Voorstel voor een BESLUIT VAN DE RAAD betreffende de sluiting, namens de Europese Gemeenschap, van het Protocol tegen de smokkel van migranten over land, over zee en door de lucht, gehecht aan het Verdrag van de Verenigde Naties tegen de grensoverschrijdende georganiseerde criminaliteit

(door de Commissie ingediend)

TOELICHTING

1. Achtergrond

In haar Resolutie 53/111 van 9 december 1998 heeft de Algemene Vergadering van de Verenigde Naties besloten een open intergouvernementeel ad-hoc comité op te richten, dat ermee werd belast een Verdrag tegen de grensoverschrijdende georganiseerde criminaliteit (UNTOC - UN Convention against transnational organised crime) op te stellen, aangevuld met drie protocollen:

- ter voorkoming, bestrijding en bestraffing van mensenhandel, inzonderheid handel in vrouwen en kinderen (protocol inzake mensenhandel);

- tegen de smokkel van migranten over land, over zee en door de lucht (protocol inzake mensensmokkel); en

- tegen de illegale vervaardiging van en handel in vuurwapens, onderdelen ervan en munitie (protocol inzake vuurwapens).

De eerste formele zitting van het ad-hoc comité vond plaats in januari 1999 in Wenen.

In juli 1999 heeft de Commissie aan de Raad een aanbeveling gedaan voor een besluit van de Raad tot machtiging van de Commissie om ten aanzien van alle aspecten die onder communautaire bevoegdheid vallen onderhandelingen te voeren betreffende het UNTOC en het protocol inzake mensensmokkel.

Naar aanleiding van deze aanbevelingen heeft de Raad de Commissie gemachtigd onderhandelingen te voeren over het ontwerp-UNTOC [1] en het ontwerp-protocol inzake mensensmokkel [2].

[1] Besluit van 2 mei 2000.

[2] Besluit van 14 februari 2000.

De Commissie heeft actief deelgenomen aan de VN-onderhandelingen in Wenen, in nauwe samenwerking met de EU-lidstaten en de niet-EU-landen van de G8. De onderhandelingen over het UNTOC werden afgerond in juli 2000; de werkzaamheden met betrekking tot het protocol inzake mensensmokkel liepen door tot oktober 2000. De Algemene Vergadering van de Verenigde Naties heeft deze instrumenten goedgekeurd in haar 55e zitting op 15 november 2000 [3] en ze voor ondertekening opengesteld.

[3] Resolutie A/RES/55/25 van de AV van de VN.

De Italiaanse regering fungeerde van 12 tot 15 december 2000 als gastheer voor een politieke conferentie op hoog niveau in Palermo met het oog op de ondertekening van het UNTOC en het protocol inzake mensensmokkel. Aangezien de Commissie, overeenkomstig haar onderhandelingsrichtsnoeren, in de onderhandelingen had bereikt dat deze instrumenten niet alleen zouden openstaan voor ondertekening door staten, maar ook door regionale organisaties voor economische integratie zoals de EG, machtigde de Raad haar om, namens de Europese Gemeenschap, het UNTOC en het protocol inzake mensensmokkel tijdens deze conferentie te ondertekenen [4]. Op 12 december 2000 in Palermo heeft de Europese Gemeenschap formeel deze instrumenten ondertekend, samen met alle EU-lidstaten.

[4] Besluit 2001/87/EG van de Raad, PB L 30 van 1.2.2001, blz. 44.

Het UNTOC [treedt in werking] [is in werking getreden] op 29 september 2003. Het protocol inzake mensensmokkel is nog niet in werking getreden; daartoe is de bekrachtiging ervan door minstens veertig staten vereist. Volgens zijn slotbepalingen kan het protocol niet eerder in werking treden dan het Verdrag en moet een staat of een regionale organisatie voor economische integratie, om partij te worden bij het protocol, tevens partij worden bij het Verdrag. Daarom wordt gelijktijdig met dit document een ontwerpbesluit van de Raad ingediend met het oog op de sluiting, namens de Europese Gemeenschap, van het UNTOC.

Een regionale organisatie voor economische integratie kan het protocol inzake mensensmokkel niet bekrachtigen voordat minstens één van haar lidstaten dit heeft gedaan. Van de vijftien EU-lidstaten hebben Spanje (op 1 maart 2002) en Frankrijk (op 29 oktober 2002) bij het secretariaat-generaal van de VN reeds een akte van bekrachtiging neergelegd voor het UNTOC en voor de protocollen inzake mensensmokkel en mensenhandel; de overige lidstaten zijn nog bezig met de bekrachtigingsprocedure.

