There is currently no specific criminal offence of Child Criminal Exploitation (CCE) in Northern Ireland. However, CCE is formally recognised as a form of child abuse within statutory frameworks. The Child Criminal Exploitation Action Plan (2024) outlines a multi-agency response to prevent, identify, and address exploitation, using existing legislative powers such as the Children (Northern Ireland) Order 1995 and the Human Trafficking and Exploitation (Criminal Justice and Support for Victims) Act (Northern Ireland) 2015 *This ensures practitioners understand the legal thresholds, victim protections, and obligations under international and domestic frameworks, including proactive identification duties.

The following CCE definition was developed in consultation with children and young people and was endorsed for use in Northern Ireland by the Ministers for Education, Justice and Health in September 2024.

“Child criminal exploitation is a form of child abuse which occurs where an individual or group takes advantage of an imbalance of power to coerce, control, manipulate or deceive a child or young person under the age of 18 into any criminal activity. The exploitation may be through violence or the threat of violence but may also appear to be transactional and in the context of perceived relationships and friendships. The victim may have been criminally exploited even if the activity appears to be consensual.

Child criminal exploitation does not always involve physical contact. It can also occur through the use of technology and social media.

The criminal exploitation of children and young people can include being exploited into storing drugs or weapons, drug dealing, theft, violence, intimidation, vandalism, forced labour and other forms of criminality through grooming by people that children and young people trust or look up to”

Child Criminal Exploitation (CCE) is a complex and evolving form of abuse that often cannot be neatly categorised. Many children and young people experience exploitation along a continuum of harm, which may include criminal exploitation, sexual exploitation, and trafficking, often simultaneously.

Research by Barnardo’s NI reinforces the interconnected nature of exploitation. Their 2023 briefing paper Child Exploitation: A Hidden Crisis highlights that CCE and Child Sexual Exploitation (CSE) are often closely linked, with online platforms increasingly used to groom and exploit children for both criminal and sexual purposes. This report also raises concerns that children and young people are often criminalised rather than safeguarded, particularly when exploitation is misunderstood or misidentified. This reinforces the urgent need for trauma-informed, child-centred approaches that recognises the complexity of exploitation and a need to respond with compassion, curiosity, and contextual understanding.

CCE exists on a spectrum, from opportunistic exploitation to more calculated, progressive and prolonged patterns of abuse. CCE is considered as trafficking or modern slavery when the act, means, and purpose criteria is met, for example, where a child or young person is recruited, harboured for the purpose of exploitation. Practitioners should be aware of these overlaps and refer to relevant guidance.

Children and young people are victims of CCE, particularly when their behaviours are misunderstood or misinterpreted. This highlights the importance of professional curiosity, contextual safeguarding, and trauma-informed practice that seeks to understand the child or young person’s experience rather than criminalise their actions.

By recognising the continuum of exploitation and the intentional targeting of children and young people who may be vulnerable to criminal exploitation, practitioners can respond more effectively, ensuring that safeguarding efforts are proactive, and tailored to the child’s unique context.

“Child Sexual Exploitation (CSE) is a form of child sexual abuse. It occurs where an individual or group takes advantage of an imbalance of power to coerce, manipulate, or deceive a child or young person under the age of 18 into sexual activity (a) in exchange for something the victim needs or wants, and/or (b) for the financial advantage or increased status of the perpetrator or facilitator. The victim may have been sexually exploited even if the sexual activity appears consensual. CSE does not always involve physical contact; it can also occur through the use of technology”

Co-operating to Safeguard Children and Young People in Northern Ireland

Any child or young person under the age of eighteen, regardless of gender, can be a victim of CSE regardless of their family background or other circumstances, including those who have reached the legal age of consent.

CSE is often a concealed form of abuse, where children and young people may not recognise that they are being harmed. Many have been groomed into trusting the person exploiting them, who could be a stranger, peer, or even someone close to them. This grooming may involve emotional manipulation, gifts, or financial incentives, creating a sense of dependency that makes it difficult for the child or young person to speak out.

