Independent Inquiry into Child Sexual Abuse

The Home Office should coordinate the development of a national plan of action addressing child sexual abuse and exploitation overseas by UK nationals and residents of England and Wales, involving input from all lead governmental agencies in the field.

The Inquiry recommended coordinating a national action plan against overseas child sexual abuse. In January 2021, HM Government stated that the Home Office would implement the recommendation within its forthcoming Tackling Child Sexual Abuse Strategy (Home Office response, Jan 2021; Home Office, Jan 2021). It noted that this strategy would set out actions involving the National Crime Agency (NCA), the intelligence community, and the third sector to prevent offending abroad (Home Office response, Jan 2021). In October 2022, the Independent Inquiry into Child Sexual Abuse reported that the department had confirmed implementation through that strategy (Independent Inquiry into Child Sexual Abuse, Oct 2022).

As referenced in its Tackling Child Sexual Abuse Strategy, the government should publish an enhanced version of its Child Exploitation Disruption Toolkit as soon as possible. This Toolkit must: specify that the core element of the definition of child sexual exploitation is that a child was controlled, coerced, manipulated or deceived into sexual activity; include specific guidance on building effective problem profiles for child sexual exploitation and child sexual exploitation by networks, as differentiated from other forms of exploitation; specifically state the sources and types of data that agencies should use to build problem profiles; and indicate the minimum frequency at which problem profiles should be updated.

In July 2022, HM Government stated that it had accepted and delivered on the recommendation, having published an enhanced Child Exploitation Disruption Toolkit on 19 July 2022 (Home Office response, Jul 2022; Home Office, Jul 2022). It explained that the updated toolkit highlights key signs of child sexual exploitation such as coercion and deception, and provides guidance to support local services in building effective problem profiles (Home Office response, Jul 2022). The record holds no update since the government's response of July 2022 (Home Office response, Jul 2022; Home Office, Jul 2022).

The Church of England should amend the current canon requiring clerics to comply with the Bishop's Guidance on Safeguarding. The use of the words 'due regard' in Canon C30 is an acceptable term of art, but lacks sufficient clarity. Very few individuals who gave evidence to the Inquiry said they understood what this meant, including the Archbishop of Canterbury himself.

The Inquiry asked the Church of England to amend its canon on safeguarding due regard. In legislation enacted in October 2021, the Church of England repealed provisions imposing a "duty to have due regard to House of Bishops’ guidance" under several church measures (Church of England response, Oct 2021). It substituted a requirement to comply with a safeguarding code of practice, though Canon C30 itself is not mentioned in the text (Church of England response, Oct 2021). The enactment provided that these repeals would come into force on days jointly appointed by the Archbishops of Canterbury and York (Church of England response, Oct 2021). The record holds nothing dated later than the response of October 2021 (Church of England response, Oct 2021).

The Home Office should ensure explanatory guidance is issued, providing clarity to recruiting organisations and individuals concerning the use of the Disclosure and Barring Service scheme for work and volunteering outside the UK.

The Inquiry asked the Home Office to clarify overseas Disclosure and Barring Service checks. Writing on behalf of the department in April 2022, Daniel Rapport, for the Treasury Solicitor (Government Legal Department), stated that the service was finalising a guidance leaflet to be published by the end of May (Daniel Rapport, Apr 2022). That update described guidance developed specifically for the aid sector and charities, but did not mention individuals, with publication of the leaflet still outstanding (Daniel Rapport, Apr 2022). In January 2021, HM Government stated that the department would work with the service to reinforce guidance directing applicants ineligible for its certificates to the International Child Protection Certificate (ICPC) (Home Office response, Jan 2021; Home Office, Jan 2021).

The government should publish, without further delay, the interim code of practice in respect of child sexual abuse and exploitation as proposed by the Online Harms White Paper (published April 2019).

The Inquiry asked the government to publish an interim code of practice on child sexual abuse. In November 2020, HM Government stated that it was working with law enforcement agencies and other bodies to produce interim codes to bridge the gap until a regulator is operational (Home Office response, Nov 2020). In that November 2020 response, it confirmed that the interim code would be published alongside the full government response to the Online Harms White Paper (Home Office response, Nov 2020; Home Office, Nov 2020). The record holds nothing dated later than the response of November 2020 (Home Office response, Nov 2020).

Lambeth Council should develop and publish a comprehensive action plan which details the actions that it will take in response to the issues raised throughout the Inquiry's investigation report. The action plan should be developed and published within six months of the publication of this investigation report, and should be accompanied by timescales for completing identified actions as soon as possible.

The London Borough of Lambeth accepted the recommendation in December 2021, publishing an action plan approved by Full Council in which it stated that it had considered lessons learned and formulated actions to "safeguard against the failures of the past being repeated" while charting the course children and young people deserve (London Borough of Lambeth response, Dec 2021). The record holds no update since the council's response of December 2021 (London Borough of Lambeth response, Dec 2021).

All Lambeth Council elected members should receive training on: (i) safeguarding and (ii) corporate parenting. Newly elected members should receive training on these matters as soon as possible following their election. Training should be mandatory and repeated on a regular basis. The training content should be regularly reviewed and updated.

In December 2021, the London Borough of Lambeth accepted the recommendation, setting out plans in its action plan for all newly elected councillors to complete mandatory corporate parenting and safeguarding training during induction, followed by annual refreshers (London Borough of Lambeth response, Dec 2021). It also stated in December 2021 that it would review mandatory training requirements and monitor completion to report non-compliance through formal mechanisms (London Borough of Lambeth response, Dec 2021). The record holds no update since the London Borough of Lambeth's response of December 2021 (London Borough of Lambeth response, Dec 2021).

