By GARI LESNOFF-CARAVAGLIA, Ph.D.
Associate professor and planner, studies in gerontology, Sangamon State University, she is coordinator of the Gerontology Institute, which is held each spring at Sangamon State.

Prospects and illusions after 65

Growing old in Illinois

Whatever your age, you're getting older. There are 1.5 million people over age 65 in the state, and the picture for this group of citizens is not always rosy. Where do they live, what is their income, what services does government offer to them?

WHO is considered old in America today? One out of every 10 persons. Rather than regarding old age as a rarity, old age and, in fact, advanced old age may be a common experience for many persons in years to come. Predictions are that a Caucasian male child now in the fifth grade may expect to live to reach 85 years of age. This is the average figure — some may not live long enough to reach this age, many may live beyond.

A demographic profile of the public aged 65+ reveals that they comprise 15 per cent of the total adult population of this country, or approximately 21 million people.

In comparison to the remaining 85 per cent of the public aged 18-64, older persons have a higher proportion of women: 59 per cent of the older public is female, compared with 52 per cent of the younger public. Older persons have much lower household incomes (the median income for the older adult is $4,800, compared with $12,400 for those aged 18 to 64); more often they are white (90 per cent of the older public is white, compared with 83 per cent of those under age 65); they are far less well educated (63 per cent of those 65 and over never graduated from high school, compared with only 26 per cent of those 18 to 64). While like proportions of both groups are found in major metropolitan areas, the 65+ group has a higher concentration than do the young in rural areas.

Conditions in the state of Illinois reflect this national picture, with significant differences appearing between upstate and downstate Illinois. Illinois currently has 1.5 million older persons, a figure which ranks Illinois among the top eight states in the nation with such a high density of older persons with its population. This means that 13.5 per cent of the state's population is over the age of 65, or one out of every 7.5 persons.

The majority of older persons in Illinois live in Cook County and the counties immediately adjacent. Even though larger numbers of older persons reside there, higher proportions of tae total population in the southern Illinois areas are older, that is, there are more persons living there who have reached age 75 and beyond.

Women outnumber men
The percentage of older persons in Illinois who are females increases from 56.9 per cent for those aged 60 and above, to 58.7 per cent for those in the 65+ group and to 61.8 per cent for those aged 75 and over. In other words, women outlive men in the state of Illinois just as they do in the national general population. This also means that the percentage of widows increases with age. In short, the individual who survives to advanced old age in our society is usually female.

On the whole, the older population of Illinois is more white than is the general population. This is also true nationally. The white population in Illinois is also older than the black and "other" minority populations. This difference in racial composition increases as one goes up the age scale— the older the person is, the greater the probability of being a member of the white race.

Older persons in Illinois tend also to be slightly less urbanized than is the general population. While 83.0 percent of the total population are urban residents, the percentage of older persons who are urban residents is slightly less and continues to decrease with age. It is interesting to note that the percentage who are farm residents also decreases with age. But the percentage of older persons in the category of rural nonfarm residents is slightly greater than that of the total population and continues to increase with advancing age. This may be due in part to the migration of farm residents to small towns as they grow older and retire. By and large, the older age categories tend to be somewhat less urbanized and to live in rural areas. This creates another series of problems which have yet to be sufficiently recognized and dealt with in terms of services. Where people live has a significant bearing on the quantity as well as quality of services which are available to them. For example, noon meals served during the work week in many urban areas are not provided for the rural elderly, nor are any special provisions made for transportation or outpatient health care.

Compared with the total state population, a greater proportion of older persons in Illinois live below the poverty level. The definition of poverty level is

18 / February 1977 / Illinois Issues

based on a nutritionally adequate food plan designed by the U.S. Department of Agriculture for "emergency or temporary use when funds are low." In other words, this is the minimum food needed for survival. All too often the needs of older persons have been built upon such minimal requirements. Millions of older people in the nation are living at, or below, the poverty line. When 15 per cent of the people aged 65 and over say that not having enough money to live on is a personal problem for them, that percentage translates into some three million needy people. While 10.2 per cent of the total population of Illinois live in poverty, 20.4 per cent of those aged 60+, and 24.0 per cent of those aged 65+ exist under conditions of poverty.

