Disability benefits evaluation - case transfer: qualitative research - annex A

3. Case transfer process

This chapter focuses on clients’ experiences of the case transfer process, from initial awareness that their disability benefit would move from the DWP to Social Security Scotland, through to finding out that the transfer was complete. It draws on evidence from discussions with clients transferring from DLAC, PIP and DLA, and from staff who worked on transfers. The findings are presented in chronological order to reflect clients’ experiences as they went through the process. The chapter also covers the relevant short- and medium-term outcomes set out in the logic model.

This report discusses experiences of the transfer and first review with Social Security Scotland separately as these are two distinct processes (see Overview of the case transfer and review processes). However, it is important to note that the clients interviewed for this research did not necessarily see a clear distinction between the two processes, particularly when their transfer had been triggered by a change in circumstances. It was therefore not always clear whether a client was talking about an event during the transfer process or an event during the review process. Only findings which were clearly about the transfer process are covered in this chapter.

Key findings

• Letters from Social Security Scotland were generally felt to be clear, although clients’ accounts indicated mixed levels of understanding of the transfer process, particularly around change of circumstances.
• Clients reported that their payment was continuous during the transfer process. However, there were reports of impacts on other benefits and support.
• The transfer was seen as “safe and secure” in the sense of the correct payments being made at the correct time, although some clients felt it had taken too long.
• Communication between DWP and Social Security Scotland and clients was not always viewed as clear and consistent.
• Clients described Social Security Scotland staff as friendly and helpful, although there were frustrations about long waits to get through to speak to staff.
• Clients had a positive, or neutral view towards Social Security Scotland when the transfer was complete, and level of trust in the agency was generally higher than with the DWP.

Findings on initial contact about the transfer

The intended outcomes most relevant to this stage in the process include:

• Individuals understand what is happening and when.
• Individuals know who to contact for help and support.
• Individuals understand what they need to do (when appropriate) or are reassured that they don’t need to do anything.
• Individuals do not feel undue stress/anxiety about the transfer and review elements of the process.

Understanding the transfer process

Clients should receive an introduction letter from Social Security Scotland confirming that they have been selected for case transfer and detailing the process and timescales (see Overview of case transfer and review processes). Given the length of time that had passed between the beginning of the case transfer process and their research interview, it was not always possible to establish how clients had first heard about their transfer. However, among those who did recall this, there were two main routes: by letter from Social Security Scotland, or when contacting the DWP by phone about their benefit (this was usually DLA clients reporting a change of circumstances). Some clients who first heard from the DWP felt “surprised” or “taken aback” and wanted more information.

Some DLA clients had contacted the DWP and asked to transfer to Social Security Scotland because they had heard positive things about ADP and Social Security Scotland and felt that it would be a better alternative to PIP (which they thought they might be moved to at some point). One of these clients indicated that they had contacted the DWP in the hope that this would mean they transferred more quickly.

Social Security Scotland staff also reported instances of clients getting in touch about the case transfer before receiving an introduction letter, after learning about the transfer process elsewhere. In these circumstances, staff felt they had to provide a good deal of reassurance as these individuals had not yet received any written communication explaining the process.

Clients who had remembered receiving an introduction letter from Social Security Scotland generally felt this had been clear and informative. However, not everyone could recall the details included. Points that clients tended to remember included: that Social Security Scotland would be taking over payments; when this would be; and that they did not have to do anything. Receiving this letter seemed to reduce worries for some clients who had first heard about the transfer elsewhere.

Clients drew positive comparisons between the introduction letter from Social Security Scotland and correspondence from, in general, the DWP. They noted that the letter was written in plain English and that the pink and purple colours in the logo and in the ‘dignity, fairness, respect’ tagline made Social Security Scotland seem more approachable.

“…their [Social Security Scotland] logos and everything are quite bright and welcoming... the DWP seems very kind of tax like, very money orientated… Whereas this one seems a lot more personal to the fact that you need something to help your family.” (DLAC client)

Staff also felt that the introduction letter from Social Security Scotland was informative, but they recognised that not all clients fully understand the information provided. For example, Social Security Scotland receives queries about issues such as payment dates, which are mentioned in the letter. Staff suggested that the length of the letter makes it difficult for some clients to pick out important information.

A few clients reported they had not received an introduction letter from Social Security Scotland. A staff member indicated that client information held by the DWP (such as an address) can be out of date which means some clients do not get an introduction letter and only become aware of the transfer some time during the process or once it has happened. In these cases, staff suggested that clients were generally content because their payments had continued as normal. However, one client suggested that this had contributed to them feeling “helpless” and “in limbo” about the process because they did not know how long it would take. However, other clients also expressed anxiety about the process despite receiving initial communication.

In terms of improving initial communication, one client suggested it would have been helpful if the DWP had explained what would happen during the transfer as they did not have any experience of Social Security Scotland.