2. Resultaten van de onderhandelingen over het protocol inzake mensensmokkel

De Commissie is van oordeel dat de door de Raad in de onderhandelingsrichtsnoeren gestelde doelen goed zijn bereikt.

Het protocol inzake mensensmokkel bevat verscheidene bepalingen die onder de bevoegdheid van de Gemeenschap vallen (Titel IV van het EG-Verdrag). Deze bepalingen zijn in grote lijnen in overeenstemming met het communautaire acquis op het gebied van asiel, immigratie en buitengrenzen, en in het bijzonder met het "Schengen"-acquis, zoals omschreven bij Besluit 1999/435/EG van de Raad van 20 mei 1999 [5]; een aantal ervan zijn zelfs identiek verwoord.

[5] PB L 176 van 10.7.1999, blz. 1.

De bepaling van het protocol betreffende maatregelen aan de grenzen voorziet in de mogelijkheid van een nauwere samenwerking tussen de met de grenscontrole belaste instanties en in de strafbaarstelling van vervoerders. Zoals verlangd in de onderhandelingsrichtsnoeren zijn deze maatregelen in verband met de grenzen van een niveau dat strookt met het acquis communautaire, inzonderheid met artikel 26 en artikel 27, lid 1, van de Overeenkomst ter uitvoering van het Akkoord van Schengen van 14 juni 1985 [6] en de aanvullende secundaire regelgeving [7]. Zoals verlangd in de onderhandelingsrichtsnoeren bevat het protocol ook bepalingen die de verdragsluitende partijen de verplichting opleggen de veiligheid en de kwaliteit van hun reis- en identiteitsdocumenten, inclusief visa, te bewaken en de wettigheid en geldigheid van die documenten te verifiëren wanneer er een vermoeden bestaat dat zij worden gebruikt voor mensenhandel of migrantensmokkel. Deze verplichting is in overeenstemming met het acquis communautaire, met name Verordening (EG) nr. 1683/95 van de Raad [8], gewijzigd bij Verordening (EG) nr. 334/2002 [9], betreffende een uniform visummodel. Het protocol behelst tevens een vrijwaringsclausule, waarin wordt gepreciseerd dat de bepalingen van het protocol de verplichtingen van de staten uit hoofde van het internationale recht, inzonderheid het Verdrag van Genève van 1951 en het Protocol van 1967 betreffende de status van vluchtelingen en het daarin vervatte beginsel van niet-terugwijzing ("non-refoulement"), onverlet laten. Ofschoon de EG geen partij is bij dat Verdrag, is zij gebonden door de inhoud ervan, met name krachtens artikel 63, punt 1, van het EG-Verdrag.

[6] PB L 239 van 22.9.2000, blz. 19.

[7] Richtlijn 2001/51/EG van de Raad van 28 juni 2001, PB L 187 van 10.7.2001, blz. 45.

[8] PB L 164 van 14.7.1995, blz. 1.

[9] PB L 53 van 23.2.2002, blz. 7.

Tenslotte zijn de verplichtingen die het Verdrag de staten oplegt met betrekking tot het vergemakkelijken en aanvaarden van de terugkeer en repatriëring van personen die eigen onderdanen zijn of een permanent verblijfsrecht genieten voor hun grondgebied, verenigbaar met de onderhandelingen die de Gemeenschap momenteel voert met het oog op de sluiting van overeenkomsten met derde landen over de overname van personen die illegaal op het grondgebied van lidstaten binnenkomen of verblijven.

3. Bijzondere positie van het Verenigd Koninkrijk, Ierland en Denemarken

De bepalingen van het protocol inzake mensensmokkel die onder de bevoegdheid van de Gemeenschap vallen, ressorteren onder Deel III, Titel IV van het Verdrag tot oprichting van de Europese Gemeenschap.

Overeenkomstig artikel 1 van het Protocol betreffende de positie van het Verenigd Koninkrijk en Ierland, gehecht aan het Verdrag betreffende de Europese Unie en het Verdrag tot oprichting van de Europese Gemeenschap, zijn het Verenigd Koninkrijk en Ierland niet gebonden door deze bepalingen als onderdeel van de Gemeenschap, tenzij zij gebruik maken van de in het protocol geboden "opt-in"-mogelijkheid.

