Streamlining Welsh Benefits – Marginalised groups research

Whilst we know that Welsh benefits are an important lifeline for thousands of people in Wales, we also know that many people are still not claiming their entitlements. The Streamlining Welsh Benefits project is part of a shared commitment for Welsh Government and local government to encourage people in Wales to claim every pound they are entitled to. 

We know that many people struggle to access the benefits that they are entitled to, this is particularly true of people from marginalised groups. Households often need multiple applications for different benefits, creating barriers for low-income and marginalised groups. Existing benefits processes are complex with diverse and inconsistent eligibility criteria, which make it even more difficult to understand and navigate the benefits system and ultimately reduces take-up.

The Welsh Government are committed to ensuring the approach taken to administering Welsh benefits is a person-centred and compassionate one based on rights and entitlements, as underpinned by the Welsh Benefits Charter principles. 

The Centre for Digital Public Services (CDPS) partnered with the Welsh Government to explore ways to make the Welsh benefits system more user-friendly and inclusive whilst improving income maximisation for people in Wales.

Through previous phases of work, we identified that it is often the most vulnerable in our society who miss out on vital financial support, deepening cycles of poverty and disadvantage.

There is currently limited understanding across the Welsh public sector of how marginalised people navigate the full process of finding out about, applying for, and receiving support from the three devolved Welsh benefits, Free School Meals (FSM), School Essentials Grant (SEG), and Council Tax Reduction (CTR), as well as other benefit entitlements.

Without a clear understanding of the lived experiences and barriers faced by marginalised people, it is not possible to design meaningful, user-centred improvements to the Welsh benefits system.

It was agreed that user research needed to be done with people from marginalised groups so that their specific experiences of the Welsh benefits system and the challenges and barriers they faced could be understood and incorporated into the design of an improved Welsh benefits system.

Through our user research with people from marginalised groups, we aimed to:

• gain a deep understanding of the lived experiences and needs of people from disadvantaged or marginalised communities in Wales as they navigate the current benefits system
• identify the key challenges and barriers that prevent people from disadvantaged or marginalised communities from accessing the financial support they are eligible for 
• gain an understanding of how people from disadvantaged or marginalised communities are currently experiencing FSM, SEG and CTR and explore opportunities to improve their experience of these benefits.

Due to the tight timescales of this research project, the project Core Team agreed that the priority user groups that this research should focus on were:

• carers (someone who looks after or supports another adult or a disabled child)
• single parents
• disabled people (including those with mental health conditions, physical impairments, and additional learning needs)
• people with no recourse to public funds (NRPF)
• people from minority ethnic backgrounds

Whilst other marginalised groups were considered, they were deemed out of scope for this round of research.

This research will be focussing on people’s experiences of the three devolved Welsh benefits, but we will also aim to understand people's experience of benefits and the benefits system more broadly, as many of these insights will be transferrable to the Welsh benefits.

Our recruitment screening process will ensure that all research participants are eligible for one or more of the Welsh benefits, even if they don’t currently receive them.

Whilst we aim to conduct research with real service users, we also aim to research with proxy users (professionals who work closely with marginalised groups) who can supplement our understanding with high-level insights.

The completion of this research should enable us to:

• provide a detailed analysis of how vulnerable people currently experience the Welsh benefits system
• develop recommendations to make FSM, SEG, and CTR more accessible, efficient, and supportive
• build on existing insights by deepening our understanding of the real-life challenges people face when accessing support in Wales

During this research project we researched with 31 people from marginalised groups who were users of benefits services and 10 proxy users.

The breakdown of the number of people we researched with who represent different marginalised groups is as follows:

• carers - 5
• disabled people - 6
• people from minority ethnic backgrounds - 15
• people with no recourse to public funds - 3
• single parents - 2

It’s important to point out that these figures are based on the marginalised group that these people primarily identified with. It does not take into account the intersectionality of the people we researched with. 

Intersectionality refers to instances where a person represents more than one marginalised group, for example, most of the carers we spoke to were also disabled. A list of the instances of intersectionality can be found in the appendix.

Desk research

In the initial stages of this project, we carried out desk research to understand what was already known about the experiences and barriers faced by people from marginalised groups when trying to access Welsh benefits.

This enabled us to identify gaps in our knowledge and identify what assumptions we had going into this round of research, so that we could test the validity of these.

