Under existing law, the Department of Rehabilitation is required to provide various services, including independent living services, to eligible individuals with physical or mental disabilities. Existing law provides for the operation of independent living centers (ILCs), which are private, nonprofit organizations that provide specified services to individuals with disabilities, in order to assist those individuals in their attempts to live fuller and freer lives outside institutions.

Existing law, the Mello-Granlund Older Californians Act, establishes various programs that serve older individuals. The act requires the California Department of Aging to designate various private nonprofit or public agencies as area agencies on aging (AAAs) to work within a planning and service area and provide a broad array of social and nutritional services.

The act also establishes Aging and Disability Resource Connection (ADRC) programs to provide information to consumers and their families on available long-term services and supports (LTSS) programs, with assistance to older adults, caregivers, and persons with disabilities in accessing LTSS programs at the local level. Under the act, AAAs and ILCs are the core local partners in developing ADRC programs.

Existing law sets forth various provisions relating to emergency shelters, including, among others, the California Emergency Services Act. Under that act, the State Emergency Plan is the official document approved by the Governor that describes the principles and methods to be applied in carrying out emergency operations or rendering mutual aid during emergencies. Existing law requires the Office of Emergency Services to update the State Emergency Plan on or before January 1, 2019, and every 5 years thereafter. Existing law authorizes the Governor to assign to a state agency any activity concerned with the mitigation of the effects of an emergency of a nature related to the existing powers and duties of that agency.

This bill would, as part of disaster planning and response, require a representative of the county welfare director, in coordination with the lead local agency designated with sheltering support duties under the State Emergency Plan Emergency Support Functions, to initiate a memorandum of understanding with an AAA, an ILC, or an ADRC program to allow access by the AAA, the ILC, or the ADRC program to an emergency shelter, as defined, established for evacuation purposes during an active event, in order to ensure that older adults and persons with disabilities receive continuous services and necessary support. By creating new duties for local officials, the bill would impose a state-mandated local program.

The California Constitution requires the state to reimburse local agencies and school districts for certain costs mandated by the state. Statutory provisions establish procedures for making that reimbursement.

This bill would provide that, if the Commission on State Mandates determines that the bill contains costs mandated by the state, reimbursement for those costs shall be made pursuant to the statutory provisions noted above.

Under existing law, the Department of Rehabilitation is required to provide various services, including independent living services, to eligible individuals with physical or mental disabilities. Existing law provides for the operation of independent living centers (ILCs), which are private, nonprofit organizations that provide specified services to individuals with disabilities, in order to assist those individuals in their attempts to live fuller and freer lives outside institutions.

Existing law, the Mello-Granlund Older Californians Act, establishes various programs that serve older individuals. The act requires the California Department of Aging to designate various private nonprofit or public agencies as area agencies on aging (AAAs) to work within a planning and service area and provide a broad array of social and nutritional services.

The act also establishes Aging and Disability Resource Connection (ADRC) programs to provide information to consumers and their families on available long-term services and supports (LTSS) programs, with assistance to older adults, caregivers, and persons with disabilities in accessing LTSS programs at the local level. Under the act, AAAs and ILCs are the core local partners in developing ADRC programs.

Existing law sets forth various provisions relating to emergency shelters, including, among others, the California Emergency Services Act. Under that act, the State Emergency Plan is the official document approved by the Governor that describes the principles and methods to be applied in carrying out emergency operations or rendering mutual aid during emergencies. Existing law requires the Office of Emergency Services to update the State Emergency Plan on or before January 1, 2019, and every 5 years thereafter. Existing law authorizes the Governor to assign to a state agency any activity concerned with the mitigation of the effects of an emergency of a nature related to the existing powers and duties of that agency.

This bill would, as part of disaster planning and response, require a representative of the county welfare director, in coordination with the lead local agency designated with sheltering support duties under the State Emergency Plan Emergency Support Functions, to initiate a memorandum of understanding with an AAA, an ILC, or an ADRC program to allow access by the AAA, the ILC, or the ADRC program to an emergency shelter, as defined, established for evacuation purposes during an active event, in order to ensure that older adults and persons with disabilities receive continuous services and necessary support. By creating new duties for local officials, the bill would impose a state-mandated local program.

The California Constitution requires the state to reimburse local agencies and school districts for certain costs mandated by the state. Statutory provisions establish procedures for making that reimbursement.

This bill would provide that, if the Commission on State Mandates determines that the bill contains costs mandated by the state, reimbursement for those costs shall be made pursuant to the statutory provisions noted above.

Under existing law, the Department of Rehabilitation is required to provide various services to individuals with physical or mental disabilities who are found to be eligible therefor, including independent living services. services, including independent living services, to eligible individuals with physical or mental disabilities. Existing law provides for the operation of independent living centers (ILCs), which are private, nonprofit organizations that provide specified services to individuals with disabilities, in order to assist those individuals in their attempts to live fuller and freer lives outside institutions. Under existing law, the department has the responsibility and authority for the encouragement of the planning, developing, and funding of ILCs.

Existing law, the Mello-Granlund Older Californians Act, establishes various programs that serve older individuals. The act requires the California Department of Aging to designate various private nonprofit or public agencies as area agencies on aging (AAAs) to work within a planning and service area and provide a broad array of social and nutritional services.

The act also establishes Aging and Disability Resource Connection (ADRC) programs to provide information to consumers and their families on available long-term services and supports (LTSS) programs, with assistance to older adults, caregivers, and persons with disabilities in accessing LTSS programs at the local level. Under the act, AAAs and ILCs are the core local partners in developing ADRC programs.

Existing law sets forth various provisions relating to emergency shelters, including, among others, the California Emergency Services Act. Under the California Emergency Services Act, that act, the State Emergency Plan is the official document approved by the Governor that describes the principles and methods to be applied in carrying out emergency operations or rendering mutual aid during emergencies. Existing law requires the Office of Emergency Services to update the State Emergency Plan on or before January 1, 2019, and every 5 years thereafter. Existing law authorizes the Governor to assign to a state agency any activity concerned with the mitigation of the effects of an emergency of a nature related to the existing powers and duties of that agency, including sheltering support duties. agency.

This bill would, as part of disaster planning and response, require a representative of the county welfare director, in coordination with the lead local agency designated with sheltering support duties under the State Emergency Plan Emergency Support Functions, to coordinate initiate a memorandum of understanding with an AAA, an ILC, or an ADRC program to allow access by the AAA, the ILC, or the ADRC program to an emergency shelter, as defined, established for evacuation purposes during an active event, in order to ensure that older adults and persons with disabilities receive continuous services and necessary support. By imposing duties on creating new duties for local officials, the bill would impose a state-mandated local program.

The California Constitution requires the state to reimburse local agencies and school districts for certain costs mandated by the state. Statutory provisions establish procedures for making that reimbursement.

This bill would provide that, if the Commission on State Mandates determines that the bill contains costs mandated by the state, reimbursement for those costs shall be made pursuant to the statutory provisions noted above.

Existing law, the Mello-Granlund Older Californians Act, establishes various programs that serve older individuals. The act requires the California Department of Aging to designate various private nonprofit or public agencies as area agencies on aging (AAAs) to work within a planning and service area and provide a broad array of social and nutritional services.

The act also establishes Aging and Disability Resource Connection (ADRC) programs to provide information to consumers and their families on available long-term services and supports (LTSS) programs, with assistance to older adults, caregivers, and persons with disabilities in accessing LTSS programs at the local level. Under the act, AAAs and independent living centers ILCs are the core local partners in developing ADRC programs.

Existing law sets forth various provisions relating to emergency shelters, including, among others, the California Emergency Services Act. Under the California Emergency Services Act, the State Emergency Plan is the official document approved by the Governor that describes the principles and methods to be applied in carrying out emergency operations or rendering mutual aid during emergencies. Existing law requires the Office of Emergency Services to update the State Emergency Plan on or before January 1, 2019, and every 5 years thereafter. Existing law authorizes the Governor to assign to a state agency any activity concerned with the mitigation of the effects of an emergency of a nature related to the existing powers and duties of that agency, including sheltering support duties.

This bill would, as part of disaster planning and response, require the lead a representative of the county welfare director, in coordination with the lead local agency designated with sheltering support duties under the State Emergency Plan Emergency Support Functions Functions, to coordinate a memorandum of understanding with an AAA AAA, an ILC, or an ADRC program to allow access by the AAA AAA, the ILC, or the ADRC program to an emergency shelter, as defined, established for evacuation purposes during an active event, in order to ensure that older adults and persons with disabilities receive continuous services and necessary support. By imposing duties on local officials, the bill would impose a state-mandated local program.

Existing law, the Mello-Granlund Older Californians Act, establishes various programs that serve older individuals. The act requires the California Department of Aging to designate various private nonprofit or public agencies as area agencies on aging (AAAs) to work within a planning and service area and provide a broad array of social and nutritional services.

The act also establishes Aging and Disability Resource Connection (ADRC) programs to provide information to consumers and their families on available long-term services and supports (LTSS) programs, with assistance to older adults, caregivers, and persons with disabilities in accessing LTSS programs at the local level. Under the act, AAAs and independent living centers are the core local partners in developing ADRC programs.

Existing law sets forth various provisions relating to emergency shelters, including, among others, certain provisions within the Natural Disaster Emergency Shelter Program, the Emergency Housing and Assistance Program, and the California Emergency Services Act. Under the California Emergency Services Act, the State Emergency Plan is the official document approved by the Governor that describes the principles and methods to be applied in carrying out emergency operations or rendering mutual aid during emergencies. Existing law requires the Office of Emergency Services to update the State Emergency Plan on or before January 1, 2019, and every 5 years thereafter. Existing law authorizes the Governor to assign to a state agency any activity concerned with the mitigation of the effects of an emergency of a nature related to the existing powers and duties of that agency, including sheltering support duties.

This bill would, as part of disaster planning and response, require a county, city, city and county, or any other applicable local jurisdiction the lead agency designated with sheltering support duties under the State Emergency Plan Emergency Support Functions to coordinate a memorandum of understanding with an AAA or an ADRC program to allow access by the AAA or the ADRC program to an emergency shelter, as defined, established for evacuation purposes during an active event, in order to ensure that older adults and persons with disabilities receive continuous services and necessary support. By creating new duties for local jurisdictions with regard to emergency shelters, the bill would impose a state-mandated local program.

Existing law, the Mello-Granlund Older Californians Act, establishes various programs that serve older individuals. The act requires the California Department of Aging to designate various private nonprofit or public agencies as area agencies on aging (AAAs) to work within a planning and service area and provide a broad array of social and nutritional services.

The act also establishes Aging and Disability Resource Connection (ADRC) programs to provide information to consumers and their families on available long-term services and supports (LTSS) programs, with assistance to older adults, caregivers, and persons with disabilities in accessing LTSS programs at the local level. Under the act, area agencies on aging AAAs and independent living centers are the core local partners in developing ADRC programs.

Existing law sets forth various provisions relating to emergency shelters, including, among others, certain provisions within the Natural Disaster Emergency Shelter Program, the Emergency Housing and Assistance Program, and the California Emergency Services Act.

This bill would, as part of disaster planning and response, require that an area agency on aging or an ADRC program have access a county, city, city and county, or any other applicable local jurisdiction to coordinate a memorandum of understanding with an AAA or an ADRC program to allow access by the AAA or the ADRC program to an emergency shelter, as defined, established for evacuation purposes during an active event, in order to ensure that older adults and persons with disabilities receive continuous services and necessary support. To the extent that the bill would create new duties for local officials with regard to administrative operations for By creating new duties for local jurisdictions with regard to emergency shelters, the bill would impose a state-mandated local program.

The California Constitution requires the state to reimburse local agencies and school districts for certain costs mandated by the state. Statutory provisions establish procedures for making that reimbursement.

This bill would provide that, if the Commission on State Mandates determines that the bill contains costs mandated by the state, reimbursement for those costs shall be made pursuant to the statutory provisions noted above.

Existing law, the Mello-Granlund Older Californians Act, establishes various programs that serve older individuals. The act requires the California Department of Aging to designate various private nonprofit or public agencies as area agencies on aging to work within a planning and service area and provide a broad array of social and nutritional services.

The act also establishes Aging and Disability Resource Connection (ADRC) programs to provide information to consumers and their families on available long-term services and supports (LTSS) programs, with assistance to older adults, caregivers, and persons with disabilities in accessing LTSS programs at the local level. Under the act, area agencies on aging and independent living centers are the core local partners in developing ADRC programs.

Existing law sets forth various provisions relating to emergency shelters, including, among others, certain provisions within the Natural Disaster Emergency Shelter Program, the Emergency Housing and Assistance Program, and the California Emergency Services Act.

This bill would, as part of disaster planning and response, require that an area agency on aging or an ADRC program have access to an emergency shelter, as defined, established for evacuation purposes during an active event, in order to ensure that older adults and persons with disabilities receive continuous services and necessary support. To the extent that the bill would create new duties for local officials with regard to administrative operations for emergency shelters, the bill would impose a state-mandated local program.

The California Constitution requires the state to reimburse local agencies and school districts for certain costs mandated by the state. Statutory provisions establish procedures for making that reimbursement.

This bill would provide that, if the Commission on State Mandates determines that the bill contains costs mandated by the state, reimbursement for those costs shall be made pursuant to the statutory provisions noted above.

CONCURRENCE IN SENATE AMENDMENTS

CSA1 Bill Id:AB 1069

Author:(Bains)

As Amended Ver:September 5, 2025

Majority vote

SUMMARY

Requires as part of disaster planning and response, an area agency on aging (AAA), independent living center (ILC), or an Aging and Disability Resource Connection (ADRC) program have access to an emergency shelter in order to ensure older adults and persons with disabilities receive continuous services and necessary support.

Senate Amendments

Clarifies who initiates the memorandum of understanding (MOU) with the AAA, ILC or ADRC during an active event. Specifically, a representative of the county welfare director, in coordination with the lead local agency designated with sheltering support duties under the State Emergency Plan Emergency Support Functions shall initiate the MOU. Amendments included ILCs and also added a coauthor.

COMMENTS

Background: California's aging population is growing faster than any other age group. By 2030, over 25% of the population in California will be 60 and older.^[1]

California is projected to be one of the fastest growing States in the nation in total population. In 2016, California comprised 12% of the nation's population^[2] and is expected to grow 30% by the year 2060 (an increase of 11.7 million people).^[3]  In California, the population aged 60 years and over is expected to grow more than three times as fast as the total population and this growth will vary by region.

A report the State Auditor from 2019, "California Is Not Adequately Prepared to Protect Its Most Vulnerable Residents From Natural Disasters"^[4] sites the three counties audited had not met the needs of vulnerable populations in their emergency planning. As California recovers from the most devastating fires in our history, we know the data shows older adults and people with disabilities perish in higher numbers during disasters.

As floods, earthquakes and wildfires, as well as other natural disasters continue to plague California from coasts to deserts and north to south, we continue to identify how well we provide services to older adults.

In recent years, California has experienced an increase in the frequency and severity of wildfires, and experts project that these events will continue to occur more frequently.^[5] Consequently, the state will likely need to protect its residents more often and from more dangerous natural disasters in the future than it has in the past.

State Emergency Plan (SEP): The SEP is the primary plan for the California Emergency Support Functions (CA-ESFs). Emergency support functions are intended to provide a planning framework for local, tribal, state, and federal governments, as well as the private sector. This framework enables these entities to work together to mitigate, prepare for, respond to, and recover from the effects of emergencies regardless of the cause, size, location, or complexity.

The CA-ESF 6 Mass Care and Shelter (MCS) is one of these annexes. The stakeholders participating in CA-ESF 6 provide coordination, collaboration, and resource identification for MCS activities. This function supports the local and state emergency management capabilities and minimizes the humanitarian impact of disasters and other emergencies through the four phases of emergency management (mitigation, preparedness, response, and recovery).

Operational details of how the CA-ESF 6 would function before, during, and after an emergency activation are done through DSS. All partners in the CA-ESF 6 provide coordinated assistance during all phases of emergency management. MCS coordination includes, but is not limited to:

1. Mass feeding services.
2. Human services at congregate and non-congregate shelters.
3. Support for distribution of humanitarian supplies.
4. Reunification services.
5. Support for individuals with disabilities, older adults, and others with access and functional needs (AFN).
6. Sheltering support.

