About this document
The aim of this document is to provide key information needed for professionals on the structure and contact points for the main multi-agency frameworks for managing risk posed by and to adult’s resident in Torbay and Devon.
There is some concern nationally that the development of adult safeguarding working arrangements has resulted in too much focus on a specific process (of report of a concern, progression to a Section 42 enquiry, enquiry meeting, enquiries undertaken, protection planning, and review) and not enough on agreeing which actions will achieve the most positive outcomes for adults.
In some cases, other frameworks and actions could be used more quickly and beneficially rather than solely pursuing formal safeguarding procedures. It is important that professionals understand what other frameworks there are available which could support to address and resolve the issue or concern.
This document provides professionals with key information on the structure and contact points for the main multi-agency frameworks for managing risk posed to and by adults’ resident in Torbay and Devon. The intended outcomes are:
- The risk of harm is reduced by timely and appropriate use of the available frameworks for multi-agency risk assessment and management of adults who are at risk, or who pose risks to others.
- Where staff of any agency report an adult safeguarding concern for which another multi-agency framework would be more appropriate, they are given relevant advice as to how to access this.
- All organisations involved in providing services to adults who are at risk or pose a risk of harm have access to up to date advice on the purpose and scope of key multi-agency frameworks, and criteria for referral.
The important thing is for all options to be considered, recorded and co-ordinated and for the best interests of the adult who has experienced, or is at risk of experiencing abuse and neglect, to be the central focus in any process.
The grid overleaf summarises the main multi-agency frameworks for managing risk and provides information on how to access these.
| Framework | Responsible authority | Who is managed through this framework / criterion for referral | Referral route / contact points |
| Safeguarding Enquiries An enquiry is the action taken or instigated by the local authority in response to a concern that abuse, or neglect may be taking place to help and protect the adult. An enquiry could range from a conversation with the adult, or if they lack capacity, or have substantial difficulty in understanding the enquiry their representative or advocate, right through to a much more formal multi-agency plan or course of action. The scope of that enquiry, who leads it and its nature, and how long it takes, will depend on the particular circumstances. The objectives of an enquiry into abuse or neglect are to: establish factsascertain the adult’s views and wishesassess the needs of the adult for protection, support and redress and how they might be metprotect from the abuse and neglect, in accordance with the wishes of the adultmake decision as to what follow-up action should be taken with regard to the person or organisation responsible for the abuse or neglectenable the adult to achieve resolution and recovery | The responsible authority is the local authority Adult Services. However, safeguarding duties have a legal effect in relation to organisations other than the local authority on for example the NHS and Police. | The Care Act 2014 requires that each local authority must make enquires or cause others to do so, if they reasonably suspect an adult: has needs for care and support, whether or not the local authority is meeting any of those needs,is experiencing, or at risk of, abuse or neglect,as a result of those care and support needs is unable to protect themselves from either the risk of, or the experience of abuse or neglect. | Devon Local Authority Boundaries Call Adult Social Care on 0345 1551 007 or email adultsc.safeguardingadultservices-mailbox@devon.gov.uk (Monday-Thursday 9am-5pm and Friday 9am-4:30pm – outside of these hours or on bank holidays call 0345 6000 388 or email the address above). Alternatively, a safeguarding adult concern referral can be made to Devon Safeguarding Adults Services using the referral form found on Torbay and Devon Safeguarding Adults Partnership website: https://www.devonsafeguardingadultspartnership.org.uk/reporting-a-concern/ Torbay Local Authority Boundaries Call Torbay Safeguarding Adults Single Point of Contact 01803 219700 or email tsdft.safeguardingalert@nhs.net (Monday to Friday 9am-5pm. Outside of these hours or on bank holidays call 0300 456 4876) Alternatively, a safeguarding adult concern referral can be made to Torbay Safeguarding using the online form found on Torbay and Devon Safeguarding Adults website: https://www.devonsafeguardingadultspartnership.org.uk/reporting-a-concern/ |
