Devolved disability benefits evaluation: research

3. Timing of the application

Introduction

This chapter explores the timing of clients' and formal representatives' applications for ADP and the factors which influence when individuals choose to apply.

Timing of the application

As shown in Figure 3.1, most survey respondents submitted their application after they turned 18. A few clients and formal representatives (7%, 5) who took part in the research applied before they turned 17, 34% (27) applied when they were 17 and most (53%, 42) applied after they turned 18.

Of the 27 who applied when they were 17, 37% (10) applied two months or less before their 18^th birthday, 56% (15) applied more than two months before they turned 18, while 7% (2) were not sure exactly when they applied.

Most of those who applied after they turned 18 had received DWP disability benefits before CDP. This is not surprising, as some of these clients, depending on when they turned 18, were able to apply up until their 19^th birthday without CDP payments stopping. However, half of the survey respondents who had only received CDP (5) said they applied after they or the young person they represent turned 18. These interviewees explained this was because they were unaware of the need to apply until close to the 18^th birthday, so were unable to complete their application before they turned 18.

This indicates that, while some clients and formal representatives apply in plenty of time before their CDP payments are due to stop, others delay it for various reasons. We discuss these reasons below in the discussion of the factors influencing the timing of ADP applications among clients and formal representatives receiving CDP.

Factors that influence the timing of the application

Figure 3.2 shows that nearly a third of clients and formal representatives who responded to the survey (30%, 24) applied early so they could receive ADP as soon as possible, while 29% (23) said they applied as early as possible to get the process over and done with. Smaller numbers reported delaying the application so they could receive CDP for as long as possible (15%, 12) or because it was challenging to find the time to complete the application (13%, 10). Nearly a quarter (24%, 19) identified other factors that influenced the timing of their application.

Respondents told us that they felt they submitted their application as early as possible, however, as Figure 3.1 shows, most respondents applied after the client's 18^th birthday. This again highlights the importance of ensuring clients and formal representatives understand the need to apply for ADP in a timely manner.

Below, we discuss the factors that research participants said determined when they submitted their ADP application.

To start receiving ADP as early as possible

Interviewees and survey respondents identified various reasons they wanted to receive ADP as early as possible.

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.

A few individuals who had received DWP disability benefits before CDP, recounted negative experiences of previous benefits applications, describing time-consuming forms, long processing times, and delays caused by appealing unsuccessful applications. This experience meant these interviewees were keen to apply as soon as possible to negate delays like this and avoid 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)

"I think with previous experience with my son and applying for him and having to appeal and things, I was thinking there might be a bit of a process to go through for [my daughter] as there was for him." (client/formal representative)

Another three had heard there were long processing times and wanted to apply as early as possible to receive ADP as soon as possible.

"The social work people told me to submit it six months before [the young person they represent's 18^th birthday]. Then you just forget about it, and it'll take as long as it takes. So we followed their advice, and it was all done by the time [the young person turned 18]." (client/formal representative)

Conversely, a survey respondent from a support organisation noted that negative experiences with previous applications can prompt clients to delay future applications because they are daunted by the prospect. Similarly, staff mentioned cases where clients whose award had transferred to CDP from DWP shortly before turning 16 wanted to wait for a while before undertaking the ADP application.

"Usually they wait until they have been asked to apply as the thought of doing a long form and going through it again is daunting." (support organisation)

A few interviewees gave other reasons why they wanted to stop receiving CDP and move to ADP as soon as possible. For example, one advises people about benefits as part of their job, so was keen to apply for ADP because they were confident their payments would increase. More details are in case study 5 in Appendix 4.

"I wanted to apply at 16 as soon as they were eligible because we knew that their benefits would increase, and they did." (client/formal representative)

Another had less than 12 months of CDP entitlement left, but needed confirmation they would receive disability benefits for at least another year to renew the lease on their Motability vehicle.

"We have a Motability vehicle, and the lease was coming to an end, and before we could order a new vehicle, we had to have a letter that covered us for more than a year." (client/formal representative)

To get the application over and done with

Some clients and formal representatives explained they wanted to get the process over and done with so they could stop thinking about it. One of these said they wanted to do it promptly because of concern they would forget about it otherwise.

"It was pretty much to get it out of the way because it would just be weighing on my mind to fill it out, so I'd just like to get it done and that's it." (client/formal representative)

"I chose to do the application on the one day. For the simple reason that again, I would forget... I have a very short memory." (client/formal representative)

Another explained they wanted to complete the application process before the young person they represent left school, when they would be busy with university and college applications and other activities associated with the transition from child to adult services.

To receive CDP for as long as possible

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. All of these interviewees had received DWP disability benefits before CDP, as were all the survey respondents who selected this option.

"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 this view among clients they have worked with.

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

"[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)

Finding the time to complete the application

A few interviewees reflected on difficulties in finding time to complete the application. In these cases, interviewees chose a time that was convenient for them; for example, one waited until they were on annual leave from work before they had the time to focus on the application. Another delayed the application until they had recovered from ill health. A third explained they could not start the ADP application until caring responsibilities for their parent were less time-consuming.

"I didn't have the capacity to deal with that at that moment because I was dealing with my mum at the same time." (client/formal representative)

One said the time to gather supporting information from professionals such as doctors and teachers added to the time it took to complete their application.

Other factors

Some interviewees and survey respondents outlined other factors that influenced the timing of their ADP application.

A few, for example, said they only became aware of the need to apply for ADP, or when to apply, shortly before the time by which they had to submit their application to avoid CDP payments stopping, so they had to apply as quickly as possible.

"I didn't get the letter until pretty much on [my daughter's] birthday. I think I got the letter to say it was coming to an end, and I had to apply for Adult Disability Payment [immediately]." (client/formal representative)

Other factors that influence the timing of the application, each mentioned by one interviewee or survey respondent, include:

• A misunderstanding with their ex-partner over who was doing the application.
• Delaying the application to coincide with other activities and tasks related to transitioning from child services and school to adult services. A survey respondent from a support organisation agreed:

"Moving to ADP can be part of becoming more independent." (support organisation)

• Leaving the application as late as possible because it is daunting to gather the necessary supporting information from professionals.
• One parent explained they have not applied yet for their 16 year old daughter but are delaying the application in the hope that their daughter will have the capacity to manage their own money by the time they receive ADP. Support organisation staff also commented this can be an issue, with some young people ready to manage their own affairs but others not.

Clients' and formal representatives' views of the ability to choose when to apply

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 told us it means they can choose a suitable time to apply around other responsibilities, such as work and caring commitments, and allows them to continue to receive CDP for longer, or to apply for ADP early, if they want to.

Chapter summary

While some clients and formal representatives apply for ADP well before their CDP payments are due to stop, some others apply later for various reasons.

Most commonly, factors influencing the timing of an application included a desire to start receiving ADP as soon as possible. This was typically associated with a wish to avoid any gaps in payments. There were also examples of individuals who wanted to move to ADP quickly because they thought their payments would increase, or to help them renew their Motability lease.

Another common reason for applying early was to get the process over and done with. Interviewees wanted to complete the application so they could stop thinking about it.

Conversely, reasons for delaying the application included a desire to receive CDP for as long as possible due to clients' concerns that they may be ineligible for or receive lower payments with ADP. Difficulties in finding time to complete the application was another reason for delaying the application, with interviewees describing the time-consuming nature of the process and, in a few cases, having to contend with other responsibilities, including work and caring commitments, before they could focus on the ADP application.