Forslag til RÅDETS AFGØRELSE om indgåelse på Det Europæiske Fællesskabs vegne af protokollen om forebyggelse, bekæmpelse og retsforfølgning af menneskehandel, særlig handel med kvinder og børn, til supplering af De Forenede Nationers konvention om bekæmpelse af grænseoverskridende organiseret kriminalitet

(forelagt af Kommissionen)

BEGRUNDELSE

1. Baggrund

Ved resolution 53/111 af 9. december 1998 besluttede De Forenede Nationers generalforsamling at nedsætte et mellemstatsligt ad hoc-udvalg med henblik på udarbejdelse af en konvention om bekæmpelse af grænseoverskridende organiseret kriminalitet ("Palermo-konventionen") ledsaget af tre protokoller:

- en protokol om forebyggelse, bekæmpelse og retsforfølgning af menneskehandel, særlig handel med kvinder og børn ("protokollen om menneskehandel")

- en protokol om bekæmpelse af menneskesmugling til lands, ad søvejen og ad luftvejen ("protokollen om menneskesmugling") og

- en protokol om ulovlig fremstilling af og handel med skydevåben og dele, komponenter og ammunition hertil ("protokollen om skydevåben").

Ad hoc-udvalgets første formelle samling fandt sted i Wien i januar 1999.

I juli 1999 forelagde Kommissionen Rådet en henstilling med henblik på Rådets afgørelse om bemyndigelse af Kommissionen til at forhandle om alle de dele af Palermo-konventionen og protokollen om menneskehandel, der er omfattet af Fællesskabets kompetence.

Som reaktion på disse henstillinger gav Rådet Kommissionen bemyndigelse til at varetage forhandlingerne om konventionsudkastet [1] og udkastet til protokollen om menneskehandel [2].

[1] Afgørelse af 2. maj 2000.

[2] Afgørelse af 14. februar 2000.

Kommissionen deltog aktivt i FN's forhandlinger i Wien i tæt samarbejde med EU-medlemsstaterne og G8-landene uden for EU. Forhandlingerne om Palermo-konventionen blev afsluttet i juli 2000, mens forhandlingerne om protokollen om menneskehandel først blev afsluttet i oktober 2000. FN's generalforsamling vedtog disse instrumenter på sin 55. samling den 15. november 2000 [3], hvorefter de blev åbnet for undertegnelse.

[3] FN's generalforsamlings resolution A/RES/55/25.

Den italienske regering var fra den 12. til den 15. december 2000 vært for en politisk konference på højt plan i Palermo, der blev afholdt med det formål at undertegne Palermo-konventionen og protokollen om menneskehandel. Eftersom Kommissionen - i overensstemmelse med de forhandlingsdirektiver, den havde fået udstukket - havde forhandlet sig frem til, at ikke kun stater, men også regionale organisationer for økonomisk integration, f.eks. EF, skulle have mulighed for at undertegne disse instrumenter, gav Rådet bemyndigelse til undertegnelse - på Det Europæiske Fællesskabs vegne - af Palermo-konventionen og protokollen om menneskehandel på denne konference [4]. Den 12. december 2000 undertegnede Det Europæiske Fællesskab formelt disse instrumenter i Palermo sammen med samtlige EU-medlemsstater.

[4] Rådets afgørelse 2001/87/EF, EFT L 30 af 1.2.2001, s. 44.

Palermo-konventionen [træder] [trådte] i kraft den 29. september 2003. Protokollen om menneskehandel er endnu ikke trådt i kraft, da den først skal være ratificeret af mindst fyrre stater. Ifølge konventionens og protokollens afsluttende bestemmelser kan protokollen ikke træde i kraft, før konventionen er trådt i kraft, og for at blive part i protokollen skal en stat eller en regional organisation for økonomisk integration også være part i konventionen. Derfor forelægges der et udkast til Rådets afgørelse om indgåelse på Det Europæiske Fællesskabs vegne af Palermo-konventionen sammen med nærværende dokument.

En regional organisation for økonomisk integration kan ikke ratificere protokollen om menneskehandel, før mindst én af organisationens medlemsstater har ratificeret den. Blandt de femten EU-medlemsstater har Spanien (den 1. marts 2002) og Frankrig (den 29. oktober 2002) allerede deponeret et ratifikationsdokument vedrørende Palermo-konventionen og protokollerne om menneskesmugling og menneskehandel hos De Forenede Nationers generalsekretær. De øvrige medlemsstater har endnu ikke afsluttet ratifikationsprocessen.

2. Udfaldet af forhandlingerne om protokollen om menneskehandel

Kommissionen mener, at de målsætninger, som Rådet definerede i sine forhandlingsdirektiver, er blevet opfyldt til fulde.

Protokollen om menneskehandel indeholder adskillige bestemmelser, der falder ind under Fællesskabets kompetence (EF-traktatens afsnit IV). Disse bestemmelser er generelt i overensstemmelse med Fællesskabets acquis på områderne asyl, indvandring og ydre grænser og helt specifikt i overensstemmelse med Schengen-reglerne som defineret i Rådets afgørelse 1999/435/EF af 20. maj 1999 [5], og en række af bestemmelserne har endda en identisk ordlyd.

[5] EFT L 176 af 10.7.1999, s. 1.

