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

4.1 Introduction

This chapter considers literature on what parts of the Scottish social security system people whose first language is not English may find difficult. The literature identifies a range of barriers that can affect experiences with the social security system, either during their contact with the system or that impact their experience of the benefit system and willingness to apply for benefits.

Practical, personal and cultural barriers and challenges when attempting to access social security systems are described. These include the ways services are delivered, including treatment by Social Security Scotland staff or other professionals and complexity of systems and processes. In addition, cultural beliefs and personal experiences can impact perceptions and experiences of engaging with social security systems are explored, including cultural beliefs, poverty and mistrust.

4.2 Satisfaction with the Scottish social security system

There are fairly high levels of satisfaction with people’s overall experience of engaging with Social Security Scotland, including among people with English as a second language as shown in Table 2 below.

However, it is evident that satisfaction with Social Security Scotland has decreased over the past three years, with rates declining from 90% of those with English as a second language rating their overall experience as ‘very good’ or ‘good’ in 2022-2023 to 80% in 2024-25. Reasons for the declining satisfaction rate are unknown but coincides with declining levels of trust reported across all client groups (from 80% in 2022-2023 to 72% in 2024-2025). Satisfaction levels are broadly in line with service satisfaction levels among DWP clients, albeit DWP satisfaction ratings appear have increased in the past three years while those for Social Security Scotland have declined. DWP do not break down satisfaction ratings by main language used, though no statistically significant difference was found in satisfaction rates by ethnicity.

Table 2: % of respondents rating their overall experience with Social Security Scotland as ‘very good’ or ‘good’

4.3 Barriers when dealing with social security systems

This section should be read in conjunction with the sections on awareness of social Scottish security benefits (section 3.2) and on the application process, including the application form (section 3.3), as both contain relevant information on why people with English as a second language may find accessing benefits difficult, such as due to low awareness of benefits, difficulties understanding information particularly when only provided in English, and finding application forms challenging.

4.3.1 Treatment by staff

People with English as a foreign language may experience treatment by public sector staff as difficult. Issues relating to the Scottish social security system can include feeling misunderstood, judged, or treated dismissively or rudely.¹D. D. Fisher, D. E. Aldegheri, S. Abdelghani and A. Williamson, “Integrating Scotland: A thematic literature review of research concerning New Scots 2014-2022,” University of Glasgow, Glasgow, 2024. ²Social Security Scotland, “Social Security Scotland Client Satisfaction Survey: 2024 2025,” Social Security Scotland, Dundee, 2025. ³Scottish Government, “Social Security Experience Panels – Seldom Heard Programme of Research: Mobile Populations,” Scottish Government, Edinburgh, 2022. ⁴Scottish Government, “Social Security Experience Panels: Ethnic Minorities,” Scottish Government, Edinburgh, 2020. Scottish social security staff not acknowledging anxieties caused by claiming benefits or speaking too quickly or not making enough effort or spending enough time to help people understand and guide them through the system have also been identified in work undertaken with the Social Security Experience Panels.⁵Scottish Government, “Social Security Experience Panels: Ethnic Minorities,” Scottish Government, Edinburgh, 2020. ⁶Scottish Government, “Social Security Experience Panels: Carers with English as a second language,” Scottish Government, Edinburgh, 2024. Similar issues have been identified among Department for Work and Pensions and Job Centre Plus staff.⁷HMRC / Ipsos Mori, “The experience of Black, Asian and Minority Ethnic communities with HMRC services,” HMRC, London, 2011. ⁸R. Marangozov, A. Bellis and H. Barnes, “Using Jobcentre Plus services: Qualitative evidence from ethnic minority customers,” Department for Work and Pensions, London, 2010.

A key factor identified in the UK and European literature is a lack of cultural sensitivity among staff. Culture and language can be entwined and it may be difficult to separate cultural aspects from linguistic meanings.⁹S. Lucas, “Spoken language interpreters in social work,” 16 April 2020. [Online]. Available: https://www.iriss.org.uk/resources/insights/spoken-language-interpreters social-work. [Accessed 1 February 2026]. ¹⁰R. Evenden, N. Singh, S. Sornalingam and S. Harrington, “Language barriers for primary care access in Europe: a systematic review,” The European Journal of Public Health, vol. 25, no. 32 (Supplement 3), 2022. ¹¹Joseph Rowntree Foundation, “Ethnicity and family dynamics: literature review,” Joseph Rowntree Foundation, York, 2025. ¹²Independent Age, “Experiences of Poverty in Later Life: People from Minoritised Ethnic Communities,” Independent Age, London, 2022. For instance, research from elsewhere highlights issues when staff do not respect cultural values or traditions such as honouring traditional health beliefs or gender roles, family ties and collectivist approaches to care.¹³L. Wang, S. Guruge and G. Montana, “Older Immigrants’ Access to Primary Health Care in Canada: A Scoping Review,” Canadian Journal on Aging, vol. 38, no. 2, 2019. ¹⁴Joseph Rowntree Foundation, “Ethnicity and family dynamics: literature review,” Joseph Rowntree Foundation, York, 2025. ¹⁵Ipsos MORI, “The experience of Black, Asian and Minority Ethnic communities with HMRC services,” HMRC, London, 2010. This has also been found in a recent study of carers living in Scotland.¹⁶MECOPP, “Where are we now? Health and wellbeing experiences and supports for black and minority ethnic unpaid carers across Scotland.,” MECOPP/Heriot Watt University, Edinburgh, 2025.

In contrast to the earlier concerns raised about interpreter use, it has been found that interpreters can act as cultural and language ‘conduits’, decreasing the possibility of inaccurate assessments and lessening power differentials.¹⁷S. Maiter, R. Alaggia, A. S. Can and B. Leslie, “Trial and error: attending to language barriers in child welfare service provision from the perspective of frontline workers,” Child & Family Social Work, vol. 22, no. 1, pp. 165-174, 2015. Similarly, the value of using trusted partners, such as third sector organisations, to engage with the system on behalf of older people from minority ethnic communities has been noted by Independent Age, a charity supporting people facing financial hardship in later life. Scottish Government research highlights the value of employing people from minority groups and providing better benefits training for bilingual support workers.¹⁸Scottish Government, “Social Security Experience Panels: Carers with English as a second language,” Scottish Government, Edinburgh, 2024. This has also been reported in UK based studies.¹⁹Independent Age, “Experiences of Poverty in Later Life: People from Minoritised Ethnic Communities,” Independent Age, London, 2022. ²⁰HMRC / Ipsos Mori, “The experience of Black, Asian and Minority Ethnic communities with HMRC services,” HMRC, London, 2011.

