Adult support and protection learning and development: national framework

Section 1: Introduction

The first national multi-agency Framework for Adult Support and Protection Learning and Development has been produced to support the delivery of Adult Support and Protection (hereafter referred to as ASP) learning. It is intended for all staff and volunteers operating across Scotland who might come into contact with adults as part of their role. Please also note that at the end of this Framework (in the Appendices section) is a list of helpful resources alongside access to some ASP Learning and Development tools and training.

In 2023 the Scottish Government issued a survey to all 32 Councils to request information in relation to the workforce supporting and protecting adults within Health and Social Care Partnerships as per ASP legislation. This information was intended to inform local and national discussions in relation to how best to support the sector. There was a 100% response rate to the survey. The results clearly indicated wide variation in relation to how ASP Learning and Development was currently organised across different council areas. Respondents also requested more clarity as to what constitutes best practice, and for consistency in how to support best practice outcomes.

Between late 2024 and early 2025, views were sought from over 70 people as to whether a National ASP Learning and Development Framework could be a helpful resource. The response was almost unanimous – a Framework could provide much needed national clarity and consistency in relation to ASP Learning and Development for staff and volunteers at all levels.

Process and governance

This is the first nationally agreed Adult Support and Protection Learning and Development Framework.

A multi-agency Writing Group (derived mainly from the ASP L&D Networkmembership) developed this Framework, supported by the National Adult Support and Protection Coordinator. In addition, the work was supported by a multi-agency Stakeholders Reference Group - representing many of the key national agencies involved in ASP.

The multi-agency representation within governance groups – and ASP practice - highlights a key element of this document. It should be seen as a resource for all learning and development practitioners, leaders and managers, including those responsible for workforce development relevant to ASP. It can be used flexibly, including alongside single agency frameworks for learning. The intention is to emphasise the key theme which emerged from the engagement process relating to the 2022 revision of the Code of Practice linked to the Adult Support and Protection (Scotland) Act 2007: “Adult Support and Protection is everyone’s business and it involves support as well as protection”.

In December 2024 two multi-agency drop-in sessions were facilitated to garner views on perceived benefits and challenges concerning the development of a National ASP Learning and Development Framework. The Stakeholders Reference Group was also surveyed in relation to these same issues and support for the development of the Framework was very evident.

In relation to the process undertaken in the development of the Framework, several multi-agency consultation methods were involved. These included:

• A multi-agency Writing Group (subgroup of the National ASP Learning and Development Network)
• A multi-agency Stakeholders Reference Group - comprising 27 national organisations across the sectors
• 2 multi-agency drop-in information and feedback sessions
• Meetings with academics to ensure all relevant research and resource publications were included
• A survey to the Stakeholders Reference Group
• A survey to ASP Lead Officers - regarding the ‘Role of the 2nd Worker’
• Consultation with the ASP National Implementation Group - ASP Inquiries, Investigations and Role of the Council Officer Subgroup

A wide consultation exercise between June and July 2025 involving the following groups:

• National ASP L&D Network (40 agencies)
• Stakeholders Reference Group (27 National agencies)*
• ASP Lead Officers (30 organisations)
• APC Convenors (30 Multi-agency Committees)
• Scottish Health Leadership Adult Protection Group (30 agencies)
• ASP National Implementation Group - Inquiries, Investigations and the role of the Council Officer (10)
• Scottish Fire and Rescue Service (national agency)
• Scottish Care (national infrastructure body)
• Police Scotland (national agency)
• Iriss
• National ASP Strategic Forum (20 National agencies)

*Including NHS Education Scotland (NES), Health Improvement Scotland (HIS), Scottish Social Services Council (SSSC), Scottish Ambulance Service, Police Scotland, and others.

Context of the Framework

There were several strategic documents to consider in the development of this Framework. Further links are included in the Appendix. However, the most significant influences on the document were:

• The ASP Act
• The ASP Act - Revised Code of Practice 2022
• National Framework for Child Protection Learning and Development in Scotland 2024

The Adult Support and Protection (Scotland) Act 2007: Code of Practice July 2022 highlighted important themes for practice, and these are key to updating all learning and development resources. This is clearly stated in the foreword to the Code of Practice:

“Since the introduction of The Adult Support and Protection (Scotland) Act 2007 in 2008, and publication by the Scottish Government of the Adult Support and Protection Code of Practice in 2014, there have been a number of policy, legislative and practice developments, both in the overall context of adult support and protection and in day-to-day activity.