As part of its response-support role, in coordination with other CA-ESFs and the Office of Access and Functional Needs (OAFN) within CalOES, the CA-ESF 6 will support the mass care community in addressing individuals with disabilities, older adults, and others with AFN.

No two disasters are ever the same; yet, virtually all incidents disproportionately affect individuals with AFN (i.e. people with disabilities, older adults, children, limited English proficiency, and transportation disadvantaged). Understanding this harsh reality, in 2008 California established OAFN within the Governor's Office of Emergency Services. The purpose of OAFN is to identify the needs of individuals with disabilities and others with access or functional needs before, during, and after disasters and to integrate them into the State's emergency management systems.

According to the Author

"As a physician, I have seen the needs of those in shelters who are struggling to meet their basic health needs. Allowing service providers into evacuation shelters enables trusted partners to provide continuity of care and will likely enfold more of the vulnerable communities toward services. This is even more important underserved areas, who are already stretched thin with services for older adults and people with disabilities."

Arguments in Support

California Association for Area Agencies on Aging, the sponsor of the bill, writes "California continues to face increasingly frequent and severe natural disasters, disproportionately affecting older adults and people with disabilities. AAAs and ADRCs provide essential services that need to continue and are crucial during emergencies, especially for individuals displaced by these disasters. Ensuring AAAs and ADRCs have direct access to emergency shelters will enable impacted individuals to maintain uninterrupted access to vital programs and services, significantly enhancing their recovery outcomes. Additionally, it is essential that AAAs and ADRCs maintain close coordination and collaborative relationships with local emergency management leaders. Such partnerships ensure older adults continue receiving ongoing AAA services and that older adults entering emergency shelters are informed and connected to available AAA resources. This coordination allows AAAs and ADRCs to identify and respond to specific access, medication, mobility, and support needs that emergency shelters may not be equipped or need support to handle. AB 1069 is a necessary step to safeguard older adults and people with disabilities during emergencies by providing consistent and coordinated care through trusted community providers."

Arguments in Opposition

None on file.

FISCAL COMMENTS

This bill was passed by the Senate Committee on Appropriations pursuant to Senate Rule 28.8.

VOTES:

ASM AGING AND LONG-TERM CARE: 6-0-1

YES: Bains, Ellis, Ahrens, Jeff Gonzalez, Blanca Rubio, Sharp-Collins

ABS, ABST OR NV: Ávila Farías

ASM EMERGENCY MANAGEMENT: 7-0-0

YES: Ransom, Hadwick, Arambula, Bains, Bennett, Calderon, DeMaio

ASM APPROPRIATIONS: 11-0-4

YES: Wicks, Arambula, Calderon, Caloza, Elhawary, Fong, Mark González, Hart, Pacheco, Pellerin, Solache

ABS, ABST OR NV: Sanchez, Dixon, Ta, Tangipa

ASSEMBLY FLOOR: 78-0-1

YES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Arambula, Ávila Farías, Bains, Bauer‑Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Castillo, Chen, Connolly, Davies, DeMaio, Dixon, Elhawary, Ellis, Flora, Fong, Gabriel, Gallagher, Garcia, Gipson, Jeff Gonzalez, Mark González, Hadwick, Haney, Harabedian, Hart, Hoover, Irwin, Jackson, Kalra, Krell, Lackey, Lee, Lowenthal, Macedo, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Sanchez, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Ta, Tangipa, Valencia, Wallis, Ward, Wicks, Wilson, Zbur, Rivas

ABS, ABST OR NV: McKinnor

UPDATED

VERSION: September 5, 2025

CONSULTANT: Elizabeth Fuller / AGING & L.T.C. / (916) 319-3990 FN: 0002045

1. Projections | Department of Finance (ca.gov) ↑

2. https://factfinder.census.gov ↑

3. http://www.dof.ca.gov/Forecasting/Demographics/Projections ↑

4. https://information.auditor.ca.gov/pdfs/reports/2019-103.pdf ↑

5. https://wildfiretaskforce.org/wp-content/uploads/2022/04/californiawildfireandforestresilienceactionplan.pdf ↑

 THIRD READING  

Bill No: AB 1069

Author: Bains (D)

Amended: 9/5/25 in Senate

Vote: 21

SENATE HUMAN SERVICES COMMITTEE: 5-0, 6/30/25

AYES: Arreguín, Ochoa Bogh, Becker, Limón, Pérez

SENATE GOVERNMENTAL ORG. COMMITTEE: 15-0, 7/8/25

AYES: Padilla, Valladares, Archuleta, Ashby, Blakespear, Cervantes, Dahle, Hurtado, Jones, Ochoa Bogh, Richardson, Rubio, Smallwood-Cuevas, Wahab, Weber Pierson

SENATE APPROPRIATIONS COMMITTEE: Senate Rule 28.8

ASSEMBLY FLOOR: 78-0, 6/2/25 - See last page for vote

SUBJECT: Older adults: emergency shelters

SOURCE: California Association of Area Agencies on Aging

DIGEST:

Requires a representative of the county welfare director to initiate a memorandum of understanding with an area agency on aging (AAA), independent living center (ILC), or Aging and Disability Resource Connection (ADRC) program to allow access by the AAA, ILC, or ADRC program to an emergency shelter during an active event.

Senate Floor Amendments of 9/5/25 add a coauthor.

ANALYSIS:

Existing law:

1. Establishes the Older Americans Act, which promotes the well-being of Americans 60 years old and above through services and programs designed to meet their needs. (42 United States Code (U.S.C.) § 3001 et seq.)
2. Establishes, within the Older Americans Act, the Office of the Long-Term Care Ombudsman Program and requires states to establish and operate a Long-Term Care Ombudsman program for the purpose of identifying, investigating, and resolving complaints that may adversely affect the health, safety, welfare, or rights of residents of long-term care facilities. (42 U.S.C. § 3058(g))
3. Establishes the Mello-Granlund Older Californians Act, which establishes the California Department of Aging (CDA) and sets forth its duties and powers, including, among other things, entering into a contract for the development of information and materials to educate Californians on the concept of “aging in place.” (Welfare and Institutions Code (WIC) § 9100 et seq.)
4. Establishes the Office of the State Long-Term Care Ombudsman under the CDA for the purpose of protecting and advocating for the rights and health and safety of long-term care facility residents, and in providing leadership, direction, and support to local Long-Term Care Ombudsman programs. (WIC § 9700 et seq.)
5. Requires the Secretary of California Health and Human Services (CalHHS), in coordination with the Director of CDA, to lead the development and implementation of the Master Plan on Aging. (WIC § 9850)
6. Establishes the Aging and Disability Resource Connection (ADRC) program to provide information to consumers and their families on available long-term services and supports programs and to assist older adults, caregivers, and persons with disabilities in accessing long-term services and supports programs at the local level through ADRC programs operated jointly by Area Agencies on Aging (AAA) and independent living centers (ILC). (WIC § 9120(a))
7. Requires AAAs and ILCs to be the core local partners in developing ADRC programs. (WIC § 9120(c))
8. Requires an ADRC program to provide all of the following:
   1. Enhanced information and referral services and other assistance at hours convenient to the public;
   2. Options counseling concerning long-term services and supports programs and public and private benefits programs;
   3. Short-term service coordination; and
   4. Transition services from hospitals to home and from skilled nursing facilities to the community. (WIC § 9120(d))
9. Requires the ADRC program to be administered by CDA, in collaboration with the Department of Rehabilitation and Department of Health Care Services. Provides that the ADRC program is contingent upon appropriation of funds in the annual Budget Act. (WIC § 9120 (b) and (g))
10. Develops a core model of ADRC best practices by CDA and the ADRC Advisory Committee to include person-centered practices; public outreach and coordination with key referral sources; formal follow up and data sharing. (WIC § 9120(f))
11. Establishes the California Emergency Services Act, which provides the Governor with the authority to proclaim a state of emergency, and provides the Governor, during a state of emergency, with complete authority over all agencies of the state government and the right to exercise within the area all police power vested in the state by the Constitution and laws of California, and in exercising these powers, gives the Governor the authority to promulgate, issue, and enforce such orders and regulations as he deems necessary. (Government Code (GOV) § 8625, 8627, and 8571)
12. Defines three conditions of emergency for purposes of the California Emergency Services Act, including a “state of war emergency,” a “local emergency” that is within the territorial limits of a city or county, and a “state of emergency,” as specified. (GOV § 8558)
13. Under the State Emergency Plan, requires the Governor’s Office of Emergency Services to coordinate with representatives, including, but not limited to, social service agencies, nonprofit organizations, and transportation providers, from the access and functional needs population regarding the integration of access and functional needs into the State Emergency Plan. (GOV § 8570.4)
14. Defines the following terms for purposes of the California Emergency Services Act:
    1. “Emergency plans” means those official and approved documents which describe the principles and methods to be applied in carrying out emergency operations or rendering mutual aid during emergencies. These plans include such elements as continuity of government, the emergency services of governmental agencies, mobilization of resources, mutual aid, and public information.
    2. “State Emergency Plan” means the State of California Emergency Plan as approved by the governor. (GOV § 8560)

This bill:

1. Defines the following terms for purposes of disaster planning and response:
   1. “Emergency shelter” means a facility established to provide temporary refuge and essential services to individuals displaced by emergencies or disasters.
   2. “State Emergency Plan” means the State of California Emergency Plan as approved by the governor.
2. Requires, as part of disaster planning and response, a representative of the county welfare director, in coordination with the lead agency designated with sheltering support duties under the State Emergency Plan Emergency Support Functions, to initiate a memorandum of understanding (MOU) with an AAA, ILC, or ADRC program to allow access by the AAA, ILC, or ADRC program to an emergency shelter established for evacuation purposes during an active event, in order to ensure that older adults and persons with disabilities receive continuous services and necessary support.
3. Provides that if the Commission on State Mandates determines that this act contains costs mandated by the state, reimbursement to local agencies and school districts for those costs shall be made pursuant to Part 7 of Division 4 of Title 2 of the Government Code.

Background

Purpose of this Bill. According to the author, “As a physician, I have seen the needs of those in shelters who are struggling to meet their basic health needs. Allowing service providers into evacuation shelters enables trusted partners to provide continuity of care and will likely enfold more of the vulnerable communities toward services. This is even more important underserved areas, who are already stretched thin with services for older adults and people with disabilities.”

California’s Aging Population. California is home to a growing aging population. According to the Older Americans Act 2021-2025 State Plan on Aging, by 2030, 25% of the state’s population, an estimated 10.8 million people, will be 60 or older. This will be the first time older adults will outnumber those 18 and under. The state is making efforts to meet the needs of this growing population. In January 2021, the Newsom Administration published its Master Plan for Aging, which is intended to be a ten year blueprint for state government, local government, the private sector, and philanthropy to prepare the state for the coming demographic changes and “continue California’s leadership in aging, disability, and equity.” The Master Plan for Aging outlines five goals, twenty-three strategies, and over 100 initiatives. The five goals of the Master Plan are: housing for all ages and stages; health reimagined; inclusion and equity, not isolation; caregiving that works; and affording aging.

Area Agencies on Aging (AAA) and Independent Living Centers (ILC). CDA administers programs serving older adults through contracts with local AAAs. These agencies provide a wide array of services on a community level to adults age 60 and over. AAA programs often include long-term care ombudsman services, nutrition services, caregiver support and respite, Medicare counseling, legal referrals, transportation, and case management. There are 33 AAAs across the state and each county is required to have an AAA, so some agencies serve multiple counties.

ILCs are disability-led organizations that support people of all ages and all types of disabilities. Their core services include information and referral, peer support, independent living skills training, individual and systems advocacy, and transition services. ILCs are not residential facilities; they are community-based hubs for resources and connection.

Aging and Disability Resource Connections (ADRC). ADRCs are collaborations between AAAs and ILCs. Christina Mills, executive director of the California Association of Area Agencies on Aging (C4A) writes, “we partner as ADRCs, which makes it easier for individuals to get the right help regardless of where they start—a No Wrong Door approach. There are cultural differences between the two communities […] but the truth is: disabled people are aging, and older adults are often aging into disability.” Together, AAAs and ILCs coordinate a variety of supportive services to seniors and people with disabilities. Anyone, regardless of age, income, or disability, may receive ADRC services. However, not all AAAs nor all ILCs provide ADRC services. ADRC services may include enhanced information and referral services, options counseling, short-term service coordination, and transition services.

Mass Care and Shelter. The State Emergency Plan guides state agencies, local jurisdictions, and the public on emergency management. The plan describes the methods for conducting emergency operations, rendering mutual aid, emergency response capabilities of state agencies, resource mobilization, public information, and continuity of government during an emergency or disaster. The 2009 State Emergency Plan established the California Emergency Support Functions, which include 18 primary activities essential to addressing the emergency management needs of communities in all phases of emergency management.

One Emergency Support Function is mass care and shelter. Stakeholders participating in this function provide coordination, collaboration, and resource identification for mass care and shelter activities. County welfare departments are the lead for local mass care and shelter activities, which includes feeding, basic first aid, bulk distribution of needed personal services items, and providing short-term emergency shelter or housing for persons displaced from their residence because of a disaster incident, among other activities.

State Auditor Report. In December 2019, the California State Auditor released a report that found that three audited counties—Butte, Sonoma, and Ventura—had not adequately followed key practices for emergency planning, including having emergency plans for alerting, evacuating, and sheltering residents and assessing the needs of their communities in advance of disaster events.

The report described the following services that individuals with access and functional needs may require in natural disaster situations: equipment in emergency shelters, such as wheelchairs, accessible cots, walkers, and accessible showers; interpreters or documentation in Braille; and medical supplies, such as oxygen. Additionally, according to the bill sponsor, shelters do not always have incontinence supplies or appropriate storage for medication, and may not be prepared to accept individuals with service animals.

Every county must have an access and functional needs representative to support older adults and people with disabilities. However, according to the bill sponsor, the county representative may not have expertise and may be pulled in multiple directions during a large scale disaster.

Related/Prior Legislation

AB 1068 (Bains) would require the Secretary of CalHHS, in coordination with various state departments and long-term care stakeholders, to develop a working group to make recommendations regarding the evacuation and sheltering needs of older adults and persons with disabilities living in long-term care facilities during emergencies. AB 1068 was held in the Senate Appropriations Committee.

SB 582 (Stern) would establish licensing policies during federal or state declared emergencies or disasters for facilities licensed by CDSS, the State Department of Public Health, and the State Department of Health Care Services. SB 582 is pending on the Assembly Floor.

SB 435 (Wahab), as heard by this Committee, would have required an RCFE licensed for 16 or more residents to have an alternative source of power to protect resident health and safety for no fewer than 72 hours during any type of power outage. The bill would have additionally required an RCFE to follow emergency and disaster preparedness measures, as specified, depending on the chosen type of alternative power source. SB 435 was amended out of this Committee’s jurisdiction.

SB 352 (Reyes) would require, in specified circumstances, that AAAs and ILCs be prioritized for state assistance when a state of emergency is proclaimed. The bill would require ADRC programs to provide disaster and emergency preparedness training specifically designed to help older adults and people with disabilities prepare for emergencies and ensure their safety before, during, and after natural disasters and other emergency events. SB 352 is pending on the Assembly Floor.

Comments

The recent fires in Los Angeles highlighted the need to improve disaster and emergency response and evacuation plans for the elderly and for those with disabilities. According to the author, during LA wildfire response AAAs and ILCs were not allowed inside shelters to meet with clients, in part to maintain the privacy of other individuals at shelters. This bill seeks to address this issue by allowing counties, AAAs, ILCs, and ADRC programs to coordinate to ensure continuous services and supports for clients without causing disruptions to others’ privacy at shelters.

[Note: See the Senate Governmental Organization Committee analysis for additional background on this bill.]