Another pertinent factor that may affect experiences with the Scottish social security system is perceived discrimination, and this may explain some of the reported staff treatment noted above. There is evidence that people from minority groups experience discrimination by public services, including the social security system, in Scotland.⁴³Scottish Government, “Social Security Experience Panels: Carers with English as a second language,” Scottish Government, Edinburgh, 2024. ⁴⁴Scottish Human Rights Commission, “The Views of People in Scotland: ICERD Lived Experiences Report,” Scottish Human Rights Commission, Edinburgh, 2024. ⁴⁵Scottish Government, “Social Security Experience Panels: Ethnic Minorities,” Scottish Government, Edinburgh, 2020. ⁴⁶Scottish Government, “Social Security Experience Panels – Seldom Heard Programme of Research: Mobile Populations,” Scottish Government, Edinburgh, 2022. ⁴⁷BEMIS, “Poverty and Ethnicity: Agenda and Policy Development in Scotland – Lived experience of Ethnic and Cultural Minority Communities,” BEMIS, Glasgow, 2016. Similar findings are reported in the UK literature.⁴⁸Independent Age, “Experiences of Poverty in Later Life: People from Minoritised Ethnic Communities,” Independent Age, London, 2022. ⁴⁹S. Lucas, “Spoken language interpreters in social work,” 16 April 2020. [Online]. Available: https://www.iriss.org.uk/resources/insights/spoken-language-interpreters social-work. [Accessed 1 February 2026]. ⁵⁰R. Ford, “Who Should We Help? An Experimental Test of Discrimination in the British Welfare State,” Political Studies, vol. 64, no. 3, 2015. ⁵¹D. Lammy, “The Lammy Review,” London, 2017.This can occur directly, being discriminated against by staff with whom they come into contact, or more indirectly, in the form of institutional and structural discrimination. Under the Equality Act 2010, direct discrimination occurs where a person is treated less favourably because of a protected characteristic, while indirect discrimination arises where a seemingly neutral provision, criterion or practice places people who share a protected characteristic at a particular disadvantage and cannot be objectively justified.

Discrimination could more commonly be experienced among refugees, asylum seekers or mobile populations compared to other groups.⁵²Social Security Scotland, “Social Security Scotland Client Satisfaction Survey: 2024 2025,” Social Security Scotland, Dundee, 2025. ⁵³Scottish Human Rights Commission, “The Views of People in Scotland: ICERD Lived Experiences Report,” Scottish Human Rights Commission, Edinburgh, 2024. ⁵⁴Scottish Government, “Social Security Experience Panels – Seldom Heard Programme of Research: Mobile Populations,” Scottish Government, Edinburgh, 2022. ⁵⁵Mental Welfare Commission for Scotland, “Racial Inequality and Mental Health in Scotland: A call to action,” Mental Welfare Commission for Scotland, Edinburgh, 2021. Both race and migrant status can trigger discrimination, and the impact is cumulative, acting as a ‘double disadvantage’, likely compounded even further among those who may experience challenges communicating in English.⁵⁶R. Ford, “Who Should We Help? An Experimental Test of Discrimination in the British Welfare State,” Political Studies, vol. 64, no. 3, 2015.

Some studies have found participants reporting they had not been discriminated against, and treatment from Social Security Scotland staff was praised in the Scottish Human Rights Commission study.⁵⁷Mental Welfare Commission for Scotland, “Racial Inequality and Mental Health in Scotland: A call to action,” Mental Welfare Commission for Scotland, Edinburgh, 2021. ⁵⁸Scottish Human Rights Commission, “The Views of People in Scotland: ICERD Lived Experiences Report,” Scottish Human Rights Commission, Edinburgh, 2024. Overt discrimination may have decreased with time, but according to academic authors considering the topic generally, other insidious forms of racism are still prevalent, for instance, microaggressions and systemic bias.⁵⁹T. A. Forman and A. E. Lewis, “Beyond Prejudice? Young Whites’ racial attitudes in post-civil rights America, 1976 to 2000,” American Behavioral Scientist, vol. 69, no. 11, pp. 1394-1428. ⁶⁰M. T. Williams, “Racial Microagressions: Critical Questions, State of the Science and New Directions,” Perspectives on Psychological Science, vol. 16, no. 5, pp. 880-885, 2021. ⁶¹M. R. Banaji, S. T. Fiske and D. S. Massey, “Systemic racism: individuals and interactions, institutions and society,” Cognitive Research: Principles and Implications, vol. 6, no. 82, 2021. As a result, it may be difficult for some people to articulate that they have experienced racism or indirect discrimination.

4.3.2 Complexity of language and systems

Difficulties for people with English as a second language can arise when engaging, or thinking about engaging, with the Scottish social security system because of complexities with the official language, systems or processes, which can put people off applying.⁸³The Poverty Alliance, “The impact of stigma on benefit take-up: Report of a Get Heard Scotland Citizens’ Panel,” Scottish Government, Edinburgh, 2024. Additionally, some partner agencies (external organisations that support people to engage with Social Security Scotland) have found navigating the Scottish system more complex when supporting those with specific needs.⁸⁴Social Security Scotland, “Social Security Scotland: Charter Research 2024-2025,” Social Security Scotland, Dundee, 2025.

A body of research exists on difficulties with bureaucratic and technical language in accessing other services, such as health and social care. In the Scottish Government research with those who are seldom heard living in Scotland, language used to describe social security is considered ‘complicated and technical’.⁸⁵Scottish Government, “Research into seldom-heard groups within the Scottish social security system,” Scottish Government, Edinburgh, 2024. This finding is supported by other research that identifies people with English as a second language living in Scotland perceiving benefits information as complex.⁸⁶Scottish Government, “The Disability Assistance (Scottish Adult Disability Living Allowance) Regulations 2025: equality impact assessment,” Scottish Government , Edinburgh, 2024. ⁸⁷MECOPP, “Where are we now? Health and wellbeing experiences and supports for black and minority ethnic unpaid carers across Scotland.,” MECOPP/Heriot Watt University, Edinburgh, 2025. ⁸⁸Scottish Commission on Social Security, “People with communication needs and the Scottish social security system: fulfilling the expectations of ‘Our Charter’,” Scottish Commission on Social Security, Edinburgh, 2025.

Communication issues identified among people living in Scotland include people struggling to understand what is said, being unclear what acronyms mean, access to digital based information for those experiencing digital exclusion, and the length and complexity of automated systems, such as on phone calls.⁸⁹Scottish Commission on Social Security, “People with communication needs and the Scottish social security system: fulfilling the expectations of ‘Our Charter’,” Scottish Commission on Social Security, Edinburgh, 2025. ⁹⁰ALLIANCE, “See Hear Strategy – lived experience consultation with ethnic minority people,” The Health and Social Care Alliance Scotland, Glasgow, 2024. ⁹¹Scottish Human Rights Commission, “The Views of People in Scotland: ICERD Lived Experiences Report,” Scottish Human Rights Commission, Edinburgh, 2024. Similar findings have been identified in UK based studies.⁹²K. Kriz and M. Skivenes, “Lost in Translation: How Child Welfare Workers in Norway and England Experience Language Difficulties when Working with Minority Ethnic Families,” The British Journal of Social Work, vol. 40, no. 5, pp. 1353-1367, 2010. ⁹³D. Edmiston, “Falling Faster amidst a Cost-of-Living Crisis: Poverty, Inequality and Ethnicity in the UK,” Runnymede Trust, London, 2022. ⁹⁴K. Sandhu, “Universal Credit and impact on black and minority ethnic communities,” A Race Equality Foundation Briefing Paper, London, 2016. Difficulties have also been encountered during communication with Social Security Scotland over problems with payment amounts and timings, though this was across all respondent types not just those likely to have English as a second language.⁹⁵Social Security Scotland, “Social Security Scotland Client Satisfaction Survey: 2022 2023,” Social Security Scotland, 2023.