Our desk research consisted of: 

• Revisiting research previously carried out by CDPS on Streamlining Welsh Benefits and Cost of Living content projects
• Reviewing relevant research carried out by core project partners Welsh Government and WLGA
• Reviewing a number of relevant research reports produced by public sector and third sector partners

Outreach

Due to a lack of direct channels to reach the right people for recruitment, we knew we needed the support of the public sector and third sector organisations that support and work closely with these people.

We gathered contact information for 35 relevant organisations and after initial contact we were able to meet with or have follow-up contact with 19 of these organisations.

These organisations were key in supporting us to better understand how to approach recruiting people from marginalised groups in the right way, they helped share our recruitment communications with the right people and some even allowed us to research with the people they support on their premises.

User recruitment

We aimed to recruit at least 5 people from each user group to try and get an even spread of representation across all 5 user groups.

To maximise our chances of success with participant recruitment, we used multiple recruitment channels to reach as many prospective participants as possible:

We reached out to existing contacts from previous benefits and accessibility research.

We shared a sign-up form with the organisations that agreed to support our recruitment, to share with the people they support.

We put out recruitment flyers in areas of high traffic, like the Cardiff

Central Library Hyb, Jobcentre Plus and a financial advice centre.

A few organisations supported us further by recruiting people directly.

We also developed a screener which enabled us to check that the people who signed up met the criteria necessary to take part in this research.

Remote user interviews

We conducted 10 remote user interviews with disabled people, people who are carers and people from minority ethnic backgrounds.

These interviews were semi-structured and were designed to capture more detailed information about people’s experiences of Welsh benefits and the challenges and barriers that they face trying to access benefits.

In-person user research

We were able to conduct several in-person research activities for this project, which consisted of pop-up research sessions at relevant locations and a focus group.

We held two pop-up research sessions, at Cardiff Central Library Hyb and a Cardiff Council supported housing location. People who were using those spaces were recruited take part in our research. In total we spoke to 18 people across these sessions, who represented all five marginalised groups.

We also held a focus group at an Ethnic Minorities & Youth Support Team (EYST) Wales hub in Swansea. This was co-ordinated with the help of one of the support workers at EYST and enabled us to speak to three people who had NRPF status.

These in-person research activities enabled us to reach a broad array of users so we could get a large quantity of high-level insights.

Proxy user interviews

We also spoke to a number of proxy users who were able to supplement our research with their knowledge of the challenges faced by the people they support when trying to access benefits.

Nine of the ten proxy users we spoke to were financial advisors from a range of social housing associations across Wales, and one was an asylum and refugee support worker.

Analysis

This research activity gave us over 3,000 individual data points which we then needed to analyse to draw out the insights that they held.

We used an analysis technique called affinity mapping, which involves linking up thematically related data until major themes and patterns become apparent.

A second round of analysis was then conducted to break down these chunky themes into more detailed insights which are presented in the ‘What we learned’ section of this report.

Because we were researching with a niche group of people who represent select marginalised groups and had experience of specific benefits, and due to the tight timescales of this project, we knew that participant recruitment would be challenging.

We were also conscious that people may be reluctant to engage with us for a number of reasons. To mitigate for these risks, we were flexible with our participant recruitment and our research methods. 

Whilst we weren’t able to recruit 5 single parents or people with NRPF status, if intersectionality of groups is considered, we were able to recruit more than 5 people who represented each of these marginalised groups.

We aimed to include people from North, Mid and West Wales to ensure that there was a range of experiences being represented and to avoid a South-East bias. Whilst we did research with people from North and West Wales, it was challenging to recruit many participants from these regions, and the majority of our participants were from the South-East.

1. Not all benefits application forms are accessible

"I have issues with my hands so the printed version is a barrier - I couldn't get an electronic form, it felt like they were putting a little extra barrier to stop you from applying." - Participant A02

Application forms are not accessible enough to meet the access needs of many applicants.

Some disabled applicants are unable to fill in application forms themselves because the forms are only available in paper format and they have dexterity and stamina challenges. 

Many forms are long, complex and onerous and are challenging to complete, particularly for neurodivergent people. 

Accessibility barriers and the mental load required to complete application forms is enough to deter people from applying.   

