fHWS* 
COMMISSION OF THE EUROPEAN COMMUNITIES 
Brussels, 20.11.1996 
COM(96) 567 final 
COMMUNICATION FROM THE COMMISSION 
TO THE COUNCIL AND THE EUROPEAN PARLIAMENT 
ON TRAFFICKING IN 
WOMEN FOR THE PURPOSE OF SEXUAL 
EXPLOITATION 

PART I: GENERAL FRAMEWORK 
CONTEXT 3 
SCOPE 3 
BACKGROUND 4 
PART II: DEVELOPMENT OF AN INTEGRATED MULTIDISCIPLINARY 
POLICY 
6 
II. 1 : INTERDISCIPLINARY PROPOSALS 
7 
II. 1. a: The "STOP" Programme against trafficking in human 
beings 7 
II. 1. b: Need for improved data and research 7 
IT. 1. c: Cooperation and Coordination 8 
II. 1. d: Information campaigns 10 
IT. 1. e: Training 11 
II. 2 : MIGRATION 11 
IT. 2. a: Migration Training 
11 
II. 2. b: Temporary Permit of Stay 12 
II. 3 : JUDICIAL COOPERATION 12 
IT. 3. a: Existing International Instruments 13 
IT. 3. b: National Legislation 13 
II. 3. c: New European Union Legal Instrument 13 
IT. 3. d: Sanctions 14 
II. 4 : POLICE COOPERATION 15 
IT. 4 a: Cooperation and Communication 15 
IT. 4. b: Law Enforcement Training 16 
IT. 4. c: Third Countries 17 
II. 5 : SOCIAL AND EMPLOYMENT DIMENSION 
18 
II. 5. a: Information 18 
IT. 5. b: Social Programmes 18 
II. 5. c: Reception and Rehabilitation Centres 19 
II 5. d: Employment Conditions 20 
II . 5. e: Training in the Social Field 20 
PART III: COOPERATION WITH THIRD COUNTRIES 
21 
III. 1 : CENTRAL AND EASTERN EUROPE AND THE NIS 22 
III. 2 : AFRICA, CARIBBEAN AND PACIFIC COUNTRIES (ACP) 23 
III. 3 : ALA/MED COUNTRIES 24 
PART IV: CONCLUSION 
26 
ANNEX 1: Complete List of Action Points in Communication 27 
ANNEX 2: Excerpts of main texts on trafficking 35 
ANNEX 3: Detailed bibliography on Trafficking in Women in Europe 43 
PART I: GENERAL FRAMEWORK 
CONTEXT 
Trafficking in women for the purpose of sexual exploitation is an increasing type of 
international organised crime generating high profits with relatively low forms of risk for 
traffickers. Thousands of women are being trafficked from developing countries and Central 
and Eastern Europe to Western Europe and brought into conditions in which their basic 
human rights are violated. Only a minority of cases are reported and convictions of traffickers 
are rare. 
Public concern and international awareness have increased through the work of non­
governmental organisations (NGOs), the United Nations and the Council of Europe. The 
Justice and Home Affairs (JHA) Council of the European Union agreed a set of 
recommendations in November 1993 to the Member States to counter trafficking1, and in 
addition to a number of resolutions, the European Parliament produced a unanimous report 
and resolution on trafficking in human beings in December 19952. In a major conference in 
Vienna in June 1996, the European Commission took the initiative of bringing together for 
the first time, experts, NGOs, academics, law enforcement and immigration officials, and 
government and parliamentary representatives. The conference identified a number of specific 
areas for action, and adopted a set of recommendations, including development at EU level, 
of a comprehensive action plan for a structured approach. 
The purpose of this Communication is to stimulate a broad policy debate, and to promote a 
coherent European approach to these issues. At the same time, whilst considering the actions 
currently under debate in the JHA framework, it seeks to identify concrete and rapidly 
achievable proposals. The Commission believes that such an approach should include 
measures to improve both international and European cooperation, whilst putting more 
effective measures at national level in place. 
SCOPE 
Any initiative to combat this form of international organised crime must devote central 
attention to the devastating effect it has on the victims. The human rights of women include 
their right to have control over, and decide freely on matters relating to their sexuality, 
including sexual and reproductive health, free of coercion, discrimination and violence3. The 
Communication will thus be limited to the particularly serious abuse of human rights which 
is involved in trafficking for sexual purposes4. 
Recommendations on Trade in Human Beings - Council Press Release 10550/93 of 29-^0 November 
1993, see Annex 2. 
Report on Trafficking in Human Beings of the Committee on Civil Liberties and Internal Au.ui^. 
Rapporteur Mrs Maria Paola Colombo Svcvo, of 14 December 1995, A4-0326/95. 
United Nations Fourth World Conference on Women - Beijing 1995, see also Annex 2 
In the Commission Communication on Incorporating Lùjual Opportunities for Women and Men in all 
Community Policies and Activities" (COM (96) 67). the questions of violence against women and 
trafficking in persons were touched upon. 
Although this Communication concentrates on women, trafficking of women raises questions 
which are also relevant to traffic in children. However, current concern about abuse and 
exploitation of children raises many other issues beside trafficking which must therefore be 
specifically addressed. The particular needs and situation of children require targeted analysis 
and responses, both socially and legislatively. The Commission is investigating the ways in 
which the European Institutions may further contribute to this fight after the Commission's 
first reactions in an "Aide-Memoire"5 at the Informal Justice and Home Affairs Council on 
27 September 1996. The Commission intends to follow the conclusion from the recent 
Stockholm World Congress against Commercial Sexual Exploitation of Children, that a 
coherent and coordinated approach is needed. All forthcoming Commission initiatives which 
have a bearing on prevention of abuse or sexual exploitation of children will be prepared in 
this broader perspective. A Communication including immediately realisable measures to 
combat child pornography on the Internet, and a Green Paper on the Protection of Minors and 
Human Dignity establishing a longer term action plan, were adopted by the Commission on 
16 October. 
The Communication defines trafficking as the transport of women from third countries into 
the European Union (including perhaps subsequent movements between Member States) for 
the purpose of sexual exploitation. A distinction must be made between legal and illegal 
entry. Some women enter legally, either because they come from countries whose nationals 
are not required to hold a visa in order to enter for a short period stay into the territory of a 
Member State, or are in possession of a short stay visa or even of a longer term work permit, 
for example as a "dancer". This may be a cover for prostitution. 
Trafficking for the purpose of sexual exploitation covers women who have suffered 
intimidation and/or violence through the trafficking. Initial consent may not be relevant, as 
some enter the trafficking chain knowing they will work as prostitutes, but who are then 
deprived of their basic human rights, in conditions which are akin to slavery. The 
Communication does not however seek to address the question of women who are not put 
under duress by a third party to travel to work as prostitutes over borders, nor does it address 
the questions of black market labour in other sectors in the European Union. 
BACKGROUND6 
How many victims of trafficking are there? 
There is no doubt that trafficking in women conducted by organised criminals is on the 
increase. Although accurate figures are not available, partly because of the illegal and 
clandestine activities involved, and partly because the problem has not been fully recognised 
at an official level in many countries, there are some national studies7, The IOM (International 
Organisation for Migration) estimates that some 500,000 women were trafficked in 1995, 
most of them illegally, to the countries of the EU, and research by the NGO International 
available from the Task Force for Justice and Home Affairs of the Commission, 
information based largely on data gathered during the Conference held in Vienna and on IOM studies -
see also Bibliography in Annex 3. 
for example at a national level, such as: "Traite des circs humains - vers une politique de volonté 
commune", Centre pour l'égalité des chances et la lutte contre le racisme, March 1996 (Belgium). 
Campaign to End Child Prostitution in Asian Tourism (EPCAT) recently observed clear trends 
involving large numbers of women and girls from Russia, Ukraine and Belarus being 
transported westwards8. Figures reported by national NGOs also suggest an increasing 
number of women originating in Central and Eastern Europe9. 
What are the causes? 
IOM studies indicate that the causes of migration related to trafficking in women can be 
found, inter alia, in the lack of opportunity in the countries of origin, extreme poverty in 
many developing countries and marginalisation of women in the source countries. Poor or 
non-existent education is also of critical importance, and in areas where unemployment is 
high, women tend to be more severely affected than men. It also appears that demand for 
"exotic" prostitutes is growing, and women from countries which have a sex tourism industry 
are more likely to be trafficked abroad. Increasingly strong organised crime networks also 
act both to stimulate demand, and to lure potential victims into the trade. 
Which countries are involved? 
It appears that trafficked women come from almost all over the world: more from some 
regions and countries than others. For example, Ghana, Nigeria and Morocco in Africa, 
Brazil and Colombia in Latin America, the Dominican Republic in the Caribbean, and the 
Philippines and Thailand in South East Asia appear to be particularly affected. IOM research 
also shows that there are well established links between certain source and host countries10. 
Furthermore, after the emergence of the New Independent States and the fall of the Berlin 
wall, it has been noted that a large number of Central and East European countries have 
become source and/or transit countries. 
The flow is towards industrialised countries, and involves, to a greater or lesser extent, all EU 
Member States. The Commission is conscious that trafficking within and between countries 
in other regions of the world, where the EU has only an indirect way of influencing the 
situation, also exists. 
How does trafficking occur? 
Law enforcement experience shows that, although there is small-scale traffic involving few 
individuals, there are, more importantly, large enterprises and international networks creating 
a sophisticated and well organised "industry"11, with political support and economic resources 
in countries of origin, transit and destination. Corruption of officials has also been reported. 
Routes and transport obviously depend on the geographical proximity of the source to the 
receiving country. Women entering the EU from Central and Eastern Europe tend to arrive 
8 "Commercial Sexual Exploitation of Children in some Eastern European Countries" EPCAT, March 
1996. 
9 Dutch Foundation against Trafficking in Women (STV) 1994 and 1995 reports. 
10 "Trafficking and Prostitution: The Growing Exploitation of Migrant Women from Central and Eastern 
Europe", May 1995. 
11 "Trafficking in women for purposes of sexual exploitation", Dr W Bruggeman, Europol Drugs Unit, 
conference paper for Vienna Conference. 
by train or private car, whilst women from further away enter by plane. 
Who are the women? 
The women are normally very young (most of them under 25 and many underage). An IOM 
study12 suggests that a distinction should be made between the trafficking of women from 
Central and Eastern European countries and from developing countries. Women from 
developing countries tend to be older, and are more likely to be married and have children. 
Women from Central and Eastern Europe appear to be younger and better educated. 
PART n: DEVELOPMENT OF AN INTEGRATED MULTIDISCIPLINARY POLICY 
The main conclusion from the European Commission Conference in Vienna in June 1996 was 
that trafficking cannot be tackled effectively without a multidisciplinary and coordinated 
approach which involves all concerned players - NGOs and social authorities, judicial, law 
enforcement and migration authorities - and which involves both national and international 
cooperation. 
The recommendations from the Conference point to a lead responsibility for Member States, 
because many issues either need to be or can best be tackled at national level. However, the 
transfrontier nature of the issues also requires action at European Union level: firstly by 
initiating actions at European level or by complementing national actions; secondly through 
Community cooperation with third country partners. All the instruments available to the EU 
under the Treaty need to be mobilised, both in the Community context, and in the third pillar 
on justice and home affairs13. 
