Written by: Ruth Owen, PNLD Legal Adviser
Not reviewed after the date of publication - 25 October 2025
The Crime and Policing Bill 2024–25 introduces significant legislative reform across policing and criminal justice. The Bill has a very broad scope (in its current state containing 203 clauses and 21 schedules). PNLD Legal Adviser Ruth Owen provides a summary of some of the interesting changes and offences introduced under the Bill, relevant to a policing context. As the Bill is currently still in draft, it should be noted that the provisions discussed in this article may change, in content or placement, as the Bill moves through the House of Lords.
The Bill is expected to receive Royal Assent in Autumn 2025 however; it is anticipated that the provisions discussed below will be subject to staggered commencement.
Offences and associated powers relating to technology
Electronic devices for use in vehicle offences (“signal jammers”) (clauses 110 and 111)
The Bill introduces new either way offences of possessing, importing, manufacturing, adapting, supplying or offering to supply electronic devices for use in relevant vehicle offences namely, offences under section 1 of the Theft Act 1968 (relating to theft of a conveyance or, anything within a conveyance) or section 12 (taking vehicle or other conveyance without authority), intended to prevent keyless car thefts.
Electronic devices are not defined but supporting literature suggests this will cover signal jammers and other electronic tools that may be used to facilitate the associated theft offences. Such devices must be possessed, imported, manufactured, adapted, supplied or, offered to supply in circumstances giving rise to a reasonable suspicion that the device will be used in connection with offences under sections 1 and 12 of the Theft Act 1968. In our opinion, this may be evidenced by the location a device was found, by way of example.
Possession and supply of a SIM farm (clauses 112, 113 and 114 and Schedule 11)
SIM farms are electronic devices used to hold multiple SIM cards that may be used to send out a large amount of scam texts and calls for the purpose of theft or fraud related offences. Clause 114 provides the legal definition of a SIM farm as “a device capable of using five or more SIM cards simultaneously or interchangeably, for the purpose of making telephone calls to persons at telephone numbers allocated in accordance with national or international numbering plans, or sending messages to, or receiving messages from, such telephone numbers”.
The Bill creates two new summary offences, intended to disrupt such offending:
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Clause 112 - possession of a SIM farm.
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Clause 113 – supply of a SIM farm to another person.
Associated defences will be created. For example, in relation to possession where a person has good reason or lawful authority and relating to supply, where in the course of business or there is good reason or lawful authority for possession prior to supply.
A new stop and search power will be afforded to officers (police officers, designated staff and certain NCA officers) relating to the possession or supply of SIM farms, available where there are reasonable grounds to suspect a non-dwelling vehicle contains evidence relating to the two offences above and can be used whether or not a driver is in attendance or, a vehicle is abandoned.
New warranted powers are to be introduced relating to search of premises for evidence relating to the same two offences. Such warrants will apply to commercial and residential premises. Where a warrant is executed and a person fails to comply with a reasonable requirement or direction made by a constable executing that, an offence will be committed.
Associated powers of examination, production and power to use force are also afforded. Linked summary offences of possession and supply of specified electronic articles are also created, in conjunction to clauses 112 and 113. Specified articles are to be defined by separate regulations.
Suspension of Internet Protocol addresses and internet domain names (Schedule 13)
New orders, referred to as “IP address suspension orders” and “domain name suspension orders” will be available upon application of an appropriate officer (police constables, HMRC, the NCA and FCA) to the court, preventing access to providers or registries of IP’s or domains for a maximum of 12 months, where linked to serious crime.
Serious crime means an offence where an individual with no previous convictions could expect to receive a sentence of more than 3 years or the conduct involves the use of violence, results in substantial financial gain or is conduct by a large number of persons in pursuit of a common purpose.
A judge will only grant either order upon four conditions being satisfied:
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An IP address is being used for the purposes of serious crime;
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A UK person is using the IP address for the purposes of serious crime, a UK person is a victim of the serious crime for the purposes of which the IP address is being used, the IP address is being used for the purposes of serious crime connected with unlicensed gambling, or the IP address is allocated to a device located in the United Kingdom;
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It is necessary and proportionate to prevent access to the IP address to prevent it being used for the purposes of serious crime;
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Access to the IP address will not be prevented unless an IP address suspension order is made, or if access to the IP address is prevented otherwise than in accordance with an IP address suspension order, there will be serious prejudice to the prevention, restriction or disruption of the serious crime for the purposes of which the IP address is being used.
Such orders are designed to build on mechanisms in the Online Safety Act 2023 and offer an alternative route to voluntary arrangements, intended to assist in suspensions relating to organisations outside the UK.
