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Literature Review: Experiences of the Scottish social security system among people for whom English is a second language

This literature review, commissioned by the Scottish Commission on Social Security and produced by The Lines Between, examines the experiences of people for whom English is a second language in navigating the Scottish social security system.

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Contents

Document Cover
Executive Summary
Acknowledgements
1. Introduction
2. Prevalent languages spoken in Scotland
3. Experiences of applying for social security for people whose first language is not English
4. Parts of the social security system people find difficult
5. Needs, rights and expectations of Gaelic speakers relevant to interactions with the Scottish social security system
6. Extent to which social security charter expectations are being met
7. Evidence gaps
8. Conclusion
Annex A: Continued Reading
Annex B: Country of Birth of people aged 3 and over in Scotland
Annex C: Main home languages of pupils

3. Experiences of applying for social security for people whose first language is not English

3.1 Introduction

This chapter considers literature on the experiences of applying for social security for people whose first language is not English. It considers evidence from both the Scottish social security system as well as that from other parts of the UK to further illustrate points raised. Evidence was found on a range of barriers that clients may face in accessing social security, both in terms of a limited awareness that may prevent them from applying in the first place, as well as challenges experienced once an application is underway.

Consideration is given to how clients might gain knowledge or information about social security benefits available to them, and what factors might play a role in a lack of awareness. In addressing experiences of the application process itself, the evidence draws on user experiences with written materials, application forms, and telephone applications.

3.2 Awareness of social security benefits

Overall, the evidence suggests there is a low awareness of social security benefits among people whose first language is not English, including in Scotland, and this section explores likely reasons for this.

Most evidence focuses on awareness among minority ethnic groups rather than specific groups of people who speak English as a second language. Low awareness of benefits or the eligibility criteria of those benefits among marginalised groups in the UK has been widely reported. ¹ ² ³ ⁴. Low awareness of benefits among groups likely to have English as a second language has also been identified as an issue in Scotland . ⁵ ⁶ ⁷ ⁸ ⁹ ¹⁰ For instance, stakeholders felt awareness of the five family payments was low among those with English as a second language.¹¹

The literature indicates that a key reason for lack of awareness of benefits is having little exposure to people or places that can provide such information. In Scotland it has been noted that marginalisation can stem from: isolation in later life; a lack of engagement with education, employment or training; carer status; digital exclusion; recent migration or a lack of awareness of community places where information would be shared.¹² ¹³ ¹⁴ ¹⁵ ¹⁶ ¹⁷ ¹⁸ ¹⁹ ²⁰. These findings replicate those identified in UK based studies. ²¹ ²² ²³ ²⁴ ²⁵

UK based studies have identified a lack of prior contact with the benefits system can also result in a low awareness of benefits.²⁶ This has also been raised as an issue via Scottish social security experience panel research involving those with English as a second language.²⁷ ²⁸ For instance, in one UK-based study, a little over 20% of migrants who were eligible to apply for benefits either felt they were not eligible for benefits or did not know, rising to 27% with indefinite leave to remain and 32% of eligible pre-settled status holders (i.e. people with pre-settled status who were also in work).²⁹ Independent information and advice services can help people maximise their income through providing support to access benefits. However, in recent research with minority ethnic carers in Scotland, 44% of respondents agreed with the statement ‘I did not know that information and advice is available’, with only 10% reporting no barriers to obtaining advice.³⁰

Low awareness of benefits can also occur for other reasons and is likely to be a particular issue for those with communication needs living in Scotland, given their reliance on others for assistance.³¹ ³² ³³ Language barriers can make it hard for people to navigate information when it is only provided in English. In Scotland this has been found to affect the ability to find information, understand information and to express oneself.³⁴ ³⁵ ³⁶ ³⁷ ³⁸ Recent social security experience panel research with carers found many were unaware of which services offered interpretation support or provision of information in their first language.³⁹

Written information can be a barrier if it is only available in English, particularly when solely provided in a digital format.⁴⁰ ⁴¹ People with communication difficulties who had looked at Social Security Scotland’s websites were less likely to say the websites were ‘easy to navigate’ (68%) and the ‘information easy to understand’, compared to those with no additional communication needs (76% and 77% respectively).⁴² To illustrate, the ‘Translated resources’ page of Social Security Scotland has a button in English that states ‘Apply in a language that’s not English’ which takes the reader to a page written in English. Accessing materials in minority languages can also be a barrier where someone has low literacy in their native language.⁴³ ⁴⁴

