Literature Review: Decision-making for Adult Disability Payment

This chapter considers available data on the initial decision-making process for ADP. Much of the evidence comes from official statistics, focus groups and stakeholder engagement provided by Social Security Scotland. This is supported by data from Audit Scotland, evidence collected during the Independent Review of ADP chaired by Edel Harris, and a qualitative research study on decision-making published in 2026 by the Scottish Government.¹Audit Scotland, “Adult Disability Payment,” Scottish Parliament, Edinburgh, 2025. ²E. Harris, “The Independent Review of Adult Disability Payment,” Scottish Government, 2024, Edinburgh. ³Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026.. Some qualitative research has been undertaken to start to understand the client experience of ADP’s initial-decision making process. These studies often reflect the immediate client response as ADP is still new. The Scottish Government recognised a trend in the qualitative feedback received about ADP.⁴Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026. It noted that ‘policy cannot be separated completely from the operational side of decision-making, nor from the specific and personal circumstances of each individual’.⁵Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026. For example, clients were likely to feel their ‘experiences were in-line with decision-making policy’ if they agreed with the outcome of their award.⁶Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026. Further data gathered over time may help clarify trends and experiences.

2.1 Background on ADP

As the eligibility criteria for ADP remain broadly the same as the criteria for PIP, evidence on the decision-making process for PIP enables a comparison with ADP. Understanding user experiences of PIP provide a lens through which to examine data on ADP, particularly at points of change, such as the procedural adjustments made to the application and assessment procedures. Gaps in ADP data also highlight areas where future ADP research is needed to gather a full picture of the client experience.

There is recent commentary on the economic implications of changes to ADP and the future proposed changes to PIP in light of proposed benefits reforms by the UK Government⁷Audit Scotland, “Adult Disability Payment,” Scottish Parliament, Edinburgh, 2025. ⁸C. Kidner, “Disability Benefit Reform – Implications for Scotland,” SPICe Spotlight, 18 March 2025.. However, this report does not consider these implications, instead focusing on the experiences of clients over the past three years and the official data and statistics released about those experiences.

This chapter provides an understanding of the way in which Social Security Scotland approached the creation of a new devolved system of disability assistance and how proposals for changes to disability benefits were received. It then explains the decision making process for PIP, considering research into experiences of claimants and data published by the Department for Work and Pensions about the uptake of the benefit and the award rates. Comparing available data from the DWP, the chapter then analyses available data on ADP, particularly through official statistics⁹Social Security Scotland, “Client Survey – Adult and Child Disability Payment October 2024 March 2025: Summary Report,” Social Research, Scotland, 2025. , the Independent Review of Adult Disability Payment¹⁰E. Harris, “The Independent Review of Adult Disability Payment,” Scottish Government, 2024, Edinburgh. , and Scottish Government’s qualitative analysis of client experience decision making.¹¹Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026. Finally, in comparing the available data on PIP and ADP, we will highlight areas where there are data gaps about decision making for ADP.

2.2 A rights-based approach

The approach to devolving disability benefits in Scotland integrated a rights-based approach from the start¹²C. O’Cinneide, “The Social Security (Scotland) Act 2018 – A Rights-Based Approach to Social Security?,” Edinburgh Law Review, vol. 23, no. 1, pp. 117-123, 2019. . The aim of devolution of the social security system was to establish a ‘fairer Scotland’, including a new set of principles based on a ‘distinctively Scottish guiding vision’¹³Scottish Government, “A New Future for Social Security: Consultation on Social Security in Scotland,” p. 3, 2016.. The Social Security (Scotland) Act 2018 was formed to consider a ‘rights-based approach’, which O’Cinneide noted ‘differs considerably from the approach adopted by previous social security legislation’¹⁴C. O’Cinneide, “The Social Security (Scotland) Act 2018 – A Rights-Based Approach to Social Security?,” Edinburgh Law Review, vol. 23, no. 1, pp. 117-123, 2019.. Early responses to the proposed Scottish system for social assistance were positive, particularly from advocacy groups representing disabled people and with clients¹⁵E. Harris, “The Independent Review of Adult Disability Payment,” Scottish Government, 2024, Edinburgh. . In interviewing disabled people in Scotland about welfare conditionality¹⁶Welfare conditionality was defined by Wright, Stewart and Dwyer (2018) “social support contingent on behavioural requirements’ such as ‘work obligations and sanctions [that] exist for long-term ill and disabled people, long parents and, under Universal Credit, low-paid workers and partners of claimants’. [8] They contrast this to the devolved system Scotland was proposing at the time, and put into place with the Social Security (Scotland) Act 2018, which is ‘explicitly needs-based and sanctions-free.’ in advance of the development of the Act 2018, Wright, Stewart and Dwyer, found goodwill toward the ‘prospect of a devolved system’ of benefits and assistance¹⁷Research produced by Wright, Stewart and Dwyer (2018) focused on comparing a prospective new devolved payment system to Employment and Support Allowance (ESA) rather than Personal Independence Payment (PIP), but sentiment described is applied to the idea of Social Security Scotland as a whole. .¹⁸S. Wright, A. B. Stewart and P. Dwyer, “Final Findings: Social Security in Scotland,” ESRC, 2018. Referencing previous experiences with PIP, an interviewee in the Wright et. al. study spoke of optimism around the proposed devolution of disability assistance to the Scottish Government.¹⁹S. Wright, A. B. Stewart and P. Dwyer, “Final Findings: Social Security in Scotland,” ESRC, 2018.

