COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS The EU Strategy towards the Eradication of Trafficking in Human Beings 2012–2016
Date: 2012-06-19
Institutions: European Commission
Subjects: EU police cooperation, judicial cooperation in criminal matters in the EU, prevention of delinquency, slavery, trafficking in human beings

EUROPEAN COMMISSION 

Brussels, 19.6.2012  
COM(2012) 286 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

The EU Strategy towards the Eradication of Trafficking in Human Beings 2012–2016 

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COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

The EU Strategy towards the Eradication of Trafficking in Human Beings 2012–2016 

1. 

SETTING THE SCENE 

Trafficking  in  human  beings  is  the  slavery  of  our  times.  Victims  are  often  recruited, 
transported  or  harboured  by  force,  coercion  or  fraud  in  exploitative  conditions,  including 
sexual exploitation, forced labour or services, begging, criminal activities, or the removal of 
organs1. It is a severe violation of individual freedom and dignity and a serious form of crime, 
that often has implications which individual countries cannot effectively address on their own. 

Trafficking  in  human  beings  takes  many  different  forms,  and  evolves  with  changing  socio-
economic  circumstances.  It  targets  women  and  men,  girls  and  boys  in  vulnerable  positions. 
The  latest  estimates  from  the  International  Labour  Organization  of  June  2012  covering  the 
period  2002-2011  put  the  number  of  victims  of  forced  labour,  including  forced  sexual 
exploitation,  to  20.9  million  at  a  global  level2,  with  an  estimated  5.5  million  children  being 
trafficked. However, this estimate is also believed to be conservative. 

A lucrative form of crime, trafficking in human beings generates profits of dozens of billions 
of euro3 for the perpetrators each year. 

The 2010 report of the United Nations Office on Drugs and Crime states that worldwide 79 
per cent of identified victims of human trafficking were subject to sexual exploitation, 18 per 
cent to forced labour and 3 per cent to other forms of exploitation. Of these victims, 66 per 
cent were women, 13 per cent girls, 12 per cent men and 9 per cent boys4. 

Data collected by the Commission in September 2011 on victims of human trafficking, police 
investigations,  prosecutions  and  convictions  is  currently  being  analysed  in  terms  of  gender, 
age, form of exploitation and citizenship5. Preliminary results appear to be consistent with the 
statistics in the UNODC report. Three quarters of registered victims were trafficked for sexual 
exploitation  (an  increase  from  70  per  cent  in  2008  to  76  per  cent  in  2010)  and  the  rest  for 
labour  exploitation  (a  decrease  from  24  per  cent  in  2008  to  14  per  cent  in  2010),  forced 

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Trafficking in human beings differs from human smuggling (facilitated migration) because it involves 
the  use  of  force  and  involves  exploitation,  and  because  there  is  no  need  to  cross  a  border  or  be 
physically transported. 
International Labour Organization, ' ILO 2012 Global estimates of forced labour', June 2012. The report 
states  that  human  trafficking  can  be  regarded  as  forced  labour,  and  so  the  estimates  captures  the  full 
realm of human trafficking for labour and sexual exploitation (page 13). 
Estimated global annual profits made from the exploitation of all trafficked forced labour are US$ 31.6 
billion. Of this, US$ 15.5 billion, that is 49 per cent, is generated in industrialised economies (in Patrick 
Belser,  ‘Forced  Labor  and  Human  Trafficking:  Estimating  the  Profits’,  Working  Paper,  Geneva, 
International Labour Office, 2005). 
The Globalization of Crime: A Transnational Organized Crime Threat Assessment, UNODC, 2010. 
The statistics collected via Eurostat provide a general overview based on the replies received from all 
27 Member States for 2008 to 2010. 

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begging (3 per cent) and domestic servitude (1 per cent). Twenty-one EU Member States were 
able  to  give  gender-specific  information.  This  shows  that  over  the  three  years  women  and 
girls are the main victims of trafficking in human beings; female victims accounted for 79 per 
cent (of whom 12 per cent were girls) and male victims for 21 per cent (of whom 3 per cent 
were boys). Most Member States reported that most victims come from within the EU, mainly 
from Romania, Bulgaria, Poland and Hungary. Most reported victims from non-EU countries 
are from Nigeria, Vietnam, Ukraine, Russia and China. 

Trafficking in human beings is a complex transnational phenomenon rooted in vulnerability to 
poverty, lack of democratic cultures, gender inequality and violence against women, conflict 
and post-conflict situations, lack of social integration, lack of opportunities and employment, 
lack of access to education, child labour and discrimination.  

EU Action on Trafficking in Human Beings 

Trafficking  in  human  beings  is  specifically  prohibited  by  Article  5  of  the  Charter  of 
Fundamental Rights of the European Union. 

The political commitment at EU level to address the problem of trafficking in human beings 
is reflected in the large number of initiatives, measures and funding programmes established 
in the area both within the EU and third countries as early as in the 1990s6. 

A major step forward recently was the adoption of Directive 2011/36/EU on preventing and 
combating trafficking in human beings and protecting its victims7. The Directive adopts a 
comprehensive,  integrated  approach  that  focuses  on  human  rights  and  on  the  victims  and  is 
gender-specific.  It  is  expected  to  have  considerable  impact,  once  fully  transposed  by  the 
Member  States  by  6  April  2013.  It  not  only  focuses  on  law  enforcement  but  also  aims  to 
prevent crime and ensure that victims of trafficking are given an opportunity to recover and to 
reintegrate into society.  

In the meantime, a number of EU instruments in various policy areas contribute to addressing 
trafficking  in  human  beings8.  EU  legislation  on  the  right  of  victims  of human  trafficking  to 
reside in the EU, on the sexual exploitation of children, and on sanctions against employers 
who knowingly employ illegally staying third country workers, complement the Directive on 
trafficking in human beings. The EU Internal Security Strategy in Action further addresses 
trafficking in human beings9. 

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Communication  on  trafficking  in  women  for  the  purpose of  sexual  exploitation (COM(96) 567  final), 
Communication on Fighting trafficking in human beings: an integrated approach and proposals for an 
action  plan  (COM(2005)  514  final),  the  EU  Plan  on  best  practices,  standards  and  procedures  for 
combating  and  preventing  trafficking  in  human  beings  (2005/C  311/01)  and  Commission  working 
document  on  the  Evaluation  and  monitoring  of  the  implementation  of  the  EU  plan  (COM(2008)  657 
final). 
Directive  2011/36/EU  on  preventing  and  combating  trafficking  in  human  beings  and  protecting  its 
victims, OJ 15.04.2011, L 101. 
The  Proposal  for  the  Directive  on  the  rights  of  victims  (COM(2011) 275  final),  action  on  violence 
against  women,  of  which  gender  equality  and  anti-discrimination  are  fundamental  elements;  An  EU 
Agenda  for  the  Rights  of  the  Child  (COM(2011)  0060  final);  the  Action  Plan  on  Unaccompanied 
Minors (COM(2010) 213 final); Directive 2009/52/EC on sanctions against employers who knowingly 
employ  illegally  staying  third  country  workers;  and  the  proposal  for  a  Directive  on  seasonal 
employment of third-country nationals (COM(2010) 379 final). 
Communication  on  The  EU  Internal  Security  Strategy  in  Action:  Five  steps  towards  a  more  secure 
Europe, COM(2010) 673 final. 

