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

3. Clients’ experiences of applying for Carer Support Payment

Introduction

This chapter discusses clients’ experiences of applying for Carer Support Payment. It is structured as follows: communications during the application process; unsuccessful applicants’ views of reasons for denial; redeterminations and appeals; understanding of Carer Support Payment and the application process; experiences of completing the application; awareness of benefits, advice and support available; processing times; and dignity, fairness and respect.

Communications during the application process

Most research participants described the communications from Social Security Scotland during the application process as clear and prompt.

“[Social Security Scotland] were quite good with [communicating]. I've actually still got the emails they had notified me when [my application] was received and when it was being processed and then finally when they had my answer. [Social Security Scotland] were always quite helpful with that.” (Successful applicant)

“Every step worked well. There was enough clear information regarding Carer Support Payment which made understanding the application process even easier.” (Successful applicant)

On the other hand, some interviewees mentioned less positive aspects of communication. Crucially, some clients and staff called for clearer information about expected processing times for applicants. Clients reported long waiting times, with some taking several months between submitting the application and receiving a determination, as discussed later in this chapter. During this time, Social Security Scotland does not contact clients unless further information is required, which can cause anxiety and uncertainty for clients.

“When you submit the application, I had one phone call about my earnings and then I didn't hear anything for quite a long time. But I just sort of assumed that maybe we’re not eligible. That was probably the only flaw, you don't receive any communication until you get your decision letter really.” (Successful applicant)

“They acknowledged I'd sent in the application. It took a long while, but there was nothing in between it to say how it was going.” (Successful applicant)

“I don't know specifically what it says on the website about how long it would take, but we have had a few people phoning in and saying, ‘online it says it should only take so many weeks. It's been three times as long now.’ [It would be helpful] if certain expectations could be set, even just updating our IVR (interactive voice response), ‘if you're phoning in about a new application and it's been less than three months, then we'll contact you and we'll have an update’.” (Social Security Scotland staff)

A few clients suggested improving communications with an online portal where updates and information on the status of an application and expected processing times could be shared. This could help reduce applicants' uncertainty and the volume of phone calls to Social Security Scotland, but it would only be an option for those with digital access and skills.

“I think it would be really good if they'd done an online journal so that everyone had their own little journal they could upload things. Then if someone needed to they could reply and comment on it… I think if you were to do the journal then if they needed anything immediately, you'd get that notification and it would be on the ball instead of holding you up, that might be more useful.” (Successful applicant)

“In comparison to Universal Credit, where they've got journals and they can pop questions as and when they want and get replies as and when they want. We don't really have that just yet. It's probably a little string to our bow if we ever went down that avenue.” (Social Security Scotland staff member)

A few applicants received multiple requests to submit information they had already provided.

“I'd already received two letters asking me to submit documents. And it was only another few weeks later, when I got the third letter, and by this point, it's probably been about six weeks since I applied. Then I called up and said, ‘look, you know, I've submitted this stuff, I keep getting letters’.” (Applicant – awaiting determination)

Although this research focused on Carer Support Payment specifically, two clients called for clearer information about when a linked benefit, Carer’s Allowance Supplement, would be paid to help them plan financially.

“There was supposed to be a [Carer’s Allowance Supplement] payment in the summertime and around Christmas. Well I didn't get the summer one and nobody told me that I wouldn't get it. I didn't understand why, I didn't get a letter saying I wouldn't get it.” (Successful applicant)

Unsuccessful applicants’ views

A quarter of survey respondents and four client interviewees described their application as unsuccessful. Most of these understood the reason why their application was unsuccessful.

“The award letters are quite straightforward explaining why somebody might not qualify.” (Support organisation)

“At least I understood why. I was sitting right on that [earnings] threshold, right on the cusp. But I get that a line needs to be drawn somewhere.” (Unsuccessful applicant)

Some interviewees who had described their application as unsuccessful had actually been classed as eligible for Carer Support Payment but do not receive any payments because of underlying entitlements. This theme is discussed further later in this chapter.