The Commission attaches special importance to the work of NGOs and civil society in 
combating trafficking. NGOs have demonstrated their ability to devise innovative ways of 
reaching and helping victims of sexual exploitation. They have a vital role in sensitising 
governments and the public and in lobbying for legislative change. 
In parallel with the Commission's follow-up to the Vienna Conference, the Member States are 
already taking steps to improve cooperation in the third pillar, and a number of initiatives are 
under negotiation at present. This Communication is intended to complement those actions 
in other fields. It is also the first internal step for the Commission to develop a coherent 
strategy in its actions - within its competence - to help victims. 
In line with the key areas identified at the conference, the Communication makes the 
distinction between migration, judicial cooperation, law enforcement, social issues, and 
international issues. However, actions taken in these areas must also be seen in a broader 
sec footnote 10. 
11lie VI of the Treaty on European Union (the so-called "third pillar") provides for the Member States 
to regard certain interior and justice issues (particularly immigration and asylum, police and judicial 
cooperation) as matters of common interest. The forms of cooperation provided for differ from the 
European Community's mechanisms in a number of respects, such as a general requirement for 
unanimous decision-making, and a limited right of initiative for the Commission. 
perspective, and a number of recommendations are of a multidisciplinary nature because 
certain of the problems addressed are interrelated14. This paper first deals with the 
multidisciplinary issues, and then looks at specific fields. In each chapter, the Vienna 
Conference recommendations are recalled (in italics) and action points suggested (in bold). 
For each action point identified, the Commission suggests where responsibility for taking it 
forward lies15. 
II. 1 : INTERDISCIPLINARY PROPOSALS 
II. 1. a: The "STOP" Programme against trafficking in human beings 
Among recent initiatives taken in the field of justice and home affairs, an incentive and 
exchange programme for persons responsible for combating trafficking in human beings and 
the sexual exploitation of children, is expected to be adopted soon. This will be known as 
the "STOP" Programme (Sexual Trafficking of Persons), and once in place (it is hoped before 
the end of 1996) the programme should be a useful instrument to fill the gaps identified in 
the field, particularly for data and research, dissemination of information between authorities, 
and training. It is expected that 6.5 MECU will be available for the next five years under this 
programme (0.5 for 1996 and 1.5 for 1997 onwards), depending on the appropriation which 
is voted annually by the Budgetary Authority. 
EU action point: 
Rapid adoption and implementation of the joint action on the above-mentioned 
programme. 
IT. 1. b: Need for improved data and research 
The lack of reliable data on all aspects of trafficking has so far hampered targeted action. 
Specialist research projects which complement the few existing studies are required, including 
social and economic research on the structural causes (poverty, inequality, social exclusion), 
as well as on clients. 
In addition, the paucity of figures on victims and the scale of networks is particularly striking. 
There are weaknesses in data collection and methodology, in particular the problem of non-
comparable definitions, and to date no regular reports to evaluate trends. This is true both 
at national, regional and international level. In order to plan precise, well-targeted preventive 
For example, the proposal for a temporary permit of stay, which is dealt with under migration issues, 
has as its purpose the facilitation of judicial proceedings. Another example is the close link between 
improved information and strengthening of coordination. Furthermore, the difficulty of establishing a 
clear distinction between authorities and actions was seen during the conference debates and all experts 
were agreed that no single agency could deal with the issue on its own. 
either consideration by the Member States acting at national level, or for the European Community (first 
pillar i.e. Treaty of Rome) or the European Union (third pillar i.e. cooperation in the Fields of justice 
and home affairs), or for direct action by the Commission. 
programmes, a clearer picture of the relative importance of different source and transit 
countries is required (although organisations such as the IOM have done useful work on 
migration flows). Furthermore, exchange of knowledge of systems used by traffickers, 
including information on routes and use of false documents, is needed to improve efficiency 
of controls by migration authorities. Those with expertise in the field should be involved, 
such as European NGOs and NGOs in the source and transit countries (which need to be 
identified as part of the research). Of note is the practice of some Member States to 
commission national annual situation reports provided by NGOs. 
A system to ensure regular provision of information will be needed to enable authorities to 
adapt policies on an ongoing basis. Certain aspects of research will need to be done by law 
enforcement authorities, particularly development of standardised and comparable figures, and 
the Commission hopes it will be possible for national law enforcement bodies and the 
international bodies (Europol and Interpol) to cooperate with civil research and specialised 
organisations such as the IOM, and avoid duplication of effort. However, although this may 
be a valuable long term objective, it does not seem to the Commission to be realistic at this 
stage to organise the production of a consolidated annual situation report covering all areas. 
Specific studies and reports will be of greater value to Member States better to identify 
effective actions, and also provide a firm basis for further follow-up action by the 
Commission in its areas of competence. 
Community and Commission action points: 
To use and develop as far as possible Community social budget lines to investigate 
the above-mentioned areas16, along with studies on the role of trafficking in the 
spreading of sexually transmitted diseases and drug abuse. To identify, through 
specialised workshops of practitioners and researchers, the priority areas for 
specialised research; 
To publish and make available Commission-funded research. 
EU action point: 
To allocate appropriate studies under the "STOP" programme, particularly taking the 
future work of the Europol Drugs Unit into account. 
IT. 1. c: Cooperation and Coordination 
A clear conclusion to be drawn from the lack of comprehensive information available to assist 
agencies, is that there is an urgent need to share what information is available, and for 
agencies to act in a coordinated manner. At the Vienna Conference, both government 
authorities and NGOs felt that there was insufficient contact between the persons involved in 
the various stages of help for victims, and repeated calls were made for national central 
coordinating bodies to be set up in the Member States, made up of law enforcement, 
migration, judicial and social authorities, and also of members of NGOs. Clearly, the 
for example, the Fourth Programme on Equal Opportunities. 
establishment of such bodies is a matter for the Member States alone to decide, but the 
Commission finds it hard to see how trafficking could be effectively combatted, at national 
as well as at international level, without forms of internal coordination. Mechanisms for 
centralisation of data would assist the creation of comparable information, but there appears 
to be a lack of contact also on individual cases, for which forms of communication need to 
be improved. 
It is not only within or between Member States that increasing coordination would be useful. 
Other international organisations are also active in this field. The Council of Europe, through 
the work of its Steering Committee for equality between women and men (CDEG), has been 
active in the field of trafficking in women and forced prostitution since September 1991, 
when it organised a Seminar on action against traffic in women17. As a follow-up to the 
Seminar, the CDEG established a Group of Specialists on action against traffic in women and 
forced prostitution, which, in 1994, defined an action-oriented list of priorities to be 
considered by the Steering Committee. Subsequently, the CDEG asked an expert consultant 
to draw up a Plan of Action, based on the recommendations made in the report of the Group 
of Specialists18. At a recent meeting on 22-25 October 1996, the CDEG decided that it should 
consider setting up a multi sectorial Group of Specialists, entrusted with preparing proposals 
for concrete action which might take the form of a Recommendation. 
The Commission will seek to improve its links with international and regional organisations 
such as the United Nations, Council of Europe, EU institutions and other regional groupings, 
in order to identify the relevant needs and priorities, and to benefit from improved 
complementary policies. These include support for bodies that monitor and promote actions 
addressing the specific problem of trafficking, promotion of medium and long term 
programming of priority activities to be implemented jointly, and stepping up exchanges of 
information on activities under way and on relevant research projects. 
Since the Vienna Conference, the Commission has appointed a coordinating point for its 
actions19. The Commission would also like to see more contact between NGOs in different 
countries for exchange of best practice and possible common projects. 
Member State action point: 
To consider ways of improving collection of national data, and for communication 
mechanisms between concerned groups and authorities. 
Member State and Commission action point: 
To coordinate closely work in the Council of Europe. 
EU and Commission action points: 
sec "Proceedings of the Seminar, Strasbourg 25-27 September 1991 
"Plan of Action against traffic in women and forced prostitution", Michèle Hirsch. l-G^1^ 2. Strasbourg 
1996. In its preparation of the Vienna Conference, the Commission look the work already accomplished 
by the Council of Europe into account. 
in the Task Force for Justice and Home Affairs. 
To consider with other international organisations coordinated policies, and the 
possibility of joint actions; 
To step up dialogue with and encourage networking of NGOs working in different 
countries, both in and outside the EU. 
IL 1. d: Information campaigns 
An important measure of prevention is to provide women in source countries with information 
about the possibilities and the limitations of legal immigration and about the risks of 
exploitation which illegal immigration presents. Important work by NGOs in third countries 
is already done but needs to be consolidated and extended. A decisive role would appear to 
be for NGOs, with their specialised knowledge of local conditions through experience in the 
origin countries. The role of Member State embassies and consulates is also important, and 
was recognised by the Council in 1993, when one of its five recommendations against 
trafficking20 was to launch information campaigns in diplomatic and consular circles to 
forestall the exploitation of prostitution. Further work could be done in this respect in 
conjunction with host governments, perhaps also by targeting young people in education. 
Information on ways of seeking assistance must be directed to women who have been 
trafficked and are in the EU. It is provided through social and health departments, as well 
as through NGOs and the Commission is looking at ways of assisting in the provision of 
information. Women who enter the EU in licit employment, but who are forced into 
prostitution also need to be informed of their rights and helped to gain access to systems for 
the protection of those rights. 
In order to discourage potential clients, preventive work on information on health risks could 
be stepped up. This would also help in reducing risks to public health within the EU. 
Community and Commission action points: 
To find ways, with the support of the Budgetary Authority, of increasing funding for 
information work by NGOs; 
To support information campaigns for assistance to victims; 
To support information campaigns to discourage potential clients. 
Community and Member State action point: 
In accordance with the Fourth medium-term Community action programme on equal 
opportunities, to encourage the setting up of information systems on the rights of 
victims; to exchange information between Member States on a regular basis on how 
to tackle abuses connected with trafficking. 
Recommendations on Trade in Human Beings - Council Press Release 10550/93 of 29-30 November 
1993, see Annex 2. 
10 
Commission action point: 
To consider, with Member States, coordinated information campaigns on trafficking 
in third countries with the EU delegations. 
IT. 1. e: Training 
The need for interdisciplinary, as well as specific training for each professional group was 
recommended during the Vienna Conference. Both types of training could be covered at 
European level by the future Grotius exchange programme21, as well as by the "STOP" 
programme. 
Action points: 
see particularly: II.2.a - Migration Training; 
II.4.b - Law Enforcement Training; 
II.5.e - Training in the Social Field. 
II. 2 : MIGRATION 
Migration issues (visa, controls on entry into, stay in and subsequent circulation between the 
territory of the Member States) play an important role within the general pattern of the 
trafficking phenomenon. According to the Treaty on European Union, immigration policy and 
policy regarding nationals of third countries, together with rules governing the crossing by 
persons of the external borders of the Member States and the exercise of controls thereon, are 
considered matters of common interest. (Art. K. 1 points 2 and 3). Thus the legal basis for 
joint actions in the specific field of migration policy exists in the Treaty. 
