SL    SL  KOMISIJA EVROP SKIH SKUPNOSTI 
Bruselj, 18.10.2005 
KOM(2005) 514 kon čno 
  
SPOROČILO KOMISIJE EVROPSKEMU PARLAMENTU IN SVETU 
Boj proti trgovini z ljudmi – integrirani pristop in predlogi za akcijski na črt 
 
SL 2   SL BOJ PROTI TRGOVINI Z LJUDMI – CELOVIT PRISTOP IN PREDLOGI ZA AKCIJSKI 
NAČRT 
I. Uvod........................................................................................................................ ..... 3 
II. TEMELJNI CILJ: VARSTVO ČLOVEKOVIH PRAVIC.......................................... 3 
III. RAZSEŽNOST ORGA PRILOG A NIZIRANEGA KRIMINALA............................ 4 
IV. RAZSEŽNOST NEZAKONITEGA PRISELJEVANJA ............................................ 6 V. POSEBNE SKUPINE, ZLAST I ŽENSKE IN OTROCI............................................. 7 
VI. ZANESLJIVI PODATKI............................................................................................. 9 VII. USKLAJEVANJE IN  SODELOVANJE ..................................................................... 9 
PRILOGA........................................................................................................................ ......... 12 
 
SL 3   SL I. U VOD 
Cilj tega sporo čila je nadaljnja1 krepitev zaveze Evropske unije2 in držav članic prepre čevanju 
in boju proti trgovini z ljudmi za namene spolnega izkoriš čanja in izkoriš čanja delovne sile, 
kot je opredeljeno v Okvirnem  sklepu z dne 19. julija 2002 o boju proti trgovanju z ljudmi3, 
ter zaščiti, podpori in rehabil itaciji žrtev trgovine.  
Sporočilo je osnovano na priznanju, da je za us pešno reševanje vprašanja trgovine z ljudmi 
potreben integriran pristop, ki temelji na spoštovanju človekovih pravic in upoštevanju 
globalne narave tega vprašanja. Ta  pristop zahteva usklajeno politi čno ravnanje, zlasti na 
področju svobode, varnosti in pravice, zunan jih odnosov, razvojnega sodelovanja, 
zaposlovanja4, enakopravnosti med spoloma ter nediskriminacije. Prav tako ima namen 
okrepiti obsežen javno-zasebni dialog na tem podro čju. 
Tako ravnanje je zahtevano v Haaškem programu5, ki ga je novembra 2004 potrdil Evropski 
svet in v katerem sta Svet in Komis ija pozvana, naj v letu 2005 razvijeta na črt za skupne 
standarde, najboljše prakse ter mehanizme za prepre čevanje in boj proti trgovini z ljudmi ter 
za okrepitev boja proti neza konitemu priseljevanju6. 
Namen tega sporo čila, ki je bilo navedeno v Akcijskem na črtu Sveta in Komisije o izvajanju 
Haaškega programa7, je prispevati k vzpostavitvi tega na črta. Sporo čilo upošteva celoten 
akcijski na črt za boj proti nezakonitemu priseljevanju in trgovini z ljudmi iz leta 2002 kot tudi 
posvetovanje ter priporo čila, navedena v poro čilu Skupine strokovnjakov za trgovino z 
ljudmi8 iz decembra 20049, ki jo je Komisija ustanovila ob koncu leta 2003. 
II. TEMELJNI  CILJ:  VARSTVO  ČLOVEKOVIH  PRAVIC 
V središču politike EU proti trgovini z ljudmi so žrtv e trgovine, njihove potrebe in pravice. To 
pomeni predvsem jasno zavezo  institucij EU in držav članic, da bodo upoštevale pristop, ki 
temelji na človekovih pravicah , ter ga spodbujale v svojih z unanjih odnosih in razvojnih 
politikah. 
Člen 5(3) Listine Evropske unije o temeljnih človekovih pravicah10 prepoveduje trgovino z 
ljudmi v okviru nedotakljivosti človekovega dostojanstva, ki je  eno glavnih vodi l nacionalnih 
ustav in mednarodnih instrumentov varstva človekovih pravic in ki so zavezujo či za države 
članice. 
Glede na mednarodno pravo in zaveze država, ki dopuš ča trgovino z ljudmi ali ne sprejme 
nobenega u činkovitega ukrepa, da bi jo prepre čila, krši človekove pravice11. 
Institucije EU in države članice aktivno izvajajo poli tike krepitve prepovedi 
trgovine z ljudmi, vklju čno z zaščito dejanskih in potencialnih žrtev na ravni 
EU kot tudi na regionalni in mednarodni ravni. 
Državljani tretjih držav, ki so žrtve trgovine z ljudmi a nimajo pravnega statusa bivanja v EU, 
ne smejo biti izklju čeni iz take zaš čite12, zlasti če so sodelovali s pristojnimi organi držav 
članic in pri čali proti osebam, ki so trgovale z njimi. Poleg tega takim oseba, ne sme biti 
dejansko onemogo čeno uveljavljanje svojih pr avic, na primer za ukrepan je proti storilcu ali za 
uveljavljanje nadomestila ali iskanje azila. 
 
SL 4   SL Za zagotovitev skladnosti z zgoraj navedenimi na čeli po vsej EU je bistven redni nadzor in 
spremljanje na strokovni ter na politi čni ravni.  
Svet mora, v tesnem sodelovanju s Komisi jo in na osnovi poglobljenega dialoga 
s civilno družbo13, vsaj enkrat na leto organizirati politi čno razpravo o politiki 
EU boja proti trgovini z ljudmi ter ov rednotiti njeno skladnost s standardi 
človekovih pravic in potrebo po nadalj njem ukrepanju, npr. izboljšanje shem 
pomoči, zaščite in socialnega vklju čevanja14. 
O tem vprašanju se upravi čeno razpravlja v politi čnem dialogu s tretjimi državami na podlagi 
klavzule o bistvenih elementih človekovih pravic, ki je vklju čena v trgovinske sporazume EU 
in sporazume EU o sodelovanju, ter v ve čstranskih forumih15. 
Skupnost mora okrepiti politi čni dialog s partnerskimi državami na dvostranski 
in večstranski ravni glede dimenzije človekovih pravic v trgovini z ljudmi in 
politiki boja proti trgovini z ljudmi t er še naprej obravnavat i to vprašanje na 
regionalnih in ve čstranskih forumih.  
Evropska pobuda za demokracijo in človekove pravice je v le tu 2005/2006 temu vprašanju 
posvetila posebno pozornost ter predvidela posebno podporo v okvi ru kampanje „Spodbujanje 
kulture človekovih pravic“.  
Institucije EU in države članice morajo okrepiti prizadevanja za reševanje 
vprašanja trgovine z ljudmi znotraj EU in  v odnosih s tretjimi državami, npr. s 
krepitvijo prizadevanj za podporo po bud boja proti trgovini z ljudmi preko 
razvojnega sodelovanja. 
III. R AZSEŽNOST  ORGANIZIRANEGA  KRIMINALA  
Trgovina z ljudmi je hudo k aznivo dejanje proti osebam16, ki ga je potre bno obravnavati kot 
obliko organiziranega kriminala, povezanega z dr ugimi hudimi kaznivimi dejanji, in kot jasno 
prednostno nalogo organov kazen skega pregona. Visoki dobi čki iz izkoriš čanja delovne sile 
in spolnega izkoriš čanja17 so pogosto predmet pranja denarja in lahko trgovcem omogo čajo 
sodelovanje v drugih kriminalni h dejavnostih ter pridobivanje gos podarske, socialne ali celo 
politične moči18.  
Trgovina z ljudmi se mora spremeniti iz „dejavno sti organiziranega krim inala z malo tveganja 
in visokim dobi čkom“19 v dejavnost z veliko tveganja in nizkim dobi čkom. Organi 
kazenskega pregona morajo uporabiti vsa razpoložljiva sredstva in zmogljivost20 za 
uveljavitev prepovedi trgovine z lju dmi, da bi odvzeli gospodarsko korist, in da bi zasegli in 
zaplenili sredstva21, če je nastal finan čni dobiček. Preiskavi trgovine z ljudmi mora zato biti 
pri strokovnih preiskovalnih tehnikah za gotovljena enaka prednost kot drugim podro čjem 
organiziranega kriminala in uvesti je treba specialisti čne preiskovalne tehnike in strategije za 
prekinitev.  
Za učinkovit boj proti trgovini z ljudmi22 morajo države članice pri svojih 
organih kazenskega pregona zagotoviti  potrebne organizacijske strukture23 s 
specializiranim24 osebjem in ustreznimi finan čnimi sredstvi. Svet mora, na 
podlagi ocen Komisije in v okviru pristo jnosti Unije, zagotavljati reden nadzor 
ter razvijati standarde in merila.  
 
