CalFresh benefits application or renewal swipe their EBT card and enter a pin number at the process. point of sale to purchase eligible food items. An app called ebtEDGE allows users to check their balance AI-powered notifications could highlight missing and transaction history. documents and tailor messages to the renewal timeline, with early reminders encouraging AI integration offers significant potential to preparation and later ones emphasizing urgency. enhance how Californians use their EBT benefits. Geographic data could be used to suggest nearby Personalized tools powered by AI could help users offices or community organizations that provide manage benefits more efficiently, make healthier renewal assistance. food choices, and optimize spending. Additionally, AI analysis of de-identified EBT spending data could MORE DROP-OUT AND CHURN RATE enable the state to identify food access patterns, ANALYSIS NEEDED improve resource distribution, and expand access to To identify solutions for increasing CalFresh fresh, nutritious food in underserved communities. retention, it would also be helpful to conduct more in-depth study of CalFresh drop-outs and “churn”, ENHANCING THE EBT USER EXPERIENCE which is when recipients leave CalFresh and reapply AI-powered enhancements can improve the EBT within 90 days. For example, churn rates have app experience, making it more personalized, historically varied significantly from county to county, intuitive, and supportive for users. An improved app with no clear demographic pattern. Investigating could offer features like balance tracking, spending these factors could provide actionable insights for projections, and personalized alerts to help users counties with high churn rates.48 manage their benefits more effectively. It will also be crucial to assess the impact of the Smart shopping recommendations based on recent rollout of BenefitsCal, which began in 2021 purchase history could encourage healthy eating by and has now been fully adopted across California. suggesting affordable options, seasonal produce, or The BenefitsCal platform integrates important recipes. And location-based alerts could notify users changes, such as reducing paperwork by saving of nearby stores, farmers markets, and events that previously entered data, creating a user-friendly accept EBT, enhancing accessibility and promoting interface, and offering recertification reminders. fresh food consumption. Analyzing the correlation between BenefitsCal’s introduction and changes in retention rates will be An improved app could also provide seamless links to key to understanding its effectiveness. SNAP-eligible online retailers, allowing users to shop conveniently from home. AI-powered shopping lists Recommendation 5: A high proportion of CalFresh could sync with these online stores, making it easier enrollees do not re-enroll despite being eligible to do to reorder essentials or compare delivery fees. In-app so. The state should explore AI solutions to study and notifications could highlight discounts or promotions, improve CalFresh retention. ensuring users maximize the value of their benefits.50 ARTIFICIAL INTELLIGENCE, FOOD INSECURITY, AND CALIFORNIA’S VULNERABLE POPULATIONS | 16 And, with features like automated reminders for sustainable farming practices by using fewer CalFresh renewal deadlines, chatbots for quick pesticides and chemical fertilizers, and by rotating support, and links to community resources, the crops. And they contribute to the economic and AI-enhanced EBT app could help empower users cultural life of their communities by providing to make informed decisions, encouraging healthier employment opportunities, participating in farmers lifestyles and easier benefit management. markets, and engaging in educational outreach. OPTIMIZING RESOURCE DISTRIBUTION Technology, including AI, can help small farmers Predictive analytics powered by AI can help improve grow crops more efficiently.53 For example, AI food resource distribution across California. By systems can use information from sensors to analyze analyzing historical spending patterns and food soil conditions and crop health and recommend access trends, AI can identify areas with the appropriate action for planting, watering, and pest greatest need, which can be shared publicly to control. AI can also help automate the use of farming inform community groups, non-profits, and local equipment. And AI-powered analytics can help governments as they plan mobile food markets predict crop yields and ideal harvesting times. or pop-up farmers markets. This will help ensure resources are directed toward underserved For smaller farmers and new farmers, the cost of communities, prioritizing access to fresh, nutritious adopting new technologies is often prohibitive but food where demand is highest. Additionally, AI some lower-cost AI tools have been developed. can continuously analyze food insecurity trends, One example is Microsoft’s FarmBeats project, enhancing the state’s ability to support proactive which utilizes unused TV