existing governmental framework to achieve a more systematic approach for aging research. In contrast, S. 1925 would establish a new commission for the purpose of achieving this goal.

Two days of scheduled hearings on this legislation, I am confident, will provide the proper forum for leading authorities in the field of gerontology to comment on the merits of these approaches as well as the feasibility for combining the best features of both bills. Regardless of the approach-whether it is a National Institute of Gerontology, an Aging Research Commission, or something else I am hopeful that the subcommittee will act promptly and favorably in establishing a single governmental unit for promoting and coordinating aging research.

There has long been a need for developing a national policy on gerontological research. And the adoption of such an approach would be a major step forward in achieving this goal.

NUTRITION PROGRAM FOR THE ELDERLY ACT

Now, I would like to direct my remarks to the Nutrition Program for the Elderly Act, a bill which I have sponsored.

Nearly 2 years ago the Senate Committee on Aging of which 1 was then chairman and am now the ranking majority memberworked with the Committee on Nutrition and Human Needs in holding hearings on the special nutritional problems of the aged. At these hearings we heard about elderly persons who lived on a "tea and toast" diet. And we heard many other heart-rendering accountsabout individuals who are constantly confronted with the choice of buying food or necessary prescription drugs to maintain their health. Undoubtedly low income in retirement is the overriding reason why millions of older Americans are hungry or malnourished. Today nearly 5 million persons 65 and older live in poverty. Approximately another 2 million would be considered near poor.

For most aged persons food costs constitute a major expenditure— ranking second only to housing expenses. Food expenditures now represent about 27 percent of their very limited budgets.

With prices continuing to climb, elderly persons are finding it increasingly difficult to purchase the food they need. This message was made abundantly clear in a questionnaire prepared in conjunction with the White House Conference on Aging community forums last fall. Nearly 55 percent of all elderly respondents replied that they could not buy the food which they wanted.

Quite frequently a poor diet may intensify the severity of other problems troubling the aged. Improper nutrition, for example, may lead to chronic disease or even mental illness.

For many older Americans, the Nutrition Program for the Elderly Act could provide a sound and comprehensive approach to their nutritional and other everyday problems. Particularly important, it would

provide nutritious meals in conveniently located centers for elderly persons. In my own State of New Jersey, funding under this program would be sufficient for about 2 million meals in 1 year for aged persons in need.

Additionally, the bill would make outreach services availableincluding health, counseling, informational, and referral servicesto assure maximum participation by eligible individuals. Moreover, in staffing positions at these centers, preference would be given to persons 65 and older. For many older persons, this could mean an opportunity for a new and rewarding career. And for others, it could provide a means to supplement inadequate retirement benefits.

At the White House Conference on Food, Nutrition, and Health, the ned for this type of legislation was strongly endorsed. In addition, the President's Task Force on Aging has also strongly supported this concept. In its report-"Toward a Brighter Future for the Elderly”— the task force emphasized that:

The Federal Government should encourage the development of local arrangements for social dining for ambulatory elderly in addition to home-delivered meals for shut-ins so that those older persons who choose to do so can receive a prepared meal once a day.

For these reasons, I urge favorable action on S. 1163, the Nutrition Program for the Elderly Act.

Senator EAGLETON. We also have a statement for the record from the Senator from Idaho, Mr. Church, who is the current chairman of the Special Committee on Aging and very interested in this legislation.

STATEMENT OF HON. FRANK CHURCH, A U.S. SENATOR FROM THE STATE OF IDAHO

Senator CHURCH. Mr. Chairman, before beginning my testimony, I'd like to offer my congratulations to you and the Subcommittee on Aging for holding prompt hearings on bills dealing with issues of vital concern to older Americans-nutrition and research on aging. If acceptable to you, I will discuss the Nutrition Program for the Elderly Act first, and then comment on the aging research proposals, drawing upon testimony presented to the Senate Special Committee on Aging, of which I am chairman.

NUTRITION PROGRAM FOR THE ELDERLY ACT

For many older Americans, adequate nutrition is an acute problem. In fact, malnourishment probably affects our 20 million senior citizens to a much greater degree than any other age group in our society. According to one authority-Mrs. Sandra Howell of the Gerontological Society-8 million older Americans may have diets insufficient for optimum health.

It is no wonder. Many are hungry or malnourished simply because they are too poor to buy enough food to eat. Today almost 5 million older Americans fall below the poverty line, about one out of every four persons 65 and older.

Approximately 55 percent of all elderly persons who live alone or with nonrelatives have total money incomes below $2,000. One out of every five aged couples has an annual income below $2,500.

Moreover, food costs consume a larger proportion of their limited budgets than is the case for younger persons. For example, the typical elderly person spends about 27 percent of his total income on food, while the average American spends only 16 percent.

But low income in itself is not the only cause of the nutrition crisis which affects an alarmingly large proportion of our elderly. There are others. Many lack incentives to cook for themselves, especially those who live alone or who are lonely. Others are unable to prepare their own food. Failing health may make it impossible to carry heavy groceries to their homes. And transportation inadequacies have intensified many of the nutrition problems confronting the elderly.

