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

This report presents a rapid literature review on existing evidence of experiences of the Scottish social security system among people for whom English is a second language (ESOL). The review was commissioned by the Scottish Commission on Social Security (SCoSS) following earlier SCoSS research on communication needs, which identified the need for further research into the experiences of people whose first language is not English. The review focuses primarily on language-related barriers, while recognising that these often intersect with other forms of disadvantage.

The review addresses a set of research questions covering: awareness of Scottish social security benefits; experiences of applying for benefits; parts of the system people find difficult; languages prevalent among the Scottish population and among social security users; challenges posed by application forms and benefit concepts; the needs and expectations of Gaelic speakers; the extent to which social security charter expectations are being met; and gaps in the existing evidence base.

Given the limited volume of Scotland-specific research on ESOL and social security, the review adopts a deliberately broad scope. It draws on Scottish, UK-wide and international literature where relevant, while excluding work focused solely on accessibility issues unrelated to language, or on people with no recourse to public funds whose access to the system is highly constrained.

Identification and nature of the evidence

A broad and iterative search strategy was used to identify relevant evidence, including peer-reviewed academic literature, government and official statistics, and grey literature such as stakeholder reports and unpublished studies. Literature published from 2015 onwards was prioritised, with earlier sources included where judged to be particularly relevant. Research conducted in Scotland and the UK formed the core of the evidence base, supplemented by a smaller number of international sources.

In total, 237 sources were reviewed, of which 194 were included in the final synthesis. Sources were coded using a framework driven by the research questions and aligned to the commitments of the Social Security Charter. Stakeholders identified by SCoSS were also invited to submit evidence through a call for evidence.

The included literature spans a wide range of topics. Around one third relates directly to social security, while others address language use, ethnicity, poverty, discrimination, or access to public services more broadly. The evidence base includes public sector publications, academic research, and third sector reports, reflecting a diversity of perspectives but also uneven coverage across topics.

Prevalent languages spoken in Scotland

The report first considers evidence on languages spoken in Scotland, drawing primarily on data from Scotland’s Census 2022. English remains the main language spoken at home for most of the population, with 94% reporting English as their main home language. Scots and Gaelic are spoken by smaller proportions of the population but are recognised as official languages and supported through specific policy frameworks.

Beyond these official languages, 5.2% of the population (273,015 people) reported speaking another language as their main language at home with earlier census data (2011) indicating Polish, Chinese languages, Urdu, Punjabi and French were among the most spoken minority languages. More up to date insight is provided by the Scottish Schools Pupil Census (2024), which shows Polish, Urdu and Arabic as the most common non-English home languages among pupils in state-funded schools.

This review highlights that country of birth and ethnicity are imperfect proxies for language use. Many countries are multilingual, and migrants may speak multiple languages, including English. English proficiency also varies widely and cannot be assumed based on language background alone.

English proficiency and language use among social security users

Census data indicates most people in Scotland report being able to speak, read and write English well or very well, though a minority have limited or no English skills. English proficiency varies significantly among those for whom English is a second language and is likely to be influenced by the length of time spent in the UK as well as age at the time of migrating to Britain.

Available data specific to social security users is very limited. Social Security Scotland’s client satisfaction surveys indicate that around three quarters of respondents report English as their main language, with just under a quarter reporting another main language. This proportion is higher than in the general population, though the reasons for this difference are unclear.

The evidence suggests that reported English proficiency does not necessarily remove the need for multilingual support. Even where people can speak English, they may prefer to use their first language in official or stressful contexts, particularly when dealing with complex or technical information. Freedom of Information responses indicate that Social Security Scotland provides interpretation in over 100 languages for telephone applications and offers translated written materials in a smaller number of languages. The most frequently requested translations include Polish, Arabic, Ukrainian, Romanian and Urdu. However, comprehensive demographic data on language use among clients are not routinely published.

Awareness of social security benefits

Low awareness of social security benefits among people with English as a second language has been identified in both the Scottish literature and that from further afield. Low awareness of the Scottish social security system can arise for various reasons, including limited exposure to sources of information, social isolation, digital exclusion, unfamiliarity with government systems, and reliance on informal community networks. Evidence from Scotland indicates that people may be unclear about eligibility criteria, which benefits exist, and which organisations are responsible for delivery, particularly given the division between devolved Scottish benefits and reserved UK benefits.

Language barriers exacerbate these issues by limiting access to written and digital information, which is often available only in English. Inconsistent advice or misinformation can circulate within communities which can further cause uncertainty. Awareness is often higher where information is shared through trusted intermediaries such as community organisations, faith settings, or welfare rights advisers.