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: Yes

SUPPORT: (Verified 9/5/25)

California Association of Area Agencies on Aging (Sponsor)
Alzheimer's Association
Alzheimer's Greater Los Angeles
Alzheimer's Orange County
Alzheimer's San Diego
California Collaborative for Long-term Services and Supports
California Commission on Aging
California Foundation for Independent Living Centers
California Long Term Care Ombudsman Association
California Retired Teachers Association
County of Los Angeles Board of Supervisors
County Welfare Directors Association of California
Disability Rights California
Leadingage California
The Arc California

OPPOSITION: (Verified 9/5/25)

None received

ASSEMBLY FLOOR: 78-0, 6/2/25

AYES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Castillo, Chen, Connolly, Davies, DeMaio, Dixon, Elhawary, Ellis, Flora, Fong, Gabriel, Gallagher, Garcia, Gipson, Jeff Gonzalez, Mark González, Hadwick, Haney, Harabedian, Hart, Hoover, Irwin, Jackson, Kalra, Krell, Lackey, Lee, Lowenthal, Macedo, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Sanchez, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Ta, Tangipa, Valencia, Wallis, Ward, Wicks, Wilson, Zbur, Rivas

NO VOTE RECORDED: McKinnor

Prepared by: Diana Dominguez / HUMAN S. / (916) 651-1524

9/8/25 21:33:28

**** END ****

 THIRD READING  

Bill No: AB 1069

Author: Bains (D)

Amended: 8/28/25 in Senate

Vote: 21

SENATE HUMAN SERVICES COMMITTEE: 5-0, 6/30/25

AYES: Arreguín, Ochoa Bogh, Becker, Limón, Pérez

SENATE GOVERNMENTAL ORG. COMMITTEE: 15-0, 7/8/25

AYES: Padilla, Valladares, Archuleta, Ashby, Blakespear, Cervantes, Dahle, Hurtado, Jones, Ochoa Bogh, Richardson, Rubio, Smallwood-Cuevas, Wahab, Weber Pierson

SENATE APPROPRIATIONS COMMITTEE: Senate Rule 28.8

ASSEMBLY FLOOR: 78-0, 6/2/25 - See last page for vote

SUBJECT: Older adults: emergency shelters

SOURCE: California Association of Area Agencies on Aging

DIGEST:

Requires a representative of the county welfare director to initiate a memorandum of understanding with an area agency on aging (AAA), independent living center (ILC), or Aging and Disability Resource Connection (ADRC) program to allow access by the AAA, ILC, or ADRC program to an emergency shelter during an active event.

Senate Floor Amendments of 8/28/25 Add independent living centers to list of entities allowed access to clients in emergency shelters. Specify who must initiate a memorandum of understanding (MOU).

ANALYSIS:

Existing law:

1. Establishes the Older Americans Act, which promotes the well-being of Americans 60 years old and above through services and programs designed to meet their needs. (42 United States Code (U.S.C.) § 3001 et seq.)
2. Establishes, within the Older Americans Act, the Office of the Long-Term Care Ombudsman Program and requires states to establish and operate a Long-Term Care Ombudsman program for the purpose of identifying, investigating, and resolving complaints that may adversely affect the health, safety, welfare, or rights of residents of long-term care facilities. (42 U.S.C. § 3058(g))
3. Establishes the Mello-Granlund Older Californians Act, which establishes the California Department of Aging (CDA) and sets forth its duties and powers, including, among other things, entering into a contract for the development of information and materials to educate Californians on the concept of “aging in place.” (Welfare and Institutions Code (WIC) § 9100 et seq.)
4. Establishes the Office of the State Long-Term Care Ombudsman under the CDA for the purpose of protecting and advocating for the rights and health and safety of long-term care facility residents, and in providing leadership, direction, and support to local Long-Term Care Ombudsman programs. (WIC § 9700 et seq.)
5. Requires the Secretary of California Health and Human Services (CalHHS), in coordination with the Director of CDA, to lead the development and implementation of the Master Plan on Aging. (WIC § 9850)
6. Establishes the Aging and Disability Resource Connection (ADRC) program to provide information to consumers and their families on available long-term services and supports programs and to assist older adults, caregivers, and persons with disabilities in accessing long-term services and supports programs at the local level through ADRC programs operated jointly by Area Agencies on Aging (AAA) and independent living centers (ILC). (WIC § 9120(a))
7. Requires AAAs and ILCs to be the core local partners in developing ADRC programs. (WIC § 9120(c))
8. Requires an ADRC program to provide all of the following:
   1. Enhanced information and referral services and other assistance at hours convenient to the public;
   2. Options counseling concerning long-term services and supports programs and public and private benefits programs;
   3. Short-term service coordination; and
   4. Transition services from hospitals to home and from skilled nursing facilities to the community. (WIC § 9120(d))
9. Requires the ADRC program to be administered by CDA, in collaboration with the Department of Rehabilitation and Department of Health Care Services. Provides that the ADRC program is contingent upon appropriation of funds in the annual Budget Act. (WIC § 9120 (b) and (g))
10. Develops a core model of ADRC best practices by CDA and the ADRC Advisory Committee to include person-centered practices; public outreach and coordination with key referral sources; formal follow up and data sharing. (WIC § 9120(f))
11. Establishes the California Emergency Services Act, which provides the Governor with the authority to proclaim a state of emergency, and provides the Governor, during a state of emergency, with complete authority over all agencies of the state government and the right to exercise within the area all police power vested in the state by the Constitution and laws of California, and in exercising these powers, gives the Governor the authority to promulgate, issue, and enforce such orders and regulations as he deems necessary. (Government Code (GOV) § 8625, 8627, and 8571)
12. Defines three conditions of emergency for purposes of the California Emergency Services Act, including a “state of war emergency,” a “local emergency” that is within the territorial limits of a city or county, and a “state of emergency,” as specified. (GOV § 8558)
13. Under the State Emergency Plan, requires the Governor’s Office of Emergency Services to coordinate with representatives, including, but not limited to, social service agencies, nonprofit organizations, and transportation providers, from the access and functional needs population regarding the integration of access and functional needs into the State Emergency Plan. (GOV § 8570.4)
14. Defines the following terms for purposes of the California Emergency Services Act:
    1. “Emergency plans” means those official and approved documents which describe the principles and methods to be applied in carrying out emergency operations or rendering mutual aid during emergencies. These plans include such elements as continuity of government, the emergency services of governmental agencies, mobilization of resources, mutual aid, and public information.
    2. “State Emergency Plan” means the State of California Emergency Plan as approved by the governor. (GOV § 8560)

This bill:

1. Defines the following terms for purposes of disaster planning and response:
   1. “Emergency shelter” means a facility established to provide temporary refuge and essential services to individuals displaced by emergencies or disasters.
   2. “State Emergency Plan” means the State of California Emergency Plan as approved by the governor.
2. Requires, as part of disaster planning and response, a representative of the county welfare director, in coordination with the lead agency designated with sheltering support duties under the State Emergency Plan Emergency Support Functions, to initiate a MOU with an AAA, ILC, or ADRC program to allow access by the AAA, ILC, or ADRC program to an emergency shelter established for evacuation purposes during an active event, in order to ensure that older adults and persons with disabilities receive continuous services and necessary support.
3. Provides that if the Commission on State Mandates determines that this act contains costs mandated by the state, reimbursement to local agencies and school districts for those costs shall be made pursuant to Part 7 of Division 4 of Title 2 of the Government Code.

Background

Purpose of this Bill. According to the author, “As a physician, I have seen the needs of those in shelters who are struggling to meet their basic health needs. Allowing service providers into evacuation shelters enables trusted partners to provide continuity of care and will likely enfold more of the vulnerable communities toward services. This is even more important underserved areas, who are already stretched thin with services for older adults and people with disabilities.”

California’s Aging Population. California is home to a growing aging population. According to the Older Americans Act 2021-2025 State Plan on Aging, by 2030, 25% of the state’s population, an estimated 10.8 million people, will be 60 or older. This will be the first time older adults will outnumber those 18 and under. The state is making efforts to meet the needs of this growing population. In January 2021, the Newsom Administration published its Master Plan for Aging, which is intended to be a ten year blueprint for state government, local government, the private sector, and philanthropy to prepare the state for the coming demographic changes and “continue California’s leadership in aging, disability, and equity.” The Master Plan for Aging outlines five goals, twenty-three strategies, and over 100 initiatives. The five goals of the Master Plan are: housing for all ages and stages; health reimagined; inclusion and equity, not isolation; caregiving that works; and affording aging.

Area Agencies on Aging (AAA) and Independent Living Centers (ILC). CDA administers programs serving older adults through contracts with local AAAs. These agencies provide a wide array of services on a community level to adults age 60 and over. AAA programs often include long-term care ombudsman services, nutrition services, caregiver support and respite, Medicare counseling, legal referrals, transportation, and case management. There are 33 AAAs across the state and each county is required to have an AAA, so some agencies serve multiple counties.

ILCs are disability-led organizations that support people of all ages and all types of disabilities. Their core services include information and referral, peer support, independent living skills training, individual and systems advocacy, and transition services. ILCs are not residential facilities; they are community-based hubs for resources and connection.

Aging and Disability Resource Connections (ADRC). ADRCs are collaborations between AAAs and ILCs. Christina Mills, executive director of the California Association of Area Agencies on Aging (C4A) writes, “we partner as ADRCs, which makes it easier for individuals to get the right help regardless of where they start—a No Wrong Door approach. There are cultural differences between the two communities […] but the truth is: disabled people are aging, and older adults are often aging into disability.” Together, AAAs and ILCs coordinate a variety of supportive services to seniors and people with disabilities. Anyone, regardless of age, income, or disability, may receive ADRC services. However, not all AAAs nor all ILCs provide ADRC services. ADRC services may include enhanced information and referral services, options counseling, short-term service coordination, and transition services.

Mass Care and Shelter. The State Emergency Plan guides state agencies, local jurisdictions, and the public on emergency management. The plan describes the methods for conducting emergency operations, rendering mutual aid, emergency response capabilities of state agencies, resource mobilization, public information, and continuity of government during an emergency or disaster. The 2009 State Emergency Plan established the California Emergency Support Functions, which include 18 primary activities essential to addressing the emergency management needs of communities in all phases of emergency management.

One Emergency Support Function is mass care and shelter. Stakeholders participating in this function provide coordination, collaboration, and resource identification for mass care and shelter activities. County welfare departments are the lead for local mass care and shelter activities, which includes feeding, basic first aid, bulk distribution of needed personal services items, and providing short-term emergency shelter or housing for persons displaced from their residence because of a disaster incident, among other activities.

State Auditor Report. In December 2019, the California State Auditor released a report that found that three audited counties—Butte, Sonoma, and Ventura—had not adequately followed key practices for emergency planning, including having emergency plans for alerting, evacuating, and sheltering residents and assessing the needs of their communities in advance of disaster events.

The report described the following services that individuals with access and functional needs may require in natural disaster situations: equipment in emergency shelters, such as wheelchairs, accessible cots, walkers, and accessible showers; interpreters or documentation in Braille; and medical supplies, such as oxygen. Additionally, according to the bill sponsor, shelters do not always have incontinence supplies or appropriate storage for medication, and may not be prepared to accept individuals with service animals.

Every county must have an access and functional needs representative to support older adults and people with disabilities. However, according to the bill sponsor, the county representative may not have expertise and may be pulled in multiple directions during a large scale disaster.

Related/Prior Legislation

AB 1068 (Bains) would require the Secretary of CalHHS, in coordination with various state departments and long-term care stakeholders, to develop a working group to make recommendations regarding the evacuation and sheltering needs of older adults and persons with disabilities living in long-term care facilities during emergencies. AB 1068 is pending in the Senate Appropriations Committee.

SB 582 (Stern) would establish licensing policies during federal or state declared emergencies or disasters for facilities licensed by CDSS, the State Department of Public Health, and the State Department of Health Care Services. SB 582 is pending in the Assembly Appropriations Committee.

SB 435 (Wahab), as heard by this Committee, would have required an RCFE licensed for 16 or more residents to have an alternative source of power to protect resident health and safety for no fewer than 72 hours during any type of power outage. The bill would have additionally required an RCFE to follow emergency and disaster preparedness measures, as specified, depending on the chosen type of alternative power source. SB 435 was amended out of this Committee’s jurisdiction.

SB 352 (Reyes) would require, in specified circumstances, that AAAs and ILCs be prioritized for state assistance when a state of emergency is proclaimed. The bill would require ADRC programs to provide disaster and emergency preparedness training specifically designed to help older adults and people with disabilities prepare for emergencies and ensure their safety before, during, and after natural disasters and other emergency events. SB 352 is pending in the Assembly Appropriations Committee.

Comments

The recent fires in Los Angeles highlighted the need to improve disaster and emergency response and evacuation plans for the elderly and for those with disabilities. According to the author, during LA wildfire response AAAs and ILCs were not allowed inside shelters to meet with clients, in part to maintain the privacy of other individuals at shelters. This bill seeks to address this issue by allowing counties, AAAs, ILCs, and ADRC programs to coordinate to ensure continuous services and supports for clients without causing disruptions to others’ privacy at shelters.

[Note: See the Senate Governmental Organization Committee analysis for additional background on this bill.]

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: Yes

SUPPORT: (Verified 8/27/25)

California Association of Area Agencies on Aging (Sponsor)
Alzheimer's Association
Alzheimer's Greater Los Angeles
Alzheimer's Orange County
Alzheimer's San Diego
California Collaborative for Long-term Services and Supports
California Commission on Aging
California Foundation for Independent Living Centers
California Long Term Care Ombudsman Association
California Retired Teachers Association
County of Los Angeles Board of Supervisors
County Welfare Directors Association of California
Disability Rights California
Leadingage California
The Arc California

OPPOSITION: (Verified 8/27/25)

None received

ASSEMBLY FLOOR: 78-0, 6/2/25

AYES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Castillo, Chen, Connolly, Davies, DeMaio, Dixon, Elhawary, Ellis, Flora, Fong, Gabriel, Gallagher, Garcia, Gipson, Jeff Gonzalez, Mark González, Hadwick, Haney, Harabedian, Hart, Hoover, Irwin, Jackson, Kalra, Krell, Lackey, Lee, Lowenthal, Macedo, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Sanchez, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Ta, Tangipa, Valencia, Wallis, Ward, Wicks, Wilson, Zbur, Rivas

NO VOTE RECORDED: McKinnor

Prepared by: Diana Dominguez / HUMAN S. / (916) 651-1524

9/2/25 12:05:20

**** END ****

 THIRD READING 

Bill No: AB 1069

Author: Bains (D)

Amended: 5/23/25 in Assembly

Vote: 21

SENATE HUMAN SERVICES COMMITTEE: 5-0, 6/30/25

AYES: Arreguín, Ochoa Bogh, Becker, Limón, Pérez

SENATE GOVERNMENTAL ORG. COMMITTEE: 15-0, 7/8/25

AYES: Padilla, Valladares, Archuleta, Ashby, Blakespear, Cervantes, Dahle, Hurtado, Jones, Ochoa Bogh, Richardson, Rubio, Smallwood-Cuevas, Wahab, Weber Pierson

ASSEMBLY FLOOR: 78-0, 6/2/25 - See last page for vote

SUBJECT: Older adults: emergency shelters

SOURCE: Author

DIGEST:

This bill requires a lead agency designated with sheltering support duties under the State Emergency Plan to coordinate with an area agency on aging (AAA) or Aging and Disability Resource Connection (ADRC) program to allow access by the AAA or ADRC program to an emergency shelter during an active event.

