Disability benefits: evaluation report

Findings

This chapter explores evidence from the data sources described in the methodology chapter to evaluate progress towards the short-, medium-, and long-term policy outcomes. Where there is overlap between different outcomes within the relevant section, these are discussed together.

Short-term outcomes

There are two types of short-term outcomes under evaluation in this report: short-term process, and short-term.

Short-term process outcomes refer to immediate actions taken by Social Security Scotland or the Scottish government in delivering a benefit or enacting policy commitments.

Short-term outcomes refer to immediate impacts that can be expected as a result of these actions. These will typically refer to the impact on individuals or clients that result from process outcomes.

The short-term process outcomes explored are:

• Guidance and communication about applying for ADP is clear and easily understood
• Case managers, client advisors and local delivery colleagues know how to support disabled people and their representatives effectively
• ADP payments happen at the time people expect them and on the same day they would ordinarily receive/expect to be paid CDP
• Application determinations happen promptly
• A rights-based and person-centred approach are embedded in the CDP-ADP process

The short-term outcomes explored are:

• Clients and their representatives understand the information about the process and the options available to them and what is involved in the application process
• Clients and their representatives are reassured that they will continue to receive CDP until they reach the upper age limit, regardless of the outcome of their ADP application
• Clients and their representatives who meet the criteria experience a straightforward journey from CDP to ADP that minimises anxiety and uncertainty about the process
• Clients and their representatives whose applications are unsuccessful understand the process, the reasons why their application was unsuccessful and their rights to a redetermination and appeal after their determination.
• Clients and their representatives feel empowered and in control of their benefits
• Clients and their representatives feel treated with dignity, fairness and respect.

Where we would expect short-term process and short-term outcomes to be related, they are explored together in the following section.

Guidance and communication about applying for ADP is clear and easily understood

Feedback from clients and formal representatives who took part in the research was generally positive about the guidance and communication they received about applying for ADP.

Nearly half of those who responded to the survey (45 per cent, 39) described the letters they received from Social Security Scotland as very helpful, while 32 per cent (28) reported they were quite helpful (Figure 1).

Clients and formal representatives who took part in interviews felt that the letters they had received were clear and helped them understand the process. This included giving them information on options about when and how to apply and what would happen to payments while the application was being processed. A few interviewees also stated that the language was clear and accessible.

“[The letters] were clear and concise… the information was very clear about what to do next and when they would be in touch.” (client/formal representative)

“[The letter is] nice and clear. I think the language used makes it quite user-friendly. It's easier to understand what the ask is… It explains exactly what you need to do, and the language used is pretty easily accessible.” (client/formal representative)

For some, the letters acted as a reminder that they needed to apply for ADP. A few parents who acted as adult appointees once their child turned 16 explained that receiving a reminder was helpful because they have busy, stressful lives, and could otherwise have forgotten.

“With all the pressures you're dealing with when you're looking after a disabled family member and trying to work at the same time, [the application for ADP] doesn't always stick at the top of your head. So that was the main thing that I found helpful about [the letters] was the prompt, and they were quite clearly written and easy to follow.” (client/formal representative)

One research participant stated that it was helpful to receive more than one letter, as it helped to ensure they remembered to apply amongst the other pressures in their life.

“I think with the Social Security [Scotland] letters, we didn't just get one letter; there were several, and when you're busy, particularly when you're looking after disabled family members[…] as well as working full-time. You don't always get to open your post straight away, or if you do you think right, I'll deal with that later and then, you know, so actually the fact that there was more than one, I think was really helpful.” (client/formal representative)

Some interviewees reported that they were unaware they had to apply for ADP before they received the letters. These interviewees thought they would automatically receive ADP without the need to apply. They said that the letters informed them in plenty of time that an application would be required.

“I didn't really think of it, to be honest. So when I got the letter, it was a bit like, oh wow, I didn't actually know. So it was quite helpful.” (client/formal representative)

“If I hadn't had the letter at all, [payments] would have stopped, and I wouldn’t have known why.” (client/formal representative)

Support organisation staff observed that applications are being submitted earlier since Social Security Scotland began sending the reminder letters. Over a quarter (27 per cent, three) had observed improved communications from Social Security Scotland about the journey from CDP to ADP due to the policy changes, while 64 per cent (seven) expected such an improvement.

Improving communications and information

Feedback about the Social Security Scotland letters was generally positive, but areas for improvement were highlighted in the survey and interviews.

Nearly a quarter of client and formal representative survey respondents (23 per cent, 20) said that the letters were not at all helpful. In addition, 37 per cent (29) called for more information about the process to make it easier, and 42 per cent (33) suggested clearer information about the process is required.

As noted above, a few clients and formal representatives praised the letters for their accessible and understandable language. However, some interviewees, including clients, formal representatives and support organisations, felt the letters could be improved by being clearer.

