Introduction
There are multiple types of harm which constitute child exploitation (CE). The most common of which can be categorised as; sexual, criminal, and financial with an increasing incidence of terrorism and radicalisation.
Whilst this guidance concentrates on child criminal exploitation it is unlikely that a child or young person will experience exploitation solely in one category. Therefore, our response must consider the overlapping and nested nature of exploitation. Perpetrators may also be responsible for more than one type of exploitation.
Child criminal exploitation (CCE) involves multiple forms of harm, where children and young people are manipulated, coerced, or forced into activities that place them at risk of significant physical and psychological harm. These forms of exploitation include, but are not limited to:
- CCE which is often linked to drug-related activity, where children and young people may be coerced into transporting drugs, money, or weapons
- Child Sexual Exploitation (CSE) where children and young people are manipulated or forced into sexual activity, often in exchange for something they need or want
- Trafficking for the purpose of exploitation. This can include criminal activity, sexual, or labour exploitation
- Exploitation linked to Terrorism and Radicalisation, where children and young people are drawn into extremist ideologies or activities.
CCE of children and young people has a devastating impact on victims, families and local communities but is often not recognised by those who are best placed to detect it.
This guidance is intended to explain the nature of this harm to enable practitioners to recognise its signs and respond appropriately so that victims and potential victims get the protection and support they need.
CCE requires a comprehensive safeguarding response rooted in the public health ethos of early help, early intervention and prevention that incorporates and acknowledges the systemic predisposing preconditions for both victims and perpetrators and the duality of these roles. A safeguarding approach provides a wider perspective and insight into the situations and relationships in which CCE is likely to manifest. Contextual safeguarding brings in the role of the wider community, peers, social media, schools and non-formal education. It provides a comprehensive approach to understanding the risks beyond the home. It requires us to extend the focus of child protection thinking from the home to include the wider environment. The effect of this is to draw crime prevention and community safety approaches into safeguarding thinking and practice.
Chair's Introduction
As Chair of the Safeguarding Board for Northern Ireland, I am delighted to present this guidance on Child Criminal Exploitation (CCE) for practitioners. This document is a testament to our unwavering commitment to safeguarding the welfare of children and young people across Northern Ireland. CCE is a grave concern that demands our collective vigilance and proactive intervention. It is imperative that we, as a community of practitioners, work together to protect our most vulnerable members from the insidious threats posed by child criminal exploitation.
Child criminal exploitation is a form of child abuse where individuals or groups take advantage of an imbalance of power to coerce, control, manipulate, or deceive children and young people into criminal activities. This exploitation can manifest in various forms, including drug trafficking, theft, violence, and other illegal activities. The impact on the victim is profound, often leading to long-term physical, emotional, and psychological harm.
In addressing this issue, our approach is anchored in the principles of safe practice and trauma-informed care. Safe practice involves creating environments where children feel secure and protected. It requires robust policies, procedures, and training to ensure that all professionals are equipped to identify and respond to signs of exploitation effectively. Our goal is to foster a culture of safety where the welfare of children is paramount, and every action taken is in their best interest.
Children and young people affected by criminal exploitation often experience trauma, coercion, and harm. This guidance uses a trauma-informed, rights based and gender -conscious approach, recognising how adversity impacts behaviour and development. It emphasises trauma’s effects, identifying signs, and responding with care that fosters healing and resilience. Creating a safe, supportive environment helps children feel heard, valued, and empowered. It also acknowledges that boys, girls, and LGBTQ+ youth may experience exploitation differently and need tailored, compassionate support that upholds their dignity and rights.
The development of the guidance reflects our shared commitment to protecting children and young people. It provides practical tools, resources, and strategies to help practitioners navigate the complexities of child criminal exploitation. This guidance has been developed with member and partner agencies of the SBNI. It has been informed by stakeholder engagement events and workshops, and most importantly, shaped by the voices of children and young people. Together, we can make a difference in the lives of those affected and work towards a safer, more supportive Northern Ireland for all children and young people.
Acknowledgements
We wish to acknowledge the cross‑departmental commitment that enabled the development of this Child Criminal Exploitation (CCE) Practitioner Guidance. The creation of this guidance fulfils a key action within the Child Criminal Exploitation Action Plan and demonstrates the shared priority across government to strengthen prevention, protection, and disruption responses to CCE.
The Children and Young People’s Strategy Child Protection Group provided cross-departmental oversight throughout the development process, ensuring alignment with wider child protection policy frameworks and coherence across workstreams.
We also acknowledge the significant contributions of the Departments of Health, Justice and Education. In particular, the Department of Justice led on the disruption chapter, highlighting the importance of addressing child exploitation through both safeguarding and enforcement measures.
