Personal independence payment and other disability benefits and linked schemes

Approximate read time: 30 minutes

The House of Lords is scheduled to debate the following motion on 29 October 2026:

Baroness Jenkin of Kennington (Conservative) to move that this House takes note of the implementation and impact of Personal Independence Payment and other disability benefits and linked schemes.

1. Key points

• Disability support in England and Wales is delivered through a range of benefits and schemes, including the personal independence payment (PIP) and the disability-related elements of universal credit (UC), as well as other forms of assistance such as the Blue Badge and Motability schemes.
• The number of people receiving disability-related support and overall expenditure on these benefits has increased since their introduction.
• Concerns have been raised about the operation of the current system, including assessment processes for PIP and work-related benefits, with parliamentary committees and external organisations highlighting issues such as complexity, administrative errors, low claimant confidence and barriers to employment.
• The Starmer government published several proposals for reform of disability benefits in its ‘Pathways to work’ green paper in March 2025. The implementation of these proposals is currently on hold until the publication of the Timms review of PIP and the Milburn review of youth economic inactivity. The interim report of the Milburn review, published in May 2026, argued that flaws in the disability benefits system are a contributing factor preventing some young people from entering the jobs market. The final reports for both of these reviews are expected to be published before the end of 2026.

This briefing examines disability benefits in England and Wales. It provides an overview of the various forms of support available and then focuses on two specific types of benefit: PIP and those elements of UC intended to provide support for people with disabilities and their carers, such as the limited capability for work-related activity (LCWRA) element (also referred to as the ‘health element’). Disability benefits are devolved in Scotland.^[1] They are also devolved in Northern Ireland although Northern Ireland maintains ‘parity’ with the social security systems in Great Britain.^[2]

2. Disability benefits and associated schemes

In England and Wales, there a several different types of financial support that someone with a disability or their carers might receive from the Department for Work and Pensions (DWP). Individuals and families may also receive support from their local authority or other public bodies.

2.1 Personal independence payment

PIP is paid to working age people and pensioners to help with the extra costs of living arising from ill health and disability.^[3] It is intended to help people who have long-term physical or mental health conditions or disabilities and experience difficulty doing certain everyday tasks or getting around because of their condition. It is not means tested and those eligible include people who are working, have savings or are getting most other benefits.

In order to receive PIP, applicants are subject to an assessment. The assessment is based on someone’s ability to undertake certain tasks rather than any specific condition they may have. While the DWP is responsible for the decision on PIP entitlement, the assessment process is undertaken by private assessment providers.^[4]

There are two components to PIP, both of which have a standard rate and an enhanced rate. These are:^[5]

• The daily living allowance, intended to help someone with everyday tasks. The weekly standard rate is currently £76.70 and the enhanced rate is £114.60.
• The mobility part, intended to help someone with getting around. The standard rate is currently £30.30 and the enhanced rate is £80.

An individual may be eligible for either or both of these two components depending on their assessed needs.

PIP was introduced by the coalition government as a replacement to the disability living allowance (DLA) and was established by the Welfare Reform Act 2012. The coalition government said one of the features of PIP would be a new “objective medical assessment” which would improve the process by which claimants were assessed along with revised eligibility criteria.^[6] PIP was opened for new claimants in April 2013. It was rolled out to some existing DLA claimants subject to reassessment from October 2013. This was then extended to all DLA claimants from October 2015. Most eligible adults now receive PIP rather than DLA. Further information concerning the process under which PIP was rolled out is provided in the House of Commons Library briefing ‘Personal independence payment and disabled people’ (6 May 2025).

The number of adults receiving DLA has gradually reduced since the introduction of PIP.^[7] DLA is now only available to new applicants under the age of 16 in England or Wales.^[8] There are currently 22 million PIP recipients.^[9] By contrast, there are currently 6.9 million DLA recipients, of which the majority (3.6 million) are children.

Figure 1 shows the growth in the number of PIP claimants and the reduction in the number of DLA claimants since 2013. As discussed further in section 2 of this briefing, the overall caseload for disability benefits has risen since the introduction of PIP.