IT. 2. a: Migration Training 
The Vienna Conference recommended strengthening training and public awareness of civil 
servants dealing with migration (particularly those at embassies and consulates, and those 
in charge of the delivery of visas), and inclusion of "trafficking in women" in future 
multiannual exchange programmes. 
The Commission agrees with the need to develop information and training for embassy and 
consular staff, as well as migration services within the Member States. In those third 
countries subjected to a visa requirement to enter the EU, the power of issuing visas provides 
a double opportunity to embassy staff to make would-be applicants aware of the risks and 
realities, and to be alert to the tactics of traffickers. 
The "Sherlock" programme for training, exchange and cooperation in the field of identity 
documents was adopted on 28 October on the basis of a proposal from the Commission. This 
programme aims at improving the theoretical and practical understanding of the security of 
This programme is being set up during 1996 under the third pillar, and relates to training and exchange 
programmes in the judicial Field. 
11 
identity documents, and could play a positive role in the struggle against trafficking in 
women, when forgery and the use of false documents occur. It is expected that 5 MECU will 
be made available for the period 1996-2000 under the programme. 
A Commission pilot project on migration and external borders was carried out during 1996 
and the Commission will shortly introduce a proposal for a multi-annual training and 
exchange programme for officials of Member States dealing with migration, asylum and 
external borders. 
EU action points: 
To use the "STOP" programme for training of migration officials; 
To carry out training actions related to false documents, in compliance with the 
multiannual Sherlock programme. 
Commission action point: 
To introduce a proposal for a multiannual programme on training and exchange of 
officials responsible for immigration, asylum and external borders, which will take 
into account the need for specific training for the officials dealing with these matters 
in the field of combatting and preventing trafficking in women. 
IT. 2. b: Temporary Permit of Stay 
To address the issue of a temporary permit of stay for victims prepared to act as witnesses 
in judicial proceedings, and to have proper coordination between judicial and police 
authorities to avoid expulsion without consultation. 
Research shows that trafficked women who reside illegally in the countries rarely escape their 
traffickers. Fear of repatriation prevents them from cooperating with authorities against 
traffickers. In many cases the victims are indeed swiftly repatriated. From the point of view 
of combatting traffickers, this is an unsatisfactory situation, for without the evidence of the 
victims, cases may never come to court. Since the Vienna conference an initiative by 
Belgium, including inter alia a proposal for a temporary permit of stay, has been put before 
the JHA Council and discussions are ongoing. The Commission supports the principle of a 
permit of stay, both to combat traffickers and to protect victims. It is particularly important 
to ensure that the length of any permit should at least cover judicial proceedings against 
traffickers. It should also be clear that after court proceedings, so long as return has not taken 
place, the holder of the permit has legal status in the host country. 
EU action point: 
To reach rapid agreement on the draft joint action on a temporary permit of stay for 
victims. 
II. 3 : JUDICIAL COOPERATION 
12 
Traffickers will continue to take advantage of gaps and limits of the national judicial systems 
unless judicial cooperation between EU States is improved. Victims also need to be able to 
rely on the judicial system, and forms of witness protection are needed to give victims the 
opportunity to speak out against their traffickers. The Vienna Conference raised a variety of 
issues of judicial cooperation, including criminalisation of trafficking, confiscation of proceeds 
of trafficking, and witness protection schemes. 
II. 3. a: Existing International Instruments 
The position regarding international instruments is not satisfactory. A collection of more than 
5 international instruments were drawn up in the period 1900 to 1950 dealing with trafficking 
in persons and prostitution. The focus of these conventions varies but generally they provide 
for the criminalisation of certain types of behaviour associated with the trafficking of women 
for the purpose of prostitution or make provision for cooperation between states to deal with 
the problem. None of these has been ratified by all 15 Member States. 
II. 3. b: National Legislation 
Preparation of an inventory and evaluation of national legislation 
In most Member States, legislation does not specifically address the question of sexual 
exploitation of women trafficked from abroad, or the problem is addressed in the context of 
procurement for the purposes of prostitution. However, some Member States do take account 
of the vulnerable position of women trafficked from abroad. 
EU action points: 
To implement the proposal in the "STOP" programme to collect information on 
relevant national legislation, to help assessments to be made of its effectiveness, as 
well as to facilitate judicial cooperation; 
To consider encouraging source third countries to introduce and implement effectively 
criminal legislation against traffickers. 
II. 3. c: New European Union Legal Instrument 
Improvement of criminal legislation. The Vienna Conference made specific recommendations 
on criminalisation of abuse, confiscation of proceeds and extraterritoriality, protection of 
witnesses and sharing information on convictions 
The various gaps and inconsistencies identified in the recommendations would appear to 
justify the introduction of a new legal instrument to cover them. Since, however, the issues 
named fall primarily in the area of judicial cooperation on criminal matters, the Commission 
does not have a right of initiative22. It therefore particularly welcomes the proposal put to the 
22 Treaty of European Union Article K3(2) second indent. 
13 
Council since the Vienna Conference to adopt an instrument in the form of a joint action to 
improve judicial cooperation in the fight against trafficking in human beings, which makes 
proposals on all the above items. 
The Commission considers it imperative that agreement is reached on the following key 
issues: 
the need for measures which will encourage and help victims of trafficking to report 
offences, particularly special arrangements for reception and provision of assistance; 
the need to take account of the abuse and exploitation of the particularly vulnerable 
position and dependency of the victims regardless of apparent consent; 
arrangements are required for dealing with protection of witnesses which could apply 
to victims of trafficking and which involve the NGOs who provide assistance for 
victims; 
the need for information exchange between judicial authorities including the 
establishment of a legal basis for the spontaneous sharing of information; 
confiscation of proceeds of organised crime relating to trafficking in women. 
A number of Member States have recently changed national law to allow for extraterritorial 
jurisdiction in cases of sexual abuse of children (child sex tourism). It is vital to dismantle 
networks of traffickers, but very few Member States have provisions extending to those 
caught trafficking or exploiting adults. The Commission does not think that this legal gap 
provides an adequate reflection of the gravity of any sexual exploitation. 
Member State and EU action point: 
To reach agreement on a joint action on judicial cooperation covering trafficking in 
women which includes the key issues mentioned above and to consider introduction 
of extraterritorial jurisdictional provisions to cover traffickers in human beings. 
II. 3. d: Sanctions 
In addition to the Vienna recommendations on criminal legislation, the Commission notes 
differences of approach to sanctions provided for in Member States' laws on traffickers. 
In at least one EU state, severe sentences (up to 15 years imprisonment) can be imposed in 
the case of organised trafficking. However, since not all EU states have specific offences 
related to trafficking, there are considerable discrepancies in the level of sanctions provided 
for in national legislation. The Commission is of the view that offences related to trafficking 
in women for the purpose of sexual exploitation should in every Member State attract 
penalties involving deprivation of liberty and other measures. 
Member State action point: 
14 
To consider the introduction of serious penalties for trafficking, which adequately 
reflect the grave nature of the offence. 
II. 4 : POLICE COOPERATION 
Trafficking in women appears to be largely in the hands of organised crime networks, 
operating as structured international enterprises. It may often be connected with other 
criminality, such as drugs trafficking. No single law enforcement agency in a Member State 
is able to combat trafficking alone. This chapter must be seen in the context of the present 
debate in the JHA Council, where Member States have the sole right of initiative23. 
II. 4 a: Cooperation and Communication 
Analysis and information exchange, and improved communication and cooperation between 
law enforcement authorities, including appointment of national contact points and directory. 
Within Member States, communication between law enforcement services is of course a 
matter for internal regulation. Many states have a small police strength specialised on crimes 
of vice, with expertise of trafficking as a form of criminality limited to these persons with 
direct experience of victims. In some states, there have been moves towards the 
establishment of specialised units of law enforcement authorities, either of a multidisciplinary 
nature for different authorities (law enforcement, social, immigration), or with the objective 
of providing a national contact point only for improved law enforcement information 
exchange. There are of course different ways of setting up structures at national level, which 
must take different national systems into account. What is important is that efficient methods 
of communication exist. 
To improve international cooperation, Member States agreed in 1994 to include trade in 
human beings in the Convention to establish Europol. Europol will be an information and 
intelligence exchange organisation for EU law enforcement, and final agreement on the 
Convention was reached at the European Council in Florence on 21-22 June 1996. Article 
2 of the Convention lays down combatting of immigrant smuggling and trade in human 
beings as two of the priority areas of activity for Europol. The Convention will come into 
force once all Member States have completed ratification, when Europol will be required to 
develop a role in strategic and operational analysis of traffic in human beings which is part 
of organised crime. Under Article 42(2) of the Convention, Europol and Interpol will have 
a formal cooperation agreement, which might explicitly include trafficking in human beings. 
In the interim, the first stage of Europol, the Europol Drugs Unit (EDU), has a mandate, 
which was extended in March 1995 to include action against clandestine immigration 
networks, and again on 27 September 1996 to traffic in human beings. Ministers also agreed 
that the EDU is to establish a Directory of specialised competences (a list of contact points 
for law enforcement purposes) for the fight against crime, with as a priority, a Directory 
Under the TEU Article K3(2) second indent, there is no Commission right of initiative to make legal 
proposals in this field. 
15 
covering illicit drug trafficking and trafficking in human beings. This is a significant step in 
the improvement of police cooperation at European level, and is greatly welcomed by the 
Commission. For the EDU to be effective, provision of fast and accurate national information 
will also need to be improved. 
The Vienna Conference recommended appointment of national contact points. In some cases 
this may be addressed through the Directory of specialised competences, but it would seem 
appropriate for each Member State to designate such a contact point, if it has not already been 
done. 
One of the first tasks to be addressed under the "STOP" programme is likely to be studies on 
the centralisation of information and analysis on subjects including victims of trade in human 
beings, along with the advisability of establishing a database for recording of DNA 
intelligence. 
Member State action point: 
To ensure rapid ratification of the Europol Convention. 
EU action point: 
For EDU to set up the Directory of specialised competences and for Member States 
to designate national contact points. 
II. 4. b: Law Enforcement Training 
To develop operational training on the one hand, and sensitisation training on the other. 
Already in 1993, the Council agreed that more training was required for law enforcement 
officers to combat trafficking in human beings for the purposes of prostitution. When the 
Commission requested information from the Member States on the level of follow-up to the 
recommendations in May 1996, one Member State reported specific training courses which 
were open to other EU states (although to date only two neighbouring states had taken up the 
offer). Small units of specialised officers exist in some Member States, but the Vienna 
conference showed that improved knowledge on networks and forms of trafficking, and 
related money laundering, including large business organisations, was needed on a wider 
basis. 
In relation to victims, the police response may have been characterised in some cases by poor 
awareness of the women as victims of crime. A low expectation of police as providers of 
assistance would of course aggravate reluctance from victims to cooperate and lack of victim 
confidence is therefore an important issue. The Vienna conference view was that an 
appropriate police reaction to victims can be best developed through specialised training. 
Relevant language skills were also mentioned as of significance to improve communication 
with victims. A draft Title VI programme (Oisin) due for agreement shortly will provide 
16 
training for law enforcement officers24. 
