Projects

Digital Doorways to Public Benefits: Understanding User Experiences with Identity Management

How does interacting with digital identity systems impact people’s experiences of accessing public benefits?

Partners & Funders

The Project

Public benefits administrators may use account creation, authentication systems, or digital identity proofing to understand who users are, secure systems, and protect private data. However, these processes can pose undue barriers to people accessing benefits. This project aimed to provide administrators with first-hand experiences of members of the public who use digital identity systems as they apply for and access public benefits.

The Outcome

PPL conducted research with public benefits users in three states and delivered multimedia findings to inform ongoing work on digital identity system improvement.

Digital Doorways to Public Benefits: Understanding User Experiences with Identity Management

How does interacting with digital identity systems impact people’s experiences of accessing public benefits?

Partners & Funders

The Project

Public benefits administrators may use account creation, authentication systems, or digital identity proofing to understand who users are, secure systems, and protect private data. However, these processes can pose undue barriers to people accessing benefits. This project aimed to provide administrators with first-hand experiences of members of the public who use digital identity systems as they apply for and access public benefits.

The Outcome

PPL conducted research with public benefits users in three states and delivered multimedia findings to inform ongoing work on digital identity system improvement.

Project Background

When people across the United States apply for public benefits online, they may be asked to create a username and account, and in some cases, prove who they are by verifying their identity. “Digital identity” refers to the ways someone represents themself online while “identity proofing” gives a service or system confidence that a person is who they say they are. When implementing identity management approaches, public benefits administrators must balance security with accessibility, ensuring verification and account requirements don’t create unnecessary barriers. Digital identity tools can affect service access, raise equity and data privacy concerns, and impact staff workload.

Since 2022, the Digital Benefits Network (DBN), a project of the Beeck Center for Social Impact + Innovation at Georgetown University, has been providing research and resources about how identity proofing and authentication practices are integrated into online public benefits applications in the U.S. In 2025, the Public Policy Lab collaborated with the DBN to conduct human-centered research with beneficiaries across the United States. Throughout research, we collected multimedia stories from our participants and developed a short video of meaningful footage. These insights and multimedia stories are featured in a DBN report on digital identity system improvement alongside synthesized takeaways and recommendations.

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Data Points

What We Found

During research, we engaged 33 participants across Boston, Massachusetts; Phoenix and Tucson, Arizona; and Yonkers, New York. We spoke to people who have recently applied online for programs like Medicaid, SNAP, and Unemployment Insurance (UI). We also spoke with subject matter experts, including legal aid staff, and librarians who often assist folks in benefits access. These interviews were conducted with the support of CBOs, libraries, and non-profits who opened up their spaces to us.

We honed in on four key inquiry areas: access, consent, support, and trust.

  • Access What accessibility challenges do beneficiaries face when navigating digital identity processes (e.g., account creation, authentication, and identity proofing) across different contexts, devices, and personal circumstances
  • Consent How do beneficiaries experience choice, control, and transparency in digital identity systems?
  • Support What support systems are available to enrollees and
    beneficiaries and how do they interact with them?
  • Trust How do digital identity systems and/or external forces affect beneficiaries’ trust, agency, and experience accessing public benefits?

During interviews, we used design stimuli to aid our conversation. These included a journey map of benefits portal screens to visualize the account creation, log-in and, when relevant, identity proofing steps across Medicaid, SNAP, and UI for each state. This visualization helped jog participants’ memories and ground the conversation in specific features. From our interviews, we collected 700+ noteworthy data units, which we collected into a scrubbed and tagged research repository.

Research Using Design Stimuli

A PPL researcher facilitates an interview using design stimuli. Stimuli included stills from benefits application webpages to prompt discussion and reflection. 

What We Implemented

In September 2025, the Digital Benefits Network (DBN) released a full-length report synthesizing learnings and recommendations based on this research. The final report uses photos, quotes, and video material to help audiences hear directly from beneficiaries about their experiences. In the words of DBN, “to build digital identity processes that are truly secure and inclusive, we must first understand who is struggling, how, and why.” Read the full report here

The report identifies four primary themes and related takeaways:

  • Privacy & Security Challenges
    • Beneficiaries often prioritize access over privacy and security concerns
    • Tensions exist between security and user convenience
  • Access & Authentication Issues
    • Changing personal circumstances can make account re-access difficult
    • Unstable access to devices and accounts complicates multi-factor authentication
    • Current security measures don’t always accommodate diverse life experiences
  • User Experience & Support
    • Human support remains crucial, even with digital systems
    • Not all friction in the process is negative; sometimes it can be beneficial
  • Technology Access & Literacy Barriers
    • Digital literacy and access to technology significantly impact experiences
    • Biometric and document or photo upload tools can cause discomfort and usability challenges.

 

In response to these findings, DBN issued recommendations across three areas.

  • Build trust: Increase transparency and offer human support to help beneficiaries navigate digital identity requirements confidently.
  • Improve account creation and authentication: Use risk-based approaches to deploy accounts where needed, support strong authentication practices, and help users make secure choices without getting locked out.
  • Carefully evaluate identity proofing: Design identity proofing approaches that meet program needs, and the diverse capabilities, access levels, and life experiences of the people using them.

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