Memorandum submitted by Age Concern
Age Concern England (the National Council on
Ageing) brings together Age Concern organisations working at a
local level and 100 national bodies, including charities, professional
bodies and representational groups with an interest in older people
and ageing issues. Through our national information line, which
receives 225,000 telephone and postal enquiries a year, and the
information services offered by local Age Concern organisations,
we are in day to day contact with older people and their concerns.
1. SUMMARY OF
MAIN POINTS
1.1 Age Concern welcomes the local Pension
Service initiatives in some areas targeted at BME groups and the
willingness to work in partnership. However outreach work needs
to be properly resourced so, for example, interpreters are provided
where necessary and voluntary organisations are reimbursed costs
where appropriate. The impacts of local initiatives need to be
evaluated and good practice shared.
1.2 While many older people choose to contact
The Pension Service by telephone this is not the best form of
contact for everyone particular those from BME groups whose first
language is not English. The Pension Service needs to ensure that
all older people have access to their services by whichever means
is most appropriate given their circumstances and preferences.
1.3 It is important that The Pension Service
continues to look at ways of publicising information about benefits
and providing support in applying and dealing with the system
for all older people. For BME older people friends, family and
community workers may be more trusted sources of support than
statutory agencies.
1.4 Older people from BME groups may face
additional barriers due to the impact of certain benefit rules
or the way that benefit rules are administered. It is important
these problems and their impact are monitored in order to consider
whether benefit rules or administrative procedures need to be
changed in order to ensure that people from BME groups are not
being treated unfairly.
1.5 In conclusion Age Concern welcomes the
efforts being made by the Pension Service to provide a better
service however there is still much to be done to address the
poverty and disadvantage faced by many older people from BME groups.
Age Concern and other organisations will feedback the experiences
of those who contact us but it is important that the DWP also
carries out regular research and monitoring of their services.
2. AGE CONCERN'S
WORK WITH
BME OLDER PEOPLE
2.1 Across the country Age Concern is striving
to make its information and advice services more accessible to
all older people including black and minority ethnic (BME) elders.
Nationally Age Concern is piloting the use of web-based benefit
information in different languages. We are also engaging directly
with BME voluntary and community organisations through the national
Black and Minority Ethnic Elders Forum[36],
to ensure that their perspectives and direct experience of working
with minority ethnic elders are fed into national initiatives
that Age Concern England is involved in—eg the Healthcare
Commission Review of the National Service Framework, and the joint
Age Concern/Mental Health Foundation Inquiry into Mental Health
& Well-Being in Later Life.
2.2 At regional level, a pilot programme
in the East Midlands brings Age Concern organisations together
in partnership with VOICE-East Midlands, the regional BME voluntary
sector network, to promote the interests of BME elders with regional
agencies. At a local level some Age Concerns run services (eg.
Information and Advice, lunch clubs and day centres) tailored
to the needs of certain ethnic minorities, often working in partnership
with local BME community groups. Many others are looking at ways
to ensure that their services, including information and advice
about benefits, are available and used by all groups. To assist
with this Age Concern has just published a guide aimed at local
Age Concerns Everybody Benefits—A practical guide to
improving take-up of welfare benefits among disadvantaged older
people.
2.3 Age Concern welcomes the opportunity
to comment to the Work and Pensions Committee. For this response
information and advice staff in around 12 local Age Concerns in
areas where there are relatively high numbers of older people
from BME groups were asked about the experiences of the older
people who they are in contact with. Feedback was also sought
at a meeting of Information and Advice staff working in London
Age Concerns. The comments are mainly written in terms of the
service provided by The Pension Service although many will also
apply to other parts of the Department for Work and Pensions (DWP)
that older people are in contact with.
3. BME OLDER
PEOPLE AND
ENTITLEMENTS—BACKGROUND
INFORMATION
3.1 The BME population is younger than the
general population and just over 7% of people from minority ethnic
groups are aged 65 or over. However this proportion is set to
grow as the different ethnic groups age. BME older people are
at particular risk of low income. Around a fifth (21%) of all
pensioners are living in poverty but for ethnic minority households
the percentage is nearly a third (32%).[37]
BME elders may therefore be more likely to be entitled to claim
additional help from benefits such as Pension Credit. However
as DWP research[38]
has shown, as well as the barriers to claiming that many older
people face, BME older people also face additional ones such as
language barriers, concerns about the impact of residency, and
difficulties from not having a national insurance number. In addition
the research points out that some barriers identified among the
pensioner population in general may be more prominent among BME
older people such as literacy difficulties, lack of understanding
about benefits and apprehension about contact with statutory services.
It is therefore very important that DWP staff are aware of problems
that BME claimants can face and make sure that they are providing
an understanding and appropriate service.