Clients reporting a change of circumstances were annoyed that they had to wait until the transfer was complete before their award could be reviewed. This was because, in most cases, the reason for reporting a change was because their health condition had worsened and they expected their entitlement to increase.

Staff received calls about this and described having to provide reassurance that payments would be backdated (although not all staff were aware of guidance on backdating, or were confident it was understood across the agency. This is discussed further in Chapter 6: Staff experiences of the case transfer and review processes ).

Client frustration around reporting a change of circumstances was exacerbated by what they perceived as miscommunication between the DWP and Social Security Scotland. For example, a DLA client who informed the DWP that their condition had changed was told that they would need to apply for PIP, even though they could not do this as they lived in Scotland. Another DLA client said that they told the DWP in 2021 that their condition had worsened but was advised to wait to until the transfer to Social Security Scotland to report this. However, the transfer did not happen until 2023 and Social Security Scotland would not take the information in the meantime either.

Staff were also aware that the DWP had directed client queries regarding a change of circumstances to Social Security Scotland, despite the latter not being able to deal with this until the transfer is complete. However, it was suggested that guidance on this point was not clear; one Social Security Scotland staff member said that their colleagues had been taking change of circumstances over the phone which the staff member understood was not in line with policy. Another staff member felt that the client experience could be improved if Social Security Scotland were able to accept a change of circumstances from the DWP, rather than having to process this for the first time during the review.

Where a change of circumstances happens during a transfer, staff suggested that clients generally do not know who they should report this to. Some clients indicated they had reported changes (other than those that had triggered the transfer) to Social Security Scotland, however, it was not clear during interviews whether this occurred during the transfer or review, which was linked to clients not seeing a distinction between the two processes.

Initial feelings about the process

Some clients were more positive than others about the prospect of their benefit being transferred from the DWP to Social Security Scotland. Where clients felt particularly positive, they linked this with negative experiences of dealing with the DWP and a hope or expectation (sometimes grounded in what they had already heard from others) of being treated better by Social Security Scotland.

“…from what I’ve heard about their ethics that they were going to use, I just felt that it would be a better process” (PIP client)

“Hopeful, is probably the word I would use to describe it. Hoping that it wouldn’t be the same as dealing with the DLA [DWP], which was non communicative.” (DLA client)

Where clients reported more negative initial feelings about the prospect of the transfer, this tended to be linked to concerns about what the process would be like, or the about the prospect of change in general, rather than negative views of Social Security Scotland. Clients were worried about how long the process would take, whether they would have to be reassessed and complete paperwork, and about the possibility their benefit would be reduced or stopped entirely.

“I was a bit worried that they [child] might have to be reassessed and that that might be a lengthy process and that he might get a different amount [of benefit]” (DLAC client)

Staff had a perception that DLA clients, in particular, are looking for reassurance about the process because they tend to have been on that benefit for many years and are not used to changes to it.

Awareness of help and support

Clients recalled that the introduction letter from Social Security Scotland included sources of further information and support. However, they had not generally sought this out as they felt the information provided in the introduction letter was enough. One exception was a client who mentioned that they could not find a phone number to speak to anyone directly about the transfer process. Another client, who said that they had not received an introduction letter, had contacted Citizens Advice Scotland for support.

However, some clients did contact Social Security Scotland or the DWP during the transfer. This is discussed in the next section.

Findings on experiences during the transfer process

The intended outcomes relevant to this stage in the process include:

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

Overview of experiences of communication from Social Security Scotland and the DWP

Staff usually do not have to contact clients during the case transfer process, but this may happen in limited circumstances such as to confirm bank details or an address. Staff did not think clients generally minded this type of contact, as they are keen for their benefit to continue. However, staff felt there were some circumstances in which clients did not appreciate being contacted. For example, when they were asking for information that had not previously been required by the DWP, such as evidence of a child’s nationality.

“It’s embarrassing having to contact the client about this when they’ve been with [the] DWP for years and years and years, and we’ve told them that this will be a seamless process – so they’re asking ‘why is this an issue now?’” (Staff)

It was therefore uncommon for clients to report being contacted by Social Security Scotland during their transfer. There was a call from clients for regular progress updates from Social Security Scotland and/or a tracking system where clients could check progress themselves. This would help reduce anxiety and uncertainty about whether the transfer was progressing. Where a client reported receiving pro-active updates from Social Security Scotland (which was exceptional), they very much appreciated this.

Some clients had contacted Social Security Scotland themselves to request updates on their transfer or on their change of circumstances (which reflects some confusion about that process, as discussed earlier). Clients who had initiated contact themselves reported long waits to get through to Social Security Scotland by phone or through webchat. Long waits caused particular issues for clients whose ability to make calls is affected by their condition or treatment (for example, where it is dependent on their medication cycle), and for those who have limited time during the working day. Clients felt it would be helpful if the call holding system provided clients with an indication of the queue length and likely wait times.