Figure 1. Caseloads for personal independent payments and disability living allowance

2.2 Other disability benefits

In addition to PIP, there are several other forms of support people with a disability or their carers might be eligible to receive.

Disability living allowance

As discussed in section 2.1 of this briefing, DLA is still available to some claimants. Like PIP, it is intended to provide help for people who need extra care and support in their daily lives.^[10] The DLA is made up of two components: a care component (ranging from £30.30 to £114.60 per week) and a mobility component (ranging from £30.30 to £80 per week).^[11] Recipients may be eligible for one or both components.

Attendance allowance

The attendance allowance is available to people in England and Wales who are over the state pension age and have a physical disability, a mental disability, or a health condition.^[12] Someone who receives the attendance allowance can also receive extra pension credit, housing benefit or a council tax reduction. The attendance allowance has two rates based on the amount of time someone needs regular support: a higher rate of £114.60 and a lower rate of £76.70 per week.^[13] In 2024/25, 1.6 million people were entitled to receive the attendance allowance.^[14]

Universal credit: Additional elements

UC is a means-tested benefit intended to provide someone with help if they are on a low income or otherwise need help with their living costs.^[15] This is provided alongside some other benefits. Therefore, someone receiving PIP or the carer’s allowance may also receive UC, for example. Only people between 18 and the state pension can receive UC.

UC was introduced by the coalition government in 2012 and replaced six legacy benefits for new claimants including employment and support allowance (ESA). ESA was the main disability benefit for those of working age prior to the introduction of UC.^[16]

UC consists of a standard allowance paid each month plus any relevant additional elements intended to cover specific needs.^[17] Several of these additional elements are intended to support people with a disability and their carers. These are:

• The carer amount which is added to UC if someone cares for someone with a severe disability. This is £209.34 a month.^[18]
• The ‘disabled child addition’ to the child amount. The child amount is added to UC for each child or qualifying young person in a household. An additional amount is provided for each child or young person who has a disability. There are two amounts available: the lower amount (£164.79 per month) and the higher amount (£514.71 per month). Children who receive the highest rate of the care component of DLA, the higher rate of the daily living part of PIP, or who are blind or severely sight impaired can receive the higher amount.
• The LCWRA is included if someone cannot work because of a health condition or disability. The assessment process to establish if someone can receive the LCWRA element of UC—the work capability assessment (WCA)—is currently separate to the assessment process for PIP. There are two LCWRA rates. Which of these two is provided is based on the severity of someone’s health condition or disability. The higher rate is £429.80 per month and the lower rate is £217.26 per month. As discussed in section 5 of this briefing, this new lower rate was introduced in April 2026 by the Starmer government.

Employment and support allowance

Like UC, the employment and support allowance (ESA) is a means-tested benefit. There are two types of ESA: contributory ESA (which has been renamed ‘new style ESA’); and income-related ESA (IR-ESA). IR-ESA is one of the legacy benefits that UC is replacing. Contributory ESA remains a separate benefit and may be claimed on its own, or alongside UC. In March 2026, there were 810,000 ESA claimants.^[19]

Someone can receive ESA if they have a disability or health condition that affects how much they can work.^[20] It is only available to people under the state pension age and who have been in employment. Claimants must also have paid enough national insurance contributions, usually in the last two to three years, in order to qualify. The amount of support someone receives depends on factors including their age and whether they are able to return to work.^[21]

Like UC, eligibility for ESA is determined using the WCA. Based on this assessment, someone can receive either a lower rate of up to £95.55 a week (the ‘work-related activity component’) or a higher rate of up to £145.90 a week (‘the support component’).^[22]

Carer’s allowance

As well as the carer element of UC, those who care for someone at least 35 hours a week may be eligible to receive the carer’s allowance.^[23] This allowance is for up to £86.45 a week and is intended to provide income support for people who are unable to work because of their caring responsibilities.^[24] The eligibility criteria for this allowance includes that the carer must be over the age of 16 and the person cared for must receive certain disability benefits, including the daily living component of PIP, the middle or highest care rate of the DLA or the attendance allowance.^[25]

