The National Referral Mechanism (NRM) is the UK’s system for identifying and providing access to support for potential victims of modern slavery/human trafficking.

The Home Office publishes quarterly statistics regarding the National Referral Mechanism (NRM) which can be found at on gov.uk.

The 2021 UK Annual Report on Modern Slavery has recently been published and can also be found on gov.uk, as well as statistics on immigration outcomes including figures for grants of discretionary leave.

Statistics on the immigration status and immigration outcomes for victims of modern slavery/human trafficking are not currently published.

Within the Nationality and Borders Bill, we are proposing modern slavery measures to deliver a decision-making process and support system that is fair and provides support for those who genuinely need it.

We recognise that some victims of modern slavery may have had periods of high vulnerability and can have multiple, complex needs, with some individuals experiencing multiple forms of exploitation at different points in time. The proposed measures within the Bill therefore rightly allow for protection and support for individuals subject to repeated exploitation, including child victims whilst seeking to ensure that further support is only provided where needed.

We remain committed to tackling exploitation in all its forms. The Modern Slavery Act 2015 gives law enforcement agencies the tools to tackle modern slavery, including a maximum life sentence for perpetrators and enhanced protection for victims. Where children are found to be potential victims of human trafficking or modern slavery their safety and welfare are addressed as a priority. Local authorities are responsible for safeguarding and promoting the welfare of all children in their area, including child victims of modern slavery. In addition to this statutory support, the Government has rolled out Independent Child Trafficking Guardians (ICTGs), an additional source of advice and support for all potentially trafficked children, in two thirds of all local authorities in England and Wales.

We will seek to put into legislation for the first time the commitment that all confirmed victims, including children, without immigration status will be considered for a grant of temporary leave to remain in line with specific criteria.

This will bring clarity to decision makers and victims on the process for temporary leave to remain. We will continue to comply with our duties under Section 55 of the Borders, Citizenship, and Immigration Act 2009 to safeguard and promote the welfare of children.

The Government is committed to tackling modern slavery including cases involving child trafficking and sexual exploitation. The Modern Slavery Act 2015, gives law enforcement agencies the tools to tackle modern slavery, including maximum life sentences for perpetrators and enhanced protection for victims. In July 2018, the Government commissioned an Independent Review of the Modern Slavery Act 2015 to identify what can be improved in the implementation of the Act. The Government’s response to this review can be found here:

https://www.gov.uk/government/publications/government-response-to-the-independent-review-of-the-modern-slavery-act

We are committed to strengthening the law enforcement response to modern slavery and in 2020/21 we allocated over £2 million funding to the police to support the Modern Slavery and Organised Immigration Crime programme. During the pandemic we have also worked closely with law enforcement to monitor any changes in the threat of modern slavery including cases involving trafficked children and sexual exploitation.

The Home Office continues to work with First Responders to ensure they understand the indicators of different exploitation types and can refer potential victims into appropriate support. In July 2020, we released an E-Learning module available to all First Responders to improve their understanding of their responsibilities and the support available.

With this greater awareness and improved understanding of modern slavery, more potential victims are being identified and protected. The latest statistics can be found at https://www.gov.uk/government/collections/national-referral-mechanism-statistics. The Home Office is currently addressing an earlier identified error that occurred in the data processing for the Q1-Q3 of 2020 statistics where some sexual exploitation referrals were miscategorised as ‘Not recorded or unknown’. Once this error is rectified, the number of sexual exploitation referrals will be higher than in the current statistical bulletins and the number of ‘not recorded or unknown’ referrals will be lower. The updated data will be released alongside the Quarter 4 (October to December 2020) statistics which are being prepared and will be released on 18 March 2021.

The Government continues to focus on improving identification and support for potential victims by embarking on an ambitious National Referral Mechanism Transformation Programme to build on our world leading efforts to identify vulnerable victims and provide the support that they need to rebuild their lives. This will ensure that victims are safeguarded and supported based on their individual recovery need, with a focus on supporting the most vulnerable and making good use of existing access to mainstream services. As part of this programme, we are progressing the roll out of the Independent Child Trafficking Guardians service.