Overeenkomstig de artikelen 1 en 2 van het Protocol betreffende de positie van Denemarken, gehecht aan het Verdrag betreffende de Europese Unie en het Verdrag tot oprichting van de Europese Gemeenschap, is Denemarken niet gebonden door deze bepalingen als onderdeel van de Gemeenschap.

4. Conclusies

Het protocol inzake mensensmokkel is het eerste mondiale instrument in de strijd tegen de transnationale georganiseerde criminaliteit en de smokkel van migranten. Het brengt een zeer nuttig multilateraal kader tot stand en voorziet in tal van belangrijke minimumnormen voor alle deelnemende staten. De Europese Gemeenschap heeft er dan ook alle belang bij dat het protocol zo spoedig mogelijk in werking treedt. De voltooiing van het bekrachtigingsproces door de Europese Gemeenschap vormt een krachtig signaal dat de Gemeenschap de doelstellingen van dit instrument ter harte neemt.

Het bijgaande voorstel voor een besluit van de Raad vormt het juridische instrument voor het sluiten van het protocol inzake mensensmokkel door de Europese Gemeenschap, waarvoor de rechtsgrond te vinden is in de artikelen 62 en 63 juncto artikel 300 EG-Verdrag. Het voorstel behelst een eerste artikel waarbij het protocol namens de Europese Gemeenschap wordt goedgekeurd. Het tweede artikel machtigt de Voorzitter van de Raad om de persoon aan te wijzen die gemachtigd is om namens de Europese Gemeenschap de akte van goedkeuring neer te leggen. De tekst van het protocol is opgenomen in bijlage I. Bijlage II bevat de verklaring betreffende de draagwijdte van de bevoegdheid van de Europese Gemeenschap ten aanzien van de bij het protocol geregelde aangelegenheden, welke tezamen met de akte van goedkeuring dient te worden neergelegd (artikel 21, lid 3, van het protocol inzake mensensmokkel).

De Raad neemt zijn besluit met eenparigheid van stemmen na raadpleging van het Europees Parlement (artikel 300, lid 2, eerste alinea, juncto artikel 67 van het EG-Verdrag en artikel 300, lid 3, eerste alinea, EG-Verdrag).

De Commissie stelt derhalve voor dat de Raad het bijgaande besluit vaststelt.

2003/0196 (CNS)

Voorstel voor een BESLUIT VAN DE RAAD betreffende de sluiting, namens de Europese Gemeenschap, van het Protocol tegen de smokkel van migranten over land, over zee en door de lucht, gehecht aan het Verdrag van de Verenigde Naties tegen de grensoverschrijdende georganiseerde criminaliteit

DE RAAD VAN DE EUROPESE UNIE,

Gelet op het Verdrag tot oprichting van de Europese Gemeenschap, en met name op artikel 62, punt 2, artikel 63, punt 3, juncto artikel 300, lid 2, eerste alinea, en artikel 300, lid 3, eerste alinea,

Gezien het voorstel van de Commissie [10],

[10] PB , blz.

Gezien het advies van het Europees Parlement [11],

[11] PB , blz.

Overwegende hetgeen volgt:

(1) Over de elementen van bovengenoemd protocol die onder communautaire bevoegdheid vallen, heeft de Commissie namens de Gemeenschap onderhandeld, na daartoe door de Raad te zijn gemachtigd.

(2) De Raad heeft de Commissie er eveneens mee belast onderhandelingen te voeren betreffende de toetreding van de Gemeenschap tot deze internationale overeenkomst.

(3) Deze onderhandelingen zijn goed verlopen, en het daaruit resulterende instrument is door de Gemeenschap op 12 december 2000 ondertekend, overeenkomstig Besluit 2001/87/EG van de Raad van 8 december 2000 [12].

[12] PB L 30 van 1.2.2001, blz. 44.

(4) Sommige lidstaten zijn partij bij het protocol en in andere lidstaten loopt de bekrachtigingsprocedure.

(5) De bepalingen van het protocol die onder de bevoegdheid van de Gemeenschap vallen, ressorteren onder Deel III, Titel IV, van het Verdrag tot oprichting van de Europese Gemeenschap.

(6) Overeenkomstig artikel 1 [artikel 3] van het Protocol betreffende de positie van het Verenigd Koninkrijk en Ierland, gehecht aan het Verdrag betreffende de Europese Unie en het Verdrag tot oprichting van de Europese Gemeenschap, zijn het Verenigd Koninkrijk en Ierland [niet] gebonden door de bepalingen van het protocol die onder de bevoegdheid van de Gemeenschap vallen, als onderdeel van de Gemeenschap.

