Modern Slavery: NRM and DtN statistics, end of year summary 2023 - GOV.UK (www.gov.uk)
In March 2024, the Home Office published its 2023 statistics on the referrals of potential victims of modern slavery. The year saw two amendments to the test for determining whether there are reasonable grounds to believe an individual is a victim of modern slavery and it now involves an assessment of the credibility of the victim’s account. This update focuses on the key findings relating to children.
Details
- 44% (7,432) of all referrals for potential victims were children, marking a record high. By contrast, the number of referrals for adults decreased.
- The most common nationality referred was UK at 25% (4,299).
- 78% of UK nationals referred were children.
- Local authorities made the vast majority of referrals for children.
- Children were most commonly referred in the context of criminal exploitation, comprising 42% of potential victims in that category.
- Children represented 84% of the referrals for county lines-related criminal exploitation (10% being female children and 74% being male children).
- Male children accounted for 1,158 county lines referrals: nearly six times more than the 199 male adults referred in the same category.
- Of the reasonable grounds decisions issued in respect of potential child victims, 74% of them were positive. The average time between referral and decision slowed to 23 days, compared with 6 days in 2022. The report notes that this is likely due to the changes made to the reasonable grounds test. Between January and July 2023, the test required ‘objective evidence’, meaning first responder organisations often needed to request additional information before a decision could be reached, causing delays to the process.
- There was a more than 60% increase in the number of positive conclusive grounds decisions issued in 2023 compared with 2022. According to the Home Office report, this increase is likely to be attributed to 'significant productivity and efficiency efforts' and the increasing recruitment of additional decision-makers. Of the decisions issued in respect of children, 81% were positive.
Commentary
The 2023 statistics illustrate the disproportionate and increasing numbers of child victims of modern slavery in the UK. Contrary to the popular assumption that victims are trafficked from other countries, UK was the most common nationality referred and 78% of them were children.
The data on county lines-related crime remains alarming. The clear targeting of male children by county lines groups demonstrates the continuing need for first responder organisations to identify and refer as soon as possible. The slowing of the reasonable grounds decision-making process is concerning, because potential victims are not eligible for support until this decision has been reached.
The statistics concentrate on the referral and decision-making processes, but fail to provide insight on any other outcomes, leaving significant gaps in our understanding of the key issues. For example, what is driving the 26% negative conclusive grounds decisions? What percentage of referred children are willing to give their accounts? Particularly in the context of county lines gangs, where fear and intimidation are weaponised, requiring a ‘credible account’ from a child victim is highly likely to be an obstacle to their access to support and protection.
The ‘Section 45 defence’ under the Modern Slavery Act was designed to encourage victims to give evidence on the crimes they had been involved in without fear of being convicted. Data on its frequency of use and any negative outcomes would also be useful to understand how willing or reluctant victims are to provide their accounts to authorities. Also, is there a conflict between encouraging victims to be witnesses to assist the police in securing convictions in the ‘war on drugs’ (and the inherent consequences of that) and prioritising victim protection and rehabilitation?
The UK is failing to protect children from exploitation. Although local authorities seem to be performing their function and identifying the majority of children referred, equal attention must be focused on prevention and outcomes. The ever-increasing number of child victims means that the UK urgently needs to seek solutions with immediate-term impact. Community-based education, training and raising awareness in schools are known to be effective methods and initiatives can be rolled-out in target regions, such as Norfolk, Suffolk or Kent where county lines gangs are prevalent. Despite funding cuts, such investment in vulnerable regions is fundamental to preventing child exploitation and, therefore, must be treated as a critical priority.
Written by Tom Cartwright (partner) and Eleanor Guven (trainee), Paul Hastings LLP