The Government is committed to tackling the drivers that can lead individuals to become potential victims of trafficking. Local authorities are responsible for the safeguarding and promotion of welfare of all children in their area, co-operating closely with police and other statutory agencies to offer child victims required protection and support. In 2020-21, local government received an additional £1 billion grant for adult and children’s social care. This is on top of the continuation of the £410 million social care grant. In addition, we are investing £84 million in targeted, evidence-based interventions to improve the support provided to vulnerable children and their families and enable more children to stay at home thriving in stable family environments. The Government is also strongly committed to supporting victims of sexual exploitation and continues to provide investment in this area, including by allocating £76 million to support victims of modern slavery, sexual violence, and domestic abuse during the COVID-19 pandemic. The Home Office has committed to create a new Tackling Violence Against Women and Girls Strategy this year and ran a nationwide Call for Evidence from 10 December to 19 February to gather the views from a wide range of stakeholders to inform this strategy. The strategy will also consider wider work, including on modern slavery and sexual exploitation.

The Government is committed to tackling modern slavery including cases involving child trafficking and sexual exploitation. The Modern Slavery Act 2015, gives law enforcement agencies the tools to tackle modern slavery, including maximum life sentences for perpetrators and enhanced protection for victims. In July 2018, the Government commissioned an Independent Review of the Modern Slavery Act 2015 to identify what can be improved in the implementation of the Act. The Government’s response to this review can be found here:

https://www.gov.uk/government/publications/government-response-to-the-independent-review-of-the-modern-slavery-act

We are committed to strengthening the law enforcement response to modern slavery and in 2020/21 we allocated over £2 million funding to the police to support the Modern Slavery and Organised Immigration Crime programme. During the pandemic we have also worked closely with law enforcement to monitor any changes in the threat of modern slavery including cases involving trafficked children and sexual exploitation.

The Home Office continues to work with First Responders to ensure they understand the indicators of different exploitation types and can refer potential victims into appropriate support. In July 2020, we released an E-Learning module available to all First Responders to improve their understanding of their responsibilities and the support available.

With this greater awareness and improved understanding of modern slavery, more potential victims are being identified and protected. The latest statistics can be found at https://www.gov.uk/government/collections/national-referral-mechanism-statistics. The Home Office is currently addressing an earlier identified error that occurred in the data processing for the Q1-Q3 of 2020 statistics where some sexual exploitation referrals were miscategorised as ‘Not recorded or unknown’. Once this error is rectified, the number of sexual exploitation referrals will be higher than in the current statistical bulletins and the number of ‘not recorded or unknown’ referrals will be lower. The updated data will be released alongside the Quarter 4 (October to December 2020) statistics which are being prepared and will be released on 18 March 2021.

The Government continues to focus on improving identification and support for potential victims by embarking on an ambitious National Referral Mechanism Transformation Programme to build on our world leading efforts to identify vulnerable victims and provide the support that they need to rebuild their lives. This will ensure that victims are safeguarded and supported based on their individual recovery need, with a focus on supporting the most vulnerable and making good use of existing access to mainstream services. As part of this programme, we are progressing the roll out of the Independent Child Trafficking Guardians service.

The Government is committed to tackling the drivers that can lead individuals to become potential victims of trafficking. Local authorities are responsible for the safeguarding and promotion of welfare of all children in their area, co-operating closely with police and other statutory agencies to offer child victims required protection and support. In 2020-21, local government received an additional £1 billion grant for adult and children’s social care. This is on top of the continuation of the £410 million social care grant. In addition, we are investing £84 million in targeted, evidence-based interventions to improve the support provided to vulnerable children and their families and enable more children to stay at home thriving in stable family environments. The Government is also strongly committed to supporting victims of sexual exploitation and continues to provide investment in this area, including by allocating £76 million to support victims of modern slavery, sexual violence, and domestic abuse during the COVID-19 pandemic. The Home Office has committed to create a new Tackling Violence Against Women and Girls Strategy this year and ran a nationwide Call for Evidence from 10 December to 19 February to gather the views from a wide range of stakeholders to inform this strategy. The strategy will also consider wider work, including on modern slavery and sexual exploitation.

