13. National Audit on Group-based Child Sexual Exploitation and Abuse. Baroness Casey report ECSPB 21 08 25
Renfrewshire Council · 21 August 2025
Back to Education and Children's Services Policy Board — 21 August 2025 and its agenda
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Page 1 of 8 To: Education and Children’s Services Policy Board On: 21 August 2025 ___________________________________________________________________ Report by: Director of Children’s Services ___________________________________________________________________ Heading: National Audit on Group-based Child Sexual Exploitation and Abuse. Baroness Casey report ___________________________________________________________________ 1. Summary 1.1. A National audit on group-based child sexual exploitation and abuse in England and Wales was commissioned by the Prime Minister and Home Secretary in February 2025. 1.2. The audit investigates group-based child sexual exploitation (CSE), often referred to as abuse by ‘grooming gangs’. While rare, these crimes are among the most heinous in society, involving multiple perpetrators who manipulate and coerce children into sexual activity which is harmful and abusive. 1.3. The audit was undertaken in relation to England and Wales, however, the findings and recommendation should be considered in relation to Scotland and to Renfrewshire. 1.4. The audit was led by Baroness Casey and carried out in March, April and May 2025 and was published on 16th June 2025. This report summarises the key findings and recommendations from the report, as well as acknowledging the work being undertaken in Renfrewshire to protect children from child sexual abuse and child sexual exploitation. ___________________________________________________________________ 2. Recommendations 2.1. The Education and Children’s Services Policy Board is asked to: a) note the publication of the National Audit on Group-based Child Sexual Exploitation and Abuse in England and Wales b) note the work undertaken in Renfrewshire to protect children from child sexual abuse and child sexual exploitation.
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Page 2 of 8 ___________________________________________________________________ 3. Background 3.1. In February 2025, in response to serious and persistent concerns about group-based child sexual exploitation (CSE), the Prime Minister commissioned Baroness Casey of Blackstock to carry out a rapid national audit. Her task was to evaluate the scale, nature and drivers of group-based CSE and abuse at a national and local level in England and Wales. The audit was not born out of a lack of previous inquiries. There have been previous very high profile inquires linked to this issue like the Rochdale and Rotheram Inquiries since CSE was first formally defined in 2009. 3.2. Child sexual abuse (CSA) is an umbrella term that includes different types of abuse, including intrafamilial CSA, online CSA and child sexual exploitation • Child sexual exploitation (CSE) is a subset of child sexual abuse involving a power imbalance and the coercion or manipulation of a child into sexual activity in exchange for something the child needs or wants • Group-based child sexual exploitation (group-based CSE) is a subset of child sexual exploitation where two or more perpetrators are (whether identified or not) who are known to (or associated with) one another and are known to be involved in or to facilitate the sexual exploitation of children and young people. Being involved in the sexual exploitation of children and young people includes introducing them to other individuals for the purpose of exploitation, trafficking a child for the purpose of sexual exploitation, taking payment for sexual activities with a child or young person or allowing their property to be used for sexual activities with a child or young person 3.3. The report outlines how the ‘grooming gangs’ model of abuse is well documented and remains largely consistent, with the main difference in recent years being the growing role of online platforms and social media. The model typically involves: • targeting vulnerable children • grooming children into thinking they are in a ‘relationship’ • the use of drugs and alcohol to make children compliant • moving children from one place to another to be exploited • using hotels and AirBnBs, often to take advantage of anonymous check- ins. 3.4. The report highlights the significant role of online platforms and social media, noting how initial contact used to be made primarily in shopping centres, parks or takeaways, but is now likely to start on a social media platform and then lead to contact offences. Perpetrators also use social media to advertise ‘parties’ where children are groomed, facilitate coercive control, persuade children to film sexual acts or share images of themselves, and share images and information about children with other perpetrators.
