CONCURRENCE IN SENATE AMENDMENTS

CSA1 Bill Id:AB 1476

Author:(Wallis)

As Amended Ver:August 29, 2025

Majority vote

SUMMARY

Requires the McCarthy Kennick Nutrition Program for the Elderly Act of 1971 (Nutrition Program Act) to include the establishment of projects that would provide, at least five days a week, at least one meal per day and any additional meals the contracting agency or organization may elect to provide for individuals 60 years of age or older.

Senate Amendments

Requires the meal provided be served in an in-person setting or provided for to-go pickup to be consumed in a virtual congregate setting.

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 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.

Nutrition data: According to the California Older Americans Act: State Plan on Aging 2021-2025, Older Americans Act Core Programs Supportive Services (Title III C) provide nutrition services through two programs.^[4]

Congregate Nutrition (Title III C-1) This program provides meals to older adults at senior centers and other locations throughout the state. In addition to meals, the program provides nutrition education, nutrition risk screening, and, in some cases, nutrition counseling.

Home-Delivered Nutrition (Title III C-2) The Home-Delivered Nutrition Program provides nutritious meals, nutrition education, and nutrition risk screening to people 60 and over who are homebound due to illness or disability or who are otherwise isolated.

Administration for Community Living (ACL) has finalized updates to the regulations (also known as the final rule) for its OAA programs. The final rule went into effect on March 15, 2024, and has a compliance date of October 1, 2025. These updates included changes related to OAA Nutrition Regulations Title III, Grab-and-Go Meals using both C-1 and C-2 funds.^[5]

A White House press release stated on March 27, 2025 a restructuring of the federal Health and Human Services Agency, a coordinating factsheet states "The critical programs within the ACL that support older adults and people of all ages with disabilities will be split across the Administration for Children and Families (ACF), Assistant Secretary for Planning and Evaluation (ASPE), and Centers for Medicare and Medicaid Services (CMS)."^[6] It is unclear at this time if ACL regulations will continue.

According to a recent report by Feeding America, food insecurity has negative effects for individuals across the age spectrum, but particularly for seniors and older adults; these effects can be particularly problematic given the unique health, economic, mobility and nutritional challenges that can come with aging.

Having a disability is strongly associated with food insecurity. Seniors with a disability had food insecurity rates over twice as high as seniors without disabilities (13.4% compared to 5.0%). For older adults, the disparity is even greater. Older adults with disabilities had food insecurity rates more than three times as high as older adults without disabilities (26.1% compared to 7.2%).

Extensive work has studied the connection between food insecurity, nutrition, and chronic health conditions. Findings from the 1999-2016 National Health and Nutrition Examination Survey (published as part of the 2021 release The State of Senior Hunger) showed that food insecure seniors and older adults consume lower quantities of key nutrients such as iron and protein and are more likely to have chronic health conditions such as depression and limitations in daily activity.^[7]

A recent CDC study^[8] showed food insecurity interacts with chronic conditions. The study observed higher health care costs in the presence of this interaction for those who were food insecure and had poor health than for those who were food secure. The prevalence of food insecurity and chronic health conditions among older adults is a public health concern.

Meals on Wheels released an analysis of 38 selected studies and found a link between receiving nutrition services and experiencing the following primary health and well-being outcomes:^[9]

1) Reduced use of costly health care services.

2) Reduced nursing home use and increased ability to age in place.

3) Reduced health care costs attributed to reduced hospital and nursing home spending.

4) Increased food security.

5) Improved diet quality.

6) Reduced or slowed decline in nutritional risk.

7) Reduced social isolation and loneliness.

8) Reduced falls and increased home safety.

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.

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. AB 1476 can be linked to Goals Two, Three and Five of the five bold goals:

1. Goal One: Housing for All Ages and Stages
2. Goal Two: Health Reimagined
3. Goal Three: Inclusion and Equity, Not Isolation
4. Goal Four: Caregiving That Works
5. Goal Five: Affording Aging

According to the Author

"Rising food costs are making it increasingly difficult for seniors to access the nutritious meals they need to maintain their health and well-being. Many older adults live on fixed incomes, and higher grocery prices can force tough choices between food, medicine and other essential expenses. Addressing food insecurity is essential to ensure healthy, balanced meals to support our seniors. This bill will take the lessons we learned during COVID-19 and improve quality of life for seniors struggling with food insecurity."

Arguments in Support

The League of California cities writes in support "During the pandemic, cities across California began offering seniors the option to pick up meals rather than receive them in a congregate setting. This proved to be successful, with increased enrollment even after the end of the COVID-era restrictions. Allowing meals to be available for pickup has not inhibited cities' efforts to continue to connect with older adults. In fact, this added flexibility has expanded the reach of these programs to individuals who previously were not receiving these vital services and supports. Cal Cities supports increased access to healthy and affordable food in communities across the state. Allowing cities to provide to-go meal options allows for increased flexibility and is a meaningful step forward in addressing food insecurity and hunger among our communities' most vulnerable residents."

The Alzheimer's Association writes in further support "Proper nutrition is vital to keep the body and mind healthy. For a person with Alzheimer's or dementia, poor nutrition may increase behavioral symptoms and cause weight loss. A decrease in appetite and weight may become a concern as the disease progresses. Although, during the middle stage, it is important to promote a person with dementia's independence during meals. AB 1476 provides optionality for how older adults want to receive meals available to them, which allows them to eat at a time and place of their choosing. This provides them with the independence they deserve to receive proper nutrition in a comfortable setting. This policy supports older adults by providing options for what works best for their schedule and needs. This bill promotes healthy nutrition, which is a key factor in staving off worsening conditions."

Arguments in Opposition

None on file.

FISCAL COMMENTS

According to the Senate Appropriations Committee, there are unknown ongoing General Fund costs, potentially ranging from the low hundreds of thousands to low millions, for Area Agencies on Aging to provide hot meals for to-go pick-up for consumption in a virtual congregate setting.

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 APPROPRIATIONS: 14-0-1

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

ABS, ABST OR NV: Sanchez

ASSEMBLY FLOOR: 79-0-0

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, McKinnor, 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

UPDATED

VERSION: August 29, 2025

CONSULTANT: Elizabeth Fuller / AGING & L.T.C. / (916) 319-3990 FN: 0002064

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

2. https://factfinder.census.gov ↑

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

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

5. https://acl.gov/sites/default/files/2025-01/OAAregs_TitleIII_Grab-and-GoMeals_ACL.pdf ↑

6. Fact Sheet: HHS’ Transformation to Make America Healthy Again | HHS.gov ↑

7. https://www.feedingamerica.org/research/state-senior-hunger ↑

8. https://www.cdc.gov/pcd/issues/2018/18_0058.htm ↑

9. https://www.mealsonwheelsamerica.org/learn-more/research/the-case-for-meals-on-wheels-sept23 ↑

 THIRD READING  

Bill No: AB 1476

Author: Wallis (R), et al.

