See below our full terms of reference:
Establishment and Legal Basis.
1.1 The Inquiry is established as a statutory inquiry under the Inquiries Act 2005 (“the Act”).
1.2 The Inquiry will be independent of Government. The Chair will be appointed by the Secretary of State for the Home Office, who will consult the Chair on any proposed amendments to these Terms of Reference (“ToR”).
1.3 The Inquiry will have the powers set out in the Act, including the power to compel the production of documents and the attendance of witnesses, to take evidence on oath, and to make restriction orders where necessary in the public interest and to protect individual victims.
Purpose of the Inquiry
2.1 The purpose of the Inquiry is:
(a) To establish, across England and Wales, the prevalence of any organised networks of individuals proven to have, or suspected of having, engaged in the grooming and subsequent sexual abuse or exploitation of children with a primary but not exclusive focus on ‘extra familial abuse.’
(b) To consider any evidence of the propensity for those involved in such networks to exhibit particular religious, ethnic, or national characteristics, including family or clan networks.
(c) Where evidence falling within (b) is discovered, to consider whether any failure to act or investigate suspected cases by State institutions was driven, in any way, by the religious, ethnic, national, family, or clan characteristics of suspects or victims.
(d) To both seek and consider any evidence that suggests, or tends to suggest, that any individuals within State institutions were aware, or ought to have been aware, of the conduct described in (a) or (c), and whether such individuals sought to ignore, conceal, or suppress evidence of such conduct and/or their own complicity.
(e) To both seek and consider any evidence that suggests, or tends to suggest, that any individuals within State institutions were actively involved in facilitating the conduct described in (a), concealing the characteristics identified in (b), or concealing the conduct described in (a) as a result of the characteristics identified in (b).
(f) To carefully explore the testimony of survivors pre- and post-reporting of their experience in order to identify any lessons relating to:
(g) The Inquiry shall assess:
(i) Any harms suffered by survivors, victims and their families both as a result of the abuses to which they have been subject and as a result of any subsequent investigations by State institutions.
(h) Where evidence falling within (a) to (g) is discovered, to make findings of fact, to either the criminal or civil standard of proof as the Chair of the Inquiry may determine.
(i) To forward any evidence as the Chair considers appropriate to the Police, National Crime Agency, or the Director of Public Prosecutions so that they might consider whether criminal proceedings ought to be initiated in any given case. The Chair must make provision to ensure that any Police Force which is itself under investigation by the Inquiry should take steps to ensure that persons of interest to the Inquiry are not given access to this evidence.
(j) To make any other recommendations that the Chair considers appropriate for the avoidance of future sexual abuse and exploitation of children, and to any redress of victims of such abuse and exploitation.
Functions and Specific Matters to be Addressed
3.1 In order to fulfil the Purpose, the Inquiry will:
1. Local inquiries: The Chair shall have the power to bring into existence new inquiries to investigate any locality the Chair considers appropriate to investigate, including the selection and appointment of a local inquiry chair, and to issue directions to ensure consistency of standards, procedures, and reporting.
2.Area selection and data sources: Select local areas in which investigations must be conducted by reference to any published data on prevalence of child sexual abuse and exploitation, including but not limited to the direct testimony of victims, the Police National Database, data held by the Child Exploitation Police Task Force, conviction records, and any records of court proceedings that can be obtained. The Inquiry may draw on additional sources, including local authority, education, health, probation and youth offending records, and third-sector data.
3.Attitudes and motivations: Explore the attitudes of any individuals committing offences within scope of the Inquiry, including any religious, racial, ethnic, national, or cultural motivations for their behaviour.
4.Links to other criminality: Explore any links between those committing offences within scope of the Inquiry and other forms of criminal behaviour, including organised crime of any kind.
5. Social and familial ties: Explore the breadth of any family or other social ties between perpetrators of crimes.
6. Assurance over locally led inquiries: Satisfy itself that any local inquiry into these matters, where initiated by a local authority, should be led by individuals of sufficient independence, experience, and qualification, and should operate to procedures and standards consistent with these ToR.