This revised version of the Code of Practice aims to capture these changes and inform the development of local and national multi-agency adult protection procedures, processes and training across Scotland. It will also help to support the care and protection of adults who may be at risk of harm. This Code is for all those who may know adults at risk of harm whether they work in the local authority, health, police, or the third sector.

Learning from research and practice has reinforced a need to understand the impact of trauma and diversity on personal growth and development. The impact will vary, depending on the level of personal resilience, support and response available in the life of any individual, at any age and stage. In general, the younger the individual when the experience happens, and/or the more heightened and persistent the trauma or adversity is, the greater the impact is likely to be on the individual’s capacity and functioning throughout their life.

Research indicates that adversity and trauma are equally applicable to adults and children (including carers), highlighting the need for a holistic approach to assessment and intervention. It is important that all learning resources reflect this aspect of practice, and the National Trauma Training Programme National Trauma Training Programme highlights that trauma-informed practice should be firmly embedded within all multi-agency learning and development.” The ASP Revised Code of Practice 2022 provides further clarity concerning how to ensure that previous trauma is considered in relation to determining if an adult will meet the ASP 3 Point Criteria - ASP Act - Revised Code of Practice 2022 (page 20).

This Framework has also been informed by legal developments internationally

and in Scotland, and by research and inspection into the efficacy of the Adult Support and Protection (Scotland) Act 2007. The former includes the United Nations Convention on the Rights of Persons with Disabilities (CRPD) and The Scottish Mental Health Law Review (2022). The CRPD underpins a human rights approach to involvement in the affairs of adults (and children) with disabilities (including mental health issues), seeking to end the discrimination they face. It establishes an important precedent in confirming that all adults, regardless of disability, have ‘legal capacity’. It recognises that ‘mental capacity’ can fluctuate and be impaired, but in such instances requires national laws and practices to be directed at supporting the adult to exercise their legal capacity—referred to as their will and preferences—as far as possible. In this, the CRPD compels a shift away from ‘substitute decision-making’ to ‘supported decision-making’ - Iriss Insight into supported decision making with emphasis on determining and acting on the adult’s will and preferences (rather than on assumptions about their best interests).

The Scottish Mental Health Law Review (SMHLR) adopted the CRPD’s Articles and recommended human rights based legal reform. While focused largely on the Mental Health (Care and Treatment) (Scotland) Act 2003 and the Adults with Incapacity (Scotland) Act 2000, the SMHLR also considered the ASP Act, in recognition of the inter-play between the three statutes with, for example, use of the ASP Act potentially leading to interventions under the other two pieces of legislation. The SMHLR made a number of recommendations, including that human rights enablement and supported decision-making should be adopted in ASP practice.

Recent research and inspection reports exploring the use and impact of the ASP Act align with the CRPD and SMHLR in advocating for greater emphasis within ASP practice on human rights alongside support for the exercise of legal capacity through supported decision-making (Care Inspectorate et al. 2018 and 2023; Mackay and McCusker, 2024). Encouragingly, they illustrate the significant impact adult support and protection work has had in stopping harm and significantly improving quality of life for adults. They also illustrate the centrality of specific approaches, such as relationship-based practice, effective multi-agency working and facilitating participation in the ASP journey through supported decision-making in achieving effective outcomes for adults and carers. The reports also highlight areas for improvement, including professionals’ understanding of capacity and the difference between mental capacity and the ability to safeguard; differences in knowledge across professions; practice around risk assessment and chronologies; and inconsistencies in access to support for adults navigating the ASP process, among others. These reports support the establishment of an ASP National Learning and Development Framework. They underline the need for ASP training to be rigorous and ongoing, and to draw upon the findings of law reform, research evidence, inspections and other relevant sources to ensure learning keeps abreast of ethical and practice issues and concerns.

The legal boundaries of childhood and adulthood are variously defined, creating overlaps for some ages (particularly for 16- and 17-year olds) across different pieces of guidance and legislation. The National Framework for Child Protection Learning and Development in Scotland 2024 states that “For the purposes of clarity (and recognising the varied approaches across legislation), this Framework defines ‘child’ as a person up to 18 years of age.” A helpful document was developed by Iriss - Understanding age in CP & ASP Guidance. The Guidance and Legislation table (starting on p23 of the full report) should be embedded across adult, children, and families’ practice to promote understanding across the sectors.

Scope and audience

This publication is relevant to all staff across the breadth of organisations and bodies that may encounter adults (age 16+) at risk. This includes (but is not limited to) health, social work, social care, police, fire and rescue, ambulance, voluntary and third sector staff and volunteers. It is designed to be used in all organisations that provide or commission services for adults regardless of sector, setting or size. It is also designed to be used by all services who are commissioned to work directly with children but also need to be competent in relation to working with adults.