frequencies for digital community responses. communication and employs inexpensive weather balloons for sensing, with AI compensating for data In the long term, AI-generated insights could also gaps.54 help map food deserts across the state, providing valuable information to local governments as they Also noteworthy is Digital Green’s multilingual make zoning decisions for food outlets.51 While chatbot, called Farmer.chat. This bot can handle zoning decisions remain a local prerogative, sharing complex inquiries from farmers and can integrate a this data publicly could encourage healthier food variety of data sources, such as weather information, outlets to set up in underserved areas, ultimately to provide more informed responses.55 To date, increasing access to nutritious foods for residents in Digital Green has primarily been utilized in India and low-access regions. Africa, but is in the process of being implemented here in California. Recommendation 6: Use AI to improve the efficiency NEW CDFA GRANTS TO SUPPORT AI and effectiveness of EBT programs by enhancing user ADOPTION experience, streamlining access to resources and The California Department of Food and Agriculture’s support, and helping optimize resource distribution. (CDFA) numerous grant programs support the Farms and Farmers state’s agricultural sector by fostering innovation, sustainability, and economic stability.56 These grants Small farms support biodiversity and local address environmental stewardship, food security, economies.52 And, in contrast to larger monoculture and farmer assistance, ensuring California agriculture operations, they help provide a varied supply of remains resilient. fresh food. Small farms also often help promote 17 | LITTLE HOOVER COMMISSION Grant programs like the California Nutrition Incentive Program (CNIP) and the California Underserved and Small Producers Program (CUSP) directly aid small How to Reduce Food farmers, promoting market access and sustainable Insecurity practices. Initiatives like the Healthy Soils and Pollinator Habitat Programs encourage conservation and biodiversity, while the Farm to School Program Engelhard and Hake categorize creates market opportunities and strengthens local approaches to reducing food food systems. insecurity as either “proven,” “promising,” “emerging,” or “not yet The Commission recommends that CDFA create a set evaluated,” although they note that of three new grants aimed at helping small farmers the absence of robust studies does access AI technology to improve farming efficiency. not imply ineffectiveness.57 The first grant, an AI adoption grant for individual Proven methods include farmers, would provide direct financial support established government programs to small farmers to purchase or lease AI-based like SNAP (CalFresh in California), farming tools, such as precision agriculture systems, the National School Lunch and AI-powered irrigation, or automated pest control Breakfast Programs, and WIC, all technologies. This grant would help individual of which have effectively reduced farmers overcome the financial barriers of adopting food insecurity by providing food AI by covering up to a certain percentage of the total or cash for food purchases to cost, making advanced technology more accessible to eligible recipients. small-scale operations. Promising methods include The second grant, a collaborative AI access grant, food pantries, particularly when would encourage groups of farmers to work together combined with case management, and share AI resources. By funding cooperative and fruit and vegetable vouchers projects that allow multiple farmers to co-own or or prescriptions. access AI tools, this grant would reduce the cost burden for individuals while maximizing the use of Certain financial relief programs, advanced technologies like AI-powered drones or such as the Earned Income sensors. Tax Credit, permanent housing subsidies, and Medicaid expansion, Finally, an AI technical assistance and training grant have been proven or show promise would focus on education and support, helping in reducing food insecurity. farmers understand and utilize AI technologies. This grant would fund trainings and expert consultations, Other programs, like those related ensuring that these farmers are not only able to to transportation or education, acquire AI tools but also know how to integrate and require further study. use them effectively. ARTIFICIAL INTELLIGENCE, FOOD INSECURITY, AND CALIFORNIA’S VULNERABLE POPULATIONS | 18 The proposed grants align with CDFA’s ongoing leveraging community expertise and interest, the commitment to economic development for state could potentially generate creative solutions to underserved farming communities, commitment to food insecurity and related topics relatively quickly biodiversity, and support for nutrition and public for development through official state channels. health in general. By bridging the gap between MAKE INCLUSIVITY MANDATORY traditional farming practices and AI technology, For food access hackathons to be