# EUR-Lex - 52014PC0559 - EN

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# 52014PC0559

**Proposal for a COUNCIL DECISION authorising Member States to ratify, in the interest of the European Union, the Protocol of 2014 to the Forced Labour Convention, 1930, of the International Labour Organisation with regard to matters related to judicial cooperation in criminal matters /* COM/2014/0559 final - 2014/0258 (NLE) */**

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EXPLANATORY MEMORANDUM

1.           CONTEXT OF THE PROPOSAL

The proposed Council Decisions will enable
Member States to ratify the Protocol to the Forced Labour Convention, 1930, of
the International Labour Organisation (ILO), hereinafter ‘the Protocol’.

The Forced Labour Convention, 1930 (No 29)
of the ILO (‘the Convention’) is one of the ILO’s eight fundamental Conventions
that make up the core international labour standards, and it is considered a
human rights instrument. In adopting the Convention in 1930, the International
Labour Conference (‘the Conference’) called upon States to end the use of
forced labour within the shortest possible period, and to criminalise the
offence. Yet, more than 80 years later, despite almost universal ratification
of the Convention, the practice still exists, albeit in different forms to
those that provoked such concern in the early twentieth century. The ILO
estimates that at least 20.9 million people globally are victims of forced
labour.

The Protocol, adopted by the 103rd session
of the Conference, seeks to address gaps in implementation and to make progress
on preventing trafficking for labour exploitation and protecting and
compensating victims of forced labour.

The European Union (EU) is committed to
promoting human rights and decent work and to eradicating trafficking in human
beings, both internally and in its external relations. Of particular importance
in the context of the Protocol is also the commitment of the EU to the
promotion of the protection of the rights of the child and gender equality, as
women may be particularly vulnerable to some forms of forced labour. Rights at
work are a key pillar of decent work. In ratifying ILO Conventions and related
Protocols, EU Member States send an important signal on the coherence of the
EU’s policy in promoting fundamental principles and rights at work and
improving working conditions worldwide.

In addition, as part of the EU’s strategy
on eradicating trafficking in human beings[1],
the Commission urged EU Member States to ratify all relevant international
instruments, agreements and legal obligations. This will help address
trafficking in human beings in a more effective, coordinated and coherent
manner. Strengthening victims' rights in the EU has also been a strategic
priority of the Commission over the past few years. The horizontal Victims'
Rights Directive will ensure that victims of crime benefit from common minimum
standards of rights during police investigations and court proceedings. The
Protocol should be seen as part of this work.

It is therefore necessary that any legal
impediments at EU level to ratification of the Protocol by EU Member States be
removed at EU level. The Protocol’s substance does not cause any concern in the
light of the existing EU acquis.

The Protocol’s provisions strengthen the
international legal framework by establishing obligations to prevent forced
labour and to provide victims with protection and access to remedies, such as
compensation.

The Protocol, in its Articles 1 and 6,
requires ILO Member States to develop a national policy and plan of action for
the effective and sustained suppression of forced labour and to take measures
to apply the Protocol’s provisions, in consultation with employers’ and
workers’ organisations.

Article 2 of the Protocol sets out the
measures that ILO Member States must take to prevent forced labour, namely:

· 
educating and informing people, especially those
who are particularly vulnerable, and employers;

· 
making efforts to ensure that the coverage and
enforcement of legislation relevant to the prevention of forced labour apply to
all workers and all sectors of the economy and that labour inspection services
are strengthened;

· 
protecting people, especially migrant workers,
from potentially abusive and fraudulent recruitment and placement practices;

· 
supporting due diligence by both the public and
private sectors; and

· 
addressing the root causes heightening the risks
of forced labour.

As regards the victims of forced labour,
Article 3 provides that effective measures are to be taken for their
identification, release, protection, recovery and rehabilitation and other
forms of assistance and support. Article 4 requires ILO Member States to ensure
that all victims have access to remedies, such as compensation, and that
competent authorities are entitled not to prosecute victims for unlawful
activities that they have been compelled to commit.

In addition, Article 5 provides for
international cooperation to prevent and eliminate forced labour and Article 7
deletes the transitional provisions from the Convention.

The Protocol addresses areas of EU law that
are already subject to an advanced degree of regulation.

In its provisions on preventing forced
labour, the Protocol deals with aspects covered by EU social policy, in respect
of which EU law sets minimum rules on working conditions[2].

In its provisions on protection of victims
and access to remedies, the Protocol deals with aspects relating to judicial
cooperation in criminal matters, in respect of which EU law sets minimum
standards on anti-trafficking and victims’ rights[3].

Parts of the Protocol also interplay with
freedom of movement for workers[4] and rules on asylum and immigration[5].

