Children Affected by Gang Activity, Criminal Exploitation and Youth Violence

Defining a gang is difficult. They tend to fall into three categories: peer groups, street gangs and organised crime groups. It can be common for groups of children and young people to gather together in public places to socialise and although some peer group gatherings can lead to increased antisocial behaviour and low level youth offending, these activities should not be confused with the serious violence of a street gang.

A street gang can be described as a relatively durable, predominantly street-based group of children who see themselves (and are seen by others) as a discernible group for whom crime and violence is integral to the group's identity.

A street gang will engage in criminal activity and violence and may lay claim over territory (not necessarily geographical for example it could include an illegal economy territory). They have some form of identifying structure featuring a hierarchy usually based on age, physical strength, propensity to violence or older sibling rank. There may be certain rites involving antisocial or criminal behaviour or sex acts in order to become part of the gang. They are in conflict with other similar gangs.

An organised criminal group is a group of individuals normally led by adults for whom involvement in crime is for personal gain (financial or otherwise). This involves serious and organised criminality by a core of violent gang members who exploit vulnerable children/young people and adults.

This may also involve the movement and selling of drugs and money across the country, known as 'county lines' because it extends across county boundaries and is coordinated by the use of dedicated mobile phone lines. It is a tactic used by groups or gangs to facilitate use of vulnerable people or children to sell drugs in an area outside of the area in which they live, which reduces their risk of detection.

Selling drugs across county lines often involves the criminal exploitation of children and young people. Child criminal exploitation, like other forms of abuse and exploitation, is a safeguarding concern and constitutes abuse even if the child/young person appears to have readily become involved. Child criminal exploitation is typified by some form of power imbalance in favour of those perpetrating the exploitation and usually involves some form of exchange (e.g. carrying drugs in return for something). The exchange can include both tangible (such as money, drugs or clothes) and intangible rewards (such as status, protection or perceived friendship or affection). Children/young people who are criminally exploited are at a high risk of experiencing violence and intimidation and threats to family members may also be made. Gangs may also target vulnerable adults and take over their premises to distribute Class A drugs in a practice referred to as 'cuckooing'.

Children/young people can become indebted to the gang/groups and then exploited in order to pay off debts. Young people who are criminally exploited often go missing travelling to other towns often by rail but sometimes car or coach (some of which can be great distances from their home addresses). They may have unexplained increases in money or possessions, be in receipt of additional mobile phone and receive excessive texts or phone calls.

The children and young people involved may not recognise themselves as victims of any abuse, and can be used to recruit other children or young people.

It is important to remember the unequal power dynamic within which this exchange occurs and to remember that the receipt of something by a child/young person or vulnerable adult does not make them any less of a victim.

If a child/young person is arrested for drugs offences a long way from home in an area where they have no local connections and no obvious means of getting home, this should trigger questions about their welfare and they should potentially be considered as victims of child criminal exploitation and trafficking rather than as an offender. Agencies also need to be proactive and make contact with statutory services in the child/young person's home area to share information.

Where there are concerns that children are victims of child criminal exploitation they should be referred to the National Referral Mechanism Digital Referral System: Report Modern Slavery.

There is a distinction between organised crime groups and street gangs based on the level of criminality, organisation, planning and control. However, there are significant links between different levels of gangs. For example street gangs can be involved in drug dealing on behalf of organised criminal groups. Young men and women may be at risk of sexual exploitation in these groups.

Children may be involved in more than one 'gang', with some cross-border movement, and may not stay in a 'gang' for significant periods of time. Children rarely use the term 'gang', instead they used terms such as 'family', 'breddrin', 'crews', 'cuz' (cousins), 'my boys' or simply 'the people I grew up with'.

Safeguarding should focus on both young people who are vulnerable of making the transition to gang involvement as well as those already involved in gangs. Practitioners should be aware of particular risks to young people involved in gangs from violence and weapons; drugs and sexual exploitation.

Note: The Police, Crime, Sentencing and Courts Act 2022 has introduced a new duty on a range of specified authorities, such as the police, local government, youth offending teams (part of Youth Justice Service), health and probation services, to work collaboratively, share data and information, and put in place plans to prevent and reduce serious violence within their local communities.

See also: The Prevention and Reduction of Serious Violence (Strategies etc.) Regulations 2022 and the Serious Violence Duty: statutory guidance.

The Duty is not intended to replace or duplicate existing safeguarding duties. Local partners may choose to meet the requirements of the Duty through existing multi-agency structures, such as multi-agency safeguarding arrangements, providing the correct set of partners are involved.

The risk or potential risk of harm to the child may be as a victim, a gang member or both - in relation to their peers or to a gang-involved adult in their household. Teenagers can be particularly vulnerable to recruitment into gangs and involvement in gang violence. This vulnerability may be exacerbated by risk factors in an individual's background, including violence in the family, involvement of siblings in gangs, poor educational attainment, or poverty or mental health problems.

A child who is affected by gang activity, criminal exploitation or serious youth violence can be at risk of significant harm through physical, sexual and emotional abuse. Girls may be particularly at risk of sexual exploitation.

Violence is a way for gang members to gain recognition and respect by asserting their power and authority in the street, with a large proportion of street crime perpetrated against members of other gangs or the relatives of gang members.

The specific risks for males and females may be quite different. There is a higher risk of sexual abuse for females and they are more likely to have been coerced into involvement with a gang through peer pressure than their male counterparts.

There is evidence of a high incidence of rape of girls who are involved with gangs. Some senior gang members pass their girlfriends around to lower ranking members and sometimes to the whole group at the same time. Very few rapes by gang members are reported.

