Independent Review of Adult Disability Payment (ADP): Analysis of responses to a public consultation and call for evidence

3. Eligibility check

Social Security Scotland has an online suitability checker that allows people thinking of applying for Adult Disability Payment to check if they meet the basic requirements. It does not tell someone if they are likely to get Adult Disability Payment because of their disability or health condition.

The Independent Review sought views on whether a more detailed eligibility check should be introduced to ask questions about a person’s daily living and mobility needs and to help them know if they are likely to be eligible for Adult Disability Payment.

Key findings

• Respondents generally supported a more detailed eligibility check prior to applying, suggesting it could save people the time and energy of applying if they knew they did not qualify. A few suggested that any digital eligibility checker must capture the full range of qualifying conditions to ensure people were not wrongly advised.
• However, some individuals preferred the current approach as they felt sufficient information already existed to help people understand whether they are likely to be entitled.
• Criteria that were recommended for inclusion in an eligibility checker included the impact of disabilities or conditions on daily lives, information about daily living and independent living, emotional wellbeing and cognitive state, assistance needed, and financial circumstances.
• There were mixed views on whether people considering applying for Adult Disability Payment would need help to complete an eligibility check. Those who thought they would, suggested that assistance be provided by advice or welfare rights workers, family members, or advocacy and support workers.

Q3A. In your view, would it be helpful to have a more detailed eligibility check before filling in the application form?

Q3B. Please explain your reasons.

Among those who answered, 45% felt it would be helpful to have a more detailed eligibility check before filling in the application form. Three in ten (30%) did not believe this would be helpful and one quarter (25%) were unsure.

It will help people understand if they qualify

Four fifths of consultation respondents left an open comment to explain their answer. Among those expressing a view, support was mixed but a majority were positive. The most prevalent theme, raised by several who supported the suggestion, was that a detailed eligibility check prior to applying would help people understand if they qualified for Adult Disability Payment. It was viewed that this would be helpful because it would save people time and energy, provide concise and clear information on eligibility, extend access to people who might not otherwise have applied or signpost those found not to be eligible, and be objective as it would be computer based. The need to ensure any check captures the full range of qualifying conditions was emphasised by a few. One organisation suggested it would help check residence, e.g. EU National competent state.

“Provide as much information as possible, in a succinct and simple format, on eligibility criteria so that people with limited energy can work out in advance whether it is worth their while going through the application process.” – #MEAction Scotland

“It would save people time if they can see they would be unlikely to be entitled to adult disability payment.” – Individual

Problems with an eligibility checker approach

Concerns about using a checker to determine eligibility were raised by some, including the results being incorrect, that it could put people off applying or that it was unsuitable for capturing fluctuating conditions. Issues with the current checker were highlighted by a few. These included:

• The ‘how to apply’ section having too high a reading age, without an accessible version offered.
• No questions that relate to disability or long-term conditions^[6].
• A perception that the questions such as age, residence / nationality or benefit receipt are “meaningless” or “over-simplified”.

It will help reduce stress and anxiety

Some felt a more detailed eligibility checker could reduce stress and anxiety associated with making an application, or waiting until a decision was made. A checker was perceived as less stressful for people, as it would save them having to make a full application if it was apparent they would not qualify. Comments from a few about making a full application described the process as “daunting”, “time-consuming”, ”horrendous”, or that questions were repetitive.

“This would also help people in the community feel more comfortable by being able to do this in their own time.” - Individual

Ensures application is worthwhile

Knowing the application was more likely to be approved, and avoiding negative emotions associated with an unsuccessful application, were reasons given by some individuals for using a more detailed eligibility checker. Knowing an application was more likely to be successful was felt to be a way of encouraging applications, for instance, by giving people assurances the energy and time required would be worthwhile.

“It is a huge form to fill in and a checker to begin would let you know whether it was worth expending all your energy.” – Individual

Current approach is preferable

Some individuals felt the existing arrangement should be retained, with those who expressed a view opposing the proposal. These comments reflected that much more detail would be needed in order to determine eligibility accurately than could be collected via an initial check. One felt sufficient information already existed to help people decide if they were eligible to apply.

Could become confusing / too complex

Using a more detailed eligibility checker could increase stress for applicants, according to some respondents. Reasons given included having to repeat the process when applying or if symptoms impacted cognitive ability. Two noted this could put people off applying. In answer to Q3C, some emphasised the need to keep the checker simple while some suggested basing eligibility on medical evidence supporting information instead of using a checker.

Specific suggestions

Some left specific suggestions. These included that the eligibility checker should be accessible, basic, optional or mirror eligibility checking tools used by other independent financial support agencies. One organisation called for the checker not to focus on disabilities.

Other comments

Some left general comments on the need for clear and concise information, such as putting the eligibility criteria in clear and simple English at the front of the application form and using relevant or explicit questions to benefit those with certain conditions. A few commented the proposal could put people off applying or that it was unhelpful if it added to the length of the process. Conversely, one felt that the proposal could speed up processing times as people who were not eligible would be less likely to apply.