While ADP was introduced in 2022, PIP replaced Disability Living Allowance (DLA) for over 16s in April 2013. As with ADP, the Department for Work and Pensions intended their revision of DLA to provide a fairer, more transparent and objective assessment.⁴¹ P. Gray, “The Second Independent Review of the Personal Independence Payment Assessment,” Department for Work and Pensions, London, 2017.. Many applicants raised concerns about the decision-making process for PIP, as described in greater detail in the next section.

2.3 Concerns with Personal Independence Payment applications and assessment systems

This section provides a brief background of the initial decision-making process for Personal Independence Payment (PIP), including lived experience concerns related to the application and assessment processes. Alongside evidence that centres the experiences of disabled people, official statistics and data gathered by the Department for Work and Pensions are used to provide an overview of clearance rates, approval rates, and award rates by condition.

2.3.1 Application

Available qualitative evidence of the experience of disabled claimants for PIP implies there are issues with the process.⁴² G. Bowron, “From Assessment to Exclusion: Exploring the Role of Disability Hierarchies in PIP Claimant Experiences,” LSE Department of Social Policy, London, 2024. ⁴³M. Davies, L. Porter , H. Lepps and A. Bicquelet, “Experiences of Personal Independence Payment (PIP) for people with sensory loss,” Thomas Pocklington Trust, Royal National Institute of Blind People,, 2017. ⁴⁴P. Gray, “The Second Independent Review of the Personal Independence Payment Assessment,” Department for Work and Pensions, London, 2017. In their work examining the PIP assessment process after experiencing trauma, Roberts et al. noted that particularly for applicants experiencing mental health difficulties, the PIP application process can be ‘humiliating, isolating and frightening, creating a sense of powerlessness’ and in some cases be ‘re-traumatising’.⁴⁵ H. Roberts, S. R. Stuart, S. Allan and A. Gumley, “‘It’s like the Sword of Damocles’ – A trauma informed framework analysis of individuals’ experiences of assessment for the Personal Independence Payment benefit in the UK,” Journal of Social Policy, vol. 53, no. 4, pp. 997-1015, 2022. ⁴⁶ K. Pybus, K. E. Pickett, C. Lloyd, S. L. Prady and E. R. Wilkenson, “Functional assessments in the UK social security system: the experiences of claimants,” Journal of Social Policy, vol. 50, no. 2, pp. 305-322, 2021.

PIP requires most applicants to access a form either through phoning or writing to the DWP⁵⁵The DWP plan to implement a new integrated service for managing the health assessments and claims for PIP by 2029 following the launch of the Health Transformation Programme (HTP) in March 2019 by the then Secretary of State for Work and Pensions. The HTP aims to modernise the Health and Disability benefit landscape. It’s developed a single Health Assessment Service for all benefits that require a functional health assessment, which will utilise new IT and processes. , although some people in specific postcodes in England were able to access to an online application service from July 2023. As of January 2025, 2,914 claimants had applied online.⁵⁶ Department for Work and Pensions, “Health Transformation Programme management information to January 2025,” Department for Work and Pensions, London, 2025. PIP asks the applicant to provide supporting documentation, which could include care plans, prescription lists, or information from a doctor.⁵⁷ J. Barry, M. Blake, L. Bridges, D. Candy, E. Carragher, E. Duxbury, H. Fowler, C. Lambert and L. Morris, “Personal Independence Claimant Research – Final Report,” Department for Work and Pensions, London, 2018. One challenge reported consistently to Bowron, for example was ‘difficulties capturing the impacts of disability on day-to-day functioning in the PIP2 form and providing evidence to support this’.⁵⁸G. Bowron, “From Assessment to Exclusion: Exploring the Role of Disability Hierarchies in PIP Claimant Experiences,” LSE Department of Social Policy, London, 2024. While the DWP provides guides alongside the form, others felt that independent advice or support from others was needed to submit the application.⁵⁹G. Bowron, “From Assessment to Exclusion: Exploring the Role of Disability Hierarchies in PIP Claimant Experiences,” LSE Department of Social Policy, London, 2024.

2.3.2 PIP Assessments

Upon receipt of a completed PIP form, a claims handler will then determine if a further assessment with a health professional is required. Assessments can take place at an assessment centre, from home, over the phone, or via a video call. It is also possible to have support during an assessment from a relative, friend, or support worker. As of November 2024, 4% of assessments were carried out face-to-face, 77% remotely (including telephone and video), 18% paper-based, and 1% unspecified.⁶⁷ Department for Work and Pensions, “Question for Department of Work and Pensions: Personal Independence Payment Medical Examinations,” UK Parliament, London, 2024. Award decisions are based on the advice of the assessment provider. If eligible, the applicant will receive an award letter outlining their award type, the award received, and a timeframe for review.

While research has shown that the application process can be daunting and confusing, it is the assessment process that can have the most severe negative impacts upon applicants. As Roberts, et.al. note:

Research suggests that not only do applicants feel belittled and shamed, but many also feel that assessors do not have the expertise to understand their disability or needs.⁷¹G. Bowron, “From Assessment to Exclusion: Exploring the Role of Disability Hierarchies in PIP Claimant Experiences,” LSE Department of Social Policy, London, 2024. ⁷² H. Roberts, S. R. Stuart, S. Allan and A. Gumley, “‘It’s like the Sword of Damocles’ – A trauma informed framework analysis of individuals’ experiences of assessment for the Personal Independence Payment benefit in the UK,” Journal of Social Policy, vol. 53, no. 4, pp. 997-1015, 2022.