“I only came across by accident that you can apply from the age of 16 not 18. Yeah, so we didn't know at the time [after receiving the letters].” (client/formal representative)

Regarding the above quote, it should be noted that there is the possibility that, due to the sampling plan, some participants in this research underwent the process of moving from CDP to ADP from August 2022. At this time, information that CDP clients or their representatives could apply for ADP from the age of 16 was only available in general public-facing guidance such as on the Scottish Government website.

However, as part of Scottish Government’s commitment to continuous improvement, in early 2023, letters sent when a CDP client is 17 years and 6 months old began being sent and these include information on at what age they can apply for ADP. Also, since late 2023, CDP clients will now be sent an additional letter earlier containing information on when to apply, when they are 17 years and 0 months old. Furthermore, since June 2024, this information has been added to the appointee confirmation letter for CDP clients turning 16. Therefore, new appointees are now directly informed about the option to apply for ADP at an earlier stage.

Research participants, including clients, formal representatives and support organisations, identified aspects of the process that could be made more explicit in the letters. These were:

• That CDP payments will continue while the ADP application is processed.
• That CDP clients will not automatically be eligible for ADP.
• That the value of payments could increase with ADP

A small number of clients and formal representatives did not recall receiving any information from Social Security Scotland about applying for ADP. Though it is not known why this is, some interviewees acknowledged that they may have received the letter but did not fully understand its significance, or suggested that the letters may have gone missing in the post. In addition, a few clients and formal representatives said they received the letters just before their CDP payments were due to stop, which gave them little time to submit their application.

These examples, alongside the finding that some clients and formal representatives did not know they had to apply for ADP before they received information from Social Security Scotland, emphasise the importance of ensuring clients receive the information.They also indicate that considering other methods of delivery could be beneficial. One client said they would have preferred to receive information by email. It should be noted that since the fieldwork for this research was undertaken, clients (or their appointees) now receive a text message notification when the client turns 17 years and 11 months old as a last reminder to apply for ADP before they turn 18. This is in addition to the letters that are sent when the client turns 17 and 17 and a half years old.

Some clients and formal representatives recalled receiving conflicting or inaccurate information from Social Security Scotland. These interviewees emphasised the importance of being given clear and consistent information to reduce anxiety and uncertainty around the process.

“The first letter I got said that we didn't need to apply for it until she was 18, which was fine, and then I received another one that said you have to apply for it, and the way it was worded, it seemed if I didn't do it her money would stop, and I was confused… But when I looked into it I realised that you've got to apply for it. So I think the second letter maybe could have been a bit clearer.” (client/formal representative)

“We were told by the ADP department that we would have time until the 19th birthday and that CDP would continue until then, which it didn't.” (client/formal representative)

The evaluation fieldwork coincided with a key change in regulations to ensure the automatic extension of CDP to age 19 remained targeted at those who underwent case transfer close to reaching the upper age limit (to ensure this cohort did have sufficient time to make their ADP application). It is likely therefore that these interviewees were affected by this change. Since the fieldwork period, this issue has been addressed.

Clients and their representatives understand the information about the process and the options available to them and what is involved in the application process

There is mixed evidence that clients and their representatives understand the application process, their options and information about these.

Over two-thirds (68 per cent, 54) of clients and formal representatives who responded to the survey understood what was involved in applying for ADP while receiving CDP (Figure 2). Three-fifths (60 per cent, 46) strongly agreed or agreed they understood the options available about when to apply for ADP.

In interviews, clients and formal representatives generally reported they understood the process, including their options about when they could apply and what would happen to their payments while their application was being processed. However, some interviewees and survey respondents misunderstood aspects of the process, including when to apply, what age clients can receive CDP until, and what happens to payments after applications for ADP are submitted.

“I wasn't sure when we had to apply as no end date for CDP was available.” (client/formal representative)

“I wasn’t aware CDP runs till 18 now.” (client/formal representative)

“We were given the impression that we had to do it sooner than later to avoid there being a gap in benefits when my son turned 18.” (client/formal representative)

Support organisations provided similar feedback. Most (67 per cent, eight) said that, in general, their clients understand the process but are unsure about some aspects. A quarter (three) said their clients, in general, do not understand the process. For example, a few observed that some clients are unaware of what happens to CDP payments after submitting an ADP application.

“Clients can be concerned [CDP] payments will stop and are not sure when they will stop.” (support organisation)

During interviews, most clients and formal representatives were aware of the need to complete an application for ADP. However, some were unaware of this before they received letters from Social Security Scotland informing them that they would need to apply. These individuals had assumed they would automatically move on to ADP without having to submit any further information.

“I didn't know that I had to apply […] I don't think I was aware of it, and I didn't look into it.” (client/formal representative)

Support organisations also reported that some clients did not understand they have to apply for ADP, and that this had resulted in some experiencing a gap in their payments.