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The overarching framework of the EU external migration policy — the Global Approach to 
Migration and Mobility10 — highlights the importance of cooperating with third countries of 
origin,  transit  and  destination  and  identifies  as  one  of  its  four  pillars  the  prevention  and 
reduction of irregular migration and trafficking in human beings. This line is also followed in 
the  2009  Action  Oriented  Paper  on  strengthening  the  EU  external  dimension  against 
trafficking in human beings11. 

Trafficking  in  human  beings  is  also  addressed  in  numerous  external  relations  instruments, 
such  as  the  annual  progress  reports  on  candidate  and  potential  candidate  countries,  the 
roadmaps  and  action  plans  regarding  visa  liberalisation  dialogues  with  third  countries,  the 
Country Strategy Papers and National and Regional Indicative Programmes and programmes 
in  the  framework  of  the  European  Neighbourhood  Policy.  It  is  also  addressed  in  bilateral 
Action Plans and ongoing political dialogue with third countries12.  

With such a wide range of legislative and policy measures, there is a risk of overlapping and 
duplication  of  initiatives.  The  objective  of  this  Strategy  therefore  is  to  provide  a  coherent 
framework  for  existing  and  planned  initiatives,  to  set  priorities,  to  fill  gaps  and  therefore 
complement  the  recently  adopted  Directive.  The  Commission  has  already  appointed  an  EU 
Anti-trafficking  Coordinator  who  started  work  in  March  201113  and  will  oversee  the 
implementation of this Strategy. The Commission has also developed a website14 dedicated to 
anti-trafficking that is regularly updated. The website aims to function as a one-stop-shop for 
practitioners and the general public. 

International Action 

A lot of attention has already been paid to trafficking in human beings at international level. 
The most prominent instruments are the UN Palermo Protocol on Trafficking in Persons, the 
Council  of  Europe  Convention  on  Actions  against  Trafficking  in  Human  Beings15.  Not  all 
Member  States  have  ratified  both  legal  instruments  and  they  should  do  so.  Indeed,  the 
Commission  urges  the  Member  States  to  ratify  all  relevant  international  instruments, 
agreements  and  legal  obligations  which  will  make  the  work  against  trafficking  in  human 
beings more effective, coordinated and coherent16. 

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Communication on The Global Approach to Migration and Mobility (COM(2011) 743 final). 
11450/5/09 REV 5, 19 November 2009 and 9501/3/11 REV 3, 4 July 2011. 
In  particular  in  the  context  of  Human  Rights  Dialogues  held  with  over  40  countries  worldwide,  the 
Migration and Mobility Dialogues amounting to seven regional processes covering more than a hundred 
countries and over twenty bilateral processes. 
Her tasks include addressing the urgent need to ensure consistent and coordinated strategic planning at 
EU  level  and  with  international  organisations  and  third  countries,  to  address  this  issue  in  a 
comprehensive manner. 
http://ec.europa.eu/anti-trafficking/index. 
Protocol  to  Prevent,  Suppress  and  Punish  Trafficking  in  Persons,  Especially  Women  and  Children, 
supplementing  the  United  Nations  Convention  against  Transnational  Organized  Crime,  Treaty  Series, 
vol. 2237, p. 319; Convention on Action against Trafficking in Human Beings (CETS No.197), Council 
of Europe, Warsaw, 16 May 2005.  
UN  Convention  on  the  Elimination  of  All  Forms  of  Discrimination  Against  Women,  New  York,  18 
December  1979,  Treaty  Series,  vol.  1249,  p. 13,  UN  Convention  on  the  Rights  of  the  Child,  20 
November 1989, United Nations, Treaty Series, vol. 1577, p. 3, ILO Forced Labour Convention, 1930 
(No  29),  ILO  Abolition  of  Forced  Labour  Convention,  1957  (No  105),  ILO  Worst  Forms  of  Child 
Labour Convention, 1999 (No 182) and ILO Domestic Workers Convention, 2011 (No 189). 

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2. 

KEY PRIORITIES 

With this Strategy, the European Commission seeks to focus on concrete measures that will 
support  the  transposition  and  implementation  of  Directive  2011/36/EU,  bring  added 
value and complement the work done by governments, international organisations and 
civil society in the EU and third countries. 

The  main  responsibility  for  addressing  trafficking  in  human  beings  lies  with  the 
Member  States.  The  purpose  of  this  Communication  is  to  show  how  the  European 
Commission  intends  to  support  the  Member  States  in  doing  this.  The  Rantsev  v  Cyprus 
and Russia17 judgment provides a decisive human rights benchmark with clear obligations for 
Member States to take the necessary steps to address different areas of trafficking in human 
beings. These include recruitment, investigation, prosecution, protection of human rights, and 
providing assistance to victims. If the authorities are aware of a case of human trafficking, or 
that  an  individual  risks  being  a  victim  of  human  trafficking,  they  are  obliged  to  take 
appropriate measures. 

The measures included in this Strategy are the result of a thorough examination of measures 
and  policies  that  are  already  in  place,  the  work  of  the  Group  of  Experts18,  extensive 
consultation  with  governments,  civil  society  organisations,  social  partners,  scholars, 
international  organisations,  national  rapporteurs  or  equivalent  mechanisms  and  other 
stakeholders. The views of victims of trafficking are also incorporated in the Strategy. 

This Strategy identifies five priorities the EU should focus on in order to address the issue of 
trafficking  in  human  beings.  It  also  outlines  a  number  of  actions  which  the  European 
Commission  proposes  to  implement  over  the  next  five  years  in  concert  with  other  actors, 
including  Member  States,  European  External  Action  Service,  EU  institutions,  EU  agencies, 
international  organisations,  third  countries,  civil  society  and  the  private  sector.  Those 
priorities are as follows: 

A. 

B. 

C. 

D. 

