Social Security Experience Panels - Scottish Carer's Assistance: main report

Executive summary

This report presents results from research with Social Security Experience Panel members to explore their views on proposals on how Scottish Carer's Assistance (SCA) could be different from Carer's Allowance. The research was designed to provide data for a range of proposals on: how Scottish Carer's Assistance should work when it is first introduced, extra payments for carers in Scotland, and further changes to be made to Scottish Carer's Assistance in the future.

The research took place from March to July 2022. It involved a survey completed by 242 Panel members and follow-up interviews with 16 participants^[1]. The sections below provide the main findings and themes which emerged from the research.

Scottish Carer's Assistance when it is first introduced

A service that works well for carers

Survey respondents were asked what support Scottish Carer's Assistance could link to that would be helpful for carers. Almost all survey respondents (93 per cent) said other Social Security benefits that carers may be entitled to and over four-fifths (85 per cent) said linking Scottish Carer's Assistance with Health and Social Care services would be helpful for carers.

Just over three quarters (76 per cent) said that it would be helpful to link Scottish Carer's Assistance with support at the end of a caring role when a cared for person has died. Similar proportions of respondents mentioned that it would be helpful to link carer centres (65 per cent), and finance/money advice services (63 per cent) to Scottish Carer's Assistance.

Survey respondents and interview participants stated it would be helpful to access support organisations, carer groups and networks. They also mentioned the importance of providing clear and detailed information taking into account accessibility and the needs of users. This information should include links to various sources of support for carers, benefit entitlements and changes to benefits. Interview participants said that the information needs to be streamlined across agencies, organisations and services.

Options when a carer is not happy with a decision: timescales for re-determinations

Most interview participants agreed with the timescales proposed for re-determinations. A few participants emphasised the need to provide clear, simple and short information about the timescales of re-determinations and appeals.

A few interview participants said it would be better if Social Security Scotland provides decisions in a shorter timescale as the client may be in financial need. A small number of interview participants emphasised that carers need support for application processes and that help may not be obtained within the timescales proposed.

Changing Scottish Carer's Assistance payments to £0 instead of suspending or ending the award

Over two thirds of survey respondents (71 per cent) agreed with setting Scottish Carer's Assistance to £0 for any week a carer earns too much money. Two thirds of survey respondents (66 per cent) agreed with setting Scottish Carer's Assistance to £0 if a cared for person's disability benefit is stopped or suspended.

Several respondents and participants said these proposals would avoid carers having to go through a re-application process. Many also noted that this would make it easier to restart payments when needed.

Some respondents and participants stated that setting Scottish Carer's Assistance to £0 for any week a carer earns too much money would encourage a more flexible system and it would allow carers to take on occasional/periodical paid jobs.

Some survey respondents and interview participants mentioned that caring work, financial household expenses and/or the need of financial support do not stop when earnings fluctuate or when the disability benefit is stopped or suspended.

Some survey respondents and interview participants said that carers should be provided Scottish Carer's Assistance payments and those should not be linked to any earnings threshold limit. Some thought that it is unfair to end a payment because a carer experiences fluctuation in their earnings. A few also mentioned that the earnings threshold is very low.

Some noted that disability benefits are frequently suspended due to administrative error and in other cases they are sometimes reinstated after appeals. Others argued that the caring role does not stop when the cared for person is in hospital. Some described providing help with care in hospitals.

A small number of respondents and participants thought these proposals should include the provision of simple and clear guidance for certain scenarios.

Ending a Scottish Carer's Assistance award when it has been £0 for six months in a row

Over half of survey respondents (54 per cent) agreed with ending a Scottish Carer's Assistance award when it has been £0 for six months in a row and a fifth (20 per cent) disagreed.

Some survey respondents mentioned it is a reasonable time for a carer to sort out circumstances concerning paid employment or benefits eligibility. Some also stated that the 6-month period provides a realistic time frame to acknowledge that a change in caring circumstances is permanent. A few survey respondents noted that the proposal should allow for exceptional and personal circumstances to be taken into account in case the payments need to be reinstated.

Some survey respondents said that it is not a long enough period to cover certain situations such as longer hospital stays and lengthy appeal processes. A few also mentioned that this proposal does not consider carers who regularly earn above the earning threshold for more than six months.

Views on Short-Term Assistance

Most interview participants agreed with the proposal to pay Scottish Carer's Assistance to carers when the person they are caring for is receiving short-term assistance. They had positive views on the financial support during appeal processes. They also felt it would be reassuring for clients that they can go ahead with appeals with less financial worries.

A few interview participants argued for simplifications and clarity of the administrative processes and the rules involved in this proposal.

