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11.4 Joint Protocol between West Yorkshire Police and Children's Social Care Services regarding Children and Young Persons Missing from Care

Contents

  1. Introduction
  2. Principles
  3. Categories of Absence
  4. Planning before the Event
  5. Initial Action to be taken by Carers
  6. Risk Assessment and Categorisation of Absence
  7. Action to be taken in Unauthorised Absence Cases
  8. Action to be taken in Missing Cases
  9. Missing during External Activity
  10. Young People Missing Subject to Placement with Parent Regulations
  11. Missing from Out of Authority Placements
  12. Return
  13. Multi-Agency Meetings
  14. Police Powers
  15. Harbourers
  16. Monitoring
  17. Signatures

Appendix A

Appendix B

Appendix C

Appendix D

Appendix E

1. Introduction

1.1 This protocol applies to all children and young people who are looked after by the local authority that go absent without permission from residential or foster care.
1.2 It defines the roles and responsibilities of the Police, Social Services staff and carers.
1.3 This should be read as guidance, which as such cannot anticipate every situation.  Police, Social Services staff and carers should use their professional judgement to take any action that is deemed necessary to protect the safety of the child/ young person, based on an assessment of risk for each individual child/ young person.
1.4 It is important to be clear about the definition of a missing person and to discourage the habitual reporting of “unauthorised absences” as missing persons.
1.5 The term "child/ young person" is used throughout this document in line with the Children Act 1989 and includes anyone under the age of 18 years.
1.6 The term “carers” is used throughout this document to describe those adults responsible for delivering care to children in a range of living arrangements. Unless otherwise stated the term includes parents (with or without parental responsibility), foster carers (friends and family foster carers and mainstream foster carers), and residential social workers or other carers employed in community homes.

2. Principles

2.1 The primary consideration is the safety and wellbeing of the child/ young person when dealing with “missing episodes.”
2.2 The objective is to locate and return the child/ young person to a safe environment.
2.3 The Local Authority, as corporate parent, has a duty of care for the safety and wellbeing of the child/ young person and is expected to take such action that reasonable parents would be expected to take to safeguard their children. The Police have a duty to investigate reports of people going missing.

3. Categories of Absence

3.1

Missing Person
3.1.1

A young person who is absent should be reported as a missing person if ONE OR MORE of the following criteria apply:

  • There are suspicious circumstances;
  • It is out of character and/or difficult to explain;
  • The circumstances indicate that the young person may have already come to harm;
  • The circumstances indicate that it is NOT a deliberate or careless absence;
  • The young person IS NOT expected to return AND the circumstances do NOT indicate that they are staying at the homes of their friends or family or that they will be easily located;
  • They are at IMMINENT risk of being exposed to significant harm
  • They pose an IMMINENT risk of significant harm to another person
3.1.2 If the current whereabouts of a child/ young person is known, that child/ young person is NOT A MISSING PERSON although there may still be a need for intervention as the Police and the Local Authority have a duty of care to protect young people from significant harm. 
3.1.3 See Appendix A for further details.
3.2

Unauthorised Absence
3.2.1

A young person who is absent should be reported as “unauthorised absent” if the circumstances indicate:

  • They have deliberately or carelessly absented themselves; AND
  • They will return of their own accord or they are staying at the homes of friends or relatives or they will be easily located; AND
  • They are not likely to suffer or cause significant harm whilst absent
3.2.2 See Appendix A for further details.

4. Planning before the Event

4.1 The social worker has responsibility for ensuring a "Pre-assessment of Risk" is completed when a child/ young person is placed in a children's home or with foster carers.  Where appropriate this can be completed by the children's home, fostering service staff and parents on behalf of the Social Worker. This may be completed as part of the Placement Plan by the Social Worker or by residential staff after the young person is admitted. This should consider the likelihood that the child/ young person might go missing, or might be abducted, from their established placement and of the risk that the child/ young person might face as a consequence. 
4.2 It is recognised that in emergency or unplanned placements, that the placement plan including the pre-assessment of risk is unlikely to have been completed within the first 72 hours.
4.3 This is to enable appropriate decision making by professionals and carers if the child/ young person goes missing, who can then take into account all of the circumstances relevant to the child/ young persons absence. 
4.4

The assessment should consider the following:

