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Tackling Exploitation & Complex Safeguarding

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Tackling Exploitation & Complex Safeguarding

Complex Safeguarding is a term used to describe criminal activity or behaviour associated with criminality involving children and adults, and where there is exploitation and/or a clear or implied safeguarding concern.

The MSP recognises that anyone can become a victim of exploitation; the targeting of children and adults is not restricted by geography, age, gender, class, or ethnicity. However, there are certain groups who, due to their situation and/or the social and environmental factors around them, are at greater risk of exploitation and of experiencing harm.

In the Tackling Exploitation Strategy, The Manchester Safeguarding Partnership and the Manchester Community Safety Partnership have set out the different forms that exploitation can take throughout a person’s life course including:

  • Sexual Exploitation
  • Modern Slavery
  • Criminal and Financial Exploitation
  • Human Trafficking
Tackling Exploitation and Complex Safeguarding Strategy 2024 – 2027

Radicalisation, missing young people and serious youth violence, including knife crime, are also strongly linked to organised crime and exploitation. The MSP also recognises the need to work at a regional and national level to tackle individuals and networks operating across regions, countries and in cyberspace.

Much of this activity remains hidden or under reported, the true scale and complexity is likely to be greater than we currently know. Evidence and intelligence is continually emerging from a local, national and international context.

Tackling Exploitation and Complex Safeguarding Strategy 2024-2027

The strategy sets out Manchester’s multi-agency commitments and explains how partners will tackle the constantly evolving landscape of exploitation and serious violence through the sharing of intelligence, listening to the views of survivors and working collectively beyond traditional age, statutory and geographical boundaries.

Evidence informed approaches are core to our approach; Our complex Safeguarding Hub provides expertise on child sexual abuse and works closely with the Greater Manchester (GM) Complex Safeguarding Hub and partner agencies to improve practice with young people who are at risk of harm and exploitation.

Tackling Exploitation and Complex Safeguarding Strategy 2024 – 2027

The MSP has produced an all-age Tackling Exploitation Strategy and Complex Safeguarding strategy.

This multi-agency strategy focuses on criminal activity or behaviour associated with criminality that involves children or adults, and where there is exploitation and/or a clear or implied safeguarding concern. The strategy covers Sexual Exploitation, Modern Slavery, Criminal and Financial Exploitation and Trafficking. To download our strategy click the link:

Tackling Exploitation and Complex Safeguarding Strategy 2024 – 2027

 

Definitions

Sexual exploitation

The abuse of a position of power, vulnerability, or trust for sexual purposes, that often involves coercion, leading to financial or personal gain. Sexual exploitation can involve both physical contact and/or online abuse.

The victim may have been sexually exploited even if the sexual activity appears consensual. Child sexual exploitation does not always involve physical contact; it can also occur through the use of technology.  (Department for Education, 2017)

 

Adult sexual exploitation
Adult sexual exploitation is when acts are

  • in exchange for basic necessities, such as food, shelter or protection or for something that is needed or wanted
  • an individual has felt frightened of the consequences if they refuse (coercion)
  • the person who is exploiting stands to gain financially or socially.

 

It is important to remember that there are a number of scenarios that fall under this definition and sometimes sexual exploitation can be hard to identify.

 

Both men and women can be sexually exploited. It can take place in a domestic, commercial (workplace) or public settings. Crucially, the individual that is, or has been, subject to sexual exploitation may not realise it, which makes it all the more important that practitioners are able to offer clear concise explanations and advice.

 

It is also worth being mindful of identified factors that increase the risk of sexual exploitation in adulthood including:

  • homelessness
  • use of drugs or alcohol
  • lack of mental capacity to consent to sexual activity
  • human trafficking
  • sexual abuse during childhood.

 

The Care Act 2014 places a duty on local authorities to make enquiries if there are concerns that an adult with care and support needs is experiencing or at risk of abuse or neglect, and, as a result of those needs, is unable to protect themselves. This applies, for example, where an adult discloses sexual exploitation / organised abuse or if a member of the public or parent expresses concerns about an adult.

Financial Exploitation

The abuse of a position of power, vulnerability, or trust, to deceive or coerce an individual into handing over money or assets through fraud, blackmail, or threats of violence.

Criminal Exploitation 

The abuse of a position of power, vulnerability, or trust to groom, threaten or coerce a child or adult to engage in criminal activity. Examples include County Lines drug networks where activities are often combined with serious violence.

There is growing evidence that vulnerable children and young adults are specifically targeted for criminal purposes, although any child can be at risk. Known direct targets are those that:

  • do not have strong support networks
  • have no previous criminal record
  • are unlikely to be stopped by the police
  • may have emotional and mental health problems or learning disabilities
  • are not UK citizens or do not have immigration status
  • are looked after in children’s homes or out of area
  • may be living in poverty.

(Home Office, 2017: Youth Justice Legal Centre, 2018; Violence and Vulnerability Unit, 2018).

 

Methods include, but are not restricted to:

 

(Home Office, 2017:The Children’s Society, 2018; Youth Justice legal Centre, 2018; Coomber and Moyle, 2018; Stone, 2018; Robinson et. al. 2019).