(7) Overeenkomstig de artikelen 1 en 2 van het Protocol betreffende de positie van Denemarken, gehecht aan het Verdrag betreffende de Europese Unie en het Verdrag tot oprichting van de Europese Gemeenschap, is Denemarken niet gebonden door de bepalingen van het protocol die onder de bevoegdheid van de Gemeenschap vallen, als onderdeel van de Gemeenschap.

(8) De sluiting van het Verdrag werd namens de Europese Gemeenschap goedgekeurd bij Besluit .../.../EG van de Raad van ... [13], hetgeen overeenkomstig artikel 37, lid 2, van het Verdrag voor de Europese Gemeenschap een voorwaarde is om partij te kunnen worden bij het protocol.

[13] PB , blz.

(9) Aan de andere voorwaarden voor de neerlegging door de Gemeenschap van de in artikel 36, lid 3, van het Verdrag en artikel 21, lid 3, van het protocol bedoelde akte van goedkeuring is voldaan.

(10) Het protocol dient te worden goedgekeurd, wil de Gemeenschap binnen de perken van haar bevoegdheid partij kunnen worden bij datzelfde protocol.

(11) De Gemeenschap moet overeenkomstig artikel 21, lid 3, van het protocol inzake mensensmokkel bij de neerlegging van de akte van goedkeuring tevens een verklaring neerleggen betreffende de draagwijdte van de bevoegdheid van de Europese Gemeenschap ten aanzien van de bij het protocol geregelde aangelegenheden,

BESLUIT:

Artikel 1

Het Protocol tegen de smokkel van migranten over land, over zee en door de lucht, gehecht aan het Verdrag van de Verenigde Naties tegen de grensoverschrijdende georganiseerde criminaliteit en opgenomen in bijlage I, wordt namens de Europese Gemeenschap goedgekeurd.

De formele akte van bekrachtiging van de Gemeenschap behelst tevens een bevoegdheidsverklaring in de zin van artikel 21, lid 3, van het protocol, die is opgenomen in bijlage II.

Artikel 2

De Voorzitter van de Raad wordt gemachtigd om de persoon aan te wijzen die gemachtigd is om de formele akte van bekrachtiging neer te leggen die de Gemeenschap bindt.

Dit besluit wordt bekendgemaakt in het Publicatieblad van de Europese Unie.

Gedaan te Brussel,

Voor de Raad,

De Voorzitter

BIJLAGEN

BIJLAGE I behelst de tekst van het Protocol.

BIJLAGE II

VERKLARING BETREFFENDE DE BEVOEGDHEID VAN DE EUROPESE GEMEENSCHAP TEN AANZIEN VAN AANGELEGENHEDEN DIE ZIJN GEREGELD BIJ HET PROTOCOL TEGEN DE SMOKKEL VAN MIGRANTEN OVER LAND, OVER ZEE EN DOOR DE LUCHT, GEHECHT AAN HET VERDRAG VAN DE VERENIGDE NATIES TEGEN DE GRENSOVERSCHRIJDENDE GEORGANISEERDE CRIMINALITEIT

Artikel 21, lid 3, van het protocol bepaalt dat in de akte van toetreding van een regionale organisatie voor economische integratie een verklaring moet worden opgenomen waarin de bij het protocol geregelde aangelegenheden worden opgesomd ten aanzien waarvan de bevoegdheid aan de organisatie is overgedragen door haar lidstaten die partij zijn bij het protocol.

Het Protocol tegen de smokkel van migranten over land, over zee of door de lucht is, voor wat betreft de aan de Europese Gemeenschap overgedragen bevoegdheden, van toepassing op de grondgebieden waarop het Verdrag tot oprichting van de Europese Gemeenschap van toepassing is, onder de in dat Verdrag, met name artikel 299 en de eraan gehechte protocollen, beschreven voorwaarden.

Overeenkomstig artikel 1 [artikel 3] van het Protocol betreffende de positie van het Verenigd Koninkrijk en Ierland, gehecht aan het Verdrag betreffende de Europese Unie en het Verdrag tot oprichting van de Europese Gemeenschap, zijn het Verenigd Koninkrijk en Ierland [niet] gebonden door de bepalingen van het protocol die onder de bevoegdheid van de Gemeenschap vallen, als onderdeel van de Gemeenschap. Bijgevolg is deze verklaring [niet] van toepassing op de grondgebieden van het Verenigd Koninkrijk en Ierland.