In his research, Gray (2017) found that there was a lack of confidence from claimants in the ability of the assessors to conduct the assessment, and that they would instead prefer more weight to be placed on evidence from professionals who are most familiar with them, like their own GP.⁷⁷P. Gray, “The Second Independent Review of the Personal Independence Payment Assessment,” Department for Work and Pensions, London, 2017. Some claimants felt the health professionals had misinterpreted or deliberately misrepresented discussions during the assessment.⁷⁸P. Gray, “The Second Independent Review of the Personal Independence Payment Assessment,” Department for Work and Pensions, London, 2017. His findings highlight a lack of trust in the application process for PIP and consequently a lack of reliability in the decision-making process from the DWP.⁷⁹P. Gray, “The Second Independent Review of the Personal Independence Payment Assessment,” Department for Work and Pensions, London, 2017. These findings were echoed more recently by Mackley et al (2025), who discussed the assessment process associated with both PIP and Work Capability Assessments (WCA)⁸⁰The WCA is a functional assessment used by the Department for Work and Pensions to determine how a person’s health condition or disability affects their ability to work.. In their report considering the 2018 Work and Pensions Committee inquiry and the 2023 Work and Pensions Committee report, they cite:

• Claimants were not able to express the impact of their condition due to the structure and content of the assessment
• Inadequacies of the assessment in capturing fluctuating conditions
• Claimants feeling unheard when expressing concerns to their assessors
• Concerns about the knowledge or expertise of the assessors
• Factual errors in reports⁸¹A. Mackley, F. Hobson and S. Kennedy, “Personal Independence Payment and disabled people,” House of Commons Library, London, 2025.

Gray (2017) highlighted that “restoring claimant trust also requires an assessment process of demonstrably high quality, fairness and consistency.”⁸²P. Gray, “The Second Independent Review of the Personal Independence Payment Assessment,” Department for Work and Pensions, London, 2017. The review went on to find inconsistencies in assessments, from some which found excellent examples of capturing the necessary information to those which lacked the detail needed for a robust, reliable, and equitable assessment.⁸³P. Gray, “The Second Independent Review of the Personal Independence Payment Assessment,” Department for Work and Pensions, London, 2017.

If the claimant disagrees with a decision, such as not being deemed eligible for PIP or an award decision, they can request a mandatory reconsideration and then an appeal, as discussed in the next chapter.

2.4 ADP Decision making

Social Security Scotland aimed to distinguish ADP from the PIP approach by focusing on the rights of the client, particularly as they manifest in the application experience. Changes made to ADP were intended to align the application and review process with Social Security Scotland’s charter, making it less burdensome or troublesome for applicants to complete.⁸⁴Audit Scotland, “Adult Disability Payment,” Scottish Parliament, Edinburgh, 2025. Optimistic responses were evident at the outset after ADP was introduced. For example, Resolution Foundation cited qualitative studies where ADP was considered “a breath of fresh air” by participants compared to the previous PIP model and Halliday et.al. note that ‘ADP is consistently rated less negatively than PIP’.⁸⁵ L. Judge and L. Murphy, “Delivering dignity? Early Lessons from the Introduction of Adult Disability Payment in Scotland,” Resolution Foundation, 2025. ⁸⁶ S. Halliday, T. Csoban, R. Friskney, G. Macintyre, J. Meers, B. Seyd and J. Tomlinson, “Bureaucratic justice in disability benefits.,” Administrative Fairness Lab Report, 2025. This section considers the data available about the ADP decision-making process in comparison to the data about applicant’s experiences of PIP.

2.4.1 Eligibility Criteria

While managing the migration of clients from PIP to ADP, the Scottish Government kept the eligibility criteria broadly consistent. They believed that this would minimise risk of a two tier benefits system within Scotland during the case transfer process and negative impacts on clients with passported benefits controlled by the UK government.⁸⁷E. Harris, “The Independent Review of Adult Disability Payment,” Scottish Government, 2024, Edinburgh. ⁸⁸D. Heap, “Goodbye to PIP, but hello to what? Disability, social security, devolution and policy change in Scotland,” Policy Press, vol. 32, no. 1, pp. 170-180, 2024. This approach to maintaining the eligibility criteria disappointed some, particularly as it relates to the mobility component.⁸⁹E. Harris, “The Independent Review of Adult Disability Payment,” Scottish Government, 2024, Edinburgh. ⁹⁰Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026. ⁹¹D. Heap, “Goodbye to PIP, but hello to what? Disability, social security, devolution and policy change in Scotland,” Policy Press, vol. 32, no. 1, pp. 170-180, 2024. ⁹² Scottish Government, “Adult Disability Payment: Consultation on the Mobility Component,” Scottish Government, Edinburgh, 2023. ⁹³MS Society, “Send your MSP a message: scrap the PIP 20m rule,” MS Society, 2021. ⁹⁴ Scottish Government, “Adult Disability Payment Regulations: Analysis of Consultation Responses,” Scottish Government, Edinburgh, 2021. Participants in focus groups with the Scottish Government felt that a ‘points-based system’ and an application style with ‘yes/no’ questions did not allow ‘them to share the full impact of complex or fluctuating health conditions’.⁹⁵Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026. In response to a Scottish Government consultation on the mobility component, respondents felt that keeping the eligibility criteria as is restricted a holistic and person-centred approach.⁹⁶Scottish Government, “Adult Disability Payment: Consultation on the Mobility Component,” Scottish Government, Edinburgh, 2023.

2.4.2 Changes to the application and assessment process

Other changes were made to both the application and assessment processes to help improve the treatment of clients and abide by the standards set in ‘Our Charter’. For example, Heap (2024) notes that Social Security Scotland have taken a client-centred approach allowing applications to be made online, on paper or over the phone, rather than the offline application approach taken by PIP¹¹⁹With the exception of a few postcodes in England where online applications are accepted..¹²⁰D. Heap, “Goodbye to PIP, but hello to what? Disability, social security, devolution and policy change in Scotland,” Policy Press, vol. 32, no. 1, pp. 170-180, 2024.