SL 5   SL Trgovina z ljudmi za namene izkoriš čanja delovne sile zahteva nove vrste 
specializacije in sodelovanja s partnerj i, npr. agencije odgovorne za nadzor 
delovnih pogojev in finan čne preiskave povezane z ne pravilnostmi glede delovne 
sile25. 
Protikorupcijske strategije morajo biti sestavni del vsake politike boja proti 
trgovanju26. 
Institucije EU in države članice morajo spodbujati boj proti trgovini z ljudmi 
kot prednostno nalogo v odnosih med organi kazenskega pregona s tretjimi 
državami27. 
Pričanje žrtve je zelo pome mben dokaz proti trgovcu z ljudmi. Glede na pove čano tveganje za 
žrtev, ki pri ča28, je izziv najti na čine, da bodo žrtve pripravljene pri čati in hkrati zagotoviti 
njihovo varnost, brez da bi izpostavlja li njih ali njihove svojce tveganju29. 
Države članice morajo zagotoviti zaš čito in pomo č žrtvam, ki pri čajo, kot 
sestavni del u činkovitega pregona in nadalje ra zvijati proaktivn e preiskave, ki 
temeljijo na pridobivanju inform acij in niso odvisne od pri čanja žrtev30. 
Evropski organi razpolagajo s posebnimi pristo jnostmi in specializiranim osebjem. Eurojust 
ima pristojnost glede trgovine z ljudmi31. Vloga Europola je še posebej pomembna32. 
Zagotavlja lahko dostop do informacij v zbirka h podatkov in nudi ope rativno podporo preko 
izmenjave informacij ter strokovnih nasvetov33. Olajšuje izmenjavo informacij in zagotavlja 
operativne analize državam članicam ter pripravlja strateška poro čila na podlagi informacij, ki 
so jih zagotovile države članice, predložil Europol ali so bile zbrane iz drugih virov. Vendar je 
pretok informacij od držav članic do Europola majhen v primerjavi s številom preiskav. Zdi 
se, da preiskave temeljijo bolj na spontanem dvo- ali ve čstranskem sodelovanj u in da se redne 
strukture ter mehanizmi štejejo zgolj za mo žnosti. Obstaja samo en dosje analiti čnega dela, ki 
ga v imenu držav članic upravlja Europol in se osredoto ča zlasti na trgovino z ljudmi34. 
Države članice morajo zagotoviti, da nacion alni organi kazenskega pregona 
redno vklju čujejo Europol v izmenjavo informac ij, skupne operacije in skupne 
preiskovalne skupine ter izrabljajo pote ncial Eurojusta za olajšanje pregona 
trgovcev z ljudmi. 
Evropski na čelniki policije morajo redno nadz irati operativno sodelovanje med 
državami članicami in, kjer je to pr imerno, oblikovati priporo čila za njegovo 
izboljšanje. 
Evropska policijska akademija (CEPOL) mora še naprej redno organizirati 
posebno usposabljanje za osebje v organih kazenskega pregona. 
Institucije in organi EU kot tudi države članice morajo podpreti in okrepiti 
regionalne oblike policijskega sodelovan ja predvsem preko programov kot je 
AGIS. 
Samo 15 držav članic je bilo 4. avgusta 2005 pogodbenic Protokola ZN proti trgovini z ljudmi 
in samo 13 držav članic je bilo pogodbenic Protokola ZN o tihotapljenju migrantov. Komisija 
je predlagala sklenitev teh prot okolov s strani Evropske skupnosti35 avgusta 200336, vendar 
 
SL 6   SL Svet zaradi nesoglasja glede obseg a pristojnosti Skupnosti v zvezi z dolo čbami teh protokolov 
še ni sprejel ustreznega sklepa. 
Svet mora čim prej37 sprejeti predlog sklepa o sk lenitvi Protok ola ZN proti 
trgovini z ljudmi v imenu ES, ki ga je 22. avgusta 200338 predložila Komisija.  
Instrumenti ES za boj proti pranju  denarja, zlasti za krepitev odziva kazenskega prava, kot je 
nova direktiva, ki jo pred kratkim predla gala Komisija, bodo obli kovali podlago za reševanje 
finančnih posledic trgovine z ljudmi39. Nov Okvirni sklep Sveta o zaplembi premoženjske 
koristi, pridobljene s kazn ivim dejanjem, pripomo čkov za kazniva deja nja in lastnine40 je 
treba v celoti uporabljati. Delo projektne skupine za finan čno ukrepanje, zlasti delovne 
skupine za tipologije (WGTYP),  ki se med drugim osredoto ča na metode pranja denarja, 
povezane s trgovanjem z ljudmi, mora biti nadzirano in ocenjeno, da bi se razv ile nadaljnje 
politične in operacijske možnosti boja  proti trgovini z ljudmi.  
IV. RAZSEŽNOST  NEZAKONITEGA  PRISELJEVANJA  
Kaznivo dejanje trgovine z ljudmi ima pogosto tr ansnacionalno razsežnost, saj se številne 
žrtve trgovine selijo  ali pripeljejo čez zunanje meje. Zaradi tega je prepre čevanje in boj proti 
trgovini z ljudmi bistven element prizadevanj EU za izboljšanje pregledov in nadzora na 
zunanjih mejah ter za okrepitev boj a proti nezakonitemu priseljevanju. 
Tihotapljenje migrantov in trgovina z ljudm i sta povezana z dejstvom, da ju pogosto 
organizirajo kriminalne zdru žbe, ki delujejo mednarodno, in sta del organiziranega 
kriminalnega fenomena, povezanega s povprašev anjem po poceni in nezakonitih storitvah. 
Kar zadeva delovanje takih združb pri olajševanj u nedovoljenega vstopa, tranzita in bivanja, 
igrata Direktiva 2002/90/ES z dne 28. novembra 200241 in Okvirni sklep iz istega dne42 
pomembno vlogo pri prepre čevanju teh krimin alnih dejavnosti. 
Svet je leta 2002 sprejel celovit akcijski na črt za boj proti nezakonite mu priseljevanju in 
trgovini z ljudmi v EU43, v katerem je naveden obsežen seznam ukrepov in dejavnosti, ki 
segajo od vizumske politike, izmenjave inform acij, ukrepov, povezanih z mejami, do vprašanj 
vračanja in kazenskih sankcij proti trgovcem z ljudmi. Številni ukrepi, predlagani v akcijskem 
načrtu iz leta 2002, so bili izvedeni44, zlasti: (1) Direktiva 2004/ 81/ES z dne 29. aprila 200445, 
ki opredeljuje pogoje za izdajo dovoljenja za bi vanje državljanom tretjih držav, ki so žrtve 
trgovine z ljudmi ali so bili vpleteni v akcije nezakonitega priseljevanja in ki sodelujejo s 
pristojnimi organi ter (2) Uredba  (ES) št. 491/2004 z dne 10. marca 200446 o ustanovitvi 
programa AENEAS za finan čno in tehni čno pomoč tretjim državam na podro čju migracij in 
azila, ki izrecno omogo ča sofinanciranje projektov, povezanih s prepre čevanjem in bojem 
proti trgovini z ljudmi.  
Enak celovit pristop je mogo če najti v Protokolu ZN o tihotap ljenju migrantov kot tudi v 
Protokolu ZN proti trgovini z ljudmi47, ki odražata globalno priznavanje problema in ju 
morajo vsi akterji v EU čim prej ratificirati.  
Da bi se boj proti trgovini z ljudmi okrepil, je  potrebno sprejeti naslednje ukrepe, povezane z 
nadzorom meja in upravljanjem priseljevanja: 
Države članice morajo – za izboljšanje po ložaja žrtev trgovine z ljudmi – 
pospešiti prenos Direktive 2004/81/ES48. 
 
