Inspection of the effectiveness of police and law enforcement bodies response to group-based child sexual exploitation: A progress report

I am writing to you in response to His Majesty’s Inspectorate of Constabulary and Fire & Rescue Services (HMICFRS) progress review around group-based child sexual exploitation (CSE). This review follows on from the initial report published in 2023 where nine recommendations and one area for improvement were identified.

 

This most recent review covered six police forces, two Regional Organised Crime Units (ROCUs), and the National Crime Agency (NCA). Although West Mercia Police were not among the forces inspected, the findings and recommendations remain relevant. Six new recommendations have been made in the most recent 2025 report.

 

Inspectors recognised progress has been made with police forces responding decisively and swiftly to reports involving vulnerable children. However, it also identifies that significant challenges remain around partnership data, misapplication of the Independent Inquiry into Child Sexual Abuse (IICSA) definition, weakening the policing response.

 

Preventing and tackling serious organised crime including sexual exploitation and improving responses and outcomes around sexual violence are two central tenets of my Safer Communities Plan. As such, I welcome the national focus on tackling group-based CSE.

Police and Crime Commissioner activity

 

My Police and Crime Plan sets out a clear commitment to invest in specialist resources and programmes designed to identify and challenge the root causes of sexual violence, including exploitation. This includes drawing on feedback from victims and survivors through Lived Experience Advisor roles to ensure that our approach is informed and responsive. These advisors are sought on a case-by-case basis for specific pieces of work, this has included developing my wider Victim Support Gateway and seeking feedback our Sexual Assault Referral Centres.

 

Through my Assurance and Accountability process, I continue to hold the Chief Constable to account for force activity ensuring that recommendations and learning from the Independent Inquiry into CSE in Telford (IITCSE) are implemented across the whole force. Partnership working in relation to IITCSE continues to ensure key outcomes are maintained with positive feedback from lived experience consultees involved in the initial inquiry.

 

Alongside these strategic commitments, I commission and support a range of local initiatives focused on prevention, early intervention, and support for those at risk of or affected by child sexual exploitation, including group-based exploitation. These initiatives include funding for Taxi Marshal and Street Pastor schemes, as well as a CCTV pilot in licensed taxis. The West Mercia Survivor Pathway provides comprehensive information about sexual violence support services, ensuring victims can access the help they need and from April 2025, Catch 22 was awarded £1.2 million to deliver an integrated service addressing both child criminal exploitation and CSE. In addition, the West Mercia ISVA service offers specialist support for children and young people affected by sexual violence and exploitation.

 

In addition, a revised policing model is being implemented in West Mercia to strengthen the response to specific crime types, including CSE. I have been reassured that this will improve the investigation and management of offenders.

 

West Mercia Police activity

 

Police forces should adopt the Independent Inquiry into Child Sexual Abuse’s definition of an ‘organised network’ as a definition of group-based child sexual exploitation. And they should make sure they use this definition in all relevant policies, training products, procedures and guidance.

 

The report details that a failure to use the definition is contributing to a lack of reliable data to build a national understanding of the scale and nature of group-based child sexual exploitation.

West Mercia have for a long time used the IICSA definition for recording of group based CSE with an associated marker to support identification and recording of offences.

 

All police forces should fully adopt and use the Hydrant Programme’s child sexual exploitation problem profile template as a minimum when preparing their 2025/26 child sexual exploitation problem profiles.

 

Understanding the nature and scale of CSE in West Mercia is not only integral to inform operational policing and partnership activity, but also the commissioning of prevention, early intervention and support services for those who may be at-risk exploitation or are victims and survivors.

 

West Mercia adopted the template for the CSE problem profile produced in April 2025 and will continue to utilise it moving forwards.

 

All chief constables should use the Hydrant Programme’s guidance so forces can efficiently and accurately identify child sexual exploitation and group-based child sexual exploitation in their police record management systems.

 

New practice advice has been published for Senior Investigating Officers (SIOs) and investigators of child sexual abuse and exploitation cases. The updated practice brings all previous guidance into a single document so it can be used in learning environments, during operational planning, or as a handy guide to support investigations. I am reassured that this has been rolled out across the force.

 

All police forces should devise a strategy to implement Operation Makesafe consistently and include this in their child sexual exploitation data returns to the Hydrant Programme.

 

Operation Makesafe is a national initiative designed to raise awareness within the hotel industry to recognise and report signs of child exploitation. I have provided funding for a number of years for exploitation and vulnerability trainers who deliver prevention packages around CSE and child criminal exploitation. They provide training through the community to spot signs of exploitation and safeguard vulnerable people including in hotels and taxis. This is delivered in line with Op Makesafe.

Summary

 

This inspection challenges policing to strengthen its response to group-based child sexual exploitation and ensure that definitions and data standards are applied consistently. The HMICFRS findings underline the importance of accurate information as the foundation for effective investigations and safeguarding. While progress has been made nationally, the review highlights areas where partnership data and operational consistency must improve.

 

Through my role, I will continue to monitor and support this improvement, continuing to hold the Chief Constable to account for delivering improvements effectively.

 

John Campion

Police and Crime Commissioner

West Mercia