Identifying, protecting and assisting victims of trafficking 

Stepping up the prevention of trafficking in human beings 

Increased prosecution of traffickers 

Enhanced coordination and cooperation among key actors and policy coherence 

Increased knowledge of and effective response to emerging concerns related to all 

E. 
forms of trafficking in human beings 

A  multi-disciplinary,  coherent  policy  against  trafficking  in  human  beings  requires  the 
involvement  of  a  more  diverse  group  of  actors  than  before  in  policy-making.  These  should 
include police officers, border guards, immigration and asylum officials, public prosecutors, 
lawyers,  members  of  the  judiciary  and  court  officials,  housing,  labour,  health,  social  and 
inspectors,  civil  society  organisations,  social  and  youth  workers,  consumer 
safety 

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European Court of Human Rights, Rantsev v. Cyprus and Russia, Application No 25965/04, Judgment 
(final) 10 May 2010. 
Group  of  Experts  advise  the  Commission  on  policy  and  legislation  and  are  based  on  Commission 
Decisions, most recently OJ, 12.08.2011, L 207/14. 

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organisations,  trade  unions,  employers  organisations,  temporary  job  agencies,  recruitment 
agencies  and  consular  and  diplomatic  staff  as  well  as  those  more  difficult  to  reach,  such  as 
legal  guardians  and  legal  representatives,  child  and  victim  support  services.  Volunteers  and 
people who work in conflict situations could also be involved. 

2.1. 

PRIORITY A: Identifying, protecting and assisting victims of trafficking 

The  identification  of  victims  is  difficult.  Nonetheless,  people  from  many  sectors  of  society 
could potentially come into contact with a victim. It is crucial to identify potential victims, so 
that anyone who has dealings with a victim of human trafficking can best attend to the "five 
broad needs of victims", respect and recognition, assistance, protection, access to justice and 
compensation.  This  also  enables  police  and  prosecution  authorities  to  better  investigate  and 
punish  traffickers.  At  the  same  time,  mechanisms  to  protect,  assist  and  socially  include 
victims  of  trafficking  need  to  be  established.  In  accordance  with  the  2011  Directive, 
assistance and support should be based on individual needs of the victim and should include 
at  least  appropriate  and  safe  accommodation,  material  assistance,  medical  treatment, 
psychological assistance, counselling and information, translation and interpretation services.  

(1) 

Action 1: Establishment of National and Transnational Referral Mechanisms  

Member  States  should  ensure  that  formal,  functional  national  referral  mechanisms  are 
established.  These  mechanisms  should  describe  procedures  to  better  identify,  refer,  protect 
and  assist  victims  and  include  all  relevant  public  authorities  and  civil  society.  The 
development of criteria for the identification of victims should be included, to be used by all 
those involved. Member States have already committed to establishing these mechanisms by 
the end of 2012 in the context of the EU Policy Cycle to fight serious and organised crime19. 

Under  the  Directive  on  trafficking  in  human  beings,  victims  should  receive  appropriate 
protection and assistance on the basis of individual risk and needs assessments. Carrying out 
the assessments should be part of the remit of the national referral mechanisms. Based on the 
first  implementation  of  these  national  referral  mechanisms  by  Member  States,  the 
Commission will develop guidelines on how to further develop them by 2015. They should 
also address issues such as compensation and safe return. The roles and responsibilities of all 
those involved should be clearly defined. 

At present, when victims move across borders, problems are generally solved bilaterally on an 
ad  hoc  basis.  This  is  often  time-consuming  and  inefficient.  In  line  with  a  victim-centred 
approach, by 2015 the Commission will develop a model for an EU Transnational Referral 
Mechanism  which  links  national  referral  mechanisms  to  better  identify,  refer,  protect  and 
assist victims.  

(2) 

Action 2: Identification of Victims  

The  Commission  currently  funds  a  project  that  will  develop  guidelines  to  better  identify 
victims of trafficking in human beings in 2014, taking into account the EC/ILO 2009 lists 
of  indicators  on  trafficking  in  human  beings.  These  guidelines  will  facilitate  a  more 
harmonised approach and will improve identification. They should also help practitioners to 
identify  victims,  especially  victims  of  human  trafficking  for  sexual  exploitation  and  labour 
exploitation, removal of organs and child victims of trafficking. 

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Doc. 15358/10 COSI 69.  

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Furthermore,  as  mentioned  in  the  Commission  Communication  on  the  Action  Plan 
implementing  the  Stockholm  Programme,  in  2012  the  Commission  will  develop  specific 
guidelines  for  consular  services  and  border  guards  on  the  identification  of  victims  of 
trafficking in human beings. 

(3) 

Action 3: Protection of Child Victims of Trafficking 

Children are particularly vulnerable to victimisation and re-trafficking. A study done in 2010 
by  the  International  Organization  for  Migration  (IOM)  shows  that  of  the  79  sample  re-
trafficking  cases,  84  per  cent  involved  children  or  young  adults  under  25  years  old. 
Furthermore, in 18 per cent of these cases the minor was re-trafficked when (s)he became an 
adult.  This  shows  that  trafficked  minors  are  at  risk  of  being  re-trafficked  during  their  adult 
lives20. 

EU legislation provides for the protection of child victims and assistance and support to such 
victims21.  Comprehensive  child-sensitive  protection  systems  that  ensure  interagency  and 
multidisciplinary  coordination  are  key  in  catering  to  diverse  needs  of  diverse  groups  of 
children, including victims of trafficking. To better protect children, the Commission will in 
2014 fund the development of guidelines on child protection systems.  

Member  States  should  strengthen  child  protection  systems  for  trafficking  situations  and 
ensure where return is deemed to be the child’s best interest, the safe and sustainable return of 
children  to  the  country  of  origin,  in  and  outside  the  EU,  and  prevent  them  from  being  re-
trafficked. 

In  addition,  with  respect  to  child  trafficking,  there  is  at  present  no  uniform  definition  of  a 
guardian and/or representative across the Member States22 and their roles, qualifications and 
understanding  of  competences  vary  from  one  Member  State  to  another23.  In  2014,  together 
with  the  European  Union  Agency  for  Fundamental  Rights,  the  Commission  intends  to 
develop  a  best  practice  model  on  the  role  of  guardians  and/or  representatives  of  child 
victims of trafficking. 

(4) 

Action 4: Provision of Information on the Rights of Victims 

Correspondence to the Commission over the years illustrates the problems individuals face in 
contacting the appropriate authorities or organisations in order to receive clear information on 
their  rights  to  assistance  and  health  care,  their  right  to  a  residence  permit  and  their  labour 
rights,  their  rights  regarding  access  to  justice  and  to  a  lawyer,  and  on  the  possibilities  of 
claiming compensation. 

