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

2. Methodology

This chapter provides an overview of the evaluation approach for Phase 1 of the Carer Benefits evaluation. It introduces the approach, logic models, and research questions and summarises the different data sources used to evaluate the policy outcomes.

2.1 Overview of evaluation design and logic models

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.

2.1.1 Case transfer logic model

Short-term – process outcomes

• Individuals notified of intention to transfer, the process, payment schedule and/or any delays to this (e.g. extension to process) and reasons for this
• Determinations made with no need for re-application
• Determinations made within the period set out in the intention to transfer notice
• Value of award is transferred on a like-for-like basis
• DWP appointees continue until reviewed
• Individuals are signposted to other benefits, support and services for carers

Short-term outcomes

• Individuals do not feel undue stress/ anxiety about the transfer process
• Experience of the process is in line with dignity, fairness, and respect
• Individuals feel throughout that the transfer is safe and secure (i.e. the right amount is paid on time and other benefit entitlements are not affected)
• Individuals understand what is happening and when
• Individuals know who to contact for help and support
• Individuals understand when they will be paid, what they need to do and who they need to contact (when appropriate) or are reassured that they don’t need to do anything

Medium-term outcomes

• Individuals feel that they have a positive relationship with Social Security Scotland
• Individuals feel treated with dignity, fairness and respect by Social Security Scotland
• Individuals understand what happens next
• Individuals are aware of the benefits, support and services available to them

Long-term outcomes

• Trust in Social Security Scotland increased
• There are open and effective communications between individuals and Social Security Scotland
• Individuals understand their responsibilities and feel more comfortable about reporting a change in circumstances
• Public services treat people with dignity and respect

2.1.2 Carer Support Payment logic model

Short-term – process outcomes

• The process of applying for and receiving Carer Support Payment is as accessible as possible
• Signposting is provided to other support and services that are available for carers
• Payments are administered well

Short-term outcomes

• Individuals understand rules around eligibility and earnings, and the application process
• Individuals’ applications are handled quickly
• Individuals are aware of the benefits, support and services that are available to them
• Individuals understand how to challenge a determination, and are clear on process and timings for re-determination decisions
• Individuals feel that they have been treated with dignity, fairness and respect by Social Security Scotland
• Individuals understand entitlement rules for claiming backdated payments and the processes around this

Medium-term outcomes

• Individuals who are eligible take up the benefit and get all of the support they are entitled to
• Individuals experience stability of support
• Individuals are able to access wider support services external to Social Security Scotland
• Individuals are able to access opportunities outside of caring e.g. for education and employment
• Individuals feel that they have a positive relationship with Social Security Scotland
• Individuals feel that Carer Support Payment provides recognition of the caring role they provide

Long-term outcomes

• The take up of benefits is maximised
• Poverty is reduced
• Public services treat people with dignity and respect
• Trust in Social Security Scotland increased

2.1.3 Long-term outcomes and the National Carers Strategy

The long-term policy impacts for both case transfer and Carer Support Payment will take time to determine and may require access to robust quantitative data that is not currently available. These will be affected by a range of interventions in addition to the carer benefits, making it difficult to measure and attribute changes specifically to these benefits. However, achievement of short-term and medium-term policy outcomes could reasonably be expected to contribute to these wider outcomes.

Once research and analysis is complete for both Phases 1 and 2, a final synthesis of data from the evaluation will link research findings to the National Carers Strategy. These will be explored in the overarching report that will conclude the Carer Benefits Programme of Evaluation and are not included in long-term outcomes of the individual logic models here.

2.2 Evaluation questions

Below are the research questions that informed the evaluation design.

2.2.1 Case transfer research questions

• How well do individuals understand the case transfer process, including what happens when and what they should do if they need help or support?
• During the transfer process, were individuals signposted to relevant support available for carers?
• What is working well within the case transfer process, and what can be improved?
• What short-, medium- and longer-term impacts did the case transfer experience have on clients?
• Has the case transfer process been executed in line with policy principles and those of Social Security Scotland i.e. dignity, fairness and respect?

2.2.2 Carer Support Payment research questions

• Do applicants understand the application process and their options for appealing decisions through re-determinations and appeals?
• Do applicants understand different elements of Carer Support Payment, such as rules around eligibility and earnings?
• What is the experience of individuals applying for Carer Support Payment? For example, ease of application, speed of decision-making, accessible options during application.
• During the application process, were individuals signposted to relevant support available for carers?
• Do individuals applying for Carer Support Payment understand the rules and processes around the backdating of payments?
• Is Carer Support Payment being delivered in line with policy principles and those of Social Security Scotland i.e. dignity, fairness and respect?

2.3 Summary of data sources

In accordance with the evaluation strategy, the evidence used in this report has been drawn from multiple data sources. Data sources that are used extensively are described below. Other sources that are used less frequently are named and cited in the findings section.

2.3.1 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 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. The interviews explored individual experiences of the case transfer or application process, and allowed more in-depth detail of individuals’ understanding of rules and eligibility, processes and what the impacts of case transfer or receiving Carer Support Payment have been.
• 3 interviews with organisations who support carers (for example, with benefit applications).
• 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.

The full commissioned research report from The Lines Between, with more detailed findings and further methodological information including demographics of participants, is available at Annex A (published separately).