SL 7   SL Komisija bo upoštevala možnost rednega organiziranja sestankov 
strokovnjakov iz držav članic za izmenjavo informacij  o sredstvih in metodah, 
ki se uporabljajo za namene tihotapl jenja migrantov, da bi prišli do prakti čnega 
sklepa glede prepre čevanja in boja proti trgovini z ljudmi, npr. glede nova čenja 
in prevoza žrtev. Evropska agencija za zunanje meje (FRONTEX) in Evropska 
policijska akademija (CEPOL) morata biti  v svojih programih usposabljanja še 
posebej pozorni na te fenomene.  
Države članice morajo, na podlagi prihodnj e Uredbe o vzpostavitvi kodeksa 
Skupnosti o pravilih gibanja oseb preko meja49, zagotoviti, da bo posebna 
pozornost namenjena u činkovitejšim in bolj ciljno usmerjenim pregledom na 
zunanjih mejnih prehodih EU glede potencialnih žrtev trgovine z ljudmi. 
Agencija FRONTEX bo pri te j nalogi pomagala državam članicam. FRONTEX 
mora pri usklajevanju in organizi ranju skupnih operacij ter poskusnih 
projektov na zunanjih mejah in pri izpo lnjevanju svoje funkcije glede analize 
tveganja upoštevati potrebo po boju proti trgovini z ljudmi. EUROPOL in 
FRONTEX morata na tem podro čju sodelovati v okviru  svojih pristojnosti.  
Svet mora čim prej uvesti biometri čne identifikatorje v vizumih in na 
dovoljenjih za bivanje EU, saj varnejši dokumenti pripomorej o k identifikaciji 
žrtev trgovanja. 
Svet, Evropski parlament50 in Komisija morajo v skladu s svojimi pristojnostmi 
čim prej dokon čati razvoj skupnega vizumske ga informacijskega sistema. 
Konzularno osebje v državah izvora mora sodelovati in izmenjevati izkušnje ter 
se usposabljati za prepoznavanje vlog za vizume, ki bi lahko imele za posledico 
trgovino z ljudmi51. 
V. P OSEBNE  SKUPINE,  ZLASTI  ŽENSKE  IN OTROCI  
Spodbujanje nediskriminacije, vklju čno z enakopravnostjo med spoloma, pravicami otrok, 
domorodcev in manjšin52, je še posebej pomembno, saj je veliko žrtev ali potencialnih žrtev 
trgovine z ljudmi žensk, otrok al i posameznikov, ki pripadajo etni čnim skupinam ali 
manjšinam, in so lahko izpostavljeni diskrimina ciji v okolju, iz katerega  izvirajo. Trgovina z 
ljudmi ni nujno kaznivo dejanje, veza no na spol, saj so moški, zlasti de čki, tudi žrtve spolnega 
izkoriščanja in izkoriš čanja delovne sile. Vendar je trgovina z ženskami in deklicami, zlasti za 
dobičkonosno spolno izkoriš čanje, široko razširjena.  
Institucije EU in države članice morajo spodbujati na spol vezane strategije 
preprečevanja kot klju čen element boja proti trgovini  z ženskami in deklicami. 
To vključuje izpolnjevanje na čel enakopravnosti med spoloma in odpravljanje 
povpraševanja po vseh oblikah izkoriš čanja, vklju čno s spolnim izkoriš čanjem 
in izkoriš čanjem delovne sile v gospodinjstvih53.  
Znotraj EU je treba še naprej uporabl jati programe, kot je Daphne, za finan čno 
podporo projektom, ki obravnavajo trgov ino z ljudmi kot nasilje nad otroki, 
ženskami in drugimi rizi čnimi skupinami, medtem ko mora biti posebna 
pozornost usmerjena v razvojno sodelovanje.  
 
SL 8   SL Položaju trgovine z otroki je treba znot raj Evrope posvetiti posebno pozornost 
in dodatno raziskovanje. Ob čine, ki se soo čajo s problemom prisilnega dela 
otrok (vklju čno s težaškim delom v razli čnih industrijskih panogah (sweat 
shops), bera čenjem, žeparstvom in prostituci jo), je treba dejavno podpirati. 
Rešitve za obravnavanje tega problema je  treba razviti v tesnem sodelovanju z 
državami izvora otrok.  
Kazniva dejanja, povezana s trgo vino z otroki, zlasti siljenj e otrok v prostitucijo ali 
sodelovanje v spolnih dejanjih  z mladoletnimi prostitutkami, so že bila obravnavana v 
okvirnih sklepih Sveta o boju proti trgovini z ljudmi in boju proti spolnemu izkoriš čanju otrok 
in otroški pornografiji54. Vendar je stopnja usklajevanja precej omejena.  
Komisija se bo leta 2006, ko bo ocenje vala izvajanje okvirnih sklepov Sveta o 
boju proti trgovini z ljudmi in boju proti spolnemu izkoriš čanju otrok in otroški 
pornografiji, v svojih ocenjevalnih poro čilih osredoto čila na potrebo po 
nadaljnji krepitvi pravnega okvirja, ki posebej obravnav a trgovino z otroki in s 
tem povezana kazniva dejanja, zlasti prisil o otrok v prostitucijo  in sodelovanje v 
spolnih dejanjih z mladoletnimi prosti tutkami, ter bo, kadar je potrebno, 
predložila ustrezne predloge. 
Vprašanje trgovine z otroki55 je potrebno reševati v lu či Listine Evropske unije o temeljnih 
človekovih pravicah, ki poudarja otrokove najve čje koristi kot najpomembnejšo nalogo pri 
vseh ukrepih, ki se nanašajo na otroke56. Konvencija o otrokovih pravicah iz leta 1989 
(CRC)57 kot najpomembnejši mednarodni instrument otrokovih pravic vklju čuje določbe o 
trgovini z otroki58. Konvencija se uporablja za vsakega otroka , mlajšega od 18 let, kar je enak 
pristop, kot ga ima Komisija. Protokol ZN pr oti trgovini z ljudmi je treba razumeti v lu či 
CRC, ob upoštevanju drugih ustreznih mednarodni h instrumentov, kot sta Neobvezni protokol 
o prodaji otrok, otroški prostituciji in otrošk i pornografiji z dne 25. maja 2000 ter Konvencija 
ILO o prepovedi najhujših oblik dela otrok in takojšnjem ukrepanju za njihovo odpravo59, kot 
tudi Haaške konvencije o varstvu otrok in s odelovanju pri meddržavnih posvojitvah. Ukrepi, 
ki jih je na tem podro čju sprejelo 46 držav članic Sveta Evrope na svojem sre čanju v Varšavi, 
morajo biti upoštevani, zlas ti triletni akcijski progra m o otrocih in nasilju. 
Institucije EU in države članice morajo zagotoviti, da politika EU glede boja 
proti trgovanju odraža pristop otrokovi h pravic, osnovan na splošno priznanih 
načelih, zlasti tistih v Konvenciji ZN o otrokovih pravicah. Tak pristop je treba 
zato uporabljati za vsako osebo, mlajšo  od 18 let. Zagotoviti je treba tudi 
usklajevanje z akcijski m programom Sveta Evrope (2006–2008) o otrocih in 
nasilju60. 
V okviru upravljanja meja je treba posebno pozornost nameniti mladoletnikom brez spremstva  
ali otrokom, ki potujejo brez spre mstva neposrednega družinskega člana61, kot je dolo čeno v 
pred kratkim sprejeti Uredbi o vzpostavitvi kodeksa Sk upnosti o pravilih gibanja oseb preko 
meja62. Komisija bo kmalu63 obravnavala zaš čito otrok v posebnem sporo čilu. 
Razvojno sodelovanje mora u činkovito prispevati k reševanju žalostnega stanja otrok, žrtev 
trgovine, v državah v razvoju. 
Komisija mora zagotoviti, da državne in  regionalne strategije, kadar je to 
primerno in možno, okrepijo strategije obravnavanja dejavnikov, ki lajšajo 
trgovino z otroki, kot je nevpisovanje v mati čno knjigo ali pomanjkanje dostopa 
do osnovnega izobraževanja64. 
 