Amended: 8/29/25 in Senate

Vote: 21

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

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

SENATE APPROPRIATIONS COMMITTEE: 7-0, 8/29/25

AYES: Caballero, Seyarto, Cabaldon, Dahle, Grayson, Richardson, Wahab

ASSEMBLY FLOOR: 79-0, 6/2/25 - See last page for vote

SUBJECT: Meal program: senior citizens

SOURCE: Author

DIGEST:

This bill allows sites distributing at least one meal a day through the Congregate Meals Program to provide meals served hot or available as “to go” meals that can consumed in a virtual congregate setting.

ANALYSIS:

Existing Law:

1. Establishes, in federal law, 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 (USC) 3001, et seq.)
2. Establishes the McCarthy-Kennick Nutrition Program for the Elderly Act of 1972. (Welfare and Institutions Code (WIC) 18325)
3. Recognizes the area agencies on aging (AAAs) to be the local units on aging in California that are supported by federal funding, state and local governmental assistance, the private sector, and individual contributions, and assigns duties to those AAAs. (WIC 9402)
4. Requires the California Commission on Aging, with the approval of the Secretary of California Health and Human Services, to create an annual state plan to implement the Older Americans Act of 1965 and submit it to the federal government for approval (WIC 18326)
5. Requires the state plan to include: nutrition projects that provide at least one hot meal on site five or more days a week to eligible people 60 years old or older; requires those nutrition projects to be near concentrations of eligible individuals’ residences; administrative methods to assure maximum participation of eligible individuals; provision of special menus, as specified; host projects in settings that allow for recreation, counseling, and referral services; provide appropriate modes of transportation; administration by people with relevant expertise; and nutrition education. (WIC 18327)
6. Requires between 10 percent and 20 percent of all funds expended for nutrition services to be available for meals to individuals in their residences. (WIC 18327.1)
7. Establishes the Nutrition Reserve Fund under the control of the Director of the Department of Aging and requires local AAAs to review local requests for funding from the fund. (WIC 18331)

This bill:

1. Allows sites that administer nutrition projects, pursuant to the McCarthy-Kennick Nutrition Program for the Elderly Act of 1972, and, five or more days per week provide at least one meal per day served hot, to also make that meal available to be picked up and eaten at home in a virtual congregate setting.
2. Removes the requirement that additional meals the site chooses to provide ensure recommended dietary allowances.

Comments

According to the author, “rising food costs are making it increasingly difficult for seniors to access the nutritious meals they need to maintain their health and well-being. Many older adults live on fixed incomes, and higher grocery prices can force tough choices between food, medicine and other essential expenses. Addressing food insecurity is essential to ensure healthy, balanced meals to support our seniors. This bill will take the lessons we learned during COVID-19 and improve quality of life for seniors struggling with food insecurity.”

Services for California’s Older Adults. The CDA administers programs that serve older adults, adults with disabilities, family caregivers, and residents in long-term care facilities throughout the state. It administers funds allocated under the federal Older Americans Act, the state Mello-Granlund Older Californians Act, and through the Medi-Cal program.

CDA contracts with and provides leadership and direction to the 33 AAAs operating in California. AAAs play a key role in planning, developing, coordinating, and delivering a wide range of services and supports to consumers in their local planning service areas. They directly manage federal- and state-funded services that help older adults find employment; support older and disabled individuals to live as independently as possible in the community; promote healthy aging and community involvement; and assist family members serving as caregivers.  They function as a community link at the local level for development of home- and community-based services provided under CDA’s programs.

Services provided by AAAs, or through their contracts with community providers, include: home adaptation funding; provision of assistive devices; support groups; nutrition programs, including congregate nutrition programs and home-delivered meal programs; disease prevention and health promotion programs; family caregiver support programs, including training and education; and supportive services programs. CDA develops guidance, identifies promising practices, and provides technical assistance to AAAs on effective strategies to better serve specific groups that have historically been underserved.

McCarthy-Kennick Nutrition Program for the Elderly Act of 1972. The Older Americans Act mandates states to create a plan to provide hot meals to older adults both at designated facilities and delivered to homes. This led to the enactment of the McCarthy-Kennick Nutrition Program for the Elderly Act of 1972. This act created the Older Adults Nutrition Program, which requires at least one hot meal a day be provided five or more days a week in senior centers and other locations throughout the state through the Congregate Meals Program, and food delivered thorough the Home-Delivered Nutrition Program for people 60 and over who are homebound due to illness or disability.

Beyond food, the programs also provides nutrition related services such as nutrition education, risk screening, and counseling. According to the California State Plan on Aging, during fiscal year 2018-19, “nearly 6.9 million congregate meals and more than 11 million home-delivered meals were provided to a total of 212,725 people.”^[1] Meals provided through the Congregate Meal Program are funded with Title III C-1 funds and Home- Delivered Nutrition is funded through Title III-C-2 funds, per federal law. This bill amends the Congregate Meals Program by allowing food funded with Title III C-1 funds to be picked up at these sites to be eaten at home, or eaten hot on site.

California Older Americans Act: State Plan on Aging 2021-2025. In order to receive federal funding, the Older Americans Act requires the state to designate a state agency as the sole state agency to create a state plan for services and administer that plan. In California, CDA is the entity that creates the plan. In the 2021-2025 state plan, the department identified six priorities for aging along with goals and objectives to achieve those priorities. Those priorities are:

• Public Information and Assistance
• Home and Community Living
• Long-Term Care Residents’ Rights and Well-being
• Inclusion, Equity, and Prevention of Isolation and Mistreatment
• Partnerships, Including with Tribal Organizations, Counties, Health Care, and Local Leaders
• Modernization of CDA and Strengthened Support for Aging “Hubs and Spokes” Statewide

To achieve the first priority, Public Information and Assistance, CDA has set a goal to support home and community living by empowering “people to live in homes and communities of choice by supporting nutrition, health and well-being, caregiving, and other services and supports through a diversity of culturally competent and in language providers.” The first objective to achieve that goal is to expand “equitable access to nutrition and nutrition information building on the record setting number of meals made distributed during the COVID-19 pandemic.” One of the strategies to achieve this expansion in access includes increasing the number of meals available “to go,” specifically to “explore emerging innovations in older adult nutrition programs, such as intergenerational community meal settings and ‘to go’ meals.” This bill aims to increase to the use of “to go” meals by giving all facilities the option to provide them.