To  inform  victims  of  their  rights  and  help  them  effectively  exercise  them,  in  2013  the 
Commission  will  provide  clear,  user-friendly  information  on  the  labour,  social,  victim 

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IOM,  ‘The  Causes  and  Consequences  of  Re-trafficking:  Evidence  from  the  IOM  Human  Trafficking 
Database’, 2010. 
Directives 2011/36/EU on trafficking in human beings and 2011/92/EU on combating the sexual abuse 
and sexual exploitation of children and child pornography, and replacing Council Framework Decision 
2004/68/JHA. 
EU Expert Group on Unaccompanied Minors, Meeting on Guardianship of unaccompanied children on 
21 June 2011. 
See  also  the  European  Union  Agency  for  Fundamental  Rights,  ‘Child  Trafficking  in  the  EU  — 
Challenges, perspectives and good practices’, July 2009. 

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and migrant rights that victims of trafficking in human beings have under EU law24. As 
a  follow-up,  the  Commission  will  help  Member  States  provide  and  disseminate  similar 
information at national level in 2014.  

2.2. 

PRIORITY B: Stepping up the prevention of trafficking in human beings 

A  coherent  approach  to  prevention  must  encompass  prosecution  and  protection  and  address 
all areas of trafficking in human beings. Prevention needs to be stepped up in the light of the 
root causes which make people vulnerable to trafficking and addressing these causes should 
be a key aspect of prevention in the EU and in third countries. 

(1) 

Action 1: Understanding and Reducing Demand 

The exchange of best practices can help reduce demand for all forms of trafficking, including 
sexual exploitation. It should build on work done in the areas of public awareness campaigns 
targeting consumers and users of services, corporate social responsibility, codes of conduct25, 
business  and  human  rights  and  initiatives  aimed  at  eliminating  human  trafficking  from  the 
supply chains of businesses. 

To  increase  understanding  on  the  reduction  of  demand,  in  2013,  under  the  Seventh 
Framework  Programme,  the  Commission  will  fund  research  on  reducing  the  demand  for 
and  supply  of  services  and  goods  by  victims  of  trafficking  in  human  beings,  including 
victims  trafficked  for  the  purpose  of  sexual  exploitation  and  specific  categories  of  victims 
such as children. The research will provide material for the Commission’s 2016 report on the 
legal  measures  that  some  Member  States  have  taken  to  criminalise  the  use  of  services  of 
victims of trafficking in human beings26. 

(2) 

Action 2: Promote the establishment of a Private Sector Platform 

Cooperation  with  the  private  sector  is  also  essential  in  order  to  reduce  the  demand  for 
trafficking  in  human  beings  and  to  develop  supply  chains  that  do  not  involve  trafficking  in 
human beings.  

A European Business Coalition against trafficking in human beings will be established in 
2014.  The  coalition  should  improve  cooperation  with  businesses  and  other  stakeholders, 
respond to emerging challenges and discuss measures to prevent trafficking in human beings, 
in  particular  in  high-risk  areas.  In  2016,  the  Commission  intends  to  work  together  with  the 
Coalition to develop models and guidelines on reducing the demand for services provided 
by victims of trafficking in human beings, in particular in high-risk areas, including the sex 
industry, agriculture, construction and tourism. 

(3) 

Action 3: EU-wide Awareness Raising Activities and Prevention Programmes 

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This information includes the rights based on Directive 2004/81/EC on the residence permit issued to 
third country nationals who are victims of trafficking in human beings. The potential of the Directive is 
currently  not  being  fully  exploited  and  victims’  lack  of  information  about  their  rights  has  been 
identified as one of the key problem areas. The Commission has launched a study to analyse the current 
measures in place and schemes of protection for victims of trafficking provided in each Member State 
under  the  Directive,  to  understand  whether  the  current  somewhat  divergent  arrangements  in  the 
Member  States  hinder  a  consistent,  effective  approach  to  addressing  trafficking  in  human  beings. 
http://ec.europa.eu/anti-trafficking/index, http://ec.europa.eu/immigration and http://e-justice.europa.eu. 
Such as the IOM’s Buy Responsibly Campaign http://www.buyresponsibly.org. 
Article 23 of the 2011/36/EU Directive on trafficking in human beings. 

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Numerous anti-trafficking prevention programmes, in particular awareness-raising campaigns, 
have  been  implemented  locally,  nationally,  internationally  and  in  third  countries.  However, 
little has been done to systematically evaluate the impact of such prevention programmes in 
terms  of  their  achieving  their  objectives,  such  as  changes  in  behaviour  and  attitudes,  thus 
reducing the likelihood of trafficking in human beings. Little is also known about the added 
value, coherence and consistency (where appropriate) of such initiatives and the links between 
them. 

In 2013, under the home affairs funding programme, the Commission will thoroughly analyse 
prevention initiatives already in place to target trafficking in human beings carried out 
by  various  actors.  The  Commission  will  then  develop  EU-wide  guidance  on  future 
prevention  measures  and  gender-sensitive  information  campaigns  with  the  Member  States. 
Based on the analysis of prevention activities already in place, links to existing awareness-
raising campaigns will be established in 201527.  

In  2014  the  Commission  will  launch  EU-wide  awareness-raising  activities  targeting 
specific  vulnerable  groups,  such  as  women  and  children  at  risk,  domestic  workers,  Roma 
communities, undocumented workers and situations such as major sporting events, using the 
home affairs funding programme. The internet and social networks will be used as a means of 
effectively raising awareness in a targeted manner. 

2.3. 

PRIORITY C: Increased prosecution of traffickers 

Trafficking in human beings extends beyond individual Member States. Most traffickers work 
within well-established networks which allow them  to  move  victims  across  borders  or  from 
one  place  to  another  within  a  country.  In  fact,  internal  trafficking,  in  which  many  of  the 
victims are EU citizens who are trafficked within their own or another Member State, is on 
the rise. Although the investigation and prosecution of human trafficking cases have received 
more attention recently, the total number of cases prosecuted in the EU remains low. In fact, 
the comparable data showed a decrease in the number of convictions on trafficking in human 
beings, from 1534 in 2008 to 1445 in 2009 and 1144 in 2010. 

(1) 

Action 1: Establishment of National Multidisciplinary Law Enforcement Units 

In the EU Policy Cycle to fight serious and organised crime, Member States have recognised 
in  the  strategic  goals  and  operational  actions  the  importance  of  being  innovative, 
multidisciplinary  and  proactive  to  better  investigate  and  prosecute  cases  of  trafficking  in 
human beings. 