“Many clients simply don't understand that an application form needs to be completed. There seems to be a view that CDP should transition into ADP without a new form or need for supporting evidence.” (support organisation)

“Clients do not understand that they have to reapply for ADP and this results in a gap in payments where CDP ends and ADP begins.” (support organisation)

Uncertainty about the level of information to provide

Clients and formal representatives who took part in the research said that they would welcome more guidance on how much information to provide during the application process. Some clients said they were unsure how much detail was required, while formal representatives felt responsible for adequately communicating the needs of the young person they represent without providing too much information.

“When you're trying to fill these forms in, you're doing it on behalf of your child, so you're trying to make sure you're putting everything that they feel on a bit of paper. You’re trying to get them to be heard. It's not for you, it's for them […] is it relevant or not relevant, what do I put down?” (client/formal representative)

“It's quite difficult to answer some of the questions when it's about your own experience. It's sometimes hard to do it without playing it down.” (client/formal representative)

Differences in experience based on areas of deprivation

There is also limited evidence that suggests that there may be a link between deprivation and individuals’ experiences of the application process. Just over a third (36 per cent, four) of client and formal representative survey respondents who live in an area classified as belonging to the most deprived quintile of the Scottish Index of Multiple Deprivation^[8] (SIMD) (quintile 1) rated their overall experience of the application as good or very good, compared to 100 per cent (six) in the least deprived (quintile 5). Similarly, only 36 per cent (four) in SIMD 1 and 18 per cent (two) in SIMD 2 understood their options about when to apply, compared with 100 per cent (six) in SIMD 5. It should be noted that this is based on small sample sizes. The reasons for this are unclear from the survey responses, and no clear trends in qualitative themes on deprivation^[9] emerged during interviews.

Case managers, client advisors and local delivery colleagues know how to support disabled people and their representatives effectively

There is evidence that case managers, client advisors and local delivery staff^[10] know how to support disabled people and their representatives effectively. However, there are also indications that disabled people and their representatives still needed to access other forms of support during the application process.

Two-fifths (43 per cent, 34) of clients and formal representatives who responded to the survey said they felt supported through the application process. Nearly a quarter (24 per cent, 19) received help with their application from Social Security Scotland or another organisation, while 64 per cent (51) reported they did not need any help.

Just over a quarter of survey respondents (28 per cent, 24) said they received information and advice from Social Security Scotland or other organisations. Of the 24, 58 per cent (14) received general one-to-one or group advice and information, 42 per cent (10) received written information and 17 per cent (four) received advocacy support including help to liaise with Social Security Scotland.

Social Security Scotland support

Social Security Scotland staff who participated in the research provided positive feedback about the support, training and guidance they receive to help them assist clients and formal representatives.

Some clients and formal representatives provided positive feedback on the support they received from Social Security Scotland, commenting on how helpful this was in helping them understand the process and the information they had to provide. The option to receive support from Social Security Scotland at home via Local Delivery was specifically highlighted as helpful by some.

“A [Social Security Scotland officer] came out to the house… that was nice having somebody come out and explain to you face to face what's actually happening. They’ve been absolutely amazing, any queries, even the online chat rooms, they're always great, they're always able to tell you anything.” (client/formal representative)

A few support organisation respondents also provided positive feedback on the support provided by Social Security Scotland.

“Social Security Scotland has made the process easier via Local Delivery and third sector support with forms and contacting GPs to obtain supporting information.” (support organisation)

Support delivered by other organisations

Some clients and formal representatives described accessing support from other areas when completing their applications. A few spoke about the value of support from local authority staff and third sector organisations. This included explaining the process and practical help to complete the application.

“[A worker from a third sector organisation] helped me complete the form online. Because obviously, it's quite a lengthy form. She filled it out far better than I could.” (client/formal representative)

“The most helpful part was our local social worker came round, spoke to me, explained what was going to happen and advised me how long it would take and when we should apply […] So our local social work people have always been very supportive… if people haven't got that level of support, then they might be in trouble.” (client/formal representative)

Friends and family members

During interviews, a few clients and formal representatives highlighted the importance of family members' support in completing and submitting an application. They expressed concerns that people without family support may find it difficult to understand what information was needed during an application, or how to submit the application. A few formal representatives were concerned that people with needs similar to the young person they represent would be unable to complete the application without family support.

Improving support

Just over a quarter (27 per cent, 21) of survey respondents reported that they did not feel supported through the application process. Just over half (51 per cent, 40) of clients and formal representatives felt that more practical support to complete the application is needed, and this could help to reduce anxiety. This was not always about support that they needed themselves. Some suggested that clients who are less comfortable with digital technology, or who do not have family or friends to help, may need assistance to complete the application form.

Areas which were suggested as potentially posing difficulties for unsupported applicants included the technicalities of applying online and understanding the questions and types of information to include with the application.