effective, they these grants will enhance CDFA’s ability to help small should involve a broad range of stakeholders, farmers thrive in a rapidly changing agricultural including state and county staff, food banks and landscape. pantries, community organizations, advocacy groups, Recognizing current budget constraints, we county-level caseworkers, and food aid recipients. understand that establishing new grant programs This approach promotes stronger collaboration may not be feasible immediately. However, the by connecting groups that often operate in silos, initiatives we are proposing could be launched as allowing solutions to address both high-level limited pilot programs or implemented when the policy challenges and on-the-ground service and budget returns to a surplus. By planning for future use issues. When all stakeholders feel heard, they investment, the state can be ready to support small will be more likely to be invested in the outcome, farmers in leveraging AI technology when economic increasing the chances of successful implementation. conditions improve. Most importantly, bringing these voices together Recommendation 7: Farmers can benefit from AI ensures the solutions align with the real needs and technology, but this technology is cost-prohibitive to priorities of food aid recipients, service providers, the many smaller farmers. The state should establish and policymakers, making the results practical and grants to support AI adoption by these farmers. impactful. Food Hackathons Recommendation 8: There is interest and ability within the public to develop novel technological Hackathons are short-term, fast-paced events that solutions to society’s problems. The state should host bring together individuals to develop creative, tech- inclusive hackathons to explore technology-based based solutions to a given problem. While often solutions to the problem of food access. related to software solutions, these gatherings can also be structured around real-world issues like Coordination and Oversight housing or economic support.58 State-organized As has been seen in this report, food insecurity hackathons focused on addressing food insecurity remains a persistent problem in California, affecting offer an innovative way to harness public interest a large number of residents. Part of this challenge and expertise. arises from the difficulty in coordinating those Possible topics could include data analysis for food responsible for addressing food insecurity, who are security, improving access to food aid programs and dispersed across different levels of government— other food resources (e.g., food pantries, farmers federal, state, and county. At the state level alone, markets, community gardens), optimization of food multiple departments handle various aspects of this distribution networks, nutrition education and issue, each with its own area of focus and expertise. meal planning, urban agriculture, and community These entities must also collaborate with community engagement and volunteer coordination. By organizations and technology specialists to make meaningful progress. 19 | LITTLE HOOVER COMMISSION California’s collective creativity and expertise in tackling food insecurity are impressive, and we believe that establishing a Food Security Council within the executive branch of state government would amplify these efforts. Such a council would provide effective coordination among the many players working to increase food access across the state.59 The specific composition or placement of this coordinating body within government is less important than its capacity to reflect and guide the expertise of all those committed to ending food insecurity, including policymakers, food aid recipients, social justice advocates, and technologists. We hope this council will receive a strong mandate to address this issue aggressively, working to ensure that all Californians have access to food. Recommendation 9: Food aid programs in California are fragmented across multiple agencies, programs, and stakeholders. A Food Security Council should be established to help coordinate and oversee the state’s efforts in this area. ARTIFICIAL INTELLIGENCE, FOOD INSECURITY, AND CALIFORNIA’S VULNERABLE POPULATIONS | 20 AI and Vulnerable Communities: A Framework Although this report addresses food insecurity, AI TOOLS FOR ADDRESSING SOCIAL California should harness the power of artificial CHALLENGES intelligence to address other issues affecting To address a variety of social challenges as efficiently vulnerable communities, such as the education as possible, California can develop a range of AI tools achievement gap, inadequate access to economic with versatile, scalable applications. These tools can opportunities, and the high cost of living. streamline service delivery, enhance accessibility, and improve outcomes for vulnerable populations. Many Although we cannot address every issue in detail of the AI tools recommended in the food insecurity in this report, we believe that certain themes portion of this report could be