To  better  investigate  and  prosecute  traffickers  and  further  increase  cross-border  cooperation 
and  centralise  knowledge  on  trafficking  in  human  beings,  Member  States  should  establish 
national multidisciplinary law-enforcement units on human trafficking. The units should 
function  as  contact  points  for  EU  agencies,  in  particular  Europol28  and  forward  the 
information collected to the Europol National Units for further transmission to Europol. The 
units  should  focus  on  all  forms  of  human  trafficking  and  improve  the  detection  of  human 

27 
28 

Such as the UNODC’s Blue Heart Campaign or the Blue Blindfold Campaign of the UK. 
The  units  should  function  as  a  contact  point  for  law  enforcement  bodies  in  other  countries  in  and 
outside  the  EU  and  experts  from  the  unit  should  participate  in  meetings  such  as  the  meeting  of  the 
Analytical  Work  Files  group  on  human  trafficking,  meetings  related  to  the  EU  policy  cycle  and 
meetings of the contact points mentioned in Europol’s contact manual for human trafficking. 

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trafficking and the collection and analysis of information on the subject. Procedures need to 
be  in  place  to  regulate  the  exchange  of  information  between  local  and  regional  law 
enforcement units and national units. The units should also address changing patterns, such as 
the recruitment of victims of trafficking in human beings and advertising of their services on 
the internet. 

(2) 

Action 2: Ensuring Proactive Financial Investigation 

In line with the Organisation for Economic Co-operation and Development Financial Action 
Task  Force  Recommendations29,  Member  States  should  proactively  conduct  financial 
investigations  of  trafficking  cases  in  2013,  provide  information  for  Europol’s  analytical 
work file and further cooperate with EU agencies, such as Eurojust and the European Police 
College (CEPOL). 

Europol will do an analysis based on information received from Member States on the 
financial investigation of human trafficking cases by 2015. This analysis should lead to the 
identification  of  best  practice  and  models  for  financial  police  investigations.  Financial 
investigation has been recognised as a tool for gathering evidence. When collecting evidence 
with  a  view  to  prosecuting  human  traffickers,  many  investigations  still  depend  largely  on 
victims’  statements.  Evidence  gathered  from  money  trails  might  provide  the  necessary 
additional  proof,  particularly  in  high-risk  sectors30,  thus  relieving  victims  of  the  burden  of 
testifying  in  court.  Financial  investigations  may  also  be  useful  to  feed  into  risk  assessment, 
increase  knowledge  of  the  modus  operandi  of  those  who  commit  crimes  related  to  human 
trafficking and refine detection tools. 

(3) 

Action 3: Increasing cross-border Police and Judicial Cooperation 

The Commission recognises the importance of increasing the level of judicial cooperation in 
the area of trafficking in human  beings. It therefore encourages national authorities  and  EU 
agencies  to  create  where  relevant  joint  investigation  teams  and  involve  Europol  and 
Eurojust in all cross-border trafficking cases. Member States should make full use of EU 
agencies and to share information with a view to increasing the number and quality of cross-
border investigations at the level of law enforcement and at judicial level. In accordance with 
their  mandates,  EU  agencies  should  actively  share  information  among  themselves  and  with 
Member  States.  Member  States  should  also  cooperate  with  Eurojust  in  implementing  the 
future Eurojust Action Plan against trafficking in human beings. 

(4) 

Action 4: Increasing Cooperation beyond Borders 

The EU will fund in 2012 a pilot project to strengthen regional cooperation on trafficking 
in human beings along routes from the East to the EU using the Instrument for Stability.  

Further  initiatives  against  organised  crime  and  human  trafficking  will  also  contribute  to 
coherence  between  the  internal  and  external  aspects  of  EU  security  policies.  They  will  also 
increase knowledge of the links between criminal networks involved in trafficking in human 
beings  and  other  crime  areas.  Their  aim  should  be  to  improve  systems  of  data  collection, 

29 

30 

International standards on combating money laundering and the financing of terrorism & proliferation, 
the FATF recommendations, OECD Financial Action Task Force, February 2012. 
Europol,  ‘EU  Organised  Crime  Threat  Assessment  2011’.  These  sectors  are  agriculture,  construction, 
the textile industry, healthcare, domestic service and the sex industry, page 19. 

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analysis and exchange at national and transnational level, to promote and assist in information 
sharing  and  regional  coordination  on  trafficking  in  human  beings  and  enhance  national  and 
transnational law enforcement cooperation and the capacity of prosecutors and consular and 
NGO staff. 

2.4. 

PRIORITY  D:  Enhanced  coordination  and  cooperation  among  key  actors  and 
policy coherence 

There is a need for improved coordination and cooperation among key actors working in the 
field  of  trafficking  in  human  beings,  based  on  a  multi-sectoral,  multi-disciplinary  approach. 
Coherence is also essential to ensure that related policies incorporate anti-trafficking policy. 

Cooperation amongst different actors can best be organised through formalised mechanisms 
and  procedures  that  create  a  clear  commitment  and  clarify  the  roles  and  tasks  of  those 
involved. The EU Justice and Home Affairs Agencies signed a joint statement on the 5th EU 
Anti-Trafficking  Day  on  18  October  2011.  This  agreement  includes  better  prevention  of 
trafficking,  more  efficient  investigation  and  prosecution  of  perpetrators,  and  more  effective 
protection of victims that complies  with fundamental rights and takes the gender of victims 
into  account31.  The  Commission  will  coordinate  and  monitor  the  implementation  of  this 
agreement. 

(1) 

Action  1:  Strengthening  the  EU  Network  of  National  Rapporteurs  or  Equivalent 
Mechanisms 

The  Informal  EU  Network  of  National  Rapporteurs  or  Equivalent  Mechanisms  was 
established  in  2009  and  meets  every  six  months.  Under  Article  19  of  the  Directive  on 
preventing  and  combating  trafficking  in  human  beings,  all  Member  States  need  to  establish 
national rapporteurs or equivalent mechanisms whose tasks include carrying out assessments 
of  trends,  measuring  the  impact  of  anti-trafficking  efforts,  and  gathering  data.  In  2013,  the 
Commission  will  strengthen  the  EU-wide  coordination  mechanism  to  support  the  work 
national  rapporteurs’  do  to  monitor  the  implementation  of  Member  States’  EU  and 
international  obligations;  to  collect  data,  analyse  and  research  human  trafficking  trends  at 
national level, and assess progress on preventing and combating human trafficking as well as 
on protecting victims, while ensuring the participation of civil society. 

(2) 

Action 2: Coordinating EU External Policy Activities 

The Action Oriented Paper on strengthening the EU external dimension against trafficking in 
human  beings  and  the  Global  Approach  to  Migration  and  Mobility  both  provide  for  better 
coordination of the EU’s external policy activities and provide a coherent approach based on 
EU agreements, strategic partnerships and political dialogues. A list of priority third countries 
and  regions  for  future  partnerships  should  be  developed.  Cooperation  mechanisms  in  EU 
delegations  on  trafficking  in  human  beings  could  be  considered  in  priority  third 
countries  and  regions  in  2013  in  order  to  strengthen  cooperation,  create  partnerships  and 
improve coordination and coherence. 