Low awareness of benefits has been found in Scotland to be compounded by the potential for miscommunication, inconsistency or inaccuracies in information provision, for instance inconsistent advice given by different workers or misinformation spread in communities.⁴⁵ ⁴⁶ Challenges understanding who can apply, and how to apply, for benefits have been identified in relation to the Scottish social security system.⁴⁷ ⁴⁸ ⁴⁹ ⁵⁰ For instance, minority ethnic participants taking part in a Social Security Experience Panel talked about the lack of clear information on eligibility.⁵¹ This is likely to impact those with English as a second language due to the reliance on other community members for information, often provided verbally which can potentially result in complex information being inaccurately interpreted into other languages due to fragmented understanding.

In addition, community-held beliefs or misconceptions about services can also impact awareness and up-take in both Scotland and across the UK, such as:

not identifying with concepts of disability or caring or not wanting to be seen to accept help;⁵² ⁵³ ⁵⁴ ⁵⁵
believing benefits are given automatically, without having to apply;⁵⁶
a desire to avoid services due to fears of negative consequences such as having their children removed, being arrested or being deported despite having the right to remain.⁵⁷ ⁵⁸ ⁵⁹

Perceived complexity of eligibility criteria or the service landscape has also been found to contribute to a lack of awareness or knowledge of social security benefits among certain groups, including those with English as a second language.

Issues relating to the service landscape identified in Scotland include: people being unaware of which organisations provide benefits or of the roles of support agencies more broadly; a lack of signposting from other organisations and providers; a lack of cultural familiarity with government services among New Scots; and general confusion of changes in responsibilities between the UK Government and the Scottish Government or of differences between the DWP and Social Security Scotland. ⁶⁰ ⁶¹ ⁶² ⁶³ ⁶⁴ ⁶⁵ This can lead to time wasted searching for relevant information resulting in financial challenges.⁶⁶ ⁶⁷ As one carer with English as a second language is quoted as saying during a Social Security Experience Panel discussion:

“We don’t know how to apply, how to get it. We don’t know who qualifies and doesn’t qualify.”¹³⁵: 3

There is some evidence that intersectionality is relevant here too, where multiple and compounding inequalities might intertwine to create further barriers for people with English as a second language. For instance, UK wide reports have found people experiencing more than one type of disadvantage are likely to experience low awareness.¹³⁷ ¹³⁸ ¹³⁹ ¹⁴⁰ ¹⁴¹ This was also reported in a Scottish report on intersectionality.¹⁴² To illustrate this, complex information can create barriers for people with certain health conditions, which is likely to make it exhausting to comprehend for someone who also has English as a second language.¹⁴³

Evidence from Scotland suggests people with English as a second language who are aware of benefits often find out about them through their local communities. Common sources of information on benefits include through people they are in contact with, such as friends and family, ‘word-of-mouth’ or workers supporting them and those relied on to assist with communication.¹⁴⁴ ¹⁴⁵ ¹⁴⁶ ¹⁴⁷ ¹⁴⁸ ¹⁴⁹ ¹⁵⁰

Community-based resources (e.g. Job Centre, Citizen’s Advice, libraries, GP practices, coffee mornings) have been identified in Scotland as sources of information, as are faith settings, such as Mosques, Temples and Gurdwaras.¹⁵¹ ¹⁵² ¹⁵³ ¹⁵⁴ Similar findings are reported elsewhere in the UK¹⁵⁵ ¹⁵⁶ Recommendations in the Scottish literature have therefore been made to promote Social Security Scotland and social security benefits more widely in trusted places like community or faith settings, or through welfare rights advisors located in these premises.¹⁵⁷ ¹⁵⁸ ¹⁵⁹ ¹⁶⁰ ¹⁶¹ ¹⁶²

Approaches to promotion of certain Scottish benefits to support families were highlighted as positive with claimants for whom English is a second language. For instance, promotion of Scottish Child Payment was felt to have been especially effective, with one study also singling this benefit out, noting a mother reported hearing about it from a friend.¹⁶³ ¹⁶⁴ This campaign had involved paid for marketing, engagement with stakeholders who shared messaging in innovative ways, such as through school enrolment or health visitor packs, and inclusion of materials in the Baby Box.¹⁶⁵

3.3 Experiences of applying for benefits among those who speak English as a second language

This section considers evidence of applying for social security benefits where a person’s first language is not English. This includes views on social security written materials, challenges with application forms, as well as how challenges with application forms might intersect with other disadvantages experienced by people whose first language is not English. Finally, it explores the challenges of making a social security application by phone, including the evidence on interpretation support.