Lambeth Council should review the application of recruitment and vetting procedures for all current foster carers directly provided by Lambeth Council, to ensure that the procedures have been followed correctly. In addition, Lambeth Council should seek assurances from external agencies and other local authorities, in which children in the care of Lambeth Council have been placed, that recruitment and vetting procedures have been followed correctly for all foster carers and residential children's homes' staff working with children.

In its December 2021 action plan, the London Borough of Lambeth stated that it would ensure foster carers, councillors, and staff working with children have appropriate and up-to-date Disclosure and Barring Service certificates and "implement an online DBS process that enables better monitoring of compliance in line with safer recruitment practice" (London Borough of Lambeth response, Dec 2021). The record holds no update since the council's response of December 2021 (London Borough of Lambeth response, Dec 2021).

The Local Government Association and the Association of British Insurers should each produce codes of practice for responding to civil claims of child sexual abuse. The codes should include recognition of the long-term emotional and psychiatric or psychological effects of child sexual abuse on victims and survivors, and acknowledgement that these effects may make it difficult for victims and survivors to disclose that they have been sexually abused and to initiate civil claims for that abuse. The codes should also include guidance that: 1. claimants should be treated sensitively throughout the litigation process; 2. the defence of limitation should only be used in exceptional circumstances; 3. single experts jointly instructed by both parties should be considered for the assessment of the claimants' psychiatric, psychological or physical injuries; and 4. wherever possible, claimants should be offered apologies, acknowledgement, redress and support.

In August 2021, the Association of British Insurers published a code of practice for responding to civil claims of child sexual abuse, stating that the guidance was produced to improve aspects of the civil claims process within insurers' control, including approaches to limitation, apologies, and the use of confidentiality agreements (Association of British Insurers response, Aug 2021). The record holds no update since the Association of British Insurers' response of August 2021 (Association of British Insurers response, Aug 2021).

The Chair and Panel recommend that the Department of Health and Social Care, the Department for Education, the Ministry of Justice and the Home Office work together to establish current levels of public expenditure, and the effectiveness of that expenditure on services for child victims and adult survivors of child sexual abuse in England.

In February 2020, HM Government reported that the Department of Health and Social Care, the Ministry of Justice, the Department for Education and the Home Office had reviewed public expenditure on services supporting victims and survivors of abuse, covering 2018/19 spending alongside ongoing and future commitments (Ministry of Justice, Feb 2020). The Independent Inquiry into Child Sexual Abuse noted in October 2022 that the departments had carried out this review, adding that the government's forthcoming strategy on child sexual abuse would seek to take a whole-system approach to providing support services (The Independent Inquiry into Child Sexual Abuse, Oct 2022).

As a result, the Panel recommends that HMG establishes a Redress Scheme for surviving former child migrants, providing for an equal award to every applicant. This is on the basis that they were all were exposed to the risk of sexual abuse. Given the age of the surviving former child migrants, the Panel urges HMG to establish the Scheme without delay and expects that payments should start being made within 12 months. We also propose that no regard be had to any other payments of compensation that have been made in particular cases.

The Inquiry recommended creating an equal redress scheme for surviving former child migrants. In May 2023, HM Government reported that the Department for Health and Social Care (DHSC) had established an ex-gratia payment scheme offering an equal award to every applicant, with over 1,700 payments made since applications opened in March 2019 (Home Office response, May 2023). It had previously stated in July 2019 that eligible former child migrants receive £20,000 regardless of individual circumstances or other compensation, covering those alive on 1 March 2018 or their beneficiaries (HM Government response, Jul 2019). The record holds nothing dated later than the response of May 2023 (Home Office response, May 2023).

The Home Office should bring forward legislation providing for the establishment and maintenance by the National Crime Agency of a list of countries where children are considered to be at high risk of sexual abuse and exploitation from overseas offenders. This list should be kept under regular review. The list of countries should be made available to the police, and used routinely to help identify whether a person who has been charged with sexual offences against a child poses a risk to children overseas based on their travel history and/or plans. If the person is considered to pose a risk of sexual harm to children overseas, the police should submit an application for a foreign travel restriction order under the Sexual Offences Act 2003. The list of countries should be admissible in court and used when considering whether a foreign travel restriction order should be made under the Sexual Offences Act 2003 and if so, to which countries it should apply.

The Inquiry asked the Home Office to legislate for a high-risk countries list. The Police, Crime, Sentencing and Courts Act 2022, enacted in April 2022, provides that the Secretary of State may prepare, or direct a relevant person to prepare, a list of countries and territories outside the United Kingdom where children are at high risk of sexual abuse or exploitation (Police, Crime, Sentencing and Courts Act 2022, section 172: List of countries, Apr 2022). Earlier, in January 2021, HM Government stated in a response published by the department that it accepted the recommendation, had commissioned the National Crime Agency (NCA) to compile the list, and would bring forward legislation when parliamentary time allowed to assist police and courts with foreign travel prohibitions (Home Office response, Jan 2021; Home Office, Jan 2021).

The Inquiry recommends that the UK government creates a cabinet-level ministerial position for children. The Inquiry recommends that the Welsh Government ensures that there is cabinet-level ministerial responsibility for children.

In January 2026, Josh MacAlister, a Minister answering for the Department for Education, stated that the Secretary of State for Education is the Cabinet minister for children and that a Keeping Children Safe ministerial board has been established to drive cross-government focus on children's wellbeing, safety and opportunity (Josh MacAlister, Jan 2026). Earlier, in May 2024, the Thirlwall Inquiry legal team found that a Child Protection Ministerial Group had been established previously and that the work might come under that body (The Thirlwall Inquiry legal team, May 2024).