Guidance

Safeguarding adults collection (SAC) data return, 2025 to 2026: guidance for local authorities

Published 29 January 2026

Applies to England

Introduction

The purpose of this document is to help local authorities and their partner organisations to complete the safeguarding adults collection (SAC).

The SAC records details about safeguarding activity for adults aged 18 and over in England, reported to, or identified by, councils with adult social services responsibilities, which throughout this guidance will be referred to as ‘local authorities’. The collection includes demographic information about the adults at risk and details of the incidents that have been alleged.

The SAC is an updated version of the safeguarding adults return which collected safeguarding data for the 2013 to 2014 and 2014 to 2015 reporting periods. There are no changes to the data requirements for the 2025 to 2026 collection.

How to submit your data

The collection tool for the 2025 to 2026 reporting year will again be the Strategic Data Collection Service (SDCS). Guidance for using the system can be found on NHS England’s SDCS page. Please note, we cannot accept submissions by email.

Submission dates

You can start submitting data from 1 April 2026. All submissions should be completed by 3 June 2026. Validation and data quality reports will be available from 17 June 2026. The submission window will then re-open to allow resubmissions, if required. Resubmissions must be submitted by 1 July 2026.

Once the final submission window has closed there will be no further opportunities to resubmit.

Any local authority that fails to submit a complete mandated submission will be named in the data quality section of the associated official statistics publication.

These deadlines are also set out in the adult social care data collection September notice 2025, which provides information on the mandated national adult social care data returns that local authorities are required to complete.

SAC data template

You must use the SAC submission data template published alongside this guidance to submit your data return, which you can also download from the SDCS website.

The template is designed to show the data items required for submission and help collate data from local systems. Free text comment boxes are included so that providers can explain data quality issues or activity variances, if required.

There are 2 worksheets you must complete to submit your return. These are:

• SAC template, which contains all the data tables
• sign-off sheet, which must be fully completed or your file will not be accepted by SDCS

The SAC template uses colour coding to show which fields you must complete, as follows:

• white cells are mandatory (you must complete these)
• blue cells are voluntary (you can choose whether to complete these)

The template includes automatic checks on your data. You’ll see messages in different colours.

Dark blue error messages (column M)

These appear when you’ve left a mandatory field blank. SDCS will reject your submission if any dark blue errors remain. You must fix these before submitting.

Light blue consistency warnings (columns N and O)

These flag potential issues, such as when totals do not match across related tables. SDCS will flag these warnings but will still accept your submission. You should review these warnings and use the comments section to explain any that you cannot resolve.

Using the comments section

At the end of the data template there is a comments section. Use this to:

• explain any validation errors that remain in your return
• provide context for consistency warnings you cannot resolve
• add any other relevant information about your submitted data

There is a drop-down list to select which table your comment relates to. You can also leave this blank for general comments.

Further support for local authorities

If you have any queries about the SAC, you can contact the ASC statistics team at asc.statistics@dhsc.gov.uk. Comments on the guidance or the data template are also welcome.

The Adult Social Care Data Dictionary contains information about data items. It is intended for use by all users of adult social care data and those who provide data to NHS England. It ensures definitions for all social care collections are available in one place.

Decisions affecting the SAC, such as the data submission method or proposed changes for future years, are made in consultation with the SAC working group. If you or a representative from your local authority are interested in joining this group, contact us at the email address above.

How to use this guidance

The guidance is structured around the 5 sections of the submission template, which are:

• SG1: demographics tables
• SG2: case details tables
• SG3: mental capacity tables
• SG4: making safeguarding personal (MSP) tables
• SG5: safeguarding adult reviews (SARs) tables

Definitions and information for the terminology used in the return, following the changes to safeguarding introduced in the Care Act 2014 (the Care Act), can be found in ‘Annex: background and supporting information’ below.

SG1: demographics tables

The demographics tables (SG1a to SG1f) record counts of individuals involved in safeguarding cases, counts of safeguarding cases and demographic breakdowns for the adults at risk.

The information in these tables relates to safeguarding concerns that were raised or safeguarding enquiries that commenced during the reporting year 1 April 2025 to 31 March 2026.

The term ‘individuals involved’ relates only to adults at risk.

The words ‘cases’ or ‘activity’ are used as overarching terms to describe both concerns and enquiries.

Safeguarding enquiries are a subset of safeguarding concerns. If a concern is raised and it then leads to an enquiry, the case should be recorded as a concern and then as an enquiry.

Counting for SG1a to SG1c

In tables SG1a (age), SG1b (gender) and SG1c (ethnicity), each individual is recorded only once per row, even if they had multiple concerns or enquiries during the year.

An individual can appear in multiple rows if they were involved in different types of activity. For example:

• Mr X had 3 section 42 enquiries. In tables SG1a to SG1c, record Mr X once in the ‘section 42 enquiries’ row

• Ms Y had one safeguarding concern and 2 section 42 enquiries. Record Ms Y once in the ‘safeguarding concerns’ row and once in the ‘section 42 enquiries’ row 

Counting for SG1d and SG1e

Tables SG1d (primary support reasons) and SG1e (reported health conditions) work differently. Individuals can be recorded multiple times in these tables if they have multiple support reasons or health conditions.

Large scale enquiries

For large scale enquiries involving many individuals (such as in a care home), include each of the adults at risk in the return, and for each identified risk as appropriate.

More than one local authority involved

Where 2 local authorities have been involved with the same concern or enquiry, each case should only be recorded once, by the local authority where the abuse occurred.