In addition, the Protocol interplays with
rules under the common commercial policy, EU international agreements,
development cooperation and trade instruments that make reference to core
labour standards and the ratification and effective implementation of
fundamental ILO Conventions by third countries and in the EU.

2.           RESULTS OF CONSULTATIONS
WITH THE INTERESTED PARTIES AND IMPACT ASSESSMENTS

Not applicable.

3.           LEGAL ELEMENTS OF THE
PROPOSAL

The Protocol is a binding international
agreement, subject to ratification, and is linked to the Convention. It creates
legal obligations applicable to ratifying States and can only be ratified by
States that have ratified the Convention.

At the ILO, a Protocol is used to partially
revise or add to a Convention, allowing it to adapt to changing conditions, and
making it more relevant. Article 19(4) of the ILO Constitution, on the adoption
and ratification of Conventions, also applies to a Protocol.

In accordance with case law of the Court of
Justice of the European Union (ECJ)[6],
and more specifically on concluding and ratifying an ILO Convention[7], Member States are not able to decide to ratify the Protocol
outside the framework of the EU’s institutions, as parts of the Protocol fall
into areas of EU competence.

However, the EU as such cannot ratify an
ILO Protocol, because under the ILO rules only States can be parties to such
Protocols.

As the subject matter of this Protocol
falls partly within areas of EU competence and partly within those of Member
States, the EU institutions and Member States must take the necessary measures
to cooperate in ratifying the Protocol and in implementing commitments
resulting from that Protocol[8].

Over the last decade, the Council has
already authorised Member States to ratify, in the interests of the EU, five
ILO Conventions, parts of which fell into areas of EU competence[9].

With reference to the Protocol, regulation
is at an advanced stage in the various aspects of anti-trafficking, victims’
protection and labour policies covered by the Protocol, to the point where
Member States are no longer able to act as sovereign in dealing with external parties
in this regard[10]. Article 82(2) and 153 of the Treaty on the Functioning of the
European Union (TFEU) constitute the main legal basis for the relevant EU
legislation, which is more detailed than the general principles established in
the Protocol.

There is no
incompatibility between the provisions of the Protocol and the minimum
requirements in these areas laid down in the EU acquis.

In line with Article 19(8) of the ILO
Constitution, the Protocol sets out minimum standards. The EU acquis
takes the same approach. This means that EU law may be more stringent than the
ILO standards, and vice versa[11].

The proposed Council Decisions will
therefore authorise Member States to ratify, in the interest of the EU, those
parts of the Protocol that fall into areas of EU competence, and recommend them
to make efforts to do so by the end of 2016.

The proposed Council Decisions are based on
the one hand on Article 218(6) TFEU, in conjunction with Article 82(2) TFEU,
which provides the main legal basis for EU legislation on judicial cooperation
in criminal matters relevant to addressing trafficking in human beings and
victims’ rights, and on the other hand on Article 153(2) second subparagraph
TFEU, in conjunction with Article 218(6) TFEU, which provides the main legal basis
for EU legislation on protecting and improving working conditions, relevant to
preventing forced labour.

The Protocol pursues several objectives
which are inseparably linked without one being secondary and indirect in
relation to the other. In particular, the Protocol aims at achieving decent
working conditions on the one hand and protecting the victims of forced or
compulsory work and sanctioning the perpetrators on the other. Therefore, it
must be founded both on Article 82(2) TFEU and 153(1) (a) and (b). A single
decision cannot be adopted on a dual legal basis where the procedures required
by each legal basis are incompatible with each other.[12] Such is the case here in view of the fact that matters related to
judicial cooperation in criminal matters do not bind Denmark, which leads to
diverging voting rights in the Council. Consequently, two separate Council
decisions are required.

As regards the objective of protecting the
victims of forced or compulsory work and sanctioning the perpetrators, Article
82(2) TFEU is the single legal basis that the present proposal should be
founded on. It is true that the Protocol also touches upon the residence status
of victims of forced or compulsory labour to the extent that this is required
to enable these victims to have access to appropriate and effective remedies
(see, in particular, Article 4 of the Protocol). However,
this purpose relating to Article 79 TFEU is merely incidental whilst the
objectives of preventing and combating trafficking in human beings and protecting
victims relating to Article 82(2) TFEU[13]
are identifiable as the predominant purpose and component.