Protokollens bestemmelser om foranstaltninger ved grænserne omfatter en mulighed for at intensivere samarbejdet mellem grænsemyndighederne og at pålægge trafikselskaber sanktioner. Som nævnt i forhandlingsdirektiverne er disse grænsekontrolforanstaltninger af en standard, der lever op til Fællesskabets acquis, særlig artikel 26 og artikel 27, stk. 1, i konventionen om gennemførelse af Schengen-aftalen af 14. juni 1985 [6] og de supplerende bestemmelser hertil [7]. I overensstemmelse med forhandlingsdirektiverne indeholder protokollen også bestemmelser, der forpligter de kontraherende parter til at kontrollere, at deres rejse- og identitetsdokumenter, herunder visa, er sikre og af høj kvalitet, og til at efterprøve legitimiteten og gyldigheden af sådanne dokumenter, når de nærer mistanke om, at dokumenterne benyttes til menneskehandel eller menneskesmugling. Denne forpligtelse er i overensstemmelse med Fællesskabets acquis, særlig Rådets forordning (EF) nr. 1683/95 [8] som ændret ved forordning (EF) nr. 334/2002 [9] om ensartet udformning af visa. Protokollen indeholder også en beskyttelsesklausul, der fastslår, at bestemmelserne i protokollen ikke anfægter staternes forpligtelser i henhold til international ret, herunder Genève-konventionen af 1951 og protokollen af 1967 om flygtninges status og det deri indeholdte "non-refoulement"-princip. Skønt Fællesskabet ikke er part i nævnte konvention, er den bundet af konventionens indhold, navnlig i kraft af EF-traktatens artikel 63, nr. 1.

[6] EFT L 239 af 22.9.2000, s. 19.

[7] Rådets direktiv 2001/51/EF af 28. juni 2001, EFT L 187 af 10.7.2001, s. 45.

[8] EFT L 164 af 14.7.1995, s. 1.

[9] EFT L 53 af 23.2.2002, s. 7.

Endelig er de forpligtelser, som protokollen pålægger staterne med hensyn til at lette og acceptere tilbagetagelse og repatriering af egne statsborgere eller personer med permanent opholdstilladelse på deres områder, i overensstemmelse med indholdet i Fællesskabets igangværende forhandlinger om indgåelse af aftaler med tredjelande om tilbagesendelse af personer, der er rejst ulovligt ind på medlemsstaternes områder eller opholder sig ulovligt på disse områder.

3. Det Forenede Kongeriges, Irlands og Danmarks særlige stilling

De bestemmelser i protokollen om menneskehandel, der er omfattet af Fællesskabets kompetence, falder ind under tredje del, afsnit IV, i traktaten om oprettelse af Det Europæiske Fællesskab.

I henhold til artikel 1 i protokollen om Det Forenede Kongeriges og Irlands stilling, der er knyttet som bilag til traktaten om Den Europæiske Union og til traktaten om oprettelse af Det Europæiske Fællesskab, vil Det Forenede Kongerige og Irland ikke være bundet af disse bestemmelser som medlemmer af Fællesskabet, medmindre de tilslutter sig protokollen på den måde, der er beskrevet i protokollen.

I henhold til artikel 1 og 2 i protokollen om Danmarks stilling, der er knyttet som bilag til traktaten om Den Europæiske Union og til traktaten om oprettelse af Det Europæiske Fællesskab, er Danmark ikke bundet af disse bestemmelser som medlem af Fællesskabet.

4. Konklusioner

Protokollen om menneskehandel er det første globale instrument til bekæmpelse af grænseoverskridende organiseret kriminalitet og menneskehandel. Den definerer nogle meget nyttige rammer for et multilateralt samarbejde og fastsætter en række vigtige minimumsstandarder for alle deltagende stater. Det Europæiske Fællesskab har derfor en betydelig interesse i at sikre, at den træder i kraft hurtigst muligt. Tilendebringelsen af Det Europæiske Fællesskabs ratifikationsproces vil udsende et klart signal om, at Fællesskabet vil arbejde for at nå de mål, der er defineret i dette instrument.

Vedlagte forslag til Rådets afgørelse udgør det lovgivningsmæssige instrument med henblik på Det Europæiske Fællesskabs indgåelse af protokollen om menneskehandel, og retsgrundlaget herfor kan findes i EF-traktatens artikel 62 og 63 sammenholdt med artikel 300. Forslaget indeholder en første artikel om godkendelse af protokollen på Det Europæiske Fællesskabs vegne. Den anden artikel giver Rådets formand bemyndigelse til at udpege den person, der har beføjelse til at deponere godkendelsesinstrumentet på Det Europæiske Fællesskabs vegne. Teksten til protokollen er gengivet i bilag I. Bilag II indeholder en erklæring om udstrækningen af Det Europæiske Fællesskabs kompetence med hensyn til de spørgsmål, som protokollen omhandler. Denne erklæring skal afleveres sammen med godkendelsesinstrumentet, jf. protokollens artikel 16, stk. 3.

Rådet træffer afgørelse med enstemmighed efter høring af Europa-Parlamentet, jf. EF-traktatens artikel 300, stk. 2, første afsnit, sammenholdt med artikel 67, og artikel 300, stk. 3, første afsnit.

Kommissionen foreslår hermed Rådet at vedtage vedlagte afgørelse.