| Multi-Agency Risk Assessment Conference (MARAC) MARAC is a meeting where representatives from the police, health, child protection, housing, probation, Independent Domestic Violence Advisors (IDVAs) and other statutory and voluntary agencies share information about high-risk domestic abuse cases. Devon operates four MARACs (Exeter, East & Mid Devon, Northern Devon, South Devon & South Hams). Torbay has one MARAC. Core aims of a MARAC: Increase the safety, health and wellbeing of the victim through coordinated information sharing and safety planning.Safeguard children and other vulnerable family members affected by the abuse.Manage and reduce perpetrator behaviour and ensure agencies respond to identified risks.Strengthen multi‑agency communication and accountability, recognising that each agency holds part of the picture.Support professionals working with high‑risk cases and ensure alignment with wider safeguarding processes.Produce a clear, practical action plan tailored to the victim’s needs, reducing risk and preventing repeat victimisation. Each agency remains responsible for taking appropriate action. The MARAC provides the forum for sharing information and agreeing joint actions. Victims do not attend; they are represented by an IDVA, who presents their views and risks. IDVAs provide case management and specialist support before, during, and after MARAC. A MARAC Coordinator/Administrator manages the process and supports all agencies involved. | Any frontline professional who completes a risk assessment and identifies a high‑risk case can refer to MARAC. In practice, referrals often come from IDVAs, police, and health professionals. The Devon Domestic Abuse Alliance deliver local domestic abuse services across Devon, excluding Torbay and Plymouth, and aims to transform how people access and receive domestic abuse support. Individuals will be able to enter the service through a single integrated gateway, which will then work with each person in the way that best meets their needs. Further information can be found here. | The MARAC is victim focused and considers adults (aged 16+) identified as being at highest risk of harm. Devon uses the SafeLives DASH (Domestic Abuse, Stalking and Honour based Violence) Risk Checklist to determine risk level. High Risk (14+ ticks – MARAC threshold) Indicates imminent risk of serious harm requiring immediate intervention. Next steps: • Consult your line manager or safeguarding lead. • Notify police and/or Children’s Services urgently if required, with or without consent. • Provide emergency contact details and ask the victim to update you about their safety. Referral: • Make an immediate MARAC referral. • Victim consent is best practice, but not always possible or safe. • Use the correct referral form for your locality (note: South Devon Rural uses a separate form). Professional Judgement If the DASH score does not fully reflect the level of risk, professionals may still refer to MARAC. This rationale must be clearly recorded in the referral. In Devon, professionals are advised to refer to the Devon County Council Information for Professionals webpage for further guidance on the DASH risk assessment and MARAC processes. | If a person scores 14 or above on the DASH risk assessment, complete a MARAC referral form and send to the relevant MARAC as soon as possible: Devon: East and Mid Devon 01392 281531 daueem@devonandcornwall.pnn.police.uk Exeter 01392 281531 marachawkinshouse@devonandcornwall.pnn.police.uk North Devon and Torridge 01271 335380 Devonbcudaonorth@devonandcornwall.pnn.police.uk South Devon Rural (South Hams, Teignbridge, West Devon) 01803 218766 devonbcudaosouth@devonandcornwall.pnn.police.uk Self‑referrals: Within Devon: Referral – Devon Domestic Abuse Alliance Torbay: torbaydau@devonandcornwall.pnn.police.uk For Torbay residents, if the person does not score 14 or above on the DASH risk assessment professional judgement and consent can result in a MARAC referral. If no referral to MARAC is considered, refer to Torbay Domestic Abuse Service (TDAS) via 0800 916 1474 For self-referrals please contact Torbay Domestic Abuse Service (TDAS) via 0800 916 1474. |
| Multi-Agency Public Protection Arrangements (MAPPA) The Criminal Justice Act 2003 (“CJA 2003”) provides for the establishment of Multi-Agency Public Protection Arrangements (MAPPA) in each of the 42 criminal justice areas in England and Wales. These are designed to protect the public, including previous victims of crime, from serious harm by sexual and violent offenders. MAPPA is not a statutory body in itself but is a mechanism through which agencies can better discharge their statutory responsibilities and protect the public in a co-ordinated manner. Agencies at all times retain their full statutory responsibilities and obligations. They need to ensure that these are not compromised by MAPPA. In particular, no agency should feel pressured to agree to a course of action which they consider is in conflict with their statutory obligations and wider responsibility for public protection. The Responsible Authority agencies and the MAPPA Co-ordinator are permanent members of MAPPA meetings. Duty to cooperate agencies are invited to attend for any offender in respect of whom they can provide additional support and management. Invitations to MAPPA meetings are sent in the form of a formal invitation from the MAPPA Administration Team for each area. As a duty-to-co-operate agency, adult social care/safeguarding has a statutory responsibility to attend MAPPA meetings where invited and engage fully in the MAPPA process. The frequency of meetings depends on the level of management deemed appropriate for each offender. Offenders do not attend MAPPA meetings, but they are usually told about the meeting and