COMMISSION STAFF WORKING DOCUMENT Accompanying the document REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Report on the progress made in the fight against trafficking in human beings (2016) as required under Article 20 of Directive 2011/36/EU on preventing and combating trafficking in human beings and protecting its victims
Date: 2016-05-19
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU Member State, data collection, data transmission, fight against crime, help for victims, human rights, organised crime, prostitution, slavery, trafficking in human beings

EN 

   EN 

   EUROPEAN COMMISSION  Brussels, 19.5.2016  SWD(2016) 159 final   COMMISSION STAFF WORKING DOCUMENT Accompanying the document REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Report on the progress made in the fight against trafficking in human beings (2016)  as required under Article 20 of Directive 2011/36/EU on preventing and combating trafficking in human beings and protecting its victims {COM(2016) 267 final}  
 
 
Contents 

Contents ................................................................................................................................................... 2 

1. 

INTRODUCTION ........................................................................................................................... 4 

2.  METHODOLOGY AND INFORMATION SOURCES ................................................................. 5 

2.1.  Member States and National Rapporteurs or Equivalent Mechanisms (NREMs) ................... 5 

2.2.  EU Civil Society Platform against Trafficking in Human Beings ........................................... 7 

2.3.  EU agencies, international and regional organisations ............................................................ 8 

3.  TRENDS AND CHALLENGES IN ADDRESSING TRAFFICKING IN HUMAN BEINGS IN 

THE EU ......................................................................................................................................... 10 

3.1. 

Statistical data ........................................................................................................................ 10 

3.1.1. 

Statistical data for 2010-2012 ........................................................................................ 10 

3.1.2. 

Statistical data for 2013-2014 ........................................................................................ 11 

3.2.  Trends in forms of exploitation .............................................................................................. 13 

3.2.1. 

Trafficking for the purpose of sexual exploitation ........................................................ 14 

3.2.2. 

Trafficking for the purpose of labour exploitation ........................................................ 15 

3.2.3. 

Trafficking for other forms of exploitation ................................................................... 17 

3.2.4. 

Forced marriages and sham marriages .......................................................................... 18 

3.3.  Trends in child trafficking ..................................................................................................... 19 

3.4.  Trends in trafficking in human beings and organised crime .................................................. 23 

3.5.  Trafficking trends in the context of migration and asylum .................................................... 26 

3.6.  Trends in the use of the internet and new technologies ......................................................... 30 

4.  RESULTS OF ACTIONS TO ADDRESS TRAFFICKING IN HUMAN BEINGS .................... 32 

4.1.  Criminal law, investigations and prosecutions ...................................................................... 33 

4.1.1. 

Low level of investigations, prosecutions and convictions ........................................... 34 

4.1.2. 

Rights of the victims in the context of investigation and prosecution ........................... 36 

4.1.3. 

The use of innovative techniques .................................................................................. 37 

4.1.4. 

Seizure and confiscations .............................................................................................. 38 

4.1.5. 

The use of joint investigations and joint investigation teams ........................................ 39 

4.1.6. 

The key importance of the use of financial investigations ............................................ 39 

4.2. 

Identification, protection and assistance ................................................................................ 43 

4.2.1. 

Identification ................................................................................................................. 43 

2 

 
 
 
 
 
4.2.2. 

National and transnational referral mechanisms ........................................................... 45 

4.2.3. 
beings 

The use of EU large-scale IT systems for detecting and preventing trafficking in human 
47 

4.2.4. 

Assistance, support and protection ................................................................................ 48 

4.2.5. 

Child protection ............................................................................................................. 50 

4.2.6. 

Links between the protection of victims of trafficking and asylum procedures ............ 53 

4.3. 

Prevention .............................................................................................................................. 55 

4.3.1. 

Factors contributing to vulnerability ............................................................................. 56 

4.3.2. 

Criminalisation of the use of services of victims .......................................................... 59 

4.4. 

Financial support to address trafficking in human beings and implement legal obligations . 66 

5.  GATHERING OF STATISTICS ................................................................................................... 69 

5.1.  Data collection activities at EU and national level ................................................................ 69 

5.2.  Data collection exercise for the present report on trafficking in human beings and as per 

article 19 of the Anti-Trafficking Directive ........................................................................... 70 

5.2.1. 

Data on victims .............................................................................................................. 71 

5.2.2. 

Data on the criminal justice process .............................................................................. 72 

5.2.3. 

Assessment of the data for the years 2013-2014 ........................................................... 73 

5.2.4. 

Data Charts on victims of trafficking in human beings ................................................. 74 

ANNEX I – Referenced documents ...................................................................................................... 77 

ANNEX II – Statistical data 2013 – 2014: tables and information on metadata ........................... 86 

3 

 
 
 
 
 
 
 
1.  INTRODUCTION 

This paper complements the first European Commission Report on the progress made in the 
fight  against  trafficking  in  human  beings  as  required  under  article  20  of  Directive 
2011/36/EU1  (hereafter  "the  Report").  It  aims  to  provide  a  factual  overview  of  the  main 
current trends, actions, and statistical data on trafficking in human beings in the EU, as 
reported by Member States, civil society and international organisations.  

The  paper  elaborates  in  detail  on  the  measures  reported  by  the  Member  States  to  address 
trafficking in human beings, and additionally takes into consideration actions implemented by 
the European Commission and other relevant stakeholders in the context of the EU Strategy 
towards  the  eradication  of  trafficking  in  human  beings  2012-20162  (hereafter  "the  EU 
Strategy"). A key focus of the EU Strategy has, in fact, been on developing concrete actions 
to  support  the  implementation  of  the  Anti-trafficking  Directive  by  complementing  the 
work  done  by  the  Member  States.  The  EU  Strategy  actions  are  based  on  five  priorities: 
identifying,  protecting  and  assisting  victims  of  trafficking;  stepping  up  the  prevention  of 
trafficking in human beings; increased prosecutions of traffickers; enhanced coordination and 
cooperation  among  key  actors  and  policy  coherence;  and  increased  knowledge  of  –  and 
effective response to – emerging concerns related to all forms of trafficking in human beings3. 

The paper elaborates on the topics presented in the Report in selected areas of the ‘three Ps’, 
prosecution (with focus on financial investigations), protection (with focus on the setting up 
of  national  referral  mechanisms)  and  prevention  (with  focus  on  actions  taken  by  Member 
States to prevent the crime as provided by Article 18 of the Anti-trafficking Directive4).  

Furthermore,  the  paper  takes  into  account  the  key  EU  policy  framework  in  addressing 
trafficking in human beings, including: the European Agenda on Migration5; the European 
Agenda on Security6; the EU Action Plan against migrant smuggling 2015-20207; the Action 
Plan on Human Rights and Democracy 2015-20198; the new framework for the EU's activities 

1   COM(2016) 267 
2   http://eur-lex.europa.eu/legal-content/EN/ALL/?uri=CELEX:52012DC0286 
3   Details  on  the  progress  on  the  implementation  of  the  Strategy  can  be  found  in  the  Mid-term  report  on  the 
implementation  of  the  EU  strategy  towards  the  eradication  of  trafficking  in  human  beings,  COM(2014) 
635final 
http://ec.europa.eu/anti-trafficking/eu-policy/commission-staff-working-document-mid-term-
report-implementation-eu-strategy-towards_en   

4   Article 18 of the Anti-trafficking Directive provides "Member States shall take appropriate measures, such as 
education and training, to discourage and reduce the demand that fosters all forms of exploitation related to 
trafficking in human beings". 

at 

5  http://ec.europa.eu/dgs/home-affairs/what-we-do/policies/european-agenda-migration/background-

information/docs/communication_on_the_european_agenda_on_migration_en.pdf  

6   http://ec.europa.eu/dgs/home-affairs/e-library/documents/basic-

documents/docs/eu_agenda_on_security_en.pdf  

7  http://ec.europa.eu/dgs/home-affairs/e-

library/documents/policies/asylum/general/docs/eu_action_plan_against_migrant_smuggling_en.pdf  

8  https://ec.europa.eu/anti-

trafficking/sites/antitrafficking/files/joint_communication_on_human_rights_and_democracy_en.pdf  

4 

 
 
 
 
 
                                                            
on gender equality and women's empowerment in EU's external relations for 2016-20209 and 
the Strategic engagement of the EU for gender equality 2016-201910. 

The first section of this Staff Working Document describes the methodology and information 
sources  used  for  drafting  both  the Report  and this  document.  The  following  sections  mirror 
the structure of the Report by providing detailed and factual elements on: trends in trafficking 
in  human  beings; results  of  specific  anti-trafficking  actions;  and  statistical  data  provided  by 
the Member States.   

2.  METHODOLOGY AND INFORMATION SOURCES 

The  Report  and  this  accompanying  Staff  Working  Document  are  based  on  a  wide  range  of 
information and sources, which can be grouped in the following three categories: information 
gathered by the National Rapporteurs or equivalent mechanisms (hereafter the “NREMs”) and 
transmitted to the EU ATC by the Member States pursuant to Article 19 and 20 of the Anti-
Trafficking  Directive;  contributions  submitted  by  civil  society  organisations  participating  in 
the EU Civil Society Platform and the e-Platform against Trafficking in Human Beings; and 
information from relevant EU agencies, international and regional organisations.  

The narrative information submitted by the Member States following Article 20 of the Anti-
trafficking  Directive  mainly  covers  the  period  2011-2013.  Nevertheless,  the  Report  and  its 
accompanying  staff  working  document  also  include  more  up-to-date  information  that  was 
available to the European Commission at the time of drafting, as provided by Member States, 
civil  society  and  international  organisations.  In  particular,  a  specific  request  on  statistical 
data for the years 2013 and 2014 was sent out to the Member States, in order to ensure that 
the most recent information could be included in the Report and the Staff Working Document.  

The methodology and sources used to gather this information are detailed below. 

2.1. Member States and National Rapporteurs or Equivalent Mechanisms (NREMs) 

Article 19 of the Anti-trafficking Directive states that the tasks of the NREMs should at least 
include  "the  carrying  out  of  assessments  of  trends  in  trafficking  in  human  beings,  the 
measuring  of  results  of  anti-trafficking  actions,  including  gathering  of  statistics  in  close 
cooperation  with  relevant  civil  society  organisations  active  in  this  field,  and  reporting".  As 
indicated  above,  Member  States  are  obliged  to  transmit  this  information  to  the  ATC  on  the 
basis of which the ATC contributed to the current European Commission report. 

9   http://ec.europa.eu/europeaid/sites/devco/files/staff-working-document-gender-2016-2020-20150922_en.pdf  
10   http://ec.europa.eu/justice/gender-equality/files/documents/151203_strategic_engagement_en.pdf  

5 

 
 
 
 
 
 
 
 
 
                                                            
In order to facilitate the work of the Member States, the EU ATC agreed with the NREMs on 
a template for the reporting. Although not an obligation, the template intended to facilitate the 
reporting by the NREMs on the key areas to focus. The European Commission acknowledges 
the challenge of thoroughly evaluating the results of anti-trafficking actions implemented by 
Member States as this is the first Commission report on trafficking in human beings, issued 
after the adoption of the Anti-Trafficking Directive11.  

The information gathered by the NREMs and transmitted by the Member States is extensive 
and includes reporting on national trends and actions in the field of anti-trafficking. Further to 
this  comprehensive  information,  the  Report  and  this  Staff  Working  Document  present  an 
overall  assessment  of  the  situation  regarding  trafficking  in  human  beings  at  EU  level. 
National  examples  are  presented  throughout  this  paper  in  order  to  corroborate  common 
trends and findings. 

The  Informal  EU  Network  of  National  Rapporteurs  or  Equivalent  Mechanisms  on 
Trafficking in Human Beings was first established following Council Conclusions in June 
200912.  In  these  conclusions,  the  Council  confirmed  of  a  "need  for  the  EU  to  set  up  an 
architecture for its internal exchange of information on trafficking in human beings in order to 
enable  the  Member  States  and  other  relevant  bodies  and  institutions  to  participate  in  the 
development  of  targeted  measures,  which  take  into  account  the  human  rights  of  victims  of 
trafficking  in  human  beings".  In  accordance  with  the  Council  Conclusions,  each  Member 
State was invited to designate a National Rapporteur or equivalent mechanism to participate 
in the Network with the scope of activity that includes collection of information and advising 
on trafficking in human beings. 

Furthermore, the role of the NREMs is elaborated in the Anti-trafficking Directive: Recital 27 
clarifies  that  NREMS  should  be  established  in  the  way  that  Member  States  consider 
appropriate  "according  to  their  internal  organisation,  and  taking  into  account  the  need  for  a 
minimum  structure  with  identified  tasks".  Therefore,  NREMs  have  different  statuses  and 
structures;  in  particular,  some  Member  States  have  established  NREMs  which  are 
independent from the government, whereas the vast majority have NREMs which are part of 
the national administration. It is important to stress that neither the Council Conclusions nor 
the  Anti-trafficking  Directive  refer  to  the  concept  of  independence  for  the  National 
Rapporteurs  or  Equivalent  Mechanisms,  but  rather  describe  their  tasks  and  reporting 
obligations.  Those  represented  in  the  EU  NREMs  Network  are,  therefore,  National 
Rapporteurs  in  their  independent  capacity  as  defined  in  national  laws,  as  well  as  National 
Rapporteurs or equivalent mechanisms working for or representing the national authorities. A 

11   The deadline for transposition of the Anti-Trafficking Directive was 6 April 2013. 
12   Council  conclusions  on  establishing  an  informal  EU  Network  of  National  Rapporteurs  or  Equivalent 

Mechanisms on Trafficking in Human Beings, 4 June 2009 
https://ec.europa.eu/antitrafficking/sites/antitrafficking/files/council_conclusions_on_national_rapporteur_net
work_2009_en_1.pdf  

6 

 
 
 
 
 
 
                                                            
 
few Member States participate in the NREMs Network with both a national rapporteur and a 
national coordinator within the national administration.  

The  NREMs  are  responsible  for  monitoring  the  implementation  of  anti-trafficking  policy  at 
the national level, and play a crucial role in data collection on trafficking in human beings at 
both national and EU level. The European Commission, via the Office of the EU ATC, has 
worked actively to facilitate and strengthen the work of the EU NREMs Network, in order to 
allow  for  enhanced  information  sharing  and  exchange  of  best  practices  as  well  as  to  ensure 
best coordination of tasks at EU and national level.  

Currently,  the  successful  functioning  of  the  Network  is  ensured  with  biannual  meetings 
attended  by  all  EU  Member  States  and  all  independent  bodies  where  available.  The  EU 
Presidency  chairs  the  meetings  with  the  EU  ATC  on  behalf  of  the  European  Commission. 
This allows for working at both the operational and strategic level as well as at the monitoring 
level in an informed and coordinated way. 

2.2. EU Civil Society Platform against Trafficking in Human Beings 

The Report takes into consideration the contributions submitted by civil society organisations 
participating in the EU Civil Society Platform against trafficking in human beings13 (hereafter 
"the  Platform"  and  the  EU  Civil  Society  e-Platform14  (hereafter  "the  e-Platform").  These 
contributions were submitted as part of a process jointly agreed with the NREMs; in result 
of  making  available  on  the  e-Platform  the  reports  transmitted  by  the  Member  States,  they 
were  accessible  to  the  civil  society  participants  who,  consequently,  could  provide  feedback 
and  specific  contributions.  This  process  can  be  considered  a  successful  example  of 
implementation  of  the  Anti-Trafficking  Directive's  call  for  cooperation  with  the  civil 
society  organisations  that  can  play  an  essential  role  in  addressing  trafficking  in  human 
beings.15 Indeed, effective cooperation and inclusion of civil society in state structures and as 
equal partners is important in addressing trafficking in human beings. 

One of the key policy priorities identified in the EU Strategy has been to build up partnerships 
with  all  actors  working  against  trafficking  in  human  beings,  including  non-governmental 
organisations and civil society at large. To this aim, in May 2013, the European Commission 
launched the EU Civil Society Platform against trafficking in human beings. The Platform 
currently meets twice a year, bringing together approximately 100 civil society organisations 

13   All  information  related  to  the  EU  Civil  Society  Platform  including  a  list  of  participants  is  available  at  the 

dedicated European Commission website http://ec.europa.eu/anti-trafficking/ 

14  An  online  area  for  the  participants  of    the  EU  Civil  Society  e-Platform  against  THB  is  available  at  

http://ec.europa.eu/anti-trafficking/media-outreach-els/eu-civil-society-e-platform_en  

15   Recital 6 stipulates that "Member States should encourage and work closely with civil society organisations, 
including  recognised  and  active  non-governmental  organisations  in  this  field  working  with  trafficked 
persons,  in  particular  in  policy-  making  initiatives,  information  and  awareness-raising  campaigns,  research 
and  education  programmes  and  in  training,  as  well  as  in  monitoring  and  evaluating  the  impact  of  anti-
trafficking measures". 

7 

 
 
 
 
 
 
                                                            
working  in  the  field  of  anti-trafficking  in  the  Member  States  and  key  neighbouring  priority 
countries. 

In order to complement the work of the Platform, to enable the continuity of the discussions 
beyond  the  biannual  meetings  in  Brussels,  as  well  as  to  ensure  that  they  are  broadened  by 
including a higher number of organisations, the European Commission launched a  EU Civil 
Society  e-Platform  in  March  2014.  Through  this  e-platform,  the  Commission  facilitates 
further exchange of information and ideas and invites the participants to discuss future action 
fostering open, inclusive and diverse participation. 

2.3. EU agencies, international and regional organisations  

The  Report  further  includes  relevant  information  from  the  EU  Justice  and  Home  Affairs 
agencies,  international  and  regional  organisations  active  in  the  area  of  anti-trafficking,  and 
other  key  networks  and  stakeholders.  In  particular,  information  from  relevant  regional  and 
international organisations16 have been taken into account to the extent relevant, in order to 
ensure consistency with the work of these organisations, while at the same time respecting the 
different competences and frameworks.  

The report also takes into consideration the reports drafted by the Group of experts on action 
against  trafficking  in  human  beings  (GRETA),  monitoring  the  2005  Council  of  Europe 
Convention  on  Action  against  Trafficking  in  Human  Beings17,  in  line  with  recital  9  of  the 
Anti-Trafficking  Directive.  As  stated  in  this  recital  "Coordination  between  international 
organisations  with  competence  with  regard  to  action  against  trafficking  in  human  beings 
should be supported in order to avoid duplication of effort".  

Key documents referred to and used in the Report and staff working document are listed in 
Annex I.  

Joint statement by EU Justice and Home Affairs Agencies 

An  example  of  coordinated  EU  action  to  address  trafficking  in  human  beings  is  the  joint 
commitment  of  seven  EU  Justice  and  Home  Affairs  Agencies  (CEPOL,  EASO,  EIGE, 
FRONTEX,  EUROJUST,  EUROPOL,  FRA).  On  the  occasion  of  the  Fifth  EU  Anti-
trafficking  day  on  18  October  2011,  the  Heads  of  the  seven  agencies  signed  a  Joint 

16    Such  as  the  Council  of  Europe  (CoE),  the  Council  of  Baltic  Sea  States  (CBSS),  the  International  Labour 
Organisation  (ILO),  the  International  Organisation  for  Migration  (IOM),  the  Organization  for  Security  and 
Cooperation in Europe (OSCE), the United Nations High Commissioner for Refugees (UNHCR), the United 
Nations  Children's  Emergency  Fund  (UNICEF),  and  the  United  Nations  Office  on  Drugs  and  Crime 
(UNODC) 

17   https://www.coe.int/t/dghl/monitoring/trafficking/Docs/Convntn/CETS197_en.asp  

8 

 
 
 
 
 
 
 
 
 
                                                            
statement18 through which the agencies committed to address trafficking in human beings in a 
coordinated,  coherent  and  comprehensive  manner.  This  commitment  has  been  implemented 
through  the  development  by  the  Agencies  of  numerous  projects,  training,  studies  and 
handbooks in the field of anti-trafficking19. Furthermore, representatives of the Agencies hold 
regular joint meetings with the Office of the EU ATC in order to exchange information and 
agree on common priorities. 

18  Joint  statement  of  the  Heads of  the  EU  Justice  and Home  Affairs Agencies, 5th EU  Anti-Trafficking Day, 
2011, https://ec.europa.eu/anti-trafficking/sites/antitrafficking/files/joint_statement_final_18_oct_2011_1.pdf 
19   For a detailed report of the EU Justice and Home Affairs Agencies’ activities in the field of anti-trafficking 
following the joint statement, see the Mid-term report on the implementation of the EU Strategy towards the 
eradication 
http://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/commission_staff_working_document_-_mid-
term_report_on_the_implementation_of_the_eu_strategy_towards_the_eradication_of_trafficking_in_human
_beings.pdf 

trafficking 

beings, 

human 

of 

in 

9 

 
 
 
 
 
 
                                                            
3.  TRENDS AND CHALLENGES IN ADDRESSING TRAFFICKING IN 

HUMAN BEINGS IN THE EU 

3.1. Statistical data20 

Assessing  the  exact  scale  of  such  a  complex  and  criminal  phenomenon  as  trafficking  in 
human  beings  is  a  challenge  in  the  EU  and  globally.  In  recent  years,  the  European 
Commission, through Eurostat, has been collecting relevant statistics. The  Second Eurostat 
Working  Paper  on  Trafficking  in  Human  Beings21  was  published  in  its  final  version  in 
January  2015  and  includes  data  from  all  28  Member  States  plus  Iceland,  Norway, 
Montenegro,  Serbia,  Switzerland  and  Turkey  over  the  years  2010-2012  on  a  diverse  set  of 
indicators22.  Statistical  data  were  collected  on  the  number  of  victims  (disaggregated  by 
gender,  age  and  form  of  exploitation  as  well  as  data  on  victims'  citizenship  and  type  of 
assistance  and  protection  received).  It  also  includes  data  on  suspected,  prosecuted  and 
convicted traffickers. 

3.1.1.  Statistical data for 2010-2012 

Over  the  years  2010-2012,  in  total  there  were  30  146  registered  victims  of  trafficking 
(both identified and presumed) in the EU. Trafficking in human beings is recognised as a 
form of violence against women and girls. The majority of identified victims of trafficking 
are  female. The  vast majority of women are  identified in the  sex industry.  Women  are 
also the predominant victims of other forms of exploitation, such as trafficking for sham 
and  forced  marriages  and  domestic  servitude.  Following  the  Second  Eurostat  Working 
Paper  on  Trafficking  in  Human  Beings  covering  the  years  2010-2012,  80  %  of  registered 
victims  in  the  EU  during  this  period  were  women23.  Among  victims  for  which  information 
was available on form of exploitation, 69 % were trafficked for sexual exploitation; 95 % of 
all  registered  victims  of  sexual  exploitation  were  female,  and  14  %  children24;  19  %  were 

20   The  information  in  the  following  sections  includes  references  to  statistical  data  from  the  Eurostat  report 
2010-2012, statistical data sent to the EU ATC for the years 2013-2014, and qualitative information provided 
in the narrative in the templates submitted by the Member States for the years 2011-2013, as well as strategic 
intelligence collected by Europol. 