redeployed to address about how artificial intelligence is used can carry other social challenges. These include, but certainly over from one issue to the next. The framework are not limited to, AI-powered multilingual customer offered here focuses on three variables: the specific service, application processing and document social problems AI seeks to address, the types of verification, skill development and training, and AI tools suited to these challenges, and the distinct physical and mental health support. characteristics of the populations that stand to benefit. By applying this lens, AI initiatives can be An efficient implementation strategy would involve deployed with greater precision—targeting genuine a centralized entity overseeing the development of needs through appropriate technologies—while core AI tools that can be fine-tuned for the specific remaining sensitive to the particular barriers and needs of state agencies and nonprofit partners. circumstances of the communities they aim to serve. These tools, housed in a central repository like the AI Learning Hub proposed in our other report, would IDENTIFYING SOCIAL CHALLENGES AI CAN offer flexibility and customization while maintaining ADDRESS consistent quality and ethical standards.62 This California should define a set of goals or challenges approach would prevent redundant efforts, allowing that it hopes to address using technology and AI agencies to share improvements and adjust solutions in particular. These goals would be based around to fit their needs. the state’s most pressing social, economic, and environmental challenges and the ability of TAILORING AI SOLUTIONS TO MEET technology to address them. A possible model COMMUNITY NEEDS for this effort could be the UN’s 17 Sustainable The delivery of social services must be respectful Development Goals (SDGs).60 of and tailored to the individuals and communities being served, considering factors such as language, The governor could issue an executive order culture, geography, and technological access.63 directing state agencies to prioritize AI projects Consultants at Deloitte have produced a framework that advance these goals, creating a cohesive and called “Tailored Public Services” that outlines how collaborative approach across departments. And, as AI can be used to meet these needs, offering a we recommend in our other AI study, the state could spectrum from broad, one-size-fits-all services establish an AI Council to oversee these efforts. On to highly individualized, “government for one” the legislative front, California could propose bills approaches. California can leverage this model to mandating that state AI funding and development integrate GenAI at varying levels of customization.64 efforts focus on addressing these goals.61 21 | LITTLE HOOVER COMMISSION At the broadest level, AI can segment services by This tool—which would take the form of a regularly- demographic factors like age, income, and location. updated website—would allow the public to track More personalized AI tools could proactively trigger the state’s progress using AI across the three areas services based on life events, such as job loss or described above: social concerns (e.g., healthcare childbirth, ensuring timely support. California could access, education, food insecurity), AI application also use AI to address regional differences, such development (e.g., multilingual support, automation), as providing more transportation and healthcare and the communities being served by the state’s AI support in rural areas and focusing on housing and initiatives. employment services in urban centers.65 Additionally, The AI for All dashboard would provide an up-to- California can customize AI tools based on regional date view of AI initiatives, showing the status of needs by leveraging geographic data and testing proposals—whether under review, awaiting approval, region-specific pilots. or being implemented. Through this dashboard, California should mandate that all AI tools include stakeholders could more easily monitor California’s multilingual support and partner with community- efforts to apply AI in addressing social challenges and based organizations to co-develop solutions that supporting vulnerable populations. resonate with local needs. These organizations could use AI to enhance outreach and service delivery in ways that better target underserved populations. CONCLUSION: A BALANCED APPROACH AND “AI FOR ALL” DASHBOARD California should adopt a balanced approach to AI that integrates problem-solving, tailored community needs, and effective AI tools. This approach ensures AI initiatives are both driven by pressing social issues and customized for the diverse populations they serve. To support this, we recommend creating an “AI for All” dashboard.66 “Better use of technology— especially through data sharing and artificial intelligence— could help more vulnerable Californians access the aid they are entitled to but may not be receiving.” ARTIFICIAL INTELLIGENCE, FOOD INSECURITY, AND CALIFORNIA’S