What should an officer do if a child is found carrying drugs for a county lines operation?

Treat the child as a potential victim of exploitation, not primarily an offender. Make or trigger a National Referral Mechanism (NRM) referral, and before charging, consider whether the child has a defence under s.45 Modern Slavery Act 2015 (the child limb, s.45(4), requires only that the offence was a direct consequence of the exploitation).

What powers can close a cuckooed address?

A graduated scheme under the Anti-Social Behaviour, Crime and Policing Act 2014: an officer of at least inspector rank can issue a closure notice for up to 24 hours (s.76); an officer of at least superintendent rank can extend it to a maximum of 48 hours (s.77); only a magistrates' court can make a closure order (s.80) — police cannot make the order themselves.

County Lines & Gangs

The county lines model, exploitation indicators, child criminal exploitation and the NRM, cuckooing and closure powers, key legislation, multi-agency response, and disruption tactics — an officer quick-reference.

Unofficial independent resource — always verify with official sources (College of Policing, your force, PFEW).

Reviewed by the BlueLineHub Editorial Team

Last reviewed: 26 August 2026 · Next review due: 26 February 2027

Reviewed by BlueLineHub Editorial

What is a county lines operation and how should an officer respond to the runners, the cuckooed address, and the line holder?

County lines is a model where a criminal network, typically based in a major city, supplies controlled drugs into a smaller town or rural area using a dedicated phone line. Runners — often exploited children or vulnerable adults — carry drugs and cash and take most of the risk; the line holder rarely handles drugs directly. A local address, often taken over through cuckooing, is used as a base for supply.

Children found running a line are victims of exploitation, not primarily offenders: officers should consider a National Referral Mechanism (NRM) referral and, before charging, whether the child has a defence under s.45 Modern Slavery Act 2015. A cuckooed occupant is also a victim and should be safeguarded and spoken to alone.

The principal offences are supply and PWITS under the Misuse of Drugs Act 1971 (s.4 and s.5(3)), human trafficking and forced labour under the Modern Slavery Act 2015 (s.1, s.2), with a defence for victims at s.45. Cuckooed addresses can be closed using the graduated Anti-Social Behaviour, Crime and Policing Act 2014 scheme: an inspector's closure notice (s.76, max 24h), extension by a superintendent (s.77, max 48h), or a closure order made only by a magistrates' court (s.80). Serious Crime Prevention Orders (SCA 2007 s.1) and cash seizure or Account Freezing Orders (POCA 2002 s.294, s.303Z1) target line holders' assets and activities.

All operational references

A reference to the county lines model, the indicators of exploitation, child criminal exploitation and the National Referral Mechanism, cuckooing and the closure powers available against it, the key offences and disruption powers, multi-agency working, and intelligence tactics. It is educational reference, not tactical guidance — follow your force policy, the NCLCC, College of Policing APP on Drugs, and current law.

What Are County Lines?

County lines is a term used to describe gangs and criminal networks that supply controlled drugs from urban areas to rural, coastal, and market towns using dedicated mobile phone lines. The phone line — known as the ‘line’ — is the commodity around which the operation is built.

The County Lines Model

Definition

A county lines operation involves a criminal network, typically based in a major city (London, Birmingham, Liverpool, Manchester), establishing a drug supply route into a smaller town or rural area. A dedicated phone number is used by local buyers to order drugs, with supply managed remotely by the line holder.

Line holder

The person (or group) at the top of the local operation who controls the phone line. They rarely handle drugs or money directly, insulating themselves from prosecution. They direct runners and enforcers and collect profits through runners or cash couriers.

Runners

Usually young people (often children aged 14–17) or vulnerable adults used to transport drugs and cash. They may be coerced, exploited, or believe they are being paid fairly. They carry the drugs and the line phone, taking most of the criminal risk while line holders take the profit.

Local dealer / trap house

A local address (often a cuckooed property) used as the base for local drug supply. Buyers come to the address or the runner meets them locally. The trap house may be operated by a local person who has been coerced into providing their home.

Phone line as commodity

The phone number itself has significant value — it holds the customer base and represents the revenue stream. Rival gangs may attempt to take over lines. Lines are bought and sold. Officers seizing a phone line device may be seizing an asset of significant criminal value.

Expansion model

Networks expand by identifying vulnerable communities and individuals in target towns, establishing a cuckooed address, and building a local customer base through favourable pricing before raising prices once established. New lines are opened in multiple locations simultaneously.

Indicators of County Lines Involvement

Many indicators relate to vulnerable people being exploited rather than perpetrating crime.