Medical terminology or “jargon” may not easily translate between first languages and English and therefore have presented communication challenges for clients in describing their situation in Scottish health settings.⁹⁶Mental Welfare Commission for Scotland, “Racial Inequality and Mental Health in Scotland: A call to action,” Mental Welfare Commission for Scotland, Edinburgh, 2021. MECOPP found that many terms used to describe dementia from a medical perspective do not have an equivalent within community languages.⁹⁷MECOPP, “Briefing Sheet 09: Supporting South Asian People with Dementia: Lessons from the ‘Jeevan’ Project,” MECOPP, Edinburgh, 2017. MECOPP have also encountered this issue in other contexts, producing their own translation guide and animated video with the guidance of interpreters to translate and explain the more confusing and complex language around the social care system of Self Directed Support (SDS).⁹⁸MECOPP, “Briefing Sheet 08: Producing Accessible Information for BME Communities,” MECOPP, Edinburgh, 2017.

Social security systems and processes can be perceived as complex with challenges in understanding commitments and rules or when making challenges and appeals.⁹⁹K. Sandhu, “Universal Credit and impact on black and minority ethnic communities,” A Race Equality Foundation Briefing Paper, London, 2016. ¹⁰⁰Ipsos MORI, “The experience of Black, Asian and Minority Ethnic communities with HMRC services,” HMRC, London, 2010. ¹⁰¹P. Allmark, S. Salway, R. Crisp and R. Barley, “Ethnic minority customers of the Pension, Disability and Carers Service: An evidence synthesis,” Department for Work and Pensions, London, 2010. ¹⁰²Unite, “Universal Credit: Not fit for purpose,” Unite, 2019. The Scottish Government has noted complexity has been raised by many stakeholders, largely in relation to UK-based benefit applications rather than the Scottish system. However, other evidence published by the Scottish Government suggests people in minority groups also perceive complexity in the Scottish social security systems, such as complex eligibility criteria, application processes and lengthy decision-making periods.¹⁰³Scottish Government, “Benefit Take-up Strategy October 2021,” Scottish Government, Edinburgh, 2021. ¹⁰⁴Scottish Government, “Research into seldom-heard groups within the Scottish social security system,” Scottish Government, Edinburgh, 2024. ¹⁰⁵Scottish Government, “The Disability Assistance (Scottish Adult Disability Living Allowance) Regulations 2025: equality impact assessment,” Scottish Government , Edinburgh, 2024. In particular, research into seldom heard groups within the Scottish social security system discusses this issue in some detail.¹⁰⁶Scottish Government, “Research into seldom-heard groups within the Scottish social security system,” Scottish Government, Edinburgh, 2024. This has led to calls for greater use of plain English and culturally relevant language to improve understanding, with information provided about rights and services shared in accessible formats – like videos, community radio and social media – and translated into multiple languages.¹⁰⁷MECOPP, “Where are we now? Health and wellbeing experiences and supports for black and minority ethnic unpaid carers across Scotland.,” MECOPP/Heriot Watt University, Edinburgh, 2025.

One report suggests carers tend to view the application process for Carer’s Allowance in Scotland fairly positively as it is considered as straightforward and trust-based, though other studies report carers and young carers from minority ethnic communities can find applying for carers benefits through Social Security Scotland complex to navigate.¹⁰⁸Scottish Government, “Young Carer Grant – interim evaluation: qualitative research,” Scottish Government, Edinburgh, 2021. ¹⁰⁹MECOPP, “Where are we now? Health and wellbeing experiences and supports for black and minority ethnic unpaid carers across Scotland.,” MECOPP/Heriot Watt University, Edinburgh, 2025.

4.3.3 Delivery of services

A range of issues have been identified regarding how services are delivered that impact negatively on how people experience service provision. While many of these may not be specific to people with English as a second language, they are likely to further compound barriers faced by them. Within the Scottish based literature reviewed, issues included excessive waiting times or delays or conversely, tight timeframes, repeatedly providing the same information, assumptions made around administrative and clerical skill levels, and the need to engage with two systems – the DWP and Social Security Scotland – if in receipt of benefits from each.¹¹⁰Scottish Commission on Social Security, “People with communication needs and the Scottish social security system: fulfilling the expectations of ‘Our Charter’,” Scottish Commission on Social Security, Edinburgh, 2025. ¹¹¹ALLIANCE, “See Hear Strategy – lived experience consultation with ethnic minority people,” The Health and Social Care Alliance Scotland, Glasgow, 2024. ¹¹²Scottish Government, “Research into seldom-heard groups within the Scottish social security system,” Scottish Government, Edinburgh, 2024. ¹¹³Scottish Government, “Social Security Experience Panels: About Your Benefits and You – Qualitative Research Findings,” Scottish Government, Edinburgh, 2018. ¹¹⁴The Poverty Alliance, “The impact of stigma on benefit take-up: Report of a Get Heard Scotland Citizens’ Panel,” Scottish Government, Edinburgh, 2024.

A lack of flexibility over appointment times has been noted within Social Security Scotland’s Local Delivery Service, with clients only provided general morning or afternoon slots, rather than specific times.¹¹⁵Scottish Commission on Social Security, “People with communication needs and the Scottish social security system: fulfilling the expectations of ‘Our Charter’,” Scottish Commission on Social Security, Edinburgh, 2025. The SCoSS report on those with communication needs found access to the Local Delivery Service could be impacted by people’s busy schedules through offering general time slots.¹¹⁶Scottish Commission on Social Security, “People with communication needs and the Scottish social security system: fulfilling the expectations of ‘Our Charter’,” Scottish Commission on Social Security, Edinburgh, 2025. MECOPP also note timings of services can clash with prayer times or religious days, so potentially, general time slots can also be inconvenient for observing religious practices.¹¹⁷MECOPP, “Where are we now? Health and wellbeing experiences and supports for black and minority ethnic unpaid carers across Scotland.,” MECOPP/Heriot Watt University, Edinburgh, 2025. However, to identify if people do experience this as an issue within the Scottish social security system it would need to be investigated further, as no evidence was found as part of this review.