Additionally, some children and young people are trafficked, either into or within the UK, for the purpose of sexual exploitation. These experiences often intersect with other forms of harm, requiring a coordinated, trauma-informed safeguarding response.

Regardless of how CSE occurs, it can have a profound and lasting impact on a child or young person’s emotional, psychological, and physical wellbeing.

In addition to the types of child exploitation detailed above, children and young people may be affected by other forms of exploitation. These experiences often intersect and compound vulnerability, requiring a trauma-informed, multi-agency safeguarding response.

Detailed below is a list of examples of child exploitation which occur throughout the UK and Ireland. This list is not exhaustive.

The terms radicalisation, terrorism, and extremism are often used interchangeably, despite having distinct meanings and implications. They are however, very different starting with the process of radicalisation which may ultimately lead to terrorism and/or extremism. The research and operational guidance for practitioners working with children and young people at risk of, or experiencing these harms is undergoing rapid development. CCE, in the form of radicalisation, is not a new concern in Northern Ireland. Whilst the terminology and type have developed, we have seen children and young people exploited over the past 50+ years by paramilitary organisations to further political and religious causes.

As such, and with all of this guidance the following information should be read as current at time of publication, but subject to change within the dynamic nature of this work.

A significant proportion of CCE now occurs online, where digital platforms such as social media, messaging apps, chat rooms, and gaming sites are used as tools to facilitate criminal or sexual exploitation. Online harm is therefore best understood as a means of exploitation to manipulate, coerce, or blackmail children and young people under the age of 18 into harmful and illegal activities.

Online harm can take many forms, including:

• Inciting children to participate in public disorder, such as riots or bonfires, often orchestrated through social media.
• Financial exploitation, where a child or young person’s bank account is used by perpetrators to launder the proceeds from criminal activities, bullying and cyberbullying can also take place online. Personal information can be obtained by the perpetrator.

Children and young people are particularly vulnerable to online harm due to a combination of factors, including the anonymity of digital platforms, their developmental stage, and in some cases, prior experiences of trauma. However, it's important to recognise that online harm can affect any child or young person.

Further information, including access to research documents, can be found on the SBNI Online Safety Hub.

The creation of the regional Safeguarding Board for Northern Ireland (SBNI) was set up in law in the Safeguarding Board Act (Northern Ireland) 2011. The SBNI is tasked with developing policies and procedures that enhance collaboration and coordination across agencies.

The Children’s Services Co-operation Act (Northern Ireland) 2015 places a legal duty on public bodies to work together in promoting the wellbeing of children. This includes supporting their physical and mental health, access to play and leisure, educational progress, and ensuring their living conditions, rights, and financial stability are upheld.

The Children (Northern Ireland) Order 1995 forms the foundation of the child safeguarding and protection system. It outlines the responsibilities and rights of parents, as well as the obligations and powers of public authorities to safeguard and support children and young people’s welfare. It provides the legal basis for intervention where a child is at risk of significant harm.

Article 17 and 18 of the Education and Libraries (Northern Ireland) Order 2003 places a legal obligation on Boards of Governors to ensure the welfare and safety of pupils. This includes setting out the measures a school must take to protect children and young people from abuse, whether it occurs within the school environment or elsewhere.

The Human Rights Act 1998 incorporates the European Convention on Human Rights (ECHR) into UK law. Key Articles relevant to safeguarding and CCE:

• Article 2: Everyone’s right to life shall be protected by law
• Article 3: Protection from torture and inhuman or degrading treatment
• Article 8: Right to respect for private and family life
• Article 14: Protection from discrimination

Ensures that safeguarding practices uphold children’s fundamental rights.

These rights underpin safeguarding practices and ensure that children and young people are protected from exploitation, abuse, and neglect.

