28th August 2025
Council of Europe told serious issues remain in detection, protection and support of child victims of trafficking
Ireland’s National Rapporteur on the Trafficking of Human Beings, the Irish Human Rights and Equality Commission (the Commission) has told the Council of Europe that although the 162 trafficking victims in 2022–2024 (a 30% increase over the 124 identified in 2019 -2021) likely reflects enhanced detection and identification efforts by authorities, the true rate of victims is likely much higher.
In the Commissions’ report to the fourth evaluation round of the Council of Europe Group of Experts on Action against Trafficking in Human Beings (GRETA), we highlighted our concerns regarding the highly inadequate provision of accommodation to victims of trafficking, including for female and child victims.
In particular, Ireland continues to struggle with the identification, support, and protection of child victims of trafficking. While there have been welcome increased provisions for child victims of trafficking and the welcome presumption of minority was included in the final 2024 Act, concerns remain - including regarding the need for a child-specific identification process and the absence of any age-estimation assessment.
While the new National Referral Mechanism* is one of the most significant developments in the last number of years it is not yet operational. The Operational Guidelines required for it have not yet been finalised.
The Commission calls for such Operational Guidelines to be clear, comprehensive, consultative, and rights-based, and swiftly finalised and published. Clear detail must be provided, including on access to assistance and supports, and child-specific identification processes, supports, and protection.
The new NRM and any polices and practices concerning Anti-Human Trafficking must reflect the increased obligations of the 2024 amended EU Anti-Trafficking Directive (to be transposed by mid 2026).
In addition, we have a number of concerns regarding the potential impact of the domestic implementation of the EU Pact on Migration and Asylum on people at risk and victims of trafficking. The potential application of accelerated procedures to victims of trafficking and a screening procedure over a very truncated timeline are particularly concerning.
We also query the use of detention in any new system, given that detention is completely unsuitable for victims of trafficking – including children - and noting the lack of provision for robust oversight and human rights monitoring in the proposed domestic implementation.
Chief Commissioner Liam Herrick said:
“Victims of trafficking are among the most vulnerable people in our society. They are not statistics. They are not administrative challenges. They are people, including young children, who have suffered the most egregious crimes against them. These victims are often hidden but should not be faceless. They are daughters, sons, parents and grandparents. Rather than exacerbate their distress through arduous examination and detention processes, or inappropriate accommodation, we have a duty to provide these victims with every support possible. We now need to continue to identify and fix the gaps in Ireland’s laws and practice in identifying and supporting victims, as well as prosecuting traffickers - that will spare future victims and send a clear signal that Ireland is serious about combatting this most heinous of crimes.”
*IHREC is National Rapporteur on the Trafficking of Human Beings and is responsible for overseeing the implementation of the new, victim-centred National Referral Mechanism (NRM) for human trafficking. The NRM provides a structured process for identifying victims of trafficking and ensuring they receive appropriate support.
Notes to editors:
Areas of Concern
While there have been significant positive developments in the overall anti-trafficking response since the last reporting period, areas of concern remain for the Commission.
Assistance and supports for victims of trafficking
There were key improvements in the legal framework through the Criminal Law (Sexual Offences and Human Trafficking) Act 2024, but concerns remain regarding legal clarity on the assistance and supports available to victims of trafficking. This includes in relation to the provision of immigration permits and residence permissions, and the non-prosecution principle, safe and appropriate accommodation, among others.
Accommodation
Concerns remain regarding the highly inadequate provision of accommodation to victims of trafficking. Most victims who are International Protection applicants continue to be accommodated in Direct Provision, which is wholly unsuited to their needs, particularly for female victims of trafficking. The recent establishment of the first gender-specific specialised shelter (Rosa’s Place) is very welcome and has been very positively received -but it is not enough to meet the need with limited capacity at just eight beds, and other access issues, including restrictive eligibility criteria.
Identification of and supports to child victims of trafficking
The Commission has repeatedly highlighted the importance of identification of and provision of supports to child victims of trafficking, recommending that the best interests of the child principle be explicitly included in a child-specific National Referral Mechanism, but this has not been implemented. While there have been welcome increased provisions for child victims of trafficking and the welcome presumption of minority was included in the final 2024 Act, concerns remain regarding the need for a child-specific identification process and the absence of any age-estimation assessment. This is in a broader context of chronically low rates of identification of child victims.
The National Referral Mechanism and the Operational Guidelines
The new National Referral Mechanism, due to be operational in the near future, is perhaps one of the most significant developments in the last number of years. The Operational Guidelines required for such operationalisation have not yet been finalised. The Commission calls for such Operational Guidelines to be clear, comprehensive, consultative, and rights-based, and swiftly finalised and published. Clear detail must be provided, including on access to assistance and supports, and child-specific identification processes, supports, and protection.
EU Pact on Migration and Asylum
The Commission has a number of concerns regarding the potential impact of domestic implementation of the EU Pact on Migration and Asylum on people at risk and victims of trafficking. The potential application of accelerated procedures to victims of trafficking and a screening procedure over a very truncated timeline are of concern. The Commission has raised specific concerns about the use of detention in any new system, given that detention is completely unsuitable for victims of trafficking and noting the lack of provision for robust oversight and human rights monitoring in the proposed domestic implementation.