31 

The  agencies  in  question  are  CEPOL,  EASO,  EIGE,  Europol,  Eurojust,  FRA  and  Frontex, 
http://ec.europa.eu/anti-trafficking/entity.action?id=55a48066-dcf5-4e71-b191-cedcf0caa97a. 

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The Commission will also work towards strengthening and formalising partnerships with 
international  organisations32  active  in  the  field  of  trafficking  in  human  beings  to  improve 
the  exchange  of  information  and  ensure  cooperation,  particularly  in  the  areas  of  policy 
planning, prioritisation, data collection, research and monitoring and evaluation. 

As  a  severe  violation  of  human  rights  mentioned  in  the  Charter  of  Fundamental  Rights, 
trafficking in human beings will continue to be covered under the Human Rights Clauses in 
the  EU's  agreements  with  third  countries,  including  the  Free  Trade  Agreements, 
providing the basis for cooperation on and promotion of human rights33. 

The  Commission  will  continue  to  fund  projects  through  the  development  cooperation  and 
other  external  relations  funding  programmes  in  all  relevant  aspects  of  trafficking  in  human 
beings  in  third  countries  and  in  regions,  including  South-South  trafficking,  and  covering 
prevention, protection and prosecution. 

(3) 

Action 3: Promoting the establishment of a Civil Society Platform 

An  EU  Platform  of  civil  society  organisations  and  service  providers  working  on  victim 
protection and assistance in Member States and selected third countries will be established in 
2013. The Commission will ensure that the funds in the home affairs funding programmes are 
available to do this. 

(4) 

Action 4: Reviewing Projects funded by the EU 

Over  the  years,  the  European  Commission  has  funded  numerous  anti-trafficking  projects34. 
These  projects  have  targeted  different  stakeholders  and  approached  the  issue  from  various 
angles. The Commission will ensure that information on all projects on internal and external 
aspects  of  trafficking  in  human  beings  that  are  funded  by  the  EU  is  provided  on  its  anti-
trafficking website. As a next step, reflecting the need for greater coherence in policies across 
sectors that affect anti-trafficking work and initiatives, in 2014 the Commission will conduct 
a  comprehensive  review  of  these  projects  to  map  the  geographical  areas,  fields,  different 
actors  and  types  of  projects,  as  well  as  their  outcomes  and  recommendations.  This  review 
will strengthen future projects and provide a solid basis for coherent, cost effective, and 
strategic EU policy and funding initiatives. 

(5) 

Action  5:  Strengthen  the  fundamental  rights  in  anti-trafficking  policy  and  related 
actions 

Mainstreaming  fundamental  rights  in  anti-trafficking  policy  and  legislation  is  necessary  to 
ensure  that  anti-trafficking  work  is  coherent.  The  Commission's  Strategy  for  the  effective 
implementation  of  the  Charter  of  Fundamental  Rights35  requires  the  Commission  to  ensure 

32 

33 

34 
35 

The  Commission  has  formalised  partnerships  in  different  forms  and  cooperates  with  the  UN,  the 
Council of Europe, the International Organization for Migration, the Organization for Security and Co-
operation  in  Europe,  the  World  Health  Organization  and  the  International  Labour  Organization. 
Continued cooperation with these organisations will be especially important in combating trafficking in 
human beings for the purpose of the removal of organs. 
Joint Communication: Human Rights and Democracy at the Heart of EU External Action — Towards a 
More Effective Approach, COM(2011) 886 final. 
Information on most projects is available on the Commission’s anti-trafficking website. 
Strategy for the effective implementation of the Charter of Fundamental Rights by the European Union 
COM(2010) 
http://eur-
19 
lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2010:0573:FIN:EN:PDF. 

available 

October 

2010, 

final, 

573 

at: 

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12 

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from an early stage, by means of a "fundamental rights check", that its legislative and other 
acts are always in full compliance with the fundamental rights guaranteed by the Charter36. 

Important work has also been done by various organisations and bodies, namely the European 
Union Agency for Fundamental Rights, the Office of the United Nations High Commissioner 
for Human Rights and the Council of Europe. Moreover, a tool for civil society organisations 
to assess policy and legislation on trafficking in human beings37 and a tool to give guidance 
on fundamental rights in Commission impact assessments have been developed. 

To  strengthen  existing  instruments,  and  building  upon  its  past  and  on-going  work  on 
trafficking,  in  2014  the  European  Union  Agency  for  Fundamental  Rights,  will  start  to 
develop  a  tool,  such  as  a  handbook  or  a  guide,  to  assist  Member  States  in  addressing 
fundamental  rights issues  specifically  related  to  anti-trafficking  policy  and  related  actions, 
which  will  take  into  account  relevant  structures,  processes,  and  outcomes  and  will  focus  on 
the rights of victims, incorporating a gender perspective and the best interests of the child. As 
a  next  step,  the  Commission  will,  through  the  future  justice  funding  programmes  assist 
Member States in implementing this tool. 

(6) 

Action 6: Coordinating Training Needs in a Multidisciplinary Context 

One of the key points in the Directive on trafficking in human beings and something that is 
clear  from  the  majority  of  the  responses  to  the  consultations  on  this  Strategy  is  the  need  to 
provide  training  for  those  who  work  in  the  field.  Training  mechanisms  and  targeted, 
specialised  programmes  on  trafficking  in  human  beings  must  become  more  uniform  and 
consistent38.  People  who  regularly  have  to  deal  with  human  trafficking  issues  need  to  be 
trained.  The  Commission  will  strengthen  training  focusing  on  the  judiciary  and  cross-
border law enforcement through the Communications on Building trust in EU-wide justice 
and on the European Training Scheme, planned for the end of 2012. The main focus of the 
Commission will be to bring together various actors in order to increase policy coherence, 
and as appropriate, target specific areas and actors.  

Possibilities of developing training frameworks for transition and developing countries will be 
explored, including through the European Training Foundation. The European Police College, 
Frontex, and the European Asylum Support Office will work further on training needs of their 
respective  stakeholders39.  The  Commission  will  consider  cooperation  with  the  EU 
Delegations  to  provide  them  and,  through  them,  third  countries,  with  training  in  addressing 
trafficking in human beings. 

36 

37 

38 

39 

Guide, 

http://ec.europa.eu/anti-trafficking/entity?id=7dbb0353-cb8a-4bcc-a3fa-

Commission Staff Working Paper - Operational Guidance on taking account of Fundamental Rights in 
Commission Impact Assessments, SEC(2011) 567 final, 6.5.2011. 
The 
RighT 
34dfbe01bbca. 
Communication  Building  trust  in  EU-wide  justice:  a  new  dimension  to  European  judicial  training, 
COM(2011) 551 final. 
CEPOL provides training on trafficking in human beings as well as a Common Curriculum and an e-
learning  module  for  police  officers.  Frontex  has  developed  a  specific  training  manual  on  human 
trafficking  for  border  guards.  Tools  and  information  on  detecting  and  referring  human  trafficking 
victims will be part of the European Asylum Support Office (EASO) tool box, for instance in training 
modules and manuals. 