21  Eurostat,  Statistical  Working  Papers,  Trafficking  in  Human  Beings,  2015  Edition,  http://ec.europa.eu/anti-

trafficking/sites/antitrafficking/files/trafficking_in_human_beings_-_eurostat_-_2015_edition.pdf      

22   Not  all  Member  States  have  provided  comprehensive  data  on  all  indicators.  In  view  of  this,  and  the 
differences  between national  definitions  and  recording  systems,  figures  should be  interpreted  with  caution, 
and with careful consideration of the methodological notes provided. A higher number of reported cases do 
not necessarily mean that a country has more victims than another country. Nor is it necessarily an indication 
of a better identification or recording system. Sudden increases or decreases may merely reflect legislative 
modifications,  changes  in  statistical  procedures  and  counting  rules,  or  be  the  result  of  specific  law 
enforcement initiatives. 

23   For  the  22  Member  States  able  to  provide  data  disaggregated  by  gender  and  age  for  all  three  years  2010-

2012. 

24    Based on 22 Member States able to provide data on form of exploitation for all three years 2010-2012 as 

well as 16 Member States able to provide data on age and sexual exploitation for all three years. 

10 

 
 
 
 
                                                            
trafficked  for  the  purpose  of  labour  exploitation;  and  12  %  for  other  forms  of  exploitation. 
Over 1 000 children were registered as victims of trafficking for sexual exploitation.     

3.1.2.  Statistical data for 2013-2014 

Further  statistical  information  provided  by  Member  States  for  the  Report  and  covering  the 
period 2013-2014 supports the trends showed by the Second Eurostat Working Paper.25 

In total, there were 15 846 registered victims of trafficking in the EU during the years 
2013-2014. It is important to stress that these data refer to ‘registered victims’ (both identified 
and presumed)26. However, given the complexity of the phenomenon, there are solid grounds 
to expect that the actual numbers of victims of trafficking in the EU are indeed substantially 
higher. 

Trafficking  for  the  purpose  of  sexual  exploitation  is  still  the  most  widespread  form  of 
trafficking in human beings (67 % of registered victims)27, followed by labour exploitation 
(21  %  of  registered  victims).  The  other  12  %  were  registered  as  victims  of  other  forms  of 
trafficking, including exploitation for criminal activities, organ removal, forced begging and 
pick  pocketing,  sham  marriages,  domestic  servitude.  Trafficking  for  forced  or  petty 
criminality (such as property crime, forced begging, drug production and trafficking, benefit 
fraud) particularly affects children, according to information from Member States as well as 
from Europol.  

Over three-quarters of the registered victims were women (76 %), and at least 15 % of 
the registered victims were children28. 

Most of the registered victims are EU citizens: in both the Second Eurostat Working Paper on 
Trafficking  in  Human  Beings  from  2010-2012  and  the  data  for  2013-2014,  65  %  of 
registered victims are EU citizens.   

25   The data collection exercise for the progress report should be viewed as an interim and simplified collection 
in between the two existing Eurostat working papers on Trafficking in Human Beings, and the planned future 
official  collections.  For  more  detailed  information  on  the  data  collection  exercises  of  the  Commission,  in 
particular  regarding the methodology, definitions and interpretation of data, please refer to the most recent 
Eurostat  Statistical  Working  Paper  on  Trafficking  in  Human  Beings,  2015  edition.  For  details  and  tables 
please see Annex II on the data collection exercise. 

26    In  accordance  with  the  definition  in  the  anti-trafficking  Directive,  the  term  ‘identified  victim’  refers  to  a 
person  who  has  been  formally  identified  by  relevant  authorities  as  a  victim  of  trafficking.  The  term 
‘presumed victim’ is used for a victim of trafficking who has met the criteria of the EU Directive but has not 
formally been identified by the competent authorities as a victim, or has declined to be formally and legally 
identified  as  a  victim  of  trafficking.  Some  Member  States  have  included  both  categories  in  their  data 
collection, whereas others only include one of the two categories. 

27   This  is  also  confirmed  by  the  Europol  Situation  Report:  Trafficking  in  human  beings  in  the  EU,  February 

2016,https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/situational_report_trafficking_in_human_beings-_europol.pdf  

28   Based on the partial age-disaggregated data provided by the Member States. 

11 

 
 
 
 
 
 
                                                            
Over the period 2013-2014 the top five EU countries of citizenship for registered victims of 
trafficking  were  Romania,  Bulgaria,  Netherlands,  Hungary,  and  Poland.  These  are  the 
same countries as for the years 2010-2012.   

For  non-EU  citizens,  the  top  five  countries  with  the  highest  number  of  victims  were 
Nigeria,  China,  Albania,  Vietnam  and  Morocco  (in  2010-2012  the  top-5  countries  were 
Nigeria, Brazil, China, Vietnam and Russia). 

6 324 people had formal contact with the police or the criminal justice system29 in connection 
with the crime of trafficking in human beings.30 Victims and suspected traffickers generally 
share nationality, ethnic ties and sometimes kinship links31. Mobility and rotation of victims 
are key features within this criminal market. While most traffickers are male, female suspects 
are also involved in low-ranking tasks (Nigerian criminal networks form an exception where 
women play a central role in the exploitation process).  

The  most  common  means  through  which  people  become  victims  of  trafficking  –  both  for 
sexual and labour exploitation – is deception, typically by false promises of employment and 
good working conditions. Traffickers use newspaper ads, the internet, social media and new 
technologies as recruitment means.32 

Table 133 

Male 

Female 

  Sexual 

Labour 

Other 

EU 
nationals 

Non-EU 
nationals 

2010-12 

  20 % 

80 % 

  69 % 

19 % 

12 % 

  65 % 

35 % 

2013-14 

  24 % 

76 % 

  67 % 

21 % 

12 % 

  65 % 

35 % 

Compared on an annual basis, the total number of registered victims in the data for 2013-2014 
is lower than that recorded in the Eurostat working paper for 2010-2012 (8 034 in 2013 and 
7812 in 2014; as compared to 9 710 in 2010, 9 438 in 2011 and 10 998 in 2012). Although the 

29   May  include  persons  suspected,  arrested  or  cautioned  for  a  criminal  offence  at  the  national  level.  For 
definition please see the Eurostat Crime and Criminal Justice Metadata in Euro SDMX Metadata Structure 
(ESMS)   http://ec.europa.eu/eurostat/cache/metadata/en/crim_esms.htm 

30   Not all Member States have provided data on the criminal justice process. Furthermore, although the majority 
of  Member  States  refer  to  individual  people,  some  Member  States  refer  to  cases  or  offences  rather  than 
individual people.   

31   Europol Situation Report: Trafficking in human beings in the EU, February 2016,  https://ec.europa.eu/anti-

trafficking/sites/antitrafficking/files/situational_report_trafficking_in_human_beings-_europol.pdf  

32   Europol, 

Internet 

Organized 

Crime 

Threat 

Assessment, 

2014, 

https://www.europol.europa.eu/content/internet-organised-crime-threat-assesment-iocta     

33  Data may not be directly comparable between the two recording periods due to differences in geographical 
scope and sources of data.  However, the similarity between the two data sets does imply some consistency as 
regards the demographic characteristics of victims registered in the EU. 

12 

 
 
 
 
 
 
 
 
                                                            
data collection methods used for both periods were similar, it would not be advisable at this 
stage to compare the data, either between the two exercises or across individual years, due to 
possible  differences  in  recording  methods  and  legal  definitions.  For  this  reason,  the 
discrepancy in the annual totals, and in particular the reasons why fewer victims of trafficking 
were  registered, are issues  that need to  be explored and analysed  further. Nevertheless, it is 
clear  that  there  is  a  worrying  consistency  in  terms  of  victims'  countries  of  origin, 
countries  of  destination,  the  forms  of  exploitation,  and  the  age  and  gender  profile  of 
victims  over  the  five  years  2010-201434.  The  information  received  appears  also  consistent 
with the latest Europol Situation Report of 201635.  

This  consistency  indicates  the  need  to  step  up  efforts  in  investigating  the  crime, 
prosecuting  the  perpetrators  and  identifying  the  victims.  The  adoption  of  the  Anti-
trafficking Directive has created an important momentum in raising awareness on the scale of 
the phenomenon in the EU and the need to address it with a wide range of tools, from criminal 
law  to  prevention  measures.  The  European  Commission  takes  this  data  into  serious 
consideration and stands ready to support the Member States in order to effectively implement 
the Anti-Trafficking Directive and fully comply with its obligations. 

Portugal has established an Observatory on Trafficking in Human Beings (OTSH) which is to 
be  understood  as  a  monitoring  system  to  collect  quantitative  and  qualitative  data  from 
different entities with activities related to trafficking in human beings and to analyse data, and 
produce  knowledge  about  the  phenomenon.  These  activities  include  criminal  and  judicial 
related actions, as well as activities to support victim’s social reintegration. The OTSH has a 
network of more than 30 governmental and non-governmental bodies as primary data sources. 
As  secondary  data  sources,  the  OTSH  contacts  national  Liaisons  Officers,  IOM/Lisbon 
Office,  Europol  and  DGPJ/Ministry  of  Justice.  The  Monitoring  System  is  a  part  of  the 
national referral mechanism on trafficking in human beings in Portugal. The status given to 
registers  (as  far  as  ‘Identified’  or  ‘Not  a  victim  of  trafficking’)  is  given  by  the  competent 
authority.  The OTSH produces trimestral reports (classified) and an Annual Statistical Report 
that are validated by all data providers. 

3.2.  Trends in forms of exploitation 

As  specified  in  Article  2  of  the  Anti-trafficking  Directive  "exploitation  shall  include  as  a 
minimum  the  exploitation  of  prostitution  of  others  or  other  forms  of  sexual  exploitation, 
forced  labour  or  services,  including  begging,  slavery  or  practices  similar  to  slavery,  
servitude,  or  the  exploitation  of  criminal  activities,  or  the  removal  of  organs".  The  list  of 
different  forms  of  exploitation  included  in  the  Anti-trafficking  Directive  is  not 
exhaustive;  rather,  it  sets  a  minimum  standard  on  which  exploitation  forms  are  to  be 

34   Based  on  a  comparison  between  the  Eurostat  data  for  2010-2012  and  the  2013-2014  data  provided  by 

Member States for the Report, which is elaborated in Section 5. 

35   Europol Situation Report: Trafficking in human beings in the EU, February 2016,  https://ec.europa.eu/anti-

trafficking/sites/antitrafficking/files/situational_report_trafficking_in_human_beings-_europol.pdf 

13 

 
 
 
 
                                                            
covered by the Member States,  while  the definition also covers other  forms as  long as  they 
fulfil the constitutive elements of trafficking in human beings.   

3.2.1.  Trafficking for the purpose of sexual exploitation 

Based on the statistical data, as well as on the narrative information submitted by the Member 
States,  trafficking  in  human  beings  for  the  purpose  of  sexual  exploitation  is  still  by  far  the 
most  prevalent  form  of  trafficking  in  the  EU.  According  to  the  data  for  the  years  2013  and 
2014, there were 10 044 registered victims (67 % of total registered victims) for this form 
of  exploitation.  This  form  primarily  affects  women  and  girls,  even  though  a  few  Member 
States have reported an increase in the number of male victims.  The above-mentioned data 
are consistent with trends identified in both previous Eurostat statistical data collections, and 
with recent UNODC statistical data. This is further confirmed by the 2016 Europol Situation 
Report36.    

The nature of the phenomenon of trafficking in human beings for sexual exploitation renders 
this form of exploitation very complex to address. As reported by Member States (such as BE, 
IT and the NL), an increasing shift of traffickers from visible (e.g. street prostitution, window 
prostitution) to less visible forms (prostitution in hotels and in private homes) is noticed, as 
well  as  an  abuse  by  traffickers  of  the  ‘self-employed’  status.  This  is  also  in  line  with 
information in the European Commission's Study on the gender dimension of trafficking in 
human beings37, a deliverable of the EU Strategy, whereby, while bogus self-employment is 
illegal, there is little evidence that authorities are robustly enforcing such regulations.   

Although efforts are made by Member States law enforcement to tackle trafficking for sexual 
exploitation,  there  has  been  no  substantial  sign  of  a  decrease.  The  most  recent  information 
available by Europol38, as submitted by the Member States, indicates that Austria, Belgium, 
France,  Germany,  Greece,  Italy,  the  Netherlands,  Spain,  Switzerland,  and  the  United 
Kingdom are the most targeted countries by human traffickers, due to the high demand 
for  cheap  sexual  and  labour  services  in  these  countries.  Europol  further  notes  that  as  a 
result of the economic crisis, there is an increased demand for cheap labour services and for 
example,  in  countries  where  prostitution  is  legal  and  regulated,  it  is  possible  that  sex 
work  is  affected  by  the  demand  for  cheap  labour39.  Finally,  Europol  mentions  that  there 
are Member States in which prostitution is legal, making it much easier for traffickers 
who wish to use a legal environment in order to exploit their victims40.  

36   Europol Situation Report: Trafficking in human beings in the EU, February 2016,  https://ec.europa.eu/anti-

trafficking/sites/antitrafficking/files/situational_report_trafficking_in_human_beings-_europol.pdf 
37   https://ec.europa.eu/anti-trafficking/eu-policy/study-gender-dimension-trafficking-human-beings_en   
38   Europol Situation Report: Trafficking in human beings in the EU, February 2016,  https://ec.europa.eu/anti-

trafficking/sites/antitrafficking/files/situational_report_trafficking_in_human_beings-_europol.pdf    

39   Ibid. 
40   Ibid. 

14 

 
 
 
 
                                                            
There  appears  to  be  no  indication  that  despite  previous  or  current  efforts  at  international, 
European or national level, trafficking for sexual exploitation has effectively been addressed 
and that the phenomenon has decreased. Indeed, trafficking for sexual exploitation remains 
still very prevalent. 

Trafficking for sexual exploitation in Member States 

Belgium reports several examples of victims of trafficking forced into prostitution and sexual 
exploitation. One of these examples involves criminal organisations from Romania trafficking 
young  girls  into  different  EU  countries,  forcing  them  into  prostitution.  These  young  girls, 
starting from the age of 16, were seduced by so called "lover-boys" who, under the pretext of 
holiday jobs, lured them to Portugal where, after physical threats and violence, they were sold 
to the leader of a Romanian criminal group. The selling price for a girl ranged between 2 000 
and  5  000  euros.  From  Portugal  these  girls  were  forced  to  travel  elsewhere  in  Europe  and 
eventually to Belgium, where they were then forced into prostitution and sexually exploited. 
When they refused the exploitation or attempted to contact the police, they were intimidated 
and  beaten  and  their  families  in  Romania  were  threatened.  They  were  also  forced  to  accept 
unprotected  sex  because  a  higher  price  could  then  be  charged.  This  resulted  in  venereal 
disease  and  forced  abortions.  It  is  further  reported  that  the  traffickers  provided  the  child 
victims  with  false  identity  documents  so  that  they  could  allegedly  be  legally  employed  in  a 
bar. The income for the traffickers from the exploitation in prostitution amounted to 512 066 
EUR, and was transferred via money transfers in the name of other members of the criminal 
organisation to the family of one of the traffickers in Romania. This money was then invested 
in real estate in the names of the suspects, their parents or other family members. 

3.2.2.  Trafficking for the purpose of labour exploitation 

Trafficking  in  human  beings  for  the  purpose  of  labour  exploitation  is  reported  by  several 
Member States (such as MT, PL, PT) as an increasing phenomenon and others (such as DK, 
LT, SK) expect the problem to increase further in the future41.  Member States also report an 
increase in male victims for this form of trafficking, among others in the agricultural sector 
(EL, IT, PT).  Statistical data for 2013-2014 show that 74 % of victims registered for labour 
exploitation  were  men.  According  to  Member  States,  the  most  concerned  sectors  are 
agriculture and fisheries42, construction, the hospitality industry, manufacturing and domestic 

41   Based  on  qualitative  and  narrative  responses  of  the  Member  States  to  the  European  Commission 

questionnaire for the preparation of the Report. 

42   Trafficking in human beings has been identified as one of the main maritime security risks and threats in the 

EU Maritime security strategy, 

    http://register.consilium.europa.eu/doc/srv?l=EN&f=ST%2011205%202014%20INIT  

15 

 
 
 
 
 
                                                            
work43. Female victims are primarily exploited in domestic work. Victims are often lured 
by fake advertisements for work, also via online advertisements.  

Traffickers  exploit  loopholes  in  enforcement  or  control  of  legislation  on  work  permits, 
visas,  labour  rights  and  working  conditions.  Labour  exploitation  is  by  no  means  a  new 
phenomenon in the EU; however, it is reported that as a result of the economic crisis, there is 
an increased demand for cheap labour services and lack of awareness of the contractual 
obligations  and  working  conditions  of  the  employees44.    This  is  a  situation  which  is 
exploited by the organised criminal groups. People are being exploited in the labour market 
and trafficked into, as well as within, the EU to supply unpaid or very low-paid work, living 
and working in conditions that do not respect their human dignity.  

Trafficking for labour exploitation in the construction sector in the Member States 

Belgium reports several cases involving Polish victims in the construction sector. The victims 
were Polish workers who were required to carry out renovation work under a bogus status of 
independent contractors, without understanding what this entails. Moreover, they were housed 
in  deplorable  conditions.  Their  wages  were  far  below  the  officially  indexed  rates,  and  they 
were paid irregularly or not at all.  

The European Commission is keen to increase knowledge for all forms of exploitation. In this 
context, the EU Strategy has placed special focus on trafficking in human beings for the 
purpose  of  labour  exploitation,  supporting  and  funding  a  wide  range  of  projects.  The 
Strategy  envisaged  a  Study  on  case  law  on  trafficking  for  the  purpose  of  labour 
exploitation  in  all  Member  States45,  which  was  released  on  the  occasion  of  the  Ninth  EU 
Anti-Trafficking Day in 2015. Furthermore, the European Commission, based on cooperation 
with the European Foundation for the Improvement of Living and Working Conditions 
(Eurofound), is developing 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  for  the  purpose  of  labour 
exploitation.  Enhanced  cooperation  with  labour  inspectors  is  another  priority  of  the  EU 
Strategy. The European Commission is also considering how to best ensure the involvement 
of the private sector in order to ensure maximum impact while not duplicating initiatives by 
other stakeholders. 

43   In  this  framework,  the  Seasonal  Workers  Directive  (2014/36/EU)  sets  the  conditions  of  entry  and  stay  of 
third-country  nationals  for  the  purpose  of  employment  as  seasonal  workers.  The  Directive  rules  governing 
working conditions aim to prevent exploitation and protect the health and safety of non-EU seasonal workers. 
The Directive must be transposed by the Member States by September 2016. 

44   Europol, 

Serious 

and  Organised  Crime  Threat  Assessment  Executive  Report, 

2013, 

https://www.europol.europa.eu/content/eu-serious-and-organised-crime-threat-assessment-socta    

45   Available at http://ec.europa.eu/anti-trafficking/node/4923  

16 

 
 
 
 
                                                            
A form of labour exploitation particularly challenging to detect is that of domestic servitude, 
which affects primarily women and girls. As it occurs in private households, the victims are 
often isolated, with limited or no opportunities to report or escape the exploitation. 

Trafficking for domestic servitude in diplomatic households in the Member States 

Trafficking for domestic servitude in diplomatic households has been reported as one of the 
emerging  trends  globally,  and  it  has  been  addressed  by  a  Handbook46  published  by  OSCE 
(Organization for Security and Co-operation in Europe) in 2014. This Handbook for Protocol 

Officers  serves  to  raise  awareness  and  inform  the  relevant  authorities  about  how  to  prevent 

trafficking  in  human  beings  for  domestic  servitude  in  diplomatic  households,  how  to  detect 

abuses and how to react to exploitative situations while protecting the rights of the domestic 

worker.  The handbook  was funded  by Austria,  the Netherlands, Switzerland and  the United 

States. 

The  Anti-trafficking  Directive  covers  trafficking  in  human  beings  for  the  purpose  of  labour 
exploitation and specifically mentions trafficking in human beings for the purpose of forced 
labour or services, forced begging, slavery or practices similar to slavery and servitude.  This 
is  a  non-exhaustive  list  of  exploitation  forms  and  other  exploitation  forms  can  be 
covered. 

3.2.3.  Trafficking for other forms of exploitation  

According  to  statistical  data  for  2013-2014,  other  forms  of  exploitation  registered  and 
reported by the Member States correspond to 12 % of the total number of victims. 

Examples of other  forms  of exploitation reported by Member States are  trafficking for the 
purpose of forced begging, criminal activity, forced marriage, sham marriage, or organ 
removal, trafficking of infants and young children for adoption, trafficking in pregnant 
women  to  sell  their  new  born  babies,  trafficking  for  the  production  of  cannabis  and 
trafficking  for  the  purpose  of  drug  smuggling  or  the  selling  of  drugs.  Some  Member 
States include in their data collection on "other forms of exploitation" also trafficking for the 
purpose of domestic servitude and trafficking for seasonal berry picking, which in most 
cases  as  well  as  according  to  the  definition  would  fall  under  trafficking  for  the  purpose  of 
labour exploitation. 

Member  States  also  report  cases  in  which  people  fall  victims  of  multiple  forms  of 
exploitation, for example where they are trafficked for both labour and sexual exploitation, or 
trafficked for labour exploitation and also forced to engage in criminal activities.        

46   OSCE,  How  to  prevent  human  trafficking  for  domestic  servitude  in  diplomatic  households  and  protect 

private domestic workers, 2014, http://www.osce.org/handbook/domesticservitude?download=true   

17 

 
 
 
 
 
                                                            
The narrative reporting from the Member States (such as BG, CY, FI, LT, LV, LX, SE, SK) 
suggests that exploitation of persons with physical, mental and developmental disabilities 
is  on  the  rise.  Traffickers  are  exploiting  the  vulnerabilities  of  these  people  for  different 
purposes including for sexual exploitation, forced or sham marriages, forced begging, forced 
criminality.  For  example,  some  Member  States  (such  as  SE,  SI)  report  an  increase  in 
trafficking for the purpose of forced begging, involving both children and adults, mostly of 
Roma origin. Some  Member  states report that victims of trafficking  are also  being  used  as 
drug  mules  (EE,  LT)  and  exploited  in  cannabis  cultivation  (DK,  UK)  or  used  to  commit 
benefit  fraud  (UK).  Other  Members  States  report  an  increasing  trend  in  pregnant  women 
being recruited and forced to sell their new-born babies (BG, HU).  

