Social Security Experience Panels - Scottish Carer's Assistance: main report
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.
3. Further changes to Scottish Carer's Assistance in the future
3.1. Remove education limits from Scottish Carer's Assistance[11]
At the moment, carers in education for 21 hours or more a week cannot get Carer's Allowance. This may stop carers from accessing further and higher education courses on a full-time basis. Changing the rules could allow more carers to study. It would mean those wishing to go to university could continue to get Scottish Carer's Assistance so they would have more financial stability.
Interview participants were asked their views on the proposal to remove education restrictions to allow carers in full-time education to be eligible for Scottish Carer's Assistance. There was a positive consensus about this plan. Many highlighted that this proposal improves the life chances, education development and employability of young carers.
"These young people need a chance. Imagine coming out at 18 and your whole future is caring for your loved ones […] If something happens and the cared for person dies then they have no further education. Young carers need to be employable." (interview participant)
"If we stop them from having Carer's Allowance, it will really penalise them and stop them going to college to set themselves up for the future. So you're penalising them once by giving them low pay, then you're penalising them again by making them postpone their education until their caring role ceases. So you're actually helping them to deliver the care, and actually feel better about themselves because they are actually doing something for themselves. […] And having young people feel that they can be doing something positive for their future will enable them to be better carers as well, so I think that it's important." (interview participant)
A few also stated that having the possibility to study full-time allows carers respite from their caring role and it also improves their mental health.
"One of my friends is also a young carer and he was really stressed out at home, and wasn't studying as much as he wanted to, but he also just wanted any reason to get out of the house." (interview participant)
"You could get a different focus from your caring to your studies, I think that would be good for mental health as well." (interview participant)
A few interview participants mentioned their own experiences or their relative's ones of not being able to study full-time because of the Carer's Allowance eligibility restriction. As a result, they fully welcomed this proposal.
"I think that's a fantastic idea because personally speaking when my husband was caring for me, he had just been made redundant, he wanted to go to college and study something full-time at college but, he looked into it and he was told that he couldn't receive Carer's Allowance because he wanted to go to college. And I never really understood that. And at the time, we both thought that was really unfair. Because why should someone be penalised if they want to go to college or university for their own benefit or it may be out of that caring role and they want to broaden their prospects. For it to be changed now it's very good, I think a lot of carers who are pleased about it. Because I think there are a lot of carers who would like to study, so I think that's very good." (interview participant)
3.2. Combine hours spent caring for two people
Currently, Carer's Allowance is only paid where 35 hours or more of care is provided each week for one person. This means if someone is caring 35 hours a week across two or more people, they will not get Carer's Allowance. The Scottish Government wants to allow carers to add up hours spent caring for two people to reach the 35 hours per week caring requirement.
Survey respondents were asked if they agreed or disagreed with the change to allow carers to add hours spent caring for two people. 81 per cent of respondents agreed, while 6 per cent disagreed. 13 per cent of respondents were not sure (see Table 6). The majority of interview participants also agreed with this proposal.
| Number of respondents | % of respondents | |
|---|---|---|
| Agree | 195 | 81 |
| Disagree | 14 | 6 |
| Not sure | 32 | 13 |
Some survey respondents noted that this proposal recognises and supports the extra work of carers who care for more than one person. Within this context, a few also noted how demanding the caring role is and how much pressure carers experience. A small number of respondents also mentioned how the caring role can be a full-time daily activity and cannot easily be broken down to a set number of hours.
"This is a great step forward to recognise a carers accumulation of hours to two or more people..." (survey respondent)
"…caring for 2 people will be immensely difficult and so you need to assume that the majority of carers are doing 35 hours or more of care for their loved ones as they will be rushed off their feet and hardly have time for themselves." (survey respondent)
"Looking after someone can be 24/7 so the figure of 35 hours underestimates caring. [I] find it difficult to see how caring for someone is less than 35 hours; never mind divided between 2 people, unless it is in the same family home; taking into consideration day care and often night care." (survey respondent)
Survey respondents were asked their thoughts on what would need to be considered for this proposal to work well. Many provided their views on eligibility criteria regarding hours, caring tasks and location of the carer and cared for people.
Caring hours and caring tasks
Some survey respondents gave suggestions on how the hours can be added and recorded as evidence of eligibility based on tasks or timetables which identify caring work, as well as how to communicate to carers what caring tasks could be included to make up the required hours. There were a few comments about specific caring tasks that should be recognised, including travel time, administrative and advocacy work around caring, leisure caring activities with the cared for person, etc.