This Government is committed to tackling the heinous crime of modern slavery and ensuring that all victims, including children, are provided with the support they need.

The Home Office continues to work with a range of partners to identify and deliver effective prevention activity. This includes awareness raising initiatives such as the Government’s ‘Hidden in Plain Sight’ campaign and the #SlaveryonYourDoorstep campaign led by CrimeStoppers. We also have a dedicated GOV.UK resources page that provides up-to-date information on how to spot the signs of modern slavery and report concerns.

Where children are found to be potential victims of human trafficking or modern slavery their safety and welfare are addressed as a priority. Local authorities are responsible for safeguarding and promoting the welfare of all children in their area, including child victims of modern slavery. Local children's services will work in close co-operation with the police and other statutory agencies to offer potentially trafficked children the protection and support they require.

With regard to the types of exploitation experienced by child trafficking victims in the UK and any change in the types of exploitation being identified over the past 10 years, the Home Office publishes statistics on National Referral Mechanism (NRM) referrals on a quarterly basis. The NRM statistics for 2012 to 2016 can be found here: https://webarchive.nationalarchives.gov.uk/20170404150655/http://www.nationalcrimeagency.gov.uk/publications/national-referral-mechanism-statistics.

The NRM statistics for 2017 to 2018 can be found here: https://nationalcrimeagency.gov.uk/who-we-are/publications?search=&category%5B%5D=3&=%2Fwho-we-are%2Fpublications%3Flimit%3D15%26sort%3Dtitle%26direction%3Dasc&limit=100&tag=

The 2019 report and Q1-Q3 of 2020 can be found here: https://www.gov.uk/government/collections/national-referral-mechanism-statistics

With regard to why some potential child trafficking victims are recorded as having experienced an unknown type of exploitation, the Home Office is currently addressing an earlier identified error that occurred in the data processing for the Q1-Q3 of 2020 statistics where some sexual exploitation referrals were miscategorised as ‘Not recorded or unknown’. Once this error is rectified, the number of sexual exploitation referrals will be higher than in the current statistical bulletins and the number of ‘not recorded or unknown’ referrals will be lower. The updated data will be released alongside the Quarter 4 (October to December 2020) statistics which are being prepared and will be released on 18 March 2021.

At the Reasonable Grounds stage of the National Referral Mechanism, the standard of proof is ‘suspects but cannot prove’. In Q2 and Q3 of 2020, 96% of Reasonable Grounds decisions made on child cases were positive.

Prior to the NRM digital case working system going live in January 2020, data collection on NRM cases included an ‘unknown’ exploitation category for any unknown case exploitation types. Since the new system has been introduced, there is now an ‘other exploitation’ free-text box that First Responders can fill in on the referral form to explain why they are unable to identify the exploitation type. The information contained within this box is considered by a Decision Maker when making the Reasonable Grounds decision. However, for data reporting purposes, this is classified as ‘unknown’.

Reasonable Grounds decisions are made based on the account of exploitation submitted in the form and not specifically on the exploitation type data, which is recorded to enable data analysis rather than to specifically support decision-making.

The Home Office continues to work with First Responders to ensure they understand the indicators of different exploitation types and, in July 2020, we released a new First Responder e-learning module which includes support on this issue.

This Government is committed to tackling the heinous crime of modern slavery and ensuring that all victims, including children, are provided with the support they need.

The Home Office continues to work with a range of partners to identify and deliver effective prevention activity. This includes awareness raising initiatives such as the Government’s ‘Hidden in Plain Sight’ campaign and the #SlaveryonYourDoorstep campaign led by CrimeStoppers. We also have a dedicated GOV.UK resources page that provides up-to-date information on how to spot the signs of modern slavery and report concerns.