The European Commission has provided co-financing for several projects targeting many 
of  these  forms  of  exploitation,  such  as  trafficking  in  human  beings  for  forced  criminality, 
organ removal, and forced begging. Information on all projects is available on the EU Anti-
Trafficking website47. 

3.2.4.  Forced marriages and sham marriages 

As one of the "other forms of exploitation", some Member States (such as BE, EE, LV, and 
SK) have reported forced marriages and sham marriages48 amongst the new emerging trends 
in  trafficking  in  human  beings  during  the  reporting  period.  In  particular,  sham  marriages 
present an issue of serious concern for Latvia, and were included as one of the main priorities 
for  discussion  during  the  Latvian  Presidency  of  the  EU  in  201549,  reporting  that  a 
considerable  number  of  registered  victims  of  trafficking  in  human  beings  from  Latvia  were 
forced into sham marriages in Ireland with third-country nationals.  

Law Enforcement information on trafficking for the purpose of sham marriages 

According  to  Europol50,  victims  of  trafficking  for  the  purpose  of  sham  marriages  are 
predominantly  female  EU  citizens  mostly  originating  from  the  Czech  Republic,  Hungary, 
Latvia, Poland, Romania, and Slovakia, who are trafficked to western and northern Member 
States  and  forced  to  marry  Asian  men,  typically  Pakistanis  and  Indians,  to  enable  them  to 
obtain residence benefits and legal stay in the EU. The women targeted are often in vulnerable 
positions  due  to  their  economic  and  social  conditions,  including  disabilities;  in  some  cases, 

47   http://ec.europa.eu/anti-trafficking/eu-projects/  
48   Please  note  that  Member  States  use  the  terminologies  in  different  ways  but  often  to  indicate  similar 
phenomena, especially as regards sham marriages and marriages of convenience. For definitions used under 
EU law on free movement of EU citizens, please refer to the Handbook on addressing the issue of alleged 
marriages  of  convenience  between  EU  citizens  and  non-EU  nationals  in  the  context  of  EU  law  on  free 
movement of EU citizens, SWD(2014) 284  http://ec.europa.eu/justice/citizen/files/swd_2014_284_en.pdf  
49   Meeting  of  the  EU  Network  of  National  Rapporteurs  or  Equivalent  Mechanisms  on  trafficking  in  human 

beings during the Latvian Presidency on 9-10 June 2015, 
http://www.iem.gov.lv/eng/latest_news/?doc=30277  

50   Europol,  Marriages  of  Convenience:  A  link  between  facilitation  of  illegal  immigration  and  THB,  Early 
Warning  Notification  2014/08,  2014.  https://www.europol.europa.eu/content/marriages-convenience-link-
between-facilitation-illegal-immigration-and-thb  

18 

 
 
 
 
                                                            
 
they  are  kidnapped  and  brought  to  the  country  of  destination  against  their  will,  while  the 
traffickers retain their documents and hold them captive. The victims are also often sexually 
abused by their husbands or otherwise sexually exploited. It is currently unclear whether these 
brokers belong to networks involved in trafficking in human beings or act as service providers 
to organised criminal groups facilitating irregular migration.  The European Commission has 
issued a Handbook on addressing the issue of alleged marriages of convenience between 
EU  citizens  and  non-EU  nationals  to  address  this  issue  in  the  context  of  EU  law  on  free 
movement of EU citizens51. 

Europol indicates that it is possible to expect that the current migration and refugee crisis 
will  result  in  more  forced  marriages  due  to  the  increased  attempts  by  migrants  and 
asylum- applicants to gain legitimate residency52. 

Member States in the EU Network of NREMs53 have indicated that the lack of legislation on 
sham marriages, and whether or not to consider them as a form of exploitation for trafficking 
in human beings, is a major challenge to adequately address this trend. In this regard, it has to 
be  recalled  that  the  forms  of  exploitation  listed  in  Article  2(3)  of  the  Anti-trafficking 
Directive are not exhaustive and that other forms can be covered. Member States that do 
not  cover  explicitly  sham  marriages  in  their  national  legislation  on  trafficking  in  human 
beings  could  apply  other  relevant  definitions  of  exploitations  that  may  be  relevant  in  the 
situation  of  sham  marriages,  such  as  sexual  exploitation  or  domestic  servitude,  in  order  to 
properly address those cases. 

3.3.  Trends in child trafficking 

Child  trafficking  is  reported  by  Member  States  as  one  of  the  trends  that  is  increasing  most 
sharply in the EU.  The statistical data for the years 2013-2014 show that, out of the 15 846 
registered  victims  of  trafficking  in  the  EU  during  this  time  period,  at  least  2  375  were 
children54. 

Children  are  one  of  the  most  vulnerable  groups  targeted  by  traffickers.  Although  child 
trafficking is prevalent in situations unrelated to migration, such as within a Member State or 
intra-EU, the information received suggests that the phenomenon has been exacerbated by the 
ongoing migration and refugee crisis, with specific risks involved for unaccompanied children 
(see the following section 3.4).  

51   Handbook  on  addressing  the  issue  of  alleged  marriages  of  convenience  between  EU  citizens  and  non-EU 
free  movement  of  EU  citizens,  SWD(2014)  284  

law  on 

nationals 
http://ec.europa.eu/justice/citizen/files/swd_2014_284_en.pdf  

the  context  of  EU 

in 

52   Europol Situation Report: Trafficking in human beings in the EU, February 2016, https://ec.europa.eu/anti-

trafficking/sites/antitrafficking/files/situational_report_trafficking_in_human_beings-_europol.pdf 

53   NREMs Meeting of 9-10 June 2015  
54   Age information was only available for 13 841 of the 15 846 registered victims. Therefore the actual figure 

may be higher. 

19 

 
 
 
 
                                                            
Identifying children who are victims of trafficking and establishing their true identity remains 
a challenge. Organised crime groups choose to traffick children as they are easy to recruit and 
quick to replace; they can also keep under their control child victims relatively cheaply and 
discreetly55  –  children  are  generally  less  visible  than  adults  and  may  be  housed  in  secluded 
areas,  out  of  sight.  For  trafficked  children  between  the  ages  of  6  months  and  10  years, 
criminal networks can pay between EUR 4 000 and EUR 8000 (in some cases, up to EUR 40 
000).  

Trafficking  networks  target  socially  and  economically  disadvantaged  families  and  push 
families  into  debt  which  they  cannot  repay.  In  this  context,  children  are  taken  away  from 
parents as a form of debt repayment56. In some cases, the victim’s family plays an active role: 
children  are  sold  or  traded  to  strangers  or  to  other  relatives,  who  take  charge  of  their 
exploitation across the EU, channelling them into sexual abuse, begging or delinquency, while 
often  depriving  them  of  material  welfare  such  as  adequate  nutrition  or  using  psychological 
coercion57.  An  increase  of  children  trafficked  for  forced  criminality  is  reported  by  a 
number  of  Member  States  (such  as  DK,  LT,  SE,  SK).  While  illegal  adoption  does  not 
necessarily  constitute  trafficking  in  human  beings,  in  a  number  of  cases  illegally  adopted 
children are victims of trafficking58. 

Civil society representatives also highlight links between trafficking and institutionalisation 
of  children,  which  manifests 
in 
institutional/residential  care  are  at  high  risk  of  becoming  victims  of  trafficking,  including 
when they go missing; secondly, often when child victims are recovered from traffickers they 
are placed (back) in institutions by the  responsible authorities, thus creating a vicious circle 
for trafficked children and additional risks to their peers in institutions. 

firstly,  children  placed 

two  ways: 

itself 

in 

As reported by Europol59, children from Roma communities are particularly vulnerable; 
destination  countries  for  child  victims  from  these  communities  are  mainly  the  United 
Kingdom  and  France,  where  they  are  subjected  to  sexual  exploitation,  labour  exploitation, 
forced  begging,  petty  crimes,  and  to  a  lesser  extent  to  systematically  defrauding  the  social 
security and welfare benefit systems. 

55   Europol,  Intelligence  Notification,  Child  trafficking  for  exploitation  in  forced  criminal  activities,  2014, 

https://www.europol.europa.eu/content/fighting-child-trafficking-main-priority-eu-law-enforcement  

56   Ibid. 
57   Europol Situation Report: Trafficking in human beings in the EU, February 2016,  https://ec.europa.eu/anti-

trafficking/sites/antitrafficking/files/situational_report_trafficking_in_human_beings-_europol.pdf  

58   Europol,  Intelligence  Notification,  Child  trafficking  for  exploitation  in  forced  criminal  activities,  2014, 

https://www.europol.europa.eu/content/fighting-child-trafficking-main-priority-eu-law-enforcement 

59   Ibid. 

20 

 
 
 
 
 
 
 
                                                            
Children from Roma communities 

According  to  the  European  Commission's  Study  on  high-risk  groups  for  trafficking  in 
human beings60, a deliverable of the EU Strategy, traffickers allow children to stay overnight 
in  shelters, while  at  day  time  they  continue  being  forced  to  pick-pocketing  or  begging.  The 
Study  mentions  that  according  to  national  research,  an  increased  prevalence  of  child 
marriages  is  noted,  while  victims  and  perpetrators  are  predominantly  from  some  groups 
within the Roma community. The upward trend is assumed to be related with the increasingly 
difficult economic situation of Roma communities, exacerbated by the economic crisis.  

With  regards  to  the  trafficking  of  Roma  children,  the  study  identifies  several  specific 
enabling  factors  contributing to  trafficking:  hesitation  by  public authorities in  taking  action, 
due to insufficient knowledge and understanding of the social norms and culture of the Roma 
community,  due to the fear of resulting in discriminatory practices as well as due to a lack of 
adherence  to  child  protection  measures  and  rules;  lack  of  adequate,  effective  and  timely 
intervention of responsible institutions in cases of child marriages and child begging, which 
may  erroneously  consider this  as  cultural  practice,  without  due regard to  the  child's  right to 
protection from all forms of violence in line with the UN Convention on the rights of the child 
and national laws already in place, and somehow acceptable for Roma families (such as HR, 
SI);  lack  of  political  will  to  address  the  marginalisation  and  structural  exclusion  of  Roma 
communities.  

Particularly  in  the  context  of  victims  from  Roma  communities,  it  is  worth  recalling  the 
Council  Recommendations  on  effective  Roma  integration  measures  in  the  Member 
States61:  Combat  all  forms  of  discrimination,  including  multiple  discrimination,  faced  by 
Roma children and women, and fight violence, including domestic violence, against women 
and girls, trafficking in human beings, underage and forced marriages, and begging involving 
children,  in  particular  through  the  enforcement  of  legislation.  To  this  end,  Member  States 
should  ensure  the  involvement  in  this  exercise  of  all  relevant  actors  including  public 
authorities,  civil  society  and  Roma  communities.  In  this  context,  cooperation  between 
Member States is encouraged in situations with a cross-border dimension. 

Child  victims  are  at  high  risk  of  undergoing  secondary  victimisation  by  being  considered 
perpetrators of petty crime rather than as victims of trafficking. Child victims are also at risk 
of being re‐trafficked after their release from the authorities62. 

Finally, civil society and service providers report that many of the victims claim to be older 
than their actual ages, as instructed by the traffickers.  

60   Study  on  High-risk  Groups  for  Trafficking  in  Human  Beings,  https://ec.europa.eu/anti-trafficking/eu-

policy/study-high-risk-groups-trafficking-human-beings_en  

61   http://www.consilium.europa.eu/uedocs/cms_data/docs/pressdata/en/lsa/139979.pdf  
62  Europol,  Intelligence  Notification,  Child  trafficking  for  exploitation  in  forced  criminal  activities,  2014, 

https://www.europol.europa.eu/content/fighting-child-trafficking-main-priority-eu-law-enforcement  

21 

 
 
 
 
                                                            
The Anti-trafficking Directive sets out a number of provisions based on the principle of the 
best interests  of  the  child,  which  requires  that Member  States  take into  account  the  specific 
needs of child victims of trafficking. The EU Strategy recognises that comprehensive child-
sensitive  protection  systems,  ensuring  interagency  and  multidisciplinary  coordination,  are 
crucial in catering to the needs of child victims of trafficking. In line with the EU Strategy, in 
June  2014,  FRA  and  the  European  Commission  published  "Guardianship  for  children 
deprived  of  parental  care:  A  handbook  to  reinforce  guardianship  systems  to  cater  for 
the  specific  needs  of  child  victims  of  trafficking"63.    This  handbook  is  designed  to  help 
standardise guardianship practice, ensuring also that responsible national authorities are better 
equipped to deal with the specific needs of child victims of trafficking.  

The  EU  Agenda  for  the  rights  of  the  child  (2011–2014)64,  notes  that  the  well-being  of 
children can only be achieved in a society which is free of violence, abuse and exploitation of 
children, and stressed that the specific needs of children are taken into account in developing 
trafficking  policy.  In  the  context  of  its  work  on  violence  against  children,  the  Commission 
organised the seventh (2012), eight (2013), and ninth (2015) edition of the European Forum 
on  the  rights  of  the  child  on  the  subject  of  integrated  child  protection  systems65.  The 
overarching  goal  of  a  national  child  protection  system  is  to  protect  children  from  violence, 
including  trafficking.  The  Commission  promotes  integrated  child  protection  systems, 
where components and services are multi-disciplinary, cross-sectorial and inter-agency, where 
children  are  placed  at  the  centre.  At  the  most  recent  Forum  in  June  2015,  the  Commission 
proposed  10  Principles  for  integrated  child  protection  system.66  The  10  Principles  for 
integrated  child  protection  systems  derived  from  the  EU  Strategy,  and  are  grounded  in 
international  standards  on  the  rights  of  the  child.    They  summarise  how  a  rights-based 
approach can be used.  The Commission seeks to apply these principles in funding priorities 
to  build  the  capacity  of  duty-bearers  to  respect  the  rights  of  the  child  and  the  capacity  of 
children as rights-holders to claim their rights.  

The Commission continues to fund projects to protect children from violence67, including 
child  victims  of  trafficking  under  several  programmes,  with  a  focus  on  achieving  more 
sustainable system improvements. 

Furthermore, child trafficking has been identified as one of the priorities under the European 
Multidisciplinary  Platform  against  Criminal  Threats  on  Trafficking  in  Human  Beings 

63   http://ec.europa.eu/anti-trafficking/node/4085  
64   http://eur-lex.europa.eu/legal-content/en/ALL/?uri=CELEX:52011DC0060  
65   http://ec.europa.eu/justice/fundamental-rights/rights-child/european-forum/ninth-meeting/index_en.htm  
66   http://ec.europa.eu/justice/fundamental-rights/files/2015_forum_roc_background_en.pdf  
67   Overview of EU funding mechanisms in the area of child protection: http://ec.europa.eu/justice/fundamental-
rights/files/roc_funding_mechanisms_2014.pdf  .  See  recent  calls  targeting  the  protection  of  children: 
http://ec.europa.eu/justice/grants1/open-calls/index_en.htm;  Compilation  of  recently-funded  rights  of  the 
child 
http://ec.europa.eu/justice/fundamental-
rights/files/rights_child/compilation_previously_funded_projects_rights_of_the_child_and_violence_against
_children.pdf  

projects: 

violence 

children 

against 

and 

22 

 
 
 
 
                                                            
 
(hereafter EMPACT THB)68. To this end, more operational focus is currently being placed 
on  child  trafficking  and  the  European  Commission  is  supporting  Europol  and  law 
enforcement authorities, as well as other EU agencies in their efforts. This is consistent with 
the  European  Commission  priorities.  The  European  Commission  further  engages  with  the 
civil  society  and  child  rights  organisations,  within  the  context  of  the  EU  Civil  Society 
Platform  against  trafficking  in  human  beings  where  a  sub-group  on  child  trafficking  has 
discussed relevant concerns in a number of meetings. 

Study on High Risk Groups for trafficking in Human Beings 

it  recommends  reinforcing 

The  European  Commission's  Study  of  High  Risk  Groups  for  trafficking  in  human  beings 
includes recommendations related to structural and institutional factors and to provision of 
targeted training for all professionals likely to come in contact with children at risk, stressing 
the need for clear guidelines aimed at implementing a child centred and victim centred 
approach.  Moreover, 
inter-institutional  cooperation  and 
promoting integrated child protection systems. The Study further recommends that in order to 
promote  a  cultural  change  in  societal  attitudes  towards  violence,  exploitation  and 
discrimination against children and women, as well as trafficking specifically, it is useful to 
invest in tailored and non-sensationalist awareness raising actions. These should also be based 
on  a  better  understanding  of  the  demand  side  factors  that  sustain  and  foster  child 
trafficking,  and  accompanied  by  legislative  frameworks  supporting  this  normative 
change.  Recommendations  related  to  socioeconomic  factors  revolve  around  the  need  to 
provide  support  to  marginalised  communities  through  programmes  ensuring  their  economic 
and social inclusion. As social attitudes towards violence and child labour play a role, there is 
a need to promote a culture of zero tolerance, at a local level, of violence against women and 
children,  as  well  as  of  child  labour  exploitation.  It  is  also  important  that  the  socioeconomic 
wellbeing of children is ensured more broadly by providing them with access to adequate 
resources,  quality  education  and  health  services,  decent  housing  and  a  safe  environment  in 
which to develop.  

3.4.  Trends in trafficking in human beings and organised crime 

Addressing trafficking in human beings necessarily involves addressing also other forms of 
criminal  offences  which are interlinked with  it, such  as  money laundering, financial crime, 
corruption,  property  crimes,  document  fraud,  cybercrime,  smuggling  of  migrants,  terrorism 
related crimes, child sexual exploitation and forced labour. These links often result in cases of 
trafficking in human beings not investigated or recorded as such69. The continuously evolving 

68   Council  Conclusions  on  the  creation  and  implementation  of  an  EU  policy  cycle  for  organised  and  serious 

international crime, 8 and 9 November 2010,  

   http://www.consilium.europa.eu/uedocs/cms_data/docs/pressdata/en/jha/117583.pdf  

69  See  Europol  Situation  Report:  Trafficking 

in  human  beings 

in 

the  EU,  February  2016, 

https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/situational_report_trafficking_in_human_beings-_europol.pdf 

23 

 
 
 
 
                                                            
 
forms of trafficking in human beings and the ability of traffickers to adapt to new situations 
make this crime even harder to address. 

As  a  serious  form  of  organised  crime  and  a  security  threat,  trafficking  in  human  beings 
necessitates a coordinated and specific response at EU level. For this reason, trafficking in 
human  beings  is  amongst  the  serious  and  organised  crimes  addressed  by  the  European 
Agenda on Security70 and by the EMPACT THB, within the framework of the EU Policy 
Cycle for organised and serious international crime71.  

Trafficking  in  human  beings  is  usually  linked  to  organised  crime,  although  there  are  some 
cases where a small number of victims are exploited locally, and where individual criminals 
act with limited organisation. The latest Situation Report on trafficking in human beings by 
Europol72  explains  that  often  the  criminal  organisations  involved  are  characterised  by 
loose,  flexible  and  quickly  adaptable  networks  linked  by  kinship  or  ethnicity  with 
interchangeable roles amongst members, and with a presence in a number of countries. These 
networks  rotate  the  victims  through  different  countries.  Europol  further  highlights  that  the 
loose structure and modus operandi of the networks renders their detection a very challenging 
task for law enforcement authorities.  

Europol's  Serious  and  Organised  Crime  Threat  Assessment  highlights  that,  given  the  'low 
risk/high  profit'  nature  of  trafficking  in  human  beings,  organised  criminal  groups  are 
extremely  flexible  and  quickly  adapting  to  changes  in  legislation  and  law  enforcement 
tactics73, as well as making use of new technologies. Further, Europol's Internet Organized 
Crime Threat Assessment elaborates that traditional organised crime groups are beginning to 
use the service-based nature of the cybercrime market to carry out more sophisticated crimes, 

70  http://ec.europa.eu/dgs/home-affairs/e-library/documents/basic-

documents/docs/eu_agenda_on_security_en.pdf  

71   Council  Conclusions  on  the  creation  and  implementation  of  an  EU  policy  cycle  for  organised  and  serious 

international crime, 25 October 2010, 
http://register.consilium.europa.eu/doc/srv?l=EN&f=ST%2015358%202010%20INIT.  In  June  2013,  the 
Council  adopted  conclusions  identifying  the  nine  priority  areas  of  the  EU  Serious  and  Organised  Crime 
Policy  Cycle  starting  in  2014,  which  include  trafficking  in  human  beings.  The  Standing  Committee  on 
Operational Cooperation on Internal Security (COSI) has a mandate to facilitate, promote and strengthen the 
coordination of Member States’ operations in the field of internal security, with support from Europol, and to 
adopt annual operational action plans (OAPs) on each priority area identified by the Council. The OAP for 
2015  focuses  on  issues  such  as  intelligence  gathering,  the  use  of  financial  investigations,  the  use  of  the 
internet and new technologies, child trafficking, joint investigation teams and cooperation with EU agencies 
and bodies and other stakeholders. The OAP on trafficking in human beings is implemented by the EMPACT 
Group, which meets regularly on Europol’s premises. The European Commission participates in the meetings 
and contributes to discussions where appropriate. 

72   Europol Situation Report: Trafficking in human beings in the EU, February 2016,  https://ec.europa.eu/anti-

trafficking/sites/antitrafficking/files/situational_report_trafficking_in_human_beings-_europol.pdf  

73   Europol, Serious and Organised Crime Threat Assessment, 2013, https://www.europol.europa.eu/content/eu-

serious-and-organised-crime-threat-assessment-socta     

24 

 
 
 
 
                                                            
 
and  buying  access  to  the  technical  skills  they  require74.  Criminal  profits  are  primarily  sent 
back to their country of origin.  

Member  States  report  that  trafficking  in  human  beings  is  often  linked  to  other  forms  of 
crime,  such  as  falsification  of  documents,  drug  trafficking,  cybercrime,  child 
pornography,  migrant  smuggling  and  benefit  fraud.  Also,  as  related  activities,  Member 
States  mention  money-laundering,  or  the  means  for  implementing  that,  such  as  by 
falsifications, lesions or threats. 

Modus Operandi in Member States 

Greece reports that although most cases involve male perpetrators, an alarming new trend is 
the significant number of women recruiters. Usually, female traffickers are initially recruited 
as victims, and in the process they are granted certain concessions and benefits, in return for 
their collaboration in recruiting new victims, controlling, or mentoring new victims. 