The Co-operating to Safeguard Children and Young People in Northern Ireland (2017) policy provides the overarching framework for safeguarding children and young people across all sectors, including statutory, private, independent, community, voluntary, and faith-based organisations. It sets out expectations for how individuals, organisations and communities should work, both independently and collaboratively to ensure effective safeguarding.

The Children and Young People’s Strategy 2020-2030 sets out the Northern Ireland Executive’s vision and priorities for improving the lives of children and young people, including protection from exploitation. it is grounded in the principles of the UNCRC and aims to ensure that every child and young person has the opportunity to thrive.

Safeguarding Board for Northern Ireland (SBNI) Procedures Manual provides operational guidance for all safeguarding partners and outlines the actions that must be taken when there are concerns in relation to the welfare of a child or young person. The following policies can be accessed via this link:

Missing Children Protocol (Runaway and Missing from Home and Care) HSCB Police/SW

Protecting ‘Looked After’ Children guidance | Department of Health

WORKING ARRANGEMENTS FOR THE WELFARE AND SAFEGUARDING OF CHILD VICTIMS AND POTENTIAL CHILD VICTIMS OF HUMAN TRAFFICKING AND MODERN SLAVERY

WORKING ARRANGEMENTS FOR THE WELFARE AND SAFEGUARDING OF UNACCOMPANIED AND SEPARATED CHILDREN AND YOUNG PEOPLE

Protocol for Joint Investigation - 2013.pdf

threats-to-life.pdf

The UNOCINI Framework, supports early identification of a child or young person’s needs and risks to help prevent issues from escalating. It also serves as a tool for making referrals to Children’s Social Services and assists those services in determining the most appropriate course of action.

The key guidance in relation to Education Services in Northern Ireland Safeguarding and child protection in schools - a guide for schools (Department of Education, 2020).

Children and young people who come to the attention of services must always be recognised and treated as children, regardless of their circumstances and safeguarded accordingly. It is vital to gather and share information from a range of sources, including the child or young person themselves, their family, peers, community, and the practitioners they engage with. This holistic approach enables a more accurate assessment of both risk and protective factors, ensuring that interventions are appropriately tailored to reduce the likelihood of further harm.

Addressing CCE is a complex and evolving challenge that demands a shared responsibility across agencies. Multi-agency collaboration is essential, not only to safeguard those at risk but also to disrupt exploitation networks. Effective disruption tactics and the prosecution of perpetrators are critical components in reducing the prevalence and impact of CCE.

Northern Ireland presents a unique safeguarding landscape, shaped by its socio­political history and complex community dynamics. The legacy of conflict, combined with ongoing socio-economic challenges, has created conditions in which children and young people may be particularly vulnerable to CCE. A nuanced understanding of these contextual factors is essential to ensure that assessment, intervention, and support strategies are both effective and appropriately tailored to the local environment.

Contextual Safeguarding is an approach to child safeguarding and protection that extends beyond the traditional focus on abuse within the family setting. It recognises that the relationships children and young people form in their neighbourhoods, schools, peer groups, and online environments can also expose them to violence, abuse, and exploitation.

Perpetrators are often well organised and use sophisticated tactics. Research would indicate that they target areas where children and young people gather without much adult supervision, for example party-houses, parks or shopping centres or sites on the internet, hostels, food outlets, taxi ranks, outside schools. CCE can affect children and young people living at home and those living away from home. Going missing from their home, care or school can render a child or young person particularly vulnerable to CCE.

Vulnerability to exploitation does not occur in isolation. It is shaped by interconnected factors, sometimes referred to as “nested challenges” that compound risk and make children and young people more susceptible to harm. These challenges and contextual harms often overlap and reinforce each other, creating complex safeguarding needs. Examples include: poverty, family stress, peer influence, domestic violence, and community violence. Dr Colm Walsh’s 2023 report provides critical insights into the intersection of contextual and criminal harms in Northern Ireland. Together, these factors significantly increase a child or young person’s susceptibility to exploitation. His studies highlight that these contextual harms often go unrecognised by young people themselves, making them more susceptible to grooming and coercion. Young people require safer spaces where they can reflect on and process both contextual and criminal harms, reinforcing the importance of community-based, trauma‑informed supports to reduce risk and promote safety.

