Add San Francisco County Adult Assistance Program (CAAP)

[hua7450]

Summary

Implements the San Francisco County Adult Assistance Programs (CAAP) — General Assistance (GA) tier — in PolicyEngine. CAAP is San Francisco's locally funded cash-assistance program for indigent adults, administered by the SF Human Services Agency under SF Administrative Code Ch. 20 Article VII and CA Welfare & Institutions Code §17000. This PR models the grant (fill-the-gap: max grant minus countable income) for both the General Assistance and PAES tiers, asset and immigration eligibility, the 5-tier earned-income disregard (recipients only), the Title 22 §50511 in-kind valuation chart with the $59 minimum-cash floor, per-person exclusion of SSI and CAPI recipients, and a unit-level CalWORKs bar. PAES enrollment is captured by the shared is_in_work_program input.

Closes #8590

Regulatory Authority

• SF Admin Code Ch. 20, Article VII (County Adult Assistance Programs), SEC. 20.7-1 through 20.7-58 — canonical ordinance (amlegal): https://codelibrary.amlegal.com/codes/san_francisco/latest/sf_admin/0-0-0-65352
• CAAP Eligibility Manual (SF HSA, effective 2026-05-14): https://www.sfhsa.org/sites/default/files/media/document/2026-05/manual_caap_eligibility_5_14_2026.pdf
• CA Welfare & Institutions Code §17000 (county General Assistance mandate)
• Title 22 CCR §50420 (Medi-Cal property reserve — asset limit) and §50511 (Income-in-Kind chart)

Citation split: structural / eligibility rules are cited to the amlegal ordinance; dollar values (grant tables, in-kind chart, asset reserve) are cited to the CAAP Manual / Title 22, because the ordinance does not print the rate tables. All #page= anchors on the Manual use the PDF's physical page numbers (the Manual's printed page numbers run ~+424 ahead of physical pages).

Program Overview

• Administration: County-administered (SF Human Services Agency).
• Funding: County / local funds, under the CA W&I Code §17000 county GA mandate.
• Scope of this PR: the General Assistance and PAES grant tiers (single max $578 GA / $714 PAES). PAES enrollment is captured by the shared is_in_work_program input. The CALM and SSIP grant tiers and all sub-program activity-qualification gates are documented as not modeled (see Scope and Not Modeled).

Scope

• GA and PAES grant tiers. ca_sf_caap_max_grant selects the PAES table when any CAAP-eligible member is in a work program (is_in_work_program, masked to budget-unit members), else the GA table; the +$35/person-beyond-the-max-charted-size rule (SEC. 20.7-21(e)) is shared, and the max charted family size is a parameter (amount/max_family_size, 10). The CALM and SSIP grant tiers and the activity-qualification gates (PAES job-readiness, CALM Medi-Cal linkage, SSIP disability/pending-SSI) are documented as not modeled.
• Note placement: this is a county / local program, placed under gov/local/ca/sf/caap/, consistent with the sibling CA county GA programs (Alameda gov/local/ca/ala/ga/, Riverside gov/local/ca/riv/general_relief/, LA gov/local/ca/la/general_relief/). ca_sf_caap is registered in programs.yaml (status: partial — GA + PAES grant tiers modeled; CALM/SSIP and activity gates not yet), alongside those siblings. Like them, it is not added to the household benefit aggregator (county GA does not flow into the household state-benefit total).

Income Eligibility & Resource Tests

Test	Source	How modeled
Resides in San Francisco	SEC. 20.7-11	in_san_francisco locator (county_str == "SAN_FRANCISCO_COUNTY_CA"); every CAAP variable chains defined_for through the eligibility variable
Adult, no-dependent-children path	SEC. 20.7-6	ca_sf_caap_age_eligible (monthly_age >= 18); a child in the unit fails the test. The CalWORKs-ineligible-parents split is not tracked at the moment
Cash-asset limit $2,000 single / $3,000 couple	Title 22 §50420 (SEC. 20.7-13 defers to it)	ca_sf_caap_personal_property_eligible (spm_unit_cash_assets <= limit); single/couple limits in eligibility/personal_property/limit/{single,couple}.yaml
Net income below the max grant	SEC. 20.7-10	ca_sf_caap_income_eligible (ca_sf_caap_countable_income < ca_sf_caap_max_grant, strict <). Uses cash income only — in-kind value is handled at the grant level, not the income test
Not on SSI or CAPI (per person)	SEC. 20.7-14; Manual 91-2 (#page=34)	ca_sf_caap_eligible_person (~(ssi > 0) & ~ca_capi_eligible_person and a qualified immigration status) is summed into ca_sf_caap_budget_unit_size. SSI and CAPI are individual programs, so each recipient drops out of the unit per person — a non-recipient member still qualifies — and their (exempt) income is excluded
Not on CalWORKs (unit)	SEC. 20.7-6; Manual 91-2 (#page=34)	ca_tanf > 0 checked directly in ca_sf_caap_eligible; CalWORKs is a family grant, so the bar applies at the unit level. RCA / ECA also bar in the manual but have no PolicyEngine variable (not modeled)
Qualified immigration status	SEC. 20.7-6; Manual Div 91-4 (#page=123–127)	ca_sf_caap_immigration_status_eligible against the qualified_immigration_status.yaml whitelist (CITIZEN, LEGAL_PERMANENT_RESIDENT, REFUGEE, ASYLEE, CUBAN_HAITIAN_ENTRANT, DEPORTATION_WITHHELD, CONDITIONAL_ENTRANT, PAROLED_ONE_YEAR, DACA, TPS), reusing the existing immigration_status enum. PRUCOL / SF-specific humanitarian categories are approximated by this set