EU and Member State action points: 
To include in the "STOP" programme the above aspects in the training programmes 
for law enforcement officers; 
To sensitise police to the position of victims, for example through joint training 
courses with bodies caring for victims; 
To provide training in the languages of the victims, or at least to provide interpretation 
facilities; 
To provide joint training courses with bodies caring for victims; 
To develop training courses on trafficking under the "Oisin" law enforcement 
programme. 
Member State action point: 
To make trained female officers available when requested by victims, and to inform 
victims of this possibility. 
II. 4. c: Third Countries 
Cooperation with third countries (training, contact points) 
Where training is being developed by the Member States, law enforcement officers from third 
countries, particularly those of central and eastern Europe could contribute and benefit. 
Programmes such as those of the Central European Police Academy (MEPA) and joint 
international programmes already in existence from some Member States provide not only 
exchange of best practice, but appear to create important opportunities for development of 
contact points for operational purposes to supplement the assistance provided by international 
lists of contact points. 
The 1993 JHA recommendations referred to designation of specialised liaison officers, and 
a number of Member States have implemented this in major source countries. 
EU and Member State action points: 
To open training to the countries of central and eastern Europe, and to extend the 
directory of contact points to be held by the EDU to non-EU countries; 
To make best use of EU specialised liaison officers in source countries, in particular 
24 12 MECU are foreseen for this programme for 1996-2000 (2 MECU in 1996 and 2.5 MECU from 1997 
onwards), depending on the appropriation which is voted annually by the Budgetary Authority 
17 
sharing of resources, with the aim of improvement of cooperation with local law 
enforcement authorities. 
II. 5 : SOCIAL AND EMPLOYMENT DIMENSION 
The Member States, local authorities and civil society in general are responsible in this area. 
The Community shall take action only if the objectives of the proposed action cannot be 
sufficiently achieved by the Member States. Whilst the Commission programmes discussed 
below can contribute to the fight against trafficking, they are not a substitute for Member 
State action. Thus the Union might become involved in25 heading and coordinating forward 
studies of social problems in the Union, circulating information, disseminating experiences, 
stimulating thought and action in the Member States, encouraging cooperation, drawing the 
attention of the public to social problems of common concern, and helping to resolve 
problems which, although pertaining to the Member States, call for a common approach26. 
II. 5. a: Information 
Preventive information in EU: Support for information campaigns for raising public 
awareness of violence against women, as well as the exchange of information and of good 
practice in the fight against trafficking in women. 
see "Information Campaigns" above Section II. 1. d 
II. 5. b: Social Programmes 
Development of assistance programmes, social exclusion programmes and measures on 
reintegration into society within EU including public health 
A number of Member States have initiated national programmes of integrated approaches to 
combat social and labour market exclusion involving cooperation between national, regional 
and local levels. Using this example, the new EU Integra programme is designed to promote 
the integration into employment of groups most at risk of exclusion from the labour market, 
through partnership between public authorities, NGOs, SMEs, social partners and associations. 
Victims of trafficking can come within the remit of the programme. Among the measures 
foreseen, the following are of note: basic skill training, advice and counselling, assistance to 
geographical mobility, and exchanges of best practice. 
There is a need for strengthening action to protect public health regarding both victims and 
clients, both of whom can spread numerous transmissible diseases (AIDS, hepatitis etc). Such 
The Commission has already co-financed or given support to a few isolated actions, either under the 
third Community programme on equality between women and mcn(1991-1996), or in the framework 
of projects in the fight against social exclusion, including a colloquium on trafficking in women in 
October 1996 in Greece, and forthcoming conferences on women and violence on the Internet in 1997 
in the UK, and a Netherlands Ministerial Conference in April 1997. 
Recommendations contained in the Report of the Comité des Sages "For a Europe of civic and social 
rights" (1996). 
action should include prevention, and medical and psychological assistance to victims, with 
particular attention to reach the victims where they are. 
Member State action point: 
To support and develop local and national assistance programmes, social exclusion 
programmes and measures for reintegration. 
Commission action points: 
To make full use of the possibilities provided in the new Integra programme to assist 
victims of trafficking, in coordination with Member States; 
To make use of the "Leonardo" programme in order to provide training for people at 
risk; 
To make use of the Programme "Prevention of AIDS and certain other communicable 
diseases...", and the Programme "Health Promotion ... in the field of public health", 
to help victims27. 
II. 5. c: Reception and Rehabilitation Centres 
Creation of fiirther reception and rehabilitation centres 
Some Member States have centres for victims who have escaped their traffickers, and NGOs 
help or run such centres. It is obviously vital that appropriate social and health assistance, 
as well as caring accommodation is available to help victims recover, who may be in poor 
physical and mental condition. 
Member State action point: 
For all Member States to support reception and rehabilitation centres. 
Commission action points: 
Examine the possibilities to use the Youth for Europe programme28 to help in 
provision of havens for victims and to integrate, if possible, young volunteers of the 
new European Voluntary Service in some of the rehabilitation projects; 
To exchange experience and best practice with regard, amongst other things, to the 
establishment of rehabilitation centres, access to the centres (for example through the 
use of "Outreach" workers), and protection of confidentiality. 
Decision No 647/96/EC, and Decision No 645/96/EC. 
The Youth for Europe programme promotes active citizenship amongst young people. It encourages 
a policy of cooperation between Member Stales in the youth field. 
19 
II 5. d: Employment Conditions 
In addition to the Conference Recommendations made in Vienna, the following need to be 
considered: Employment, in relation to attention to the working conditions of au-pair girls, 
bar and restaurant employees, certain health institutes etc. Legal requirements on employers 
in the context of right of establishment within the European Community. 
Some Member States have introduced requirements relating to working conditions of au pair 
girls, in order to avoid exploitation. 
All Member States have social and health inspections in bars, restaurants and hotels. Through 
these controls, cases of forced prostitution may be brought to light. 
Member States may request proofs of good character or repute for employers of bars, dancing 
establishments, massage parlours and for those running marriage bureaux and escort services, 
or for those involved in transport of immigrants. If they request such proofs, they must 
recognise proofs delivered by the Member State of provenance, according to Community 
directives, in the context of the right of establishment in the European Community29. 
Member State action points: 
To exchange information on best practice on au pair working requirements; 
To have coordination between social and health inspectorates, and law enforcement 
services with the aim of identifying and helping victims; 
To assess whether the provisions in Community Directives concerning proofs of good 
character and repute provide an effective means of guaranteeing legitimate public 
order concerns for the activities to which they apply; 
To assess the efficacy of Directive 64/221 on the coordination of special measures 
concerning movement and residence, which are justified on grounds of public policy 
(implementation of Article 56 of the Treaty of Rome). 
Commission action point: 
To encourage the Member States to assess the efficacy of the proofs required, and on 
the basis of the results of that assessment, if necessary, to propose appropriate action. 
II . 5. e: Training in the Social Field 
In addition to the Conference Recommendations made in Vienna the following should be 
mentioned: the development or creation of programmes to train, for example, health and 
social personnel in dealing with victims, and in languages in order to empower them to help 
victims effectively. 
29 Directive 68/367, Directive 75/368, Directive 82/470. 
20 
Social and occupational rehabilitation of victims, once they have been granted legal residence, 
requires them to be in a position to take up training to prepare them for a new life. 
Specialised training is needed for members of the health and social professions. 
Teacher training, as well as exchange of information actions, as developed by the SOCRATES 
programme, can play a role. Adult Education projects for victims could also be supported by 
the SOCRATES programme30. 
Member State action point: 
To support local and national programmes for training of social and health personnel. 
Commission action points: 
To examine the possibilities of specialised training for health and social workers in 
the framework of "Socrates" and/or "Leonardo"; 
To use "Socrates" and/or "Leonardo" adult education programmes for victims. 
PART Iff: COOPERATION WITH THIRD COUNTRIES 
The main objectives for the Community's development co-operation include the fight against 
poverty, the promotion of human rights and democracy, and sustainable development31. The 
problem of trafficking relates directly to all of these objectives. 
It is not only trafficking from third countries into the European Union which needs to be 
addressed, since this is only one part of a much larger global pattern. Sexual trafficking 
occurs on a very substantial scale, both within developing countries (rural areas to urban areas 
and major travel arteries), and between developing countries and developing neighbours with 
substantial sex industries. Trafficking between third countries also appears to be increasing 
from the New Independent States to the countries of Central and Eastern Europe. 
The range of instruments already used includes co-operation programmes with government 
authorities in source countries, budget lines for funding action by NGOs and civil society 
(particularly those relating to human rights), and these could be further developed, along with 
Socrates is a multiannual programme of the European Union in the field of general education. Its main 
action is the exchange of students under the "Erasmus" scheme and the establishment of school-
partnerships under the new "Comcnius" action. However, the programme allows actions in other fields 
of education, where we want to test new pedagogical methods and disseminate good practice. 
Leonardo is a multiannual programme in the field of vocational training. Its main actions are the 
sensibilisation of trainers for European questions and the exchange of young workers. Here again the 
programme allows actions to test new training methods and disseminate good practice. 
Both programmes will also be used to assure the follow-up of the European Year of lifelong learning. 
Treaty on European Union Art. 130u. 
21 
mobilisation of the provisions for dialogue with third country governments on human rights 
issues included in the new generation of agreements between the Community and third 
countries. The Community's most important partners are the source countries, so it is of 
primary importance to maintain and step up dialogue with national authorities and institutions 
there. International cooperation with other source third countries is also vital. The 
Community should also seek to assist the development of cooperation between third country 
affected regions32. 
Community and Commission action point: 
To consider use, where possible, of agreements with third countries to discuss 
trafficking in women and the way in which partners can work together. 
Vienna Conference Recommendations: 
To develop assistance programmes and special measures that facilitate reintegration in the 
society in the country of origin and combat social exclusion, including better use and 
extension of various EC programmes in the fi-amework of development cooperation and 
agreements with third countries. 
For Member States and the EU to support initiatives of the countries of origin for full 
reintegi'ation of victims. 
III. 1 : CENTRAL AND EASTERN EUROPE AND THE NIS 
Existing programmes address the root causes of trafficking through the consolidation of 
pluralistic democratic procedures and practices with a view to supporting the overall process 
of economic and political reform. A wide range of actions are already financed which aim 
at promoting and protecting women's human rights and children's rights33, and of most 
importance are the Phare and Tacis Democracy Programmes, whose general objectives are to 
assist the development of civil society, particularly democratic principles based on multi-party 
systems, human rights, the rule of law and economic freedom, in the countries of central and 
eastern Europe and the New Independent States. Areas of activities in which the specific issue 
of trafficking in women has been addressed are promotion of human rights, civil liberties, 
equal opportunities, non-discriminatory practices, access to education and media, and 
administration of justice and police. A specific project on "Prevention of traffic in women" 
was funded under the 1994 Democracy programme led by the Stichting Tegen Vrouwhandel 
together with partners in the Czech Republic and Poland. 
Also important are the Phare and Tacis LIEN Programmes, with the objective of supporting 
32 Limited support has already been given to reintegration schemes for women trafficked within some 
Asian countries. 
33 Under Budget Lines from the B7-7 Chapter " European Initiative for Democracy and the Protection of 
Human Rights". 