Exposure to violence, including being witness to and/or victim of it, can normalise it, resulting in the young person being unable to recognise their own victimisation. This approach is particularly relevant in addressing CCE, where perpetrators often exploit these external environments to coerce, control and manipulate individuals. This approach emphasises the need for child protection systems to engage with individuals and sectors that have influence over these extra-familial contexts.

Recent research commissioned by the Department of Justice and led by Dr Gillian Kane (Ulster University) highlights significant obstacles to identifying CCE in Northern Ireland. These include the absence of a legal duty to identify victims, safety concerns for those making referrals, and statutory definitions that fail to capture the hyper-local nature of exploitation. The study underscores the need for tailored referral processes and greater awareness among practitioners, reinforcing the importance of engaging with extra-familial contexts where harm is often normalised.

Children and young people impacted by CCE often face overlapping traumas including abuse, neglect, poverty, exclusion, and community violence. These experiences shape their behaviour, trust, and engagement with services. A trauma-informed approach is essential to safeguarding, ensuring responses are compassionate, coordinated, and effective.

Children and young people may:

• Appear angry, withdrawn, or “difficult”
• Struggle to trust adults or engage with services
• Minimise or deny their experiences
• Show loyalty to exploiters

These are survival strategies and not signs of guilt or defiance. Practitioners should respond with curiosity, not judgement, recognising behaviour as a reflection of trauma.

Systems can unintentionally retraumatise by:

• Repeatedly asking children to recount traumatic events
• Using stigmatising or blaming language
• Failing to explain decisions or processes
• Responding with punishment instead of support.

Children affected by CCE can and do recover when they are:

• Believed and supported
• Surrounded by safe, stable relationships
• Given opportunities to grow, learn, and thrive

"When someone believes in you, it changes everything"

"Professionals being more welcoming - feeling wanted in the room and feel like you can tell them anything and they will listen and not judge."

Practitioners should:

• Recognise how trauma influences behaviour and decision-making
• Respond with empathy and understanding
• Avoid re-traumatisation through sensitive practice
• Build trust through consistent, respectful relationships
• Support recovery, resilience, and long-term wellbeing.

This approach must be embedded across all sectors: health, education, justice, social care, and the community and voluntary sector. Further guidance on trauma-informed practice can be accessed on the SBNI website.

Intersectionality is a framework that helps us understand how different forms of exploitation and oppression overlap and interact. It recognises that children and young people may experience multiple, interconnected forms of harm simultaneously, and that these experiences cannot be fully understood or addressed in isolation. For example, a child or young person affected by CCE may also be experiencing sexual exploitation, coerced into trafficking drugs or labour exploitation. Addressing misogynistic cultural norms and the normalisation of harmful behaviours that contribute to gender-based violence is required as these dynamics perpetuate inequality, diminish protective factors, and increase vulnerability to exploitation. These overlapping harms can compound vulnerability, increase trauma, and create a complex web of risks and harms that require integrated, nuanced, and compassionate safeguarding responses. The importance of culturally sensitive and context-aware support is critical, with the child or young person’s voice and lived experience reflected in all interventions. By applying an intersectional lens, practitioners can better understand the full scope of a child or young person’s circumstances and develop responses that are holistic, equitable, and empowering. Exploitation, including CCE, is recognised as a form of modern slavery and human trafficking under UK law, which reinforces the need for safeguarding systems to address and respond to these harms comprehensively.

Being professionally curious is an essential attribute for practitioners working to safeguard children and young people from exploitation. It involves a reflective, inquisitive mindset, one that encourages practitioners to question, analyse, and explore beyond surface level information, rather than making assumptions or accepting things at face value.