  • The risk factors mentioned in Appendix B
  • The likelihood of the child/ young person going missing
  • Any previous episodes/ pattern of going missing
  • What may act as a trigger incident
  • The risk of harm to the child/ young person and his/her vulnerability if he/she is absent
  • The risk of harm to individuals, specific groups or the wider public that the child/ young person poses if he/she is absent
  • The child/ young persons view of their placement
  • The child/ young persons view about going missing and the potential risk
  • The views of parents/ relatives/ carers of the child/ young persons needs and the action that needs to be taken if the child/ young person goes absent
  • The level of supervision/ support from staff or foster carers that the young person needs
  • Any external influences which may result in a child/ young persons removal without consent
  • The risks inherent at addresses/ places the child/ young person frequents or has previously been located at
  • The likelihood of the child/ young person being harboured
4.5 Two recent photographs of the child/ young person (face and full body length) should be retained by the carer for missing from care purposes. Digital photographs are preferable and they should be regularly updated. If these are obtained post-placement, careful consideration should be given as to how these photos are taken so as not to stigmatise the child. Unless it is in the best interests of the welfare of the young person, the photographs should not be used for any other purpose without the young persons consent.
4.6 Efforts should be made to minimise the risk of the child/ young person going missing, as follows:
4.6.1

The child/ young person should be given clear information at the time of placement about:

  • Times of going out and returning
  • Who to inform about where they are going
  • Appropriate telephone numbers to enable them to inform carers about their whereabouts
  • An assurance that they can ring at any time and that staff will treat them positively and sensitively
  • Their contact arrangements with families and friends
  • How to seek help if they are unable to get back for the agreed time, whether this has happened accidentally or on purpose
4.6.2 Carers should help children/ young people to understand that they are vulnerable and potentially at risk when missing.
4.6.3 The child/ young person should be informed of the action that will be taken by the carer and police if they are missing.
4.6.4 These risk assessments should be reviewed as part of child-care reviewing processes.

5. Initial Action to be taken by Carers

5.1

When a child/ young person absents themselves, carers should take all reasonable and practical steps that a good parent would take, before contacting the police, in order to:

  • Determine the nature and reasons for disappearance
  • Ascertain the likely intentions of the child/ young person
  • Establish the whereabouts and well being of the child/ young person
5.2

Reasonable and practical steps that the carer should consider taking include:

  • Searching own premises, grounds and immediate locality
  • Making enquiries with other children and young people in the home to establish if they have seen or heard anything. This can also stop distressing rumours from circulating
  • Making enquiries with and obtaining further information from other carers, professionals, and friends
  • Informing and making enquiries with relatives unless it is deemed to be in the best interests of the child/ young person not to inform certain relatives
  • Consider recent events or precipitating factors
  • Making enquiries with the child/ young persons school/ college/ providers of education/ or work placement
  • Telephoning or sending a SMS (text) message to the young persons mobile phone
5.3 Where there is evidence to suggest that the child/ young person is at risk of being abused through prostitution or is at risk of physical or sexual harm then the appropriate protocols under the Area Child Protection Committee/ Safeguarding Board procedures must be followed.
5.4 All issues, circumstances, decisions, actions and messages should be fully recorded by carers and social workers.

6. Risk Assessment and Categorisation of Absence

6.1

If the child/ young person is not located as a result of those initial enquiries, the carer should as soon as possible inform and if appropriate obtain advice from:

  • The child/ young persons social worker or accountable team manager
  • If out of hours, the Out of Hours Service and either the social worker or accountable team manager the next working day
6.2

The carer should then:

  • Complete the risk assessment form to assist with identifying whether there is any apparent risk of the child/ young person being exposed to significant harm or whether the child/ young person poses any apparent risk of significant harm to the well being of the public (Appendix B)
  • Categorise the child/ young person as either unauthorised absent or missing
6.3 Staff in all organisations concerned should avoid dismissing the potential risk to children/ young people simply because they persistently run away.