"A simple timesheet of caring hours to evidence the total number of hours spent. With guidance on what is considered care, as it's not just the physical intimate care, it's getting the groceries every week, it's phoning doctors and specialists about appointments, and rescheduling. It's all the paperwork that needs to be completed. It's the planning and thought that goes in to taking them out for the day. I suspect every unpaid carer in the country spends well over the 35 hours in their caring role, whether it's 1 person, 2 or more they are caring for." (survey respondent)
"Travel time i.e. my brother stays in Edinburgh, I'm in Glasgow so this travel should come into my "care hours"." (survey respondent)
"A work sheet articulating all tasks carried out e.g. shopping, prescriptions, hospital appointments, drugs given to clients." (survey respondent)
A few survey respondents suggested that this proposal should consider individual circumstances and flexibility as hours providing care can fluctuate and overlap between cared for people. Some interview participants echoed similar ideas: they highlighted that frequently carers cannot divide the caring hours consistently and the hours of caring fluctuate depending on the needs of the cared for person on a weekly basis. A few interview participants also highlighted that individual caring circumstances should be considered for the proposal to work well.
"It needs to be flexible as each person's needs may differ day to day." (survey respondent)
"I don't think you can actually divide it up, like you're only getting 10 hours care, and you're getting the next 10. Generally, you're caring all day. So I wouldn't be splitting my time up between the 2 caring roles […] I don't think anyone in the caring role would say you're only getting 5 hours to one person, and you're getting 10 hours of my caring time. I hope that carers are sympathetic in their caring roles; it would just roll into one." (interview participant)
"I had to distribute my hours depending on the needs of the 3 of them [cared for people], and the quality that some of them got was abysmal, but it was based on my time and priority, you know. So just because a caree dies, it doesn't mean that a carer is going to be doing less hours, they may just redistribute their hours to the other two or however many they are caring for." (interview participant)
Eligibility criteria
A few survey respondents suggested that carers who cared for more than two people should also be able to benefit from this proposal. A handful of respondents raised questions on the locations of the cared for people and how that would impact eligibility.
"The change could be set to apply for carers looking after two or more people for 35 hours per week, rather than simply two, at least initially." (survey respondent)
"Caring is hard and if caring for 2 or 3 people adds up to the 35+ hours then the allowance should be paid as the carer is still providing 35+ hours care regardless." (survey respondent)
"Presume this question applies to caring for two different people in different locations? Many carers live in with people they are caring for; how would it work then if household has two more people requiring assistance?" (survey respondent)
Provision of clear information and simple processes
Some respondents mentioned the importance of providing clear eligibility information and signposting alongside the implementation of simple application processes. A small number of respondents referred to the evidence required such as proof that the cared for person is in receipt of qualifying benefits.
"The application process needs to be straight forward; the evidence provided to claim the benefit needs to be reasonably easy for the carer to provide (e.g. one piece of evidence per person being cared for, i.e. letter from GP or copy of the carer for person's disability benefit award letter); those dealing with the application need to be aware of the stresses and strains associated with being a carer and ensure their interactions with the claimant are kind and easy to understand and follow." (survey respondent)
"Clear and concise eligibility rules and an uncomplicated application process, plus shorter timescales for decisions to be made." (survey respondent)
A few mentioned that the proposal needs careful thought so it is not open to abuse and fraud. A small number of interview participants also repeated similar views concerning suggestions of proof of evidence and fears that the proposal can be open to abuse.
"Need to consider how this could be easily abused." (survey respondent)
"I do agree, but there has to be the limits again because I think that's again open to abuse, because how many people do you then start linking and so on […] it needs to be linked to the people concerned because a lot of people can say I care for this person […] the more is open up, the more is subject to abuse because three or four people can say they care for the person [...] you would need to somehow link to the cared for person's benefits to say there is only one person caring here." (interview participant)
3.3. Pay Scottish Carer's Assistance for 12 weeks in specific circumstances
After the death of a cared for person
The Scottish Government is proposing to keep paying Scottish Carer's Assistance for 12 weeks after a cared for person has died. Currently, when a cared for person dies, Carer's Allowance payments stop after 8 weeks.
When respondents were asked if they agreed or disagreed with the proposal to pay Scottish Carer's Assistance for 12 weeks after the death of a cared for person, 90 per cent of respondents agreed, 6 per cent disagreed and 4 per cent were not sure (see Table 7). The majority of interview participants also agreed with the proposal.
| Number of respondents | % of respondents | |
|---|---|---|
| Agree | 217 | 90 |
| Disagree | 14 | 6 |
| Not sure | 10 | 4 |
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. A handful of respondents also mentioned this time provides the carer time to decide and look for options available for their future which included look for paid employment.
"The death of someone you have cared for has a massive impact on the carer. You not only lose a loved one but you lose your purpose in life and I personally struggled very badly." (survey respondent)
"I do agree that extending the time when a cared for person dies is a positive. Carers will have lots of paperwork to complete, and having one less thing to worry about can only be a good thing. It also gives them time to decide if they could perhaps go back to paid employment." (survey respondent)
"That probably the carer has given up work to care for their loved one and it may take them up to 12 weeks or more to get the carer back to employment or to where their life was before they started caring. Also, it will be a difficult time for them emotionally and they need to readjust to life without caring for that person and a bit of help financially will be a lifeline to some people." (survey respondent)
Many interview participants also highlighted similar views such as the time that a carer required to focus on practical arrangements around the death of a loved one and the time a carer needs to look at their future options. A few interview participants also stressed the grieving time of the carer and how the SCA payments could support the carer who usually has the financial responsibilities around the death of the cared for person.