Overeenkomstig de artikelen 1 en 2 van het Protocol betreffende de positie van Denemarken, gehecht aan het Verdrag betreffende de Europese Unie en het Verdrag tot oprichting van de Europese Gemeenschap, is Denemarken niet gebonden door de bepalingen van het protocol die onder de bevoegdheid van de Gemeenschap vallen, als onderdeel van de Gemeenschap.

Deze verklaring is niet van toepassing op de grondgebieden van de lidstaten waarop het EG-Verdrag overeenkomstig artikel 299 niet van toepassing is, en laat de besluiten of standpunten onverlet die mogelijk door de betrokken lidstaten in het kader van het protocol zijn vastgesteld namens of in het belang van de betrokken grondgebieden. In overeenstemming met de bovengenoemde bepaling geeft deze verklaring aan welke bevoegdheid de lidstaten krachtens de EU-Verdragen hebben overgedragen aan de Gemeenschap in aangelegenheden die worden geregeld bij het protocol. De omvang en de uitoefening van de desbetreffende communautaire bevoegdheid zijn uiteraard voortdurend in ontwikkeling, en de Gemeenschap zal deze verklaring zonodig dan ook aanvullen of wijzigen overeenkomstig artikel 21, lid 3, van het protocol.

De Gemeenschap wijst erop dat zij bevoegd is met betrekking tot de overschrijding van de buitengrenzen van de lidstaten, de vaststelling van normen en procedures voor het uitvoeren van personencontroles aan die grenzen, alsmede voorschriften inzake visa voor voorgenomen verblijven van ten hoogste drie maanden. De Gemeenschap is tevens bevoegd voor het nemen van maatregelen inzake immigratiebeleid met betrekking tot de voorwaarden voor toegang en verblijf alsmede maatregelen ter bestrijding van illegale immigratie en illegaal verblijf, met inbegrip van de repatriëring van illegaal verblijvende personen. De relevante communautaire wetgeving is vervat in het Schengen-acquis op het gebied van buitengrenzen en reis- en identiteitsdocumenten, zoals dit is opgenomen in het kader van de Europese Unie, en de verdere ontwikkeling daarvan. Op deze gebieden staat het dan ook aan de Gemeenschap de passende voorschriften en verordeningen vast te stellen en, binnen haar bevoegdheidsgrenzen, externe verbintenissen aan te gaan met derde landen of bevoegde internationale organisaties.

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

Preamble

The States Parties to this Protocol,

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

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

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

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

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

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

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

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

Have agreed as follows:

I. General provisions

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

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

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

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

Article 2 Statement of purpose

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

Article 3 Use of terms

For the purposes of this Protocol:

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

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

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

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

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

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

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

Article 4 Scope of application

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

Article 5 Criminal liability of migrants

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

Article 6 Criminalization

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

(a) The smuggling of migrants;

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

(i) Producing a fraudulent travel or identity document;

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

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

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

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

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

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

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

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

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

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

II. Smuggling of migrants by sea

Article 7 Cooperation

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

Article 8 Measures against the smuggling of migrants by sea

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

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

(a) To board the vessel;

(b) To search the vessel; and

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

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

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

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

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

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

Article 9 Safeguard clauses

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

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

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

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

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

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

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

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

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

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

III. Prevention, cooperation and other measures

Article 10 Information

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

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

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

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

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

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

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

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

Article 11 Border measures

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

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

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

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

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

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

Article 12 Security and control of documents

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

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

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

Article 13 Legitimacy and validity of documents

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

Article 14 Training and technical cooperation

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

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

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

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

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

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

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

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

Article 15 Other prevention measures

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

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

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

Article 16 Protection and assistance measures

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

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

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

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

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

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

Article 17 Agreements and arrangements

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

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

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

Article 18 Return of smuggled migrants

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

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

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

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

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

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

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

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

IV. Final provisions

Article 19 Saving clause

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

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

Article 20 Settlement of disputes

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

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

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

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

Article 21 Signature, ratification, acceptance, approval and accession

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

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

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

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

Article 22 Entry into force

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

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

Article 23 Amendment

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

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

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

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

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

Article 24 Denunciation

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

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

Article 25 Depositary and languages

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

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

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