What happens after a safeguarding concern is raised about an adult?
When you raise a safeguarding concern about an adult in England, the council decides whether the adult meets the three-part test in section 42 of the Care Act 2014: care and support needs, abuse or neglect (or a risk of it), and being unable to protect themselves because of those needs. If so, it must make or arrange enquiries to decide what action is needed and by whom, usually starting with the adult’s own wishes. No law sets a deadline, and you may get only limited feedback. Call 999 first if anyone is in immediate danger.
On this page
- 1What happens after you raise a safeguarding concern about an adult?
- 2What is the difference between a safeguarding concern and a section 42 enquiry?
- 3Who decides whether the council acts, and what should your report include?
- 4Who carries out a safeguarding enquiry?
- 5Is there a legal time limit for a safeguarding enquiry?
- 6How does the adult stay in control, and when does an advocate step in?
- 7When do the police get involved?
- 8Can information be shared if the adult does not want it shared?
- 9What is a safeguarding plan, and how does a case end?
- 10What feedback will the person who raised the concern get?
- 11What can you do if a concern is not acted on?
- 12What might your part be after you report?
- 13Where do Safeguarding Adults Boards fit in?
- 14Does this process apply in Wales, Scotland and Northern Ireland?
- 15What training helps you handle safeguarding concerns?
- 16Frequently asked questions
- The test. The council must make or arrange enquiries where it suspects an adult has care and support needs, faces abuse or neglect and cannot protect themselves because of those needs.
- Who decides. The council decides, not the person who reports. You do not need proof, and it is not for frontline staff to second-guess the outcome of an enquiry.
- No legal deadline. Neither the Act nor the guidance sets a timescale. Councils and boards set their own targets, so ask your area for its timescales.
- Your feedback. Local procedures such as London's require feedback to the person who raised the concern, but confidentiality limits what you will hear.
This guide follows one adult safeguarding concern in England from the moment it reaches the council to the day the case closes. It is written for care workers, nurses, housing officers and volunteers, and was checked on 3 November 2026. The Care and Support Statutory Guidance (the guidance) was last updated on GOV.UK on 30 October 2026 and is shown as under review. Paragraph numbers below come from the version live on 3 November 2026 and can change, so check the current text. All examples are invented. For what to do on the day you are worried, see our guides to safeguarding in home care and safeguarding adults. General information, not legal advice.
What happens after you raise a safeguarding concern about an adult?
The guidance deliberately does not prescribe one process for every concern (paragraph 14.14), so councils and Safeguarding Adults Boards (SABs) set out their own stages. The table shows a typical path. Names and detail vary by area, and local procedures allow a case to close at any point, as the London procedures do.
| Step | What happens | Who leads |
|---|---|---|
| 1. Concern raised | Someone reports suspected abuse or neglect to the council, directly or through the employer’s safeguarding lead. Call 999 first if anyone is in immediate danger. | You, your manager or safeguarding lead |
| 2. Decision | The council decides whether it has reasonable cause to suspect that the three section 42 conditions are met, and what response is needed. | Council adult social care |
| 3. Enquiry | Enquiries establish the facts, the adult’s views and wishes, and the risk. This can be a conversation or a multi-agency plan (paragraph 14.77). | Council, or an organisation it asks |
| 4. Safeguarding plan | Agreed actions to protect the adult and support recovery, made with the adult. | Council with the adult and partners |
| 5. Review and closure | Outcomes are checked with the adult, the record is completed and others are told. | Council |
Anyone can raise a concern. The guidance names a worried neighbour, a bank cashier, a GP, a housing support worker and a nurse (paragraph 14.37), and says no professional should assume that someone else will pass on critical information (paragraph 14.43). Your employer’s procedure tells you whether to go through a manager or safeguarding lead first and which council team to contact.
What is the difference between a safeguarding concern and a section 42 enquiry?
A safeguarding concern is a sign of suspected abuse or neglect that is reported to the council or spotted by it. A section 42 enquiry is what follows when the concern starts an investigation under safeguarding procedures in line with the Act. Those are the definitions the Department of Health and Social Care (DHSC) uses for its national figures.
The section 42 test applies where the council has reasonable cause to suspect that an adult in its area has needs for care and support, is experiencing or at risk of abuse or neglect, and cannot protect themselves from it because of those needs (section 42(1)). All three must apply. “Reasonable cause to suspect” is a lower bar than proof. The adult does not need to receive council-funded care, and the duty applies whether or not they have mental capacity and in any setting except prisons and approved premises (paragraph 14.6).
