Disability benefits evaluation - case transfer: evaluation

Introduction

The Scotland Act (2016) devolved some social security powers to the Scottish Government for the first time, including disability and carer benefits. Social Security Scotland, the organisation responsible for the delivery of these benefits, was set up in 2018 and the programme of devolution is expected to be completed by 2025/26. Case transfer is the process of transferring existing benefit cases from the Department for Work and Pensions (DWP) to our own agency, Social Security Scotland. This is a major element in the programme of devolution and will see more than 700,000 disability and carer benefit awards transferred from DWP to Social Security Scotland.

Within scope of the evaluation considered here this includes cases transferring from/to:

• Disability Living Allowance for Children (DLAC) to Child Disability Payment (CDP)
• Personal Independence Payment (PIP) to Adult Disability Payment (ADP)
• Disability Living Allowance (DLA) to Adult Disability Payment (ADP)

Case transfer timeline

The case transfer process began in October 2021 with people in receipt of DLAC being the first to have their cases transferred. A phased approach has been taken to the transfer of cases within the different benefits. The selection and prioritisation of cases is summarised in Figure 1 and in the following explanatory text^[1]:

Figure 1: Case transfer timeline by type of transfer

Start dates for different types of transfer

• October 2021
  • DLAC to CDP, Clients aged 15.5+ to 17
• Spring 2022
  • DLAC to CDP, Clients aged <15.5
• August 2022
  • PIP to ADP: Natural case transfer
  • DLA to ADP: Natural case transfer
• September 2023
  • PIP to ADP: Managed case transfer

‘Natural case transfer’ refers to the situation in which certain circumstances trigger the selection for transfer. For PIP to ADP, this trigger could be based on clients reaching end of award review date, nearing end of their award, or reporting a change in health condition. For DLA to ADP, the transfer could also be triggered by clients requesting to be transferred.

‘Managed case transfer’ refers to the situation in which cases are selected for transfer based on a set of prioritisation criteria. For PIP to ADP this is based on review date with those with review dates furthest in future being selected for transfer first. As highlighted in Figure 1 above, for DLAC to CDP this was based on age, with oldest clients having their awards transferred first.

Case transfer journey

There are some aspects of the case transfer journey that will differ according to the benefit being transferred from/to. However, the key steps are highlighted below:

Figure 2: Overview of key steps in case transfer journey^[2]

Step 1: An introduction letter to client detailing the process and timescales.

Explains that any change in circumstances during the transfer process

should be reported to the DWP.

Step 2: Typically takes 13 to 17 weeks. Information is sent from the DWP to

Social Security Scotland. Additional information may be sought from

individual if not available from the DWP.

Step 3: Transfer made on a like for like basis to match previous award. No

individual will receive less at the point of transfer. Some may receive more.

DLA to ADP clients receive a transitional rate of the daily living component

to match previous award.

Step 4: Award letter detailing the start/end date of old award; payment

award and dates; and how to request re-determination/appeal. Accessible

vehicle agreements transfer on the same basis with provider notified by

Social Security Scotland. Clients are told to update providers of any other

passported benefits. DLA to ADP clients provided with a review form and

review of the award is undertaken under usual ADP rules.

Step 5, PIP to ADP: If a change in circumstances reported during transfer, review process begins. Case manager will start review as soon as possible.

Step 5, DLAC to CDP: Review date is set, based on when client’s needs will change, typically in line with date set by the DWP. Range between 2-10 years. If unlikely to change, between 5-10 years. Review is light touch. Clients approaching age of 18 will be invited to apply for ADP.

Evaluating whether the case transfer process has been implemented as intended and the associated impact forms a key strand of the devolved disability benefits evaluation strategy. The review of clients’ cases that takes place following case transfer is also associated with certain policy commitments. In order to capture a full understanding of the case transfer process, this first review has also been considered as part of the evaluation. In addition, feedback from clients as part of this and previous User Research indicates that clients often do not make a distinction between these two elements therefore it seems appropriate to consider both as part of the clients’ overall experience.

Policy commitments for the case transfer and review processes are discussed below.

Case transfer^[3]

1. Correct payment made at the correct time

Research and engagement work to develop these principles found that the most important case transfer principle to stakeholders was that people continue to receive the correct payments 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.

2. No re-applications

People also told Scottish Government that re-applying for benefits is stressful. Research^[4] with Social Security Experience Panels found that not needing to re-apply for benefits was a high priority. In that research, one respondent noted "the most distressing experience for claimants is reapplying for benefits they have already qualified for".

3. No face-to-face DWP-style reassessments

Client feedback on reassessments informed this principle. In the Experience Panels research^[5], one respondent wrote "everyone fears face to face meetings. It causes unnecessary stress, worry and anxiety that could be completely avoided with a good application system." Scottish Government therefore select all PIP and DLA cases for transfer before the person would be required to have a face-to-face assessment with the DWP.

4. Complete as soon as possible while maintaining “safe and secure”

Most respondents to the Experience Panels research^[6] wanted cases transferred from DWP with a balance between speed and making sure there are no mistakes. One respondent said, "I would like to see the transfer done as fast as possible, but not if it means there could be issues with payments".

5. Clear communications with individuals

People want to know what’s happening to their benefits and when. We communicate with people throughout the transfer process.

Reviews

• Reviews, where required, are right first time
• Reviews, where required, are undertaken in line with relevant policy commitments^[7]

Evaluation aims

The Scottish Government published its approach to evaluating the devolution of disability benefits in October 2021. Taking a thematic approach across the key areas of policy change, the overarching aim of the evaluation programme is to understand how the disability benefits have been implemented and what effects this has had, for whom and why.

The initial priority for the devolution of disability benefits has been on ensuring that clients transition safely and securely from the DWP to Social Security Scotland and that they continue to get the right payments at the right time. Given the priority of this safe and secure transfer, the evaluation of the case transfer process is critical for understanding how these initial commitments have impacted on clients’ experiences and outcomes.

There are some key features of this case transfer evaluation to note:

• It focusses on the experiences and outcomes of clients with awards transferring from DLAC to CDP and those with awards transferring from PIP or DLA to ADP^[8].
• It largely covers the period of April 2022 to July 2023.
• It considers both the experience of the case transfer process and, where one has taken place, the initial review undertaken by Social Security Scotland post-case transfer.

Report structure

This report is structured around the short-, medium- and long-term outcomes of the case transfer process described in the logic model. A description of the methodology underpinning the evaluation is provided in the next chapter. The report ends with an overview of the key findings alongside recommendations for policy and practice.