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Page 3 of 8 3.5. The audit exposes critical gaps in how statutory agencies in England and Wales respond to concerns about group-based CSE because of poor information sharing between agencies; lack of accountability within statutory services; disjointed and under-resourced investigations; and severe underreporting of abuse with inconsistent and incomplete data collection, particularly in relation to perpetrators and their backgrounds. 3.6. Baroness Casey’s audit, published on the 16th of June, provides a concerning account of a system marked by repeated and ongoing missed opportunities to protect children from organised sexual exploitation. The audit highlights that victims of child sexual exploitation (CSE) have too often been ignored, criminalised or left without justice, while perpetrators – particularly in group- based CSE – have avoided prosecution. The audit report outlines for at least the last decade there has been “a repeating cycle” with “seminal moments of scandal and public outrage which lead to bursts of government focus and activity but no sustained improvement, leaving victims and the public with insufficient justice, action, accountability or answers”. 3.7. The audit is set in the context of other reviews, reports, inquiries, high-profile prosecutions, English and Welsh Government action plans, strategies and guidance relating to child sexual exploitation (CSE). It provides a timeline which begins in 2009, when the UK Government first provided a definition of CSE. The timeline highlights three recurring themes that have not been properly addressed since 2009: • the need to improve system processes around data gathering, information sharing and staff training • the ability to identify risk factors and recognise signs of grooming and exploitation • the need to collect data and information on perpetrators, including on ethnicity and culture. 3.8. The report highlights that there is limited data on CSA, CSE and group-based CSE in England and Wales. It further highlights that child sexual abuse and exploitation often goes unreported. Victims and survivors said they did not report for various reasons, including: • thinking they wouldn’t be believed • not knowing that they were experiencing abuse • thinking they were in love with a ‘boyfriend’ • worrying that reporting might lead to further violence to themselves or others • being scared that they would be criminalised for crimes their abusers had involved them in. 3.9. The report is explicit that all children are vulnerable because of their age, so victims may not necessarily exhibit the below risk factors and vulnerabilities, • Children may be in care or have previous experience of abuse
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Page 4 of 8 • Some children may have learning or physical disabilities • They may not view the ‘relationship’ as abusive • They may be encouraged to ‘recruit’ other children • Children may fear repercussions if they speak to police, their family or others • They may go ‘missing’ for hours or days at a time. Offender networks are often loosely interconnected and based around existing social connections, so tend to be broadly homogenous in age, ethnic background and socioeconomic status. With the following factors having significance in profiling those who present risk. • Acting in a group has a disinhibiting effect on perpetrators, and groups may have a disregard for their victims, such as through misogyny or ‘othering’ • Groups may target children locally or from different communities • Offender groups may link and overlap with other organised criminal networks • Groups perpetrating CSE are not seen as being as organised as other criminal networks, such as those supplying drugs. The report examines national and local data to assess what conclusions can be drawn about the sex, age and ethnicity of victims and perpetrators of group-based CSE. Victim characteristics The data which is available for England and Wales shows that: • most victims of CSA, CSE and group-based CSE are girls • the most common age of victims of group-based CSE is between 10 and 15 • in most cases, victim ethnicity was not known, so conclusions about the ethnicity of victims cannot be reached based on this data alone. The report outlines that available data on perpetrators of group-based CSE shows that: • most perpetrators are men • most suspects are aged between 10 and 29, but this younger age profile likely reflects increases in online offences and peer-on-peer abuse, as well as increased reporting of offences in schools, so may not reflect the age profile of ‘grooming gang’ members • in most cases, perpetrator ethnicity was not known, so the data is too limited to draw any conclusions about the ethnicity of perpetrators at national level in England and Wales.
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Page 5 of 8 3.10. Baroness Casey proposes reforms, aimed at transforming how organisations and society confront and prevent group-based CSE: 1. The law in England and Wales should be changed so adults who intentionally penetrate the vagina, anus or mouth of a child under 16 receive mandatory charges of rape. However a “Romeo and Juliet” clause should be created so that teenagers in relationships with each other are not penalised. 2. A national police operation should be planned to focus on reviewing and re-investigating historic cases, holding perpetrators – and complicit organisations – fully accountable. Swift movement of cases through the courts should be ensured to stop perpetrators and so as not to retraumatise victims. 3. The criminal convictions of victims of CSE should be reviewed. Where victims were criminalised instead of protected, convictions should be quashed. 4. Data systems should be reformed so that it is mandatory to record ethnicity and group-based CSE as distinct categories for better analysis and accountability. A recommendation of separating this data from other offences of sexual abuse has been made, while sharing data effectively should be prioritised over data protection issues. 5. Cross-agency information sharing should be made mandatory, including police, health, education, and social services in cases of child sexual abuse, and it should be overseen by a proposed Child Protection Authority. 6. Unique reference numbers for every child should be introduced to improve safeguarding through better tracking and information sharing. 7. Police systems and safeguarding technology should be upgraded, using AI to connect the dots across systems and flag risks earlier. This will improve investigations across the country and ensure that they can be done quickly. 8. Group-based CSE should be classified as organised crime, applying the same rigour and protocols used in major investigations with consideration given to whether the National Crime Agency can support police forces so that proven and best methods are used to investigate and bring perpetrators to justice swiftly. 9. Safeguarding records should be audited and interrogated to identify discrepancies, identify the lack of CSE and abuse information in Child in Need assessment data, and to hold services to account. 10. The government should commission research into the drivers for group- based CSE, including online offending, cultural factors and the role of the group. 11. Taxi licensing laws should be tightened, closing regulatory loopholes that have allowed perpetrators to access vulnerable children via this known group-based CSE method.