Professional curiosity supports the early identification of subtle signs of CCE and helps practitioners consider the broader context of a child or young person’s life, including the impact of transgenerational trauma, identity, local dynamics, and community influences. By embedding professional curiosity into everyday practice, practitioners can better navigate complexity and respond to children and young people’s needs in ways that are both compassionate and effective.

"Actively engage in reflective practice: To be able to listen carefully to young people and to identify their overt and underlying needs and vulnerabilities, you need to be aware of and to constantly challenge your assumptions and biases. (Consider engaging in a diverse community of practice that will both support and challenge you)" Why Riot

Gender-conscious approaches are vital in safeguarding efforts, as they recognise and respond to the distinct experiences and vulnerabilities of children and young people based on their gender identity. This includes challenging harmful gender norms and ensuring that interventions are inclusive, equitable, and responsive to the specific needs of boys, girls, and non-binary children and young people. By adopting a gender-transformative lens, practitioners can move beyond simply acknowledging gender differences to actively addressing the structural inequalities that contribute to exploitation and harm. This approach helps create protective environments where all children and young people can feel seen, heard, and supported, regardless of gender identity.

CCE is child abuse, not a lifestyle choice. Children and young people coerced into criminal activity are victims, not perpetrators. While some children and young people may commit offences as a direct result of exploitation, this does not negate their status as victims. Responses must prioritise protection over punishment, challenge stigma, and recognise the impact of coercion, ensuring that safeguarding remains central even when criminal behaviour is present.

While boys and girls may be exploited in different ways, it is critical that practitioners recognise the full spectrum of gender identities and experiences. Gender should never be assumed, and responses must be inclusive, respectful, and tailored to the individual needs of each child or young person. LGBTQ+ youth acknowledge intersectional vulnerabilities.

Gendered experiences of CCE are shaped by:

• Community pressures
• Cultural attitudes toward gender and identity
• Paramilitary influence

It is important that practitioners ensure responses are inclusive, respectful, and tailored to individual needs, including those of LGBTQ+ youth.

Boys and young men are often overrepresented in criminal justice responses, particularly in relation to gang-related activity, drug trafficking and violence. They are often visible in street-level offending or public disorder, particularly in areas with known paramilitary activity. Their exploitation is frequently misinterpreted as criminality rather than child abuse. The Jay Review – Action for Children highlights that boys are frequently criminalised instead of protected, and their experiences of coercion and trauma are often overlooked. Boys are:

• Misidentified as perpetrators rather than victims resulting in a reluctance to engage with professionals, for fear of being labelled
• Reluctant to disclose due to fear, stigma, or threats
• Influenced by older peers
• Discouraged to seek help due to societal expectations around masculinity.

It is important that practitioners recognise trauma and coercion, not assume resilience or complicity.

Girls and young women are often exploited in more hidden or complex ways, including:

• Dual criminal and sexual exploitation, sometimes simultaneously.
• The Barnardo’s NI report Not a World Away identifies that girls in care or those who go missing are particularly vulnerable to sexual exploitation, which may be linked to wider patterns of criminal abuse
• Grooming or exploited by paramilitary groups into criminal activity under the guise of relationships, social media or protection.
• Coerced into storing drugs or weapons.

They may also face victim-blaming attitudes or be perceived as making “choices” rather than being coerced. Gender-conscious practice should challenge these narratives and ensure girls receive the same recognition and protection as boys.

LGBTQ+ young people may face vulnerabilities such as social isolation or rejection by family or peers, targeted grooming by perpetrators under the guise of acceptance or protection. These young people may be fearful of disclosing abuse due to fear of discrimination or lack of trust in services. Perpetrators may target LGBTQ+ youth through social media or dating apps, using affirming language or shared identity to build trust before manipulating or coercing them. Barriers to disclosure include fear of being “outed”, previous negative experiences with services, or concerns about confidentiality. Facilitating access to LGBTQ+ peer support groups or advocacy services can help reduce isolation and empower young people to engage with protective networks.