Redeterminations and appeals

Figure 3.1 shows that most applicants were aware of their right to a redetermination or appeal (77%, 56), how to request a redetermination or appeal (73%, 53) and the timescales involved in the process (66%, 48).

Four survey respondents had experience of requesting a redetermination or appeal. Three rated their experience as poor; the other said it was good. Only one provided more details about their experience and described the appeal and subsequent tribunal as challenging and causing additional stress to their role as carer.

“I think that there needs to be a more sensitive and empathetic approach to this kind of benefit when people have children with special needs. It is so hard and there are many days where you're absolutely on your knees and you just don't have any fight left in you for anything let alone attending a tribunal call... It really is a massive undertaking for people in this situation. I think it's very important that the Scottish Government realise that.” (Successful applicant (following an appeal))

The findings on redeterminations and appeals are based on a small sample, but this indicates that further research into clients’ experiences of the appeal and redetermination process could be helpful to identify any scope for improvement.

Understanding of Carer Support Payment

Overall, clients understood how to apply for Carer Support Payment. Over nine in ten survey respondents (91%, 67) described the application process as very easy or easy to understand (Figure 3.2).

However, while the application was easy to understand for most, some research participants identified areas of Carer Support Payment that they found difficult to understand. Figure 3.3 outlines that eligibility criteria (31%, 16), rules around earnings (25%, 13) and how Carer Support Payment might affect any other benefits or support (23%, 12) were the aspects that survey respondents most commonly identified as challenging to understand.

Eligibility criteria and underlying entitlement

Most comments around eligibility criteria among interviewees and survey respondents related to the state pension and underlying entitlement. Some interviewees did not understand that those receiving a state pension are classed as having an underlying entitlement; instead, they believed their application was unsuccessful and they were ineligible for Carer Support Payment. These individuals are eligible for Carer Support Payment but are classed as having an ‘underlying entitlement’. This meansthey receive no payment because their state pension is considered to be an ‘overlapping benefit’ with Carer Support Payment.^[6] As mentioned above, there are advantages to having underlying entitlement as it means that an individual is classed as a carer, and it can increase the amount that they receive from certain other benefits.

A few state pension recipients who had applied for Carer Support Payment would have appreciated clearer information about overlapping benefits and underlying entitlement before they started the application process. They stated that they would not have taken the time to complete the application if they had been aware that receiving state pension can reduce the value of Carer Support Payment. This also indicates they were unaware of the other benefits of being classed as having underlying entitlement for Carer Support Payment.

“Given my age at the start of the application process and the fact that I have a firm’s pension and state pension, it should have been made clear that I was not eligible.” (Unsuccessful applicant)

“I thought it could have been made clearer at the outset that if you got state pension, you can't get that payment.” (Unsuccessful applicant)^[7]

One external support organisation regularly receives questions from applicants about this, and one client did not agree that their payment should stop when they started receiving their pension.

“The ongoing thing is somebody's underlying entitlement, but they can't get Carer Support [Payment] because their income was the state pension. [That is] one of the biggest things, we get so many queries over that.” (Support organisation)

“I am due to start receiving my state pension in February 2026 at which time I understand that my Carer Support Payment may be reduced. The issue I have is that the person I care for still requires to be cared for whether or not I am 65 or 66 years old or older. Their care should not be dependent upon my age.” (Successful applicant)

This emphasises that awareness and understanding of underlying entitlement, and the benefits of this, could be improved.

“I think it's something that we struggle with as a whole is finding the best way to really break [underlying entitlement] down and explain to the clients that we're not paying you but you do still have access to other premiums with other benefits, so it can still benefit you to have [Carer Support Payment].” (Social Security Scotland staff member)

In addition, an external support organisation interviewee mentioned that some clients may be unaware that they are eligible for Carer Support Payment if they do not perceive themselves as a carer.