“A couple of times I tried to phone, and it was 20 minutes, half an hour and my medication kicked in and I couldn’t wait any longer, I had to go to sleep.” (DLA client)

In spite of frustrations around wait times to speak to staff, clients were very positive about their interactions with Social Security Scotland staff who were described as friendly and helpful. At times this was contrasted with experiences of contacting the DWP.

“The majority of the time when I’ve gotten through to someone at Social Security Scotland they really listen and they are non-judgmental. Sometimes with the Department for Work and Pensions their phone manner is not as great.” (DLAC client)

None of the clients interviewed for this study mentioned being contacted by the DWP in relation to their disability benefit during their transfer. However, some clients reported receiving letters from them in error to say that their Carer’s Allowance had been or would be stopped (the impact of which is discussed later in this chapter).

In addition to the perceived miscommunication between the DWP and Social Security Scotland on change of circumstances (discussed earlier in this chapter), one client reported that there had been a communication error regarding completion of the transfer; the DWP had told them their child’s case had been transferred but they found out this was not the case when they contacted Social Security Scotland. The frustrated client then had to get back in touch with the DWP.

Feelings during the process

Clients experienced the transfer process as “safe and secure” in the sense that those interviewed did not report any issues with their DLA, DLAC or PIP or payment during the transfer. That said, staff were aware of some payment issues, (discussed in Chapter 6: Staff experiences of the case transfer and review processes). While clients did not report missing out on any payments, some clients were anxious about a change in their payment day from Tuesdays to Wednesdays, including one client who felt they had lost a day’s payment without explanation.

However, while the transfer process had been experienced as ‘safe and secure’ in terms of the benefits that were transferred, clients did report issues with other benefits or support. For example, there were cases where the DWP had stopped, or said they were going to stop, parents’ Carer’s Allowance because they were no longer in receipt of DLAC.

“I got a letter from the Department of Work and Pensions to tell me that my Carer’s Allowance was due to stop…when I phoned them, they were like, ‘oh no, it is fine, we can see in the background that it is going to move over to Scotland, we just haven’t updated the system yet’ but you can imagine, I was like, ‘oh my God, they can’t stop my Carer’s Allowance’. I’m dependent on that money to pay for electricity and things, because I can’t work full time.” (DLAC client)

Some clients also reported issues with Motability vehicles and Blue Badges relating to their case transfer. Staff were also aware of these issues (discussed in the next chapter). For example, one client noted that, because they did not have a letter confirming the date that Social Security Scotland would begin paying CDP, their Local Authority could not approve an application for a Blue Badge because it looked as if their entitlement had ended when the DWP stopped paying DLAC. Another client described how they were not able to renew their Motability vehicle during the transfer, which in turn had affected their “faith” in Social Security Scotland.

“I applied for a new vehicle and Motability turned round and said that Social Security Scotland had suspended my payment. So, I was on the phone to them, and they were basically saying, ‘no, it is fine at our end’. But I went back to Motability and they tried it again, it wasn’t going through. So, it took over a week and a half to try and sort out. In that time, I couldn’t order a car and I was desperate for a car. So, that part wasn’t a success, it was a very stressful time.” (DLA client)

Overall, there were two contrasting experiences when it comes to how clients felt during the transfer process. One group of clients did not report any points of concern during the transfer. This tended to be those who did not experience any issues during the transfer and felt that there had been enough communication from Social Security Scotland to inform them of what to expect. On the other hand, clients who felt they had not been kept up to date about the progress of their transfer, or who had experienced issues with other benefit payments, reported feeling anxious and worried.

Findings on completing the transfer

The intended outcomes relevant to this stage in the process include:

• Individuals understand what is happening and when.
• Individuals understand what they need to do (when appropriate) or are reassured that they don’t need to do anything.

Understanding the transfer outcomes and next steps

Once the transfer is complete, clients should receive a transfer outcome letter from Social Security Scotland with details of their ADP or CDP award and next steps. Some clients had first found out that their transfer was complete when they noticed the name on payments on their bank statement had changed. It was not always clear whether these clients had received an outcome letter.

Some clients noted that the outcome letter contained information about informing other agencies about the change to ADP or CDP. However, they were not always clear on the process for doing this. One client commented that they would have preferred to know what they definitely did, or did not, have to do in this regard. Clients who had informed other agencies had not generally experienced issues around this. However, some clients felt that it should not be their responsibility.

