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On 10 April 2014, the Minister of State for Disabled People appointed Paul Gray to lead the first independent review of the Personal Independence Payment (PIP) assessment. The report was published today.
Disability Rights UK is deeply unsurprised that the independent review of PIP has found the process ‘disjointed’. We believe that this is putting it mildly given that today’s published PIP statistics show a backlog of 240,800 claims (40%) awaiting clearance.
Whilst we welcome some of the recommendations of the review and call on government to implement them in full, there is little in the review which inspires confidence in the PIP backlog being cleared.
We hear from people daily who are struggling with the PIP claim process; who experience massive hardship because of delays of months in getting their assessment completed. Disability Rights UK would like to see a halt to the further roll out of PIP, in October 2015, until the existing backlog has been fully cleared.
Background to the review
In his review, Paul Gray explored how PIP is operating and the effectiveness of the assessment. He set out a series of recommendations based on information gathered throughout the review. The recommendations focus on 3 main areas:
- improving the claimant experience
- clarifying and improving the collection of further evidence
- the overall effectiveness of the assessment
Overall the report describes the PIP ‘claiming experience’ as problematic.
“The current Personal Independence Payment (PIP) process gives a disjointed experience for claimants. Some short term improvements are needed, for example to communications including decision letters. In the longer term, there should be a more integrated, digitally enabled claims process under common branding that would improve claimant experience and effectiveness.”
The report finds it is too early to draw definitive conclusions about the overall effectiveness of the PIP assessment based on available published data. It recommends that a rigorous evaluation strategy that will enable regular assessments of the fairness and consistency of award outcomes be put in place, with priority given to the effectiveness of the assessment for people with a mental health condition or learning disability.
The responses to the call for evidence showed the most concern over the delays and backlogs for claiming and receiving PIP as well as the complexity of the PIP2 claim form.
The report makes a number of recommendations to be carried out in the short medium and log term including:
In the short term
- clearer communications to claimants about the assessment process
- redesigning structure and content of decision letters
- ensuring assessment provider rooms allow claimant and assessor to at a 90 degree angle
- monitoring the application of Activity 11 – ‘Planning and Following Journeys
- reviewing how aids and appliances are taken into account
- ensuring consistent application of the rules on reliability and fluctuating conditions
In the medium term
- suggested improvements the collection of further evidence, including consistency regarding the evidence required, sharing work capability assessment evidence, Departmental information and assessments from the wider public sector (such as social care reports).
- put in place a ‘rigorous’ evaluation strategy that will enable regular assessments of the fairness and consistency of award outcomes be put in place, with priority given to the effectiveness of the assessment for people with a mental health condition or learning disability.
In the long term
- Review the PIP claims process, adopting a design that maximises the opportunities presented by greater use of digital and other technologies which would:
- allow claimants to track the status of their claim
- move away from a one size fits all model to one tailored to the needs of claimants
See full report at link below.
Minister’s decision to close Independent Living Fund followed a lawful process, court rules
Two severely disabled men who use the Independent Living Fund (ILF) today lost their bid to overturn the Government’s decision to close the ILF in June 2015, as the High Court ruled that former Minister for Disabled People Mike Penning had not breached equality laws in making the closure decision earlier this year. The two men had been granted permission for a judicial review of the process leading to Penning’s closure decision, taken just weeks after the Court of Appeal quashed a previous, almost identical decision as being unlawful.
ILF provides vital support and funding to some 17,000 disabled people in the UK to enable them to live independent and fulfilling lives. To be eligible people must already receive a substantial care package from local authority social services, but ILF funding provides a top-up for those with the highest support needs. The ILF system was set up in 1988 to tackle the barriers to independent living and working faced by the most severely disabled people, which were not adequately addressed by council provision with its focus on meeting basic needs. The claimants, represented by Scott-Moncrieff & Associates and Deighton Pierce Glynn, believe that these problems with council provision remain and are getting worse under Government cuts. They fear that loss of ILF support will threaten their right to live with dignity, and they may be forced into residential care or lose their ability to participate in work and everyday activities on an equal footing with other people.
As in the earlier, successful challenge, the claimants argued that the Minister had not been given adequate information to be able to properly assess the practical effect of closure on the particular needs of ILF users and their ability to live independently, or to consider alternatives. The Court of Appeal ruled that this information about impact was essential for the Minister to comply with the Equality Act, which requires the Government to act to positively advance equality of opportunity for disabled people, including meeting needs, removing disadvantages and increasing their participation in public life.
However, handing down judgment today Mrs Justice Andrews ruled that a crucial difference between the two decision-making processes was that in the first, the Minister (then Esther McVey) was given an over-optimistic ‘Panglossian’ summary of information about how ILF users would be likely to be affected, whereas in the second the Minister was made fully aware of ‘the inevitable and considerable adverse effect’ that closure would have on disabled people. She concluded that the assumption on which Mr Penning based his decision was that ‘independent living might well be put seriously in peril for … most (or a substantial number of) ILF users’. In the judge’s view that meant that the Minister had clear, unambiguous information on which to weigh up the implications for disability equality, regardless of the exact number of people who would be likely to have to go into residential care or lose their ability to work or study.
