Modern Slavery: Fixing the Gaps in Victim Support

Dealing with suspected victims of modern slavery presents significant challenges for local authority staff and other first responder professionals, particularly in navigating the National Referral Mechanism (NRM). The complexity of this system, alongside the vulnerabilities of potential victims, can make the process daunting and, at times, inadequate in meeting the needs of those it aims to protect.

One of the key issues is the hesitancy of potential victims to engage with the NRM. Many individuals mistrust authorities due to prior negative experiences or fear repercussions, especially if they have precarious immigration statuses. Others may not see themselves as victims or might perceive the support as insufficient to address their long-term needs. For frontline workers, this creates a dilemma: balancing the ethical duty to report with respect for a victim's autonomy and consent. Additionally, the short-term nature of the support provided, typically 45 days, often leaves victims vulnerable to re-exploitation or homelessness once the support ends. This period is rarely enough to achieve meaningful recovery or integration into the community.

Local authority staff also grapple with administrative and procedural barriers. The NRM's decision-making process is often delayed, leaving victims in limbo. The high threshold for proving victimhood can result in negative decisions that may not accurately reflect a person's exploitation. Moreover, there is a disconnect between the immediate support offered and the need for longer-term services such as housing, legal aid and employment pathways, which are crucial for sustained recovery.

To address these challenges, several steps could enhance the system's effectiveness and improve outcomes for victims. First, expanding training for local authority staff on trauma-informed approaches can build trust and better meet the needs of victims. Training should also encompass navigating cultural and linguistic barriers to ensure inclusivity. Second, the NRM's support framework should be extended to include longer-term care and tailored recovery plans. This could involve partnerships between local authorities and NGOs to create sustainable pathways for victims, such as housing schemes or employment opportunities.

In the UK, support for victims identified through the NRM is delivered under the Victim Care Contract (VCC). The Salvation Army is the prime contractor, coordinating services through a network of subcontractors that include NGOs and specialist organisations. These services encompass accommodation, counselling, healthcare access, legal support and material assistance, tailored to the specific needs of victims. However, support provision only begins once a "reasonable grounds" decision is made, declaring that the individual is likely to be a victim of modern slavery.

Delays in the commencement of support often arise due to the NRM’s procedural backlog, which leaves potential victims in a state of uncertainty. While a reasonable grounds decision is legally expected within five working days, in practice, these decisions can take weeks or even months to process​.

Such delays have significant consequences. Victims may face homelessness, continued vulnerability to exploitation, or mental health deterioration while waiting for support. Furthermore, local authority staff often struggle to provide interim assistance due to limited resources, creating a gap in care during this critical period​.

The delays exacerbate mistrust among victims, particularly those with precarious immigration statuses, as they may fear deportation during this time. The challenges underscore the urgent need for streamlining the NRM's processes, ensuring that victims receive immediate and uninterrupted support. Strengthening interim measures, such as emergency housing and outreach services provided by local authorities or NGOs, could help mitigate these challenges and improve outcomes for vulnerable individuals​.

A potential solution to address delays in support provision during the NRM process involves implementing a system of immediate, needs-based interim support. This could include a legal mandate requiring local authorities or partner organisations to provide short-term emergency assistance to individuals awaiting a reasonable grounds decision.

Key elements of this solution would involve:

1. Pre-Decision Support - Creating a statutory provision for emergency support (such as accommodation and access to basic services) for individuals identified as potential victims during the pre-NRM stage. This would ensure victims are not left in precarious situations, such as homelessness or further exploitation, while waiting for formal decisions​.

2. Expedited Decision-Making - Streamlining NRM decision-making processes through additional staffing, technological improvements, or decentralised decision-making models. Faster resolutions could reduce delays significantly.

3. Partnership Models - Expanding partnerships between local authorities and specialist NGOs to bridge gaps in the NRM. Pilots like the Birmingham Pathways project, which used community navigators to provide tailored support, have shown promise in delivering early assistance and linking victims to long-term resources​.

4. Ring-Fenced Funding - Allocating specific funding to local authorities and subcontractors for pre-decision care. This would remove the financial strain currently faced by providers and ensure consistent delivery of essential services.

Separately, improving communication between the various agencies involved in the NRM is critical. Collaborative governance structures, like the local authority pathway pilots that facilitated smoother transitions from NRM support, can serve as models for wider implementation. These pilots highlighted the benefits of assigning community navigators who provide victims with a single point of contact, helping them access the necessary services.

Lastly, there needs to be a shift in the overall system towards a victim-centred approach. Policymakers should prioritise reducing delays in the referral and decision-making processes while ensuring that immigration status does not dictate access to support. By focusing on the needs and rights of the victims, the NRM can become a more effective tool for combating modern slavery and fostering recovery.

Ultimately, local authority staff play a pivotal role in identifying and supporting victims, but they require adequate resources, clear policies and strong inter-agency collaboration to succeed. Strengthening these aspects will better equip them to fulfil their responsibilities and improve outcomes for those affected by modern slavery.