The most recent Social Security Scotland client survey, found that clients support the view that the ADP application process is user-friendly, understandable, and easy to access.¹²¹Social Security Scotland, “Client Survey – Adult and Child Disability Payment October 2024 March 2025: Summary Report,” Social Research, Scotland, 2025. Most respondents who had applied for ADP agreed or strongly agreed that their application process was clear and relevant.¹²²Social Security Scotland, “Client Survey – Adult and Child Disability Payment October 2024 March 2025: Summary Report,” Social Research, Scotland, 2025. ¹²³Social Security Scotland, “Client Survey – 2023-2024: Summary Report,” Social Research, Scotland, 2024.

Many ADP applicants agreed or strongly agreed that the eligibility criteria were clear before they applied, that the application process enabled them to fully explain their circumstances, and that they were treated fairly and respectfully throughout the application process.¹²⁴Social Security Scotland, “Client Survey – Adult and Child Disability Payment October 2024 March 2025: Summary Report,” Social Research, Scotland, 2025. ¹²⁵Social Security Scotland, “Client Survey – 2023-2024: Summary Report,” Social Research, Scotland, 2024.

Key findings for case transfer applicants from the 2024 client survey¹²⁶From 2025 onwards, case transfer data for ADP is now published in a report detailing other benefits’ case transfers were also positive.¹²⁷ Social Security Scotland, “Client Survey – 2023-2024: Summary Report,” Social Research, Scotland, 2024.

Some respondents made a direct comparison between their experience of PIP and ADP.

In 2025, the Resolution Foundation provided an economic analysis of the impact of a more person-centred approach to the application process on the costs of implementing the system.¹⁴¹ Resolution Foundation, “Reforms to Scottish disability payments suggest that the system can be kinder without being costlier,” Resolution Foundation, 2025.

Some critiques around the length of the application have been reported.¹⁴⁵E. Harris, “The Independent Review of Adult Disability Payment,” Scottish Government, 2024, Edinburgh. ¹⁴⁶Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026. ¹⁴⁷ Scottish Government, “Scottish Government Response to the Independent Review of Adult Disability Payment Final Report,” Scottish Government, Scotland, 2026. However, in their response to the Independent Review of Adult Disability Payment, the Scottish Government reiterated that structure of the current application form, albeit long, has ‘been refined based on feedback’.¹⁴⁸Scottish Government, “Scottish Government Response to the Independent Review of Adult Disability Payment Final Report,” Scottish Government, Scotland, 2026. The length is to aid in a more accurate capture of information which was ‘considered a worthwhile compromise to ensure decision makers have the information needed for accurate determinations particularly given the removal of DWP-style assessments’.¹⁴⁹ Scottish Government, “Scottish Government Response to the Independent Review of Adult Disability Payment Final Report,” Scottish Government, Scotland, 2026.

2.4.3 ADP consultations¹⁵⁰Social Security Scotland notes consultations provide an opportunity for Social Security Scotland to ask a client questions about specific areas of their application that require more information. They are not a medical examination but rather provide people applying with a chance to speak about how their disability or condition affects their daily life.

Changes to the assessment process have also been implemented. Acknowledging the negative impact of PIP assessments on applicants, Social Security Scotland implemented a consultation process, to be carried out on a case-by-case basis.¹⁵¹ mygov.scot, “Consultations Overview,” [Online]. Available: https://www.mygov.scot/adult disability-payment-consultations. Consultations are carried out by health and social care practitioners directly employed by Social Security Scotland. They use consultations to gather further supporting evidence for any aspect of an application that needs clarification.¹⁵² mygov.scot, “Consultations Overview,” [Online]. Available: https://www.mygov.scot/adult disability-payment-consultations. In order to limit interventions after application submission, Social Security Scotland increased dependence on supporting information, a change which was publicly supported.¹⁵³Audit Scotland, “Adult Disability Payment,” Scottish Parliament, Edinburgh, 2025. ¹⁵⁴E. Harris, “The Independent Review of Adult Disability Payment,” Scottish Government, 2024, Edinburgh. ¹⁵⁵ Scottish Government , “Scottish Government Response to the Independent Review of Adult Disability Payment Final Report,” Scottish Government, Scotland, 2026. ¹⁵⁶ Benefits and Work: Guides you can trust, “More positive changes for Scottish PIP claimants as ADP rolls out,” 17 March 2022. [Online]. Available: https://www.benefitsandwork.co.uk/news/more-positive-changes-for-scottish-pip-claimants as-adp-rolls-out. [Accessed 27 February 2026]. ¹⁵⁷ Scottish Government, “Disability benefits – supporting information: qualitative research,” Scottish Government , Scotland, 2023.

Scottish Government research on the proposed legislation for ADP identified support among respondents for eligibility decisions to be informed by a widened definition of supporting information as compared to PIP. In introducing ADP, Social Security Scotland adapted the types of supporting evidence accepted and who could provide supporting evidence, including evidence from professionals known to the applicant, as well as friends and family.¹⁵⁸mygov.scot, “Consultations Overview,” [Online]. Available: https://www.mygov.scot/adult disability-payment-consultations. The rationale was that the ADP decision making process should be less burdensome on applicants, with initial decisions made on the strength of the initial application, supported by evidence such as prescription slips and medical letters, as well as any further evidence which Social Security Scotland can obtain from professionals assisting the applicant with their disability, such as GPs or occupational therapists.¹⁵⁹ D. Heap, “Goodbye to PIP, but hello to what? Disability, social security, devolution and policy change in Scotland,” Policy Press, vol. 32, no. 1, pp. 170-180, 2024. ¹⁶⁰mygov.scot, “If you need help challenging a decision,” Scottish Government, 2026.