Being unable to get benefits information, guidance and application forms in your first language is a barrier for many.

Language is a significant barrier to users who aren't first language English speakers. 

These users feel that if application forms were available in their first/native language they would be able to apply for themselves, instead they need to seek support to apply.

Application forms are often not available in the user's preferred format.

Users want to see the option of paper or electronic forms and telephone support so that they have choice. 

Not being able to access an application form in you preferred format can feel like a deliberate barrier to some users. 

Online services and applications can be exclusive to many users who experience low digital literacy and a lack of digital access.

Many people in deprivation struggle to access a computer or Wi-Fi which makes it challenging to complete an online application.

Many users, particularly older people, are not digitally literate enough to use online services independently.

If services are only available online it creates a single point of failure which prevents users having any access to the information and applications, they need when websites go down.

Some users would prefer and expect an online service.

More digitally literate users find it easier applying online and feel in a digital age that all applications should be available online.   

Users want a simpler digital application process.

Users want an easy-to-use digital application form that meets their needs and enables them to claim what they are entitled to.

Users feel that if they are expected to apply online that it should be a clearer, more simple process than the ones they currently experience.

Users would like to see a 'save and return' function on larger online forms so that they can save their progress and return when it is convenient for them.

Proxy users feel that an easy-to-use digital platform could make life easier for advisors too, not just applicants

Marginalised people want to be included and involved in the improvement of Welsh benefits.

Users from marginalised groups want their voices and their lived experiences to be included in the work to improve the Welsh benefits system and benefits applications.

2. The complexity of benefits application forms are a barrier to applying

"It's not worth it for a couple of quid, I'll just struggle on - It would be so much more simple if there was a one stop shop for benefits." - Participant B02

Users are giving up on their benefits application because they find the process too challenging.

Users are finding the benefits application process such a complex and taxing experience that some are reluctant to apply or give up before completing an application. 

Some users have found the application questions for certain benefits can be so invasive that they will avoid applying again in the future.

Some users feel that without the support they had to apply, they would not have been able to complete their application. 

Users find repeating the same information in different applications frustrating.

Users feel frustrated and exhausted because they often have to share the same information in each application they make.

Users people feel that they are being tested when they are made to repeat the same information.

Users would value a 'tell us once' type service where they only have to give their information once.

Both users and proxy users feel that streamlining the benefits system into a single application for all the benefits people are entitled to would make the process a lot simpler. 

Both users and proxy users feel that it should not be the responsibility of the applicant to repeat information that is already available on other systems. 

The language used for benefits and benefits applications is not clear and easy to understand.

Some users struggle to understand the language used on applications so they are unsure what is required of them, and it can prevent them from making a successful application.

Some users find the application process unclear and confusing which can lead to them wasting time applying for the wrong benefit.

Even support staff and financial advisors find it difficult to navigate the application process and sometimes rely on loopholes.

Application forms can be too long and take too much time and energy to complete.

Users often spend hours and sometimes days trying to complete lengthy application forms.

Some users feel that the length of application forms and the time needed to complete them is enough to deter people from applying.

3. Users need support to be able to apply for benefits

"I'm no dummy, I've got a masters degree, but I don't think I would have been able to fill it [application form] in by myself" - Participant CL03

Many users are reliant on the support of others to be able to navigate the application process and complete an application.

Due to the complexity of the application process, many applicants rely on support and guidance from professionals to be able to apply successfully. 

Many users turn to friends and family with prior experience of applying to seek help to apply. 

Users value access to financial support and would like to see more dedicated financial support roles created.

Some applicants struggle to access financial support and would like to see more, dedicated financial support roles that they could access easily.

Some, more experienced users, become advisors to their friends, family and their wider community.

Some users really value having access to face-to-face financial support and advice.

4. Users lack awareness of the benefits they are entitled to

"It's surprising how unaware some people are of what they're entitled to"- Proxy user PU03, Money Advice Service

Applicant's lack of awareness of benefits is a significant barrier to them getting the financial support they need.

Proxy users told us that many of the people they support are not aware of the benefits that they are entitled to. 

Many users feel that there is little awareness of what benefits are available and that they should be signposted to the relevant benefits by benefits providers.

Finding information on the benefits you are eligible for can be challenging.

Some users told us that they were unable to find the relevant information on the benefits they may be entitled to, even when searching council websites.