Income Deductions & Exemptions

• Counted income — earned income (less the disregard below) plus unearned income (Social Security, unemployment compensation, veterans' benefits, pensions, child support, workers' compensation, railroad retirement), from the positive countable_income/sources/{earned,unearned}.yaml lists. Only the income of persons counted in the budget unit is included.

• 5-tier earned-income disregard (recipients only) — ca_sf_caap_earned_income_disregard, a marginal-rate scale on gross monthly earned income (SEC. 20.7-21(j) / Div 94-14):

  Band	Disregard	Amount disregarded
  First $200	100%	$200
  Next $150 ($200–$350)	2/3	$100
  Next $150 ($350–$500)	1/2	$75
  Next $150 ($500–$650)	1/3	$50
  Next $150 ($650–$800)	1/5	$30
  Remainder (> $800)	0%	dollar-for-dollar

  The disregard caps at $455. It is gated on ca_sf_caap_is_recipient (a SPMUnit boolean input defaulting to False): applicants receive no disregard.

• ~9 exempt income types (SEC. 20.7-14: SSI/SSP, tax refunds incl. EITC, foster care / adoption assistance / KinGAP, relocation payments, training/job-readiness payments, student grants/loans paid to the school, locally-funded work-incentive payments, Guaranteed Income Pilot payments, rent grants/loans at application) are modeled by omission from the positive countable_income/sources/{earned,unearned}.yaml lists.

• In-kind value (Title 22 §50511 chart, below) is deducted from the grant, not from countable income.

Benefit Calculation

Fill-the-gap, computed monthly at the SPM-unit level:

ca_sf_caap_max_grant(family size) − max_(ca_sf_caap_countable_income, 0)

written as an explicit base − max_(countable, 0) (not an adds/subtracts aggregation) so that negative income sources (e.g. self-employment losses) cannot inflate the benefit above the max grant.

The in-kind value of any housing / utilities / food / clothing provided is deducted from the grant (SEC. 20.7-22). When the in-kind value meets or exceeds the grant, the $59 minimum-cash floor (SEC. 20.7-24) tops the otherwise-eligible recipient back up to $59/month — capped at the cash entitlement (min_(grant_after_income, $59)), so in-kind support never raises the net benefit above what cash income alone leaves. The full grant is treated as received — the Mandatory Direct Rent Payment routing (landlord-direct vs. cash) is not split out, since it does not change the total benefit value.

Income / Grant Standards

GA maximum monthly grant, effective 2024-10-01 (unchanged in both the 2025 and 2026 manuals), from amount/ga/by_family_size.yaml (Div 99.3-1, Manual #page=487):

Family size	GA max grant
1	$578
2	$1,036
3	$1,166
4	$1,390
5	$1,583
6	$1,774
7	$1,949
8	$2,127
9	$2,294
10	$2,465
Each person beyond 10	+$35

PAES maximum monthly grant (the higher tier, SEC. 20.7-21(b), Manual #page=43), effective 2024-10-01, from amount/paes/by_family_size.yaml — applied when is_in_work_program:

Family size	PAES max grant
1	$714
2	$1,172
3	$1,449
4	$1,722
5	$1,964
6	$2,205
7	$2,422
8	$2,640
9	$2,861
10	$3,107
Each person beyond 10	+$35

In-kind value chart (Title 22 §50511, Div 99-1, Manual #page=467), effective 2025-11-01:

Family size	Housing	Utilities	Food	Clothing
1	$422	$89	$231	$70
2	$560	$102	$493	$137

(Each person beyond 10 adds $35 to food and clothing. The Manual prints only sizes 1–2 — see Not Modeled.)