SL 9   SL VI. Z ANESLJIVI  PODATKI  
Politika EU glede boja proti trgovanju mora temeljiti na jasn i podobi dejanske razsežnosti 
problema na ravni EU in globalni ravni65. Vendar natan čnejši podatki niso na voljo66 in 
podatki organov kazenskega pregona, čeprav so pomembni, ne zadostujejo67. Svet je leta 2003 
pozval Komisijo in države članice, naj spodbujajo ukrepe za vzpostavitev sistema nadzora 
trgovine z ljudmi, da bi na cionalni organi s stalnim in  rednim zbiranjem zagotovili 
posodobljene podatke68. Ob upoštevanju statisti čnega akcijskega na črta iz leta 200369 in 
podatkov Eurostata s podro čja migracij70, ki zajemajo nekatere vidike tega pojava, je prvi 
korak za skladen statisti čen sistem sistemati čno zbiranje in an aliza podatkov – raz členjenih po 
starosti, spolu in drugih ustreznih vidikih71 – iz različnih virov, na podlagi splošnih smernic, 
centraliziranih na nacionalni ravni. Kadar se podatki na državni ravni ustrezno zbirajo, je 
bistveno, da se zbirajo in primerjajo na evropski ravni72, kot je tudi pomembno sodelovanje s 
tretjimi državami, mednarodnimi organizacijami in nevladnimi organizacijami na ravni EU1 
in globalni ravni. Države članice morajo imeti na razpol ago neodvisne institucije, npr. 
nacionalni poro čevalci ali uradi s sistemati čnim zbiranjem podatkov, vklju čno od nevladnih 
organizacij, in z nadzorovanjem u činkov nacionalnih akcijskih na črtov.  
Komisija bo upoštevala obstoje če organe na ravni EU in morebitno prihodnjo 
vlogo Eurostata v zvezi s prou čevanjem možnosti zbiranja in primerjave 
ustreznih podatkov na državni ravni, da  bi se tako na ravni EU zagotovil 
primeren nadzor. 
Bodoča Agencija Evropske unije za temeljne pravice73 mora – v skladu s svojimi 
pristojnostmi in v tesnem sodelovanju z bodo čo Evropsko migracijsko mrežo 
(EMN)74 kot tudi s skupino strokovnjakov za trgovino z ljudmi – zbirati in 
analizirati podatke o trgovini z ljudmi. V sodelovanju s Komisijo in državami 
članicami mora razvijati metode za izboljšanje primerljivosti in zanesljivosti 
podatkov na evropski ravni.  
Skupnost in države članice morajo v svojih odnosih s tretjimi državami (zlasti v 
razvoju) in klju čnimi mednarodnimi organizacij ami spodbujati tak pristop. 
VII. U SKLAJEVANJE  IN SODELOVANJE  
Potrebne so75 primerne strukture usklajev anja in sodelovanja, ki pa se od države do države 
lahko razlikujejo, dokler zagotavljajo u činkovito uresni čevanje glavnih ciljev politike boja 
proti trgovanju, zlasti pravil no identifikacijo in napotitev žrtev trgovanja na mehanizme 
zaščite in podpore. Te strukture morajo zd ružiti in vzpostaviti ravnotežje med razli čnimi 
interesi vklju čenih institucij in organizacij. 
Javno-zasebno sodelovanje 
Organizacije civilne družbe igrajo po vsej EU in po celem svetu klju čno vlogo pri pomo či 
žrtvam trgovanja76. Odnos med temi organizacijami, nada lje organizacijami delodajalcev in 
organi kazenskega pregona, temelji na medsebojnem razumevanju in zaupanju.  
Države članice morajo utrjevati sodelovanje javnih organov z organizacijami 
civilne družbe, povezanimi s prepre čevanjem in bojem proti trgovini z ljudmi, 
npr. z dolo čitvijo vzajemno dogovorjenih pravil, ki spodbujajo medsebojno 
 
SL 10   SL razumevanje in zaupanje. Kadar je to primerno, je treba vklju čiti tudi 
organizacije delodajalcev in predstavnike posebnih industrij.  
Komisija bo nadaljevala in krepila di alog z organizacijami civilne družbe na 
tem podro čju, zlasti s pomo čjo skupine strokovnjakov za trgovino z ljudmi in 
foruma o organiziranem kriminalu.  
Svet mora, poleg prispevka Komisije, sprejeti smernice EU in/ali evropski 
vzorčni protokol o sodelovanju77, da bi se tovrstno sodelovanje olajšalo po vsej 
EU in v tretjih državah.  
Sodelovanje na državni ravni Skupina strokovnjakov daje poseben poudarek vzpostavitvi nacionalnih mehanizmov za 
napotitev kot instrument nacionalnega sodelovanja
78, kot je priporo čeno že v akcijskem 
načrtu OVSE glede boja proti trgovini z ljudmi79. 
Države članice morajo prou čiti možnost glede vzpostavitve nacionalnih 
mehanizmov za napotitev, ki zagotavlja jo identifikacijo in napotitev žrtev 
trgovanja, v zvezi s tem bi lahko tudi  struktura vladnega sodelovanja 
pripravila, uskladila in ovrednotila nacionalne politike in prispevala k 
mehanizmom, ki obravnavajo posamezne pritožbe80. 
Sodelovanje na ravni EU Mehanizmi sodelovanja in usklajevanja na državni ravni morajo sestavljati podlago za 
ustrezen mehanizem na ravni EU, ki bi zagotavljal strokovne na svete in obsežen javno-
zasebni dialog
81. 
Komisija bo prou čila ustrezen mehanizem usklaje vanja in sodelovanja na ravni 
EU, ki zagotavlja razvoj minimalnih st andardov in meril, ocenjevalne kroge 
politik držav članic glede boja proti trgovanju ter navedbo podro čij 
prednostnega ukrepanja, zlasti glede podpore in zaš čite žrtev. 
Sodelovanje z državami izvora, tranzitn imi državami in ciljnimi državami82 
Komisija bo v okviru programa AENEAS, in ka dar je to primerno in možno, nadaljevala z 
usmerjanjem drugih tematskih ali geografski h sredstev Skupnosti za delovanje v tretjih 
državah s ciljem prepre čevanja in boja proti trgovini z ljudmi, zaš čite in pomo či žrtvam ter 
spodbujanja sodelovanja med temi državami in EU.  
Kadar je ustrezno, mora Komisija z agotoviti, da se trgovina z ljudmi ter 
politični okvir boja proti trgovini z lj udmi in strategije za njegovo 
preprečevanje ter zmanjšanje ocenijo v strategijah o zmanjševanju revš čine, 
državnih ter regionalnih strategijah in okvirnih programih in njihovih pregledih. 
Skupnost mora – zlasti preko raz vojne politike EU, ki se osredoto ča na 
doseganje primarnega cilja zmanjšanja revš čine in razvojnih ciljev novega 
tisočletja – še naprej financirati ukrepe,  ki obravnavajo dejavnike, zaradi 
katerih so osebe izpostavljene  trgovini z ljudmi, npr. revš čina, pomanjkanje 
dostopa do osnovnega in visokega iz obraževanja, razlike med spoloma, 
 