Where children are found to be potential victims of human trafficking or modern slavery their safety and welfare are addressed as a priority. Local authorities are responsible for safeguarding and promoting the welfare of all children in their area, including child victims of modern slavery. Local children's services will work in close co-operation with the police and other statutory agencies to offer potentially trafficked children the protection and support they require.

With regard to the types of exploitation experienced by child trafficking victims in the UK and any change in the types of exploitation being identified over the past 10 years, the Home Office publishes statistics on National Referral Mechanism (NRM) referrals on a quarterly basis. The NRM statistics for 2012 to 2016 can be found here: https://webarchive.nationalarchives.gov.uk/20170404150655/http://www.nationalcrimeagency.gov.uk/publications/national-referral-mechanism-statistics.

The NRM statistics for 2017 to 2018 can be found here: https://nationalcrimeagency.gov.uk/who-we-are/publications?search=&category%5B%5D=3&=%2Fwho-we-are%2Fpublications%3Flimit%3D15%26sort%3Dtitle%26direction%3Dasc&limit=100&tag=

The 2019 report and Q1-Q3 of 2020 can be found here: https://www.gov.uk/government/collections/national-referral-mechanism-statistics

With regard to why some potential child trafficking victims are recorded as having experienced an unknown type of exploitation, the Home Office is currently addressing an earlier identified error that occurred in the data processing for the Q1-Q3 of 2020 statistics where some sexual exploitation referrals were miscategorised as ‘Not recorded or unknown’. Once this error is rectified, the number of sexual exploitation referrals will be higher than in the current statistical bulletins and the number of ‘not recorded or unknown’ referrals will be lower. The updated data will be released alongside the Quarter 4 (October to December 2020) statistics which are being prepared and will be released on 18 March 2021.

At the Reasonable Grounds stage of the National Referral Mechanism, the standard of proof is ‘suspects but cannot prove’. In Q2 and Q3 of 2020, 96% of Reasonable Grounds decisions made on child cases were positive.

Prior to the NRM digital case working system going live in January 2020, data collection on NRM cases included an ‘unknown’ exploitation category for any unknown case exploitation types. Since the new system has been introduced, there is now an ‘other exploitation’ free-text box that First Responders can fill in on the referral form to explain why they are unable to identify the exploitation type. The information contained within this box is considered by a Decision Maker when making the Reasonable Grounds decision. However, for data reporting purposes, this is classified as ‘unknown’.

Reasonable Grounds decisions are made based on the account of exploitation submitted in the form and not specifically on the exploitation type data, which is recorded to enable data analysis rather than to specifically support decision-making.

The Home Office continues to work with First Responders to ensure they understand the indicators of different exploitation types and, in July 2020, we released a new First Responder e-learning module which includes support on this issue.

This Government is committed to tackling the heinous crime of modern slavery and ensuring that all victims, including children, are provided with the support they need.

The Home Office continues to work with a range of partners to identify and deliver effective prevention activity. This includes awareness raising initiatives such as the Government’s ‘Hidden in Plain Sight’ campaign and the #SlaveryonYourDoorstep campaign led by CrimeStoppers. We also have a dedicated GOV.UK resources page that provides up-to-date information on how to spot the signs of modern slavery and report concerns.

Where children are found to be potential victims of human trafficking or modern slavery their safety and welfare are addressed as a priority. Local authorities are responsible for safeguarding and promoting the welfare of all children in their area, including child victims of modern slavery. Local children's services will work in close co-operation with the police and other statutory agencies to offer potentially trafficked children the protection and support they require.

With regard to the types of exploitation experienced by child trafficking victims in the UK and any change in the types of exploitation being identified over the past 10 years, the Home Office publishes statistics on National Referral Mechanism (NRM) referrals on a quarterly basis. The NRM statistics for 2012 to 2016 can be found here: https://webarchive.nationalarchives.gov.uk/20170404150655/http://www.nationalcrimeagency.gov.uk/publications/national-referral-mechanism-statistics.

