Trafficking and Exploitation Strategy: fifth progress report

Ministerial Foreword

October 2025 will mark a decade since the Scottish Parliament unanimously passed the Human Trafficking and Exploitation (Scotland) Act 2015. It was a significant moment in Scotland’s approach – both to tackling this abhorrent behaviour and in the statutory provision of support to victims. The 2015 Act was subsequently the platform for the development and publication of Scotland’s first Trafficking and Exploitation Strategy in 2017. This is the fifth and final progress report under the 2017 Strategy and covers the period from 2022 through to 2025. In line with previous reports, it reflects the broad scope of work delivered by all partners.

The creation of the Victim Centred Approach Fund (VCAF) in April 2022 enabled the expansion of our human trafficking support provision and provided three years of record funding. From 1 April 2025, the six human trafficking support organisations receiving Scottish Government funding form part of the Fairer Funding pilot.

During the reporting period, the number of cases submitted to the National Referral Mechanism in relation to Scotland continued to rise. This increase reflects not only an increase in the numbers of victims trafficked and exploited in Scotland but also a growing awareness of trafficking and exploitation signs - an outcome of the extensive awareness-raising efforts and training delivered by a number of support organisations, as detailed in the report.

In April 2023, we took a vital step forward in protecting some of the most vulnerable children with the launch of Guardianship Scotland and delivery of Independent Child Trafficking Guardians. In line with section 11 of the 2015 Act, it is now a statutory requirement to appoint guardians for unaccompanied children arriving in Scotland alone — children who may be, or be vulnerable to, being a victim of human trafficking.

Alongside this final progress report under the 2017 Strategy, we are publishing Scotland’s second Trafficking and Exploitation Strategy, developed through engagement with partners and survivors across the country and beyond. This new Strategy takes a public health approach to human trafficking as we look to develop further our focus on, and commitment to, prevention. I want to express my sincere gratitude to everyone who contributed to the implementation of the first Strategy. Thanks to your dedication, we have made significant progress. The upcoming publication of the second Strategy marks the next step to build on those foundations to create a safer Scotland for all.

Siobhian Brown MSP

Minister for Victims and Community Safety