Most U.S. states have been underpaying jobless benefits for millions of Americans who took a financial hit during the COVID-19 crisis, according to a government watchdog.

The Government Accountability Office said in a report on Monday that states have been paying self-employed and gig workers getting aid under the federal Pandemic Unemployment Assistance (PUA) program less than they’re entitled to. Congress created PUA in March for workers who don’t normally qualify for regular unemployment benefits. About 13 million Americans have received assistance under the program.

“[T]he majority of states have been paying PUA claimants the minimum allowable benefit instead of the amount they are eligible for based on prior earnings,” the GAO said.

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