SL 11   SL odrekanje pravice do državl janstva, diskriminacija t er pomanjkanje dostopa do 
storitev in enakih možnosti.  
Sodelovanje na regionalni in globalni ravni Sodelovanje je treba na globalni ravni
83 dodatno okrepiti, zlasti s spodbujanjem in nudenjem 
pomoči tretjim državam za hitro ratifikacijo in izvajanje Protokola ZN proti trgovini z ljudmi  
in s podpiranjem dela Posebnega poro čevalca ZN za vprašanje trgovine z ljudmi, predvsem 
ženskami in otroki. 
Komisija bo še naprej s odelovala s Svetom Evrope84 in OVSE, zlasti v okviru zavezništva 
proti trgovini z ljudmi , ki ga je za čel Posebni predstavnik OVSE glede boja proti trgovini z 
ljudmi. 
Institucije EU in države članice morajo 
– še naprej sodelovati z zadevnimi me dnarodnimi organizacijami, npr. ZN, 
OVSE in Svet Evrope; Unija bo izkori stila zlasti strokovna znanja Sveta 
Evrope na podro čjih, na katerih se v ok viru njegove pristojnosti85 zahteva 
ukrepanje.  
– osredotočiti se na ustrezne mehanizme usklajevanja in sodelovanja, ki 
temeljijo na ustreznih mednarodnih instrumentih.  
– še naprej spodbujati regionalne po bude, ki bi lahko dopolnile in 
navdihnile široko sodelovanje EU, npr. nordijsko baltska projektna 
skupina proti trgovini z ljudmi86, pobuda sodelovanja v jugovzhodni 
Evropi87, vseevropski budimpeštanski postopek88, dialog „5+5“ med 
državami zahodnega Sredozemlja89 in sredozemski dialog o tranzitnih 
migracijah90. 
***
 
SL 12   SL PRILOGA  
Endnotes 
                                                 
1 Regarding previous measures at EU level reference ha s to be made to three communications in 1996, 1998 and 
2000 - COM (96) 567 final of 20.11.1996; COM (98) 726 final of 9.12.1998; COM (2000) 85 final, Brussels, 
21.12.2000 - as well as to a number of legislative proposals from the Commission, which formed the basis of 
important EU/EC legislation: Council Framework Decision 2002/629/JHA of 19 July 2002 on combating trafficking in human beings (OJ L 
203, 1.8.2002, p. 1); 
Council Framework Decision  2004/68/JHA of 22 Decem ber 2003 on combating the sexual exploitation of 
children and child pornography (OJ L 13, 20.1.2004, p. 44);  
Council Directive 2004/81/EC of 29 April 2004 on the re sidence permit issued to third country nationals who are 
victims of trafficking in human beings or who have been the subject of an action to facilitate illegal immigration, 
who cooperate with the competent authorities (OJ L 261, 6.8.2004, p. 19). 
Other legal acts that strengthened the standing of victims in criminal proceedings and compensation procedures are particularly relevant for the fight against trafficking in human beings: 
Council Framework Decision 2001/220/JHA of 15 March 2001 on the standing of victims in criminal 
proceedings (OJ L 82, 22.3.2001, p. 1);  Council Directive 2004/80/EC of 29 April 2004 relating to compensation to crime victims (OJ L 261, 6.8.2004, 
p. 15). 
The Council Resolution of 20 October 2003 on initiatives to combat trafficking in human beings, in particular women stressed the need to, inter alia, eradicate ge nder inequalities (OJ C 260, 29.10.2003, p. 4).  
Furthermore, the EU counter-trafficking policy has become an essential part not only in the area of freedom, 
security and justice but also regarding employment and social affairs, EU enlarg ement, external relations 
(Stabilisation and Association Process, Partnership and Cooperation Agreements with NIS, Action Plans against 
Organised Crime with Russia (2000) and on Justice an d Home Affairs with Ukraine (2002), the European 
Neighbourhood Policy, the Euro-Mediterranean Partnership) and development (such as the Cotonou Agreement (2000) and the EU-Africa Dialogue).  
Since 1996 considerable funding has be en allocated to projects promoting the prevention of and the fight against 
trafficking in human beings in EU Member States and third countries, but to a lesser extent in Developing 
Countries: 
STOP (1996-2000) and STOP II (2001-2002), a programme of incentives, exchanges, training and cooperation for persons responsible for combating trade in human beings and the sexual exploitation of children (OJ L 322, 
12.12.1996, p. 7; OJ L 186, 7.7.2001, p. 7): 
AGIS (2003-2007), a framework programme on police and judicial cooperation in criminal matters (OJ L 203, 1.8.2002, p. 5): 
Daphne (2000-2003) and Daphne II (2004-2008) programme of Community action (2004 to 2008) to prevent 
and combat violence against children, young people and women and to protect victims and groups at risk (OJ L 
34, 9.2.2000, p. 1; OJ L 143, 30.4.2004, p. 1): 
EQUAL: Guidelines for the second round. Communication from the Commission establishing the guidelines for 
the second round of the Community Initiative EQUAL co ncerning transnational co-operation to promote new 
means of combating all forms of discrimination and in equalities in connection with the labour market - Free 
movement of good ideas (COM/2003/840), in particular Chapter 7.2. 
For instance: Under the Tacis programme (NIS) about € 10M have been allocated over the period 2002-2004 (Belarus, Moldova, Ukraine, Russia, for specific anti- trafficking of human beings projects focussing on 
prevention, prosecution and protection. Under the 8th ACP programme, Benin has benefited from a € 2M project 
against trafficking in children. € 5M have been allocated for South Africa. 
2 Hereinafter referred to as EU. 
3 Article 1(1) of the Council Framework Decision of 19 July 2002 on combating trafficking in human beings (OJ 
L 203, 1.8.2002. p. 1):  
“1….the recruitment, transportation, transfer, harbouring, subsequent reception of a person, including exchange 
or transfer of control over that person, where:  (a) use is made of coercion, force or threat, including abduction, or  
(b) use is made of deceit or fraud, or  
(c) there is an abuse of authority or of a position of vulnerability, which is su ch that the person has no real and 
acceptable alternative but to subm it to the abuse involved, or 
(d) payments or benefits are given or received to achieve  the consent of a person having control over another 
 
SL 13   SL                                                                                                                                                          
person for the purpose of exploitation of that person’s labour or services, including at least forced or compulsory 
labour or services, slavery or practices similar to slavery or servitude, or for the purpose of the exploitation of the 
prostitution of others or other forms of sexual exploitation, including in pornography. 
2. The consent of a victim of trafficking in human beings to the exploitation, intended or actual, shall be irrelevant where any of the means set forth in paragraph 1 have been used. 
3. When the conduct referred to in paragraph 1 involves a child, it shall be a punishable trafficking offence even 
if none of the means set forth in paragraph 1 have been used.” This definition reflects the elements of the definition of the UN Protocol to Prevent, Suppress and Punish 
Trafficking in Persons, Especially Women and Children, supplementing the United Nations Convention against 
Transnational Organised Crime (UN Trafficking Protocol) but excludes trafficking in human beings for the 
removal of organs. This aspect will be looked at by the Commission in more detail in the light of a Europol 
report on trafficking in human organs. 
4 More and more attention is paid to trafficking in human beings for the purpose of labour exploitation. See 
Report (Note 6, below), e.g. Recommendations 29, 73 and Chapter 2, especially page 52; furthermore ILO: A 
Global Alliance against Forced Labour - Global Repo rt under the Follow-up to the ILO Declaration on 
Fundamental Principles and Rights at Work, Geneva 2005. 
5 The Hague Programme on strengthening the area of freedo m, security and justice; (OJ C 053, 03/03/2005 p.1). 
6  The Hague Programme on strengthening the area of fr eedom, security and justice - paragraph 1.7.1 in fine ; (OJ 
C 053, 03/03/2005, p.7). 
7 Council and Commission Action Plan implementing the Hague Programme on strengthening 
freedom, security and justice in the European Union – 5th hyphen letter c) (OJ C 198, 12.08.2005, p.14).  
8 Established by the Commission in 2003 (OJ L 79, 26.3.2003, p. 25; OJ C 205, 30.8.2003, p. 3.) further to the 
Brussels Declaration of 2002 on Preventing and Combating Trafficking In Human Beings (OJ C 137, 12.6.2003, 
p. 1.); hereinafter referred to as Experts Group. 
9 Report of Experts Group on Traffi cking in Human Beings (Brussels, 22  December 2004); he reinafter referred 
to as Report; published on the website of the Commission, DG JLS: 
http://europa.eu.int/comm/justice_home/fsj/crime/tr afficking/fsj_crime_hum an_trafficking_en.htm .  
10 OJ C 364, 18.12.2000, p. 9. According to Explanations  relating to the Charter, Article 5 (3) stems directly 
from human dignity and takes into account of recent developments in organised crime, such as the organisation 
of lucrative illegal immigration or sexual exploitation networks. On the other hand, one has to take into account 
the non-binding legal status of the Charter and that accor ding to a classical doctrine only States could violate 
individual human rights. The Charter’s provisions are addr essed to the Member States only insofar as they are 
implementing Union law. The Charter does not extend the field of application of Union law beyond the powers 
of the Union or establish any new power or task for the Union.  
11 At least seven International Conventions related to th e prevention of human trafficking have been signed and 
mostly ratified by EU Member States (Convention on the Rights of the Child with the Optional Protocol, The 
Hague Convention on the Protection of Children and Co-operation in Respect of Inter-Country Adoption, 
Palermo Convention against Transnational Organised Crime and Trafficking Protocol, ILO Convention No 182 and the Convention on Eradication on all forms of Discrimination Against Women). and advocate for further 
provisions not ratified as yet e.g. addressing trafficking in human organs and tissues. A reference has to be made 
as well to “The European Convention on Human Rights and Biomedicine, 1997” and the Additional protocol concerning Transplantation of Organs and Tissues of Human Origin (2002), whose  Article 22 concerns 
trafficking in organs and tissues. 
Furthermore the Rome Statute of the International Criminal Court extends the jurisdiction of the Court on the enslavement as a crime agains t humanity. Enslavement is defined as “the  exercise of any or all of the powers 
attaching to the right of  ownership over a person and includes the exercise of such power in the course of 
trafficking in persons, in particular  women and children” (Article 7.2).
 
