Devolved disability benefits evaluation: research

6. Conclusions and considerations

Introduction

Overall, there was positive feedback from clients, formal representatives and support organisations about applying for ADP while receiving CDP. However, the research findings also suggest there is scope to improve the process further to make it clearer and reduce anxiety and uncertainty among clients and formal representatives.

This chapter summarises the research findings and sets out areas for the Scottish Government and Social Security Scotland to consider that could further improve the process.

Impact of the policy changes

It is difficult to assess the impact of the policy changes on clients' and formal representatives' experience of applying for ADP while receiving CDP because we cannot directly compare the CDP to ADP journey with the DWP's DLAC to PIP process. However, the survey and interviews with clients and formal representatives gathered valuable insights into their views and experiences of the new process. Throughout the report, we have considered the outcomes achieved by the policy changes made with the logic model developed at the beginning of the research in mind. The logic model is included in Appendix 1, and Appendix 6 provides further commentary on how far each of the outcomes have been achieved.

Broadly, clients and formal representatives were satisfied with the process, with over two thirds (69%, 55) of survey respondents describing the process as good or very good. Support organisations also provided positive feedback .

Overall, the changes have reduced barriers to applying – people have the option of when to apply at a time that suits them, Social Security Scotland's automated letters inform them of the need to apply and when, they have the reassurance of receiving CDP payments while waiting for a determination (enhancing financial stability and certainty), even after turning 18. Payments are backdated so late appliers are not penalised financially.

Below, we set out conclusions about clients' and formal representatives' experiences with the process, with commentary about the impact of the policy changes where possible. Further details about the impact of the policy changes and the outcomes they aim to achieve are included in Appendix 6.

Understanding the process

Clients and formal representatives have mixed understanding of applying for ADP while receiving CDP. Some understood when and how to apply, but others were unclear, and some assumed they would receive ADP automatically without needing to apply.

Clients and formal representatives praised the letters they received from Social Security Scotland informing them about their options regarding when and how to apply for ADP. They described the letters as a clear and helpful prompt to apply.

However, some called for the letters to be clearer to ensure clients and formal representatives have the information they need to decide when to apply for ADP.

Areas for consideration – enhancing understanding of the process

1. Social Security Scotland letters were praised for their clarity and ease of understanding, but some clients and formal representatives suggested they could be clearer. It would be beneficial for Social Security Scotland to continue to review their communications, ensuring they are as clear, accessible and understandable as possible. Further testing with people with lived experience of benefits applications could help with this.

2. Clients and formal representatives identified aspects of the process that could be clarified in Social Security Scotland communications. These include the options around the timing of the application, what happens to CDP payments after the application is submitted, that CDP clients are not automatically eligible for ADP, that an individual's payments could increase or decrease with ADP compared to CDP, and that an application is necessary.

3. One client suggested sending information by email instead of or as well as postal letters. This may be worth considering.

Timing of the application

Clients and formal representatives valued being able to choose when to apply for ADP between the ages of 16 and 18 because they can choose a convenient time for them to apply. It also allows them to continue to receive CDP for longer or to apply for ADP early if they want to.

Factors that influence when an individual applies for ADP are wide-ranging. Most survey respondents favoured an early application so they could receive ADP as soon as possible to minimise the risk of any gaps in payment during the transition. A few explained they had previous experience of lengthy benefit application processes, so they wanted to submit the ADP application as early as possible.

Other reasons for early applications for ADP were also shared by a few research participants. One suspected they would receive higher payments with ADP, and another, who had less than 12 months of their entitlement to CDP remaining, needed confirmation that they would receive disability benefits for at least another year to renew the lease on their Motability vehicle.

Some clients and formal representatives explained they applied early so they could stop thinking about the process, and another wanted to apply before the young person they represent left school and was busy with other tasks like university and college applications.

On the other hand, some delayed the application for as long as possible. A few were concerned they would be ineligible for ADP or receive lower payments, so they wanted to receive CDP for as long as possible. All of these individuals had received DWP disability benefits before receiving CDP. A few others applied later because of difficulties finding time to complete the application. These interviewees said they waited for a convenient time around work and other caring responsibilities before completing the application.

A few applied later because they only became aware they needed 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 had to apply as quickly as possible.

Areas for consideration – timing of the application

4. Social Security Scotland should continue to inform clients and formal representatives timeously about their options for applying for ADP between the ages of 16 and 18, ensuring this information is clear and that clients and formal representatives understand their options.

5. It would be beneficial to continue to remind clients and formal representatives to submit their applications in good time to avoid any potential gaps in payment.

Completing the application form

There was mixed feedback about the application form. Although a large proportion of those surveyed (69%, 55) found the process good or very good overall, many (24%, 19) found the application difficult or very difficult. Support from Social Security Scotland and other support organisations is crucial in helping clients and formal representatives to complete the form.