The figures show a gap between concerns and formal enquiries. In 2024 to 2025 councils in England received an estimated 640,240 concerns, and an estimated 185,270 section 42 enquiries began, involving 148,830 people. A further 10,285 “other” enquiries covered concerns that did not meet the three criteria (DHSC statistical commentary, updated 25 March 2026). Dividing one by the other gives roughly 29 enquiries per 100 concerns, but that is our own arithmetic on estimates that are not matched case by case. The commentary does not say what happened to the rest.
An “enquiry” is also not always a big investigation. The guidance says it can range from a conversation with the adult to a formal multi-agency plan (paragraph 14.77), and the council may make enquiries even where the section 42 duty does not apply (paragraph 14.44).
Who decides whether the council acts, and what should your report include?
The council decides. Section 42 puts the duty on the local authority, and the guidance says it is not for frontline staff to second-guess the outcome of an enquiry when deciding whether to share a concern (paragraph 14.199). You are not expected to prove abuse or to judge whether the adult can protect themselves.
Some areas make this explicit. The London Multi-Agency Adult Safeguarding Policy, Practice Guidance and Procedures (November 2025 edition, hosted by Haringey Council) says referrers should consider only the first two conditions, care and support needs and abuse or neglect, and leaves the third, whether the adult can protect themselves, to the council. That is one region’s procedure, so read your own area’s.
A good report gives the council enough to decide quickly. The London procedures list what to include, and not having every item should not stop you reporting:
- Contact details for the adult, you and any carers, family or attorneys.
- What, when, who and where, in plain facts.
- Immediate risks and what you have already done.
- The adult’s own wishes and whether they agree to the referral.
- Communication needs and any doubts about their capacity.
- Any police report and crime reference number, and any advocate involved.
- Recent history of similar concerns, if you know it.
Who carries out a safeguarding enquiry?
The council leads, but it may ask others to make the enquiry. The guidance says the right person is often a professional who already knows the adult, such as a social worker, a housing support worker, a GP or a community nurse. The council stays responsible for making sure the enquiry goes to the right place and is acted on, and can challenge the body that carried it out if the process or outcome is unsatisfactory (paragraph 14.100). Different people suit different parts: health professionals should undertake enquiries and treatment plans about medicines management or pressure sores (paragraph 14.82), while abuse within a family is likely to need a social worker as lead (paragraph 14.81).
If the council hands an enquiry to another organisation, such as a care provider, it should be clear about timescales, the need to know the outcome and what happens if the work is not done (paragraph 14.78). The London procedures say the instruction should be in writing and cover the scope and purpose, how the adult’s outcomes will be identified, communication with the adult, timescales and who monitors the result.
Where the concern is about an employer’s staff, the first responsibility to act lies with the employer. It must correct the problem, protect the adult and tell the council, the Care Quality Commission (CQC) and, where it is the commissioner, the integrated care board (paragraph 14.69). The employer should investigate unless there is a compelling reason not to, such as a conflict of interest where the owner is implicated (paragraphs 14.70 and 14.71). The council must still satisfy itself that the employer’s response was enough. If an organisation removes someone from work with adults because they pose a risk of harm, or would have done had they not left, it must refer them to the Disclosure and Barring Service (paragraph 14.127). Our guide to people in positions of trust covers concerns about staff.
Is there a legal time limit for a safeguarding enquiry?
No. Neither section 42 nor the guidance chapter sets a statutory timescale for deciding on, completing or reviewing an enquiry. The guidance says the scope of an enquiry, who leads it and how long it takes depend on the circumstances (paragraph 14.93). The Local Government and Social Care Ombudsman (LGSCO) has also noted that there are no statutory timescales for completing safeguarding investigations.
Local procedures fill the gap. The London procedures set target timescales but say they are not definitive, that individual councils or boards may decide their own, and that a different pace can be justified where it protects the outcome the adult wants. They also say agencies should watch for drift. The table gives the targets as published.
| Step in the London procedures (November 2025) | Target |
|---|---|
| Decide whether the three section 42 conditions are met | Same day |
| Initial conversation with the adult or their representative | Same day |
| Plan the enquiry | 5 working days |
| Complete the enquiry | 20 working days |
| Agree the safeguarding plan | 5 working days from the enquiry report |
| Complete follow-up actions | No more than 3 months |
| Review of the plan | Decided locally |
The procedures express several of these as “from above”, so check the source for how they are counted. Other areas differ. Missing local targets can matter: in a decision published on 7 January 2025, the Ombudsman found fault with the London Borough of Hounslow after one enquiry ran from March 2023 to July 2024. It said the council let the process drift and recommended an apology and £200 symbolic payments to two people, while saying it was not its role to replace decisions properly made.
How does the adult stay in control, and when does an advocate step in?