Recital 3 of the Council Framework Decision of 19 July 2002 on combating trafficking in human beings points 
out that it comprises serious violations of fundamental human rights; OJ L 203, 1.8.2002, p. 1. 
12 See also Report, recommendations 17, 114. 
13 See Report, recommendation 10 concerning the development of a “human rights impact assessment model” in 
cooperation working with trafficked persons and human rights institutions. 
14 See Report, recommendations 89 – 115. 
15 Such as the UN Commission on Human Rights (CHR) and UN General Assembly Third Committee. At the 
annual sessions of the Third Committee and CHR in 2004, the EU co-sponsored resolutions on Trafficking in women and girls and the resolution on the rights of the ch ild which incorporates aspect s relating to trafficking. 
The CHR also appointed a new Speci al Rapporteur on Trafficking. 
 
SL 14   SL                                                                                                                                                          
16 See endnote 1, which refers to the definition in Artic le 1 of the Council Framework Decision on combating 
trafficking in human beings. 
17 See also: Trafficking in human beings for sexual exploitation : A Europol perspective 
http://www.europol.eu.int/publications /SeriousCrimeOverviews/2004/THB.pdf ;  
Furthermore, for labour exploitation: ILO, A Global A lliance against Forced Labour - Global Report under the 
Follow-up to the ILO Declaration on Fundamental Principles and Rights at Work, Geneva 2005, e.g. page 46, 
no. 221. 
18 Further to the Framework Decision on combating tr afficking in human beings and the one on sexual 
exploitation of children and child pornography (OJ L 203, 1.8.2002, p. 1; OJ L 13, 20.1.2004, p. 44) Member 
States are adapting their legislation, including punishment by terms of imprisonment if the offence has been 
committed in aggravated circumstances: Article 3 of the Council Framework Decision on combating trafficking 
in human beings; Article 5 of the Council Framework Decision on combating the sexual exploitation of children and child pornography. Different approaches prevail regard ing the legalisation or criminalization of the purchase 
of sexual services in general or the criminalisation of the purchase of sexual services of forced prostitutes (see 
f.i. Sweden: Law That Prohibits the Purchase of Sexual Services, see also Gunilla Ekberg, The Swedish Law 
That Prohibits the Purchase of Sexual Services, in Violence Against Women, Vol. 10 No. 10 October 2004, p. 
1187-1218.).
 
19 Trafficking in Human Beings: A Europol Perspective – January 2004, p. 1. Published: 
http://www.europol.eu.int/publications/Serio usCrimeOverviews/2004/ OverviewTHB2004.pdf  
20 The Experts Group (Report, recommendation 118) advises to continuously devote a certain percentage of these 
resources to the fight against trafficking in human beings. 
21 Report, p. 118. 
22 Report, recommendations 117, 118. 
23 The Experts Group refers to the Italian Direzione Invest igativa Antimafia and the Fren ch Office central pour la 
repression de la traite des ętres humains (OCRTEH) as best practices. Report, p. 122. 
24 For possible guidance see Report, p. 122. 
25 Report, recommendation 116. 
26 Report, p. 125 and recommendation 122. 
27 Notably in line with the so-called “Libreville Declaration,” http://www.acpsec.org/fiji/gabon/final_gb.htm . 
28 Stressed on several occasions, e.g. in No. 14, fourth, sixth and last indent, of the Brussels Declaration (OJ C 
137, 12.6.2003, p. 7, 8); Report, p.119. 
29 Report, p. 111-114, 119. 
30 However, relevant measures should not be misinterpreted and used to legitimise or suggest a disregard for the 
need to protect and assist a victim of trafficking. Report, p. 123 and recommendation 119. 
31 Council Decision of 28 February 2002 setting up Eurojust with a view to reinforcing the fight against serious 
crime, Article 4(1); OJ L 63, 6.3.2002, p. 1. 
32 The general competence of Europol covers trafficking in human beings (Art. 2(2) of the Europol Convention). 
33 At international level Interpol offers similar services, see http://www.interpol.int/Public/THB/default.asp . 
34 Within another Analytical Work File there is a possibility fir Europol to collect and store data depending upon 
the nationality of the trafficker. 
35 Hereinafter referred to as EC. 
36 COM (2003) 512 final of 22.8.2003. 
37 On the basis of Articles 62 (2) and 63 (3), in conjunction with 300 (2) and (3) TEC. 
38 COM (2003) 512 final of 22.8.2003. 
39 Proposal for a Directive of the European Parliament and of the Council on the prevention of the use of the 
financial system for the purpose of money laundering, including terrorist financing (COM(2004) 448 final, 
Brussels, of 30.6.2004). 
40 OJ L 68, 15.3.2005, p. 49. Article 3, which provides for extended powers of confiscation under certain 
conditions, refers to the Framework Decision on combating trafficking in human beings. 
41 OJ L 328, 5.12.2002, p. 17. 
42 OJ L 328, 5.12.2002, p. 1. 
43 OJ C 142, 14.6.2002, p. 23. 
44 The most recent overview on the st ate of implementation is to be foun d in the Commissi on’s 2004 annual 
report on the development of a co mmon policy on illegal immigration, smuggling and trafficking of human 
beings, external borders, and the return of illega l residents, SEC (2004) 1349 final of 25.10.2005. 
45 OJ L 261, 6.8.2004, p. 19. 
46 OJ L 80, 18.3.2004, p.1. 
 