Other standards: cash-asset limit $2,000 single / $3,000 couple (Title 22 §50420); $59 minimum cash floor (SEC. 20.7-24); age threshold 18.

Requirements Coverage

18 in-scope requirements: 13 covered, 5 by-design, 0 missing.

REQ	Description	Param	Variable	Test
001	Resides in San Francisco	—	in_san_francisco (+ defined_for chain)	in_san_francisco.yaml, eligible.yaml
003	Adult / no-dependent-children	eligibility/age_threshold.yaml	ca_sf_caap_age_eligible	ca_sf_caap_age_eligible.yaml, eligible.yaml
004	Cash-asset limit $2k/$3k	eligibility/personal_property/limit/{single,couple}.yaml	ca_sf_caap_personal_property_eligible	personal_property_eligible.yaml
007	Net income < max grant	—	ca_sf_caap_income_eligible	income_eligible.yaml
008	Immigration whitelist	qualified_immigration_status.yaml	ca_sf_caap_immigration_status_eligible	immigration_status_eligible.yaml
009	Not on SSI/CAPI (per person); not on CalWORKs (unit)	—	ca_sf_caap_eligible_person, ca_sf_caap_budget_unit_size, ca_sf_caap_eligible	ca_sf_caap_eligible_person.yaml, budget_unit_size.yaml, ca_sf_caap.yaml
020	Countable = cash − disregard, in-kind to grant	—	ca_sf_caap_countable_income, _countable_income_person, _income_in_kind	countable_income.yaml, ca_sf_caap.yaml
021	Counted-income positive list	countable_income/sources/{earned,unearned}.yaml	ca_sf_caap_earned_income, _unearned_income	countable_income.yaml
023	5-tier disregard, recipients only	earned_income_disregard.yaml	ca_sf_caap_earned_income_disregard, _net_earned_income, _is_recipient	earned_income_disregard.yaml, net_earned_income.yaml
024	In-kind chart + $59 floor	income_in_kind/{housing,utilities,food,clothing,extra_person}.yaml	ca_sf_caap_income_in_kind + 4 *_provided_in_kind flags	income_in_kind.yaml, ca_sf_caap.yaml
030	GA max-grant table 1–10 + $35	amount/ga/{by_family_size,extra_person}.yaml	ca_sf_caap_max_grant	ca_sf_caap_max_grant.yaml
031	Fill-the-gap, floor countable at 0	—	ca_sf_caap	ca_sf_caap.yaml
032	$59 minimum cash floor	special_allowance/floor.yaml	ca_sf_caap	ca_sf_caap.yaml
034	Couple = family size 2	amount/ga/by_family_size.yaml (size 2)	ca_sf_caap_max_grant	ca_sf_caap_max_grant.yaml, ca_sf_caap.yaml
005	Asset exemptions (burial/life-ins/vehicle)	by design	excluded upstream by spm_unit_cash_assets; documented in docstrings	—
022	~9 exempt income types	by design	modeled by omission from the positive sources lists	—
035	No personal-needs allowance	by design	nothing to add (SEC. 20.7-23)	—
037	COLA 2025 + 2026	by design	grant table unchanged 2025→2026; single 2024-10-01 entry extrapolates forward	—
—	In-kind chart sizes 3–10	by design	source gap (Manual prints only sizes 1–2); formula clips to size-2 fallback	income_in_kind.yaml

Not Modeled

We don't track the following at the moment:

