Take-up of social security benefits: past, present – and future?

Abstract

This article reviews evidence on and possible causes of non-take-up of social security benefits, focusing on the UK, and analyses the implications of the introduction of Universal Credit for take-up. It discusses why (non-)take-up is an important issue, in relation to those affected, the performance of social policies in relation to their goals and the nature of social citizenship. It explains how take-up is usually measured (or estimated) in the UK, giving some recent results, and describing recent policy decisions to halt the publication of figures on take-up of working-age benefits. It investigates explanations put forward about why entitlements are not claimed, highlighting analysis of obstacles at the individual claimant level; barriers within benefits administration; problems with system design; and wider structural issues in society. It examines the implications of the introduction of Universal Credit both for take-up and for the evidence base about it. The integrated nature of Universal Credit was argued to favour higher take-up; but features of its design and administration may have the opposite effect. Evidence is, however, lacking on the outcome of this combination. The conclusion reflects on the future of initiatives to boost benefit take-up, especially those relying on automation – often interpreted in different ways. It argues in favour of taking more account of the reasons for non-take-up relating to the nature of potential claimants’ relationship with the state, and the characteristics of benefits left unclaimed, rather than assuming that administrative information and automation will overcome all the obstacles currently resulting in non-take-up.