Children: Sexual Exploitation

Lord Hill of Oareford Excerpts

Tuesday 1st February 2011 Grand Committee

[The Parliamentary Under-Secretary of State for Schools (Lord Hill of Oareford)]

My Lords, I, too, congratulate the right reverend Prelate the Bishop of Leicester on securing this timely debate. It has been a good debate and a good advertisement for speed dating. I shall try to crack on. I welcome the noble Baroness, Lady Hughes of Stretford, to her new role. I look forward to working with her. I know that she is experienced in this area and was herself a Minister for Children and Families in my department.

This debate is timely because, as we have discussed, today sees the publication of the interim report from the Munro review and because of the attention that there has rightly been on this issue following the series of reports in the Times and the publication of the recent thoughtful and helpful report by Barnardo’s, which I have read with care.

In his speech, the right reverend Prelate spoke with authority and experience about a subject that all noble Lords who have contributed today clearly care about deeply. It is hard to think of a greater responsibility or duty that we have as a society than to keep our children safe. We have a particular responsibility to care for those children who are the most vulnerable—those without families who are looked after and live in children’s homes or in foster care, a point that the noble Baroness, Lady Massey of Darwen, underlined. On her specific point, it is the case that we can opt into the EU directive if we want to, once we have seen how it works.

As a number of noble Lords have said, it is impossible not to read the horrific stories that we have all seen recently and not be appalled. The Barnardo’s report published in January underlined the youth of many victims of child sexual exploitation, suggesting that children as young as 10 are being targeted.

The fact that most of us find such behaviour inconceivable is, in some ways, part of the problem. Having been involved in the past in a minor way in some historic child abuse cases, I know that there is often a reaction that an allegation simply cannot be true, either because it is so shocking or because an alleged offender has been a colleague for many years. Yet some of those allegations were and are true and I believe that that is the frame of mind in which we have to tackle this issue. However, I accept the points made by my noble friends Lord Hodgson and Lord Faulks about proportionality and the need not to undermine inadvertently the important relationship that we want to encourage between adults and children, particularly in the context of encouraging volunteering. That lies behind our proposals for reviewing the vetting and barring scheme.

As was said in the debate, knowing the scale of the problem is one of the challenges that we face. I therefore welcome the fact that the Barnardo’s report and the Times articles have drawn attention to the problem and brought things out into the open. Research commissioned in 2002 found that children were known to suffer sexual exploitation in 111 of the then 146 child protection committee areas. Work carried out by Barnardo’s in 2005 found 507 cases across London boroughs. A more recent survey by Barnardo’s showed that in 2008-09 it worked with 1,059 children and young people and that this had risen the following year to 1,098.

However, apart from a sense that we all have that this is only part of the story, we almost by definition do not have hard and fast data. I hope therefore that noble Lords will support the announcement in January that the Child Exploitation and Online Protection Centre is carrying out a thematic assessment, which, among other things, will look at establishing whether there are any patterns of offending or victimisation, consider the effectiveness of existing processes and make recommendations to reduce risk. CEOP is looking to make its findings on this research public within a timescale of three to six months.

I know that there has been a lot of media debate around issues to do with ethnicity, a point that a number of noble Lords have raised. My view on that is very simple: while we should not make generalisations—we know that child sexual exploitation affects boys as well as girls and occurs across the country, involving people from a range of ethnic backgrounds—we should not turn a blind eye to wrongdoing for fear of rocking the boat. Indeed, rocking the boat is often precisely what we will need to do in this area, a point made by my noble friend Lord Brooke of Sutton Mandeville.

I turn to the current framework. The Sexual Offences Act 2003 is intended to protect young people from sexual exploitation. It extended the scope of the law to include a range of new offences, including meeting a child following sexual grooming and paying for the sexual services of a child. In addition, the police and Crown Prosecution Service are able to convict using other sexual offences, such as rape or sexual activity with a child under 13 or a child under 16, or they may use other legislation to disrupt this activity.