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Page 6 of 8 12. The government should commit to resourcing the implementation of these recommendations fully over multiple years and to tracking their implementation across departments and other organisations, with regular reports to parliament. 3.11 Baroness Casey’s recommendations are being considered at a national and local level in Scotland. Nationally the recommendations will be overseen by the National Child Sexual Abuse and Exploitation (CSAE) strategic group. The establishment of this national Child Sexual Abuse and Exploitation (CSAE) strategic group was agreed with Ministers in early 2024, following engagement between Scottish Government and key stakeholders in late 2023. The group’s purpose is as follows: • Provide national level expertise and strategic oversight to inform effective responses to CSAE in Scotland across the areas of prevention, identification, deterrence and recovery support. • Identify opportunities to enhance the evidence-base and shared understanding of CSAE and its impact. • Improve awareness and implementation of effective policy and practice- based CSAE interventions. • To consider areas for future research 3.12 This group has been meeting regularly since November 2024 and held an extraordinary meeting on 14th of July in relation to the Casey audit. Michelle McCargo Strategic Manager Children and Justice in Renfrewshire is a member of this national group and is the co-chair of the Education and Learning and Development subgroup. The purpose of the workforce, Education and Learning and Development group is to bring together practitioners and experts to consider available evidence including relevant data, policies, local and national practice, those impacted by CSAE perspectives, and other relevant information to identify potential actions to improve workforce training and learning and development on child sexual abuse and exploitation in Scotland, aligned to the National CSAE Strategic Group Outcome Framework. This work needs to ensure alignment with national priorities, including prevention, identification, deterrence, and recovery support. 3.13 Renfrewshire has had a dedicated approach to supporting children at risk of CSE since 2012. We have a Vulnerable Young Person’s Steering group which has representation from all key agencies. This group is accountable to Renfrewshire Child Protection Committee in terms of governance and has provided reports to the Member Officer Group and the Chief Officers Group. The Vulnerable Young Person’s Steering group overseen the establishment of a partnership with Barnardo’s to support young people at risk of harm from CSE within the community and missing from home episodes. The ‘Safer Choices’ project now called the BEST (Barnardo’s Exploitation and Safeguarding Team). This project has been operational since 2013 and was the first of its kind in Scotland. 3.14 The VYP steering group has driven forward Renfrewshire’s contextual safeguarding approach and developed a multi-agency vulnerable young persons operational process which protects young people impacted by risk outwith the family home. This process includes an operational group which consider the circumstances of individual children who are considered to be at risk of CSE. In addition, the process and VYP operational group pools local
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Page 7 of 8 intelligence, developing risk ‘heat maps’ for multi-agency review and analysis of community-based risks and works strategically to prevent harm scenarios and to disrupt perpetrators. The group provides the young person’s social worker with the risk information and analysis necessary for a robust protective plan. The work of the group impacts on young people locally and nationally as is has led to the identification of perpetrators resulting in a large scale investigation by Police Scotland. 3.15 Between April 22 and March 2024, the Vulnerable Young Persons Operational group undertook discussions in relation to 47 different young people, as well as the locations and people of concern associated with them. Furthermore, Social Work managers monitor data relating to children missing from home on a weekly basis and direct frontline actions accordingly. 3.16 The Vulnerable Young Person’s Steering group will consider the recommendations from the Casey Audit from a Renfrewshire perspective taking into account the work of the National Child Sexual Abuse and Exploitation (CSAE) strategic group and report to Renfrewshire Child Protection Committee and the Member Officer and Chief Officer groups. ___________________________________________________________________ Implications of this report 1. Financial None. 2. HR and Organisational Development None. 3. Community/Council Planning Our Renfrewshire is well - Ensuring the best support for all children and young people Our Renfrewshire is safe - Effective strategies ensures children and young people are protected from harm and perpetrators are identified as early as possible. Building strong, safe and resilient communities - The quality of life is enhanced by supporting children and young people Tackling inequality, ensuring opportunities for all - Effective governance arrangements ensure that the organisations can deliver effective and equitable support for children and young people Working together to improve outcomes - Effective multi-agency working will ensure young people are sage and protected from harm 4. Legal None.
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Page 8 of 8 5. Property/Assets None. 6. Information Technology None. 7. Equality and Human Rights The Recommendations contained within this report have been assessed in relation to their impact on equalities and human rights. No negative impacts on equality groups or potential for infringement of individuals’ human rights have been identified arising from the recommendations contained in the report because for example it is for noting only. If required following implementation, the actual impact of the recommendations and the mitigating actions will be reviewed and monitored, and the results of the assessment will be published on the Council’s website. 8. Health and Safety None. 9. Procurement None. 10. Risk None. 11. Privacy Impact None. 12. Climate Risk None. 13. Children’s Rights None. 14. Cosla Policy Position None. List of Background Papers (a) Background Paper 1: (delete row if not used or add further rows if required or state ‘none’) National Audit on Group-based Child Sexual Exploitation and Abuse - GOV.UK The foregoing background papers will be retained within children’s services for inspection by the public for the prescribed period of four years from the date of the meeting. The contact officer within the service is Michelle McCargo michelle.mccargo@renfrewshire.gov.uk ___________________________________________________________________ Children’s Services MMcC/JT 21 July 2025 Author: Michelle McCargo michelle.mccargo@renfrewshire.gov.uk