Fortunately, some steps have been taken to ease the nutrition crisis for some aged persons. A special emphasis nutrition demonstration program was launched in 1968 under the Older Americans Act to improve nutrition services for the elderly. However, many of the existing 18 projects will expire in the very near future. With the termination of these projects, many aged persons will again be faced with the prospect of malnourishment.

For these reasons, early action on S. 1163-the Nutrition for the Elderly Act-takes on additional meaning today.

As a sponsor of this legislation, I strongly believe that the bill represents a sensible and coordinated approach for meeting the nutritional problems of many older persons. First, the bill would authorize $50 million in Federal funding to provide low-cost and nutritious meals for aged individuals in conveniently located centers-such as churches, schools, senior citizen centers, and other nonprofit institutions. Aside from meeting their nutritional needs, this approach would have several other advantages. Meals in a group setting could be of important therapeutic value for lonely and isolated persons. Moreover, it could provide a framework for dealing with everyday problems as well as facilitate the delivery of other services which they so desperately need. Today the nutrition problems of older persons are both pressing and far reaching. Quite clearly, immediate action is needed now.

Before discussing the research bills, I would like to have the nutrition chapter in the latest Senate Committee on Aging annual report"Developments in Aging 1970"-included in the hearing record.

(The material referred to may be found at the end of Senator Church's statement.)

NATIONAL INSTITUTE OF GERONTOLOGY

Senator CHURCH. Now I would like to turn to S. 887, which would establish a National Institute of Gerontology to conduct and support biomedical, social, and behavioral research related to the aging process. Today, the low priority assigned to aging research continues to be a major problem in the field of gerontology. We as a nation recognize the importance of research, but not in the field of aging. For example, in the field of aging-if we consider Federal expenditures of about $10 billion for health programs for the elderly-less than 1 percent is spent for reserach. În sharp contrast, many businesses or governmental units may earmark 5 to 10 percent of their available funds for research. However, there are numerous compelling arguments for reversing this shortsighted commitment for aging research.

For instance, aging research can reduce rising costs of health care. With this body of knowledge, greater emphasis can be placed upon preventive medicine, instead of waiting to treat disease after it reaches a serious or crisis stage.

Research is also needed to improve the world in which older persons live. These efforts can contribute to longer periods of productive-as well as healthy-living.

In addition, crucial but still unanswered questions about growing old present persuasive arguments for developing a coordinated research program. Basically, it is the aging process which account for a substantial portion of the health care costs in the United States. Despite its importance, the aging process is still one of the most misunderstood of the biological processes. Yet, if we fully understood this phenomenon, we could possibly slow it down and avoid many of the infirmities associated with advancing age. We would enable more elderly people to live independently, instead of being permanently institutionalized.

And finally, research on aging is vital in terms of sheer numbers. Today, there are 20 million persons 65 and older-nearly seven times as many as at the turn of the century. Within the next 30 years, we can expect nearly 45 million persons to reach their 65th birthday. Thus, research on aging becomes a sound investment not only for older Americans but younger Americans as well.

S. 887, I firmly believe, could establish the framework, which to date has been lacking, for a coordinated and systematic approach in the field of aging. First, it would provide high level status for aging research by creating a National Institute of Gerontology. Equally important, it would authorize training to provide necessary personnel to study and investigate the aging process, as well as the special health problems and needs of the aged.

Mr. Chairman, I urge early and favorable consideration of S. 887 by the Subcommittee on Aging.

(The following was subsequently supplied for the record:)

From "Developments in Aging--1970"

A Report of the Senate Special Committee on Aging

CHAPTER V

NUTRITION AND OTHER CONSUMER ISSUES

Today's elderly must spend $7 out of every $10 of their income for housing, food, and transportation.

1

That estimate-made by the Bureau of Labor Statistics in a report issued in 1970-described the situation as it applied to an "intermediate budget for a retired couple in an urban area during the spring 1969." The B.L.S. estimates showed the following spending levels:

The B.L.S. budget-which is not an "average" but is, instead, a statistical portrait of the income needed to provide a moderate level of living-amounted to $4,192 for all needs.

And yet, a 1968 Social Security Survey of the Aged had revealed earlier that only about one-third of the aged units in that year had incomes large enough to provide at least a moderate level of living as defined by the B.L.S. budget for a retired couple. And the budget total at that time was $3,930, or $132 less than the later budget figure.

The 15-percent Social Security increase voted in December may have narrowed the distance between the two B.L.S. budgets, but the 5.5percent increase in the cost-of-living during 1970 has undoubtedly removed even that differential.

The inability of approximately two-thirds of retired couples to meet standards of an "intermediate" budget puts statistics about income of the elderly (see Chapter I) in another perspective: That seen by the elderly persons who, in today's marketplace, must often make hard choices between one necessity or the other.

Transportation and housing costs are discussed elsewhere in this report. For this chapter, special emphasis will be placed on nutrition, a subject which continued to receive searching scrutiny in 1970. In addition, the recurring question of "vulnerability" of the elderly to deception is discussed.

I. EMERGENCE OF NUTRITION AS A MAJOR ISSUE

Today, nutritional inadequacy is recognized as a priority problem among the elderly. At the forthcoming White House Conference on

1 "Three Budgets for an Urban Retired Couple-Preliminary Spring 1969 Cost Estimates," B.L.S., January 1970.