The Social Security Scotland client survey found that 67% of respondents who applied for ADP provided supporting information.¹⁶¹Social Security Scotland, “Client Survey – Adult and Child Disability Payment October 2024 March 2025: Summary Report,” Social Research, Scotland, 2025. Of those who did not provide supporting evidence, 30% said they did not think it was needed and another 31% said they did not have suitable supporting information.¹⁶²Social Security Scotland, “Client Survey – Adult and Child Disability Payment October 2024 March 2025: Summary Report,” Social Research, Scotland, 2025. Clients can also ask Social Security Scotland to collect supporting information on their behalf. This was requested by 27% of respondents.¹⁶³Social Security Scotland, “Client Survey – Adult and Child Disability Payment October 2024 March 2025: Summary Report,” Social Research, Scotland, 2025. The most common reasons for this were they thought Social Security Scotland would have better knowledge of what information to collect (36%) or that they could not gather the information themselves (23%).¹⁶⁴Social Security Scotland, “Client Survey – Adult and Child Disability Payment October 2024 March 2025: Summary Report,” Social Research, Scotland, 2025. Of those who provided supporting information, most agreed or strongly agreed that it was clear what information they should supply (81%) and it was easy to get the required information (71%).¹⁶⁵Social Security Scotland, “Client Survey – Adult and Child Disability Payment October 2024 March 2025: Summary Report,” Social Research, Scotland, 2025.

Data about applicants’ experience of a consultation as part of their application was also gathered in the Social Security Scotland survey. Of those who responded, 5% said they had a consultation, and the majority of these respondents (90%) rated their overall experience of the consultation as very good or good¹⁶⁶Social Security Scotland, “Client Survey – Adult and Child Disability Payment October 2024 March 2025: Summary Report,” Social Research, Scotland, 2025. an improvement on the previous year.¹⁶⁷Social Security Scotland, “Client Survey – 2023-2024: Summary Report,” Social Research, Scotland, 2024.

In qualitative research with clients, there was some confusion whether all phone calls clarifying data from Social Security Scotland’s staff were considered consultations.¹⁹⁵Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026. Those who were more clear they had been through a consultation felt more positive about the experience, which again reflects highly on the process by comparison to PIP assessments.¹⁹⁶Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026.

Greater communication with Social Security Scotland decision-makers was requested across qualitative research with clients.¹⁹⁷Social Security Scotland, “Client Survey – Adult and Child Disability Payment October 2024 March 2025: Summary Report,” Social Research, Scotland, 2025. ¹⁹⁸E. Harris, “The Independent Review of Adult Disability Payment,” Scottish Government, 2024, Edinburgh. ¹⁹⁹Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026. For example, one client noted that they would have appreciated a chance to ask questions about the process in return.²⁰⁰E. Harris, “The Independent Review of Adult Disability Payment,” Scottish Government, 2024, Edinburgh. Whereas other would have liked a chance to explain their conditions directly with decision-makers before initial decisions were made.²⁰¹Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026. This is particularly true of clients who were unsuccessful or received an award lower than their expectations.²⁰²Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026.

Concerns about consultants’ condition-specific knowledge has endured in the years since ADP was introduced. Clients and stakeholders still recommend consultations be carried out by a health care practitioner with relevant knowledge and experience of specific conditions and symptoms.²⁰³E. Harris, “The Independent Review of Adult Disability Payment,” Scottish Government, 2024, Edinburgh. ²⁰⁴ Scottish Government, “Adult Disability Payment Regulations: Analysis of Consultation Responses,” Scottish Government, Edinburgh, 2021. ²⁰⁵ Social Security Scotland, “Client Survey – 2023-2024: Summary Report,” Social Research, Scotland, 2024.

The charts below present statistics from Social Security Scotland from ADP launch until 31 July 2024.

Table 1: Overall decisions and use of client consultations²¹⁹Social Security Scotland, “Information relating to new applications to Adult Disability Payment scheme: FOI release,” Social Security Scotland, Edinburgh, 2024.

Table 2: Breakdown of applications decided following a client consultation by method²²¹Social Security Scotland, “Information relating to new applications to Adult Disability Payment scheme: FOI release,” Social Security Scotland, Edinburgh, 2024.

Table 3: Breakdown of applications by source of request for client consultation²²³Social Security Scotland, “Information relating to new applications to Adult Disability Payment scheme: FOI release,” Social Security Scotland, Edinburgh, 2024.

These findings highlight an overwhelming majority of new applications (where a decision was reached) did not require a client consultation (98%). [32] Among those that required a consultation, the most popular method was via telephone (95%).²²⁵Social Security Scotland, “Information relating to new applications to Adult Disability Payment scheme: FOI release,” Social Security Scotland, Edinburgh, 2024. This data aligns with Social Security Scotland’s stated objectives of adopting a client friendly and less burdensome approach.