Effective gender-conscious safeguarding requires:

• Awareness of gendered risks and dynamics
• Inclusive, non-stereotyped assessments
• Sensitivity to identity, trauma, and coercion
• Multi-agency collaboration using consistent, child-centred approaches.

The SBNI and member agencies are committed to changing perceptions and ensuring that children and young people are protected, not punished. This requires challenging stigma and victim-blaming, recognising coercion and control and responding with care, not criminalisation. Responses must also take account of intersecting vulnerabilities, including disability, race, ethnicity, gender identity, and socio-economic disadvantage, which can compound risk and impact access to support.

Language is a powerful tool in safeguarding practice. The words used by practitioners can either support or hinder a child or young person’s recovery and protection and shape how they are understood and supported. In the context of CCE, language must reflect the reality that a child or young person cannot consent to their own exploitation, and language used must never imply blame or responsibility on the part of the child or young person. It is crucial to remember that language shapes perceptions, which in turn influences how society responds to these issues. By using more accurate and victim-centred terminology, we can help shift societal understanding and improve support for children and young people.

Language that is stigmatising or judgmental can damage trust, discourage disclosure, and hinder engagement with support services, and impact safeguarding outcomes.

Practitioners should be mindful to use language that reflects the vulnerability of the child or young person and acknowledges the exploitative nature of their circumstances. It is important to avoid terms that suggest blame or imply choice, such as “putting themselves at risk.” Instead, language should accurately describe the situation, for example, stating that the child or young person has been groomed, coerced, or manipulated into harmful behaviours.

The Children’s Society has developed a resource titled “Child Exploitation and Abuse: An Appropriate Language Guide” (2024) which offers practical advice on using language that supports and safeguards children and young people affected by exploitation. The guide emphasises the importance of avoiding terms that imply blame or choice and encourages the use of terminology that reflects the child or young person’s vulnerability and lack of agency in exploitative situations.

In addition, the SBNI’s 2024 Trauma Informed Toolkit provides guidance on how to embed trauma-informed principles, including the use of inclusive and empowering language across safeguarding practice. The toolkit highlights the importance of communication that promotes trust, safety, and collaboration with children, young people and families.

Organised crime encompasses a wide range of criminal activities, all driven by the pursuit of financial gain, often at significant human cost. While the economic impact is substantial, the personal harm to individuals and communities is far-reaching and often lifelong. In Northern Ireland, some organised crime groups (OCGs) operate with paramilitary links, using intimidation and violence, or the threat of it, to maintain control.

OCGs are structured and deliberate in their operations, which may include people trafficking, drug trafficking, cybercrime, modern slavery, counterfeiting, fuel laundering, tobacco smuggling, fraud, money laundering, and environmental crimes. These activities not only endanger public safety and health but also undermine public services through tax evasion and excise fraud.

Children and young people may be exploited by OCGs through grooming tactics that involve the use of drugs, alcohol, or promises of belonging and protection. Some are drawn in due to their environment, such as living in areas associated with gang activity or having family or peer connections, without recognising their involvement as exploitation. Others may be coerced through drug debt or manipulated into criminal behaviour. The impact can include isolation from family, mental ill-health, long-term vulnerability and trauma, due to their experiences

OCGs may operate locally, nationally, or across borders, forming complex networks that inflict harm on individuals, businesses, and communities. Victims of fraud, cybercrime, and counterfeit goods face financial loss, reputational damage, and health risks. Communities affected by organised crime often experience fear, coercive control, and reduced trust in public institutions.

Street gangs typically consist of groups of children and young people who identify as part of a distinct peer group, often recognised by others in the community. Within these groups, criminality and violence may become central to their identity and activities. While some street gangs may evolve into more structured organised crime groups (OCGs), they are generally less coordinated and more focused on asserting dominance or control over specific geographical areas, often referred to as flashpoint zones.

