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4.1 Pan-Greater Manchester Protocol on Missing Children and Young People

Contents

Caption: Table containing contents list
   
Introduction
  i. Introduction and Background
  ii. References
  iii. Scope
  iv. Principles
  v. Definitions
1. Missing From Care (MFC)
2. Missing From Home (MFH)
3. Missing From Non Residential Settings School / Hospital etc
4. Specific Circumstances

Appendices
  i. Flowchart for ABSENT Incidents
  ii. Call Taker Questions for Defining Missing/Absent Incidents
  A Abbreviations and Contacts
  B Formal Notification of Placing LAC Out of Area Form
  C Example MFC Risk Assessment and Action Plan
  D Police Safe and Well Check Questions
  E Example Return Interview Form - from care provider


Introduction


i. Introduction and Background

In a 12 month period between July 09 and June 10, GMP received in excess of 20,500 reports of missing persons. Approximately 60% of these reports relate to children and young people aged 17 years or under.

Research indicates that around 100,000 young people under the age of 16 run away overnight each year in England (Still Running II, Children's Society 2005). The same research indicated that over a quarter of these young runaways first run away before the age of 13 and one in ten before age 11. This does not take into account those who go missing for shorter periods of time or during the day.

A review of protocol was prompted by recommendations in two separate reports; one generated by Greater Manchester Police's (GMP) Reducing Bureaucracy 90 Day Plan, and the other originating from the Greater Manchester Police Authority (GMPA) Scrutiny committee, both calling for areas of the "Missing Person" procedures to be standardised across the whole Greater Manchester (GM) area.

As part of ongoing changes, at the end of 2010 and in early 2011 GMP engaged in consultation processes with partner agencies and with young people currently in or with previous experience of the "care" environment as well as others living in parental homes.

Furthermore, following the introduction of National Indicator 71 in April 2009, changes have been required by the DCSF document "Statutory guidance on children who run away and go missing from home and care" dated July 09 (Ref A). This is issued under Section 7 of the Local Authority Social Services Act 1970 which requires local authorities to act in accordance with that document except in exceptional circumstances.

These procedures are designed to deliver a co-ordinated, standardised and effective response to reports of people going missing, with Police working in partnership with partner agencies and bodies.


ii. References

This document should be read in conjunction with local Safeguarding Policies and Procedures, particularly around Trafficking and Exploitation.

  1. Statutory Guidance on Children who Run Away or Go Missing from Home or Care, DCSF, 2009;
  2. Protocol for Children and Young People Missing from Home and Care, MSCB, March 2008;
  3. Working Together to safeguard and promote the welfare of children, DCSF, 2010;
  4. Pan-London Protocol for Young People Missing from Home and Care, LCPC, 2006;
  5. MFH Policy and Guidance for the Management of Missing Person Investigations, GMP, 2011;
  6. HM Government Multi-Agency Practice Guidelines:  Female Genital Mutilation, 2011;
  7. Children's Homes: National Minimum Standards, DfE, 2011;
  8. Missing Children and Adults, A Cross Government Strategy, Home Office, 2011;
  9. Tackling Child Sexual Exploitation: Action Plan, DfE, 2011.


iii. Scope

These procedures relate to:

  • Children and young people "looked after" by any Greater Manchester Local Authority, placed in either Local Authority or privately run Children's Homes within the GM Boundaries;
  • Children and young people placed in foster care within the Greater Manchester conurbation;
  • Children and young people "looked after" by councils outside of the Greater Manchester conurbations, placed at care addresses within the GM area;
  • Children and young people missing from their home address or other non-care related address, i.e. school, hospital etc.


iv. Principles

The following principles should be adopted by all agencies involved with missing people:

  1. Going missing is a dangerous activity and can have short and long term consequences. All individuals have a responsibility to report a child if they are missing. If a parent or carer does not report a child missing within a reasonable timescale when their whereabouts are unknown, this should be seen as displaying compromised parenting and Social Care policies must be followed;
  2. It is imperative that services working with children are able to and actively do identify those who are commencing a pattern of running behaviour and provide the appropriate interventions at the earliest opportunity to prevent future incidents which may place them, or others, at risk;
  3. The Children's Society through its research has identified the following risk factors that can precede a missing incident in a young person:
    • Arguments and conflicts at home including being told/forced to leave;
    • Poor family relationships including specific step-parent issues;
    • Physical and emotional abuse including Domestic Abuse;
    • Personal wellbeing - feeling depressed, needing someone to talk to;
    • Problems with alcohol and/or drugs;
    • Problems at school.
  4. Many children will exhibit normal adolescent behaviour in testing boundaries and it is not helpful to consider every incident of lateness or absence for all people as high risk. However, some will need to be treated as missing immediately due to their vulnerability. This protocol is based upon the principles of sound individual risk assessment, by carers and agency professionals and by GMP in classifying and responding to the incident;
  5. Accurate and up-to-date information from the person's past and present is key to appropriate risk assessment and response to missing, and other, incidents. Information from previous assessments, immediate welfare checks or Full Return Interviews should be fed back to Police and carers so this picture of behaviour and experiences can be developed;
  6. The Police will only become involved after the Reporting Individual has completed all reasonable checks to locate the individual. Missing children and young people remain the responsibility of the person / organisation which has legal Parental Responsibility (PR) for the child, even after they have been reported missing;
  7. The primary function of the Police is to investigate the disappearance and attempt to locate the young person prior to any harm befalling them or the general public. Police response and associated actions will be based on a police risk assessment of the incident and knowledge of the individual(s) concerned, which will utilise information from partners' and those who know the person;
  8. Children and Young People have been consulted during the development of this policy and their views must continue to be taken into account when responding to incidents. Any expectations put on young people through this policy should be discussed with them, as part of the care planning and review process and during other interventions for children not in care.


v. Definitions

Missing - Anyone whose whereabouts cannot be established and where the circumstances are out of character, or the context suggests the person may be the subject of crime or at risk of harm to themselves or another.

Absent - A person not at a place where they are expected or required to be but where carers or Police do not feel the need to start a full missing investigation at that stage. (Distinction introduced across GMP August 2012 - see Appendix i - Flowchart for ABSENT Incidents and Appendix ii - Call Taker Questions for Defining Missing/Absent Incidents for details).

Looked After - A child is "looked after" by a local authority if he/she is "in care" by reason of a court order, or if he/she  is provided with accommodation for more than 24 hours by agreement with her/his parents or with the child if he/she is aged 16 or more.

Accommodated - A child is accommodated if he/she is looked after by the Local Authority with the voluntary agreement of his/her parents, or with the child if he/she is over 16 years old.

Child - A young person under the age of eighteen years.

Missing Person Safeguarding Officer - An officer of GMP's Public Protection Division with specific interest for High and Medium risk missing person investigations across 4 of GMP's 12 territorial divisions.


1. Missing From Care (MFC)

Caption: Table containing Secion 1 - Missing From Care (MFC)
   

1.1.

The Care Plan

1.1.1. Prior to each accommodation arrangement for a Looked After Child, the social worker must consider within the care planning process all potential risks to the child including an assessment of the potential for them to go missing. The child and their parent/carer should be involved in the planning process and it should be related to that individual's needs, previous history and views. Missing episodes prior to the child becoming "looked after" must to be taken into account. 
1.1.2

Care should be taken when establishing where the child or young person should be accommodated:

  • Is the home "right" for that individual?
  • Will that individual fit into the existing structure of that home? 
  • How will a new resident interact with existing residents?
  • Are there external factors in the area of the residence which need to be taken into account when considering the placement?
1.1.3 When placing outside the placing (home) Authority, it is even more critical to properly assess the above issues. If there is a need to discuss specific risks or issues, the placing Authority should speak to the Safeguarding Unit in the Authority in which the child would live. When a placement is confirmed, the Placing Authority with Parental Responsibility must always follow the Formal Notification Process to inform the new Authority that a Looked After Child is being placed in their area (see form template at Appendix B - Formal Notification of Placing LAC Out of Area Form and contacts at Appendix A - Abbreviations and Contacts - contact Local Safeguarding Unit or Social Care if unsure of local LAC Notification contact).
1.1.4

The initial placement plan is an opportunity for the care provider and the social worker to discuss with the young person issues around going missing and absent and to explain the rules and responsibilities of all involved. It is also the opportunity to provide the carer with details of the young person and their family and history. This will help carers to understand any risks to the young person or themselves if they go missing and it may help to locate the young person. The Placement Plan should cover:

  • Trigger points for absence or missing episodes;
  • Risks to themselves, the public and/or the carer before, during or after a missing episode including when being picked up;
  • What steps can be taken to reduce the likelihood of the child going missing and coming to any harm or harming others;
  • Friends and family details and contact numbers as well as addresses commonly found at;
  • Expectations of the young person:
    • i.e. curfew; when and how to make contact; consequences of lateness etc.
  • Expectations of the care provider:
    • i.e. at which point the Police will be notified, what processes will follow an incident, who will collect a child if they are missing, details of who conducts immediate assessments on their return and arrangements for full return interviews etc.
  • Agreements around rules for staying overnight at friend's houses or going on trips. This is frequently cited as a major issue by young people who wish to behave like their peers who are not looked after. As stated in Local Authority Circular (2004), "decisions on overnight stays should normally be delegated to foster carers and residential care staff. Arrangements for such decisions should be written into the Placement Plan or equivalent". There is no statutory duty for DBS checks to be carried out on adults in a private household where a child/young person may stay overnight and so restrictions should only be placed on Looked After Children if there are exceptional reasons.
1.1.5 All these elements should be reviewed during the care planning process. An example risk assessment and action plan which should form part of placement planning is provided at Appendix C - Example MFC Risk Assessment and Action Plan.
1.1.6 The Care Providers together with the Local Authorities and all other relevant agencies should operate a system of intervention strategies designed to reduce the possibility of the child or young person going missing again, as stated under Standard 5 of the Children's Homes: National Minimum Standards 2011. These must relate to the individual young person and take into account their experiences and needs.