“When I did the child disability one, I actually did an online meeting with somebody from Social Security Scotland and they went through it with me, and I think that sort of thing for somebody filling out the first time or if they're not familiar with it, I think that's quite a good thing.” (client/formal representative)

“The form to apply for ADP was quite overwhelming. I felt capable to complete it. However, I think some may find it very difficult without more support.” (client/formal representative)

Some participants emphasised the importance of raising awareness of the types of support that are available from Social Security Scotland and other organisations. Low awareness was evident in the 13 per cent (10) of survey respondents who said they did not receive help with their application because they did not know where to find support.

“Market it a bit more about [Local Delivery staff] that can come round to your house and help with the application… I'm not sure if people know that that's an option.” (client/formal representative)

“Making sure that everyone who is applying has support to manage to carry out the application if they need to. I think that would be something that should probably be re-sent out. Just because maybe people need to be reminded that the option is there.”(client/formal representative)

ADP payments happen at the time people expect them and on the same day they would ordinarily receive/expect to be paid CDP

Overall, most clients and formal representatives surveyed reported a smooth transition from CDP to ADP payments.

Four-fifths of survey respondents (80 per cent, 51) reported receiving ADP payments on time and as expected. Clients and formal representatives described a seamless transition when moving from CDP to ADP, and appreciated that there was no gap between CDP payments ending and ADP payments starting. Interviewees also valued that payments were backdated where their ADP payments were greater than their CDP entitlement.

“There were no difficulties, and they backdated it to the date that the application had been submitted, so obviously through that period, he was still getting the child disability payment, so they calculated the difference between the two.” (client/formal representative)

“It was a smooth transition. CDP stopped, ADP started, and that was it… I’ve never had any problems with payments or anything like that going wrong.” (client/formal representative)

However, 14 per cent of survey respondents (nine) disagreed that ADP payments started on time and as expected. A few interviewees noted that there were some issues with payments, but also said that these did not cause serious problems. For example, two received ADP payments on a different day to CDP.

“I think it was a different payment cycle. But that was fine because, at the end of the day, you're still getting the money. It's just going to be a different four-weekly payment cycle.” (client/formal representative)

One said there was a discrepancy between the amount listed on the letter and the amount they received in their bank account.

“[Social Security Scotland] said I'd be getting a lot more into my account, but I realised they made a mistake there… I never bothered ringing up. I just thought I'd wait till the money comes into my account and see what's right, and it was the right amount that came into my account.” (client/formal representative)

Another was surprised that the payments changed before receiving their award notification.

“I was just relieved that it had gone through smoothly and it all transferred. But […] it would have been nice to have had the confirmation [before the ADP payments began].” (client/formal representative)

Clients and their representatives are reassured that they will continue to receive CDP until they reach the upper age limit, regardless of the outcome of their ADP application

Over half (58 per cent, 45) of clients and formal representatives who responded to the survey were reassured to know that CDP payments would continue for a specified time if their ADP application was unsuccessful.

Despite this, there was evidence that some research participants were still anxious about the change from CDP to ADP. In interviews, the most common reason for wanting to receive ADP early was to minimise the risk of any gaps in payments during the journey from CDP to ADP.

This can be partially attributed to previous negative experiences. A few individuals who had received DWP disability benefits before CDP described negative experiences such as time-consuming forms, long processing times, and delays caused by appealing unsuccessful applications. These interviewees were keen to apply as soon as possible to avoid delays like this and any potential payment gaps.

“In the past, when we were applying for Disability Living Allowance for [my son], it would take me a month to fill in the forms... So this time I thought, I had no idea what the process was going to be like… [but] that's why I started the process quite early because I thought we'll just get it done and out of the way. If it's going to take me a month to do it, then so be it, but I wanted to have it in.” (client/formal representative)

A few interviewees were concerned they would be ineligible for ADP or receive lower payments than with CDP, so they delayed their application to receive CDP as long as possible.

“I was just wanting to keep going with the Child Disability Payment as long as possible… because I was concerned about whether I would manage to get Adult Disability Payment or not.” (client/formal representative)

Support organisations also reported that clients stayed on CDP as long as possible as they were worried that they would not be eligible for ADP, or that they may receive a reduced payment.

“[Clients] are not sure if they will still meet the criteria for receiving ADP so stay on CDP for as long as possible.” (support organisation)

“Clients seem to worry that completing their form at 16 may negatively impact them, with a reduced eligibility, reduced payment amount.” (support organisation)

Application determinations happen promptly

The application for ADP is in two parts. Once an applicant has filled out Part 1 they have eight weeks to complete Part 2.^[11] According to Official Statistics, between 21 March 2022 and 31 March 2024:

• A total of 4,280 Part 1 applications were registered from CDP clients, and
• A total of 3,555 Part 2 applications were received from CDP clients, of which 1,900 had been processed.