New offences and associated powers relating to public order and violent offending
Protest related offences (clauses 118, 121 and 122)
New protest related offences are created, building on changes made under the Police, Crime, Sentencing and Courts Act 2022 and Public Order Act 2023 and intended to assist officers in dealing with developments in protest tactics:
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Clause 118 – introduces a summary offence of concealing identity (either that of the defendant or another person) at protests. Whilst ‘concealing identity’ is not defined, commentary suggests a broad definition is likely to be adopted, intended to include face coverings, masks and other items with the offence applying to “wearing or otherwise using”. The offence may only be committed in relation to protests within designated localities; the procedure also provided under the Bill in clauses 119 to 120.
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Clause 121 - introduces a summary offence where pyrotechnic articles are possessed at any time of taking part in a public procession, public assembly or one-person protest. Pyrotechnic articles are defined as “an article that contains explosive substances, or an explosive mixture of substances, designed to produce heat, light, sound, gas or smoke, or a combination of such effects, through self-sustained exothermic chemical reactions, other than a match, or an article specified, or of a description specified, in regulations made by the Secretary of State”. This mirrors the existing definition in section 134 of the Policing and Crime Act 2017. Currently though, it’s only an offence to possess such items at certain musical or sporting events and this offence is intended to fill that gap.
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Clause 122 - climbing on memorials – a new summary offence is created, committed where persons climb on specified war memorials. There will be defences available including of good reason, consent of the owner or, lawful authority available.
Weapons
Possession of weapon with intent to use unlawful violence etc (clause 27) and increase in maximum penalty for certain weapons offences (clause 28)
The Bill creates a new either way offence (inserted into the Criminal Justice Act 1988) of possessing a relevant weapon with the intent to use unlawful violence against another person, cause another person to believe unlawful violence will be used against them or another person, cause serious damage to property or, to enable a person to do any of those acts.
A relevant weapon is defined as an article to which section 139 of the 1988 Act applies (an article which has a blade or is sharply pointed) or an offensive weapon to which section 1 of the Prevention of Crime Act 1953 applies (any article made or adapted for use for causing injury to the person, or intended by the person having it with them for such use by them or by some other person).
This new offence forms part of the broader strategy to reduce knife crime and violent offending and may be used before any violence has occurred.
The maximum penalties for existing weapons offences are also to be increased under the Bill. Specifically, in relation to manufacturing, selling, hiring or lending etc of offensive weapons, contrary to section 141(1) Criminal Justice Act 1988 or, certain dangerous weapons, such as flick or gravity knives, contrary to section 1(1) of the Restriction of Offensive Weapons Act 1959. The penalties are increased to a maximum of two years imprisonment on indictment. The offences will be triable either way. Currently the offences are summary only which doesn’t reflect the seriousness of offending and also, causes prosecutorial difficulties relating to the time limit.
Power to seize bladed articles etc (clause 29)
Constables are provided with a new power of seizure where they find on premises, a relevant article that has a blade or is sharply pointed and, has reasonable grounds for suspecting that the article would be used in connection with unlawful violence.
Retail crime
Assault of retail worker and associated matters (clauses 37 and 38)
A new standalone summary offence of assaulting a retail worker is created by the Bill with associated powers to impose new criminal behaviour orders being available thereby preventing offenders from undertaking certain activities. As an example, entering certain areas or shops. The orders will be inserted into the Sentencing Act 2020 and available on conviction for the offence in clause 37 or, upon application.
A “retail worker” is defined as a person working on or about retail premises and working there for or on behalf of the owner or occupier of those premises or is the owner or occupier of those premises. Worker will also include unpaid work.
Retail premises means premises used wholly or mainly for the purposes of the sale of anything by retail, or premises used mainly for the purposes of the wholesale of anything, if the premises are also used for the purposes of the sale of anything by retail. Clarity is provided that premises include a stall or vehicle.
Theft from shop triable either way irrespective of value of goods (clause 39)
Currently, low level shoplifting can be tried in the Magistrates Court (unless a suspect opts to be tried in the Crown court).
The courts appear to have adopted the approach that low-value shoplifting offences are not subject to the six-month time limit for starting a prosecution for summary-only offences under section 127 of the Magistrates' Courts Act 1980, with shoplifting remaining triable either way until a determination is made by the magistrates’ court at a defendant’s first appearance. Until then, the offence of theft is, like all other offences of theft, an indictable offence, in that it is triable either way.
Section 22A of the Magistrates Court Act 190 relating to ‘low-value shoplifting’ and covering the theft of goods valued at less than £200 will be repealed entirely under the Bill, meaning that all forms of shoplifting, value irrespective, will be dealt with as an either way offence theft under section 1 of the Theft Act 1968 with no confusion as to the prosecuting time limit (none applying).