2.4.4 Application confusion

While overall there has been positive initial client response to the application process, some have reported difficulties and confusion with the system.²²⁷E. Harris, “The Independent Review of Adult Disability Payment,” Scottish Government, 2024, Edinburgh. ²²⁸Audit Scotland, “Adult Disability Payment,” Scottish Parliament, Edinburgh, 2025. ²²⁹ Social Security Scotland, “Client Survey – 2023-2024: Summary Report,” Social Research, Scotland, 2024. ²³⁰ E. Young, “From advice to action: Improving access to disability payments,” Citizens Advice Scotland, Scotland, 2025. ²³¹ L. Judge and L. Murphy, “Delivering dignity? Early Lessons from the Introduction of Adult Disability Payment in Scotland,” Resolution Foundation, 2025. One respondent to the 2024 Social Security Scotland client survey commented that ‘the process isn’t set up to support those with learning difficulties. It’s long, wordy and generalised’. [24] Advisors describe a system that is still difficult for applicants.²³²E. Young, “From advice to action: Improving access to disability payments,” Citizens Advice Scotland, Scotland, 2025. A 2025 CAS quarterly insight report emphasised the growing demand for ADP application support, finding that from July to September 2025 ADP represented 20% of all social security advice provided by CAS.²³³E. Young, “From advice to action: Improving access to disability payments,” Citizens Advice Scotland, Scotland, 2025. This is further evidenced in Social Security Scotland client research surveys with ADP applicants. Just under half (46%) of respondents received help to complete their Adult Disability Payment application²³⁴Of these, different groups were more likely to receive support including minority ethnic respondents (66%), respondents aged 16-24 (57%), and respondents who lived at a postcode categorised as most deprived (51%)., which is a decrease of two percentage points from the previous client survey (48%).²³⁵Social Security Scotland, “Client Survey – Adult and Child Disability Payment October 2024 March 2025: Summary Report,” Social Research, Scotland, 2025. ²³⁶Social Security Scotland, “Client Survey – 2023-2024: Summary Report,” Social Research, Scotland, 2024. Further highlighting the impact of advice work, Citizens Advice Scotland point out:

Halliday et.al. reaffirm the importance of making assistance available to those applying. [19] They note that claimants who wanted but did not receive help had a higher likelihood of their claim being denied compared to those who either received assistance or felt more confident making the claim. While their research highlights improvements in comparison to PIP, they also suggest there is still more to improve upon to ensure all clients are treated with dignity, fairness and respect.²⁴⁹ S. Halliday, T. Csoban, R. Friskney, G. Macintyre, J. Meers, B. Seyd and J. Tomlinson, “Bureaucratic justice in disability benefits.,” Administrative Fairness Lab Report, 2025. There is particular emphasis on reviewing the ADP assessment criteria and improving the amount paid in award payments.²⁵⁰Audit Scotland, “Adult Disability Payment,” Scottish Parliament, Edinburgh, 2025. ²⁵¹E. Harris, “The Independent Review of Adult Disability Payment,” Scottish Government, 2024, Edinburgh. ²⁵² S. Halliday, T. Csoban, R. Friskney, G. Macintyre, J. Meers, B. Seyd and J. Tomlinson, “Bureaucratic justice in disability benefits.,” Administrative Fairness Lab Report, 2025. ²⁵³Disability Rights UK, “Independent Review of Scottish Adult Disability Payment Highlights Importance Of “A Compassionate, Practical And Accessible System”,” 1 August 2024. [Online]. Available: https://www.disabilityrightsuk.org/news/independent-review-scottish-adult disability-payment-highlights-importance-%E2%80%9C-compassionate. [Accessed 16 2 2026].

In comparison, case managers reviewing applications felt that the ADP, CDP and PADP application forms ‘allowed for a person-centred decision-making because the questions are open’.²⁵⁴Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026. The Scottish Government reaffirmed that the length of the form had been considered a ‘compromise’ as it ensures decision-makers have the information necessary and improves accuracy of the award outcome.²⁵⁵Scottish Government, “Scottish Government Response to the Independent Review of Adult Disability Payment Final Report,” Scottish Government, Scotland, 2026.

2.5 Official statistics for ADP and PIP

This section looks at data provided by Social Security Scotland and the DWP about the award and denial rates for ADP and PIP, including information about clearance timescales. Often data is not directly comparable due to different classifications for example condition categories, or ways of presenting data, for example average clearance times vs banded times. Official statistics provide a snapshot of activity, giving insight into what is happening, but not necessarily why certain trends are occuring. In the case of ADP, there is a gap in understanding around the client experience.

Throughout this section, to provide clarity in charts and tables ADP data appears in purple, PIP data appears in blue and those that combine ADP and PIP statistics into a single table are gray. Statistics from Social Security Scotland about ADP have been taken from the most recent publication of official statistics (21 March 2022 to 31 October 2025) and PIP data from through October 2025 has been cited.²⁵⁶Social Security Scotland, “Adult Disability Payment Statistics March 2025 to 31 October 2025,” Social Security Scotland, Scotland, 2025. ²⁵⁷ Department for Work and Pensions, “Personal Independence Payment: Official Statistics to October 2025,” gov.uk, London, 2025.

Table 4: Comparison of overall award rates between ADP and PIP²⁵⁸Social Security Scotland, “Adult Disability Payment Statistics March 2025 to 31 October 2025,” Social Security Scotland, Scotland, 2025. ²⁵⁹ Department for Work and Pensions, “Personal Independence Payment: Official Statistics to October 2025,” gov.uk, London, 2025.

Overall award rates for ADP through October 2025 were 45%, with 51% denied and 4% withdrawn.²⁷¹ Social Security Scotland, “Adult Disability Payment Statistics March 2025 to 31 October 2025,” Social Security Scotland, Scotland, 2025. In contrast, 43% of normal rules PIP decision received an award over a five year period ending in October 2025 and 38% of normal rules PIP decisions received in an award in the quarter ending October 2025.²⁷²Department for Work and Pensions, “Personal Independence Payment: Official Statistics to October 2025,” gov.uk, London, 2025.

2.5.1 Application outcomes by disabling condition

The charts below present ADP and PIP award assistance based upon primary disabling condition.

Table 5: Percentage of ADP applications denied or approved by primary health condition²⁷³Social Security Scotland, “Adult Disability Payment Statistics March 2025 to 31 October 2025,” Social Security Scotland, Scotland, 2025.