Official Statistics also provide processing times for 1,725 of the processed ADP applications received from CDP clients. It should be noted that processing times are not provided for applications where:

1. A re-determination was requested.

2. A part 1 was registered that had a decision but did not possess a part 2 application date, meaning that a processing time could not be calculated. This includes applications under the special rules for terminal illness, which do not require a part 2 date.

On the basis described above, ADP decisions by processing time for applications received from CDP clients are shown in Table 1, broken down by financial year. These figures show that the median processing time for applications between 21 March 2022 and 31 March 2024 was 79 working days.

Table 1 Number of ADP decisions by processing time for applications received from CDP clients where a part 2 application date was available

Financial year	Applications processed in 0-40 working days	Applications processed in 41-80 working days	Applications processed in 81-120 working days	Applications processed in 121 or more working days	Median average processing time in working days
2022-23	15	40	40	15	80
2023-24	245	590	490	295	79
Total	255	630	530	310	79

Most clients and formal representatives who responded to the survey (60 per cent, 40) agreed or strongly agreed their application was handled within a reasonable timeframe. However, 28 per cent (19) disagreed or strongly disagreed (Figure 3).

A few interviewees commented that the processing time for their application was longer than they expected.

“It was almost a year It took a long time… a lot longer than I assumed it would.” (client/formal representative)

A small number of interviewees explained that waiting for a decision on their application had affected their ability to use the Accessible Vehicles and Equipment (AVE) scheme.

“It took a while… we needed the letter to be able to get the vehicle. We were absolutely stuffed without this letter.” (client/formal representative)

“[It took six months to receive a determination]… The biggest issue with that was the fact that because [my son] gets the high rate of mobility, and until the decision was made, I couldn't order a new vehicle.” (client/formal representative)

A few other interviewees reported no issues with the waiting time for a determination. A couple noted that while they would have liked to have heard sooner, they understood why the process took some time.

“I think I heard back faster than I expected and was surprised and relieved because the waiting is a bit stressful.” (client/formal representative)

“It was about four or five months-ish, but that's just off the top of my head… I didn't think it was really long, but also, with stuff like that, you want to hear back quicker. You just want to know. So I think it could have been sooner, but with the amount of people that are applying for this, it's not attainable to have a decision just as soon as you've sent it in. So I understand the length of the process.” (client/formal representative)

Clients and their representatives who meet the criteria experience a straightforward journey from CDP to ADP that minimises anxiety and uncertainty about the process

Overall, clients had mixed views of how easy the application process was. While 30 per cent (24) described the process as very easy or easy, 24 per cent (19) said it was difficult or very difficult, and 43 per cent (34) felt it was neither easy nor difficult (Figure 4).

However, more than two-thirds (69 per cent, 55) described their experience of applying for ADP while receiving CDP as very good or good overall. A smaller proportion (15 per cent, 12) felt it was poor or very poor, and 16 per cent (13) said it was neither good nor poor (Figure 5).

Similarly, nearly two-thirds (64 per cent, seven) of support organisations who responded to the survey reported their clients’ experiences were very good or good overall. 36 per cent (four) said they were neither good nor poor, and none summarised it as poor or very poor.

Most feedback provided by clients and formal representatives during interviews was favourable, describing a straightforward application process with support available where required.

“The application seemed much more straightforward than the books that were in previous years… Absolutely no problems whatsoever.” (client/formal representative)

“In general, I found the whole process was actually OK. Anyone I spoke to regarding it was quite helpful, so I wouldn't have anything negative to say about the process or anything.” (client/formal representative)

Support organisations also gave positive feedback. One survey respondent had observed an improved experience of the CDP to ADP journey as a result of the policy changes implemented by the Scottish Government, while four-fifths (80 per cent, eight) expect there to be an improvement. Similarly, 30 per cent (three) have observed reduced anxiety and uncertainty among clients and half (five) expect anxiety and uncertainty to decline.

However, there was mixed feedback from clients and formal representatives in the survey and interviews regarding feelings of anxiety or uncertainty during the application process. Two-thirds (65 per cent, 51) of survey respondents agreed or strongly agreed they felt anxious when applying for ADP, while more than half (57 per cent, 43) agreed or strongly agreed that they felt uncertain.

“I find it very confusing and complex.” (client/formal representative)

“I was worried the award would be reduced. And it has been.” (client/formal representative)

“It was worrying how long it will take.” (client/formal representative)

Support organisations also felt that the process can be intimidating.

“The paper form for ADP is 107 pages long. Despite the fact much of it is explanatory it's a very intimidating document to tackle without expert assistance.” (support organisation)

The most common cause of anxiety for clients and formal representatives was uncertainty about processing times and when the client would hear the outcome of their application.

