Carer benefits evaluation: phase 1 - case transfer and Carer Support Payment

Executive Summary

Carer’s Allowance is a Department for Work and Pensions (DWP)-delivered benefit for unpaid carers. It has been replaced in Scotland by Carer Support Payment. Carers already getting Carer’s Allowance in Scotland had their benefits automatically transferred to Carer Support Payment with no need to apply (a process known as ‘case transfer’). The transfer process was designed to ensure continuity of support, with no gap in payments and no need for reapplication. It was guided by a set of principles which were developed through extensive engagement with stakeholders and individuals with a lived experience of the benefits system.

Social Security Scotland has now completed the case transfer process. Around 118,550 people entitled to Carer’s Allowance in Scotland had their award transferred to Carer Support Payment^[1].

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. It was introduced as a pilot on 20^th November 2023 in Dundee City, Perth and Kinross and Na h-Eileanan Siar (the Western Isles). It was extended to further local authorities in June and August 2024, and has been available for new applications nationally since 4^th November 2024.

The overall aims for Carer Support Payment are:

1. To provide income for unpaid carers in recognition of their vital role and its impact on their lives. It is delivered in a way that takes into account that different carers have different needs, and that different caring situations have different impacts.

2. To provide stability and support carers to access opportunities outside of caring, where possible, if they wish to do so.

3. To ensure that carers have a positive experience of the social security system, and to maximise carers’ take-up of all support available to them.

The Scottish Government’s Carer Benefits Programme of Evaluation covers the devolved carer benefits delivered by Social Security Scotland. These are Carer Support Payment, Young Carer Grant, and Carer’s Allowance Supplement. The evaluation also covers the case transfer of Carer’s Allowance awards to Carer Support Payment.

Methodology

This evaluation is divided into two phases of fieldwork, covering different carer benefits and running consecutively. This report covers Phase 1 of the evaluation, and consists of two aims:

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 (Short-term)

This examines client experiences of applying for and receiving Carer Support Payment. 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 evaluation strategy for devolved benefits, this evaluation is based on theories of change. These logic models show the policy principles and intended outcomes underpinning Carer Support Payment and the case transfer process, in a chain of short-, medium-, and long-term policy outcomes.

In accordance with the evaluation strategy, the evidence used in this report has been drawn from multiple data sources, including:

• Bespoke commissioned research - The Lines Between, a social research organisation, was commissioned by the Scottish Government to conduct research with those who had had their benefit transferred from Carer’s Allowance to Carer Support Payment, and those who had applied for and received Carer Support Payment. Fieldwork took place from June-October 2025, and consisted of: a survey of 158 individuals who had either had their award transferred from Carer’s Allowance to Carer Support Payment, or who had applied for Carer Support Payment (including unsuccessful applicants); 54 in-depth follow-up client interviews; 3 interviews with support organisations; 2 survey responses from support organisations; and 9 interviews were conducted with Social Security Scotland staff involved in delivering Carer Support Payment and/or the case transfer process.
• Official statistics - Social Security Scotland collects information on applications, payments, and clients in the process of delivering the benefits. Some of this information is published online as Official Statistics. The following Official Statistics publications are used as sources of evidence in this report: Carer Support Payment statistics to 31 December 2025; Individual clients paid by Social Security Scotland to 31 March 2025.
• Social Security Scotland Client Satisfaction Survey - Responses from two groups are used: 1. Case transfer: clients who had their award transferred from Carer’s Allowance to Carer Support Payment, and 2. Carer Support Payment: clients who had made an application for Carer Support Payment and received a decision on that application. This includes those who had made an unsuccessful application.

Case transfer - What is working well?

• Overall feedback on the transfer process was positive, with clients agreeing that it was safe and secure.
• Clients appreciated that the process was automatic and that – in most cases – it did not require any action on their part.
• Determinations have been made within the period specified.
• Most participants in the commissioned research had their award transferred on a like-for-like basis, with no gaps in payments.
• No participants reported any issues with appointees continuing following transfer.
• The majority of clients reported that they were treated with dignity, fairness and respect by Social Security Scotland. Feedback on staff was positive. Clients’ views of the organisation overall were that it was open and honest, and that they felt it could be trusted.

Case transfer - What are the challenges?

• While communications were generally well received, some groups had less positive opinions. Older carers were less likely to find communications clear and easy to understand and others found the letters too long. Some participants in the commissioned research became anxious waiting for updates.
• Important information that was included in the transfer letters was not being retained by all clients, leading to the challenges outlined below relating to what clients felt were unexpected gaps in payments or deductions from Universal Credit.
• Differences in the payment schedules used by the DWP and Social Security Scotland resulted in some clients experiencing what they felt was an unexpected gap in their payments.
• Clients experienced what they felt were unexpected or larger-than-expected deductions from their Universal Credit award following transfer of their carer benefit.
• Some clients with underlying entitlement were confused by case transfer as they did not realise that they had an award for Carer’s Allowance (and subsequently Carer Support Payment).
• Awareness of other benefits and support appears low and mixed evidence was found as to how successful signposting during the transfer process had been.
• Some clients were confused about which agency – the DWP or Social Security Scotland – to contact in the event of any problems during the transfer process.
• Some clients felt anxious about the transfer process, and there was mixed evidence as to how supported clients felt.
• Some clients were unsure of how to request a re-determination or appeal.

Case transfer – Considerations for policy and practice

Changes to communications

Information about the most common issues raised during this research – the five-week gap between payments, deductions from Universal Credit, and underlying entitlement – was already included in the letters that clients received at the start of the transfer process. Despite this, evidence from the research shows that this information was either not being read or not being retained by many clients.