The NRM statistics for 2017 to 2018 can be found here: https://nationalcrimeagency.gov.uk/who-we-are/publications?search=&category%5B%5D=3&=%2Fwho-we-are%2Fpublications%3Flimit%3D15%26sort%3Dtitle%26direction%3Dasc&limit=100&tag=

The 2019 report and Q1-Q3 of 2020 can be found here: https://www.gov.uk/government/collections/national-referral-mechanism-statistics

With regard to why some potential child trafficking victims are recorded as having experienced an unknown type of exploitation, the Home Office is currently addressing an earlier identified error that occurred in the data processing for the Q1-Q3 of 2020 statistics where some sexual exploitation referrals were miscategorised as ‘Not recorded or unknown’. Once this error is rectified, the number of sexual exploitation referrals will be higher than in the current statistical bulletins and the number of ‘not recorded or unknown’ referrals will be lower. The updated data will be released alongside the Quarter 4 (October to December 2020) statistics which are being prepared and will be released on 18 March 2021.

At the Reasonable Grounds stage of the National Referral Mechanism, the standard of proof is ‘suspects but cannot prove’. In Q2 and Q3 of 2020, 96% of Reasonable Grounds decisions made on child cases were positive.

Prior to the NRM digital case working system going live in January 2020, data collection on NRM cases included an ‘unknown’ exploitation category for any unknown case exploitation types. Since the new system has been introduced, there is now an ‘other exploitation’ free-text box that First Responders can fill in on the referral form to explain why they are unable to identify the exploitation type. The information contained within this box is considered by a Decision Maker when making the Reasonable Grounds decision. However, for data reporting purposes, this is classified as ‘unknown’.

Reasonable Grounds decisions are made based on the account of exploitation submitted in the form and not specifically on the exploitation type data, which is recorded to enable data analysis rather than to specifically support decision-making.

The Home Office continues to work with First Responders to ensure they understand the indicators of different exploitation types and, in July 2020, we released a new First Responder e-learning module which includes support on this issue.

This Government is determined to crack down on the county lines gangs who are exploiting our children and have a devastating impact on our communities.

That is why we are investing £25m to boost law enforcement efforts in England and Wales to tackle these ruthless gangs. Our overall package launched in October last year and includes: expanding the National County Lines Co-ordination Centre (NCLCC), increased disruption on the rail networks by the British Transport Police’s County Lines Taskforce, operational activity against high harm lines in the three major exporting force areas (the Metropolitan Police, Merseyside, West Midlands), investment in new technology, and increased support for victims.

Our investment is already delivering results; between November 2019 and March 2020, the Metropolitan Police, Merseyside, West Midlands and the British Transport Police made over 650 arrests, closed nearly 140 deal lines, seized cash and drugs with a total value of over £3 million, made over 100 weapons seizures, and safeguarded a number of individuals, including 140 children. The most recent county lines ‘Week of Intensification’ conducted 14-20 September also resulted in over 1,000 arrests, drugs worth more than £1m seized and over 1,500 vulnerable individuals safeguarded.

We are significantly increasing investment in specialist support for children and young people involved in county lines to help them exit and rebuild their lives. We are funding St Giles Trust £860,000 this financial year to provide specialist one-to-one support in London, Merseyside and the West Midlands and are also continuing to fund Missing People’s SafeCall service, a specialist 24/7 helpline which provides advice and support to children, young people and parents/carers concerned about county lines exploitation.

We are determined to crack down on the county lines gangs who are exploiting our children and have a devastating impact on our communities.

That is why we are delivering a £25m programme of investment to surge our activity against these ruthless gangs. Our overall package, launched in October last year includes:

• expanding the National County Lines Co-ordination Centre;

• increased disruption on the rail networks by the British Transport Police’s County Lines Taskforce;

• targeted operational activity against high harm lines in the three major exporting force areas (Met Police, Merseyside, West Midlands);

• investment in new technology including Automatic Number Plate Recognition;

• increased support for victims.