ANALYSIS:

Existing Law:

1. Establishes the Older Americans Act, which promotes the well-being of Americans 60 years old and above through services and programs designed to meet their needs. (42 United States Code (U.S.C.) 3001 et seq.)
2. Establishes, within the Older Americans Act, the Office of the Long-Term Care Ombudsman Program and requires states to establish and operate a Long-Term Care Ombudsman program for the purpose of identifying, investigating, and resolving complaints that may adversely affect the health, safety, welfare, or rights of residents of long-term care facilities. (42 U.S.C. 3058(g))
3. Establishes the Mello-Granlund Older Californians Act, which establishes the California Department of Aging (CDA) and sets forth its duties and powers, including, among other things, entering into a contract for the development of information and materials to educate Californians on the concept of “aging in place.” (Welfare and Institutions Code (WIC) 9100 et seq.)
4. Establishes the Office of the State Long-Term Care Ombudsman under the CDA for the purpose of protecting and advocating for the rights and health and safety of long-term care facility residents, and in providing leadership, direction, and support to local Long-Term Care Ombudsman programs. (WIC 9700 et seq.)
5. Requires the Secretary of California Health and Human Services (CalHHS), in coordination with the Director of CDA, to lead the development and implementation of the Master Plan on Aging. (WIC 9850)
6. Establishes the Aging and Disability Resource Connection (ADRC) program to provide information to consumers and their families on available long-term services and supports programs and to assist older adults, caregivers, and persons with disabilities in accessing long-term services and supports programs at the local level through ADRC programs operated jointly by Area Agencies on Aging (AAA) and independent living centers. (WIC 9120(a))
7. Requires AAAs and independent living centers to be the core local partners in developing ADRC programs. (WIC 9120(c))
8. Requires an ADRC program to provide all of the following:
   1. Enhanced information and referral services and other assistance at hours convenient to the public;
   2. Options counseling concerning long-term services and supports programs and public and private benefits programs;
   3. Short-term service coordination; and
   4. Transition services from hospitals to home and from skilled nursing facilities to the community. (WIC 9120(d))
9. Requires the ADRC program to be administered by CDA, in collaboration with the Department of Rehabilitation and Department of Health Care Services. Provides that the ADRC program is contingent upon appropriation of funds in the annual Budget Act. (WIC 9120 (b) and (g))
10. Develops a core model of ADRC best practices by CDA and the ADRC Advisory Committee to include person-centered practices; public outreach and coordination with key referral sources; formal follow up and data sharing. (WIC 9120(f))
11. Establishes the California Emergency Services Act, which provides the Governor with the authority to proclaim a state of emergency, and provides the Governor, during a state of emergency, with complete authority over all agencies of the state government and the right to exercise within the area all police power vested in the state by the Constitution and laws of California, and in exercising these powers, gives the Governor the authority to promulgate, issue, and enforce such orders and regulations as he deems necessary. (Government Code (GOV) 8625, 8627, and 8571)
12. Defines three conditions of emergency for purposes of the California Emergency Services Act, including a “state of war emergency,” a “local emergency” that is within the territorial limits of a city or county, and a “state of emergency,” as specified. (GOV 8558)
13. Under the State Emergency Plan, requires the Governor’s Office of Emergency Services to coordinate with representatives, including, but not limited to, social service agencies, nonprofit organizations, and transportation providers, from the access and functional needs population regarding the integration of access and functional needs into the State Emergency Plan. (GOV 8570.4)
14. Defines the following terms for purposes of the California Emergency Services Act:
    1. “Emergency plans” means those official and approved documents which describe the principles and methods to be applied in carrying out emergency operations or rendering mutual aid during emergencies. These plans include such elements as continuity of government, the emergency services of governmental agencies, mobilization of resources, mutual aid, and public information.
    2. “State Emergency Plan” means the State of California Emergency Plan as approved by the governor. (GOV 8560)

This bill:

1. Defines the following terms for purposes of disaster planning and response:
   1. “Emergency shelter” means a facility established to provide temporary refuge and essential services to individuals displaced by emergencies or disasters.
   2. “State Emergency Plan” means the State of California Emergency Plan as approved by the governor.
2. Requires, as part of disaster planning and response, the lead agency designated with sheltering support duties under the State Emergency Plan Emergency Support Functions to coordinate a memorandum of understanding (MOU) with an AAA or ADRC program to allow access by the AAA or the ADRC program to an emergency shelter established for evacuation purposes during an active event, in order to ensure that older adults and persons with disabilities receive continuous services and necessary support.

Background

Purpose of this Bill. According to the author, “As a physician, I have seen the needs of those in shelters who are struggling to meet their basic health needs. Allowing service providers into evacuation shelters enables trusted partners to provide continuity of care and will likely enfold more of the vulnerable communities toward services. This is even more important underserved areas, who are already stretched thin with services for older adults and people with disabilities.”

California’s Aging Population. California is home to a growing aging population. According to the Older Americans Act 2021-2025 State Plan on Aging, by 2030, 25% of the state’s population, an estimated 10.8 million people, will be 60 or older. This will be the first time older adults will outnumber those 18 and under. The state is making efforts to meet the needs of this growing population. In January 2021, the Newsom Administration published its Master Plan for Aging, which is intended to be a ten year blueprint for state government, local government, the private sector, and philanthropy to prepare the state for the coming demographic changes and “continue California’s leadership in aging, disability, and equity.” The Master Plan for Aging outlines five goals, twenty-three strategies, and over 100 initiatives. The five goals of the Master Plan are: housing for all ages and stages; health reimagined; inclusion and equity, not isolation; caregiving that works; and affording aging.

AAA and Independent Living Centers. CDA administers programs serving older adults through contracts with local AAAs. These agencies provide a wide array of services on a community level to adults age 60 and over. AAA programs often include long-term care ombudsman services, nutrition services, caregiver support and respite, Medicare counseling, legal referrals, transportation, and case management. There are 33 AAAs across the state and each county is required to have an AAA, so some agencies serve multiple counties.

Independent living centers are disability-led organizations that support people of all ages and all types of disabilities. Their core services include information and referral, peer support, independent living skills training, individual and systems advocacy, and transition services. Independent living centers are not residential facilities; they are community-based hubs for resources and connection.

ADRC. ADRCs are collaborations between AAAs and independent living centers. Christina Mills, executive director of the California Association of Area Agencies on Aging (C4A) writes, “We partner as ADRCs, which makes it easier for individuals to get the right help regardless of where they start—a No Wrong Door approach. There are cultural differences between the two communities […] but the truth is: disabled people are aging, and older adults are often aging into disability.” Together, AAAs and independent living centers coordinate a variety of supportive services to seniors and people with disabilities. Anyone, regardless of age, income, or disability, may receive ADRC services. However, not all AAAs provide ADRC services. ADRC services may include enhanced information and referral services, options counseling, short-term service coordination, and transition services.

Mass Care and Shelter. The State Emergency Plan guides state agencies, local jurisdictions, and the public on emergency management. The plan describes the methods for conducting emergency operations, rendering mutual aid, emergency response capabilities of state agencies, resource mobilization, public information, and continuity of government during an emergency or disaster. The 2009 State Emergency Plan established the California Emergency Support Functions, which include 18 primary activities essential to addressing the emergency management needs of communities in all phases of emergency management.

One Emergency Support Function is mass care and shelter. Stakeholders participating in this function provide coordination, collaboration, and resource identification for mass care and shelter activities. County welfare departments are the lead for local mass care and shelter activities, which includes feeding, basic first aid, bulk distribution of needed personal services items, and providing short-term emergency shelter or housing for persons displaced from their residence because of a disaster incident, among other activities.

State Auditor Report. In December 2019, the California State Auditor released a report that found that three audited counties—Butte, Sonoma, and Ventura—had not adequately followed key practices for emergency planning, including having emergency plans for alerting, evacuating, and sheltering residents and assessing the needs of their communities in advance of disaster events.

The report described the following services that individuals with access and functional needs may require in natural disaster situations: equipment in emergency shelters, such as wheelchairs, accessible cots, walkers, and accessible showers; interpreters or documentation in Braille; and medical supplies, such as oxygen. Additionally, according to the bill sponsor, shelters do not always have incontinence supplies or appropriate storage for medication, and may not be prepared to accept individuals with service animals.

Every county must have an access and functional needs representative to support older adults and people with disabilities. However, according to the bill sponsor, the county representative may not have expertise and may be pulled in multiple directions during a large scale disaster.

Related/Prior Legislation

AB 1068 (Bains) would require the Secretary of CalHHS, in coordination with various state departments and long-term care stakeholders, to develop a working group to make recommendations regarding the evacuation and sheltering needs of older adults and persons with disabilities living in long-term care facilities during emergencies. AB 1068 is pending in the Senate Appropriations Committee

SB 582 (Stern) would establish licensing policies during federal or state declared emergencies or disasters for facilities licensed by CDSS, the State Department of Public Health, and the State Department of Health Care Services. SB 582 is pending in the Assembly Appropriations Committee.

SB 435 (Wahab), as heard by this Committee, would have required an RCFE licensed for 16 or more residents to have an alternative source of power to protect resident health and safety for no fewer than 72 hours during any type of power outage. The bill would have additionally required an RCFE to follow emergency and disaster preparedness measures, as specified, depending on the chosen type of alternative power source. SB 435 was amended out of this Committee’s jurisdiction.

SB 352 (Reyes, 2025) would require, in specified circumstances, that AAAs and independent living centers be prioritized for state assistance when a state of emergency is proclaimed. The bill would require ADRC programs to provide disaster and emergency preparedness training specifically designed to help older adults and people with disabilities prepare for emergencies and ensure their safety before, during, and after natural disasters and other emergency events. SB 352 is pending in the Assembly Appropriations Committee.

Comments

The recent fires in Los Angeles highlighted the need to improve disaster and emergency response and evacuation plans for the elderly and for those with disabilities. According to the author, during LA wildfire response AAAs and independent living centers were not allowed inside shelters to meet with clients, in part to maintain the privacy of other individuals at shelters. This bill seeks to address this issue by allowing counties, AAAs, and ADRC programs to coordinate to ensure continuous services and supports for clients without causing disruptions to others’ privacy at shelters.

[NOTE: See the Senate Human Services Committee and Senate Governmental Organization Committee analyses for additional background on this bill.]

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: No

SUPPORT: (Verified 8/21/25)

California Association of Area Agencies on Aging (Sponsor)
Alzheimer's Association
Alzheimer's Greater Los Angeles
Alzheimer's Orange County
Alzheimer's San Diego
California Collaborative for Long-term Services and Supports
California Commission on Aging
California Foundation for Independent Living Centers
California Long Term Care Ombudsman Association
California Retired Teachers Association
County of Los Angeles Board of Supervisors
County Welfare Directors Association of California
Disability Rights California
LeadingAge California
The Arc California

OPPOSITION: (Verified 8/21/25)

None received

ASSEMBLY FLOOR: 78-0, 6/2/25

AYES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Castillo, Chen, Connolly, Davies, DeMaio, Dixon, Elhawary, Ellis, Flora, Fong, Gabriel, Gallagher, Garcia, Gipson, Jeff Gonzalez, Mark González, Hadwick, Haney, Harabedian, Hart, Hoover, Irwin, Jackson, Kalra, Krell, Lackey, Lee, Lowenthal, Macedo, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Sanchez, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Ta, Tangipa, Valencia, Wallis, Ward, Wicks, Wilson, Zbur, Rivas

NO VOTE RECORDED: McKinnor

Prepared by: Diana Dominguez / HUMAN S. / (916) 651-1524

8/21/25 16:45:39

**** END ****

SENATE COMMITTEE ON HUMAN SERVICES

Senator Arreguín, Chair

2025 - 2026 Regular

Subject: Older adults: emergency shelters

SUMMARY

This bill would require a lead agency designated with sheltering support duties under the State Emergency Plan to coordinate with an area agency on aging (AAA) or Aging and Disability Resource Connection (ADRC) program to allow access by the AAA or ADRC program to an emergency shelter during an active event.

ABSTRACT

Existing Law:

1. Establishes the Older Americans Act, which promotes the well-being of Americans 60 years old and above through services and programs designed to meet their needs. (42 USC 3001 et seq.)
2. Establishes, within the Older Americans Act, the Office of the Long-Term Care Ombudsman Program and requires states to establish and operate a Long-Term Care Ombudsman program for the purpose of identifying, investigating, and resolving complaints that may adversely affect the health, safety, welfare, or rights of residents of long-term care facilities. (42 USC 3058(g))
3. Establishes the Mello-Granlund Older Californians Act, which establishes the California Department of Aging (CDA), and sets forth its duties and powers, including, among other things, entering into a contract for the development of information and materials to educate Californians on the concept of “aging in place.” (Welfare and Institutions Code (WIC) 9100 et seq.)
4. Establishes the Office of the State Long-Term Care Ombudsman under the CDA, for the purpose of protecting and advocating for the rights and health and safety of long-term care facility residents, and in providing leadership, direction, and support to local Long-Term Care Ombudsman programs. (WIC 9700 et seq.)
5. Requires the Secretary of California Health and Human Services (CalHHS), in coordination with the Director of CDA, to lead the development and implementation of the Master Plan on Aging. (WIC 9850)
6. Establishes the ADRC program to provide information to consumers and their families on available long-term services and supports programs and to assist older adults, caregivers, and persons with disabilities in accessing long-term services and supports programs at the local level through ADRC programs operated jointly by AAA and independent living centers. (WIC 9120(a))
7. Requires AAAs and independent living centers to be the core local partners in developing ADRC programs. (WIC 9120(c))
8. Requires an ADRC program to provide all of the following:
   1. Enhanced information and referral services and other assistance at hours convenient to the public;
   2. Options counseling concerning long-term services and supports programs and public and private benefits programs;
   3. Short-term service coordination; and
   4. Transition services from hospitals to home and from skilled nursing facilities to the community. (WIC 9120(d))
9. Requires the ADRC provide services within the geographic are serviced and provide information to the public about services provided by the programs. (WIC 9120(e))
10. Requires the ADRC program to be administered by CDA, in collaboration with the Department of Rehabilitation and Department of Health Care Services. Provides that the ADRC program is contingent upon appropriation of funds in the annual Budget Act. (WIC 9120 (b) and (g))
11. Develops a core model of ADRC best practices by CDA and the ADRC Advisory Committee to include person-centered practices; public outreach and coordination with key referral sources; formal follow up and data sharing. (WIC 9120(f))
12. Vests in the Department of Rehabilitation the responsibility and authority to encourage the planning, development, and funding of independent living centers, which are private, nonprofit organizations that provide specified services to individuals with disabilities, in order to assist those individuals in their attempts to live fuller and freer lives outside institutions. (WIC 19000 et seq.)
13. Establishes the California Emergency Services Act, which provides the Governor with the authority to proclaim a state of emergency, and provides the Governor, during a state of emergency, with complete authority over all agencies of the state government and the right to exercise within the area all police power vested in the state by the Constitution and laws of California, and in exercising these powers, gives the Governor the authority to promulgate, issue, and enforce such orders and regulations as he deems necessary. Permits the Governor to suspend any regulatory statute, or statute prescribing the procedure for conduct of state business, or the orders, rules, or regulations of any state agency, where the Governor determines that strict compliance with any statute, order, rule, or regulation would in any way prevent, hinder, or delay the mitigation of the effects of the emergency. (Government Code (GOV) 8625, 8627, and 8571)
14. Defines three conditions of emergency for purposes of the California Emergency Services Act, including a “state of war emergency,” a “local emergency” that is within the territorial limits of a city or county, and a “state of emergency,” which could be caused by air pollution, fire, flood, storm, epidemic, riot, drought, cyberterrorism, sudden and severe energy shortage, plant or animal infestation or disease, or an earthquake or other conditions, which are likely to be beyond the control of the services, personnel, equipment, and facilities of any single county or city and require the combined forces of a mutual aid region or regions to combat. (GOV 8558)
15. Under the California Emergency Services Act, coordinates the State Emergency Plan and those programs necessary for the mitigation of the effects of an emergency in this state; and he shall coordinate the preparation of plans and programs for the mitigation of the effects of an emergency by the political subdivisions of this state, such plans and programs to be integrated into and coordinated with the SEP and the plans and programs of the federal government and of other states to the fullest possible extent. (GOV 8569)
16. Under the State Emergency Plan, requires the Governor’s Office of Emergency Services to coordinate with representatives, including, but not limited to, social service agencies, nonprofit organizations, and transportation providers, from the access and functional needs population regarding the integration of access and functional needs into the SEP (GOV 8570.4)
17. Defines the following terms for purposes of the California Emergency Services Act:
    1. “Emergency plans” means those official and approved documents which describe the principles and methods to be applied in carrying out emergency operations or rendering mutual aid during emergencies. These plans include such elements as continuity of government, the emergency services of governmental agencies, mobilization of resources, mutual aid, and public information.
    2. “State Emergency Plan” means the State of California Emergency Plan as approved by the governor. (GOV 8560)

This Bill:

1. Defines the following terms for purposes of disaster planning and response:
   1. “Emergency shelter” means a facility established to provide temporary refuge and essential services to individuals displaced by emergencies or disasters.
   2. “State Emergency Plan” means the State of California Emergency Plan as approved by the governor.
2. Requires, as part of disaster planning and response, the lead agency designated with sheltering support duties under the State Emergency Plan Emergency Support Functions to coordinate a memorandum of understanding (MOU) with an AAA or ADRC program to allow access by the AAA or the ADRC program to an emergency shelter established for evacuation purposes during an active event, in order to ensure that older adults and persons with disabilities receive continuous services and necessary support.