7. Action to be taken in Unauthorised Absence Cases

7.1

Informing the Police
7.1.1 If the child/ young person has not been located or has not returned within a reasonable time, the police can be informed but it should be made clear to the police that this is a case of unauthorised absence. 
7.1.2

A reasonable time depends on the particular circumstances of the case.  Factors that should be taken into account include whether the individual:

  • Usually returns of their own accord within a certain period of time
  • Is usually located wandering the streets
  • Is regularly arrested by the police
7.1.3

If notified about an unauthorised absence, the police will:

  • Create an Information Based Incident System (IBIS) log
  • Check to see if the child/ young person is in police custody
  • Check the police intelligence system to see if there is any recent intelligence on the child/ young person that may affect the risk assessment
  • Circulate details on the Police National Computer
  • Broadcast details of the child/ young person over the police radio in case they are sighted but the police will not conduct any other active enquiries to trace the individual
  • Delay the Information Based Incident System (IBIS) log until 1200 hours the following day
7.2

Review of Risk and Category of Absence
7.2.1

Carers must keep the child/ young persons absence under continuous review.  A formal review should be conducted and recorded at least every six hours except during the night, when a formal review should be conducted and recorded at 2300 hours and then again at 0800 hours the following morning.
7.2.2 If the risk increases due to a change of circumstances or due to the length of absence, carers may request the police to consider changing the category of absence from unauthorised absence to missing.
7.2.3 Where there is a difference of opinion between carers and the police over the appropriate category of absence, the police are the final arbiters over whether they record and investigate a child/ young person who is absent as a missing person. However the police officer/ member of police staff should refer all such cases of dispute to the Duty Inspector.  If the carer/ social worker is still not satisfied with the decision of the Duty Inspector, the carer/ social worker should refer the matter to the Children’s Service Manager as soon as possible.
7.3

Return
7.3.1 See Section 12, Return.

8. Action to be taken in Missing Cases

8.1

Informing the Police
8.1.1 If the absence is considered to fall within the definition of missing, the carer must inform the police as soon as possible:
8.1.2 Any information subsequently obtained should be reported to the police without delay.
8.2

National Reporting Form and Risk Assessment
8.2.1 The carer, wherever possible, complete the National Reporting Form and the Risk Assessment/ Decision-Making Guide (Appendix E). It is recognised that it will not always be possible for carers, particularly foster carers to complete the National Reporting Form prior to police attendance. Most of this form could and should be completed by the carer before any missing incidents occur especially if they are deemed to be at high risk of going missing. This will save the carers time when such an incident takes place and enable both the carer and the police to better direct their energies into locating the young person. For those in residential care and those foster carers with home computers, this should be completed electronically on a template for every young person in their care.
8.2.2 The carer must take into consideration the "Pre-assessment of Risk" (see Paragraph 4.1) and the circumstances of this particular absence.  The carer should categorise the risk as high, medium or low (see Appendix C).
8.2.3 If the carer initially categorises the risk as “medium”, the carer should then sub-categorise the risk as red, amber or green (see Appendix C).
8.3

Information Required by the Police
8.3.1

The police will require:

  • Information required to complete the National Reporting Form including the Risk Assessment
  • Details of all the enquiries conducted so far
  • A photograph of the missing child/ young person
8.3.2 These two documents and the photograph contain all the information that the police will require. A copy of this documentation should also be provided to the social worker to retain on the case-file.
8.4

Police Officer Attending
8.4.1

The police officer attending to take the report will:

  • Check all details on the National Reporting Form in consultation with the carer and confirm the Risk Assessment. On those occasions when it has not been possible for the carer to complete the National Reporting Form prior to police attendance, the police officer will complete the form with the assistance of the carer
  • Confirm the risk status of the child/ young person as high, medium or low (see Appendix C)
  • Obtain a recent photograph of the missing child/ young person
  • Search the child/ young persons room in order to ascertain further information that will assist in locating the child/ young person. This will be undertaken in a way that is sensitive to the needs of other children/ young people placed
8.5

Responsibilities During Absence
8.5.1 The Police will investigate all cases falling within the definition of missing in accordance with the Police Missing Persons policy.
8.5.2 Carers will be expected to help the police in finding the child/ young person and to work co-operatively with the police during any enquiry.
8.5.3 Even after reporting a person missing, carers should recognise that they are responsible for children/ young people in their care at all times and this responsibility is not absolved when they have reported a person missing to the police.
8.6

Media
8.6.1 The police have responsibility for considering whether to inform the media regarding missing children/ young people to assist in locating that individual and warning the public if that individual poses a significant threat.
8.6.2 However decisions to publicise will only be taken after discussions have taken place between the responsible Police Officer of at least Inspector rank and the responsible Local Authority Children’s Services Manager. These individuals will agree a media strategy.
8.6.3 The Social Worker should consult relevant family members. Wherever possible, there should be an appropriate time-scale to enable those with parental responsibility to be informed and forewarned so that the first they hear of the child/ young person being missing is not through the media presentation.
8.6.4 Unless it is necessary, the child/ young person will not be identified as a child/ young person in care.
8.7

