Commissioner Justin Kelly gives an opening address at Ruhama's International Conference in Dublin

Today, 09 October 2025, Commissioner Justin Kelly gave an opening address at Ruhama's International Conference in Dublin:

"Minister for Health, Jennifer Carroll MacNeill, Ruhama CEO Barbara Condon, Ruhama Ambassador Ms Frances Fitzgerald, colleagues, ladies and gentlemen,

It is my privilege to open Ruhama’s international conference this morning and to join you for what promises to be a very informative and insightful schedule of events.

As Barbara has just outlined, there are a number of key themes and challenges being explored throughout today’s conference culminating in the launch of Ruhama’s 2024 Annual Report.

And later, you will hear in more detail from Detective Chief Superintendent Colm Noonan in respect of the work that we are doing in regards to sexual exploitation in An Garda Síochána.

For now, what I propose to do in opening this conference is to touch briefly on some of the key themes of today’s event - namely:

1. How An Garda Síochána, through our work with Ruhama, is meeting the challenges in Ireland today in respect of sexual violence and exploitation
2. What measures and initiatives we have put in place to support those who are victims of sexual violence and exploitation and
3. How emerging technology is changing the landscape of offending behaviours.

Before I go into these I do want to remind ourselves why we are here having these discussions and exploring emerging crimes perpetrated predominantly against women.

It is because we know, despite low reporting, that there are significant numbers of individuals in our society who find themselves in need of the support of Ruhama and ourselves in An Garda Síochána.

There are women, children, and men in our cities, towns and villages across the country who find themselves being exploited, trafficked, or subjected to violence of various kinds including sexual violence.

These crimes are evolving and coming more to the fore, as we have seen in our need to legislate for the offence of non-fatal strangulation. This is something that since its commencement has seen us prosecute in the region of 60 cases to date.

We are also here today not to judge. Not to criticise. But to reach out a hand of friendship and support.

We all share in a common goal to reduce harm and provide a pathway to safety for those trying to escape such abuse.

This is because no person should suffer physical or psychological harm at the hands of another.

1. Collaboration with Ruhama

This brings me to the important work that Ruhama does, and how we complement each other in our mission of keeping people safe.

An Garda Síochána through its Organised Prostitution and Human Trafficking Investigation Units has a strong working relationship with Ruhama. This has been built over years of joint collaboration in the area of prostitution and sexual exploitation in the prostitution trade.

Together we have worked in partnership on a number of excellent initiatives aimed at providing advice, support and assistance to some of the most vulnerable people in society.

One of these is our monthly days of action where we carry out welfare visits with those engaged in the sex trade. During these visits, Ruhama provide safety packs, advice and support.

This initiative has been running for two years now and has proven positive, building trust, and has been shown to improve our engagement.

This close working relationship has also led to the development of awareness raising initiatives, such as the public information campaign conducted at Dublin Airport earlier this year.

This sees us distribute leaflets highlighting key supports at main transit routes for victims of these types of crime.

This is a great example of the State and NGOs working together with Ruhama - The Woman’s Health Service and Anti-Human Trafficking Teams within the HSE, The International Organisation for Migration (IOM) and the Border Management Unit all collaborating.

It is proposed that this initiative will become more regular and extend to other transit hubs across the country.

The Organised Prostitution Investigation Unit and Ruhama also conduct joint training with Gardaí around prostitution and trauma associated with the prostitution trade. While, personnel in the Border Management Unit in Dublin Airport, and the PSNI have also participated in the training.

2. Strategies to tackle organised prostitution and human trafficking

As sex trafficking and prostitution are very closely linked, An Garda Síochána’s Organised Prostitution and Human Trafficking Investigation Units pursue a number of strategies when approaching their investigations. The safety and welfare of potential

victims is paramount in the pursuit of offenders and the transnational organised crimes gangs that are engaged in this heinous crime.

We work very closely with our counterparts internationally as well as with Europol and Interpol, collaborating to dismantle and disrupt International Organised Crime Gangs that have a footprint in Ireland.

One of the key challenges we encounter is the under-reporting of this type of crime and that is why we work so closely with organisations like Ruhama, because there remains a fear and stigma about engaging with An Garda Síochána.

There are many factors that are likely to contribute to this: fear of not being believed; fear of those in their network; a lack of trust in the justice system and law enforcement in their home country which carries over to their trust in law enforcement in Ireland. But there is also an emerging normalisation of violence and sexual violence against women in our society.

While it is particularly difficult to quantify or capture reliable data around the extent of under-reporting or indeed to measure successes, Ruhama’s 2024 Annual Report speaks to an increase in demand for services, with support provided to 1,128 individuals in 2024. [75% increase on 2023].

Through the work being done on the ground and through our engagement, our teams are noticing increases in those who do come forward to report. And this speaks to a significant increase in trust as a result of our liaison service.

I might also turn your attention to another area which is having further impacts in the area of Domestic Sexual and Gender based violence, and that is the impact of extreme pornography on violence against women.

Women’s Aid and The Sexual Exploitation Research and Policy Institute last year released its report highlighting this important issue.

Its key finding being “the commercial sex trade, including both porn and prostitution, is a multibillion-euro business seeking to normalise extreme acts and promote the dehumanisation of women and girls”.

It found the normalisation takes place by exposing men and boys through pornographic material to extreme and often violent sex, putting them at risk of perpetrating criminal sexual acts.

This is something that is an emerging issue, and presents challenges for society as a whole, and there are, of course, huge amounts of money made from this enterprise.

It is an area that is having a very corruptive influence on our young people who view this – both men and women – who are led to believe this is normal and almost expected behaviour in a sexual encounter.

3. AI – Technological advances

It is also true to say that emerging technologies present us with further challenges. We have for instance seen Generative AI, such as image generation or alteration, allowing for more realistic ‘Deepfakes’ to be created. And these are becoming contributing factors in cases of harassment offences and ‘revenge porn’.

Previously Deepfakes could be easily shown to be fake due to unrealistic features, but what we are now seeing is modern AI tools can provide more photo-realistic results. While voice syntheses and video generation have also evolved significantly, and pose additional threats.

Similar to what we see in economic crime, AI tools can also be used to lower defences and build trust between an offender and their target.

For instance, AI tools support the creation of believable social media accounts and website platforms. All these tools can assist offenders in targeting vulnerable victims for exploitation.

Conclusion

Just before I conclude, I might just briefly touch on the last conference theme which related to men’s role in ending violence against women and girls.

And in my opinion, I do feel men’s voices speaking in condemnation of such acts by their peers has an important place in this conversation.

It is why I have chosen to conclude with a quote from former US President and humanitarian Jimmy Carter who, in his 2013 address marking the international day for the elimination of violence against women said, “The abuse of women and girls is the most pervasive and unaddressed human rights violation on earth”.

Finally, events such as this one, exploring available research and providing meaningful discussion, give voices to those women and children who struggle to reach out and share their experiences.

They are the lost voices in this conversation and it is important to have days like today, where we can be that voice and advocate on their behalf.

Thank you."