National policing strategy needed to tackle County Lines child exploitation, study shows

The study found there are widespread systemic deficiencies and differences both in, and between, forces on the approach to County Lines policing, and, as a consequence, appropriate policing and safeguarding responses resemble a “postcode lottery”.

Researchers recommend that more national guidance and centralised oversight to create a minimum standard response within and between all forces is needed to protect vulnerable people.

In addition, researchers at the universities of York, Liverpool and Leeds also suggest that the term ‘County Lines’ is now outdated, due to improved understanding of how drug distribution involving travel to other areas by young people has evolved to also encompass local drug supply and exploitation of young people.

The study, involving 117 interviews with officers across 44 police forces, examined how the police process young people and vulnerable adults involved in drug distribution in cross-border and local drug markets.

Historically, those involved in drug supply have been criminalised, but in recent years an understanding that many vulnerable children and adults have been forced or manipulated into involvement has led to calls for them to be seen as victims – to be safeguarded not punished.

The findings show, however, that although police forces are changing and increasingly seek to safeguard when exploitation is suspected, for example through the introduction of Child Centred Police Teams in some areas, there is still no consistent or baseline approach either across forces or indeed within single force areas.

Professor Charlie Lloyd, from the Vulnerability and Policing Futures Research Centre, University of York, said: “It is a considerable challenge for police officers when they are faced with a child carrying Class A drugs, suspected of being exploited to distribute drugs, but who is perhaps also antagonistic and unwilling to cooperate with police.

“In these circumstances there needs to be national guidelines that will aid officers in their decision-making and a baseline safeguarding response to  ensure that vulnerable young people are not unnecessarily criminalised.

“We also showed that the term ‘County Lines’ itself has become problematic. Whilst it appears to have served a purpose in highlighting that exploitation of young people and vulnerable adults is a key feature of this type of organised crime, many officers now agree it is time to move on from this categorisation, to enable resources to follow the exploitation in drug supply, regardless of whether it is across borders or local – which is increasingly the case.”

In contrast to the ‘out-of-town’ drug supply approach considered to be typical of County Lines, many forces reported that they now also see the equivalent of County Lines practices operating within local drug markets.

Both types of activity involve the exploitation of children and vulnerable adults and suggests that criminal exploitation is now the defining characteristic of this type of crime and should be the primary focus for police forces everywhere.

Researchers highlight that moving away from the term ‘County Lines’ would enable a clearer focus on the different approaches needed and the different teams required to improve safeguarding responses – criminal exploitation in drug markets rather than County Lines is now more important.

Andy Higgins, Director of Research at the Police Foundation, said: “This research paints a vivid picture of the way UK policing is shifting its approach to dealing with harmful social issues like Class A drug supply, from a sole focus on enforcement and prosecution, to one that engages with complex questions about culpability, vulnerability and the long term impact of its own policies and actions.

“It also shows, however, that the national picture is inconsistent, with police practice and attitudes differing across the country.

“Just as the ‘discovery’ of County Lines drug dealing made policing rethink the way it worked across force boundaries, the research highlights how it is now important to bring more consistency to the way forces deal with those who become involved.”

The research showed that while some forces have a good focus on vulnerability and have, for example, Child Centred Policing Teams and may also work in co-located spaces with social workers, specialist officers, youth services and NGOs, many do not.

Basic safeguarding approaches within policing and safeguarding partnerships differ across the country and within regions, and, as a consequence, the decision-making around how an individual is processed can vary depending on a range of influencing factors, such as biases around gender, race, and how old the young person looks but also how quickly and in what ways a local safeguarding panel manages to process suspected exploited persons.

Emeritus Professor Ross Coomber, lead author of the report from the University of Liverpool, said: “The safeguarding response provided by forces, in effect resembles a postcode lottery, with some forces actively pursuing helpful processes and having the resources to deal with these complex issues, some having limited resources and less helpful processes, and some having little or no resource at all dedicated to criminal exploitation.

“We recognise that it is a significant challenge to ask officers to think outside of their enforcement role and to work with other agencies more closely to access expertise on child safeguarding, but of the forces that were working with social workers, youth services and other specialists, it was evident that despite their different outlooks, they did in fact work well together and a stronger sense of progress, moving forward, was evident – there was a sense of progressive evolution.”

The team also worked closely with Revolving Doors, an organisation that works to amplify the voices of vulnerable people who have experienced the justice system and champion longer term solutions to prevent individuals becoming criminalised due to health or social challenges.

Dr Chris Devany, from the Vulnerability and Policing Futures Research Centre, University of York, said: “The decisions made during the processing of vulnerable people once they enter the judicial system really are crucial to how the rest of their lives can unfold.

“A consistent approach to this nationally, may mean a significant number of people are saved from prison and put back on a path that could ultimately save their lives, as well as provide police forces with valuable information on how drug markets operate.”

ESRC executive chair Stian Westlake said: “We welcome the publication of this report from the ESRC Vulnerability and Policing Futures Research Centre. By bringing social science researchers together with police forces and a range of national and regional partners, their work has the potential to drive changes that reduce serious harm to vulnerable people  and increase public confidence in law enforcement, helping to deliver safer streets and better lives for all.

“These findings powerfully demonstrate the value of ESRC’s investments in world leading social science research, which time and again produces outstanding work and valuable insights that have a positive impact on public policy.”

The research, funded by the ESRC, will be published at https://vulnerabilitypolicing.org.uk/publications/