1.2


Corporate Parenting Responsibilities

1.2.1 When a child or young person is reported 'Missing', the carer(s), Local Authority with Parental Responsibility (PR) and the police have joint responsibility for protecting the wellbeing of the individual. Whilst the police are the lead professionals for the investigation of 'Missing' people, any child who is "Looked After" by the Local Authority remains the responsibility of that Local Authority at all times.
1.2.2 Equally, the act of reporting a child or young person MISSING by staff at the care establishment or foster home does not absolve the carers from their 'duty of care' to the individual and of continued duty to do what a 'reasonable parent' would do.


1.3


Responsibilities of the Reporting Individual

1.3.1 Before contacting Police

When a child or young person is identified as not being at a location they are expected to be at, the reporting individual (care provider / foster carer / social worker etc) must take proactive steps to trace the child's whereabouts prior to contacting the police. Such steps would include:

  • Physical checks of the residence, including the child's bedroom and any other location the child may be hiding within the house / building;
  • Physical checks of any garden, garage, sheds, grounds and surrounding area(s);
  • Attempting to contact the missing person directly, via mobile phone, text, or social networking sites (i.e. twitter / facebook etc);
  • Contacting the missing person's family and friends;
  • Make reference to any risk assessments, placement plans or action plans that allow for some leeway with curfews for 'boundary testing'.
1.3.2 If the child is located through such enquiries, they should not be reported as missing to the police unless there are significant safety issues with the child being there. In such circumstances, the reporting individual should contact the police and request a "Concern for Welfare" address check.
1.3.3 Reporting to the Police
If the child / young person is not located, the reporting individual should contact Greater Manchester Police via 0161 872 5050 to report them as being away from their address.
1.3.4 It is the responsibility of the care provider to inform the family and social worker of a child being reported missing, in accordance with local arrangements. It is good practice for the care provider to record all incidents of absence in order to build a picture of behaviour.
1.3.5 It should be recognised that police powers to return an individual to a care address are limited unless they are on a care order or Police Protection is considered necessary. Children / young people must not be reported missing as a behaviour management tool. Police Protection must not be considered merely as a tool to return an individual.


1.4


Absent / Missing Distinction

  See also Appendix i - Flowchart for ABSENT Incidents and Appendix ii - Call Taker Questions for Defining Missing/Absent Incidents.
1.4.1 NPIA have piloted an approach nationally where some incidents are defined by Police as 'ABSENT' rather than 'MISSING' when a person is reported, based on information given at that time (and systems checks later) to suggest a full missing investigation is not yet necessary. ABSENT incidents are then dealt with differently to MISSING incidents, as below. In Greater Manchester, this was piloted in Stockport, Tameside and Oldham from September 2011 - March 2012 and rolled out August 2012.
1.4.2 When the reporting individual contacts the police, the call taker will ask a series of questions (see Appendix 2: Call Taker Questions for Defining Missing/Absent Incidents) regarding the history of the individual and any particular risks to or posed by them. For Looked After children, staff should have the care and placement plan to hand where practicably possible. The responses to these questions will be recorded by the call-taker on the FWIN record (Force Wide Incident Number), to enable review in future if necessary.
1.4.3 These enquiries will enable an individual risk assessment to be conducted by the call taker, who will then decide whether the individual is MISSING or ABSENT on a case-by-case basis. Note that all children aged 12 and under will automatically be classified as 'Missing' rather than 'Absent'. Children with learning disabilities should be considered in relation to their level of functioning, not their chronological age.
1.4.4 Note that call takers will not have access to other GMP systems to check details of the individual. However, once classified as ABSENT the Operational Communication Branch Command and Control Team 3  will check the OPUS PPI / NPI systems  for indicators that the person should in fact be classified as MISSING due to risks posed to or by them.
1.4.5 If MISSING, an officer will be allocated and missing person procedures will be implemented. 
1.4.6

If ABSENT, the call taker will agree with the caller a delay to the enquiry for a case specific and non-generic period of time and:

  • The reporting individual will be asked to re-call the police should the young person return or be located or if further information is received which may influence the risk assessment. The reporting individual should continue to take all steps to identify the location of the young person as described above;
  • The Police will make a record to call back the reporting individual at the end of the agreed time period if nothing has been heard back.
1.4.7 Periods of ABSENT may then be extended or upgraded to MISSING depending upon the individual circumstances, any further information received or the period of time the individual has been 'absent'. There is no maximum time that a person can be classified as 'absent' although all cases are reviewed regularly as described in 1.5.2, including by a response Inspector after 72 hours. It is unlikely that any ABSENT case will reach 72 hours without this being considered 'out of character' and the risk assessment being upgraded to MISSING.
1.4.8 If the caller is not happy with the classification, they will need to provide more information that would change the classification. If the caller or another professional wishes to escalate this, they should ask to speak to the Response Inspector who is on duty 24 hours a day. The Response Inspector will then review the case and feed back a final decision.
1.4.9 If an 'Absent' young person is located, it is the responsibility of the parents/carers to return them to a safe place, unless Police Protection is deemed necessary (see Section 1.6.2, Police Protection Powers). The parents/carers must still inform Police when individuals who have been reported to them but classified as 'Absent', return.
1.4.10 No visit or Safe and Well Check will be conducted by Police for young people classified as 'Absent' but at the point of reporting a return, parents/carers will be asked if there is anything the Police need to know or act on, in terms of the person's behaviour or welfare (see Appendix ii - Call Taker Questions for Defining Missing/Absent Incidents).
1.4.11 Monitoring:
The Neighbourhood Police Team will be informed of all addresses that have generated absent reports in the last 30 days, and specific attention will need to be given to addresses that have generated 5 or more reports.  
1.4.12 If a single individual generates 5 reports in 30 days, or a single location generates seven reports in a 30 day period then the Neighbourhood Policing Team will contact them to investigate and provide support where possible. 
1.4.13 As with any incident, if at any point, including on return, the call-taker receives information which concerns them about the child's safety or wellbeing, this will be passed on to the PPIU to manage through existing child protection arrangements.
1.4.14 Other Considerations and Implications for SCPs and practitioners:
Placing LAs need to establish what arrangements are in place between them and the care or foster home for when a child is classified by Police as 'absent', rather than 'missing'. This includes whether the LA (e.g. Social Worker) wishes to be informed by the carer about each incident or only for 'missing' incidents. They must also consider arrangements for immediate welfare checks on young people returning from 'Absent' periods, which should still be carried out by a member of staff even though the Police haven't been involved. See Section 1.7, Safe and Well Checks (SWC).
1.4.15 All professionals should be aware of the signs which might indicate that a series of 'Absent' incidents is placing a child at risk of harm or is the cause of another issue which needs to be dealt with and relate these to the Police and carers/ Social Worker so this can be addressed before another incident takes place and during any further incidents.


1.5


Risk Assessment / Investigation

1.5.1

The Police investigation will be carried out in accordance with the GMP Policy and Guidance for the Management of Missing Person Investigations, revised July 2011, involving professionals and family/friends as relevant. The investigation and all resulting actions will be proportionate to the risk level accorded to the enquiry. Whilst partner agencies may have their own risk assessments, the GMP investigation will be proportionate to the GMP risk assessment allocated as below, which may be different.

  High The risk posed is immediate and there are substantial grounds for believing that the subject is in danger through their own vulnerability, or may have been a victim of a serious crime; or the risk posed is immediate and there are substantial grounds for believing that the public is in danger.
  Medium The risk posed is likely to place the subject in danger, or they are a threat to themselves or others. 
  Low There is no apparent risk of danger to either the subject or the public.
1.5.2

Risk Assessment is a dynamic process which is open to regular review from GMP as follows:

  • Twice during each shift by the Divisional Supervisor;
  • After 48 hours by CID;
  • After 72 hours by Chief Inspector - Operations;
  • After 7 days by Divisional Superintendent and referred to Missing Persons Section;
  • Every 28 days by Chief Inspector - Operations;
  • After 6 months by Divisional Superintendent.
1.5.3 Once a case is generated on the system as "MISSING", an Initial Investigating Officer will be appointed. The initial investigating officer and all subsequent officers will carry out a thorough investigation in line with the latest published GMP Policy on "Missing Persons".
1.5.4 If a missing person is suspected of being subject to immigration control, UK Visas and Immigration will be contacted to see what information is available and to notify them of a missing client. See Appendix A - Abbreviations and Contacts.
1.5.5 Publicity of "Looked After" Children.
Before any final decision is made, the Police will discuss any publicity of a child or young person missing from care with the child's care provider and social worker, who should involve their Senior Management as appropriate. This will be done in sufficient time for Children's Services to notify the child's parents / next of kin. Care providers or the LA with PR should have on file a recent photograph of each child that can be used in these circumstances.