 

Cuckooing

The abuse of a position of vulnerability or power to use an individual’s property for criminal activities leading to financial gain. Cuckooing is often used as a base for the distribution of illegal drugs and weapons and often associated with high levels anti-social behaviour within a community.

These relationships are characterised by a power imbalance. Targeted children and adults should not be viewed as ‘choosing’ a lifestyle, or making an informed choice to engage in criminal behaviour. In many cases they may not see themselves as victims. Those being exploited for criminal purposes are victims and should be safeguarded (Youth Justice Legal Centre, 2018)

 

The most effective intervention is likely to be based upon longer-term, relationship building, and a trauma informed, child-led approach. Children and adults at risk are likely to be extremely fearful of the repercussions of ‘snitching’ and are likely to take considerable time and patience to engage (Coomber and Moyle, 2018; Stone, 2018; McNeish et al, 2018; Robinson et. al. 2019).

  • The Greater Manchester ‘Trapped’ campaign aims to raise awareness of all forms of criminal exploitation – find out more at  www.itsnotokay.co.uk
  • For more information see our Cuckooing resource.

 

Trafficking

The organised movement of individuals for the purpose of exploitation through threats, violence, and false promises.

Modern slavery is the recruitment, movement, harbouring or receiving of children, young people or adults through the use of force, coercion, and abuse of vulnerability, deception or other means for the purpose of exploitation.

 

Individuals may be trafficked into, out of or within the UK, and they may be trafficked for a number of reasons including sexual exploitation, forced labour, domestic servitude and organ harvesting.

 

Someone is in slavery if they are:

  • forced to work – through coercion, or mental or physical threat
  • owned or controlled by an ‘employer’, through mental or physical abuse of the threat of abuse
  • dehumanised, treated as a commodity or bought and sold as ‘property’
  • physically constrained or have restrictions placed on their freedom of movement.

 

The Modern Slavery Act 2015 defines offences of Slavery, Servitude and Forced or Compulsory Labour and Human Trafficking. These crimes include holding a person in a position of slavery, servitude forced or compulsory labour, or facilitating their travel with the intention of exploiting them soon after.

 

Although human trafficking often involves an international cross-border element, it is also possible to be at risk of modern slavery within your own country. It is possible to be a exploited in this way even if consent has been given to be moved. Children cannot give consent to being exploited therefore the element of coercion or deception does not need to be present to prove an offence.

 

An Adult at Risk as defined by the Care Act 2014 states that Local Authorities must make enquiries, or cause others to do so, if it believes an adult is experiencing abuse or neglect. An enquiry should establish whether any action needs to be taken to prevent harm or stop abuse or neglect and if so by whom.

 

Victims of modern slavery may not necessarily have the impairment or injury that would meet the eligibility for care and support under the act.

 

Victims may be survivors of modern slavery who are subsequently identified via local safeguarding processes; and there may be victims of modern slavery who are subsequently identified as having care and support needs, and thus entitled to support under current legislation.

 

National Referral Mechanism
The National Referral Mechanism (NRM) is the framework for identifying and referring those at risk of modern slavery and ensuring they receive the appropriate support.

  • First Responders – a ‘first responder organisation’ is, in England and Wales, an authority that is authorised to refer a potential victim of modern slavery into the National Referral Mechanism
  • Children (aged under 18) – if the potential victim is (or may be) under 18, an NRM referral must be made (duty to notify under S.55 Modern Slavery Act); child victims do not have to consent – they must first be safeguarded and then referred into the NRM process
  • ICTG Service – in Greater Manchester the first responder must notify the ICTG service:
  • Adults – consent is required for an adult to be referred to the NRM; if an adult does not consent to a referral the First Responder should complete a Duty to Notify referral.

 

Missing from home or care
There are particular concerns about the links between children running away and the risks of sexual and criminal exploitation. Missing children may also be vulnerable to other forms of exploitation, to violent crime, gang exploitation, or to drug and alcohol misuse.

 

MFH Panels provide an opportunity for multi-agency information sharing and review of arrangements to reduce missing incidents and promote diversionary positive activities for young people. There is a focus on an early response to avoid concerns escalating.

 

There are a range of interventions available to offer young people at this stage including: access to local youth services; one to work with The Children’s Society; and referrals into the Unity Radio project which aims to build aspiration and self-esteem for young people through developing skills to enable them to create and produce their own radio show at Unity Radio Station based at Media City.

 

The current definition of missing from home and care across Greater Manchester is split into two categories:

  • Missing – anyone whose whereabouts cannot be established and where the circumstances are out of character or the context suggests the person may be the subject of crime or at risk of harm to themselves or another
  • Absent – a person not at a place where they are expected or required to be and where the circumstances and context suggest there is a lower level of risk.

 

The reasons why a child or young person may be running from or to a situation can be broad and varied. However, where the root cause for this behaviour is not addressed, the underlying issues can continue to grow, placing that child or young person at increased risk when they do go missing. There are complex safeguarding issues that can be both the cause and consequence of going missing frequently.

