95-917 EPW
Updated March 27, 1998
CRS Report for Congress
Received through the CRS Web
Older Americans Act: Programs and Funding
Carol O’Shaughnessy and Alice D. Butler
Education and Public Welfare Division
Summary
The Older Americans Act is the major vehicle for the delivery of social and nutrition
services for older persons. FY1998 funding for programs under the Act totals $1.445
billion and the Administration has requested the same for FY1999. Originally enacted
in 1965, the Act was created in response to concerns about the lack of community
services for older persons and the desire of policymakers to improve the status of seniors.
The Act has been amended 13 times. Legislation that would have resulted in several
modifications to the Act and its programs was considered during the 104th Congress, but
action was not completed before adjournment. It is expected that the 105 Congress will
th
consider legislation to reauthorize the Act.1
Programs
Administration on Aging (AoA). Title II of the Older Americans Act establishes
AoA, within the Department of Health and Human Services (DHHS), as the chief federal
agency advocate for older persons. It also authorizes the Federal Council on Aging,
whose purpose is to advise the President and the Congress on the needs of older persons.
The Council’s 15 members are appointed by the President, the Speaker of the House, and
the President pro tempore of the Senate. The last time the Council received funding was
in FY1995.
Grants for States and Community Programs on Aging. Title III authorizes grants
to state and area agencies on aging to act as advocates on behalf of, and to coordinate
programs for, the elderly. The grant program, which supports 57 state agencies on aging,
660 area agencies on aging, and 27,000 service providers, currently funds six separate
service programs. States receive separate allotments of funds for supportive services and
centers, congregate and home-delivered nutrition services, U.S. Department of Agriculture
(USDA) commodities or cash-in-lieu of commodities, preventive health services, and in-
home services for the frail elderly. Three other programs — assistance for special needs,
For
1
further information on reauthorization activity in the 105th Congress see: CRS Report
96-976, Older Americans Act: 105th Congress Issues, by Carol O’Shaughnessy.
Congressional Research Service ˜ The Library of Congress

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school-based meals and multigenerational activities, and supportive activities for caretakers
— have never been funded. Title III services are available to all seniors but are targeted
to those with the greatest economic and social need, particularly low-income minority
seniors. Means testing is prohibited. Participants are encouraged to make voluntary
contributions for services.
Funding for supportive services, congregate and home-delivered nutrition services,
and in-home services for the frail elderly is allocated to states by AoA based on each
state’s relative share of the total population of persons aged 60 years and over. States are
required to award funds for the local administration of these programs to area agencies on
aging. USDA provides commodities or cash-in-lieu of commodities to states, in
conjunction with these programs, based on the number of meals served under the program.
The Title III nutrition program is the Act’s largest program. FY1998 funding of
$626 million represents 43% of the Act’s total funding and 65% of Title III funds. Most
recent data show that in FY1995 the program provided 242 million meals to over 3.4
million older persons. Fifty-one percent of the meals were provided in congregate settings,
such as senior centers and 49% were provided to frail older persons in their homes.
Data from a national evaluation of the nutrition program show that compared to the
total elderly population, nutrition program participants are older and more likely to be
poor, to live alone, and to be members of minority groups. They are also more likely to
have health and functional limitations that place them at nutritional risk. The report found
the program plays an important role in participants’ overall nutrition and that meals
consumed by participants are their primary source of daily nutrients. The evaluation also
indicated that for every federal dollar spent, the program leverages on average $1.70 for
congregate meals and $3.35 for home-delivered meals.
The supportive services and centers program provides funds to states for a wide array
of social services and activities of approximately 6,400 multipurpose senior centers. The
most frequently provided services are transportation, information and assistance, home
care, and recreation. In FY1995, the program provided about 40 million rides, responded
to over 12 million requests for information and assistance, and provided about 15 million
home care (i.e., personal care, homemaker, or chore) services.
Research, Training, and Demonstration Program. Title IV of the Act authorizes
the Assistant Secretary for Aging to award funds for training, research, and demonstration
projects in the field of aging. Funds are to be used to expand knowledge about aging and
the aging process and to test innovative ideas about services and programs for older
persons. Title IV has supported a wide range of projects, including community-based
long-term care, Alzheimer’s disease support services, and career preparation and
continuing education in the field of aging.
Senior Community Service Employment Program. Title V of the Act authorizes
the establishment of a program to provide opportunities for part-time employment in
community service activities for unemployed, low-income older persons who have poor
employment prospects. The program has three goals: to provide employment
opportunities for older persons; to create a pool of persons who provide community
services; and to supplement the income of low-income older persons (income below 125%
of the federal poverty level). Enrollees work in a variety of community service activities