1.6


Location and Return of the 'missing' person

1.6.1 Statutory guidance (Ref A) states that when a missing child is located, it is the responsibility of the residential staff or foster carers to collect the child, unless the circumstances pose a risk to them. In such circumstances only, the Police may be requested to assist in returning the individual but it must be recognised that the Police only have powers to return a young person to care if they are subject to a Care Order or circumstances are such that Police Protection is required, as below. (See also Section 1.6.6, Abduction and Harbourers Legislation). Any known risks from the young person or their known associates should be detailed in the care plan.
1.6.2 Police Protection Powers
Where the locating officer has reasonable cause to believe that a child would otherwise be likely to suffer Significant Harm, he or she may take the child into police protection (Sect 46 Children Act 1989) and return them to the home address / place of safety / Local Authority accommodation or a place chosen by the Local Authority. A Police Station should not be considered an appropriate place of safety. Police Protection will not be used as a tool to simply facilitate the return an individual  
1.6.3

Where no such risks are involved but the logistics of collecting and returning the individual make it difficult or impossible for the care provider:

  • Local Authority Care Homes and Foster Carers will need to make use of the Emergency Duty Team/Service (EDT) to assist in collecting the individual.
  • Private Providers must have their own arrangements to assist them with the logistics of returning a missing young person. This should be identified by the Authority with Parental Responsibility during the placement planning stage.
1.6.4

Children and Young People Subject to a Care Order

When a young person is in the care of a Local Authority and has subsequently absconded, they may be returned to the address they are committed to under Section 32(1a) and 32(1b) of the Children and Young Peoples Act 1969. If any information is divulged by the individual that suggests they are not safe if they were returned home this will be discussed with the EDT of the Local Authority with PR to establish a course of action and a place of safety. Officers will also consider markers on a home address that indicate CP concerns or history.

  • If physically located by the police, they are to be returned by the police or taken to a place of safety. Once returned, the on-going report can be closed.
  • If physically located by another statutory agency (Social Worker/ EDT/ Care provider), the locating agency must return the individual to a place of safety and the police must be informed they have been found and the report closed when they are back in a place of safety.
  • If physically located by family / friends, the care providers are to advise them that the missing person should be returned to the care provider at the earliest opportunity and assist in doing this if necessary. The police must be informed that they have been found and when they have returned.
  • If located by other means (i.e. telephone), the LA with Parental Responsibility / Care Providers are to make provision for the collection and return of the missing person as in Sections 1.6.2 and 1.6.3.
1.6.5

Children and Young People Looked After under Section 20 (Voluntary Care)

  • Missing person located by the Police:
    When a young person is reported from a voluntary care placement, the Police have NO power to return the child without consent. When the police locate such an individual their first consideration will be any concerns for their welfare and/or the circumstances (or location) at which they have been found. Where necessary attending officers may consider the use of Police Protection powers. If the locating officer(s) have no concerns for the welfare of the individual, they must:
    • Conduct a Safe and Well Check (SWC);
    • Notify the care provider of the individual's location;
    • Ensuring the individual is safe, advise them on how to return home, where necessary, and otherwise leave the individual at the place he/she was located;
    • Close the report.

If the Police Officer considers no concerns to be evident and the care provider allows the individual to remain where located, this decision is to be recorded in both the officer's Pocket Note Book (PNB) and on the Safe and Well Check screen on the OPUS system when completed by the officer.

  • Located by any other agency or individual
    If the missing person is located by an agency or individual other than an agent of the Police, the following action should be taken:
    • Immediately notify the care provider of where the individual has been located;
    • Provide details of any concerns to the care provider;
    • Agree with the care provider an immediate action plan to safeguard the young person until such time as the local authority / care provider can arrange for the individual to be collected;
    • Subsequently the LA / Care Provider is to notify the police of the individual's location and any concerns they may have in order that the police can consider use of Police Protection powers and consider completing a Safe and Well Check (SWC).
  • Individual returns to the care placement of their own accord.
    If the missing young person returns to the care placement of their own accord the care providers must notify the police immediately so that a decision can be made regarding whether SWCs should be conducted and closing the on-going report.
1.6.6

Abduction / Harbourer's Legislation
Under Section 2 Child Abduction Act 1984, the taking or detaining of a person under 16 without the consent of a person who is lawfully responsible for the child is an arrestable offence. Offender(s) can be arrested and prosecuted for this offence without a complaint from the victim. Evidence can be obtained from persons having lawful control of the victim and a formal interview with the offender.

  • Child Abduction Warning Notice
    This is an official warning for an offence under Section 2 Child Abduction Act 1984. Chief Constables Order 2003/04, item 2, outlines the procedures for warning offenders who it is suspected are guilty of the above offence. This is an alternative to arrest and prosecution but can be cited in any subsequent prosecution. There is evidence of these notices being used successfully as deterrents against inappropriate relationships or contact with young people who regularly abscond.  
1.6.7

Recovery Orders
Recovery Orders may be sought in respect of children who are either in care, subject to an emergency protection order or in Police Protection, under Section 50 of the Children Act, 1989. They can be applied for in situations where a child is somewhere they should not be and there is deemed to be the need for Police to gain entry into accommodation and effect the child's removal by force. The process is as follows:

  1. The LA Children's Social Care (CSC) with Parental Responsibility (PR) should complete a risk assessment and take immediate advice from their Legal Services team. The LA will then liaise with the Divisional Duty Inspector to consider whether the child's return can be effected without a Section 50 order;
  2. If all other options are discounted, CSC will ask their Legal Services Department to apply to Court for a Recovery Order and inform Police when the application is to be made. CSC will specify whether the Court needs to authorise the Police to enter specified premises;
  3. Once the Order has been made, the Police must be informed by phone and a copy of the Order sent to the Divisional Duty Inspector. A strategy will then be agreed as to how to best execute the order, involving line managers if necessary;
  4. The agreed strategy will then be executed. Police will transport the child to a Police Station if necessary. CSC will be responsible for organising the required transportation of the child back to the placement. Ideally the allocated social worker should accompany the child in order to minimise further distress and anxiety;
  5. A joint debrief will then take place and consider any learning points.
1.6.8 Criminality of Others When a missing person is located by any agency, but particularly by the Police, steps should be taken to ensure that all aspects of criminality are considered. On too many occasions a missing child has been located in the company of inappropriate adults and whilst the missing person is dealt with as a priority, little or no action or investigation takes place with regard to the adults concerned with the child's activities whilst missing. Consideration should be given to possible criminal activity to which the missing child is victim, whether they consider themselves as such or not. See Section 1.6.6, Abduction / Harbourer's Legislation regarding Abduction and/or "Harbourer's" Legislation. See also Section 4, Specific Circumstances.  


1.7


Safe and Well Checks (SWC)

1.7.1 The revised GMP Policy for Missing Persons (Ref E) states that SWCs should be completed within 24hrs of the person being located, where they were categorised as MISSING. Where one is not to be conducted by the Police, an immediate assessment of welfare must be conducted by a nominated professional (see below). The results of this must be reported back to the Police over the phone. The Police will chase up information from these assessments if it is not provided. The Sergeant on duty must sign off with a rationale where there was no SWC or equivalent conducted.  
1.7.2

It is recognised that the Police are not always the best agency to conduct SWC, particularly for Looked After Children and Young People, and accordingly GMP's criteria for cases requiring a SWC are as follows:

  • All missing children and young people resident in Children's Homes / Foster Care who:
    • Have a GMP risk assessment of MEDIUM or HIGH;
    • Are known to specialist Child Protection Professionals or Units;
    • Are subject of ongoing CSE investigations;
    • Are known or believed to be at risk of / experiencing:
      • CSE;
      • Trafficking;
      • Physical / Mental / Sexual or Emotional Abuse;
      • Bullying;
      • Neglect;
      • Disability / Medical Condition / Need of Medication.
  • All other missing persons aged under 18 years (i.e. all those missing from parental homes);
  • All Adults, regardless of where they are missing from.
1.7.3 In cases where a Looked After Child is not offered a Safe and Well Check by Police it is the responsibility of the Local Authority with Parental Responsibility to ensure an immediate assessment is conducted to establish the wellbeing, or not, of the child on their return. Each Local Authority should have clear protocols with the Care Provider outlining who will undertake this in each case, including for children for whom they have Parental Responsibility but who are placed outside their area.
1.7.4 Young people who are not offered a SWC by the Police should be asked if they wish to speak to the Police or another agency staff member to discuss immediate concerns, prior to a full Return Interview.
1.7.5

The purpose of an immediate assessment of welfare is outlined below. (See Appendix D - Police Safe and Well Check Questions for GMP SWC example):

  • Check for any indications that the person has suffered - or is suffering - harm and consider a referral to the Social Worker in the LA with Parental Responsibility;
  • Identify where they have been;
  • Identify whom they have been with;
  • Give them an opportunity to disclose any offending by, or against, them;
  • Encourage the young person to discuss with their carers arranging a full return interview with an independent person, where this is available;
  • Provide basic information about support services, including Childline, particularly in areas where a full return interview is not available or is unlikely to be taken up, (See also Section 2.8, Return Interview - Looked After Children).
1.7.6

This immediate assessment of welfare should:

  • Consider and record appearance and demeanour as well as verbal information;
  • Be recorded on the Police OPUS record;
  • Be conducted by someone who the young person has been informed about, preferably during placement planning. It is recognised that young people cannot always choose who conducts these immediate assessments but they should be aware of the processes in that home for doing them.
1.7.7 The young person must be informed about who else will receive the information gathered from a SWC or equivalent and why and they must then sign the assessment record to show they agree to the information recorded.
1.7.8 Placing Authorities should clarify how care providers will record absence including 'missing' episodes to develop a picture of behaviour for review during care planning processes.


