County Lines Exploitation: London

Ann Coffey Excerpts

Wednesday 17th January 2018 Westminster Hall

[Ann Coffey (Stockport) (Lab)]

It is a pleasure to serve under your chairmanship, Dame Cheryl. I thank my right hon. Friend the Member for Enfield North (Joan Ryan) for securing this important debate on county lines; I thought her contribution was absolutely fantastic. I was interested in the description that the hon. Member for Colchester (Will Quince) gave of the impact of county lines on the community he serves. He said that despite the fact that his community is away from London, the county lines have a corrosive effect on it.

The National Crime Agency report “County Lines Violence, Exploitation & Drug Supply 2017”, published in November, mapped the growing extent of the exploitation of children and young people and the shocking levels of violence, intimidation and coercion used. That this has reached such levels in what we all believe to be a civilised society is shameful. The NCA accepts that it does not have a national response at this time, but following its report, it will prioritise county lines and take a co-ordinating role with local and regional police forces. I think we would all agree that that is long overdue, and it would help if the Minister expanded a little on what that might look like.

There has been concern for some time about the growing county lines operations of organised crime gangs based in the big cities. In 2015, Missing People and Catch22 presented their report “Running the Risks” in Liverpool. It explored the links between gang involvement and young people going missing. In 2016, our all-party parliamentary group, which is supported by the Children’s Society and Missing People, reported on the safeguarding of absent children. We found evidence that children reported as absent who the police decided were at no apparent risk ended up falling through the safety net, exploited by adults for sex and/or for supplying and selling class A drugs.

The majority of those recruited by gangs are 15-to-17-year-old boys, but boys are more likely to be recorded as absent and at low risk than girls. That is why county lines operations have been able to exist below the radar. Girls who are exploited along county lines are at increased risk of sexual exploitation and trafficking. We should not forget that children can suffer multiple exploitation. We cannot simply deal with that by putting the issues into particular silos; it all has to come together in an understanding of the exploitation of children.

In 2017, the all-party group held a roundtable on children who go missing and are criminally exploited by gangs. We warned that the safeguarding system was failing children because of a lack of understanding of the signs of exploitation and because many children were still being seen as criminals and not victims—a point made by my right hon. Friend the Member for Enfield North and the hon. Member for Colchester. Looked-after children are particular targets for grooming by criminal gangs, and those placed out of the borough can be especially vulnerable, as are young people in pupil referral units. Such children are particularly vulnerable to exploitation because of the circumstances of their lives and their exclusion from schools.

Preventing young people from becoming embedded in gangs has to be a priority. Key to identifying early risk is the sharing of data on missing children. Frequent missing episodes and being found out of area, returning from missing episodes with injuries and unexplained absences from school were all highlighted as being signs that a young person could be involved in county lines activity.

There are issues about how missing data is collected and shared. I welcome the new missing persons database that will be operational later this year, but how effective it will be will depend on the information gathered by local police forces. Will the Minister say when the missing persons strategy will be updated? Recognition of missing episodes as indicators of potential criminal exploitation, followed by appropriate and timely responses, might prevent further exploitation of vulnerable children and young people. Disrupting county lines and convicting the criminals behind them is vital. Organised crime has been getting the message that, provided they use children and young people, we are powerless to do anything about it.

On 4 December, our APPG held an event at the House of Commons, attended by experts, professionals, police and practitioners to discuss the disruption of county lines and how children and young people can be better protected. There was overwhelming support for more use of trafficking legislation and the Modern Slavery Act 2015.

The national referral mechanism was set up in 2009 to identity victims of human trafficking or modern-day slavery. Acceptance by the national referral mechanism clearly identifies the young person as a victim, even if they have committed a criminal act, which is very important in the context of criminal exploitation. Evidence from the Children’s Society and ECPAT shows that the knowledge, understanding and implementation of the national referral mechanism is patchy. ECPAT is also concerned that the national referral mechanism does not necessarily trigger any safeguarding response and should be embedded into the child protection system.

As my right hon. Friend the Member for Enfield North mentioned, there have been very few prosecutions under the trafficking legislation. One of them was at Swansea Crown court—the case that she mentioned, the first of its kind, against the gang operating out of London. There are ongoing cases in London, but, as with any new legislation, the police and CPS will be waiting to see how successful those cases will be.

