Demand represents the amount that providers would have been paid in the absence of a funding shortfall.
Cuts might come in budgets for home help and day centres if there is a funding shortfall, he said.
But it says a funding shortfall by energy companies means only 25,000 families will get this discount.
The developed world must make up this funding shortfall, argues Balmford.
The worthy ambitions of the plan will be met only if the funding shortfall is closed.
European Union research and development projects could be scrapped to overcome a funding shortfall.
The taxpayer was expected to have to make up any funding shortfall.
By the late 1980s, schools, parents and even some of the voters who passed Prop.13, were tired of the funding shortfalls.
The agency took over United's pension plans last year with a funding shortfall of about $10 billion.
"Admittedly, evidence of funding shortfall is hard to come by," he said.