Extra payments for carers in Scotland

Payment of Carer's Allowance Supplement in the future

Almost half (48 per cent) said Carer's Allowance Supplement should be paid at the same time as the Scottish Carer's Assistance payments in the future and over a third (35 per cent) said Carer's Allowance Supplement should be paid as a lump sum.

Many survey respondents and interview participants commented that paying Carer's Allowance Supplement (CAS) and SCA payments at the same time would provide carers a better financial support by adding to the household budget, and it would avoid some carers missing out on payments due to the specific qualifying period/dates of the current CAS eligibility rules.

Some survey respondents and interview participants commented that paying Carer's Allowance Supplement as a lump sum would allow carers to use that money for themselves, in the form of respite, breaks or holidays. It would also allow large purchases, help for seasonal budgets like Christmas or summer holidays, and it would avoid CAS payments being used for daily living costs.

Some mentioned that both methods of payment for CAS should be available for carers so they could choose their preferred one based on their individual circumstances.

Carer's Additional Person Payment

Three quarters of survey respondents agreed with the proposed eligibility criteria for Carer's Additional Person Payment.

Many survey respondents and interview participants noted that this payment is a recognition and appreciation for carers who care for more than one person. Several mentioned that this payment takes into account the extra amount of care provided and the extra cost of caring for more than one person. A few mentioned that it was a fair payment because carers who cared for more than one person cannot take on paid employment or studying due to their caring role.

Some respondents and participants mentioned potential issues concerning the amount of hours of providing care that are required to become eligible for this new payment. The most common issues noted were: hours providing care can fluctuate between cared for people, caring is a full-time day job, consideration of travelling hours to assist cared for people, carers are unable to separate hours of care between cared for people, and the total amount of caring hours proposed is too high a threshold for eligibility.

Some survey respondents mentioned that the amount of the Carer's Additional Person Payment is too low.

A few respondents and participants highlighted caring situations in which the carer would care for two or more people, but they are still unable to qualify for Carer's Additional Person Payment. Those situations included: caring for elderly adults who are not in receipt of disability benefits, a carer who earns above the earning threshold, and a carer who receives a state pension.

The majority of interview participants agreed that Carer's Additional Person Payment should be paid at the same time as a carer's Scottish Carer's Assistance Payments. They noted that it would help with their household regular budget and monthly income. It would also simplify the process of payments.

Further changes to Scottish Carer's Assistance in the future

Remove education limits from Scottish Carer's Assistance

There was a positive consensus between interview participants on the proposal to remove education restrictions to allow carers in full-time education to be eligible for Scottish Carer's Assistance. Many noted that this proposal improves the life chances, education development and employability of young carers. A few also stated that having the option of studying full-time allows carers respite from their caring role and it also improves their mental health.

Combine hours spent caring for two people

Just over four fifths (81 per cent) of respondents agreed with the change to allow carers to add hours spent caring for two people to reach the 35 hours per week requirement to get Scottish Carer's Assistance. The majority of interview participants also agreed with this proposal.

Some survey respondents and interview participants suggested that this proposal should consider individual circumstances and flexibility as hours providing care can fluctuate and overlap between cared for people.

A few survey respondents suggested that carers who cared for more than two people should also be able to benefit from this proposal.

Some respondents mentioned the importance of providing clear eligibility information and signposting alongside the implementation of simple application processes.

Pay Scottish Carer's Assistance for 12 weeks in specific circumstances

The vast majority of survey respondents (90 per cent) agreed with the proposal to pay Scottish Carer's Assistance for 12 weeks after the death of a cared for person. The majority of interview participants also agreed with the proposal.

A few survey respondents stated the relevance of time needed to adjust for the carer when the cared for person dies. Other respondents mentioned that the carer needs time to carry out administrative tasks around the cared for person's death.

Many interview participants also highlighted similar views such as the time that a carer requires to focus on practical arrangements around the death of a loved one and the time a carer needs to look at their future options.

The vast majority of respondents (91 per cent) agreed with the proposal to pay Scottish Carer's Assistance for 12 weeks when a cared for person goes into hospital or residential care. Most interview participants also agreed with this proposal.

Many survey respondents and interview participants said that caring does not stop when the cared for person goes into hospital. A few interview participants noted that the proposal to pay Scottish Carer's Assistance for 12 weeks when a cared for person goes into hospital or residential care can provide the carer with financial stability as they still have to pay household bills.

A small number of respondents suggested that Social Security Scotland should provide clear and simple information and processes to navigate the system as part of implementing these plans.

Increase the amount carers can earn and still get Scottish Carer's Assistance

90 per cent agreed with the proposal to increase the earning limit for Scottish Carer's Assistance to allow carers to work 16 hours and be paid the Real Living Wage. The majority of interview participants also agreed with this proposal.