FISCAL IMPACT

According to the Assembly Appropriations Committee, “No costs to the California Department of Aging. One-time costs of an unknown amount, but potentially significant, across all cities and counties statewide to coordinate an MOU with an AAA or an ADRC program to allow access by the AAA or ADRC program to an emergency shelter. These costs are potentially reimbursable by the state, subject to a determination by the Commission on State Mandates.”

BACKGROUND AND DISCUSSION

Purpose of the Bill:

According to the author, “As a physician, I have seen the needs of those in shelters who are struggling to meet their basic health needs. Allowing service providers into evacuation shelters enables trusted partners to provide continuity of care and will likely enfold more of the vulnerable communities toward services. This is even more important underserved areas, who are already stretched thin with services for older adults and people with disabilities.”

California’s Aging Population

California is home to a growing aging population. According to the Older Americans Act 2021-2025 State Plan on Aging^[1]:

“In 2010, 16 percent of California’s residents were 60 or older. By 2030, this group will comprise 25 percent of the state’s population—an estimated 10.8 million people—and for the first time older adults will outnumber those 18 and under. Growing numbers of older adults will contribute to our families, communities, and economy in new ways, and they will also need assistance with meals, transportation, personal care, and other services to continue living where and how they choose.”

The state is making efforts to meet the needs of this growing population. In January 2021, the Newsom Administration published its Master Plan for Aging^[2], which is intended to be a ten year blueprint for state government, local government, the private sector, and philanthropy to prepare the state for the coming demographic changes and “continue California’s leadership in aging, disability, and equity.” The Master Plan for Aging outlines five goals, twenty-three strategies, and over 100 initiatives. The five goals of the Master Plan are: housing for all ages and stages; health reimagined; inclusion and equity, not isolation; caregiving that works; and affording aging.

Area Agencies on Aging (AAA) and Independent Living Centers

CDA administers programs serving older adults through contracts with local AAAs. These agencies provide a wide array of services on a community level to adults age 60 and over. AAA programs often include long-term care ombudsman services, nutrition services, caregiver support and respite, Medicare counseling, legal referrals, transportation, and case management. There are 33 AAAs across the state and each county is required to have an AAA, so some agencies serve multiple counties.

Independent living centers are disability-led organizations that support people of all ages and all types of disabilities. Their core services include information and referral, peer support, independent living skills training, individual and systems advocacy, and transition services. Independent living centers are not residential facilities; they are community-based hubs for resources and connection.

Aging and Disability Resource Connections (ADRC)

ADRCs are collaborations between AAAs and independent living centers. Christina Mills, executive director of the California Association of Area Agencies on Aging (C4A) writes, “we partner as ADRCs, which makes it easier for individuals to get the right help regardless of where they start—a No Wrong Door approach. There are cultural differences between the two communities […] but the truth is: disabled people are aging, and older adults are often aging into disability.” Together, AAAs and independent living centers coordinate a variety of supportive services to seniors and people with disabilities. Anyone, regardless of age, income, or disability, may receive ADRC services. However, not all AAAs provide ADRC services. ADRC services may include:

• Enhanced information and referral services, such as comprehensive resource information, follow-ups, and “warm hand-off” referrals.
• Options counseling, such as assisting in identifying goals and needs through person-centered counseling and coordinating access to public and private-funded long-term services and supports in the community.
• Short-term service coordination, including expedited access to services and supports for individuals at risk of institutionalization, generally for 90 days or less, until a longer-term plan is in place.
• Transition services for people who are currently in a hospital, nursing facility, or other institution and wishes to receive long-term services and supports at home or in a community-based setting.

Mass Care and Shelter

The State Emergency Plan guides state agencies, local jurisdictions, and the public on emergency management. The plan describes the methods for conducting emergency operations, rendering mutual aid, emergency response capabilities of state agencies, resource mobilization, public information, and continuity of government during an emergency or disaster. The 2009 State Emergency Plan established the California Emergency Support Functions, which include 18 primary activities essential to addressing the emergency management needs of communities in all phases of emergency management^[3].

One Emergency Support Function is mass care and shelter. Stakeholders participating in this function provide coordination, collaboration, and resource identification for mass care and shelter activities. County welfare departments are the lead for local mass care and shelter activities, which includes feeding, basic first aid, bulk distribution of needed personal services items, and providing short-term emergency shelter or housing for persons displaced from their residence because of a disaster incident, among other activities^[4]. This bill would require county welfare departments to coordinate an MOU with an AAA or ADRC program to allow the AAA or ADRC program to access an emergency evacuation shelter in order to ensure older adults and persons with disabilities receive continuous services and necessary support.

State Auditor Report

The California State Auditor released a report in December 2019 entitled “California Is Not Adequately Prepared to Protect Its Most Vulnerable Residents From Natural Disasters”^[5]. The report found that the three audited counties—Butte, Sonoma, and Ventura—had not adequately followed key practices for emergency planning, including having emergency plans for alerting, evacuating, and sheltering residents and assessing the needs of their communities in advance of disaster events. The report states:

“Further, we identified similar deficiencies in the three counties’ preparedness for evacuating and sheltering people with access and functional needs. FEMA’s best practices state that counties should assess what resources they will need to assist such people during evacuations and sheltering. These resources include accessible transportation options for evacuation assistance and accessible cots, showers, and toilets for emergency shelters. According to best practices, counties should ensure that those resources will be quickly available during natural disasters by prearranging agreements with vendors or other organizations, yet none of the counties we visited have established a full set of agreements for those resources.”

The report described the following services that individuals with access and functional needs may require in natural disaster situations: equipment in emergency shelters, such as wheelchairs, accessible cots, walkers, and accessible showers; interpreters or documentation in Braille; and medical supplies, such as oxygen. Additionally, according to the bill sponsor, shelters do not always have incontinence supplies or appropriate storage for medication, and may not be prepared to accept individuals with service animals.

Every county must have an access and functional needs representative to support older adults and people with disabilities. However, according to the bill sponsor, the county representative may not have expertise and may be pulled in multiple directions during a large scale disaster. This bill would require county welfare departments to coordinate an MOU with an AAA or ADRC program.

Related/Prior Legislation:

AB 1068 (Bains) would require the Secretary of CalHHS, in coordination with various state departments and long-term care stakeholders, to develop a working group to make recommendations regarding the evacuation and sheltering needs of older adults and persons with disabilities living in long-term care facilities during emergencies. AB 1068 is set to be heard in the Senate Human Services Committee on June 30^th, 2025.

SB 582 (Stern) would establish licensing policies during federal or state declared emergencies or disasters for facilities licensed by CDSS, the State Department of Public Health, and the State Department of Health Care Services. SB 582 is pending in the Assembly Aging and Long-Term Care Committee.

SB 435 (Wahab) would require, on and after January 1, 2028, an RCFE licensed for 16 or more residents to have an alternative source of power to protect resident health and safety for no fewer than 72 hours during any type of power outage. This bill would additionally require an RCFE to follow emergency and disaster preparedness measures, as specified, depending on the chosen type of alternative power source. SB 435 is pending in the Assembly Aging and Long-Term Care Committee.

SB 352 (Reyes) would require, in specified circumstances, that AAAs and independent living centers be prioritized for state assistance when a state of emergency is proclaimed. This bill would require ADRC programs to provide disaster and emergency preparedness training specifically designed to help older adults and people with disabilities prepare for emergencies and ensure their safety before, during, and after natural disasters and other emergency events. SB 352 is pending in the Assembly Aging and Long-Term Care Committee.

COMMENTS

The recent fires in Los Angeles highlighted the need to improve disaster and emergency response and evacuation plans for the elderly and for those with disabilities. According to the author, during LA wildfire response AAAs and independent living centers were not allowed inside shelters to meet with clients, in part to maintain the privacy of other individuals at shelters. This bill seeks to address this issue by allowing counties, AAAs, and ADRC programs to coordinate to ensure continuous services and supports for clients without causing disruptions to others’ privacy at shelters.

Double Referral: This bill has been double-referred. Should this bill pass out of this Committee, it will be referred to the Senate Committee on Governmental Organization.

PRIOR VOTES

POSITIONS

Support:

California Association of Area Agencies on Aging (Sponsor)

Alzheimer's Association
Alzheimer's Greater Los Angeles
Alzheimer's Orange County
Alzheimer's San Diego
California Collaborative for Long-term Services and Supports (CCLTSS)
California Foundation for Independent Living Centers
California Long Term Care Ombudsman Association (CLTCOA)
California Retired Teachers Association

County Welfare Directors Association of California
Disability Rights California
Leadingage California

Oppose:

None received

-- END --

1. https://aging.ca.gov/download.ashx?lE0rcNUV0zZW4jD5nrNRAA%3D%3D ↑

2. https://www.aging.ca.gov/download.ashx?lE0rcNUV0zYXf9JtT7jkAg%3d%3d ↑

3. https://www.caloes.ca.gov/wp-content/uploads/Preparedness/Documents/2023-SEP-Draft-Public-Review.pdf ↑

4. https://www.cwda.org/sites/main/files/file-attachments/disaster_response_budget_memo_sub_1__sub_3.pdf?1675 700421 ↑

5. https://information.auditor.ca.gov/pdfs/reports/2019-103.pdf ↑

ASSEMBLY THIRD READING

ATR Bill Id:AB 1069

Author:(Bains)

As Amended Ver:May 23, 2025

Majority vote

SUMMARY

Requires as part of disaster planning and response, an area agency on aging (AAA) or an Aging and Disability Resource Connection (ADRC) program have access to an emergency shelter in order to ensure older adults and persons with disabilities receive continuous services and necessary support.

Major Provisions

Requires the lead agency designated with sheltering support duties under the State Emergency Plan Emergency Support Functions to coordinate a memorandum of understanding with the AAA or ADRC.

COMMENTS

Background: California's aging population is growing faster than any other age group. By 2030, over 25 percent of the population in California will be 60 and older.^[1]

California is projected to be one of the fastest growing States in the nation in total population. In 2016, California comprised 12% of the nation's population^[2] and is expected to grow 30 percent by the year 2060 (an increase of 11.7 million people).^[3]  In California, the population aged 60 years and over is expected to grow more than three times as fast as the total population and this growth will vary by region.

A report the State Auditor from 2019, "California Is Not Adequately Prepared to Protect Its Most Vulnerable Residents From Natural Disasters"^[4] sites the three counties audited had not met the needs of vulnerable populations in their emergency planning. As California recovers from the most devastating fires in our history, we know the data shows older adults and people with disabilities perish in higher numbers during disasters.

As floods, earthquakes and wildfires, as well as other natural disasters continue to plague California from coasts to deserts and north to south, we continue to identify how well we provide services to older adults.

In recent years, California has experienced an increase in the frequency and severity of wildfires, and experts project that these events will continue to occur more frequently.^[5] Consequently, the state will likely need to protect its residents more often and from more dangerous natural disasters in the future than it has in the past.

State Emergency Plan (SEP): The SEP is the primary plan for the California Emergency Support Functions (CA-ESFs). Emergency support functions are intended to provide a planning framework for local, tribal, state, and federal governments, as well as the private sector. This framework enables these entities to work together to mitigate, prepare for, respond to, and recover from the effects of emergencies regardless of the cause, size, location, or complexity.

The CA-ESF 6 Mass Care and Shelter (MCS) is one of these annexes. The stakeholders participating in CA-ESF 6 provide coordination, collaboration, and resource identification for MCS activities. This function supports the local and state emergency management capabilities and minimizes the humanitarian impact of disasters and other emergencies through the four phases of emergency management (mitigation, preparedness, response, and recovery).

Operational details of how the CA-ESF 6 would function before, during, and after an emergency activation are done through DSS. All partners in the CA-ESF 6 provide coordinated assistance during all phases of emergency management. MCS coordination includes, but is not limited to:

1. Mass feeding services.
2. Human services at congregate and non-congregate shelters.
3. Support for distribution of humanitarian supplies.
4. Reunification services.
5. Support for individuals with disabilities, older adults, and others with access and functional needs (AFN).
6. Sheltering support.

As part of its response-support role, in coordination with other CA-ESFs and the Office of Access and Functional Needs (OAFN) within CalOES, the CA-ESF 6 will support the mass care community in addressing individuals with disabilities, older adults, and others with AFN.

No two disasters are ever the same; yet, virtually all incidents disproportionately affect individuals with AFN (i.e. people with disabilities, older adults, children, limited English proficiency, and transportation disadvantaged). Understanding this harsh reality, in 2008 California established OAFN within the Governor's Office of Emergency Services. The purpose of OAFN is to identify the needs of individuals with disabilities and others with access or functional needs before, during, and after disasters and to integrate them into the State’s emergency management systems.

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According to the Author

"As a physician, I have seen the needs of those in shelters who are struggling to meet their basic health needs. Allowing service providers into evacuation shelters enables trusted partners to provide continuity of care and will likely enfold more of the vulnerable communities toward services. This is even more important underserved areas, who are already stretched thin with services for older adults and people with disabilities."

Arguments in Support

California Association for Area Agencies on Aging, the sponsor of the bill, writes "California continues to face increasingly frequent and severe natural disasters, disproportionately affecting older adults and people with disabilities. AAAs and ADRCs provide essential services that need to continue and are crucial during emergencies, especially for individuals displaced by these disasters. Ensuring AAAs and ADRCs have direct access to emergency shelters will enable impacted individuals to maintain uninterrupted access to vital programs and services, significantly enhancing their recovery outcomes. Additionally, it is essential that AAAs and ADRCs maintain close coordination and collaborative relationships with local emergency management leaders. Such partnerships ensure older adults continue receiving ongoing AAA services and that older adults entering emergency shelters are informed and connected to available AAA resources. This coordination allows AAAs and ADRCs to identify and respond to specific access, medication, mobility, and support needs that emergency shelters may not be equipped or need support to handle. AB 1069 is a necessary step to safeguard older adults and people with disabilities during emergencies by providing consistent and coordinated care through trusted community providers."

The California Long-Term Care Ombudsman Association writes in support, "Ombudsmen often support residents evacuated during natural disasters and other emergencies. For example, through the Eaton Fire in Los Angeles earlier this year, Ombudsmen from Wise & Healthy Aging met with facility residents in evacuation centers to connect those residents with their caregivers, family, and community resources to ensure those residents' medical and non-medical needs could continue to be met. Ombudsmen also contacted facilities to apprise them of the most current evacuation orders with a special focus on poorly performing facilities or those without adequate evacuation plans that were likely to experience more challenges as result. Even though the Long-Term Care Ombudsman Program and other programs working under the AAAs and ADRCs support older adults and adults with disabilities through disasters, there is currently no requirement in state law that these programs have access to their own clients who are temporarily residing in evacuation centers."

Arguments in Opposition

None.

FISCAL COMMENTS

No state costs.

VOTES

ASM AGING AND LONG-TERM CARE: 6-0-1

YES: Bains, Ellis, Ahrens, Jeff Gonzalez, Blanca Rubio, Sharp-Collins

ABS, ABST OR NV: Ávila Farías

ASM EMERGENCY MANAGEMENT: 7-0-0

YES: Ransom, Hadwick, Arambula, Bains, Bennett, Calderon, DeMaio

ASM APPROPRIATIONS: 11-0-4

YES: Wicks, Arambula, Calderon, Caloza, Elhawary, Fong, Mark González, Hart, Pacheco, Pellerin, Solache

ABS, ABST OR NV: Sanchez, Dixon, Ta, Tangipa

UPDATED

VERSION: May 23, 2025

CONSULTANT: Elizabeth Fuller / AGING & L.T.C. / (916) 319-3990 FN: 0000698

1. Projections | Department of Finance (ca.gov) ↑

2. https://factfinder.census.gov ↑

3. http://www.dof.ca.gov/Forecasting/Demographics/Projections ↑

4. https://information.auditor.ca.gov/pdfs/reports/2019-103.pdf ↑

5. https://wildfiretaskforce.org/wp-content/uploads/2022/04/californiawildfireandforestresilienceactionplan.pdf ↑

Date of Hearing: May 7, 2025

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Buffy Wicks, Chair

ABPCA Bill Id:AB 1069

Author:(Bains) – As Amended Ver:April 23, 2025

Urgency: No State Mandated Local Program: Yes Reimbursable: Yes

SUMMARY:

This bill requires local agencies to coordinate with Area Agencies on Aging (AAAs) or Aging and Disability Resource Connection (ADRC) programs through a memorandum of understanding (MOU) to allow these organizations access to emergency shelters during disasters or emergencies.