1.8


Return Interview - Looked After Children

1.8.1 Interviewer
This is a more in-depth interview and is best carried out by an independent person who is appropriately trained and able to follow-up any actions that emerge. Many young people need to build up trust with somebody before they will discuss in depth the reasons why they decided to run away so it is good practice to identify with the young person who they wish to conduct this return interview, preferably before any incident occurs. This could be a teacher, family member or other agency professional. Every effort should be made to have that person conduct the interview, even if it has to wait longer than usual, if this is agreed by the young person. Particular attention should be paid if a child is suspected of being involved in or at risk of trafficking or exploitation as they may be very fearful of giving information.
1.8.2 It is the responsibility of the LA with Parental Responsibility to establish what provision they will make for Looked After Children to have Full Return Interviews if required, including those out of Authority. They may be done through the Care Provider's independent arrangements if deemed satisfactory. Arrangements should be made clear to the SCP and local Police.
1.8.3 If there is no provision then this should be clear to the SCP including the Police so they can consider how young people can be adequately safeguarded and prevented from taking part in risky behaviours. As a minimum, if no other full interview has taken place, the Social Worker must visit the child as soon as possible and care providers should remind young people they can speak to Social Care via telephone at any time or to Childline in confidence if they prefer.
1.8.4 If a full independent return interview has been conducted, which does not highlight urgent issues, the SW should discuss with the young person and the carer whether it is OK to wait and discuss the incident(s) at the next scheduled Review Meeting rather than make a specific visit at this time. The SW must take into account their knowledge of the child and placement and make a case-by-case decision.
1.8.5

Aims - (See Appendix E - Example Return Interview Form - from care provider for example return interview form) The interview and actions that follow from it should:

  • Identify and deal with any harm the child has suffered, whether or not this was discussed in their immediate welfare assessment (his/her medical condition should be discussed and any need for medical attention assessed);
  • Understand and try to address the reasons why the child or young person went missing;
  • Discuss and work on ways to prevent it happening again.
1.8.6 When

It is good practice that this interview takes place within 72 hours of the young person being located or returning after being missing. If this cannot happen the young person should be informed of the delay and reasons for it and they should be asked if they wish to speak to another professional if at possible. There is no point forcing a young person to go through another interview when they are not ready or with an inappropriate person however the care providers and social workers should particularly explain and encourage a full Return Interview when a child:

  • Has been missing for over 24 hours;
  • Has been missing on three or more occasions in a calendar month;
  • Has engaged (or is believed to have engaged) in criminal activities during their absence;
  • Has been hurt or harmed whilst they have been missing (or this is believed to have been the case);
  • Has known mental health issues;
  • Is at known risk of sexual exploitation or trafficking; and/or
  • Has contact with persons posing risk to children.
1.8.7 Consent
Prior to any interview conducted with a young person the interviewer should inform the young person who this information will be shared with, when and why and gain consent before sharing. If they are unwilling to speak to anyone at all for fear of confidentiality issues they should be encouraged to call Childline on 0800 1111.  
1.8.8 It is crucial that any information gained through this interview, whether conducted by an LA or Independent Service, teacher or wider family member, is fed back to Police and to any intervention meetings so that a picture is built up and any issues can be dealt with. This should only be done if consent is given or if the information is critical to safeguard the person from harm.


1.9


Referrals (Children / Young People in Care)

1.9.1 Carers have a corporate responsibility to ensure the well-being of all children and young people in their care, which includes making notifications of missing incidents to the Local Authority which has Parental Responsibility, as per agreed local arrangements.
1.9.2 Greater Manchester Police will also make contact with Social Care in the Local Authority with parental responsibility for any Looked After Child who has been reported and classified as 'Missing' when the child meets one or more of the criteria below. These will be treated as contacts or provision of information by Social Care unless they are urgent referrals for child protection. Intervention meetings will be held involving social care following certain trigger points, as detailed in Section 1.10, Intervention Meetings (Children / Young People in Care)
1.9.3 Police can establish which LA has Parental Responsibility (or whether the child is Section 20 accommodated, in which case the parents still have parental responsibility) by consulting with the young person and/or the care provider. If in doubt, or there are concerns in speaking to the care home, GMP will speak initially to the Duty Team in the area where the child is currently residing.
1.9.4

CYP Referral Criteria:
Child or Young Person who is:

  • At serious risk to themselves or from others due to their vulnerability;
  • Known to specialist Child Protection Units or Professionals where a referral is required each time they are missing (such as the Protect or Messenger team).
    • Known or believed to be at risk from/due to:
    • Child Sexual Exploitation;
    • Trafficking;
    • Physical / Mental / Sexual / Emotional abuse (including Bullying);
    • Neglect;
    • Parenting Issues;
    • Domestic Abuse - as victim or witness;
    • Forced Marriage / Honour Based Violence - as victim or witness;
    • Disability.


1.10


Intervention Meetings (Children / Young People in Care)

1.10.1 The SCP should regularly review and identify what services and interventions are available to reduce the likelihood of a child repeatedly going missing. As described below, intervention meetings should take place in the event of repeat episodes of 'missing' of any child placed in the LA area, even if 'looked after' by another LA. It should be clear who calls these meetings and how. They should have an identified purpose and be attended by members from all agencies with contact with the child or who may be able to offer support. For children from out of the area, their Social Worker and/or a placement manager from the home authority must attend. It is the Chair's responsibility to ensure the meetings are recorded effectively. 
1.10.2 The Missing Person Safeguarding Officer for the sub-region should be informed of the request for Police attendance at the meeting and this will be reviewed on a case by case basis depending on concerns raised. Wherever possible GMP will send a representative. In some high risk cases, the sub-regional Missing Person Safeguarding Officer may attend.
1.10.3 A routine check should be done with all services who might be working with the child to ensure representatives are invited. In areas with a specialist team for children at risk of CSE or trafficking, a check must be done to see if they are known to that Team and if so both must identify how to work effectively together. This would include the Protect Team in Manchester, Messenger Team in Oldham, Shield Team in Wigan etc. and UK Visas and Immigration - see Appendix A - Abbreviations and Contacts for UKVI contact.
1.10.4 At each stage of intervention any feedback from the child through return interviews etc needs to be available to be considered, if they have given consent (or if the information is crucial to securing their safety from harm). Following any intervention for LAC the care plan should be reviewed and agreed, particularly around triggers, reduction strategies, curfews and consequences for the young person.
1.10.5 If a meeting is to be held to discuss each child, the meeting should be held within a week of the trigger points identified. An alternative example of effective practice is to conduct 'MARAC-style' meetings, to look at a series of cases which have reached these trigger points in one sitting, with the advantage of fewer meetings so more consistent and full agency attendance and the opportunity to discuss overarching patterns. In urgent or very high risk situations an interim meeting should be held sooner. (Contact Wigan SCP for details of their model of assessment and intervention using their internal Missing From Home (MFH) Service and monthly MOP meetings (Missing from home Operational group).
1.10.6

Trigger Points for Intervention meetings - for LAC:

  • Tier 1 - trigger points to be identified locally based on carer, young person and social worker judgement (typically after no more than 4 incidents a month or one 24 hour period).
    • Social Worker should Chair;
    • Attendees: Police representative, residential worker or foster carer and family placement worker and other professionals as relevant to the child / young person's needs e.g. school staff, school nurse, Child Support Team Worker,Youth Offending Team Worker, Connexions PA etc and any specialist Missing from Home/Care support services operating in that area;
    • The parents and child should be included wherever possible and appropriate and as a minimum their views should be sought and taken into account in discussing the issues and strategy. The Chair must ensure the outcome of the meeting is fed back to the young person and where appropriate their parents;
    • The purpose of the meetings is to identify any push/pull factors that need tackling, decide jointly on an action plan and identify any services that could provide support. Where appropriate the meeting should consider a referral to Social Care. In the case of 'pull factors' it may be necessary to target those in the community who harbour the missing person or exploit them with regards to crime, sex or drugs.
  • Tier 2 - When there are persistent concerns after Tier 1 meetings as agreed by Tier 1 meeting Chair and following any incident lasting more than 7 days.
    • Independent Reviewing Officer or nominated Senior Manager to Chair;
    • Attendees: Team manager from Children's Services, Police Divisional Supervisor, Children's Home manager/ family placement manager (as appropriate), representative from health and /or education;
    • Meetings at this level should only be required for a small number of children. In addition to seeking to reduce future missing episodes and reduce any apparent risks to the child, this meeting should also quality assure compliance with the protocol. The frequency of this level of meeting provides an indication of the effectiveness of earlier intervention meetings and return assessments and services;
    • It is recognised that there will be some children who go missing repeatedly within a short period of time where this level of intervention will immediately apply.
1.10.7 If the child/young person continues to be reported missing beyond this level the senior management team for Children's Services and Police should discuss how best to proceed.
1.10.8

Other risk factors demanding escalated and urgent interventions include:

  • Any case where the risks involved in even a single future missing episode is very high;
  • Cases where it has been identified that immediate action is necessary to ensure the wellbeing of the person. 


2. Missing From Home (MFH)

Caption: Table containing Secion 2 - Missing From Home (MFH)
   


2.1


Prevention and planning before the event

2.1.1 Safeguarding and promoting the welfare of children is a shared responsibility and depends upon joint working between agencies and professionals. The Common Assessment Framework (CAF) is key to assisting agencies who are working with children to identify and respond effectively to risk factors identified above (see iv. Principles - b) and going missing should be seriously considered as a possible outcome of these so appropriate support can be put in place to prevent and manage any potential incidents. 