Recording
8.7.1 Throughout the period that the child/ young person is absent, the social worker and carers must keep a full record of all actions taken and messages received and given. 
8.7.2 The Police will likewise keep a record on the appropriate missing person report or computer system.
8.8

Planning for Return
8.8.1

If a child/ young person is categorised as “missing”, the appropriate Children’s Services Manager in the Local Authority in consultation with social workers, parents and police as appropriate, should start contingency planning for when the child/ young person is found.  Consideration must be given to:

  • Who is the most appropriate person to conduct the return interview
  • Arrangements which need to be made to escort the child/ young person and support them once they have been found

9. Missing During External Activity

9.1

If a child/ young person goes absent outside the Local Authority area they reside in, the carer in charge of the external activity or holiday will:

  • Arrange a search of the area where the child/ young person went absent
  • Notify the local police for that area
9.2 The police for the area where the child/ young person went missing and the police for the area where the child/ young person normally resides will decide which police force will take responsibility for managing the investigation. This will normally be the police force that covers the area where the majority of enquiries are likely to be conducted. The police will notify the relevant Social Services Team Manager of their decision.
9.3 The Social Work Manager or Out of Hours worker will be responsible for ensuring the general procedures in relation to a missing child/ young person are followed.
9.4 The foster carer or Unit Manager and the person in charge of the external activity or holiday will make a joint decision within 24 hours of the absence whether the rest of the party should return home.
9.5 If they do return home, ongoing communication must be maintained between the social worker and the police force responsible for managing the missing person enquiry.

10. Young People Missing Subject to Placement with Parents Regulations

10.1 A child/ young person living at home and subject to the Placement with Parents Regulations is still looked after by the Local Authority as the Care Order is still in force.
10.2 In such circumstances, it is the responsibility of the parent to inform the social worker, manager or Out of Hours Service when it is evident that the child/ young person has gone missing from the placement. This responsibility should be discussed with the parents before the placement is agreed and it must be part of the Placement Agreement.
10.3 The Children’s Services Manager who approved the placement should also be informed of the incident at the earliest opportunity.
10.4 This notification should be followed up with a report outlining the circumstances and outcome of the return interview with the child/ young person five days after the return of the young person to the placement.

11. Missing from Out of Authority Placements

11.1

An Out of Authority Placement is a placement of a child/ young person by one Local Authority:

  • In a residential home that is located in another Local Authority area, or
  • With foster parents who live in another Local Authority area
11.2 Before a child/ young person is placed in an Out of Authority Placement, the social worker should ensure that the Agency responsible for the residential home has agreed to comply with this protocol.
11.3 The Agency should contact the Team Manager or Out of Hours Service as soon as it is confirmed that the child/ young person is missing from their care. The appropriate Children’s Services Manager should be informed the next working day and regularly updated as to the situation.
11.4 The social worker should make any necessary enquiries to clarify the reasons why the young person went missing and to plan how best to minimise the chances of this occurring in the future.

12. Return

12.1

Notification
12.1.1 If the child/ young person returns or is located, all individuals who have previously been notified of the absence should be advised of the child/ young persons return without delay.
12.2

Collection of the Child/Young Person
12.2.1 Once a child/ young person is located, the general principle is that the young persons social worker is responsible for recovering the child/ young person and returning the child/ young person to their home or placement.
12.2.2 Each Social Services Team Manager should develop contingency plans as soon as possible to ensure that they have sufficient resources available at all times in order to fulfil this obligation. 
12.2.3 If there are thought to be specific issues of safety or public order difficulties involved in returning the child/ young person then a co-ordinated action should be agreed with the police.
12.2.4 The police should not leave the child/ young person at a location where they are likely to be exposed to the risk of harm or where they are likely to go missing again prior to Social Services being able to make arrangements to recover the child/ young person. 
12.2.5 On occasions the police may need to consider returning the child/ young person direct to their home or placement, or consider taking the child/ young person to a local Police Station after confirming a collection time with Social Services and the carer.
12.3

If the Child/Young Person Refuses to Cooperate
12.3.1

If there is concern that the child/ young person is at risk of significant harm:

  • The Police should work with Social Services to protect the child/ young person. In these circumstances consideration should be given to taking the child/ young person into Police Protection or applying for an Emergency Protection Order or Recovery Order under the Children Act 1989
12.3.2

If the child/ young person is not at risk of significant harm and:

  • Is under 16 or is subject to a Court Order, the Police and Accountable Manager from Social Services will liaise to discuss what action should be taken to safeguard the child/ young persons welfare

    or

  • Is over 16 and not subject to a Court Order, they are legally entitled to leave home and decide where they want to live with their parents permission.  If they refuse to return to their placement there should be a formal review of their care plan at the earliest opportunity
12.3.3 Where the young person is over 16 years of age and “Looked After”, the Police will notify the Local Authority of the whereabouts of the young person even if this is not what the young person wishes.
12.4

Medical Assessment of the Child/Young Person
12.4.1 As soon as the child/ young person is located, consideration should be given to whether they need medical attention. If required, a medical examination should be arranged once appropriate permissions have been obtained. This assessment should be recorded and placed on the young persons case file.
12.5

Suspected Victim or Perpetrator of Crime
12.5.1 If there is any suggestion that the child/ young person has been the victim or perpetrator of crime, consideration must be given to the securing of evidence including forensic examination. 
12.5.2 Where an allegation of physical or sexual abuse is made or becomes evident, The Area Child Protection Procedures must be implemented and contact made immediately with the Police Child and Public Protection Unit and the Social Services Child Protection Unit. This will be the responsibility of the young persons social worker.
12.6

Return Interview
12.6.1 When a child/ young person who has been reported as missing is located, the police should conduct a return interview with the child/ young person as soon as possible and in all cases before 72 hours unless this is deemed to be detrimental to the welfare of the child/ young person.
12.6.2 As well as being given the opportunity to talk to their carers, the child/ young person should also be given the opportunity to talk to someone independent of their placement about their absence.  The independent person should have no line management within the home. 
12.6.3 When a child/ young person who has been unauthorised absent is located, they too should be given the opportunity to talk to someone independent of their placement about their absence. This person will usually be the young persons social worker but in certain circumstances this may be the fostering support worker. They should conduct a return interview with the child/ young person as soon as possible and in all cases within 72 hours unless detrimental to the welfare of the child/ young person. The Young Persons Advocacy Service may also be present to support the young person in discussing the issues that led to them going missing but the interview itself is the social workers responsibility.
12.6.4 Any information obtained during this return interview that may affect any future risk assessment or may assist in finding the child/ young person should they go absent again, should be exchanged between the Police and the Local Authority.
12.6.5

The purpose of the independent interview will be to:

  • Seek an understanding of the young persons motivation for going missing
  • Assess the risks to which they may have been exposed whilst missing
  • Explore and advocate for the young persons current and future wishes
  • If necessary to liaise with the Social Services Managers regarding the appropriateness of the current care plan
  • Explore with the young person positive alternative options to going “missing” in the future, so that if the same motivation / situation arises they have considered what action to take instead of leaving the placement
12.6.6 Staff in all organisations concerned should avoid dismissing the potential significance of repeated running away. Often such individuals are immediately labelled as a problem and insufficient consideration is given to why they persistently go absent.  In particular there needs to be some assessment as to whether a young person is running away from or to something or someone. Such an assessment will impact on the risk such incidents pose to a young person and underline that persistent running away needs to be explored, particularly at the time of the post-return interviews.
12.7

Review of Care Plan
12.7.1 The social worker and line manager should decide in consultation with carers and the child/ young person whether they should convene an early statutory review of the child/ young persons care plan.

13. Multi-Agency Meetings

13.1 Once a child/ young person has been missing for over 7 consecutive days or causes significant concern due to risk factors, the Head of Service should be notified at the earliest opportunity. In addition a meeting should be held to review the action taken up to that point and ensure that all possible steps are being taken to locate the child/ young person. A strategy to locate the child/ young person should be developed and a combined response agreed.  It is the responsibility of the accountable Social Worker to arrange the meeting.
13.2

The meeting should be attended by:

  • The accountable Team Manager and/or the accountable Social Worker from the authority responsible for the child/ young persons care
  • The nominee of the Local Police Chief Inspector Operations
  • Other relevant staff representatives from the authority where the child/ young person is living
  • Fostering Team Social Worker or Residential Lead Social Worker and Registered Manager
  • Parents/ foster carers/ carers
13.3

