Missing Adults

1. Introduction and Context

All adults have the right to come and go as they please. This includes deciding to stay away from a place that they would normally be expected to be.

Sometimes an adult will make a choice to ‘go missing’ because it is the right thing for them to do at that time.

For example:

  • To escape problems at home or in a care setting including breakdown of relationships.
  • To flee from domestic abuse (including the risk of FGM, forced marriage or honour-based abuse).

In this case, the adult is unlikely to be a missing adult in the context of adult safeguarding, and their right to privacy should be respected. This includes not divulging their whereabouts to others without their consent. The only circumstances when this would not apply are:

  1. The adult is a missing adult as described below; or
  2. Another vulnerable adult or a child is at risk.

2. What is a missing adult?

In the context of safeguarding, a missing adult is anyone whose whereabouts cannot be established and:

  1. The context suggests the adult may be a victim of crime; and/or
  2. The person is at risk of harm to themselves or another; and/or
  3. There is a particular concern because the circumstances are out of character or there are ongoing concerns for their safety because of a previous pattern of going missing.

Whereabouts cannot be established

This means that despite best efforts, it has not been possible to locate the adult.

For example:

  • Trying to contact them directly;
  • Making sure they are not hiding or trapped in the place they would normally be;
  • Checking nearby streets;
  • Trying to establish if there is a logical explanation e.g., have the buses been delayed;
  • Contacting family to see if the person is with them, or if they know what may have happened;
  • Finding out if the person has been admitted to a local hospital.

Often, these are steps that would be taken by the person’s family or care provider before raising a concern.

Victim of crime and/or harm to themselves or others

Examples could include:

  • Exploitation (criminal, sexual, financial);
  • Victim of a criminal act, such as abduction;
  • Adults that may have been coerced into going somewhere;
  • Cultural abuse (FGM, forced marriage, modern slavery);
  • Adults unable to make an informed choice about their whereabouts (they lack capacity);
  • Evidence of accident or injury risk e.g., no road safety awareness;
  • Evidence of risk of self-harm (e.g., suicide, overdose);
  • Risk they will harm another e.g., assault.

Risks should be carefully assessed and based on available evidence. This could be recent evidence or historical evidence (if deemed relevant to the current circumstances).

Example 1:
Peter is severely depressed and in receipt of daily visits from the crisis mental health team. He has started to talk about suicide on a more frequent basis. During a visit from the crisis team, a decision is made to request a mental health assessment from the AMHP service. Peter is unhappy about this and leaves his flat before the AMHP arrives. The following morning Peter has still not returned to his flat and there are concerns about his wellbeing. This is on the basis that he is in a mental health crisis and there is evidence that he may attempt to harm himself.
Example 2:
Kay is 19 and a care leaver. She has recently moved into her own flat. Between the ages of 14 and 17, Kay was sexually exploited by 2 men that she thought at the time were her friends. Kay’s whereabouts cannot be determined, and since the time that she was exploited, it is not like her to stay away from home without telling anyone where she is going. Based, on historical evidence, it is believed that Kay is still vulnerable to exploitation.
Example 3:
Jonas has advanced Dementia. He lives at home with his wife. She is becoming frailer and finding it harder to care for him. The social worker has started exploring alternative accommodation with them, as his cognitive abilities are deteriorating rapidly, and he has recently developed incontinence. One day, Jonas leaves his home when his wife accidentally leaves the front door open. By the time she realises he is not at home, he cannot be located in the nearby area. The evidence suggests that Jonas is at risk of accident, injury and abuse in the community unsupported. There is also a risk to his dignity because of his incontinence.

As the above examples demonstrate, there can be a whole host of reasons or factors contributing to why an adult may go missing:

  • They have a health condition that can cause confusion, memory or orientation issues;
  • They have severe depression, mental health issues or suicidal thoughts;
  • They are being coerced or controlled, e.g., exploited, radicalised or a victim of modern slavery;
  • Care and support plans or risk management strategies are ineffective (normally evidenced by recurring episodes of the adult going missing).

3. Reporting that an adult is missing

The police

All incidents of missing adults should be reported to the police. They are the agency best placed to carry out a swift investigation and have powers to enter buildings and take other immediate actions that are not within the remit of other agencies.

Raising a safeguarding concern

A safeguarding concern must be raised to local authority whenever the safeguarding duty applies:

  1. The adult has needs for Care and Support (whether these have been assessed or are being met by the local authority or not);
  2. They are experiencing, or at risk of experiencing abuse or neglect; and
  3. As a result of Care and Support needs they are unable to protect themselves against the abuse or neglect.

This is in addition to reporting the adult as missing to the police.

For further information about the safeguarding duty see: The Safeguarding Duty.

4. The importance of partnership working

Multi-agency partnership working is vital:

  1. For effective risk assessment;
  2. To address the reasons why people go missing;
  3. To provide the necessary help when it is needed; and
  4. To reduce the likelihood of future missing episodes.

Most cases of missing adults require a co-ordinated response between the police and other agencies to help locate the adult and reduce any imminent or future risk of harm or abuse.

Depending on the circumstances, additional agencies could include:

  • The local authority;
  • The adult’s informal network;
  • Care providers;
  • Mental health services;
  • Ambulance services;
  • Domestic abuse services;
  • Paramedics.

Sometimes, this approach may need to be coordinated across different geographical areas. For example, if the adult has been exploited to be involved in county lines activity.

Once the missing adult is located and confirmed safe, relevant agencies will need to work together with the adult to assess future risk and develop effective strategies for the future.

5. Reducing the risk (Herbert, Winnie and Philomena protocols)

Herbert Protocol

The Herbert Protocol applies to adults with dementia that are at risk of going missing. A form is completed by a carer that contains a list of information to help the police if the adult goes missing, including:

  1. Medication required;
  2. Mobile numbers;
  3. Places previously located;
  4. A recent photograph.

In circumstances where an adult with dementia has support from a professional or agency and it is identified they are at risk of going missing, the professional or agency should encourage their carer to complete a form.

If there is no carer, the professional or agency should complete the form with the adult's consent (or in their best interests if they lack capacity).

The local Herbert Protocol form can be found in the Contacts and Practice Resources area.

Winnie Protocol

The Winnie Protocol applies to adults that are at risk of going missing but do not have a diagnosis of dementia.

A form is completed by a carer that contains a list of information to help the police if the adult goes missing, including:

  1. Medication required;
  2. Mobile numbers;
  3. Places previously located;
  4. A recent photograph.

In circumstances where an adult has support from a professional or agency and it is identified they are at risk of going missing, the professional or agency should encourage their carer to complete a form.

If there is no carer, the professional or agency should complete the form with the adult's consent (or in their best interests if they lack capacity).

The local Winnie Protocol Form can be found in the Contacts and Practice Resources area.

Young People with a Philomena Protocol Form

The Philomena Protocol applies to children and young people who are at risk of going missing.

If a young person has a Philomena Protocol Form in place, the benefit of a Winnie Protocol Form should always be considered as part of their transition to adulthood.

6. Further Guidance

For further guidance see: National Missing Children and Adult Strategy.