SL 15   SL                                                                                                                                                          
47 UN Protocol to prevent, suppress and punish trafficking in persons, especially women and children, 
supplementing the UN Convention against Transnational Organised Crime; signed in Palermo on 12 to 15 
December 2000 by all EU Member St ates and the European Community. 
48 Deadline for transposition according to the act: 6 August 2006. 
49 A new regulation (“Border Code”), which will be based on the Commission proposal COM (2004) 391 final of 
26 May 2004, will seek to clarify, restructure, consolid ate and develop existing legislation on border controls on 
persons, which have been developed within the Schengen  intergovernmental framework and integrated into the 
Treaty since May 1999.  
50 Hereinafter referred to as EP. 
51 See Report, Recommendations 68 and 76. 
52 The UN Committee on the Rights of the Child has stressed  in several occasions the vulnerability of children 
belonging to minorities notably because of poor access to education and lack of birth registration. The Permanent 
Forum on Indigenous Issues in its se ssion of 2003 recommended to the UN system to address the issue of 
trafficking of indigenous women and girls as a matter of concern. 
53 See UN Trafficking Protocol, Article 9 (5); furthermore: Resolution of the UN Commission on the Status of 
Women (CSW) of 11 March 2005 on Eliminating Demand for Trafficked Women and Girls for All Forms of 
Exploitation. 
54 OJ L 203, 1.8.2002, p. 1; OJ L 13, 20.1.2004, p. 44. 
55 Seriousness and extent of child trafficking for sexual and economic exploitation (child labour, prostitution, 
pornography, cheap labour, begging, pick pocketing, drug selling, organ trafficking, etc.) as well as for illegal 
adoption (Report, p. 67, 68) became cl ear, inter alia, at a Roundtable on EU  Action against Child Trafficking and 
Related Forms of Exploitation, on 26 May 2004 under the auspices of the EU Forum for the Prevention of 
Organised Crime (Supported by the UNICEF Innocenti Res earch Centre, the International Federation Terre des 
Hommes, Save the Children and Child Focus, which were able to base their presentations on a number of research projects, for example, International Fede ration Terre des Hommes, Kids as commodities? Child 
Trafficking and What to about it, by Mike Dottridge, 2004, and Lost Kids, Lost Futures, The European Union’s 
Response to Child Trafficking, by Mirjam van Reisen and Ana Stefanovic, 2004; ECPAT, Joint East West Research on Trafficking in Children for Sexual Purpos es in Europe: The Sending Countries, by Murieann 
O’Briain, Anke van den Borne, Theo Noten, 2004; IOM Report on Trafficking in Unaccompanied Minors in 
Ireland, by Dr. Pauline Conroy, 2004; UNICEF Innocenti, Trafficking in Human Beings, Especially Women and 
Children, in Africa, 2003, and Child Trafficking in West Africa: Policy Responses, 2002. Presentations and 
conclusions of the Roundtable are published on the website of the Commission, DG JLS:  http://europa.eu.int/comm/justice_home/fs j/crime/forum/fsj_crime_forum_en.htm
  
More recently, developments caused by HIV/AIDS epidemic and complex emergencies and natural disasters like 
the Tsunami disaster in the Indian Ocean in December 2004 have recalled the specific vulnera bility of children 
to trafficking. For further information: UNICEF Innocenti, http://www.childtrafficking.org/ ; Save the Children, 
http://www.savethechildren.org/ ; or Terre des homes, http://tdh.ch/cms/index.php?&L=0 .  
56 Article 24 (2) of the Charter. Moreover, anti trafficking legislation as adopted in the first and the third pillar of 
the EU includes specific provisions on children. Articles 1 (3) and (4), 3 (2)(b), 7 (2) and (3) of the Council 
Framework Decision on combating trafficking in human beings; Council Framework Decision on combating the 
sexual exploitation of children and child pornography; Ar ticles 2 (f) and 10 of Council Directive 2004/81/EC of 
29 April 2004. These provisions recognise the more limited capacities of children to fully understand the 
consequences of their actions. Even when a child agrees to be trafficked and/or exploited, consent cannot be 
assumed and should never be used against the child. In  the case of children the us e of force, coercion or 
deception is not required fo r a trafficking offence. 
The Commission, within its competencies, will strengthen the financial support for projects specifically 
addressing child trafficking. In particular, the Daphne  II Programme will up to 2008 continue to support 
European organisations that develop measures and actions to prevent or to combat all types of violence against 
children and to protect the victims and groups at risk. 
57 Hereinafter referred to as CRC. More detailed information concerning contents and status of ratification on the 
websites of UNHCHR ( http://www.unhchr.ch/html/menu2/6/crc/treaties/crc.htm ) or UNICEF 
(http://www.unicef.org/crc/crc.htm ). 
58 According to the CRC children are not only (real or potentia l) victims in need of protection but they also have 
rights that are clearly set out in the CRC: the promoti on of the best interests of the child (Art. 3), the non-
discrimination principle (Art. 2), the right to participate (Art. 12), the right to survival and development (Art. 6). The views of the child must be given due weight in accordance with his/her age and maturity in consistence with 
Article 12 of the CRC. The CRC contains specific prov isions (Articles 32, 33, 34, 35, 36) dealing with 
exploitation, abuse and trafficking. With regard to the definition of “exploitation” the CRC states the right of the 
 
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child to be protected from “economic e xploitation and from performing any work  that is likely to be hazardous 
or to interfere with the child’s education, or to be harmful to the child’s health or physical, mental, spiritual, 
moral or social development” as well as from all forms of sexual exploitation and sexual abuse, in particular the 
exploitation of children in prostitution or pornography. Other relevant articles include the right to protection of children deprived of their family (Art. 20) and the non use of detention (Art. 37). 
59 Report, p. 69. Other relevant international instruments are: 
Optional Protocol on the sale of children, child prostitu tion and child pornography of 25 May 2000. Contents and 
status of ratifications: http://www.unhchr.ch/h tml/menu2/dopchild.htm . The Report (p. 68) points out that it goes 
further than the UN Trafficking Protocol as it includes crim es that are not of a transn ational nature and that do 
not involve organised criminal groups and it also covers the transfer of organs and illegal adoption. Additionally, 
it states that the consent of the child is not relevant as lo ng as the overall objective is the exploitation of the child. 
ILO Convention concerning the Prohibition and Immediate Action for the Elimination of the Worst Forms of Child Labour No. C182 (1999). Full text and status/ratifications of the Convention on the ILO website under:  
http://www.ilo.org/public/english/standard s/ipec/ratification/convention/text.htm
. Child forced labour is one of 
the main causes and consequences of Human trafficking. Harmonisation of relevant legislation at regional level might also be beneficial for freeing child labourers and stop trafficking. On this sp ecific aspect an important 
initiative, the Libreville Declaration, supported by  the European Commission and by the ILO IPEC 
(International Programme for the Elim ination of Child labour) took place in February 2003. Ministers from 
Benin, Burkina Faso, Cameroon, Ivory Coast, Gabon, Mali and Togo joined forces to denounce the issue of 
child-trafficking in French-speaking West and Centra l Africa. The meeting focused on the necessity of 
harmonising legislations at national level in those specific African regions in order to fight trafficking of children and child labour. 
60 We will take specific action to eradicate all forms of vi olence against children. We therefore decide to launch a 
three year programme of action to address social, legal, health and educational dimensions of various forms of violence against children. We shall al so elaborate measures to stop sexual  exploitation of children, including 
legal instruments if appropriate and involve civil so ciety in this process.” (W arsaw Summit Action Plan). 
61 See Report, recommendations 85, 86. 
62 See FN 60. In the new “Border Code” , the provisions on external border controls have been strengthened, by 
specifying that further investigation shall be carried out by border guards when “there are serious grounds for 
suspecting that they may have been unlawfully removed from the custody of the person(s) legally exercising 
parental care over them”. 
63 End 2005/beginning 2006 
64 The EU can rely on a solid framework of international obligations and commitments as a basis for such 
engagement: in addition to the almost universal ratifi cation of the CRC and substantial ratifications of other 
instruments by third countries, 190 national delegations to the UN General Assembly Special Assembly made specific commitments to elim inate trafficking and sexual  exploitation of children. 
65 See Report, Recommendations 35 – 42. 
66 Neither the Commission nor Europol nor any other EU mechanism, such as CIREFI (Centre for Information, 
Discussion and Exchange on the Crossing of Frontiers and Immigration, set up by a decision of the Ministers 
responsible for immigration on 30 November and 1 December 1992..), is  able to publish pr ecise figures about 
the EU-wide extent of trafficking in human beings. Although the CIREFI data collection contains a category on facilitated aliens including, but not solely relating to, thos e who have been trafficked, it is currently impossible to 
distinguish between trafficked and non-trafficked person s and so the usefulness of this data collection for 
tracking the human trafficking phenomenon is rather low. Europol stated that the nature of the crime makes it 
difficult to estimate exactly how many victims are trafficked  in the EU as well as the rest of the world but there 
are reasons to believe that they should be counted in the hundreds of thousands of thousands. The assumptions 
underlying present estimates of the ex tent at European or global level ar e however unclear. See Frank Laczko 
(IOM), Human Trafficking: The Need for Better Data, November 1, 2002, Migration Information Source, 
published under: http://www.migrationinformation.org/Feature/display.cfm?ID=66
 
67 Data on trafficking in human beings should not only f acilitate an assessment of law enforcement activities but 
of the entire anti-trafficking policy including measures rela ted to prevention, to protection and support of victims 
or to the impact of voluntary or forced return. Therefore, it is also important to know, for example, how many trafficked persons benefited from support provided by civil society organisations, how many benefited from a 
residence permit and under what conditions, how many returned to their countries of origin and what happened 
to them after three, five or even more  years. Finally, it might be useful to know the financial implications of anti-
trafficking measures. 
68 OJ C 260, 29.10.2003, p. 4. 
69 COM (2003) 179 final of 15.4.2003. 
 