Making Safeguarding Personal means the response is person-led and outcome-focused, engaging the adult in a conversation about how best to respond (paragraph 14.15). The guidance says the adult should be involved from the beginning unless exceptional circumstances would increase the risk of abuse (paragraph 14.80), and that an enquiry will usually start by asking for their view and wishes (paragraph 14.93). Practitioners should seek consent wherever practicable. Action may still be needed without it if others are at risk or a crime has been committed (paragraph 14.95). For the detail, see Making Safeguarding Personal.
Capacity shapes what happens. The council must presume capacity until there is a reason to doubt it. If the adult has capacity and declines help, that can limit what organisations do, and the focus turns to reducing harm, but it does not limit action to protect others (paragraph 14.108). If they lack capacity, decisions are made in their best interests and in proportion to the concern (paragraph 14.79). Our guide to the Mental Capacity Act explains the test.
Under section 68 of the Care Act, the council must arrange an independent advocate for an adult in a section 42 enquiry if they would have substantial difficulty being involved and there is no appropriate person, other than a paid carer, to support them. In an urgent case the enquiry can start before the advocate is in place. Our guide to independent advocacy under the Care Act covers who qualifies.
When do the police get involved?
Much abuse is also crime. The guidance says early police involvement is likely to help in many cases where criminal activity is suspected (paragraph 14.83), and that anyone who meets abuse and is unsure what to do next should contact the police for advice (paragraph 14.41). Where a crime is referred, the police lead the criminal investigation and the council supports it, while keeping its duty to promote the adult’s wellbeing (paragraph 14.101).
A criminal investigation takes priority over other enquiries, but a multi-agency approach should make sure the adult’s interests and wishes are still considered, even if they do not want to give evidence or support a prosecution (paragraph 14.91).
Can information be shared if the adult does not want it shared?
Often yes, within limits. If an adult with capacity does not want action, that does not stop information being shared with relevant colleagues so that risk can be assessed and they can be checked for coercion. It is good practice to tell them, unless that would increase the risk (paragraph 14.92). Confidentiality must not be confused with secrecy, and where consent cannot be obtained and others are at risk, the requirement may be overridden (paragraph 14.187).
Share only what is relevant and necessary, with those who need it, and record why (paragraphs 14.131 and 14.132). Data protection law has a condition for processing special category data without consent to protect an adult at risk (paragraph 18 of Part 2 of Schedule 1 to the Data Protection Act 2018), and the Information Commissioner’s Office data sharing code, which is under review, says to share what is necessary and proportionate in an emergency. Your employer decides the lawful basis. For the detail, see our guides for housing staff and home care workers.
What is a safeguarding plan, and how does a case end?
Once the facts are established, there is a further discussion of the adult’s needs and wishes. That may lead to focused safeguarding planning or a fuller assessment such as a Care Act needs assessment. It applies whether or not the allegation is found to be true, because many enquiries are inconclusive (paragraph 14.106). The outcome goes to the council, which decides with the adult what further action is necessary and acceptable, and any agreed action should be recorded on their care plan (paragraph 14.110). Where the council decides it should act itself, it is under a duty to do so (paragraph 14.107).
The guidance says the plan should set out the steps to assure the adult’s future safety, any support, treatment or therapy including ongoing advocacy, changes to how services are provided, help to seek justice or redress, any ongoing risk management and action about the person or organisation responsible (paragraph 14.111). The London procedures add that a safeguarding plan is not a care and support plan, should name a lead who monitors it and should be made with the adult’s full participation. A review of the plan is optional and decided locally.
A case closes by agreement. The London closure record covers the adult’s views and whether their outcomes were achieved, onward referrals, advice given, who has been told, feedback to the referrer, action about the person alleged to have caused harm, any lessons and whether to refer the case to the SAB for a review. The guidance says the council’s enquiry duty continues until it has decided what action is necessary and made sure that action has been taken (in the passage after paragraph 14.92). Where a risk was identified in concluded section 42 enquiries in 2024 to 2025, councils reported it was reduced or removed in 91.2% of cases, though that is the councils’ own reported outcome.
What feedback will the person who raised the concern get?
Section 42 itself says nothing about feedback to the referrer. The guidance lists “feeding back whenever possible” among the principles for local decision-making and says information for staff and the public should make clear that everyone who expresses concern will be treated seriously (paragraph 14.196). Local rules carry the detail. The London procedures call keeping the referrer informed an essential requirement and build feedback into each stage and the closure record, and the council in the Hounslow case set 5 working days to feed back to the referrer.
Expect feedback to be limited by confidentiality and data protection. The London procedures say feedback to the wider community must take both into account. In practice, expect confirmation that the concern reached the right place, whether it is being handled under safeguarding or another route, and the outcome in general terms. That is our reading of those limits, not a rule. If you hear nothing, ask your safeguarding lead to ask the council and keep a note of the request.
What can you do if a concern is not acted on?
Work up the ladder, but call 999 without waiting if anyone is in immediate danger.