"It would give you more time to grieve really, because the caring role, just say the person was deceased, it would take a long time to adjust to the person not being there, that was 24/7 care, then suddenly, you would be lost, lost situation". (interview participant)
"That's quite okay because the first week or two you have to sort the funeral and then you've got to sort out the house if they lived independently, and you know, the form filling and to let everyone know and can take a lot of effort when you don't know what you're doing. 12 weeks is generous, 8 weeks is fine, I didn't even know you got that. But the carers should have more support too. Their whole life has to change. They will have to transfer onto an unemployment benefit while they're looking for work, or new job..." (interview participant)
Hospital stays and residential care
The Scottish Government wants to keep paying Scottish Carer's Assistance for 12 weeks when a cared for adult goes into hospital or residential care. Currently, Carer's Allowance payments stop after 4 weeks when a cared for person goes into hospital.
Respondents were asked if they agreed or disagreed with the proposal to pay Scottish Carer's Assistance for 12 weeks when a cared for person goes into hospital or residential care (see Table 8). 91 per cent of respondents agreed, while 5 per cent disagreed. 4 per cent of respondent were not sure. Most interview participants also agreed with this proposal.
| Number of respondents | % of respondents | |
|---|---|---|
| Agree | 219 | 91 |
| Disagree | 12 | 5 |
| Not sure | 10 | 4 |
Survey respondents and interview participants were asked what it needs to be considered for these proposals to work well.
Many survey respondents highlighted that caring does not stop when the cared for person goes to the hospital. Various caring tasks were mentioned as part of the cared for person being in hospital or residential care: travelling to visit, provision of personal supplies, laundry, managing the household and finances of the cared for person, provision of home meals in the hospital, etc. A few mentioned that in these circumstances financial costs increase. Similar views were highlighted by some interview participants.
"Carers duties do not cease when the cared for adult goes into hospital or residential care - they still normally require support help and assistance which may be more difficult and expensive to provide if the carer has to travel further at greater expense." (survey respondent)
"When the cared for person goes into hospital or care, it could be due to multiple reasons and may be a temporary measure to extend care package, etc. The carer's role and time does not necessarily alter, time traveling to and from, taking soiled clothing to launder, sorting paperwork, bills, attending meetings to discuss care requirement package for discharge etc., etc., feeding the cared for person due to staffing issues, providing emotional support, etc., all factor into the carer's time spent caring." (survey respondent)
"I have to stay with my husband when he is in hospital as the nurses cannot help him without hurting him as he needs a lot of assistance in a specific way, caring for him in hospital for me is more difficult than at home." (survey respondent)
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 carer with financial stability as they still have to pay household bills. A couple of interview participants noted that the permanency of a cared for person into hospital can be unpredictable whereas residential care seems a more permanent situation.
"CA is not a lot of money, but if you're relying on it for rent or to pay bills; these don't go away because the cared for person is in hospital." (interview participant)
"It's very unlikely that you can walk into a job in four weeks. Or even apply for different benefits in that time. It might be a number of weeks for a new decision and people need money coming in." (interview participant)
"…hospital might not be a permanent thing; you don't know how that's going. (The cared-for person) may improve and get much better or they probably need more care. But to get into a residential accommodation like a care home or some kind of care environment seems more permanent." (interview participant)
Support at the end of a caring role
Some survey respondents and interview participants also mentioned that the carer requires support when their caring role ends. As they were aware it is a time to adjust and search for their available options for the future; a few carers suggested emotional, employability support and financial advice could be offered during this critical time.
"Unpaid carers have sometimes delivered care to the disabled loved one or relative for many years and if the cared for person dies or goes into residential care it is very difficult for the carer to get employment. This is a good idea but it should go hand-in-hand with employment support, training and possibly even counselling because the carer can feel very isolated when the cared for person is no longer there." (survey respondent)
"Good communication with carer to support this period with compassion and transition such as other services, bereavement support, hospital liaison, new circumstances." (survey respondent)
"I just think there should be sign-posting to help people maximise their income in other ways. How is that done, not just leaving somebody and saying, 'that's it goodbye,' it's having the support in place to help people work out what their options are." (interview participant)
Questions and concerns about the proposals
Some survey respondents had suggestions and queries regarding the implementation of these proposals. They particularly focussed on how the carer will have to inform changing of circumstances of the cared for person. This included comments about having fluent and clear communication between Social Security Scotland and the carer. A small number of respondents suggested that Social Security should provide clear and simple information and processes to navigate the system as part of implementing these plans. A few wondered about the funding of the proposals and if these plans will negatively affect other entitlements.