Specifically, this bill:

1. Requires a county, city, city and county, or any applicable local jurisdiction, as part of its disaster planning and response, to coordinate an MOU with an AAA or ARDC program to allow access by the AAA or ARDC program to an emergency shelter established for evacuation purposes during an active disaster, to ensure that older adults and persons with disabilities receive continuous services and necessary support during disasters.
2. Defines “emergency shelter” to mean a facility established to provide temporary refuge and essential services to individuals displaced by emergencies or disasters.

FISCAL EFFECT:

1. No costs to the California Department of Aging.
2. One-time costs of an unknown amount, but potentially significant, across all cities and counties statewide to coordinate an MOU with an AAA or an ADRC program to allow access by the AAA or ADRC program to an emergency shelter. These costs are potentially reimbursable by the state, subject to a determination by the Commission on State Mandates.

COMMENTS:

1. Purpose. According to the author:

As a physician, I have seen the needs of those in shelters who are struggling to meet their basic health needs. Allowing service providers into evacuation shelters enables trusted partners to provide continuity of care and will likely enfold more of the vulnerable communities toward services. This is even more important underserved areas, who are already stretched thin with services for older adults and people with disabilities.

1. Background. In recent years, California has experienced an increase in the frequency and severity of natural disasters, particularly wildfires, and experts project these events will continue to occur more frequently. In December 2019, the California State Auditor released an audit that highlighted deficiencies in state and local emergency preparations for addressing the needs of people with “access and functional needs” (AFNs). This population includes older adults, those living in institutional settings, those with developmental, intellectual, or physical disabilities, and those who are low income, or homeless, among others.

AAAs and ADRCs. The California Department of Aging (CDA) contracts with and provides leadership and direction to 33 AAAs that coordinate a wide array of services to seniors and adults with disabilities at the community level and serve as the focal point for local aging concerns. ADRC’s are to act as a "No Wrong Door" system to provide a single coordinated system for people seeking reliable information and access to Long-Term Services and Supports. California’s ADRCs are led by a core partnership between Independent Living Centers and AAAs, and includes extended partner organizations. However, not all AAAs offer ADRC services.

Emergency Plans. The California Office of Emergency Services (Cal OES) is responsible for the state’s emergency and disaster response. The State Emergency Plan (SEP) describes how response to natural or human-caused emergencies occurs in California. Existing law requires each county to submit a local emergency plan, and any subsequent updates, to Cal OES. Cal OES, by January 1, 2023, must have reviewed the plans of at least 10 counties at high risk for natural disasters. Each year after, Cal OES must review at least 10 counties emergency plans and must have complete a review of all county emergency plans by January 1, 2028.

The California Association for Area Agencies on Aging, sponsor of the bill, asserts:

Ensuring AAAs and ADRCs have direct access to emergency shelters will enable impacted individuals to maintain uninterrupted access to vital programs and services, significantly enhancing their recovery outcomes. Additionally, it is essential that AAAs and ADRCs maintain close coordination and collaborative relationships with local emergency management leaders. Such partnerships ensure older adults continue receiving ongoing AAA services and that older adults entering emergency shelters are informed and connected to available AAA resources. This coordination allows AAAs and ADRCs to identify and respond to specific access, medication, mobility, and support needs that emergency shelters may not be equipped or need support to handle.

This bill requires local agencies to coordinate with AAAs and ADRC programs through MOUs to ensure these organizations have access to emergency shelters during emergencies.

Master Plan for Aging (MPA). California’s senior population is growing faster than any other age group. By 2030, over 25% of the population in California will be 60 and older. In January of 2021, the Governor released his MPA, which prioritizes the health and well-being of older Californians and the need for policies that promote healthy aging. This bill advances the goals of the MPA regarding the needs and wellbeing of older Californians.

1. Related Legislation. AB 1068 (Bains), of this legislative session, requires the Secretary of Health and Human Services to coordinate with state departments and others to provide recommendations regarding the evacuation and sheltering needs of older adults and persons with disabilities living in long-term care facilities during disasters or emergencies. AB 1068 is pending in this committee.

Analysis Prepared by: Jennifer Swenson / APPR. / (916) 319-2081

Date of Hearing: April 28, 2025

ASSEMBLY COMMITTEE ON EMERGENCY MANAGEMENT

Rhodesia Ransom, Chair

ABPCA Bill Id:AB 1069 (

Author:Bains) – As Amended Ver:April 23, 2025

SUBJECT: Older adults: emergency shelters

SUMMARY: Requires local jurisdictions, as specified, to coordinate with Area Agencies on Aging (AAAs) or Aging and Disability Resource Connection (ADRC) programs through a memorandum of understanding (MOU) to ensure these organizations have access to emergency shelters during disasters. Specifically, this bill:

1. Requires a county, city, city and county, or any applicable local jurisdiction, as part of its disaster planning and response, to coordinate an MOU with an AAA or ARDC program that allows the AAA or ARDC program access to emergency shelters established for evacuation purposes during an active disaster to ensure that older adults and persons with disabilities receive continuous services and necessary support.
2. Defines “emergency shelter” to mean a facility established to provide temporary refuge and essential services to individuals displaced by emergencies or disasters.

EXISTING LAW:

1. Establishes, in federal law, the Older Americans Act (OAA), which promotes the well-being of Americans 60 years old and above through services and programs designed to meet their needs. (42 United States Code (USC.) § 3001, et seq.)
2. Establishes the Mello-Granlund Older Californians Act (OCA), which establishes the California Department of Aging (CDA), and sets forth its duties and powers, including, among other things, entering into a contract for the development of information and materials to educate Californians on the concept of “aging in place.” (WIC § 9100 et seq.)
3. Declares and recognizes area agencies on aging to be the local units on aging in California that are supported from an array of sources, including federal funding largely through the federal Older Americans Act (42 U.S.C. Sec. 3001 et seq.), state and local governmental assistance, the private sector, and individual contributions for services. (WIC § 9400)
4. Establishes the Aging and Disability Resource Connection (ADRC) program to provide information to consumers and their families on available long-term services and supports (LTSS) programs and to assist older adults, caregivers, and persons with disabilities in accessing LTSS programs at the local level through ADRC programs operated jointly by area agencies on aging (AAAs) and independent living centers(ILCs). (WIC § 9120)
5. Requires AAAs and ILCs to be the core local partners in developing ADRC programs, outlines the requirements for an ADRC program, as specified, and requires the ADRC program to be administered by CDA, in collaboration with California Department of Rehabilitation (DOR) and Department of Health Care Services (DHCS), upon appropriations (WIC 9120)
6. Establishes the California Office of Emergency Services (Cal OES) within the office of the Governor and makes Cal OES responsible for the state’s emergency and disaster response services for natural, technological, or manmade disasters and emergencies, including responsibility for activities necessary to prevent, respond to, recover from, and mitigate the effects of emergencies and disasters to people and property. (Government Code 8550)
7. Authorizes the Governor to proclaim a state of emergency, when specified disaster conditions are met (Government Code 8625 and 8558)
8. Under the California Emergency Services Act, defines a state of emergency to mean the duly proclaimed existence of conditions of disaster or of extreme peril to the safety of persons and property within the state caused by conditions such as, among others, air pollution, fire, flood, and storm. (Government Code 8558)
9. Authorizes the Governor to make, amend, and rescind orders and regulations necessary to carry out the provisions of the California Emergency Services Act, requires the orders and regulations to have the force and effect of law, and requires orders and regulations, or amendments or rescissions to orders and regulations, issued during a state of war emergency or state of emergency to be in writing and to take effect immediately upon their issuance. (Government. Code 8567)
10. Requires the Governor to coordinate the State Emergency Plan (SEP) and integrate plans and programs that mitigate against emergencies into the SEP, as specified (Government Code 8569).
11. Requires Cal OES to coordinate with representantives, as specified, from the access and functional needs (AFN) population to integrate the AFN population into the SEP (Government Code 8570.4).
12. Grants local governments the power to declare local emergencies and request state assistance. (Government Code 8630)
13. Requires a county, upon the next update to its emergency plan, to integrate access and functional needs into its emergency plan, as specified (Government Code 8593.3)

FISCAL EFFECT: Unknown. A fiscal committee has not yet heard this bill.

COMMENTS:

Purpose of this bill: According to the author, “As a physician, I have seen the needs of those in shelters who are struggling to meet their basic health needs. Allowing service providers into evacuation shelters enables trusted partners to provide continuity of care and will likely enfold more of the vulnerable communities toward services. This is even more important underserved areas, who are already stretched thin with services for older adults and people with disabilities.”

Equity Impact: According to the author’s staff, “Older adults and people with disabilities are served by AAAs and ADRCs to enable them to live independently in their communities.”

Area Agencies on Aging: The California Department of Aging contracts with and provides leadership and direction to 33 Area Agencies on Aging (AAA) that coordinate a wide array of services to seniors and adults with disabilities at the community level and serve as the focal point for local aging concerns.

Aging and Disability Resource Connection: The Aging and Disability Resource Connection’s (ADRC) purpose is to provide a single more coordinated system for people seeking reliable information and access to Long-Term Services and Supports. ADRCs are intended to act as a "No Wrong Door" system which enables people of all ages, incomes, and disabilities to connect with any one ADRC partner organization for accessing a wide array of Long-Term Services and Support options in the community. California’s ADRCs are led by a core partnership between Independent Living Centers and Area Agencies on Aging (AAA), and includes extended partner organizations. However, not all AAAs offer ADRC services.

State Emergency Plan: The SEP describes how response to natural or human- caused emergencies occurs in California. The plan is a requirement of the California Emergency Services Act (ESA), and describes methods for conducting emergency operations, the process for rendering mutual aid, emergency services of government agencies, how resources are mobilized, how the public is informed, and how continuity of government is maintained during emergency. The SEP defines Emergency Support Functions (ESF) which are discipline-specific groups that develop functional annexes to set goals, objectives, operational concepts, capabilities, organization structures, and related policies and procedures.

Under the SEP, there are 18 ESFs led by a state agency and represent an alliance of state government and other stakeholders with similar functional responsibilities.

Mass Care and Shelter CA-ESF 6: The CA-ESF 6 Mass Care and Shelter (MCS) is one of the annexes in the SEP. The lead agency for CA-ESF is the California Department of Social Services (CDSS). The stakeholders participating in CA-ESF 6 provide coordination, collaboration, and resource identification for MCS activities. This function supports the local and state emergency management capabilities and minimizes the humanitarian impact of disasters and other emergencies through all phases of emergency management: mitigation, preparedness, response, and recovery.

MCS coordination includes, but is not limited to:

1. Mass feeding services.
2. Human services at congregate and non-congregate shelters
3. Support for distribution of humanitarian supplies.
4. Reunification services.
5. Support for individuals with disabilities, older adults, and others with access and functional needs (AFN).
6. Sheltering support.

Whole Community Preparedness: FEMA, in both their 2022-2026 Strategic Plan and their emergency planning guidelines (Comprehensive Preparedness Guide 101, Version 2.0) articulate the need to build a culture of preparedness by ensuring representation, equity, and services for under-represented diverse populations that may be more impacted by disasters including children, seniors, individuals with disabilities or access and functional needs, individuals with diverse culture and language use, individuals with lower economic capacity, LGBTQ+ communities, and other underserved populations.

Cal OES’s Office of Diversity, Equity, and Inclusion: In response to Governor Newsom’s 2022 Executive Order, N-15-22, Cal OES created the Office of Diversity, Equity, and Inclusion. The goals of this Office is to make emergency management equity-centered, elevate and expand current equity and access programs, and integrate equity and engagement principles throughout Cal OES’s actions, policies, programs, and procedures, both internally and externally. According to Cal OES, the Office of Diversity, Equity, and Inclusion works to ensure that principles of equity, justice, inclusion, transparency, and accountability govern all aspects of emergency services.

Cal OES's Office of Access and Functional Needs: In 2008, Cal OES established the Office of Access and Functional Needs (AFN). The office identifies the needs of persons with AFN, defined as those with developmental, intellectual, or physical disabilities; chronic conditions or injuries; limited English proficiency or non-English speaking; older adults; children, or pregnant women; those living in institutional settings; who are low-income; homeless; and from diverse cultures. Cal OES offers AFN-related training, guidance, and technical assistance to emergency managers, disability advocates, and other service providers.

If requested, Cal OES will review each county’s emergency plans, in consultation with individuals with various AFNs, to determine whether the plans are consistent with best practices and guidance issued by FEMA.

Cal OES's current role in assisting with local EOPs: Cal OES, per statute, was required to develop best practices for counties developing and updating a county emergency plan, by January 1, 2022. They have since issued a draft document of these best practices that includes a compilation of methods and techniques successfully employed by a diverse group of public and private emergency management practitioners. The best practices were selected from reviews of After Action Reports, Listos California community discussions, federal planning guidance such as Comprehensive Planning Guidance 101 (CPG 101), and Whole Community Planning Specialist Committee meetings.

Each county is required to submit their local emergency plan, and any subsequent updates, to Cal OES. Cal OES, on or before January 1, 2023, must review the plans of at least 10 counties at high risk for natural disasters. Each year after, Cal OES must review at least 10 counties emergency plans. By January 1, 2028, Cal OES must have completed a review of the plans from all counties.

California State Auditor Report: On December 5, 2019, the California State Auditor released an audit entitled "California Is Not Adequately Prepared to Protect Its Most Vulnerable Residents from Natural Disasters" (Report No. 2019-134). The report highlighted deficiencies in state and local emergency preparations for addressing the needs of people with access and functional needs. The report states, "Cal OES is uniquely positioned to observe, collect, and disseminate information about lessons learned during natural disasters across the State. As the agency tasked with coordinating state resources and mutual aid in response to those jurisdictions requesting assistance during an emergency, Cal OES has the opportunity to observe those jurisdictions' successes and struggles during natural disasters. It can identify problems caused by gaps in the jurisdictions' emergency preparedness and determine how frequently similar issues arise across jurisdictions."

Double Referred: This bill was first referred to the Assembly Committee on Aging and Long-Term Care and passed with a 6-0-1 vote on April 22, 2025.

Arguments in Support: California Association for Area Agencies on Aging, the sponsor of the bill, writes “California continues to face increasingly frequent and severe natural disasters, disproportionately affecting older adults and people with disabilities. AAAs and ADRCs provide essential services that need to continue and are crucial during emergencies, especially for individuals displaced by these disasters. Ensuring AAAs and ADRCs have direct access to emergency shelters will enable impacted individuals to maintain uninterrupted access to vital programs and services, significantly enhancing their recovery outcomes. Additionally, it is essential that AAAs and ADRCs maintain close coordination and collaborative relationships with local emergency management leaders. Such partnerships ensure older adults continue receiving ongoing AAA services and that older adults entering emergency shelters are informed and connected to available AAA resources. This coordination allows AAAs and ADRCs to identify and respond to specific access, medication, mobility, and support needs that emergency shelters may not be equipped or need support to handle. AB 1069 is a necessary step to safeguard older adults and people with disabilities during emergencies by providing consistent and coordinated care through trusted community providers.”

Related Legislation:

AB 1068 (Bains) of this session. Requires the Secretary of the California Health and Human Services Agency to develop a working group to make recommendations, and submit a report, regarding the evacuation and sheltering needs of older adults and persons with disabilities living in long-term care facilities during emergencies, including, but not limited to, mutual aid evacuations. (Pending in the Assembly Emergency Management Committee)

AB 719 (Calderon) of this session. Requires each county to review and update its emergency plan at least every 2 years. (Pending in the Assembly Emergency Management Committee)

REGISTERED SUPPORT / OPPOSITION:

Support

Alzheimer's Association

Alzheimer's Greater Los Angeles

Alzheimer's Orange County

Alzheimer's San Diego

California Association of Area Agencies on Aging

California Commission on Aging

California Elder Justice Coalition (CEJC)

California Retired Teachers Association

California Senior Legislature

Center for Environmental Health

Leadingage California

The Arc and United Cerebral Palsy California Collaboration

Opposition

None on file.

Analysis Prepared by: Ryan Fleming / E.M. / (916) 319-3802

Date of Hearing: April 22, 2025

ASSEMBLY COMMITTEE ON AGING AND LONG-TERM CARE

Jasmeet Bains, Chair

ABPCA Bill Id:AB 1069 (

Author:Bains) – As Introduced Ver:February 20, 2025

SUBJECT: Older adults: emergency shelters

SUMMARY: Requires as part of disaster planning and response, an area agency on aging (AAA) or an Aging and Disability Resource Connection (ADRC) program have access to an emergency shelter in order to ensure older adults and persons with disabilities receive continuous services and necessary support.

