Carer benefits evaluation: phase 1 - annex A - mixed methods research

Executive summary

Introduction

Carer Support Payment is a devolved benefit introduced by the Scottish Government to provide financial support to unpaid carers aged 16 and over, who usually reside in Scotland. While the payment is non-means tested, it is taxable. It is an income replacement benefit which is intended to provide recognition for the caring role and its impact on carers' ability to take on paid work.

The case transfer process from Carer’s Allowance to Carer Support Payment began in February 2024, as part of the broader devolution of benefits from the Department for Work and Pensions (DWP) to Social Security Scotland. This process is now complete. As of October 2025, the benefits of around 118,550 people entitled to Carer’s Allowance in Scotland have been transferred to Carer Support Payment on a ‘like-for-like’ basis, with Social Security Scotland managing the payments.^[1] Of these, 40,000 individuals have an ‘underlying entitlement’ - meaning they qualify but do not receive payment due to overlapping benefits such as the state pension.

The transfer process is designed to ensure continuity of support, with no gap in payments and no need for reapplication.

The Scottish Government commissioned The Lines Between (TLB) to explore the experiences of individuals being transferred to Carer Support Payment and those applying for the new benefit. Fieldwork began in June 2025. This research forms phase one of the Scottish Government’s broader evaluation of carer benefits. Phase one consists of evaluating:

• The case transfer process of transferring carers’ benefits from Carer’s Allowance, administered by DWP, to Carer Support Payment delivered by Social Security Scotland.
• The early impacts of Carer Support Payment through looking at policy commitments and changes.

Phase two of the evaluation is examining medium-term impacts for Carer Support Payment, together with evaluations of Carer’s Allowance Supplement and Young Carer Grant. Findings from both phases will be brought together into a final overarching report due for publication in Summer 2026.

Clients’ experiences of case transfer

Overall, clients reported a positive experience of their benefit being transferred from Carer’s Allowance to Carer Support Payment. Social Security Scotland communications were generally clear, and the transfer was completed seamlessly for most clients.

Anxiety about the prospect of their benefit being transferred was evident for some clients, mainly due to uncertainty about the change and concern that something might go wrong. A few were unsure about how the process would work, when the transfer would happen and if they had to take action. This added to feelings of anxiety and confusion for some.

Some clients reported difficulties with their Universal Credit payments due to having their carer benefit transferred. These included gaps in payments and larger-than-expected deductions, although these were resolved quickly in most cases.

DWP pays Carer’s Allowance three weeks in arrears and one week in advance, but Social Security Scotland pays Carer Support Payment four weeks in arrears. This meant that some clients experienced a gap of five weeks between their last Carer’s Allowance payment and their first Carer Support Payment. This confused some clients who were used to receiving the payment every four weeks. Information about the timing of payments was included in the notification letter, but it was unclear for some clients, a few of whom described financial worries due to the extra week between payments.

Communications from Social Security Scotland were described as too lengthy by some, with aspects that were unclear and details that could have been more prominent. This includes, for example, information about wider support available for carers and the five-week gap between the final Carer’s Allowance payment and the first payment from Carer Support Payment.

Some clients who are classified as underlying entitlement cases were confused about their status.

Overall, clients’ feedback about the transfer process was positive. In most cases, transfers occurred safely and securely, with no gaps in payments and the right payments being made at the right time. Some issues occurred for a small number of clients who participated in the evaluation, but these were resolved quickly, in most cases.

Clients’ experiences of applying for Carer Support Payment

Generally, clients described the application process as straightforward, with clear and prompt communications from Social Security Scotland.

Clients recounted positive experiences of completing the application form and praised its length and the number of questions. Most preferred online applications for ease and convenience rather than paper or telephone approaches. Stakeholders identified groups who may require additional support to apply, including individuals for whom English is a second language and carers who have health conditions such as dementia.

While most applicants understood the application process, some identified features of Carer Support Payment that they found difficult to understand. These include the eligibility criteria (particularly for those receiving the state pension), earnings rules, and how Carer Support Payment might impact other benefits or support.

Some clients said that they were anxious during the application process because they were not given enough information about processing times, or updates on the progress of their application. There were also instances where clients were asked to provide information they had already supplied, and confusion arose regarding when clients would receive their Carer’s Allowance Supplement (a bi-annual payment that Carer Support Payment clients receive).

Similarly, delays in receiving determinations was another key area of concern. These have caused financial issues for some clients, especially those who may have left their jobs or reduced their working hours to meet the eligibility criteria. A support organisation said that some clients had withdrawn their applications and sought employment instead due to the delay in determining whether they would receive Carer Support Payment.

Most clients understood their right to backdated payments. Some, however, noted that receiving a lump sum can cause issues with other benefits, with some reporting that their Universal Credit had been deducted as a result.

Impact of Carer Support Payment

Overall, the introduction of Carer Support Payment has helped many carers feel validated, respected, and appreciated. It has contributed to a stronger sense of identity and reassurance, offering recognition not only of the tasks carers perform but also the value they bring to their families and communities.

Carer Support Payment has provided many carers with greater financial stability, helping them manage household costs and reducing the stress associated with money worries.

The payment has also enabled carers to focus on their caring responsibilities and spending more time with the cared-for person, and in some cases, supported their access to education and employment.

Cared-for people and their wider families have been enabled to access outings, activities, and essential items that would be unaffordable without Carer Support Payment. Many carers reported that Carer Support Payment made everyday life more manageable and allowed them to provide meaningful experiences for their loved ones.