4. THE LOCAL
PENSION SERVICE
4.1 Age Concern welcomes the proactive efforts
that The Pension Service is making nationally and locally to reach
all older people and the recognition that attention must be paid
to the needs of people from BME groups. The Pension Service Local
Service and Age Concern continue to develop good working relationships
with many local Age Concerns hosting regular Pension Service surgeries
in their premises. In general feedback about the Local Service
from Age Concerns is good and some Age Concerns spoke positively
about the willingness of Local Service to hold advice and information
surgeries with local community groups, specifically aimed at reaching
BME elders and this is appreciated by ethnic elders who prefer
face-to-face contact. Regular surgeries, both appointment based
and drop-in, at locations that BME elders attend are particularly
successful in building the relationship that is needed for older
people to feel comfortable about asking for advice and information
about benefit entitlements.
4.2 However, the cost of hiring accommodation
for these surgeries often falls to the local Age Concern or community
group and it is widely felt that The Pension Service should contribute
to this expense. In addition where the local Pension Service staff
do not speak the language of the audience there is often a reliance
on community leaders to act as interpreters. This is sometimes
not as successful as expected and some local Age Concerns felt
that The Pension Service should ensure that language barriers
are overcome by employing more bi-lingual staff or hiring interpreters.
4.3 Whilst BME elders appreciate receiving
information about benefit entitlement at local events they may
not act on this information, especially if there isn't the opportunity
to make an appointment or arrange a home visit for a later date.
BME elders, as with older people in general, dislike having to
ask questions about their entitlement in public and would prefer
the opportunity discuss their entitlements in private.
4.4 The Local Service is still relatively
new and for many staff the aim of ensuring that the service reaches
all older people including BME groups requires a new way of working.
It is important that the Local Service works with local organisations
who already have experience in this area so partnership working
is welcome. It is also important that across the country Pension
Service staff monitor the impact of their work and there is a
system for ensuring that they can learn from each other.
Age Concern welcomes the Local Service initiatives
in some areas targeted at BME groups and the willingness to work
in partnership. However outreach work needs to be properly resourced
so, for example, interpreters are provided where necessary and
voluntary organisations are reimbursed costs where appropriate.
The impacts of local initiatives need to be evaluated and good
practice shared.
5. TELEPHONY
5.1 The Pension Service encourages older
people to contact them by telephone and this creates difficulties
and barriers for BME elders, especially where their first language
is not English. Many BME elders are not confident in using the
telephone, even when they speak English, as they perceive that
they will not be understood by Pension Service staff. For those
unable to attend local service surgeries, perhaps due to problems
with mobility, this is a particular issue. Also once an application
has been made the expectation is that any follow up enquiries
will be made by telephone. This is a particular barrier for BME
elders who don't have the opportunity to contact their local service
for assistance, for example, if local surgeries are ad-hoc or
infrequent. Age Concern has argued that local surgeries although
welcome, should be in addition to a permanent Pension Service
high street presence. We also believe that all Pension Service
publicity and letters should make it clear that a Local Service
and home visits are available and give details about how to access
these.
5.2 When services are run locally the ethnic
make up of staff is likely to reflect that of the communities
they serve. Increased use of telephone centres means staff may
have had little personal contact with the ethnic groups they are
dealing with as well as limited knowledge of local issues and
problems.
While many older people choose to contact The
Pension Service by telephone this is not the best form of contact
for everyone particular those from BME groups whose first language
is not English. The Pension Service needs to ensure that all older
people have access to their services by whichever means is most
appropriate given their circumstances and preferences.
6. PUBLICITY
AND AWARENESS
OF BENEFITS
6.1 Flyers to publicise The Pension Service
Local Service surgeries in community languages have been well
received by BME elders as they act as a signpost to more information
and the availability of staff who they can talk to face-to-face.
There is some awareness among Age Concerns that leaflets in community
languages are available. Where these are made available to BME
elders they appreciated them as an indication that The Pension
Service is visibly demonstrating they have considered the needs
of BME elders. However, whilst Age Concern welcomes the provision
of translated leaflets about benefit entitlements it should not
be assumed, that having received information in their language,
BME elders will feel able to make an application for benefit.
For some they may be a useful stating point but people may still
need further information and support through face-to-face services.
In addition, BME elders whose first language is not English may
not necessarily be fully literate in their own language.
6.2 Advertising on community radio stations
and in newspapers aimed at BME communities have also been well
received although few Age Concerns report that the advertising
has led to an increased number of enquiries about Pension Credit.
6.3 Research published by Age Concern looked
at older people's views on Pension Credit.[39]
Of the 2,656 people interviewed 19% said they were in receipt
of, or had applied for, Pension Credit while 11% said they had
not heard of the benefit. For those from BME groups the proportion
who had applied or were in receipt was higher (34%) but so was
the proportion who said that had not heard of the benefit (17%).
Those from BME groups were more likely to have heard about the
benefit from family and friends than others interviewed.
It is important that The Pension Service continues
to look at ways of publicising information about benefits and
providing support in applying and dealing with the system for
all older people. For BME older people friends, family and community
workers may be more trusted sources of support than statutory
agencies.