7. Protected testimony: Make adequate provision for any victims to give protected testimony to the Inquiry that respects and protects their psychological integrity, including through special measures, anonymity, and alternative modes of giving evidence where appropriate.
8. Support for witnesses: Make provision for psychological support and counselling services for any witness who is required to give evidence to the Inquiry, both during and after engagement.
9. Attorney General undertakings: Seek, in appropriate cases, undertakings or assurances from the Attorney General for England and Wales in respect of non prosecution or the use of self incriminating evidence for any individual witnesses who provide evidence that is highly significant to the Inquiry, where this is compatible with the interests of justice and the Inquiry’s objectives.
10. Whistleblowing protections: Give an undertaking that the Inquiry Chair will provide appropriate support to any individual who, in disclosing information to the Inquiry, seeks to rely upon the protections of the Public Interest Disclosure Act 1998 (as amended), including signposting, confidentiality safeguards, and, where appropriate, restriction orders.
Scope and Jurisdiction
4.1 The Inquiry’s remit extends to England and Wales. It does not extend to Scotland, Northern Ireland, any British Overseas Territory, or any Crown Dependency. If the inquiry becomes aware of information relevant to another jurisdiction, they should pass it on to the relevant authorities or inquiry if there is one.
4.2 The Inquiry will consider events and conduct within the timeframe(s) specified by the Chair, which may include historic and contemporary matters as necessary to discharge the Purpose.
4.3 The Inquiry may examine the actions and omissions of State institutions and relevant private and voluntary bodies insofar as they fall within England and Wales and the matters set out in Section 2.
Standards of Proof, Findings, and Limitations
5.1 The Inquiry will not determine civil or criminal liability but may make findings of fact, including findings which may be critical of individuals or institutions.
5.2 Pursuant to paragraph 2.5 above, the Chair may, in appropriate modules or issues, apply either the civil or criminal standard of proof when making findings of fact, and will make clear in publications which standard has been applied.
5.3 The Inquiry will act compatibly with the Act, the Contempt of Court Act 1981, the common law of fairness, and the need to avoid prejudice to ongoing or prospective criminal proceedings. The Chair may sequence hearings or restrict publication to avoid such prejudice.
Participation, Safeguarding, and Equality
6.1 The Inquiry will adopt trauma informed, survivor centred procedures, including access to special measures, anonymity and reporting restrictions where necessary to protect the interests and privacy of children and adult survivors, excepting that such measures shall not have the effect of creating or preserving the anonymity of any individuals the Inquiry finds have engaged in any conduct falling within paragraphs 2.1 (a) through (e) of these ToR.
6.2 The Chair may designate core participants and make awards for legal representation where appropriate, in accordance with the Act and any Ministerial guidance on costs.
6.3 The Inquiry will ensure appropriate safeguarding protocols for the handling of disclosures and the referral of information indicating a risk of harm to children or vulnerable adults.
Evidence, Information Governance, and Confidentiality
7.1 The Inquiry will establish secure processes for requesting, receiving, storing, analysing, and publishing material, compliant with the Data Protection Act 2018 and UK GDPR, applicable investigatory powers and information sharing regimes, and any relevant professional secrecy or privilege. Upon receipt of a reasonable request from any potential witness to the Inquiry, the Chair shall give such further additional undertakings as they may deem appropriate as to the security of personal data and information provided by witnesses.
7.2 The Chair may issue protocols on:
7.3 The Inquiry reserves the right to disclose to the Police, the Crown Prosecution Service, the National Crime Agency, or other competent authority any evidence it receives which shows, or tends to show, that a criminal offence has or may have been committed, or that there is an ongoing risk of harm.
Local Inquiries Framework
8.1 Where the Chair establishes local inquiries under paragraph 3.1, each local inquiry will operate under an instrument issued by the Chair setting out its remit, procedures, safeguarding standards, data handling, and reporting obligations, consistent with these ToR.
8.2 Local inquiries will produce interim and final reports to the Chair. The Chair may direct joint hearings, shared experts, or pooled research where appropriate.
8.3 The Chair may appoint assessors and panels to support local inquiries, ensuring expertise in child protection, policing, prosecution, data and intelligence analysis, community engagement, and trauma.