SG1a: counts of individuals by age band

This table collects metrics broken down by age band, as follows:

• individuals involved in safeguarding concerns (voluntary)
• individuals involved in section 42 safeguarding enquiries (mandatory)
• individuals involved in ‘other’ safeguarding enquiries (voluntary)

What to record

Record the age of the individual on the last day of the reporting period (31 March 2026), or their age at the time of death if the individual has died.

When you do not know the age

Where the age of an individual has not been recorded, record them in the ‘not known’ column. We expect this column to be used more frequently for safeguarding concerns and only in a minority of cases for enquiries.

SG1b: counts of individuals by gender

This table collects metrics broken down by gender, as follows:

• individuals involved in safeguarding concerns (voluntary)
• individuals involved in section 42 safeguarding enquiries (mandatory)
• individuals involved in ‘other’ safeguarding enquiries (voluntary)

What to record

Record the gender the individual considers themselves to be. For transgender people, record the preference of the individual concerned.

When you do not know their gender

Use the ‘not known’ column for individuals who:

• do not wish to have their gender categorised
• are recorded as ‘indeterminate’ on the local system
• have no gender recorded on the system

We expect this ‘not known’ category to be used more frequently for safeguarding concerns and only in a minority of cases for enquiries.

SG1c: counts of individuals by ethnicity

This table collects metrics broken down by ethnicity, as follows:

• individuals involved in safeguarding concerns (voluntary)
• individuals involved in section 42 safeguarding enquiries (mandatory)
• individuals involved in ‘other’ safeguarding enquiries (voluntary)

What to record

The ethnicity categories are based on those established by the Office for National Statistics (ONS) and used in the 2011 Census, as well as including additional classifications of ‘refused’ and ‘undeclared or not known’.

When ethnicity is missing or refused

Use ‘refused’ when individuals were asked about their ethnicity, but they did not want to give this information.

Use ‘undeclared or not known’ when:

• the practitioner did not ask for the ethnicity of the adult at risk
• no ethnicity information is present on the local system

We expect the ‘undeclared or not known’ category to be used more frequently for safeguarding concerns and only in a minority of cases for enquiries.

Further information on ONS categories can be found on the Primary set of harmonised concepts and questions page.

SG1d: counts of individuals by primary support reasons (PSRs)

This table collects metrics broken down by PSRs, as follows:

• individuals involved in safeguarding concerns (voluntary)
• individuals involved in section 42 safeguarding enquiries (mandatory)
• individuals involved in ‘other’ safeguarding enquiries (voluntary)

What PSRs are

PSRs describe what type of support is being provided to the adult at risk. We would expect a PSR to be determined through a social care assessment or review and then recorded on the local system.

We do not expect local authorities to assess PSRs as part of the safeguarding process. Instead, take PSR data from existing information on the local care management system.

Which PSRs to record

Record a count of one for each different PSR that was active at the time of a safeguarding incident. We acknowledge that it may be difficult to obtain PSRs for this specific time and will accept the PSRs on the system as at year end or time of reporting, if necessary.

Record each PSR regardless of whether they relate to short or long-term support.

Recording multiple PSRs, concerns or enquiries

Unlike tables SG1a to SG1c, individuals can be recorded multiple times in this table if they have multiple PSRs. See the following examples:

Where an individual is receiving long-term mental health support and short-term physical support at the time of a safeguarding incident, you would record:

• a count of one for ‘mental health support’
• a count of one for ‘physical support’

Where an individual had 2 cases during the year and they were receiving long-term physical support at both of those times, you would record a count of one for physical support.

Where an individual had 2 cases during the year - at the first incident they were receiving physical support and at the second incident they were receiving mental health support, you would record:

• a count of one for ‘physical support’
• a count of one for ‘mental health support’

When an individual was not receiving services

If an individual was not receiving services at the time of the safeguarding incident, record them in the ‘no support reason’ column.

When you do not know about care the individual was receiving

If you do not know what care the individual was receiving, use the ‘not known’ column.

Category definitions

Table 1 shows the classifications that are to be recorded in the SAC, with some descriptions of why people might need that type of support. The table also includes a list of sub-classes. These do not need to be recorded in the SAC but local authorities may choose to record these locally.

Table 1: classifications of PSRs to be recorded in the SAC

Classification	Sub-classes	Examples of why support might be needed
Physical support	Access and mobility only Personal care support	‘I need help because there are physical things I find difficult to do on my own’
Sensory support	Support for visual impairment Support for hearing impairment Support for dual impairment	‘I need help because there are things I can’t see and/or hear well enough on my own’
Support with memory and cognition	Support with memory and cognition	‘I need help because my memory or understanding makes it difficult for me to do certain things on my own’
Learning disability support	Learning disability support	‘I need help because I find it difficult to learn how to do new things on my own’
Mental health support	Mental health support	‘I need help because my psychological and/or emotional state makes it difficult for me to do certain things on my own’
Social support	Support to carer	‘I am a carer and need support’
Social support	Substance misuse support	‘I am experiencing substance misuse issues and require support’
Social support	Asylum seeker support	‘I am an asylum seeker and require access to support intended for people in my situation’
Social support	Support for social isolation or other	‘I need help because my situation causes me to be socially isolated’
No support reason	Not applicable	The individual was not receiving, nor did they need, any social services support at the time of the safeguarding incident
Not known	Used for individuals when their care situation at the time of the safeguarding incident is not known	We expect this category to be used more frequently for safeguarding concerns and only in a minority of cases for enquiries

SG1e: counts of individuals by reported health conditions (RHCs)

This table collects metrics broken down by RHCs, as follows:

• individuals involved in safeguarding concerns (voluntary)
• individuals involved in section 42 safeguarding enquiries (mandatory for autism spectrum disorder, voluntary for all other RHCs)
• individuals involved in ‘other’ safeguarding enquiries (voluntary)

What RHCs are

RHCs are the reasons why support is provided to the adult at risk. An RHC relates to an illness, disability or condition affecting the client - and diagnosed by a healthcare professional - that contributes to the client’s need for support. Individuals should only have an RHC on the local system if they are receiving support. However, not all individuals who receive support will have an RHC.