Such issues are not specific to the Scottish social security system as similar challenges have also been identified in the UK benefits system, for instance, delays in receiving initial payments, excessive waiting times and a preference for working with the same advisor to avoid repeating themselves were found in a study of minority ethnic customers use of Jobcentre Plus services.¹¹⁸R. Marangozov, A. Bellis and H. Barnes, “Using Jobcentre Plus services: Qualitative evidence from ethnic minority customers,” Department for Work and Pensions, London, 2010. ¹¹⁹J. Stone, C. Blackwell and C. Shepherd, “UK benefit uptake among blind and partially sighted people,” RNIB, London, 2024. ¹²⁰Unite, “Universal Credit: Not fit for purpose,” Unite, 2019. A lack of specialist support for New Scots via Jobcentres and the DWP has also been identified¹²¹D. D. Fisher, D. E. Aldegheri, S. Abdelghani and A. Williamson, “Integrating Scotland: A thematic literature review of research concerning New Scots 2014-2022,” University of Glasgow, Glasgow, 2024.

4.3.4 Obtaining support from Social Security systems

Of respondents to the 2022/2023 Social Security Scotland client survey, 17% had faced barriers to getting help from the organisation.¹²²Social Security Scotland, “Social Security Scotland Client Satisfaction Survey: 2022 2023,” Social Security Scotland, 2023. Those with communication needs were far more likely to say they had experienced such a barrier 28%, compared to 13% who had not.¹²³Scottish Commission on Social Security, “People with communication needs and the Scottish social security system: fulfilling the expectations of ‘Our Charter’,” Scottish Commission on Social Security, Edinburgh, 2025. For instance, there is evidence that people have to ask for support, rather than being offered it proactively by Social Security Staff and that awareness of the availability of advocacy support through VoiceAbility is low and that more could be done to promote it.¹²⁴Scottish Commission on Social Security, “People with communication needs and the Scottish social security system: fulfilling the expectations of ‘Our Charter’,” Scottish Commission on Social Security, Edinburgh, 2025. ¹²⁵The Poverty Alliance, “The impact of stigma on benefit take-up: Report of a Get Heard Scotland Citizens’ Panel,” Scottish Government, Edinburgh, 2024. . ¹²⁶D. D. Fisher, D. E. Aldegheri, S. Abdelghani and A. Williamson, “Integrating Scotland: A thematic literature review of research concerning New Scots 2014-2022,” University of Glasgow, Glasgow, 2024. An evaluation of the Best Start Grant found some recipients were unaware its guidance letter was available in other languages and needed help to read it.¹²⁷Scottish Government, “Evaluation of Best Start Foods,” Scottish Government, Edinburgh, 2022.

4.3.5 Applications denied

Data from Social Security Scotland is published on social security applications denied by ethnicity. Published data on applications denied for those whose first language is not English was not found. The ethnicity data is obtained from applicants, based on optional self reporting. While the percentage of applications denied are given, the number of applications denied are not. The number of applications denied has therefore been extrapolated in Table 3 below based on the total number of people in each ethnic group who reported on their ethnicity.

As shown in Table 3, applications denied have increased across all ethnic groups since 2020/22, except for the ‘prefer not to say’ category, which has a lower percentage of declined applications. Variation exists across benefits, for instance, the 2025 report highlighted the overall approval rate had mainly declined from the previous year due to lower approval rates for Adult Disability Payment and Child Disability Payment.

Table 5: Scottish social security applications denied by ethnicity

There is some variation across benefits, for instance, the 2025 report highlighted the overall approval rate had mainly declined from the previous year due to lower approval rates for Adult Disability Payment and Child Disability Payment.

The Social Security Scotland Client Satisfaction Survey 2022-2023¹⁷³Social Security Scotland, “Social Security Scotland Client Satisfaction Survey: 2022 2023,” Social Security Scotland, 2023. found one in ten respondents had received an unsuccessful decision on their application. Of those, 11% asked for Social Security Scotland to review the decision, 14% made a new application for the same benefit, and more than half took no further action (57%). Around a third (32%) of Best Start Foods applicants reported being unsuccessful with their application;¹⁷⁴Scottish Government, “Evaluation of Best Start Foods,” Scottish Government, Edinburgh, 2022. of those, the majority (76%) reported taking no further action. Being denied a benefit can also deter people from applying for further support in the future¹⁷⁵Social Security Scotland, “Social Security Scotland Client Satisfaction Survey: 2022 2023,” Social Security Scotland, 2023. .

Social Security Scotland note applications can be denied for multiple reasons including the client not being a Scottish resident, not being in receipt of a qualifying benefit or the application being made outwith an application window. It acknowledges it is currently not possible to analyse the data based on denial reasons and state they are working with the Scottish Government to improve the data.¹⁷⁶Social Security Scotland, “Social Security Scotland client and applicant diversity and equalities analysis for April 2024 to March 2025,” Social Security Scotland, Dundee, 2025. Cebula and Evans suggest other potential factors for denying applications such as a lack of accessible materials that are easy to understand as well as discrimination¹⁷⁷C. Cebula and J. Evans, “Ethnicity, poverty and the data in Scotland,” Joseph Rowntree Foundation, 2021. . This is supported by the limited literature on this subject. One older UK study reported that misunderstanding requirements due to language barriers can lead to applications being refused, for instance, due to people not being aware that they needed to attend interviews within a certain timeframe.¹⁷⁸HMRC / Ipsos Mori, “The experience of Black, Asian and Minority Ethnic communities with HMRC services,” HMRC, London, 2011. However, evidence of this was not found in the Scottish literature. Fear around applying for benefits in case they are denied has been reported among those with English as a second language.

Concerns about making mistakes due to not understanding correctly, and thus being denied benefits or even prosecuted, has been reported in the Scottish literature¹⁷⁹Scottish Government, “Social Security Experience Panels – Seldom Heard Programme of Research: Mobile Populations,” Scottish Government, Edinburgh, 2022. ¹⁸⁰Scottish Government, “The Disability Assistance (Scottish Adult Disability Living Allowance) Regulations 2025: equality impact assessment,” Scottish Government , Edinburgh, 2024. . This anxiety can also extend to being nervous about speaking to others about their potential right to claim benefits in case their application is denied¹⁸¹The Poverty Alliance, “The impact of stigma on benefit take-up: Report of a Get Heard Scotland Citizens’ Panel – May 2024,” The Poverty Alliance, 2024. .

4.3.6 Institutional racism and structural disadvantage

This section explores the evidence on factors such as inequality, structural barriers and institutional racism. The data cited below indicates that the context of social security policies, processes and practice may combine to deter people with English as a second language from applying for benefits or mean they experience the system negatively when they do.

