Issue No: | 1 |
Document Owner: | Cambridgeshire Safeguarding Adults Board & Peterborough Safeguarding Adults Board |
Date Approved: | 24th October 2025 |
Review Date: | November 2026 |
Table of Contents
PART 1: Safeguarding Adults Review Policy | ||
1. Introduction | ||
1.1 | This policy and procedures document has been mapped against the Social Care Institute for Excellence’s (SCIE) SAR Quality Markers (QMs). Where the document supports the quality markers this is shown in the following way: [QMX]. SAR Quality Markers are a tool to support people involved in commissioning, conducting and quality-assuring SARs to know what good looks like. Covering the whole process, they provide a consistent and robust approach to SARs. The Quality Markers are based on statutory requirements, established principles of effective reviews and incident investigations, as well as practice experience and ethical considerations. | |
2. Purpose | ||
2.1 | The purpose of a SAR is to allow professionals, organisations, and agencies to positively learn lessons which surface, consider the strengths and difficulties in safeguarding practice, inform and guide further improvement activity [QM 4.2.1]. It looks at what agencies and individuals might have been done differently that could have prevented harm or death so that these lessons can be learned and applied to future practice to prevent similar harm occurring again. | |
2.2 | Its purpose is not to hold any individual or organisation to account, not to re-investigate or to apportion blame. Other processes exist for that, including criminal proceedings, disciplinary procedures, employment law and systems of service and professional regulation, such as Care Quality Commission (CQC), the Nursing and Midwifery Council, Social Work England, the Health and Care Professions Council, and the General Medical Council. | |
3. Criteria for a SAR | ||
3.1 | Under the Section 44 of the Care Act 2014, there are three broad circumstances which considers when a SAR should take place. The legislation makes a distinction between those circumstances where the SAB must (mandatory) or may (discretionary) arrange a SAR both of which are statutory reviews. | |
Mandatory SAR Criteria | ||
Section 44 of the Care Act 2014 states:
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*In the context of SARs, something can be considered serious abuse or neglect where, for example the individual would have been likely to have died but for an intervention, or has suffered permanent harm or has reduced capacity or quality of life (whether because of physical or psychological effects) as a result of the abuse or neglect. | ||
Discretionary SAR Criteria | ||
Section 44 of the Care Act 2014 also states: 4) An SAB may arrange for there to be a review of any other case involving an adult in its area with needs for care and support (whether or not the local authority has been meeting any of those needs). | ||
3.2 | Each member of the SAB must co-operate in and contribute to the carrying out of a review under this section with a view to –
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3.3 | It is important to note that, if the nature of the incident triggers a mandatory investigation or review within the organisation concerned e.g. NHS Patient Safety Incident Response Framework (PSIRF), this should take place without delay and in line with the organisation’s internal policy requirements. Internal governance processes and SARs are not mutually exclusive and indeed, the multi-agency perspective may provide invaluable insights to inform internal review processes. | |
4. Identification and Referral of Safeguarding Adults Review | ||
4.1 | The SAB is the only body which can arrange / commission a Safeguarding Adults Review. Where any agency representative / professional including local councillors, Members of Parliament, and Coroner, think the criteria for a case is met, they must complete a safeguarding adults review referral form, Appendix A, which can be found on the Safeguarding Board website. Safeguarding Adults Reviews | Cambridgeshire and Peterborough Safeguarding Partnership Board | |
4.2 | For those making a SAR referral from an agency represented at the Safeguarding Adults Review subgroup, the relevant subgroup member must review the referral before it is submitted to ensure the referral is complete, and it is of the necessary quality. | |
4.3 | If a member of the public, including the adult themselves, wishes to make a referral for a Safeguarding Adults Review, they should contact a professional involved with the adult’s care to discuss the situation, and if deemed appropriate, the worker should make a referral. | |
4.4 | Completed referrals must be submitted to the SAB business unit (safeguardingboards@cambridgeshire.gov.uk) using the template at Appendix A where the Business Unit will acknowledge receipt of the referral and inform the Independent SAR Chair. | |
4.5 | If the referral is found to be incomplete or of poor quality, the referral will be returned to the referrer with advice. The quality check is to ensure that all the necessary information has been included and that the information given has been done in such a way which the SAR Consideration Panel can use in its decision-making process. [QM1.2.2 to 1.2.5]. | |
