People with communication needs and the Scottish social security system: fulfilling the expectations of ‘Our Charter’
The Scottish Commission on Social Security's report on the experiences of individuals with communication needs in accessing the Scottish social security system.
This is our first report under our function to review whether people are receiving the service that the Social Security Charter expects.
Contents
3. Barriers faced to getting help
Fair and equal treatment and addressing the barriers people face are key parts of ‘Our Charter’. Social Security Scotland has prioritised the design of services in an inclusive way to ensure people can access the service in the way they want to. How well are the barriers experienced by people with communication needs being addressed by Social Security Scotland?
Relevant Charter expectations
A people’s service
Social Security Scotland and the Scottish Government will:
- treat everyone equally, fairly and without discrimination
Processes that work
Social Security Scotland and the Scottish Government will:
- make communications, processes and systems as simple and clear as possible by testing them with the people who will use them
- adapt processes and ways of communicating as much as we reasonably can to meet your needs and preferences, for example by providing interpreters
A learning system
Social Security Scotland and the Scottish Government will:
- ensure staff understand the needs of different people and the barriers they face – so that no-one experiences discrimination because of who they are.
3.1 The current evidence base
Disabled people and people with long term conditions face structural and cultural barriers across society which can worsen their life experiences and prevent them from achieving their goals.1Joseph Rowntree Foundation – Unlocking benefits: Tackling barriers for disabled people wanting to work
Participants in previous research2Scottish Government – Social Security Experience Panels: About Your Benefits and You – Qualitative Research Findings by Social Security Scotland highlighted that claiming benefits could have a significant ‘stressful’ and ‘anxiety-inducing’ impact on clients, which was often not understood by staff. They also wanted staff to understand that a client’s interaction with the agency often comes at a time in their lives where there has been an extreme and abrupt change in their circumstances.
Of the respondents to the 2022/23 client survey, 17% noted that they faced barriers to getting help from Social Security Scotland. Those with a communication need were far more likely to say that they had experienced such a barrier (28%, compared with 13% of those with no communication needs).
People with communication needs were less likely than those without such needs to agree that the website was easy to navigate (77% compared to 87%), easy to understand (77% compared to 89%) or made it clear whether they were eligible or not (75% compared to 85%).
People with communication needs were less likely than those without such needs to agree they had enough choice about how to communicate with Social Security Scotland (74% compared to 80%), that it was easy to contact Social Security Scotland (63% compared to 68%) or that they got the support they needed (73% compared to 77%).
3.2 Barriers faced by people with communication needs
Having information in an accessible format is a key aspect of inclusive communications.
“[It’s] crucial to recognise the impact of not providing information in the appropriate format. If individuals do not receive information in a format that meets their needs, their benefits could be stopped and lead to significant consequences for their lives.” Structured interview participant
We were given examples where Social Security Scotland did not communicate with the person in a manner which reflected their needs. Some participants shared their frustration at receiving information in inaccessible formats, such as letters or leaflets they could not read due to print sizes unsuitable for visual impairments, therefore, in those instances, potentially not meeting section 4 of the 2018 Act and section 20 of the Equality Act (reasonable adjustments) (this is further discussed in section 3.4 (asking for support and getting it) below).
“Clients say they can’t read but still get [a] letter.” Structured interview participant
“You get things through the post and they are not always in an accessible format. You might need Braille or Moon or extra-large print.” Focus group participant (adviser)
Under the Social Security (Scotland) Act 2018, Social Security Scotland must inform people about their claim in writing. Where Social Security Scotland is aware of a communication need, however, the letter can automatically be produced in other formats to meet that need, for instance large print or Braille.
The experience of interacting with advisers by phone or web chat was described as varied. Some advisers require minimal explanation, while others need you to explain your communication needs and circumstances in detail. It is unclear whether this inconsistency is due to standard procedures or individual differences among advisers. The overall experience was seen as dependent on the member of staff handling the claim, highlighting a lack of consistency.
