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

5. Conclusions and areas for consideration

Overall, clients provided positive feedback about Carer Support Payment. The case transfer process worked well, the application process is straightforward, and receiving Carer Support Payment positively impacts carers. However, some carers had a less positive experience, and the findings suggest scope for some improvements.

Below are the evaluation conclusions and areas for consideration in the future based on the findings. Appendix 3 summarises the extent to which each outcome listed in the Carer Support Payments logic models has been met.

Clients’ experiences of the case transfer process

Most research participants described a positive experience of their benefit being transferred from Carer’s Allowance to Carer Support Payment. Social Security Scotland communications were seen by most as clear and effective in informing clients about the transfer and helping them to understand the process.

However, a few felt the communications were unclear and were uncertain about how the process would work. This added to feelings of anxiety and confusion for some.

Another key theme was that some saw Social Security Scotland's information as too lengthy, and some clients did not understand, read, or retain key information because it was presented amongst a large volume of information.

Areas for consideration

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.

Most were aware who to contact if they had any questions, needed support with the process or had to report changes of circumstances. However, a few expressed uncertainty about whether they should contact DWP or Social Security Scotland.

Area for consideration

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

There was less clarity over which external organisations could support carers during the transfer process and which sources of wider support were available to carers. Social Security Scotland provided this information in its communications, but clients did not always read or retain it.

Areas for consideration

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.

The transfer was completed promptly and seamlessly for most clients, with the right payments being made at the right time and with no gaps in payment.

However, some clients experienced difficulties. Most notably, there was a gap of five weeks for some between their last Carer’s Allowance payment and their first payment from Carer Support Payment. This caused confusion for clients who were used to receiving the payment every four weeks, and led to budgeting worries and complications with direct debits for a few. This information was included in the notification letter but was unclear for some clients. The third area for consideration, noted above, suggests ensuring this information is made clearer.

A handful of clients reported experiencing a delay in their transfer but stated that they were not informed about it or the reasons for the delay.

Area for consideration

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.

Some clients also said that having their award transferred caused difficulties with their Universal Credit payments, including gaps in payments and larger-than-expected deductions.

Area for consideration

8. It would be beneficial to consider how to minimise occurrences like these and ensure that they are resolved quickly when they do happen.

Some clients who had an award of underlying entitlement - that is, they are eligible for Carer Support Payment but receive no payment or less than the full amount because of other benefits they receive - were confused about their status.

Area for consideration

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

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

In general, clients felt the application process was straightforward. Communication during the application process was perceived mainly as clear and prompt.

However, a lack of information about processing times and an absence of communication while applications are being processed were recurring themes, which led to anxiety for some clients. There were also examples of clients being asked to supply information they had already provided, and confusion around when clients would receive their Carer’s Allowance Supplement.

Areas for consideration

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.

Only four survey respondents had experience of requesting a redetermination or appeal. Three described their experience as poor, while one said it was good. This is a small sample, and none provided any more details about their experience, but this indicates that further research into clients’ experiences of the appeal and redetermination process could be helpful to identify any scope for improvement.

Area for consideration

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

While most applicants understood the application process, some identified features of Carer Support Payment that are difficult to understand. These include the eligibility criteria (particularly among those who receive the state pension), rules around earnings, and how Carer Support Payment might affect any other benefits or support.

Areas for consideration

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.

Clients recounted positive experiences of completing the application form in terms of the length and number of questions. Most applied online, rather than by paper or telephone, for ease and convenience. Stakeholders identified groups who may need further support, including people for whom English is a second language and carers with health conditions such as dementia.

Area for consideration

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.

A key area of concern is the timescale for processing applications. Longer processing times 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 gave examples of clients who had withdrawn their Carer Support Payment applications and sought employment instead because of the long processing time.

Area for consideration

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.

In general, clients understood their right to request backdated payments and this process operated smoothly for most. Some, however, noted that receiving a lump sum can have an impact on other benefits, with some reporting examples where their Universal Credit had been reduced as a result.

Area for consideration

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.

Social Security Scotland communications with clients contained information about wider support available for carers, including other benefits they may be eligible for, but clients were not always aware of this.

Areas for consideration

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.

In general, feedback about the application process was positive. Most felt it was straightforward, albeit with some scope for enhancing understanding of certain aspects of the process and of Carer Support Payment more widely.

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 they perform but of 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 reduce stress linked to money worries. The regularity of payments was particularly valued, especially by those with fluctuating or reduced income.

Carer Support Payment also enabled carers to focus on their caring responsibilities without the pressure to seek work, and in some cases, supported their access to education and personal development. Backdating of payments helps to ensure that clients will not miss out on money they are owed regardless of processing times, and helps to contribute to stability of support.

However, concerns were raised about the sufficiency of the payment given the demands of caring and Carer Support Payment’s interactions with other benefits, particularly Universal Credit, with some carers feeling no better off financially or confused by deductions. While Carer Support Payment has opened up opportunities beyond caring, many felt its value should be reassessed to better reflect the role's demands. However, clients’ views of the level of payment provided by Carer Support Payment are related to their understanding of its purpose. Carer Support Payment is not intended as a payment for the care provided, but to provide support for the carer in recognition of their caring role and its impact on their life including their ability to take on paid work. There may be scope to improve understanding of Carer Support Payment’s purpose in this respect.

Areas for consideration

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.

Carer Support Payment has positively impacted cared-for people and their wider families by enabling access to outings, activities, and essential items that would otherwise be unaffordable. For example, the payments helped cover costs related to sensory and dietary needs, hospital travel, and mobility-related expenses, improving wellbeing and inclusion. Many carers reported that Carer Support Payment made everyday life more manageable and allowed them to provide meaningful experiences for their loved ones.

Area for consideration

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.

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 the lengthy processing times and waiting times to speak with Social Security Scotland on the telephone.

Area for consideration

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.

The consensus was also that interactions with Social Security Scotland were aligned with the principles. Clients noted dealing with helpful and compassionate staff. However, a few reported less positive experiences with Social Security Scotland staff.

Area for consideration

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.

Final comments

Finally, most clients who participated in this evaluation have a favourable view of Carer Support Payment. The case transfer and application processes are working effectively overall, albeit with a few areas for potential improvement. Those who receive payments report positive impacts of doing so, 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 positive view of Social Security Scotland and its dignity, fairness and respect principles.

The evaluation has identified some areas for consideration that could help the Scottish Government and Social Security Scotland further improve Carer Support Payment and ensure it can support as many carers as possible.