the decisions made. | The responsible authority is the primary agency for MAPPA. This is the police, prison and probation service working together. The Responsible Authority has a duty to ensure that the risks posed by specified sexual and violent offenders are assessed and managed appropriately (MAPPA Guidance). While the principal responsibility for protecting the public from sexual and violent offenders’ rests with the criminal justice agencies, the effectiveness of public protection often requires more than just a criminal justice response. Other agencies, for example those providing help with employment and training, accommodation, and housing, play an important role in helping offenders to resettle and may help to reduce re-offending. The important contribution other agencies can make is also highlighted in cases where offenders have mental health problems or where they pose a risk of harm to children. | There are four categories of violent and sexual offenders who are managed through MAPPA: Category 1 – Registered sexual offenders are required to notify the police of their name, address and personal details, under the terms of the Sexual Offences Act 2003. The length of time an offender is required to register with Police can be any period between 12 months to life, depending on the age of the offender, the age of the victim and the nature of the offence and sentence they received. Category 2 – Violent offenders who have been sentenced to 12 months or more in custody or to detention in hospital and who are now living in the community subject to probation, mental health or youth justice supervision. Category 3 – Other dangerous offenders who have committed an offence in the past and who are considered to pose a risk of serious harm to the public. Category 4 – Terrorist offenders who are required to comply with the notification requirements set out in Part 4 of the Counter-Terrorism Act 2008; have been convicted of a relevant terrorist offence and receiving a qualifying sentence or have committed an offence and may be at risk of involvement in terrorism-related activity. | For further guidance, please contact your organisation’s MAPPA Single Point of Contact or Safeguarding Adults Lead. |
| Multi-Agency Risk Management (MARM) Framework Learning from statutory Safeguarding Adults Reviews (SARs) showed that some adults face significant risks that do not meet the criteria for existing risk management frameworks. The MARM framework was developed in response, providing a structured, coordinated approach to support timely and effective information sharing for adults displaying high‑risk behaviours or experiencing serious harm. The framework promotes collaborative, preventative, and early‑intervention practice to reduce risk and improve health and wellbeing outcomes. It enables partner agencies to work together where high risk is identified—particularly when the adult is unknown to some services, does not meet eligibility criteria, or when concerns fall outside statutory safeguarding duties. | Any partner agency can initiate a MARM meeting under the framework, however a responsible manager from that agency should be involved in the decision-making process and ensure it is based on the identification of high-risk and require the collaborative approach from partner agencies to share and address the risk jointly. | Adults where high risk has been identified – particularly in situations where the adult may not be known to all agencies, may not meet eligibility criteria for certain services, or where the concerns fall outside the scope of statutory safeguarding duties. | For full information access the MARM framework guidance and principles from the TDSAP website, including the Frequently Asked Questions document and a video Introducing the MARM framework. |
| People in Positions of Trust (PiPoT) There will be occasions where a risk or potential risk may be posed by a person who works with adults with care and support needs, but where there is no specific adult at risk identified. Where such concerns are raised about someone who works with adults with care and support needs, it will be necessary for the employer (or student body or voluntary organisation) to assess any potential risk to adults with care and support needs who use their services, and, if necessary, to take action to safeguard those adults. The South West Region produced an Adult Position of Trust framework and process which has been adopted by TDSAP partners for responding to allegations and concerns against people working with adults with care and support need (those in a position of trust): The information owner makes a disclosure decision based on agreed parameters (a referral to adult safeguarding is made if there is harm or risk of harm to adult (s) at risk) and shares the information with the Person’s employer, student body or volunteering manager. These organisations assess risk and take action as indicated by the risk assessment, this can include a referral to DBS, NMC or other regulatory body. The information owner may make a notification to the commissioner or regulator of service who may then follow up actions taken. All involved must keep detailed records of decision making. Employers, student bodies and voluntary organisations should have clear procedures in place setting out the process, including timescales, for