2.2


Responsibilities of the Reporting Individual

2.2.1

Before contacting Police
When a person (regardless of age) is identified as not being at a location they are meant or are expected to be at, the reporting individual (parent/ family member/ friend/ other agency) must take proactive steps to trace the person's whereabouts prior to contacting the police. Such steps would include:

  • Physical checks of the person's residence or where they are meant to be, including any location the person may be hiding within the house / building;
  • Physical checks of any garden, garage, sheds, grounds and surrounding area(s);
  • Attempting to contact the missing person directly, via mobile phone, text, or social networking sites (i.e. twitter / facebook etc);
  • Contacting the missing individual's family and friends.
2.2.2 If the person is located through such enquiries, they should not be reported as missing to the police unless there are significant safety issues with the person being there. In such circumstances, the reporting individual should contact the police and request a "Concern for Welfare" address check.
2.2.3 Reporting to the Police
If the person is not located, the reporting individual should contact Greater Manchester Police via 0161 872 5050 to report them as being away from their address. 
2.2.4 It should be recognised that police powers to return an individual to any address are limited unless they are on a care order (see also Section 3, Missing From Non Residential Settings School / Hospital etc) or Police Protection is considered necessary. Young people must not be reported missing as a behaviour management tool. Police Protection must not be considered merely as a tool to return an individual.


2.3


Children and Families Subject to a Child Protection Plan

2.3.1

Registered Children whose whereabouts are unknown
If a child subject to a Protection Plan appears to be missing, as well as the usual reporting to GMP, the following urgent actions must be taken:

  • Urgent contact with GMP Public Protection Unit;
  • Immediately notify the key worker and the Register Custodian by telephone and confirm in writing as soon as possible;
  • Within 48 hours, or earlier if there are suspicious circumstances, key worker must initiate local inquires as follows:
    • All Core Group members;
    • Health staff (including GPs);
    • Education staff.
2.3.2

If these enquires prove unsuccessful the Police may make use of information as follows:

  • The local DWP office should be asked to search local and national records for information;
  • The Child Benefit Agency on 0845 302 1444, for any information they can supply;
  • UK Visas and Immigration can be contacted if it is suspected the child may be being taken out of the country without permission. Police have established procedures to obtain exit information from the UK Visas and Immigration National Border Targeting Centre (NBTC). This unit has access to electronic records of all passengers leaving the UK. In association with UK Visas and Immigration and Special Branch, arrangements could be put in place for the child and any accompanying persons to be potentially stopped at the airport/port. See Appendix A - Abbreviations and Contacts for contacts.
2.3.3 If the child(ren) has not been located as a result of these enquiries within seven days of the family going missing, the key worker must request an urgent Child Protection Review Conference. This should take place within two weeks unless the key worker and register Custodian agree to an extension for specified reasons. In any event, a Child Protection Review must be held within four weeks of the family going missing. This Review Conference will determine what further action should be taken to ensure the safety of the child and family. 
2.3.4 Consideration should also be made of any vulnerable adults within the family or any possibility that the family are running away from a threat due to Domestic Abuse or 'Honour-based violence' etc (see Section 4, Specific Circumstances). These elements should be shared by Social Care with the Police.


2.4


Absent / Missing Distinction

  Also see Appendix i - Flowchart for ABSENT Incidents and Appendix 2: Call Taker Questions for Defining Missing/Absent Incidents.
2.4.1 NPIA have developed a national approach where some incidents are defined by Police as 'ABSENT' rather than 'MISSING' when a person is reported, based on information given at that time (and systems checks later) to suggest a full missing investigation is not yet necessary. ABSENT incidents are then dealt with differently to MISSING incidents, as below. In Greater Manchester, this was piloted in Stockport, Tameside and Oldham from September 2011 - March 2012 and rolled out August 2012.
2.4.2 When the reporting individual contacts the police, the call taker will ask a series of questions (see Appendix 2: Call Taker Questions for Defining Missing/Absent Incidents) regarding the history of the individual and any particular risks to or posed by them. The responses to these questions will be recorded by the call-taker on the FWIN record (Force Wide Incident Number), to enable review in future if necessary.
2.4.3 These enquiries will enable an individual risk assessment to be conducted by the call taker, who will then decide whether the individual is MISSING or ABSENT on a case-by-case basis. Note that all children aged 12 and under will automatically be classified as 'Missing' rather than 'Absent'. Children with learning disabilities should be considered in relation to their level of functioning, not their chronological age.
2.4.4 Note that call takers will not have access to other GMP systems to check details of the individual. However, once classified as ABSENT the OCB Command and Control Team 3 will check the OPUS PPI / NPI systems for indicators that the person should in fact be classified as MISSING due to risks posed to or by them.
2.4.5 If MISSING, an officer will be allocated and missing person procedures will be implemented.
2.4.6

If ABSENT, the call taker will agree with the caller a delay to the enquiry for a case specific and non-generic period of time and:

  • The reporting individual will be asked to re-call the police should the young person return or be located or if further information is received which may influence the risk assessment. The reporting individual should continue to take all steps to identify the location of the young person as described above;
  • The Police will make a record to call back the reporting individual at the end of the agreed time period if nothing has been heard back.  
2.4.7 Periods of ABSENT may then be extended or upgraded to MISSING depending upon the individual circumstances, any further information received or the period of time the individual has been 'absent'. There is no maximum time that a person can be classified as 'absent' although all cases are reviewed regularly as described in Section 2.5.2, including by a response Inspector after 72 hours. It is unlikely that any ABSENT case will reach 72 hours without this being considered 'out of character' and the risk assessment being upgraded to MISSING.
2.4.8 If the caller is not happy with the classification, they will need to provide more information that would change the classification. If the caller or another professional wishes to escalate this, they should ask to speak to the Response Inspector who is on duty 24 hours a day. The Response Inspector will then review the case and feed back a final decision.
2.4.9 It is the responsibility of the parents/carers to return an Absent child to a safe place, unless Police Protection is deemed necessary (see Section 2.6.5, Police Protection Powers). The parents/carers must inform Police when individuals who have been reported to them but classified as 'Absent', return. 
2.4.10 No visit or Safe and Well Check will be conducted by Police for young people classified as 'Absent' but at the point of reporting a return, parents/carers will be asked if there is anything the Police need to know or act on, in terms of the person's behaviour or welfare (see Appendix 2: Call Taker Questions for Defining Missing/Absent Incidents).
2.4.11 Monitoring:
The Neighbourhood Police Team will be informed of all addresses that have generated absent reports in the last 30 days, and specific attention will need to be given to addresses that have generated 5 or more reports.
2.4.12 If a single individual generates 5 reports in 30 days, or a single location generates seven reports in a 30 day period then the Neighbourhood Policing Team will contact them to investigate and provide support where possible.
2.4.13 As with any incident, if at any point, including on return, the call-taker receives information which concerns them about the child's safety or wellbeing, this will be passed on to the PPIU to manage through existing child protection arrangements.
2.4.14 Other Considerations and Implications for SCPs and practitioners: Other than Neighbourhood Police Teams receiving information, as above, local agencies will not be made aware of the Absent behaviour of children from parental homes and they will not be visited by anyone. SCPs should therefore consider with local Police colleagues how to ensure signs and indicators of any safeguarding issues are picked up for those children and referred on as necessary.


2.5


Investigation

2.5.1

The Police investigation will be carried out in accordance with the GMP Policy and Guidance for the Management of Missing Person Investigations, revised July 2011. The investigation and all resulting actions will be proportionate to the risk level accorded to the enquiry. Whilst partner agencies may have their own risk assessments, the GMP investigation will be proportionate to the GMP risk assessment allocated as below, which may be different.

  High The risk posed is immediate and there are substantial grounds for believing that the subject is in danger through their own vulnerability, or may have been a victim of a serious crime; or the risk posed is immediate and there are substantial grounds for believing that the public is in danger.
  Medium The risk posed is likely to place the subject in danger, or they are a threat to themselves or others. 
  Low There is no apparent risk of danger to either the subject or the public.
2.5.2

Risk Assessment is a dynamic process which is open to regular review as follows:

  • Twice during each shift by the Divisional Supervisor;
  • After 48 hours by CID;
  • After 72 hours by Chief Inspector - Operations;
  • After 7 days by Divisional Superintendent and referred to Missing Persons Section;
  • Every 28 days by Chief Inspector - Operations;
  • After 6 months by Divisional Superintendent.
2.5.3 Once a case is generated on the system as "MISSING", an Initial Investigating Officer will be appointed. The initial investigating officer and all subsequent officers will carry out a thorough investigation in line with the latest published GMP Policy on "Missing Persons".
2.5.4 If a missing person is suspected of being subject to immigration control, UK Visas and Immigration will be contacted to see what information is available and to notify them of a missing client. See Appendix A - Abbreviations and Contacts.


