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

1. Introduction and context

This report explores the experiences of individuals who have applied for Carer Support Payment or whose benefit has been transferred from Carer’s Allowance with DWP to Carer Support Payment. In this chapter, an introduction to Carer Support Payment and the case transfer process is provided, outlining the background, policy commitments, and recent changes. It summarises the evaluation aims, the study methodology and the report structure.

Summary of evaluation aims

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.

The Scottish Government commissioned The Lines Between (TLB) to undertake fieldwork for phase one of the Carer Benefits Evaluation. Fieldwork began in June 2025. Two overarching aims guide the work:

Aim 1: Understanding the Case Transfer Experience

This focuses on how individuals have experienced the transfer of their benefits from Carer’s Allowance to Carer Support Payment. The objectives are to:

• Explore the case transfer process from the client’s perspective, including clarity, communication, and ease of transition.
• Identify variations in experience across different client groups, such as those with underlying entitlement or differing caring responsibilities.
• Assess whether the intended outcomes of the transfer - short-, medium-, and long-term - have been achieved, and identify any emergent outcomes that could inform future policy and practice.

Aim 2: Evaluating the Impact of Carer Support Payment

This examines client experiences of applying for and receiving Carer Support Payment, including the influence of recent changes to Carer Support Payment policy. The objectives are to:

• Understand how clients experience the Carer Support Payment application process, including accessibility and clarity.
• Assess how well individuals understand changes to eligibility criteria and earnings rules.
• Evaluate whether receiving Carer Support Payment has improved awareness of other available support.
• Explore whether changes such as temporary stops in entitlement, backdating of payments, and other adjustments have contributed to greater stability in support.

As outlined in the Scottish Government’s strategy for devolved benefits, this evaluation is based on theories of change (Appendix 1) that describe the principles and intended outcomes underpinning Carer Support Payment and the case transfer process.

The research gathered evidence from multiple perspectives, focusing on the outcomes from the Carer Support Payment logic model and identifying any additional findings that emerged. It sought to assess whether Carer Support Payment is being delivered in line with Scottish Government policy commitments, including:

• Responsiveness to the diverse needs and circumstances of carers.
• Recognition of carers’ caring role and its impact on their lives.
• Provision of stable support that enables carers to pursue opportunities outside of caring, where desired.
• A positive experience of the social security system, with maximised take-up of all available support.

Report structure

This report is set out as follows:

• Chapter 1 introduces the evaluation, including policy context and rationale.
• Chapter 2 explores clients’ experiences of the case transfer process from Carer’s Allowance to Carer Support Payment.
• Chapter 3 examines clients’ experiences of applying for Carer Support Payment, including accessibility and understanding of eligibility.
• Chapter 4 assesses the early impact of Carer Support Payment, drawing on data from both applicants and case transfer clients.
• Chapter 5 presents conclusions and outlines areas for consideration in future policy and service development.
• Appendix 1 includes the logic models for Carer Support Payment and the case transfer process.
• Appendix 2 presents a demographic profile of client survey respondents and interviewees.
• Appendix 3 summarises evidence of the extent to which the outcomes articulated in the logic models have been achieved.

Background and description of Carer Support Payment and case transfer

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 live in Scotland. To be eligible, individuals must provide care for at least 35 hours per week and earn no more than £196 per week (after deductions).^[2] The person being cared for must receive specific disability benefits.

Carer Support Payment is one of the most complex benefits devolved to Social Security Scotland in terms of its links with other benefits. Eligible carers can receive £83.30 per week,^[3] and 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. In addition to Carer Support Payment, carers receive the Carer’s Allowance Supplement, a bi-annual payment. Introduced in 2018, the value of the supplement in 2025-26 is £293.50 and is paid in June and December.

Carer Support Payment differs from Carer’s Allowance in several key ways, including:

• Enhanced signposting and communication channels
• A reduced ‘past presence’ test, with exemptions for some carers
• Revised rules for carers in full-time education
• Improved earnings processes
• Use of temporary stops in entitlement
• Automatic processing for straightforward applications

These changes aim to improve accessibility, reduce administrative burdens for carers, and remove barriers to education and employment. Future planned enhancements include:

• An additional £10 per week for carers supporting more than one person
• Extended payment periods following the death of the cared-for person
• Replacing Carer's Allowance Supplement with Scottish Carer Supplement for most carers, so carers receive the extra support more regularly

As of 30 September 2025, 32,690 applications for Carer Support Payment had been received, with 24,345 processed. Of these, 74% were authorised, 16% denied, and 10% were withdrawn.^[4]

Case transfer to Carer Support Payment

The case transfer 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). Social Security Scotland has now completed the case transfer process. 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.^[5] 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. Once selected for transfer, clients receive an introductory letter, followed by a 13–17-week process window, culminating in a determination and outcome letter. The process is guided by principles of fairness, dignity, and respect, and is guided by a set of principles:

• No individual will be required to re-apply for their benefit.
• Individuals will continue to receive the right payment, at the right time.
• Social Security Scotland will complete the case transfer process as soon as possible while ensuring it is safe and secure.
• Social Security Scotland will maintain clear communications with clients during the transfer process.