Institutional racism is viewed here as systemic disadvantage embedded in conventions, policies and structural practices.¹⁸²C. Phillips, “Institutional Racism and Ethnic Inequalities: An Expanded Multilevel Framework,” Journal of Social Policy, vol. 40, no. 1, pp. 173-192, 2011. Racism is considered to operate in tandem with other forms of hierarchy and disadvantage that infiltrates structures, and while racism and discrimination are not the same, they have clear links.¹⁸³S. Atrey, “Structural Racism and Race Discrimination,” Current Legal Problems, vol. 74, no. 1, pp. 1-34, 2021.

Social Security Scotland reported 92% of staff felt confident they could deliver a service without discriminating against others, though 8% did not for reasons related to practical constraints, high workloads and problems with internal processes, policies and systems in practice.¹⁸⁴Social Security Scotland, “Social Security Scotland: Charter Research 2024-2025,” Social Security Scotland, Dundee, 2025. Formal and informal barriers to accessing public services were often found to intertwine with direct discrimination or disempowering systems in the Poverty and Inequality Commission’s report on intersectionality.¹⁸⁵Poverty and Inequality Commission, “Intersectionality: Revealing the Realities of Poverty and Inequality in Scotland,” Poverty and Inequality Commission, Glasgow, 2021. In this study, language barriers were found to be a ‘specific and persistent challenge’ for participants seeking to access public services, with the authors highlighting:

The report concluded that poverty in Scotland cannot be effectively addressed without embedding intersectionality across all policymaking, with current strategies considered too often treating issues in isolation – gender, race, disability, migration and class. Its authors highlight the significant gaps in data that make it difficult to understand intersecting inequalities and that structural inequalities must be explicitly recognised as drivers of poverty.

Structural inequalities are ‘the outcomes of the interaction between social categories, power relations and contexts’ which are unlikely to be overcome at an individual level.²⁰¹Scottish Government, “Using intersectionality to understand structural inequality in Scotland: Evidence synthesis,” Scottish Government, Edinburgh, 2022. ²⁰²D. D. Fisher, D. E. Aldegheri, S. Abdelghani and A. Williamson, “Integrating Scotland: A thematic literature review of research concerning New Scots 2014-2022,” University of Glasgow, Glasgow, 2024. There is considerable evidence that poverty in the UK is structural in nature, and disproportionately impacts certain groups, including those from minority ethnic communities.²⁰³Joseph Rowntree Foundation, “UK Poverty 2024,” Joseph Rowntree Foundation, York, 2024. ²⁰⁴Joseph Rowntree Foundation, “Ethnicity and family dynamics: literature review,” Joseph Rowntree Foundation, York, 2025. ²⁰⁵D. Edmiston, “Falling Faster amidst a Cost-of-Living Crisis: Poverty, Inequality and Ethnicity in the UK,” Runnymede Trust, London, 2022. ²⁰⁶H. S. Mirza and R. Warwick, “Race and ethnic inequalities,” Oxford Open Economics, vol. 3, no. supplement 1, pp. i365-i452, 2024. ²⁰⁷Pinter, “Statutory Exclusion from Social Security: Experiences of migrants in the UK,” in Diversity and Welfare Provision, 2024, pp. 97-116.

UK asylum policy has been considered one causative factor in such structural barriers, whereby policy interacts with the social security system in ways that systematically exclude certain groups from protection, reinforcing existing inequalities rather than merely reflecting them.²⁰⁸All-Party Parliamentary Group on Migration, “The Effects of UK Immigration, Asylum and Refugee Policy on Poverty: A Joint Inquiry by the APPG on Migration and the APPG on Poverty,” All-Party Parliamentary Group on Migration and All-Party Parliamentary Group on Poverty, London, 2024. ²⁰⁹D. D. Fisher, D. E. Aldegheri, S. Abdelghani and A. Williamson, “Integrating Scotland: A thematic literature review of research concerning New Scots 2014-2022,” University of Glasgow, Glasgow, 2024. ²¹⁰Pinter, “Statutory Exclusion from Social Security: Experiences of migrants in the UK,” in Diversity and Welfare Provision, 2024, pp. 97-116. In Scotland, asylum remains reserved to Westminster which creates structural tension, whereby devolved systems may seek inclusive practice, but UK level asylum rules limit eligibility and constrain what Social Security Scotland can achieve.

Fisher et al. highlights research that shows unemployment levels among New Scots with the right to work remain consistent despite their varied backgrounds, experiences, education levels, employment history, English language skills, gender and age before arrival in Scotland.²¹¹D. D. Fisher, D. E. Aldegheri, S. Abdelghani and A. Williamson, “Integrating Scotland: A thematic literature review of research concerning New Scots 2014-2022,” University of Glasgow, Glasgow, 2024. They also note many employment related ESOL classes require accredited ESOL qualifications to attend, acting as a barrier to employment. Similarly, structural barriers were discussed in Brown’s analysis of the role of ESOL in the settlement of immigrants.²¹²S. Brown, “The emancipation continuum: analysing the role of ESOL in the settlement of immigrants,” British Journal of Sociology of Education, vol. 42, no. 5-6, pp. 864-880, 2021. While this example refers to employment, similar structural barriers are likely to exist in relation to social security. For instance, Joseph Rowntree Foundation’s literature review of ethnicity and family dynamics in the UK underscores the role of institutional and structural discrimination in areas such as health, social security and housing policy.²¹³Joseph Rowntree Foundation, “Ethnicity and family dynamics: literature review,” Joseph Rowntree Foundation, York, 2025. The role of systemic racism in Scotland has also been highlighted in a recent report on housing insecurity by Shelter Scotland and the Coalition for Racial Equality and Rights (CRER).²¹⁴Shelter Scotland and the Coalition for Racial Equality and Rights, “Systemic Racism and Scotland’s Housing Emergency,” Shelter Scotland, Edinburgh, 2025.