Experiences of applying for social security benefits

The evidence reviewed shows that people with English as a second language face a range of challenges when applying for social security benefits in Scotland. These include limited awareness of benefits due to marginalisation or lack of prior contact with the social security system, information being provided solely in English, or perceived complexity of eligibility criteria.

While Social Security Scotland provides interpretation support for telephone applications and translated factsheets, applications themselves can only be completed in English. People with limited English proficiency can experience application forms as challenging which can lead to confusion, anxiety and stress, particularly where they fear making mistakes or misunderstanding questions. This can be compounded for those experiencing multiple disadvantages.

Some evidence suggests that translated materials are valued, but concerns are raised about translation requests causing delays and the quality and consistency of translations. Telephone interpretation is a key support mechanism, but reliance on this single application route can be limiting. Evidence found existing issues with the interpreting service available through Social Security Scotland such as people’s preferred interpreters not being allowed and limited knowledge among staff of how to access interpreters. Evidence highlights variable experiences with interpreters, including issues around dialect, accuracy, continuity and trust. Some people in the wider literature express a preference for face-to-face support or alternative modes such as video interpretation.

Parts of the system people find difficult

Despite generally high levels of reported satisfaction with Social Security Scotland, the review identifies multiple barriers that can make engagement difficult for people with English as a second language. These include experiences of poor treatment by staff, lack of cultural sensitivity, perceived discrimination, and difficulties navigating complex systems and processes.

Language and cultural issues are often intertwined. Some studies report that staff may speak too quickly, fail to acknowledge anxieties, or misunderstand cultural contexts. While overt discrimination is not widely reported in Scottish social security literature, experiences of indirect or structural discrimination are identified in the UK based research on public services.

Complexity of language and systems is a commonly identified theme in the Scottish and wider UK social security systems. Technical terminology, acronyms, and bureaucratic processes can be difficult to understand and may deter people from applying. Difficulties are also reported in relation to providing supporting information, understanding decisions, and navigating appeals.

While data on denials by first language are not available, ethnicity-based data show increasing denial rates across all groups where ethnicity is disclosed. Reasons for denial are not well understood, and evidence suggests fear of being denied can deter future applications.

Gaelic speakers and social security

Gaelic is recognised as an official language of Scotland, supported by statutory duties under the Gaelic Language (Scotland) Act 2005 and strengthened by the Scottish Languages Act 2025. While there is extensive research on public attitudes to Gaelic and its cultural importance, there is very limited evidence on Gaelic speakers’ lived experiences of accessing public services, including social security.

Comparative evidence from Wales demonstrates that proactive and enforceable language provision is associated with higher satisfaction, dignity and trust.

Social Security Scotland provides Gaelic translations of factsheets and includes Gaelic within its interpretation services, but it has not yet published a Gaelic Language Plan. No published evidence was found on how Gaelic speakers experience these services in practice, representing a significant evidence gap.

Extent to which charter expectations are being met

The report assesses findings against the pillars of the Social Security Charter: a people’s service; processes that work; a learning system; and a better future. Progress is apparent in areas of improvements that benefit all users, such as efforts to simplify processes or provide multiple ways to engage. However, the evidence base is limited and often aggregated, making it difficult to assess experiences specifically for people with English as a second language.

Challenges remain in relation to trust, staff interactions, complexity of processes, and the suitability of language support. While some areas require more concerted effort, such as aligned objectives across policy areas, there is evidence that this can make a positive difference for people. Data gaps limit the ability to determine the extent to which charter expectations are being realised in practice for this group.

Evidence gaps

The review identifies substantial evidence gaps throughout. There is limited Scotland-specific research on ESOL and social security, a lack of clarity on data collected on language use among clients, and minimal evidence on benefit take-up by language or ethnicity. People with English as a second language are often included within broader participant cohorts in research studies, obscuring differences. Data collection challenges, reliance on self-reporting, and low trust in public services further constrain understanding. There is also a notable lack of research on Gaelic speakers’ experiences of Scottish social security.

Overall conclusions

The review concludes that people with English as a second language are likely to face multiple, intersecting barriers when engaging with the Scottish social security system. These include low awareness of benefits, language-related challenges in accessing information and applying, system complexity, and broader issues such as poverty, discrimination and mistrust.

While Social Security Scotland is generally viewed positively and has introduced supportive measures, the evidence indicates that existing arrangements do not consistently meet the needs of people with English as a second language. Significant gaps in data and research limit the ability to fully assess progress or impact, highlighting the need for further research and targeted attention to language-related barriers located within a broader cultural context.