The development of a preliminary training framework for local authorities as modern slavery first responders in England and Wales

Executive summary

Modern Slavery (MS) is a serious and growing issue in England and Wales and Local Authorities (LAs) play a key role in identifying and supporting survivors. However, many LAs face challenges in fully adopting their legal responsibilities as First Responders (FRs). This report explores these challenges and opportunities, focusing on improving training, awareness, and collaboration to strengthen the local response to MS.

Why Focus on Local Authorities?

LAs are responsible for housing, social care, education and safeguarding, services that survivors of MS often use and seek help from. However, research shows that frontline staff may lack the necessary training and awareness to recognise cases of exploitation and respond effectively. While the Modern Slavery Act 2015 sets out clear legal obligations for LAs to prevent, identify and offer support to these survivors, they often struggle with limited resources, inconsistent training and gaps in inter-agency collaboration.

What Does This Study Do?

This research was conducted to better understand the role of LAs in tackling MS and to identify ways to improve their response. A multi-phase study was carried out, including:

• Reviewing modern slavery statements (MSSs) published by LAs.

• Surveying council specialist staff to assess their knowledge, training, and experiences.

• Interviewing MS Leads at the LAs to gain deeper insights into the challenges they face.

Key Findings

The study identified several barriers and areas for improvement:

1. Limited Awareness and Training: Many LAs staff are unaware of their role as FRs. Training, where available, is often inconsistent and not tailored to local needs. Some staff assume that only the police can deal with MS cases.

2. Fragmented Responses: While some councils have strong MS policies, others lack clear processes for identifying and supporting survivors. This results in an inconsistent approach across different regions.

3. Barriers to Multi-Agency Working: Effective MS response requires collaboration between LAs, law enforcement, and community groups. However, miscommunication, lack of trust, and unclear responsibilities hinder joint efforts.

4. Gaps in Supply Chain Oversight: LAs have a legal duty to monitor their supply chains for potential exploitation, but reporting is inconsistent and many councils lack the resources to conduct thorough checks.

5. Examples of Good Practice: Some LAs have developed strong partnerships with community organisations, invested in specialist MS teams, and introduced innovative training approaches. These examples highlight what is possible with the right strategies in place.

Preliminary Training Framework and Recommendations for Improvement

Based on the findings and on previous tools in the sector, the report suggests several actions to strengthen the role of LAs as First Responders:

• Standardise Training: Introduce a nationally recognised, three-tier training framework:
Tier 1 Basic awareness training for all staff (e-learning).
Tier 2 In-depth, face-to-face training for frontline workers and councillors.
Tier 3 Advanced training for specialist staff making National Referral Mechanism (NRM) referrals.

• Enhance Collaboration: Improve partnerships between LAs, law enforcement, and community organisations to create a more coordinated response.

• Increase Resources: Secure dedicated funding to support MS training and specialist teams within LAs.

• Strengthen Accountability: Establish clearer processes for monitoring MS risks in supply chains and reporting on actions taken.

• Improve Communication: Ensure all staff understand their FR responsibilities and provide clear referral pathways.

Why Does This Matter?

MS can happen anywhere and LAs are on the frontline of prevention and support and 2 million people work in Local Government. Strengthening their capacity to act as First Responders is critical to ensuring survivors receive the help they need. By improving training, collaboration, and accountability, LAs can play a vital role in tackling MS and protecting vulnerable individuals where there is sometimes distrust of other FRs like the Home Office or Police and others still like charities do not have the resources or national coverage to always respond effectively.

This report highlights the urgent need for action and provides practical recommendations to build a more effective, coordinated response. With the right support, LAs can lead the way in combating MS and making communities safer for everyone.

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