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and are paid the higher of the federal or state minimum wage or the local prevailing pay
for similar employment. The program, which is not considered a job training program,
supports over 61,000 jobs in program year (PY) 1997-1998 (July 1, 1997-June 30, 1998).
Title V is administered by the Department of Labor (DOL), which awards funds to
ten national organizations and to all states. Funding is distributed using a combination of
factors, including a “hold harmless” for employment positions held by national
organizations in 1978, and a formula based on states’ relative number of persons aged 55
and over and per capita income. Funds are distributed so that national organizations
receive 78% of the total appropriation, and states receive 22%.
Grants for Services for Native Americans. Title VI authorizes funds for supportive
and nutrition services to older Native Americans. Funds are awarded directly by AoA to
Indian tribal organizations, Native Alaskan organizations, and non-profit groups
representing Native Hawaiians.
Vulnerable Elder Rights Protection Activities. Title VII authorizes five separate
vulnerable elder rights protection activities. States receive separate allotments of funds
for the long-term care ombudsman program and elder abuse prevention activities. Two
other authorized programs — elder rights and legal assistance, and Native Americans elder
rights — have never been funded. Funding for vulnerable elder rights protection activities
is allotted to states based on the states’ relative share of the total population age 60 and
older. State agencies may award funds for these activities to a variety of organizations for
administration, including other state agencies, area agencies on aging, county
governments, or other nonprofit services providers or volunteer organizations.
The largest elder rights protection program is the long-term care ombudsman
program, whose purpose is to investigate and resolve complaints of residents of nursing
facilities, board and care facilities, and other adult care homes. It is the only Older
Americans Act program that focuses solely on the needs of institutionalized persons and
is authorized under both Title III (supportive services and centers) and Title VII. State
and other nonfederal funds represent a significant amount of total funds for the program.
In FY1995, about $41 million in federal and nonfederal funding was devoted to support
this program. About 48% of the program effort was supported by Title III and 15% by
Title VII; nonfederal funds represented about 35% of the total program support.

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Funding
FY1998 Funding
Summary. The House and
Older Americans Act Funding, FY1998
Senate passed FY1998 funding
State and community

legislation (H.R. 2264) for programs
programs on aging
$962 mil.
under the Older Americans Act. O
2
n
Community service
employment
November 13, 1997, the President
67%
$440 mil.
signed P.L. 105-78 (H.R. 2264),
30%
completing the FY1998
(Nutrition services)
3%
appropriations process for the
Departments of Labor, Health and
Human Services, Education, and
Native Americans $18 mil.
Administration on Aging $15 mil.
Related Agencies. On November 18,
Research, demonstration, & training $10 mil.
1997, the Agriculture appropriations
Total = $1.445 bil.
bill was signed into law (P.L. 105-86),
providing funding for the elderly
nutrition program. FY1998 funding for programs under the Older Americans Act totals
$1.445 billion, $12 million more than in FY1997, representing a 1% increase. Total
funding for the nutrition program increased by 3% over the FY1997 level.
Program Levels. FY1998 funding for nutrition services under the Older Americans
Act is $626 million. Funding levels for congregate and home-delivered services increased
slightly above the FY1997 amount so that congregate meals funding was increased by 2%
and home-delivered meals was increased by 7%. The USDA commodities progra
3
m
received $140 million (P.L. 105-86), the same amount as in FY1997. Funding for
supportive services and centers was increased by 3% to $310 million. Title VII activities,
elder abuse prevention and long-term care ombudsman programs, continue to receive
earmarks under supportive services and centers. Since FY1996, these two activities have
received earmarks under supportive services and centers equivalent to FY1995 funding
levels for the separately authorized programs under Title VII.
The community service employment and training (Title V) program is funded at $440
million for FY1998, a $5 million (1%) increase over the amount available in FY1997 ($435
million). Preventive health and in-home services for the frail elderly both received funding
increases over the FY1997 appropriations levels. Preventive health is funded at $16
million for FY1998, a 3% increase above FY1997 funding, while frail elderly services is
funded at almost $10 million, representing a 5% increase over its FY1997 level.
2Programs under the Older Americans Act, with the exception of the USDA commodities
program are funded annually under appropriations legislation for the Departments of Labor, Health
and Human Services, and Education and Related Agencies (L-HHS-ED). Funding for the USDA
commodities program is included in appropriations legislation for Agriculture, Rural Development,
Food and Drug Administration, and Related Agencies.
3The House amount included a $4.725 million increase to nutrition services, added by
Representative Chenoweth’s floor amendment to H.R. 2264. The Senate amount included a $40
million increase added by Senator D’Amato’s floor amendment to S.1061.