All NHS and independent health providers are required under statute and regulation to have effective arrangements in place to safeguard and promote the welfare of children and adults at risk of harm and abuse in every service that they deliver. Safeguarding should be embedded at every level in every organisation with effective governance processes evident. Organisations providing or commissioning services for adults must assure themselves and their regulators that safeguarding arrangements are robust and are working.

There are behaviours, knowledge, skills and competencies included in the following Workforce Level tables that are not applicable to all staff roles, services or organisations. It is therefore appropriate that each point is considered on an ‘as appropriate to role’ basis. The guidance contained within this Framework is not statutory, meaning organisations have a responsibility to ensure that the duration and frequency of training (alongside the identified syllabus) is appropriate for the staff and the individuals they support. The levels are not limited to suggested staff groups as noted above; organisations should ensure that training is allocated to staff based on the level of contact and involvement they have with the individuals they support. The allocation of staff to different levels and syllabuses should be reviewed by accountable senior managers or the named professionals, Adult Support and Protection leads (and equivalent roles directly advising staff on safeguarding) for the service or organisation, and should be included in training needs analysis. To ensure learning translates into practice, it is recommended that adult safeguarding competences should be reviewed annually as part of staff appraisal in conjunction with individual learning and development plans, agency Learning and Development Frameworks, and relevant refresher training.

Multi-agency context

Experience has shown a critical need for all services across multi-agency partnerships to work closely together. This includes all workers and volunteers in any role supporting adults.

A key message for everyone is that we all have a shared responsibility and a role to play, however limited, in ensuring those adults who might meet the ASP Act criteria, are provided with the appropriate support and protection - everyone deserves to live a life free from harm.

To underline this key message, all workforces need to be supported throughlearning and development opportunities to build the necessary knowledge,skills and understanding of their responsibilities under the Adult Support and Protection (Scotland) Act 2007 (as appropriate to their role and responsibilities).

The combination of the ASP Act and the revised Code of Practice reflect legislative and policy positions at the time of publication. All practitioners have a responsibility to remain aware of changes to legislation, policy and practice that impact on how frontline services should respond. Learning and development professionals should ensure that materials are continually reviewed against further developments, and shared with staff, reinforcing key strategies and good practice.

Issues in relation to a lack of Professional Curiosity, across sectors - have arisen in Learning Reviews for both children and adults. Iriss is currently doing some work in this area. More information can be found on the Iriss Website. We hope to include any relevant lessons learned in relation to this work, in future iterations of this National ASP Learning and Development Framework.

Getting it Right for Every Child (GIRFEC)

‘Getting it right for every child’ is the national approach to improving the wellbeing of children and young people across services in Scotland. Initially implemented in 2006, ‘Getting it right for every child’ policy and guidance was further revised and updated by the Scottish Government in September 2022. It promotes a holistic approach to child welfare and protection, aiming to ensure that every child receives “the right help, at the right time, from the right people”.

The key principles of ‘Getting it right for every child’ include:

• the importance of early identification of need, using a shared understanding of wellbeing, and early support
• the crucial role that universal services play in providing a flexible scaffold of support for all children and young people where it is needed, for as long as it is needed, including care or protection
• the importance of a co-ordinated multi-agency approach of promoting, supporting, and safeguarding the wellbeing of children and young people

The National Practice Model sets out a shared framework and approach to identification, assessment and analysis of wellbeing needs. All practitioners who work with children and families should be familiar with this model.

Getting it Right for Everyone (GIRFE)

GIRFE - Getting it right for everyone GIRFE section of the Scottish

Government Website is a proposed multi-agency approach to health and social care support and services from young adulthood to end of life care. It will form the future practice model for all health and social care professionals and shape the design and delivery of services, ensuring that people’s needs are met. GIRFE is about providing a more personalised way to access help and support when it is needed. It will place the person at the centre of all the decision-making that affects them, with a joined-up consistent approach, responsive to the support needed at any stage of life.

GIRFE builds on existing best practice from GIRFEC and will provide a national model to embed inter-agency working.

The GIRFE principles - written from the person's perspective - include:

• having accessible information to make decisions
• being listened to and understood as a whole person
• having choices respected
• being treated with kindness and dignity
• having professionals work together and share information appropriately

These principles apply to guardians or those with power of attorney when relevant.

Access to the GIRFE ‘Team Around the Person’ Toolkit is available via the link attached.

National ASP Learning and Development Framework - 7 Minute Briefing

For the purpose of providing quick access to the key elements of this Framework - National ASP Learning and Development Framework - 7 Minute Briefing .