Many users need to be signposted to the appropriate benefits.

Many users are only able to find the appropriate benefits because they are signposted either by professionals or by family and friends.

Some users with experience of the benefits system, go on to signpost and advise their friends, family and their wider community.

Users are missing out on the benefits they are eligible for because they are not aware they exist.

Some users miss out on the opportunity of financial support due to a lack of awareness of the benefits they are eligible for.

Applicants want professionals who are aware of their financial status to advise them about potential financial support and signpost them.

More targeted promotion campaigns could help more users find out about the benefits they may be entitled to.

Both users and proxy users want to see better promotion campaigns for benefits, particularly the benefits that applicants are less familiar with.

Both users and proxy users want to see more targeted promotion in the places that the people who need benefits might be, like pop-up community events or healthcare settings.

5. Users lack understanding of benefits and who is eligible

"I don't know what I'm eligible for - I'm not able to find the help I need." - Participant E03

"I was aware of it [attendance allowance], but I thought maybe he [her husband] wasn't 'bad' enough for me to apply." - Participant CL04

Many applicants find it difficult to understand what benefits they're eligible for.

Users find the complexity of the benefits system and understanding eligibility a barrier. 

Many applicants rely on guidance and support to understand what benefits they are eligible for.

Users often seek guidance to help them better understand benefits and their eligibility.

This guidance can come from multiple sources, including family and friends, which sometimes leads to conflicting advice.

Some users don't realise that they are entitled to any financial support.

Users often minimise the severity of their financial situation and as a result don't feel entitled to financial support. 

Some users don't even consider that they might be eligible for benefits because they are unaware of the available benefits and the eligibility criteria. 

Some applicants don't know where to go to get the information they need to understand what benefits they may be entitled to.

Not knowing where to look to find the right information to understand benefits and eligibility becomes a blocker for some people.

Many people find the scale and complexity of the benefits system overwhelming.

Users often feel overwhelmed by the benefits system, and this becomes a barrier to them exploring to find the right information for them. 

Proxy users feel that the complexity of the benefits system causes confusion for users and is partly to blame for people not claiming their entitlement. 

Users who move to Wales from a foreign country need support to understand the benefits system.

When users are not familiar with the Welsh benefits system it can be confusing to understand and navigate, and support is needed to familiarise themselves with the system.

6. When users interact with the benefits system, they are often going through traumatic life events

"When you are trying to get better, you don't want to be stressing out about how you are going to pay for things." - Participant A04

Changes to someone's financial situation brought on by negative life events is often why people need access to benefits.

Sudden changes to people's situations can result in an abrupt introduction to the benefits system for some and can feel like starting over. 

When people are going through a traumatic time, they can really struggle to process the complexities of the benefits system.

People in this situation would value some support to help them understand what financial support is available to them.

Negative experiences of the benefits system can have a negative impact on mental and physical health.

Many people who are experiencing poor mental health feel that trying to navigate the benefits system will have a detrimental effect on their mental health.

Some people will avoid interacting with the benefits system because they anticipate it will impact their mental health negatively.

Some people ignore signs of poor physical health in order to stay in work longer and postpone the need to claim benefits.

7. Some users feel fear and distrust towards the benefits system

"It feels like they are trying to catch you out." - Participant A05

Some users are fearful of suddenly losing their entitlement.

Because people rely so heavily on the benefits they receive, they feel vulnerable and fearful they might stop receiving their benefits suddenly. 

Users are scared of making mistakes in case they are penalised for it.

Some users feel like they need to stay vigilant and ensure they don't make any mistakes or miss any appointments as they fear they could be penalised as a result.

Some users who have previously had bad experiences of applying for benefits feel reluctant to apply again or re-apply.

People who have bad prior experiences with benefits don't want to go through that experience again and are reluctant to apply again. 

Some users don't feel that benefits providers are being held accountable for their mistakes.

Some users see disparity between the way claimants are treated, and providers are treated when mistakes are made, which causes distrust. 

Some users feel that application forms are deliberately difficult and repetitive.

Some users felt that the difficulty of the forms and quantity of evidence that's asked for is deliberate to put people off applying.

