The first blank is a straight read of the spending pie: Shelter has the biggest slice at $24 million of $48 million, so the first blank is Shelter.
The second blank asks for the highest spending per beneficiary, which the stem defines as program spending divided by beneficiaries served. This forces you to combine the two pies rather than read either one alone. Take each program's spending and divide by the people it served. Shelter spent $24 million on 80,000 beneficiaries, which is $300 each. Meals is $100, Clinic $240. Literacy is the striking one: just $4.8 million in spending, the smallest slice on the first chart, on only 10,000 beneficiaries, which is $480 each, the highest of the four, because a small budget concentrated on few beneficiaries is a high amount per person.
The trap is to assume the program that spends the most, or the program that serves the most people, also spends the most per beneficiary, and answer Shelter or Meals. Shelter is the biggest spending slice and Meals is the biggest beneficiary slice, but neither is the per-beneficiary leader. The largest spending belongs to Shelter; the highest spending per beneficiary belongs to Literacy, the smallest program. A per-person figure compares spending to the people it reached, so divide before deciding.