The battle against modern slavery could be won locally, if councils are supported
By Dan Ozarow
Have you ever left after a visit to a hand car wash, nail salon or construction site with an uneasy feeling that something is not quite right? Often hidden in plain sight, modern slavery remains one of the UK’s most pervasive yet overlooked crimes.
An estimated 130,000 people are living in conditions of modern slavery in the UK, including forced labour, domestic servitude, sexual exploitation, human trafficking and child exploitation. While public debate often focuses on migrants trafficked into the country, the reality is more complex. Almost a quarter of victims are British citizens, many trapped through coercion, exploitation and debt bondage.
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Victims seeking protection and support must be referred into the Government’s National Referral Mechanism (NRM) by an authorised First Responder organisation. Established under the Modern Slavery Act 2015, the NRM received 23,411 referrals in 2025, representing an increase of more than 20 per cent on the previous year.
Traditionally, First Responder responsibilities have fallen to charities such as The Salvation Army, Barnardo’s and Unseen, whose work supporting survivors is invaluable. However, these organisations do not always have the resources or geographical reach to identify and assist every victim, or survivor, as they are referred to. Government agencies, including the police, Home Office and Border Force, can also make referrals – but many survivors are reluctant to engage with authorities they may distrust.
There is, however, another organisation uniquely positioned to tackle the problem: local government.
Councils employ around 1.4 million people and oversee many of the services where signs of exploitation are most likely to emerge, including housing, social care and education. They also have extensive procurement responsibilities and are connected to complex local, national and international supply chains where labour exploitation can occur. Crucially, local authorities have a statutory duty under Section 52 of the Modern Slavery Act to notify the Home Office when they encounter suspected adult victims of slavery or human trafficking.
On paper, councils appear ideally placed to identify victims, prevent exploitation and coordinate support. As a local councillor and academic researcher myself, I am curious. Are they equipped to fulfil that role?
So to answer that question, I worked with colleagues at Middlesex University London and the Anti-Trafficking Monitoring Group on a three-year research project funded through the Department for Science, Innovation and Technology’s Higher Education Innovation Fund programme.
Our findings, published recently, paint a concerning picture. While many local authority officers responsible for safeguarding and modern slavery issues are highly committed, councils often lack the resources, training and organisational structures needed to respond effectively.
The research identified three recurring problems. First, awareness remains inconsistent. Where training exists, it is often delivered as a one-off session rather than an ongoing programme. Nearly half of survey respondents expressed concerns about their authority’s understanding of trafficking, domestic servitude, forced labour and sexual exploitation.
Second, there is significant variation between councils. Some have robust anti-slavery policies and clear procedures for identifying and supporting survivors, while others lack the operational frameworks needed to respond effectively.
Third, collaboration between councils, police forces and community organisations is frequently undermined by poor communication, uncertainty over responsibilities and a lack of trust.
The study also highlighted a gap among elected representatives. Local councillors are often the eyes and ears of their communities and may be well placed to spot warning signs of exploitation. Yet many receive little or no training on modern slavery, while others do not undertake training when it is available.
As Dr Sepideh Parsa, one of the report’s authors, noted: ‘I am particularly concerned with how ill-equipped local authorities are to fulfil their legal and moral responsibilities in tackling modern slavery. Local authorities have a vital role to play in prevention, identification and safeguarding – and they must be properly resourced and supported to do so.’
In response, the research team has developed a free training framework designed to help councils strengthen their response. The programme provides tailored guidance for councillors, frontline staff, managers, contractors and suppliers, enabling them to better recognise the signs of exploitation and understand their responsibilities as First Responders.
Modern slavery cannot be eradicated through legislation and law enforcement alone. Local authorities have enormous untapped potential to become a frontline defence against exploitation. However, that potential will only be realised if councils are given the resources from Government, the training and support necessary to fulfil their responsibilities.
The fight against modern slavery requires action at every level. Local government could be one of the most powerful tools available – but only if we invest in the people responsible for making it work.