Italy reports that in the last years there has been a change in the organisation of the criminal 
networks  involved  in  trafficking  in  human  beings,  as  well  as  in  their  recruitment  and 
exploitation  methods,  with  the  following  trends:  a  shift  from  poorly-organised  to  extremely 
well-organised  groups  with  established  links  in  the  destination  countries;  a  shift  from 
particularly violent forms of coercion to the use of more subtle strategies based on fraud and 
deception; the involvement of some victims in the exploitation of other victims; an increased 
capacity to link the trafficking activities to other illegal activities such as migrant smuggling, 
trafficking of drugs and firearms, as well as to legal activities, such as money laundering in 
legal businesses. The heads of these foreign organised criminal groups (mostly from Nigeria, 
Romania,  Albania  and  Kosovo)  do  not  live  and  operate  in  Italy;  therefore  most  of  the 
traffickers  who  are  apprehended  and  prosecuted  are  only  the  ones  at  the  bottom  of  the 
criminal  networks'  chain  (such  as  owners  or  managers  of  public  places  where  victims  are 
exploited, or transport operators), while the heads are more difficult to identify. 

Spain  reports  that  the  modus  operandi  developed  by  trafficking  groups  is  constantly 
developed  around  three  processes:  capture  of  the  victims  in  countries  of  origins  via 
advertisements  in  newspapers,  travel  agencies,  employment  agencies,  the  most  used 
procedure being deceit in the form of legitimate job offers for the most part associated with 
the hospitality sector and domestic service; transfer by land, air and sea along pre-set routes 
usually  accompanied  by  a  member  of  the  criminal  group  (the  necessary  documentation  is 
facilitated to the victims, in some cases falsified: passports, visas, hotel reservations, letters of 
invitation generally for periods of stay as tourists or to study); and exploitation in the country 
of destination, where the victims are finally informed of the true nature of the activity they are 
to  engage  in  and  when  threat,  aggression  or  coercion  are  used  to  force  them  to  sexual 
exploitation or other forms of exploitation.  

74   Europol, 

Internet 

Organized 

Crime 

Threat 

Assessment, 

2014, 

https://www.europol.europa.eu/content/internet-organised-crime-threat-assesment-iocta     

25 

 
 
 
 
                                                            
3.5.  Trafficking trends in the context of migration and asylum 

In  the  context  of  the  current  migration  and  refugee  crisis,  criminal  networks  seem  to  adapt 
their  routes  and  take  advantage  of  people’s  migration  projects,  their  fleeing  from  conflicts, 
and exploit their vulnerability, including in transit and in destination countries.  

Key Differences between trafficking in human beings and migrant smuggling 

It is important to highlight the differences between trafficking in human beings and smuggling 
of  migrants,  which  are  two  different  concepts  covered  under  different  international  and  EU 
legal instruments75. The main differentiating elements include: 

Consent: Although often taking life threatening risks and having to endure a lot of suffering 
during  their  journey,  smuggled  people  have  consented  and  usually  paid  to  be  smuggled. 
Trafficked  victims  either  never  consented,  or  if  they  did  initially,  the  consent  has  been 
rendered  irrelevant  by  the  coercive,  deceptive  or  other  abusive  actions  (illicit  means)  of  the 
traffickers. When trafficked victims are children, consent is always irrelevant.  

Borders:  trafficking  can  take  place  within  one  country  (no  border  crossing)  or  through  a 
regular  or  irregular  crossing  of  borders;  smuggling  by  definition  involves  a  breach  of 
migration  laws,  that  is  either  irregular  crossing  of  international  borders  (which  can  also  be 
intra-Schengen or intra-EU borders) or facilitation of irregular stay in a country of which the 
smuggled person is not a national. 

State  responsibility  towards  victims:  trafficking  in  human  beings  implies  the  existence  of  a 
victim,  that  is,  a  person  whose  individual  rights  have  been  violated.  Trafficking  has  as  its 
main objective the exploitation of an individual for profit (often using coercion and control) 
and  is  thus  first  of  all  a  violation  of  human  rights  and  freedoms  and  a  crime  against  the 
person. Under EU law, smuggling is the irregular movement of people across borders or the 
facilitation  of  irregular  stay  in  exchange  for  payment  but  with  no  direct  exploitative  end 
purpose  (although  a  smuggled  migrant  may  still  end  up  being  exploited  in  reality)  and  it  is 
therefore a crime against the State, concerning the protection of the State against violation of 
its borders76. 

According  to  the  recent  European  Commission  Communication  on  the  State  of  Play  of 
Implementation  of the Priority Actions  under the European Agenda on  Migration77, there is 
strong  evidence  that  the  migration  crisis  has  been  exploited  by  criminal  networks 

75   Smuggling of migrants is covered under the UN Protocol against the Smuggling of Migrants by Land, Sea 
and  Air.  At  EU  level,  it  is  covered  under  Directive  2002/90/EC  establishing  a  common  definition  of  the 
offense of facilitation of unauthorised entry, transit and residence, and Framework Decision 2002/946/JHA, 
reinforcing the penal framework to prevent this crime by setting out minimum rules sanctions. 

76   Europol further elaborates on this issue in the European Situation Report 2016 Ibid. 
77  http://ec.europa.eu/dgs/home-affairs/what-we-do/policies/european-agenda-migration/proposal-
implementation-package/docs/managing_the_refugee_crisis_state_of_play_20160210_en.pdf  

26 

 
 
 
 
                                                            
involved  in  trafficking  in  human  beings  to  target  the  most  vulnerable,  in  particular 
women  and  children:  "Research  suggests  that  reception  facilities  in  some  Member  States 
have  been  targeted,  with  cases  where  up  to  60  %  of  unaccompanied  children  have  gone 
missing,  with  a  serious  risk  of  falling  prey  to  trafficking  networks.  Europol  indicates  that 
there  is  a  strong  crossover  between  those  smuggling  refugees  across  borders  and  gangs 
ensnaring people for exploitation in the sex trade or as forced labour"78.  

Trafficking in human beings and times of crisis 

According  to  IOM  research79,  crises  are  likely  to  have  an  impact  on  trafficking  in  human 
beings, not just in directly affected areas, but also in regions hosting migrants[…] The erosion 
of rule of law and institutional breakdown, development of criminal activities, corruption and 
involvement of officials, impunity, and the enhanced reliance on negative coping mechanisms 
and risky survival strategies, are observed in many large-scale crises and represent important 
risk factors […] At the onset of a crisis, existing criminal networks may become disembroiled 
but may also adapt to the new situation – for example by targeting new victims, in new places 
such  as  refugee  and  IDP  camps  or  local  populations  hosting  high  numbers  of  mobile 
populations […]Traffickers may seek to take advantage of populations receiving humanitarian 
assistance  to  increase  their  criminal  activities through  fraudulent  and ultimately exploitative 
opportunities of employment or onwards migration".  

As  mentioned  in  Recital  8  of  the  Anti-  Trafficking  Directive,  children  are  more  vulnerable 
than  adults  and  therefore  at  greater  risk  of  becoming  victims  of  trafficing  in  human  beings. 
This vulnerability increases in the case of unaccompanied migrant children. For this purpose, 
training of all the actors involved in the procedure (border officers, lawyers, asylum officers, 
social  workers,  psychologists,  mediators,  medical  staff)  remains  essential.  Working  on 
indicators and profiles is also relevant. In the above-mentioned Commission Communication 
on the State of Play of Implementation of the Priority Actions under the European Agenda on 
Migration,  there  is  specific  reference  to  the  particular  risks  involved  for  unaccompanied 
children,  and  it  is  announced  that  work  on  a  comprehensive  approach  to  the  protection  of 
children in migration is underway, whose scope will include child trafficking.   

The EU systematically addresses trafficking in human beings in its dialogue and cooperation 
with  third  countries  and  regions  on  migration  and  mobility.  This  is  the  case  of  the 
dedicated  dialogues  on  migration  and  mobility  with  third  countries  and  regions  and  the 
mobility  partnerships  and common  agendas on migration  and  mobility concluded with  third 
countries. In the context of the migration and refugee crisis experienced during 2015, the EU 

78   This should be considered also in connection with the phenomenon of voluntary absconding of children who 
decide  to  leave  reception  places  and  travel  autonomously  through  Europe  to  reach  the  country  of  aimed 
destination,  with  the  purpose  of  joining  families  and  friends  and/or  asking  for  asylum  or  other  forms  of 
protection. 

79   IOM,  Addressing  human  trafficking  and  exploitation  in  time  of  crisis:  Briefing  Document:  Evidence  and 
to  protect  vulnerable  and  mobile  populations",  July  2015, 

recommendations  for  further  action 
https://publications.iom.int/system/files/addressing_human_trafficking.pdf  

27 

 
 
 
 
                                                            
has  substantially reinforced cooperation  with  third countries and regions, with  trafficking  in 
human  beings  as  one  of  the  key  elements  of  this  reinforced  cooperation.  Also,  the  Valetta 
Action  Plan80,  endorsed  by  the  EU  and  African  leaders  at  the  EU-Africa  Summit  on 
Migration  held  in  Valetta  on  11-12  November  2015,  identifies  a  number  of  actions  on 
strengthening capacities and supporting the development of effective legislation and policies 
in  this  field,  including  on  preventing  minors  to  find  themselves  in  situations  of  risk  and 
ensuring that they receive the adequate protection.  

The  Declaration  of  the  High  Level  Conference  on  the  Eastern  Mediterranean  and  the 
Western  Balkan  Route81,  adopted  on  8  October  2015  in  Luxembourg,  also  reflects  the 
commitment of the EU  and the partner countries  along this route  to support and  protect the 
more vulnerable victims of migrant smuggling and trafficking in human beings, with special 
attention to children. Addressing trafficking in human beings is also a key component of the 
EU-Turkey Action Plan launched at the EU-Turkey Summit on 29 November 201582. 

A  worryingly  sharp  increase  in  Nigerian  women  and  girls  leaving  Libya  has  been 
identified (4 371 in January-September 2015 compared to 1 008 in the previous year, 80 % of 
whom  estimated  by  IOM  Italy  to  be  victims  of  trafficking),83  and  generally  concerns  are 
reported  over  the  increasing  risk  of  trafficking  for  sexual  exploitation84.  IOM  and  UNICEF 
report that in 2015 Italy has seen a 300 % increase in the number of Nigerian victims of 
trafficking  arriving  by  sea  compared  to  the  previous  year,  with  about  half  of  them 
unaccompanied  children85.  This  trend  is  confirmed  by  Europol,  which  reports  that 
traffickers  increasingly  abuse  legal  migration  legislation  and  asylum  systems,  often 
persuading  non-EU  victims  to  request  a  residence  permit  or  apply  for  asylum  in  a  transit 
country on arrival in the  EU, which enables them  to  move within the Schengen  area and to 
more easily reach the locations where they will be exploited86.  

While  tackling  cases  of  abuse,  international  protection  shall  be  granted  to  those 
vulnerable  applicants  who  may  need  protection  as  victims  of  trafficking  and  who  also 
qualify  for  international  protection.  Although  being  a  victim  of  trafficking  does  not,  in 
itself, qualify someone as a refugee, international protection shall be provided to those victims 

80   http://www.consilium.europa.eu/en/meetings/international-summit/2015/11/11-12/  
81   http://data.consilium.europa.eu/doc/document/ST-12876-2015-INIT/en/pdf  
82   http://www.consilium.europa.eu/press-releases-pdf/2015/11/40802205539_en_635846527200000000.pdf 
83   IOM Italy, http://www.italy.iom.int/index.php?option=com_content&task=view&id=341&Itemid=46 
84  IOM,  Addressing  Human  Trafficking  and  Exploitation 

in  Times  of  Crisis,  December  2015  

https://publications.iom.int/system/files/addressing_human_trafficking_dec2015.pdf   

85  IOM 

and 

UNICEF 

Data 

Brief: 

Migration 

of 

Children 

to 

Europe,  

http://www.iom.int/sites/default/files/press_release/file/IOM-UNICEF-Data-Brief-Refugee-and-Migrant-
Crisis-in-Europe-30.11.15.pdf  

86   Europol Situation Report: Trafficking in human beings in the EU, February 2016,  https://ec.europa.eu/anti-

trafficking/sites/antitrafficking/files/situational_report_trafficking_in_human_beings-_europol.pdf  

28 

 
 
 
 
 
 
 
                                                            
of  trafficking  who  have  a  well-founded  fear  of  persecution for  a  reason  covered  by  the  UN 
1951  Convention  relating  to  the  Status  of  Refugees.87  Thus,  the  non-  refoulement  principle 
must be especially respected in such situations, given the risk that these people face of being 
re-trafficked or punished if returned to their countries of origin. 

In 2015, the European Migration Network (EMN) published a Report on Policies, practices 
and data on unaccompanied minors in the EU Member States and Norway88 describing 
asylum  procedures,  practices  and  arrangements  adopted  in  27  Member  States89  on  the 
treatment  of  unaccompanied  minors,  including  the  measures  set  in  place  to  prevent/combat 
trafficking of the unaccompanied minors. The Report focused inter alia on (a) arrangements 
in place for unaccompanied minors who are not in the asylum process, including those who 
entered  irregularly  and/or  are  victims  of  trafficking,  and  (b)  unaccompanied  minors  who 
abscond or go missing from care facilities. 

Call for proposals under the Asylum, Migration and Integration Fund 

In order to address the situation of victims of trafficking in the context of the migration and 
refugees  crisis,  the  European  Commission  has  published  a  Call  for  proposals  under  the 
Asylum  Migration  and  Integration  Fund90,  aimed  at  funding  actions  addressing  the 
integration  and  the  safe  and  sustainable  return  of  victims  of  trafficking  in  human  beings, 
further  focusing  on 
including 
unaccompanied children, as well as adults victims of trafficking for all forms of exploitation 
in  high-risk  sectors  (such  as,  for  example,  agriculture,  fisheries,  construction,  textile,  sex 
industry, domestic work).  

identification  and  protection  of  children, 

the  early 

As the above-mentioned Communication  on Migration highlights, it is necessary that "from 
the first stage in the hotspots, actual or potential victims of human trafficking are identified, 
made aware of their rights, and that the necessary cooperation takes place with the police and 
judicial  authorities  in  order  to  ensure  that  traffickers  are  identified  and  prosecuted"91.  The 
European  Commission  has  published  Guidelines  for  the  identification  of  victims  of 
trafficking  in  human  beings  for  consular  services  and  border  guards92  with  a  special 
reference  to  the  Frontex  “Anti-trafficking  Training  for  Border  Guards  –  Trainer’s  Manual” 
and the “Handbook for diplomatic and consular personnel on how to assist and protect victims 
of human trafficking” of the Council of the Baltic Sea States (CBSS). Frontex also publishes 

87   http://www.unhcr.org/pages/49da0e466.html  
88   http://ec.europa.eu/dgs/home-affairs/what-we-do/networks/european_migration_network/reports/docs/emn-
studies/emn_study_policies_practices_and_data_on_unaccompanied_minors_in_the_eu_member_states_and
_norway_synthesis_report_final_eu_2015.pdf  

89   All except Romania 
90  http://ec.europa.eu/dgs/home-affairs/financing/fundings/migration-asylum-borders/asylum-migration-

integration-fund/calls/2015/thbx/index_en.htm  

91  http://ec.europa.eu/dgs/home-affairs/what-we-do/policies/european-agenda-migration/proposal-
implementation-package/docs/managing_the_refugee_crisis_state_of_play_20160210_en.pdf  

92  http://ec.europa.eu/dgs/home-affairs/e-library/docs/thb-victims-identification/thb_identification_en.pdf 

29 

 
 
 
 
 
                                                            
and updates annually a Handbook on Risk Profiles on Trafficking in Human Beings aiming to 
assist  border  guards  at  air,  land  and  sea  borders  in  the  identification  of  potential  victims  of 
trafficking in human beings, especially during first- and second-line checks on entry into the 
EU.  

3.6.  Trends in the use of the internet and new technologies 

New and constantly evolving technological developments of cyberspace result in the internet 
providing  new  spaces  for  traditional  forms  of  crimes,  including  increased  use  by  organised 
criminals operating on trafficking in human beings. The internet and new technologies enable 
organised  crime  groups  to  access  a  large  pool  of  potential  victims,  hide  their  activities  and 
carry out a wide range of criminal acts in a shorter period of time and on a much larger scale 
than ever before. Member States report that many victims of trafficking, especially victims of 
sexual and labour exploitation, are recruited online. Europol93 explains that "the internet is a 
key facilitator for trafficking in human beings, with an impact on the entire trafficking chain 
from  recruitment  and  transportation  to  the  harbouring  of  the  victims  and  their  actual 
exploitation";  however,  on  the  other  hand,  "the  internet,  online  technologies  and  large 
amounts  of  openly  available  data  can  also  enhance  the  work  of  law  enforcement  agencies, 
since  a  combination  of  advanced  computer-assisted  data  gathering  and  analysis  techniques 
can detect online trafficking"94. 

Use of the internet by traffickers in the Member States 

Greece reports that traffickers are taking advantage of new sophisticated technology and on-
line recruitment methods through the extensive use of the internet and social media networks 
(“virtual”  job  opportunities  etc.).  They  further  report  that  the  Internet  is  also  a  formidable 
platform  for  communicating  their  “supply  of  products”  to  a  vast  audience  that  demands  the 
“consumption”  of  prostitution  and  pornography.  Hence,  commercial  sexual  exploitation  has 
been  largely  carried  out  by  traffickers  through  on-line  chats,  blogs  and  advertisements 
“promoting” the sexual services of their victims into the legal prostitution market. 

The  focus  of  the  European  Commission  activities  in  this  field  is  to  identify  how  new 
technologies can best function as tools for prevention. In this regard, to mark the Seventh EU 
Anti-Trafficking Day, the Lithuanian Presidency and the European Commission organised in 
Vilnius,  on  18th  October  2013,  a  conference  entitled  "Exploring  the  Links  between  the 
Internet  and  Trafficking 
in  Human  Beings:  Cyberspace  for  Prevention,  not 
Recruitment"95.  The  conference  aimed  at  exploring  and  raising  awareness  on  the  links 
between  the  Internet  and  trafficking  in  human  beings  and  improving  cooperation  between 
Member States working together with different stakeholders in this context. It further aimed at 

93  Europol,  Trafficking  in  Human  Beings  and  the  Internet,  Intelligence  Notification  15/2014,  2014, 

https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/situational_report_trafficking_in_human_beings-_europol.pdf  

94   Ibid. 
95   More information on the event is available at https://ec.europa.eu/anti-trafficking/node/4772  

30 

 
 
 
 
                                                            
ensuring coherence by bringing together different stakeholders, including the civil society and 
the private sector in order to improve anti-trafficking responses and addressing the numerous 
challenges in this field. It focused on the different areas of prevention, law enforcement and 
prosecution, assistance and protection of victims with the purpose to facilitate discussions on 
the  ways  to  work  together  to  target  trafficking  in  human  beings  specifically  via  Internet. 
Member States and civil society actively participated at the event. 

The European Commission is building upon the discussions and results of the aforementioned 
conference and is further exploring the links between trafficking in human beings and the use 
of  new  technologies  including  using  input  from  Europol  data  on  the  recent  developments. 
Recommendations  on  how  to  enhance  efforts  in  this  area  and  to  best  address  new 
technologies, as a tool for trafficking in human beings, will be issued during 2016.  

31 

 
 
 
 
 
 
4.  RESULTS OF ACTIONS TO ADDRESS TRAFFICKING IN HUMAN 

BEINGS  

Article 19 of the Anti-trafficking Directive establishes that National Rapporteurs or equivalent 
mechanisms  shall  measure  the  results  of  the  anti-trafficking  actions  undertaken  by  the 
Member  States,  and  the  relevant  information  should  be  part  of  the  European  Commission 
Report required by Article 20.   

This section of the report highlights the main kinds of actions undertaken by Member States 
in the following three main thematic areas as per the Anti-Trafficking Directive and the EU 
Strategy: 

A.  Criminal 

law, 

investigation  and  prosecution 

(with 

focus  on 

financial 

investigations;  

B.  Identification,  protection  and  assistance  (with  focus  on  the  setting  up  of  national 

referral mechanisms); 

C.  Prevention  (with  focus  on  actions  taken  by  Member  States  to  prevent  the  crime  as 

provided by Article 18 of the Anti-Trafficking Directive) 

Most Member States have demonstrated and in some cases also highlighted the difficulty of 
measuring the results and indeed the impact of anti-trafficking actions. This can partly be 
attributed to the dynamic process of transposition of the Anti-trafficking Directive, which is a 
comprehensive  instrument targeting prosecution, protection and prevention:   Member States 
have recently started to develop the necessary implementing measures and  only a few have 
developed  relevant  indicators,  or  have  regularly  and  consistently  evaluated  their 
national strategies and action plans. 

Finally,  one  of  the  most  important  challenges  in  addressing  trafficking  in  human  beings, 
identified  by both  Member  States and civil society,  is the  limited availability  of  resources 
allocated to anti-trafficking actions, victims assistance and prevention measures. This issue is 
addressed in the final chapter of this section. 

32 

 
 
 
 
 
 
4.1. Criminal law, investigations and prosecutions  

As indicated above, trafficking in human beings has been identified by the Council of the EU 
as one of the priority crimes under the EU Policy Cycle on Serious and Organised Crime 
(EMPACT) 2014-201796. As envisaged in the EU Strategy, the European Commission works 
closely with EMPACT THB to provide for synergies between the implementation of the EU 
legal and policy framework and the operational work of law enforcement authorities, as well 
as to step up cooperation between civil society organisations and law enforcement authorities 
in the Member States. 

The Anti-trafficking Directive establishes a number of  obligations for the Member States in 
order  to  ensure  that  cases  of  trafficking  in  human  beings  are  effectively  investigated  and 
prosecuted; that penalties are effective, proportionate and dissuasive; and that investigations 
and prosecutions are not dependent on reporting or accusation by the victims (Articles 4-9 of 
the Anti-Trafficking Directive). 

Increasing the number of investigations and prosecutions is one of the key priorities of 
the EU legal and policy framework addressing trafficking in human beings. However, it 
is  also  one  of  the  key  challenges  reported  by  the  Member  States.  In  fact,  trafficking  in 
human beings is a crime often difficult and costly to detect and investigate. The investigations 
in this field require a substantial body of evidence in order to reach a conviction. In particular, 
practitioners  note  that  excessive  burden  is  placed  on  victims  and  their  testimonies  both 
before  and  during  criminal  proceedings  for  evidence  gathering,  while,  according  to  the 
Anti-trafficking  Directive,  investigative  tools  and  approaches  should  ensure  that  victims, 
either acting as witness or not, are not burdened excessively during procedures that can cause 
secondary trauma to them.  

This  burden  could  be  alleviated  by  promoting  the  use  of  intelligence-led  investigations, 
including financial investigations, which can provide a diversity of evidence to be used in 
addition to victim's testimonies, as a key tool to prevent, detect and dismantle organised crime 
activities through the analysis of the "paper trail" beyond the sole "money trail" used for asset 
recovery purposes.  