8.4 The Chair may delegate the use of powers available to them in respect of the national inquiry to local inquiry chairs.
Governance, Resourcing, and Administration
9.1 The Inquiry will establish a Secretariat responsible for administration, disclosure, witness support, and communications.
9.2 The Minister will set a budget envelope for the Inquiry. The Chair will ensure that public money is used with probity and value for money, with transparent procurement for expert services.
9.3 The Inquiry will publish procedural guidance, including: a witness protocol; a statement of approach to research; and a costs protocol for legal representation.9.4 The Inquiry will maintain a public website and provide regular updates on progress, hearings, publications, and opportunities for engagement.
Timetable, Reporting, and Implementation
10.1 The Chair will publish an initial work programme and timetable, including modules and milestones, and may publish interim reports where this is in the public interest.
10.2 The Inquiry will publish a final report setting out findings of fact, lessons learned, and recommendations pursuant to Section 2.7 above.
10.3 The Government will respond in a timely manner to the Inquiry’s recommendations. The Chair may recommend arrangements for post report monitoring, including periodic progress reports to Parliament. Recommendations must have deadlines attached to them and a monitoring mechanism to ensure delivery.
Definitions For the purposes of these ToR:
11.1 “Child” means any person under the age of 18 at the material time.
11.2 “Sexual abuse and exploitation of children” includes contact-based sexual offences against children; grooming; sexual exploitation including in exchange for money, goods, status or services; facilitation; and conspiracy to commit such offences.
11.3 “Organised network” means a group of two or more individuals who act together, whether continuously or intermittently, with a degree of planning, coordination, or shared purpose, to facilitate or commit the sexual abuse or exploitation of children. This could include organised networks based on businesses such as taxi firms, takeaway or vape shops.
11.4 “Group based child sexual exploitation” refers to sexual exploitation or abuse perpetrated by multiple offenders acting together or with awareness of each other’s activities, whether or not each offence is jointly committed.
11.5 “Locality” means a defined geographic area within England and Wales selected by the Chair for focused examination, which may be a local authority area, policing area, or another rational boundary.
11.6 “State institutions” include government departments, non departmental public bodies, local authorities, elected officials, police forces, prosecuting authorities, courts and tribunals administration, probation and youth offending services, health bodies, schools and further/higher education institutions, and any contracted providers performing public functions.
11.7 “Victim/Survivor” refers to a person who has experienced sexual abuse or exploitation as a child. The Inquiry will respect individuals’ preferred terminology.
11.8 “Police Force” means any Police Force within the meaning of the Police Act 1996.
Communications and Public Access
12.1 The Inquiry will conduct as much of its business as possible in public, subject to necessary restrictions to protect individuals and the public interest.
12.2 Transcripts, evidence, and rulings will be published where consistent with safeguarding, privacy, and any other legal constraints.
12.3 The Inquiry will engage with affected communities, faith groups, civil society, and professional bodies to promote understanding and confidence.
Records, Retention, and Legacy
13.1 The Inquiry will maintain a comprehensive record of its proceedings and evidence, and will adopt a records retention and archiving policy consistent with law and good practice, and Paragraph 7.1 of these ToR.
13.2 At the conclusion of the Inquiry, records will be transferred, retained, or disposed of in accordance with applicable legislation and directions from the Minister and National Archives, with due regard to survivors’ privacy and any further undertakings the Chair may have given in preserving their privacy.
Amendment
14.1 These ToR may be amended by the Secretary of State for the Home Office, after consultation with the Chair, where this is necessary in the public interest.
Commencement and Duration
15.1 The Inquiry will commence on the date specified in the Instrument of Appointment.
15.2 The Inquiry will be completed within two years of this commencement data.
15.3 The Chair shall have the power to extend this initial two-year period, to allow for any time that the Inquiry spends paused or temporarily suspended as a result of criminal investigations or proceedings taking place against individuals or institutions of interest to the Inquiry.
15.4 The Chair must write to the Home Secretary if seeking to extend the two-year period in accordance with 15.3, setting out the reasons for the delay and indicating when any suspended elements of the Inquiry may resume.
