Report: Refusal to Consent: Factors Influencing the Uptake of Modern Slavery Support under the National Referral Mechanism

When I became Commissioner, I commenced a series of visits across the UK to hear from survivors of modern slavery and the organisations that support them. They told me about their experiences with authorities, First Responder Organisations or charities, and how they found accessing care. One consistent thing that struck me when speaking to survivors was a growing reluctance and wariness about the National Referral Mechanism (NRM), and the concern that entering it would not provide the support they need.

This trend is echoed in the data too. In 2024, a peak of 5,598 ‘Duty to Notify’ (DtN) referrals indicated a rising trend of potential victims choosing not to seek the support offered through the NRM. The rate of DtN is growing at a faster rate than ever – and we need to understand why this is. Worryingly, this number is likely to be just the tip of the iceberg, with a number of organisations and victims telling me they do not complete DtN forms as the purpose of them is unclear.

That is why this research is so important. The Home Office currently only publishes a limited amount of DtN data, but through sourcing primary and secondary qualitative data, and quantitative analysis of publicly available NRM and DtN data, we can for first time get real insights and understanding on why a growing number of victims are choosing not to access support. This research also shines a light on what this may indicate about the efficacy of our NRM framework that is meant to identify and support victims.

This research has found that there can be many factors that may contribute to victims’ decisions not to enter the NRM. These include fear of authorities, lack of self-identification, inconsistent understanding of the NRM itself and concerns over immigration status, something which has been exacerbated by harmful Government rhetoric which has inaccurately conflated illegal migration and human trafficking.

This report’s findings strengthen the call for urgent action to make sure all victims feel confident they will receive the support they need if they enter the NRM. The NRM must be looked at afresh to make sure all victims’ needs are met. First Responder training should be rolled out and must be trauma-informed to allow individuals to make fully informed decisions. The Government response to modern slavery must be decoupled from immigration enforcement. Furthermore, DtN reporting should be mandatory across all relevant organisations so we can get more accurate data and a better understanding of what victims need. 

Lastly, this report stresses the need for further survivor-led research. In addition to the data, we must listen to survivors themselves about why they are increasingly choosing not to enter the NRM. Listening and responding to those with lived experience of modern slavery is critical to understanding the true scale of modern slavery in the UK, how it is changing, and how we can ensure that all potential victims receive the 
support they need. 

Watch the presentation of the findings in the video below.  

You can read the full report here.