4.6 | Once the SAR referral has passed the quality check, the business unit will share the referral with the Independent Chair of the SAR Subgroup, for information. The Board business unit will then establish which partner agencies have been involved with the individual(s), to request they complete a summary of involvement template Appendix B. Agencies are required to submit their completed summary of agency involvement forms, to the business unit. | |
4.7 | Agencies do not need to include events that would be unrelated to decision making about a SAR. What is required is a summary of the agency’s involvement, based on their review of the relevant documentation held by their organisation. This should not be an onerous exercise but a high-level review of the case, identifying specific concerns about multi-agency working. | |
4.8 | Every effort will be made to make decisions on a referral within 45 days. However, it is acknowledged that this may be impacted by a number of factors outside of the SAR Subgroup’s control including delays in receiving information from partner agencies. Reasons for any delay in decision-making process will be recorded in the meeting minutes [QM 2.1.9, QM 2.2.9 & QM 6.1.1(ii)] | |
4.9 | PLEASE NOTE: Whilst it is good practice to discuss a SAR referral with family members, it is not a requirement. If the SAR referral has been discussed with family members it is the referrer’s responsibility and not the responsibility of SAB Business Unit to inform the family of the outcome at SAR referral. [QM 3.1.1]. | |
5. Information Governance | ||
Section 45 of the Care Act 2014 also states:
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5.1 | Section 45 of the Care Act places a legal duty on organisations to comply with requests for information that are received from Safeguarding Adults Boards that may assist with SARs. Organisations are required to give due consideration to the Data Protection Act 2018 and General Data Protection Regulations, but this should not be used as a reason to withhold information. | |
5.2 | Once it is known that a SAR referral has been received, agencies involved should, where possible, secure case records to guard against loss or interference, whilst still enabling their professional duty to be carried out. All agencies also have a responsibility for promoting confidentiality and sensitivity in the co-ordination and management of the SAR process. All reports and information used as part of the SAR process must indicate their confidential nature and be securely shared in accordance with each agency’s information governance procedures. | |
5.3 | No sensitive or person identifiable information should be shared with any person or agency that is unlikely to hold relevant information. Anyone receiving a request to check records and find that nothing is held must advise the Safeguarding Board’s Business Unit accordingly about this and then immediately delete the request and or any associated emails. | |
Freedom of Information Act 2000 (FOIA) | ||
5.4 | As a general rule, agencies involved in a SAR deal with individual requests under the FOIA in accordance with their own procedures, as SABs are not a ‘public authority’ as set out under the Schedule to the Act and are therefore exempt from requests for disclosures of information. Only information that has voluntarily been made public or is accessible under other legislation (e.g., Data Protection Act) will be available to others. | |
Records and retention | ||
5.5 | The Safeguarding Board’s Business Unit is responsible for all SAR referrals and subsequent review related documents, which will be stored in a secure electronic folder. Material received through the SAR process is third party material and belongs to the agency who supplied it; any requests for information must be directed to the individual agency. Material will be retained for a maximum of seven years following the publication of the SAR in line with the SAB Retention Schedule and then deleted. | |
6. Decision Making on SAR Referrals | ||
6.1 | The SAR referral will be presented by the referring agency to the SAR Subgroup’s monthly Consideration Panel. This meeting will be chaired by the SAR Subgroup Independent Chair, and must comprise of at least 1 representative from Cambridgeshire Constabulary, NHS Cambridgeshire and Peterborough Integrated Care Board, and Adult Social Care (from the originating local authority). There should also be a representative from each of the agencies who have had involvement with the adult. | |
6.2 | Attendees will present scoping information from their agency and the chair will present information from agencies not in attendance. | |
6.3 | The Consideration Panel will establish if there were gaps in multi-agency working and consider whether there is a mandatory obligation to undertake a SAR, using the criteria outlined in section 3 | |
6.4 | To support this decision-making process, Consideration Panel members may use the SAR Referral Decision Making Template [QM 2.2.1 to 2.2.8, 2.2.11, 2.2.13 to 2.2.16, 2.4.1 to 2.4.4]. | |
6.5 | The SAB may also commission reviews in any other situations involving adults with care and support needs (whether or not the local authority has been meeting any of those needs) under Section 44(4). While such reviews are at the discretion of the SAB, these reviews are statutory. [QM 2.2.10] | |