These senior officers will:

  • Review the action taken so far
  • Identify what action now needs to be taken and timescales
  • Agree an appropriate strategy for the young person including interviewing the child/ young person and returning them to their placement
13.4 If the child/ young person has been missing for 28 days, the Police Divisional Crime Manager and the appropriate Children’s Services Manager in the Local Authority should jointly review the case.
13.5 Whilst the young person remains absent from care their case should remain “live” until they are located and their well being verified. This will be especially relevant for accommodated young people who reach the age of 16 or young people subject of a Care Order who reach the age of 18. In such circumstances the case should be reviewed regularly by the relevant Senior Manager of the Local Authority who will have sole responsibility for deciding whether or not to “close” the case or whether further action should be taken such as national appeals and broader advertising.
13.6

If a child/ young person is known to repeatedly go missing or causes specific concern due to risk factors when missing a meeting should be held to develop a strategy to prevent a future reoccurrence and reduce the risks to that child/ young person should they go missing again. The purpose of the strategy meeting is to:

  • Agree a pre-risk assessment;
  • Agree a reporting strategy;
  • Recommend minimum enquiries to be conducted by the Local Authority and by the police;
  • Agree an appropriate return strategy;
  • Consider appropriate interventions to address the long-term issues

14. Police Powers

14.1 Police powers are limited and difficulties can arise when missing children/ young people are found and do not want to return to their placement. Please see Appendix D.

15. Harbourers

15.1 The Police and the Local Authority should seek to identify and prosecute those individuals that harbour children or young people that go missing.
15.2 This will require a co-ordinated approach to investigation and the exchange of all relevant information and intelligence.
15.3 This should be done in accordance with the “Investigation Strategy for Harbourers.”

16. Monitoring

16.1 The Head of Children Services and the Chief Superintendent, Head of Community Safety have overall responsibility for ensuring that this protocol is implemented within their respective organisations.
16.2 This protocol will be formally reviewed during November 2006.

17. Signatures

Chief Superintendent Phil Read

Head of Community Safety

West Yorkshire Police

 …………………………………………………………………
Dated  …………………………………………………………………

Name

Head of Children Services

Social Services 

 …………………………………………………………………
Dated  …………………………………………………………………

Appendix A

Missing Person

  1. The Police have a duty to investigate reports of people going missing:
    1. To establish whether any criminal offences are contributory or consequential to their disappearance;
    2. To ensure the person has not already been harmed;
    3. To locate the person before they suffer harm if they are at risk;
    4. To locate the person before they harm another if they pose a risk
  2. A young person should therefore be recorded and investigated as a missing person if the circumstances indicate that:
    1. Something has gone seriously wrong,
    2. The young person has come to harm;
    3. The young person has run away and is not intending to return, or
    4. There is an imminent risk of significant harm
  3. If the whereabouts of a child/ young person is known, they are not a missing person.  But if there is concern that the child/ young person is at risk of significant harm or that the child/ young person poses a risk of significant harm to the public, the Police have a duty to assist Social Services to recover the child.

Unauthorised Absence

  1. Unauthorised absence is a form of temporary absence where the child/ young person has deliberately or carelessly absented himself or herself and there is NO IMMINENT risk
  2. When a young person who is "looked after" goes absent, the young person will nearly always be exposed to a certain level of risk. However until that risk reaches a significant level, it is reasonable to expect the Local Authority to retain responsibility for locating and recovering that young person
  3. This behaviour is often known as "boundary testing" and is well within the range of normal teenage behaviour and is not necessarily considered a significant risk
  4. No time limit has been set whereby a child/ young person that has been categorised as "unauthorised absent" will automatically be re-categorised as "missing" once that period of time has elapsed. However, it is recognised that the risk of significant harm increases the longer a child is absent
  5. There may be unknown risks that are not apparent at the time of the initial report of absence despite due diligence. But officers and carers should have the confidence to make decisions according to considered risk assessments having taken into account all available information
  6. Examples of situations where unauthorised absence will apply, providing there is no identified imminent risk of significant harm include:
    1. Running away after a dispute with a member of staff
    2. Failing to return on time
    3. Staying with friends or relatives
    4. Where circumstances indicate that the child/ young person will return of their own accord within a short period of time