VULNERABLE POPULATIONS | 22 Notes 1. CDSS CalFresh Data Dashboard: https://www.cdss. 8. The USDA survey is administered annually, whereas the ca.gov/inforesources/data-portal/research-and-data/ Household Pulse survey is weekly. Recall bias refers to calfresh-data-dashboard. Press Release: “California’s the tendency to forget or minimize events that occurred Population is Increasing”, Office of the Governor (Apr. 30, in the relatively distant past. On recall bias and food 2024). California Association of Foodbanks Food Insecu- insecurity rates, see: K. de la Haye et al., “Food Insecurity rity Data website: https://www.cafoodbanks.org/food-in- Is Under-Reported in Surveys that Ask About the Past security-data/. Policy Brief, The Power of SNAP (CalFresh) Year”, American Journal of Preventive Medecine 65.3 Emergency Allotments During the COVID-19 Pandemic, (2023): 657-66. On the tendency of Latinos to underre- California Association of Food Banks (Dec., 2023). port food insecurity, see: C. Johnson, A. McClain, and K. Dickin, “US Food Insecurity Surveys Aren’t Getting 2. Cal. Exec. Order N-12-23 (Sep. 6, 2023). The quoted Accurate Data Regarding Latino Families”, The Conversa- material is from section 3b. tion (Nov. 29, 2023). J. Sowerwine et al., Food Security Assessment of Native American Communities in the 3. The Governor’s order is part of a broader movement Klamath Basin, Karuk-UC Berkeley Collaborative (May, within state government to use AI, data innovation, and 2019). advanced technology to improve service and outcomes Initiatives like CalAIM, CalSAWS, and the California De- 9. California Association of Foodbanks Data Dashboard: partment of Health and Human Services’ IT & Data Stra- https://www.cafoodbanks.org/food-insecurity-data/. tegic Plan are improving the delivery of healthcare and A.Y. Haro-Ramos and A.M. Bacong, “Prevalence and Risk welfare. And the California Community Colleges have Factors of Food Insecurity among Californians During adopted GenAI as one of three “strategic directions” in the COVID-19 Pandemic: Disparities by Immigration its Vision 2030 plan, seeking to extend AI-related educa- Status and Ethnicity”, Preventative Medicine 164 (2022). tional and employment opportunities to an underrepre- NIH National Institute on Minority Health and Health sented body of students. Disparities: “Food Accessibility, Insecurity and Health Outcomes”: https://www.nimhd.nih.gov/resources/un- 4. We are, however, encouraged by the state’s awareness derstanding-health-disparities/food-accessibility-insecu- of these concerns and ACLU California Action’s recent in- rity-and-health-outcomes.html depth report, which advocates for including critical pro- tections against Gen AI and its potential negative effects 10. K. Engelhard and M. Hake, Food Security Evidence on historically marginalized communities specifically in Review: Key Drivers and What Works to Improve Food relation to the Governor’s GenAI endeavors.M. Cagle, C.- Security, Feeding America (2020), p. 2. N. Cox, and N. Ozer, “ACLU California Action Comment on Executive Order N-12-23 Regarding Generative Artificial 11. Yolo Food Bank, Yolo County Food Access Report (Apr., Intelligence, Part 3(b)”, ACLU California Action (May 6, 2024); L. Nargi, “A New Approach to Keep Former Foster 2024). Its recommendations are outlined on pp. 2-3. Youth from Facing Food Insecurity”, Civil Eats (Mar. 14, 2022); E. Gallegos, “‘Shocking’ Report Shows Spike in 5. M.P. Rabbitt, M. Reed-Jones, L.J. Hales, and M.P. Burke, California College Students Struggling to Pay for Food al., Household Food Security in the United States in 2023, and Housing”, Ed Source (Nov. 27, 2023). U.S. Department of Agriculture (Economic Research Service) (2023). This figure is based on the averages from 12. Feeding America Map the Meal Gap website: https:// annual surveys taken between 2021-2023. Press release: map.feedingamerica.org/county/2022/overall/california. “State’s Population Increases While Housing Grows Per New State Demographic Report”, California Department 13. USDA Definitions of Food Security: https://www.ers. of Finance (Apr. 30, 2024). These figures represent an usda.gov/topics/food-nutrition-assistance/food-security- annual average of the years 2021-2023. in-the-u-s/definitions-of-food-security/. 6. Based on an average number of 14,173,000 households 14. On impacts to children, see B. Gitterman et al., “Promot- between 2020 and 2022 (USDA) and average of 2.89 ing Food Security for All Children”, Pediatrics (2015) 136 people per household (US Census QuickFacts California (5): e1431–e1438. On tradeoffs, see C. Myers, “Food 2018-22). Insecurity and Psychological Distress: A Review of the Recent Literature”, Curr Nutr Rep 9.2 (2020): 107–118. 