The statutory guidance on safeguarding and promoting the welfare of children, Working Together to Safeguard Children, was first published in its current form following the 1989 Children Act. Since then it has been regularly updated and in 2009 separate statutory guidance on the sexual exploitation of children was published. I believe that the noble Baroness, Lady Hughes, was involved in producing that guidance. The main objective of the guidance is to encourage local safeguarding children boards, practitioners and others working with young people and local agencies to prevent the sexual exploitation of children wherever possible, protect those children who are most vulnerable to exploitation and take appropriate action against anyone who is intent on abusing young people in this way.

Because looked-after children—children in care—are most vulnerable and more likely to be at risk of harm, local authorities have a specific statutory duty to safeguard and promote their welfare. In practice, that means that local authorities must allocate the child a social worker, who will assess their needs and draw up a care plan that sets out how the authority intends to respond to the full range of the child’s needs, including their education and health needs. I take the points that have been made about the importance of training in that regard. If there is any suspicion that the child may have been trafficked, whether or not for the purposes of sexual exploitation, the social worker must assess the child’s vulnerability to the continuing control of his or her traffickers. The local authority must then place the child with a carer who has the necessary skills and experience to support and protect them.

I understand the point that was made about the danger of criminalising the victim. Points were made about the way in which the police operate and I will relay those to my honourable friend Mr Loughton. I shall read an extract from the statutory guidance:

“The Government remains clear that children and young people who are sexually exploited should not be regarded as having bad or criminal behaviour; they are the victims of sexual abuse. The responsibility for the sexual exploitation of children or young people lies with the abuser … The focus of police investigations and of prosecutions should be on those who coerce, exploit and abuse children and young people”.

However, I will follow up the point that was raised.

I ran through that at quite a pace, but I wanted to make the point that the legislative framework is broadly in place. The issue that we have is that its application is patchy. As has been said, early findings from research carried out by the University of Bedfordshire show that there are low levels of compliance with the 2009 guidance, suggesting that only a minority of local authorities are prioritising child sexual exploitation as a child protection issue.

I turn to the steps that the Government are taking. The Barnardo’s report talks about the need for a lead Minister. That role is being carried out by my honourable friend the Parliamentary Under-Secretary of State for Children, Tim Loughton, who has the cross-government lead role on this issue as part of his child-safeguarding responsibilities. I assure the noble Baroness, Lady Masham of Ilton, that he understands fully the need for a collaborative and cross-departmental approach to these issues. He is clear about that and he is involving Ministers from a range of departments, including the Home Office, the Ministry of Justice and the Department of Health, as well as local authority children’s services, local safeguarding children boards and organisations such as CEOP, Barnardo’s and others, and other voluntary organisations. He is already working with the Parliamentary Under-Secretary of State at the Home Office, James Brokenshire, to develop a joint approach, and I know that they have both recently met Sheila Taylor, who runs Safe and Sound Derby. Mr Loughton has also recently met the chief executive of Barnardo’s. It will be my honourable friend’s job, working with others, to consider what further action may need to be taken to safeguard children and young people from sexual exploitation.

I will be certain to ensure that my noble friend reads today’s debate and I am happy to relay to him any further specific concerns that noble Lords may have. I will ensure that there is an answer to the questions raised by the noble Earl, Lord Listowel. I will also follow up separately the important points made about the spread of technology by the noble Baroness, Lady Howe, and respond to her. I am not an expert in these matters, but common sense says that the ready availability of pornography has a desensitising effect, while the way in which technology can be used by people to work together to share images and to co-ordinate activity suggests that there is a growing problem there.

The Government share with the right reverend Prelate and other noble Lords a recognition of the problem of child sexual exploitation and of the particular vulnerabilities of looked-after children. It is almost impossible to comprehend the suffering that some of these children and young people have endured and are enduring at the hands of their exploiters. Like all noble Lords, we are determined to do all that we can to stop this terrible abuse.