2003/0196 (CNS)

Forslag til RÅDETS AFGØRELSE om indgåelse på Det Europæiske Fællesskabs vegne af protokollen om forebyggelse, bekæmpelse og retsforfølgning af menneskehandel, særlig handel med kvinder og børn, til supplering af De Forenede Nationers konvention om bekæmpelse af grænseoverskridende organiseret kriminalitet

RÅDET FOR DEN EUROPÆISKE UNION HAR -

under henvisning til traktaten om oprettelse af Det Europæiske Fællesskab, særlig artikel 62, nr. 2, og artikel 63, nr. 3, sammenholdt med artikel 300, stk. 2, første afsnit, og artikel 300, stk. 3, første afsnit,

under henvisning til forslag fra Kommissionen [10],

[10] EUT [...] af [...], s [...].

under henvisning til udtalelse fra Europa-Parlamentet [11], og

[11] EUT [...] af [...], s [...].

ud fra følgende betragtninger:

(1) Kommissionen varetog på Fællesskabets vegne og efter bemyndigelse fra Rådet forhandlingerne om de dele af protokollen, der er omfattet af Fællesskabets kompetence.

(2) Rådet bemyndigede Kommissionen til at forhandle om Fællesskabets tiltrædelse af den pågældende internationale aftale.

(3) Efter afslutningen af forhandlingerne blev de instrumenter, man havde forhandlet sig frem til, undertegnet af Fællesskabet den 12. december 2000 i overensstemmelse med Rådets afgørelse 2001/87/EF af 8. december 2000 [12].

[12] EFT L 30 af 1.2.2001, s. 44.

(4) Nogle medlemsstater er allerede parter i protokollen, mens ratifikationsprocessen er i gang i andre medlemsstater.

(5) De bestemmelser i protokollen, der er omfattet af Fællesskabets kompetence, falder ind under tredje del, afsnit IV, i traktaten om oprettelse af Det Europæiske Fællesskab.

(6) I henhold til artikel 1 [artikel 3] i protokollen om Det Forenede Kongeriges og Irlands stilling, der er knyttet som bilag til traktaten om Den Europæiske Union og til traktaten om oprettelse af Det Europæiske Fællesskab, deltager Det Forenede Kongerige og Irland [ikke] i vedtagelsen af denne afgørelse og vil derfor [ikke] i deres egenskab af medlemmer af Fællesskabet være bundet af de af protokollens bestemmelser, der er omfattet af Fællesskabets kompetence.

(7) I henhold til artikel 1 og 2 i protokollen om Danmarks stilling, der er knyttet som bilag til traktaten om Den Europæiske Union og til traktaten om oprettelse af Det Europæiske Fællesskab, vil Danmark ikke i sin egenskab af medlem af Fællesskabet være bundet af de af protokollens bestemmelser, der er omfattet af Fællesskabets kompetence.

(8) Indgåelsen af konventionen på Det Europæiske Fællesskabs vegne blev godkendt ved Rådets afgørelse .../.../EF af ... [13], hvilket er en forudsætning for, at Det Europæiske Fællesskab kan blive part i protokollen, jf. konventionens artikel 37, stk. 2.

[13] EUT [...] af [...], s [...].

(9) De øvrige betingelser, der gør det muligt for Fællesskabet at deponere godkendelsesinstrumentet som omhandlet i konventionens artikel 36, stk. 3, og i protokollens artikel 16, stk. 3, er opfyldt.

(10) Protokollen bør godkendes med henblik på at give Fællesskabet mulighed for at blive part i protokollen inden for rammerne af dets kompetence.

(11) Fællesskabet skal, når det deponerer sit godkendelsesinstrument, også deponere en erklæring om udstrækningen af Det Europæiske Fællesskabs kompetence med hensyn til de spørgsmål, protokollen omhandler, jf. protokollens artikel 16, stk. 3 -

TRUFFET FØLGENDE AFGØRELSE:

Artikel 1

Protokollen om forebyggelse, bekæmpelse og retsforfølgning af menneskehandel, særlig handel med kvinder og børn, til supplering af De Forenede Nationers konvention om bekæmpelse af grænseoverskridende organiseret kriminalitet, der er gengivet i bilag I, godkendes hermed på Det Europæiske Fællesskabs vegne.

Fællesskabets instrument til formel bekræftelse ledsages af en kompetenceerklæring, jf. konventionens artikel 16, stk. 3. Erklæringen er gengivet i bilag II.

Artikel 2

Rådets formand bemyndiges til at udpege den person, der kan deponere det for Fællesskabet bindende instrument til formel bekræftelse.

Denne afgørelse offentliggøres i Den Europæiske Unions Tidende.

Udfærdiget i Bruxelles, den

På Rådets vegne,

Formand

BILAG

BILAG I indeholder teksten til protokollen.

BILAG II

ERKLÆRING OM UDSTRÆKNINGEN AF DET EUROPÆISKE FÆLLESSKABS KOMPETENCE MED HENSYN TIL DE SPØRGSMÅL, DER ER OMHANDLET I PROTOKOLLEN OM FOREBYGGELSE, BEKÆMPELSE OG RETSFORFØLGNING AF MENNESKEHANDEL, SÆRLIG HANDEL MED KVINDER OG BØRN, TIL SUPPLERING AF DE FORENEDE NATIONERS KONVENTION OM BEKÆMPELSE AF GRÆNSEOVERSKRIDENDE ORGANISERET KRIMINALITET

I henhold til protokollens artikel 16, stk. 3, skal tiltrædelsesinstrumentet fra en regional organisation for økonomisk integration indeholde en erklæring om udstrækningen af organisationens kompetence med hensyn til de spørgsmål, konventionen omhandler, dvs. den kompetence, som organisationen har fået overdraget fra sine medlemsstater, der er parter i konventionen.