For their current application processes, Social Security Scotland offers the use of translators and interpreting services to assist with applications made by telephone. Social Security Scotland offers application support through translations in over 100 languages with support from interpreters. Clients are not currently able to apply for social security benefits online or by written form in any language other than English. Social Security Scotland does, however, provide benefit factsheets in 12 alternative languages and offers to translate decision reports when a determination of entitlement is made.

3.3.1 Views on social security written materials

Social Security Scotland’s provision of benefit factsheets in minority languages aligns with research that suggests written materials are preferred by people with English language needs.¹⁶⁶ Written guidance allows clients to use dictionaries, and for family members or friends to help with translation. Scottish Government research has shown that some clients with English as a second language found it helpful to have information in a written, paper format, so they had a copy they could refer to and take their time understanding.¹⁶⁷ Views differed on whether this was a translation in their own language or written material in English. In other Scottish Government research on minority ethnic clients, participants wanted to see more translated materials, including Social Security Scotland communications and any additional information sent with application decision letters.¹⁶⁸

Limited data exists on what people think of translated materials from Social Security Scotland, though one client reported translation services had always been available to support his discussions.¹⁶⁹ Another survey noted that some staff thought translation processes were good, but other staff described clients experiencing long waits and sometimes low-quality translations, which often delayed decision letters; staff also felt they had received inadequate training and guidance on inclusive communication processes.¹⁷⁰

3.3.2 Challenges with forms among clients who speak English as a second language

Given that many social security clients perceive social security application forms to be long, complex and sometimes unclear, it is likely these can present a barrier for those who speak English as a second language living in Scotland.¹⁷¹ ¹⁷² This was found to be the case in evaluations of the Best Start Grant, the Young Carer Grant¹⁷³ ¹⁷⁴ Social Security Experience Panel research with Gypsy/Travellers, refugees, and seasonal migrant workers found clients perceived the application forms as repetitive and long, and found it difficult to understand what information was being requested from them.¹⁷⁵ In another English study, many participants also reported difficulty expressing their care needs in writing.¹⁷⁶

Evaluations of the five family benefits and Young Carers grant awarded in Scotland note people with English as a second language experience benefit applications as challenging.¹⁷⁷ ¹⁷⁸ ¹⁷⁹ Respondents in the interim qualitative evaluation of the Best Start Grant suggested the provision of support and advice to help complete the grant application would help those who experienced difficulties in reading and writing and for those for whom English is not their first language.¹⁸⁰

“I have been advised we are unable to send translated copies of completed application forms to clients who do not speak English, meaning they do not get the same level of information provided to them accessibly like an English speaker would.”²²⁵: 50

Application forms can prompt negative emotional experiences among clients and particularly those who speak English as a second language. The Scottish social security experience panel research with Gypsy/Travellers, refugees and seasonal migrant workers found clients felt anxious and stressed by benefits application processes.²²⁷ Adjustments in tone on forms were identified in a 2018 Scottish research report as being key to reducing stigma and stress for applicants.²²⁸

“If I read some information on my own, I can’t work out exactly who is eligible, what is expected of you once you are getting benefits. I can’t work out other bits of the process, and I would feel like I was telling a lie if I tried to answer something I didn’t fully understand.”²³¹: 23

The challenge of completing social security application forms when a person’s first language is not English may also intersect with other disadvantages to create further barriers to accessing benefits. Application forms may pose extra challenges for those who do not speak English as a first language, with poor literacy levels; other than limited qualitative evidence, there is a lack of data to substantiate this claim.