Q3C. If you said “yes”, what questions do you think the eligibility checker should ask?

Two fifths of consultation respondents commented at Q3C. A wide range of suggested areas that an eligibility checker could cover were identified across comments.

Impact of disability

The need to ask about how disability impacts people in their daily lives was mentioned by some, including the Neurological Alliance of Scotland. Suggestions were made for questions on aspects such as pain, cognitive functioning, cumulative impacts and the consequence of undertaking activities.

“Changes to recent health that have impacted your life. I have Long COVID and it has drastically impacted on my life. Disability comes in many forms that may not affect mobility but impact on a person’s ability to work, such as brain function.” - Individual

Disability or conditions

Some individuals felt that a person’s disability or long-term condition should be asked about, with one suggesting questions should be tailored to different types of disabilities or conditions to ensure they were relevant.

Daily living or living independently

A similar proportion highlighted that questions on daily living should be asked. Areas suggested included aids and adaptations, time taken to undertake tasks, tasks that can be undertaken independently or with support, and ability to access community facilities.

“It should clearly state can you reliably and repeatedly perform a task. It should ask can you undertake certain tasks. Simple ‘yes’ or ‘no’ or ‘do you need assistance?’ Ask how long it takes to walk a certain distance, undertake a task such as dressing, make a meal etc. Include things like being incontinent as you can’t get to the toilet in time, not washing because it’s too difficult, eating ready meals. How long does it take to put your shopping away? Can you hang your washing up or hoover? – ‘How long does it take?’ is a very good indication on general ability.” – Individual

Emotional wellbeing or cognitive state

A few felt questions should ask how someone’s condition impacts their wellbeing or cognitive abilities, though comments were brief and did not expand further.

Carers or assistance needed

Including questions on carer support, or the impact on carers, was raised by a few. Suggested questions included “Do you have help?” and “Do you need help to carry out personal care or activities essential for your health or day to day living?”.

“How it also impacts on people around them who may have to take over the tasks they did, or how others have had to step in to help with care.” - Individual

Employment and finance

A small number of respondents suggested asking clear and concise questions on employment or finances such as on income, savings and benefits. Although in some instances this may highlight a misunderstanding that eligibility is linked to working status, others felt that including questions about whether an applicant worked and what activities they could do could help improve understanding whether their needs meant they could be eligible for Adult Disability Payment.

Other comments

A few suggested other questions including questions on social interaction or inclusion in the community, or relating to best/worst days such as “Do you have more bad days than good days?”

Q3D. If you said “yes”, please consider what the potential advantages/disadvantages would be on people thinking about making an application for Adult Disability Payment.

Over a third of consultation respondents commented on Q3D. In line with comments to Q3B, the most prevalent view was that a detailed checker could help save time and effort for people not meeting the eligibility criteria, as they would know not to apply. As a result, these views were incorporated in the analysis of Q3B.

Benefits associated with being awarded Adult Disability Payment, such as financial support and an ability to reduce working hours, were highlighted by some individuals as advantages of a checker. Although not made explicit by respondents, this most likely relates to a checker having the advantage of encouraging Adult Disability Payment applications among those who appear to qualify.

A range of comments were left by one or two respondents. These included that some people will still need encouragement to apply, that a detailed checker would be fairer, that the proposal could increase Social Security Scotland efficiency by reducing waiting lists and speeding up processing times, that people may not include relevant information and miss being awarded points when they should have, or that it could become too complex.

Q3E. Would you need help to complete an eligibility check?

Q3F. If you said “yes”, who would you ask to help you?

Two fifths (40%) of those answering indicated they would need help to complete an eligibility check. One third (36%) said they would not and one quarter (24%) were unsure.

Advice or welfare rights worker

Four in ten consultation respondents left an open answer indicating who would help them to complete an eligibility check. Some individuals cited an advice or welfare rights worker as being the person who would assist them. Citizens Advice Scotland was the main service mentioned, though money advice services were also suggested.

“As have already done this would ask Citizens Advice, before that would have asked wife as did not know of other options.” – Individual

Family member or spouse

A similar proportion of respondents commented that they would ask their spouse or a family member e.g. parents to assist them complete a checker.

Advocacy or support worker

Assistance from an advocacy service or local support service for people with disabilities or their carers to help complete a checker, such as charities, were mentioned by a few.

“Help should be available from such organisations such as Veterans charities, SCLD and NAS (Scotland) and Scottish Autism, Down Syndrome Scotland. Also there will be independent advocates available to assist. Reason to ask for this is the ability of the person applying to be able to complete even a simple form. There are many people out there with learning disabilities that require access to different types of ways to complete forms such as Easy Read or Makton to name only a few.” - Individual

Other people who could assist

A few suggested a health professional might assist them to complete a checker. A few also suggested people other than relatives or organisations, such as a friend or neighbour. Two suggested a Social Security Scotland appointee could assist them, while one suggested a carer could help. One felt there was no-one they would contact for support while another felt who they asked would depend on what the check involved.