Protokollen om forebyggelse, bekæmpelse og retsforfølgning af menneskehandel, særlig handel med kvinder og børn, finder, for så vidt angår de beføjelser, der er blevet overdraget til Det Europæiske Fællesskab, anvendelse på de områder, hvor traktaten om oprettelse af Det Europæiske Fællesskab finder anvendelse, og på de betingelser, der er fastsat i nævnte traktat, særlig i artikel 299 og i protokollerne knyttet som bilag til traktaten.

I henhold til artikel 1 [artikel 3] i protokollen om Det Forenede Kongeriges og Irlands stilling, der er knyttet som bilag til traktaten om Den Europæiske Union og til traktaten om oprettelse af Det Europæiske Fællesskab, vil Det Forenede Kongerige og Irland [ikke] i deres egenskab af medlemmer af Fællesskabet være bundet af de af protokollens bestemmelser, der er omfattet af Fællesskabets kompetence. Denne erklæring gælder derfor [ikke] for Det Forenede Kongeriges og Irlands territorier.

I henhold til artikel 1 og 2 i protokollen om Danmarks stilling, der er knyttet som bilag til traktaten om Den Europæiske Union og til traktaten om oprettelse af Det Europæiske Fællesskab, vil Danmark ikke i sin egenskab af medlem af Fællesskabet være bundet af de af protokollens bestemmelser, der er omfattet af Fællesskabets kompetence.

I henhold til artikel 299 gælder denne erklæring heller ikke for de af medlemsstaternes territorier, hvor nævnte traktat ikke finder anvendelse, og den er uden betydning for de love eller beslutninger, som de pågældende medlemsstater måtte vedtage i henhold til protokollen på disse territoriers vegne eller i deres interesse. I overensstemmelse med ovennævnte bestemmelse indeholder denne erklæring en angivelse af den kompetence, som medlemsstaterne i henhold til traktaterne har overdraget til Fællesskabet med hensyn til de spørgsmål, protokollen omhandler. Udstrækningen og udøvelsen af denne kompetence udvikler sig ifølge sagens natur til stadighed, og Fællesskabet vil om nødvendigt supplere eller ændre denne erklæring i overensstemmelse med protokollens artikel 16, stk. 3.

Fællesskabet påpeger, at det har kompetence til at vedtage foranstaltninger vedrørende passage af medlemsstaternes ydre grænser, hvori der fastlægges standarder og procedurer, som medlemsstaterne skal følge ved udøvelse af personkontrol ved disse grænser, og visumregler for forventet ophold i højst tre måneder. Fællesskabet har også kompetence til at vedtage foranstaltninger vedrørende indvandringspolitikken, herunder betingelserne for indrejse og ophold og foranstaltninger til at imødegå ulovlig indvandring og ulovligt ophold, herunder repatriering af personer med ulovligt ophold. Fællesskabets lovgivning på dette område består af Schengen-reglerne angående de ydre grænser og rejse- og identitetsdokumenter, således som de er blevet integreret i Det Europæiske Fællesskab, og således som de måtte udvikle sig fremover. På disse områder er det således Fællesskabets opgave at vedtage de relevante bestemmelser og, inden for rammerne af dets kompetence, at indgå eksterne aftaler med tredjelande eller kompetente internationale organisationer.

Protocol against the Smuggling of Migrants by Land, Sea and Air, supplementing the United Nations Convention against Transnational Organized Crime

Preamble

The States Parties to this Protocol,

Declaring that effective action to prevent and combat the smuggling of migrants by land, sea and air requires a comprehensive international approach, including cooperation, the exchange of information and other appropriate measures, including socio-economic measures, at the national, regional and international levels,

Recalling General Assembly resolution 54/212 of 22 December 1999, in which the Assembly urged Member States and the United Nations system to strengthen international cooperation in the area of international migration and development in order to address the root causes of migration, especially those related to poverty, and to maximize the benefits of international migration to those concerned, and encouraged, where relevant, interregional, regional and subregional mechanisms to continue to address the question of migration and development,

Convinced of the need to provide migrants with humane treatment and full protection of their rights,

Taking into account the fact that, despite work undertaken in other international forums, there is no universal instrument that addresses all aspects of smuggling of migrants and other related issues,

Concerned at the significant increase in the activities of organized criminal groups in smuggling of migrants and other related criminal activities set forth in this Protocol, which bring great harm to the States concerned,

Also concerned that the smuggling of migrants can endanger the lives or security of the migrants involved,

Recalling General Assembly resolution 53/111 of 9 December 1998, in which the Assembly decided to establish an open-ended intergovernmental ad hoc committee for the purpose of elaborating a comprehensive international convention against transnational organized crime and of discussing the elaboration of, inter alia, an international instrument addressing illegal trafficking in and transporting of migrants, including by sea,

Convinced that supplementing the United Nations Convention against Transnational Organized Crime with an international instrument against the smuggling of migrants by land, sea and air will be useful in preventing and combating that crime,

Have agreed as follows:

I. General provisions

Article 1 Relation with the United Nations Convention against Transnational Organized Crime

1. This Protocol supplements the United Nations Convention against Transnational Organized Crime. It shall be interpreted together with the Convention.