It has to be recalled that  trafficking in human beings is driven by profits, which in turn 
further fuel demand for different forms of exploitation. These profits can be traced in legal 
sectors engaged in legal business, legal sectors engaged in illegal business, and illegal sectors. 
In this context, the European Commission, in line with the Council recommendations97, has 
consistently  encouraged  the  Member  States  to  strengthen  their  efforts  to  ensure  that 
financial (including asset-recovery) investigations are used regularly and systematically 

96   Council of the European Union, Council Conclusions on the creation and implementation of an EU policy 

cycle for organised and serious international crime, 8 and 9 November 2010. 
https://www.consilium.europa.eu/uedocs/cms_data/docs/pressdata/en/jha/117583.pdf   
European  Union, 

document 

Council 

the 

of 

97   See 

12657/2/12REV2  GENVAL 

51, 

http://register.consilium.europa.eu/doc/srv?l=EN&f=ST%2012657%202012%20REV%202 

33 

 
 
 
 
                                                            
 
in cases of trafficking in human beings, in order to ensure successful investigations resulting 
in convictions and reduce the reliance and "dependence" on the victim's statements. 

Internal Security Fund call for proposals 

The importance of proactive financial investigations is reflected in the Internal Security Fund 
2015 Call for proposals dedicated to trafficking in human beings98, of 3 million EUR, which 
included  as  priority  actions  promoting  the  use  of  proactive  financial  and  intelligence  led 
investigations, and has provided funding for projects addressing demand reduction.   

The  following  sections  summarise  the  main  actions  undertaken  in  the  field  of  investigation 
and  prosecution,  based  on  the  contributions  from  the  Member  States  as  well  as  the 
information  provided  by  JHA  Agencies,  in  particular  Eurojust  and  Europol,  and  EMPACT 
THB.  This section includes a specific focus on the use of financial investigation99. 

4.1.1.  Low level of investigations, prosecutions and convictions 

Based on the previous Eurostat data and the latest data transmitted by the Member States for 
the Report, the level of prosecutions and convictions remains worryingly low, especially 
when compared to the number of victims identified. This trend has been also confirmed by the 
GRETA reports, concluding that there is an important gap between the number of identified 
victims of trafficking and the number of convictions, and referring to several factors such as 
over-reliance  on  victims’  statements,  issues  around  the  credibility  of  witnesses  who  may 
change  their  statements  over  time,  difficulties  in  relation  to  the  sufficiency  of  evidence,  or 
non-specialised and prejudiced investigators, prosecutors and judges.100 

During the years 2013 and 2014, Member States reported 4 079 (2 059 + 2 020) prosecutions 
in the EU and 3 129 (1 524 + 1 605) convictions for trafficking in human beings.  

According  to  information  provided  by  Eurojust  within  the  framework  of  the  "Strategic 
Project  Eurojust  Action  against  Trafficking  in  Human  Beings"101,  there  are  seven  main 
difficulties  in  investigating  and  prosecuting  cases  of  trafficking  in  human  beings  most 
commonly  faced  by  the  national  authorities:  difficulties  encountered  in  the  identification  of 
victims  and/or  cases;  difficulties  in  obtaining  evidence;  frequent  reliance  solely  on  victims’ 
testimony,  disregarding  other  sources  of  evidence  (which  could  hamper  a  successful 
prosecution);  legislation  issues  (substantive  and  procedural  law);  standards  of  evidence 

98  Information on the Call is available at http://ec.europa.eu/dgs/home-affairs/financing/fundings/security-and-

safeguarding-liberties/internal-security-fund-police/calls/2015/thbx/index_en.htm  

99   The decision to have a specific focus on the use of financial investigation for the purpose of the Report was 

suggested by the European Commission and agreed with the Informal network of NREMs. 

100  Group  of  Experts  on  Action  against  Trafficking  in  Human  Beings  (GRETA),  4th  General  Report  on 

GRETA's activities, 2015, 
 http://www.coe.int/t/dghl/monitoring/trafficking/Docs/Gen_Report/GRETA_2015_1_4thGenRpt_en.pdf  
101  Eurojust Strategic Meeting on Trafficking in Human Beings, The Hague, 26-27 April 2012, Outcome Report 
available  at  https://ec.europa.eu/anti-trafficking/publications/eurojust-strategic-meeting-trafficking-human-
beings-0_en 

34 

 
 
 
 
                                                            
 
required to successfully prosecute cases; lack of experience and lack of specialised knowledge 
on  trafficking  in  human  beings;  and  the  multilateral  dimension  of  cases  of  trafficking  in 
human beings, which is seen as too burdensome by national authorities. 

This is also confirmed by the main findings of the Study on the case law on trafficking in 
human beings for the purpose of labour exploitation102, which highlights the diversity of 
practices amongst Member States, challenges in prosecution including problems with securing 
evidence, the lack of availability and use of resources, the need for more regular and specific 
training and the need for better equipment. 

Reasons for this discrepancy may vary. One of the main factors reported by Member States is 
related to the high evidentiary threshold applied by national courts, which leads to qualify 
cases  of  trafficking  in  human  beings  as  crimes  of  lesser  degree  –  such  as  procuring  or 
pandering  instead  of  trafficking  for  the  purpose  of  sexual  exploitation,  or  breach  of  labour 
laws or fraud instead of trafficking for the purpose of labour exploitation – resulting in minor 
convictions.  

In  this  respect,  the  use  of  financial  investigations  and  online  tracing  tools  could  enable  law 
enforcement  and  prosecutorial  authorities  in  gathering  evidence  and  not  relying  excessively 
on victims and their testimonies.  

Investigations and prosecutions in the Member States 

Sweden reports that, following a project implemented by the Prosecutions Service in order to 
increase  the  number  of  convictions  for  trafficking  in  human  beings,  prosecutions  for 
trafficking  in  human  beings  quite  often  lead  to  the  conclusion  that  there  is  not  enough 
evidence for full-scale conviction for trafficking in human beings. The Swedish Government 
launched  an  inquiry  to  evaluate  the  application  of  the  penal  provision  on  trafficking  and  to 
examine how law enforcement investigate and handle trafficking cases. 

As  regards  trafficking  in  human  beings  for  the  purpose  of  sexual  exploitation,  Finland 
highlights  that  the  Criminal  investigation  process  often  lacks  an  understanding  or 
consideration of the dynamics of the sexual exploitation and the impact of the violence and 
exploitation on the victims.  

In Ireland, An Garda Síochána (Irish Police) places particular importance on ensuring that its 
members  receive  training  which  will  equip  them  to  tackle  human  trafficking.  A  specialised 
anti-THB  training  course  entitled  ‘Tackling  Trafficking  in  Human  Beings:  Prevention, 
Protection and Prosecution’ has been running for the last several years. The course focuses 
on  alerting  operational  personnel  within  An  Garda  Síochána  to  the  existence  of  THB, 
empowering  them  to  identify  victims  so  as  to  provide  for  their  wellbeing  and  ensuring 
initiation of criminal investigations, where appropriate. 

102  https://ec.europa.eu/anti-trafficking/publications/study-case-law-trafficking-purpose-labour-exploitation_en. 

35 

 
 
 
 
                                                            
In Lithuania the National Law Institute in cooperation with the Ministry of Justice organised 
a  practical  seminar  for  practitioners,  private  sector  and  NGOs  as  regards  the  problem  to 
applying the criminal responsibility for crimes of trafficking in human beings.  

Civil society stresses that the overall law enforcement capacity to respond to trafficking in 
human beings remains low, despite some successful cases, and that investigations are often 
dependant  on  the  good will  and  perseverance  of  individual officers.  Also,  there  is  a  lack  of 
targeted  training  for  police  and  prosecutors,  and  limited  or  no  development  of  specialised 
units. Some civil society organisations highlight a general lack of knowledge on trafficking 
and how this impacts the position  of victims  across prosecutors and the judiciary (instances 
have been reported in which trafficked adults and children were misidentified as offenders).  

In order to address this issue, the European Commission considers it important that  Member 
States  implement  the  obligations  of  the  Anti-trafficking  Directive  (Article  9)  including 
ensuring regular and tailor-made training to police, prosecution services and judiciary, 
accompanied by the  regular  and systematic use of financial investigation   (in its entire 
scope) and – when appropriate – the use of innovative techniques. Some Member States 
have already taken significant steps in this direction but more needs to be done. In this regard, 
it  is  important  to  mention  the  training  activities  for  the  police  organised  and  provided  by 
CEPOL, the European Police College103. 

These challenges have also been identified in GRETA reports. Investigators, prosecutors and 
judges who are not  specialised  and trained to  deal with  trafficking cases  may be prejudiced 
vis-à-vis  victims  of  trafficking  and  insensitive  to  the  problems  experienced  by  them. 
Perpetrators  are  sometimes  prosecuted  successfully  for  offences  other  than  trafficking  in 
human beings when the available evidence is not sufficient to support a trafficking in human 
beings offence. GRETA reports expressed concerns having found in some countries that the 
sentences  for  trafficking  in  human  beings  appeared  to  be  unduly  lenient  or  the  perpetrators 
were given suspended sentences. GRETA has also stressed the need to improve the training 
and  specialisation  of  judges,  prosecutors,  police  investigators  and  lawyers  regarding 
trafficking  in  human  beings  and  the  rights  of  victims  of  trafficking,  stressing  the  severe 
impact  of  exploitation  on  victims  and  the  importance  of  ensuring  that  victims  are  prepared 
psychologically before they give statements. Ultimately, GRETA has urged 17 countries to 
address gaps in the investigation and the presentation of cases in court104. 

4.1.2.  Rights of the victims in the context of investigation and prosecution 

One  of  the  main  principles  enshrined  in  the  Anti-trafficking  Directive  is  the  protection  of 
victims  during  criminal  investigations  and  proceedings  (Article  12).  Victims  should  have 

103  https://www.cepol.europa.eu/education-training/what-we-teach  
104  Group  of  Experts  on  Action  against  Trafficking  in  Human  Beings  (GRETA),  4th  General  Report  on 

GRETA's activities, 2015, 

   http://www.coe.int/t/dghl/monitoring/trafficking/Docs/Gen_Report/GRETA_2015_1_4thGenRpt_en.pdf     

36 

 
 
 
 
                                                            
access  to  legal  counselling  and  representation,  appropriate  protection  such  as  in  the 
framework of witness protection programmes, and any risk of secondary victimisation during 
the  proceedings  should  be  prevented.  As  reported  by  Finland,  providing  assistance  for 
victims of trafficking should be considered as a way of reinforcing their trust in the criminal 
investigation authorities  and thereby advancing the bringing to  justice of the perpetrators of 
trafficking in human beings, and by extension the prevention of human trafficking in general. 
The  Swedish  national  rapporteur  against  trafficking  in  human  beings  reports  that  an 
analysis of judgements in 2012 shows that "it is often difficult for the courts to understand the 
seriousness of the pressure and abuse the victims have suffered if the violence is not evident.  
Not  only  the  police  but  also  prosecutors  and  judges  need  to  regularly  enhance  their 
competence  and exchange knowledge as well as to prioritise the work to fight this crime"105. 

Civil  society  reports  that  victims  of  trafficking  in  human  beings  are  frequently  refused 
assistance at police stations and are told that their problem is not a police matter. They point 
to the fact that where specialisation is developed or specialist anti-trafficking units have been 
formed, trafficking has been tackled with greater success, and that  in the climate of austerity 
and cuts, focused and proactive anti-trafficking operations can be cost-effective.  

Civil  society  also  highlights  many  instances  where  victims  are  misidentified  as offenders, 
and subsequently prosecuted and convicted. The continued criminalisation of victims has 
been raised as a widespread problem. However, it is reported that if identification occurs at an 
early stage, especially during the pre-charge period, the criminalisation of trafficked persons 
can be prevented and the investigation and prosecution authorities can focus on the underlying 
problem – the crime of trafficking. 

Victims’ rights during investigation and prosecution in the Member States 

Belgium  reports  the  implementation  of  a  comprehensive  Ministerial  Directive  concerning 
Investigative  and  Prosecutorial  Procedures  on    trafficking  in  human  beings,  focusing  on  a 
multi-disciplinary approach and providing a coordination structure for specialised magistrates 
on anti-trafficking. One of the main principles stipulated by this Directive is that each action 
during the investigation and prosecution process must duly respect the victims’ rights, even if 
they have broken a Belgian law (such as illegal residence situation, infringement of the social 
security legislation). 

4.1.3.  The use of innovative techniques 

Some  Member  States  (such  as  BE,  ES,  SE)  highlight  that  more  work  should  be  done  to 
systematically  carry  out  proactive  intelligence-led  investigations;  in  this  context,  they 
advocate  the  use  of  innovative  techniques  such  as  observations,  interceptions,  information 
from monitoring and neighbourhood outreach, reliable informants and tipsters could play an 

105  Rikspolisstyrelsen, Människohandel för sexuella och andra ändamål, Lägesrapport 14, 2014   

https://polisen.se/Global/www%20och%20Intrapolis/Rapporter-
utredningar/01%20Polisen%20nationellt/M%C3%A4nniskohandel/Lagesrapport_14_Manniskohandel.pdf  

37 

 
 
 
 
                                                            
 
important role both in terms of identification of victims as well as gathering evidence needed 
for  successful  investigations  and  prosecutions.  They  also  highlight  that  the  use  of  these 
techniques must respect the relevant national laws, including on data protection and privacy 
protection.  

4.1.4.  Seizure and confiscations 

Some Member States report  practical  problems related to  the  application of seizure  and 
confiscation to the cases of trafficking in human beings, including problems with detection 
of criminal proceeds and inefficient international cooperation when the money has been sent 
to the country of origin outside EU. An important aspect to highlight is that several Member 
States  (such  as  BE,  PL,  HU)  report  that  carrying  out  financial  investigations  (in  its  asset 
recovery dimension) leads to more seizures and therefore more confiscations. 

Some Member States do not apply systematically legal provisions for seizure and confiscation 
to trafficking cases; though seizure is not a prerequisite condition for confiscation, if it has not 
occurred, later confiscation may be problematic because defendants will have had the chance 
in the meantime to modify their assets and/or transfer them. In this regard, it has to be noted 
that  the  ability  of  Member  States'  authorities  to  freeze  and  confiscate  the  proceeds  of 
trafficking in human beings could be considerably enhanced by the implementation, by 
the  end  of  2016,  of  the  2014  Directive  on  the  freezing  and  confiscation  of 
instrumentalities  and  proceeds  of  crime106.  This  Directive  foresees  far-reaching  legal 
measures  (for  example  allowing  the  freezing  and  confiscation  of  property  transferred  to,  or 
acquired by, third parties) which apply to the proceeds of the most serious forms of organised 
crime,  including  trafficking  in  human  beings.  At  the  same  time,  the  improved  cooperation 
between  the  Asset  Recovery  Offices  in  the  Member  States  will  enhance  the  possibilities  to 
identify and trace the proceeds of trafficking in human beings across the Union. Enhanced use 
of the Camden Assets Recovery Interagency Network CARIN could facilitate  the tracing of 
assets in the non-EU Countries where the proceeds of trafficking are repatriated.  

Examples of freezing, seizure and confiscation of assets in the Member States  

Austria  reports  to  have  established  specialised  prosecutors  for  freezing,  seizure  and 
confiscation  of  proceeds  of  crime,  with  trafficking  in  human  beings  as  one  of  the  criminal 
activities of particular focus.  

In  Denmark  the  Director  of  Public  Prosecutions  has  developed  a  comprehensive  set  of 
guidelines  to  police  officers  and  prosecutors  on  the  handling  of  cases  of  human  trafficking. 
The guidelines were published in February 2015 and describe specific measures that may be 
taken in order to confiscate assets of perpetrators, e.g. assistance from taxation authorities and 

106  Directive  2014/42/EU  on  the  freezing  and  confiscation  of  instrumentalities  and  proceeds  of  crime  in  the 

European Union, http://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32014L0042  

38 

 
 
 
 
 
 
 
                                                            
relevant  prosecution  units  which  assists  the  police  districts  in  tracing  and  seizing  assets 
derived from crime. 

France  reports  that  a  dedicated  unit  was  set  up  to  assist  the  police  in  seizure  of  criminal 
assets.  

In Germany, assets totalling approximately EUR 550 000 were provisionally seized during a 
total of 17 investigations conducted at home and abroad into trafficking in human beings for 
sexual  exploitation  and  labour  exploitation  in  connection  with  proceedings  in  Germany  in 
2013.  

4.1.5.  The use of joint investigations and joint investigation teams 

Various  Member  States  (such  as,  BE,  BG,  ES,  HU)  refer  to  their  efforts  and  positive 
experiences with joint investigations and joint investigation teams (JITs) and provide useful 
examples of growing cross-EU cooperation in this context.  

The  EU  Strategy  highlights  that  joint  investigations  and  JITs  constitute  very  useful  tools  to 
support and help investigate cross-border cases of trafficking in  human beings and build up 
closer  cooperation  and  trust  between  the  Member  States.    The  European  Commission 
encourages the use of JITs and has funded some projects aimed at sharing best practices and 
know-how in this field. This approach has also been emphasised in the Council Conclusions 
endorsing  the  EU  Strategy  which invite  the  Member  States  to  "further  promote  establishing 
joint  investigations  or  joint  investigation  teams  among  Member  States  and  with  third 
countries  as  an  effective  tool  to  tackle  trafficking  in  human  beings  and  enhance  law 
enforcement cooperation with judicial authorities"107. 

In  addition,  Member  States  refer  to  several  operational  and  coordination  meetings 
organised by Europol and Eurojust to which they participate to exchange information. The 
role of the two EU agencies is crucial in these efforts.  

4.1.6.  The key importance of the use of financial investigations 

As highlighted earlier, trafficking in human beings is a highly profitable form of crime. It is a 
financially  and  demand  driven  crime  that  renders  enormous  profits  to  traffickers.  It 
exists because of interplay between the profits and the demand which fosters all forms of 
exploitation.  

107  Council  of  the  European  Union,  Council  conclusions  on  the  new  EU  Strategy  towards  the  Eradication  of 
Trafficking 
https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/council_conclusions_on_the_new_eu_strategy_towards_the_eradication
_of_trafficking_in_human_beings_2012_-_2016_1.pdf  

in  Human  Beings 

25  October 

2012–2016, 

2012, 

39 

 
 
 
 
 
 
 
                                                            
Based on the available sources, it is challenging to estimate the overall profits derived from 
trafficking in human beings in the EU. In this regard, it can be helpful to take into account the 
International  Labour  Organisation  (ILO)  estimates  on  forced  labour108.  Though  forced 
labour and trafficking in human beings are two distinct legal concepts, they can overlap 
in practice, so the ILO estimates on forced labour can help to have an idea of the magnitude of 
the profits deriving from trafficking in human beings. Based on these ILO data and other open 
sources, Europol109 estimates as 29.4 billion EUR the global annual profit of trafficking in 
human beings; out of this, 23.5 billion EUR are the profits from sexual exploitation in the 
developed countries including the EU Member States, and 3.5 billion EUR the profits from 
labour exploitation.  

Against this background, the EU legal and policy framework addressing trafficking in human 
beings  emphasises  the  need  to  follow  the  money  involved  in  trafficking  in  human  beings, 
including  conducting  more  proactively  financial  (including  asset-tracing)  investigations 
related  to  cases  of  trafficking  in  human  beings.  Article  9  of  the  Anti-trafficking  Directive 
provides  that  Member  States  shall  take  all  the  necessary  measures  to  ensure  that  effective 
investigative  tools  are  available  to  investigation  and  prosecution  authorities;  and  that 
investigation  and  prosecution  should  not  be  dependent  on  reporting  or  accusation  by  the 
victims. Financial investigations has been recognised as one of the most important tools 
for  the  implementation  of  these  obligations;  in  fact,  knowledge  of  financial  flows  allows 
the entire chain of trafficking in human beings to be investigated and the evidence gathered 
might provide the necessary additional proof, thus relieving victims of the burden of testifying 
in court and help disrupting the criminal networks involved. 

Financial  investigations  are  crucial  also  because  the  huge  financial  money  flows  deriving 
from trafficking in human beings enter into the circuits of the legal economy. For this reason, 
Article 5 of the Anti-trafficking Directive contains provisions relating to the liability of legal 
persons for trafficking in human beings. 

Most  Member  States  conduct  financial  investigations  in  parallel  or  as  part  of  an  anti-
trafficking investigation. Some Member States (such as BE, CY, CZ, NL) report that financial 
investigations have helped identify more suspects and is generally an enabling tool; however, 
they  are  not  always  in  a  position  to  conduct  impact  analysis,  because  of  time  and  resource 
limitations. The Czech Republic reports that financial investigation is particularly useful as a 
tool for cases where cashless money transfers are used, such as trafficking in human beings 
for the purpose of labour exploitation. In some cases, financial intelligence units participating 
in  inter-departmental  coordination  along  with  all  other  stakeholders  or  authorities  are  using 
same data bases enabling better coordination (BE, AT). Other relevant units involved in such 

108  International  Labour  Organisation  (ILO),  Profits  and  Poverty:  The  Economics  of  Forced  Labour,  2014, 

http://www.ilo.org/wcmsp5/groups/public/---ed_norm/---
declaration/documents/publication/wcms_243391.pdf  

109  Europol  (2015)  The  THB  Financial  Business  Model.  Assessing  the  current  state  of  knowledge.  July  2015 

https://ec.europa.eu/anti-trafficking/sites/antitrafficking/files/europol_financial_business_model.pdf 

40 

 
 
 
 
                                                            
investigation can be cyber-crime units, offices for asylum and migration, asset recovery, tax 
authorities. 

Multiagency cooperation in the Member States 

In the Netherlands, the Tax and Customs Administration (in particular the Fiscal Intelligence 
and  Investigation  Department/Economic  Surveillance  Department  (FIOD-ECD)  and  the 
chamber  of  commerce  are  considered  as  crucial  partners  in  effectively  combating  human 
trafficking. The Tax and Customs Administration, for example, can identify cases when they 
carry out audits in the sex industry and other sectors and can play a role in tackling offenders 
through  tax  law.  The  Financial  Intelligence  Unit  Nederland  (FIU-Nederland)  can  have  an 
important signalling function and provide support for investigating services in the context of 
investigations of money flows relating to human trafficking. FIU-Nederland is formally part 
of  the  National  Police  but  functions  independently.  It  collects  reports  of  unusual  financial 
transactions  –  from  institutions  such  as  banks  –  but  also  provides  advice  and  assistance  to 
investigating agencies and can even make proposals to start a criminal investigation. 

Some  Member  States  (such  as  PL)  mention  the  lack  of  specific  legal  provisions  to  conduct 
financial investigations.  Other Member States (such as CY) also report the slowness of court 
proceedings and the lack of access by the police to databases such as the social security, tax 
agency  and  bank  accounts  among  the  main  shortfalls  identified  in  combating  money 
laundering  and  in  demonstrating  the  possible  liability  of  a  financial  institution  or 
professionals; and that direct access without court authorisation would speed up investigations 
and court proceedings in this respect. According to Europol110, traffickers frequently abuse 
legitimate  business  structures  to  conceal  their  illicit  activities;  for  example,  hotels, 
massage  parlours,  nail  bars,  sauna  clubs  and  cafés  may  provide  cover  for  prostitution 
activities.  Member  States  (such  as  EL)  confirm  that  financial  investigations  are  crucial  to 
identify how criminal networks active primarily in the field of commercial sexual exploitation 
establish  legal  businesses  with  the  intention  to  launder  the  great  amount  of  money  gained 
from those illegal activities. 

