One of the first considerations in creating a social welfare policy is to recognize a needy population (DiNitto & Cummins, 2005). One of the reason that the Older Americans Act (1965) came into being was the "discovery of old people." The 20th century brought new demographic shifts in the median age and the life expectancy in the United States. During mid century, theorists attempted not only to predict large increases in the number of older people for the 21st century, but also to explain the issues and needs that such changes would bring. Erik Erikson, a psychologist, was an early pioneer in the field of aging. One of his important contributions was in extending human development, which had simply been from childhood through early adulthood, to recognize that human development continued through old age (Weiland, 1993). That break through theory meant that older people could be studied in age cohort groups rather than just part of adulthood. The last two of his seven stages of development included middle age and old age.  During the middle age of life, according to this theory, the opposing possibilities of growth are between generativity and stagnation. Those who grew during this stage would become increasingly interested in the welfare of younger generations, those who did not grow would increasingly ignore younger generations as they turned inward towards their own needs. In old age, the two opposing possibilities are integrity and despair. Those who continue to grow in their old age will continue to care for others as they reconcile the fact that of their own death looming in the nearer future. They also must learn to gracefully accept help due to their decreased functioning. Those who do not grow during this stage are frightened of the idea of their own death and feel that their life was not worth living, (Erikson & Erikson, 1981), (Erikson, Erikson, & Kivnick 1986). Those who grow less integrated during the last stage of life are more likely to need services that the Older Americans Act (1965) may be able to provide.

     Bernice Neugarten considered Erikson's theory and refined her own way of looking at the aging process (Gruen, 1964), (Neugarten (1985). One of her great contributions was to elongate the aging stages to fit the demographic shifts that are a part of the graying of American. Since more people live longer, she decided that old age began later in life. What had been old age for Erikson became Middle age for Neugarten. According to her work, young-old age begins at 65 years old,  middle-old age begins at 75 years old, and old-old age begins at 85 years of age (Neugarten, 1968), (Neugarten & Datan, 1973). She felt that the demographic aging of America could eventually lead to an "age irrelevant society" in the 21st century (Peck, R. 1968).

     Havinghurst, Neugarten, and Tobin (1963) considered Erikson's stages to help them develop their own theory of life satisfaction which consisted of five parts: 1- a zest for life, 2- resolution of problems and fortitude, 3- a feeling of completion, even if all was not accomplished, 4- valuing oneself, and 5- having hope even in old age. Atchley (2000) is another theorist who describes late life issues. One of his important contributions is that of the need to integrate one’s life through meditation and religion. Many theorists consider life review and meditation a critic part of the late life processes, but so far only Atchley presses the idea that religious behavior increases in the age cohort 65 through 80 and that it is a driving force in their lives. Senior Citizen Centers, being sponsored by the Older Americans Act can not, of course, proselyte older adults to a religious body of any type. However, his theory suggests that the centers might benefit by posting information of local church events as a part of their service to the older adults. The Older Americans Act (1965 and as it has been amended through 2000) has benefited from these theoretical models as it has attempted to identify the social needs of those in the third stage of life.

     Do older Americans need help from the government in the form of the OAA? Yes, according to the AARP (2004). One claim that they make is that older adults are not secure in their retirement. Their publication, Beyond 50, made some important points that must be recognized: 1- Economic gains have not been shared across the entire spectrum of the 50+ population. There is a growing disparity between the rich and the poor. 2- The poverty rate for Americans over 62 has declined remarkably but has not been shared among all. The probability of being poor at some point in old age remains quite high. In fact, this study reports that there is a 4 in 10 chance that an American will be poor at some time in his or her life after the age of 60. A portion of the OAA is training and help in gaining employment for those over 55 years of age. That portion is critical and the networking that is possible at the senior centers can also help in obtaining employment after retirement.

     Dolgoff and Feldstein (2000) suggest very specific questions that can be used to create and maintain a social welfare policy. Their questions are:
              1- What are the needs and goals to be met in the policy?
              2- What is the form of benefit that the program produces?
              3- Who is eligible for the program?
              4- What is the level of administration? Who delivers the program?
              (Capella University, HS 81001, Unit 3: Introduction and Presentation, 2005)

     In the Executive Summary (n.d.), the OAA reports that those over age 60 benefited in various ways, including: 1- Family caregivers of older adults are able to provide care longer due to the services of OAA. 2- Meals on Wheels was able to keep 30% of “nursing home eligible” elderly in their home. The cost of a years worth of Meals on Wheels only matches the cost of one month in a nursing home. 3- The efficiency, as measured by the number of people served per million dollars of funding, has increased from 1999 to 2002.

     The Summary expressed the five strategic goals of the Administration on Aging as:

1-     Increase the number of older people who have access to an

      integrated array of health and home and community-based services.

2-     Increase the number of older people who stay active and healthy.

3- Increase the number of families who receive help in their efforts

to care for their loved ones at home and in the community

4- Increase the number of older people who benefit from programs

that protect their rights and prevent elder abuse, neglect and

exploitation.

5-     Strengthen the effectiveness and responsiveness of AoA’s

Management practices.

(Executive Summary, n.d., p. 2).

     As a part of the strategic plan AoA created for the years 2003-2007, the following

indicators on improving program efficiency were determined:

1-     By FY 2007, the rate of non-AoA funding for OAA services will

Increase by 20%

2-     By FY 2007, AoA will increase the number of people served per

Million dollars of AoA community based program funding by 15%

(Executive Summary, n.d., p. 3)