The conditions with the highest denial rate for ADP are ‘unknown’ (82%), ‘special codes DWP’ (78%), diseases of the digestive system (64%) and diseases of the ear and mastoid process (64%).²⁷⁷Social Security Scotland, “Adult Disability Payment Statistics March 2025 to 31 October 2025,” Social Security Scotland, Scotland, 2025.

Table 6: PIP award rates based on main disabling condition from April 2025²⁷⁸DWP reports on award rate based on main disabling condition annually. While other data presented in this section comes from the most recent publication of official statistics (October 2025), this chart comes from the previous report (April 2025). The overall award rate for normal rules new claims remained unchanged between April 2025 and October 2025. ²⁷⁹ Department for Work and Pensions, “Personal Independence Payment Statistics to April 2025,” gov.uk, London, 2025.

As the data provided considers different categories for primary disabling condition, comparison across the ADP and PIP data is difficult. The two conditions that may be comparable are Diseases of the Respiratory System and Mental and Behavioural Disorders. Both have similar award rates for both ADP and PIP, although the ADP award is slightly higher in each case (about 7 percentage points).

2.5.2 Clearance data and timeframes

Both the DWP and Social Security Scotland provide data on clearance rates and timeframes²⁸³According to a FOI request, Social Security Scotland does not have official clearance timeframes for ADP. This was to avoid incentivised rush decisions. [69] However, under Special Rules for Terminal Illness, they aim to deliver awards for terminally ill clients within seven days. . Where Social Security Scotland reports completion in time bands, DWP reports average clearances over time (median) which makes comparison of data difficult.²⁸⁴ Social Security Scotland, “Adult Disability Payment Statistics March 2025 to 31 October 2025,” Social Security Scotland, Scotland, 2025. ²⁸⁵Department for Work and Pensions, “Personal Independence Payment: Official Statistics to October 2025,” gov.uk, London, 2025. A rough comparison suggests that a completion rate within four months is common for both systems. Social Security Scotland report 68% of applications processed within four months and DWP report that current clearance rates (for April 2025) average around fourteen weeks.²⁸⁶Social Security Scotland, “Adult Disability Payment Statistics March 2025 to 31 October 2025,” Social Security Scotland, Scotland, 2025. ²⁸⁷Department for Work and Pensions, “Personal Independence Payment: Official Statistics to October 2025,” gov.uk, London, 2025. For further information, refer to the tables d below.

Table 7: Statistics from Social Security Scotland showing the proportion of decision completed within each time band from March 2022 to 31 October 2025²⁸⁸ Social Security Scotland, “Adult Disability Payment Statistics March 2025 to 31 October 2025,” Social Security Scotland, Scotland, 2025.

While the official statistics do not cover why processing times may take 141 or more working days, a proposed reason could be due to slow processing times for applications where clients have asked Social Security Scotland to collect supporting information.²⁹⁵E. Harris, “The Independent Review of Adult Disability Payment,” Scottish Government, 2024, Edinburgh. For example, a Freedom of Information (FOI) request published by Social Security Scotland noted that as of March 2024, there were 3,728 open ADP applications pending supporting information from a client’s General Practitioner/Hospital or other sources²⁹⁶This also includes redetermination and appeals where an original decision may have been reached but additional evidence has been requested from a General Practitioner/Hospital..²⁹⁷ Social Security Scotland, “Information relating to pending Adult Disability Payment applications awaiting supporting information: FOI release,” 26 April 2024. [Online]. Available: https://www.socialsecurity.gov.scot/publications/2024/04/information-relating-to-pending adult-disability-payment-applications-awaiting-supporting-information-foi-release. [Accessed 1 February 2026]. Other suspected reasons for delay included IT issues. However Social Security Scotland was not able to provide more information to an FOI request that queried IT concerns.²⁹⁸ Social Security Scotland, “Information relating to Adult Disability Payment applications which are delayed due to an IT issue: FOI release,” 5 March 2024. [Online]. Available: https://www.socialsecurity.gov.scot/publications/2024/03/information-relating-to-adult disability-payment-applications-which-are-delayed-due-to-an-it-issue-foi-release. [Accessed 5 February 2026].

Since an initial review in which severe delays in processing times was noted, PIP clearance rates have improved.²⁹⁹ P. Gray, “An Independent Review of Personal Independent Payment Assessment,” UK Government, London, 2014. ³⁰⁰P. Gray, “The Second Independent Review of the Personal Independence Payment Assessment,” Department for Work and Pensions, London, 2017. DWP official statistics note that between April 2013, when PIP began, and October 2025, 9.2 million claims were registered for PIP, and 8.9 million of the registered claims were cleared.³⁰¹Department for Work and Pensions, “Personal Independence Payment: Official Statistics to October 2025,” gov.uk, London, 2025. Clearance times as of April 2025 are:

• 14 weeks for normal rules new claims from registration to a decision being made
• 17 weeks for DLA reassessment claims from registration to a decision being made³⁰²Department for Work and Pensions, “Personal Independence Payment: Official Statistics to October 2025,” gov.uk, London, 2025.

In the quarter ending October 2025 there were:

• 210,000 registrations and 170,000 clearances for new claims
• 34,000 changes of circumstance reported and 30,000 cleared³⁰³Department for Work and Pensions, “Personal Independence Payment: Official Statistics to October 2025,” gov.uk, London, 2025.

2.5.3 Initial award by type

Table 8: Statistics from Social Security Scotland showing Adult Disability Payment New Applicants – Initial awards by award type for each financial year from March 2022 to 31 October 2025³⁰⁴Social Security Scotland, “Adult Disability Payment Statistics March 2025 to 31 October 2025,” Social Security Scotland, Scotland, 2025.

