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.

2003/0197 (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 to Prevent, Suppress and Punish Trafficking in Persons, Especially Women and Children, supplementing the United Nations Convention against Transnational Organized Crime

Preamble

The States Parties to this Protocol,

Declaring that effective action to prevent and combat trafficking in persons, especially women and children, requires a comprehensive international approach in the countries of origin, transit and destination that includes measures to prevent such trafficking, to punish the traffickers and to protect the victims of such trafficking, including by protecting their internationally recognized human rights,

Taking into account the fact that, despite the existence of a variety of international instruments containing rules and practical measures to combat the exploitation of persons, especially women and children, there is no universal instrument that addresses all aspects of trafficking in persons,

Concerned that, in the absence of such an instrument, persons who are vulnerable to trafficking will not be sufficiently protected,

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 trafficking in women and children,

Convinced that supplementing the United Nations Convention against Transnational Organized Crime with an international instrument for the prevention, suppression and punishment of trafficking in persons, especially women and children, 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 5 of this Protocol shall be regarded as offences established in accordance with the Convention.

Article 2 Statement of purpose

The purposes of this Protocol are:

(a) To prevent and combat trafficking in persons, paying particular attention to women and children;

(b) To protect and assist the victims of such trafficking, with full respect for their human rights; and

(c) To promote cooperation among States Parties in order to meet those objectives.

Article 3 Use of terms

For the purposes of this Protocol:

(a) "Trafficking in persons" shall mean the recruitment, transportation, transfer, harbouring or receipt of persons, by means of the threat or use of force or other forms of coercion, of abduction, of fraud, of deception, of the abuse of power or of a position of vulnerability or of the giving or receiving of payments or benefits to achieve the consent of a person having control over another person, for the purpose of exploitation. Exploitation shall include, at a minimum, the exploitation of the prostitution of others or other forms of sexual exploitation, forced labour or services, slavery or practices similar to slavery, servitude or the removal of organs;

(b) The consent of a victim of trafficking in persons to the intended exploitation set forth in subparagraph (a) of this article shall be irrelevant where any of the means set forth in subparagraph (a) have been used;

(c) The recruitment, transportation, transfer, harbouring or receipt of a child for the purpose of exploitation shall be considered "trafficking in persons" even if this does not involve any of the means set forth in subparagraph (a) of this article;

(d) "Child" shall mean any person under eighteen years of age.

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 5 of this Protocol, where those offences are transnational in nature and involve an organized criminal group, as well as to the protection of victims of such offences.

Article 5 Criminalization

1. Each State Party shall adopt such legislative and other measures as may be necessary to establish as criminal offences the conduct set forth in article 3 of this Protocol, when committed intentionally.

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 of this article; and

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

II. Protection of victims of trafficking in persons

Article 6 Assistance to and protection of victims of trafficking in persons

1. In appropriate cases and to the extent possible under its domestic law, each State Party shall protect the privacy and identity of victims of trafficking in persons, including, inter alia, by making legal proceedings relating to such trafficking confidential.

2. Each State Party shall ensure that its domestic legal or administrative system contains measures that provide to victims of trafficking in persons, in appropriate cases:

(a) Information on relevant court and administrative proceedings;

(b) Assistance to enable their views and concerns to be presented and considered at appropriate stages of criminal proceedings against offenders, in a manner not prejudicial to the rights of the defence.

3. Each State Party shall consider implementing measures to provide for the physical, psychological and social recovery of victims of trafficking in persons, including, in appropriate cases, in cooperation with non-governmental organizations, other relevant organizations and other elements of civil society, and, in particular, the provision of:

(a) Appropriate housing;

(b) Counselling and information, in particular as regards their legal rights, in a language that the victims of trafficking in persons can understand;

(c) Medical, psychological and material assistance; and

(d) Employment, educational and training opportunities.

4. Each State Party shall take into account, in applying the provisions of this article, the age, gender and special needs of victims of trafficking in persons, in particular the special needs of children, including appropriate housing, education and care.

5. Each State Party shall endeavour to provide for the physical safety of victims of trafficking in persons while they are within its territory.

6. Each State Party shall ensure that its domestic legal system contains measures that offer victims of trafficking in persons the possibility of obtaining compensation for damage suffered.