2.6


Location and Return of the missing person

2.6.1

Location of the Individual If a 'missing' person is located by Police their first consideration will be any concerns for their welfare and/or the circumstances (or location) at which they have been found. Where necessary, attending officers may consider the use of Police Protection Powers, as below. If the locating officer(s) have no concerns for the welfare of the individual, they must:

  • Conduct a Safe and Well Check;
  • Notify the family or carer of the individual's location;
  • Ensuring the individual is safe, advise them on how to return home, where necessary, and otherwise leave the individual at the place he/she was located;
  • Close the report.
2.6.2 If a missing person is located by another agency or family member or returns of their own accord, the locating individual must notify the police of the individual's location and any concerns they may have in order that the police can consider use of Police Protection powers and consider completing a Safe and Well Check if they were 'missing'.
2.6.3 If the Police and locating agency consider no concerns to be evident and the family allows the individual to remain where located, this decision is to be recorded in both the officer's Pocket Note Book (PNB) and on the Safe and Well Check screen on the OPUS system when completed by the Officer.
2.6.4 Return of the Individual
Statutory guidance (Ref A) states that when a missing child is located, it is the responsibility of the parents/carers to collect the child, unless the circumstances pose a risk to them. In such circumstances only, the Police may be asked to assist in returning the individual but it must be recognised that the Police only have powers to return an individual who is not in care if circumstances are such that Police Protection is required. (See also Section 2.6.7, Abduction / Harbourer's Legislation).  
2.6.5 Police Protection Powers
Where the locating officer has reasonable cause to believe that a person would otherwise be likely to suffer Significant Harm, the Police may take the person into police protection and return them to their home address, a place of safety, Local Authority accommodation or a place chosen by the Local Authority. Police Protection will not be used as a tool to simply facilitate the return of an individual.
2.6.6 If any information is divulged by the individual when located that suggests they are not safe if they were returned home this will be discussed with the Emergency Duty Team/Service (EDT) of the Local Authority to establish a course of action and a place of safety, if necessary. Officers will also consider markers on an address that indicate Abuse or other concerns or history.
2.6.7

Abduction / Harbourer's Legislation
Under Section 2 Child Abduction Act 1984, the taking or detaining of a person under 16 without the consent of a person who is lawfully responsible for the child is an arrestable offence. Offender(s) can be arrested and prosecuted for this offence without a complaint from the victim. Evidence can be obtained from persons having lawful control of the victim and a formal interview with the offender.

  • Child Abduction Warning Notice
    This is an official warning for an offence under Section 2 Child Abduction Act 1984. Chief Constables Order 2003/04, item 2, outlines the procedures for warning offenders who it is suspected are guilty of the above offence. This is an alternative to arrest and prosecution but can be cited in any subsequent prosecution. There is evidence of these notices being used successfully as deterrents against inappropriate relationships or contact with young people who regularly abscond.
2.6.8 Criminality of Others
When a missing person is located by any agency, but particularly by the Police, steps should be taken to ensure that all aspects of criminality are considered. On too many occasions a missing child or vulnerable adult has been located in the company of inappropriate others and whilst the missing person is dealt with as a priority, little or no action or investigation takes place with regard to the adults concerned with the child's activities whilst missing. Consideration should be given to possible criminal activity to which the missing child is victim, whether they consider themselves as such or not. 


2.7


Safe and Well Checks (SWC)

2.7.1 The GMP Policy for Missing Persons (Ref E) states that SWCs should be completed within 24hrs of the person being located, where they were categorised as 'missing'. The Sergeant on duty must sign off with a rationale if there was no SWC conducted.
2.7.2

GMP's criteria for cases requiring a SWC are as follows:

  • Certain missing children and young people resident in Children's Homes / Foster Care as described in Section 1.7.2;
  • All missing persons aged under 18 years who do not reside in a Children's Home or Foster Care (i.e. all those missing from their usual parental/family address);
  • All Adults, regardless of where they are missing from.
2.7.3

The purpose of a SWC is outlined below (see Appendix D - Police Safe and Well Check Questions for GMP example):

  • Check for any indications that the person has suffered- or is suffering- harm and follow normal Child Protection Procedures if relevant, including consideration of a referral to Social Care for this young person and/or others in the household;
  • Identify where they have been;
  • Identify whom they have been with;
  • Give them an opportunity to disclose any offending by, or against, them;
  • Offer and encourage a full return interview with a relevant agency, in areas where this service is available;
  • Provide information about support services, including Childline, particularly in areas where a full return interview is not available or is unlikely to be taken up, (See also Section 2.8, Return Interview).
2.7.4

The SWC will:

  • Consider and record appearance and demeanour as well as verbal information;
  • Be recorded on the Police record on OPUS.  
2.7.5 The individual must be informed about who else will receive the information gathered from a SWC and why and they must then sign the assessment record to show they agree to the information recorded. If possible and appropriate the person should be talked to away from their parents/carers.


2.8


Return Interview

2.8.1 Interviewer
This is a more in-depth interview and is best carried out by an independent person who is appropriately trained and able to follow-up any actions that emerge. Many young people who run away or go missing need to build up trust with somebody before they will discuss in depth the reasons why they decided to run away so it is good practice to identify with the young person who they wish to conduct this return interview. This could be a teacher, family member or other agency professional. Every effort should be made to have that person conduct the interview, even if it has to wait longer than usual, if this is agreed by the young person. Particular attention should be paid if a child is suspected of being involved in or at risk of trafficking as they may be very fearful of giving information.
2.8.2 Each SCP should identify clearly who is available in their area to do these with young people so that Police can offer the service at the Safe and Well Check. It is also crucial that any information gained through this interview, whether conducted by an LA or Independent Service, teacher or wider family member, is fed back to Police and to any intervention meetings so that a picture is built up and any issues can be dealt with.
2.8.3 In areas where there is no service to provide these interviews, this should be made clear to the SCP including the Police so they can consider how young people can be adequately safeguarded and prevented from taking part in risky behaviours. This could include making a referral to schools or Parenting support teams. As a minimum, at the SWC young people should be offered the chance to speak to Social Care or encouraged to speak to Childline in confidence if they prefer. SCPs should also consider any information that can be left with a young person after an incident by the Police Officer conducting the SWC.
2.8.4

Aims - (See Appendix E - Example Return Interview Form - from care provider for example return interview form).

The interview and actions that follow from it should:

  • Identify and deal with any harm the child has suffered, whether or not this was discussed in their SWC;
  • Understand and try to address the reasons why the child or young person went missing;
  • Discuss and work on ways to prevent it happening again.
2.8.5

When
It is good practice that this interview takes place within 72 hours of the young person being located or returning after being missing. There is no point forcing a young person to go through another interview when they are not ready or with an inappropriate person however the Police or agency involved with the child should particularly explain and encourage a full Return Interview when a child:

  • has been missing for over 24 hours;
  • has been missing on three or more occasions in a calendar month;
  • has engaged (or is believed to have engaged) in criminal activities during their absence;
  • has been hurt or harmed whilst they have been missing (or this is believed to have been the case);
  • has known mental health issues;
  • is at known risk of sexual exploitation or trafficking; and/or
  • has contact with persons posing risk to children.  
2.8.6 Consent Prior to any interview conducted with a young person the interviewer should inform the young person who this information will be shared with, when and why and gain consent before sharing. If they are unwilling to speak to anyone at all for fear of confidentiality issues they should be encouraged to call Childline on 0800 1111.  


2.9


Referrals

2.9.1 A person, other than children defined as "Looked After", who meet one or more of the criteria at Section 2.9.3 below should be referred at the earliest opportunity to the Local Authority that has responsibility for their well-being.
2.9.2 SCPs in Greater Manchester should consider how they will respond to such referrals, many of which may not be urgent child protection referrals. Social Care should make checks with other professionals who may be involved with the child, such as a school, community health, Probation or YOT to identify any other risk factors. There is the chance to signpost the person to early intervention services. Intervention meetings for children and young people should be held involving social care following certain trigger points or concerns around behaviour, as detailed in Section 2.10, Intervention Meetings (Children / Young People not in care).
2.9.3

CYP Referral Criteria:
Child or Young Person who:

  • Is at serious risk to themselves or from others due to their vulnerability;
  • Is known to specialist Child Protection Units or Professionals where a referral is required each time they are reported missing (such as the Protect or Messenger team);
  • Has an allocated Social Worker;
  • Is known or believed to be at risk of harm from/due to:
    • Child Sexual Exploitation;
    • Trafficking;
    • Physical / Mental / Sexual / Emotional abuse (including Bullying);
    • Neglect;
    • Parenting Capacity issues;
    • Domestic Abuse - as victim or witness;
    • Forced Marriage / Honour Based Violence - as victim or witness; or
    • Disability.