Some users feel that the same questions are asked of them so frequently that it's like the providers are trying to catch them out 

8. Stigma is an issue that stops people applying and impacts well-being

"You feel useless - you feel like a second class citizen" - Participant A02

"The whole thing is just awful and degrading and it makes you think, is your life worth living?" - Participant A05

Many applicants feel there is social stigma around claiming benefits.

Both users and proxy users are aware of the stigma that exists in society against people who claim benefits, and that this stigma is amplified in the media. 

This perceived stigma impacts people to the extent that they don't apply for benefits their entitled to.

Many people internalise this stigma and feel a sense of shame or guilt for claiming benefits as a result.

This stigma is strong enough to prevent some people from applying for the financial support that they're eligible for.

Stigma has a negative impact on the well-being of users.

Many people who claim benefits experience a negative impact on their mental health and sense of self-worth because of stigma.

Some users feel that personal questions in application forms can be degrading and stigmatising.

9. Disjointed processes between and within the organisations involved in delivering benefits cause challenges for the user

"There's a worrying disparity in ways benefits are administered across local authorities." - Proxy user, Community Housing Cymru

Users want public sector organisations to share their information between them to reduce the burden on the user.

Users feel frustrated by the need to repeatedly share the same information with different organisations and services. 

Users feel that having their information centrally stored would make the application process less onerous for them. 

Users want better communication between public sector organisations.

Users are frustrated with the poor communication between departments, organisations and services leading to mistakes and/or additional work for the users.

A lack of consistency and cohesion in the benefits policies and processes across local authorities can disadvantage some users.

Proxy users are aware of a lack of consistency across LAs, which causes a disjointed experience for the user.

10. People need more reliable channels of communication with public sector organisations

"[The benefits team] Don't always answer my questions in my journal - maybe it's not important to them" - Participant A01

"How do you empower someone when they're so vulnerable?" - Proxy User PU02, EYST

Users want reliable methods for communicating with public sector organisations.

Applicants want to be able to speak to someone who can advise them on their benefits application easily. 

Long call wait times prevent users being able to get the information they need to progress their applications quickly. 

Users want Government and council websites to better meet their needs.

Inaccessible online services add another layer of complexity to finding and applying for benefits.

Users feel that websites are difficult to navigate, which often results in them seeking support.

When online only services and applications don't work, users are left with no alternative.

Users want clear information and communications from their local authorities.

Some users feel that unclear information being shared by their council has led to confusion about their eligibility.   

Improved communication and outreach with marginalised groups is needed to build trust and empower them to access the financial support they're entitled to.

Proxy users feel that better relationships need to be built with marginalised communities, which would create the foundations for better communication and support.

Proxy users are aware that some marginalised groups are wary of Government and local authority communications and may miss out on essential information as a result.

11. Users attitudes towards Government, local authorities and the benefits system are polarised

"The benefits system in Wales doesn't reach the right people enough." - Participant B03

Users don't feel supported by Government.

Users don't feel that Government do enough to make sure the most vulnerable in society are being supported and that the benefits that are available are being claimed. 

Users don't feel that they are involved or represented in the welfare decisions being made by Government.

Users feel slightly more listened to and represented by Welsh Government but are concerned that this is changing for the worse.

People's views of their local authority are polarised and often depend on where you live.

Some people feel very strongly that they are not supported by their local council and that they struggle to engage with the council.

Others have had very positive experiences of engaging with and feeling supported by their local council and feel grateful to their service.

Many people don't feel that the Welsh benefits system is fit for purpose.

Both users and proxy users feel that Welsh benefits are not fulfilling the needs that they are meant to and that the people that need them most struggle to get access.

Some users feel that the system is slowed down because it is disjointed and bureaucratic and they would like a simplified system that tells them what they're eligible for.

12. People receiving benefits experience financial barriers to getting back into employment

"It doesn't pay to be in work because they take more money out of my Univeral Credit." - Participant B02

Users are sometimes dis-incentivised from returning to work because doing so can leave them financially worse-off.

Some users feel that they would be financially worse-off if they find work because of the impact on the benefits they rely on. 

Some users feel that the benefits system is not flexible enough to cope with the realities of irregular working schedules and pay.

Benefits don't provide enough financial support for people to be able to pursue training and development.

Some people are not able to pursue academic development because they don't have access to sufficient funding

Some people will stay in full-time employment to their detriment, even when they are entitled to welfare support, because they don’t want to be on benefits.