These gangs may engage in serious criminal behaviour, including drug dealing, theft, intimidation, and public disorder, which can have a profound and lasting impact on local communities. The threat of violence is often used to maintain control and influence, both within the gang and over the wider area.

Paramilitarism in Northern Ireland refers to the activities of armed groups, both Loyalist and Republican, that operate outside the formal military or policing structures. While many of these groups originated during the “Troubles/Conflict”, some continue to exert influence in communities today, often through intimidation, coercion, and criminal enterprise.

Peer groups are relatively small, informal, and often transient social groupings of children and young people. These groups may not self-identify as gangs, and their structure and purpose can vary depending on context. While some peer groups are formed around shared interests or social connections, others may become involved in risky or harmful behaviours, including criminal activity or exploitation.

While many perpetrators of CCE are associated with organised crime groups or gangs, exploitation can also occur within the family or extended family network. This form of exploitation is often hidden and complex, requiring practitioners to consider the child or young person’s immediate environment and relationships. 

Paramilitary threats can compel families to facilitate CCE, with compliance driven by fear for their own or others’ safety rather than intent. Family members may face threats of serious harm or death, and such coercion can lead to involvement in CCE.

Family members may face threats of serious harm or death, and such coercion can lead to involvement in CCE, as outlined in Swaine’s (2024) research  “When you know what they are capable of”: Paramilitary-related Gendered Coercive Control – Foyle Womens Aid offer Domestic Abuse, Domestic Violence Support in Derry / Londonderry, Strabane, Limavady & Dungiven

Practitioners working with children and young people in Northern Ireland must follow established procedures when reporting safeguarding concerns. The primary source of guidance is Co-operating to Safeguard Children and Young People in Northern Ireland This framework outlines the responsibilities of individuals and organisations across statutory, voluntary, and community sectors in identifying and responding to child protection issues.

For operational detail, practitioners should refer to the Regional Core Child Protection Policies and Procedures for Northern Ireland (SBNI, 2017). This manual provides step-by-step guidance on responding to abuse and neglect, making referrals, and managing child protection case conferences.

In assessing the needs of children and young people, determining whether a referral to children’s services is required, professionals should use the “Understanding the Needs of Children in Northern Ireland (UNOCINI) framework”. The completion or part completion of the UNOCINI documentation is NOT a prerequisite to make a referral to Children’s Social Care Services. If there is a concern that a child or young person may be a potential victim of CCE it is important that that concern is shared as early as possible and arrangements followed for sharing of information.

The UNOCINI framework offers a structured approach to assessing a child or young person’s developmental needs, parental capacity, and environmental factors. It also includes thresholds of need and guidance on when and how to refer a child to the Health and Social Care Trust Gateway Services. Further guidance documents are referred to in the section “Legal and Policy Context.”

If someone or something is making a child feel scared, threatened or distressed, report it to the police by calling 101 or 999 in an emergency

If you are concerned about the welfare of a child or young person, contact the relevant Health and Social Care Trust Children’s Services Gateway Single Point of Entry Team (Mon-Fri: 9.00am-5.00pm). See SBNI Child Protection Policies and Procedures for more info.

Engaging parents and carers where they are not the perpetrator is a critical component in safeguarding children and young people who may be at risk of CCE. Families often serve as the first line of protection, and often with the right support, they can play a vital role in identifying concerns early and safeguard children and young people from exploitative situations.

Practitioners must recognise that parents and carers may face significant barriers when trying to protect their child or when seeking help.

These barriers can include:

• Fear of being blamed or judged for their child’s involvement in criminal activity or exploitation.
• Concerns that their reports will not be taken seriously by professionals or agencies.
• Worries that their child will be criminalised rather than supported, particularly if the child has been coerced into illegal behaviour.
• Anxiety about school exclusion, which can increase vulnerability by removing the child from a protective environment.
• Fear of retaliation or recriminations from those exploiting their child, which may prevent them from speaking out or engaging with services.
• To address these concerns, services working with children, young people, their families and carers should:
• Adopt a non-judgmental and trauma-informed approach, ensuring that parents and carers feel heard, respected, and supported.
• Provide clear information about the nature of CCE, including how coercion and control are used by perpetrators.
• Offer practical support and guidance, including referrals to specialist services, community organisations, and peer support networks.
• Ensure confidentiality and safety planning, particularly when there is a risk of retaliation from perpetrators.
• Work collaboratively across agencies to provide coordinated and consistent support.