Armed forces independence payment

The armed forces independence payment (AFIP) is a non-means-tested benefit, providing financial support for service personnel and veterans who have been seriously injured as a result of their service on or after 6 April 2005.^[26] The current rate is £194.60 per week.^[27] Whether someone can receive AFIP depends on the type of payment they receive as part of the armed forces compensation scheme. AFIP is available to those receiving A to C guaranteed income payments. This means someone has been judged to be unable to undertake work (grade A), and is entitled to compensation equivalent to 100% of their future earnings, or is entitled to compensation equivalent to either 75% or 50% of their future earnings (grades B and C respectively).^[28]

Industrial injuries disablement benefit and constant attendance allowance

Someone may be entitled to industrial injuries disablement benefit if they have been disabled because of an accident at work, or a disease or deafness caused by work.^[29] The weekly amount someone receives ranges from £46.78 to £233.90 based on the level of their disability.^[30] Someone receiving this benefit who needs daily care and attention because of their disability may also receive the constant attendance allowance.^[31] There are four different rates, depending on the extent of that person’s disability and the amount of care they need. These range from £46.80 (the part day rate) to £187.20 (the exceptional rate)^[32]

2.3 Other forms of support

In addition to the benefits listed in sections 2.1 and 2.2 of this briefing, someone may also be eligible for other forms of support, including:

• VAT relief on products designed or adapted for their own personal or domestic use^[33]
• access to the Blue Badge parking scheme^[34]
• entitlement to exempt one vehicle from vehicle tax^[35]
• help leasing a car, powered wheelchair or scooter as part of the Motability scheme^[36]
• a reduction in their council tax bill.^[37]
• a 50% discount on their television licence if they or someone they live with are registered blind or severely sight impaired^[38]
• support targeted toward young people with special educational needs and disabilities (SEND), including additional help in school and other support from the local authority^[39]

Further information on the various kinds of support someone might receive are provided in the following guidance:

• Department for Work and Pensions, ‘Financial help if you’re disabled’, accessed 19 October 2026.

3. Disability benefits: Caseload and expenditure

The coalition government said that PIP would result in a reduction in both the total disability benefits caseload and total welfare expenditure when it was fully rolled out.^[40] However, since 2012, both have risen.

3.1 Caseload

The DWP publish figures for the disability benefits caseload broken down in two groups:

• ‘disability benefits’ which includes PIP, attendance allowance and DLA
• ‘incapacity benefits’ which includes ESA, incapacity benefit, the UC standard allowance and health element, and the severe disablement allowance (a legacy benefit no longer open to new claimants)

The people in these two groups overlap. Individuals may receive more than one type of benefit from these two classifications. As illustrated in figure 2, both caseloads have risen.

Figure 2. Disability benefits and incapacity benefits caseload

3.2 Expenditure

DWP also publish total figures for expenditure on both categories of benefit (‘disability benefits’ and ‘incapacity benefits’) as well as expenditure on benefits for carers. Benefits for carers include the carers element of UC. The increase in total expenditure over time is shown in figure 3. To note: these figures include an estimate of UC total payments received by people with a disability and their carers, as well as the health element of UC.

Figure 3. Expenditure on disability benefits, incapacity benefits and benefits for carers

Over the period during which PIP gradually replaced DLA, the caseload for both PIP and DLA combined has risen. The overall expenditure has also risen during this period. Figure 4 shows total expenditure on PIP, DLA and the attendance allowance since 2012/13.

Figure 4. Benefit expenditure on attendance allowance, disability living allowance and personal independence payment

Further statistics on welfare spending more generally are provided in the House of Lords Library briefing ‘Welfare reforms and youth unemployment’ (5 June 2026).

