A new report has warned of a 'systemic failure' across the UK's counter-terrorism safeguarding network, leaving vulnerable people and the public at risk. Published today (Wednesday) by His Majesty's Inspectorate of Constabulary and Fire & Rescue Services (HMICFRS), the report found that organisations were not consistently sharing information or managing risks collectively.
Inspectors warned that growing demand and increasingly complex cases were putting considerable strains on safeguarding arrangements. The report was commissioned by the Home Secretary to examine how police forces, Counter Terrorism Policing (CTP) and partner organisations safeguard young and vulnerable people who may be at risk of radicalisation, exploitation or involvement in terrorism-related activity.
Rising Prevent referrals
Since July 2024, the number of referrals to Prevent – part of the government's counterterrorism (CONTEST) strategy for people at risk of becoming involved in terrorism – increased sharply following the murders of three young girls in Southport. While the inspectorate found examples of committed CTP and police force personnel, the increase in Prevent referrals was leading to strains on existing safeguarding arrangements, which have not kept pace with the changing nature of terrorist threats or the growing complexity of terrorism-related vulnerability.
Inspectors also found that organisations, including CTP and local policing teams, don't manage risk collectively, their accountability is unclear and information isn't exchanged effectively between them.
Inspector calls for whole-system approach
Lee Freeman, HM Inspector at HMICFRS, said: “The UK continues to face a persistent terrorist threat with the threat level currently at severe, meaning an attack is highly likely. But the nature of this threat has changed.
“Young and vulnerable people are increasingly being exposed to harmful material online, while the number and complexity of referrals to Prevent have placed the safeguarding system under considerable strain.
“We found some examples of effective practice and dedicated personnel across the system, but organisations are not consistently sharing information or managing risks collectively. These weaknesses create systemic failure across the whole safeguarding process, rather than a failure of any single organisation.
“Safeguarding requires a whole-system approach by policing and partner organisations. Stronger strategic leadership, improved information sharing, earlier intervention and greater accountability are needed to keep vulnerable people and the public safe.”
Southport attack context
In the year to March 2025, 69pc of Prevent referrals involved people under 26, while 56pc concerned those with no identified ideology. Axel Rudakubana killed Elsie Dot Stancombe, seven, Bebe King, six, and Alice da Silva Aguiar, nine, and injured eight other children and two adults in a knife attack at a Taylor Swift-themed dance class.
Rudakubana was referred to Prevent on three occasions between 2019 and 2021 due to his interest in terrorist attacks and school shootings, though there was no evidence of a fixed ideology or motivation. A report this year found that the attack 'could have been prevented' if the killer's parents and authorities had intervened in the years leading up to it. It also stated that 'no agency or multi-agency structure accepted responsibility' for assessing and managing the 'grave risk' that Rudakubana posed.
In April, a Home Affairs select committee warned that Prevent was 'outdated' and 'inadequately prepared' to 'deal with modern extremism challenges in the digital world'.
Recommendations
Inspectors at HMICFRS have made 14 recommendations – 10 of which are to be implemented by the end of March 2027 – and identified two areas for improvement to make safeguarding more effective. Some recommendations include hiring enough qualified specialists to meet demand, creating clear national guidelines for supporting people who show concerning behaviour or fixations without a clear ideology, and improving information sharing.
The report also suggested that the National Police Chiefs' Council lead for CTP must make sure all relevant CT Policing officers and staff have a good understanding of the Online Safety Act 2023, a new law that introduces measures to protect children and adults on the internet.