There is considerable evidence of a tightening net of welfare support since the introduction of austerity measures.²¹⁵A. Clegg, “In credit? Assessing where Universal Credit’s long roll-out has left the benefit system and the country,” Resolution Foundation, London, 2024. ²¹⁶ J. Portes and H. Reed, “The cumulative impact of tax and welfare reforms,” Equality and Human Rights Commission, London, 2018. ²¹⁷ T. Meyer and P. Bridgen, “Open for the childless skilled only: the poverty risks of migrant workers with children under the UK points-based immigration system,” Journal of Poverty and Social Justice, vol. 30, no. 1, pp. 9-36, 2022. ²¹⁸Joseph Rowntree Foundation, “Ethnicity and family dynamics: literature review,” Joseph Rowntree Foundation, York, 2025. ²¹⁹Pinter, “Statutory Exclusion from Social Security: Experiences of migrants in the UK,” in Diversity and Welfare Provision, 2024, pp. 97-116. Explanations identified in the evidence for this increasingly restrictive welfare system include the rise of right-wing populism and institutional racism.²²⁰G. M. Eick and B. Leruth, “A farewell to welfare? Conceptualising welfare populism, welfare chauvinism and welfare Euroscepticism,” Journal of European Social Policy, vol. 0, no. 0, pp. 1-11, 2024. ²²¹ J. Chueri, M. K. Gandenberger, A. M. Taylor, C. M. Knotz and F. Fossati, “Re-evaluating the welfare preferences of radicalright voters: evidence from a vignette experiment,” West European Politics, vol. 48, no. 7, pp. 1681-1709, 2025. ²²²Joseph Rowntree Foundation, “Ethnicity and family dynamics: literature review,” Joseph Rowntree Foundation, York, 2025. ²²³P. Dwyer, Scullion, L, K. Jones and A. Stewart, “The impact of conditionality on the welfare rights of EU migrants in the UK,” Labour Economics, no. 52, pp. 1-17, 2018. ²²⁴Unite, “Universal Credit: Not fit for purpose,” Unite, 2019. ²²⁵A. Ejrneaes and B. Greve, “Populism, welfare chauvinism and hostility,” in Welfare Populism and Welfare Chauvinism, Bristol University Press, 2019, pp. 137-152. Benefit reductions and cuts have been found to disproportionately impact those from minority ethnic communities, with reductions in eligibility and amounts awarded.²²⁶Joseph Rowntree Foundation, “Ethnicity and family dynamics: literature review,” Joseph Rowntree Foundation, York, 2025. ²²⁷ Women’s Budget Group, “Who bears the brunt? Intersectional analysis of social security cuts since 2010,” Women’s Budget Group, London, 2024. ²²⁸ D. Z. Haque, S. Howes, H. Aldridge and A. Kapoor, “Inequalities amplified: The alarming rise of child poverty in the UK,” 4 December 2023. [Online]. Available: https://www.wbg.org.uk/publication/inequalities-amplified-the-alarming-rise-of child-poverty-in-the-uk/. [Accessed 1 February 2026]. ²²⁹ J. Portes and H. Reed, “The cumulative impact of tax and welfare reforms,” Equality and Human Rights Commission, London, 2018.

Recent research into structural and institutional racism found that these themes are “far from being properly addressed by the media, the general public and policymakers” (²³⁰C. Conte, “Structural and Institutional Racism in 8 EU Member States: Key Issues and Policy Recommendations,” Migration Policy Group, Brussels, 2024. : pg. 4), with discrimination and marginalisation felt to be underrepresented in the evidence base.²³¹M. Joshi, N. Finney and J. M. Hale, “Loneliness and social isolation of ethnic minority/immigrant older adults: a scoping review,” Ageing & Society, vol. 45, pp. 1395-1425, 2025. The experience of structural disadvantage that minimises the power of individual agency, alongside an increasingly politicised welfare climate, may influence why people choose not to engage with the Scottish social security system, or why they may report negative experiences when they do. In other words, people may view the system negatively, for instance, expecting not to be treated fairly, which in turn may influence their experience or willingness to apply for benefits.

4.4 Situational, practical and cultural factors

Factors such as culture and beliefs may impact how people with English as a second language may perceive applying for, and accessing, benefits. This can include concepts that people find challenging due to their cultural meaning; stigma; a lack of official documentation; the impact of living in poverty or mistrust in public services.

There is limited research on ways personal factors or circumstances can influence views or take up of social security benefits among people with English as a second language. Similarly, there was little evidence on how practical barriers might impact experiences of social security, except for having limited time to apply or engage e.g. due to caring responsibilities or a lack of required documentation. Obstacles in obtaining photo ID or birth certificates have been found to act as a barrier to taking up benefits.²³²MECOPP, “Where are we now? Health and wellbeing experiences and supports for black and minority ethnic unpaid carers across Scotland.,” MECOPP/Heriot Watt University, Edinburgh, 2025. ²³³Poverty and Inequality Commission, “Intersectionality: Revealing the Realities of Poverty and Inequality in Scotland,” Poverty and Inequality Commission, Glasgow, 2021. ²³⁴Scottish Government, “Research into seldom-heard groups within the Scottish social security system,” Scottish Government, Edinburgh, 2024. Cases where National Insurance numbers have been delayed and refugees have been denied income support and housing benefit through DWP have been reported in Scotland, even though these should not be required when an individual has a valid biometric residence permit.²³⁵D. D. Fisher, D. E. Aldegheri, S. Abdelghani and A. Williamson, “Integrating Scotland: A thematic literature review of research concerning New Scots 2014-2022,” University of Glasgow, Glasgow, 2024. This study also highlights New Scots were unable to open bank accounts when they did not have a fixed residence.

Personal considerations, such as experiences of trauma, negative emotions and a lack of confidence are also likely to affect willingness to apply for benefits, though there is a lack of research in this area. Research consistently shows that many New Scots experience repeated trauma at multiple stages of their journeys, which can significantly affect their mental health.²³⁶D. D. Fisher, D. E. Aldegheri, S. Abdelghani and A. Williamson, “Integrating Scotland: A thematic literature review of research concerning New Scots 2014-2022,” University of Glasgow, Glasgow, 2024. ²³⁷ I. Barnswell, O. Chantler and L. Ah-Wan, “The mental health of asylum seekers and refugees in the UK: 2025 Edition,” Mental Health Foundation, London, 2025. Feelings of hopelessness, isolation and abandonment due to experiencing discrimination have been identified among Africans living in Scotland.²³⁸BEMIS, “Poverty and Ethnicity: Agenda and Policy Development in Scotland – Lived experience of Ethnic and Cultural Minority Communities,” BEMIS, Glasgow, 2016. For instance, the Poverty and Inequality Commission noted that while one lone parent with English as a second language had successfully appealed against a Universal Credit decision, she knew others in a similar position who would be unlikely to do so due to a lack of understanding, capacity or strength, and highlighted some had decided ‘just to live with it’.²³⁹Poverty and Inequality Commission, “Intersectionality: Revealing the Realities of Poverty and Inequality in Scotland,” Poverty and Inequality Commission, Glasgow, 2021.

4.4.1 Views on social security concepts

Difficulties in engaging with social security may also reflect variations in how welfare systems are conceptually understood or applied in practice in different countries. When moving away from their home country, migrants have to build “structural knowledge” about welfare and public services, beyond language skills.²⁴⁰N. Safarov, “Administrative Literacy in the Digital Welfare State: Migrants Navigating Access to Public Services in Finland,” Social Policy and Society, vol. 23, no. 4, 2023. Comparative research on welfare states has identified significant variation in their scope and underlying principles.²⁴¹G. Esping-Anderson, The Three Worlds of Welfare Capitalism, New Jersey: Princeton University Press, 1990. Further evidence demonstrates substantial international variation in the scope and generosity of welfare systems.²⁴² International Labour Organisation, “World Social Proctection Report 2024-26,” International Labour Organisation, 2024.