investigation and what support and advice will be available to individuals against whom allegations have been made. If an organisation removes an individual (paid worker or unpaid volunteer) from work with an adult with care and support needs (or would have, had the person not left first) because the person poses a risk of harm to adults, the organisation must make a referral to the Disclosure and Barring Service. It is an offence to fail to make a referral without good reason. Any actions and interventions taken to address concerns or allegations that a person in a position of trust poses a risk of harm to adults with care and support needs must be lawful and proportionate, and accord with any relevant statutory provision, for example, Data Protection Act 1998, UK GDPR, Human Rights Act 1998 and employment legislation. | The information owner, Person’s employer, student body or volunteering manager. | This framework and process applies to concerns and allegations about: a person who works with adults with care and support needs in a position of trust, whether an employee, volunteer or student (paid or unpaid); and,where those concerns or allegations indicate the person in a position of trust poses a risk of harm to adults with care and support needs. These concerns or allegations could include, for example, that the person in a position of trust has: behaved in a way that has harmed or may have harmed an adult or child;possibly committed a criminal offence against, or related to, an adult or child;behaved towards an adult or child in a way that indicates they may pose a risk of harm to adults with care and support needs. This framework applies whether the allegation relates to a current or a historical concern. Where the allegation or concern is historical, it is important to ascertain if the person is currently working with adults with care and support needs or children and if that is the case, to consider whether information should be shared with the current employer. | Where appropriate, notify and refer to external agencies for example; to the CQC (where the PiPoT is working or volunteering in a CQC regulated organisation), statutory and other bodies responsible for professional regulation (such as the General Medical Council and the Nursing and Midwifery Council, The Charity Commission), Police and the DBS. Provide feedback at regular intervals to the relevant local authority (if there is a related safeguarding enquiry) and to their commissioning agency (if they have one). |
| Local Authority Designated Officer (LADO) Every local authority has a statutory responsibility to have a Local Authority Designated Officer (LADO) who is responsible for co-ordinating the response to concerns that an adult who works with children may have caused them or could cause them harm. The Local Authority Designated Officer (LADO) works within Children’s Services and gives advice and guidance to employers, organisations and other individuals who have concerns about the behaviour of an adult who works with children and young people. Included in this group are volunteers, agency staff and foster carers as well as people who are in a position of authority and have regular contact with children, such as religious leaders, political figures or school governors. LADO’s role is: To coordinate the safeguarding and investigative process in response to allegations made against people working with children.To provide advice/guidance to employers or voluntary organisations.To liaise with police and other agencies including Ofsted and professional bodies such as the General Medical Council and the Teaching Regulatory Agency.To monitor the progress of referrals to ensure they are dealt with as quickly as possible, consistent with a thorough and fair process.To resolve any inter-agency issues.To collect strategic data and maintain a confidential database in relation to allegations.To disseminate learning from LADO enquiries through the children’s workforce.To ensure that measures are in place to prevent further harm or abuse and that where required, referrals are made to the appropriate social care team. | The responsible authority is the Local Authority Children’s Services. | The LADO should be alerted to all cases in which it is alleged that a person who works with children has: behaved in a way that has harmed, or may have harmed, a childpossibly committed a criminal offence against, or related to a childbehaved towards a child or children in a way that indicates they may pose a risk of harm to childrenbehaved or may have behaved in a way that indicated they may not be suitable to work with children Allegations of historical abuse should be responded in the same way as contemporary concerns. In such cases, it is important to find out whether the person against whom the allegation is made is still working with children and if so, to inform the person’s current employer or voluntary organisation or refer their family for assessment. | Devon: If you need to contact Devon’s LADO, please consider all the guidance for organisations first. If you believe the concern meets the remit of the LADO service, please complete the notification form or telephone 01392 384964 or email ladosecure-mailbox@devon.gov.uk for a notification form. The LADO is best placed to give advice once they have access to the full range