A pioneering research study has found that children in Northern Ireland exploited by paramilitary and organised crime groups are not being formally identified as victims of modern slavery and human trafficking, despite evidence suggesting they meet the criteria.

The study, the first of its kind, indicates a significant blind spot in the region's response to child criminal exploitation (CCE).

The research was led jointly by Ulster University and the International Organization for Migration (IOM) in the United Kingdom, with co-funding from the Northern Ireland Department of Justice and the Modern Slavery and Human Rights Policy and Evidence Centre (PEC) at the University of Oxford.

Across England, Scotland, and Wales, CCE is widely recognised as a form of modern slavery, with over 11,000 British children referred to the National Referral Mechanism (NRM) – the UK-wide framework for identifying potential modern slavery victims – since 2014. However, the study reveals that, until the end of 2024, no UK or Irish male child had ever been referred to the NRM for criminal exploitation within Northern Ireland.

The vast majority of research respondents – 98% – reported encountering cases of criminal exploitation related to drugs. Paramilitary activity was cited by 79% of respondents, followed by anti-social behaviour (70%), forced shoplifting (30%), and money laundering (26%).

The report notes that in Northern Ireland's post-conflict environment, paramilitaries and organised criminal groups continue to wield considerable influence over certain communities, perpetuating harm that is often normalised or overlooked, even by those directly affected. This normalisation contributes to the failure to identify exploitation.

Concerns were also raised by some respondents about the safety of formally identifying children through the NRM, including fears of reprisals against the children themselves and those reporting the exploitation. This points to a need for NRM processes to be adapted to the specific local context of Northern Ireland.

Further barriers to identification include the absence of a legal duty in Northern Ireland to formally identify potential victims of modern slavery, and a statutory definition of human trafficking that places too much emphasis on travel, failing to reflect the often hyperlocal nature of child exploitation within communities.

The research calls for urgent policy changes by both the UK and Northern Ireland governments. These changes must acknowledge Northern Ireland's unique post-conflict context, alongside increased investment in frontline capacity and the development of tailored referral processes. Dr Gillian Kane, co-author of the report and Lecturer in Law at Ulster University, stated: "This research has shed light on some of the barriers to identifying modern slavery and human trafficking in the context of child criminal exploitation in Northern Ireland. Possible concrete actions to remove them include ensuring a legal duty to identify in Northern Ireland's human trafficking legislation, and amending the statutory definition of human trafficking to more accurately reflect international law."

Andrew Chisholm, Senior Project Associate and Northern Ireland Lead at the International Organization for Migration (IOM UK) and research co-lead, commented on the data gaps: "Our research uncovered stark gaps in the available data on child criminal exploitation in Northern Ireland. The absence of referrals to the NRM until the end of 2024 contrasts sharply with what frontline professionals are reporting and in comparison, with the rest of the UK. The evidence produced by this research, for the first time, has captured the extent of this issue in relation to modern slavery and human trafficking, which can now be used to design an effective policy and service response."

Northern Ireland's Minister of Justice Naomi Long, who co-commissioned the study, welcomed its publication: "I am pleased that my Department commissioned this important research and welcome the publication of this report, which has highlighted some of the barriers to recognising and identifying modern slavery and human trafficking in the context of child criminal exploitation in Northern Ireland."

Minister Long added: "Child criminal exploitation is a complex form of child abuse and the Department is committed to continuing to work collaboratively to raise awareness and to protect children at risk of exploitation. We will now take the time to consider the recommendations as part of the ongoing cross-government actions to address child criminal exploitation."

Professor Paul Seawright, Deputy Vice-Chancellor of Ulster University, who closed the launch event, affirmed the university's commitment to impactful research: "At Ulster University, we are committed to research that serves the needs of our society, especially our most vulnerable. This work shines a stark light on a hidden issue – one that demands urgent and informed action. We are proud to have hosted this important discussion and to support research that challenges policy blind spots and works toward better protection for children in our communities."

Jakub Sobik from the Modern Slavery and Human Rights Policy and Evidence Centre at the University of Oxford, also a co-commissioner of the study, expressed optimism for the research's impact: "We're proud to have commissioned this novel research. We hope it kickstarts a conversation that's needed to implement holistic changes effectively protecting children from exploitation with the local realities at the at its heart."