Article 7 Status of victims of trafficking in persons in receiving States

1. In addition to taking measures pursuant to article 6 of this Protocol, each State Party shall consider adopting legislative or other appropriate measures that permit victims of trafficking in persons to remain in its territory, temporarily or permanently, in appropriate cases.

2. In implementing the provision contained in paragraph 1 of this article, each State Party shall give appropriate consideration to humanitarian and compassionate factors.

Article 8 Repatriation of victims of trafficking in persons

1. The State Party of which a victim of trafficking in persons is a national or in which the person had the right of permanent residence at the time of entry into the territory of the receiving State Party shall facilitate and accept, with due regard for the safety of that person, the return of that person without undue or unreasonable delay.

2. When a State Party returns a victim of trafficking in persons to a State Party of which that person is a national or in which he or she had, at the time of entry into the territory of the receiving State Party, the right of permanent residence, such return shall be with due regard for the safety of that person and for the status of any legal proceedings related to the fact that the person is a victim of trafficking and shall preferably be voluntary.

3. At the request of a receiving State Party, a requested State Party shall, without undue or unreasonable delay, verify whether a person who is a victim of trafficking in persons is its national or had the right of permanent residence in its territory at the time of entry into the territory of the receiving State Party.

4. In order to facilitate the return of a victim of trafficking in persons who is without proper documentation, the State Party of which that person is a national or in which he or she had the right of permanent residence at the time of entry into the territory of the receiving State Party 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. This article shall be without prejudice to any right afforded to victims of trafficking in persons by any domestic law of the receiving State Party.

6. This article shall be without prejudice to any applicable bilateral or multilateral agreement or arrangement that governs, in whole or in part, the return of victims of trafficking in persons.

III. Prevention, cooperation and other measures

Article 9 Prevention of trafficking in persons

1. States Parties shall establish comprehensive policies, programmes and other measures:

(a) To prevent and combat trafficking in persons; and

(b) To protect victims of trafficking in persons, especially women and children, from revictimization.

2. States Parties shall endeavour to undertake measures such as research, information and mass media campaigns and social and economic initiatives to prevent and combat trafficking in persons.

3. Policies, programmes and other measures established in accordance with this article shall, as appropriate, include cooperation with non-governmental organizations, other relevant organizations and other elements of civil society.

4. States Parties shall take or strengthen measures, including through bilateral or multilateral cooperation, to alleviate the factors that make persons, especially women and children, vulnerable to trafficking, such as poverty, underdevelopment and lack of equal opportunity.

5. States Parties shall adopt or strengthen legislative or other measures, such as educational, social or cultural measures, including through bilateral and multilateral cooperation, to discourage the demand that fosters all forms of exploitation of persons, especially women and children, that leads to trafficking.

Article 10 Information exchange and training

1. Law enforcement, immigration or other relevant authorities of States Parties shall, as appropriate, cooperate with one another by exchanging information, in accordance with their domestic law, to enable them to determine:

(a) Whether individuals crossing or attempting to cross an international border with travel documents belonging to other persons or without travel documents are perpetrators or victims of trafficking in persons;

(b) The types of travel document that individuals have used or attempted to use to cross an international border for the purpose of trafficking in persons; and

(c) The means and methods used by organized criminal groups for the purpose of trafficking in persons, including the recruitment and transportation of victims, routes and links between and among individuals and groups engaged in such trafficking, and possible measures for detecting them.

2. States Parties shall provide or strengthen training for law enforcement, immigration and other relevant officials in the prevention of trafficking in persons. The training should focus on methods used in preventing such trafficking, prosecuting the traffickers and protecting the rights of the victims, including protecting the victims from the traffickers. The training should also take into account the need to consider human rights and child- and gender-sensitive issues and it should encourage cooperation with non-governmental organizations, other relevant organizations and other elements of civil society.

3. 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 trafficking in persons.

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 offences established in accordance with article 5 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 trafficking in persons.

IV. Final provisions

Article 14 Saving clause

1. Nothing in this Protocol shall affect the 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 Convention [14] and the 1967 Protocol [15] relating to the Status of Refugees and the principle of non-refoulement as contained therein.

[14] United Nations, Treaty Series, vol. 189, No. 2545

[15] Ibid., vol. 606, No. 8791.

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 victims of trafficking in persons. The interpretation and application of those measures shall be consistent with internationally recognized principles of non-discrimination.

Article 15 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 16 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 17 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 18 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 19 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 20 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.