Some people have to make difficult decisions about staying in employment rather than accessing benefits, even when it has detrimental impact on their physical or mental well-being, because they are reluctant to engage with the benefits system.

13. People receiving benefits are financially dependent upon them

"I budget my money to the penny, because we live hand to mouth" - Participant B01

"We're given enough money to survive, not to live." - Participant B02

Some users are in such a financially precarious position that they depend on benefits to live.

Without financial support from benefits, some users don't know how they would manage financially. 

Being so dependent on benefits makes many users feel very vulnerable financially. 

Many users who are receiving benefits are still struggling financially to live.

Users feel that the money they receive from benefits is enough to cover life's basics, but nothing more.

Some people will get into debt in order to have enough money to afford more than the bare essentuals.

Increasing cost of living is pushing more people to claim benefits.

Some users had to claim benefits when their earnings were no longer enough to live off.

Some users are concerned that benefits amounts are not increasing in line with rising cost of living.

14. Users are grateful for the positive impact benefits have

"Benefits help you lead a better quality of life." - Participant CL03

Benefits have a significant positive impact on many users' standard of living.

Benefits enable users to live a better quality of life. 

Having some financial support reduces stress and anxiety and improves mental well-being. 

Users are grateful for the financial support they receive.

Users appreciate the financial support they get and that it helps give them a better quality of life.

Some users recognise that the benefits system is better now than it has been.

Universal Credit is seen by some users as a big improvement compared to the legacy benefits it replaced.

15. Free School Meals (FSM)

"We get lots of calls asking if we can help people claim Free School Meals." - Proxy user PU01, Tai Hedyn

"I think FSM should be universal to minimise stigma." - Participant B03

Most users are aware of FSM.

Most users found out about FSM through school communications. 

Others find out through word of mouth, through the media or by researching. 

Not everyone understands the difference between universal Free School Meals (uFSM) and eligible Free School Meals (eFSM).

Some people, including users of uFSM, are not aware that there are different kinds of FSM or what the eligibility criteria would be for eFSM.

There is some concern about how stigma impacts those who need FSM.

People are concerned about stigma and labelling of children who receive FSM and feel that school meals should be free to all children to eliminate stigma.

Some proxy users feel that the stigma surrounding FSM is enough to deter people from applying for FSM.

Whilst most find the application straightforward, some struggle to apply and need support with their application.

Most users found the application process simple and had an overall good experience of receiving FSM.

Some others, particularly people who don’t speak English as a first language, have struggled to apply without support. 

Some users feel that FSM is not flexible enough to meet everyone's needs.

Some users don’t feel that FSM caters for their children’s needs and that the system could be more flexible and inclusive.

Some users would prefer to receive money or credit to use towards the food their children want, rather than access to set meals.

These users often end up spending money on school meals or packed lunches anyway, even though they receive FSM.

16. School Essentials Grant (SEG)

"I haven't heard of School Essentials Grant [even though participant was eligible]." - Participant CL01

"You'd think it would be a streamlined process where if you're eligible for Universal Credit you're given Free School Meals and School Essentials Grant." - Participant B02

Many people are unaware of SEG, including those who are eligible.

Around 1/3 of the people we researched with were not aware of SEG. 

Some of those who were unaware of SEG were eligible to receive SEG.

There is some confusion around the naming of this benefit.

Some people were familiar with SEG, but knew it by one of its previous names, ‘Pupil Deprivation Grant’ or ‘Uniform Grant’.

Proxy users feel that more targeted promotion of SEG could help raise awareness.

Some proxy users have to prompt people who are eligible but unaware to apply for SEG and feel that more targeted promotion is needed to improve awareness.

Many people find out about SEG through friend and family, not through official sources.

The guidance and eligibility criteria around SEG are not clear.

Many users found the guidance around SEG unclear, and some had missed out on receiving SEG as a result.

Some users, even those who receive SEG, were unclear on the eligibility criteria.

Some users find the application process straightforward.

Some of those who have applied for SEG found the process straightforward.

17. Council Tax Reduction (CTR)

"I missed out on 6 years of it, as I wasn't aware." - Participant A04

Many users aren't aware of CTR, including those who are eligible.

Again, around 1/3 of the people we researched with were not aware of CTR. 

