AARP Hearing Center
Background
In 2022, nearly 11.8 million Americans age 50 and older were food insecure. This means they had limited or uncertain access to sufficient, nutritious food due to inadequate financial resources. Unexpected or high health care costs, job loss, or the death of a spouse or other loved one can make it more challenging for older adults to afford food. This is particularly true for those on fixed incomes with limited retirement savings. There are also ongoing racial and ethnic differences in food insecurity that stem from disparities in other areas, including employment, housing, and health care.
Food insecurity has significant negative impacts on older adults’ health. Older adults who are food insecure are more likely than their food-secure counterparts to have limitations on activities of daily living, have conditions like diabetes and depression, and experience heart attacks.
Several federal nutrition assistance programs help older adults who are food insecure or at risk for food insecurity. The Supplemental Nutrition Assistance Program (SNAP) is the nation’s largest domestic nutrition assistance program. It provides financial assistance to eligible individuals and families with low incomes to purchase food. There were nearly ten million SNAP households with adults age 50 and older in fiscal year 2022. The average monthly benefit for SNAP households with at least one adult age 50 and older was $185.
Individuals and families who meet certain thresholds for income, and sometimes for assets, qualify for benefits. States have the flexibility to presume households are eligible for SNAP when they qualify for other benefits such as non-cash Temporary Assistance for Needy Families or state maintenance of effort-funded benefits. This is called broad-based categorical eligibility (BBCE). BBCE is associated with higher SNAP participation among adults age 60 or older.
Despite the need, participation in SNAP among eligible older adults is low. Barriers to participation include perceived stigma associated with the program and a burdensome application process. There are also two sets of work requirements. People between the ages of 16 and 59 who are able to work typically must register for work, accept suitable work, or be in a training program. Those categorized by SNAP as able-bodied adults without dependents (ABAWDs) must meet additional requirements in order to get benefits for more than three months in three years. Previously, these extra requirements applied to ABAWDs between the ages of 18 and 49. In 2024, they were extended to apply to those 50 to 54. However, they are temporary and will expire on Oct. 1, 2030. These increased work requirements could reduce access to SNAP for older adults, as they typically take longer to find work than younger adults.
SNAP benefits are delivered through electronic benefit transfer (EBT) cards. These cards can be used at participating locations, including some farmers' markets. Additionally, the U.S. Department of Agriculture SNAP online purchasing pilot allows SNAP participants in all 50 states and Washington D.C. to use their benefits for online food purchases. This pilot does not apply to SNAP participants in Guam or the Virgin Islands. SNAP benefits cannot be used for delivery, shipping, and other associated fees.
In addition to SNAP, there are many important federal food and nutrition assistance programs that assist older adults in need. They vary with respect to the target population, eligibility requirements, and types of assistance provided.
- The Emergency Food Assistance Program supplies states with food that can be distributed at no cost to people with low incomes. States arrange for the food to be transported to centers such as soup kitchens and food banks.
- The Commodity Supplemental Food Program provides a nutritionally balanced food package to people with low incomes age 60 and older. Local agencies determine eligibility and distribute the food.
- The Senior Farmers’ Market Nutrition Program enables older adults with low incomes to purchase fresh produce using coupons at farmers' markets or Community Supported Agriculture operations. The program is administered by state agencies.
- The Child and Adult Care Food Program provides reimbursements for nutritious meals and snacks to eligible children and adults who are enrolled at participating child-care centers, day-care homes, and adult day-care centers.
- The Older Americans Act Nutrition Programs provide home-delivered and congregate meals to adults age 60 or older. States and localities determine eligibility for these programs.
FOOD AND NUTRITION ASSISTANCE PROGRAMS: Policy
FOOD AND NUTRITION ASSISTANCE PROGRAMS: Policy
Benefits and eligibility
Policymakers should increase food benefits and expand eligibility for food and nutrition assistance programs.
Policymakers should adequately fund food and nutrition assistance programs for all states and territories.
Policymakers should boost participation of eligible older adults in food and nutrition assistance programs, including by:
- encouraging program innovation,
- ensuring participants receive the full benefits for which they are eligible while maintaining program integrity, and
- streamlining enrollment and recertification processes. This should include strengthening partnerships between federal agencies to improve cross-program enrollment and data sharing. It also could include making Combined Application Projects, which make it easier for Supplemental Security Income recipients to enroll in the Supplemental Nutrition Assistance Program (SNAP), a routine policy option for all states.
Policymakers should consider policies that reduce frequent entry and exit of food program participants for eligible beneficiaries. For SNAP, they could extend certification periods for older adults and people with disabilities without earned income.
The Supplemental Nutrition Assistance Program (SNAP) should be accessible in all U.S. states and territories, including Puerto Rico, American Samoa, and the Commonwealth of the Northern Mariana Islands.
Congress should retain broad-based categorical eligibility (BBCE) for SNAP. States that have not implemented BBCE should consider doing so. States that have implemented BBCE should consider expanding eligibility. This could include raising the gross income limit to 200 percent of the Federal Poverty Level (the current maximum level) and raising or eliminating the asset limit.
Policymakers should ensure adequate food benefits. One way to do this is by regularly reevaluating the Thrifty Food Plan, which was developed by the U.S. Department of Agriculture to determine monthly SNAP benefits.
Extended families
The definition of household in SNAP regulations should be clarified. It should be easier for extended families to qualify for and receive adequate benefits. For example, extended families could include an older individual who is eligible for SNAP and residing part-time with an ineligible caregiver.
Technology for delivering benefits
Congress and the U.S. Department of Agriculture (USDA) should ensure that states do not deter the use of electronic benefit transfer (EBT) cards for benefits. They should not call undue attention to or stigmatize users.
EBT cards used for SNAP benefits should be available through the mail. Beneficiaries also should have the option to pick up the card at the SNAP office.
Recipients of food benefits should have broad access to EBT terminals. They also should be able to use mobile payment platforms.
Methods for delivering food benefits should keep up with technological developments in the retail environment, including online SNAP purchases and delivery. New methods for managing benefits must be accessible and have strong consumer protections while protecting program integrity.
Policymakers should address EBT card scams, including ensuring that EBT cards keep up with modern security advances and that SNAP participants are reimbursed for stolen benefits (see also Scams and Fraud).
Policymakers should expand access to online SNAP grocery shopping and delivery. USDA should identify and address barriers for older SNAP participants to using this option.
Outreach and education
Food and nutrition programs should have adequate funding to engage in robust outreach efforts.
Older adults and organizations that serve older adults must be made aware of available programs.
Potential recipients must have adequate information to make informed choices when applying for food assistance benefits.
States should take advantage of the Hunger Prevention Act of 1988, which provides matching funds to states that have food assistance outreach programs for families with low incomes.
Healthy eating and nutrition
Policymakers should ensure recipients of food benefits have access to a healthy diet. This includes recipients who have limited or no capacity to buy, prepare, and store food.
Policymakers should support nutrition incentives in SNAP that encourage healthy eating without unreasonably restricting food choice.
Policymakers should continue to fund and consider expanding the Gus Schumacher Nutrition Incentive Program, which incentivizes fruit and vegetable consumption among SNAP recipients at farmers' markets and retailers.
The USDA should encourage restaurants participating in the Restaurant Meals Program to provide healthier options.
Work requirements
Policymakers should not expand work requirements for SNAP recipients. They also should repeal the expansion of work requirements to older adults aged 50-54 who are classified as able-bodied adults without dependents.