“A lot of people don't see themselves as a carer, because you've got a lot of parents who care for their family, but they've always done it, so they don't see themselves as a carer… If they're married and they're an older couple sometimes they'll say, ‘it's my duty’. Some of the older generation still think ‘it's my duty to do that, why would I want to get Carer Support Payment?’” (Support organisation)

Rules around earnings

Some applicants found the rules around earnings difficult to understand, particularly concerning the definition of expenses and the earnings threshold. One was uncertain about what would happen if they received a salary increase or if they wanted to increase their working hours.

“A lot of my expenses were not ones that are documented in the standard sense. Because I'm living in caring for my mother, I have a lot of these expenses, but they're not necessarily in my name on documents, which can make things a little bit challenging.” (Applicant – awaiting determination)

“The information around eligibility and earnings threshold wasn't entirely clear. It could have been a bit more clear as to what were these earning thresholds and how did you qualify versus what you were earning.”(Applicant – awaiting determination)

“I think the only thing that was unclear at the time was the amount that I could earn. Like whether that was like pre-tax or like post-tax, so that was unclear.” (Successful applicant)

How Carer Support Payment may affect other benefits

A few client interviewees were unclear about how Carer Support Payment may affect other benefits. For example, there was uncertainty about how Carer Support Payment might affect Universal Credit and Employment Support Allowance, and confusion about whether or not Carer Support Payment has any impact on National Insurance contributions that could affect their State Pension entitlement. One external support organisation highlighted that some applicants decide not to apply due to the potential impact on the cared-for person’s benefits.

“The bit that was confusing was about being on the Universal Credit at the same time, if that’s affecting my benefits.” (Successful applicant)

“If somebody's getting severe disability premiums on top of Employment Support Allowance or housing benefit, they can lose that premium. So it's not clear cut, you've got to make sure that a cared-for person doesn't lose any money. And it's explaining that to the person and they're like, ‘I'm not applying then, even though I care, I'm not applying, taking money off them’.” (Support organisation)

“I looked at other benefits and whether or not it would affect my husband's, because he gets a DWP higher rate. I wondered if [Carer Support Payment] would affect that, but it didn't.” (Successful applicant)

Claiming backdated payments

Those who apply for Carer Support Payment are entitled to request that their payment be backdated to the date they submitted their application. Clients mostly understood their right to apply for this, with interviewees explaining that they had requested it within their application or read about it.

A few interviewees, however, noted they were unaware of how to claim backdated payments. Another said that when they received their backdated payment, they were not expecting to receive it, which caused some confusion.

“No information like that [on how to claim backdated payments] was given to me. None.” (Successful applicant)

“That was a bit of a surprise. So I assumed you'd just start getting the payment from when they sent me the letter… and then one day when when I was on my banking app I just saw a larger amount. And then it made me panic so then I did have to go on the online chat thing and ask was this actually for us or has there been a mistake? And then it was explained.” (Successful applicant)

For some clients, receiving a backdated payment had a negative impact on their other benefits payments, such as Universal Credit. As Carer Support Payment is classed as an income, receiving a backdated payment as a lump sum resulted in a deduction from Universal Credit for some clients. Further information about the interaction of Carer Support Payment with other benefits is provided in Chapter 4.

“Universal Credit deducts pound for pound. So there's not very much point in them asking for backdating because then they'll just have to get the pay from us. But then Universal Credit will take a large payment back. So it's just trying to make the client understand that.” (Social Security Scotland staff member)

Rules around studying

Two Social Security Scotland staff identified rules around studying, details of which are included below, as an area of confusion for applicants.

“Queries around education for young people, whether or not they're entitled because there are different education rules from DWP to us, that's a big query.” (Social Security Scotland staff member)

“The education rules and stuff are pretty complex. I don't think people do fully understand it” (Social Security Scotland staff)

Policy details: Carer Support Payment education rules

Feedback in the research notes some complexity around the rules on when carers can receive Carer Support Payment while in education. Further information on the Carer Support Payment education rules is provided below.

Carer Support Payment is available to more carers in education than Carer’s Allowance, the benefit it replaced in Scotland. Carers in education can only get Carer’s Allowance if they are studying part-time, for less than 21 hours a week.