7. CAFB Food Insecurity Data: https://www.cafoodbanks. org/food-insecurity-data/. This higher rate was deter- 15. CalFresh Data Dashboard. Cf. USDA SNAP Program Ac- mined by researchers at Northwestern University’s cess Index website: https://www.fns.usda.gov/snap/qc/ Institute for Policy Research. The methods they use pai, which provides a state-by-state ranked list of SNAP to convert the food insufficiency (i.e., hunger-related) take-up. data provided by the Household Pulse survey into food 16. Remote hearing on Artificial Intelligence and California’s insecurity (i.e., hunger + reduced quality) figures are dis- Vulnerable Populations (Food Insecurity) (Jun. 27, 2024): cussed in D. Schanzenbach and A. Pitts, “Food Insecurity https://lhc.ca.gov/report/artificial-intelligence-and-cali- in the Census Household Pulse Survey Data Tables”, Insti- fornias-vulnerable-populations-food-insecurity/. tute for Policy Research Rapid Research Report (2020). 23 | LITTLE HOOVER COMMISSION 17. For a list of the GenAI pilot already projects solicited 28. SFY 2023-24 figures are from the Legislative Analyst’s through the state’s RFI2 initiative, see: https://www. Office report “The 2023-24 California Spending Plan: genai.ca.gov/ Human Services (California Statewide Automated Wel- fare System (CalSAWS))” (Nov. 6, 2023). For SFY 2024-25 18. For an overview of CalFresh administration including and 2025-26, the following figures were provided to LHC budget figures and obligations, see S.S. Russo, The staff by a representative from CalSAWS: “The funding in 2024-25 Budget: Food Assistance Programs, Legislative SFY 2024/25 was approved for $369.3M with $105.7M Analyst’s Office (Feb. 16, 2024). in general funds and is projected to be $373.5M in SFY 19. According to the OSI SAWS website, CalSAWS also 2025/26 with $106.6M in general funds. The funding provides support for the administration of these and accounts for maintenance and operations, as well as several additional aid programs including Medi-Cal, vendor transition activities resulting from re-procure- California Work Opportunity and Responsibility to Kids ment of services and commodities.” (CalWORKs), CalFresh, Cash Assistance Program for 29. CalSAWS Advocates Group website: https://www.cafood- Immigrants, Foster Care, Refugee Cash Assistance, Kin- banks.org/saws-migration/. ship Guardianship Assistance Program, California Food Assistance Program, General Assistance/General Relief, 30. For an up-to-date timeline of accomplishments, see the Welfare-to-Work, Child Care, and Adoption Assistance presentation “CalSAWS Advocate Successes 2018-2023”: Program (AAP): https://osi.ca.gov/SAWS.html https://infograph.venngage.com/pl/twwo5brVrc. 20. For an overview of CalSAWS’ membership and gov- 31. For the mission statement, see the main CalSAWS Advo- ernance structure, see its report CalSAWS: Executive cate Group website (link above). For the 2024 goals, see: Overview (n.d.), pp. 5-8. See also the CalSAWS Meetings https://www.cafoodbanks.org/blog/from-vision-to-ac- website: https://www.calsaws.org/meetings/. tion-calsaws-advocates-group-strategic-plan/. 21. A discussion of the origins of GetCalFresh can be found 32. California Student Aid Commission, 2023 Food and Hous- in J. Pahlka, Recoding America: Why Government is Fail- ing Survey: Understanding Students’ Basic Needs (Nov. ing in the Digital Age and How We Can Do Better (2023), 16, 2023). pp. 176-186. See also the Code for America blog post by G. Song and Z. Antoyan, “Reflecting on 10 Years of Food 33. J. Rothstein, J. Lacoe, et al., Filling the Gap: CalFresh Assistance in California” (Aug. 27, 2024). Eligibility Among University of California and California Community College Students, California Policy Lab (Aug., 22. The barriers listed above are quoted verbatim from Los 2024), p. 3. Credit is due to Prof. Jesse Rothstein, Direc- Angeles Food Policy Council, Fresh Ideas for CalFresh tor of the California Policy Lab, for the recommendations (Mar., 2022), p. 7. relating to college student CalFresh enrollment. 23. CalSAWS Enhancements Requests Roadmap website: 34. J. Chavarin-Rivas, A. Doherty, and E. Dizon-Ross, Address- https://app.loopedin.io/calsaws-enhancement-requests. ing the Barriers College Students Face when Accessing CalFresh Food Benefits, California Policy Lab (Dec., 2021). 24. For an overview of how AI is being used to process public comments in federal government, see ICF “Using 35. Engelhard and Hake (2020), p. 3. Most of the observa- GenAI to Accelerate Public Comment Analysis” web- tions in this and the following section are derived from site: https://www.icf.com/clients/technology/regula- their report. tions-gov-gen-ai-public-comment-analysis. 36. Engelhard and Hake (2020), pp. 3-4. 25. For a current list of enhancement requests grouped ac- cording to their bundles, see: https://docs.google.com/ 37. C. George and A. Tomer, “Beyond ‘Food Deserts’: Ameri- document/d/1vKgfn2pNOBqyw882PQoEkOqhljuziviy6q- ca Needs a New Approach to Mapping Food Insecurity”, jeElkSliM/edit?tab=t.0. Brookings (Aug., 2021). 26. Slide Deck for the Jul. 18 meeting of the CalSAWS Project 38. ODPHP “Social Determinants of Health Literature Steering Committee meeting, p. 18. Summaries (Food Insecurity)” website: https://odphp. health.gov/healthypeople/priority-areas/social-determi- 27. CDTFA News Release, “Leveraging GenAI to Enhance nants-health/literature-summaries/food-insecurity Services for Taxpayers” (Jan. 16, 2024). 