This includes people who were eligible to claim CTR and have missed out on years of financial savings. 

Many applicants have to be signposted to CTR.

Many people are finding out about CTR from friends, family and financial support services and not through official sources.

Many users find CTR confusing.

Many people are confused by the CTR eligibility criteria and how this will impact them if their circumstances change.

Some people are confused between CTR and council tax discount/support.

Confusion around CTR can land people in debt.

Users who are unclear about the eligibility criteria can end up underpaying if their circumstances change and will owe money to the council. 

Some people receiving Universal Credit also fail to claim CTR because they may assume it’s covered in the Universal Credit application.

Those receiving Universal Credit have a better experience of CTR.

People who claim Universal Credit are more aware of CTR and find the application process more streamlined and straightforward.

The full CTR application can be an onerous and challenging experience.

Users who apply using the CTR application form find the form long and challenging, with lots of evidence required.

Some struggle to complete the form themselves and rely on help from support services to complete the form.

With these insights in mind, we suggest the following recommendations to improve Welsh benefits in a way that serves the users’ needs. Many of these recommendations also align closely with the Pathfinder work being undertaken by CDPS.

• all application forms need to be designed to meet WCAG accessibility regulations 
• all application forms should be available in plain language with a consideration for diverse language needs
• all application forms should be available in at least one non-digital format, to allow for inclusivity
• providers should only request information from applicants that cannot be obtained from existing data sources; using and sharing available data to minimise the burden on the applicant
• applications should be automated based on available data so that people who are eligible for benefits are proactively awarded their entitlement and don't need to apply
• multiple channels of communication, advice and support should be made available so that people can easily access the financial support they need; this should include face to face support via community hubs 
• targeted outreach to engage marginalised communities to raise awareness of Welsh benefits, encourage income maximisation and build trust
• benefits policies should be reviewed and simplified to improve public understanding and increase uptake of benefits
• rationalise and simplify eligibility criteria to make it easier for people to understand and so that less support is needed
• more consistency in the regulations and processes across local authorities to give applicants a more consistent experience
• if application processes are simplified, the amount of support needed should be measured and monitored to see if demand drops
• introduce more flexibility into eligibility thresholds to avoid the 'hard stop' to people's entitlements
• review how the system could be made more flexible to accommodate the logistics of employment and pay
• review the usability of council finance webpages to ensure that they are meeting user needs 
• introduce more flexibility into Free School Meals to enable all recipients to get the meals they want/need
• review the eligibility criteria for Council Tax Reduction to make it clearer and more consistent 
• further research to understand where Welsh benefits are failing to meet the needs of the Welsh public.

This project would not have been possible without the support of our partners and contributors.

We thank the core team for this project for their steer and guidance. This includes members from Welsh Government, WLGA and Welsh local authorities.

We are especially grateful to the public sector and third sector colleagues who gave their time and insight to help ensure that this project was successful and meaningful.

Thanks to the following organisations:

• Age Cymru
• Autistic UK
• Cardiff Council Social Housing
• Cardiff Central Library Hyb
• Carers Trust
• Children in Wales
• Citizens Advice
• Community Housing Cymru
• Disability Wales
• Ethnic Minorities & Youth Support Team (EYST) Wales
• Jobcentre Plus
• King's Trust
• Rhondda Cynon Taf County Borough Council
• Riverside Advice Cardiff
• Tai Hedyn
• Trussell Trust
• Wales Council for Deaf People
• Wales Strategic Migration Partnership
• Women’s Equality Network Wales

Finally, we would like to share a heartfelt thanks with the research participants who gave up their time to share their experiences with us. Without them this work would be meaningless.

Intersectionality of participants

Many of the people we researched with fell into multiple user groups, also referred to as intersectionality. Below is a list which shows the number of instances of each marginalised group in this research.

Standard recruitment of participants as cited above.

Carers - 5

Disabled people - 6

People from minority ethnic backgrounds - 15

People with no recourse to public funds - 3

Single parents - 2

Adjusted group numbers when accounting for intersectionality:

Carers - 8

Disabled people - 11

People from minority ethnic backgrounds - 17

People with no recourse to public funds - 6

Single parents - 7

When intersectionality is accounted for, we researched with people who represented 49 instances of the marginalised groups we were researching.