"Put in place an easy and simple method to navigate to tell Social Security Scotland of a change in the carer's circumstances and also have a straight forward process for repayment of any assistance paid beyond the 12-week period [with reasonable, achievable and person-centred amount to be repaid each week/month] bearing in mind that the carer may be distressed at the loss of the person they cared for, and/or be unsure how long a cared for person may be in hospital at least at the outset." (survey respondent)
"It needs to be seamless. Carers are under a great deal of stress and it massively increases when someone goes into hospital etc. So you need to make them informing you of this as simple as possible. And it needs to not negatively affect other benefits." (survey respondent)
Many survey respondents and interview participants welcomed these plans and the increase of 12 weeks to pay Scottish Carer's Assistance when a cared for person goes into hospital, residential care or died. However, a few suggested either more weeks or fewer weeks of SCA payments or stop the payment if there are no more caring responsibilities.
"If someone is in hospital, I don't think they should be entitled to Scottish Carer's Assistance as they will be receiving the care in hospital, nor do I think payment should be made to the carer for 12 weeks if the cared for person passes away." (survey respondent)
"The carer would need time to adjust to their new role and circumstances. If a cared for person goes into hospital, SCA should be paid until the person is discharged surely, if they are going to be returning to live with their carer. Re: residential care, usually longer term so 12 weeks seems fair, perhaps a bit longer; 16 weeks so that the carer can adjust and find paid work. They might have been caring for many years and need time to come to terms with the change in their caring role. When a person goes into residential care, the carer will still have to make sure they are safe and well cared for, and access any advocacy, etc. required. Residential care for the cared for person, would not mean an absolute end to the caring role of the carer." (survey respondent)
3.4. Increase the amount carers can earn and still get Scottish Carer's Assistance
Carers are not currently able to get Carer's Allowance if they have earnings from employment or self-employment of more than £132 per week, after tax and some deductions for things like pension contributions and childcare. This is the amount for this year and may change in future. This is because the benefit is designed to provide support to people who are less able to work because of their caring role. If carers earn £1 over this amount, they lose all of their Carer's Allowance award.
The Scottish Government wants to increase the amount carers can earn and still get Scottish Carer's Assistance. The Scottish Government has suggested that the earnings threshold could be increased to a level based on a formula of 16 times the hourly rate of the Real Living Wage. This would mean carers could earn £158 a week and still get Scottish Carer's Assistance.
Respondents were asked if they agreed or disagreed with a change to increase the earning limit for Scottish Carer's Assistance to a level based on 16 times the hourly rate of the Real Living Wage. 90 per cent agreed with this proposal, 3 per cent disagreed and 7 per cent did not know (see Table 9). The majority of interview participants also agreed with this proposal.
| Number of respondents | % of respondents | |
|---|---|---|
| Agree | 215 | 90 |
| Disagree | <10 | 3 |
| Not sure | 17 | 7 |
Improving quality of life
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. They mentioned having a job allows carers to experience a normal and balanced life.
"Carers need a change of scene from the stressful work caring for a disabled person, allowing this will be a sort of respite from their caring hours." (survey respondent)
"Carers' mental health could be improved by working and reduces fear of losing C.A. entitlement". (survey respondent)
"…that also helps the carer to have some normality in their life away from their caring role." (interview participant)
A few survey respondents highlighted that the proposal takes into account most part-time jobs which usually are composed of 16 working hours. A small number of respondents noted that it would also allow carers to engage with paid employment and use their skills in the labour market.
"I always found the earning limits could be increased to allow a person to work 16-20 hours so earnings set a £158 seems a good figure to allow carers to combine working and caring is a better balanced life for them and also keeps their skills and work a focus in life." (survey respondent)
"I think this is more reasonable than the current rules. Carers should be encouraged to earn more given the skills and experience they have." (survey respondent)
Financial stability
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.
"This would be good because many people juggling work and caring duties are in jobs which have variable hours and opportunities for earning." (survey respondent)
"Surely we want to encourage people to work and you can only get very few semi decent jobs to help. I've had people say 'oh I can't work because it affects this benefit 'and it's seen as a downfall, but we should be trying to do things that encourage a good standard of living and any increase to allow people to have some breathing space would be positive. […] A lot of the carers can't physically leave or do work due to the nature of their care and they need a different level of support. But someone who wants to work and can work and will work should be encouraged to work to raise their family's standard of living and the benefit system should encourage this." (interview participant)
"This year I had to drop hours because of the increase in wages which then makes my benefits stop. It's really important to tag it onto the living wage so that when that goes up the earnings limit goes up." (interview participant)
Some respondents provided diverse views concerning the proposed earnings threshold[12]. A particular concern was whether the proposal would offer flexibility for people who work variable hours or shift patterns, or whose income may fluctuate slightly above the threshold.