7. MAKING AN
APPLICATION AND
RECEIVING BENEFITS
7.1 BME elders can face particular barriers
when required to verify their date of birth. Birth certificates
are not always readily available and although there are alternative
methods of verification available to The Pension Service, BME
elders have reported some reluctance by staff to explore alternatives.
7.2 Age Concerns also report that some people
face long delays if they do not have a National Insurance Number
and this issue disproportionately affects people from BME groups.
For example one Age Concern had a client, originally from Somalia,
who had claimed Pension Credit and had been interviewed in relation
to obtaining a National Insurance Number. The Pension Service
said they could not process her claim without a number and this
could take 8-10 weeks. (In fact if the necessary evidence is provided
it may be possible for payment to be made before the number is
actually issued or it may be possible to get an interim payment).
Another Age Concern reported a case of someone else waiting 8
months for a number.
7.3 Some benefits stop during a temporary
stay abroad. There is a particular problem with Pension Credit
which normally stops after just four weeks away and this will
affects some BME elders with family and friends living some distance
away who may wish to be abroad for several weeks. If benefit stops
while someone is abroad they must re-apply on their return and
some BME older people report lengthy delays, for example due to
checks on residence. Age Concern is campaigning for these benefit
rules to be reviewed and for Pension Credit to be paid for at
least the first 13 weeks of a temporary stay abroad.[40]
7.4 One Age Concern adviser working in a
London borough with a diverse population reported her perception
that BME elders applying for Attendance Allowance with a non-English
sounding name seemed to be more likely to be asked to produce
a higher level of evidence to support their application than other
older people. Other advisers she has spoken to in the borough
have also expressed concerns about how disability benefits are
administered for BME groups. Although other Age Concerns did not
specifically raise this as a problem it is an issue that needs
to be looked into further.
7.5 Problems with language again arise when
applications are made. An Age Concern noted that even where the
initial application makes it clear that the applicant does not
speak English correspondence from the Disability Benefits Directorate
is in English and the customer is expected to request a translation,
creating a further barrier for BME elders. Another noted that
staff dealing with people for whom English is not the first language
by telephone or on a face-to-face basis need to be aware that
an interview make take longer. Sometimes clients feel they are
being rushed and that staff are getting impatient as they struggle
to understand what is required of them.
7.6 Finally advisers noted that while there
have been improvements to leaflets and claim forms over recent
years some of the letters people receive are not clear, particularly
those notifying people about their entitlement. They felt that
letters explaining the calculation of Pension Credit or underlying
entitlement to Carer's Allowance were hard enough for English
speakers to understand and well near impossible for anyone with
literacy or language barriers.
Older people from BME groups may face additional
barriers due to the impact of certain benefit rules or the way
that benefit rules are administered. It is important these problems
and their impact are monitored in order to consider whether benefit
rules or administrative procedures need to be changed in order
to ensure that people from BME groups are not being treated unfairly.
8. NEXT STEPS
FOR DWP AND
CONCLUSIONS
8.1 Groups such as some BME older people
are sometimes described as "hard to reach". However
often they are in contact with community groups or other statutory
services such as the health service so it may not be so much that
the individuals are difficult to reach, but that the service is
not accessible enough. Making services accessible for all may
require more individually tailored services including a greater
use of face-to-face contact. In many respects, especially in relation
to the local service, the feedback Age Concern has received has
suggested that the service for older people has started to improve.
However we are concerned that further re-organisation and job
cuts in The Pension Service could affect this. Age Concern and
other organisations will continue to feedback the experiences
of older people who contact us but it is also important that The
DWP carries out regular research directly with their customers
(and potential customers) and monitors the service that is being
provided to BME groups.
8.2 Feedback from Age Concern staff providing
information and advice to older people including those from BME
groups provides a generally positive picture of efforts being
made by Pension Service staff to provide a good service. However
too many older people from BME groups remain in poverty partly
because the barriers they face when dealing with the complex benefit
systems remain insurmountable. There is still much more that can
be done to address some of these barriers and The Pension Service
and other parts of the DWP have a major role to play in helping
to tackle the poverty and disadvantage faced by many older people
from BME groups.
In conclusion Age Concern welcomes the efforts
being made by the Pension Service to provide a better service
however there is still much to be done to address the poverty
and disadvantage faced by many older people from BME groups. Age
Concern and other organisations will feedback the experiences
of those who contact us but it is important that the DWP also
carries out regular research and monitoring of their services.
Age Concern
June 2004
36 The BME Elders Forum was established in 2002 with
support from Age Concern England. Membership is open to national,
regional and local BME voluntary and community organisations and
interested professionals. More information is available in the
BMEE section of our website www.ageconcern.org.uk. Back
37
Households below average income 2002-03, DWP 2004. (Using
the commonly used definition of 60% of median contemporary income
after housing costs.) Back
38
Delivering benefits and services for black and minority ethnic
older people DWP 2003. Back
39
The impact of Pension Credit on those receiving it-report of
a survey among older people Age Concern England, 2004. Back
40
A campaign leaflet Fair Pensions for all-let's make
Pension Credit work abroad is available from Age Concern. Back
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