As noted in chapter 2, it should not be assumed that such individuals will have lower English literacy ability than White adults. Individuals may have limited literacy in English and low literacy levels in their first language, seen particularly in elderly people with English as a second language.²³³ Stella and Kay’s mapping of ESOL provision in Scotland found that ESOL learners ranged from highly qualified people who need to learn or improve their English, to those with broader literacy needs and with little schooling in their own countries.²³⁴

Stakeholders involved in a review of five Scottish family benefits noted people can experience challenges understanding interpreted materials where they were illiterate in their own language or spoke a rare dialect.²³⁵

Digital exclusion for those with lived experience of poverty and intersecting protected characteristics can also create challenges in accessing online application forms as highlighted in research with Social Security Experience Panel members.²³⁶ Other Scottish research has found digital literacy and access can be particularly excluding for older clients and for women from some communities.²³⁷ ²³⁸ ²³⁹

“Because they are not literate don’t know where to go or how to get help. Sometimes women rely on their husbands.”²⁴⁷: 24

Challenges with application forms and fear of making errors are also worsened by the bureaucratic language and level of English literacy required for social security application forms.²⁴⁹ ²⁵⁰ Social Security Scotland have invested in Easy Read resources, based on research that emphasises the importance of explaining benefits application processes in a clear and accessible way.²⁵¹ Issues relating to social security system complexity are considered further in the next chapter.

3.3.3 Challenges with telephone applications

For people who wish to communicate verbally in a language other than English, Social Security Scotland provide an interpreting service, with this available only for telephone applications and can be booked in advance. One Scottish study found support from an interpreter for making an application can be a positive experience²⁵² Telephone interpretation can work well if implemented correctly, particularly where extra measures have been considered by case workers, such as clarifying professional terminology with an interpreter before an interview.²⁵³ ²⁵⁴ In fact, research on social work has demonstrated the significance of the case worker’s skill in managing interpreter-mediated sessions and improving outcomes for non-native-speaking families.²⁵⁵

Only offering support for applications in other languages by telephone does, however, constrain clients to this sole application method and leaves them reliant on interpreters. Applying via telephone calls can also cause difficulties if there are issues with interpreting; there is evidence from Scotland, that interpreting services can lead to poor outcomes for people if there are issues,, for instance, as they could result in limited uptake of services contributing to persistent inequalities.²⁵⁶ ²⁵⁷ Information provided in a recent FOI response found only three complaints had been received by the translating company commissioned by Social Security Scotland and reported that data was not held on languages that had received the most negative feedback or complaints.²⁵⁸ Charter research by Social Security Scotland, however, found numerous issues with interpreting services such as people’s preferred interpreters not being allowed, limited knowledge among staff of how to access interpreters, interpreters being rude or unreliable and the translation process as slow and sometimes low quality.²⁵⁹ Other UK based studies have noted similar issues with poor quality interpreting, an inability to retain the same interpreter over time and limitations of interpreters in acting as advocates for clients.²⁶⁰ ²⁶¹ There can also be issues with interpreters using a different regional dialect or having different accents from their clients, that may make it difficult for them to be understood over the phone.²⁶² ²⁶³ ²⁶⁴. This issue has been raised for instance by Punjabi clients in relation to the Scottish social security system.²⁶⁵

“Sometimes an interpreter is provided, yet they may not have the appropriate skills. In some countries, for example, there are very distinctive regional differences in dialect. So, the assumption that an interpreter is right for the job, based on a broad-brush understanding can be profoundly misleading.”²⁸³: 41

As they were perceived to be less rushed than helpline contact, face-to-face meetings were also preferred by some with low English language proficiency, offering a better opportunity to clarify any areas of confusion than on the telephone.²⁸⁵ Other research has suggested that live video interpretation may be an effective replacement for telephone interpreter services.²⁸⁶ ²⁸⁷

3.4 Summary

The evidence reviewed in this section demonstrates that people whose first language is not English tend to have low awareness of Scottish security benefits, alongside significant challenges in accessing information and applying. Language barriers intersect with social isolation, digital exclusion, limited literacy, and unfamiliarity with the welfare system. These challenges are reinforced by complex eligibility rules and fear of negative consequences. Although translated materials and interpreting support are valued, their effectiveness can be inconsistent. Application processes are widely experienced as long, complex and stressful, particularly for those with English as a second language. Awareness and engagement are more likely where information is shared through trusted community networks.