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2.5. 

PRIORITY  E:  Increased  knowledge  of  and  effective  response  to  emerging 
concerns related to all forms of trafficking in human beings 

The trends, patterns and working methods of traffickers are changing in all the different forms 
of trafficking in human beings, adapting to changing patterns of demand and supply. Forms of 
exploitation  are  often  merged  and  intertwined,  making  it  hard  to  detect  the  exact  form  of 
exploitation  victims  are  subjected  to.  This  makes  it  even  harder  to  identify  victims.  It  is 
necessary to be able to understand such trends quickly and ensure an effective response. 

(1) 

Action 1: Developing an EU-wide System for Data Collection 

The Commission, together with the Member States, will develop an EU-wide system for the 
collection  and  publication  of  data  broken  down  according  to  age  and  gender. 
Understanding  the  flows  and  trends  of  internal  trafficking  will  be  an  important  part  of  this 
work.  Based  on  the  results  of  the  analysis  of  the  first  data  collection  initiative  of  2012,  the 
Commission  will  work  with  national  rapporteurs  to  ensure  comparable,  reliable  data  are 
collected  in  the  follow-up  initiative  covering  the  years  2011  and  2012.  Results  are 
expected in 2014. 

In its Communication on measuring crime in the EU, the Commission emphasised the need to 
collect  reliable,  comparable  data  for  evidence-based  policy  on  trafficking  in  human  beings. 
The  Communication  includes  an  Action  Plan  for  2011-201540  to  collect  data  on  a  small 
number of indicators. 

(2) 

Action  2:  Developing  knowledge  relating  to  the  Gender  Dimension  of  Trafficking 
and Vulnerable Groups 

In  2013,  the  Commission  will  develop  knowledge  on  the  gender  dimensions  of  human 
trafficking, including the gender specificities of the way men and women are recruited and 
exploited,  the  gender  consequences  of  the  various  forms  of  trafficking  and  potential 
differences in the vulnerability of men and women to victimisation and its impact on them. 

Vulnerability to trafficking and to different forms of exploitation is shaped by gender. While 
women and girls tend to be trafficked for exploitation in the sex industry, in domestic work or 
the care sector, men and boys tend to be victims of forced labour, in particular in agriculture, 
construction,  mining,  forestry  sectors  and  on  fishing  fleets.  In  addition,  the  short  and  long 
term  consequences  on  trafficked  women  and  men  might  differ,  depending  on  the  form  of 
trafficking and gender.  

Vulnerable  groups  are  at  greater  risk  of  human  trafficking.  Such  groups  include  children, 
especially early school leavers, children left behind41, unaccompanied children, and children 
with disabilities, as well as people in the Roma community42. Ensuring a gender perspective, 
in 2014 the Commission will also ensure that funding is available under the research funding 
programme to increase understanding of such high-risk groups and it will target actions in 
a more coherent manner in the future and collaborate with the Member States. 

40 

41 

42 

Communication  Measuring  Crime  in  the  EU:  Statistics  Action  Plan  2011  –  2015,  COM(2011)  713 
final. 
This refers to children whose parents work in a different Member State and leave their children behind 
in their country of origin. 
Taking into account research on the topic such as the Study on the Typology of and Policy Responses to 
Child Begging in the EU, JLS/2009/ISEC/PR/008-F2. 

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(3) 

Action 3: Understanding Online Recruitment 

In  2014  the  Commission  will,  under  the  safer  internet  funding  programme,  support  projects 
that aim to increase knowledge of recruitment over the internet and via social networks 
—  including  recruitment  done  with  the  help  of  intermediaries.  The  internet  reaches  a 
broad  audience,  offering  numerous  possibilities  to  recruit  victims43.  It  offers  employment 
opportunities  (most  often  promoting  attractive  jobs  abroad,  for  models,  dancers,  cabaret 
performers, etc.) which are accessible via simple search engines or pop-ups, chat rooms and 
spam mail. Social networking tools are becoming increasingly popular as recruitment tools. 

(4) 

Action 4: Targeting Trafficking for Labour Exploitation 

To increase the number of cases of trafficking for labour exploitation that are investigated and 
prosecuted and to improve the quality of the investigation and prosecution of such cases, in 
2013, under the home affairs funding programme, the Commission will fund a study of case 
law in all Member States. Many reports flag the different approaches in Member States to 
their 
labour  exploitation.  Criminal 
addressing 
implementation  seem  to  differ  among  Member  States.  This  may  hamper  cross-border 
cooperation.  Better  insight  into  case  law  in  Member  States  might  throw  light  on  the 
differences in approach. 

law  provisions  and 

trafficking  for 

Labour  (market)  legislation  and  laws  regulating  migrants  working  in  the  EU,  when 
implemented  correctly,  will  also  help  to  prevent  the  different  forms  of  human  trafficking. 
There needs to be a greater focus on the administrative aspects of trafficking in human beings 
such as on contractors and subcontractors and job recruitment agencies, in particular in high-
risk sectors for trafficking in human beings. The EU’s decent work agenda44 and better social 
protection in countries of origin must also be promoted. 

In  2015,  the  Commission  will  work  with  the  European  Foundation  for  the  Improvement  of 
Living  and  Working  Conditions  (Eurofound)  to  develop  a  best  practice  guide  for  public 
authorities on the monitoring and enforcement of temporary work agencies and intermediary 
agencies such as job recruitment agencies to prevent trafficking in human beings. The guide 
should include licensing systems and work related to the liability of such agencies. 

The  Commission  will  also  strengthen  cooperation  with  labour,  social,  health  and  safety 
inspectors,  as  well  as  fisheries  inspectors,  in  relation  to  the  identification  and  referral  of 
victims  of  human  trafficking  and  in  raising  awareness  and  training  by  including  it  on  the 
agenda of EU networks in 2013. 

3. 

EVALUATION AND MONITORING 

Taking into account the multitude of reporting mechanisms in the field of trafficking in human 
beings  across  the  EU45,  and  how  this  Communication  relates  to  the  Directive  on  human 

43 

44 

45 

See  the  Council  of  Europe’s  study  on  the  Misuse  of  the  Internet  for  the  recruitment  of  victims  of 
trafficking in human beings, 2007. 
Communication Promoting decent work for all: the EU contribution to the implementation of the decent 
work agenda in the world, COM(2006) 249 final.  
The intention is to exploit as far as possible existing reporting mechanisms in the field of trafficking in 
human beings, such as reporting under the EU Policy Cycle to fight serious and organised Crime, and 

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trafficking,  the  Commission  intends  to  establish  effective  monitoring  and  evaluation 
procedures  that  do  not  create  repetitive  reporting  mechanisms.  The  Member  States  are 
encouraged  to  do  their  own  evaluation  and  monitoring  of  national  strategies  and  activities 
aimed at addressing human trafficking. 