“Every day, I'm constantly saying, ‘has there been any mail?’ and I just find it's a little bit anxiety provoking.” (client/formal representative)

Some interviewees suggested giving clients an estimate of processing times when they submit their application. Others suggested that Social Security Scotland could provide regular update clients about the progress of their application and when they can expect to receive their determination. Support organisation staff also mentioned this would be helpful.^[12]

“I definitely think keep people updated, even if it's just ‘we're still processing the form’. Just tell us what's going on because you submit these forms, and then you wait for seven to 12 months, and you don't know what's happening [or] if you've done something wrong. It's pretty traumatic, to be honest… I need to know what's happening, when it's happening and I get very stressed and very upset if I don't. It’s not nice just to be left in the dark like that.” (client/formal representative)

“The big thing was the lack of communication because it took so long. There wasn't any indication that it was going to take four to six months. So you had no idea… when the payments are going to start again, that's a bit of an issue. So there was no information at all, but there's no regular feedback to say your application has progressed to the next stage or whatever. There's just no communication at all.” (client/formal representative)

Successful applications

In general, clients and formal representatives whose application was successful experienced a smooth transition from CDP to ADP.

Clarity of communication

Some clients and formal representatives commented on the clarity of the information they received with their determination. They appreciated the details about how the decision had been reached and what would happen next. A couple suggested that there could be a summary provided to reduce the length of the letter.

“It was a full explanation of what the award was, how long [my son] was going to get it for, and how they came to that decision.” (client/formal representative)

“It's quite a lengthy letter that you get… it took us a bit of reading to understand that he's now got an indefinite award… maybe just more of a one-pager with an annexe that it goes into a lot of detail [would be better].” (client/formal representative)

Clients and their representatives whose applications are unsuccessful understand the process, the reasons why their application was unsuccessful and their rights to a redetermination and appeal after their determination.

According to Official Statistics, of the 1,900 ADP applications received from CDP clients between 21 March 2022 and 31 March 2024, that had been processed:

• 1,065 (56 per cent) were authorised with the level of award increased
• 120 (6 per cent) were authorised with the level of award decreased
• 350 (18 per cent) were authorised with the level of award unchanged
• 275 (15 per cent) were denied
• 90 (5 per cent) were withdrawn.

A further analysis of Official Statistics found that, in the financial year 2023-24, there were around 100 redeterminations on applications received from CDP clients – i.e. 6% of the 1,750 applications from CDP clients that had been processed in the same period.

More than two-thirds (69 per cent, 54) of the clients and formal representatives surveyed agreed that they were aware of their right to a redetermination and appeal. Almost a fifth (18 per cent, 14) neither agreed nor disagreed, and 10 per cent (eight) disagreed or strongly disagreed.

Reasons for unsuccessful determination

Five clients and formal representatives who responded to the online survey (6 per cent) had applied unsuccessfully for ADP. Two of these respondents said that it was unclear to them why their application was unsuccessful.

However, in follow-up interviews with three unsuccessful applicants, all said they received clear information about why their application was unsuccessful. They appreciated the detail about the areas of the application where they had and had not been awarded points, although one would have appreciated more information.

“The point system is helpful because that way, you can look at what you're getting awarded points for and what you're not. That is helpful for me, just as it's a bit more visual to look at. But I think it was detailed.” (client/formal representative)

“I feel like the ones where you were awarded points, they went into more detail than the ones where you didn't get any of the points on the system. They weren't as detailed. So I feel like it would have been good to have detail in both areas.” (client/formal representative)

However, they disagreed with the determination and did not understand why their application was unsuccessful.

“The reason I appealed was because I felt like they hadn't taken a significant part of my application into consideration. I didn't feel the full picture had been looked at. And therefore, because of that, I don't feel like it was very clear why they hadn't given it to me.” (client/formal representative)

“[The information] was clear. But I didn't really understand why I was unsuccessful because I'm still in treatment.“ (client/formal representative)

All three have submitted an appeal and are waiting to hear its outcome. All reported that requesting an appeal was straightforward, although one would have liked more space to explain why they believed their application should be accepted.

“That was not particularly difficult to work around to appeal for it… [but] a bit more space to write… to give you more opportunity to explain why you’re appealing would have been good.” (client/formal representative)

Clients and their representatives feel empowered and in control of their benefits

There is mixed evidence that clients and their representatives feel empowered and in control of their benefits.

Clients and formal representatives who took part in the research valued the ability to decide when to apply for ADP between the ages of 16 and 18. They reported that it meant they could choose a suitable time to apply around other responsibilities, such as work and caring commitments, and allowed them to continue to receive CDP for longer, or to apply for ADP early, if they want to. However, only a third (32 per cent, 25) of clients and formal representatives who responded to the survey agreed or strongly agreed that they felt in control of their benefits while applying for ADP.