The distinction between entitlement and charity is particularly important. Some clients can experience claiming benefits as feeling they are seeking charity, rather than believing it to be their right²⁴³J. Stone, C. Blackwell and C. Shepherd, “UK benefit uptake among blind and partially sighted people,” RNIB, London, 2024. ²⁴⁴R. Patrick and M. Simpson, “Conceptualising dignity in the context of social security: bottom-up and top-down perspectives,” Social Policy and Administration, pp. 1-16, 2019. In some linguistic and cultural contexts, welfare is not framed as an automatic right.²⁴⁵ D. Osipovič, “Conceptualisations of Welfare Deservingness by Polish Migrants in the UK,” Journal of Social Policy, vol. 44, no. 4, pp. 729-746, 2015. The idea of charity or receiving help from support services may also be highly associated with stigma for minority ethnic communities, with feelings of embarrassment and shame or fear of other people finding out²⁴⁶Scottish Government, “Social Security Experience Panels: Ethnic Minorities,” Scottish Government, Edinburgh, 2020. ²⁴⁷Scottish Human Rights Commission, “The Views of People in Scotland: ICERD Lived Experiences Report,” Scottish Human Rights Commission, Edinburgh, 2024. For example, research has found that close community ties in Bangladeshi and Pakistani groups can entrench stigma around asking for help from formal support services, resulting from lack of trust or fear of lack of confidentiality.²⁴⁸Joseph Rowntree Foundation, “Ethnicity and family dynamics: literature review,” Joseph Rowntree Foundation, York, 2025. In some communities, the idea of receiving money from the government is less acceptable than in others, but some specialists feel that this is often over-emphasised when exploring barriers to social security engagement.²⁴⁹Ipsos MORI, “The experience of Black, Asian and Minority Ethnic communities with HMRC services,” HMRC, London, 2010.

Cultural perceptions of a lack of entitlement may apply particularly to certain concepts, such as ‘disability’, which may be interpreted differently by speakers of languages other than English.²⁵⁰P. Allmark, S. Salway, R. Crisp and R. Barley, “Ethnic minority customers of the Pension, Disability and Carers Service: An evidence synthesis,” Department for Work and Pensions, London, 2010. In some languages, this may refer to learning disabilities, or severe physical or mental impairments.²⁵¹P. Allmark, S. Salway, R. Crisp and R. Barley, “Ethnic minority customers of the Pension, Disability and Carers Service: An evidence synthesis,” Department for Work and Pensions, London, 2010. Conceptions of mental illness may also differ between cultures, particularly where mental health is stigmatised; these beliefs may act as a deterrent to seeking help.²⁵²MECOPP, “Where are we now? Health and wellbeing experiences and supports for black and minority ethnic unpaid carers across Scotland.,” MECOPP/Heriot Watt University, Edinburgh, 2025. ²⁵³Mental Welfare Commission for Scotland, “Racial Inequality and Mental Health in Scotland: A call to action,” Mental Welfare Commission for Scotland, Edinburgh, 2021. In some languages, mental health translates as ‘mad’.²⁵⁴Mental Welfare Commission for Scotland, “Racial Inequality and Mental Health in Scotland: A call to action,” Mental Welfare Commission for Scotland, Edinburgh, 2021. Research by MECOPP has highlighted different cultural perceptions of dementia, where cognitive decline may be seen as a normal part of the ageing process, or alternatively where the condition is highly stigmatised and leads to community isolation.²⁵⁵MECOPP, “Briefing Sheet 09: Supporting South Asian People with Dementia: Lessons from the ‘Jeevan’ Project,” MECOPP, Edinburgh, 2017.

The concept of being a carer may also differ between cultures and languages. Caring for ageing or vulnerable relatives can be a norm among adult children from various cultures, leading to perceptions in which the concept of an unpaid, informal carer is not understood or there is no word for ‘carer’ in the community language.²⁵⁶MECOPP, “Where are we now? Health and wellbeing experiences and supports for black and minority ethnic unpaid carers across Scotland.,” MECOPP/Heriot Watt University, Edinburgh, 2025. A ‘solve it within the family’ attitude, where caring is a duty, may mean that cultural norms around caregiving clash with the idea of seeking formal help.²⁵⁷Scottish Government, “Social Security Experience Panels: Carers with English as a second language,” Scottish Government, Edinburgh, 2024. ²⁵⁸MECOPP, “Where are we now? Health and wellbeing experiences and supports for black and minority ethnic unpaid carers across Scotland.,” MECOPP/Heriot Watt University, Edinburgh, 2025. It is important to recognise this is not universal across minority groups.²⁵⁹Joseph Rowntree Foundation, “Ethnicity and family dynamics: literature review,” Joseph Rowntree Foundation, York, 2025.

Some languages may define terms like ‘carer’ based on the context and therefore consideration of this is required to produce high quality translated materials. For example, Cantonese-language research participants mentioned that carer could be defined in two different ways, denoting a paid or unpaid carer. They highlighted that there is often a need for double-translation in some terms: a literal translation from English to Cantonese, and then to an alternative Cantonese term that is more appropriate for the context.²⁶⁰Scottish Government, “Social Security Experience Panels: Carers with English as a second language,” Scottish Government, Edinburgh, 2024.

4.4.2 Experiences of poverty

A considerable body of research addresses poverty among people from minority ethnic communities (see notably the work of Joseph Rowntree Foundation and Runnymede). While this largely goes beyond the scope of this research to address in detail, it is worth noting that people from many minority ethnic communities are much more likely to experience poverty, including deep protracted poverty, than most ‘white British’ people, and evidence indicates Asian or Asian British groups are experiencing rising relative poverty levels³²³ P. Matejic, K. Schmuecker, Y. Ibison and I. Taylor, “Bangladeshi, Black African and Pakistani households at higher risk of very deep, long-term poverty,” Joseph Rowntree Foundation, York, 2024. ³²⁴Coalition for Racial Equality and Rights, “Ethnicity and Poverty in Scotland 2020,” Coalition for Racial Equality and Rights / Scottish Government, Glasgow, 2020. However, it should also be noted that ‘white’ people from certain countries could also be more likely to experience poverty in Scotland than ‘white British’. For instance, Polish, along with African, Caribbean and Black groups, are highly likely to live in the most deprived areas of Scotland.³²⁵Coalition for Racial Equality and Rights, “Ethnicity and Poverty in Scotland 2020,” Coalition for Racial Equality and Rights / Scottish Government, Glasgow, 2020. ³²⁶BEMIS, “Poverty and Ethnicity: Agenda and Policy Development in Scotland – Lived experience of Ethnic and Cultural Minority Communities,” BEMIS, Glasgow, 2016.