During the COVID-19 pandemic, the nutrition programs were modified to continue providing meals to seniors while following appropriate safety protocols. Changes to the program included more meal offerings including breakfast and weekend meals, adding “to go” options to congregate meals, and increasing the number of meal vendors. Since the end of the COVID-19 Major Disaster Declaration, CDA has issued guidance to AAAs that explained changes that would be incorporated as they to return to normal operations. This includes allowing to go meals to be funded through Title III C-1 funds but only if there is an in-person or virtual interaction.^[2] Also, recently updated federal regulations allow 25 percent of the food served in Congregate Meal Programs to be “to go” options.^[3]

The city of Calimesa saw unexpected benefits to their grab- and- go meal program for seniors administered by their Family Services Association. During the pandemic the program allowed seniors to maintain access to free meals while remaining safe, but it also attracted new people to their senior center where they learned about the services and activities available to them for the first time. According to city officials, their congregate meal program attracted 10 to 15 people before the pandemic, since then it has grown to 230 participants with 160 people being served every week. They have also seen increased participation in their other senior programming.

Since the pandemic, food insecurity remains a growing problem for older adults. Seniors with limited income still struggle to obtain balanced nutrition, especially if they have mobility or other health issues. Food insecurity increases the likelihood that seniors will face fast cognitive decline or be more prone to infection. The state has made a number of efforts to increase access to food like the expansion of CalFresh to allow Supplemental Security Income/State Supplementary Payment (SSI/ SSP) beneficiaries’ access to CalFresh led to an increase of senior CalFresh recipients. Nonprofit organizations, both funded by and supplementing government nutrition programs, also help by providing meals directly, but there is still a growing need. This bill seeks to address that need by expanding options for Congregate Meal Program sites to distribute foods and meet the needs of more of the community.

Related/Prior Legislation:

AB 2410 (Wallis, 2024) was nearly identical to this bill in that it would have allowed sites distributing meals through the Congregate Meals Program to provide meals served either hot or available as “to go” meals that can be reheated at home. AB 2410 was held in the Senate Appropriations Committee.

AB 1968 (Jackson, 2024) would require the Department of Social Services (CDSS), by January 1, 2026, and annually thereafter, to establish a system for automatic enrollment in the CalFresh program for individuals who meet eligibility requirements of the Supplemental Security Income/State Supplementary Program (SSI/SSP), and individuals who would otherwise meet the requirements for SSI/SSP, but are ineligible solely due to immigration status. AB 1968 was held in the Assembly Appropriations Committee.

AB 3135 (Eduardo Garcia, 2020) would have required the California Commission on Aging to study the impact of malnutrition on older adults in all health care settings in this state and to monitor the influence of malnutrition on older adults’ health care costs and outcomes and quality indicators, among other duties related to the prevention of malnutrition in older adults. AB 3135 failed passage in the Assembly Aging and Long Term Care Committee.

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

According to the Senate Appropriations Committee, there are unknown ongoing General Fund costs, potentially ranging from the low hundreds of thousands to low millions, for Area Agencies on Aging to provide hot meals for to-go pick-up for consumption in a virtual congregate setting.

SUPPORT: (Verified 8/29/25)

AARP
Alzheimer's Association
California Commission on Aging
California Retired Teachers Association
City of Thousand Oaks
League of California Cities
Meals on Wheels California

OPPOSITION: (Verified 8/29/25)

None received

ASSEMBLY FLOOR: 79-0, 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, McKinnor, 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

Prepared by: Naima Ford Antal / HUMAN S. / (916) 651-1524

9/2/25 18:22:37

**** END ****

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

2. Guidance for Area Agencies on Aging Regarding Return to Standard Operations for the Older Americans Act Programs Post-COVID-19 Major Disaster Declaration. February 3, 2023. https://www.aging.ca.gov/download.ashx?lE0rcNUV0zYKzcWhqig9%2bg%3d%3d ↑

3. OAA §1321.87(a)(1)(i-iii) ↑

SENATE COMMITTEE ON APPROPRIATIONS

Senator Anna Caballero, Chair

2025 - 2026 Regular Session

AB 1476 (Wallis) - Meal program: senior citizens

Bill Summary:

AB 1476 would specify that programs that are required to provide at least one hot meal per day for seniors, must provide the hot meal either served hot or made available for to-go pickup for reheating at home.

*********** ANALYSIS ADDENDUM – SUSPENSE FILE ***********

The following information is revised to reflect amendments

adopted by the committee on August 29, 2025

Fiscal Impact:

Unknown ongoing General Fund costs, potentially ranging from the low hundreds of thousands to low millions, for Area Agencies on Aging to provide hot meals for to-go pick-up for consumption in a virtual congregate setting.

Author Amendments:

Specify that hot meals provided for to-go pick-up are for consumption in a virtual congregate setting, rather than for reheating at home; and delete the requirement that additional meals that the contracting agency or organization elects to provide must ensure recommended dietary allowances.

-- END --

SENATE COMMITTEE ON APPROPRIATIONS

Senator Anna Caballero, Chair

2025 - 2026 Regular Session

AB 1476 (Wallis) - Meal program: senior citizens

Bill Summary:

AB 1476 would specify that programs that are required to provide at least one hot meal per day for seniors, must provide the hot meal either served hot or made available for to-go pickup for reheating at home.

Fiscal Impact:

The California Department of Aging (CDA) estimates annual costs could range from the low hundreds of thousands to low millions (General Fund), depending on the size of the Area Agency on Aging (AAA), the number of individuals a AAA serves, and whether a AAA currently has a means of facilitating a virtual congregate meal. According to CDA, federal regulations permit the addition of a virtual congregate option when meals are not consumed in a traditional congregate setting. In order to be eligible for federal funding, all to-go meals must be eaten in a virtual congregate setting. Not all AAAs have the capacity to provide the virtual congregate option. To the extent that this bill may encourage more AAAs to offer to-go meals, there may be corresponding state costs to help AAAs purchase the necessary hardware/software/subscriptions that would afford clients the virtual congregate option in order to receive meals to-go.

Background:

Federal law establishes the Older Americans Act to promote the well-being of Americans 60 years old and above through services and programs designed to meet their needs. Existing state law requires the state to create an annual state plan to implement the Older Americans Act of 1965 and submit the plan to the federal government for approval.

