Scotland's Trafficking and Exploitation Strategy 2025

Principles

The following principles underpin our approach to this strategy. The Delivery Plan (see section 12 on page 29 for more information) will outline in more detail how these will inform the implementation of the Strategy.

Human-rights based

Human rights are universal, non-divisible and central to all efforts to prevent and combat trafficking and exploitation. Trafficking is a fundamental violation of human rights. Survivors need to be assisted to restore their rights, and the dignity and human rights of victims and survivors must be respected at all times. A human rights approach based on the ‘PANEL’ principles means that:

• survivors are involved in decisions that affect them and their rights (Participation)
• there should be monitoring of how people’s rights are being affected, as well as remedies when things go wrong (Accountability)
• all forms of discrimination must be prohibited, prevented and eliminated. people who face the biggest barriers to realising their rights should be prioritised (Non-Discrimination and Equality)
• everyone should understand their rights, how to assert them and be fully supported to take part in developing policy and practices which affect their lives (Empowerment)
• approaches should be grounded in the legal rights that are set out in domestic and international laws (Legality).

Trauma-informed and culturally competent

Survivors of trafficking have experienced repeated and often prolonged traumatic events which have profound and long-lasting, detrimental effects on their mental and physical health. Trauma-informed practice describes a way of working with people that recognises the prevalence of trauma and responding in ways that reduce the impact of trauma and re-traumatisation on survivors while supporting them to recovery. Trauma‑responsive methods of working are thus based upon an understanding of the harmful effects of traumatic experiences together with fundamental principles of compassion and respect^[15]. Being trauma-informed does not only apply to ways of working with survivors, however, but needs to extend to any organisations who come into contact with victims and therefore need to adopt an overarching framework that “emphasizes the impact of trauma and guides the general organisation and behaviour of an entire system” (Hopper, 2004 cited in OSCE ODIHR, 2023, p.2)^[16].

Cultural competence refers to the requirement to support the needs of a diverse population of survivors in a way that understands their cultural background. The lack of culturally competent practice may be experienced as re-traumatising by survivors^[17]. Survivors can face barriers to support created by a lack of cultural and structural competency at individual, organisational and policy levels^[18]. Organisations need to develop and implement strategies that removes barriers at all three levels and address how these might affect survivors’ needs and responses to care and support. Language plays an important role in the provision of culturally competent support.

Victim/Survivor-informed

Survivors of trafficking and exploitation have lived experience and therefore expert knowledge and insight into the effects this violation has on the lives, health and wellbeing of individuals and their families. Survivor leaders are key in ensuring that service delivery for protection, support and recovery meets the needs of survivors. They also play a crucial role in identifying the specific risks and challenges they face, especially in relation to retrafficking. There is strong evidence that when people with lived experience are directly involved in decision-making, outcomes for people are improved^[19].

Lived experience engagement has to be meaningful and ethical. People with lived experience have been involved and influenced the revision of this Strategy. It is crucial that they continue to inform and influence all aspects of its implementation. In collaboration with survivors, partner organisations and others, we will work to embed lived experience within the Strategy implementation structures and ensure survivor voices are heard throughout the delivery phase.

Gender-sensitive

All genders experience all forms of trafficking and exploitation. However, trafficking may impact women, men, girls and boys differently and some forms of trafficking and exploitation are more likely to affect one gender over another. It is important that this recognition translates into appropriate support for each survivor of trafficking and exploitation and is based on an understanding not only of the differences of experiences and their impact on individual survivors but also of the complexities of power hierarchies between and within genders^[20].

The intersection between different vulnerabilities affects genders in different ways which may result in the amplification of specific risks. People who identify as LGBTQI+, for example, may experience increased barriers to identification and support due to gender identity-based discrimination intersecting with other risk factors and marginalisation^[21]. A gender-sensitive approach recognises that these intersections of risk and vulnerabilities necessitate tailored, gender-responsive strategies that address gender-specific vulnerabilities and needs of victims of trafficking and exploitation^[22].

Age-sensitive

This principle is grounded in human rights, affirming that people of all age groups are entitled to the same fundamental rights. However, it recognises that experiences of trafficking and exploitation differ depending on whether a person is a child or an adult, both in terms of the types of exploitation they may face, and the support services required to assist them. Even within the broad categories of ‘child’ and ‘adult’, specific age groups may experience exploitation in distinct ways. The intersection of age with other characteristics such as gender, race, disability, socioeconomic status, and more can also create compounded challenges.

In Scotland, children have inherent rights linked to their development, protection, and participation^[23]. However, the distinction between child and adult victims of trafficking and exploitation can create challenges, for example when children turn 18 and transition between services where support systems change. These transitions raise concerns about gaps in support, unmet needs, and heightened vulnerability for young people. At the same time, older victims of trafficking and exploitation may face additional risks if their needs and experiences are overlooked due to their age. Being age-sensitive means understanding and responding to the unique and nuanced experiences of individuals at different life stages. It requires taking targeted actions to address these complexities while fostering an inclusive approach that effectively supports people across all age groups.

Multi-agency approach

Collaboration across services and organisations to improve outcomes for survivors of trafficking and exploitation and ensuring that perpetrators are held to account is an essential cornerstone of how the Strategy has been implemented to date and will continue to serve as a guiding principle. Effective communication and information-sharing is key to multi-agency working as are the willingness to learn from other agencies and regular opportunities for knowledge sharing. Using a multi-agency approach effectively requires considering not only the specific characteristics of the individual survivors and their situation but also the geographical context within which services are to be provided. Delivering at a local level remains a key criterion for how multi-agency working can be implemented successfully.

Based on partnership working at local, Scottish, UK and international levels

Partnership working has been central to the work done in delivering the Strategy to date and remains a crucial principle as we seek to improve our efforts to prevent trafficking and support and protect victim-survivors.

• Local level: The whole system and multi-agency approach that underpin the strategy means that we will continue to draw on a range of policies and sectors to implement it at local level. Local authorities, Police Divisions, NHS Boards and Health and Social Care Partnerships across Scotland will continue to work together to deliver the outcomes of this Strategy. Continued partnership and collaboration between civil society, the third sector, business, academia and government forms part of an effective Strategy that recognises and supports the important contributions of these sectors in preventing trafficking and exploitation, supporting survivors and holding perpetrators to account.
• Scottish level: Scottish Government will continue to strengthen our cross-policy engagement internally and working outwardly alongside other relevant national organisations. Given the complex legislative and policy landscape in Scotland (see Annex C), we will take a lead in aligning policy areas that impact survivors’ lives, ensuring that services are provided in line with the principles outlined in the Strategy.
•  UK level: Collaboration across Scotland and the rest of the UK is a cornerstone of effectively delivering support to survivors and holding perpetrators to account. The nature of serious organised crime and the fact that trafficking and exploitation occurs throughout the rest of the UK means that our continued collaboration across local authorities, support organisations, regulators, devolved administrations, UK Government, law enforcement agencies and with the Independent Anti-Slavery Commissioner (IASC) is vital for successful implementation.
• International level: We will continue to be informed by and work with international counterparts, including survivor support and civil society organisations, to ensure that Scotland not only remains abreast of new developments in anti-trafficking work but also continues to collaborate effectively with European and global partners to tackle transnational trafficking in Scotland and abroad.