- Ask for the decision and the reason. The council may have concluded that the section 42 test is not met, and may have acted in another way. The London procedures say all concerns should be responded to.
- Escalate within your organisation. The guidance expects effective, well-publicised ways of escalating where a line manager does not act (paragraph 14.199).
- Use the local dispute route. The London procedures say professional disagreements should be resolved early and taken to more senior managers if needed. Check your SAB’s procedures.
- Tell the right regulator or the police. CQC for a registered provider, the police if you think a crime has been committed. Our guide to whistleblowing protection explains your legal position.
- The adult or someone acting for them can complain. The Ombudsman says to complain to the council first, usually within 12 months of the problem.
A Safeguarding Adults Review is a different route. It looks back at cases of death or serious abuse to find lessons, and is not a way to challenge a decision. See safeguarding adults reviews.
What might your part be after you report?
It depends on your role. The table gives examples from the guidance.
| Role | What may happen next |
|---|---|
| Care worker | You report through your manager. If staff conduct is the concern, the employer investigates first (paragraphs 14.69 and 14.70). Keep records that separate fact from opinion (paragraph 14.103). |
| Nurse | You may be asked to carry out or contribute to part of the enquiry, such as one about medicines or pressure sores (paragraph 14.82), or to keep treating the person. |
| Housing officer | A housing support worker may be asked to make the enquiry (paragraph 14.100). You may also be asked for tenancy information, which should be relevant and necessary (paragraph 14.132). |
| Volunteer | You must know your role and where to go, and your organisation must train volunteers to recognise and respond to abuse (paragraphs 14.51 and 14.102). |
Where do Safeguarding Adults Boards fit in?
Every council must set up an SAB, whose objective is to help and protect adults in cases of the section 42 kind by coordinating and ensuring the effectiveness of what each member does (section 43). It must develop clear policies and processes agreed with partners, stating what organisations and individuals are expected to do when they suspect abuse (paragraph 14.151).
Does this process apply in Wales, Scotland and Northern Ireland?
No. This guide covers England. Wales has the Social Services and Well-being (Wales) Act 2014 and Scotland the Adult Support and Protection (Scotland) Act 2007. Northern Ireland has separate arrangements that we have not checked against an official source, so follow your employer’s procedures and local guidance.
What training helps you handle safeguarding concerns?
Three Nexis CPD courses build the knowledge behind this process:
Together they cost £18 rather than £27 under the pay-for-2-get-3 offer, and employers training 5 or more staff pay £6 a course place on the team plan. These are awareness-level CPD courses, not regulated qualifications, and they do not replace your employer’s safeguarding policy, local procedures or specialist training. If you take one, start with Safeguarding Adults (Advanced) Level 2: 15 questions, 80% to pass, and an instant certificate.
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Frequently asked questions
Do I need to be sure it is abuse before I raise a concern?
No. Report what you saw, heard or were told. The test the council applies is reasonable cause to suspect, and it is not for frontline staff to second-guess the outcome of an enquiry.
Is a safeguarding concern the same as a section 42 enquiry?
No. A concern is a report of suspected abuse or neglect. A section 42 enquiry follows if the council has reasonable cause to suspect that the adult has care and support needs, is experiencing or at risk of abuse or neglect, and cannot protect themselves because of those needs.
How long does a safeguarding enquiry take?
There is no statutory deadline. Local procedures set targets, such as 20 working days to complete an enquiry in the November 2025 London procedures, and complex cases can take longer. Ask your own council or Safeguarding Adults Board for its timescales.
Will I find out what happened after I raise a concern?
You may get some feedback, but not everything. Some local procedures, such as London’s, require feedback to the referrer, though confidentiality and data protection limit the detail. If you hear nothing, ask your safeguarding lead to ask the council.
Can the council decide not to investigate?
Yes, if it concludes that the section 42 conditions are not met, though it can still act in other ways, such as a needs assessment. Ask for the reason, and escalate through your organisation if you still have concerns.
Does an awareness course replace my employer’s safeguarding procedures?
No. Awareness CPD is not a regulated qualification. It helps you recognise and report concerns, but you must still follow your employer’s policy, local procedures and any specialist training your role needs.
General information, not legal advice. If someone is in immediate danger, call 999. This guide reflects the Care Act 2014, the Care and Support Statutory Guidance (under review; shown as last updated on GOV.UK on 30 October 2026), the DHSC safeguarding adults statistics for 2024 to 2025 and the sources named above as checked on 3 November 2026. Arrangements differ in Wales, Scotland and Northern Ireland, and each employer, council and local Safeguarding Adults Board sets its own procedures and timescales. Nexis CPD courses are CPD-accredited awareness training, not regulated qualifications, and they do not replace your employer’s safeguarding policy, local multi-agency procedures or specialist training.