2.3.2 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

Please also note the following technical points about how Official Statistics from all of these publications are presented throughout this report:

• Figures may not sum because (a) they have been rounded for disclosure control and/or (b) cases where information on applications or applicants are unknown have not been presented
• Most results are presented to zero decimal places. ‘0%’ should therefore be interpreted to mean less than 0.5%. If no responses were given then this is denoted by ‘-’.

2.3.3 Social Security Scotland Client Satisfaction Survey

Data is used from the annual Social Security Scotland Client Satisfaction Survey 2024-25. Responses from two groups are used:

1) Case transfer: clients who had their award transferred from Carer’s Allowance to Carer Support Payment.

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.

The Client Satisfaction Survey collects equalities and socio-economic information from respondents and asks about their experiences of Social Security Scotland, including applying for and receiving benefits. The Client Satisfaction Survey data is therefore useful for examining the immediate process outcomes from the logic models for both case transfer and Carer Support Payment, and some short-term outcomes.

Unless stated otherwise, in the sections of this report covering the case transfer outcomes, ‘Client Satisfaction Survey respondents’ refers to clients who have had their award transferred and responded to the Client Satisfaction Survey. These results are based on an analysis of 4,214 responses collected between April 2024 – March 2025.

In the sections covering Carer Support Payment outcomes, ‘Client Satisfaction Survey respondents’ refers to clients who have made an application for Carer Support Payment and responded to the Client Satisfaction Survey. These results are based on an analysis of 729 responses collected between April 2024 – March 2025.

The analysis for both sets of respondents included:

• Frequency analysis, to show how all respondents answered select questions
• Crosstabulation analysis, to show how different subgroups of respondents answered identified questions in the survey

Please note the following technical points about how the Client Satisfaction Survey findings are presented throughout this report:

• The number of respondents providing a valid answer to each individual question/statement varied. Results do not include respondents who skipped or answered ‘not applicable/don’t know’ to the question/statement
• Most results are presented to zero decimal places. ‘0%’ should therefore be interpreted to mean less than 0.5%. If no responses were given then this is denoted by ‘-’
• Results denoted by ‘#’ have been suppressed due to disclosure control
• Due to rounding of figures results in tables and graphs may not equal 100%

In addition to the annual report, the following Client Satisfaction Survey publications are also referenced:

• Client experiences of re-determinations, appeals and complaints 2024
• Client Survey: Experiences of the Case Transfer process (October 2024 - March 2025)

2.4 Limitations

This section explains what can and cannot be determined from the available data sources, and how this influences the extent to which conclusions can be drawn about the case transfer process and impact of Carer Support Payment.

Commissioned research

The evaluation is largely based on findings from mixed-methods research commissioned by the Scottish Government. The primary source of data from this is qualitative interviews, which were used to provide in-depth, detailed insight toward the experiences of clients who have had their carer benefit award transferred to Social Security Scotland, and Carer Support Payment applicants. Qualitative research is not designed to be generalisable and so these findings cannot be said to be representative of the general population of case transfer or Carer Support Payment clients.

Qualitative research was supported by information from the commissioned survey. However, it should be noted that the number of survey respondents was not large enough to allow sub-group analysis in most cases.

We cannot assume that the findings represent the views and experiences of all clients who receive carer benefits or had their award transferred. Findings from the commissioned research are based on clients’ perceptions and experiences of processes and impact, rather than objective measures. This is a common limitation of self-report research.

Social Security Scotland research

Although the results from the Client Satisfaction Survey provide insight into the views and experiences of a substantial number of Social Security Scotland clients, it should be noted that this represents only a small fraction of the total Carer Support Payment recipients.

Both the Client Satisfaction Survey and the commissioned research rely on clients opting into the research. This may bias the sample towards those more willing or able to take part in research.

Many participants in the both the commissioned research and Social Security Scotland surveys have previous experience of Carer’s Allowance and may also receive other benefits. This means that there is the possibility that some clients may have been basing their responses to questions on their experience of that benefit rather than Carer Support Payment. However, questions during the research were designed to be as specific as possible to minimise any confusion, and the focus and purpose of the research were clearly outlined by the research team in advance.

Medium and long-term outcomes

This first phase of the evaluation of Carer Support Payment is focused on the immediate (short-term process) and short-term outcomes. The second phase of the evaluation will consider the medium-term outcomes in more detail.

Another step toward understanding the impact of the devolved carer benefits (Carer Support Payment, Young Carer Grant and Carer’s Allowance Supplement) will be to consider how outcomes from these benefits contribute toward long-term goals within the National Carers Strategy. This will be assessed within the final report of the Carer Benefits Programme of Evaluation

However, understanding the long-term impact of the carer benefits would also require suitable time to have passed, and would involve isolating the influence of the benefits from other contributing factors, such as wider social security benefits and other Scottish Government and civil society support for carers.

2.5 Research Advisory Group

A Research Advisory Group (RAG) was formed in early 2025 to guide and support key decisions in the delivery of the evaluation, to ensure it achieved its aims and objectives. The RAG membership consists of Scottish Government and Social Security Scotland analysts, Scottish Government policy leads and representatives from carer stakeholder organisations. The RAG members offer a range of perspectives from subject and methodological experts, helping to refine the research plan and provide feedback on interim findings. The group convened twice between April and September 2025. The RAG will continue to advise the evaluation throughout the second phase of research.