In contrast, corresponding figures for the southern portion of the state show three areas having persons aged 65+ living under conditions of poverty at the rates of 39.6 per cent, 37.4 per cent, and 44.3 per cent.

Fewer are household heads
Considering the mandatory retirement practices now in effect, it is not surprising that the percentage of older persons in Illinois who are household heads decreases with age. While 60.1 per cent of those aged 60+, and 60.3 percent of those aged 65+ in Illinois are heads of households, only 57.4 per cent of those aged 75+ are heads of households. One reason for this is that men die at earlier ages than do their wives, and females do not usually assume the role of head of household in advanced old age. They are more likely to become dependent members of other households or to enter nursing homes.

In a society which places a high value on conspicuous productivity, older persons, being nonproductive according to this definition, often find themselves without meaningful roles or in the category of nonpersons. This societal attitude has many practical implications. One example is the fact that many older heads of households are frequently without telephones. Being without a telephone, particularly in rural settings, minimizes the contact between service agencies and older persons. Yet the risk of being without a telephone increases as a person grows older. While 9.8 per cent of all heads of households aged 60+ are without a private telephone — or even access to a telephone — 10.4 per cent of those aged 65+ are in this situation, as are 11.8 per cent of those heads of households aged 75+. And this situation becomes more acute as one moves southward in Illinois.

Older persons who are heads of households live in their own homes in approximately the same proportion as does the total state population. There are differences, however, in the value of the property in which they live. While only 14.8 per cent of all household heads living in their own homes reside in units valued under $10,000, 21.2 per cent of these household heads aged 60+, and 29.5 per cent of those 65+, and 35.1 per cent of those household heads over 75, live in units valued under $10,000.

Still another 49.7 per cent of all household heads living in their own homes reside in units valued at $20,000 and over, with 33.5 per cent of such household heads aged 60+, with 29.7 per cent of those aged 65+, and only 23.8 per cent of those aged 75+ residing in units valued at $20,000 and above. Older persons tend to live in owner occupied housing units at approximately the same rate as does the total population within the state; but the units in which they live are of less value. This difference in value of dwellings owned and occupied by older individuals increases as we go up the age scale.

When older persons rent their homes, they tend to pay less rent than the general population. A total of 40.1 per cent of all household heads who live in rental units pay under $100 rent. When household heads are aged 60+, the percentage rises to 48.2; for those aged 65+ it is 50.0 per cent, and for those 75+ it is 53.0 per cent. One can only speculate on the quality of the units available at such nominal sums.

Formal education is less
Older individuals living in Illinois are also distinguished from the rest of the population by the fact that they have had less formal schooling. Those who have completed under eight years of school are much greater than the 12.4 per cent of the general population who have completed less than eight years of school. The percentage of those aged 60+ is 26.8, those aged 65+ is 30.7, and those aged 75+ is 36.0. The data indicates that the formal education of older persons in Illinois decreases with age.

Graduation from high school and attendance at college are lowest in the southern portion of the state. The per cent of older persons aged 65+ who have had one or more years of college in the state of Illinois is 10.6, while only 8.5 per cent of those aged 75+ have had one year or more of college.

Closely linked with education is the

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How can older persons stay above the poverty level if they can't work?

capability of the individual to continue working beyond the normal retirement age. Such opportunities are usually available to persons with extensive educational backgrounds and professional standing. However, mandatory retirement practices, along with declining health, cause many older persons to retire early and to participate only marginally within society. The proportion of older persons in Illinois who work declines significantly from age 65+ to age 75+.

The inability of older citizens to find or qualify for work, along with the loss of Social Security benefits should they earn beyond a specified sum, all militate against older individuals remaining in the market and almost insures that large numbers of older persons live below the poverty level. Even though 36.7 per cent of those aged 60+ are employed, 25.5 per cent of those aged 65+ earn under $2,000. This percentage increases to 39.0 per cent for those aged 65+ and 42.8 per cent for those aged 75+.