Participants emphasised the importance of investing in Easy Read resources to explain benefits, entitlements, application processes, and appeals procedures in a clear and accessible way.
They expressed frustration when receiving letters or leaflets they could not understand. Some disliked telephone support, and most agreed that online applications and portals can be extremely challenging and frustrating for people with learning disabilities.
Additionally, it was noted that people with anxiety are more likely to worry about the application process and may contact the service more frequently for updates. This can be especially stressful for young people with communication needs arising from neurodivergence, who may find it difficult to constantly follow up on progress by phone. In recognition of this, Social Security Scotland have introduced “new text and email updates to let people know how their applications for Adult Disability Payment and Child Disability Payment are progressing.”5Social Security Scotland – New text and email updates for applicants
3.3 Problems using each channel
Whilst having multiple channels of communication with Social Security Scotland can be helpful, different channels can present different problems to people with communication needs.
The provision of information in electronic formats was largely viewed positively, particularly because it supports the use of assistive technologies such as screen magnifiers. However, there was some disappointment expressed regarding the lack of alternative formats, Easy Read versions, and dictation tools.
The online portal was recognised as being in its early stages of development, with feedback highlighting optimism about its potential to evolve. Many see opportunities for future improvements that could better meet user needs as additional features are introduced.
Participants highlighted their reliance on alternative communication methods, and explained the difficulties they encounter with phone calls:
“I prefer texting if possible or emails. I can’t use the phone. Texting is better.” Focus group participant (client)
“It’s common for Social Security Scotland to have multiple options and long hold times during telephone contact. This can be especially challenging for individuals with mental health conditions, neurodiversity [and it can] often discourage them from proceeding.” Structured interview participant
Another participant shared their approach to managing communication needs, detailing the tools and adjustments they use to improve accessibility:
“A memory stick [with audio files], and a player that would play it. Or I’m fine on the phone now because I’ve got myself a new phone with a big button for loudness and I’ve got these new hearing aids and I pay for all of that.” Focus group participant (client)
Consistent concerns were raised about the lack of Easy Read versions and alternative formats, which limit accessibility for some users. Similarly, the absence of dictation tools on the platform was identified as a significant gap, creating challenges for individuals who rely on speech-to-text functionality.
A lack of accessible communication could prevent claimants, especially those with communication needs, from understanding their rights and responsibilities related to their benefits. For example, they may be unaware of how to challenge a decision, on when to report a change of circumstances:
“Advisers [could] reiterate and make clear to customers with communication difficulties what to do and how to do it in the event of a change of circumstances occurring.” Focus group participant (adviser)
Accessibility challenges with online platforms were also a recurring theme, particularly for individuals with specific needs. These included general usability concerns and difficulties in adapting digital services to cater to a diverse range of requirements.
Concerns were expressed about the reliability of captions, which are not always accurate. This lack of consistency reduces their effectiveness for individuals with hearing impairments.
It was suggested that the system be modernised to offer multiple options for people to connect and apply. Participants emphasised that younger individuals, particularly those with anxiety or other communication needs, often feel more at ease using text-based chat on websites rather than making phone calls.
The web chat function was highlighted as helpful; however, participants noted inconsistencies among agency staff in terms of the actions they could take. Some agents were able to handle requests directly through the chat, while others required clients to follow up by making telephone contact.
People with visual impairments highlighted that letters from Social Security Scotland include a dedicated phone number for Typetalk, but this service frequently experiences long delays or goes unanswered, often requiring clients to call back at a later time.
3.4 Asking for support and getting it
Feedback from focus groups and interviews highlighted a positive reception to the variety of channels of communication with Social Security Scotland. However, opportunities for improvement were identified.
Focus group participants praised the user-friendly language employed by call handlers and featured in written correspondence, describing it as clear and accessible. However, during interviews some noted that the language used in the system remains difficult to navigate, with many people lacking the necessary context about the benefits with this gap often making it challenging for them to fully understand what they are being asked or told.