By building trust and offering meaningful support, practitioners can empower parents and carers to take protective action and contribute to safeguarding their child from further harm.

Effective risk assessment is a cornerstone of safeguarding practice when responding to children and young people at risk of or experiencing, exploitation. This form of harm often involves serious organised crime, coercion, and hidden dynamics that require a sensitive and structured response.

The UNOCINI Framework, provides a statutory, multi-agency tool for assessing a child or young person’s needs in context. It supports practitioners in identifying concerns related to exploitation, whether criminal, sexual, or both, and guides appropriate safeguarding action.

UNOCINI should be used:

• When indicators of exploitation are identified (e.g. unexplained injuries, missing episodes, possession of items without means);
• Alongside child protection procedures, including Inter-agency Referral Discussions (IRDs), and consideration of referral to the National Referral Mechanism (NRM);
• When a child or young person is suspected to have been coerced into criminal activity under duress or manipulation;
• When concerns arise about grooming, trafficking, or coercion by other children and/or adults;
• When a child or young person is living under threat. The joint protocol (PSNI and HSCT) in relation to Threats to Life policy should be instigated.

Threats to life whether from paramilitary groups, organised crime, or other sources are a serious safeguarding concern and must be addressed under statutory obligations, including Article 2 of the Human Rights Act. These threats often arise in contexts such as Child Criminal Exploitation (CCE), Child Sexual Exploitation (CSE), drug-related coercion, and organised crime.

Where an immediate risk to life is identified, practitioners must activate emergency safeguarding procedures: refer to police, initiate multi-agency risk assessment, and involve social care as appropriate. Early identification, trauma-informed engagement, and robust information-sharing are essential. Exploitation frequently involves grooming, coercion, and violence, and victims may present as individuals involved in offending behaviour, prompt action is critical to prevent harm.

The flowchart below taken from the UNOCINI Framework, outlines the key steps in the Preliminary Assessment Process under UNOCINI, guiding practitioners through the decision-making process to ensure decisions made are defensible and take cognisance of safeguarding concerns, to enable an effective response.

No single agency can fully understand or respond to the complexities of CCE in isolation. Effective risk assessment depends on robust collaboration and timely information sharing across all agencies. Local safeguarding partnerships should have clear protocols in place to facilitate joint assessments and decision-making.

This flowchart, embedded in the UNOCINI Framework, provides a structured decision-making guide for practitioners who are considering sharing information in the context of safeguarding concerns. It outlines a step-by-step process to help determine whether information can be lawfully and appropriately shared, balancing the need for confidentiality with the imperative to protect individuals from harm. By following the flowchart, practitioners can ensure that their actions are informed by legal, ethical, and organisational standards, and that any information shared is justified, proportionate, and in the best interest of the child or young person concerned.

Annex B outlines key tools and strategies to disrupt the activity of suspected perpetrators of child exploitation. These strategies are essential for safeguarding victims and preventing re-offending. While PSNI lead enforcement, other services play a vital role and should understand the legal powers available to support disruption efforts.

Disruption can be both proactive (e.g. applying for orders) and reactive (e.g. pursuing offences). Strategic use of prosecution powers plays a central role in disrupting exploitation networks and sends a clear message that such abuse will not be tolerated. Equally important is the role of practitioners in ensuring that children and young people coerced into criminal activity are diverted from prosecution where appropriate.

Timely, coordinated action is key. Practitioners should record and share any orders or actions taken, and check for existing measures to ensure a joined-up approach to disrupting perpetrator activity.