39. J. Lasky-Fink, J. Li, and A. Doherty, Reminder Postcards and Simpler Emails Encouraged More College Students to Apply for CalFresh, California Policy Lab (Aug., 2022). ARTIFICIAL INTELLIGENCE, FOOD INSECURITY, AND CALIFORNIA’S VULNERABLE POPULATIONS | 24 40. A. McCann, “Most & Least Diverse States in America 51. Cf. The USDA ERS Food Access Research Atlas: https:// (2024)”, WalletHub (Sep. 17, 2024). S. Azari et al., The www.ers.usda.gov/data-products/food-access-re- Foreign-Born Population in the United States: 2022, U.S. search-atlas/go-to-the-atlas/. See also Feeding America’s Census Bureau (American Community Survey Briefs) “Mind the Meal Gap” website, which provides food (Apr., 2024). desert information on a county-by-county scale: https:// map.feedingamerica.org/county/2022/overall/california/ 41. Los Angeles Food Policy Council, Fresh Ideas for CalFresh county/yolo. (Mar., 2022), pp. 21-22. 52. P.M. Rosset, “Benefits of Small Farm Agriculture”, Insti- 42. Many studies support this observation. See, for example, tute for Agriculture and Trade Policy (1999). D. Gonzalez, M. Karpman, and C.A. Caraveo, Immigrant Families in California Faced Barriers Accessing Safety Net 53. UC Davis’ AI Institute for Next Generation Food Systems Programs in 2021, but Community Organizations Helped is playing an important role in AI farming technology. Its Many Enroll, Urban Institute (Aug., 2022). website provides an excellent overview of AI tools being used in this space: https://aifs.ucdavis.edu/ 43. GetCalFresh.org has compiled the very helpful FAQ web- site “A CalFresh Guide for Immigrants”: https://www. 54. Microsoft FarmBeats website: https://www.microsoft. getcalfresh.org/immigrants. Undocumented immigrants, com/en-us/research/project/farmbeats-iot-agriculture/. DACA recipients, individuals on student, work, or tourist visas, and Temporary Protected Status residents are 55. Digital Green website: https://digitalgreen.org/. Farmer. generally not eligible. chat website: https://farmerchat.digitalgreen.org/. 44. Undocumented immigrants over the age of 55 are 56. Grant Programs at CDFA website: https://www.cdfa. eligible for California-based food assistance through the ca.gov/grants/. California Food Assistance Program (CFAP). And recent 57. Engelhard and Hake (2020), pp. 6-9. efforts, such as SB 245 (Hurtado and Rubio) and AB 311 (Santiago), have sought to expand CFAP to include all un- 58. See P. Stepczak, “Unlocking Social Solutions: Exploring documented workers. However, these efforts have so far the Power of Social Hackathons”, Medium (Aug. 2, 2023). not been successful. The factsheet for AB 311 (Santiago), LHC Commission staff engaged with social justice-fo- which provides an overview of current law and research, cused hackathons, including one on housing in Cincinnati is available online: https://www.cafoodbanks.org/ and one at UC Davis, where students enhanced a chat- wp-content/uploads/2023/02/AB-311_Fact-Sheet.docx. bot for small farmers: https://www.flywheelcincinnati. org/housing-stabilization-hackathon and https://aifs. 45. M. Unrath, Pushed Out by Paperwork: Why Eligible ucdavis.edu/news-and-events/apps-for-food-and-ag- Californians Leave CalFresh, California Policy Lab (Jan., hackathon-at-uc-davis! 2021). The quote that follows is from page 2. 59. AB 1961 (Wicks) proposed a task force to create a master 46. CDSS publishes figures relating to CalFresh “churn”— plan for ending hunger, while AB 1967 (Jackson) aimed when people lose eligibility and then reapply within 90 to appoint a dedicated Food Insecurity Officer to align days—on a monthly basis: https://www.cdss.ca.gov/in- efforts across programs like CalFresh and CFAP. Neither foresources/data-portal/research-and-data/calfresh-da- bill was successful. ta-tables/cf-18. Churn rates are a facet of CalFresh reten- tion, but do not reflect the full scope of the problem. 60. M. Bankhwal et al., AI for Social Good: Improving Lives and Protecting the Planet, McKinsey & Co. (May, 2024). 47. See the Medallia blog post “How AI Personalization Is For a full discussion of of the United Nations’ Sustain- Changing the Customer Experience” (Mar. 22, 2024). able Development Goals, see: https://sdgs.un.org/goals. 48. For example, the 90-day churn rate for 2018-19 ranged McKinsey’s 2024 report notes AI growth across all of from 10% to 30%, with some counties experiencing the SDGs, although areas like gender equality and clean spikes of 40% or more, regardless of size. This variation water lag behind healthcare and education. suggests that county-level factors—such as staff size, 61. Cf. SCR 17 (Dodd), which affirms the California Legis- experience, or internal practices—may explain these dif- lature’s commitment to adhering to the governance ferences. Cf. SF-Marin Food Bank, “CalFresh Churn: What principles adopted in President Biden’s “Blueprint for an Is It, And How Do We Fix it?” (Mar., 2017). AI Bill of Rights”. 