Current state law requires the state plan to include, but not be limited to, the following:

• Establishment of projects which, five or more days per week, provide at least one hot meal per day and any additional meals which the contracting agency or organization may elect to provide, each of which assures recommended dietary allowances;
• Provision of such nutrition projects for individuals aged 60 or over who are eligible;
• Furnishing of sites for such nutrition projects in close proximity to concentrations of eligible individuals’ residences, such as schools, churches, senior centers and facilities serving the aging;
• Utilization of administrative methods to assure maximum participation of eligible individuals;
• Provision of special menus, where feasible, to meet particular dietary needs arising from health or religious requirements or ethnic backgrounds;
• Provision of settings conducive to including, as a part of such projects, recreational activities, information, health and welfare counseling, and referral services;
• Provision of appropriate modes of transportation essential to maximum participation of eligible individuals confined to their homes;
• Establishment and administration of such projects with the advice of persons competent in the field and of older Californians who will themselves participate in the program;
• Nutrition education.

Proposed Law:

AB 1476 would amend the state plan requirements to specify that programs that provide at least one hot meal per day for seniors must provide the hot meal either served hot or made available for to-go pickup for reheating at home.

Related Legislation:

AB 2410 (Wallis, 2024) was similar to this bill. The bill was held on the suspense file in this committee.

-- END --

SENATE COMMITTEE ON HUMAN SERVICES

Senator Arreguín, Chair

2025 - 2026 Regular

Subject: Meal program: senior citizens

SUMMARY

This bill allows sites distributing at least one meal a day through the Congregate Meals Program to provide meals served hot or available as “to go” meals that can be reheated at home.

ABSTRACT

Existing Law:

1. Establishes, in federal law, 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 (USC) 3001, et seq.)
2. Establishes the McCarthy-Kennick Nutrition Program for the Elderly Act of 1972. (Welfare and Institutions Code (WIC) 18325)
3. Recognizes the area agencies on aging (AAAs) to be the local units on aging in California that are supported by federal funding, state and local governmental assistance, the private sector, and individual contributions, and assigns duties to those AAAs. (WIC 9402)
4. Requires the California Commission on Aging, with the approval of the Secretary of California Health and Human Services, to create an annual state plan to implement the Older Americans Act of 1965 and submit it to the federal government for approval (WIC 18326)
5. Requires the state plan to include: nutrition projects that provide at least one hot meal on site five or more days a week to eligible people 60 years old or older; requires those nutrition projects to be near concentrations of eligible individuals’ residences; administrative methods to assure maximum participation of eligible individuals; provision of special menus, as specified; host projects in settings that allow for recreation, counseling, and referral services; provide appropriate modes of transportation; administration by people with relevant expertise; and nutrition education. (WIC 18327)
6. Requires between 10 percent and 20 percent of all funds expended for nutrition services to be available for meals to individuals in their residences. (WIC 18327.1)
7. Establishes the Nutrition Reserve Fund under the control of the Director of the Department of Aging and requires local AAAs to review local requests for funding from the fund. (WIC 18331)

This Bill:

1. Allows sites that administer nutrition projects, pursuant to the McCarthy-Kennick Nutrition Program for the Elderly Act of 1972, and, five or more days per week provide at least one meal per day served hot, to also make that meal available to be picked up and reheated at home.

FISCAL IMPACT

According to the Assembly Appropriations Committee, “The California Department of Aging (CDA) currently administers the McCarthy-Kennick Nutrition Program for the Elderly. To implement the provisions of this bill, CDA anticipates needing additional General Fund (GF) resources of an unknown amount, but likely ranging from the low hundreds of thousands to low millions of dollars annually, depending on the size of each Area Agency on Aging (AAA), the number of individuals an AAA serves, and whether an AAA currently has a means of facilitating a virtual congregate meal.

“In 2024, the Administration for Community Living (ACL) promulgated new regulations to support implementation of the Older Americans Act (OAA). The new regulations permit the addition of a virtual congregate option when meals are not consumed in a traditional congregate setting. For an AAA to be eligible for federal funding, all to-go meals must be eaten in a virtual congregate setting, including a Zoom call or LOOP Village membership. Not all AAAs have the capacity to provide the virtual congregate option. To the extent that this bill encourages more AAAs to offer to-go meals, there may be corresponding state costs to help AAAs purchase the necessary hardware, software, and subscriptions to provide clients the virtual congregate option in order to receive meals to-go.

“For context, CDA supported the purchase of LOOP Village memberships for one year for both the Los Angeles County AAA and the City of Los Angeles’ Department of Aging. The cost of membership for Los Angeles County’s 26 providers was $15,600 per year, and the cost of membership for the City of Los Angeles’ 181 congregate sites was $108,600 per year.”

BACKGROUND AND DISCUSSION

Purpose of the Bill:

According to the author, “rising food costs are making it increasingly difficult for seniors to access the nutritious meals they need to maintain their health and well-being. Many older adults live on fixed incomes, and higher grocery prices can force tough choices between food, medicine and other essential expenses. Addressing food insecurity is essential to ensure healthy, balanced meals to support our seniors. This bill will take the lessons we learned during COVID-19 and improve quality of life for seniors struggling with food insecurity.”

Services for California’s Older Adults

The CDA administers programs that serve older adults, adults with disabilities, family caregivers, and residents in long-term care facilities throughout the state. It administers funds allocated under the federal Older Americans Act, the state Mello-Granlund Older Californians Act, and through the Medi-Cal program.

CDA contracts with and provides leadership and direction to the 33 AAAs operating in California. AAAs play a key role in planning, developing, coordinating, and delivering a wide range of services and supports to consumers in their local planning service areas. They directly manage federal- and state-funded services that help older adults find employment; support older and disabled individuals to live as independently as possible in the community; promote healthy aging and community involvement; and assist family members serving as caregivers.  They function as a community link at the local level for development of home- and community-based services provided under CDA’s programs.

Services provided by AAAs, or through their contracts with community providers, include: home adaptation funding; provision of assistive devices; support groups; nutrition programs, including congregate nutrition programs and home-delivered meal programs; disease prevention and health promotion programs; family caregiver support programs, including training and education; and supportive services programs. CDA develops guidance, identifies promising practices, and provides technical assistance to AAAs on effective strategies to better serve specific groups that have historically been underserved.

McCarthy-Kennick Nutrition Program for the Elderly Act of 1972

The Older Americans Act mandates states to create a plan to provide hot meals to older adults both at designated facilities and delivered to homes. This led to the enactment of the McCarthy-Kennick Nutrition Program for the Elderly Act of 1972. This act created the Older Adults Nutrition Program, which requires at least one hot meal a day be provided five or more days a week in senior centers and other locations throughout the state through the Congregate Meals Program, and food delivered thorough the Home-Delivered Nutrition Program for people 60 and over who are homebound due to illness or disability.

Beyond food, the programs also provides nutrition related services such as nutrition education, risk screening, and counseling. According to the California State Plan on Aging, during fiscal year 2018-19, “nearly 6.9 million congregate meals and more than 11 million home-delivered meals were provided to a total of 212,725 people.”^[1] Meals provided through the Congregate Meal Program are funded with Title III C-1 funds and Home- Delivered Nutrition is funded through Title III-C-2 funds, per federal law. This bill amends the Congregate Meals Program by allowing food funded with Title III C-1 funds to be picked up at these sites to be eaten at home, or eaten hot on site.