Several survey respondents and interview participants highlighted the positive aspects of this proposal. Many mentioned that by allowing carers to increase their earnings, they will be able to participate in paid employment and improve their mental health and wellbeing by doing so.

Some survey respondents and interview participants mentioned that this proposal reduces the fear of losing the Carer's Allowance entitlement, it considers jobs with variable hours and earnings, and it helps with the rising costs of living.

Some respondents and participants provided diverse views concerning the proposed hours limit and the earnings threshold. A few mentioned that the proposal should not include a fixed number of weekly working hours. Some noted that the proposed earnings threshold is still too low.

A few survey respondents and interview participants mentioned that all carers should be paid SCA payments regardless of their personal circumstances and there should not be an earnings threshold at all.

A few survey respondents mentioned the provision of clear information and simple processes to monitor/provide proof of earnings.

Getting SCA payments for some weeks after earning over the limit

The majority of respondents (82 per cent) agreed with the idea of making payments for some weeks after a carer earns over the earnings limit. The majority of interview participants also agreed with this proposal.

Many respondents and participants noted that it allows a period of transition and financial adjustment for the carer, it considers jobs which do not pay the same amount on weekly or monthly basis, and it lets a carer take on extra paid work; including seasonal and weekend jobs.

Some respondents and interview participants mentioned that for this proposal to work well, Social Security Scotland needs to set up simple application processes. They also mentioned that information about the proposal and its rules needs to be communicated clearly.

Support for a wider group of unpaid carers: long-term carers

89 per cent of survey respondents said that a payment for long-term carers should be considered further. The majority of interview participants also welcomed this proposal.

Several respondents and participants gave views on who should be considered a long-term carer. Many stated that a long-term carer could be identified by linking it to the prognosis of the cared for person. If the cared for person has health conditions which are: unlikely to improve, progressive, chronic and/or they endure life-long debilitating diseases; their carer can be identified as a long-term carer.

Some survey respondents and interview participants said long-term carers could be identified based on a long period of time in which the carer has provided caring work. Many said a long-term carer could be identified as those who will never be able to take up paid employment or who had to give up full employment due to their intense caring work.

Several respondents and participants provided mixed views on the method of payment for long-term carers. Some suggested a lump sum (as a grant) and others suggested that the payment can be paid at the same time as SCA payments on weekly or monthly basis. A few proposed that the choice for the carer concerning the method of payment should be offered.

Further views on the Scottish Carer's Assistance proposals

General views on SCA proposals

Some survey respondents and interview participants gave positive feedback to the proposals. They mentioned that they made them feel valued, recognised and respected.

However, many survey respondents noted the experiences of carers with underlying entitlements and how unfair they felt it was that they are not eligible for the changes proposed. They said they do not have access to carer's benefits, supplements, concessions and discounts.

A few survey respondents stressed the importance of widely advertising Scottish Carer's Assistance proposals and their rules. A small number of respondents also noted that clear information and simplified processes regarding these benefit changes, their new rules and their eligibility criteria should be put in place.

Effects of SCA proposals on different groups

Many survey respondents and interview participants held negative views on how carers of state pension age would not be eligible for the changes proposed as part of the Scottish Carer's Assistance.

A few interview participants mentioned that the proposals and plans around Scottish Carer's Assistance would improve children's rights and wellbeing for young carers and also for carers who have children.

A few interview participants mentioned that carers from ethnic minorities and different religions can be impacted differently by the SCA proposals because of cultural differences, ideas about what constitutes being a carer and language barriers.

Some interview participants thought the SCA proposals would have an impact of reducing inequality. However, a few participants highlighted that the eligibility criteria are still restrictive to many carers, including those who earn above the earning threshold or work on a full-time basis.

A small number of interview participants and survey respondents stressed concerns about different circumstances which may impact on a carer's eligibility for SCA. These included disabled carers who live together and care for each other, carers who care for multiple people, and carers who also need care due to their long-term conditions or disabilities.

Impact on rural and island communities

Many interview participants noted the impact of the SCA proposals on carers who are located in rural and island communities. They mentioned the extra travel costs those carers have because the various key services they need are not near where they live.

A few interview participants noted the lack of carer's groups/networks and various services for carers and the cared for people in rural and remote areas. They also said that the caring work can be even more isolating in island communities than cities.

General views on caring work and payments for carers

Many survey respondents and interview participants perceived their caring work as replacing the caring work that public services should be carrying out. Many also stated that their unpaid caring work saves governments and public services a vast amount of money.

Many survey respondents and interview participants stressed that the current value of Carer's Allowance payments is too low and does not cover the costs of living. Many also requested to be paid minimum or real living wage that covers a basic standard of living. Some suggested they should be paid a similar value of payment to that which professional carers receive.