49. CDSS Electronic Benefit Transfer (EBT) Card website: 62. See M. Zuckerberg, “Open Source AI is the Path For- https://www.cdss.ca.gov/ebt-card ward”, Meta Newsroom (Jul. 23, 2024). Meta has been 50. Cf. 6abc Digital Staff, “New App Uses AI to Match SNAP a leader in open-source GenAI tools and has argued Recipients with Surplus Food in Delaware” (Jul. 11, strongly for its proliferation. Shane Witnov, Privacy and 2024). Policy Director at Meta, made this case at the May 25, 2024 Little Hoover Commission hearing. 25 | LITTLE HOOVER COMMISSION 63. For a useful overview of this concept, see S. Giordano and J. Edwards, “Enhancing Cultural Responsiveness in Social Services Agencies”, Office of Planning, Research & Evaluation (Dec., 2023). 64. J. Boyd et al., “Trend 4: Tailored Public Services”, Deloitte Insights (2023). 65. Geographic disparities are a recurring theme in this report. Cf. Little Hoover Commission, “Issue Brief: Using Data Tools to Compare Regional Economic Well-Being in California” (Nov. 2022). 66. R. Matheus, M. Janssen, and D. Maheshwari, “Data Science Empowering the Public: Data-Driven Dashboards for Transparent and Accountable Decision-Making in Smart Cities”, Government Information Quarterly 37.3 (Jul. 2020). ARTIFICIAL INTELLIGENCE, FOOD INSECURITY, AND CALIFORNIA’S VULNERABLE POPULATIONS | 26 Little Hoover Commission Members CHAIR PEDRO NAVA | Santa Barbara JOSÉ ATILIO HERNÁNDEZ | Burbank Appointed to the Commission by Speaker of the Assembly Appointed by Speaker of the Assembly Anthony Rendon John Pérez in April 2013 and reappointed by Speaker in April 2023. Founder and CEO of IDEATE California, a of the Assembly Anthony Rendon in 2017 and again public relations and policy management firm. Also, founder in 2021. Government relations advisor. Former State and Board Chairman of ideateLABS. Former Director for Assemblymember from 2004 to 2010, civil litigator, External Affairs and Community Relations for ConnectEd: deputy district attorney and member of the state Coastal The California Center for College and Career. Commission. Elected chair of the Commission in March 2014. JASON JOHNSON | Napa Appointed by Governor Newsom in June 2023. Member VICE CHAIR ANTHONY CANNELLA | Ceres of the Land Trust of Napa County Board of Trustees and Appointed to the Commission by the Senate Rules Horary Commander of Travis Air Force Base. Former Committee in March 2022. Civil engineer and principal with Managing Partner at Founders Den. Founder and former Northstar Engineering Group. Former State Senator from CEO at August Home Inc. 2010 to 2018. Previously served on the Ceres City Council and was twice elected mayor of that city. Elected Vice Chair ASM. LIZ ORTEGA | San Leandro of the Commission in July 2023. Appointed to the Commission by Speaker of the Assembly Anthony Rendon in March 2023. Elected in November DION ARONER | Berkeley 2022 to represent the 20th Assembly District. Represents Appointed to the Commission by the Senate Rules Hayward, San Leandro, most of Union City, portions Committee in April 2019. Partner for Aroner, Jewel, and of Dublin and Pleasanton, and several unincorporated Ellis. Former State Assemblymember from 1996 to 2002, communities. chief of staff for Assemblymember Tom Bates, social worker for Alameda County, and the first female president JANNA SIDLEY | Los Angeles of Service Employees International Union 535. Appointed to the Commission by Governor Edmund G. Brown Jr. in April 2016 and reappointed in February 2020. DAVID BEIER | San Francisco Partner at Ichor Strategies and appointed to the Board Appointed to the Commission by Governor Edmund G. of the Los Angeles City Employee Retirement System Brown Jr. in June 2014 and reappointed in January 2018. (“LACERS”). Former general counsel at the Port of Los Managing director of Bay City Capital. Former senior officer Angeles and city attorney at the Los Angeles City Attorney’s of Genentech and Amgen, and counsel to the U.S. House of Office. Representatives Committee on the Judiciary. Full biographies are available on the Commission’s ASM. PHILLIP CHEN | Yorba Linda website at www.lhc.ca.gov. Appointed to the Commission by Speaker of the Assembly Anthony Rendon in October 2021. Elected in November 2016 to represent 55th District. Represents portions of Los Angeles, Orange and San Bernardino counties and the cities of Brea, Chino Hills, Diamond Bar, La Habra, Industry, Placentia, Rowland Heights, Walnut, West Covina and Yorba Linda. GIL GARCETTI | Los Angeles Appointed to the Commission by Governor Gavin Newsom in November 2021. Professional photographer and author of ten books. Former Los Angeles County District Attorney, teaching Fellow at Harvard University’s Kennedy School, and president of the California Science Center Foundation’s Board of Trustees. “DEMOCRACY ITSELF IS A PROCESS OF CHANGE, AND SATISFACTION AND COMPLACENCY ARE ENEMIES OF GOOD GOVERNMENT.” By Governor Edmund G. “Pat” Brown, addressing the inaugural meeting of the Little Hoover Commission, April 24,1962, Sacramento, California Milton Marks Commission on California State Government Organization and Economy www.lhc.ca.gov