| 6.6 | Should the consideration panel agree that a referral does not meet the criteria, but considers there to be single agency learning, they can recommend that the relevant agency conduct an internal review. At the end of the review, the agency will be asked to share relevant findings with the SAR Subgroup. | |
| 6.7 | Following the consideration panel, the Independent Chair will complete the decision making form which will be sent to the SAB Chair to agree the recommendation on behalf of the SAB. | |
7. SAR Methodology | ||
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7.1 | SARs can be conducted in a variety of ways and no one model will be applicable for all cases. The methodology selected must offer the most effective learning and involvement of key staff / family weighed against the cost, resources and length of time required to conduct the review [QM 5.1.1]. | |
7.2 | The following should be considered in selecting a SAR methodology:
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7.3 | Irrespective of the methodology chosen, all reviews should apply the following principles:
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7.4 | The SAR Subgroup/Consideration Panel/SAR Panel will endorse the approach best suited and proportionate to the circumstances for each individual case. Models include but not limited to:
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7.5 | This is not a prescriptive or exhaustive list but offers a range of options that could be matched to different presenting circumstances. Alternatives, based upon the collective experience of the SAR Subgroup and Independent Reviewer should also be considered as appropriate. The methodology chosen should seek to build upon the findings from previous local SARs. | |
7.6 | More details on different types of methodology can be found in Appendix 7. | |
8. Legal advice | ||
8.1 | Legal advice will be supplied by the relevant Local Authority’s legal representative in the first instance, unless a conflict of interest should arise, in which case independent legal advice will be sought, or legal advice from the individual organisation who may be the subject of any concern. [QM 2.1.8. 4.1.4, 14.2.2-3-4] | |
9. Allegations of misconduct | ||
9.1 | SARs do not explore whether an organisation or individual is responsible for breaches in criminal, disciplinary and regulatory processes, set outside or within individual organisations. Where relevant, additional investigations will commence prior to, or parallel with, the SAR. | |
9.2 | If an issue of this nature arises, the relevant organisation will be notified by the SAB via the Business Unit’s Business Manager/Head of Service and after consulting with the Independent Chair. Should information regarding significant, individual and/or organisational omission be received that requires notification to a statutory body, SAB or another relevant agency will ensure this is completed without delay. | |
10. Dispute Resolution during SAR Process | ||
10.1 | It is recognised that disputes may arise at any stage during the SAR process, including whether a SAR should be commissioned, how it is commissioned and any aspect of the outcome of the review, including the content of the report. | |
| 10.2 | A dispute may arise because of a disagreement or complaint from anyone involved in the SAR process [QM 4.1.2, 7.1.1]. | |
| 10.3 | The SAB retains ultimate responsibility for the SAR process. Where a dispute arises, it shall be dealt with as follows [QM 6.2.5]:
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PART 2: Safeguarding Adults Review Procedure | ||
Please note that more than one stage may be happening at the same time. | ||
Stage 1: Appoint an Independent Report Writer (IRW) | ||
1.1 | Once a decision has been made to commission a Safeguarding Adults Review, the appointment of an Independent Reviewer will be made via a request for expression of interest through all appropriate networks, including the National SAR Reviewers Network. | |
1.2 | If, following the Consideration Panel’s decision to commission a SAR, a preferred methodology is agreed, the methodology will be included in the request for expressions of interest. | |
| 1.3 | The selection of the Independent Reviewer will be made using the criteria and checklist as set out in Appendix 6, including a declaration that the reviewer does not hold any conflicts of interest in accepting the appointment [QM 2.1.3, QM 5.3.4]. Should a conflict of interest arise during the process of the review, the Independent Reviewer must declare this at the earliest opportunity to the Business Unit. | |
| 1.4 | The Independent Reviewer will have appropriate skills and experience which should include:
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Stage 2: Write to Chief Officers | ||
| 2.1 | Where it is agreed a SAR will be commissioned, a letter from the (SAR/SAB) Independent Chair is sent to the named chief officers of all agencies involved. The letter sets out the details of the SAR with Key Lines Of Enquiry and or terms of reference and a case summary. Each chief officer will nominate a person (at managerial level) within their organisation to represent their agency on the Safeguarding Adults Review Panel (Please note: Where possible, this person must not have had any direct involvement in the case). | |