22 
NGO initiatives in favour of disadvantaged sections of the population in Central and Eastern 
Europe. Assistance to women, in order to raise their health and social status, and to help them 
have access to professional training and employment opportunities is singled out. 
Marginalised groups are also targeted, including street children, the homeless, victims of 
diseases and drug-addiction and the under-privileged, to improve access to minimal care and 
living conditions in general, and to facilitate social reintegration. 
Community and Commission action points: 
To make continued use of the Phare and Tacis Democracy and LIEN Programmes; 
To stimulate use of any relevant Community programmes in the framework of the 
additional protocols to the Europe Agreements with the CEEC; 
To develop the legal framework in the CEEC and NIS countries through Phare and 
Tacis, in the context of policy advice, to promote actions in cross border cooperation 
to prevent illegal migration, including in the new programmes related to the third 
pillar; 
To inform NGOs that the B7-7 Democracy Programme can also be used for actions 
to support victims of trafficking, such as development of prevention campaigns, 
development of confidential health care services and provision of social, medical and 
psychological support to victims of trafficking, development of comprehensive 
programmes designed to rehabilitate into society and/or into the country of origin, 
victims of trafficking through job training and legal assistance, development of human 
rights education which addressed the specific problem of trafficking in women and 
children; 
To use the budget line on support for organisations offering practical aid to victims 
of human rights violations (rehabilitation, legal advice, health treatment and assistance 
for victims of Human Rights violations), for specific project on victims of trafficking 
(B7-707); 
To target to the fight against trafficking, subsidies for certain activities of 
organisations pursuing human rights objectives (B7-7040). 
EU action point: 
To improve police and judicial cooperation, in particular with the CEEC in the 
framework of the structured dialogue on justice and home affairs. 
III. 2 : AFRICA, CARIBBEAN AND PACIFIC COUNTRIES (ACP) 
Existing programmes address root causes of trafficking, such as poverty, unemployment, and 
23 
health, as well as the health conditions of prostitutes. A human rights budget line34 helped 
to finance a preparatory seminar and preparatory studies, and, part of the travel expenses to 
the Conference against sexual exploitation of children held in August 1996, allowing 
representatives of organizations from the third world countries to be in Stockholm. NGO 
projects have been cofinanced, such as sensitisation and reinsertion of street children, female 
prostitutes and victims of trafficking, help for networks of women's NGOs and for NGOs 
working to combat AIDS and sexually transmitted diseases. 
Community and Commission action points: 
To mobilise the European Development Fund in new fields such as improvement of 
legislation, judicial and police training against trafficking in women, and prevention 
and awareness-raising actions; 
To promote dialogue on these issues with ACP countries, based on the Commission's 
experience in the field of drugs, and to designate an ACP rapporteur at the next Joint 
Assembly to initiate such a dialogue; 
To support a pilot project to be devised in cooperation with NGOs, Member States 
and international organisations to be set up in a target country. It could concern 
prevention, training and rehabilitation (perhaps some victims could be offered an 
active role in their own rehabilitation i.e. designing, setting up and carrying out 
campaigns in the country); 
To identify with other bodies involved (NGOs, Member States, international 
organisations) and set up incentive measures, research and pilot projects 
(rehabilitation, awareness and information campaigns with a view to prevention, 
targeting specific groups and the authorities concerned), using the relevant budget 
35 headings 
III. 3 : ALA/MED COUNTRIES 
The Community's development co-operation with Asian, Latin American and Mediterranean 
Basin governments seeks to deal with root causes of trafficking in a range of ways. A high 
proportion of resources has always been devoted to developing rural areas, with the aim of 
combating poverty, expanding income-generating opportunities close to home, and reducing 
involuntary migration. Particular attention is now being paid to gender issues: improving the 
B7-702, Human Rights and Democracy in developing countries. 
- B7-7020, Human Rights and Democracy in developing countries; 
- B7-6000. Community contribution towards schemes concerning developing countries carried out by 
non-governmental organisations; 
- B7-611, Women in development; 
- B7-633, Small credit facilities for women in developing countries; 
- B7-641, Rehabilitation and reconstruction measures for developing countries; 
- B7-6211, Health Programmes and the Fight against HIV/AlDs in developing countries. 
24 
economic position of women and their opportunities for income, and empowering local 
women to take an active part in decision-making at household and community level. A range 
of "positive action" programmes aims to raise women's low status, increase girls' access to 
literacy and basic education, and foster women's general confidence and awareness. 
In urban areas, Community-funded programmes focus on poor and disadvantaged 
communities, where women are most likely to be drawn into sexual exploitation. The 
"MEDA Democracy Programme"36 allows for positive action to encourage responsibility for 
human rights and democratic freedoms including women's rights, and a 4 MECU programme 
in Central America focuses on rehabilitation and re-training of adolescent girls who have been 
sexually exploited. Urban development programmes support community networks, credit for 
income-generating activities, action against drugs and formation of women's solidarity groups. 
Special priority is given to providing support centres, re-training and rehabilitation for street 
children, especially girls, who are often prime targets for sexual exploitation. 
Commission action points: 
To identify with other bodies involved (NGOs, Member States, international 
organisations) relevant Mediterranean, Asian and Latin American NGOs, such as 
women's associations; 
To facilitate inclusion of a project on trafficking under the "MEDA Democracy 
Programme" and to use other relevant budget headings37 to set up and support 
incentive measures, research and pilot projects (rehabilitation, awareness and 
information campaigns with a view to prevention, targeting specific groups and the 
authorities concerned) as well as projects aiming at the victims' social and economic 
reintegration. 
Community action point: 
To promote dialogue on sexual exploitation, where possible using agreements with 
third countries. 
Under this programme, the Commission has already funded a Tunisian based NGO. "El Taller" to work 
on the creation of a permanent tribunal against violence against women. 
B7-611, Women in development; 
B7-633, Small credit facilities for women; 
B7-703, Human Rights, and to look into the possibilities of using the general development cooperation 
budget lines to cover projects in this sense. 
25 
PART IV: CONCLUSION 
Thanks to recent initiatives including from the Council of Europe, the European Parliament 
and the Commission's Vienna Conference, this topic is now high on European agenda. 
Actions have been launched which need to be finalised and implemented as soon as possible. 
The present momentum should not be lost. We need now to develop a consistent and long 
term approach at European level, and the action points identified by the Commission38 in this 
document need now to be discussed in the relevant fora. The Commission notes with 
satisfaction that the forthcoming Netherlands Presidency will continue to treat trafficking as 
a priority subject39, and the Commission will as a priority take up contacts with relevant 
NGOs. 
Regarding the third pillar area, in addition to the present important initiatives, continuity has 
been ensured by the inclusion of trafficking in human beings as one of the priorities in the 
pluriannual work programme adopted by the JHA Council. There is a need for a similar long 
term approach in other areas, where objectives must be determined, along with regular 
evaluation of implementation. 
If we are to tackle trafficking seriously, adequate financial resources will need to be made 
available, both at EU level, and nationally. In this connection, it is a positive sign of 
recognition of the problem, that in December 1996, the European Parliament will vote on an 
expected allocation of 3 MECU for exploited women and children. 
The Commission is convinced that all EU institutions and the Member States must continue 
to play an active part in order to put an end to the increasing and serious problem of 
trafficking in women. 
38 see list in Annex 1 
39 The Commission will be pleased to support a Ministerial Conference on Trafficking to be held in the 
Hague in April 1997. 
26 
ANNEX 1: Complete List of Action Points proposed in Communication 
PART II: DEVELOPMENT OF AN INTEGRATED MULTIDISCIPLINARY POLICY 
II. 1. INTERDISCIPLINARY PROPOSALS 
II. 1. a: The "STOP" Programme against trafficking in human beings 
EU action point: 
• Rapid adoption and implementation of the joint action on the above-mentioned 
programme. 
II. 1. b: Need for improved data and research 
Community and Commission action points: 
• To use and develop as far as possible Community social budget lines to investigate 
the above-mentioned areas, along with studies on the role of trafficking in the 
spreading of sexually transmitted diseases and drug abuse. To identify, through 
specialised workshops of practitioners and researchers, the priority areas for 
specialised research; 
• To publish and make available Commission-funded research. 
EU action point: 
• To allocate appropriate studies under the "STOP" programme, particularly taking the 
future work of the Europol Drugs Unit into account. 
II. 1. c: Cooperation and Coordination 
Member State action point: 
• To consider ways of improving collection of national data, and for communication 
mechanisms between concerned groups and authorities. 
Member State and Commission action point: 
• To coordinate closely work in the Council of Europe. 
EU and Commission action points: 
• To consider with other international organisations coordinated policies, and the 
possibility of joint actions; 
27 
• To step up dialogue with and encourage networking of NGOs working in different 
countries, both in and outside the EU. 
II. 1. d: Information campaigns 
Community and Commission action points: 
• To find ways, with the support of the Budgetary Authority, of increasing funding for 
information work by NGOs; 
• To support information campaigns for assistance to victims; 
• To support information campaigns to discourage potential clients. 
Community and Member State action point: 
• In accordance with the Fourth medium-term Community action programme on equal 
opportunities, to encourage the setting up of information systems on the rights of 
victims; to exchange information between Member States on a regular basis on how 
to tackle abuses connected with trafficking. 
Commission action point: 
• To consider, with Member States, coordinated information campaigns on trafficking 
in third countries with the EU delegations. 
II. 1. e: Training 
Action points: 
see particularly: II.2.a - Migration Training; 
II.4.b - Law Enforcement Training; 
II.5.e - Training in the Social Field. 
II. 2. MIGRATION 
II. 2. a: Migration Training 
EU action points: 
• To use the "STOP" programme for training of migration officials; 
• To carry out training actions related to false documents, in compliance with the 
multiannual Sherlock programme; 
Commission action point: 
• To introduce a proposal for a multiannual programme on training and exchange of 
28 
officials responsible for immigration, asylum and external borders, which will take 
into account the need for specific training for the officials dealing with these matters 
in the field of combatting and preventing trafficking in women. 
II. 2. b: Temporary Permit of Stay 
EU action point: 
• To reach rapid agreement on the draft joint action on a temporary permit of stay for 
victims. 
II. 3 JUDICIAL COOPERATION 
II. 3. b: National Legislation 
EU action points: 
• To implement the proposal in the "STOP" programme to collect information on 
relevant national legislation, to help assessments to be made of its effectiveness, as 
well as to facilitate judicial cooperation; 
• To consider encouraging source third countries to introduce and implement effectively 
criminal legislation against traffickers. 
IT. 3. c: New European Union Legal Instrument 
Member State and EU action point: 
• To reach agreement on a joint action on judicial cooperation covering trafficking in 
women which includes the key issues mentioned above and to consider introduction 
of extraterritorial jurisdictional provisions to cover traffickers in human beings. 
IT. 3. d: Sanctions 
Member State action point: 
• To consider the introduction of serious penalties for trafficking, which adequately 
reflect the grave nature of the offence. 
II. 4 POLICE COOPERATION 
If. 4. a: Cooperation and Communication 
Member State action point: 
• To ensure rapid implementation of the Europol Convention. 
29 
EU action point: 
• For EDU to set up the Directory of specialised competences and for Member States 
to designate national contact points. 