Carer Support Payment education rules are the same for the majority of carers. Carers aged 20 or over can be eligible whether they are studying part-time or full-time and whatever they are studying.

There are different rules for carers aged 16 to 19. These carers can be eligible if they are in part time education at any level or full-time advanced education, but not if they are in in full-time non-advanced education. This is because support for young people in full-time non-advanced education is provided through support to their parent or guardian such as Child Benefit or Child Elements in Universal Credit for families on lower incomes.

However, to ensure that young carers who are entitled to benefits in their own right are not disadvantaged, carers aged 16 to 19 in full-time non-advanced education can be eligible in some exceptional circumstances. These circumstances are that the carer: does not get support from parents or guardians; is responsible for a child or qualifying young person (including being a foster parent); gets a disability benefit and have been assessed or treated as having ‘limited capability for work; is a student and lives with a partner who is not; or lives with a partner who is a student but meets any of the above exceptional circumstances.

Information on the rules is provided on Mygov (If you study - mygov.scot) and only carers aged 16 to 19 will be asked questions about education on application.

Requirements around the number of caring hours

One interviewee called for the application question about the number of caring hours to be worded more clearly.

“They ask questions around caring and what you do. I think one of the questions might have been ‘how many hours a day do you care for this person’? And that's a bit of an open-ended question because if you've got someone at home that needs support, but might not need support every moment, but they need you there, that was slightly difficult. I had to try to work out the sort of things I did.” (Successful applicant)

Experiences of completing the application

Method of application

Most survey respondents applied for Carer Support Payment online (80%, 56). Ten per cent (7) applied via telephone and 7% (5) by paper.

Reasons for applying online rather than paper or telephone included:

• Ease and convenience;
• The option to save and return later, which meant carers could complete the form in chunks around their caring responsibilities;
• The ability to easily edit any errors;
• Lack of access to a printer to print a paper form; and
• Personal preference to complete tasks online.

“I just find it easier because phone calls can sometimes take time and you're waiting. I think there was a process where you could start the application and save it and continue it if I had to go away and find out something or work something out. So for me that was maybe easier than doing it via the phone.” (Successful applicant)

“When I had applied for the Child Disability Payment, I filled out all the forms by hand, and it was really time consuming and I just felt like my handwriting was getting worse and worse as it went on. So by doing it online I thought it was really helpful because when you have someone to care for as well silly things like trying to go to the post office to post things is an absolute rigmarole.” (Successful applicant)

Completing the application form

Figure 3.4 shows that most (93%, 70) found the application process straightforward. Interviewees provided positive feedback about the length of the application form and rated the questions as well-written with helpful supporting information.

“I was impressed with this support stuff around it, the information was useful.” (Successful applicant)

“There wasn’t a huge amount of questions to answer worked well for me, as it wasn’t overwhelming unlike a DLA (Disability Living Allowance) form.” (Successful applicant)

“Everything was very easy to do. The online form is very clear and simple and not too onerous.” (Successful applicant)

However, Figure 3.4 also illustrates that 30% (22) reported difficulty accessing or completing the application, and 29% (21) felt the application process caused them undue stress or anxiety. For example, one interviewee described difficulties using the online form, but this was resolved by contacting Social Security Scotland. Another felt the questions were too generic to adequately describe their needs.

“The questions that they ask, it wasn't in depth enough for me personally because I have got a complex situation. So, it was basic and generic, which is fair enough... [but] just getting a couple of tick boxes doesn't actually fully cover what we're going through as a family and what [my son’s] needs are.” (Successful applicant)

Other factors that contributed to application difficulties and stress and anxiety include requirements for supporting information, processing times, difficulties in contacting Social Security Scotland, and complexities surrounding interactions with other benefits, which are covered elsewhere in this chapter.

Social Security Scotland staff suggested that clients who need further support to apply include those for whom English is a second language and carers who are living with health issues such as dementia.

Supporting documentation

Some interviewees did not have to supply supporting documentation, often because the cared-for person receives other benefits so Social Security Scotland already holds their information.