Where to get this data

Take RHC data from existing information on the local care management system. We would expect RHCs to be recorded on the local system as part of a social care assessment or review. We do not expect local authorities to assess RHCs as part of the safeguarding process.

Which RHCs to record

Mandatory (if individual involved in a section 42 safeguarding enquiry): autism spectrum disorder (highlighted in white in the template).

Voluntary: all other RHCs listed in the table (highlighted in blue in the template).

Record a count of one for each different RHC that was applicable at the time the safeguarding incident occurred or started. We acknowledge that it may be difficult to obtain RHCs for this specific time and will accept the RHCs on the system as at year end or time of reporting, if necessary.

Who to include

Only provide RHCs in the SAC for individuals who are receiving long term support. We would not expect all individuals who receive long term support to have an RHC. These people can be recorded in the ‘no relevant long term health conditions’ category if you choose (voluntary).

If you are voluntarily providing data for all of the RHCs listed in the table, include all individuals who:

• were involved in cases opened during the reporting period
• were receiving long-term support at the time of the incident

If you are just providing data for the mandatory RHC category (autism spectrum disorder), only the individuals who are receiving long-term support and have the mandatory condition need to be included.

Recording multiple RHCs, concerns or enquiries

Multiple RHCs per person can be recorded if individuals have more than one condition.

For example, where an individual has multiple cases in the year and the same RHC applies each time, you would record that RHC once in the table.

Where an individual has multiple cases in the year and a different RHC applies each time, you would record each different RHC once in the table.

SG1f: counts of safeguarding activity

Completion of this table in its entirety is mandatory. It collects distinct counts of the:

• total number of safeguarding concerns received during the reporting period
• total number of section 42 safeguarding enquiries commenced during the reporting period
• total number of ‘other’ safeguarding enquiries commenced during the reporting period

Note that these counts relate to cases, not individuals.

SG2: case details tables

The case details tables (SG2a to SG2e) record counts of, and case details about, concluded safeguarding enquiries.

The information in these tables relates to safeguarding enquiries that concluded during the reporting year 1 April 2025 to 31 March 2026.

Counting for SG2 tables

Unlike the demographics tables, you can record multiple counts in SG2 tables. Record a count of one for each different category that applies to the enquiry.

Types of risk

The type of risk describes the nature of the allegations made, such as physical or sexual.

Physical

Includes hitting, slapping, pushing, kicking, misuse of medication, restraint or inappropriate sanctions.

Sexual

Includes rape, sexual assault or sexual acts to which the adult has not consented, could not consent or was pressured into consenting.

Psychological

Includes emotional abuse, threats of harm or abandonment, deprivation of contact, humiliation, blaming, controlling, intimidation, coercion, harassment, verbal abuse, isolation or withdrawal from services or supportive networks.

Financial or material

Includes theft, fraud, exploitation, pressure in connection with wills, property or inheritance or financial transactions, or the misuse or misappropriation of property, possessions or benefits.

Discriminatory

Includes abuse based on a person’s race, sex, disability, faith, sexual orientation or age; other forms of harassment, slurs or similar treatment or hate crime and/or hate incident.

Organisational

Includes neglect and poor care practice within an institution or specific care setting such as a hospital or care home, or in relation to care provided in one’s own home. This may range from one off incidents to on-going ill-treatment. It can be through neglect or poor professional practice as a result of the structure, policies, processes and practices within an organisation.

There is increasing multiagency awareness about what constitutes organisational abuse. This means that organisational abuse can now often be identified at an early stage as a possible type of abuse. However, safeguarding enquiries relating to organisational abuse are likely to be under reported due to various reasons relating to operational practice (for example being pursued through different routes such as commissioning or IT system limitations, which may not be in line with section 42).

In order to capture the full breadth and variety of safeguarding activity there should, wherever operational practice allows, be a report in the SAC of organisational abuse alongside a report of any specific types of neglect or abuse. This can be achieved with close reference to the above definitions of different types of abuse and the specific circumstances of each case, including the possibility that the potential abuse or neglect could also be organisational abuse and, where possible, recording this at the outset of the enquiry.

Neglect and acts of omission

Includes ignoring medical or physical care needs, failure to provide access to appropriate health, social care or educational services, or the withholding of the necessities of life, such as medication, adequate nutrition and heating.

Domestic abuse

An incident or pattern of incidents of controlling, coercive or threatening behaviour, violence or abuse by someone who is or has been an intimate partner or family member regardless of gender or sexuality. It can include psychological, physical, sexual, financial, emotional abuse, honour based violence, female genital mutilation or forced marriage.

Sexual exploitation

The sexual exploitation of adults is a form of sexual abuse. It occurs where an individual or group takes advantage of an imbalance of power to coerce, manipulate or deceive an adult at risk into sexual activity, including:

• in exchange for something the adult at risk needs or wants
• for the financial advantage or increased status of the perpetrator or facilitator

The adult at risk may have been sexually exploited even if the sexual activity appears consensual. Sexual exploitation does not always involve physical contact - it can also occur through the use of technology.

Modern slavery

Encompasses slavery, human trafficking, forced labour and domestic servitude. Traffickers and slave masters use whatever means they have at their disposal to coerce, deceive and force individuals into a life of abuse, servitude and inhumane treatment.

Self-neglect

Covers a wide range of behaviour, including neglecting to care for one’s personal hygiene, health or surroundings and behaviour such as hoarding.