Cooperation with the Private Sector in the Member States 

In  the  Czech Republic, a pilot cooperation with the private sector  was launched  in 2013, a 
preventive  campaign  called  "Journey  without  risks:  Make  a  movie,  warn,  win!"  A  private 
transport company was involved and provided screening time in its buses and prizes for the 
winners. The videos have been then placed also on Youtube and Facebook.  

Although business activity can both perpetuate trafficking in human beings and contribute to 
its eradication, most companies are unaware of the linkages and one of the priorities of the 

110  Europol,  The  THB  Financial  Business  Model,  Assessing  the  current  state  of  knowledge,  July  2015 

https://ec.europa.eu/anti-trafficking/sites/antitrafficking/files/europol_financial_business_model.pdf  

41 

 
 
 
 
                                                            
European Commission is to ensure that the private sector does become aware and is also 
held accountable for trafficking in human beings. 

EU  legislation  is  at  the  forefront  of  ensuring  that  businesses  and  legal  persons  can  be 
sanctioned for trafficking in human beings. Not only individuals but also companies can face 
the law if involved in trafficking in human beings. The Anti-trafficking Directive creates legal 
obligations of businesses, namely the liability and sanctioning of legal persons for trafficking 
in  human  beings  offenses  (Article  5).    However,  it  has  to  be  reported  that  so  far  very  few 
Member  States  have  prosecuted  private  companies  or  legal  persons  for  trafficking  in 
human beings as required under Article 5 of the Directive. 

 Corporate Liability of the Supply Chain in the Member States 

In  Belgium  the  national  authorities  have  included  the  need  to  carry  out  financial 
investigations making it possible both to detect trafficking in human beings concealed behind 
complex  legal  constructs  involving  front-companies  or  the  use  of  bogus  self-employed 
workers  and  to  freeze,  seize  and  confiscate  the  assets  and  incomes  of  perpetrators  of 
trafficking,  including  to  compensate  victims,  in  the  Action  Plan  2012-2014.  In  a  Belgian 
case, the court of Ghent established the corporate liability of a supply chain under anti 
trafficking laws. 

In  Austria,  the  Financial  Police  is  a  special  unit  of  the  Ministry  of  Finance  whose  tasks 
include tax supervision, combating social insurance fraud, detection of illegal employment of 
foreigners,  and  combating  wage  and  social  dumping  in  the  posting  of  workers,  including 
investigating  false  or  feigned  notifications  of  workers.  […]  Labour  market  controls  by  the 
Financial  Police  include  every  working  place,  including  brothels  and  other  sex  work 
locations, with some restrictions in respect of the private sphere. GRETA considers that the 
Austrian  authorities  should  collect  and  monitor  data  from  the  Financial  Police  on  cases  of 
trafficking in human beings and the types of exploitation involved. 

Based on the information gathered for the Report, Member States do not seem to use enough 
effective investigative tools, and financial investigations are mostly conducted on a case-by-
case  basis,  but  not  systematically.    In  practice,  they  are  also  often  limited  to  the  sole  asset 
the  Council 
recovery 

the  FATF  standards111  and 

in  opposition  with 

investigation 

111  The Financial Action Task Force (FATF) is an inter-governmental body established in 1989 by the Ministers 
of  its  Member  jurisdictions.   The  objectives  of  the  FATF  are  to  set  standards  and  promote  effective 
implementation  of  legal,  regulatory  and  operational  measures  for  combating  money  laundering,  terrorist 
financing  and  other  related  threats  to  the  integrity  of  the  international  financial  system.   The  FATF  is 
therefore a “policy-making body” which works to generate the necessary political will to bring about national 
legislative  and  regulatory  reforms  in  these  areas.  It  defines  financial  investigation  as  "an  enquiry  into  the 
financial  affairs  related  to  a  criminal  activity,  with  a  view  to:    identifying  the  extent  of  criminal  networks 
and/or  the  scale  of  criminality;  identifying  and  tracing  the  proceeds  of  crime,  terrorist  funds  or  any  other 

42 

 
 
 
 
 
 
                                                            
 
recommendations112. Furthermore, although business activity can both perpetuate trafficking 
in  human  beings  and  contribute to  its eradication,  most  companies  are  unaware  of  the links 
involved.  

In  order  to  increase  the  number  of  investigations  and  prosecutions  and  alleviate  the  burden 
placed on victims during proceedings, information indicates a need for developing regular and 
tailor-made  training  for  investigators,  prosecutors  and  judges,  systematically  using  financial 
investigation  in  its  entire  scope  and  other  effective  intelligence-led  investigative  tools,  and 
dedicate sufficient financial and human resources. 

4.2.  Identification, protection and assistance 

A victim-centred approach is at the heart of the EU anti-trafficking legislation and policy. The 
importance of this approach is reflected in Article 11(4) of the Directive, which provides that 
Member States shall take the necessary measures to establish appropriate mechanisms for the 
early identification of, assistance to and support for victims, in cooperation with the relevant 
support organisations.  

However, providing unconditional access to assistance, support and protection to victims 
remains  a  challenge  for  most  Member  States.  Victims  are  hesitant  to  cooperate  with  the 
authorities in criminal proceedings and investigations, and this can still jeopardise their access 
to assistance and support.  

4.2.1.  Identification 

The importance of early identification of victims of trafficking in human beings is reflected 
both in the Anti-Trafficking Directive and EU Strategy. A specific action envisaged in the EU 
Strategy  and  confirmed  by  the  Council  Conclusions113  invites  Member  States  to  develop  or 
update  functional  National  Referral  Mechanisms  (NRMs).  These  mechanisms  should 
describe procedures to better identify, refer, protect, assist and support victims, and include all 
relevant authorities and civil society organisations.  

assets  that  are,  or  may  become,  subject  to  confiscation;  and  developing  evidence  which  can  be  used  in 
criminal proceedings." As such, its scope expands much beyond asset recovery.  

112  All EU MS have been evaluated on financial crime and financial investigation between 2008 and 2011 in the 
context  of  the  Council  of  the  EU  5th  round  of  mutual  evaluations.  The  final  report  of  the  evaluation  was 
discussed in the JHA Council in October 2012. It concludes that financial investigation is an important tool to 
detect financial crime and to develop evidence to dismantle Organised Crime Groups. The report states that 
all  EU  MS  have  built  professional  systems  dealing  with  financial  crime  and  financial  investigation  and 
recommends that financial investigations should as far as possible be carried out in all serious and organised 
crime  cases  beyond  the  sole  economic  and  financial  crime  offenses.  In  that  spirit,  financial  investigation 
should indeed be seen as a holistic element of any anti-trafficking investigation. 

113  The Council of the European Union in its conclusions welcoming the EU Strategy called on Member States 
to "Develop or update functional national referral mechanisms as agreed in the EU Policy Cycle that describe 
procedures to better identify, refer, protect and assist victims and include all relevant public authorities and 
civil society", http://ec.europa.eu/anti-trafficking/eu-policy/council-conclusions-new-eu-strategy_en 

43 

 
 
 
 
                                                                                                                                                                                          
Following  this,  many  Member  States  have  developed  models  at  the  national  level  and 
established  mechanisms.  However,  it  remains  a  challenge.  In  fact,  despite  the  continuous 
focus  by  Member  States  on  identification  of  victims,  the  number  of  identified  victims 
remains  low,  and  many  governmental  and  non-governmental  stakeholders  report  that 
generally identification of victims remains problematic, so that trafficking broadly remains an 
"invisible crime".  

In this regard, GRETA114 has urged 27 of 35 evaluated countries to improve the identification 
of victims of trafficking through a range of measures. In most countries, it has recommended 
strengthening the multi-agency involvement in the decision-making process leading to the 
identification  of  victims  of  trafficking  and  ensuring  appropriate  co-ordination  and 
exchange  of  information  between  all  relevant  actors  involved  in  the  identification 
process. 

It is vital to look into the reasons why identification remains such a challenge. For example, it 
is  important  to  examine  why  despite  the  development  of  all  different  guidelines,  indicators 
and  various  manuals,  as  well  as  training  material115,  which  have  been  designed  and 
implemented  in  this  area,  the  identification  rates  remain  low.  Several  stakeholders  report 
that  victims  rarely  self-identify  and  are  traumatised.  Other  stakeholders  stress  the  high 
evidentiary  threshold  for  identification  applied  by  authorities  on  victims'  identification. 
Member States highlight that there is still lack of awareness and need for systematic training 
of actors involved in the identification and assistance.   

Civil society submissions to the Report highlight that still today the vast majority of victims 
of  trafficking are  not identified, and consequently do not  have access to their rights to 
assistance,  support  and  protection.  Instead  they  can  be  at  times  deported,  detained  or 
treated  like  criminals  themselves.  Discrepancies,  lack  of  consistency  in  decision  making  on 
referrals/identification,  and  limited  options  for  appealing  against  such  decisions  have  been 
reported by the civil society as key challenges.   

Further, civil society highlights that those victims that are EU citizens and are trafficked in 
another EU Member State might not be able to access assistance, support and protection 
provided for by the national legislation of the host country, since they do not meet the pre-
requisites linked to an established previous habitual residence in order to exercise these rights. 

From  the  abovementioned  information  it  becomes  evident  that  appropriate  measures  for 
ensuring identification of victims are required, so that victims have access to protection and 
assistance at the earliest possible stage. 

114  Group  of  Experts  on  Action  against  Trafficking  in  Human  Beings  (GRETA),  4th  General  Report  on 

GRETA's activities, 2015, 
http://www.coe.int/t/dghl/monitoring/trafficking/Docs/Gen_Report/GRETA_2015_1_4thGenRpt_en.pdf  
115  For  a  collection  of  training  material  and  identification  guidelines  please  visit  the  EU  Anti-Trafficking 

Website: http://ec.europa.eu/anti-trafficking/publications/    

44 

 
 
 
 
                                                            
 
Victims in EU Legislation: Rights and Guidelines for Identification 

In line with a victim-centred approach, the European Commission has published an overview 
on EU rights of victims of trafficking in human beings, which provides a clear overview 
and accessible, user-friendly information for victims, practitioners and Member States116.  In 
this regard, the Council117 has called on the Member States to further translate this overview 
in  their  national  jurisdictions  and  ensure  that  victims  have  access  to  such  documents. 
However,  it  remains  to  be  seen  how  exactly  the  Member  States  have  implemented  this 
commitment.  

The European Commission has also published  Guidelines for the identification of victims 
of trafficking in human beings, addressed in particular to border guards and consular 
services,118  aimed  at  improving  coordination  and  coherence  in  the  area  of  victim 
identification,  and  facilitating  the  work  of  front-line  officials.  A  specific  handbook  on  the 
identification  of  child-victims  of  trafficking/children  at  risk  at  airports  has  been 
developed by FRONTEX119. 

4.2.2.  National and transnational referral mechanisms  

According  to  the  information  available  to  the  European  Commission,  over  half  of  the 
Member  States120  have  formalised  National  Referral  Mechanisms  (NRMs)  in  order  to 
coordinate the actors involved in identification, assistance, protection and reintegration. Those 
Member  States  report  broad  participation  in  these  systems,  including  by  national  ministries 
(health, justice, social affairs, employment, etc.), law enforcement authorities, border guards 
and consular services, civil society organisations, service providers and labour inspectorates. 
Other  Member  States121  have  not  formalised  such  mechanisms,  but  have  working/informal 
arrangements  in  place  or  are  working  on  its  development.  Finally,  a  minority  of  Member 
States122 has not yet developed a national referral mechanism.  

In addition, Member States report that more cooperation has been established between a wide 
range  of  actors,  in  line  with  a  comprehensive  and  multidisciplinary  approach,  such  as 
cooperation between prosecution services and labour inspectorates (BE), health professionals 
(PL),  child  protection  authorities  (BG),  hotlines  (EL).  Generally,  Member  States  report  that 
standard  operating  procedures  for  all  stakeholders  and  targeted  training  contribute  to  better 
delivery of services (MT). In Austria, the Task Force Working Group on Child Trafficking is 

116  http://ec.europa.eu/dgs/home-affairs/e-library/docs/thb_victims_rights/thb_victims_rights_en.pdf. 
117  Council of the European Union, Revised Draft Council Conclusions on an EU Framework for the Provision 

of Information on the Rights of Victims of Trafficking in Human Beings, 13 June 2013 
https://ec.europa.eu/anti-trafficking/sites/antitrafficking/files/revised_draft_council_conclusions_1.pdf   
118  http://ec.europa.eu/dgs/home-affairs/e-library/docs/thb-victims-identification/thb_identification_en.pdf  
119  http://frontex.europa.eu/news/frontex-publishes-vega-handbook-children-at-airports-bvtPly  
120  Belgium,  Bulgaria,  Croatia,  Cyprus,  Czech  Republic,  Denmark,  Greece,  Hungary,  Ireland,  Latvia,  Malta, 

Poland, Portugal, Romania, Slovakia, Spain, UK. 

121  Austria, Italy, Lithuania, Luxembourg, Slovenia, Sweden. 
122  Estonia, Finland, France, Germany, Netherlands. 

45 

 
 
 
 
                                                            
 
currently elaborating a NRM for child victims, involving the youth welfare authorities, police, 
immigration authorities, health care and the judiciary.  

In  conclusion,  there  are  instances  where  mechanisms  are  not  yet  in  place,  as  per  legal  and 
policy framework, and work is being developed to ensure that these gaps are closed.  

National Referral Mechanisms in the Member States 

All  activities  within  the  Croatian  National  Referral  Mechanism  derive  from  the  national 
Anti-trafficking  policy  framework  including  the  National  Anti-trafficking  Plan,  relevant 
protocols and legal acts. Within the national referral mechanism, an individual assistance and 
protection  programme  shall  be  made  for  each  victim  of  human  trafficking,  based  on 
information gathered from the victim, evaluation of the psycho-physical condition as well as 
based  on  wishes  and  interests  expressed  by  the  victim,  with  the  aim  of  fast  recovery,  re-
socialisation  and  rendering  the  victim  capable  of  independent  life.    Based  on  the  above,  an 
Individual Programme and Support Plan is made, tailored to the specific needs of the victim, 
by a member of a mobile team of an organisation providing for the victim or a case manager, 
in  cooperation  with  the  regional  coordinator,  who  is  also  a  member  of  a  mobile  team,  and 
special guardian if the human trafficking victim is a child. 

Measuring  the  impact  of  such  mechanisms,  taking  into  account  their  implementation  at  the 
grass root level, would indeed be useful as would information on lessons learnt. As a general 
observation, Member States  report that the provision  of services to  victims has  increased in 
quality  following  establishment  of  such  procedures.  However,  there  is  a  general  agreement 
that  measuring  the  general  impact  is  challenging.  To  date,  only  a  limited  number  of 
Member States ensures assessment and evaluation of such mechanisms (such as, BE, CY, 
ES, UK - CZ evaluation is expected in 2016).  

Civil Society calls to focus on practice 

In this regard, the joint submission to the Report from La Strada International (LSI) NGO 
Platform  and  Global  Alliance  Against  Traffic  in  Women  (GAATW)  highlights  that  the 
monitoring of the implementation  of legislation and policies should not only  investigate  the 
transposition  of  the  legislation  on  paper,  but  especially  focus  on  how  the  policies  and 
measures work out in practice. They remind how important measures that protect the rights 
of victims and provide them with the tools they need to rebuild their lives - such as the non-
punishment  provision  and  the  right  to  compensation  -  are  often  included  in  national 
legislation, but scarcely realised in practice.  

Transnational  cooperation  is  also  essential  for  the  assistance,  support  and  protection  of 
victims  who  are  trafficked  outside  their  country  of  origin.  The  European  Commission  has 
provided financial support to Member States and international organisations to work for the 
improvement of the safe return and reintegration conditions of victims of trafficking to their 
countries of origin, and continues to provide political support.  

46 

 
 
 
 
 
Transnational Referral Mechanisms 
As part  of the EU Strategy, the European  Commission  is  financing a project of the IOM to 
develop  cooperation  and  models  for  such  transnational  referral  mechanisms123.  The 
overall  objective  of  the  project,  which  has  a  budget  of    more  than  500  000  EUR,  is  to 
contribute  to  the  improvement  of  the  safe  return  and  reintegration  conditions  of  victims  of 
trafficking returning from France, Greece, Italy, Poland and Spain to 3 priority countries, 
namely  Albania,  Morocco  and  Ukraine.  As  part  of  the  implementation  of  the  project,  a 
report jointly drafted with the CARE project management team, was published in November 
2015. The project will also develop models for transnational cooperation mechanisms.  

As regards the participation of the civil society in national and transnational cooperation 
mechanisms  an  overall  improvement  can  be  noted,  and  this  is  also  acknowledged  by  the 
Member States submissions for the Report. Nevertheless, submissions by the civil society call 
for more meaningful cooperation with the State authorities. 

Support and Protection of Victims in the Member States 

Portugal  reports  that  in  2013  a  Network  for  the  Support  and  Protection  to  Victims  of 
Trafficking  was 
together  governmental  and  nongovernmental 
organisations  working  on  trafficking  in  human  beings.  This  network  has  established  an 
effective  mechanism  of  cooperation  and  sharing  of  information  for  the  purposes  of 
prevention, protection and reintegration of victims. 

launched,  bringing 

4.2.3.  The use of EU large-scale IT systems for detecting and preventing trafficking in 

human beings 

A  relevant  cross-border  cooperation  mechanism  for  detecting  and  preventing  trafficking  in 
human beings is set up within the context of the Schengen Information System (SIS). SIS is 
the largest and most widely used database for cross-border information exchange on missing 
persons connecting 29 European countries. SIS currently contains more than 30 000 alerts on 
missing adults and almost 60 000 alerts on missing minors. Supplementary information on the 
details  of  the  case  are  exchanged  through  the  national  SIRENE  Bureaux,  24/7  operational 
Single  Points  of  Contact  in  all  countries  participating  in  SIS.  The  Commission  has 
recommended  to  Member  States  to  enter  automatically  all  missing  persons  into  SIS  in 
addition to their national wanted person database.  

SIS is a particularly important instrument for identifying and detecting child victims of 
trafficking,  including  unaccompanied  children  who  absconded  from  care.  Such 
vulnerable  children  easily  disappear  from  the  radar  if  they  cannot  be  properly  identified. 

123  https://ec.europa.eu/anti-trafficking/eu-projects-and-funding/transnational-action_en  

47 

 
 
 
 
 
 
 
                                                            
Fingerprints  are  the  most  reliable  identifiers  as,  contrary  to  name  details,  they  cannot  be 
modified. Fingerprints and photos can already now be attached to a SIS alert and in the future 
fingerprints may also be used to identify a person. The implementation of this functionality in 
SIS is foreseen for 2017. The ongoing review of SIS also envisages the clear categorisation of 
missing persons which would also include a dedicated category as "victim of trafficking" and 
"unaccompanied child". 

Within  the  context  of  prevention,  SIS  alerts  for  discreet  or  specific  checks  are  used  for 
tracking the movements of persons involved in the exploitation and trafficking of human 
beings. Such alerts may be issued for persons and their vehicles. Specific protective actions 
will be taking by police officers if they detect that the suspect is accompanied by vulnerable 
persons such as a children. 

Also other EU Large Scale IT systems, and in particular the Visa Information System (VIS), 
the  future  Entry  Exit  System  (EES)  and  Passenger  Name  Records  (PNR)  can  assist  in 
identifying victims of trafficking in human beings and detecting traffickers. When traffickers 
or victims are citizens of third countries and needing a visa, their identity and biometric data 
are  stored  in  the  VIS.  The  VIS  also  allows  linking  application  files  of  persons  that  travel 
together. For children this linking is required. When a person regularly requests a new visa or 
has  been  issued  with  a  multiple-entry  visa  and  is  travelling  repeatedly  with  different  'other' 
persons (for example other children), there could be a suspicion of trafficking. The biometric 
data in the VIS makes it furthermore impossible for multiple persons (looking alike) to travel 
on the same visa or passport. 

The future Entry Exit System (EES) will help in improving identification by storing data 
on  the  entry  and  the  exit  (place/date)  of  third-country  nationals  (with  their  identity  and 
biometrics), both visa exempt and visa holder. Persons having entered but having never left 
the Schengen Area will be reported as 'over-stayers'. When a victim of trafficking in human 
being  is  found  in  the  Schengen  Area,  EES  will  allow  identifying  the  person,  even  if 
undocumented, and will provide information concerning the travel history. In case a pattern is 
detected,  an  alert  for  discreet  or  specific  checks  could  even  be  created  in  the  SIS  on  the 
potential trafficker. 

4.2.4.  Assistance, support and protection 

The  Anti-Trafficking  Directive  sets  out  a  series  of  beneficial  provisions  for  the  assistance, 
support and protection of victims. Member States have broadly reported on numerous national 
measures  for  the  assistance  and  protection  of  victims,  ranging  from  material  assistance,  to 
psychological  assistance,  to  witness  protection  programmes,  vocational  training  and 
reintegration assistance, and child sensitive measures. It is important to ensure that victims 
have access to  the  full set of  rights and benefits provided for by EU legislation, in line 

48 

 
 
 
 
with the EU legislative framework on victims' rights (such as the Victims' Directive124 or 
the Employer's Sanctions Directive125).  

While some progress has been achieved in terms of provision and availability of services to 
victims,  access  to  and  realisation  of  the  rights  of  victims  of  trafficking  remains 
problematic,  as  reported  by  many  civil  society  submissions.  In  particular,  access  to 
compensation  and  the  principle  of  non-punishment  are  still  to  be  fully  implemented.  Civil 
society stresses the importance that a proper risk assessment should be an integral part of the 
National Referral Mechanisms, as required in the Directive.  

Gender  and  age-specific  assistance  and  support  remains  a  challenge  and  civil  society 
submissions  point  to  inadequacies  in  provision  of  services  in  a  gender  specific  manner,  as 
well as an overall scarcity of services provided to male victims of trafficking. 

Male victims in the Member States 

In Austria, the pilot project MEN VIA for male victims was launched in 2013 in reaction to 
the  first  GRETA  evaluation  in  2010/2011,  establishing  services  to  male  victims  of  labour 
exploitation.  Those  victims  also  receive  support  at  the  drop-in  counselling  centre  for 
undocumented employees UNDOK, run by an association of Trade Unions, the Chamber of 
Labour, the Austrian National Student Union (ÖH) and NGOs, also established in 2014. Both 
projects are financially supported by the Austrian Federal Ministry of Labour, Social Affairs 
and Consumer Protection. 