"This simply moves the threshold for cut-off, with no flexibility. If a carer is able to take on a part-time role for 20 hrs/wk., can they not simply lose 4 hours' worth of Carer's Allowance, rather than all of it?" (survey respondent)
A small number of survey respondents mentioned that this earning threshold proposal does not consider jobs which earnings are beyond the real living wage. A handful of respondents felt that the earnings threshold tied carers to low paid jobs.
"Whilst this is an improvement, I still think it discriminates against professions. Therefore, it should not be based on earnings. It should be based on the amount of hours we care for." (survey respondent)
"I think it is still not high enough. You are restricting unpaid carers to only being able to do low paid minimum wage jobs no matter what their skills are. No matter their income, they are still unpaid carers." (survey respondent)
Suggestions
Some survey respondents and interview participants highlighted that the proposed earnings threshold is still too low. A small number of respondents and participants suggested an earning threshold based on monthly payments as opposed to weekly ones. It is worth noting that this is something that is technically feasible within the current proposals, though it requires going through additional processes.
"The cost of living is so expensive, living on £132 pound a week. And if you earn more, you are not eligible [to SCA]. I think it is far too low, but it has to be reviewed quite frequently. The way things are going, what a pint of milk costs and a litre of fuel for the car." (interview participant)
"The other thing I'd like to say is that it should be an average of earnings instead of each week and tapering instead of losing all the benefit. It should be averaged out over 'x' number of months because you can earn differently some weeks." (interview participant)
A few respondents and participants suggested the 'earnings taper' as an option, that is that the Scottish Carer's Assistance payment would continue when a carer earns more than the limit; but these payments would be reduced as the earnings increased.
"I think the CA amount should gradually reduce, rather than the current totally unfair system where earning £1 over reduces the CA to nil." (survey respondent)
"A taper should be applied instead of a cut-off point, as with Universal Credit. I get Carer's Allowance and currently work as an event steward for [name of company]. I apply for shifts, but don't always get them. Shifts can be scheduled as anything from 4 to 17 hours at a time. The hours paid and rate of pay can change. I've found it very stressful whenever my earnings are close to the threshold, knowing that I could lose not only my CA, but sometimes also 6 months of the additional payment. This can happen if my shift is extended because my relief doesn't turn up or an event overruns. Or where the rate paid for a particular shift is higher than our usual rate since the rate of pay is seldom included in the information provided about the shift. […] In most months, I could earn over the threshold but don't want to be worse off by earning less than the CA I'd lose. I'd be happy coming out with the same amount, even if for every £1 earned I lost £1 in benefit. To be totally fair the taper would allow for deductions and expenses." (survey respondent)
A few survey respondents and interview participants felt that all carers should be paid SCA payments regardless of their personal circumstances and there should not be an earnings threshold at all.
"I think people who are doing the caring role should be paid the same as a person who is doing it for a professional reason. Regardless of how many they care for, regardless of how long, and regardless of whether they've got another job." (interview participant)
"I don't think there should be an earnings limit. If people can care and get themselves out the door to work, then there shouldn't be a limit on what they're allowed to earn, but it's a step in the right direction." (interview participant)
Self-employment
A small number of respondents highlighted the issues of people who are self-employed and as result their earnings are very variable. They suggested an earnings threshold based on yearly earnings.
"I think there should be an annual amount rather than weekly. Many people who are self-employed may earn more one week, but much less over the next few weeks." (survey respondent)
"You should also consider freelancers' earnings on an annualised basis. Some people, such as artists or writers can spend several years working but not earning then getting a large payment in a short space of time, which would distort perceptions if viewed on its own." (survey respondent)
Provision of clear information and simple processes
A few survey respondents mentioned the provision of clear information and simple processes to monitor/provide proof of earnings and weekly working hours. A very small number of respondents stated that carers who work and care should also be provided tailored support. A handful of respondents indicated that their caring role is full-time and they could not take up paid employment.
"Carers need a written summary of the rules when they start to receive Carer's Allowance and what to do if they change. This should be brief, without jargon. They could maybe get a carers package when they start to care for someone with this, timesheets, support numbers and cheap or free things for them to enable them to continue to care without burn out. E.g. access to counselling, holistic therapies, driving lessons, short breaks, etc." (survey respondent)
"For carers who can work this is a good idea, but for the majority of carers their caring role is a full-time job and this will not affect them." (survey respondent)
Overlapping benefits
Questions were raised by a small number of respondents concerning carers who are not eligible due to experiencing overlapping benefits, carers who are state pension age and carers who earn above the earning threshold.