4. Implementation of personal independence payment and universal credit

PIP has been criticised both in terms of its original design and how the rollout has been implemented. For example, in 2019, the Office for Budget Responsibility (OBR) argued that issues with the DWP’s initial testing of the PIP assessment had been flawed. The OBR said this had been one of the contributing factors why caseloads had not reduced as planned.^[41] In 2018, the House of Commons Work and Pensions Committee also identified several problems with PIP, including problems with PIP assessment process.^[42] It concluded these issues had resulted in a loss in trust on the part of claimants. In a subsequent report published in 2023, the committee found that, despite some improvements, there remained several problems with the assessment process including frequent factual errors in reporting and poor communication between DWP and applicants.^[43] Further information on the implementation of PIP, including the findings of these reports, is provided in the House of Commons Library briefing ‘Personal independence payment and disabled people’ (6 May 2025).

The Work and Pensions Committee has also criticised the roll out of UC and the WCA assessment process. In a 2024 report, the committee found that trust in the WCA was low and that both the WCA and the PIP assessment was causing some people to experience psychological distress.^[44] In April 2024, the House of Commons Public Accounts Committee also published a report on the progress made in implementing UC.^[45] This found that UC had had a positive impact on employment in the short term but identified several general problems which had yet to be addressed, including what it described as increasing levels of fraud and error. Further information on the implementation of UC, including changes to the way support is provided through UC for people with a disability or who care for someone with a disability, is provided in the House of Commons Library briefing ‘Managed migration: Completing universal credit rollout’ (19 December 2024).

Several recently published reports have argued the current disability benefits system, including PIP and the relevant elements of UC, is flawed. One of the issues identified is the gap between the amount of support someone might receive through disability benefits and the amount they might receive through other forms of welfare, such as unemployment benefits, or through work. For example, in November 2024, the Joseph Rowntree Foundation (JRF) reported that fear of losing benefits constituted a significant barrier to people finding work.^[46] It said claimants they had spoken to worried they might not be able to receive the same level of support if they were unable to maintain a job and had to return to benefits. Those surveyed by the JRF were also concerned their wages might not be enough to offset the withdrawal of benefits if they entered employment. In February 2025, thinktank the Learning and Work Institute similarly argued PIP recipients were unlikely to try and enter work because of the gap between disability benefits and unemployment benefits.^[47] In July 2026, the charity Trussell (formerly the Trussell Trust) published a report arguing that, in practice, PIP had become a means of preventing poverty for people with a disability, something the report argued PIP was poorly designed to do.^[48]

Another issue is the adequacy of the support people on disability benefits receive to help them find work, if they are able to do so. The Learning and Work Institute argued that people receiving disability benefits in general did not receive adequate support in finding employment.^[49] In 2026, the House of Commons Work and Pensions Committee, similarly argued that people with a disability in work also needed better support.^[50] It noted there was a reluctance by some employers to make reasonable adjustments in the workplace and improve accessibility. The committee recommended the government should address these problems if it wanted to reduce disability-related economic inactivity.

A further issue is the complexity of the existing system. Trussell has characterised the disability benefits system as “overly complex and difficult to navigate” and has argued that, as a result, it is failing to adequately support claimants.^[51]

In 2026, the Times published a series of articles on the benefits system entitled the ‘Times welfare inquiry’.^[52] These made several criticisms of the current system including the overall cost, the inadequacy of the process by which re-assessments are conducted and support provided for people with problems with addiction. Pressure group the Taxpayers Alliance has also criticised the overall cost of the benefits system.^[53]

5. Recent changes and proposals for further reform

5.1 Labour Party manifesto 2024

In its 2024 general election manifesto, Labour committed to reviewing UC and reforming the system of employment support.^[54] On the WCA, the manifesto said the current system was not working and needs to be “reformed or replaced”, alongside a “proper plan to support disabled people to work”.^[55] The manifesto also included a commitment to give disabled people “the confidence to start working without the fear of an immediate benefit reassessment if it does not work out”.^[56] Following the change of prime minister in July 2026, Andy Burnham said his government would work within the framework of the 2024 manifesto.^[57]