Dignity, fairness and respect

Clients felt that Carer Support Payment, including the case transfer process, the application system and the benefit overall, is delivered in line with Social Security Scotland’s principles of dignity, fairness and respect. They appreciate that the application process is straightforward, that the case transfer process was mostly safe, smooth and secure, and that the benefit contributes to stability for carers.

However, aspects of the application identified as being misaligned with the principles include lengthy processing times.

The consensus was also that interactions with Social Security Scotland were aligned with dignity, fairness and respect. Clients generally felt they had dealt with helpful and compassionate staff.

Overall conclusions

Most clients who participated in this evaluation have a favourable view of Carer Support Payment. The case transfer and application processes are generally working effectively, although there are a few areas for potential improvement. Those who receive payments report positive impacts as a result, which illustrates that the policy is responsive to the diverse needs and circumstances of carers while helping them to pursue opportunities outside of caring where desired. Most clients also have a favourable view of Social Security Scotland and its dignity, fairness and respect principles.

Areas for consideration

The evaluation has identified areas for consideration that could help the Scottish Government and Social Security Scotland further improve the Carer Support Payment, ensuring it continues to support as many carers as possible. These include:

1. Social Security Scotland should continue reviewing its communications with clients to ensure they are clear and understandable for all. This may include considering the length of the communications as well as the language and formatting used to ensure they are understandable, readable, and engaging.

2. Vulnerable clients, such as people who experience mental health conditions, learning disabilities, neurodivergence, dementia, low incomes, or literacy issues, might need extra support to understand the process. Easy-read versions are available, but simplifying standard communications would also be beneficial to ensure the information is clear and understood.

3. Making sure that key points of information are presented prominently is crucial to ensure clients retain them. This may include, for instance, ensuring vital details are featured near the top of the letter, and highlighted with bold text, boxes or different coloured text. For example, some clients felt that the information about the five-week gap before the first Carer Support Payment could have been more prominent. Ensuring the information is as concise as possible will also support this aim: clients are more likely to read, understand and retain the key information if the letter is as short as possible.

4. Exploring any scope to clarify further information that clients receive about which agency to contact with any questions would be beneficial.

5. Social Security Scotland should consider raising awareness of external organisations that support carers further. This could include organisations that can provide practical support if needed with the transfer (although most interviewees were satisfied that Social Security Scotland were available to support the transfer if necessary). More importantly, further raising awareness of other services that support carers more widely would be worthwhile. Social Security Scotland provided signposting information in its communications to case transfer clients, but it may be beneficial to make this more prominent. For example, placing signposting information at the top of letters or highlighting it in a dedicated section could make the information more prominent for the client.

6. Some clients recalled receiving information about other benefits they may be eligible for, but others did not, and this is another example of information that could be made more prominent in Social Security Scotland communications.

7. In most cases, transfers were completed promptly, but this finding reinforces the importance of transparency - ensuring that clients are informed of delays and their causes if they occur.

8. It would be beneficial to consider how to minimise occurrences where clients experience difficulties with Universal Credit payments following transfer, including gaps in payments and larger-than-expected deductions, and ensure that they are resolved quickly when they do happen.

9. Separate, tailored information may be helpful for clients with an award of ‘underlying entitlement’, to explain their status and the benefits of an award of ‘underlying entitlement’ even if they do not receive any payments.

10. Providing regular updates on clients’ application progress could help reduce anxiety and uncertainty, as well as the number of enquiries Social Security Scotland needs to deal with from clients seeking updates on their application's progress.

11. Reviewing systems to ensure applicants are not asked to provide information they have already supplied.

12. Clients would appreciate clearer communication about Carer’s Allowance Supplement payment dates so they know when to expect this.

13. It may be beneficial to further explore clients’ experiences of redeterminations and appeals to identify any scope to improve those processes.

14. Clients would appreciate clearer communication about the impact of receiving the state pension on eligibility for Carer Support Payment

15. Other areas where there is scope to improve understanding include eligibility criteria, rules around earnings and how Carer Support Payment might affect other benefits.

16. We suggest Social Security Scotland further explores which groups of clients might need more support with the application and considers how best to raise awareness among those groups of the support available from Social Security Scotland and external organisations.

17. Action should be considered to ensure that staff can process applications timeously and provide clearer communications to applicants regarding processing times would reduce anxiety and uncertainty among applicants.

18. Reviewing processes for backdated payments to ensure they do not adversely affect payments of other benefits, and enhancing individuals’ awareness of how this process works, is important.

19. Further awareness about the wider support, including other benefits available to carers, should be promoted, with an assessment of the best communication channels undertaken to ensure this information reaches a wider group of carers.

20. Consideration should be given to which organisations are signposted to, to ensure this covers a broad range of carers’ circumstances without providing too much information. This includes support with the application and more widely for carers in their caring role.

21. Further consideration of the sufficiency of Carer Support Payment and opportunities to increase support provided within budgetary constraints, while out of the scope of this evaluation, could be helpful.

22. Scottish Government and Social Security Scotland could consider how to enhance understanding among clients of the purpose of Carer Support Payment as a recognition payment and how this differs from other benefits.

23. We suggest further raising awareness among potential applicants of the impact of Carer Support Payment, along with the eligibility criteria, to encourage greater uptake of the benefit.

24. Anything that could be done to reduce processing times would be welcome, as would steps to reduce waiting times for Social Security Scotland’s helpline.

25. We suggest continuing to deliver quality training to ensure all staff are aware of these principles and how to deliver them effectively and consistently.