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70 See the Commission’s proposal for a Regulation on Community statistics on International migration and 
asylum, COM (2005) xxx of xx July 2005. 
71 For instance, data disaggregated by ethnicity may prov ide empirical evidence to what extent ethnic minorities 
or indigenous peoples fall more easily victim to human trafficking and may allow conclusions regarding the discrimination of such groups. Furthermore, UNICEF has stressed that when traditional community bonds are 
eroded by lack of effective official protection and economic marginalization, indigenous women and children 
may be particularly at risk, especially those in remote  rural areas or close to national borders (“Ensuring the 
rights of indigenous children”, Innocenti Research Centre, 2004)  
72 Report, chapter 3.8, p. 76 and chapter 3.8.1, p. 77, in particular recommendations 35-37. 
73 Communication from the Commission, The Fundamental Rights Agency, A public consultation document, 
Brussels, 25.10.2004, COM (2004) 693 final. 
74 Project under preparatio n of Commission services. 
75 Report, Chapter 3.6. Stressed in the Brussels Declaration (OJ C 137, 12.6.2003, p. 3) and recognised by UN 
(Articles 10 and 11 of the UN Trafficking Protocol), OSCE (Ministerial Council, Decision No. 2/03, Combating 
Trafficking in Human Beings, 2 December 2003; Decision  No. 13/04 The Special Needs for Child Victims of 
Trafficking for Protection and Assist ance, 7 December 2004), Council of Eu rope Convention on  Action against 
Trafficking in Human Beings adopted by the Committee of Ministers on 3 May 2005 
(http://www.coe.int/T/E/human_rights/trafficking/ ). 
76 The useful role of victim support organisations has already been recognised in Article 13 of the Council 
Framework Decision of 15 March 2001 on the standing of victims in criminal proceedings (OJ L 82, 22.3.2001, 
p. 4.). In number 6 (d) of its Conclusions of 8 May 2003 the Council urges Member States to provide assistance, where appropriate, in close cooperation between state authorities and independent specialised organisations 
(NGOs) and to encourage further development of the sharing of best practices (OJ C 137, 12.6.2003, p. 1). A 
workshop under the auspices of the EU Forum for the Prevention of Organised Crime on 30 June 2003 demonstrated that both trafficked persons and law enforcement agencies can benefit from the involvement of 
civil society organisations  
(http://europa.eu.int/comm/justice_home/fsj/ crime/forum/fsj_crime_forum2003_en.htm
). Some Member States 
have established mechanisms based on specific criteri a to formally recognise or register civil society 
organisations that are involved in relevant public-private cooperation and entrusted with particular task. In other 
Member States the cooperation is less regulated. Ho wever, replies to a questionnaire of the Commission 
(Council Working Document 11793/03 CRIMORG 57 MIGR 73) showed that in many EU Member States 
competent authorities cooperate in a more or less systematic and regular way with civil society organisations. 
77 See also no. 13, ninth indent of the Brussels Declaration, OJ C 137, 12.6.2003, p. 7.as well as G. Vermeulen 
and H. De Pauw, Cooperation between civil society orga nisations and law enforcement services in the area of 
missing sexually exploited children, Possibilities and limit s from a European perspective, Antwerp-Apeldoorn 
2004, in particular p. 85-94. Although focusing on sexually exploited and missing children the proposals made 
for such protocols should be taken into account in the context of trafficking in human beings. 
78 See Report, Chapter 3.6.1 and Recommendations 35-37. 
79 Endorsed by the OSCE, Ministerial Council, Decision No. 2/03, Combating Trafficking in Human Beings, 2 
December 2003; more detailed information in: National Referral Mechanisms: Joini ng Efforts to Protect the 
Rights of Trafficked Persons. A Practical Handbook, Warsaw 2004. 
80 See Report, recommendations 30, 31, 34. 
81 The Experts Group proposed a European Anti Trafficking Network. See Report, recommendation 33 and 
Explanatory Paper 6. Such network sh all consist of contact points designat ed by each Member State and by the 
Commission, include governmental and non-governmental ag encies and cover the areas of prevention and victim 
assistance as well as law enforcement and police and ju dicial cooperation. The Experts Group refers to the 
example of the European Crime Prevention Network (Coun cil Decision of 28 May 2001 setting up a European 
crime prevention network, OJ L 153, 8.6.2001, p.1; more detailed information: 
http://europa.eu.int/comm/ju stice_home/eucpn/home.html ). Other options are the use of existing bodies such as 
Experts Group itself or the EU Forum for the Prevention of Organised Crime. 
82 See also European Parliament resolution of 28 April 2005 on the Annual Report on Human Rights in the 
World 2004 and the EU's policy on the matter (2004/2151(INI))”, in particular no. 184, 185 
83 A tripartite plus meeting in 2003, convened by UNOG,  was extremely helpful and facilitate the coordination 
between all the organisations that are active in  this area. For more detailed information: 
http://www.unhchr.ch/huricane/huricane.nsf/0 /6031593A6D26A507C1256CD1003BA09D?opendocument  
http://www2.unog.ch/news2/documents/newsen/dg0310e.htm  
84 In this regard it has to be recalled that, on 3 May 2005, the Committee of Ministers of the Council of Europe 
adopted a Convention on action against trafficking in human being. This Convention has been opened for 
 
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signature at the Summit of Council of Europe Heads of State and Government held in Warsaw on 16 and 17 May 
2005. It has so far (July 2005) been signed by 15 States, including 8 EU Member States (Austria, Cyprus, Italy, 
Luxembourg, Malta, Poland, Portugal, Sweden). It is not yet in force which requires 10 ratifications, including 
by 8 Council of Europe Member States.  
85 Guidelines on the relations between the Council of Euro pe and the European. Union, adopted as part of an 
Action Plan in the Third Summit of the Counc il of Europe in Warsaw, 16 – 17 May 2005. 
86 This initiative was set up in 2002at political level with emphasis on practical measures and the achievement of 
tangible results. According to the terms of reference a st ate secretary or the equivalent should represent each 
participating country as enhancing the treatment of th e issue on a political level belongs to the three main 
objectives of the initiative. More detailed information,  including the terms of reference and already adopted 
recommendations, on website of the Task Force: 
http://www.against-trafficking.org/templates/news.aspx?page_id=251 . 
87 SECI, for more detailed information: http ://www.secicenter.org/html/index.htm . 
88 For more information: 
http://www.icmpd.org/default.asp?nav=budapest&folderid=376&id=49&subfolderId=245 . 
89 This dialogue, which has been launched in 1990, brings together the Governments of France, Italy, Spain, 
Portugal, Malta, Mauritania, Morocco, Algeria, Tunisia and Ly bia, and it serves the purpose to hold annual 
meetings at ministerial level to discuss trans-mediterranean  issues of mutual interest. At their annual meeting in 
Malta on 30 June 2005, it was agreed to deepen and sp eed-up the cooperation on combating illegal immigration. 
90 For more information :  http://www.icmpd.org/default.asp?nav=budapest&folderid=362&id=-1 .