5.2 Green paper and resulting policy developments

In March 2025, the Starmer government published the ‘Pathways to work’ green paper.^[58] This included the proposed introduction of a lower UC health element rate for new claimants of £217.26 per month.^[59] This new rate was implemented from 6 April 2026 and it is frozen from 2027/28 to 2029/30. The government said this new rate was intended to remove “perverse incentives that discourage work and trap people on long-term benefits”.^[60] At the same time, it increased the UC standard allowance rates above the rate of consumer price index inflation for each year between 2026/27 and 2029/30.^[61]

This new lower rate for the health element of UC was implemented under the Universal Credit Act 2025. This legislation was introduced in the House of Commons as the Universal Credit and Personal Independence Payment Bill. The Starmer government had originally proposed in the bill that the new lower health element would apply for both new and existing claimants. However, the lower rate was restricted to only new claimants following opposition in the House of Commons, including from backbench Labour MPs.^[62] The bill, as introduced in the House of Commons, also included proposals to change the eligibility criteria for PIP. However, these proposals were also removed from the bill in the House of Commons.^[63] Further information on the changes to the bill made in the House of Commons is provided in the House of Lords Library briefing ‘Universal Credit Bill: HL Bill 123 of 2024–26’ (17 July 2025).

The ‘Pathways to work’ green paper included several other proposals, including the abolition of the WCA by 2028.^[64] The green paper said that eligibility for the health element of UC or ESA would instead be based on whether someone receives the PIP daily living award. As discussed in section 5.3 of this briefing, the government has said it has paused the implementation of these proposals ahead of the publication of the Timms review.

In April 2026, the Starmer government announced the introduction of the ‘Right to try’ policy.^[65] This is intended to ensure that undertaking work or volunteering opportunities will not, on its own, lead to a reassessment of a benefit award. The government intends for this to support people testing their ability to work in a “safe and predictable way”, strengthening the protections for those with disabilities and long-term health conditions.^[66]

5.3 Timms review

In June 2025, the Starmer government launched a review of PIP led by Minister for Social Security and Disability Sir Stephen Timms. In October 2025, it said it would await the findings of the Timms review before making any announcement on whether to propose further changes to how the PIP system operates outlined in the ‘Pathways to work’ green paper.^[67] The terms of reference for this review included a requirement that its final recommendations must sit within the OBR projections for future spending on PIP.^[68]

The interim report of the Timms review was published in July 2026.^[69] The report concluded that while PIP was widely valued by those who received it, the system overall was not “fit for purpose”, stating that many of the disabled people it has spoken to had described the process of applying for PIP being “dehumanising”, “soul destroying”, and “degrading”.^[70] It stated many PIP recipients were critical of the process for making claims. The report also concluded the assessment criteria used for PIP was out of date. The final report of the Timms review is expected to be published in autumn 2026.^[71]

The DWP has published several updates on the progress of the review. The September 2026 update included “emerging recommendations” which it said were based on the evidence so far.^[72] This included reducing unnecessary award reviews for people with lifelong or degenerative conditions. It also outlined changes intended to improve the assessment process, such as increasing the capacity for face-to-face assessments in order to better meet people’s individual needs.

5.4 Milburn review of young economic inactivity

In addition to the Timms review, the Starmer government commissioned an independent review into the drivers of youth economic inactivity chaired by Alan Milburn (former Labour MP and health secretary). An interim report from the review was published on 28 May 2026.^[73] The report identified health as being a central factor in youth disengagement with the world of work, arguing that “changes in health, especially mental health, are impeding economic growth and causing a contraction in the supply of labour”.^[74] The report concluded the disability benefits system was contributing to this problem, arguing:

The benefits system is founded on a deficit model of disability, one that pays for what a young person cannot do rather than investing in what they could become. Analysis for this review has revealed that of the young people who are not in education, employment, or training [NEET] in England, only around one in five are getting meaningful employment support from the welfare system. Less than half of the total £8.1bn currently spent on key benefits for young people aged 16 to 24 years old has any participation support or requirements attached to it. For a young person with a health condition who is unemployed and potentially seeking work, taking a pathway to inactivity can offer higher income, less hassle and lower risk. This is a perverse incentive.^[75]