However, Social Security Scotland requested supporting information from several clients who participated in the research. This mainly related to evidence of earnings, such as payslips and P45s. A few were required to submit information about the cared-for person’s disabilities.

“I had to prove my son's conditions. I had to send them in reports.” (Successful applicant)

“It was already there through the Child Disability Payment that I had already applied for. I'd already put all that info in.” (Successful applicant)

Most interviewees who were asked to provide supporting documents described this as a straightforward process.

“I had to send in my P45s. So just sending that information, that was fairly straightforward. I just scanned it and sent it off online.” (Successful applicant)

However, another recounted a negative experience and was frustrated as they had provided supporting documents but were then asked to provide the same information again.

“So I thought, well, I've got [my self-assessment tax return]. I might as well just upload it. And I did. And that all seemed successful. But later I was asked for all the information and that was confusing… I found that very difficult…They even sent me a booklet to fill in with page after page after page. And I thought, well, why? Because I've already put in the self-assessment tax return.” (Successful applicant)

One support organisation mentioned difficulties applicants have in acquiring payslips where these are stored online and individuals do not receive paper copies.

“So for their employment, it can be quite difficult, especially in the new systems that everybody has got. They're all paid by an electronic service. A lot of people find it hard to get into the service to get the information they're looking for. They're having to phone their HR to get pieces of information.” (Support organisation)

Awareness of benefits, advice and support

A few clients suggested that awareness of Carer Support Payment could be increased. These clients did not know about the benefit and experienced financial difficulties when they first became a carer.

“I feel people should be more aware that the support payment is available. I had to take redundancy from work to care for my dad and have had to use my redundancy payment to live and pay bills. I only found out about this support payment in April 2025 and have been caring for dad for the past six years.” (Unsuccessful applicant)

In general, applicants knew who to contact if they needed any support with the application (Figure 3.5). Ninety-two per cent (68) understood how to contact Social Security Scotland if they had any questions, and 88% (65) understood who to report a change of circumstances to and when if they had to during the application process.

Similarly, 77% (57) understood which external organisations they could contact for support. Only 53% (39) accessed support from external organisations if needed, but interviewees explained that they found the process straightforward and either did not need support, were able to find information for themselves online, or received any assistance needed from Social Security Scotland.

Information about wider support for carers

Figure 3.5 shows that 37% (27) disagreed that they received clear information about wider support services available to them with their caring role. Social Security Scotland provides this information in communications about the application process, but not all carers are reading or retaining this information.

“Although I've had the care role for many years now, no one's ever told me like ‘hey this is what you can have for support’, both as a young carer and now as an adult carer for my mum. So that was something that I felt perhaps could have been maybe improved. I think especially directly on Carer Support Payment website that I went through, it might have been beneficial to have something on there.” (Successful applicant)

"I do think it would be helpful to include other external support that may be available for carers. Personally, I am not fully aware of all the extra help and support I could get so it would have been better to have that made available when applying." (Successful applicant)

Some client interviewees stated they were already aware of external support available to carers, so this information was less noticeable or relevant to them.

“I was already pretty clued up on this before I even contacted Social Security Scotland. So if the information was there, I didn't really notice it because I would have breezed by it, having known most or all of it already.” (Applicant – awaiting determination)

Processing times

Some client interviewees were satisfied with the time taken to receive a determination, with one saying it was “quite quick”, and some received a decision within eight weeks.

“I thought it was quite okay, it wasn't too long. I'm sure it was 4 to 8 weeks I think before I heard back.” (Successful applicant)

However, many applicants did not receive a determination for several months, which many felt was too long. This financially impacted some, especially in a few cases where clients had given up work or reduced their working hours to meet the eligibility requirements.