Imminent Risk

  1. A young person should be regarded as at IMMINENT RISK if there is a HIGH PROBABILITY that they are likely to be exposed to the following before they return or are located:
    1. Physical violence;
    2. SERIOUS physical, psychological or emotional harm;
    3. Sexual exploitation;
    4. Drugs, solvent or alcohol abuse
  2. A young person should be regarded as at risk of significant harm but not at IMMINENT RISK if they are likely to be exposed to:
    1. Neglect;
    2. Slight physical, psychological or emotional harm;
    3. An unstable environment;
    4. Pressures not to attend school;
    5. Consensual unlawful sexual intercourse with peers

Deciding the Category of Absence

  1. A child/ young person in care who is reported as absent should be categorised as either MISSING or as UNAUTHORISED ABSENT
  2. The police may decide to change the category of absence from “UNAUTHORISED ABSENCE” to “MISSING” if the level of risk increases due to:
    1. A change of circumstances
    2. The length of time that the individual has been absent
  3. Professional judgement should be applied to the individual circumstances of each case to determine the appropriate categorisation of an absent person

Absconders

  1. The term "absconder" is often used to refer to any "looked after" child/ young person who is absent without permission
  2. "Absconded" is not a separate category of absence. There are only two categories of absence. These are "missing" and "unauthorised absence". Therefore absconders should be categorised as either "missing" or "unauthorised absent"
  3. Irrespective of the categorisation of absence, absconders in breach of a condition of their bail will also be circulated by the police as “wanted persons”

Appendix B

Each Local Authority is to prepare its own Initial Risk Assessment form. One example of such a form is shown below.

Initial Risk Assessment

This checklist is intended to assist with identifying whether there is any significant apparent risk to the child/ young person to support the decision as to whether the child/ young person fits into the category of unauthorised absence or missing.

FACTOR YES NO
1) Is there any information that the person is likely to cause self-harm or attempt suicide?
2) Is the person suspected to be subject of a crime in progress, e.g. abduction?
3) Is the person under 16 or, if aged between 16 and 18, vulnerable due to other factors?
4) Are there inclement weather conditions that would seriously increase risk to health?
5) Does the missing person need essential medication or treatment not readily available to them?
6) Does the missing person have any physical illness, disability or mental health issues?
7) Do you believe that the person may not have the physical ability to interact safely with others or in an unknown environment e.g. visually impaired, Downs Syndrome?
8) Has the person been involved in a violent, homophobic and/or racist incident or confrontation immediately prior to disappearance?
9) Has the person been the subject of bullying?
10) Has the person previously disappeared AND suffered or been exposed to harm?
11) Is the behaviour out of character and likely to be an indicator of them being exposed to harm?
12) Is it anticipated that the person may go to stay with a person or at a location that will expose them to a significant risk of harm due to drugs/ violence or sexual abuse?


Appendix C

Risk Assessment Model

There are two factors that affect risk:

  • The EXTENT OF THE HARM likely to be suffered;
  • HOW LIKELY THE HARM will be suffered.

Frequently Asked Questions

1. What is the difference between High-Risk and Medium-Red Risk?
The EXTENT of the Harm that is likely to be suffered
HIGH RISK MEDIUM RED RISK

Victim of a SERIOUS CRIME

or

Likely to suffer DEATH OR SERIOUS INJURY

Victim of a CRIME

or

Likely to suffer SIGNIFICANT HARM
2. What is the difference between Medium-Red, Medium-Amber and Medium-Green risk?
How LIKELY the individual will suffer Significant Harm
RED AMBER GREEN
HIGH probability MEDIUM probability LOW probability
3. Who decides the risk?
POLICE LOCAL AUTHORITY

The police will categorise a missing person as:

  • HIGH RISK,
  • MEDIUM RISK, or
  • LOW RISK

The Local Authority will sub-categorise their MEDIUM-RISK missing young people as:

  • RED RISK,
  • AMBER RISK, or
  • GREEN RISK

Police Categorisation of Risk

HIGH RISK

DEFINITION

It is suspected that the individual has been the victim of a serious crime.

OR

The risk posed is IMMEDIATE and there are SUBSTANTIAL grounds for believing that the individual may suffer death or serious injury.

OR

The risk posed is IMMEDIATE and there are SUBSTANTIAL grounds for believing that the individual may cause death or serious injury to another.