"I personally would still not qualify. But I am struggling financially as a part-time [profession/job]. Current cost of living needs to be considered along with those cared for needing a special diet. I currently supplement my son's benefits so that he eats according to his intolerances and to address his type 2 diabetes on top of his several disabilities." (survey respondent)
"All unpaid carers should get benefit not just [the] lowest paid ones. At 17 years of age [there is] no incentive to better myself when unpaid caring as I would lose my Young Carer Grant. I never get top-ups like older people." (survey respondent)
3.5. Getting SCA payments for some weeks after earning over the limit
The Scottish Government also wants to bring in rules that would mean carers keep getting payments for some weeks after they earn 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 (see Table 10). 6 per cent of respondents disagreed and 11 per cent were not sure. The majority of interview participants also agreed with this proposal.
| Number of respondents | % of respondents* | |
|---|---|---|
| Agree | 197 | 82 |
| Disagree | 15 | 6 |
| Not sure | 27 | 11 |
* Figures may not add to 100% due to rounding
Many respondents and participants welcomed this proposal. They highlighted 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.
"I think to keep payments as a stop gap to help carers transition to work is an excellent idea. If a person moved from having to rely on carer's payments, into work, they would need time to adjust and cope financially. The DWP system actively discourages and more or less bars carers from moving into work if they so wish, and self-employment for example is just simply off the table." (survey respondent)
"Hundred percent that needs to be done. As I said, during COVID people were expected to work more hours by their employer and it was having a big impact on their benefits a month or two down the line." (interview participant)
A small number of survey respondents mentioned that making payments for some weeks after a carer earns over the earnings limit would avoid carers being penalised when they earn above the earning threshold inadvertently.
"Not sure how easy it is to manage, but I do think it is something that needs to be facilitated as sometimes you go over the amount unintentionally and are therefore penalised for it." (survey respondent)
"It would stop them worrying if they [carers] have over stepped their working hours". (survey respondent)
A few respondents said that the proposal of making SCA payments for some weeks after a carer earns over the limit help carers who are in zero hour contracts jobs, which are mainly characterised by wage and hour fluctuations.
"Zero hour contracts can benefit the owners of the means of production, perhaps less so for the workers. This alone means that guaranteed wages are not assured, so a period of adjustment from at least one money source may actually help a person more than you will ever know. 4 weeks of hardly any hours the previous month, then 2 hours over the next month possibly means no reserves in the bank/purse; but a penalty for caring seems very harsh." (survey respondent)
"That some people's wages fluctuate, especially those on zero hours who can't plan ahead how many hours they will work in a week and so this arrangement will help them a lot." (survey respondent)
"So many jobs have variable hours that it makes sense to continue payments based on average earnings. Many carers have different hours during term-time too." (survey respondent)
Extending timeframes for earnings limit
A few respondents and interview participants suggested that a yearly earnings threshold would be a better approach for the earnings proposals, in particular for those carers who are self-employed or are involved in seasonal jobs. An interview participant mentioned that with a yearly earnings threshold, the overpayment issue would be avoided for carers who are self-employed.
"My husband is self-employed technically, if he were the carer that can be a problem because he doesn't know at the time what his earnings are going to be, he doesn't know until all it is put full at the end of the financial year where it can be a while after the end of the tax year […] whether if in the case they [self-employed carers] can do it retrospectively at the end of the year somehow, they would avoid the overpayment. I could see that all be a problem, but how does it work because you don't know your income at the time, you are saying my income is less than that, but you don't know because it is all done in a yearly basis" (interview participant)
"A yearly earnings amount would be more sensible for those who work seasonal jobs or self-employed whose earnings change from week to week. My husband works self-employed as a gardener; he works close to home so he is available if i need him. In summer there is enough work for him to work three days a week if my health permits, in winter it drops to one day a week. With your system, he would lose the allowance if he managed to work the third day at any point in summer, despite earning way under the limit in winter! The allowance amount would be constantly changing; and over the year we would lose a lot of money despite him earning under the required amount over the 12 months." (survey respondent)
A handful of respondents suggested earning thresholds on a monthly or quarterly basis. A small number of respondents mentioned that this proposal needs to have some flexibility inbuilt which considers the individual circumstances of the carer.
"Holiday pay, working overtime can change a person's monthly income, this has to be taken into consideration. And people who are paid monthly can increase that month and take them over the threshold, this should also be recognised and not penalised." (survey respondent)
"It needs to be flexible as there will be times when things are stable and the carer will know how many hours they can work, while other times the health of the cared for person could change meaning some weeks the carer would work less." (survey respondent)
A few survey respondents suggested the earning taper option would be a better approach than the weekly earning threshold. As with previous questions, a handful of respondents mentioned that there should not be an earning threshold and instead Scottish Carer's Allowance payment should be paid to all carers.