A rights-based and person-centred approach are embedded in the CDP-ADP process

As discussed in the policy background section, the CDP-ADP journey was designed in to improve the process, and rights-based and person-centred approaches were embedded in order to make the journey as seamless and stress free as possible.

There is some evidence that clients have experienced a rights-based and person-centred approach as part of the CDP-ADP process.

The majority (71 per cent, 55) of client and formal representatives who responded to the survey felt that they had been treated with dignity, fairness and respect. However, as noted throughout other sections of this evaluation, there are areas of the process where applicants or their representatives reported issues which were causing stress or anxiety.

Some clients and formal representatives expressed frustration that they will have to undergo the stress of completing another application in a few years when their ADP entitlement is due for review. These people felt that some clients with long-term or lifelong conditions that are unlikely to improve should be given an indefinite ADP award, or be allowed to provide a brief update rather than a full application at the time of review. Social Security Scotland does not ask clients to complete the full application form again at the time of review. Rather, case managers consider existing information where relevant and use previous decisions to avoid asking unnecessary questions.^[13] Review periods are typically between two and five years, but can be up to ten years, depending on how likely the clients’ needs are to change. Indefinite awards of ADP are available for clients entitled to the enhanced rate of both components of ADP whose needs are highly unlikely to change or only likely to increase. However, clients and formal representatives were not always aware of these points.

“I was surprised that [Social Security Scotland] only gave us two years before we have to do it again. So that was a disappointment, that we're having to go through the process again so quickly. Now I'm assuming next time around… they might just let you update your application online as opposed to starting again, and tell them if anything's changed as opposed to starting it all again… then that's no problem to do it every two years. But if you're going to have to start from scratch again and do another kind of seven or eight hours of data input, and find all your evidence again, and upload it all again, that I think is a bit unwieldy.” (client/formal representative)

A few also felt that people with conditions that are unlikely to improve should not have to complete a full ADP application when moving from CDP. However, eligibility criteria for CDP and ADP are different, and applicants, unless terminally ill, will need to apply for ADP.

“If you're swapping from Child Disability Payment to Adult Disability Payment and the person involved does have a lifelong condition, the process should be more streamlined.” (client/formal representative)

Clients and their representatives feel treated with dignity, fairness and respect.

In general, clients and formal representatives commented favourably about their relationship with and trust in Social Security Scotland. As detailed above, almost three quarters (71 per cent, 55) of survey respondents agreed they were treated with dignity, fairness and respect.

“The general experience seems to be better than the DLA and Personal Independence Payment (PIP) experience in terms of it doesn't feel like it's an automatic rejection; there is due consideration, you’re not being asked to jump through hoops if you've completed it properly… I just got a straight award for my son.” (client/formal representative)

However, a few interviewees reported difficulties contacting Social Security Scotland. Examples included long delays to speak with an advisor on the telephone and web chat helplines.

“After 40 minutes, I gave up. I didn't have the patience that day for a 40-minute phone call. I’ve got a heavy caring role, and I just couldn't afford the time.” (client/formal representative)

Medium term outcomes

The previous section largely focused on direct impacts on clients during the process of moving from CDP to ADP. This section explores medium term outcomes, which are likely impacted by other factors outside of policy changes. This section aims to provide an insight into how policy changes have contributed to these outcomes, where possible.

The outcomes evaluated in this section are:

• Barriers to applying for disability benefits are reduced
• Clients feel that they have a positive relationship with Social Security Scotland
• Trust in Social Security Scotland increased
• Clients have financial stability

Barriers to applying for disability benefits are reduced

There is evidence that barriers to applying for disability benefits are being reduced. 30 per cent (three) of support organisations have observed reduced barriers to applying for ADP and half (50 per cent, five) expect there to be reduced barriers.

There is further evidence that the policy changes and commitments have contributed to reducing barriers to applying for disability benefits, as outlined in the short-term outcomes. This includes that:

• Clients and formal representatives generally found the communications from Social Security Scotland clear and helpful, increasing their understanding of the application process. Some mentioned that the letters served as a useful reminder, ensuring that they remembered to apply in time.
• Clients and formal representatives appreciated receiving CDP payments while waiting for their ADP determination, and that payments could be backdated. These helped to ensure continuity of payments and increased financial stability for applicants.
• Clients and formal representatives also provided positive feedback on the quality of support received from Social Security Scotland staff.
• Social Security Scotland staff provided positive feedback about the support, training and guidance they received to help them assist clients and formal representatives.

While there was mixed feedback about the difficulty of the application process, the majority of applicants described their experience of the process as good or very good.

However, some areas where barriers still existed were also highlighted in discussion of the previous outcomes. These included:

• Some clients and formal representatives and staff from support organisations highlighted that the length and complexity of the application form was a barrier for some. They suggested that there could be more support available for some applicants, particularly those who may struggle with the online application format.
• That there may be differences in experiences and understanding of the application process by level of deprivation. However, this would require further research.