Summary of methodology

A range of activities were undertaken to support the evaluation aims:

• Policy and logic model familiarisation to ensure alignment between the evaluation aims and the intended outcomes of Carer Support Payment and the case transfer process. This included reviewing relevant policy documents and the Carer Support Payment and case transfer logic models.
• Design of research instruments, including interview topic guides for use with Carer Support Payment clients (including those who had their award transferred), Social Security Scotland staff and other support organisations, and surveys for clients and support organisations.
• Development of a sampling approach to ensure representation across key client groups, including those with underlying entitlement and varying caring responsibilities.
• Fieldwork activities including:
• A survey of individuals who had their award transferred from Carer’s Allowance to Carer Support Payment, and individuals who had applied for Carer Support Payment (including unsuccessful applicants). 158 survey responses were received: 81 from individuals who had experienced the case transfer process and 77 from Carer Support Payment applicants.
• 54 in-depth follow-up client interviews were conducted to explore individual experiences and longer-term impacts.
• 3 interviews with support organisations.
• 2 survey responses from support organisations.
• 9 interviews were conducted with Social Security Scotland staff involved in delivering Carer Support Payment and/or the case transfer process.
• A structured coding framework was developed to support thematic analysis of qualitative and quantitative data.

Survey Responses:

158 clients

2 support organisations

Interviews:

54 clients

3 support organisations

9 Social Security Scotland staff

Appendix 2 contains a demographic profile of clients who responded to the survey and took part in an interview.

Methodological considerations

Key considerations that informed the methodological design of this evaluation are outlined below.

Recruitment of clients

The Scottish Government liaised with Social Security Scotland to contact people who had applied for Carer Support Payment, or whose benefit had been transferred to Carer Support Payment.

Recruitment was focused on individuals listed on an extract of the Social Security Scotland client database available to the Scottish Government, or who were a member of Social Security Scotland’s Client Panels.

The TLB research team thanks the Scottish Government and Social Security Scotland teams for their help in publicising the study among clients.

It is also important to note that the views expressed by the clients who took part in our research do not necessarily reflect the views of all clients.

Considerations in research design for clients

Key considerations included a focus on remote fieldwork (surveys and telephone or online interviews). The advantages of this approach include:

• Avoiding potential health risks of in-person research for people with disabilities and health conditions, especially those who may be immunocompromised.
• Ease of access for people who may be uncomfortable with people unknown to them visiting their homes.
• Removing difficulties related to travel time as well as transport cost and availability associated with in-person fieldwork, especially for people in rural areas.
• More efficient use of the evaluation budget by reducing travel time for the evaluation team.

However, the disadvantages of remote fieldwork include barriers related to digital skills and access to the internet or a telephone, and some people prefer in-person contact.

Interviewees were given the option of taking part by telephone, online or in-person. In practice, all interviews took place by telephone or online.

Other accessibility considerations included the following:

• Social Security Scotland’s invitations to take part were sent using each client’s preferred format (email or text message).
• The survey was primarily online, but options to complete the survey over the phone or on paper were also available.
• Similarly, information was available in alternative formats on request.
• The ability to take part in an interview, survey or both gave individuals options to participate in a way that suited them around their caring responsibilities and other commitments.

Timing

Timing was another key consideration in this study. We included interviewees with recent experience of transfer and application for Carer Support Payment, so they could comment on these processes. Individuals whose application or award transfer was completed longer ago were also included so they could comment on their experiences of receiving Carer Support Payment and its impact.

Dealing with sensitive topics

Carers eligible for Carer Support Payment, or the people they care for, may have experienced poor health, stress, trauma, poverty, upheaval, disadvantage, shame, stigma, discrimination or other challenges as a result of their caring responsibilities and the disabilities or health conditions of the person they care for.

Therefore, the evaluation team was careful to take a compassionate, sensitive and trauma-informed approach to this research. The team clearly introduced themselves to potential interviewees, explained the research, answered questions and set out the expectations of participants, using trauma-informed approaches to handling difficult conversations. Interviewers took a friendly approach and used active listening skills. Interviewees were also given the option of having a friend or family member accompany them during the interview for emotional support, and details of support services were included in the information sheet provided to interviewees.

Quotations in the report

The report includes quotations from interviewees and survey respondents. Each quotation is labelled as ‘case transfer client’, ‘applicant’, ‘Social Security Scotland staff member’ or ‘support organisation’. Some quotations have been lightly edited for sense and to remove repetition, without altering their meaning.