Poverty can act as a barrier to take up of benefits, for instance, due to poverty related stigma, by damaging confidence, and increasing feelings of shame.³²⁷The Poverty Alliance, “The impact of stigma on benefit take-up: Report of a Get Heard Scotland Citizens’ Panel,” Scottish Government, Edinburgh, 2024. ³²⁸ I. Tyler and S. Campbell, “Poverty stigma: a glue that holds poverty in place,” Joseph Rowntree Foundation, York, 2024. ³²⁹ B. Baumberg Geiger, “The stigma of claiming benefits: a quantitative study,” Journal of Social Policy, vol. 45, no. 2, pp. 181-199, 2015. Shame and self-doubt can prevent people from minority groups seeking support, as can the fear of not being believed or considered ‘at it’.³³⁰The Poverty Alliance, “The impact of stigma on benefit take-up: Report of a Get Heard Scotland Citizens’ Panel,” Scottish Government, Edinburgh, 2024. Similarly, marginalisation can also impact benefit take up as clearly described in the Scottish Government’s research into seldom heard groups and the Scottish social security system.³³¹Scottish Government, “Research into seldom-heard groups within the Scottish social security system,” Scottish Government, Edinburgh, 2024.

4.4.3 Trust in public services

Trust in public services among certain groups, including those from minority ethnic backgrounds, is likely to be lower than for the general population.³³² MORI, “Trust in public institutions,” Audit Commission, 2001. Low trust in public services can mean people are less likely to engage with social security systems, turning to their community for support instead, or being less willing to disclose their ethnicity when asked.³³³Joseph Rowntree Foundation, “Ethnicity and family dynamics: literature review,” Joseph Rowntree Foundation, York, 2025. ³³⁴P. Allmark, S. Salway, R. Crisp and R. Barley, “Ethnic minority customers of the Pension, Disability and Carers Service: An evidence synthesis,” Department for Work and Pensions, London, 2010.

While Social Security Scotland annual client satisfaction surveys ask about trust in their services, this is not broken down by language or ethnicity. Overall, trust levels in Social Security Scotland across all types of respondents in annual client satisfaction surveys are reasonable at 72%.³³⁵Social Security Scotland, “Social Security Scotland Client Satisfaction Survey: 2024 2025,” Social Security Scotland, Dundee, 2025. Mistrust by clients has been noted particularly in how decisions are taken around disability, with doubts expressed that staff understood or knew about their health condition.³³⁶ Social Security Scotland, “Annual Client Panels Survey 2024,” Social Security Scotland, Dundee, 2025.

Mistrust among minority ethnic communities can also stem from prior negative experiences, for instance among people from countries with poor human rights records, among older Black Caribbeans impacted by Windrush, historical racism or of treatment by the DWP.³³⁷Ipsos MORI, “The experience of Black, Asian and Minority Ethnic communities with HMRC services,” HMRC, London, 2010. ³³⁸Independent Age, “Experiences of Poverty in Later Life: People from Minoritised Ethnic Communities,” Independent Age, London, 2022. ³³⁹Coalition for Racial Equality and Rights, “Ethnicity and Poverty in Scotland 2020,” Coalition for Racial Equality and Rights / Scottish Government, Glasgow, 2020. ³⁴⁰Scottish Human Rights Commission, “The Views of People in Scotland: ICERD Lived Experiences Report,” Scottish Human Rights Commission, Edinburgh, 2024. ³⁴¹Scottish Government, “Social Security Experience Panels: About Your Benefits and You – Qualitative Research Findings,” Scottish Government, Edinburgh, 2018. Fear of trusting online information that may have been hacked, or of calling phone numbers that could be a scam, have been identified among those from ethnic backgrounds in studies about Scottish social security.³⁴²Scottish Government, “Social Security Experience Panels: Carers with English as a second language,” Scottish Government, Edinburgh, 2024. ³⁴³Scottish Government, “Social Security Experience Panels: Ethnic Minorities,” Scottish Government, Edinburgh, 2020.

Staff actions and treatment can also erode trust. Examples from Scotland and elsewhere include lacking cultural awareness (see ‘Treatment by staff’ section above), failing to understand information provided, treating those from a minority ethnic background as a homogenous group rather than as individuals, or local teams being unreliable, such as failing to show up to appointments.³⁴⁴Social Security Scotland, “Social Security Scotland client and applicant diversity and equalities analysis for April 2024 to March 2025,” Social Security Scotland, Dundee, 2025. ³⁴⁵P. Allmark, S. Salway, R. Crisp and R. Barley, “Ethnic minority customers of the Pension, Disability and Carers Service: An evidence synthesis,” Department for Work and Pensions, London, 2010. ³⁴⁶Scottish Human Rights Commission, “The Views of People in Scotland: ICERD Lived Experiences Report,” Scottish Human Rights Commission, Edinburgh, 2024. ³⁴⁷MECOPP, “Where are we now? Health and wellbeing experiences and supports for black and minority ethnic unpaid carers across Scotland.,” MECOPP/Heriot Watt University, Edinburgh, 2025. One social work study considering child welfare workers in Norway and England reported that people feared interpreters, who may belong to their ethnic community, could leak confidential information back into their community.³⁴⁸K. Kriz and M. Skivenes, “Lost in Translation: How Child Welfare Workers in Norway and England Experience Language Difficulties when Working with Minority Ethnic Families,” The British Journal of Social Work, vol. 40, no. 5, pp. 1353-1367, 2010.

Additionally, aspects of the benefits system intersect with other services, such as health providers to supply supporting information for disability benefits or the courts system when raising an appeal. As with social security systems, there is evidence of mistrust in other public services, for example health and criminal justice.³⁴⁹Joseph Rowntree Foundation, “Ethnicity and family dynamics: literature review,” Joseph Rowntree Foundation, York, 2025. ³⁵⁰Mental Welfare Commission for Scotland, “Racial Inequality and Mental Health in Scotland: A call to action,” Mental Welfare Commission for Scotland, Edinburgh, 2021. ³⁵¹ MORI, “Trust in public institutions,” Audit Commission, 2001. ³⁵²D. Lammy, “The Lammy Review,” London, 2017. ³⁵³The Bell Foundation, “Access to Justice for All: The Impact of Language Barriers,” The Bell Foundation, 2024. Therefore, considerations of whether to access benefits among those with English as a second language, may also be impacted by trust in public services more broadly, as well as specifically in relation to social security systems. People with little or no English were among marginalised groups who struggled to provide supporting information during Scottish Government research into how supporting information is used in the context of disability benefits in Scotland though reasons were not given.³⁵⁴ Scottish Government, “Qualitative research into how supporting information is used in the context of disability benefits in Scotland,” Scottish Government, Edinburgh, 2023.

4.5 Summary

Although overall there are high levels of reported satisfaction with the social security system, a wide range of factors can combine to create a challenging environment for people with English as a second language when engaging with the Scottish social security system. These could be broader issues, such as experiences of poverty, mistrust in public services, or cultural beliefs. However, there were also many examples within the social security system that could deter people from applying for benefits or generate negative views about it, including poor treatment by staff, complex systems and processes and applications denied.