Cuckooing (this is not a category in the SAC tables)

For cases of cuckooing (where professional criminals target the homes of vulnerable adults so they can use the property for drug-dealing and other criminal activities), the same principle of considering the specific circumstances and the range of definitions of abuse will support recording and reporting types of abuse against completed enquiries. There is not a defined or specific type of risk to be used in these cases.

Sources of risk

The source of risk refers to the perpetrator of the alleged abuse. If a concluded enquiry has determined that there is more than one source of risk, there should be a count for each source type in these tables.

If the source types are different, for example if a stranger and a carer were the sources of risk, there should be a count of one in each of these categories for that enquiry.

If both sources of risk are of the same type, for example if 2 strangers were the sources of risk, there should only be a count of one in that category.

Service provider

This category refers to any individual or organisation paid, contracted or commissioned to provide social care services, regardless of the funding source. This category can include:

• services organised by the local authority
• personal budget and/or direct payment funded services
• self-arranged services
• self-funded services
• residential and nursing homes that offer social care services

This category excludes health and social care staff or organisations responsible for assessment and care management, for example local authorities, NHS trusts or GPs. These groups would fall into the category of ‘other’.

‘Other - known to individual’ and ‘other - unknown to individual’

These 2 categories cover all other sources of risk which are not service provider. The source of risk would be classed as:

• known to individual if the adult at risk knows their name
• unknown to the individual if the adult at risk does not know their name

Where the source of risk has not been identified, for example if no-one knows who stole a purse, this should be categorised as: other - unknown to individual.

Source of risk for domestic abuse and self-neglect cases

Where the type of risk is domestic abuse or self-neglect, classify the source of risk as: other - known to individual.

List of risk sources

The following list shows the classifications required for the SAC and which sub-classes could be included in each. It is at the discretion of the local authority which level to record locally.

The ‘service provider’ classification includes the following sub-classes:

• public sector
• private sector
• voluntary (such as voluntary or community organisations and charities)

The ‘other - known to individual’ classification includes the following sub-classes:

• relative, family or carer
• individual - known but not related
• primary healthcare
• secondary healthcare
• community healthcare
• social care staff - care management and assessment
• police
• regulator
• other public sector
• other private sector
• other voluntary

The ‘other - unknown to individual’ classification includes the following sub-classes:

• individual - unknown or a stranger
• primary healthcare
• secondary healthcare
• community healthcare
• social care staff - care management and assessment
• police
• regulator
• other public sector
• other private sector
• other voluntary

Location types

The location of risk describes where the alleged safeguarding incident took place.

Own home

The residence where the adult at risk usually lives. Includes property owned by the individual, family or friends. Can include rented or supported accommodation, such as supported living, sheltered housing or shared lives schemes.

In the community (excluding community services)

Can include places like businesses, offices, pubs and other people’s homes.

In a community service

Can include places like community centres, day care centres, leisure centres, libraries, schools, GP surgeries and dental surgeries.

Care home - nursing

Can be used whether the person is at the care home on a permanent or temporary basis.

Care home - residential

Can be used whether the person is at the care home on a permanent or temporary basis.

Hospital - acute

The individual at risk could be a patient or a visitor.

Hospital - mental health

The individual at risk could be a patient or a visitor.

Hospital - community

The individual at risk could be a patient or a visitor.

Other

Any other setting that does not fit into one of the above categories.

SG2a: counts of enquiries by type and source of risk

This table collects metrics broken down by the type and source of the risk, as follows:

• concluded section 42 safeguarding enquiries (mandatory)
• ‘other’ concluded safeguarding enquiries (voluntary)

The tables record the combination of the type of alleged abuse and the source of risk.

The type of risk describes the nature of the allegations made, such as physical or sexual, the source of risk refers to the perpetrator of the alleged abuse. See guidance above for further definitions of types and sources.

What to record

You can include multiple types of risk. Record one count for each different type and source, for each enquiry.

For example, if a concluded enquiry involved:

• an allegation of financial abuse by a family member
• an allegation of physical abuse from someone not known to the individual

you would record:

• one count in the ‘financial’ with ‘other - known to individual’ cell
• one count in the ‘physical’ with ‘other - unknown to individual’ cell

When there are multiple incidents in the same category

If there are multiple incidents of abuse which fall under the same category relating to one safeguarding enquiry, count it only once. For example, an enquiry involved 2 instances of physical abuse by the same stranger. Record only one count in the ‘physical abuse’ with ‘other - unknown to individual’ cell

When categories overlap

Some of these categories can overlap each other, for example an incident of domestic abuse can also be physical abuse. Record a count of one for all categories that are applicable.

SG2b: counts of enquiries by location and source of risk

This table collects metrics broken down by the location and source of the risk, as follows:

• concluded section 42 safeguarding enquiries (mandatory)
• ‘other’ concluded safeguarding enquiries (voluntary)

The tables record the combination of where the alleged safeguarding incident took place and the source of risk.

The location of risk describes where the alleged safeguarding incident took place, the source of risk refers to the perpetrator of the alleged abuse. See guidance above for further definitions of locations and sources.

What to record

You can include multiple locations in this table. Record one count for each location and source.

For example, if a concluded enquiry involved:

• an allegation which took place in a care home and was perpetrated by a family member
• an allegation that took place in a hospital and was perpetrated by someone not known to the individual

you would record:

• one count in the ‘care home’ with ‘other - known to individual’ cell
• one count in the ‘hospital’ with ‘other - unknown to individual’ cell

When there are multiple incidents in the same category

If there are multiple incidents of abuse which fall under the same category, count it only once.