• CALM and SSIP grant tiers, and the activity-qualification gates for the higher tiers (PAES job-readiness, CALM Medi-Cal linkage, SSIP disability + pending-SSI; SEC. 20.7-6). The PAES grant tier itself IS modeled (via is_in_work_program); what is not modeled is which sub-program a recipient qualifies for and the separate CALM/SSIP grant amounts.
• 15-day (GA/CALM/SSIP) / 30-day (PAES) continuous residency (SEC. 20.7-11) — not simulatable from survey data.
• Real-property / home test (SEC. 20.7-12) — known framework limitation.
• ID, finger/photo-imaging, fleeing-felon, CalWORKs time-limit, SUD-treatment gates (SEC. 20.7-16 through 20.7-20) — not simulatable.
• Mandatory Direct Rent Payment (SEC. 20.7-33) — full grant treated as received; this is a payment-routing detail that does not change the total benefit.
• Housing supplement / +$50 cash (Div 94-14.1, up to 3×/12 months) — episodic special-needs payment requiring month-over-month income-drop tracking.
• In-kind chart sizes 3–10 — the Manual prints only sizes 1–2; sizes 3–10 are a genuine source gap, so the formula clips to the size-2 value as a fallback.
• Under-18 emancipated-minor exceptions to the age gate (Manual Div 91-4.5 Age, p.144) — the Manual admits some applicants under 18 who are legally married, divorced, widowed, registered domestic partners, or court-emancipated. PolicyEngine has no emancipation input and does not separately model these statuses for minors, so the age gate applies the general 18-and-over rule and this rare exception pathway is not modeled (documented in ca_sf_caap_age_eligible.py).
• Pre-11/1/25 in-kind chart values — the §50511 in-kind chart we sourced is the "Revised 11/1/25" version; earlier charts are not backdated, so in-kind valuation is modeled from 2025-11-01 onward (in-kind input flags default off).
• RCA (Refugee Cash Assistance) and ECA (Entrant Cash Assistance) other-aid bars (Manual 91-2) — barred by the manual but have no PolicyEngine variable. CalWORKs and CAPI are modeled (CalWORKs per unit via ca_tanf; CAPI per person via ca_capi_eligible_person, alongside the SSI exclusion).
• Immigration categories with no ImmigrationStatus enum member — COFA permanent residents (FSM / Marshall Islands / Palau), VAWA self-petitioners, U-visa, T-visa, and SIV holders are listed as eligible by the manual but cannot be expressed with the current enum (documented in ca_sf_caap_immigration_status_eligible.py).
• California State Disability Insurance (DIB) — counted as unearned income by the manual but has no PolicyEngine variable (social_security_disability is federal SSDI, a different program, and is not substituted).
• Mid-month grant proration (Manual pp.495–497) — a full monthly grant is computed; partial-month proration is not modeled.
• 2019 / 2020 manual eras — out of scope; only the 2025 + 2026 eras are implemented.

Historical Notes

• The GA grant amounts effective 2024-10-01 are unchanged across both the 2025 and 2026 manuals, so a single parameter entry covers both eras — no separate COLA parameter is needed (the grant table already is the COLA-adjusted value, so fabricating a COLA series was avoided).
• The in-kind value chart is dated 2025-11-01 (its manual revision date, Div 99-1 rev. 11/1/25).
• Structural lists, the $59 floor, the disregard scale, and the asset limits are dated 2017-01-01 (the ordinance operative date, Ord. 153-16) to avoid backward-extrapolation phantom benefits.

Files Added

parameters/gov/local/ca/sf/caap/                    (17 files)
  amount/{ga,paes}/by_family_size.yaml, amount/{extra_person,max_family_size}.yaml
  income_in_kind/{housing,utilities,food,clothing,extra_person}.yaml
  special_allowance/floor.yaml
  earned_income_disregard.yaml
  countable_income/sources/{earned,unearned}.yaml
  eligibility/age_threshold.yaml
  eligibility/personal_property/limit/{single,couple}.yaml
  qualified_immigration_status.yaml

variables/
  household/demographic/person/is_in_work_program.py  (shared input; also added by PR #8360)
  gov/local/ca/sf/in_san_francisco.py                 (locator)
  gov/local/ca/sf/caap/                               (21 files)
    ca_sf_caap.py, ca_sf_caap_max_grant.py, ca_sf_caap_is_recipient.py
    eligibility/  (7: eligible, age, income, personal_property,
                  immigration_status, eligible_person, budget_unit_size)
    income/       (11: countable_income, countable_income_person,
                  earned_income, net_earned_income, earned_income_disregard,
                  unearned_income, income_in_kind, and 4 *_provided_in_kind flags)

tests/policy/baseline/gov/local/ca/sf/
  in_san_francisco.yaml
  caap/  (14: max_grant, ca_sf_caap, integration, + eligibility/ and income/ trees)

Test plan

• 98 CAAP YAML tests pass (104 across the full sf/ tree, including the pre-existing sf/wftc tests).
• make format (ruff format) and ruff check clean.
• CI passes.

[codecov]

Codecov Report

✅ All modified and coverable lines are covered by tests.
✅ Project coverage is 100.00%. Comparing base (bd1ae42) to head (bcc0b8e).
⚠️ Report is 2 commits behind head on main.

Additional details and impacted files

@@             Coverage Diff              @@
##             main     #8591       +/-   ##
============================================
+ Coverage   77.77%   100.00%   +22.22%     
============================================
  Files           1        23       +22     
  Lines           9       260      +251     
============================================
+ Hits            7       260      +253     
+ Misses          2         0        -2     

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