Program offers jobs
The federal government approved in early 1976 a $1,195,932 federally funded project for the Illinois Department on Aging to develop employment opportunities for older persons during 1976. The primary purpose of the program was to provide work for older persons in their own communities. This program was also designed to help expand the information and referral network for older persons now operating throughout Illinois. More than 300 jobs were to be provided throughout the state and priority in hiring given to unemployed older persons. The program operated under the auspices of the 13 state area agencies on aging. This is a step in the right direction, but hardly can be classified as a giant step.

Older persons rely heavily on Social Security benefits. Of all persons in Illinois receiving Social Security benefits, 85.5 per cent are aged 60+. In age 60 category, the percentage is 58.4, and increases to 81.5 per cent for those aged 75+.

A greater percentage of older persons in Illinois receive public assistance benefits as compared to the percentage of the general population who receive such benefits. In light of the income figures quoted above, this might be expected. While 1.6 percent of the total population receive public assistance, 4.1 per cent of those aged 60+ receive such help, 4.7 per cent of those aged 65+, and 6.1 per cent of those aged 75+. Such a percentage increase appears in ages 60+ and through 75+ for every portion of the state. In general, however, areas within the vicinity of Chicago and the southern portion of the state have the highest percentages of older persons receiving public assistance.

Bias of government?
While Social Security benefits and state tax relief measures are helpful to older persons, our society still provides more good will than hard cash for the needs of older persons. There is a bias on the federal, as well as the state level, against appropriating large sums of money to serve older individuals. One such blatant example is the federal Title XX Program which has set aside $88 million for child day care and less than $1 million for adult day care. The recurrent theme in most older person's lives is one of struggle — constant struggle, as chronic as the illnesses from which many of them suffer — to survive despite fixed incomes and rising costs.

It appears to have been easier to legislate such items as free fishing and hunting licenses for persons aged 65+; free use of overnight camping facilities at state parks if you are aged 65+, but only 50 per cent discount if you are between the ages of 62 and 64; and to declare the third Sunday in August as the official Senior Citizen Day, than to write into law a dollar figure which would begin to meet the needs of older persons. For fiscal year 1977, the proposed appropriation for the Illinois Department on Aging from general revenue funds was reduced to about $273,000 or an average of about two cents a month for each of Illinois' 1.5 million older citizens.

State programs for older citizens

MAJOR LEGISLATION in Illinois with respect to older individuals passed within the last five years includes the following:
Homestead Exemption/$ 1,500 reduction in equalized assessed valuation of property owned by persons 65+./Effective December 10, 1971.
Circuit Breaker/Annual cash rebates (property tax relief) for older persons and disabled home owners and renters with incomes under $10,000 a year./Effective October 1, 1972.
Department on Aging/Cabinet-level department created, along with Technical Advisory Committee and Council on Aging./ Effective November 9, 1973.
Supplemental Security Income (federal program) /Income maintenance for aged, blind and disabled. Some also receive state-paid supplement./Effective January 1,1974.
Reduced Bus Fares/State reimburses mass transit carriers providing reduced fares for those 65+./Effective June 28, 1974.
Expansion of Circuit Breaker Formula/ Formula expanded to increase amount of grants./ Effective October 1, 1974.
Sales Tax Relief/New grant program of $50 to $100 annually. Tied to circuit breaker (same application form) but broader base of eligibility. Includes residents of public housing./ Effective April 24, 1975.
Recreational Discounts/Free use of overnight camping facilities at state parks (65+); 50% discounts on camping (62-64); hunting and fishing for free./Effective October 1, 1975.

References
Center For Advanced Study, University of Illinois at Urbana-Champaign and Illinois Department on Aging. Characteristics of Older Persons in Illinois: A Compilation From the 1970 Census, Volume I and II. University of Illinois at Urbana-Champaign: February 1976.
Center For Census Use Studies, U.S. Department of Commerce and U.S. Department of Health, Education, and Welfare. Social Statistics For the Elderly. Washington, D.C.: 1975.
Harris, Louis and Associates, Inc. The Myth and Reality of Aging in America. A study for the National Council on the Aging, Inc., Washington, D.C.: January 1976.
Neil F. Hartigan. "State and National Policies on Aging." Address given at the Gerontology Institute, Spring 1976, Sangamon State University, Springfield, Illinois.

20 / February 1997 / Illinois Issues