| 2.2 | Any requested report, or agreed alternative, should be sent to the Business Unit within the agreed timescales given in the letter. | |
Stage 3: Set up SAR Panel | ||
| 3.1 | Following the appointment of the Independent Reviewer, a multi-agency panel will be set up to manage the SAR at the earliest opportunity. | |
| 3.2 | In most situations, the Independent Reviewer will chair the SAR panel. | |
| 3.3 | The role of the SAR Panel is to agree the terms of reference, scrutinise information submitted to the review and support the Independent Reviewer. The panel should be proportionate to the nature and complexity of the review but must comprise a minimum of three members, one from each of the statutory members (Local Authority, Police, ICB) in addition to a chair. In most cases, representative will be identified from the SAR consideration panel to ensure consistency within the process and decision making. | |
| 3.4 | Panel members should also be invited from other relevant agencies that have had involvement in the case or who can bring expert knowledge. | |
| 3.5 | All panel members, where possible, must be independent from the case under review (i.e. did not have case responsibility or supervised the case worker directly) and with appropriate level of seniority [QM 6.3.2] | |
| 3.6 | Panel members play a critical role in delivering the review and their roles and responsibilities are set out in Appendix 8. Every effort must be made by partner agencies to avoid a change in their panel representative after the first panel meeting has concluded [QM 5.1.4] | |
| 3.7 | The initial panel meeting will address the key topics including but not limited to:
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| 3.8 | Additional panel meetings as required will be agreed by the SAR panel and Independent Reviewer. Each version of the draft report will be marked separately for audit purposes. | |
| 3.9 | The Business Unit will keep the SAR Subgroup updated on progress of the review at regular points during the process. The SAR Subgroup Chair will provide updates to the SAB on the progress of the review. [QM 7.4.2] | |
Stage 4: Contact with family – ongoing commitment [QM 11] | ||
| 4.1 | The Independent Reviewer with support from the Business Unit will write to the individual and/or family in cases where the subject is no longer alive to inform them of the SAR, to hear their views and explain the purpose and process of the SAR. The Independent Reviewer / Head of Service / Business Manager will keep the individual and/or family regularly informed of progress throughout the review. [QM 3.1.1] | |
| 4.2 | In cases where the subject of the review is alive the Independent Reviewer / Head of Service / Business Manager will seek to gain their consent to share information and complete the SAR, as well as explaining the process and hearing their views. To ensure that the subject is fully supported in this an advocate should be available to assist if required. If the subject does not have access to a suitable person, the local authority Adult Social Care should arrange for an advocacy service to be available via the Local Authority contract. | |
| 4.3 | In cases where the subject of the review is alive but does not have capacity, the Independent Reviewer / Head of Service will contact the Next of Kin / Relevant Person to explain the purpose of the review and inform them of progress throughout the review | |
| 4.4 | Although it is best practice to obtain consent in such a situation it is not a statutory requirement as outlined in s45 of the Care Act. Therefore, lack of consent or capacity should not impede the progress of the SAR. | |
| 4.5 | The adult(s) and/or family should also be given the opportunity to discuss the SAR final draft report, its conclusions, recommendations, and their experiences of the process. This can be done via the Independent Reviewer [QM 3.1.1 & 3.1.2, 11.2.7-9] or Business Unit Head of Service, and the report will show clearly how those views have been incorporated into the analysis, where appropriate [QM 13.2.8]. | |
Stage 5: Gathering of information [QM 9.1.1 – 9.2.5, 9.3, 9.4] | ||
| 5.1 | Depending on the methodology agreed, the SAR Panel may receive copies of information / reports / chronologies via the SAB Business Unit which will be evaluated by members at a panel meeting. | |
| 5.2 | This information will be returned to the SAR panel member concerned if the information is considered
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| 5.3 | Any clarification or amendments to agency information must be returned to the Business Unit within seven working days. | |
| 5.4 | The Independent Reviewer may hold individual meetings / telephone discussions outside of panel meetings to ensure information is clearly presented and understood. | |
Stage 6: Options for discussion with practitioners involved [QM 10] | ||
| 6.1 | Depending on the methodology selected, practitioners involved in the case may be invited to workshops during the production of the report or following the final report to consider the learning from the case. The aim of the workshop is to support understanding about why practitioners made particular decisions and to understand the perspectives of other agencies. | |
