Key messages

• local authority spending on adult social care fell in real terms during a period of rising demand for services
• access to publicly funded social care has narrowed as councils have tightened eligibility and reduced service provision
• financial pressures have created instability in the social care provider market, increasing the risk of provider failure
• workforce challenges, including recruitment and retention difficulties, are linked to low pay and funding constraints
• reduced access to social care contributes to increased pressure on NHS services, including hospital admissions and delayed discharges
• many older people experience unmet needs and rely more heavily on unpaid carers.

Policy implications

• sustainable funding arrangements are needed to stabilise local authority social care budgets
• policies should address workforce pay and retention to support service continuity
• monitoring and support mechanisms may help reduce the risk of provider failure
• improved coordination between health and social care systems could mitigate pressures caused by reduced social care provision.

Gaps

• the report focuses primarily on financial pressures and service access rather than long-term system reform
• limited analysis of how funding reductions affect different population groups beyond older people
• further research is needed on the long-term sustainability of the social care provider market.

Commentary
This report examines how sustained reductions in local authority funding have reshaped the availability of social care for older people in England. It documents a widening gap between rising demand for care and the resources available to meet it, resulting in tighter eligibility thresholds and reduced service provision.

The analysis also highlights the interconnected nature of the health and care system. As access to social care becomes more limited, pressures shift to other services, particularly hospitals and community health teams. These dynamics demonstrate how financial decisions in one part of the system can generate costs and challenges elsewhere.

Financial pressures also affect workforce stability and the viability of care providers. Low pay and constrained funding limit providers’ ability to recruit and retain staff, while thin financial margins increase the risk of service closures or provider failure.

In terms of care equity, the report highlights how funding reductions can produce uneven access to support across different areas. Local authorities with greater financial constraints may restrict services more sharply, meaning older people in some communities face greater barriers to care than others. These patterns risk widening inequalities in who receives support, the quality of services available and the degree to which individuals must rely on informal care networks.

Overall, the report shows that financial sustainability is closely tied to fairness in access to care. Without stable funding for local authority social care, pressures on families, providers and the wider health system are likely to increase, reinforcing existing inequalities in support for older people.

Key statistics

• new requests for social care support increased from 2.0 million in 2022/23 to 2.1 million in 2023/24
• requests from working-age adults rose by 8%, increasing from 612,000 to 658,000
• requests from older people increased by 3%, rising from 1.39 million to 1.43 million.

Key messages

• demand for adult social care continues to increase across England
• requests for support have risen for both working-age adults and older people
• financial means-test thresholds have not been updated in line with inflation
• static eligibility thresholds may restrict access to publicly funded care
• rising demand combined with unchanged financial criteria may increase out-of-pocket costs for individuals.

Policy implications

• regular review of means-test thresholds may be needed to reflect inflation and changes in living costs
• funding models may need adjustment to accommodate increasing demand for support
• policymakers may need to consider how financial eligibility criteria influence access to services
• monitoring trends in requests for care can help inform resource allocation and planning.

Gaps

• limited analysis of how financial thresholds affect different population groups
• further research is needed to understand the relationship between eligibility rules, unmet need and access to services.

Commentary
The Social Care 360 analysis provides insight into trends in requests for adult social care support across England. The data show a continued rise in demand, with both working-age adults and older people seeking support in greater numbers.

While requests for support have increased, the report notes that the financial eligibility thresholds used in the means-testing system have not been updated to reflect inflation. As living costs rise, this can affect the number of people who qualify for publicly funded care.

The findings suggest that individuals whose financial circumstances fall just above the eligibility threshold may face increasing costs if they require care. For some households, this may lead to greater reliance on privately funded care or unpaid support from family members.

From a care equity perspective, the interaction between rising demand and static means-test thresholds may widen differences in access to care. Individuals with modest assets may not qualify for state support yet may struggle to afford private care, potentially leading to unmet needs. Adjusting financial eligibility rules to reflect economic conditions could help reduce these inequities and improve access to support based on need.

Overall, the report highlights the importance of aligning financial eligibility criteria with broader economic trends. Without periodic review, means-testing arrangements may become increasingly misaligned with the financial realities faced by people seeking social care.