The Commission recalls in that context that
on 14 April 2014, pursuant to Article 218(3) and (4) TFEU, it has submitted to
the Council a Recommendation for a Council Decision
authorising the opening of negotiations and negotiating directives at the 103rd
session of the International Labour Conference on a Protocol to supplement the
forced labour Convention n°29, 1930, of the International Labour Organisation
(COM(2014)238 of 14.4.2014). The Commission further recalls that this
recommendation has been discussed in Council Working Party meetings of 5 May,
14 May and 16 May 2014 and that, despite several attempts to reach an agreeable
solution, it was decided at the Coreper meeting of 23 May 2014 not to pursue
the matter further and, therefore, not to submit the draft decision to the
Council for adoption. As a consequence, the Commission issued the following
declaration which was recorded in Coreper minutes:

"The Commission recalls the
obligation of sincere cooperation between Member States and the Commission in
all circumstances. The absence of these decisions will lead to a situation
which is not in compliance with the Treaties as Member States are legally not
free to make legal commitments on issues of Union competence in international
negotiations without the framework of Union decisions. The Commission will
assess the appropriate measures to take in this regard. The Commission recalls
the need to respect Union competences, to avoid any incompatibility between the
Union acquis and the ILO instruments to be negotiated and for Member States to
act in the interests of the EU at the ILO."

The Commission further notes that, despite
the absence of the adoption of the said draft decision, Member States have
proceeded to the negotiation and adoption, within the ILO, of the Protocol 2014
to the Forced Labour Convention. Given the importance of the Protocol 2014 to
the Forced Labour Convention, the Commission hereby proceeds to propose, on the
basis of Article 218(6) TFEU, that Member States are authorised to ratify the
said Protocol, acting jointly in the interest of the Union. The Commission at
the same time highlights that this proposal cannot in
any way be considered as an acceptation by the Commission of the legality of
the procedure which has led to the adoption of the said Protocol within the
ILO.

2014/0258 (NLE)

Proposal for a

COUNCIL DECISION

authorising Member States to ratify, in
the interest of the European Union, the Protocol of 2014 to the Forced Labour
Convention, 1930, of the International Labour Organisation with regard to
matters related to judicial cooperation in criminal matters

THE COUNCIL OF THE EUROPEAN UNION,

Having regard to the Treaty on the Functioning
of the European Union, and in particular Article 82(2) in
conjunction with Article 218(6)(a)(v) thereof,

Having regard to the proposal from the
European Commission,

Having regard to the consent of the
European Parliament[14],

Whereas:

(1)       The European Union is
promoting the ratification of international labour conventions that have been
classified by the International Labour Organisation as up-to-date, to
contribute to the European Union’s efforts to promote human rights and decent
work for all as well as to eradicate trafficking in human beings both inside
and outside the EU, of which the protection of fundamental principles and
rights at work is a key aspect.

(2)       Parts of the rules under
the Protocol of 2014 to the Forced Labour Convention, 1930, of the
International Labour Organisation (ILO), hereinafter ‘the Protocol’, falls
within the competences of the Union, as laid down in Article 82(2) TFEU.
Furthermore some of the rules of the Protocol are already covered by EU acquis
in the areas of judicial cooperation in criminal matters.[15]

(3)       As a consequence, Member
States may not enter into commitments in relation to these parts outside the
framework of the European Union’s institutions[16].

(4)       Article 19(4) of the ILO
Constitution, on the adoption and ratification of Conventions, similarly
applies to a Protocol, which is a binding international agreement, subject to
ratification and linked to a Convention.

(5)       The European Union cannot
ratify the Protocol, as only States can be parties thereto.

(6)       It is therefore necessary
that Member States are authorised to ratify the Protocol, acting jointly in the
interests of the European Union, for the parts falling under European Union
competence in accordance with Article 82(2) TFEU.

(7)       Article 82(2) TFEU is the
single legal basis that the present decision should be founded on. It is true
that the Protocol also touches upon the residence status of victims of forced
or compulsory labour to the extent that this is required to enable these
victims to have access to appropriate and effective remedies (see, in
particular, Article 4 of the Protocol). However, this purpose relating to
Article 79 TFEU is merely incidental whilst the objectives relating to Article
82(2) TFEU are identifiable as the predominant purpose and component.

(8)       In accordance with
Articles 1 and 2 of the Protocol on the position of Denmark, annexed to the
Treaty on European Union and to the Treaty on the Functioning of the European
Union, Denmark is not bound by this Decision and is not subject to its
application to judicial cooperation in criminal matters.

(9)       The United Kingdom and
Ireland are bound by Directive 2011/36/EU on preventing and combating
trafficking in human beings and protecting its victims and Directive 2012/29/EU
establishing minimum standards on the rights, support and protection of victims
of crime, and are therefore taking part in the adoption of this decision,

(10)     The provisions of the draft
Protocol other than the provisions related to judicial cooperation in criminal
matters will be subject to a Decision adopted in parallel to this Decision.