of information about your concern. Only in an emergency should you contact the LADO prior to completing a notification form as the advice they can give may be limited. Notification Form is accessible here: LADO Torbay: If you need to contact Torbay’s LADO, please consider all the guidance for organisations first. If you believe the concern meets the remit of the LADO service, please complete the notification form or telephone 01803 208541 or email cpunit@torbay.gov.uk for a notification form. The LADO is best placed to give advice once they have access to the full range of information about your concern. Only in an emergency should you contact the LADO prior to completing a notification form as the advice they can give may be limited. Notification Form is accessible here: http://torbaysafeguarding.org.uk/workers/managing-allegations/ |
| PREVENT Violent extremism refers to the beliefs and actions of people who support or use violence to achieve ideological, religious or political goals. Radicalisation is the process through which people develop support for extremist political, religious or other ideas. This can lead them to support violent extremism and terrorism. People may become radicalised if their views and beliefs are influenced by extreme ideas and perspectives. The UK faces a range of terrorist threats including international terrorism, Northern Ireland related terrorism and extreme right-wing terrorism. In 2018 the government set out its new Counter Terrorism Strategy (CONTEST) to reduce the risk of terrorism to the UK. Prevent is one strand of this strategy and aims to safeguard people and communities from the threat of terrorism. Prevent: responds to the ideological challenge we face from terrorism and aspects of extremism, and the threat we face from those who promote these viewsprovides practical help to prevent people from being drawn into terrorism and ensure they are given appropriate advice and supportworks with a wide range of sectors (including education, criminal justice, faith, charities, online and health) where there are risks of radicalisation that we need to deal with. It is possible to intervene during the radicalisation process and stop someone becoming drawn towards terrorism or supporting violent extremist activity. Early detection and referral into Prevent provides the best chance of diverting someone from being drawn into terrorism. Prevent referrals are screened, further information is sought and risks are assessed. Where there are concerns about a particular individual their consent will be sought prior to entering what is known as a Channel process. Channel is a Local Authority led multi-agency process developed to support people at risk of being drawn towards terrorism or violent extremism. Where appropriate, partners work collaboratively to establish a bespoke package of support for vulnerable individuals. Interventions could take the form of mentoring, welfare support, presenting opportunities to develop other interests or giving access to key services. These types of intervention can be very successful and there are examples in Devon where they have been used to help individuals move away from a potentially destructive path. | Since 2015, “specified authorities” listed in Schedule 6 to the 2015 Counter-Terrorism and Security Act, (such as Local Authorities, Police Forces, Schools and Colleges), have had a statutory duty to ‘have due regard to the need to prevent people from being drawn into terrorism’. Prevent Duty Guidance was introduced for “specified authorities” to follow. The partnership elements of the Prevent Duty are delivered through the Devon and Torbay Prevent Partnership. The Partnership is made up of a wide range of agencies including the County, District and Unitary Authorities, Social Care, the Police, the NHS, Education providers, Devon and Somerset Fire and Rescue Service, Her Majesty’s Prison Service and the National Probation Service, amongst others. Both Devon and Torbay have their own multi-agency Channel Panels. These Panels meet on a monthly basis to review any new cases for possible adoption into Channel as well as review the progress in relation to any open Channel cases. | Radicalisation is a type of exploitation which often happens out of sight, leaving victims at serious risk of harm. People may be radicalised through exposure to a particular ideology, or due to non-ideological reasons – for example because of a specific grievance. People can be radicalised by family members or friends, through direct contact with extremist groups, or through the internet, social media and online gaming sites. It can happen to anyone, although some people may be more vulnerable because of factors such as: being isolated from family, friends or the communityexperiencing discrimination, bullying or harassmenthaving a grievance against a person, group or causehaving an autism spectrum condition or a learning disabilityhaving a mental health difficultygoing through a significant life event such as relationship breakdown/ unemployment etc Belief in an extremist cause and membership of an extremist group can offer people a sense of purpose, identity and community. This may be particularly appealing if someone is experiencing difficulties and challenges in their life. Radicalisation can happen over anything from a few days to several