The judge emphasised that her decision was not about the rights or wrongs of closure, just whether the Minister knew enough about the likely impact to meet the requirements of a lawful decision-making process. The decision itself was up to him. The judge also declined to rule on whether the closure decision may put the UK in breach of its international legal obligations to advance disabled people’s rights to independent living and equality of opportunity under the United Nations Convention on the Rights of Persons with Disabilities.
However there is a really significant point arising out of the decision. Essentially the legal challenge was to the process of decision-making and specifically the question of what information the Minister had available to him about the likely impact on disabled people so as to be able to properly exercise the public sector equality duty. What the judgment highlights is that, in the judge’s view, the Minister clearly believed that the impact of closure on disabled people and their ability to live independently will be really severe, and many or most ILF users will be at risk of losing their ability to work, study or live independently in the community as a result.
For the purpose of the legal challenge, that meant that (in the judge’s view) the Minister had sufficient information to make a lawful decision – and that was end of story as far as the court’s role went. But in wider terms it really begs the question of why, in that case, the Minister decided what he did:
- How can it have been justified if he thought the impact would be so severe?
- What is the benefit of getting rid of this tried and tested system of protection for those people who are most at risk of losing their independence? There has never been any suggestion that it will save money overall – indeed there is evidence that it may cost far more than it saves because of (a) the false economies of people losing good support then getting into crisis and being institutionalised, (b) the ILF system being such good value for money (extremely low running costs as it uses trustees) and (c) the double benefit of the ILF system which not only provides a funding top-up but (crucially) puts leverage on local authorities to put their contribution towards proper independent support packages instead of institutional care.
- How can this decision to cause such a negative impact on such a large number of the most severely disabled people in the country be squared with the need for the Government to actively advance equality of opportunity for disabled people, including meeting needs better and increasing participation in public life rather than the other way round?
- Similarly how can it be squared with international obligations the UK has signed up to such as the UN Convention on the Rights of Persons with Disabilities (UNCRPD), which stipulates that contracting states must move forwards not back in realising rights such as that under Article 19 – the right to live independently in the community with choices equal to others.
The Equality and Human Rights Commission is working with health and social care providers and commissioners across England, to develop and test education and training resources on human rights.
DENW is one of the national partners in this work.
The aim is to support better understanding of human rights law for health and social care professionals and explain how it can be used to ensure that patients and care recipients receive a service based on fairness, dignity and respect.
Although guidance on human rights for health and care professionals exists, it can be difficult for staff to find, and there is a need for more practical detail on the requirements of particular groups of people and certain health and care settings.
To help fill these gaps, the Commission is developing a range of online educational and training resources targeted at particular health and social care settings. These include: nursing, midwifery, end of life care, health practitioners, older people’s care homes, mental health, learning disability, clinical psychology training and performance review and recruitment.
The work is being delivered for the Commission by suppliers who will work closely with professionals and service users as they develop and test various approaches. the final products will be made freely available on the Commission’s website in spring 2015.
Human rights provide essential protections for all of us, and bodies commissioning and providing publicly funded health and social care services are legally bound to comply with the Human Rights Act.
A lot of care is excellent, but in a high-pressure working environment, a lack of regard for the human rights of patients and care recipients can sometimes result in serious and well-publicised problems. For example, the Commission’s Home Care Inquiry revealed that, although many home care users were satisfied with their care, some were subjected to physical and financial abuse, a disregarding of privacy and dignity, lack of support with eating and being treated as if they were invisible.
Mark Hammond, CEO of the Equality and Human Rights Commission, said:
“Human rights are for everyone, and provide an important safety net for people in the most vulnerable situations.
“By providing clear and practical resources to help health and care professionals fulfil their human rights responsibilities with confidence, this project will help them deliver the high quality care we all want to see and ensure patients and service users are treated safely and with dignity and respect.”
- More information on this project can be found at http://www.equalityhumanrights.com/private-and-public-sector-guidance/public-sector-providers/human-rights-health-and-social-care
- The four suppliers the Commission is working with are: The British Institute of Human Rights (BIHR), BRAP, Disability Equality North West (DENW) and Mersey Care.
- In July, the EHRC took an initial step to make human rights educational resources more accessible - http://www.equalityhumanrights.com/private-and-public-sector-guidance/public-sector-providers/health-and-social-care/signposts-health-and-social-care-human-rights-resources)
- In a health or social care context, some of the key human rights which might be at stake include Article 2 of the ECHR (right to life), Article 3 (freedom from torture and inhuman and degrading treatment), Article 5 (right to liberty and security), and Article 8 (right to respect for private and family life).
We will be holding our AGM on 19th November 2014. Details can be found in the attachment below.
DWP appoints Paul Gray to carry out independent review of personal independence payment.
The DWP has appointed Paul Gray CB, chair of the Social Security Advisory Committee (SSAC), to carry out the first independent review of PIP during its first two years of operations.
In a written statement, Minister for Disabled People Mike Penning said -
‘The review will provide valuable independent insight into the how the assessment process is operating in its early stages.’
Here in Preston, DENW together with Preston Learning Disability Forum and the Independent Community Advocacy Network have submitted a joint response drawn from our experience of PIP over the last 18 months.
You can download a copy from the link below.
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