2.10


Intervention Meetings (Children / Young People not in care)

2.10.1 The SCP should regularly review and identify what services and interventions are available to reduce the likelihood of a child repeatedly going missing. Intervention meetings should take place in the event of repeat episodes of 'missing' as outlined below and it should be clear who calls these meetings and how. They should have an identified purpose and be attended by members from all agencies with contact with the child or who may be able to offer support. It is the Chair's responsibility to ensure the meetings are recorded effectively.
2.10.2 The Missing Person Safeguarding Officer for the sub-region should be informed of the request for Police attendance at the meeting and this will be reviewed on a case by case basis depending on concerns raised. Wherever possible GMP will send a representative. In some high risk cases, the sub-regional MPSO may attend.
2.10.3 SCPs should consider what interventions can be utilised for repeat incidents of 'Absence'. This could include routes to refer to intervention meetings if concerns are raised.
2.10.4 A routine check should be done with all services who might be working with the child to ensure representatives are invited. In areas with a specialist operation that works with and identifies children at risk of CSE or trafficking, a check must be done to see if they are known to that Team and if so both must identify how to work effectively together. This would include the Protect Team in Manchester, Messenger Team in Oldham, Shield Team in Wigan and UK Visas and Immigration - see Appendix A - Abbreviations and Contacts for UKVI contact.
2.10.5 At each stage of intervention any feedback from the child through return interviews etc needs to be available to be considered, if they have given consent (or if the information is crucial to securing their safety from harm).
2.10.6 If a meeting is to be held to discuss each child, the meeting should be held within a week of the trigger points above. An alternative is to conduct 'MARAC-style' meetings, to look at a series of cases which have reached these trigger points in one sitting, with the advantage of fewer meetings so more consistent and full agency attendance and the opportunity to discuss overarching patterns. In urgent or very high risk situations an interim meeting should be held sooner. (Contact Wigan SCP for details of their model of assessment and intervention using MFH/C Service and monthly MOPs meetings).
2.10.7

Trigger Points for Intervention meetings:

  • Tier 1 - trigger points to be identified locally based on LA, young person and Police judgement (typically after no more than 4 incidents a month or one 24 hour period):
    • A Social Worker should Chair;
    • Attendees: Police representative if necessary and any professionals relevant to the child / young person's needs e.g. school staff, school nurse, Child Support Team Worker, Youth Offending Team Worker, Connexions PA etc and any specialist Missing from Home/Care support services operating in that area.
    • The parents and child should be included wherever possible and appropriate and as a minimum their views should be sought and taken into account in discussing the issues and strategy. The Chair must ensure the outcome of the meeting is fed back to the young person and, where appropriate, their parents.
    • The purpose of the meetings is to identify any push/pull factors that need tackling, decide jointly on an action plan and identify any services that could provide support. Where appropriate the meeting should consider a referral to Social Care. In the case of 'pull factors' it may be necessary to target those in the community who harbour the missing person or exploit them with regards to crime, sex or drugs.
  • Tier 2 - When there are persistent concerns after Tier 1 meetings as agreed by Tier 1 meeting Chair and following any incident lasting more than 7 days:
    • Independent Reviewing Officer or Senior Manager in Safeguarding Unit to Chair;
    • Attendees: Team manager from Children's Services, Police Divisional Supervisor, Children's Home manager/ family placement manager (as appropriate), representative from health and /or education;
    • Meetings at this level should only be required for a small number of children. In addition to seeking to reduce future missing episodes and reduce any apparent risks to the child, this meeting should also quality assure compliance with the protocol. The frequency of this level of meeting provides an indication of the effectiveness of earlier intervention meetings and return assessments and services;
    • It is recognised that there will be some children who go missing repeatedly within a short period of time where this level of intervention will immediately apply;
2.10.8 If the child/young person continues to be reported missing beyond this level the senior management team for Children's Services and Police should discuss how best to proceed and whether to escalate to more Senior Management in both or either agency.
2.10.9

Other risk factors demanding escalated and urgent interventions include:

  • Any case where the risks involved in even a single future missing episode is very high;
  • Cases where it has been identified that immediate action is necessary to ensure the wellbeing of the person.


3. Missing From Non Residential Settings School / Hospital etc

Caption: Table containing Secion 3 - Missing From Non Residential Settings School / Hospital etc
   

3.1

Missing From Acute Hospital (A&E / Medical)

3.1.1 When individuals are being reported missing from Acute Hospitals, either from an A&E Department or from a medical ward, staff at these venues must conduct a structured search of the premises prior to the police being called.
3.1.2

In all circumstances, staff must consider the following points before contacting the police:

  • What is the risk to the individual or what risk do they present to others?
  • In practical terms, what is known about the individual (A&E Specific)?
  • What are the ramifications of their condition worsening?
  • What actions do the hospital expect the police to take when the person is found?
3.1.3 Medical staff should be mindful that the Police have very few powers to return a person to a location without a valid reason such as a court order, if the criteria for s.136 of the Mental Health Act is met, if the Mental Capacity Act applies or if Police Protection Powers are deemed necessary to safeguard the individual from harm, in which case they can take them to a place of safety or A&E department.
3.1.4 If there is concern for a young person's safety or wellbeing, normal Child Protection Procedures should be followed, which could include making a referral to Social Care and / or discussion with the Designated Professional for the Organisation.


3.2


Missing from Mental Health settings

3.2.1 Non return from Section 17 MHA Leave:
When a Sectioned patient fails to return from a period of Section 17 leave, the reporting staff must attempt to contact the individual and secure their return to the unit prior to the police being called. If this is not possible, normal Missing From Home (MFH) procedures will be followed as per GMP's Missing Person police and Mental Health / Learning Disability Policy.
3.2.2 Disappeared prior to Mental Health Assessment:
When an individual disappears from the control of medical services prior to a Mental Health assessment being conducted, the incident should follow the model outlined in Section 3.1, Missing from Acute Hospital, missing from A&E. If a patient detained under s.136 MHA goes missing, the police should be notified to locate and return them. If the patient attended A&E department voluntarily or was removed there under the Mental Capacity Act, then health personnel should only contact the police if risks identified to them or others deem it necessary. An ambulance or the patient's GP or a CRISIS team should be considered to check on the person's welfare.
3.2.3 Missing Sectioned Patient:
A sectioned patient should be reported missing to the Police after mental health staff have exhausted their enquiries to locate them. At this point normal GMP MFH procedures will apply, and powers to return the individual to the mental health establishment will be contained within the section of the Mental Health Act under which they are being detained. Once the patient is located the hospital are responsible for returning the patient to the ward, with police assistance in exceptional circumstances.  


3.3


Missing From School / Educational setting 

3.3.1 If a young person under 16 (or 18 if in care) is found to be missing from a school or educational facility (college / University), the educational authorities must inform the person or organisation with parental responsibility. It is the parent's / carer's responsibility then to notify the police of the missing person. If the individual is aged over 16 years (over 18 years if in care), the educational authorities may decide to report the individual missing directly to the Police.
3.3.2

The only exceptions to this rule are:

  • When managers of the institution make a professional judgment that circumstances indicate too high a risk so any delay must be avoided, such as for very young children or people with Special Educational Needs or disabilities;
  • Those resident at the school or educational facility (i.e. Boarding school) when staff may decide to report the individual missing directly to the police;
  • In cases where the educational establishment cannot get in contact with the person with parental responsibility;
  • If the school has concerns about compromised parenting and/or believes the parents will not report the young person missing in a timely manner. Reference should also be made to the Specific Circumstances discussed below (Section 4, Specific Circumstances). Schools should follow their usual Safeguarding procedures and report to Social Care where they have concerns for the child's safety and welfare during or following a missing or any absent episode.
3.3.3 Missing from school or an educational setting should not be confused with "Missing from Education" which is about an individual's access, or lack of access, to education rather than their physical location.


3.4


Missing from Prison and/or Lawful Custody

3.4.1 In such circumstances the individual, regardless of how reported, would be treated as a WANTED individual rather than a MISSING person.


4. Specific Circumstances

Caption: Table containing Secion 4 - Specific Circumstances
   
In dealing with missing people, there may be specific risk factors which need to be taken into account, as described below. Professionals involved in reporting a person missing must inform Police of any concerns around specific circumstances. Police should refer to Appendix 14 of the GMP MFH Policy and Guidance for the Management of Missing Person Investigation 


4.1


Individuals on the Sex Offenders Register

4.1.1 If an individual is known to be on the Sex Offenders Register, this information must be shared with the call taker when the initial call is made, regardless of the individual's sex or age. The Service Desk will always check the Police systems following classification of a case and if necessary the case will be referred back to the call-takers to re-classify as 'MISSING'. 
4.1.2 Registered Sex Offenders reported to the Police must be classed as MISSING, and must be circulated at a minimum of MEDIUM Risk. 


4.2


Female Genital Mutilation (FGM)

4.2.1 FGM is illegal in the UK under Female Genital Mutilation Act 2003 (For England, Wales and Northern Ireland) and the Prohibition of Female Genital Mutilation (Scotland) Act 2005.
4.2.2 FGM involves procedures that are medically unnecessary, extremely painful and have serious health consequences, both at the time when the procedure is carried out and in later life. It is believed that over 20,000 girls under the age of 15 could be at high risk of FGM in England and Wales each year and the figure may be substantially higher given the hidden nature of the issue.
4.2.3 The age at which girls undergo FGM varies enormously according to the community. However, the majority of FGM cases are believed to take place between the ages of 5 to 8 years, and girls within this age bracket should be considered at greater risk.
4.2.4 FGM is undertaken on British girls in the UK as well as overseas. Girls of school age who are subjected to FGM are often believed to be taken overseas at the beginning of school holidays, particularly summer holidays, in order for there to be sufficient time for her to recover before returning to school. 
4.2.5

Guidelines to be considered when FGM is known or believed to be a factor in any missing episode are contained within Ref F, Female Genital Mutilation: Multi-Agency Practice Guidelines (Home Office), with particular reference to:

  • Chapter 6 - Guidelines for Health Professions;
  • Chapter 7 - Guidelines for Police Officers;
  • Chapter 8 - Guidelines for Children's Social Care;
  • Chapter 9 - Guidelines for Schools, Colleges and Universities;
  • The role of the Safeguarding Children Partnership is highlighted in Chapter 10.