years. The signs to look out for include: becoming more secretive, especially around internet usespending increasing amounts of time communicating with friends they have met onlinebecoming isolated from family and friendsdeveloping a fixation on a particular subjectexpressing intolerance or hatred of other people or communitieschanging appearance to reflect association with a group or causeexpressing thoughts about harming or using violence towards otherspromoting violent or extremist material either online or through leaflets, stickers or graffiti etc | If you are concerned that someone is being radicalised, or are at risk of being radicalised, please consider the following: Do you think they are about to travel to join a proscribed organisation (i.e. extremist groups or organisations banned under UK law)?Do you think they are involved in plans to carry out a criminal offence? If you have answered yes to either question, please contact the police on 999. Otherwise please do one of the following: Please complete the police PREVENT referral form. Guidance for completing the Vulnerability Assessment section of the form can be found in the Channel Vulnerability Assessment Framework for Partners. Completing this section of the form is not mandatory but will help the Devon and Cornwall Police Prevent Team complete their initial assessment.If the person you are concerned about lives outside of Devon or Cornwall, or you would like to report your concerns anonymously, please call the Anti-terrorism Hotline on 0800 789 321. Members of the public can call 101 to report any concerns. All calls are dealt with sensitively and you can ask to speak with a Prevent officer if you prefer. Alternatively call the Prevent team directly during office hours on 01392 225130 – please allow for the call to ring through to the answerphone as it calls our different offices in turn. If there is an immediate threat to life always dial 999. |
| Modern Slavery & Human Trafficking Modern slavery describes a situation where someone has gained control or ownership over another person and is using this power to exploit them. Modern slavery is a complex crime and may involve multiple forms of exploitation. The Modern Slavery Act 2015 sets out the National Referral Mechanism (NRM) which is a framework for identifying and referring potential victims of modern slavery and ensuring they receive the appropriate support. Victims may not be aware that they are being trafficked or exploited, and may have consented to elements of their exploitation, or accepted their situation. If you think that modern slavery has taken place, the case should be referred to the NRM so that the Single Competent Authority (SCA) can fully consider the case. You do not need to be certain that someone is a victim. The NRM is used to identify and refer potential victims of modern slavery and make sure they receive appropriate support. The difference between an NRM referral and a Duty to Notify (DtN) referral relates to the consent of the adult involved. The government assesses every new NRM case to determine if the person has been a victim of modern slavery. Locally partners have agreed that if the subject of the NRM is a suspect in a crime then the Police should be consulted prior to an NRM being submitted. It is also advisable for the referring agency to get as much information as possible from other agencies prior to submitting the NRM. | Single Competent Authority (SCA) within the Home Office. First Responders work for designated organisations and help identify and support potential victims of modern slavery. First Responders for designated organisations should use the National Referral Mechanism (NRM) to: report cases of modern slaveryrefer potential victims for support and protection | Modern slavery is a form of exploitation. It is a major issue in Britain. Victims and perpetrators include UK citizens and foreign nationals from a range of countries. People may be trafficked into the UK from abroad or may be trafficked internally between cities, towns and rural areas. Modern slavery can take place anywhere – including villages and coastal areas as well as large towns and cities. Someone is a victim of modern slavery if they have experienced any of the following: being forced to work because of physical or verbal threatsbeing owned or controlled by an ’employer’, usually through mental, emotional, sexual or physical abuse, or the threat of abusebeing held captivebeing dehumanised, treated as a commodity, or bought and sold as ‘property’having restrictions placed on their freedombeing moved against their will. A person is also the victim of Modern Slavery if they are forced to participate in illegal activities such as shoplifting, pick-pocketing, drug dealing and drug trafficking (including county lines activities). | The online referral system is to be used for referrals into the NRM and for Duty to Notify referrals (DtN). Only staff at designated first responders Organisations can make referrals via this link: https://www.modernslavery.gov.uk/who-do-you-work-for You can still report modern slavery if you’re not a First Responder. Call the modern slavery helpline on 0800 0121 700 or report it online via this link: https://www.modernslaveryhelpline.org/report If you are unsure, you should check what the referral pathway is in your organisation. |