Conservatives set out Terms of Reference for a National Inquiry into Grooming Gangs

• Frustrated with a lack of progress, survivors and advocates worked with the Conservatives to draft a Terms of Reference for the Government to adopt.
• Such an inquiry would ensure there is nowhere to hide for any authorities who were part of a cover up.
• If adopted, this inquiry would also look at the role of ethnicity and religion.

Tomorrow [Monday 8^th December 2025], Kemi Badenoch MP, Leader of the Conservative Party, will launch a proposed Terms of Reference for a national statutory inquiry into grooming gangs. She will be joined by Chris Philp MP, Shadow Home Secretary, as well as grooming gang survivors and advocates.

Working in the national interest and closely with survivors, their families, and their advocates the Conservative Party will publish a Terms of Reference that we encourage the Labour Government to use to establish the national statutory inquiry into grooming gangs. The Labour Government has completely failed to take action and therefore we have published these terms of reference.

If adopted by the Government, this inquiry will be established as a full statutory inquiry under the Inquiries Act 2005, entirely independent of Government, with the power to compel evidence, summon witnesses, and make findings of fact. Its purpose is to uncover the full scale of organised grooming networks across England and Wales, examine the characteristics and motivations of offenders, expose institutional failings, and ensure justice for survivors.

The proposed Terms of Reference empower the inquiry to:

• Investigate the prevalence and nature of organised grooming networks, with a focus on extra-familial abuse.
• Consider whether offenders display shared religious, ethnic, national, family, or clan characteristics.
• Examine whether State institutions failed to act due to concerns about the characteristics of suspects or victims.
• Investigate whether any individuals in public bodies ignored, concealed, or facilitated abuse.
• Hear detailed survivor testimony to identify failures in reporting, policing, CPS decisions, court processes, sentencing, and post-release management.
• Assess the harms suffered by survivors and their families as a result of both abuse and institutional responses.
• Forward evidence to police and prosecutors where criminality is indicated.
• Make recommendations to prevent future abuse and improve redress for victims.

To deliver this work, an inquiry based on these terms of references will be able to establish local investigations in areas with high prevalence of child sexual exploitation, drawing on police databases, court records, local authority data, health and education records, third-sector information, and direct survivor testimony. It will also examine offender motivations, family and social ties, and potential links to wider criminality.

Survivor protection is placed at the centre of the inquiry. The Terms of Reference include trauma-informed procedures, anonymity where required, special measures for giving evidence, access to psychological support, and whistleblower protections for staff within public bodies.

The remit covers England and Wales and may include both historic and contemporary cases. The inquiry will act compatibly with safeguarding law, data-protection legislation, investigative powers, and the need to avoid prejudice to live criminal proceedings.

A secretariat will be established to support witnesses, manage evidence, and oversee communications. The Chair will publish an initial work programme, with interim reports where appropriate. A final report will set out findings, lessons learned, and recommendations, with Government required to respond and implement measures with clear deadlines.

Labour have had six months since they U-turned and accepted the need for a statutory national inquiry. Survivors have told the Conservatives that they are losing hope and trust. This Terms of Reference is an attempt to work together with the Government in order to obtain justice for the survivors.

Where Labour have sat on their hands, the Conservative Party is the only party are putting forward the only serious, worked up plan for a national statutory inquiry with real teeth, clear scope, and enforceable standards.

Kemi Badenoch MP, Leader of the Conservative Party, said:

“This is about survivors and what they want. We must give a voice to the voiceless. 

“They have told us what an inquiry must include in order to obtain justice. This is what the Terms of Reference sets out. 

“I urge the Government to do the right thing and act now to establish a national statutory inquiry that not only investigates State instutitions who let the survivors down, but also any ethnic and religious links that caused these crimes."

Chris Philp MP, Shadow Home Secretary, said:

“This inquiry will have the powers, independence, and scope needed to uncover organised grooming networks and the institutional failures that let victims down. Nothing will be off limits. It is time to put survivors first and ensure this can never happen again.

“The truth is the Labour Government never wanted the inquiry into grooming gangs to begin with. They had to be dragged kicking and screaming into holding it. It is time for the Prime Minister to grow a backbone, deliver justice for every survivor, and hold every official who enabled these crimes to account.”

Fiona Goddard, grooming gang survivor, said:

“I have lost faith in the ability of the Government to make meaningful progress. That is why I decided to step away from their survivors panel, as they were not genuinely listening.

“I have more confidence that the Terms of Reference released today by the Conservatives reflect the real thoughts and feelings of survivors. They stay true to the original purpose of the inquiry and align with the approach proposed by Baroness Louise Casey, offering a honest, transparent, and meaningful framework for the investigation.

“I urge the Government to adopt these terms of reference and begin making real progress on this critical issue. I also call on the Government to immediately establish support hubs for survivors of grooming gangs individuals who have been failed for decades so they can finally access the support and therapy they need to heal, including healing from institutional failures.”

Marlon West, father of grooming gang survivor, said:

“Once in a lifetime, an inquiry comes along that could change how our Government protects British children. It is essential that this is done thoroughly and correctly. Kemi's Terms of Reference adequately meet those requirements, and as a father of a survivor, I hope this is recognised. Not for political points, but for the safety of our children. All political parties should be able to work together to achieve positive outcomes in collaboration.”

Theresa Smith, parent of CSE victim, said:

“It's time for this to come to an end and a solution to be in sight.  We need to be able to start to rebuild our lives. We've been waiting and asking questions and no meaningful answers have been given. We need action and this work provides that.”

Lucia Rea, Oldham survivors CSE advocate, said:

“We've created this ToR because survivors were being left without clarity, direction and protection. Safeguarding concerns are increasing whilst the appointment of a chair and the structure of the promised inquiry was further stalled by the Government. Working with survivors has enabled this work to come from a place of lived experience and factual accounts, hoping it can serve the inquiry in a robust end to end process.”

ENDS

Notes to Editors:

The Conservative Party's proposed 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:

            (i) The initial disclosure and reporting of a crime to the police or other State institution

            (ii) The State institution's response and any subsequent investigation

            (iii) Charging decisions by the CPS or other prosecuting authority

            (iv) Prosecution and court delays

            (v) Their experience of the trial process

            (vi) Sentencing adequacy and consistency

            (vii) Offender management post-release.

(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. 

1. 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.

1. 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.

1. 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.

1. Social and familial ties: Explore the breadth of any family or other social ties between perpetrators of crimes.

1. 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.

1. 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.

1. 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.

1. 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.

1. 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.

6.3 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.

6.4 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:

(a) the compulsion and voluntary provision of evidence;

(b) the treatment of sensitive, legally privileged, or classified material;

(c) anonymity of victims and redaction of information concerning victims;

(d) publication of transcripts and exhibits;

(e) use of expert evidence, social research, and statistical analysis; and

(f) liaison with policing bodies and prosecutors where criminality is indicated.

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.