In particular, while recognising improvements, civil society expresses concerns over a lack of 
reception and accommodation systems that are gender specific. Victims have little privacy 
in  recovering,  and  sometimes  victims  with  prior  history  of  sexual  abuse  are  even  placed  in 
mixed  gender  facilities  and  are  exposed  to  risks  of  re-victimisation.  There  is  further  a 
particular lack of shelters appropriate to male victims of trafficking. 

Furthermore,  concerns  have  been  expressed  by  civil  society  on  the  treatment  of  victims 
during  criminal  proceedings,  where  they  are  subject  to  intimidation  and  questioning  that 
leads to their secondary victimisation. 

124  Directive  2012/29/EU  establishing  minimum  standards  on  the  rights,  support  and  protection  of  victims  of 
crime, http://eur-lex.europa.eu/legal-content/EN/TXT/?qid=1421925131614&uri=CELEX:32012L0029   
125  Directive  2009/52/EC  providing  for  minimum  standards  on  sanctions  and  measures  against  employers  of 
http://eur-lex.europa.eu/legal-

illegally 
third-country 
content/EN/TXT/?uri=CELEX%3A32009L0052  
For example back payments to be made by employers in accordance with Article 6 of the Directive. 

nationals, 

staying 

49 

 
 
 
 
 
 
  
                                                            
 
Rehabilitation programs for Victims in the Member States 

Sweden  reports  that  since  2009,  in  the  framework  of  coordination  and  cooperation  among 
actors  working  to  combat  all  forms  of  trafficking  in  human  beings  and  prostitution,  it  has 
developed  rehabilitation  programs  for  victims  of  trafficking  for  sexual  purposes  and 
prostitution.  In  this  context,  it  also  runs  a  safe  return  project  to  develop  measures  for  safe 
returns for victims of trafficking to their home countries, to make trafficking victims’ return 
safe, efficient and adequately organised so as to avoid the risk of re-trafficking. 

Some  Member  States  report  that  the  amount  of  state  compensation  provided  for  victims  of 
trafficking in human beings increased during the reporting period. For example, Italy reports 
that  in  2013  the  scope  of  the  national  anti-trafficking  fund  has  been  expanded  to  include 
compensation  measures  to  victims  that  cannot  be  compensated  by  the  perpetrators  of  the 
crime.  

GRETA reports that the majority of the 35 evaluated countries need to make improvements 
regarding  the  compensation  of  victims.  State  compensation  and  compensation  from  the 
perpetrator were identified as two of the ten main gaps in the implementation of the Council 
of  Europe  Convention  on  Action  against  Trafficking  in  Human  Beings.  GRETA  concludes 
that  very  few  victims  of  trafficking  receive  compensation  from  the  perpetrators,  the 
amounts  awarded  are  low  and  often  the  compensation  orders  are  not  enforced  because  the 
perpetrators  do  not  have  identifiable  assets.126  GRETA  has  welcomed  those  Member  States 
that  have  introduced  a  system  of  advance  payment  of  state  compensation  to  victims  of 
trafficking. 

4.2.5.  Child protection 

As highlighted previously in the report, child trafficking is steadily on the increase. While the 
EU Strategy calls for an approach based on an integrated child protection system, there 
is  evidence  that  there  is  limited  involvement  of  child  protection  services  in  referral 
mechanisms.  Member  States  report  on  child  sensitive  measures,  including  for  their 
identification, assistance and support. Overall, a low referral rate for children and lack of 
training by case handlers has been reported.  

In  the  context  of  the  Commission's  work  on  integrated  child  protection  systems,  the  EU 
Fundamental  Rights  Agency  carried  out  a  mapping  of  national  child  protection  systems  in 
EU28,  and  the  results  are  useful  in  seeking  to  strengthen  systems  in  order  to  better  protect 
children  from  trafficking  in  human  beings  as  well  as  other  forms  of  violence,  abuse  and 
exploitation.127 

126  Group  of  Experts  on  Action  against  Trafficking  in  Human  Beings  (GRETA),  4th  General  Report  on 

GRETA's activities, 2015 

 http://www.coe.int/t/dghl/monitoring/trafficking/Docs/Gen_Report/GRETA_2015_1_4thGenRpt_en.pdf  
127  http://fra.europa.eu/en/publications-and-resources/data-and-maps/comparative-data/child-protection 

50 

 
 
 
 
                                                            
Children in criminal proceedings 

The  EU  Fundamental  Rights  Agency128  reports  that  a  child  may  be  treated  in  an 
inappropriate manner if the professionals involved are not trained. According to the FRA, in 
one  case  “the  trafficker  was  allowed  to  directly  address  questions  to  the  victim.  The  judge 
attempted  to  say  “Do  you  have  legal  representation?”,  but  when  the  attorney  started  to  yell 
that he [was] not able to [ask] all the questions, that the trafficker [was] directly involved and 
that he should have the right to ask the victim, the judge remained silent. The trafficker [then] 
addressed the victim directly. I was right next to [the child trafficking victim] and I saw her 
reaction.  She  didn’t  know  what  to  do,  to  answer  or  not,  especially  since  the  questions 
formulated by the trafficker weren’t  related to  the  offence, but  to  the identity of the victim. 
His purpose was to find the identity [...] and, at the end, he called her by her name, he said, “I 
know who you are” and he said her name. The child was almost about to faint on the chair.” 
(Romania, psychologist, female)”. 

In this regard, the Commission Study on Children's involvement in judicial proceedings 
in  EU28129  is  also  relevant.  Some  of  the  findings  include  that,  for  instance,  in  half  of  the 
Member  States  children  cannot  directly  access  judicial  proceedings;  they  always  need  legal 
representation or a guardian who has legal representation. Additionally, not all Member States 
have  specialised  institutions  for  children  in  justice,  but  some  have  specialists  in  non-
specialised  institutions.  The  study  shows  that  it  is  helpful  to  have  specialists/specialised 
institutions as they are used to dealing with children. The study finds that child victims and 
witnesses  are  often  dealt  with  in  ordinary  courts,  without  any  specialisation  (for  13  MS), 
signalling a lack of adaptation to the needs of child victims. The right to be heard seems to be 
codified in nearly all Member States (child suspects in 21 Member States, child witnesses in 
17 Member States), but several restrictions to the right were found, relating to for instance the 
branch of law and age restrictions. 

Civil  society  highlights  the  inadequate  procedures  and  consideration  of  finding  durable 
solutions  for  child  victims  of  trafficking.  Problems  persist  with  appropriately  appointing 
guardians for child victims. As regards guardianship for child victims deprived of parental 
care, the European Commission notes a diversity of practices across the EU. According to the 

128  Fundamental Rights Agency (FRA), Child-friendly justice – Perspectives and experiences of professionals on 
children’s  participation  in  civil  and  criminal  judicial  proceedings  in  10  Member  States,  2015, 
http://fra.europa.eu/en/publication/2015/child-friendly-justice-perspectives-and-experiences-professionals-
childrens  

129  Reports:http://bookshop.europa.eu/children-in-criminal-judicial-proceedings; 
http://bookshop.europa.eu/children-in-administrative-judicial-proceedings;  
http://bookshop.europa.eu/children-in-civil-judicial-proceedings;  
Data: www.childreninjudicialproceedings.eu  

51 

 
 
 
 
 
 
                                                            
EU  Fundamental  Rights  Agency130,  the  lack  of  a  uniform  approach  to  guardianship, 
despite provisions in national and international law, often results in less than adequate support 
and protection for the children the systems were set up to protect, while migration and asylum 
law  also  often  overrides  child  protection  law.  Such  diversity  of  practices  can  be  in 
contravention  with  the  best  interests  of  the  child.  For  example,  the  time  taken  to  appoint 
guardians  and  the  process  itself  vary  considerably,  lasting  up  to  one  year.  The  prompt 
appointment of a representative/guardian from the moment a child is identified/registered or 
detected  is  recommended  as  a  good  practice  which  may  help  to  avoid  children  absconding, 
and help protect the child from becoming or continuing to be a victim of trafficking.  

Furthermore, requirements on qualifications and skills tend to be very general, and systematic 
training  is  lacking,  particularly  with  respect  to  the  needs  of  trafficked  children.  In  addition, 
laws tend to only define the duties and tasks of guardians in general terms, except for the duty 
to legally represent children. As a result the way in which common tasks are performed, such 
as taking care of the child’s education and healthcare, may vary significantly: some guardians 
accompany children to doctors’ meetings, others do not; some never even meet the child. 

The  Anti-Trafficking  Directive  stipulates  that  children  are  more  vulnerable  than  adults  and 
therefore  at  greater  risk  of  becoming  victims  of  trafficking  in  human  beings.    However,  in 
their  migration  and  residence  status  often  determines  guardianship  and 
practice, 
representation arrangements. In this regard, despite the importance of having specialised legal 
aid for child victims of trafficking, specialist lawyers are rare and often unavailable. Finally, 
although all Member States have systems for monitoring and supervising guardians, they are 
often poorly structured and inefficient. In addition, complaint mechanisms are missing.  

Identifying Child Victims of Trafficking in the Member States 

The UK Anti-Trafficking Monitoring Group (ATMG)131, in  its proposal for a revised NRM 
for children, highlights that a new approach to identifying child victims of trafficking should 
be  based  on  multi-agency  working  and  information  sharing.  It  should  be  a  statutory  model 
that puts a child’s best interests and victim rights at the heart of any decision, removing the 
conflation  with  the  asylum  system  in  many  cases,  and  be  embedded  within  existing  child 
protection systems. By building on existing child protection structures that are proven to work 
well, it could ensure a cost-effective approach that decentralises the NRM process. 

130  Fundamental  Rights  Agency  (FRA),  Guardianship  systems  for  children  deprived  of  parental  care  in  the 
European  Union,  -  With  a  particular  focus  on  their  role  in  responding  to  child  trafficking,  2015 
http://ec.europa.eu/anti-trafficking/eu-policy/report-guardianship-systems-children-deprived-parental-care-
european-union_en 

131  The  eleven  organisations  belonging  to  the  ATMG  are:  AFRUCA  (Africans  Unite  Against  Child  Abuse), 
Amnesty International UK , Anti-Slavery International, Bawso, ECPAT UK, Focus on Labour Exploitation 
(FLEX),  Helen  Bamber  Foundation,  Kalayaan  ,  POPPY  Project  (of  Eaves  Housing  for  Women),  TARA 
project (Trafficking Awareness Raising Alliance, of Community Safety Glasgow (CSG) , UNICEF UK. 

52 

 
 
 
 
                                                            
From  the  above,  it  becomes  evident  that  an  integrated  approach  to  child  protection  that  is 
anchored in the rights of the child, including the best interests of the child is clearly needed, as 
set out in the 10 principles for integrated child protection systems132 .  

4.2.6.  Links between the protection of victims of trafficking and asylum procedures 

While the Anti-trafficking Directive obliges the Member States to set up systems for the early 
detection,  identification  and  assistance  to  victims,  the  recently  adopted  EU  Asylum 
Procedures Directive and Reception Conditions Directive133 introduces obligations to swiftly 
identify  and  provide  adapted  support  to  vulnerable  applicants  including  victims  of 
trafficking in human beings. Both sets of provisions strengthen the possibilities for victims 
to  seek  protection.  According  to  the  European  Migration  Network134,  around  half  of  all 
Member  States  have  some  data  on  victims  detected  when  in  international  protection 
procedures, but the data sources are inconsistent and incomplete, making it difficult to give a 
comprehensive  picture  of  the  scope  of  the  problem  at  EU  level.  Nonetheless,  the  fact  that 
there  is  evidence  of  victims  going  unidentified  may  mean  that  they  are  not  granted  the 
protection  and/or  assistance  available  to  them  under  EU  law.  In  this  regard,  EASO  has 
developed a tool135 to identify persons with special needs, including victims of trafficking. 
Member States should use this tool as part of the implementation of the obligations under the 
Asylum Procedures Directive and Reception Conditions Directive. 

The  Common  European  Asylum  System  seeks  to  implements  the  principle  of  the  best 
interests  of the  child  and  contains  specific  safeguards  and guarantees which  help to  prevent 
and combat the trafficking of unaccompanied children. According to Article 6 of the recast 
Asylum Procedures Directive (2013/32/EU), the best interests of the child shall be a primary 
consideration  for  Member  States  with  respect  to  all  asylum-related  procedures.  In  assessing 
the best interests of the child, Member States shall take due account inter alia of safety and 
security  considerations,  in  particular  where  there  is  a  risk  of  the  minor  being  a  victim  of 
human  trafficking.  As  foreseen  in  article  24  of  the  recast  Reception  Conditions  Directive 
(2013/33/EU)  and  in  article  25  of  the  Asylum  Procedures  Directive  (2013/32/EU, 
unaccompanied children seeking asylum have to be provided with a representative as soon as 
they  have  applied  for  asylum.  The    EU  legislation  does  not,  however,    provide  for  the 
appointment of a representative from the moment when an unaccompanied minor is detected 
by the authorities. 

132  See:  http://ec.europa.eu/justice/fundamental-rights/rights-child/protection-systems/index_en.htm  and  10 

principles: http://ec.europa.eu/justice/fundamental-rights/files/2015_forum_roc_background_en.pdf  

133  See Directive 2013/33/EU laying down standards for the reception of applicants for international protection, 
http://eur-lex.europa.eu/legal-content/EN/ALL/?uri=CELEX:32013L0033,  and  Directive  2013/32/EU  on 
common  procedures  for  granting  and  withdrawing  international  protection,  http://eur-lex.europa.eu/legal-
content/EN/ALL/?uri=CELEX:32013L0032. 

134  European Migration Network (EMN), Identification of victims of trafficking in human beings in international 
protection  and  forced  return  procedures,  March  2014,  http://ec.europa.eu/anti-trafficking/publications/emn-
study-identification-victims-trafficking-human-beings-international-protection-and_en  

135  https://ipsn.easo.europa.eu/  

53 

 
 
 
 
                                                            
While all Member States offer the possibility to refer identified victims to service providers 
for support, and some offer a choice of protection possibilities, more remains to be done in 
order  to  ensure  that  the  international  protection  systems  communicate  with  the  anti-
trafficking  systems  in  place,  and  that  mechanisms  and  processes  within  the  asylum  and 
migration  system  are  not  abused  by  traffickers  (as  reported  by  Europol136).  Designing 
coordinated protocols with the involvement of different trained actors and institutions could 
be useful to make this link more effective.  

Civil  society  reports  that  traffickers  have  abused  the  asylum  systems  for  residency  and 
accommodation  while  simultaneously  trafficking  victims137.  Europol  further  reports  that 
"in some cases, victims are placed in refugee shelters following their asylum application, from 
where  they  suddenly  disappear  and  are  transferred  to  other  Member  States  by  their 
traffickers"138.  

It is reported in civil society submissions that women from Nigeria only revealed themselves 
as  victims  of  trafficking  in  human  beings  after  their  asylum  claim  has  been  rejected  by 
asylum authorities and their appeal was also then rejected. Civil society submissions call for 
more action in this respect, as many of the victims they directly work with, seem to have 
valid asylum claims. They call for ensuring that the identification of vulnerabilities of these 
victims takes places early in the procedures, in particular as regards procedural guarantees and 
reception conditions thus allow them to better prepare for the interview. Finally, they call for 
more integration between asylum and trafficking procedures and systems. 

All victims must be treated equally and must be at the core of anti-trafficking policies. 
Victims must be considered primarily as rights holders, and access to and realisation of 
their rights must be ensured. 

136  Europol  Knowledge  Product,  Trafficking 

in  Human  Beings 

in 

the  European  Union,  2011, 

https://www.europol.europa.eu/content/publication/trafficking-human-beings-european-union-2011-1507  
137 Immigrant Council of Ireland, Submission on the accommodation needs of adult victims of sex trafficking in 
Ireland,  September  2014,  http://immigrantcouncil.ie/files/publications/21d36-proposal-for-housing-of-adult-
victims-of-sex-trafficking.pdf   

138 Europol Situation Report: Trafficking in human beings in the EU, February 2016,  https://ec.europa.eu/anti-

trafficking/sites/antitrafficking/files/situational_report_trafficking_in_human_beings-_europol.pdf  

54 

 
 
 
 
 
 
 
                                                            
4.3.  Prevention 

The  investigation,  prosecution  and  conviction  of  traffickers are  essential  tools to  addressing 
trafficking in human beings. However, these tools come into play once the crime has already 
been  committed  and  victims  have  already  suffered  a  serious  violation  of  their  fundamental 
rights. The final objective of eradication of trafficking in human beings can only be achieved 
if the crime is prevented from happening in the first place and using the wide range of 
available tools at EU and national level.  

Trafficking  in  human  beings  is  a  demand  and  profit  driven  crime.  Prevention  must  be 
placed in the wider context of a crime being driven by profits and demand. A human rights-
based approach focusing on victims needs to address prevention appropriately and effectively, 
and discourage the demand that fosters all forms of trafficking, as clearly stipulated in 
the Anti-trafficking Directive. This means not only addressing the root causes that make 
people  more  vulnerable  to  trafficking  –  such  as  poverty,  gender  inequality  and  violence 
against women, ethnic discrimination, societal marginalisation, irregular migration – but also 
ensuring  that  those  who  profit  from  the  crime  and  exploit  the  victims  are  brought  to 
justice.  

As  highlighted  by  Europol  ,  "The  constant  demand  for  services  associated  with  sexual  and 
labour  exploitation  and  persistent  socio-economic  inequalities  between  the  developed  and 
developing  world  drive  human  trafficking".  Trafficking  in  human  beings  takes  place 
because  there  is  a  demand  for  services  associated  with  sexual  and  labour  exploitation, 
and  because  it  is  a  highly  profitable  form  of  organised  crime.  A  joint  civil  society 
submission139  to  the  Report  considers  that  prostitution  and  trafficking  for  sexual 
exploitation are inextricably linked, and that without a prostitution market, there would 
be no profit to be made by the traffickers exploiting women and girls in the sex industry. 

For  all  these  reasons,  prevention  of  trafficking  in  human  beings  is  one  of  the  pillars  of  the 
Anti-trafficking Directive. Article 18 obliges Member States to "take appropriate measures, 
such  as  education  and  training,  to  discourage  and  reduce  the  demand  that  fosters  all 
forms  of  exploitation  related  to  trafficking  in  human  beings".  Among  those  measures, 
Member  States  shall  take  appropriate  action,  including  via  the  Internet, such  as  information 
and  awareness-raising  campaign,  education,  training.  Also,  Member  States  shall  consider 
taking measures to establish as a criminal offence the use of services of victims of trafficking, 
when the user knows that the person is a victim.  Stepping up prevention is also one of the 
priorities of the EU Strategy.   

139  Equality Now, European Women's Lobby, Amical du Nid, Immigrant Council of Ireland, Herzwerk, Nuorten 
Exit,  Marta  Resource  Centre,  Mediterranean  Institutite  for  Gender  Studies,  Eaves,  Mouvement  du  Nid, 
Ruhama, Iroko onlus.   

55 

 
 
 
 
                                                            
This approach has been endorsed by the Council of the European Union140, which called on 
Member  States  to  "promote  further  policies  to  reduce  demand  that  fosters  all  forms  of 
exploitation  related  to  trafficking  in  human  beings".  This  is  also  in  line  with  the  European 
Parliament's Resolution of 26 February 2014 on sexual exploitation and prostitution and its 
impact on gender equality (2013/2103(INI)141.  

Prevention  was  also  at  the  fore  of  discussions  on  integrated  child  protection  systems  at  the 
2015  European  Forum  on  the  rights  of  the  child,  where  the  expert  discussions  were  of 
direct relevance also to efforts to eliminate trafficking of children142. 

4.3.1.  Factors contributing to vulnerability  

Addressing  the  underlying  factors  which  make  people  more  vulnerable  to  trafficking  and 
foster demand for exploitation remains a key challenge.   

The study on high risk groups of trafficking in human beings143, a deliverable of the EU 
Strategy,  found  that  two  crucial  individual  factors  -  a  history  of  abuse  and  a  vulnerable 
emotional  state  -  could  often  be  traced  back  to  a  dysfunctional  family  situation, 
underpinned by material deprivation. Trends identified by the Study include: ever younger 
children  becoming  victims  of  trafficking,  growing  numbers  of  girls  from  Nigeria  being 
victims of sexual exploitation, an increase in the number of unaccompanied asylum-seeking 
children  who  are  at  risk  of  being  trafficked,  a  growing  number  of  cases  of  children  with 
cognitive and developmental disabilities being victims of trafficking, and a growing  number 
of boys in both sexual and labour exploitation. Furthermore, the study notes that child victims 
of  sexual  exploitation  can  end  up  being  exploited  as  adults  in  the  prostitution  sector. 
Additionally,  the  study  calls  for  more  focus  on  addressing  demand  that  fuels  child 
trafficking in all its forms.  

Study on prevention initiatives on trafficking in human beings 

The European Commission has published a  Study on prevention initiatives on trafficking 
in human beings144, also as a deliverable of the EU Strategy, which examined 43 prevention 
initiatives, of which  a  share of 40 %  concerned actions in Romania, Bulgaria and Hungary. 
The  vast  majority  (around  85  %  of  the  given  sample)  targeted  information  and  awareness-
raising  measures  followed  by  capacity  building  and  research  and  education  programmes. 
Among the key findings of the study is that there is no gold-standard for assessing the impact 
of  prevention  actions,  but  rather  that  a  comprehensive  and  contextual  approach  should  be 

140  Council conclusions on the new EU Strategy towards the Eradication of Trafficking in Human Beings 2012–
2016, 
https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/council_conclusions_on_the_new_eu_strategy_towards_the_eradication
_of_trafficking_in_human_beings_2012_-_2016_1.pdf    

October 

2012, 

25 

141  http://www.europarl.europa.eu/sides/getDoc.do?type=TA&language=EN&reference=P7-TA-2014-0162  
142  http://ec.europa.eu/justice/fundamental-rights/rights-child/european-forum/ninth-meeting/index_en.htm  
143  http://ec.europa.eu/anti-trafficking/node/4921  
144  http://ec.europa.eu/anti-trafficking/publications/study-prevention-initiatives-trafficking-human-beings_en  

56 

 
 
 
 
                                                            
followed.  The  study  found  that  more  can  be  done  on  research  and  education  that 
addresses  the  link  between  the  organised  crime  dimension  of  trafficking  in  human 
beings and the  supply/demand dynamics, as well  as the training  of police officers, judges 
and  prosecutors  with  regard  to  capacity  building  initiatives.  The  study  further  demonstrates 
that  a  needs  assessment  prior  to  project  design  is  key  and  provides  a  model  for  designing 
prevention initiatives using the tool of Project Cycle Management. Finally, the study provides 
a set of questions to be addressed when deciding to allocate funding for prevention initiative 

Member States reported extensive action on prevention measures in many of the different 
areas  mentioned  in  Article  18  of  the  Anti-trafficking  Directive.  These  measures  range 
from information and awareness raising campaigns, research and education programs, training 
of  officials,  and  legislative  measures  to  discourage  demand.  According  to  the  information 
provided  by  all  Member  States,  there  is  a  plethora  of  actions  on  training  and 
information/public  awareness. Greece, for example,  stresses the importance of prevention 
actions that use art and culture as avenues for prevention, while other Member States (such as 
AT,  CY,  EL,  PT)  stress  the  importance  of  reaching  out  to  an  audience  which  is  as  wide  as 
possible. Other Member States stress the need to focus on actions preventing trafficking in 
human  beings  in  countries  of  origin,  and  other  focus  on  online  recruitment  and 
advertising.  