For example, 2 instances of abuse in a hospital by the same stranger would be recorded as one count in the ‘hospital’ with ‘other - unknown to individual’ cell.

SG2a_b1 and SG2a_b2: counts of enquiries by type and location of risk

These tables collect metrics broken down by type and location of the risk, as follows:

• concluded section 42 safeguarding enquiries (mandatory)
• ‘other’ concluded safeguarding enquiries (voluntary)

The tables record the combination of the type of alleged abuse and where the alleged safeguarding incident took place.

The type of risk describes the nature of the allegations made, such as physical or sexual, the location of risk describes where the alleged safeguarding incident took place. See guidance above for further definitions of types and locations.

Recording multiple enquiries for the same individual

You can include multiple entries in these tables where more than one enquiry involves the same individual but has a different type or location of risk.

For example, one enquiry was for physical abuse in the individual’s own home. A subsequent enquiry was for financial abuse in a care home. Record both separately.

SG2c and SG2e: counts of enquiries by action, result and source of risk

These tables collect metrics broken down by action, result and source of the risk, as follows:

• concluded section 42 safeguarding enquiries (mandatory)
• ‘other’ concluded safeguarding enquiries (voluntary)

These tables look at whether a risk was identified and any action was taken as a result of the safeguarding enquiry (table SG2c) and, where a risk was identified, what was the outcome when the case concluded (table SG2e).

Recording multiple results for the same individual

Multiple results can be included in these tables if there is more than one outcome from the source of risk identified. Record one count for each risk outcome.

For example, a concluded enquiry involved allegations against a family member and a care worker. The individual at risk lived in a care home. Despite the alleged abuse, the individual still wanted to maintain contact with the family member. The care home increased the monitoring of the individual at risk when the family member visited and this reduced the risk with regards to that situation. As a result of the allegation about the care worker, the care worker was dismissed from their job so that risk was removed.

In these circumstances you would record:

• for the first allegation, a count of one in the ‘risk reduced’ with ‘other - known to individual’ cell
• for the second allegation, a count of one in the ‘risk removed’ with ‘service provider’ cell

If there are multiple allegations which fall into the same category, for example allegations against 2 different care workers who were both dismissed, this should only be counted once in the ‘risk removed’ with ‘service provider’ cell in the table.

Risk assessment outcomes (for table SG2c)

Risk identified

Evidence is found of, or potential for, abuse or neglect which could possibly cause harm to the vulnerable adult.

Risk assessment inconclusive

No direct evidence is found of, or potential for, abuse or neglect which could possibly cause harm to the vulnerable adult (such as it may be that immediate action taken when a safeguarding concern is raised has mitigated the risk).

No risk identified

No evidence is found of, or potential for, abuse or neglect which could possibly cause harm to the vulnerable adult (such as it may be that immediate action taken when a safeguarding concern is raised has mitigated the risk).

Enquiry ceased at individual’s request

This refers to cases where the individual as risk does not wish for an enquiry to proceed for whatever reason and so preclude a conclusion being reached.

Action taken

Action can include anything that has been done as a result of the safeguarding enquiry. It includes things like disciplinary action for the source of risk, increased monitoring of the adult at risk, referral to a counsellor or a referral for a social care assessment. It can include action taken by the local authority itself or action taken by other organisations such as the police or a care home. Having an enquiry should not be classed as taking action for the purpose of this table.

No action taken

This category should only be used where no safeguarding action has taken place at all during the case and no further action is planned.

Risk outcomes (for table SG2e)

Risk outcome

Risk outcome describes what happened to the risk being actioned. It is the decision of the safeguarding officer as to which option to record but the views of the individual at risk (or the person acting in their best interests) and other colleagues should be considered where possible.

Risk remained

The circumstance causing the risk is unchanged and the same degree of risk remains. It is acknowledged that there are valid reasons why a risk remains, for example in the case of an individual wanting to maintain contact with a family member who was the source of the risk but the safeguarding officer refers the individual at risk for counselling.

Risk reduced

The circumstance causing the risk has been mitigated to some degree. It is acknowledged that there are valid reasons why a risk is reduced rather than removed, for example if an incident occurred in a care home where the perpetrator was not identified but the individual at risk was to be monitored more closely going forwards.

Risk removed

The circumstance causing the risk has been completely removed so that the individual is no longer subject to that specific risk, for example if a care worker in a care home is the perpetrator and they are dismissed as a result of their behaviour.

SG3: mental capacity tables

The mental capacity tables (SG3a and SG3b) record counts of concluded safeguarding enquiries broken down by the age band and mental capacity of the adult at risk.

The information in these tables relates to safeguarding enquiries that concluded during the reporting year 1 April 2025 to 31 March 2026.

Counting for SG3 tables

Unlike SG2 tables, you cannot record multiple counts in SG3 tables. Record only one entry per enquiry.

Age definition

Record the age of the individual on the last day of the reporting period (31 March 2026) or age at the time of death if an individual has died. Where the age of an individual has not been recorded, record them in the ‘not known’ column. We only expect this category to be used in a minority of cases.

What mental capacity means

Mental capacity means a person’s ability to make their own choices and decisions.

Under UK law, someone’s capacity is judged according to the specific decision to be made, so a person may have sufficient capacity to make simple decisions but not more complicated ones.

In England and Wales, the Mental Capacity Act (MCA) says that a person lacks capacity to make a decision if they cannot do one or more of:

• understand the information relating to this particular decision (including its benefits and risks)
• retain the information for long enough to make this decision
• weigh up the information involved in making this decision
• communicate their decision in any way (this could be by any possible means, such as talking, using sign language or even simple muscle movements like blinking an eye or squeezing a hand)

And the reason they cannot do one or more of the above is because of an ‘impairment of or disturbance in the function of their mind or brain’ (either temporary or permanent).