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Funding for Title IV research, training and demonstration projects received a
significant increase over the FY1997 level. This activity is funded at $10 million for
FY1998, a 150% increase above the $4 million appropriated in FY1997, (but 62% less
than its FY1995 level of $26.6 million. The program was reduced from $26.6 million in
FY1995 to $2.9 million in FY1996). Grants for Native Americans was increased by 15%,
from $16 million in FY1997, to $18.5 million for FY1998. AoA program administration
is funded at its FY1997 level.
FY1999 Funding
FY1999 Budget Request. The President has requested a total of $1.445 billion for
FY1999 for programs under the Older Americans Act, the same amount appropriated for
FY1998. Programs would be funded at their FY1998 levels. The FY1999 budget request
includes separate funding of $9.2 million for elder abuse prevention and long-term care
ombudsman programs. Since FY1996, these two activities have received earmarks under
Title III, supportive services and centers.

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Table 1. Older Americans Act and Alzheimer’s Demonstration Program,
FY1997-FY1998 Funding, and FY1999 request
($ in millions)
FY1997
FY1998
FY1999
approp.
approp.
request

TITLE II: Administration on Aging
$14.795
$14.795
$14.795
Federal Council on Aging
none
none
none
AoA program administration
14.795
14.795
14.795
TITLE III: Grants for State and Community
Programs on Aging

935.316
961.798
952.617
Supportive services and centers
300.556
309.500
300.319
Preventive health
15.623
16.123
16.123
Nutrition services:
609.874
626.412
626.412
Congregate meals
(364.535)
(374.412)
(374.412)
Home-delivered meals
(105.339)
(112.000)
(112.000)
USDA commodities
(140.000)
(140.000)
(140.000)
School-based meals/multigenerational activ.
none
none
none
In-home services for the frail elderly
9.263
9.763
9.763
Assistance for special needs
none
none
none
Supportive activities for caretakers
none
none
none
TITLE IV: Training, Research, and Discretionary
Projects and Programs

4.000
10.000
10.000
TITLE V: Community Service Employment
463.000a
440.200
440.200
TITLE VI: Grants for Native Americans
16.057
18.457
18.457
TITLE VII: Vulnerable Elder Rights
Protection Activities

none
noneb
9.181
Long-term care ombudsman program
none
none
none
Elder abuse prevention
none
none
none
Elder rights and legal assistance
none
none
none
Outreach, counseling, and assistance
none
none
none
Native Americans elder rights program
none
none
none
TOTAL — Older Americans Act Programs
$1,433.168
$1,445.250
$1.445.250
Alzheimer’s Demonstration Grantsc
5.999c
5.999c
6.000c
Includes $28 million for use in PY1996; $435 million was available for PY1997.
a

b No separate funding provided. The House appropriations committee included an unspecified amount for ombudsman and elder
abuse prevention under supportive services and centers. The conference committee earmarked $4.449 for ombudsman services
and $4.732 for elder abuse prevention in the supportive services program.

c The Administration proposed transferring the program from HRSA to AoA. This proposal was not approved by the House or
Senate Appropriations Committees. The transfer is also proposed for FY1999.