2. The provisions of the Convention shall apply, mutatis mutandis, to this Protocol unless otherwise provided herein.

3. The offences established in accordance with article 6 of this Protocol shall be regarded as offences established in accordance with the Convention.

Article 2 Statement of purpose

The purpose of this Protocol is to prevent and combat the smuggling of migrants, as well as to promote cooperation among States Parties to that end, while protecting the rights of smuggled migrants.

Article 3 Use of terms

For the purposes of this Protocol:

(a) "Smuggling of migrants" shall mean the procurement, in order to obtain, directly or indirectly, a financial or other material benefit, of the illegal entry of a person into a State Party of which the person is not a national or a permanent resident;

(b) "Illegal entry" shall mean crossing borders without complying with the necessary requirements for legal entry into the receiving State;

(c) "Fraudulent travel or identity document" shall mean any travel or identity document:

(i) That has been falsely made or altered in some material way by anyone other than a person or agency lawfully authorized to make or issue the travel or identity document on behalf of a State; or

(ii) That has been improperly issued or obtained through misrepresentation, corruption or duress or in any other unlawful manner; or

(iii) That is being used by a person other than the rightful holder;

(d) "Vessel" shall mean any type of water craft, including non-displacement craft and seaplanes, used or capable of being used as a means of transportation on water, except a warship, naval auxiliary or other vessel owned or operated by a Government and used, for the time being, only on government non-commercial service.

Article 4 Scope of application

This Protocol shall apply, except as otherwise stated herein, to the prevention, investigation and prosecution of the offences established in accordance with article 6 of this Protocol, where the offences are transnational in nature and involve an organized criminal group, as well as to the protection of the rights of persons who have been the object of such offences.

Article 5 Criminal liability of migrants

Migrants shall not become liable to criminal prosecution under this Protocol for the fact of having been the object of conduct set forth in article 6 of this Protocol.

Article 6 Criminalization

1. Each State Party shall adopt such legislative and other measures as may be necessary to establish as criminal offences, when committed intentionally and in order to obtain, directly or indirectly, a financial or other material benefit:

(a) The smuggling of migrants;

(b) When committed for the purpose of enabling the smuggling of migrants:

(i) Producing a fraudulent travel or identity document;

(ii) Procuring, providing or possessing such a document;

(c) Enabling a person who is not a national or a permanent resident to remain in the State concerned without complying with the necessary requirements for legally remaining in the State by the means mentioned in subparagraph (b) of this paragraph or any other illegal means.

2. Each State Party shall also adopt such legislative and other measures as may be necessary to establish as criminal offences:

(a) Subject to the basic concepts of its legal system, attempting to commit an offence established in accordance with paragraph 1 of this article;

(b) Participating as an accomplice in an offence established in accordance with paragraph 1 (a), (b) (i) or (c) of this article and, subject to the basic concepts of its legal system, participating as an accomplice in an offence established in accordance with paragraph 1 (b) (ii) of this article;

(c) Organizing or directing other persons to commit an offence established in accordance with paragraph 1 of this article.

3. Each State Party shall adopt such legislative and other measures as may be necessary to establish as aggravating circumstances to the offences established in accordance with paragraph 1 (a), (b) (i) and (c) of this article and, subject to the basic concepts of its legal system, to the offences established in accordance with paragraph 2 (b) and (c) of this article, circumstances:

(a) That endanger, or are likely to endanger, the lives or safety of the migrants concerned; or

(b) That entail inhuman or degrading treatment, including for exploitation, of such migrants.

4. Nothing in this Protocol shall prevent a State Party from taking measures against a person whose conduct constitutes an offence under its domestic law.

II. Smuggling of migrants by sea

Article 7 Cooperation

States Parties shall cooperate to the fullest extent possible to prevent and suppress the smuggling of migrants by sea, in accordance with the international law of the sea.

Article 8 Measures against the smuggling of migrants by sea

1. A State Party that has reasonable grounds to suspect that a vessel that is flying its flag or claiming its registry, that is without nationality or that, though flying a foreign flag or refusing to show a flag, is in reality of the nationality of the State Party concerned is engaged in the smuggling of migrants by sea may request the assistance of other States Parties in suppressing the use of the vessel for that purpose. The States Parties so requested shall render such assistance to the extent possible within their means.

2. A State Party that has reasonable grounds to suspect that a vessel exercising freedom of navigation in accordance with international law and flying the flag or displaying the marks of registry of another State Party is engaged in the smuggling of migrants by sea may so notify the flag State, request confirmation of registry and, if confirmed, request authorization from the flag State to take appropriate measures with regard to that vessel. The flag State may authorize the requesting State, inter alia:

(a) To board the vessel;

(b) To search the vessel; and

(c) If evidence is found that the vessel is engaged in the smuggling of migrants by sea, to take appropriate measures with respect to the vessel and persons and cargo on board, as authorized by the flag State.

3. A State Party that has taken any measure in accordance with paragraph 2 of this article shall promptly inform the flag State concerned of the results of that measure.

4. A State Party shall respond expeditiously to a request from another State Party to determine whether a vessel that is claiming its registry or flying its flag is entitled to do so and to a request for authorization made in accordance with paragraph 2 of this article.