The government has said the final report of the Milburn review will be provided to the government in the autumn of 2026.^[76] However, press reporting indicates the Milburn review will not be published until after the 2026 budget scheduled for 28 October 2026.^[77]

Press coverage has also suggested that the final report of the Milburn review will include proposals for reform of benefits received by people under the age of 25 who have never worked.^[78] This would involve a different assessment process and include a reduction in the payments these claimants receive, accompanied by increased support to help them find work. Indications given in the media suggest these payments would also replace incapacity benefits received by this age group through the health element of UC.

Following the change of prime minister, the Burnham government has stated its support for the two ongoing reviews, the Timms review and the Milburn review.^[79]

5.5 Independent review into mental health conditions, ADHD and autism

In December 2025, the Starmer government commissioned an independent review into the prevalence of and support for mental health conditions, attention deficit hyperactivity disorder (ADHD) and autism.^[80] The review was chaired by Professor Peter Fonagy, the head of the division of psychology and language sciences at University College London.^[81] The final report of the review was published on 9 October 2026.^[82] It noted the rise in the prevalence of these conditions and argued investment in mental health and neurodevelopmental support had not kept pace with people’s needs.^[83] It also said support across the health, care, education, employment and welfare systems remained “fragmented” and that this was both “inefficient” and “distressing” for people with these conditions.^[84]

The report made several recommendations, including that the government needed to improve prevention by tackling the drivers of mental distress and ill health. It argued this needed to be underpinned by stronger governance and accountability for public mental health, as well as long-term investment in youth, community and voluntary organisations.^[85] It also recommended the government needed to develop a “meaningful partnership” with people who had experience of these conditions. The government has welcomed the report and committed to undertake a “major overhaul” of mental health support.^[86] It has said it will outline how this will be achieved in a future mental health strategy.^[87]

5.6 Proposals from other parties on disability benefits

The Conservative Party has said it would seek to reduce welfare spending by £36bn a year.^[88] One of the ways in which the Conservative Party has said it will achieve this saving is by reassessing PIP eligibility for people with anxiety, depression and ADHD within two years of taking office.^[89] Thinktank the Resolution Foundation has criticised these proposals, arguing the assessment process should remain based on someone’s ability to undertake tasks rather than specific conditions.^[90] The Conservative Party has also announced several other proposals including the introduction of a new reduced rate for UC for people who have been unemployed for more than six months, worth 70% of the current full rate.^[91] This money could also only be accessible using a payment card supplied by the government. However, Conservative shadow ministers have said that people who are sick, disabled or already in work would be exempt from this reduced rate.

In his speech to his party’s 2026 conference, Liberal Democrat Leader Ed Davey said social service systems, including the support provided for people with a disability and their carers, should do more to empower people.^[92] His speech did not include any specific commitment on welfare spending. However, the Liberal Democrats opposed the proposals by the Starmer government to change UC and PIP set out in the Universal Credit and Personal Independence Payment Bill (now the Universal Credit Act).^[93] The Liberal Democrats have also opposed the Conservative Party’s plans for reducing welfare spending.^[94]

Reform UK has said it would reduce welfare spending overall by around £50bn a year.^[95] The party said it would achieve this by measures including restricting disability payments to only people who are “severely disabled”.^[96]

Both the Green Party and Plaid Cymru have said they are opposed to cuts to disability benefits.^[97]

6. Read more

• House of Lords Library, ‘Welfare reforms and youth unemployment’, 5 June 2026
• House of Lords Library, ‘Education, employment and welfare: Government policy’, 13 July 2026
• House of Commons Library, ‘Changes to universal credit rates from April 2026’, 21 October 2025
• House of Commons Library, ‘UK disability statistics: Prevalence and life experiences’, 17 November 2025
• House of Commons Library, ‘‘Access to work’ scheme for disabled people’, 26 June 2026

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