"But I think it sound fairer that there could be reduced payments for the weeks they earn more, and not for the others. Life has to be flexible. No one should be punished because they are a carer, it's tough enough." (survey respondent)
"Tapering rather than flat axing is the best way." (survey respondent)
"I think all carers, regardless of their earnings, should qualify for financial support. As I said before, if we all stopped doing what we do the Government would be facing an absolute disaster." (survey respondent)
Concerns about the proposal
A few respondents and interview participants had some views on aspects related to the proposal of making payments for some weeks after a carer earns over the earnings limit. These included their thoughts on overpayment issues and on setting up the number of weeks of making SCA payments after a carer earns over the limit.
"I agree but don't believe this overpayment should be deducted after all they still provide the 35 hours of care and the overpayment maybe for reasons out with their control, unearned income such as bonus's or holiday pay." (survey respondent)
"We need to be mindful of any build-up of arrears or timescales to allow a pay back, as carers would probably find paying back any over payment very difficult." (survey respondent)
"Put a time limit on how many weeks that they can be over the earnings limit, e.g. 5 times in 1 year." (survey respondent)
Provision of clear information and simple processes
Some respondents and interview participants mentioned that for this proposal to work well, Social Security Scotland needs to set up simple application processes for the client to report change of circumstances and the provision of evidence concerning earnings. They also mentioned that information about the proposal and its rules needs to be communicated clearly.
"Some way to get carers to accurately and promptly report changes. This would need to be brief, easily understood and accessible." (survey respondent)
"It needs to be made very simple as this could easily become overwhelming and confusing, like trying to understand tax credits. (survey respondent)"
"I think they need to do something. My earnings were flexible and it was constantly stop start. If there was a system that was easy enough for everyone to understand. People give up claiming as its more hassle than its worth. The system is too complicated; it needs to be simpler. People don't understand that you can make deductions too. It's too complicated which stops people applying. Clearer guidance is needed." (interview participant)
3.6. Support for a wider group of unpaid carers: long-term carers
The Scottish Government is aware that many carers have been caring for a long time. As a result, it wants to consider a new payment for long-term carers who are more likely to be on lower incomes.
Respondents were asked if they thought that a payment for long-term carers should be considered further (see Table 11). 89 per cent said yes, 3 per cent said no and 9 per cent were not sure. The majority of interview participants also thought a payment for long-term carers should be considered further.
| Number of respondents | % of respondents* | |
|---|---|---|
| Yes | 214 | 89 |
| No | <10 | 3 |
| Not sure | 21 | 9 |
* Figures may not add to 100% due to rounding
Views on who a "long-term carer" is
Survey respondents and interview participants were asked their views on this payment and who should be entitled to it. Several mentioned 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.
"It should be for people who care for individuals on long term DLA/PIP. Neither my son or my parent are going to 'get better' from their disability, they have lifelong disabilities, and will need lifelong care." (survey respondent)
"For certain conditions that are not going to improve. To say somebody did have a, can you still get a PIP lifetime award? If they had a PIP lifetime award it's not going to change [...] amputations things like that, blindness, you should be getting a long-term award that isn't going to impact other benefits, that's not going to change." (interview participant)
"I imagine most people giving long term care are caring for someone with a terminal or life limiting illness or lifelong severe disability where independent living is not possible. These carers should have a higher rate of Carer's Allowance as our savings quickly become depleted." (survey respondent)
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. They mentioned their particular experiences of caring for several years. A few stated a set amount of time such as three years, five years and ten years.
"Long-term carers would benefit from some financial assistance/payments for respite breaks and replacement care where appropriate. My own health started to have a serious impact after five years intense caring so maybe prior to 3 years would be a good benchmark as I'd have really benefited from some help and respite around that time frame." (survey respondent)
"I think long-term caring should be described as caring for someone for over five years." (survey respondent)
"It's hard to put a figure on it, but we have been doing caring role now for, how much extra on top, say 10-12 years, hospital appointments, handling, equipment, trying, meetings […] so many meetings, from education to health to social work, so many forms. My son's condition is a progressive one so his care needs are not going to get lighter as he gets older." (interview participant)
Many respondents and participants 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.
"I'll probably never work to my capacity again, so my pension is down the toilet, god knows what I'll do what I'm older as I've not earned anywhere near my full pension and never will. I know social workers, teachers, bank managers, all sorts who've all had kids with additional needs who have just had to walk away [from their jobs]. Their earnings potential is then stuffed." (interview participant)
"We are full time-carers. Our son has a 2:1 care ratio and requires to be looked after by 2 carers 24/7 for the rest of his life due to the complexity of both his physical and mental disabilities not to mention his complex health needs. We cannot work even if we wanted to and we had to give up full-time jobs to support our son. Caring for our son IS our job and this has to be recognised. Maybe about different caring situations?" (survey respondent)
"I have been caring for my son for almost 30 years now and have missed out on career, development, colleagues, occupational pension." (survey respondent)
A small number of survey respondents and interview participants mentioned the longer they are carers, the less employable are in the labour market. Lack of savings due to not having a paid job was also highlighted by a handful of respondents and participants.