EXISTING LAW:

1. Establishes, in federal law, the Older Americans Act (OAA), which promotes the well-being of Americans 60 years old and above through services and programs designed to meet their needs. (42 United States Code (USC.) § 3001, et seq.)
2. Establishes the Mello-Granlund Older Californians Act (OCA), which establishes CDA, and sets forth its duties and powers, including, among other things, entering into a contract for the development of information and materials to educate Californians on the concept of “aging in place.” (WIC § 9100 et seq.)
3. Establishes, within the OAA, the Office of the Long-Term Care Ombudsman (LTCO) Program and requires states to establish and operate a LTCO for the purpose of identifying, investigating, and resolving complaints that may adversely affect the health, safety, welfare, or rights of residents of long-term care facilities. (42 USC § 3058(g))
4. Establishes the Office of the State LTCO under the California Department of Aging (CDA), for the purpose of protecting and advocating for the rights and health and safety of long-term care facility residents, and in providing leadership, direction, and support to local LTCO programs. (WIC § 9700 et seq.)
5. Requires the Secretary of California Health and Human Services (CalHHS), in coordination with the Director of CDA, to lead the development and implementation of the MPA established pursuant to Executive Order N-14-19. (WIC § 9850)
6. Establishes the Aging and Disability Resource Connection (ADRC) program to provide information to consumers and their families on available long-term services and supports (LTSS) programs and to assist older adults, caregivers, and persons with disabilities in accessing LTSS programs at the local level through ADRC programs operated jointly by area agencies on aging (AAAs) and independent living centers(ILCs). (WIC § 9120(a))
7. Requires AAAs and ILCs to be the core local partners in developing ADRC programs. (WIC 9120 (c))
8. Requires and ADRC program to provide all of the following:
   1. Enhanced information and referral services and other assistance at hours convenient to the public;
   2. Options counseling concerning LTSS programs and public and private benefits programs;
   3. Short –term service coordination; and,
   4. Transition services from hospitals to home and from skilled nursing facilities to the community. (WIC 9120 (d))
      
9. Requires the ADRC provide services within the geographic are serviced and provide information to the public about services provided by the programs. (WIC 9120 (e))
10. Requires the ADRC program to be administered by CDA, in collaboration with California Department of Rehabilitation (DOR) and Department of Health Care Services (DHCS), and further provides provisions related to ADRCs only become operative contingent upon appropriation of funds for that purpose by the Legislature. (WIC 9120 (b) and (g))
    
11. Develops a core model of ADRC best practices by CDA and the ADRC Advisory Committee to include person-centered practices; public outreach and coordination with key referral sources; formal follow up and data sharing. (WIC 9120 (f))
12. Vests in DOR the responsibility and authority to encourage the planning, development, and funding of ILCs, which are private, nonprofit organizations that provide specified services to individuals with disabilities, in order to assist those individuals in their attempts to live fuller and freer lives outside institutions. (WIC 19000 et seq.)
13. Establishes the California Emergency Services Act (Act), which provides the Governor with the authority to proclaim a state of emergency, and provides the Governor, during a state of emergency, with complete authority over all agencies of the state government and the right to exercise within the area all police power vested in the state by the Constitution and laws of California, and in exercising these powers, gives the Governor the authority to promulgate, issue, and enforce such orders and regulations as he deems necessary. Permits the Governor to suspend any regulatory statute, or statute prescribing the procedure for conduct of state business, or the orders, rules, or regulations of any state agency, where the Governor determines that strict compliance with any statute, order, rule, or regulation would in any way prevent, hinder, or delay the mitigation of the effects of the emergency. (GOV) § 8625, § 8627, and § 8571)
14. Defines three conditions of emergency for purposes of the Act, including a “state of war emergency,” a “local emergency” that is within the territorial limits of a city or county, and a “state of emergency,” which could be caused by air pollution, fire, flood, storm, epidemic, riot, drought, cyberterrorism, sudden and severe energy shortage, plant or animal infestation or disease, or an earthquake or other conditions, which are likely to be beyond the control of the services, personnel, equipment, and facilities of any single county or city and require the combined forces of a mutual aid region or regions to combat. (GOV § 8558)
15. Under the Act, coordinates the State Emergency Plan (SEP) and those programs necessary for the mitigation of the effects of an emergency in this state; and he shall coordinate the preparation of plans and programs for the mitigation of the effects of an emergency by the political subdivisions of this state, such plans and programs to be integrated into and coordinated with the SEP and the plans and programs of the federal government and of other states to the fullest possible extent. (GOV § 8569)
16. Under the SEP, requires CalOES to coordinate with representatives, including, but not limited to, social service agencies, nonprofit organizations, and transportation providers, from the access and functional needs population regarding the integration of access and functional needs into the SEP (GOV § 8570.4)

FISCAL EFFECT: This bill has not yet been analyzed by a fiscal committee.

COMMENTS: Author’s Statement: “As a physician, I have seen the needs of those in shelters who are struggling to meet their basic health needs. Allowing service providers into evacuation shelters enables trusted partners to provide continuity of care and will likely enfold more of the vulnerable communities toward services. This is even more important underserved areas, who are already stretched thin with services for older adults and people with disabilities.”

BACKGROUND

Population data: California’s aging population is growing faster than any other age group. By 2030, over 25 percent of the population in California will be 60 and older.^[1]

California is projected to be one of the fastest growing States in the nation in total population. In 2016, California comprised 12 percent of the nation's population^[2] and is expected to grow 30 percent by the year 2060 (an increase of 11.7 million people.^[3] . In California, the population aged 60 years and over is expected to grow more than three times as fast as the total population and this growth will vary by region.

The population over age 60 will have an overall increase of 166 percent during the period from 2010 to 2060. More than half the counties will have over a 100 percent increase in this age group. Nearly half of these counties will have growth rates of over 150 percent. These counties are located throughout the central and southern areas of the State. The influence of the 60 and over age group on California is expected to emerge most strongly between 2010 to 2030.3

The population over age 85 will increase at an even a faster rate than those over 60 years of age, having an overall increase of 489 percent during the period from 2010 to 2060. Counties can expect to experience even higher growth rates after 2020. In particular, the influence of the 85 and over age group on California will emerge most strongly between 2030 to 2040 as the first of the baby boomers reach 85 years of age.3

Life expectancy continues to rise,^[4] however during 2019-2021 overall life expectancy for Californians fell from 81.4 years to 78.4 years. For Hispanics, life expectancy declined by nearly 6 years, a difference three times greater than their white counterparts. And the difference between those in California’s highest and lowest income brackets increased by three-and-a-half years to greater than 15 years (11.5 years before the pandemic to more than 15 years in 2021).^[5]

Mass Care and Shelter

California Government Code Section 8650 establishes the SEP. The SEP is the primary plan for the California Emergency Support Functions (CA-ESFs). Emergency support functions are intended to provide a planning framework for local, tribal, state, and federal governments, as well as the private sector. This framework enables these entities to work together to mitigate, prepare for, respond to, and recover from the effects of emergencies regardless of the cause, size, location, or complexity.

The CA-ESF 6 Mass Care and Shelter (MCS) is one of these annexes. The stakeholders participating in CA-ESF 6 provide coordination, collaboration, and resource identification for MCS activities. This function supports the local and state emergency management capabilities and minimizes the humanitarian impact of disasters and other emergencies through the four phases of emergency management (mitigation, preparedness, response, and recovery).

Operational details of how the CA-ESF 6 would function before, during, and after an emergency activation are done through DSS. All partners in the CA-ESF 6 provide coordinated assistance during all phases of emergency management. MCS coordination includes, but is not limited to:

1. Mass feeding services.
2. Human services at congregate and non-congregate shelters (NCS).
3. Support for distribution of humanitarian supplies.
4. Reunification services.
5. Support for individuals with disabilities, older adults, and others with access and functional needs (AFN).
6. Sheltering support.

As part of its response-support role, in coordination with other CA-ESFs and the Office of Access and Functional Needs (OAFN) within CalOES, the CA-ESF 6 will support the mass care community in addressing individuals with disabilities, older adults, and others with AFN.

No two disasters are ever the same; yet, virtually all incidents disproportionately affect individuals with AFN (i.e. people with disabilities, older adults, children, limited English proficiency, and transportation disadvantaged). Understanding this harsh reality, in 2008 California established OAFN within the Governor’s Office of Emergency Services.

The purpose of OAFN is to identify the needs of individuals with disabilities and others with access or functional needs before, during, and after disasters and to integrate them into the State’s emergency management systems. OAFN plans for the realities of disasters by integrating access and functional needs into everything CalOES does including partnership development, outreach, training, guidance and providing technical assistance.

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California State Emergency Plan (SEP)^[6]

The SEP provides an overview of how the state prepares, mitigates, responds, and recovers from emergencies in California. The plan is a requirement of the Act and describes:

1. California’s hazards and vulnerabilities.
2. The state’s emergency management organization.
3. Integrating considerations for people with AFN
4. Resource mobilization.
5. Roles of government during an emergency.
6. Mitigation programs.
7. Emergency planning and preparedness.
8. Whole Community Planning.
9. Response operations.
10. Mutual aid.
11. Public information.
12. California Emergency Support Functions.
13. Recovery operations.
14. California Recovery Support Functions.
15. Continuity of government and essential functions.
16. Roles and responsibilities of state government agencies and departments during emergencies.
17. Plan development and maintenance.

Office of the State Long-Term Care Ombudsman (LTCO)

Under the federal OAA, each state is required to operate an Office of the State LTCO, which is charged with identifying, investigating, and resolving complaints that are made by, or on behalf of, residents of long-term care facilities. In California, the Office of the LTCO is housed under CDA. The State LTCO and their local representatives assist residents in long-term care facilities with issues related to day-to-day care, health, safety, and personal preferences, including investigating abuse and violations of residents’ rights or dignity, and other issues regarding quality of care.

The State LTCO oversees 35 local Ombudsman programs, 240 paid staff, and 364 certified volunteers who advocate on behalf of the residents of long-term care facilities. As of March 2025, these facilities include 1,189 skilled nursing and intermediate care facilities and 7,798 RCFEs, with a combined count of over 322,000 beds.^[7]

Auditor Report

A report the State Auditor from 2019, “California Is Not Adequately Prepared to Protect Its Most Vulnerable Residents From Natural Disasters”^[8] sites the three counties audited had not met the needs of vulnerable populations in their emergency planning. As California recovers from the most devastating fires in our history, we know the data shows older adults and people with disabilities perish in higher numbers during disasters.

As floods, earthquakes and wildfires, as well as other natural disasters continue to plague California from coasts to deserts and north to south, we continue to identify how well we provide services to older adults.

In recent years, California has experienced an increase in the frequency and severity of wildfires, and experts project that these events will continue to occur more frequently.^[9] Consequently, the state will likely need to protect its residents more often and from more dangerous natural disasters in the future than it has in the past.

Master Plan for Aging:

In January of 2021, the Governor released his Master Plan for Aging (MPA). The MPA prioritizes the health and well-being of older Californians and the need for policies that promote healthy aging. The MPA serves as a blueprint for state government, local government, the private sector, and philanthropy to prepare the state for the coming demographic changes and continue California’s leadership in aging, disability, and equity.

After work began on the MPA, the COVID-19 pandemic reached California. The virus disproportionately harmed older and other at-risk adults, and it strained aging and disability services that were perpetually underfunded. Worldwide, older adults experienced unprecedented death rates. California’s diverse population saw disproportionate numbers, particularly among Latino, Black and Asian Pacific Islander communities and those living in nursing homes. The pandemic intensified social isolation.

The work plan laid out in the MPA four years after its release continues to highlight the urgent needs facing California’s older adults, people with disabilities, caregivers, their families, advocates and the workforce supporting these populations..

In 2025-26, the MPA outlines five bold goals and currently seeks to advance 81 initiatives to build a California for All Ages by 2030. Each initiative features a designated area of focus; to deliver, to analyze and to communicate. It also includes a Data Dashboard on Aging to measure progress. AB 508 can be linked to all of the five bold goals:

Related legislation History: AB 1068 (Bains) of the current session, requires the Secretary of the CalHHS in coordination with various state departments to develop a working group to make recommendations regarding the evacuation and sheltering needs of older adults and people with disabilities living in long-term care facilities during natural, technical or manmade disasters and emergencies.

Committee amendments: To clarify and coordinate services, the committee recommends adding the following clarifying amendment.

9861. As part of disaster planning and response, a local jurisdiction shall coordinate a memorandum of understanding with an area agency on aging (AAA) or an Aging and Disability Resource Connection (ADRC) program shall have to allow access to an emergency shelter established for evacuation purposes during an active event, in order to ensure that older adults and persons with disabilities receive continuous services and necessary support.

This bill is dual-referred and upon passage out of the Committee on Aging and Long-Term Care will be referred to the Committee on Emergency Management.

Arguments in Support: California Association for Area Agencies on Aging, the sponsor of the bill, writes “California continues to face increasingly frequent and severe natural disasters, disproportionately affecting older adults and people with disabilities. AAAs and ADRCs provide essential services that need to continue and are crucial during emergencies, especially for individuals displaced by these disasters. Ensuring AAAs and ADRCs have direct access to emergency shelters will enable impacted individuals to maintain uninterrupted access to vital programs and services, significantly enhancing their recovery outcomes. Additionally, it is essential that AAAs and ADRCs maintain close coordination and collaborative relationships with local emergency management leaders. Such partnerships ensure older adults continue receiving ongoing AAA services and that older adults entering emergency shelters are informed and connected to available AAA resources. This coordination allows AAAs and ADRCs to identify and respond to specific access, medication, mobility, and support needs that emergency shelters may not be equipped or need support to handle. AB 1069 is a necessary step to safeguard older adults and people with disabilities during emergencies by providing consistent and coordinated care through trusted community providers.”

The California Long-Term Care Ombudsman Association writes in support, “Ombudsmen often support residents evacuated during natural disasters and other emergencies. For example, through the Eaton Fire in Los Angeles earlier this year, Ombudsmen from Wise & Healthy Aging met with facility residents in evacuation centers to connect those residents with their caregivers, family, and community resources to ensure those residents’ medical and non-medical needs could continue to be met. Ombudsmen also contacted facilities to apprise them of the most current evacuation orders with a special focus on poorly performing facilities or those without adequate evacuation plans that were likely to experience more challenges as result. Even though the Long-Term Care Ombudsman Program and other programs working under the AAAs and ADRCs support older adults and adults with disabilities through disasters, there is currently no requirement in state law that these programs have access to their own clients who are temporarily residing in evacuation centers.”

Arguments in Opposition: None

REGISTERED SUPPORT / OPPOSITION:

Support

California Association of Area Agencies on Aging, Sponsor

AARP
Alzheimer's Association
Alzheimer's Greater Los Angeles
Alzheimer's Orange County
Alzheimer's San Diego
California Commission on Aging
California Elder Justice Coalition
California Long Term Care Ombudsman Association
California Retired Teachers Association
California Senior Legislature
Center for Environmental Health
LeadingAge California

Opposition

None on file.

Analysis Prepared by: Elizabeth Fuller / AGING & L.T.C. / (916) 319-3990

1. Projections | Department of Finance (ca.gov) ↑

2. https://factfinder.census.gov ↑

3. http://www.dof.ca.gov/Forecasting/Demographics/Projections ↑

4. https://longevity.stanford.edu/the-new-map-of-life-initiative/ ↑

5. https://newsroom.ucla.edu/releases/covid-life-expectancy-drops-by-race-and-income ↑

6. https://www.caloes.ca.gov/office-of-the-director/operations/planning-preparedness-prevention/planning-preparedness/2024-state-emergency-plan/ ↑

7. aging.ca.gov/Providers_and_Partners/Long-Term_Care_Ombudsman/Data_And_Reports/ ↑

8. https://information.auditor.ca.gov/pdfs/reports/2019-103.pdf ↑

9. https://wildfiretaskforce.org/wp-content/uploads/2022/04/californiawildfireandforestresilienceactionplan.pdf ↑

Date of Hearing: April 22, 2025

ASSEMBLY COMMITTEE ON AGING AND LONG-TERM CARE

Jasmeet Bains, Chair

ABPCA Bill Id:AB 1069 (

Author:Bains) – As Introduced Ver:February 20, 2025

SUBJECT: Older adults: emergency shelters

SUMMARY: Requires as part of disaster planning and response, an area agency on aging (AAA) or an Aging and Disability Resource Connection (ADRC) program have access to an emergency shelter in order to ensure older adults and persons with disabilities receive continuous services and necessary support.