5. A flag State may, consistent with article 7 of this Protocol, subject its authorization to conditions to be agreed by it and the requesting State, including conditions relating to responsibility and the extent of effective measures to be taken. A State Party shall take no additional measures without the express authorization of the flag State, except those necessary to relieve imminent danger to the lives of persons or those which derive from relevant bilateral or multilateral agreements.

6. Each State Party shall designate an authority or, where necessary, authorities to receive and respond to requests for assistance, for confirmation of registry or of the right of a vessel to fly its flag and for authorization to take appropriate measures. Such designation shall be notified through the Secretary-General to all other States Parties within one month of the designation.

7. A State Party that has reasonable grounds to suspect that a vessel is engaged in the smuggling of migrants by sea and is without nationality or may be assimilated to a vessel without nationality may board and search the vessel. If evidence confirming the suspicion is found, that State Party shall take appropriate measures in accordance with relevant domestic and international law.

Article 9 Safeguard clauses

1. Where a State Party takes measures against a vessel in accordance with article 8 of this Protocol, it shall:

(a) Ensure the safety and humane treatment of the persons on board;

(b) Take due account of the need not to endanger the security of the vessel or its cargo;

(c) Take due account of the need not to prejudice the commercial or legal interests of the flag State or any other interested State;

(d) Ensure, within available means, that any measure taken with regard to the vessel is environmentally sound.

2. Where the grounds for measures taken pursuant to article 8 of this Protocol prove to be unfounded, the vessel shall be compensated for any loss or damage that may have been sustained, provided that the vessel has not committed any act justifying the measures taken.

3. Any measure taken, adopted or implemented in accordance with this chapter shall take due account of the need not to interfere with or to affect:

(a) The rights and obligations and the exercise of jurisdiction of coastal States in accordance with the international law of the sea; or

(b) The authority of the flag State to exercise jurisdiction and control in administrative, technical and social matters involving the vessel.

4. Any measure taken at sea pursuant to this chapter shall be carried out only by warships or military aircraft, or by other ships or aircraft clearly marked and identifiable as being on government service and authorized to that effect.

III. Prevention, cooperation and other measures

Article 10 Information

1. Without prejudice to articles 27 and 28 of the Convention, States Parties, in particular those with common borders or located on routes along which migrants are smuggled, shall, for the purpose of achieving the objectives of this Protocol, exchange among themselves, consistent with their respective domestic legal and administrative systems, relevant information on matters such as:

(a) Embarkation and destination points, as well as routes, carriers and means of transportation, known to be or suspected of being used by an organized criminal group engaged in conduct set forth in article 6 of this Protocol;

(b) The identity and methods of organizations or organized criminal groups known to be or suspected of being engaged in conduct set forth in article 6 of this Protocol;

(c) The authenticity and proper form of travel documents issued by a State Party and the theft or related misuse of blank travel or identity documents;

(d) Means and methods of concealment and transportation of persons, the unlawful alteration, reproduction or acquisition or other misuse of travel or identity documents used in conduct set forth in article 6 of this Protocol and ways of detecting them;

(e) Legislative experiences and practices and measures to prevent and combat the conduct set forth in article 6 of this Protocol; and

(f) Scientific and technological information useful to law enforcement, so as to enhance each other's ability to prevent, detect and investigate the conduct set forth in article 6 of this Protocol and to prosecute those involved.

2. A State Party that receives information shall comply with any request by the State Party that transmitted the information that places restrictions on its use.

Article 11 Border measures

1. Without prejudice to international commitments in relation to the free movement of people, States Parties shall strengthen, to the extent possible, such border controls as may be necessary to prevent and detect the smuggling of migrants.

2. Each State Party shall adopt legislative or other appropriate measures to prevent, to the extent possible, means of transport operated by commercial carriers from being used in the commission of the offence established in accordance with article 6, paragraph 1 (a), of this Protocol.

3. Where appropriate, and without prejudice to applicable international conventions, such measures shall include establishing the obligation of commercial carriers, including any transportation company or the owner or operator of any means of transport, to ascertain that all passengers are in possession of the travel documents required for entry into the receiving State.

4. Each State Party shall take the necessary measures, in accordance with its domestic law, to provide for sanctions in cases of violation of the obligation set forth in paragraph 3 of this article.

5. Each State Party shall consider taking measures that permit, in accordance with its domestic law, the denial of entry or revocation of visas of persons implicated in the commission of offences established in accordance with this Protocol.

6. Without prejudice to article 27 of the Convention, States Parties shall consider strengthening cooperation among border control agencies by, inter alia, establishing and maintaining direct channels of communication.

Article 12 Security and control of documents

Each State Party shall take such measures as may be necessary, within available means:

(a) To ensure that travel or identity documents issued by it are of such quality that they cannot easily be misused and cannot readily be falsified or unlawfully altered, replicated or issued; and

(b) To ensure the integrity and security of travel or identity documents issued by or on behalf of the State Party and to prevent their unlawful creation, issuance and use.

Article 13 Legitimacy and validity of documents

At the request of another State Party, a State Party shall, in accordance with its domestic law, verify within a reasonable time the legitimacy and validity of travel or identity documents issued or purported to have been issued in its name and suspected of being used for purposes of conduct set forth in article 6 of this Protocol.

Article 14 Training and technical cooperation

1. States Parties shall provide or strengthen specialized training for immigration and other relevant officials in preventing the conduct set forth in article 6 of this Protocol and in the humane treatment of migrants who have been the object of such conduct, while respecting their rights as set forth in this Protocol.