IT. 4. b: Law Enforcement Training 
EU and Member State action points: 
• To include in the "STOP" programme the above aspects in the training programmes 
for law enforcement officers; 
• To sensitise police to the position of victims, for example through joint training 
courses with bodies caring for victims; 
• To provide training in the languages of the victims, or at least to provide interpretation 
facilities; 
• To provide joint training courses with bodies caring for victims; 
• To develop training courses on trafficking under the "Oisin" law enforcement 
programme. 
Member State action point: 
• To make trained female officers available when requested by victims, and to inform 
victims of this possibility. 
IT. 4. c: Third Countries 
EU and Member State action points: 
• To open training to the countries of central and eastern Europe, and to extend the 
directory of contact points to be held by the EDU to non-EU countries; 
• To make best use of EU specialised liaison officers in source countries, in particular 
sharing of resources, with the aim of improvement of cooperation with local law 
enforcement authorities. 
II. 5 SOCIAL AND EMPLOYMENT DIMENSION 
IT. 5. b: Social Programmes 
Member State action point: 
• To support and develop local and national assistance programmes, social exclusion 
programmes and measures for reintegration. 
30 
Commission action points in coordination with Member States: 
• To make full use of the possibilities provided in the new Integra programme to assist 
victims of trafficking; 
• To make use of the "Leonardo" programme in order to provide training for people at 
risk; 
• To make use of the Programme "Prevention of AIDS and certain other communicable 
diseases...", and the Programme "Health Promotion ... in the field of public health", 
to help victims. 
II. 5. c: Reception and Rehabilitation Centres 
Member State action point: 
• For all Member States to support reception and rehabilitation centres. 
Commission action points: 
• Examine the possibilities to use the Youth for Europe programme to help in provision 
of havens for victims and to integrate, if possible, young volunteers of the new 
European Voluntary Service in some of the rehabilitation projects; 
• To exchange experience and best practice with regard, amongst other things, to the 
establishment of rehabilitation centres, access to the centres (for example trough the 
use of "Outreach" workers), and protection of confidentiality. 
IT 5. d: Employment Conditions 
Member State action points: 
• To exchange information on best practice on au pair working requirements; 
• Tp have coordination between social and health inspectorates, and law enforcement 
services with the aim of identifying and helping victims; 
• To assess whether the provisions in Community Directives concerning proofs of good 
character and repute provide an effective means of guaranteeing legitimate public 
order concerns for the activities to which they apply; 
• To assess the efficacy of Directive 64/221 on the coordination of special measures 
concerning movement and residence, which are justified on grounds of public policy 
(implementation of Article 56 of the Treaty of Rome). 
Commission action point: 
31 
• To encourage the Member States to assess the efficacy of the proofs required, and on 
the basis of the results of that assessment, if necessary, to propose appropriate action. 
II . 5. e: Training in the Social Field 
Member State action point: 
• To support local and national programmes for training of social and health personnel. 
Commission action points: 
• To examine the possibilities of specialised training for health and social workers in 
the framework of "Socrates" and/or "Leonardo"; 
• To use "Socrates" and/or "Leonardo" adult education programme for victims. 
PART III: COOPERATION WITH THIRD COUNTRIES 
Community and Commission action point: 
• To consider use, where possible, of agreements with third countries to discuss 
trafficking in women and the way in which partners can work together. 
III. 1. : CENTRAL AND EASTERN EUROPE AND THE NIS 
Community and Commission action points: 
• To make continued use of the Phare and Tacis Democracy and LIEN Programmes; 
• To stimulate use of any relevant Community programmes in the framework of the 
additional protocols, to the Europe Agreerhents with the CEEC; 
• To develop the legal framework in the CEEC and NIS countries through Phare and 
Tacis, in the context of policy advice, to promote actions in cross border cooperation 
to prevent illegal migration, including in the new programmes related to the third 
pillar; 
• To inform NGOs that the B7-7 Democracy Programme can also be used for actions 
to support victims of trafficking, such as development of prevention campaigns, 
development of confidential health care services and provision of social, medical and 
psychological support to victims of trafficking, development of comprehensive 
programmes designed to rehabilitate into society and/or into the country of origin, 
victims of trafficking through job training and legal assistance, development of human 
rights education which addressed the specific problem of trafficking in women and 
children; 
• To use the budget line on support for organisations offering practical aid to victims 
32 
of human rights violations (rehabilitation, legal advice, health treatment and assistance 
for victims of Human Rights violations), for specific project on victims of trafficking 
(B7-707); 
• To target to the fight against trafficking, subsidies for certain activities of 
organisations pursuing human rights objectives (B7-7040). 
EU action point: 
• To improve police and judicial cooperation, in particular with the CEEC in the 
framework of the structured dialogue on justice and home affairs. 
III. 2: AFRICA, CARIBBEAN AND PACIFIC COUNTRIES (ACP) 
Community and Commission action points: 
• To mobilise the European Development Fund in new fields such as improvement of 
legislation, judicial and police training against trafficking in women, and prevention 
and awareness-raising actions; 
• To promote dialogue on these issues with ACP countries, based on the Commission's 
experience in the field of drugs, and to designate an ACP rapporteur at the next Joint 
Assembly to initiate such a dialogue; 
• To support a pilot project to be devised in cooperation with NGOs, Member States 
and international organisations to be set up in a target country. It could concern 
prevention, training and rehabilitation (perhaps some victims could be offered an 
active role in their own rehabilitation i.e. designing, setting up and carrying out 
campaigns in the country); 
• To identify with other bodies involved (NGOs, Member States, international 
organisations) and set up incentive measures, research and pilot projects 
(rehabilitation, awareness and information campaigns with a view to prevention, 
targeting specific groups and the authorities concerned), using the relevant budget 
headings. 
III. 3: ALA/MED COUNTRIES 
Commission action points: 
• To identify with other bodies involved (NGOs, Member States, international 
organisations) relevant mediterranean, Asian and Latin American NGOs, such as 
women's associations; 
• To facilitate inclusion of a project on trafficking under the "MEDA Democracy 
Programme" and to use other relevant budget headings to set up and support incentive 
measures, research and pilot projects (rehabilitation, awareness and information 
campaigns with a view to prevention, targeting specific groups and the authorities 
33 
concerned) as well as projects aiming at the victims' social and economic 
reintegration. 
Community action point: 
To promote dialogue on sexual exploitation, where possible using the agreements with 
third countries. 
34 
ANNEX 2: Excerpts of main texts on trafficking 
1. 1993 JHA Recommendations on Trade in Human Beings for the Purposes of 
Prostitution (Council Press Release 10550/93 of 29-30 November 1993) 
Recommendation 1 
Whereas effectively combating procuring and dismantling prostitution exploitation networks 
require that police officers have the best information possible on other countries laws and 
foreign police methods of combat and practices, the Council recommends taking bilateral 
initiatives so that police officers may complete their training in this area 
Recommendation 2 
Whereas effectively combating the exploitation of prostitution may require the centralization 
of information at national level , the Council recommends that national authorities examine 
the possibility of setting up national co-ordination structures within States and developing 
international exchanges of that information. 
Recommendation 3 
The Council stresses the need to develop the role of the collection and distribution of 
information in this field by liaison officers with general powers seconded to Community 
Member States and to non-member countries from which the victims of prostitution networks 
originate. 
Recommendation 4 
As most Member States have no special legislation to deal with trade in human beings for the 
purposes of prostitution, the Council would stress the importance of considering the need for 
instituting information campaigns in diplomatic and consular circles and among the border 
control authorities in order to forestall the exploitation of prostitution, particularly when visa 
applications are examined. 
Recommendation 5 
The Council decides that work carried out in the fight against trade in human beings for the 
purposes of prostitution will be extended and intensified in the areas of administrative and 
police co-operation, law enforcement, immigration and entry to nationals territories. 
2. Vienna Declaration and Programme of Action A/CONF 157/23, World Conference 
on Human Rights, Vienna, 14-16 June 1993 
Part I, §18 The human rights of women and of the girl child are an inalienable, integral and 
indivisible part of the universal human rights (...) 
Gender-based violence and all forms of exploitation, including those resulting from cultural 
35 
prejudice and international trafficking, are incompatible with the dignity and worth of the 
human person and must be eliminated. 
Part II, §38 The World Conference on Human Rights stresses the importance of working 
towards the elimination of all forms of exploitation and trafficking in women (...) 
3. Beijing Declaration and Platform for Action of the Fourth World Conference on 
Women, China, 4-15 September 1995 
Objective D . Violence against women 
§122 The effective suppression of trafficking in women and girls for the sex trade is a matter 
of pressing international concern. Implementation of the 1949 Convention for the suppression 
of the traffic in persons and of the Exploitation of the prostitution of Others, as well as other 
relevant instruments, needs to be reviewed and strengthened. The use of women in 
international prostitution and trafficking networks has become a major focus of international 
organized crime. The Special Rapporteur of the Commission on human rights on violence 
against women, who has explored these acts as an additional cause of the violation of the 
human rights and fundamental freedoms of women and girls, is invited to address, within her 
mandate and as a matter of urgency, the issue of international trafficking for the purposes of 
the sex trade as well as the issues of forced prostitution, rape, sexual abuse and sex tourism. 
Women and girls who are victims of this international trade are at an increased risk of further 
violence, as well as unwanted pregnancy and sexually transmitted infection, including 
infection with HIV/AIDS. 
Strategic objective D3. Eliminate trafficking in women and assist victims of violence due to 
prostitution and trafficking (see. text if necessary,§130 a,b,c,d,e) 
4. Recommendations from the European Conference on Trafficking in Women, Vienna, 
10-11 June, 1996 
Recommendations from the Working Group on Migration Policy 
Considering that general consensus has emerged on the idea that migration policies have to 
be adapted to make the prevention and the repression of trafficking in women more effective, 
recognizing that, in order to combat trafficking in women, a more effective and closer 
cooperation has to take place between destination countries and countries of origin and transit, 
hereby; 
asks to improve and coordinate the collecting and the exchange of information and statistics, 
with a view to pooling the competences of the various EU and non-EU institutions; 
recommends to support research focusing on current trends of trafficking in women; 
stresses the importance of strengthening the existing training of civil servants dealing with 
36 
migration matters and including "trafficking- in women" in future multiannual exchange 
programs. 
In order to be able to prevent the entry of possible victims, the working group on migration 
recommends to: 
increase public awareness among the civil servants of the Member States, including those at 
Embassies and Consulates, in charge of the delivery of visas in order to reveal suspected 
cases before the visa application of the victims are concluded with the aim of combatting 
organized trafficking in the country of origin; 
increase public awareness among the potential victims in the countries of origin through 
information campaigns focusing on the one hand on the opportunities, limitations and rights 
of individuals in the case of legal migration and the risks linked to illegal migration on the 
other. 
In order to combat trafficking in women after the victims enter the destination country, the 
working group on migration recommends to: 
address the issue of temporary permit of stay for victims prepared to act as witnesses in 
judicial proceedings; 
address the issue of aid for repatriation of women victims of trafficking especially to help 
them to reintegrate into the society of their country of origin; 
recognize the important role of nongovernmental organizations and foster cooperation between 
them and governmental organizations. 