Areas for consideration - support with the application

6. Support from Social Security Scotland was valued by clients and formal representatives. Social Security Scotland should ensure that clients and formal representatives know the different types of support available, including home visits from the Local Delivery Team. In doing so, however, ensuring sufficient resources are in place to meet demand is essential.

7. Support is also available from other organisations in the public, third and private sectors. It may be beneficial for Social Security Scotland to work with these organisations to raise awareness of their support.

Most research participants submitted their applications online, and the feedback was generally positive. However, some aspects could be improved.

Areas for consideration – online applications

8. A few interviewees reported technical difficulties submitting online applications, such as problems uploading attachments. It would be beneficial for Social Security Scotland to keep its systems under review to ensure they are working effectively and that clients and formal representatives have a positive experience.

9. A few clients and formal representatives said they were unable to download a copy of their online responses. If this facility is not already available, it would be beneficial for Social Security Scotland to enable online applicants to download a copy of their application form after it is submitted.

10. Similarly, a small number said they did not receive confirmation of their online form submission. This could help to reduce anxiety among clients and formal representatives.

Despite positive feedback about the application process, applicants experienced anxiety and uncertainty related to processing times, a need for more practical support with the application, difficulties in providing supporting information with their application, uncertainty about the level of information to provide, generic and repetitive questions, and worries about having to repeat the application in a few years.

Anxiety and uncertainty are perhaps inevitable with application processes related to benefits that provide important financial assistance for disabled people and their families. Still, below, we suggest areas for Social Security Scotland to consider to reduce clients' and formal representatives' anxiety and uncertainty.

Areas for consideration - reducing anxiety and uncertainty about processing times

11. Clients and formal representatives would like Social Security Scotland to provide an estimated processing time when an application is submitted. This could reduce their uncertainty around when they will hear the decision and minimise anxiety.

12. Social Security Scotland has recently begun sending SMS text messages to applicants to inform them when their application has been received and to update them of their application's progress through the decision-making process. This is a positive development, and one that would have been valued by clients and formal representatives who took part in the research.

Some interviewees were unsure how much information to provide in their application.

Areas for consideration – type and level of information required

13. Signposting clients and formal representatives to existing guidance, and continuing to review the guidance, could be beneficial.

Some clients and formal representatives identified generic and repetitive questions. Issues include where clients and formal representatives found it challenging to communicate the extent of their needs or those of the young person they represent because some of the questions assume some level of ability.

Areas for consideration – improving the application questions

14. The ADP online application form removes irrelevant questions for applicants based on their responses to previous questions. However, continuing to review the questions to ensure they are relevant for all clients and avoid repetition as much as possible would be beneficial.

Some interviewees were concerned they will have to undergo another time-consuming and anxious application process the next time their ADP award is due for review.

Areas for consideration – application process

15. When moving from CDP to ADP, clients and formal representatives felt that, if an individual has a long-term or lifelong condition that is unlikely to improve, there should be a shortened or streamlined process, or a longer-term or indefinite ADP award. Longer-term and indefinite awards are a feature of ADP and Social Security Scotland could consider raising awareness of this to reduce anxiety for clients and formal representatives.

16. Security Scotland does not ask clients to complete the full ADP 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.^[7] However, clients and representatives are not always aware of this. Raising awareness among clients and formal representatives of this could help to reduce anxiety and uncertainty about this process.

Processing the application and moving on to ADP

Most clients and formal representatives who took part in the survey agreed their application was handled in a reasonable timescale, but around a quarter disagreed. As noted above, uncertainty about processing times can add to anxiety about the process.

However, 58% (45) of survey respondents were reassured that their CDP payments would continue while waiting for a decision about their ADP application.

A few clients and formal representatives received unsuccessful determinations. Interviewees appreciated the information they received with their determination, but these clients and formal representatives did not always understand why their application was unsuccessful.

Successful applicants, in general, reported a smooth transition to ADP. Clients and formal representatives appreciated that there was no gap between CDP payments ending and ADP payments starting. They also valued that payments were backdated where their ADP payments were greater than their CDP entitlement.

Areas for consideration – receiving the determination

17. One unsuccessful applicant who submitted an appeal would have liked more space on the appeal form to articulate why they believe they should receive ADP.

18. One interviewee felt the information communicating the determination could be more precise. A one-page summary of the award amount and length and what happens next could help with this.

19. Successful applicants described the transition to ADP as seamless, with CDP payments ending and ADP payments starting on time and as expected. This is positive, and it would be helpful for Social Security Scotland to continue monitoring this process to ensure clients and formal representatives experience a smooth transition.