“I don't have a lot of money. I understand there has to be a process and that it takes time to confirm everything... I would imagine most people claiming Carer Support Payment wouldn't be in a good financial position or have lots of money. And they probably would appreciate a quicker time turnaround.” (Successful applicant)

“Just I think the length it took. I've never ever known it to be as long as this and I think that was quite frustrating. I was calling them constantly. It was just not a nice process at all.” (Successful applicant)

“An individual couldn't apply while they were still working, they'd have to leave their job or at least reduce their hours in order to be [eligible], so they can work part time but lots of people go from full time to no work, you can't be applying waiting for your answer and then quit your job or then reduce your hours. You have to have made that decision, and then if someone is found to be not eligible, that whole period of time they’ve been waiting for what they think is going to be a benefit that doesn't come.” (Social Security Scotland staff member)

“I applied in the middle of January, I got accepted maybe in March. So it was a wait until I got money, but thankfully leaving my old job in the position I was in, I still had plenty of money left to do me until I got my first payment. I got accepted but it still took a minute for it to get processed.” (Successful applicant)

Similarly, a few carers said they could not apply for Carer Support Payment as quickly as they would like because they were waiting to receive decisions about other benefits the cared-for person had applied for.

"I found it hard as I couldn’t receive [Carer Support Payment] until my husband received disability payments which took a few months to process… I gave up my work many months before to care for my husband but wasn’t able to claim for months" (Successful applicant)

Many Social Security Scotland staff also described processing times as long. They reported that this impacted on their work as clients were contacting them to enquire about the progress of their applications, resulting in fewer staff available to process applications.

“We're stuck in that cycle of the long processing times, the calls are quite high because people naturally want to chase [their application] up.” (Social Security Scotland staff member)

A support organisation reported that some individuals have withdrawn their applications due to the time taken to receive a decision and the lack of income during this period.

“That could be because they've took up employment that earns more and a few of them have actually decided not to be a carer because of the process, the length of time. So they're saying I've went too long without any income. I need to go and get a job. And they've had to just pull their application.” (Support organisation)

Dignity, fairness and respect

Most applicants felt that the application process and their interactions with Social Security Scotland aligned with the agency’s dignity, fairness and respect principles.

Interviewees described Social Security Scotland staff as non-judgemental, polite and helpful.

“Staff themselves [were] extremely polite and really did seem to know what they were doing and did seem to sort things out.” (Successful applicant)

“I think the nicest thing I found is the people that answer the phones are just human and quite compassionate and really nice, like really helpful.” (Successful applicant)

“The guy on the phone was very, very helpful. And then he went through the process as well. Yeah, it was good.” (Successful applicant)

Conversely, some applicants and external support organisation staff felt the application process did not follow these principles. Reasons for this included the time it took to process applications, a lack of communication while the application was being processed, and difficulties contacting Social Security Scotland on the telephone.

“It's just the backlog that they have, you would question that, how long it's taken to actually make decisions, you would say that's a problem. But the actual application, it's how long it's taken sometimes for decisions to come back. So I would say that's the part with dignity, but you're thinking people have not got any dignity, you've got no money in your pocket.” (Support organisation)

“It's no different from any other bureaucratic system now. You're kept waiting and when you finally get through, you're losing the will to live. You're a busy carer, you haven't got the time. Forty minutes, just waiting.” (Successful applicant)

A small number of interviewees had negative experiences with Social Security Scotland staff which resulted in them feeling they were not treated with dignity, fairness or respect.

“[Social Security Scotland staff] did sound bored, at least two of them. And I never spoke to the same person twice, but at least twice I thought, ‘oh, could you take an interest, please?’ Because this really does matter to me.” (Successful applicant)

“When I’m phoning up I feel like they can be quite abrupt or dismissive when you’re trying to explain something.” (Successful applicant)

Chapter summary

Overall, clients described the application process as easy to understand and straightforward. Clients mostly feel the process aligns with dignity, fairness and respect.

However, a key area of concern is the timescale to process applications. Long processing times have caused financial issues and anxiety for some clients.

Although most applicants reported a good understanding of Carer Support Payment, understanding of some aspects could be enhanced, most notably eligibility criteria, particularly concerning those in receipt of a state pension who are classed as having an underlying entitlement.

Awareness about the wider support available to carers could be further promoted, with an assessment of the best communication channels to ensure this information reaches a wider group of carers.