Considerations based on the evidence gathered during this research are:

• Social Security Scotland should continue to review its communications to ensure that important information is clearly presented in accessible formats. Suggestions from the research participants included foregrounding important information earlier in letters and reducing the length of letters.
• More regular communication during the transfer process may help to reassure clients experiencing anxiety about the process and reduce perceptions of delays with the transfer.
• Additional support or formats for communications may be needed for vulnerable groups.

Raising awareness of benefits and support

Although most clients who participated in the research were aware of who to contact for help and support, there was some confusion around which agency – the DWP or Social Security Scotland – should be contacted for what issues or enquiries, such as missing payments or impacts on other benefits that the client is receiving. Information detailing which agency to contact for queries relating to specific benefits was included in the first letter that clients received, but participants in the research still reported confusion over which agency should be contacted with issues that arose following transfer.

There was mixed evidence as to how effective the signposting that was included in the letters was, and the level of awareness that carers have of other benefits or sources of support that may be available to them. Some carers reported that they had not been in contact with a social security agency in years, and were unaware of the support available.

Considerations based on the evidence gathered during this research are:

• Review communications to make sure that information on who to contact regarding specific issues – such as missing or incorrect payments – is as clear as possible.
• More regular communications with carers to signpost to and improve awareness of the support available to carers.
• Further promotion of carer benefits, their purpose and who can apply, which may help to improve take-up.

Carer Support Payment – What is working well?

• Most clients found the application process accessible, clear and straightforward, with online being the most popular method. Clients appreciated the ease and convenience of applying online, such as being able to complete the application in stages and the ability to easily edit information.
• Almost all clients who had support from Social Security Scotland during their application agreed it was easy to get this help.
• Most clients said that the decision on their application was clearly explained.
• No problems were reported with payments following a successful award i.e. unexpected gaps or breaks in payment.
• The majority of clients understand rules around eligibility and earnings.
• Most clients reported that they were treated with dignity, fairness and respect by Social Security Scotland. Feedback on staff was positive, with clients praising their support with applications and enquiries. Clients’ views of the organisation overall were that it was open and honest, and that they felt it could be trusted.
• Many clients reported improved financial stability as a result of receiving Carer Support Payment, relieving stress associated with financial pressures caused by reducing or stopping work due to caring responsibilities.
• Some clients reported that receiving Carer Support Payment improved their access to opportunities such as training and education, or meant they were able to provide things for their family or the cared-for person that they previously could not.
• Most clients felt that Carer Support Payment offered recognition of their caring role.

Carer Support Payment – What are the challenges?

• A minority of clients continue to experience difficulties accessing or completing applications and some clients reported experiencing anxiety and stress during the application process. Some applicants felt there were not enough updates on the progress of their application once it had been submitted.
• There are some areas of confusion relating to eligibility and earnings. Older clients reported lower understanding of rules around eligibility and earnings. In particular, underlying entitlement emerged as an area of considerable confusion and unhappiness amongst those receiving State Pension. Some Social Security Scotland staff highlighted the complexity of rules around education as being difficult for applicants to understand.
• Some clients and support organisations reported problems with obtaining or submitting supporting information.
• Many clients reported long processing times for applications.
• Awareness of other benefits that a carer may be eligible for appears low and mixed evidence was found as to how successful signposting had been.
• Some applicants were confused about how Carer Support Payment interacts with other benefits, for example, Universal Credit.
• There is some evidence of misunderstanding over the purpose of Carer Support Payment as a recognition payment, as evidenced by some clients equating the payment to a low hourly wage.
• There was mixed evidence on how aware clients were that they could request backdated payments, and how well the process for doing this was understood. This will be explored in more detail during research for Phase 2 of the Carer Benefits evaluation.

Carer Support Payment – Considerations for policy and practice

Applications

Most feedback on the application process was positive, but some clients reported experiencing anxiety while waiting to hear the outcome of their application. Long waiting times were also reported by some. While most clients understood their right to backdated payments, less were sure how to claim these and some experienced unexpected issues due to receiving larger lump sums. Stakeholders from organisations supporting carers identified groups who may need additional support with their applications, including carers with English as a second language and carers with health conditions such as dementia.

Considerations based on the evidence gathered during this research are:

• Provide more regular communications during the application process to update applicants on progress. This may reduce anxiety and uncertainty for some clients, and also help to reduce the number of enquiries to the Social Security Scotland helpline.
• Provide more information on backdated payments, explaining processes and outlining how they may affect other benefits would be helpful for clients.
• Provide more support during application for some groups, such as those with English as a second language or carers with health conditions.

Raising awareness of benefits and support

There is evidence that rules around eligibility and earnings are not fully understood by carers. In particular, underlying entitlement emerged as a clear source of confusion for older clients. This extended to misunderstandings of the purpose of Carer Support Payment, and why State Pension earnings affect the level of award.

There was also mixed evidence as to how effective signposting was, and the level of awareness that carers have of other benefits or sources of support that may be available to them. Some carers reported that they had not been in contact with a social security agency in years, and were unaware of the support available.

Considerations based on the evidence gathered during this research are:

• Continue efforts to improve awareness of rules around eligibility and earnings. Specifically:
  • Clearer communication with older carers who may be at or approaching state pension age, to improve awareness and understanding of underlying entitlement.
  • Better promotion of Carer Support Payment, its purpose, who can apply, and how it interacts with other benefits.