Recommendations from the Working Group on Judicial Cooperation 
Considering that trafficking in women is a serious form of organised crime, manifests a 
particular contempt for the rights of victims and is an attack on the dignity of women; 
Considering that rather than concentrating on the drafting of legal definition it is more 
important to address the characteristics of the phenomenon and in this context to focus on the 
elements of abuse and exploitation of the particularly vulnerable position and dependency of 
the victims regardless of apparent consent or the means and methods of trafficking; 
Considering that the Joint Action on Racism and Xenophobia provides a good model for 
addressing the issue of trafficking in women 
Ask the European Union in the context of judicial cooperation to: 
Assess the need for measures to criminalise the abuse of the vulnerable position of women 
(who, with or without their consent, have been the subject of trafficking for the purpose of 
sexual exploitation); 
37 
Prepare an inventory and evaluation of national legislation relevant to offenses related to 
trafficking in women and including detail of extraterritorial jurisdiction and the number of 
prosecutions and convictions; 
Encourage the ratification and effective implementation of existing international conventions 
on trafficking in persons; 
Apply provisions on confiscation of the proceeds of crime and money laundering to 
trafficking in women; 
Provide for information exchange on trafficking in women between judicial authorities, 
including establishing a legal basis for the spontaneous sharing of information; 
Recommend that each state establish a body for coordinating the fight against trafficking in 
women which would include representatives of the judicial, police, immigration and other 
appropriate authorities and organizations; 
Confirm that as trafficking in women is a form of organized crime, the EU resolutions of 23 
November 1995 on the protection of witnesses in the fight against organized crime (and the 
resolution on individuals who cooperate with the judicial process in the fight against 
organized crime) apply to all witnesses including victims; 
Ensure, by the granting of temporary residency, the availability of victims for the duration of 
any police investigation and judicial proceedings, ensure proper coordination with the 
immigration authorities to avoid expulsion without consultation with the authorities in charge 
of investigating trafficking in women and ensure the provision of financial and other support 
for the victim during this period; 
Stress the need for greater cooperation with the organizations who assist victims; 
Consider measures to avoid the abuse of the INTERNET for the purpose of sexual 
exploitation. 
Recommendations from the Working Group on Law Enforcement and Police Cooperation 
GENERAL 
When dealing with trafficking in women, the women are victims of crime, and should be 
treated as such. Support for the victim is therefore a basic consideration. 
Investigations will be greatly benefitted if the victims cooperates, and this must be encouraged 
and facilitated by an appropriate legal framework, such as the grant of specific residence 
permits and witness protection schemes. 
Cooperation between different authorities and NGOs should be developed. 
There must be a focus on all types of trafficking in persons for sexual abuse. Additionally, 
38 
specific research on trafficking in women for sexual abuse will not only enrich general 
research, but also lead to identify specific needs and approaches. 
Clear definitions at national and international level are needed in order to identify the limits 
of the phenomena to be analyzed and studied. It should be borne in mind that trafficking in 
women is not always linked to illegal immigration. Legal migrants can also be victims of 
trafficking activities. 
Higher political profile should be given to the issue, thus enabling national authorities to take 
appropriate action. 
An interdisciplinary and multiagency has to be guaranteed at both national and international 
level. No single agency can deal with this complex issue. 
Improved information needs to be made available in countries of origin in order to warn 
potential victims and other concerned bodies. 
NATIONAL LEVEL 
Law enforcement agencies must contribute to awareness raising both within themselves and 
to all other concerned authorities. Initiatives which have been started in the law enforcement 
field should be encouraged. 
The creation of one central unit in each Member State would help to ensure a 
multidisciplinary approach, making use of the experience gained in some EU Member States. 
The participation of all interested agencies and NGOs must be guaranteed. 
A national strategy to be developed in each country should be based on the following logic: 
- concrete insight into the phenomena, thorough development of strategic and operational 
analysis, making use not only of police intelligence but of all relevant information and 
indicators. These efforts could be structured on a common basis, perhaps making use of the 
IOM anti traffic model; 
- an adequate preventive policy; 
- an enforcement policy, not limited to criminal investigations and proceedings (punishment, 
seizure of assets, forfeiture of unlawfully owned property) but also on administrative measures 
(licences, employment regulations, tax measures). 
Specific training programmes for police working on combatting trafficking in women (social 
and legal aspects, money laundering, psychological training, functioning of reception centres) 
need to be developed. 
Contacts between victims and police authorities should be encouraged by increasing 
confidence of victims in police officers, in particular through language training, better 
sensitization to the specific situation of the victims for the police, and availability of female 
police officers requested. 
39 
INTERNATIONAL 
Although participation in all international fora should be pursued, a specific EU approach 
would be useful. 
An interdisciplinary (interpillar) action plan should be developed at EU level. 
Analysis at international level (EU and countries of origin) must be carried out. Better police 
cooperation (within the framework of national law) should be organised, also in close 
cooperation with Europol and Interpol. 
It is essential that intelligence can be exchanged in a speedy and effective manner. This 
should be done bilaterally and where appropriate, though cooperation via the Europol Drugs 
Unit, Interpol, and other partnership programmes between countries. 
National contact points need to be developed, and a directory, similar to existing national 
ones, should be started, both within the EU and with the other countries concerned. 
Appropriate law enforcement training should be developed with third countries. Use should 
also be made of existing training institutes and programmes. 
Within the EU, initiatives must be developed to bring the Member States into a position to 
combat equally effectively organised crime type related forms of criminality. 
Recommendations from the workshop on Social Policy and Protection 
The working group on social policy: 
Considering the importance of the problem of trafficking in women and the common 
knowledge of the issue, 
Considering the constant increasing trend of the phenomenon, 
Considering that traffickingMn women is not only a social issue but is mainly a human rights 
problem because it directly involves the human dignity, 
Considering the resolution unanimously adopted by the European Parliament on this subject, 
Considering that some Member States have taken a major step in the fight against trafficking 
in women while others have not yet put this issue on their agenda, 
has distinguished three factors in the social dimension of trafficking in women: 
* Structural problems (poverty, inequality, change of values, social exclusion, 
etc) 
* The actors (traffickers, clients, victims) 
* Consequences (human rights violations, health problems, etc) 
identifies three level of intervention: 
* International and regional organizations and the European Union 
40 
* States 
* Civil society and NGOs 
recalls the need to use the following instruments: 
* International and regional instruments (Conventions, resolutions, etc) 
* Financial instruments 
IN THE FIELD OF PREVENTION: 
asks the authorities concerned for an effective application of the adopted instruments, 
asks for the development of preventive awareness programs in origin, transit and 
destination countries (as, for example, information campaigns of the public, in 
particular the young people) that have to adapt to the specific social and cultural 
situations in each country, 
states the importance of public awareness campaigns on the issue of sex tourism, 
encourages the exchange of information and experience on trafficking att EU level and 
with third countries, 
asks the EU and the Member States to support qualitative and quantitative research 
on data comparative legislation and relevant policy analysis, as well as.studies on the 
structure of demand, 
invites the EU and the Meber States to develop special interdisciplinary training for 
the people dealing with the issue (such as judges, police officers, doctors and social 
workers), 
stresses the role of the embassies in fight against trafficking, 
asks for the creation and/or the development of programs to combat social exclusion, 
IN THE FIELD OF ASSISTANCE TO THE VICTIMS: 
asks the Member States to ensure appropriate protection and, when necessary, facilitate 
access to justice for the victims, 
encourages the creation of further local reception and rehabilitation centers for victims 
of trafficking in order to provide them with psychical, medical, social and 
administrative support (specific actions for specific means), 
reminds the importance of cooperation between police and judicial authorities, 
asks the Member States to facilitate complementary and coordinated actions between 
the different actors fighting against trafficking in women, 
IN THE FIELD OF THE REHABILITATION OF VICTIMS: 
asks for the development of assistance programs and special measures that facilitate 
41 
reintegration in the society and/ or into the county of origin, including better use and 
extension of various EC programs in the framework of development cooperation and 
association agreements with third countries, 
invites the Member States and the EU to support initiatives of the countries of origin 
for a full reintegration of the victims, 
*** 
As a follow-up to the Conference 
every national government should consider the problem of trafficking in women as a 
priority, 
a network should be created between official and non-official institutions in order to 
achieve the necessary synergies and to coordinate discussions and initiatives, 
all institutional actors should broaden the scope of the existing budgetary lines to 
include the fight against trafficking in women, 
to examine the possibility to draft a specific legal instrument at the European level. 
42 
ANNEX 3. Detailed bibliography on Trafficking in Women in Europe 
1. International reference tools 
a) Universal instruments 
- International Agreement for the suppression of the white slaw traffic, signed at Paris on 18 
May 1904 
- International Convention for the suppression of the white slave traffic, signed at Paris on 
4 May 1910 and amended by the Protocol signed at Lake Success, New York, on 4 May 1949 
- International Convention for the suppression of the traffic in women and children, concluded 
at Geneva on 30 September 1921 and amended by the Protocol signed at Lake Success, New 
York, on 12 November 1947 
- International Convention for the suppression of the traffic in women of full age, concluded 
at Geneva on 11 October 1933 and amended by the Protocol signed at Lake Success, New 
York, on 12 November 1947 
- Convention for the Suppression of the Traffic in Persons and the Exploitation of the 
Prostitution of Others - approved by the General Assembly in its resolution 317 (IV) of 
December 2, 1949, opened for signature at Lake Success, New York, on 21 March 1950 
- Final Protocol to the Convention for the Suppression of the Traffic in persons and of the 
Exploitation of the Prostitution of Others, 21 March 1950 
- Third Committee Resolution concerning Traffic in women and girls; United Nations General 
Assembly, 50th Session (1995) 
- Resolution on Traffic in women and girls. Commission on the Status of Women, UN, 39th 
session (1995), (39/6) 
b) Council of Europe 
- Recommandation 161 (3 mai 1958) de l'Assemblée consultative demandant une ratification rapide 
de fa Convention internationale du 2 décembre 1949 pour la répression et l'abolition de la traite des 
êtres humains et de l'exploitation de la prostitution 
c) European Communities 
ACP-EU Joint Resolution on the Traffic in Women, adopted on 27 September 1991 in 
Assembly Amsterdam 
ACP-EU Joint Resolution on the specific role of women in development cooperation and 
Assembly trafficking in women, adopted on 22 March 1996 in Windhoek (Namibia) (ref: 
ACP-El/l674/96/fin.) 