Indicator	What to look for
Missing children	Children who go missing from home or care, particularly repeatedly and to the same location, are a significant indicator of county lines exploitation. These children are often travelling to supply drugs in distant areas. Every misper investigation involving a child should consider exploitation as a possibility.
Unfamiliar adults at vulnerable addresses	Adults or young people previously unknown to the local community appearing at a vulnerable person's address — particularly if the address is a known drug user's home. Multiple visits, curtains drawn, different vehicles — all indicators of cuckooing.
Increased ASB in area	A sudden increase in antisocial behaviour, street drug dealing, or street-level violence in a previously quiet area may indicate the establishment of a new county line. Check for unfamiliar faces, dedicated phone numbers being used openly, and evidence of drug paraphernalia.
Knife carrying by young people	Young people involved in county lines may carry bladed articles for self-protection (from both rival gangs and from their own line holder). Knife carrying by young people — especially those unknown to local intelligence — should trigger county lines enquiries.
Cash and drugs on young people	Young people found in possession of significant amounts of cash, multiple mobile phones, or drugs (particularly heroin and crack cocaine packaged in individual wraps or ‘county’ amounts) are strong indicators of exploitation as a runner.
Hotel and AirBnB use	Line holders and runners may use budget accommodation in target towns rather than a residential address. Repeated short-stay bookings by young people, or accommodation paid for in cash, should be flagged to local intelligence.

Child Criminal Exploitation (CCE) — NRM, MSA & Safeguarding

Aspect	Guidance
NRM referral	The National Referral Mechanism (NRM) is the UK framework for identifying and supporting victims of modern slavery and human trafficking, including child criminal exploitation. Any child suspected of being exploited through county lines should receive an NRM referral. Officers are first responders and can make NRM referrals. Referrals go to the Single Competent Authority (SCA).
s.45 Modern Slavery Act 2015 defence	Section 45 provides a statutory defence for victims of slavery or trafficking who commit certain offences as a consequence of their exploitation. The adult limb (s.45(1)) requires compulsion attributable to slavery or trafficking with no realistic alternative; the child limb (s.45(4)) requires only that the offence was a direct consequence of the exploitation. s.45(7) excludes certain serious offences listed at Schedule 4. A child (or adult) found with drugs as a county lines runner may have a s.45 defence — officers and prosecutors must consider this before charging.
School absenteeism	Persistent unexplained school absence — particularly in combination with other indicators — is a key safeguarding flag. County lines runners are often absent from school for days at a time while travelling to supply drugs. Schools are expected to notify children's services of safeguarding concerns. Officers should check school attendance records during investigations.
Gang affiliation indicators	County lines victims may show signs of gang affiliation: specific clothing, tattoos (including brandings which may indicate branding/trafficking), use of gang-related language or social media content, associations with known gang members. Document carefully — this is intelligence, not evidence of guilt.

Cuckooing

Cuckooing involves drug networks taking over the home of a vulnerable person — typically someone who uses drugs, has mental health difficulties, or is socially isolated — to use as a base for drug supply. The occupant is coerced, exploited, or threatened into allowing this.

Cuckooing — Pattern and Response

Aspect	Detail
How it develops	Initially the occupant may be offered drugs or money in exchange for allowing people to stay. Over time the situation deteriorates — the occupant loses control of their own home, suffers violence or threats, and may be excluded from their own bedroom. The property becomes a trap house used by visiting runners and local dealers.
Indicators at the address	New and unfamiliar visitors; different vehicles parked outside at unusual hours; curtains always closed; unusual smells; discarded drug paraphernalia; evidence of multiple people sleeping there; the occupant appearing frightened, controlled, or visibly different from before.
Safeguarding response	The vulnerable occupant is a victim. Officers attending a cuckooed address must separate the occupant from any exploiters, speak to them alone, and conduct a safe and well check that includes welfare enquiries. Consider safeguarding referrals to adult social care, and immediate NRM referral if indicators of trafficking or coercion exist.

Cuckooing — Closure Notices & Orders (Anti-Social Behaviour, Crime and Policing Act 2014)

A graduated three-stage scheme — the ranks and forum are not interchangeable.

Power	Who can use it / effect
Closure notice — s.76	May be issued by a police officer of at least the rank of inspector, prohibiting access to the premises for up to 24 hours.
Extension of closure notice — s.77	Extends the notice to a maximum of 48 hours from the time it was issued. Requires authorisation by an officer of at least superintendent rank.
Closure order — s.80	Made only by a magistrates' court on application, not by police. Provides lawful authority for the vulnerable occupant to re-enter their own home while excluding those responsible for the nuisance or disorder.