California Older Americans Act: State Plan on Aging 2021-2025

In order to receive federal funding, the Older Americans Act requires the state to designate a state agency as the sole state agency to create a state plan for services and administer that plan. In California, CDA is the entity that creates the plan. In the 2021-2025 state plan, the department identified six priorities for aging along with goals and objectives to achieve those priorities. Those priorities are:

• Public Information and Assistance
• Home and Community Living
• Long-Term Care Residents’ Rights and Well-being
• Inclusion, Equity, and Prevention of Isolation and Mistreatment
• Partnerships, Including with Tribal Organizations, Counties, Health Care, and Local Leaders
• Modernization of CDA and Strengthened Support for Aging “Hubs and Spokes” Statewide

To achieve the first priority, Public Information and Assistance, CDA has set a goal to support home and community living by empowering “people to live in homes and communities of choice by supporting nutrition, health and well-being, caregiving, and other services and supports through a diversity of culturally competent and in language providers.” The first objective to achieve that goal is to expand “equitable access to nutrition and nutrition information building on the record setting number of meals made distributed during the COVID-19 pandemic.” One of the strategies to achieve this expansion in access includes increasing the number of meals available “to go,” specifically to “explore emerging innovations in older adult nutrition programs, such as intergenerational community meal settings and ‘to go’ meals.” This bill aims to increase to the use of “to go” meals by giving all facilities the option to provide them.

During the COVID-19 pandemic, the nutrition programs were modified to continue providing meals to seniors while following appropriate safety protocols. Changes to the program included more meal offerings including breakfast and weekend meals, adding “to go” options to congregate meals, and increasing the number of meal vendors. Since the end of the COVID-19 Major Disaster Declaration, CDA has issued guidance to AAAs that explained changes that would be incorporated as they to return to normal operations. This includes allowing to go meals to be funded through Title III C-1 funds but only if there is an in-person or virtual interaction.^[2] Also, recently updated federal regulations allow 25 percent of the food served in Congregate Meal Programs to be “to go” options.^[3]

The city of Calimesa saw unexpected benefits to their grab- and- go meal program for seniors administered by their Family Services Association. During the pandemic the program allowed seniors to maintain access to free meals while remaining safe, but it also attracted new people to their senior center where they learned about the services and activities available to them for the first time. According to city officials, their congregate meal program attracted 10 to 15 people before the pandemic, since then it has grown to 230 participants with 160 people being served every week. They have also seen increased participation in their other senior programming.

Since the pandemic, food insecurity remains a growing problem for older adults. Seniors with limited income still struggle to obtain balanced nutrition, especially if they have mobility or other health issues. Food insecurity increases the likelihood that seniors will face fast cognitive decline or be more prone to infection. The state has made a number of efforts to increase access to food like the expansion of CalFresh to allow Supplemental Security Income/State Supplementary Payment (SSI/ SSP) beneficiaries’ access to CalFresh led to an increase of senior CalFresh recipients. Nonprofit organizations, both funded by and supplementing government nutrition programs, also help by providing meals directly, but there is still a growing need. This bill seeks to address that need by expanding options for Congregate Meal Program sites to distribute foods and meet the needs of more of the community.

Related/Prior Legislation:

AB 2410 (Wallis, 2024) was nearly identical to this bill in that it would have allowed sites distributing meals through the Congregate Meals Program to provide meals served either hot or available as “to go” meals that can be reheated at home. AB 2410 was held in the Senate Appropriations Committee.

AB 1968 (Jackson, 2024) would require the Department of Social Services (CDSS), by January 1, 2026, and annually thereafter, to establish a system for automatic enrollment in the CalFresh program for individuals who meet eligibility requirements of the Supplemental Security Income/State Supplementary Program (SSI/SSP), and individuals who would otherwise meet the requirements for SSI/SSP, but are ineligible solely due to immigration status. AB 1968 was held in the Assembly Appropriations Committee.

AB 3135 (Eduardo Garcia, 2020) would have required the California Commission on Aging to study the impact of malnutrition on older adults in all health care settings in this state and to monitor the influence of malnutrition on older adults’ health care costs and outcomes and quality indicators, among other duties related to the prevention of malnutrition in older adults. AB 3135 failed passage in the Assembly Aging and Long Term Care Committee.

COMMENTS

This bill seeks to codify the practice of offering “to go” meals for seniors through the Older Adults Nutrition Program. Hunger takes a severe toll on seniors’ health and nutrition, putting them at risk for chronic health conditions. Some seniors are more likely to face hunger due to racial and economic inequality, or if they have a disability.

The practice of allowing participants in the program to pick up meals and eat them at home instead of eating them in a communal space began as a response to the COVID-19 pandemic. The success of the “to go” process has led CDA and the federal government to make changes to the program that allow local providers the flexibility to provide meals “to go” within certain limitations. This bill puts that flexibility into state law.

PRIOR VOTES

POSITIONS

Support:

AARP

Alzheimer's Association
California Retired Teachers Association
City of Thousand Oaks
League of California Cities
Meals on Wheels California

Oppose:

None received

-- END --

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

2. Guidance for Area Agencies on Aging Regarding Return to Standard Operations for the Older Americans Act Programs Post-COVID-19 Major Disaster Declaration. February 3, 2023. https://www.aging.ca.gov/download.ashx?lE0rcNUV0zYKzcWhqig9%2bg%3d%3d ↑

3. OAA §1321.87(a)(1)(i-iii) ↑

ASSEMBLY THIRD READING

ATR Bill Id:AB 1476

Author:(Wallis)

As Introduced Ver:February 21, 2025

Majority vote

SUMMARY

Requires the McCarthy Kennick Nutrition Program for the Elderly Act of 1971 (Nutrition Program Act) to include the establishment of projects that would provide, at least five days a week, at least one hot meal per day and any additional meals the contracting agency or organization may elect to provide for individuals 60 years of age or older.

Major Provisions

Specifies the projects provide meals either served hot or made available for to-go pickup and reheated at home by eligible individuals.

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 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.

Nutrition data: According to the California Older Americans Act: State Plan on Aging 2021-2025, Older Americans Act Core Programs Supportive Services (Title III C) provide nutrition services through two programs.^[4]

Congregate Nutrition (Title III C-1) This program provides meals to older adults at senior centers and other locations throughout the state. In addition to meals, the program provides nutrition education, nutrition risk screening, and, in some cases, nutrition counseling.