Other miscellaneous offences
Controlling another’s home for criminal purposes (“cuckooing”) (clauses 56, 57 and Schedule 6)
Clause 56 of the Bill creates an either way offence covering offending referred to as “cuckooing” and will be committed by (A) where they exercise control over the dwelling of another person (B), doing so for the purpose of enabling the dwelling to be used in connection with the commission (by any person) of one or more relevant offences, and (B) does not consent to A exercising that control for that purpose.
Where the dwelling is in England or Wales, “relevant offences” are those listed in Part 1 of Schedule 6, including drugs and weapons offences. We would advise referring to the Bill for the full list, being too large to reproduce here.
Clause 57 defines key terms relevant to the offence such as “dwelling”, referring to any structure or part of a structure occupied by the person as their home or other living accommodation (whether the occupation is separate or shared with others), together with any yard, garden, grounds, garage or outhouse belonging to it or used with it.
Person (A) will be taken to exercise control over (B’s) dwelling where they exercise (temporary or permanent) control over who is able to enter, leave, occupy and use the dwelling. Additionally, by persons who take delivery of things or allow for collection (amongst other examples).
Causing internal concealment of item for criminal purpose (clause 59)
Clause 59 creates two new offences relating to the concealment of items. The first offence relates to child victims and the second, to adult victims.
The offences will criminalise persons (“A”) who cause another person to conceal a specified item (such as drugs, sim cards, mobile telephones, money or weapons) inside that person’s body where A knows, reasonably suspects or intends the item to be used in connection with criminal conduct.
Where the victim is an adult, the offence will require that the concealment results from compulsion, coercion, deception or controlling or manipulative behaviour by the perpetrator.
It’s irrelevant how the item gets inside the victims’ body, the fact to prove will be that (A) or another person caused that.
“Criminal conduct” for the purpose of the offence is interpreted broadly as a criminal offence or anything done outside England and Wales that would constitute a criminal offence if done in England or Wales.
Administering etc harmful substances (including by spiking) (clause 101)
Clause 101 repeals existing offences in sections 22 and 23 of the Offences Against the Person 1861 that criminalise the use of chloroform and malicious administration of poison, replacing them with a generalised offence covering the administering of harmful substances (poison or other destructive or noxious thing) including by spiking. The new offence will replace that currently in section 24, thereby remaining an offence under the 1861 Act.
Child Sexual Abuse
Child sexual abuse image-generators (clause 63)
A new offence is inserted into the Sexual Offences Act 2003 where a person makes, adapts, possesses, supplies or offers to supply a CSA image-generator.
The offence is intended to address the use of AI models designed to generate child sexual abuse material, including images that may depict real children, closing a gap in the law that made it difficult for officers to deal with such acts until the point that images were generated or distributed.
A reference to making a CSA image-generator also includes adapting anything that is not a CSA image-generator in such a way that it becomes a CSA image-generator.
A “CSA image” is defined as an indecent photograph pseudo-photograph of a child, within the meaning in section 7 of Protection of Children Act 1978, or a prohibited image of a child, within the meaning in section 62 of the Coroners and Justice Act 2009.
To reflect the serious nature of such offending, the new offence is either way with a maximum penalty of five years imprisonment and / or a fine on indictment. Defences are available to officers in the context of preventing or detecting crime and to other professions such as in relation to academic or scientific research. Available defences will be construed narrowly and the burden will be on the defendant to raise and prove any defence.
Possession of advice or guidance about creating CSA images (clause 64)
Section 69 of the Serious Crime Act 2015 already provides an offence of possessing any item containing advice or guidance about abusing children sexually (possessing a paedophile manual).
The Bill further builds on this by creating a new offence under the Act relating to the possession of advice or guidance regarding the creation of CSA images. The offence is introduced for similar reasons to that discussed and to ensure the law is future proofed regarding the use of AI to create CSA images and, associated concerns regarding sharing of how to do so with other persons. Of note though, the offence will apply to both real and AI generated CSA images.
Conclusion
As can be seen, the Bill will substantially alter the current criminal law in many ways. Due to the size of the Bill and number of changes made by it, it’s not possible to cover all matters of relevance to PNLD customers. For example, many other notable changes are introduced including, introduction of dangerous cycling offences, use of electronic devices in vehicles related offences and, new threatening, abusive or insulting behaviour offences committed towards emergency workers.
Further investigative powers such as warrants relating to electronically tracked stolen goods, additional powers to extract online information on electronic devices, new powers to intercept information relating to online accounts and, amendments to sampling and related detention powers under PACE and, new orders relating to anti-social behaviour are also made under the Bill.
Most of the Bill will be relevant and of interest to PNLD and its customers. As the changes and offences are brought into force, relevant summaries will be added to the PNLD front page. The progress of the Bill can be monitored via: Crime and Policing Bill - Parliamentary Bills - UK Parliament
The following factsheets may also be of interest: Crime and Policing Bill 2025: factsheets - GOV.UK
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