Fluctuating mental capacity

The reason for counting concluded enquiries is that capacity can fluctuate between enquiries. For every enquiry in which an individual lacks the capacity to make decisions about the safeguarding incident, practitioners should ensure that appropriate support is provided by an independent advocate. Independent advocates can include friends, family, carers and independent mental capacity advocates.

Capacity can also fluctuate during the safeguarding enquiry. If at any point during the safeguarding enquiry an MCA assessment is completed and the individual is found to lack capacity, record this as ‘yes’ for that concluded enquiry.

SG3a - mental capacity table for concluded section 42 safeguarding enquiries

This table is mandatory to complete and should only include counts of concluded section 42 safeguarding enquiries.

The mental capacity categories are:

Yes, the individual lacks mental capacity

Where an MCA assessment has taken place and found the individual to be lacking capacity.

No, the individual does not lack mental capacity

Where an MCA assessment has taken place and found that the individual does not lack capacity, or where no-one has reason to believe that the individual lacks capacity.

Don’t know

Where the safeguarding officer does not know whether the individual at risk lacks capacity or not. This could be because the individual at risk died or became seriously ill before they could be spoken to.

Not recorded

Where the capacity of the individual at risk has not been recorded on the local system.

Of the enquiries recorded as yes in row one, in how many of these cases was support provided

For every enquiry in which an individual lacks the capacity to make decisions about the safeguarding incident, practitioners should ensure that appropriate support is provided by an independent advocate, friend or family member. This row should be a subset of row one.

SG3b: mental capacity table for ‘other’ concluded safeguarding enquiries

This table should only include counts of ‘other’ concluded safeguarding enquiries. Completion of this table is voluntary.

The categories are the same as SG3a.

SG4: making safeguarding personal (MSP) tables

The MSP tables (SG4a and SG4b) record counts of concluded safeguarding enquiries broken down by the age band of the adult at risk and information about the MSP elements of the enquiry.

The information in these tables relates to safeguarding enquiries that concluded during the reporting year 1 April 2025 to 31 March 2026.

Counting for SG4 tables

You cannot record multiple counts in SG4 tables. Record only one entry per enquiry.

Age definition

Record the age of the individual on the last day of the reporting period (31 March 2026) or age at the time of death if an individual has died. Where the age of an individual has not been recorded, record them in the ‘not known’ column. We only expect this category to be used in a minority of cases.

What MSP means

MSP is about having conversations with people about how to respond in safeguarding situations in a way that enhances involvement, choice and control as well as improving quality of life, wellbeing and safety. The Care Act advocates a person centred rather than process driven approach and many local authorities have already adopted this way of working.

Desired outcomes

These are the wishes of the adult at risk or their representative which have been expressed at some point during the information gathering or enquiry phases.

Achieved outcomes

The process for deciding whether an outcome has been achieved will be different for different local authorities. Ideally the adult at risk or their representative should identify whether their outcomes have been met but sometimes it is the safeguarding team that would make this decision. We would not expect 100% of expressed outcomes to be achieved.

MSP categories

Yes they were asked and outcomes were expressed

The individual at risk or their representative was asked if they would like to express desired outcomes and outcomes were expressed.

Yes they were asked but no outcomes were expressed

The individual at risk or their representative was asked if they would like to express desired outcomes but no outcomes were expressed.

No

The individual at risk or their representative was not asked if they would like to express desired outcomes.

Don’t know

Where the safeguarding colleague entering data onto the system does not know whether the individual at risk or their representative was asked if they would like to express desired outcomes.

Not recorded

Where no data has been entered onto the local system.

Of the enquiries recorded as yes in row one of this table, in how many of these cases were the desired outcomes achieved

Where the individual at risk or their representative was asked if they would like to express desired outcomes and outcomes were expressed, in how many cases were the expressed outcomes achieved.

Fully achieved

All expressed outcomes have been achieved. Can be decided by the adult at risk, their representative or a member of the safeguarding team.

Partially achieved

This could relate to when some outcomes have been achieved but not others or if outcomes have been partially fulfilled. Can be decided by the adult at risk, their representative or a member of the safeguarding team.

Not achieved

None of the expressed outcomes have been achieved. Can be decided by the adult at risk, their representative or a member of the safeguarding team.

SG4a: MSP table for concluded section 42 safeguarding enquiries

This table should only include counts of concluded section 42 safeguarding enquiries. This table is voluntary to complete.

SG4b: MSP table for ‘other’ concluded safeguarding enquiries

This table should only include counts of ‘other’ concluded safeguarding enquiries. This table is voluntary to complete.

SG5: safeguarding adult reviews (SARs) tables

The SAR tables (SG5a and SG5b) collect:

• age bands of the adults at risk
• counts of SARs
• counts of individuals involved in SARs

The information in these tables relates to SARs which concluded during the reporting year 1 April 2025 to 31 March 2026.

The term ‘individuals involved’ relates only to adults at risk. All cells in this section are mandatory to complete.

Counting for SG5 tables

You cannot record multiple counts in SG5 tables.

What an SAR is

When an adult at risk dies from or suffers from serious harm, an SAR is conducted to identify how local professionals and organisations can improve the way they work together. A safeguarding adults board (SAB) would usually make the decision to instigate an SAR, and a report will be produced to document the findings and recommendations.

Where an individual died

This category refers to the individual at risk and whether they died as a result of the abuse they suffered.

Age definition

Record the age of the individual on the last day of the reporting period (31 March 2026) or age at the time of death if an individual has died. Where the age of an individual has not been recorded, record them in the ‘not known’ column. We only expect this category to be used in a minority of cases.