Stage 7: Presentation of draft report | ||
| 7.1 | The Independent Reviewer will draft an overview report, drawing out relevant points and significant events, guided by the Key Lines of Enquiry as set out in the Terms of Reference. It will explore how organisations have worked together to comply with safeguarding procedures, identify lessons to be learnt, any policy/procedural challenges to be addressed and a conclusion to the SAR. This will be written with a view to publication (if appropriate) and in a suitably anonymised format. | |
| 7.2 | The Independent Reviewer will present the draft report to the SAR Panel for discussion and agreement, and for each organisation involved to check factual accuracy. [QM 13.1.6]. Any observations or suggested amendments to the draft report are to be supplied to the Independent Reviewer within 14 working days for consideration. If a panel member disagrees with the views of the Independent Reviewer and these cannot be resolved by consensus the dispute resolution process will be used [QM 6.2.3, 13.1.7] see Section 10 above. | |
Stage 8: Submission of final draft report | ||
| 8.1 | The final draft report is agreed and quality assured through the following process:
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Stage 9: Action planning and identification of risks | ||
| 9.1 | Every review will be supported by a written report / action plan / summary of findings (executive summary) written by the Independent Reviewer. The report will include recommendations for the board to consider and adopt if agreed. These recommendations must be SMART (specific, measurable, achievable, result- orientated and time-bound). | |
| 9.2 | A Composite Action Plan will be held by the Business Unit. The Action Plan will be regularly monitored via the SAR subgroup, to check and evidence the progress of work made against each action. | |
| 9.3 | It is the responsibility of SAB Board members and other organisations to ensure learning and service change from any SAR is understood, supported, embedded, and evidenced within their organisation and across the partnership. | |
| 9.4 | Agency actions identified by the SAR should genuinely support open and mutually challenging discussion about tackling the systemic risks identified by the review and at the right levels of a system hierarchy [QM 15.1.1, 15.2.1]. | |
| 9.5 | Organisations will be held accountable for these actions at board meetings. | |
| 9.6 | Any actions relating to areas of work within the remit of SAB subgroups will be passed to them. These actions are owned by the relevant subgroup chair who will be expected to submit regular updates to the Business Unit on progress made. | |
| 9.7 | Recommendations arising from an individual agency Independent Management Review or from a Single Agency Learning Review, are the responsibility of that agency to oversee and implement any actions identified. | |
Stage 10: SAR publication and media strategy [QM 14.1-2-5] | ||
| 10.1 | Following formal sign-off of the SAR report by the SAB, there will be a period of four to six weeks to enable appropriate communication plans to be developed, agreed and shared with all relevant agencies [QM 14.2.5-8]. However, publication may be delayed due to ongoing proceedings or inquests. | |
| 10.2 | A meeting will be held with SAB / SAR Subgroup representatives from the local authority, police, ICB and other relevant agencies as appropriate along with their communications leads to agree method of publication and engagement with the media (i.e. reactive or proactive media statements) [QM 14.1.6]. | |
| 10.3 | The impact of the publication on the person in the review, their family members [QM 11], practitioners, and others closely affected by the case, must be considered and their wishes taken in to account as part of the publication and media planning. | |
| 10.4 | The arrangements of publication will be discussed with the family and appropriate steps taken to minimise the disruption and distress [QM 14.1.2]. | |
| 10.5 | The anonymised report will be published on the SAB Board website (in exceptional cases only the executive summary may be added, or it may not be published at all) and may also include any additional products, mediums and activities to support different audiences [QM 14.2.9-10]. The report will be shared with the SAR national repository where appropriate. | |
10.6 | Between final sign-off by the SAB and the publication of the final report, it is the responsibility of SAR Panel / Subgroup members to inform any professionals from their own organisation who were directly involved in the case, of the contents of the report, schedule for publication and give appropriate support as needed [QM 14.2.6] | |
Appendices | ||
Appendix 1 – SAR Referral FormAppendix 2 – Agency Involvement FormAppendix 3 – SAR Decision Tree and ChecklistAppendix 4 – Overview of Parallel ReviewsAppendix 5 – Guiding Principles and Purpose of Carrying out a SARAppendix 6 – Selection of SAR Independent Overview Report WriterAppendix 7 – Methodology OptionsAppendix 8 – SAR: Guidance for Panel MembersAppendix 9 – Media strategy for response to serious incidents led by Safeguarding Board | ||
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