National Referral Mechanism reform essential for survivors of modern slavery to rebuild their lives

A new report, Underground Lives 2025, has found the government’s current framework for identifying and supporting cases of modern slavery is falling short of fully meeting the needs of modern slavery survivors. 

The report was independently conducted on behalf of the charity Hestia by Qa Research and the Wilberforce Institute at the University of Hull. 

Hestia has supported thousands of survivors through the National Referral Mechanism (NRM) – the framework for identifying and supporting potential victims – since 2011. In this report Hestia draws on these experiences, insights from survivors themselves, and a YouGov survey of 103 MPs. The report also sets out recommendations to create a system that better supports survivors in rebuilding their lives. 

Underground Lives, found that: 

• Only 5% of MPs surveyed believed the current 45-day move-on period was sufficient following a positive Conclusive Grounds (CG) decision (formal recognition they are a victim of modern slavery) given the complex nature of recovery.  

• 90% of survivors still have unmet needs standing in the way of their recovery and integration after full recognition of the crime committed against them. Half of survivors (48%) reported still needing specialist mental health support after formally being recognised as survivors. For many, right to work, financial and legal needs remained unresolved when leaving the system. 

• While 71% hoped a formal recognition would help them progress in their recovery, only 44% felt it did in practice.  

• Many survivors remain trapped in the NRM because essential recovery needs aren’t met before the 45-day deadline. This means many survivors become stuck in a cycle of repeated applications for support extensions. 

Hestia is calling for reform of the National Referral Mechanism to ensure survivors always have the support they need before moving on.  

The report’s recommendations include: 

• Survivors should only exit the NRM once their move on needs are satisfactorily met. Move-on should be based on readiness and recovery, not an arbitrary time limit.i 

• Improve survivor understanding of the NRM - Survivors must be further helped to understand the NRM, their rights, and the support they are entitled to.  

Alison Logier, Director of Modern Slavery Response, Hestia said: 

“Under the current system, survivors of modern slavery face prolonged uncertainty, even after they are formally recognised as victims.  

At Hestia, we see how safety, stability and trauma-informed support help people rebuild confidence and start imagining a future. This safety and progress comes abruptly to an end when they receive their conclusive grounds decision and face uncertainty again. 

Recovery cannot be forced into a 45-day window. We need a system shaped by lived experience, giving survivors the time and support they need to rebuild independent and sustainable lives."

Patrick Ryan, CEO Hestia said: 

“At Hestia, we are committed to helping survivors of modern slavery rebuild their lives. The findings of this report indicate that the current National Referral Mechanism does not fully reflect the realities or complexities of a survivor’s recovery. Recovery is not a linear or time-bound process.

Our new research highlights what sustainable recovery truly looks like. We urge the Government to embed these principles within the new Support for Victims of Modern Slavery (SVMS) programme, so that survivors can recover and regain independence”. 

Read full report