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

1. Introduction

This section provides an overview of the Carer’s Allowance case transfer process, and introduces Carer Support Payment, its aims, and eligibility criteria. This section also provides an overview of the evaluation aims.

1.1 Case transfer overview

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 (described in more detail in the following section). 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 case transfer from Carer’s Allowance to Carer Support Payment began in February 2024, as part of the broader devolution of benefits from the 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^[2], with Social Security Scotland managing the payments.

The transfer process was designed to ensure continuity of support, with no gap in payments and no need for reapplication. The typical case transfer client journey for Carer’s Allowance to Carer Support Payment is outlined below:

1. The case is selected for transfer. An introduction letter is issued to the client to notify them and explain the transfer process.

2. The transfer process takes place (transfer window is 13-17 weeks).

3. Transfer determination is made, where the outcome letter is issued.

The process 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^[3]. These are:

• Correct payment made at the correct time – The money that people receive from their benefits is important and not receiving a payment on time could cause financial difficulties. The case transfer process has been designed to ensure that people receive the right payments at the right time. This includes checks at the point of transfer, and that clients receive the same amount in Carer Support Payment as Carer’s Allowance.
• No re-applications - Clients are not required to re-apply for their benefit as part of case transfer. Social Security Scotland work with the DWP to move clients’ awards automatically to the Scottish social security system and the corresponding new Scottish benefit.
• Complete as soon as possible while maintaining “safe and secure” – The transfer process was planned to complete as soon as possible while avoiding any unacceptable risks for clients.
• Clear communication with clients – Social Security Scotland tell clients the date their case will be transferred and keep them informed at the various stages of the case transfer process.

1.2 Carer Support Payment overview

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 04^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, and 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.

To avoid creating a two-tier system which would disadvantage carers already receiving Carer’s Allowance, and to ensure their benefits could be transferred safely and securely, Carer Support Payment has been designed to largely mirror Carer’s Allowance initially.

To be eligible, individuals must provide care for at least 35 hours per week and earn no more than £196 per week on average (after deductions).^[4] The person being cared for must receive specific disability benefits.

Eligible carers can receive £83.30 per week,^[5] 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 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 to those eligible on the two qualifying dates per year.

Carer Support Payment is one of the more complex benefits devolved to Social Security Scotland in terms of its links with other benefits, including many delivered by the DWP. As an income-replacement benefit it is treated as income for assessing entitlement to means-tested benefits, and it can’t be paid in full at the same time as other income-replacement benefits, including State Pension.

While it is similar to Carer’s Allowance, Carer Support Payment differs in several key ways, including:

• A reduced ‘past presence’ test, with exemptions for some carers
• Revised rules for carers in full-time education. Carer’s Allowance is not available to anyone studying full-time or for more than 21 hours or more per week, while Carer Support Payment is available to those aged 20 or over studying full-time at any level, and those aged 16-19 studying full-time advanced education, or non-advanced education in certain exceptional circumstances
• Signposting to wider support across communications for clients
• Different approaches to earnings assessment
• Use of temporary stops in entitlement instead of suspensions or ending support to reduce the need for reapplications and provide improved rights to challenge decisions.
• 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 improvements include:

• An additional payment for carers who care for more than one person
• Extended payment periods following the death of the cared-for person, from 8 to 12 weeks
• Replacing Carer's Allowance Supplement with Scottish Carer Supplement for most carers^[6], removing the two qualifying dates per year. Instead, it will be paid automatically with Carer Support Payment based off weekly eligibility.

1.3 Evaluation aims (Carer benefits evaluation)

The devolved social security benefits represent an ambitious agenda for changing the benefit support that is made available to the people of Scotland. This evaluation is part of a wider programme of work evaluating the policy impact of the devolution of benefits and more detail can be found in the published strategy.

Social security policy evaluations are one source of evidence that shows the contribution of benefits to delivering on the wider Social Security Principles and wider government objectives, particularly the effectiveness of policymaking processes, and whether social security has been an investment in people, helped to reduce poverty, and brought value for money.

1.4 Evaluation aims (Phase 1)

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.

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.

Phase 2 of the evaluation is underway and will examine 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.