Home-Delivered Nutrition (Title III C-2) The Home-Delivered Nutrition Program provides nutritious meals, nutrition education, and nutrition risk screening to people 60 and over who are homebound due to illness or disability or who are otherwise isolated.

Administration for Community Living (ACL) has finalized updates to the regulations (also known as the final rule) for its OAA programs. The final rule went into effect on March 15, 2024, and has a compliance date of October 1, 2025. These updates included changes related to OAA Nutrition Regulations Title III, Grab-and-Go Meals using both C-1 and C-2 funds.^[5]

A White House press release stated on March 27, 2025 a restructuring of the federal Health and Human Services Agency, a coordinating factsheet states "The critical programs within the ACL that support older adults and people of all ages with disabilities will be split across the Administration for Children and Families (ACF), Assistant Secretary for Planning and Evaluation (ASPE), and Centers for Medicare and Medicaid Services (CMS).”^[6] It is unclear at this time if ACL regulations will continue.

According to a recent report by Feeding America, food insecurity has negative effects for individuals across the age spectrum, but particularly for seniors and older adults; these effects can be particularly problematic given the unique health, economic, mobility and nutritional challenges that can come with aging.

Having a disability is strongly associated with food insecurity. Seniors with a disability had food insecurity rates over twice as high as seniors without disabilities (13.4% compared to 5.0%). For older adults, the disparity is even greater. Older adults with disabilities had food insecurity rates more than three times as high as older adults without disabilities (26.1% compared to 7.2%).

Extensive work has studied the connection between food insecurity, nutrition, and chronic health conditions. Findings from the 1999-2016 National Health and Nutrition Examination Survey (published as part of the 2021 release The State of Senior Hunger) showed that food insecure seniors and older adults consume lower quantities of key nutrients such as iron and protein and are more likely to have chronic health conditions such as depression and limitations in daily activity.^[7]

A recent CDC study^[8] showed food insecurity interacts with chronic conditions. The study observed higher health care costs in the presence of this interaction for those who were food insecure and had poor health than for those who were food secure. The prevalence of food insecurity and chronic health conditions among older adults is a public health concern.

Meals on Wheels released an analysis of 38 selected studies and found a link between receiving nutrition services and experiencing the following primary health and well-being outcomes:^[9]

1) Reduced use of costly health care services.

2) Reduced nursing home use and increased ability to age in place.

3) Reduced health care costs attributed to reduced hospital and nursing home spending.

4) Increased food security.

5) Improved diet quality.

6) Reduced or slowed decline in nutritional risk.

7) Reduced social isolation and loneliness.

8) Reduced falls and increased home safety.

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.

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. AB 1476 can be linked to Goals Two, Three and Five of the five bold goals:

1. Goal One: Housing for All Ages and Stages
2. Goal Two: Health Reimagined
3. Goal Three: Inclusion and Equity, Not Isolation
4. Goal Four: Caregiving That Works
5. Goal Five: Affording Aging

According to the Author

"Rising food costs are making it increasingly difficult for seniors to access the nutritious meals they need to maintain their health and well-being. Many older adults live on fixed incomes, and higher grocery prices can force tough choices between food, medicine and other essential expenses. Addressing food insecurity is essential to ensure healthy, balanced meals to support our seniors. This bill will take the lessons we learned during COVID-19 and improve quality of life for seniors struggling with food insecurity."

Arguments in Support

The League of California cities writes in support "During the pandemic, cities across California began offering seniors the option to pick up meals rather than receive them in a congregate setting. This proved to be successful, with increased enrollment even after the end of the COVID-era restrictions. Allowing meals to be available for pickup has not inhibited cities' efforts to continue to connect with older adults. In fact, this added flexibility has expanded the reach of these programs to individuals who previously were not receiving these vital services and supports. Cal Cities supports increased access to healthy and affordable food in communities across the state. Allowing cities to provide to-go meal options allows for increased flexibility and is a meaningful step forward in addressing food insecurity and hunger among our communities' most vulnerable residents."

The Alzheimer's Association writes in further support "Proper nutrition is vital to keep the body and mind healthy. For a person with Alzheimer's or dementia, poor nutrition may increase behavioral symptoms and cause weight loss. A decrease in appetite and weight may become a concern as the disease progresses. Although, during the middle stage, it is important to promote a person with dementia's independence during meals. AB 1476 provides optionality for how older adults want to receive meals available to them, which allows them to eat at a time and place of their choosing. This provides them with the independence they deserve to receive proper nutrition in a comfortable setting. This policy supports older adults by providing options for what works best for their schedule and needs. This bill promotes healthy nutrition, which is a key factor in staving off worsening conditions."

Arguments in Opposition

None.

FISCAL COMMENTS

The California Department of Aging (CDA) currently administers the McCarthy-Kennick Nutrition Program for the Elderly. To implement the provisions of this bill, CDA anticipates needing additional General Fund (GF) resources of an unknown amount, but likely ranging from the low hundreds of thousands to low millions of dollars annually, depending on the size of each Area Agency on Aging (AAA), the number of individuals an AAA serves, and whether an AAA currently has a means of facilitating a virtual congregate meal.

In 2024, the Administration for Community Living (ACL) promulgated new regulations to support implementation of the Older Americans Act (OAA). The new regulations permit the addition of a virtual congregate option when meals are not consumed in a traditional congregate setting. For an AAA to be eligible for federal funding, all to-go meals must be eaten in a virtual congregate setting, including a Zoom call or LOOP Village membership. Not all AAAs have the capacity to provide the virtual congregate option. To the extent that this bill encourages more AAAs to offer to-go meals, there may be corresponding state costs to help AAAs purchase the necessary hardware, software, and subscriptions to provide clients the virtual congregate option in order to receive meals to-go.

For context, CDA supported the purchase of LOOP Village memberships for one year for both the Los Angeles County AAA and the City of Los Angeles' Department of Aging. The cost of membership for Los Angeles County's 26 providers was $15,600 per year, and the cost of membership for the City of Los Angeles' 181 congregate sites was $108,600 per year.

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 APPROPRIATIONS: 14-0-1

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

ABS, ABST OR NV: Sanchez

UPDATED

VERSION: February 21, 2025

CONSULTANT: Elizabeth Fuller / AGING & L.T.C. / (916) 319-3990 FN: 0000697

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

2. https://factfinder.census.gov ↑

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

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

5. https://acl.gov/sites/default/files/2025-01/OAAregs_TitleIII_Grab-and-GoMeals_ACL.pdf ↑

6. Fact Sheet: HHS’ Transformation to Make America Healthy Again | HHS.gov ↑

7. https://www.feedingamerica.org/research/state-senior-hunger ↑

8. https://www.cdc.gov/pcd/issues/2018/18_0058.htm ↑

9. https://www.mealsonwheelsamerica.org/learn-more/research/the-case-for-meals-on-wheels-sept23 ↑

Date of Hearing: April 30, 2025

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Buffy Wicks, Chair

ABPCA Bill Id:AB 1476

Author:(Wallis) – As Introduced Ver:February 21, 2025

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

SUMMARY:

This bill requires the California Commission on Aging (COA) to include a provision in the annual state plan, required pursuant to the McCarthy-Kennick Nutrition Program for the Elderly Act of 1972, to establish projects that ensure meals provided by a contracting agency or organization provide at least one meal per day provided by a contracting agency or organization be either served hot or made available for to-go pickup by eligible individuals 60 years of age or older at least five days per week.