In respect of property guardians, local authorities have strong enforcement powers and the Ministry of Housing, Communities and Local Government (MHCLG) published consolidated enforcement guidance for local authorities in April 2019 which sets out their duties when dealing with property guardian properties, including those on a licence agreement. This was accompanied by guidance for renters. MHCLG has also published a property guardian factsheet to help potential or current property guardians to understand their rights.

Additionally we are aware that Housing Associations are using their local knowledge to spot early signs of abuse and exploitation that could be linked to county lines.

The Government has been clear free movement is ending, and a new immigration system will be introduced from January 2021. The independent Migration Advisory Committee has been clear immigration is not the solution to addressing shortages in the labour market.

The Government is committed to tackling labour exploitation across all sectors of the labour market and protecting workers’ rights. Through the Immigration Act 2016, we have widened the remit of the Gangmasters and Labour Abuse Authority giving it new powers under the Police and Criminal Evidence Act (PACE) 1984 to investigate serious labour market offences.

We recently ran a public consultation on the establishment of a new Single Enforcement Body for employment rights. We will publish a response to this consultation in due course.

The Ministry of Justice provides funding to specialist sexual violence services to support victims to cope and, where possible, recover from the impact of crime. On 18 September, we announced an additional £5m to support victims of sexual violence, which commits £32m over three years.

In addition, local Commissioners (be they Police and Crime Commissioners, Local Authorities or health commissioners) will also seek to provide specialist support to victims in their area. To support this, in December 2016 we published the National Statement of Expectations, which sets out a blueprint for local service provision, including how Commissioners can best respond to the needs of minority or marginalised groups.

In 2016/17 MHCLG also provided £300k to Imkaan to build capacity and strengthen specialist BAME organisations, including through training, quality standard accreditation and access to the tools they need to measure their impact.

On 18^th September we appointed Nicole Jacobs as the first Designate Domestic Abuse Commissioner, who will raise awareness of domestic abuse, stand up for victims, and drive up consistency in the response to domestic abuse. The Commissioner is required to appoint a specific thematic lead within her office to consider and address the needs of BAME victims.

We are also exploring ways to improve support for BAME victims as part of our work to tackle racial disparity in the Criminal Justice System.

My Lords, criminal exploitation associated with county lines drug dealing has a devastating impact on those affected. We must continue to work together to identify and safeguard the victims and potential victims of this exploitation as early as possible. We will carefully consider the findings from the Children’s Society’s report as we continue to strengthen our response to county lines.

To ask Her Majesty’s Government what is their response to the report by The Children’s Society, Counting Lives: responding to children who are criminally exploited, published on 5 July.

My Lords, in January 2019 the National Crime Agency and the National County Lines Coordination Centre co-ordinated a series of drug raids which resulted in 600 arrests, with 400 vulnerable adults and 600 children being offered safeguarding advice, but only 40 referrals to the national referral mechanism. Does the Minister agree that we need to implement a national strategy for child criminal exploitation to ensure that statutory services across the UK can recognise the signs of exploitation and offer the support that children need?

My Lords, the criminal justice system acknowledges that women subject to coercive control who attack their abusive partners may be the victims of crime rather than perpetrators. What are the Government doing to encourage all the agencies in the criminal justice system to acknowledge that vulnerable young people who commit criminal acts under the coercive control of criminal gangs may also be victims rather than perpetrators?

My Lords, following up on that last question, the grooming patterns of children and young people, whether for sexual exploitation or criminal exploitation, are almost exactly the same. It took us ages to achieve a proper definition of exploitation of children in the sex industry. We should not make the same mistake again. It seems that what we need to do, and I ask the Government to consider this, is create a legally binding definition of child criminal exploitation that makes it absolutely clear that the vast majority of these children, some as young as 10 years old, are victims.