European Parliament Resolution on violence against women - adopted on 11 June 1986 (rcf: OJ C 
176. 14.7.1986) 
43 
European Parliament Resolution on the exploitation of prostitution and trade in human beings -
adopted on 14 April 1989 (rcf: OJ C 120, 16.5.1989) 
European Parliament Resolution on trade in women, adopted on 16 September 1993 (ref: OJ C 
268,4.10.1993) 
European Parliament Resolution on trafficking in human beings - adopted on 18 January 1996 
(OJC 32, 5.2.1996) 
Council of the Recommendations of the Council of Justice and Home Affairs ministers 
European Union on Trafficking in Human Beings, 29 and 30 November 1993 
II. Related instruments 
a) Universal instruments 
- Slavery Convention signed at Geneva on 25 September 1926 
-ILO Convention concerning Forced Compulsory Labour signed at Geneva on 28 June 1930 (No.29) 
- Déclaration Universelle des Droits de l'Homme - adoptée et proclamée par l'Assemblée générale dans 
sa résolution 217 A (III) du 10 décembre 1948 
- European Convention for the Protection of Human Rights and Fundamental Freedoms of 4 
November 1950 
- Supplementary Convention on the Abolition of Slavery, the Slave Trade and Institutions and 
Practices Similar to Slavery, 1 September 1956 
- ILO Convention concerning the Abolition of Forced Labour , 1957 (NO. 105) 
- International Covenant on Civil and Political Rights of December 1966 
- Convention on the elimination of all forms of discrimination against women, 18 December 1979 
- General Assembly's resolution (42/140) of 7 December 1987 on the rights and dignity of migrant 
workers 
- Convention on the Protection of the Rights of all Migrant Workers and Members of their Families 
of 18 December 1990 
- General Assembly resolution (48/102) of 20 December 1993 on the combat against alien-smuggling. 
- Economic and Social Council resolution (1995/10) of 24 July 1995, concerning criminal justice 
action to combat the organized smuggling of illegal migrants across national boundaries 
b) Council of Europe 
- Convention de sauvegarde des droits de l'homme et des libertés fondamentales, Rome 4 novembre 
1950 
44 
- European Convention on Extradition of 13 December 1957 
- European Convention on Mutual Assistance in Criminal Matters of 10 April 1959 
- European Convention on the Transfer of Proceedings in Criminal Matters of May 1972 
- Convention for the Protection of Individuals with regard to Automatic Processing of Personal Data, 
28 January 1981 
- Convention on Laundering, Search, Seizure and Confiscation of the proceeds from Crime, 8 
November 1990 
- Recommendation n" R (91) 11 of 9 September 1991 concerning sexual exploitation, pornography 
and prostitution of, and trafficking in, children and young adults and draft report thereto, 
CDPC(91)17, Strasbourg 18 July 1991 
c) European Communities 
European Parliament Resolution on a European Charter of Rights of the Child, adopted on 8 July 
1992 
European Parliament Resolution of 22 January 1993 on the setting up of Europol (ref: OJ C 42, 
15.2.1993) 
European Parliament Resolution of 17 December 1993 on pornography (ref: OJ C 20, 24.1.1994) 
European Parliament Resolution of 19 May 1995 on the Europol Convention (ref: OJ C 151, 
19.6.1995) 
d) Others 
Schengen Agreement on Abolition of Border Checks, 1985 
III.Reports 
UN Declaration on the Elimination of Violence against Women, 1993 
UN Advancement of Women - Traffic in women and girls - Report of the 
Secretary-General, August 1995 (rcf: A/50/369) 
UN Third Committee Report of the Secretary General to the 50th Session of the 
General Assembly concerning Traffic in women and girls; (1995) (rcf: 
A/50/369) 
UN Fourth World Conference on Women - Beijing, China, 4-15 September 1995, 
section D, (rcf: A/CONF. 177/L./Add.20) 
UN UN Expert Group Meeting on Violence against Women Migrant Workers -
Manila, Philippines - 27-31 May 1996 
45 
UN 
IOM 
IOM 
IOM 
IOM 
IOM Programme of Action of the UN Commission on Human Rights for the 
Prevention of the Traffic in Persons and the Exploitation of Others, 1996 
"Trafficking in Migrants", Quarterly Bulletin of the International Organization 
for Migration, N'4, September 1994. 
Seminar on 'International Response to Trafficking in Migrants and the 
Safeguarding of Migrant Rights', Geneva, 26-28 October 1994 
Trafficking and Prostitution: the growing exploitation of migrant women from 
Central and Eastern Europe, May 1995. 
Trafficking in women for sexual exploitation to Italy, June 1996 
Trafficking in Women to Austria for Sexual Exploitation, in collaboration with 
the Office of the Austrian Minister of Women's Affairs, June 1996 
Council of Europe 
Council of Europe 
Council of Europe 
Council of Europe 
European Parliament 
INTERPOL 
Michèle HIRSCH 
IGC Working papers and Proceedings of the Seminar on action against traffic in 
women and forced prostitution as violations of human rights and human 
dignity (Strasbourg 25-27 September 1991) (ref: EG/PROST (91)) 
Final report of the Group of Specialists on action against traffic in women and 
forced prostitution (EG-S-TP) with amended appendices, Steering Committee 
for equality between men and women (CDEG), June 1994, (ref: 
s:\equality\cdeg94\ecdeg31.94) 
Amended summary of national replies to the questionnaire on forced 
prostitution and traffic in women, Steering Committee for equality between 
men and women (CDEG), June 1994, (ref: s:\equality\cdeg94\ecdeg32.94) 
Synthesis of answers by the individual countries to the questionnaire on forced 
prostitution and traffic in women - amended tables, Steering Committee for 
equality between men and women (CDEG), June 1994, (ref: 
s:\equality\cdeg94\ecdeg33.94) 
Report on behalf of the Committee on Women's Rights on Exploitation of 
Prostitution and the traffic in Human Beings: rapporteur Carmen Llorca 
Vilaplana, Session document of 31 March 1989, A2-52/89 
Recommandations du Colloque international sur la traite des êtres humains 
(Saint-Cloud, 21-23 septembre 1988) 
Plan of Action against Traffic in women and forced prostitution for the 
Council of Europe, 9 April 1996 (rcf: EG (96) 2) 
(Inter-Governmental Consultations on Asylum Refugee and Migration Policies 
in Europe, North America and Australia) 
-Answers by Participating States to the Questionnaire on Trafficking of Aliens. 
Document: IGC/TRAF/7/94 
- Exchange of information on Alien's trafficking in states in Europe, North 
America and Australia, December 1995 (ref: IGCATRAF/10/95(1)) 
46 
Budapest Group "Anti-trafficking model legislation", Report of the working group of the 
Budapest Group, prepared by Belgium and Poland with the technical support 
of IGC, Ljubljana, 13-14 June 1996 
IV. Related reports 
INTERPOL 
UNHCR Conclusions de la Réunion européenne en matière d'exploitation de la 
prostitution et de la pornographie (Saint-Cloud, 28-29 septembre 1987) 
"Sexual violence against Refugees -Guidelines on Prevention and Response" -
Geneva 1995 
UN 
UN 
UN 
UN 
UN 
UN 
UN 
UN 
UNESCO 
UNESCO Report of the Working Group on Contemporary Forms of Slavery on its 
sixteenth session, Economic and Social Committee, Commission on Human 
Rights, E/CN.4/Sub.2/1991/41, 19 August 1991 
Report of the World Conference on Human Rights, Vienna, 14-25 June 1993 
(A/CONF. 15 7/ (Part I)), chap III 
Report of the International Conference on Population and Development, 
Cairo, 5-13 September 1994 (A/CONF. 171/13), annex, para 4.9; 10-15; 10.20 
Economic and Social Council - Reports prepared by the Secretary General 
to combat the smuggling of illegal migrants 
(refs: A/49/350,E/CN. 15/1995/3) 
UNICRI - The World's Women 1995: Trends and Statistics, prepared by the 
Statistics Division of the Department for Policy Analysis 
Economic and Social Council - Commission on Crime Prevention and 
Criminal Justice - Review of priority themes - Measures to combat the 
smuggling of illegal migrants - Report of the Secretary General, 21 March 
1996 (ref: E/CN. 15/1996/4) 
Economic and Social Council - Commission on Crime Prevention and 
Criminal Justice - Review of priority themes - Elimination of violence against 
women, 23 May 1996 (ref: E/CN15/I996/L.10) 
Report of the Special rapporteur on violence against women, April 1996 (ref: 
E/CN.4/1996/53) 
Conclusions et recommandations générales de la réunion internationale 
d'experts sur les causes socio-culturelles prostitution et stratégies contre le 
proxénétisme et l'exploitation sexuelle des femmes (Madrid, 18-21 mars 19Ï} 
(ref: SHS-85/CONF.608/14) 
Fédération Internationale des Droits de l'Homme. Conseil international des 
femmes, Communauté Française de Belgique: "Actes de la conférence de 
Bruxelles du 6 mars 199S, Commerce du sexe et droits humains (2ème 
édition)" 
47 
V . Available National Resources 
a) Belgium 
- Belgian parliamentary Enquête parlementaire en vue d'élaborer une politique structurelle visant 
Commission on la répression et l'abolition de la traite des êtres humains. Chambre des 
Trafficking Représentants de Belgique, (ref: 673/8-91/92, 18 mars 1994) 
(BPCT) 
- Centre pour l'Egalité Rapport annuel d'évaluation sur l'évolution et les résultats de la lutte contre 
des Chances et la lutte la traite des êtres humains, mars 1996 
contre le racisme 
b) The Netherlands 
Ministry of Vrouwenhandel, Onderzoek naar aard, globale omvang en de kanalen 
Social Affairs waarlangs vrouwenhandel naar Nederland plaatsvindt, 1985, Buijs, H.W.J. 
en Verbraken, A-M. 
Openbaar Ministerie Plan van Aanpak Mensensmokkel, Landelijk Officier van Justitie The 
mensensmokkel, Mvr P.M.H. van der Molen-Maesen, rotterdam, maart 1996 
c) France 
Ministère de l'Intérieur Office Central pour la Répression de la Traite des Etres Humains: 
et de l'Aménagement - Rapport 1994, 
du territoire - Rapport du 4ème colloque sur la criminalité organisée, décembre 1994 
(ref: DCPJ/AC4/OCRTEH) 
Ministère de l'intérieur Prostitution et proxénétisme en Europe, étude conçue et réalisée par Anne 
et de l'Aménagement Cazals, La Documentation Française (ref: DF 5 3318-1), Paris 1995 
du territoire 
d) Germany 
Bundesministerium Umfeld uns Ausmafî des Mensçhenhandels mit auslandischen Madchen und 
fur Frauen und Jugend Frauen. Schriftenreihe des BMFJ, Bd. 8, Lohlhammer, Stuttgart 
Koths, KOK Lagebild Menschenhandel 1994, Wiesbaden, 1995 (ref: OA 31-331/332) 
Hamisch, KK'in 
e) Sweden 
Prostitution Commission Betânkande av 1993 ârs Prostitutionsutredning, SOU 1995:15 
VI .Publications 
Agistra Frauenhandel und Proslitulionstourismus, Fine bestandaufnahme. Trickstcr-
Verlag, Mùnchcn, 1990 
48 
Ban Ying e. V. 
Barry, K. 
Bouffioux, M. 
De Staercke, J-P. 
Cabiaia, E. 
Caritas Suisse 
Davies, C. 
Dem, H. 
de Boer, M. 
De Stoop, C. 
De Stoop, C. Der handel mit auslândischen Frauen in Berlin - cine Bcstandsaufnahmc, 
Berlin Koordinationsstclle, 1994 
"The prostitution of Sexuality", 381 pages, June 1996, (ISBN: 0-8147-1277-0) 
"Appellez-moi Elvira" Traite des Femmes et Réseaux de Pédophilie en 
Belgique Francophone, Editions Luc Pire, Bruxelles, 1994 
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