Additional evidence relating to the timing and method of application indicates that barriers to applying are reduced, with clients and formal representatives stating that they appreciated having the option of when to apply, as it allowed greater flexibility for applicants.

Method of application

Clients and formal representatives and support organisations who took part in the research highlighted that being able to complete an application online had made it easier for them to apply. However, some negative feedback was also received, indicating that further work could be done to reduce barriers.

Over two-thirds (69 per cent, 55) of clients and formal representatives who took part in the survey applied online, while just under a third (30 per cent, 24) completed the application on paper (Figure 6).

All clients and formal representatives who took part in a follow-up interview, except one, completed the application online. These interviewees provided positive feedback on the online application, stating that the online application was easier, more convenient and faster compared to a paper application.

“[I did it online] just for ease really… Just to go online, get it done and send it away, and there's no paperwork hanging around.” (client/formal representative)

Other benefits of online applications that were highlighted by interviewees included the ability to save and return to sections later, the option to collaborate on the form with their parent on different devices, and the removal of the worry that the form might go missing in the post.

“The online application was so easy because you could upload information, save that section and go back to the next bit. I felt the whole process was really professional, how it was set up." (client/formal representative)

However, some interviewees reported difficulties with the online application. A few noted they did not have a copy of their submission, and would have liked an option to download a copy of their responses when the form is submitted. It should be noted that there is an option to download a copy of the submitted digital application form, albeit only on the confirmation page immediately after the application has been submitted. It is not possible for applicants to log back in later and download a copy.

“The problem with that is you don't have a copy of it.” (client/formal representative)

A few recounted technical difficulties. One had not been able to submit the application from their home and had to get support from a third sector organisation. Another had difficulties related to file size limits for supporting documents.

The one interviewee who completed a paper application said that this was the preference of the worker from the support organisation who had helped them to complete the application. This person was concerned that the paper form could go missing in the post and would have preferred to complete the application online to reduce the risk of the form failing to reach Social Security Scotland.

Barriers within the application form

Another barrier described during research related to the questions asked in the application form. Some clients and formal representatives found it challenging to communicate the extent of their needs or those of the young person they represent because of the format or phrasing of the questions.

“My son has severe and complex needs, and for some of the questions, it just wasn't possible to get across the level of his disability.” (client/formal representative)

“It's a little bit frustrating in the form though because I feel like there's maybe some aspects of it where you can't really explain… I think some of the questions could be a bit more open.” (client/formal representative)

Another explained that their condition fluctuates, so they found it difficult to answer some of the questions which seemed to assume the condition was the same all the time.

“It's quite varied, how it affects me from day to day. It's not going to be the same every single day. Whereas that is how the form is laid out, it's for someone who has something that's going to affect their life in exactly the same way every single day.” (client/formal representative)

Other interviewees commented that they found the questions repetitive. One would have liked a question to indicate they were completing the form as an formal representative to avoid stating that repeatedly in responses to individual questions.

“You have to repeat yourself a lot and you just feel a bit silly.” (client/formal representative)

Clients feel that they have a positive relationship with Social Security Scotland and trust in Social Security Scotland increased

There are many different factors which will impact the relationship that a client has with Social Security Scotland, and the level of trust that people have in the agency.

As noted in the short term outcomes, a majority of clients and formal representatives felt that they had been treated with dignity, fairness and respect, reflecting a positive relationship with Social Security Scotland. During research some interviewees also commented positively on Social Security Scotland’s approach, describing communication as clear, the application process as straightforward, and staff as polite.

Clients have financial stability

Many factors external to policy commitments and changes will impact on the financial stability of clients. However, as noted above, clients and formal representatives gave positive feedback on measures to improve financial stability, such as continuing CDP payments while waiting for ADP determinations, payments being received on time and as expected, and backdating payments.

Long-term outcomes

This section focuses on wider, societal-level outcomes. As with the medium-term outcomes, these have likely been impacted upon by other factors outside of policy changes and commitments relating to clients moving from CDP to ADP.

The long-term outcomes are:

• Human rights are respected and protected
• The take up of benefits is maximised
• Poverty is reduced

This section aims to provide an insight into how policy changes have contributed to these outcomes, where possible. However, two of the outcomes identified within the logic model require further data gathering. These are: Human rights are respected and protected and Poverty is reduced.

The take up of benefits is maximised

There are many factors which will impact on the take up rate of benefits, but there is some evidence that the policy changes and commitments evaluated here will have a positive impact.

Positive feedback was received on the communications sent by Social Security Scotland to clients and formal representatives, including that these communications reminded people of the need to apply for ADP and improved their understanding of the application process. Barriers to applying for benefits were also reduced through the provision of support for applicants, and offering different timings and means of applying. However, more long term data is needed to fully evaluate this outcome.