"I'm in my 13th year being a carer. Before I gave up my job to look after my Dad, I had savings, I had an ISA, I had a credit card with a good limit. Two years in to being a carer, savings and ISA were gone. Credit card limit is under £500." (survey respondent)
"I think the longer a carer is out of the working market, the less employable the person becomes. the longer they're employed as a carer, the less employable they become to the working market." (interview participant)
"Long-term caring has a huge impact on earning potential, living arrangements and giving up many of the essentials of a basic life. There is a world of difference between adjusting to live on £69 a week for a relatively short period of time and having to do it more or less permanently." (survey respondent)
Eligibility criteria for a future long-term carers payment and impact on overlapping benefits
Some survey respondents and interview participants gave further thoughts on the eligibility criteria. Many supported the proposal that the payment should target those carers who are on the lowest incomes, which would be achieved by paying it to those in receipt of Scottish Carer's Assistance.
Some felt that the payment should not be targeted at those on lower incomes highlighting that elderly carers should receive this payment and/or all carers who have been caring for long-time regardless of their household income.
"It should be paid to all long- term carers, not just low income. Long-term carers are more likely to be elderly and on pensions that are low income. Start with people who lose their Carer's Allowance when they reach pension age and the people who lost their allowance in the last 10/15 years. Should be easy enough DWP must have details. It should be at least the same amount as the rest of the carers." (survey respondent)
"All unpaid long-term carers regardless of income. Treat everyone equally not some as second class unpaid carers who do not matter to ANYONE!! Yes, that's how it feels to ME!!" (survey respondent)
"I think carers should be paid until the person they are caring for has passed on or gone into a care home and unlikely to get back home. This payment should also be made to those of us carers who have cared for many, many years and have had carers benefit cut off due to receiving pension which we actually worked and paid for. When the Scottish Parliament takes these over in full this would be their opportunity to put this ancient rule to bed and to make their own rules to pay all carers if they qualify a sum of money regardless of age or having a pension." (survey respondent)
A handful of survey respondents and interview participants suggested that the long-term carer payment should be a unique payment which will depend on certain eligibility criteria.
"Not sure, but it should be for people with low incomes." (survey respondent)
"Simply separate it from the rest of the carers payments. 'Cos I think this one would be quite unique. I don't think everybody would qualify for it so I think it needs to be set apart from the rest of the payments." (interview participant)
Value and method of payments
A concern raised by many respondents was that long-term carers are often living on low-incomes for a long period of time. It was highlighted that this can negatively impact not only their immediate quality of life, but also long-term prospects in terms of pension contributions and savings. Some respondents and participants felt that future proposals to introduce additional payments for long term carers could try to address some of these issues. Suggestions included pension contributions, discount schemes or help towards respite care.
"My daughter has a lifelong genetic condition and will need care all her life. I worry about what the future means for her, particularly as we struggle to save money since my wage is practically non-existent (approx. £25/week at present due to childcare restrictions) for her future care. I am unable to pay into a pension as well so am worried about my own future once I reach that age. Perhaps pension contributions could be included somehow in this payment." (survey respondent)
"The payment could be financial but also in the form of free bus/train travel, driving lessons, support sessions, counselling, therapies. Maybe the enhanced rate could be for carers who either have cared for someone for more than a couple of years but also the nature of caring, the intensity of the role should be looked at and the enhanced rate awarded." (survey respondent)
As in previous sections of the research, some survey respondents also argued for carer payments to be higher than is proposed. Some suggested they should be equivalent to an hourly living wage or similar to the wage of a professional care worker. A handful or respondents mentioned that the payment should be frequently reviewed in line with increases to the cost of living.
These suggestions unfortunately go beyond the scope of the current proposals for the new Scottish Carer's Assistance. Scottish Government is currently conducting research to inform plans to introduce a new Minimum Income Guarantee, and the views of carers will be part of this 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 should be paid at the same time as SCA payments on a weekly or monthly basis. A few proposed that the choice for the carer concerning the method of payment should be offered.
"Let the carer choose a regular, increased, payment, or a lump sum once a year, e.g. before Christmas." (survey respondent)
"It could be similar to the supplement payments used now. Either twice a year or once a year as a bonus." (survey respondent)
"Should take the form of a weekly or monthly stipend." (survey respondent)
Evidencing your caring role
A small number of respondents raised questions or concerns about how carers would evidence that they were a long-term carer in order to receive the additional payment. A few others mentioned distinctions between caring in terms of the intensity of the care work or individual circumstances of the carer.
"It should be based on an individuals need. Some people may need support while others don't." (survey respondent)
"Assessed every 3 years. A journal of such could be implemented to prove long-term care has been carried out." (survey respondent)
Under the proposal, there will be no need for long-term carers to provide any additional evidence of their caring role. This would be assessed based on their long-term receipt of Scottish Carer's Assistance.
Contact
Email: socialresearch@gov.scot
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