National Referral Mechanism (NRM) Referral
How to refer a potential victim of modern slavery or human trafficking to the National Referral Mechanism for support and protection.
Overview
The National Referral Mechanism (NRM) is the UK framework for identifying and supporting victims of modern slavery and human trafficking. If you suspect someone is a victim (or you are a victim yourself), a referral can be made to the NRM. This triggers a two-stage decision-making process and access to specialist support services including accommodation, legal advice, and counselling.
Who Can Use This Process
- The person may be a victim of slavery, servitude, forced labour, or human trafficking
- Adults must consent to an NRM referral (children do not need to consent)
- The referral can be made by a 'first responder' organisation (police, local authority, Home Office, NHS, certain NGOs)
- The person is in England and Wales (Scotland and Northern Ireland have separate processes)
Step-by-Step Process
Identify potential indicators
Look for indicators of modern slavery including: restricted movement, fear of authorities, signs of physical abuse, inability to speak freely, working excessively long hours, living in poor conditions, having no access to earnings or identity documents.
- Victims may not self-identify as victims
- Indicators vary by type of exploitation
- Multiple indicators together strengthen the case
Contact a first responder organisation
Only designated 'first responder' organisations can make NRM referrals. These include police forces, local authorities, the Home Office, the Gangmasters and Labour Abuse Authority, and certain NGOs such as the Salvation Army and Migrant Help.
- If in immediate danger, call 999
- The Modern Slavery Helpline is 08000 121 700
- Adults must give informed consent before a referral is made
NRM referral form submitted
The first responder completes the NRM referral form and submits it to the Single Competent Authority (SCA) within the Home Office. The form includes details of the potential victim and the indicators of exploitation.
- For children, consent is not required
- The Duty to Notify (s.52 Modern Slavery Act 2015) applies to specified public authorities
Reasonable grounds decision
The SCA makes a reasonable grounds (RG) decision, usually within 5 working days. The test is: 'I suspect but cannot prove that this person is a victim of modern slavery.' If positive, the person enters the recovery period and receives support.
- The standard of proof is low at this stage
- A positive RG decision triggers the recovery period (minimum 30 days)
- Support includes accommodation, financial support, and legal advice
Conclusive grounds decision
After the recovery period, the SCA makes a conclusive grounds (CG) decision on the balance of probabilities. If positive, the person is confirmed as a victim and may receive further support and discretionary leave to remain.
- The standard of proof is the civil standard (balance of probabilities)
- A positive CG decision may lead to discretionary leave to remain
- Negative decisions can be challenged by judicial review
Costs
Important Warnings
Never attempt to confront suspected traffickers or slave-holders — contact the police or Modern Slavery Helpline.
Victims of modern slavery have a statutory defence (s.45 MSA 2015) if they have been compelled to commit criminal offences.
Immigration enforcement should not be prioritised over victim identification and support.