Key Legislation

Legislation	Key provisions
Misuse of Drugs Act 1971, s.4	Restriction of production and supply of controlled drugs; s.4(3) covers supplying, offering to supply, or being concerned in the supply of a controlled drug. Applies to all levels of the county lines hierarchy, from the line holder to the runner.
Misuse of Drugs Act 1971, s.5(3)	Possession of a controlled drug with intent to supply (PWITS) — the offence most commonly charged against runners found carrying drugs.
Misuse of Drugs Act 1971, s.23	Powers to search and obtain evidence; s.23(3) allows a Justice of the Peace to issue a warrant to search premises, including a cuckooed address, for controlled drugs.
Modern Slavery Act 2015, s.1	Slavery, servitude and forced or compulsory labour.
Modern Slavery Act 2015, s.2	Human trafficking. County lines operators trafficking children to supply drugs commit offences under this section.
Modern Slavery Act 2015, s.45	Statutory defence for victims of slavery or trafficking who commit certain offences as a result of their exploitation — the adult limb (s.45(1)) and the child limb (s.45(4)). Certain serious offences at Schedule 4 are excluded (s.45(7)). Must be considered before charging a county lines runner.
Serious Crime Act 2007, s.1	Serious Crime Prevention Orders, made by the High Court, or by the Crown Court on conviction — can restrict a line holder's or senior figure's communications, associations, and travel.
Serious Crime Act 2007, s.25	Offence of failing to comply with a Serious Crime Prevention Order — maximum 5 years on indictment.
Offensive Weapons Act 2019, ss.14–33	Introduced Knife Crime Prevention Orders (breach is an offence under s.29). Piloted in the Metropolitan Police district only, from 5 July 2021 (SI 2021/762) — check current commencement and geographic scope before relying on availability.
Proceeds of Crime Act 2002, s.294	Power to seize cash reasonably suspected to be recoverable property or intended for use in unlawful conduct — applies to cash found on runners.
Proceeds of Crime Act 2002, s.303Z1	Account Freezing Orders (inserted by the Criminal Finances Act 2017) — used to freeze bank accounts suspected of holding the proceeds of county lines drug supply.

Multi-Agency Response — MACE, VRUs & Exploitation Hubs

Mechanism	Role
MACE meetings	Multi-Agency County Lines and Exploitation meetings bring together police, social services, education, health, and voluntary sector partners to share intelligence, identify victims, and coordinate disruption activity. Regular MACE meetings enable early identification of patterns and at-risk individuals.
Exploitation Hubs	Specialist multi-agency teams co-located in some forces and regions to coordinate county lines and wider exploitation investigations. These hubs combine police investigators with safeguarding specialists, social workers, and NRM coordinators.
Violence Reduction Units (VRUs)	VRUs adopt a public health approach to serious violence, treating it as preventable rather than inevitable. They commission early intervention programmes targeting young people at risk of county lines recruitment, supporting schools, families, and communities.
Social services	Children's services must be notified of every child identified as a potential county lines victim. Joint working is essential for NRM referrals, section 47 child protection enquiries, and securing safe accommodation for victims who cannot return to their home environment.

Intelligence Gathering & Disruption Tactics

Intelligence gathering and disruption are as important as prosecution.

Tactic	Detail
Phone evidence	The county lines phone is the most valuable piece of evidence. It contains customer lists, supplier contacts, transaction records, and location data. Officers should seize and download phones under PACE 1984 s.19. Do not allow suspects to access or factory reset devices. Specialist DFU (Digital Forensics) download is priority.
County lines phone database	A national intelligence database of known county lines phone numbers operated by the National County Lines Coordination Centre (NCLCC). Checks against this database can identify whether a seized phone number is a known line — enabling cross-force intelligence sharing.
ANPR and CCTV	Automatic Number Plate Recognition data can track vehicles used by runners between supply areas and home bases. CCTV from train stations (runners typically travel by rail) and bus stations can identify individuals and routes. Body-worn footage of encounters with potential runners should be preserved.
Warrant execution	Warrants under MDA 1971 s.23 enable search of premises for drugs and related evidence. Warrants targeting cuckooed addresses must be planned carefully — the vulnerable occupant is a victim and should be safeguarded during the search.
NRM referrals as disruption	Every NRM referral removes a potential victim from exploitation and generates intelligence. Referrals create a record that can corroborate trafficking and exploitation offences against line holders. The cumulative effect of multiple referrals can support conspiracy to traffic charges.
Social media monitoring	Line holders and runners frequently use Instagram, Snapchat, and encrypted apps (Telegram, Signal, WhatsApp) to manage operations and recruit. Officers with social media intelligence (SOCMINT) training can monitor open-source content for county lines indicators. Covert access requires lawful authority.

Frequently asked

What is a county lines operation?: A criminal network, typically based in a major city, establishing a drug supply route into a smaller town or rural area using a dedicated phone line — the ‘line’. A line holder controls the phone remotely; runners, often exploited children or vulnerable adults, carry the drugs and cash and take most of the criminal risk.
What should an officer do if a child is found carrying drugs for a county lines operation?: Treat the child as a potential victim of exploitation, not primarily an offender. Make or trigger a National Referral Mechanism (NRM) referral, and before charging, consider whether the child has a defence under s.45 Modern Slavery Act 2015 (the child limb, s.45(4), requires only that the offence was a direct consequence of the exploitation).
What powers can close a cuckooed address?: A graduated scheme under the Anti-Social Behaviour, Crime and Policing Act 2014: an officer of at least inspector rank can issue a closure notice for up to 24 hours (s.76); an officer of at least superintendent rank can extend it to a maximum of 48 hours (s.77); only a magistrates' court can make a closure order (s.80) — police cannot make the order themselves.