FISCAL EFFECT:

The California Department of Aging (CDA) currently administers the McCarthy-Kennick Nutrition Program for the Elderly. To implement the provisions of this bill, CDA anticipates needing additional General Fund (GF) resources of an unknown amount, but likely ranging from the low hundreds of thousands to low millions of dollars annually, depending on the size of each Area Agency on Aging (AAA), the number of individuals an AAA serves, and whether an AAA currently has a means of facilitating a virtual congregate meal.

In 2024, the Administration for Community Living (ACL) promulgated new regulations to support implementation of the Older Americans Act (OAA). The new regulations permit the addition of a virtual congregate option when meals are not consumed in a traditional congregate setting. For an AAA to be eligible for federal funding, all to-go meals must be eaten in a virtual congregate setting, including a Zoom call or LOOP Village membership. Not all AAAs have the capacity to provide the virtual congregate option. To the extent that this bill encourages more AAAs to offer to-go meals, there may be corresponding state costs to help AAAs purchase the necessary hardware, software, and subscriptions to provide clients the virtual congregate option in order to receive meals to-go.

For context, CDA supported the purchase of LOOP Village memberships for one year for both the Los Angeles County AAA and the City of Los Angeles’ Department of Aging. The cost of membership for Los Angeles County’s 26 providers was $15,600 per year, and the cost of membership for the City of Los Angeles’ 181 congregate sites was $108,600 per year.

COMMENTS:

1. Purpose. According to the author:

Rising food costs are making it increasingly difficult for seniors to access the nutritious meals they need to maintain their health and well-being. Many older adults live on fixed incomes, and higher grocery prices can force tough choices between food, medicine and other essential expenses. Addressing food insecurity is essential to ensure healthy, balanced meals to support our seniors. This bill will take the lessons we learned during COVID-19 and improve quality of life for seniors struggling with food insecurity.

1. Senior Nutrition. According to a recent report by Feeding America, food insecurity has negative effects for individuals across the age spectrum, but particularly for seniors and older adults; these effects can be particularly problematic given the unique health, economic, mobility and nutritional challenges that can come with aging.

Existing law, the McCarthy-Kennick Nutrition Program for the Elderly Act of 1972, establishes the Nutrition Reserve Fund to maintain existing nutrition services and to lend moneys to senior nutrition projects. The program also requires, by May 1 of each year, the COA to develop and submit to the federal government a state plan for implementing the federal Older Americans Act of 1965. The state plan, among other requirements, must include establishing programs for seniors which, five or more days per week, provide at least one hot meal per day and any additional meals the contracting agency or organization may elect to provide, each of which assures recommended dietary allowances.

The state plan provides for nutrition services through two programs, Congregate Nutrition (Title III C-1) and Home-Delivered Nutrition (Title III C-2). The Congregate Nutrition program provides nutritious meals to older adults at senior centers and other locations throughout the state. The Home-Delivered Nutrition program provides nutritious meals to people 60 years of age or older who are homebound due to illness or disability or who are otherwise isolated.

The League of California cities writes in support:

During the pandemic, cities across California began offering seniors the option to pick up meals rather than receive them in a congregate setting. This proved to be successful, with increased enrollment even after the end of the COVID-era restrictions. Cal Cities supports increased access to healthy and affordable food in communities across the state. Allowing cities to provide to-go meal options allows for increased flexibility and is a meaningful step forward in addressing food insecurity and hunger among our communities' most vulnerable residents.

This bill requires providing pick-up meals for eligible seniors be a permanent part of the state plan for meeting senior nutrition needs.

1. 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 three of the goals of the MPA regarding the needs and wellbeing of older Californian.
2. Related Legislation. AB 2410 (Wallis), of the 2023-24 Legislative Session, was substantially similar to this bill. AB 2410 was held on the Senate Appropriations Committee’s suspense file.

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

Date of Hearing: April 22, 2025

ASSEMBLY COMMITTEE ON AGING AND LONG-TERM CARE

Jasmeet Bains, Chair

ABPCA Bill Id:AB 1476 (

Author:Wallis) – As Introduced Ver:February 21, 2025

SUBJECT: Meal program: senior citizens

SUMMARY: Requires the McCarthy Kennick Nutrition Program for the Elderly Act of 1971 (Nutrition Program Act) to include the establishment of projects that would provide, at least five days a week, at least one hot meal per day and any additional meals the contracting agency or organization may elect to provide for individuals 60 years of age or older.

Specifically, this bill specifies the projects provide meals either served hot or made available for to-go pickup and reheated at home by eligible individuals.

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 (Act), which establishes 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. Recognizes the area agencies on aging (AAAs) to be the local units on aging in California that are supported by federal funding, state and local governmental assistance, the private sector, and individual contributions, and assigns duties to those AAAs. (WIC § 9402)
4. Establishes the California Commission on Aging (Commission) to serve as, among other things, an advocacy and advisory body and an information source. (WIC § 9200 et seq.)
5. Establishes the Nutrition Program Act which includes, among other things, the Nutrition Reserve Fund for the purpose of maintaining existing nutrition services and providing financial assistance to existing nutrition services. (WIC § 18325 et seq.)
6. Requires as a part of the Nutrition Program Act, the Commission, with the approval of the Secretary of California Health and Human Services (HHS) to develop and submit to the federal government a state plan for implementing the OOA by May 1^st of each year. (WIC § 18326)
7. Requires the state plan to include: nutrition projects that provide at least one hot meal on site five or more days a week to eligible people 60 years old or older; requires those nutrition projects to be near concentrations of eligible individuals’ residences; administrative methods to assure maximum participation of eligible individuals; provision of special menus, as specified; host projects in settings that allow for recreation, counseling, and referral services; provide appropriate modes of transportation; administration by people with relevant expertise; and, nutrition education. (WIC § 18327)
8. Notwithstanding any other provision of law, the state plan referred to in Section 18326 and Section 18327 shall provide that not less than 10 percent nor more than 20 percent of all funds expended for nutrition services shall be available for meals to individuals in their residences, except as otherwise required by federal law. (WIC § 18327.1)
9. Notwithstanding any other provision of law, not more than 20 percent of the funds administered by the state for nutrition services for the elderly pursuant to this chapter shall be expended for meals delivered to individuals in their residences. Such individuals receiving meals served in their residences shall not be required to participate in congregate feeding programs, except as otherwise required by federal law. (WIC § 18327.2)
10. Requires the Secretary of HHS, in coordination with the Director of CDA, to lead the development and implementation of the Master Plan for Aging (MPA) established pursuant to Executive Order N-14-19. (WIC § 9850)