In  accordance  with  the  Directive  on  human  trafficking,  by April  2015  the  Commission  will 
assess the extent to which the Member States have taken the necessary measures to comply 
with that Directive in a report to the European Parliament and the Council. 

Then, in accordance with the Directive, the Commission will report every two years to the 
Council and the European Parliament on the progress made in the fight against trafficking in 
human  beings,  facilitated  by  the  Member  States. The  first  report,  to  be  issued  in  2014,  will 
include a first evaluation of this Communication. 

Finally, in 2016 a report will assess the impact of national laws establishing as a criminal 
offence the use of services which are the objects of exploitation of trafficking in human 
beings. If necessary, the report will contain adequate proposals. 

In  the  light  of  the  measures  described  in  this  Communication,  the  Informal  Network  of 
National Rapporteurs or Equivalent Mechanisms will be essential for both the monitoring and 
the evaluation of those measures. The reports they issue at Member State level will be taken 
into  consideration.  The  Commission  strongly  advises  the  National  Rapporteurs  or 
Equivalent Mechanisms to consult civil society when preparing their reports. 

Ensuring that this Strategy for the Eradication of Trafficking in Human Beings 2012 – 2016 
will  have  the  intended  effect  will  depend  to  a  large  extent  on  the  funding  and  on  the 
involvement of all the actors mentioned in this Communication. 

the reports of the Group of Experts on Action against Trafficking in Human Beings of the Council of 
Europe (GRETA). 

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Summary of the actions of the EU Strategy towards the Eradication of Trafficking in Human Beings 2012–2016 

PRIORITIES AND ACTION 

RESPONSIBLE 

TIMING 

Development of national referral mechanisms 

MS/COM 

PRIORITY A: Identifying, protecting and assisting victims of trafficking 

Guidelines on protection of victims  

Model for an EU transnational referral mechanism 

Guidelines for better identification of victims of trafficking in human beings 

Guidelines for consular services and border guards for identification of victims of trafficking 

Guidelines on child protection systems 

Strengthening of child protection systems to ensure safe return and prevent re-trafficking 

Best practice model on the role of guardians and/or representatives for child victims 

Information on labour, social, victim and migrant rights under EU law 

COM 

COM 

COM 

COM 

COM 

MS  

COM/FRA 

COM 

Dissemination of information on labour, social, victim and migrant rights at national level  

MS/COM 

2012 

2015 

2015 

2014 

2012 

2014 

2015 

2014 

2013 

2014 

EN 

17 

EN 

 
  
PRIORITIES AND ACTIONS 

RESPONSIBLE 

TIMING 

PRIORITY B: Stepping up the prevention of trafficking in human beings 

Research on reducing the demand for services provided by victims of trafficking 

Establishment of a European Business Coalition against trafficking in human beings 

Models and guidelines on the reduction of demand 

Analysis of existing prevention initiatives carried out by stakeholders 

EU-wide awareness-raising activities targeting specific vulnerable groups 

COM 

COM 

COM/European 
Business Coalition  

COM 

COM 

2013 

2014 

2016 

2013 

2014 

PRIORITIES AND ACTION 

RESPONSIBLE 

TIMING 

PRIORITY C: Increased prosecution of traffickers 

Establishment of national, multidisciplinary law-enforcement units on human trafficking  

Proactive financial investigations of trafficking cases and cooperation with EU agencies 

MS  

MS 

Analysis of information received from MS on financial investigation in human trafficking cases 

Europol/MS 

Ongoing 

2013 

2015 

Joint Investigation Teams  

MS/EU agencies 

Ongoing 

EN 

18 

EN 

 
  
 
 
 
 
Full use of EU agencies  

MS/EU agencies 

Ongoing 

Implementation of Eurojust Action Plan against trafficking in human beings 

Eurojust/MS 

Regional cooperation on human trafficking along routes from the East to the EU 

COM 

2013 

2012 

PRIORITIES AND ACTIONS 

RESPONSIBLE 

TIMING 

PRIORITY D: Enhanced coordination and cooperation among key actors and policy coherence 

Coordination and monitoring of the implementation of the joint statement signed by EU JHA agencies  COM 

Ongoing 

Strengthening  of  the  EU-wide  coordination  mechanism  to  support  the  Informal  Network  of  National 
Rapporteurs or Equivalent Mechanisms 

COM/MS  

2013 

Possible  establishment  of  cooperation  mechanisms  in  EU  delegations  in  priority  third  countries  and 
regions  

COM/EEAS/MS 

2013 

Strengthening and formalisation partnerships with international organisations  

Inclusion of human trafficking in the Human Rights Clauses 

Funding of projects on trafficking in human beings in third countries and regions 

EU platform of civil society organisations and service providers  

Review of EU-funded projects on trafficking in human beings 

COM/International 
Organisations/EEAS 

Ongoing 

COM/EEAS 

COM/EEAS 

COM 

COM 

Ongoing  

Ongoing 

2013 

2014 

EN 

19 

EN 

 
  
 
Tool assessing fundamental rights in anti-trafficking policy and related actions  

COM/FRA 

2014 

Assistance to Member States in implementing the assessment tool 

COM/MS 

Ongoing 

Strengthening of training targeting judiciary and cross-border law enforcement officials 

COM/EU agencies/MS  2012 

Increased policy coherence through training programmes 

COM/MS 

Ongoing 

PRIORITIES AND ACTIONS 

RESPONSIBLE 

TIMING 

PRIORITY E: Increased knowledge of and effective response to changing trends in trafficking in human beings 

EU-wide system for the collection and publication of gender- and age- disaggregated data 

COM/MS 

Comparable and reliable data in follow-up initiative 2011 and 2012 

Research on the gender dimensions of human trafficking  

Research on high-risk groups for human trafficking  

Research on recruitment over the internet and through social networks  

Case-law study on trafficking or labour exploitation  

COM/MS/National 
Rapporteurs 

COM 

COM 

COM/MS 

COM/MS 

2012 

2014 

2013 

2014 

2014 

2013 

Best practices guide for public authorities on monitoring of temporary work agencies and intermediary 
agencies  

EUROFOUND/COM 

2015 

Cooperation with labour, social and health, safety and fisheries inspectors 

COM 

2013 

EN 

20 

EN