“..people do not know what is going on, and this sense of confusion can be amplified for those with communication needs.” Structured interview participant
It was noted that support typically needs to be actively requested or sought out by individuals, rather than being proactively offered by Social Security Scotland as standard practice. Whilst requests to Social Security Scotland for support or for a particular form of communication (e.g. letters in large font or not via a phone call) were often met, we were told there were instances when such requests had not been met, or were not subsequently followed through, potentially not meeting section 4 of the 2018 Act and section 20 of the Equality Act on reasonable adjustments.
“There have been cases where people received phone calls from Social Security Scotland as part of the decision-making process, despite explicitly requesting on the claim form not to be contacted this way due to anxiety triggers. It’s important to clarify that such contact is inappropriate, as it could exacerbate certain conditions.” Structured interview participant
In addition, inconsistencies were reported. There were instances where clients felt obliged to repeatedly explain their communication support needs during calls. Participants emphasised the importance of having clear and consistent processes to ensure communication requirements are consistently recorded and easily accessible to call handlers, reducing the need for repeated explanations.
Issues were identified with Social Security Scotland’s Local Delivery service.7mygov.scot – If you need help from Social Security Scotland: Local Delivery For example, it was noted that in some cases, clients were only provided with general morning or afternoon time slots, rather than specific appointment times. This approach was seen as impractical, particularly for advocates with busy schedules, and could significantly hinder the client’s ability to receive the necessary support.
3.5 Awareness of entitlements
Feedback from participants revealed a general lack of awareness about Social Security Scotland benefit entitlements, with many individuals relying on others for information.
Whilst lack of awareness is likely to apply to many claimants or potential claimants, this can be magnified for people with communications needs who often require specific communications support.
“Many people with communication needs are simply unaware of their entitlements and often feel reliant on others for assistance.” Focus group participant (client)
“ ..what benefits were in place, how people could apply and where they could go for support to do so. They wanted to see benefits promoted to people in places where they go.” Focus group participant (adviser)
Participants also expressed confusion about the different benefits, particularly between those offered by the Department for Work and Pensions and Social Security Scotland, with many still unclear about the distinction between the two organisations.
Some participants noted that their awareness of benefits in the past was typically communicated through social workers, rather than via digital methods or written communication.
“All of these new benefits that you’ve talked about, they’re not something that I was aware of. And there are a lot of Deaf older people that are in the same situation.” Focus group participant (client).
Focus group participants expressed concern that as devolution continues, understanding these differences could become even more complicated and confusing, highlighting a widespread lack of public awareness about devolved benefits.
Young people felt that Social Security Scotland sends out too many letters and booklets, creating an overwhelming amount of information that can be especially stressful to process, particularly for those with anxiety.
3.6 Fulfilling Charter Expectations
Relevant charter expectations are highlighted in bold.
In many cases participants highlighted the user-friendly language adopted by Social Security Scotland staff in order to make communications, processes and systems as simple and clear as possible. It was generally acknowledged, however, that language relating to specific benefits was often difficult to understand and communicate, particularly in writing.
This concern was further emphasised by examples of inaccessible information, formats and leaflets which had not been adapted to meet their needs and preferences. As discussed in section 2, this indicates a need to consider policies and processes within Social Security Scotland and the scope to be more proactive in offering alternative, accessible forms of communication to meet individual needs.
Participants told us that they had to rely on support from friends and family to progress through the system, which affected their independence and they felt it was an example of them not being treated fairly, equally and without discrimination. This practice creates privacy concerns for individuals.
3.7 Recommendations
Recommendation 4: To ensure no claimant is unable to access information due to their communication needs, Social Security Scotland should review its inclusive communication practices with a view to ensuring they are not a barrier to people with communication needs interacting with the Scottish social security system.
Recommendation 5: To understand and address any barriers to the take-up of benefits by people with communications needs, Social Security Scotland and the Scottish Government should undertake further research.