SG5a: counts of SARs

This table collects counts of SARs that concluded during the reporting year. This table is mandatory to complete.

SG5b: counts of individuals involved in SARs

This table collects counts of individuals involved in SARs that concluded during the reporting year, broken down by age group. This table is mandatory to complete.

Annex: background and supporting information

This section provides further information about the safeguarding adults process and terminology used in the SAC return.

Safeguarding concerns

For the purposes of the SAC a safeguarding concern is a sign of suspected abuse or neglect that is reported to the local authority or identified by the local authority.

The Local Government Association (LGA) and the Association of Directors of Adult Social Services (ADASS), as part of the Care And Health Improvement Programme, have set out a suggested framework ‘Understanding what constitutes a safeguarding concern and how to support effective outcomes’. Published in 2020, it guides all agencies in determining what should be referred to the local authority as a safeguarding concern.

We are aware that not all local authorities have adopted this framework or agree with it, and that adopting this framework is voluntary. We are including it here to add further detail to the description of safeguarding concerns to help improve the quality, consistency and reliability of data collected in the SAC.

An important section of the framework is reproduced below to set out when a safeguarding concern should be raised with the local authority. Note this is for context only, we are not prescribing it as the approach that all local authorities should follow.

Deciding if you should raise a safeguarding concern to the local authority and/or Multi-Agency Safeguarding Hub (MASH)

The following questions should be considered when raising a concern:

• are you concerned that an adult is at risk of or is experiencing abuse or neglect?
• what types of abuse or neglect are you concerned about?
• have you had conversations with the adult about the concerns?
• have you sought the views and wishes of the adult?
• are there any immediate risks to the adult or to others including children?
• have you discussed and agreed next steps with the adult?
• have you provided advice, information or signposted the adult?

If the adult:

(a) has needs for care and support (whether or not the authority is meeting any of those needs)

(b) is experiencing, or at risk of, abuse or neglect:

• have you discussed with the adult about raising a safeguarding concern?
• does the adult wish to raise their own concerns? Do they need support to do this?
• who else can you talk to within your organisation? Can you seek advice from others outside of your organisation or consider seeking advice from the local authority?
• if the outcomes of these discussions give you reasonable cause to suspect section 42 part 1 (s42(1)) (a) and (b) apply, raise a safeguarding concern to the local authority and/or MASH. The local authority information gathering responses, under s42(1), will help to make a decision

If the concerns are not (a) and (b), endeavour to provide further support, advice, information or signposting where possible. There may be alternative multi-agency risk management pathways to follow such as: - Multi-Agency Risk Management (MARM) - Multi-Agency Risk Assessment Conference (MARAC) - Care Programme Approach (CPA) - Multi-Agency Public Protection Arrangements (MAPPA)

Raising a safeguarding concern without the consent of the adult may be justified where there is a vital risk to the person or others, where there is a public interest consideration, or where a best interest decision needs to be made where the adult lacks capacity to make the decision. In these cases, proceed with raising a safeguarding concern and record the rationale for the decision.

The framework suggests that where anyone raising a safeguarding concern with the local authority has reasonable cause to suspect that the first 2 criteria set out in the Care Act s42(1) (a) and (b) are met, and where the local authority has checked that reasonable cause has been determined, a safeguarding concern will be reported in the SAC. These concerns may be identified by any organisation, the adult concerned or a member of the public, or by the local authority itself.

This may well be before information gathering under s42(1) progresses beyond initial stages and before the section 42 duty can be fully applied to decide how to proceed. Therefore, this approach means that the number of safeguarding concerns in the SAC is most unlikely to match the number of safeguarding enquiries triggered within the s42 duty. In this way early work will be acknowledged and valued as part of safeguarding responses, even though the SAC simply records the number of concerns raised with the local authority and does not capture further detail on the nature of concerns (more detailed information is reported on completed s42 enquiries). Having an accurate reflection of the numbers of concerns raised that do not proceed to an enquiry, provides an opportunity to explore what happens in those circumstances.

As mentioned above it is recognised that this framework has not been adopted by all local authority areas. There is a comments section within the SAC form and local authorities can inform us if a different approach has been followed and how it is different.

The SAC captures information about concerns that were raised during the reporting year, that is, the date the concern was raised with the local authority falls within the reporting year, regardless of the date the incident took place.

Section 42 duty and safeguarding adults enquiries

As mentioned above, section 42 is the environment within which local authorities operate when a safeguarding concern is raised. It ensures support to keep people safe who may be at risk of or experiencing abuse or neglect.

LGA and ADASS have jointly developed another framework to support local authorities in making decisions on the duty to carry out safeguarding adults enquiries. This framework was developed in response to the range of different practices around safeguarding, in part evidenced through the large variations seen in the SAC and the responses to the Survey of Local Practice 2018.

While this framework has been developed to support safeguarding practice, it also offers clarity on elements of reporting in the SAC around section 42 enquiries. The framework was published in August 2019.

The framework clarifies that the section 42 duty on the local authority exists from the point at which a concern is received. This does not mean that all activity from that point will be reported under the duty to make enquiries as a safeguarding enquiry in the SAC.

This is because the section 42 duty is carried out under 2 parts of the Care Act, s42(1) and s42(2), and it may turn out that the s42(2) duty is not triggered because the concern does not meet the s42(1) criteria. This is explained in more detail below.

Safeguarding adults enquiries (called section 42 safeguarding enquiries in the SAC)

The s42(1) criteria state that where there is reasonable cause to suspect:

(a) the adult has needs for care and support (whether or not the authority is meeting any of those needs)

(b) the adult is experiencing, or is at risk of, abuse or neglect

(c) as a result of those needs is unable to protect himself or herself against the abuse or neglect or the risk of it

Then, where all the s42(1) criteria are met, the enquiry and decision on what action to take (including taking no action) will follow under the duty to make enquiries described in s42(2) and should be reported as a section 42 enquiry in the SAC.