Finally, we recognise the vital role of the Executive Programme on Paramilitarism and Organised Crime (EPPOC), whose partnership with the Departments supported the development of this guidance. Their collaborative approach reflects the cross‑government commitment to protecting children, disrupting exploitation, and challenging the structures and networks that enable harm.
Purpose of the guidance
This guidance aims to be an accessible, user-friendly resource for practitioners across sectors, bringing together the core elements of existing frameworks, legislation, policy, and guidance relevant to children and young people who are exploited in Northern Ireland.
Agencies have consistently identified that where fragmentation of information across statutory duties, safeguarding protocols, and criminal justice responses exist they create barriers to effectively identifying and responding to CCE. This guidance seeks to bridge that gap.
It will provide a clear and accurate interpretation of key elements from:
- The definition of Child Criminal Exploitation as a form of child abuse, underpinned by trauma-informed principles
- The Child Criminal Exploitation Action Plan (developed by the Departments of Health, Justice and Education)
- Existing safeguarding and child protection pathways, including referral mechanisms and multi-agency responsibilities. Where indicators of trafficking are present, referrals should also be made through the National Referral Mechanism (NRM).
- Relevant legislation and statutory duties, including safeguarding obligations and criminal justice powers.
By consolidating this information into a digestible format, the guidance will support:
- Early identification of children at risk of or experiencing exploitation
- Consistent responses across agencies and sectors
- Improved outcomes for children and families through coordinated safeguarding and disruption of exploitation networks.
This guidance will also reflect the Northern Ireland-specific challenges, including links to paramilitary harm and the need for trauma-informed, child-centred practice.
It will outline what is known about CCE in Northern Ireland to enable practitioners to recognise its signs and respond appropriately, so that victims and potential victims get the protection and support they need. It is primarily aimed at frontline staff in Northern Ireland who work with children and young people up to 18 years old. It aims to equip practitioners with the knowledge, tools, and shared language required to identify, prevent, and respond to CCE in a way that prioritises the safety, rights, and wellbeing of children and young people. The guidance is intended for all practitioners working in:
- Health
- Children’s Social Care and Early Help/Family Support
- Education and Youth Services
- Justice
- The Benefit System
- Policing
- Prisons, Probation and Youth Justice
- Community and Voluntary Organisations
- Housing
- Mental Health
- Substance Use Services
- Multi-Agency Partnerships.
- Councils/leisure facilities e.g. parks etc
It may also be helpful for carers, parents and others, although they are not the primary audience.
The guidance has been produced by the Safeguarding Board for Northern Ireland (SBNI) in co-operation with government departments, statutory agencies, and community and voluntary sector partners. It has been shaped by a series of co-designed workshops involving frontline staff, managers, senior managers and stakeholders. These collaborative sessions provided valuable insights and practical inputs that have helped inform and strengthen the content.
The guidance also reflects the perspectives of children and young people, shared through feedback facilitated by service providers, Voice of Young People in Care (VOYPIC) who work directly with them. A child-and young person friendly version of this guidance will be available in the near future.
Principles for action
The response to child criminal exploitation should be guided by the following factors:
- Prioritising the welfare of the child
- Upholding children’s and young people’s rights
- Ensuring young people are not unnecessarily criminalised
- Applying a long term, relationship-based approach
- Providing an asset and strength-based support to parents and families
- Prioritising prevention and early intervention
- Working collaboratively
- Engaging with children and young people and their families
- CCE is never acceptable, will be disrupted and adult perpetrators will be held to account
- Recognising children and young people as victims.
What it means for practitioners
Children must be protected from all forms of harm – including physical or emotional abuse, neglect, exploitation, and sexual abuse – whether they are living with parents, guardians, in foster care, residential care homes, or under the supervision of any other adult responsible for them.
Organisations must take proactive steps to prevent harm. This includes:
- Putting in place laws, policies, and procedures that promote child safety
- Providing or signposting to support services for children, young people and their caregivers
- Ensuring systems are in place to identify, report, refer, investigate, and respond to concerns about child maltreatment
- Where appropriate, involving the justice system to ensure accountability and protection
Next steps
Guidance
This guidance aims to be an accessible, user-friendly resource for practitioners across sectors, bringing together the core elements of existing frameworks, legislation, policy, and guidance relevant...
Service Pathways
Child Criminal Exploitation (CCE), requires a coordinated, preventative, and trauma-informed response. A Public Health Approach provides a strategic framework that addresses exploitation at multiple...
Agency Roles
While it is our collective responsibility, each agency involved in safeguarding has a clear role and distinct responsibilities, underpinned by statutory duties and legal frameworks including The...