 

Children Missing Education
Children missing education are those who are of compulsory school age who are not registered pupils at a school and so are not receiving a suitable education otherwise. Children missing education are at risk of underachieving, being at risk of of harm, exploitation or radicalisation and becoming NEET (not in Education, Employment or Training) later in life.

 

Local Authorities have a duty under the Education Act 1996 to make arrangements to establish the identities of children in their area who are not registered pupils at a school and are not receiving a suitable education otherwise. In September 2016, the Department for Education issued statutory guidance setting out some key principles to enable Local Authorities to fulfil this duty.

 

Those children identified as not receiving a suitable education should be returned to school or alternative provision.

 

Manchester has a number of policies and procedures in place to ensure that it meets this statutory duty and also discharges other duties and powers to support work in relation to children missing education, these include:

  • ensuring children are offered a school place following a school admission application in line with DfE guidelines, including having fair access arrangements in place for children with more complex needs
  • issuing school attendance orders to parents who fail to satisfy the Local Authority that their child is receiving a suitable education
  • knowing how many children in the city at any one time are missing education and how many children are missing with whereabouts unknown
  • ensuring children attend school regularly including prosecuting or issuing penalty notices to parents who fail to ensure their child attends school regularly
  • knowing how many children are accessing alternative provision and arranging education for children who are permanently excluded from school
  • knowing how many children are being home educated and processes for assessing whether children are accessing a suitable education offer at home and how this is monitored

 

Manchester also has a dedicated email contact to report information about children who are thought to be missing education – cme@manchester.gov.uk

Manchester’s Adult Safeguarding Hub

Adult MASH (MLCO) and integrated teams undertake the initial assessment of Adult Safeguarding concerns and work proactively in the community to safeguard adults from harm or abuse.

 

The Adult MASH (MLCO including health) and integrated teams have referral routes into and out of the Complex Safeguarding Hub (Children Services, GMP, Health) to respond to concerns relating to exploitation.

 

An Adult Social worker (Adult MASH) is based in the Complex Safeguarding Hub to provide an Adults perspective and signposting in regard to outcome focused solutions in regard to exploitation (Complex Safeguarding).

 

The aim is to develop a robust response to Sexual Exploitation, Modern Slavery and Human Trafficking, Honour Based Abuse, Organised Crime in the City of Manchester. Our purpose is to ensure that children and adults  are safeguarded in the City of Manchester.

National Referral Mechanism
The National Referral Mechanism (NRM) is the framework for identifying and referring those at risk of modern slavery and ensuring they receive the appropriate support.

  • First Responders – a ‘first responder organisation’ is, in England and Wales, an authority that is authorised to refer a potential victim of modern slavery into the National Referral Mechanism
  • Children (aged under 18) – if the potential victim is (or may be) under 18, an NRM referral must be made (duty to notify under S.55 Modern Slavery Act); child victims do not have to consent – they must first be safeguarded and then referred into the NRM process
  • ICTG Service – in Greater Manchester the first responder must notify the ICTG service:
  • Adults – consent is required for an adult to be referred to the NRM; if an adult does not consent to a referral the First Responder should complete a Duty to Notify referral.

 

NRM Process
The NRM decision making process is in two stages:

  1. ‘reasonable grounds’ decision – the threshold for this is low: ‘I suspect but cannot prove’ that the individual is a victim of trafficking
    • this should be received within five days
    • a positive decision triggers a minimum 45-day recovery and reflection period during which time agencies should update the Single Competent Authority with any new relevant information (including any changes in allocated workers)
  2. ‘conclusive grounds decision’ – the threshold for this is a balance of probabilities: ‘It is more likely than not’ that the individual is a victim of trafficking
    • the Conclusive Grounds Decisions should be shared with relevant professionals working with the young person, including immigration and / or criminal legal representatives and social care.

MSP Complex Safeguarding Subgroup

In Manchester the Complex Safeguarding Subgroup oversees Partnership activity in this area.

 

The subgroup is made up of informed senior officers designated to represent and authorised to make decisions on behalf of their respective organisation or strategic lead with responsibility for the delivery of key strategies/plans as determined by the Safeguarding Partnership Executive.

The purpose of the Complex Safeguarding subgroup is to act on behalf of the MSP to ensure partnership members are actively engaged in and participate in coordination and delivery of identified strategies/plans relating to:

  • sexual exploitation of children/adults
  • criminal exploitation of children/adults
  • modern day slavery including trafficking
  • missing.

The subgroup will work in partnership with the Community Safety Partnership and seek assurance as to the effectiveness of the approach and arrangements relating to:

  • Domestic violence and abuse
  • Female genital mutilation (FGM)
  • Honour based violence
  • Radicalisation
  • Serious and Organised Crime.

Resources

We are determined to protect children, young people and adults at risk of exploitation and to help them get the help they need.

 

If you have any concerns about these issues or you know someone who is being exploited in this way, please contact Greater Manchester Police on 999 if there is an immediate threat to a person or people.

Sources of further help and support:

 

Manchester Safeguarding Partnership also offers online learning via Virtual College