2. States Parties shall cooperate with each other and with competent international organizations, non-governmental organizations, other relevant organizations and other elements of civil society as appropriate to ensure that there is adequate personnel training in their territories to prevent, combat and eradicate the conduct set forth in article 6 of this Protocol and to protect the rights of migrants who have been the object of such conduct. Such training shall include:

(a) Improving the security and quality of travel documents;

(b) Recognizing and detecting fraudulent travel or identity documents;

(c) Gathering criminal intelligence, relating in particular to the identification of organized criminal groups known to be or suspected of being engaged in conduct set forth in article 6 of this Protocol, the methods used to transport smuggled migrants, the misuse of travel or identity documents for purposes of conduct set forth in article 6 and the means of concealment used in the smuggling of migrants;

(d) Improving procedures for detecting smuggled persons at conventional and non-conventional points of entry and exit; and

(e) The humane treatment of migrants and the protection of their rights as set forth in this Protocol.

3. States Parties with relevant expertise shall consider providing technical assistance to States that are frequently countries of origin or transit for persons who have been the object of conduct set forth in article 6 of this Protocol. States Parties shall make every effort to provide the necessary resources, such as vehicles, computer systems and document readers, to combat the conduct set forth in article 6.

Article 15 Other prevention measures

1. Each State Party shall take measures to ensure that it provides or strengthens information programmes to increase public awareness of the fact that the conduct set forth in article 6 of this Protocol is a criminal activity frequently perpetrated by organized criminal groups for profit and that it poses serious risks to the migrants concerned.

2. In accordance with article 31 of the Convention, States Parties shall cooperate in the field of public information for the purpose of preventing potential migrants from falling victim to organized criminal groups.

3. Each State Party shall promote or strengthen, as appropriate, development programmes and cooperation at the national, regional and international levels, taking into account the socio-economic realities of migration and paying special attention to economically and socially depressed areas, in order to combat the root socio-economic causes of the smuggling of migrants, such as poverty and underdevelopment.

Article 16 Protection and assistance measures

1. In implementing this Protocol, each State Party shall take, consistent with its obligations under international law, all appropriate measures, including legislation if necessary, to preserve and protect the rights of persons who have been the object of conduct set forth in article 6 of this Protocol as accorded under applicable international law, in particular the right to life and the right not to be subjected to torture or other cruel, inhuman or degrading treatment or punishment.

2. Each State Party shall take appropriate measures to afford migrants appropriate protection against violence that may be inflicted upon them, whether by individuals or groups, by reason of being the object of conduct set forth in article 6 of this Protocol.

3. Each State Party shall afford appropriate assistance to migrants whose lives or safety are endangered by reason of being the object of conduct set forth in article 6 of this Protocol.

4. In applying the provisions of this article, States Parties shall take into account the special needs of women and children.

5. In the case of the detention of a person who has been the object of conduct set forth in article 6 of this Protocol, each State Party shall comply with its obligations under the Vienna Convention on Consular Relations, [14] where applicable, including that of informing the person concerned without delay about the provisions concerning notification to and communication with consular officers.

[14] Ibid., vol. 596, Nos. 8638-8640.

Article 17 Agreements and arrangements

States Parties shall consider the conclusion of bilateral or regional agreements or operational arrangements or understandings aimed at:

(a) Establishing the most appropriate and effective measures to prevent and combat the conduct set forth in article 6 of this Protocol; or

(b) Enhancing the provisions of this Protocol among themselves.

Article 18 Return of smuggled migrants

1. Each State Party agrees to facilitate and accept, without undue or unreasonable delay, the return of a person who has been the object of conduct set forth in article 6 of this Protocol and who is its national or who has the right of permanent residence in its territory at the time of return.

2. Each State Party shall consider the possibility of facilitating and accepting the return of a person who has been the object of conduct set forth in article 6 of this Protocol and who had the right of permanent residence in its territory at the time of entry into the receiving State in accordance with its domestic law.

3. At the request of the receiving State Party, a requested State Party shall, without undue or unreasonable delay, verify whether a person who has been the object of conduct set forth in article 6 of this Protocol is its national or has the right of permanent residence in its territory.

4. In order to facilitate the return of a person who has been the object of conduct set forth in article 6 of this Protocol and is without proper documentation, the State Party of which that person is a national or in which he or she has the right of permanent residence shall agree to issue, at the request of the receiving State Party, such travel documents or other authorization as may be necessary to enable the person to travel to and re-enter its territory.

5. Each State Party involved with the return of a person who has been the object of conduct set forth in article 6 of this Protocol shall take all appropriate measures to carry out the return in an orderly manner and with due regard for the safety and dignity of the person.

6. States Parties may cooperate with relevant international organizations in the implementation of this article.

7. This article shall be without prejudice to any right afforded to persons who have been the object of conduct set forth in article 6 of this Protocol by any domestic law of the receiving State Party.

8. This article shall not affect the obligations entered into under any other applicable treaty, bilateral or multilateral, or any other applicable operational agreement or arrangement that governs, in whole or in part, the return of persons who have been the object of conduct set forth in article 6 of this Protocol.