EXAMPLES

  1. A 15-year old girl who is suspected of being abducted against her will for the purpose of rape and sexual assault.
  2. A person who has left a suicide note, there are indications that they have taken an overdose and there is concern that the person has left to make a genuine attempt at suicide.
  3. A 10-year old child who has gone missing overnight and who has never been missing before.  This is completely out of character, unexpected and difficult to explain.
MEDIUM RISK

DEFINITION

There is an APPARENT RISK that the individual may be exposed to significant harm.

OR

There is an APPARENT RISK that the individual poses a risk of significant harm to another person.

EXAMPLES

  1. A 15-year old girl who regularly goes absent and is suspected of being involved in prostitution.  The girl consents, does not see herself as a victim and in the past has returned of her own accord. 
  2. A 14-year old boy who is depressed, with self-harm tendencies, who has gone missing but there are no grounds to believe they are imminently about to attempt suicide or cause serious self- harm.
  3. A 10-year old child who regularly goes missing and in the past has always gone to the home of a friend or relative.  He has not suffered significant harm when absent before.
LOW RISK

DEFINITION

There is NO APPARENT RISK that the individual may be exposed to significant harm,

OR

There is NO APPARENT RISK that the individual poses a risk of significant harm to another person.

EXAMPLES

  1. An adult who is capable of independent living where there are no suspicious circumstances and there are grounds to believe they have deliberately left home to start a new life elsewhere.

Local Authority Sub-Categorisation of Medium Risk

RED

DEFINITION

There is a HIGH PROBABILITY that the individual may be exposed to significant harm,

OR

There is a HIGH PROBABILITY that the individual will cause significant harm to another person.

EXAMPLES

  1. A 14-year old girl who is suspected of being passed around adult males for the purpose of unlawful sexual intercourse.  The girl consents to sex and does not see herself as a victim.  This has become a regular pattern of behaviour.
  2. A 15-year old boy who has a drug addiction and is believed to be associating with drug dealers.
  3. A 10-year old boy who regularly goes missing.  Although he has never suffered significant harm when missing before, it is believed that his emotional development is suffering and the number of days he goes missing is increasing each time he goes absent.
AMBER

DEFINITION

There is a MEDIUM PROBABILITY that the individual may be exposed to significant harm,

OR

There is a MEDIUM PROBABILITY that the individual will cause significant harm to another person.

EXAMPLES

  1. A 14-year old young person who has emotional issues due to previous experiences that led to them being looked after.
  2. A young person, who regularly goes missing, is thought to be street wise, but is only 12 years of age.
  3. A 15-year old young person who has disengaged from school and is mixing with older young people that are having an adverse impact on his/her emotional development.
GREEN

DEFINITION

There is a LOW PROBABILITY that the individual may be exposed to significant harm,

OR

There is a LOW PROBABILITY that the individual will cause significant harm to another person.

EXAMPLES

  1. A 15-year old young person who is preparing for independent living but still requires significant support.
  2. A 15-year old young person, who regular goes missing, who has no specific identified needs above those of the average person of their age.
  3. A 13-year old young person, who is looked after because mother could not cope with him when he was six.  He regularly goes missing but in the past has always gone back to a relatives address and everything suggests he has done the same on this occasion.

Appendix D

Police Powers

  1. Under the Children Act 1989, when there is reasonable cause to believe that the child/ young person could otherwise be likely to suffer significant harm, police can take the child/ young person into Police Protection and remove the child/ young person to a place of safety.  Suitable accommodation could include the home from which the child/ young person originally went missing. The police have an implied power to use reasonable force to take a child into Police Protection 
  2. There may be occasions when a child/ young person is found in a location that may be considered unsuitable, but where there would not be legal grounds for taking the child/ young person into Police Protection. In such cases, the police and accountable manager from the responsible Social Services authority will need to liaise to discuss what steps may be necessary to safeguard the child/ young persons welfare. In these circumstances, the police have no power to use reasonable force
  3. Any child/ young person unlawfully at large from a secure unit or penal establishment may be arrested and returned by the police
  4. If the child/ young person is on remand without conditions, the police should return the child/ young person to the designated placement.  If they are on remand with conditions (e.g. a curfew), they should be detained and brought before a court

Appendix E

Copy of National Reporting Form

"Misper 1 Missing from Home Report External" - to follow.

End