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

COMMENTS: Author’s Statement: “Rising food costs are making it increasingly difficult for seniors to access the nutritious meals they need to maintain their health and well-being. Many older adults live on fixed incomes, and higher grocery prices can force tough choices between food, medicine and other essential expenses. Addressing food insecurity is essential to ensure healthy, balanced meals to support our seniors. This bill will take the lessons we learned during COVID-19 and improve quality of life for seniors struggling with food insecurity.”

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]

The World Health Organization defines health as “a state of complete physical, mental and social well-being and not merely the absence of disease or infirmity.”^[6]

Nutrition data: According to the California Older Americans Act: State Plan on Aging 2021-2025, Older Americans Act Core Programs Supportive Services (Title III C) provide nutrition services through two programs.^[7]

Congregate Nutrition (Title III C-1) This program provides meals to older adults at senior centers and other locations throughout the state. In addition to meals, the program provides nutrition education, nutrition risk screening, and, in some cases, nutrition counseling.

Home-Delivered Nutrition (Title III C-2) The Home-Delivered Nutrition Program provides nutritious meals, nutrition education, and nutrition risk screening to people 60 and over who are homebound due to illness or disability or who are otherwise isolated.

Administration for Community Living (ACL) has finalized updates to the regulations (also known as the final rule) for its OAA programs. The final rule went into effect on March 15, 2024, and has a compliance date of October 1, 2025. These updates included changes related to OAA Nutrition Regulations Title III, Grab-and-Go Meals using both C-1 and C-2 funds.^[8]

A White House press release stated on March 27, 2025 a restructuring of the federal Health and Human Services Agency, a coordinating factsheet states “The critical programs within the ACL that support older adults and people of all ages with disabilities will be split across the Administration for Children and Families (ACF), Assistant Secretary for Planning and Evaluation (ASPE), and Centers for Medicare and Medicaid Services (CMS).”^[9] It is unclear at this time if ACL regulations will continue.

According to a recent report by Feeding America, food insecurity has negative effects for individuals across the age spectrum, but particularly for seniors and older adults; these effects can be particularly problematic given the unique health, economic, mobility and nutritional challenges that can come with aging.

Having a disability is strongly associated with food insecurity. Seniors with a disability had food insecurity rates over twice as high as seniors without disabilities (13.4% compared to 5.0%). For older adults, the disparity is even greater. Older adults with disabilities had food insecurity rates more than three times as high as older adults without disabilities (26.1% compared to 7.2%).

Extensive work has studied the connection between food insecurity, nutrition, and chronic health conditions. Findings from the 1999-2016 National Health and Nutrition Examination Survey (published as part of the 2021 release The State of Senior Hunger) showed that food insecure seniors and older adults consume lower quantities of key nutrients such as iron and protein and are more likely to have chronic health conditions such as depression and limitations in daily activity.^[10]

A recent CDC study^[11] showed food insecurity interacts with chronic conditions. The study observed higher health care costs in the presence of this interaction for those who were food insecure and had poor health than for those who were food secure. The prevalence of food insecurity and chronic health conditions among older adults is a public health concern.

Meals on Wheels released an analysis of 38 selected studies and found a link between receiving nutrition services and experiencing the following primary health and well-being outcomes:^[12]

1. Reduced use of costly health care services.

2. Reduced nursing home use and increased ability to age in place.

3. Reduced health care costs attributed to reduced hospital and nursing home spending.

4. Increased food security.

5. Improved diet quality.

6. Reduced or slowed decline in nutritional risk.

7. Reduced social isolation and loneliness.

8. Reduced falls and increased home safety.

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 1476 can be linked to Goals Two, Three and Five of the five bold goals:

• Goal One: Housing for All Ages and Stages
• Goal Two: Health Reimagined
• Goal Three: Inclusion and Equity, Not Isolation
• Goal Four: Caregiving That Works
• Goal Five: Affording Aging

Legislative History: AB 2410 of 2024, authored by Assemblymember Wallis included similar language. The measure was held in the Senate Committee on Appropriations.

Arguments in Support: The League of California cities writes in support “During the pandemic, cities across California began offering seniors the option to pick up meals rather than receive them in a congregate setting. This proved to be successful, with increased enrollment even after the end of the COVID-era restrictions. Allowing meals to be available for pickup has not inhibited cities' efforts to continue to connect with older adults. In fact, this added flexibility has expanded the reach of these programs to individuals who previously were not receiving these vital services and supports. Cal Cities supports increased access to healthy and affordable food in communities across the state. Allowing cities to provide to-go meal options allows for increased flexibility and is a meaningful step forward in addressing food insecurity and hunger among our communities' most vulnerable residents.”

The Alzheimer’s Association writes in further support “Proper nutrition is vital to keep the body and mind healthy. For a person with Alzheimer's or dementia, poor nutrition may increase behavioral symptoms and cause weight loss. A decrease in appetite and weight may become a concern as the disease progresses. Although, during the middle stage, it is important to promote a person with dementia’s independence during meals. AB 1476 provides optionality for how older adults want to receive meals available to them, which allows them to eat at a time and place of their choosing. This provides them with the independence they deserve to receive proper nutrition in a comfortable setting. This policy supports older adults by providing options for what works best for their schedule and needs. This bill promotes healthy nutrition, which is a key factor in staving off worsening conditions.”

Arguments in Opposition: None.

REGISTERED SUPPORT / OPPOSITION:

Support

AARP
Alzheimer's Association
California Retired Teachers Association
City of Thousand Oaks
League of California Cities
Retired Public Employees Association

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.who.int/about/governance/constitution ↑

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

8. https://acl.gov/sites/default/files/2025-01/OAAregs_TitleIII_Grab-and-GoMeals_ACL.pdf ↑

9. Fact Sheet: HHS’ Transformation to Make America Healthy Again | HHS.gov ↑

10. https://www.feedingamerica.org/research/state-senior-hunger ↑

11. https://www.cdc.gov/pcd/issues/2018/18_0058.htm ↑

12. https://www.mealsonwheelsamerica.org/learn-more/research/the-case-for-meals-on-wheels-sept23 ↑