IV. Final provisions

Article 19 Saving clause

1. Nothing in this Protocol shall affect the other rights, obligations and responsibilities of States and individuals under international law, including international humanitarian law and international human rights law and, in particular, where applicable, the 1951 Convention3 and the 1967 Protocol4 relating to the Status of Refugees and the principle of non-refoulement as contained therein.

2. The measures set forth in this Protocol shall be interpreted and applied in a way that is not discriminatory to persons on the ground that they are the object of conduct set forth in article 6 of this Protocol. The interpretation and application of those measures shall be consistent with internationally recognized principles of nondiscrimination.

Article 20 Settlement of disputes

l. States Parties shall endeavour to settle disputes concerning the interpretation or application of this Protocol through negotiation.

2. Any dispute between two or more States Parties concerning the interpretation or application of this Protocol that cannot be settled through negotiation within a reasonable time shall, at the request of one of those States Parties, be submitted to arbitration. If, six months after the date of the request for arbitration, those States Parties are unable to agree on the organization of the arbitration, any one of those States Parties may refer the dispute to the International Court of Justice by request in accordance with the Statute of the Court.

3. Each State Party may, at the time of signature, ratification, acceptance or approval of or accession to this Protocol, declare that it does not consider itself bound by paragraph 2 of this article. The other States Parties shall not be bound by paragraph 2 of this article with respect to any State Party that has made such a reservation.

4. Any State Party that has made a reservation in accordance with paragraph 3 of this article may at any time withdraw that reservation by notification to the Secretary-General of the United Nations.

Article 21 Signature, ratification, acceptance, approval and accession

1. This Protocol shall be open to all States for signature from 12 to 15 December 2000 in Palermo, Italy, and thereafter at United Nations Headquarters in New York until 12 December 2002.

2. This Protocol shall also be open for signature by regional economic integration organizations provided that at least one member State of such organization has signed this Protocol in accordance with paragraph 1 of this article.

3. This Protocol is subject to ratification, acceptance or approval. Instruments of ratification, acceptance or approval shall be deposited with the Secretary-General of the United Nations. A regional economic integration organization may deposit its instrument of ratification, acceptance or approval if at least one of its member States has done likewise. In that instrument of ratification, acceptance or approval, such organization shall declare the extent of its competence with respect to the matters governed by this Protocol. Such organization shall also inform the depositary of any relevant modification in the extent of its competence.

4. This Protocol is open for accession by any State or any regional economic integration organization of which at least one member State is a Party to this Protocol. Instruments of accession shall be deposited with the Secretary-General of the United Nations. At the time of its accession, a regional economic integration organization shall declare the extent of its competence with respect to matters governed by this Protocol. Such organization shall also inform the depositary of any relevant modification in the extent of its competence.

Article 22 Entry into force

1. This Protocol shall enter into force on the ninetieth day after the date of deposit of the fortieth instrument of ratification, acceptance, approval or accession, except that it shall not enter into force before the entry into force of the Convention. For the purpose of this paragraph, any instrument deposited by a regional economic integration organization shall not be counted as additional to those deposited by member States of such organization.

2. For each State or regional economic integration organization ratifying, accepting, approving or acceding to this Protocol after the deposit of the fortieth instrument of such action, this Protocol shall enter into force on the thirtieth day after the date of deposit by such State or organization of the relevant instrument or on the date this Protocol enters into force pursuant to paragraph 1 of this article, whichever is the later.

Article 23 Amendment

1. After the expiry of five years from the entry into force of this Protocol, a State Party to the Protocol may propose an amendment and file it with the Secretary-General of the United Nations, who shall thereupon communicate the proposed amendment to the States Parties and to the Conference of the Parties to the Convention for the purpose of considering and deciding on the proposal. The States Parties to this Protocol meeting at the Conference of the Parties shall make every effort to achieve consensus on each amendment. If all efforts at consensus have been exhausted and no agreement has been reached, the amendment shall, as a last resort, require for its adoption a two-thirds majority vote of the States Parties to this Protocol present and voting at the meeting of the Conference of the Parties.

2. Regional economic integration organizations, in matters within their competence, shall exercise their right to vote under this article with a number of votes equal to the number of their member States that are Parties to this Protocol. Such organizations shall not exercise their right to vote if their member States exercise theirs and vice versa.

3. An amendment adopted in accordance with paragraph 1 of this article is subject to ratification, acceptance or approval by States Parties.

4. An amendment adopted in accordance with paragraph 1 of this article shall enter into force in respect of a State Party ninety days after the date of the deposit with the Secretary-General of the United Nations of an instrument of ratification, acceptance or approval of such amendment.

5. When an amendment enters into force, it shall be binding on those States Parties which have expressed their consent to be bound by it. Other States Parties shall still be bound by the provisions of this Protocol and any earlier amendments that they have ratified, accepted or approved.

Article 24 Denunciation

1. A State Party may denounce this Protocol by written notification to the Secretary-General of the United Nations. Such denunciation shall become effective one year after the date of receipt of the notification by the Secretary-General.

2. A regional economic integration organization shall cease to be a Party to this Protocol when all of its member States have denounced it.

Article 25 Depositary and languages

1. The Secretary-General of the United Nations is designated depositary of this Protocol.

2. The original of this Protocol, of which the Arabic, Chinese, English, French, Russian and Spanish texts are equally authentic, shall be deposited with the Secretary-General of the United Nations.

IN WITNESS WHEREOF, the undersigned plenipotentiaries, being duly authorized thereto by their respective Governments, have signed this Protocol.