This article aims to provide an overview of the main mechanisms underlying the non-take-up of public provisions by bringing together insights from existing theoretical models and the large body of empirical evidence within Europe and the U.S. We draw on studies based on the rational choice model as well as on insights from psychology and behavioural economics. Whereas most studies are confined to the client level only to explain non-take-up, an important focus of attention here is the way policy design and administration can affect the uptake of public provisions, as well as the role the broader social context plays in understanding non-take-up. In this article, we bring different strands in the literature together and develop a theoretical framework which lists and links the various mechanisms at play. At the same time, we summarise most important empirical findings on the drivers of non-take-up, and focus on lessons from the literature regarding how policies could be redesigned to reduce non-take-up.

It is a well-known feature of social protection systems that not all persons who are entitled to social benefits also claim these benefits. The costs people face when claiming benefits is considered an important cause of this phenomenon of non-take-up. In this paper, we developed and examined the psychometric properties of a new scale, the Claiming Cost Scale (CCS), which measures three dimensions of costs associated with claiming benefits. A multi-phase instrument development method was performed to develop the instrument. The item pool was generated based on a literature review, and presented to academic experts (n = 9) and experts by experience (n = 5) to assess content and face validity. In a second stage, centrality and dispersion, construct validity, convergent and divergent validity, and internal reliability of the instrument were tested. These analyses were based on two samples (n = 141 and n = 1265) of individuals living in low-income households in Belgium. Nine items were retained, which represent three factors (Information costs, Process costs and Stigma). The confirmatory factor analysis proved adequate model fitness. Both convergent and divergent validity were good, and internal consistency was adequate, with Cronbach’s alpha ranging between .73 and .87. The findings showed that the CCS is a valid and reliable instrument for assessing the costs potential beneficiaries face when claiming benefits. Consisting of only nine items, the scale can be easily implemented in large-scale survey research or used in day-to-day work of service providers who are interested in understanding non-take-up of their service.

Non-take-up of means-tested benefits is a widespread phenomenon which undermines the effectiveness and fairness of social policies. The digitalisation of the welfare state creates new opportunities for proactively contacting people who are potentially entitled to benefits, but do not take up their social rights. In this study, we report on how new data flows were used to reach out to potential beneficiaries of the Increased Reimbursement of health care, a programme targeted at low-income households in Belgium. By randomizing the period in which potential beneficiaries were contacted, we were able to identify a three- to four-fold increase in take-up among those contacted as a result of the outreaching activities. Households that did not respond to the intervention, the never takers, have lower pre-intervention healthcare expenditures. This suggests that non-take-up was reduced primarily among those who would expect to benefit most from receiving the Increased Reimbursement. Exploiting the combination of rich administrative data with experimental evidence, we also find that early responders are mostly older and have higher historic health expenditures than late responders. Furthermore, results point to the need for balancing well the inclusiveness of the intervention with an increased number of applications by ineligible people.

In many Western countries local welfare agencies retain large responsibilities in the practical organisation of means-tested support. While this may lead to substantial differences in the application trajectories of prospective claimants, what has garnered little empirical research is how local agencies use their discretion to implement practices that may encourage or discourage take-up. In addition, we know little on the extent to which variation in local implementation is attributable to differences in local conditions. Focusing on Belgium as an interesting case, this article addresses this gap by mapping the variation in local implementation practices in specific aspects of social assistance that are relevant in terms of limiting non-take-up. We assess whether certain local political, socio-demographic or economic characteristics favour implementation practices, using structural equation modelling on custom-collected data on the practical organisation of social assistance application trajectories in 119 Belgian municipalities. The results show that local welfare agencies implement coherent practices regarding information provision, accessibility, trust and the locus of initiative in the claiming process. We find the political orientation of the municipality and the share of foreigners in the municipality to be related with, respectively, shifting the locus of initiative away from the welfare claimant and a focus on information provision.