4.3

Forced Marriage

4.3.1 This does not relate to the tradition of "arranged marriages", which has operated in many communities for hundreds of years. In "arranged marriages", whilst the families of both parties take leading roles, the decision whether to accept the arrangements remains with the individuals.
4.3.2 In "Forced marriages", one or both parties do not consent, and some form of duress is involved. There are in excess of 200 cases of forced marriage reported in the UK annually. It should be highlighted that forced marriage is not a community or religious issue, and all major faiths including Christian, Hindu, Sikh and Muslim faiths condemn its practice, as all hold freely given consent as a prerequisite to any marriage.
4.3.3 There are occasions when families, who are attempting to trace a person who is missing in an attempt to avoid a forced marriage, use the police as a "tracing service". This presents the police and other agencies with a number of difficulties, and careful management of the situation is required, particularly when the person is located, highlighting the importance of the immediate risk assessment on location of a person and on the Safe and Well Check. Officers are reminded that where there is a forced marriage, there is also likely to be an offence of rape.
4.3.4

Other possible offences linked to Forced Marriage are:

  • False Imprisonment;
  • Abduction;
  • Kidnap;
  • Assault;
  • Sexual Offences.

4.4

'Honour-Based' Violence (HBV)

4.4.1 Murders in the name of so-called "honour" are murders in which people, predominantly women, are killed for actual or perceived immoral behaviour, which is deemed to have breached the honour code of a family or community, causing shame. They are sometimes called 'honour killings' by the family or perpetrators.
4.4.2 The honour code means that women must follow rules that are set at the discretion of, usually male, relatives and which are interpreted according to what each male family member considers acceptable. Breaking the rules is seen as destroying the good name of the family and being deserving of punishment at the discretion of male relatives.
4.4.3 'Honour-Based' Violence cuts across all cultures and communities: Turkish, Kurdish, Afghani, South Asian, African, Middle Eastern, South and Eastern European for example. This is not an exhaustive list. Where a culture is heavily male dominated, HBV may exist. Cultures in which HBV exists sometimes also practice forced marriage, and do not accept that a woman can  have a partner before marriage, or that she can choose her own spouse. Remember that where there is a forced marriage, there is also likely to be rape - (see Section 4.3, Forced Marriage).


4.5


Domestic Violence (DV) and Domestic Abuse (DA)

4.5.1 There is sometimes a link between domestic violence and missing persons and identifying if a missing person is a victim or perpetrator of domestic violence or child abuse may have a critical influence on the investigation and in particular the way the location and return of the individual should be handled.
4.5.2 Informants are unlikely to admit domestic violence is a factor in the case. Previous history should therefore be taken into account but professionals should bear in mind this may not be currently relevant to the missing episode. Police should work with partners where Domestic Violence is known to be involved.


4.6


Trafficking

4.6.1 People may be trafficked for a variety of reasons, including sexual exploitation, domestic servitude, sweatshop or catering work, begging or petty crime, agricultural labour including tending cannabis 'farms', benefit fraud, drug mules or decoys, illegal inter-country adoption etc. This trade is often under the control of organised crime gangs and is worth in excess of 7 billion US dollars. More than one million people are smuggled annually and consequently the controllers of such crimes are prepared to use extreme violence to ensure victims' compliance. Careful consideration should be given to any information gathered during the course of normal enquiries which point towards involvement in trafficking.
4.6.2 Young people at risk from / having been trafficked present a high level of risk of going missing following coercion and threats from traffickers. Young people may be unable to provide information about missing periods due to fear of retribution to them or their family from their traffickers. Anyone who believes that a person who is/was missing may have been trafficked should make reference to SCP or LSAB Trafficking Policies.
4.6.3 If Officers believe that a person who is missing may have been trafficked or left the country without permission they should make contact with the UK Visas and Immigration. Police have established procedures to obtain exit information from the UK Visas and Immigration National Border Targeting Centre (NBTC). This unit has access to electronic records of all passengers leaving the UK. In association with UK Visas and Immigration and Special Branch, arrangements could be put in place for the child and any accompanying persons to be potentially stopped at the airport/port.
4.6.4 If a person is missing who is known/suspected to be subject to immigration control any agency should contact Andrew Heseltine, Vulnerable Person Protection Manager for the North West, on Andrew.Heseltine@homeoffice.gov.uk or Tel: 0151 213 2260.
4.6.5 Practitioners should, however, not be blinkered to the fact that "trafficking" does take place between differing areas of Britain, and even areas of Greater Manchester or within an Authority, and the victim of trafficking may not necessarily be from abroad.
4.6.6 Advice can be sought from the United Kingdom Human Trafficking Centre (Tel: 0114 252 3891 or 08447782406). This is an advice line that is available 24 hours a day, 7 days a week. You can also email: UKHTC@soca.gov.uk or visit the website that gives useful information on trafficking: National Crime Agency.


4.7


Sexual Exploitation

4.7.1 There is a strong link between people (including adults and boys) being at risk of sexual exploitation and going missing from home or care - evidence suggest that 90% of children subject to sexual grooming go missing at some point (DCSF, 2009).
4.7.2

Concerns around suspected sexual exploitation could include:

  • The person is repeatedly reported missing from home;
  • The person is known to be visiting locations or addresses which raise suspicions around sexual exploitation;
  • The person has unexplained money, gifts, mobile phones etc;
  • The person has additional vulnerability; this is linked to the age of the child.  
4.7.3 If sexual exploitation is suspected or a risk then the local SCP Child Sexual Exploitation procedures should be referred to and the person should be considered as high risk when reporting to the Police and during the subsequent investigation. See Reference I for more information on the Government's commitment to tackling Child Sexual Exploitation and the links to going missing.


Appendices:


Appendix i - Flowchart for ABSENT Incidents

Click here to view the Flowchart for ABSENT Incidents


Appendix ii - Call Taker Questions for Defining Missing/Absent Incidents

Initial Call

The Call Handler (CH) will work from the following questions when taking the initial call:

  1. Surname / Forename / Sex;
  2. Date of Birth (If the person is u-13 or functioning <13 with learning disabilities then = MISSING);
  3. Time and place last seen / what are the circumstances leading to the report?
  4. What has been done so far to trace this individual?
  5. What is the specific concern in this instance?
    1. Is this significantly out of character?
    2. Are there any specific medical needs?
    3. Are they likely to be subjected to crime?
    4. Are they likely to be the victim of abuse?
    5. Are they currently at risk of Sexual Exploitation?
    6. Are they likely to attempt suicide?
    7. Do they pose a danger to other people?
    8. Is there any other information relevant to their absence?

The call taker will then make a decision on the person's status as 'Absent' or 'Missing'. If Absent, they will agree a delay period after which they will call back.

Call Back

1. Have they returned? If not… a) Is there any new information / have they been seen by anyone? / have they made contact? b) Is this behaviour now significantly out of character? Either delay (Absent status) or convert into a MFH.

Upon return

Close the FWIN (+ Code G63).

Obtain the name of the person who states they have returned and endorse this on the FWIN before closing.

Final question = 'Is there any information passed that would be of concern to the police?'.


Appendix A - Abbreviations and Contacts

Abbreviations

Caption: table containing contacts
   
ACPO Association of Chief Police Officers
CTU Counter Terrorism Unit
DCSF Department for Children, Schools and Families (previous gvt)
DFE Department for Education (current gvt)
EDT Emergency Duty Team / Service ('EDT' used in document to indicate all Out of Hours/Emergency Social Care teams)
FWIN Force Wide Incident Number (Police record of individual incident)
GM Greater Manchester
GMP Greater Manchester Police
GMPA Greater Manchester Police Authority
LA Local Authority
LCPC London Child Protection Committee
MFC Missing From Care
MFH Missing From Home
MPSO Missing Person Safeguarding Officer
NPCC National Police Chiefs’ Council (formerly known as Association of Chief Police Officers (ACPO))
OPUS GMP's Operational Policing computer system
PPD Public Protection Division (of GMP)
PPO Police Protection Order
SCP Safeguarding Children Partnership
SMT Senior Management Team (Police)
SOMU Sex Offender Management Unit
SPOE Single Point of Entry
SCU Safeguarding Children Unit (of the LA)
UA Unauthorised Absence
UKHTC United Kingdom Human Trafficking Centre


Contacts

For SCP, Safeguarding Unit, Social Care Duty or Emergency teams and GMP Public Protection Investigation Unit (PPIU) contacts, see the Greater Manchester Safeguarding Partnership website www.gmsafeguardingchildren.co.uk

UK Visas and Immigration: Andrew Heseltine, Vulnerable Person Protection Manager for the North West, Andrew.Heseltine@homeoffice.gov.uk or Tel: 0151 213 2260.


Appendix B - Formal Notification of Placing LAC Out of Area Form

Click here to view the Formal Notification of Placing LAC Out of Area Form


Appendix C - Example MFC Risk Assessment and Action Plan

Click here to view the Example MFC Risk Assessment and Action Plan


Appendix D - Police Safe and Well Check Questions (could be used as a guide for equivalent immediate welfare checks)

  1. Why did he or she feel it necessary to go missing?
  2. Was (or is) he or she subject to bullying at home, school or elsewhere, or, domestic violence, or, mental/physical abuse?
  3. Where did he or she go, with whom did he or she stay whilst missing?
  4. With whom (if anyone) did he or she go missing?
  5. Was he or she the victim of any crimes whilst missing?
  6. Have circumstances changed sufficiently to prevent him or her going missing again?
  7. Is he or she likely to go missing again?
  8. What does he or she see as a remedy, which will prevent him or her from going missing again?
  9. Was he or she involved in the committing of crime whilst missing?
  10. What contact did he or she have with other welfare agencies whilst missing?  

The above questions are to be used as a basis on an interview, and should not be used to gain YES and NO answers from the missing person.


Appendix E - Example Return Interview Form - from care provider

Click here to view the Example Return Interview Form - from care provider

End