Information gathering is done under the duty described in s42(1). The s42(2) safeguarding enquiry that is triggered when the s42(1) criteria are met is set out in the Care Act (s42(2)) as follows:

The local authority must make (or cause to be made) whatever enquiries it thinks necessary to enable it to decide whether any action should be taken in the adult’s case (whether under this part or otherwise) and, if so, what and by whom.

An enquiry could range from a conversation with the adult to a more formal multi-agency plan or course of action.

The duty to make enquiries under s42(2) is not a prescriptive process in the way it was before the Care Act but consists of activity to inform decision-making and the actions to be taken.

‘Other’ safeguarding adults enquiries

Those enquiries where an adult does not meet all of the s42(1) criteria but the local authority considers it necessary and proportionate to have a safeguarding enquiry should be reported as an ‘other’ safeguarding enquiry in the SAC.

While each local authority has the jurisdiction to decide what safeguarding activity they undertake for adults who do not meet the s42(1) criteria, some examples could include safeguarding to promote an individual’s wellbeing as related to the areas in section 1 of the Care Act, or for activity in respect of carers who do not qualify for section 42.

When an enquiry starts

A safeguarding enquiry starts when the initial information gathering has established that there is reasonable cause to suspect that all 3 of the s42(1) criteria are met, or where the criteria are not met the decision has been made that it is necessary and proportionate to respond as a safeguarding enquiry (called an ‘other’ enquiry). We expect that for the purposes of the SAC, the date the safeguarding enquiry starts will be the same date that the initial information gathering establishes, whether or not the s42(1) criteria were met.

In practice the decision-making needs to be dynamic. Practitioners might change their mind as information unfolds about whether or not the situation meets the statutory criteria for undertaking an enquiry under the s42(2) duty.

There is no fixed point during the early phase of an enquiry when a practitioner must determine how to report activity within the SAC return. It may be that this is determined and therefore recorded and reported as a s42(2) enquiry, after the practitioner has already done part of it. Reporting and recording reflect practice decisions.

When an enquiry concludes

All enquiries that commence must eventually be logged as concluding at some point.

A safeguarding enquiry is concluded when all of the necessary information gathering is complete, and all of the necessary actions have been agreed. The enquiry does not need to stay open until the person has been made safe, just when the actions have been agreed.

Paragraphs 14.110 and 14.111 of the Care and support statutory guidance support this judgement. The enquiry outcome might include the formulation of agreed action for the adult.

Paragraph 14.110 says that once enquiries are completed, the outcome should be notified to the local authority, which should then determine with the adult what, if any, further action is necessary and acceptable. It is for the local authority to determine the appropriateness of the outcome of the enquiry. One outcome of the enquiry may be the formulation of agreed action for the adult which should be recorded on their care plan. This will be the responsibility of the relevant agencies to implement.

Paragraph 14.111 says that the recorded outcome in relation to the adult should set out:

• what steps are to be taken to assure their safety in future
• the provision of any support, treatment or therapy, including ongoing advocacy
• any modifications needed in the way services are provided (for example, same gender care or placement, appointment of an Office of the Public Guardian deputy)
• how best to support the adult through any action they take to seek justice or redress
• any ongoing risk management strategy as appropriate
• any action to be taken in relation to the person or organisation that has caused the concern

Safeguarding adults process

The safeguarding adults process involves the following steps:

1. A safeguarding concern is referred to the local authority.
2. The local authority records as SAC category: ‘Safeguarding concern’.
3. The local authority gathers information under s42(1) to consider whether there is reasonable cause to suspect all of the following:
   • the adult has needs for care and support (whether or not the authority is meeting any of those needs)
   • the adult is experiencing, or is at risk of, abuse or neglect
   • as a result of those needs is unable to protect himself or herself against the abuse or neglect or the risk of it
4. The local authority also seeks to get the views of the adult on the nature, level and type of risk, and the support they may need to mitigate the risk.
5. Decision: is it necessary to continue to the s42(2) duty to make enquiries and/or take action.
6. The outcome of the above criteria will result in one of the 3 pathways set out below, based on need.

S42(1) criteria is met so s42(2) is triggered

The local authority will:

• make (or cause to be made) whatever enquiries are necessary
• decide whether action is necessary and if so what and by whom (this could include, for example, a s9 or s10 assessment)
• record as SAC category: ‘section 42 enquiry’
• conclude the enquiry: ‘risk remains’, ‘risk reduced’ or ‘risk removed’
• conduct an SAR

S42(1) criteria not met so s42(2) not triggered but local authority feels it is necessary to make enquiry on similar lines to s42(2) - for example, where the enquiry concerns a carer

The local authority will:

• make (or cause to be made) whatever enquiries are necessary
• decide whether action is necessary and if so what and by whom (this could include for example, a s9 or s10 assessment)
• record as SAC category: ‘other’ enquiry
• conclude the enquiry: ‘risk remains’, ‘risk reduced’ or ‘risk removed’
• conduct an SAR

Not progressing to a s42(2) enquiry

Alternative responses include:

• s9 assessment
• s10 carers assessment
• care management
• quality of care concern
• complaint
• MARAC
• community MARAC
• signposted for advice
• no further action

The local authority will:

• not capture as an enquiry in the SAC
• conduct an SAR

When an adult at risk dies or suffers serious harm an SAR is conducted to identify how local professionals and organisations can improve the way they work together. An SAB will usually make the decision to instigate an SAR.