HAS ADOPTED THIS DECISION:

Article 1

Member States are hereby authorised to
ratify, for the parts falling under the competence conferred upon the European
Union in Article 82(2) TFEU, the Protocol of 2014 to the Forced Labour
Convention, 1930, of the International Labour Organisation.

Article 2

Member States should take the necessary
steps to deposit their instruments of ratification of the Protocol with the
Director-General of the International Labour Office as soon as possible,
preferably by 31 December 2016.

Article 3

This Decision is addressed to the Member
States.

Article 4

In this
Decision, the term "Member State" shall mean any Member State with the exception of Denmark.

Done at Brussels,

For
the Council

The
President

[1]               EU strategy towards the eradication of trafficking in
human beings 2012-2016, COM(2012) 286 of 19.6.2012.

[2]               Including Directive 91/533/EEC on an employer’s
obligation to inform employees on the conditions applicable to the contract or
employment relationship (‘written statement’), Directive 2008/104/EC on
temporary agency work, as well as Directives on health and safety at work,
including the framework Directive 89/391/EEC, the working time Directive
2003/88/EC, the protection of young people at work Directive 94/33/EEC and the
maternity protection Directive 92/85/EEC.

[3]               Directive 2011/36/EU (‘anti-trafficking’); Directive
2012/29/EU (‘victims’ rights’).

[4]               Article 45 TFEU and Regulation 492/2011 on freedom of
movement for workers within the Union.

[5]               Directive 2004/81/EC (‘residence permit for victims’)
and Directive 2009/52/EC (‘employers’ sanctions’). Directive 2008/115/EC
(‘return’), Directive 2011/98/EU (‘single permit’) and Directive 2014/36/EU
(‘seasonal workers’) are also concerned by selected provisions of the Protocol
and the related Recommendation.

[6]               AETR judgment of the ECJ, case 22/70 of 31 March
1971, ECR 1971, 263; see also Article 3(2) TFEU which codified these
principles.

[7]               Opinion 2/91 of the ECJ of 19 March 1993 relating to
the Chemicals Convention No 170, ECR 1993-I, page 1061.

[8]               Opinion 2/91 of the ECJ (ibid), para. 36, 37 and 38.

[9]               Council Decision of 14 April 2005 authorising Member
States to ratify, in the interests of the European Community, the Seafarers’
Identity Documents Convention of the International Labour Organisation
(Convention no 185), OJ L 136/1 of 30.5.2005;            
Council Decision of 7 June 2007 authorising Member States to ratify, in the
interests of the European Community, the Maritime Labour Convention, 2006, of
the International Labour Organisation (OJ L 161/63 of 22.6.2007);  
Council Decision of 7 June 2010 authorising Member States to ratify, in the
interests of the European Union, the Work in Fishing Convention, 2007, of the
International Labour Organisation (Convention No 188), OJ 145/12 of 11.6.2010;              
Council Decision of 28 January 2014 authorising Member States to ratify, in the
interests of the European Union, the Convention concerning Safety in the Use of
Chemicals at Work, 1990, of the International Labour Organisation (Convention
No 170) (2014/52/EU);      
Council Decision of 28 January 2014 authorising Member States to ratify, in the
interests of the European Union, the Convention concerning decent work for
domestic workers, 2011, of the International Labour Organisation (Convention No
189) (2014/51/EU).

[10]             Opinion 2/91 of the ECJ, para 25 and 26.

[11]             Opinion 2/91 of the ECJ, para 18.

[12]             See, most recently, ECJ, judgment of 11 June 2014, Case
C-377/12, para 34.

[13]             See, in particular, Directive 2012/29/EU of the
European Parliament and of the Council of 25 October 2012 establishing minimum
standards on the rights, support and protection of victims of crime, which is
based on Article 82(2) TFEU, and Directive 2011/36/EU of the European Parliament
and of the Council of 5 April 2011 on preventing and combating trafficking in
human beings and protecting its victims, which is based on Articles 82(2) and
83(1) TFEU. Articles 1(1), 1(2), 1(3), 2(a), 2(c), 3, 4(1) and 4(2) of the
Protocol are of direct concern to the matters governed by these Directives.

[14]             OJ C , , p. .

[15]             Several provisions of the Protocol were the subject of
Directive 2011/36/EU on preventing and combating trafficking in human beings
and protecting its victims (‘anti-trafficking’) and Directive 2012/29/EU
establishing minimum standards on the rights, support and protection of victims
of crime (‘victims’ rights’).

[16]             ECJ, Case 22/70 Commission vs Council ("AETR")
[ECR] 1971, 263, paragraph 22, Opinion 2/91 ("ILO"), ECR 1993-I,
1061, paragraph 26 and Case C-45/07, Commission vs Greece [ECR] 2009 I-701,
paragraph 31.