These statistics show a decline in the percentage of new applicants being awarded both components of ADP since the rollout in 2022. There is little data to explain why this may be the case.

In addition to changes in new applicant initial awards by award type, there have also been changes in the level of award new applicants are receiving. Social Security Scotland statistics for daily living award levels and mobility award levels show that since the rollout of ADP in 2022 there has been a decrease in percentage of new applicants receiving the enhanced rate compared to an increase in new applicants receiving the standard rate for both components.

Table 9: Statistics from Social Security Scotland showing Adult Disability Payment New Applicants – Initial Daily Living and Mobility awards by level from March 2022 to 31 October 2025³¹⁵Social Security Scotland, “Adult Disability Payment Statistics March 2025 to 31 October 2025,” Social Security Scotland, Scotland, 2025.

There has been a 24% decrease in the number of new applicants receiving the enhanced Daily Living award from 2022 to the most recent financial year, similar to the Enhanced Mobility component which has seen a 14% decrease. The quantitative data paints only part of the picture, with a pattern emerging in which the ADP initial award decisions are changing. One potential explanation for this could be that the emphasis by Social Security Scotland on creating a more human centred and personalised application process has resulted in more people applying for ADP. Even though eligibility levels in the general population may not have changed, it could have reached people who qualify for standard rates who may have never previously considered applying – perhaps because they themselves did not think they would be eligible.³¹⁷S. Ray-Chaudhuri and T. Waters, “What has happened to disability benefits in Scotland? An update,” Institute for Fiscal Studies, 2024. Another potential explanation for the change in level of awards could be the push from Social Security Scotland to increase awareness of the benefit through their advertising campaigns, along with the publicity that came with the decision for Social Security Scotland to take over delivering the disability benefit, replacing PIP with ADP in Scotland.³¹⁸Audit Scotland, “Adult Disability Payment,” Scottish Parliament, Edinburgh, 2025. There is a lack of rigorous qualitative research to explain why this appears to be the case.

In comparison, the DWP provides information on PIP award rates for enhanced Daily Living and Mobility by disabling condition rather than by timescale. Those with a psychiatric disorder are most likely to receive a Daily Living enhanced rate and those with a neurological disease are most likely to receive an enhanced Mobility rate. People living with a neurological disease are also most likely to receive both the enhanced Daily Living rate and enhanced Mobility.³¹⁹Department for Work and Pensions, “Personal Independence Payment Statistics to April 2025,” gov.uk, London, 2025.

2.6 Summary

This chapter has examined the available evidence on initial decision making for ADP and considered how far this enables comparison with initial decisions for PIP. The chapter draws on a combination of official statistics, client survey data, independent reviews, and qualitative research to assess decision making processes, applicant experiences, and outcomes under both systems.

The evidence shows that, while ADP and PIP share the same eligibility criteria, the processes through which initial decisions are made differ in important ways. ADP was introduced with the stated aim of adopting a more rights based and person-centred approach, relying more heavily on supporting information, offering different pathways to submit an application, and limiting the use of consultations. Client survey data suggests that many applicants experience the ADP application process as clearer, more respectful, and easier to navigate than PIP, with acknowledgement of improved fairness, communication, and tone. In qualitative research with clients on the decision-making process, it was noted that often the award outcome impacted a clients’ understanding of their experience. Negative feedback on the application and consultation processes were much more likely to come from people who did not receive an award or received less points than expected.³²⁰Scottish Government, “Disability benefits policy evaluation: Decision-making,” Scottish Government, Scotland, 2026.

2.6.1 What data exists to enable a comparison between initial decisions on PIP and ADP entitlement?

As this chapter shows, there are some avenues for comparison of the two awards, including:

• Official statistics
• Client survey data
• Independent reviews and government-commissioned research
• Qualitative research and stakeholder evidence

However, direct comparisons are difficult given limits to the available research. ADP and PIP statistics are often presented using different classifications, timeframes, and measures, particularly in relation to primary disabling condition, award levels, and clearance times. This makes direct comparisons of decision-making outcomes more difficult. While there is a substantial evidence base on PIP claimant experiences, particularly relating to assessments, there is far less qualitative research on ADP initial decision-making. Much of the available ADP evidence reflects early implementation and immediate client reactions rather than longer-term trends.

2.7 Identified research gaps

In considering research gaps about available data on the initial decision-making process for ADP, research gathered and published about PIP is useful as it provides a comparative point.

2.7.1 Qualitative research gaps

• The evidence discussed in this chapter highlights that there is overall satisfaction with ADP as compared to clients’ previous experiences with PIP. However, given the longer running time for the PIP programme, there is less data available about ADP. Initial decision rates, particularly when broken down by different award types, seem to be changing over time. Application numbers are increasing. While some reports have hypothesised why this may be the case, there is limited qualitative research to understand the rationale from the perspective of the client, both those who are successful in attaining an award and those who are not.

2.7.2 Official statistics gaps

• There is an absence of statistical alignment to reporting by Social Security Scotland and the DWP, which inhibits comparison of the two programmes.
• As ADP is still a new benefit, there have been gaps in the gathering and reporting of official statistics reported. This lack of clear quantitative data as compared to data from the DWP on PIP is something acknowledged by both public body and academic researchers.³²¹Audit Scotland, “Adult Disability Payment,” Scottish Parliament, Edinburgh, 2025. ³²² Scottish Government , “Scottish Government Response to the Independent Review of Adult Disability Payment Final Report,” Scottish Government, Scotland, 2026. ³²³E. Congreve, “New awards of disability benefits for adults: Comparing Scotland with England and Wales,” Scottish Health Equity Research Unit, Glasgow, 2024.