We need effective tools to prevent young people from being used as drug mules by organised crime. Lewisham has used criminal behaviour orders, which can prohibit a young person from travelling to certain places, which makes them less attractive to the criminal gang. Child abduction warning notices can also be served on individuals suspected of grooming children and young people. Although there are some issues with those, such as the need to consult with parents—we can all see what the problem with that might be—they clearly identify that it is an individual adult who is exploiting children and it is the child who is the victim, which puts the responsibility where it belongs. That might encourage communities to look at the people operating in their communities as exploiters of children and might help to change attitudes towards those people.

However, there should be a notice that is more in keeping with the trafficking legislation than the Child Abduction Act 1984 is, and it should apply to all 16 and 17-year-olds, which child abduction warning notices do not. Breach of the new notices could then be used as evidence to apply for orders that carry penalties under the trafficking legislation. Will the Minister support such an approach?

We have a fragmented safeguarding system that responds to the child as a victim or as an offender and does not recognise that a child can be both. The most powerful contribution to our December meeting was from a parent who had battled hard to get safeguarding agencies to understand that her son, who was being groomed into criminal activities, was an exploited child. Her son became more and more embedded into county lines and ended up being stabbed. The parent said:

“It became so frustrating as all services that were assigned to working with my son in this period were all working as separate entities. With this came, on many occasions, lack of communication, oversight or duplication of what was meant to be done or not take place, and this caused me great distress.”

In the end, she herself set up an email group for all the many agencies to co-ordinate information about her son, which proved helpful. It is important to learn from the experience of parents to make sure that the safeguarding response that a system provides is helpful to both the young people and parents and does not make a bad situation worse. It is important to understand the impact of out-of-borough placements on young people, which can expose them to further risk rather than protect them.

We need to challenge public attitudes that blame the young person for their own exploitation. This echoes the early cases of child sexual exploitation where the young girls were written off as prostitutes. But who can blame the public when that was the view of the agencies tasked with safeguarding children? Education is crucial. The Greater Manchester police “Trapped” campaign focuses on county lines, aims to raise awareness of the grooming process in communities and schools, and encourages communities to spot and report exploitation of young people.

Greater Manchester police says that county lines is a much broader issue than drugs and also involves the transportation of firearms and money. It is a developing business model, as my right hon. Friend the Member for Enfield North has already said. It is vital for police forces and agencies to work well together, so Greater Manchester police is working closely with forces that have an expanse of rural areas such as Cumbria, Cheshire, North Wales and Lancashire.

The excellent Greater Manchester police YouTube video, made for the “Trapped” campaign, illustrates vividly how a child drawn by the offer of cash becomes more and more embedded in the gang. What at first seems like easy money becomes a miserable existence of escalating violence and threats to life. We know that certain factors make children more vulnerable to exploitation, but all young people can be vulnerable at the time of transition from primary to secondary school. That is why it is important that sex and relationships education in schools involves raising awareness of criminal exploitation and county lines.

[Joan Ryan]

I completely agree about the transition period being a risk. Does my hon. Friend agree that the pupil referral unit, where we have seen gang members hanging around to recruit youngsters who often are vulnerable, is also a risk?

[Ann Coffey]

My right hon. Friend is absolutely right. Young people in PRUs are specifically targeted by organised crime because of their vulnerabilities. Vulnerable young people often feel there is nothing else for them on the horizon except what the drug dealer might offer. Poverty, poor housing, unemployment and living in a high crime neighbourhood creates the conditions for county lines to flourish.

County lines is also a public health issue. We cannot ignore the demand for drugs and the impact on individuals, families and children’s health. Health needs to be part of the safeguarding response to county lines at a national and local level. I thank the Minister for meeting me recently to discuss many of the issues.

Recent media coverage has meant an increase in the awareness of the extent of exploitation of children by organised crime, reaching beyond high-crime areas to communities that have never experienced the brutality and violence that comes with county lines. It is progress that there is increasing awareness and that the National Crime Agency is taking a national co-ordinating role. There has to be an effective response by the police leading to successful prosecutions so that county lines are disrupted. Alongside that there needs to be better identification of children at risk by agencies working together at a local and national level. There need to be better interventions earlier in children’s lives, and more resources.