“…the council don’t care whether or not I’m getting PIP or Adult Disability Payment, so I found that quite arrogant and quite annoying, because I’m not going to take time trying to get through to all these telling them when it is not even important…they [Social Security Scotland] should be telling the relevant agencies if it is appropriate, don’t be putting it on to disabled people and asking them to do it.” (PIP client)

Feelings once the transfer has concluded

Clients reported feeling positive about completion of the transfer, reflecting general relief that the process was complete, and/or relief that they no longer had to deal with the DWP. Those whose transfer was triggered by a change of circumstances were pleased that completion of the transfer represented a step forward towards their change of circumstances being considered and, they hoped, receiving increased benefit support.

“Relief. Pure relief because I knew everything had been sorted. Nothing to worry about.” (PIP client)

Clients were not always clear how long their transfer had taken: some could not recall whether or when they had received the initial communication about the process, others did not distinguish between the transfer and review elements. Among those who were reasonably clear that it had taken three or four months, there were different views on whether or not this was an acceptable length of time. Some (DLA clients in particular) felt that this was too long, whilst others were content with this, or even felt that it had seemed a quick process. DLA clients’ unhappiness was related to the delay in their change of circumstances being reviewed (which could only happen once the transfer was complete).

Where clients were content with the length of the transfer, the main reasons were: that they felt it had been a smooth process and they had continued to receive their payment throughout; that they understood Social Security Scotland was dealing with a new process so gave them some leeway even if there were problems; or that they were used to waiting a long time for benefit issues to be dealt with and had therefore not expected it to be a particularly quick process. PIP clients tended to be very positive about their experience of the transfer, which seemed to reflect their negative experience of the DWP.

Overall impact of the transfer process on views of Social Security Scotland

The intended outcome relevant to this section is:

• Individuals develop a positive relationship with Social Security Scotland

Before starting the case transfer process, clients generally reported having either a positive or neutral view of Social Security Scotland. Those who were aware of Social Security Scotland before beginning the case transfer process had heard of them via media coverage, through claiming other benefits with them, or from acquaintances who worked there. These clients tended to have a positive initial impression of Social Security Scotland. More generally, clients were positive about the principle of devolving benefits to a Scottish agency: this was a view expressed both by clients who were aware of Social Security Scotland before their transfer and those who were not. Client views on Social Security Scotland generally did not change from positive or neutral over the course of the transfer process. However, one client noted that their level of trust in Social Security Scotland had decreased slightly due to a lack of updates on progress.

All clients who were asked indicated that they were positive or neutral about having moved to ADP or CDP and being with Social Security Scotland. DLA clients tended to use more positive, emotive language in expressing how the transfer had impacted them – as shown in the following quote.

“I feel that I’m less likely to suddenly get a letter through the door saying it is all going to stop…they were really good and treated me like a human being, which is great, and I’ve never had that…a feeling of being a person when I’ve spoken to the DWP.” (DLA client)

Amongst clients who had not yet had a review, there was cautious trust in Social Security Scotland. The reasons mostly relate to a contrast in experiences with the DWP. These included: a sense that the transfer had gone smoothly; that staff are friendly and helpful, and therefore easy to contact; that the Social Security Scotland does what it says it will; support for the devolution of disability benefits in principle; a feeling that benefits are less likely to be stopped; and that there is greater prospect of being awarded further support. Overall, Social Security Scotland was viewed as much more person-centred than the DWP.

“…they [Social Security Scotland] have always been straight up, upfront, forthright, been very, very, helpful and if things are going wrong, they will go out and help you, and tell you what has gone wrong and why it has gone wrong, and they speak plain English…When they say they’re going to do something, they do it.” (DLAC client)

Clients who were more neutral tended to say that they did not feel any different following the transfer, that they felt that their new benefit was ‘just the same thing with a different name’, or that they were happy as long as their benefit payment continued.

Case transfer policy commitments

This chapter concludes with a summary of experiences in relation to the policy commitments outlined in the logic model.

Policy commitment: Correct payment made at the correct time

Summary of client experiences: No clients reported that their disability benefit payment was disrupted during the transfer process.

However, there was a report of Carer’s Allowance being temporarily stopped by the DWP because the client was no longer in receipt of DLAC (and other cases where clients received notification that it would be stopped although they were able to sort out the issue before this happened).

Policy commitment: No re-applications

Summary of client experiences: Clients were relieved that this would not be required as part of the transfer to Social Security Scotland.

Policy commitment: No face-to-face DWP reassessments

Summary of client experiences: No clients reported having a face-to-face DWP reassessment

Policy commitment: Complete as soon as possible while maintaining “safe and secure”

Summary of client experiences: The transfer was seen as “safe and secure” in the sense of the correct payments being made at the correct time although some clients felt it had taken too long.

Policy commitment: Clear communications with individuals

Summary of client experiences: Letters from Social Security Scotland were generally felt to be clear, although clients’ accounts indicated mixed levels of understanding of the transfer process, particularly around change of circumstances.

Communication between the DWP and Social Security Scotland and clients was not always viewed as clear and consistent.