Gang members often groom girls at school using drugs and alcohol, which act as disinhibitors and also create dependency, and encourage / coerce them to recruit other girls through school / social networks.

• Aggressive or intimidating views towards other groups of children or young people, some of whom may have been friends in the past;
• Being scared when entering certain areas; and
• Concerned by the presence of unknown youths in their neighbourhoods.

An important feature of gang involvement is that, the more heavily a child is involved with a gang, the less likely they are to talk about it.

There are links between gang-involvement, criminal exploitation and children/young people going missing from home or care. Some of the factors which can draw gang-involved children/young people away from home or care into going missing are linked to their involvement in carrying out drugs along county lines. There may be gang-associated child sexual exploitation and relationships which can be strong pull factors for girls who go missing.

In suspected cases of radicalisation, social workers and local authorities have a duty to refer the case to the local Channel panel, which will then decide the correct, if any, intervention and support to be offered to that individual. See Safeguarding Children and Young People from Radicalisation Procedure.

Any agency or practitioner who has concerns that a child may be at risk of harm as a consequence of gang activity including child criminal exploitation should contact Children's Social Care or the police for the area in which the child is currently located. The Referrals Procedure should be followed. An Early Help Assessment may be crucial in the early identification of children and young people who need additional support due to risk of involvement in gang activity.

Support and interventions should be proportionate and based on the child's needs identified during the assessment.

A Child in Need Assessment should be led by a qualified social worker and evidence and information sharing across all relevant agencies will be key. It may be appropriate for the social worker to be embedded in or work closely with, a team (for example in the Police or Youth Offending Service (YOS) (part of Youth Justice Service)), which has access to 'real time' gang intelligence in order to undertake a reliable assessment.

Practitioners should be aware that children who are Looked After by the Local Authority can be particularly vulnerable to becoming involved in gangs and being criminally exploited. There may be a need to review their Care Plan in light of the assessment and to provide additional support. Furthermore, practitioners should be aware that children going missing are also particularly vulnerable.

Where there are concerns about a child or young person being criminally exploited (for example If a young person is arrested for drugs offences away from home in an area where they have no local connections and with no obvious means of getting home) the Police and Children's Social Care, from the first point of contact with the child or young person, should consider whether they are victims of child criminal exploitation or trafficking and pursue a safeguarding, rather than criminal justice, response.

Children will often be in fear of ending their contact with the gang because it might leave them vulnerable to reprisals from those former gang members and rival gang members who may see the child/young person as without protection.

If there is a possible "threat to life", the Police may consider it appropriate to issue a warning notice (when there is intelligence of a threat to someone's life, but not enough evidence to justify the police arresting the possible offender). In these circumstances this should trigger an automatic referral by the Police to Children's Social Care, (see the Referrals Procedure) the initiation of a Strategy Discussion and consideration of the need for immediate safeguarding action, unless to do so would place the child at greater risk.

Any decision not to refer a child should be actively reviewed to allow a referral to Children's Social Care to be made at an appropriate stage in order to protect the child/young person's safety.

Information and local knowledge about the specific gang should be shared, including the use, or suspected use, of weapons or drug dealing. There should also be consideration of possible risk to members of the child's family and other children in the community.

Unless there are indications that parental involvement would risk further harm to the child, parents should be involved as early as possible where there are concerns about gang activity.

CPS Guidance on Victims of Modern Slavery, Human Trafficking and Smuggling aims to identify victims of modern slavery, human trafficking and smuggling at an earlier point in criminal investigations and before charging decisions are made by the CPS. The aims is to increase the number of prosecutions of criminals exploiting modern slaves, whilst safeguarding against the criminalising of trafficked victims. The Guidance also sets out practical support for victims and witnesses, including: the ability to run victimless prosecutions so that they do not need to give evidence in court; other special measure to support trafficked victims, such as the use of virtual recorded interviews which can be played in court; video links for victims who have chosen to return to their home countries so that they can still give evidence if needed.

Children involved in gangs may be known to other services for offending behaviour or school exclusion.

Girls and young women involved with gangs can be affected by sexual violence, sexual exploitation, domestic abuse, drug and alcohol misuse, school exclusion and going missing from home. Young women will often be controlled and manipulated by male gang members and sexual violence is a common feature of the experience of girls involved with gangs. Sisters or female family members who are not actively involved with gangs can be targeted and sexually assaulted by rival gangs. Young men are also at risk of sexual exploitation and assault from gang members.

See Child Sexual Exploitation Procedure.

Children may often be at the periphery of involvement for some time before they become active gang members. Children may also follow older siblings into gang involvement. There are often opportunities for preventative work to be undertaken with children.

Legislation, Statutory Guidance and Government Non-Statutory Guidance

Reducing Knife, Gun and Gang Crime

Ending Gang and Youth Violence Community Engagement

Injunctions to Prevent Gang-Related Violence and Drug Dealing (Home Office)

Criminal Exploitation of Children and Vulnerable Adults: County Lines (The Home Office) - This guidance outlines what county lines (and associated criminal exploitation) is, signs to look for in potential victims, and what to do about it.

Knife Crime Prevention Orders Practitioners' Guidance and Framework Guidance

Serious Violence Duty - Preventing and Reducing Serious Violence: Statutory Guidance for Responsible Authorities

Useful Websites

The Centre for Social Justice: Girls and Gangs

Preventing Gang and Youth Violence: Spotting Signals of Risk and Supporting Children and Young People

County Lines Drug Supply, Vulnerability and Harm (2018)

County Lines - Gang Violence Exploitation and Drug Supply (NCA 2016)

Children's Voices - A review of evidence on the subjective wellbeing of children involved in gangs in England (Children's Commissioner, November 2017)

Protecting children from radicalisation: the prevent duty - DfE