EXISTING LAW:

1. Establishes, in federal law, the Older Americans Act (OAA), which promotes the well-being of Americans 60 years old and above through services and programs designed to meet their needs. (42 United States Code (USC.) § 3001, et seq.)
2. Establishes the Mello-Granlund Older Californians Act (OCA), which establishes CDA, and sets forth its duties and powers, including, among other things, entering into a contract for the development of information and materials to educate Californians on the concept of “aging in place.” (WIC § 9100 et seq.)
3. Establishes, within the OAA, the Office of the Long-Term Care Ombudsman (LTCO) Program and requires states to establish and operate a LTCO for the purpose of identifying, investigating, and resolving complaints that may adversely affect the health, safety, welfare, or rights of residents of long-term care facilities. (42 USC § 3058(g))
4. Establishes the Office of the State LTCO under the California Department of Aging (CDA), for the purpose of protecting and advocating for the rights and health and safety of long-term care facility residents, and in providing leadership, direction, and support to local LTCO programs. (WIC § 9700 et seq.)
5. Requires the Secretary of California Health and Human Services (CalHHS), in coordination with the Director of CDA, to lead the development and implementation of the MPA established pursuant to Executive Order N-14-19. (WIC § 9850)
6. Establishes the Aging and Disability Resource Connection (ADRC) program to provide information to consumers and their families on available long-term services and supports (LTSS) programs and to assist older adults, caregivers, and persons with disabilities in accessing LTSS programs at the local level through ADRC programs operated jointly by area agencies on aging and independent living centers. (WIC § 9120(a))
7. Requires AAAs and ILCs to be the core local partners in developing ADRC programs. (WIC 9120 (c))
8. Requires and ADRC program to provide all of the following:
   1. Enhanced information and referral services and other assistance at hours convenient to the public;
   2. Options counseling concerning LTSS programs and public and private benefits programs;
   3. Short –term service coordination; and,
   4. Transition services from hospitals to home and from skilled nursing facilities to the community. (WIC 9120 (d))
      
9. Requires the ADRC provide services within the geographic are serviced and provide information to the public about services provided by the programs. (WIC 9120 (e))
10. Requires the ADRC program to be administered by CDA, in collaboration with DOR and DHCS, and further provides provisions related to ADRCs only become operative contingent upon appropriation of funds for that purpose by the Legislature. (WIC 9120 (b) and (g))
    
11. Develops a core model of ADRC best practices by CDA and the ADRC Advisory Committee to include person-centered practices; public outreach and coordination with key referral sources; formal follow up and data sharing. (WIC 9120 (f))
12. Vests in DOR the responsibility and authority to encourage the planning, development, and funding of ILCs, which are private, nonprofit organizations that provide specified services to individuals with disabilities, in order to assist those individuals in their attempts to live fuller and freer lives outside institutions. (WIC 19000 et seq.)
13. Establishes the California Emergency Services Act (Act), which provides the Governor with the authority to proclaim a state of emergency, and provides the Governor, during a state of emergency, with complete authority over all agencies of the state government and the right to exercise within the area all police power vested in the state by the Constitution and laws of California, and in exercising these powers, gives the Governor the authority to promulgate, issue, and enforce such orders and regulations as he deems necessary. Permits the Governor to suspend any regulatory statute, or statute prescribing the procedure for conduct of state business, or the orders, rules, or regulations of any state agency, where the Governor determines that strict compliance with any statute, order, rule, or regulation would in any way prevent, hinder, or delay the mitigation of the effects of the emergency. (GOV) § 8625, § 8627, and § 8571)
14. Defines three conditions of emergency for purposes of the Act, including a “state of war emergency,” a “local emergency” that is within the territorial limits of a city or county, and a “state of emergency,” which could be caused by air pollution, fire, flood, storm, epidemic, riot, drought, cyberterrorism, sudden and severe energy shortage, plant or animal infestation or disease, or an earthquake or other conditions, which are likely to be beyond the control of the services, personnel, equipment, and facilities of any single county or city and require the combined forces of a mutual aid region or regions to combat. (GOV § 8558)
15. Under the Act, coordinates the State Emergency Plan (SEP) and those programs necessary for the mitigation of the effects of an emergency in this state; and he shall coordinate the preparation of plans and programs for the mitigation of the effects of an emergency by the political subdivisions of this state, such plans and programs to be integrated into and coordinated with the SEP and the plans and programs of the federal government and of other states to the fullest possible extent. (GOV § 8569)
16. Under the SEP, requires CalOES to coordinate with representatives, including, but not limited to, social service agencies, nonprofit organizations, and transportation providers, from the access and functional needs population regarding the integration of access and functional needs into the SEP (GOV § 8570.4)

FISCAL EFFECT: This bill has not yet been analyzed by a fiscal committee.

COMMENTS: Author’s Statement: “As a physician and emergency responder, I have seen the needs of those in shelters who are struggling to meet their basic health needs. Allowing service providers into evacuation shelters enables trusted partners to provide continuity of care and will likely enfold more of the vulnerable communities toward services. This is even more important underserved areas, who are already stretched thin with services for older adults and people with disabilities.”

BACKGROUND

Population data: California’s aging population is growing faster than any other age group. By 2030, over 25 percent of the population in California will be 60 and older.^[1]

California is projected to be one of the fastest growing States in the nation in total population. In 2016, California comprised 12 percent of the nation's population^[2] and is expected to grow 30 percent by the year 2060 (an increase of 11.7 million people.^[3] . In California, the population aged 60 years and over is expected to grow more than three times as fast as the total population and this growth will vary by region.

The population over age 60 will have an overall increase of 166 percent during the period from 2010 to 2060. More than half the counties will have over a 100 percent increase in this age group. Nearly half of these counties will have growth rates of over 150 percent. These counties are located throughout the central and southern areas of the State. The influence of the 60 and over age group on California is expected to emerge most strongly between 2010 to 2030.3

The population over age 85 will increase at an even a faster rate than those over 60 years of age, having an overall increase of 489 percent during the period from 2010 to 2060. Counties can expect to experience even higher growth rates after 2020. In particular, the influence of the 85 and over age group on California will emerge most strongly between 2030 to 2040 as the first of the baby boomers reach 85 years of age.3

Life expectancy continues to rise,^[4] however during 2019-2021 overall life expectancy for Californians fell from 81.4 years to 78.4 years. For Hispanics, life expectancy declined by nearly 6 years, a difference three times greater than their white counterparts. And the difference between those in California’s highest and lowest income brackets increased by three-and-a-half years to greater than 15 years (11.5 years before the pandemic to more than 15 years in 2021).^[5]

Mass Care and Shelter

California Government Code Section 8650 establishes the California State Emergency Plan (SEP). The SEP is the primary plan for the California Emergency Support Functions (CA-ESFs). Emergency support functions are intended to provide a planning framework for local, tribal, state, and federal governments, as well as the private sector. This framework enables these entities to work together to mitigate, prepare for, respond to, and recover from the effects of emergencies regardless of the cause, size, location, or complexity.

The CA-ESF 6 Mass Care and Shelter (MCS) is one of these annexes. The stakeholders participating in CA-ESF 6 provide coordination, collaboration, and resource identification for MCS activities. This function supports the local and state emergency management capabilities and minimizes the humanitarian impact of disasters and other emergencies through the four phases of emergency management (mitigation, preparedness, response, and recovery).

Operational details of how the CA-ESF 6 would function before, during, and after an emergency activation are done through DSS. All partners in the CA-ESF 6 provide coordinated assistance during all phases of emergency management. MCS coordination includes, but is not limited to:

1. Mass feeding services.
2. Human services at congregate and non-congregate shelters (NCS).
3. Support for distribution of humanitarian supplies.
4. Reunification services
5. Support for individuals with disabilities, older adults, and others with access and functional needs (AFN)
6. Sheltering support

As part of its response-support role, in coordination with other CA-ESFs and the Office of Access and Functional Needs (OAFN) within Cal OES, the CA-ESF 6 will support the mass care community in addressing individuals with disabilities, older adults, and others with AFN.

No two disasters are ever the same; yet, virtually all incidents disproportionately affect individuals with AFN (i.e. people with disabilities, older adults, children, limited English proficiency, and transportation disadvantaged). Understanding this harsh reality, in 2008 California established OAFN within the Governor’s Office of Emergency Services.

The purpose of OAFN is to identify the needs of individuals with disabilities and others with access or functional needs before, during, and after disasters and to integrate them into the State’s emergency management systems. OAFN plans for the realities of disasters by integrating access and functional needs into everything Cal OES does including partnership development, outreach, training, guidance and providing technical assistance.

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California State Emergency Plan (SEP)^[6]

The (SEP) provides an overview of how the state prepares, mitigates, responds, and recovers from emergencies in California. The plan is a requirement of the Act and describes:

1. California’s hazards and vulnerabilities
2. The state’s emergency management organization
3. Integrating considerations for people with AFN
4. Resource mobilization
5. Roles of government during an emergency
6. Mitigation programs
7. Emergency planning and preparedness
8. Whole Community Planning
9. Response operations
10. Mutual aid
11. Public information
12. California Emergency Support Functions
13. Recovery operations
14. California Recovery Support Functions
15. Continuity of government and essential functions
16. Roles and responsibilities of state government agencies and departments during emergencies
17. Plan development and maintenance

Office of the State Long-Term Care Ombudsman (LTCO)

Under the federal OAA, each state is required to operate an Office of the State LTCO, which is charged with identifying, investigating, and resolving complaints that are made by, or on behalf of, residents of long-term care facilities. In California, the Office of the LTCO is housed under CDA. The State LTCO and their local representatives assist residents in long-term care facilities with issues related to day-to-day care, health, safety, and personal preferences, including investigating abuse and violations of residents’ rights or dignity, and other issues regarding quality of care.

The State LTCO oversees 35 local Ombudsman programs, 240 paid staff, and 364 certified volunteers who advocate on behalf of the residents of long-term care facilities. As of March 2025, these facilities include 1,189 skilled nursing and intermediate care facilities and 7,798 RCFEs, with a combined count of over 322,000 beds.^[7]

Auditor Report

A report the State Auditor from 2019, “California Is Not Adequately Prepared to Protect Its Most Vulnerable Residents From Natural Disasters”^[8] sites the three counties audited had not met the needs of vulnerable populations in their emergency planning. As California recovers from the most devastating fires in our history, we know the data shows older adults and people with disabilities perish in higher numbers during disasters.

As floods, earthquakes and wildfires, as well as other natural disasters continue to plague California from coasts to deserts and north to south, we continue to identify how well we provide services to older adults.

In recent years, California has experienced an increase in the frequency and severity of wildfires, and experts project that these events will continue to occur more frequently.^[9] Consequently, the state will likely need to protect its residents more often and from more dangerous natural disasters in the future than it has in the past.

Master Plan for Aging: In January of 2021, the Governor released his Master Plan for Aging (MPA). The MPA prioritizes the health and well-being of older Californians and the need for policies that promote healthy aging. The MPA serves as a blueprint for state government, local government, the private sector, and philanthropy to prepare the state for the coming demographic changes and continue California’s leadership in aging, disability, and equity.

After work began on the MPA, the COVID-19 pandemic reached California. The virus disproportionately harmed older and other at-risk adults, and it strained aging and disability services that were perpetually underfunded. Worldwide, older adults experienced unprecedented death rates. California’s diverse population saw disproportionate numbers, particularly among Latino, Black and Asian Pacific Islander communities and those living in nursing homes. The pandemic intensified social isolation.

The work plan laid out in the MPA four years after its release continues to highlight the urgent needs facing California’s older adults, people with disabilities, caregivers, their families, advocates and the workforce supporting these populations..

In 2025-26, the MPA outlines five bold goals and currently seeks to advance 81 initiatives to build a California for All Ages by 2030. Each initiative features a designated area of focus; to deliver, to analyze and to communicate. It also includes a Data Dashboard on Aging to measure progress. AB 508 can be linked to all of the five bold goals:

Related legislation History: AB 1068 (Bains) of the current session, requires the Secretary of the CalHHS in coordination with various state departments to develop a working group to make recommendations regarding the evacuation and sheltering needs of older adults and people with disabilities living in long-term care facilities during natural, technical or manmade disasters and emergencies.

Committee amendments: To clarify and coordinate services, the committee recommends adding the following clarifying amendment.

9861. As part of disaster planning and response, a local jurisdiction shall coordinate a memorandum of understanding with an area agency on aging (AAA) or an Aging and Disability Resource Connection (ADRC) program shall have to allow access to an emergency shelter established for evacuation purposes during an active event, in order to ensure that older adults and persons with disabilities receive continuous services and necessary support.

This bill is dual-referred and upon passage out of the Committee on Aging and Long-Term Care will be referred to the Committee on Emergency Management.

Arguments in Support: California Association for Area Agencies on Aging, the sponsor of the bill, writes “California continues to face increasingly frequent and severe natural disasters, disproportionately affecting older adults and people with disabilities. AAAs and ADRCs provide essential services that need to continue and are crucial during emergencies, especially for individuals displaced by these disasters. Ensuring AAAs and ADRCs have direct access to emergency shelters will enable impacted individuals to maintain uninterrupted access to vital programs and services, significantly enhancing their recovery outcomes. Additionally, it is essential that AAAs and ADRCs maintain close coordination and collaborative relationships with local emergency management leaders. Such partnerships ensure older adults continue receiving ongoing AAA services and that older adults entering emergency shelters are informed and connected to available AAA resources. This coordination allows AAAs and ADRCs to identify and respond to specific access, medication, mobility, and support needs that emergency shelters may not be equipped or need support to handle. AB 1069 is a necessary step to safeguard older adults and people with disabilities during emergencies by providing consistent and coordinated care through trusted community providers.”

The California Long-Term Care Ombudsman Association writes in support, “Ombudsmen often support residents evacuated during natural disasters and other emergencies. For example, through the Eaton Fire in Los Angeles earlier this year, Ombudsmen from Wise & Healthy Aging met with facility residents in evacuation centers to connect those residents with their caregivers, family, and community resources to ensure those residents’ medical and non-medical needs could continue to be met. Ombudsmen also contacted facilities to apprise them of the most current evacuation orders with a special focus on poorly performing facilities or those without adequate evacuation plans that were likely to experience more challenges as result. Even though the Long-Term Care Ombudsman Program and other programs working under the AAAs and ADRCs support older adults and adults with disabilities through disasters, there is currently no requirement in state law that these programs have access to their own clients who are temporarily residing in evacuation centers.”

Arguments in Opposition: None

REGISTERED SUPPORT / OPPOSITION:

Support

California Association of Area Agencies on Aging, Sponsor

AARP
Alzheimer's Association
Alzheimer's Greater Los Angeles
Alzheimer's Orange County
Alzheimer's San Diego
California Commission on Aging
California Elder Justice Coalition
California Long Term Care Ombudsman Association
California Retired Teachers Association
California Senior Legislature
Center for Environmental Health
LeadingAge California

Opposition

None on file.

Analysis Prepared by: Elizabeth Fuller / AGING & L.T.C. / (916) 319-3990

1. Projections | Department of Finance (ca.gov) ↑

2. https://factfinder.census.gov ↑

3. http://www.dof.ca.gov/Forecasting/Demographics/Projections ↑

4. https://longevity.stanford.edu/the-new-map-of-life-initiative/ ↑

5. https://newsroom.ucla.edu/releases/covid-life-expectancy-drops-by-race-and-income ↑

6. https://www.caloes.ca.gov/office-of-the-director/operations/planning-preparedness-prevention/planning-preparedness/2024-state-emergency-plan/ ↑

7. aging.ca.gov/Providers_and_Partners/Long-Term_Care_Ombudsman/Data_And_Reports/ ↑

8. https://information.auditor.ca.gov/pdfs/reports/2019-103.pdf ↑

9. https://wildfiretaskforce.org/wp-content/uploads/2022/04/californiawildfireandforestresilienceactionplan.pdf ↑