Awareness raising activities in the Member States 

In Cyprus, the Office of the Police against Trafficking in Human Beings organised a market 
with  the  title  “look,  hear,  feel...react”.  The  aim  was  to  sensitise  the  public  regarding 
trafficking in human beings and to raise funds for the creation of a Fund for the Support of 
Victims. 

Greece highlights that awareness campaigns and trans-media interventions are empowered by 
cultural  creativity.  Culture  and  the  Arts  are  the  most  innovative  tools  to  reflect  on  our 
responsibilities as citizens (both as part of the problem and as part of the solution). In this way 
campaigns  affect  larger  audiences  and  may  reduce  demand  as  well  as  promote  a  zero 
tolerance  public  perception  towards  trafficking  in  human  beings.  It  is  also  a  formidable 
platform  for  synergies:  for  example  the  Attendants  Project,  presented  at  the  EU  Parliament 
during  the  Hellenic  Presidency,  is  a  prime  example  of  how  a  documentary  film-maker 
tackling the sensitive issue of prostitution and commercial sexual exploitation, is not confined 
to the narrow boundaries of interviewing potential victims and clients but also organizes art-
therapy interventions and victim counselling in cooperation with an NGO shelter. The same is 
true for the theatre performance ‘Sex Trafficking’, based on real testimonies and narratives of 
victims  supported  by  NGOs.  This  group  of  activist  performers  and  actors  organised  this 
performance  at  the  margins  of  several  occasions  and  events  (such  as  EU  Anti  Trafficking 
Day) delivering a very strong and graphic message to various audiences.  

However,  to  effectively  implement  Article  18  of  the  Anti-Trafficking  Directive,  there  is  a 
need to know and measure the results and impact of those prevention measures. At this 

57 

 
 
 
 
moment,  little  is  known  about  the  actual  impact  of  measures  for  curbing  demand  for 
trafficking  in  human  beings.  Despite  the  large  number  of  measures  and  campaigns 
developed,  many  Member  States  (such  as  AT,  BG,  CY,  DK,  EE,  IE,  MT)  report  that  it  is 
difficult to measure the impact of such activities and many do not conduct such evaluations, 
while others (such as BE, CY, DK, ES, PT, SE, SK, UK) have proceeded into evaluations of 
their general National Action Plans or relevant prevention campaigns. Some Member States 
note that there is anecdotal evidence or a general presumption that overall public awareness 
has increased. 

Evaluating action in the Member States 

Law 60(I)/2014 in Cyprus provides for an independent external evaluator, who is defined as 
the equivalent of the National Rapporteur. The Republic of Cyprus has not yet appointed the 
independent external evaluator, but is in the process of doing so. Until then, the competencies 
of  the  National  Rapporteur  or  equivalent  mechanism  continue  to  be  exercised  by  the 
Multidisciplinary Coordinating Group against trafficking in human Beings. 

Denmark reports that the National Action Plan has been externally evaluated, which resulted 
in a range of recommendations. For example, the evaluation recommended that the  areas of 
child-trafficking  should  be  given  more  attention,  and  the  question  of  trafficking  to  forced 
labour  should  be  further  developed,  as  should  the  question  of  how  to  deal  with  victims  of 
trafficking caught in criminal activities. 

Portugal has developed and implemented three successive National Plans against trafficking 
in  Human  Beings  since  2007.  These  Plans  are  structured  in  different  strategic  areas  of 
intervention  each  with  its  own  implementation  measures,  linked  to  result  indicators.  On  the 
basis  of  these  indicators,  it  was  possible  to  carry  out  an  external  evaluation  of  the  second 
National Plan that could assess to what extent the envisaged actions have been implemented 
and what their impact was. 

In  Slovakia  an  evaluation  of  the  National  Program  of  Combating  THB  is  performed  each 
year, and is accessible in on the official website. The website also includes the evaluation of 
the Program of Support and Protection of THB victims.   

Some Member States note an increase in reporting of cases of trafficking in human beings 
following training for frontline staff. Other Member States use also measures to empower 
victims,  such  as  education,  vocational  training,  and  job placement. However,  it  remains 
unclear if such measures focusing on victimised persons could have an impact on preventing 
re-trafficking. It further remains questionable as to whether they prevent trafficking from 
happening  in  the  first  place,  and  whether  they  reduce  the  demand  for  the  services  of 
victims. 

More specifically, submissions by the civil society underline the ad-hoc nature of training 
activities, the  lack  of  specialised training, and call for their integration in broader and 

58 

 
 
 
 
 
obligatory  training  systems,  as  the  current  plethora  of  ad-hoc  initiatives  has 
questionable  sustainability. Also, it is important to  stress  the need  for tailor-made  training 
activities, addressing particular dimensions and specificities of different forms of trafficking. 
It  is  crucial  that  the  training  is  targeted  towards  those  relevant  actors  who  have  a  specific 
mandate  to  work  against  trafficking  in  human  beings,  so  the  training  allows  them  to 
incorporate  the  knowledge  gained  and  develop  long-term  strategies  on  how  to  best  address 
this  crime.  Civil  society  submissions  suggest  developing  a  directory  of  training 
opportunities and providers. Of note, a child rights/child protection dimension is reported 
as often absent in offered training.  

Some Member States (such as, DK, EE, FI, LT, SK) report that prevention activities, both in 
terms of capacity building and training, mainly focus on trafficking for labour exploitation, 
though  in  all  Member  States  the  most  prevalent  form  of  trafficking  reported  is  sexual 
exploitation. 

Further, Member States highlight the role of the private sector in preventing trafficking in 
human beings. The commitment of the business sector in ensuring supply chains free from 
exploitation is essential in this respect. Of equal importance is the role of business in reporting 
suspicious  practices  related  to  trafficking  in  human  beings  when  their  businesses  are  being 
used  as  facilitators  of  the  crime  by  traffickers.  This  category  could  include  hotels,  bars, 
restaurants, travel agencies, air companies and other transport enterprises, to mention a few.  

Civil Society reflections on awareness-raising activities by the Member States 

The  joint  civil  society  submission  to  the  Report  by  LSI  NGO  Platform  and  GAATW 
considers that the majority of the campaigns developed by Member States  and international 
organisations  are  mainly  aimed  at  warning  people  of  the  dangers  of  human  trafficking,  and 
that, at times, they seem to have a hidden goal, not just to prevent human trafficking but to 
prevent irregular migration. According to these organisations, prevention of trafficking should 
primarily  be  about  addressing  the  root  causes.  Next  to  the  root  causes  in  the  countries  of 
origin,  such as  poverty, unequal gender relations, traditional social  structures, there are root 
causes during the migration process, such as the lack of safe and regular migration channels; 
and  there  are  root  causes  in  the  countries  of  destination,  such  as  the  demand  for  cheap  and 
exploitative (irregular) labour in combination with strict immigration and increased repressive 
policies towards undocumented persons.  

4.3.2.  Criminalisation of the use of services of victims  

A dimension that Member States have focused on less is that of legislative change targeting 
those  who  use  services  of  victims  of  trafficking.  Article  18(4)  of  the  Anti-trafficking 
Directive encourages the Member States to consider criminalising the use of services of 
victims  of  trafficking  (in  the  knowledge  that  they  are  trafficked).  So  far,  approximately 
half  of  Member  States  have  not  done  it;  therefore  they  do  not  treat  the  cognisant  use  of 
services which are the objects of exploitation of victims of trafficking as a criminal offence.  

59 

 
 
 
 
It should be noted that the Report and this accompanying Staff Working Document do not aim 
to examine the compliance of Member States with their obligations stemming from Article 18 
of  the  Directive.  Rather,  this  issue  will  be  addressed  in  a  separate  report,  as  required  under 
Article  23.  The  information  included  in  the  following  part  is  not  exhaustive  and  does  not 
prejudge in any way the findings of the European Commission.  

It  has  to  be  recalled  that  such  form  of  criminalisation,  though  with  a  specific  and  narrower 
scope,  has  already  been  introduced  and  implemented  in  another  EU  legal  instrument,  the 
Employers’ Sanctions Directive145, which has established that Member States must impose 
criminal  sanctions  on  employers  who  use  the  work  or  services  of  illegally  staying  third-
country nationals in the knowledge that they are victims of trafficking. In addition, the Child 
Sexual Abuse Directive146 obliges Member States to criminalise engaging in sexual activity 
with a child where recourse is made to child prostitution and to provide for minimum levels of 
imprisonment penalties depending on the age of the child, thus targeting the client of children 
in prostitution. This should in turn help indirectly the fight against child trafficking for sexual 
exploitation,  as  national  authorities  do  not  need  to  prove  the  existence  of  the  different 
components  in  the  trafficking  offence,  nor  the  awareness  of  the  client  about  the  trafficking 
condition of the victim. 

Taking this into account, not criminalising in general those who knowingly use the services of 
victims of trafficking which are not illegally staying third-country nationals or who are child 
victims  exploited  in  prostitution  can  be  seen  as  a  legal  gap  in  the  EU  legal  system,  and 
raises  questions  as  to  whether  it  creates  and  contributes  to  a  culture  of  impunity  for 
those  who  knowingly  use  victims  in  other  situations.    As  Europol  highlights,  “social 
tolerance or a lack of public awareness can create a more permissive environment for certain 
crimes.  In  the  context  of  THB,  a  general  tolerance  towards  exploitative  conditions  –  in 
particular when it concerns foreign workers  – may facilitate the perpetration of such crimes 
and increase the likelihood of exploitation by criminals”147  

The Dutch National Rapporteur notes that she has been recommending the criminalisation 
of clients of prostitutes who are victims of human trafficking since 2011, considering that to 
combat human trafficking effectively, the demand side of the prostitution sector must also be 
addressed148.  She  therefore  recommends  that  it  should  be  made  a  criminal  offence  for  a 

145  Directive  2009/52/EC  providing  for  minimum  standards  on  sanctions  and  measures  against  employers  of 
http://eur-lex.europa.eu/legal-

nationals, 

illegally 
third-country 
content/EN/TXT/?uri=CELEX%3A32009L0052  

staying 

146  Directive  2011/93/EU  on  combating  the  sexual  abuse  and  sexual  exploitation  of  children  and  child 

pornography, http://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex%3A32011L0093 

147  Europol Situation Report: Trafficking in human beings in the EU, February 2016,  https://ec.europa.eu/anti-

trafficking/sites/antitrafficking/files/situational_report_trafficking_in_human_beings-_europol.pdf 

148  Dutch  National  Rapporteur  on  Trafficking  in  Human  Beings  and  Sexual  Violence  against  Children, 
Trafficking  in  Human  Beings:  Ninth  report  of  the  Dutch  National  Rapporteur,  The  Hague,  2013, 
http://www.dutchrapporteur.nl/reports/ninth/  

60 

 
 
 
 
 
                                                            
person  to  use  the  sexual  services  of  another  person  for  payment,  when  these  persons 
knows or should reasonably suspect that the other person is being forced or coerced to 
provide those services. 

Finland  reports  that  the  Criminal  Code  prohibits  buying  sex  from  a  person  who  has  been 
trafficked or procured, and considers that a partial ban on buying sex is not well suited for 
preventing  or  curbing  human  trafficking  for  the  purpose  of  sexual  exploitation.  The 
criminal  investigation  authorities  and  prosecutors  have  an  important  task  to  perform  in  this 
respect,  in  order  to  enable  criminal  liability  for  sexual  offences  to  be  brought  to  trial  in  the 
first place149. 

In  this  regard,  many  civil  society  submissions  to  the  Report  draw  attention  to  the 
particularities of trafficking for the purpose of sexual exploitation, and the links with the 
sex  industry.  They  note  that it is  a  step  in  the right  direction  to  acknowledge  that not  only 
traffickers  and  those  who  profit  from  the  exploitation  of  the  prostitution  of  others  are  to  be 
held  liable,  but  also  those  who  purchase  sexual  services.  However,  some  civil  society 
organisations  note that it may still prove only partially  effective as a  measure to discourage 
demand. This is why they suggest considering the links with the purchase of sex and the sex 
industry  as  a  whole,  as  an  economic  sector  in  which  trafficking  occurs.  They  call  for 
decriminalising  the  people  in  prostitution  and  criminalising  demand  for  paid  sex  as  an 
approach  to  effectively  address  discouraging  demand.  Furthermore,  other  civil  society 
organisations  recommend  that  policies  on  trafficking  in  human  beings  and  on  prostitution 
policies should not be conflated, and highlight the need to ensure that the complexities behind 
both are addressed, i.e. what renders people invisible, unprotected and disempowered. 

Civil Society Reflections on the Criminalisation of those who knowingly use the servicers 
of victims of trafficking 

The Joint civil society submission to the Report from networks and organisations working 
in  Europe  and  beyond  on  the  issues  of  human  trafficking  and  commercial  sexual 
exploitation150 highlights that, despite the strict division drawn by some between prostitution 
and trafficking for sexual exploitation, in reality, this is difficult to establish when it comes to 
those who buy sex. There is not a clearly defined, separate demand for victims of trafficking 
versus demand for women perceived to be in prostitution voluntarily. 

They  consider  that  the  inclusion  of  Article  18(4)  in  the  Anti-trafficking  Directive,  and  the 
introduction  or  discussion  of  such  offences  in  some  Member  States,  is  a  step  in  the  right 

149  Finnish National Rapporteur on Trafficking in Human Beings, Report 2014, Publication 16, 
http://ec.europa.eu/anti-

trafficking/sites/antitrafficking/files/national_rapporteur_on_trafficking_in_human_beings_-
_report_2014.pdf  

150  Equality Now, European Women's Lobby, Amical du Nid, Immigrant Council of Ireland, Herzwerk, Nuorten 
Exit,  Marta  Resource  Centre,  Mediterranean  Institute  for  Gender  Studies,  Eaves,  Mouvement  du  Nid, 
Ruhama, Iroko onlus.   

61 

 
 
 
 
                                                            
direction and an important recognition that it is not only traffickers and pimps who are 
responsible  for  the  exploitation  of  people  in  prostitution,  but  also  those  who  buy  sex. 
They are, however, concerned that such partial and conditional criminalisation of the purchase 
of sex, applying only in cases where the person in prostitution is recognised by the authorities 
as a victim of trafficking or procurement, is difficult to implement and not effective enough in 
reducing  exploitation,  improving  the  position  of  people  in  prostitution  or  promoting  gender 
equality. This might not go far enough and does not send the unequivocal message that people 
are not for sale. Some Member States which have experimented with this offence have since 
come to the same conclusion and have already or are moving towards full criminalisation of 
the purchase of sex. 

According  to  the  submission,  Member  States  addressing  the  root  causes  of  trafficking  for 
sexual  exploitation  by  criminalising  the  demand  for  paid  sex  and  decriminalising  people  in 
prostitution  are  most  effectively  fulfilling  their  legal  obligation  under  Article  18(1)  of  the 
Anti-trafficking Directive to discourage the demand that fosters exploitation related to human 
trafficking.  On  the  other  hand,  they  consider  that  the  legalisation  approach  taken  by  some 
other  Member  States  has  done  nothing  to  reduce  demand  for  exploitation  or  improve  the 
situation of victims, and has in fact arguably encouraged it.  

These  organisations  consider  that  the  Member  States  should  move  beyond  the  minimum 
suggested by the Anti-Trafficking Directive and fully criminalise the purchase of sex, while 
decriminalising and providing support for those selling sex, including exiting prostitution.  

Based on the above, it is acknowledged that prostitution is a high-risk sector for trafficking in 
human beings, such as the construction industry, agriculture, and others are.  

Study on the Gender Dimension of Trafficking in Human Beings 

As  reported  in  the  Study  on  Gender  Dimensions  of  trafficking  in  human  beings151, 
"demand reduction is a strategy to prevent trafficking by reducing the economic attraction of 
the institutions into which people may be coerced by traffickers. In the case of trafficking for 
purposes  of  sexual  exploitation,  the  most  important  institution  is  prostitution".  This  study 
addressed,  among  others,  the  ways  that  the  different  forms  of  regulation  of  prostitution 
might  reduce  demand  for  the  services  of  people  trafficked  into  prostitution.  The 
regulation  of  prostitution  is  centred  on  one  or  more  of  three  targets:  those  who  sell  sex/are 
sold; those who engage in the exploitation of the prostitution of others; and the buyers of sex. 
Demand  reduction  through  the  regulation  of  prostitution  can  logically  be  centred  either  on 
those that seek to exploit by taking profit (e.g. rent or fees) from prostitution or on the men 
(usually) who seek to buy sex. It is sometimes focused on reducing the forms of prostitution 
that are likely to have a greater association with trafficking and other forms of criminality and 
sometimes focused on prostitution in general.  

151  https://ec.europa.eu/anti-trafficking/eu-policy/study-gender-dimension-trafficking-human-beings_en   

62 

 
 
 
 
                                                            
There are variations in the form of regulation of prostitution over time and between Member 
States. Recently, in the EU, there has been a substantial move to de-criminalise the seller of 
sex so that in most Member States selling sex is not always illegal. Most Member States have 
decriminalised  the  sale  of  sex  (with  some  exceptions);  maintain  the  criminalisation  of  the 
exploitation  of  the  prostitution  of  others;  and  criminalise  the  purchase  of  sex  in  specific 
circumstances, including from minors. The Netherlands and Germany have permitted some 
profit-taking  from  prostitution,  combined  with  high  levels  of  surveillance  and  regulation. 
Sweden has criminalised the purchase of sex. The Study concludes that "changes in the legal 
regulation of specific forms of profit-taking from prostitution have resulted in less trafficking 
in this sector than in the non-regulated and illegal sectors. The best statistics available suggest 
the overall scale of prostitution is larger in Germany and the Netherlands than in Sweden. 

This correlation between the decriminalisation of profit-taking in prostitution and its scale is 
consistent  with  the  claim  that  this  aspect  of  decriminalisation,  however  well-regulated,  is 
causally  connected  to  a  larger  proportion  of  prostitution  in  the  population.  Reductions  in 
trafficking have also occurred through the deployment of other legal instruments in the non-
regulated and illegal sector, especially bans on particular forms of prostitution that have been 
enforced by the criminalisation of seller and buyer, thereby reducing the forms of prostitution 
most associated with trafficking. The evidence does not support the claim that innovations in 
the regulation of the exploitation of the prostitution of others in the Netherlands and Germany 
that  allow  specific  and  regulated  profit-taking  have  reduced  overall  levels  of  trafficking  for 
purposes of sexual exploitation in these countries. Our conclusion is that the criminalisation 
of  the  exploitation  of  the  prostitution  of  others,  of  profit  (rent  and  fee)  taking  from 
prostitution,  remains  an  important  legal  instrument  to  reduce  the  demand  that  drives 
trafficking". 

While trafficking in human beings for sexual exploitation remains the most prevalent form, at 
the  same  time  the  Member  States  have  a  legal  obligation  to  address  all  forms  of 
exploitation.  Following  Article  18  of  the  Anti-trafficking  Directive,  a  few  Member  States 
have included provisions specifically targeting the demand for trafficking for the purpose of 
labour  exploitation  in  their  criminal  codes.  Civil  society  submissions  to  the  Report  call  for 
ensuring  that  all  sectors  where  trafficking  occurs  are  addressed,  and  that  victims  are  not 
unrecognised  and  unprotected.    For  instance,  increasing  concern  over  the  case  of  overseas 
domestic workers on tied visa has been raised. Civil society calls for more research on links 
with  regulation  and  de-regulation  of  labour,  wages  policy,  working  conditions  and  labour 
rights.  It  is  clear  that  there  is  no  one-size-fits-all  approach  to  address  demand  for  different 
forms  of  exploitation,  and  that  differentiated  approaches  that  results  in  all  victims  equally 
benefiting must be sought.  

63 

 
 
 
 
  
 
Civil  Society  Reflections  on  the  Links  between  Trafficking  in  Human  Beings  and 
Prostitution 

The  joint  civil  society  submission  to  the  Report  by  LSI  NGO  Platform  and  GAATW-EU 
recognise  that  the  sex  industry  is  one  of  the  economic  sectors  in  which  human  trafficking 
occurs,  as  it  does  in  other  sectors  where  workers  are  invisible,  unprotected,  excluded  and 
disempowered.  It  is  important  though  not  to  conflate  trafficking  in  human  beings  with 
prostitution,  as  it  leads  to  inadequate  counter-trafficking  policies  and  to  counter-productive 
prostitution policies.  The submission indicates that the two issues are both complex and need 
their own individual approach and policy. By equating sex work to trafficking in persons, the 
very  complex  phenomenon  of  human  trafficking  is  narrowed  down  to  a  moral  issue,  an 
approach  that  fails  to  address  the  economic,  political  and  social  root  causes  of  trafficking. 
Furthermore, it distracts the attention from human trafficking in other industries which could 
leave victims there unrecognised and unprotected. Hence, when tackling the demand side of 
trafficking  in  human  beings,  all  economic  sectors  that  are  vulnerable  for  exploitative 
situations, should be addressed. According to these organisations, in order to understand why 
some economic sectors are more vulnerable, research is needed into the connections between 
deregulation  of  labour,  the  decrease  in  wages,  labour  migration  and  demand  for  cheap  and 
exploitative labour. 

Civil  society  participating  in  the  working  group  on  prevention  of  the  Platform  against 
trafficking  in  human  beings  note  that  legislation  is  the  most  important  measure  that 
Member States should take in order to ensure prevention and demand reduction, since it 
can have a deterrent and normative effect for different forms of trafficking and actors 
including perpetrators, procurers, companies, clients and users. Active investigations in 
factories,  farms,  brothels  and  other  high  risk  areas  are  further  indicated  as  prevention  and 
deterrent measures against trafficking in human beings. 

The need to discourage demand has also been highlighted by GRETA, which has urged the 
authorities  of  seven  Member  States  to  improve  their  current  activities.  For  example,  in  the 
reports  on  France,  Italy  and  Spain,  GRETA  has  noted  the  need  for  increased  efforts  to 
discourage  demand  for  the  services  of  victims  of  trafficking  for  the  purpose  of  sexual 
exploitation,  bearing  in  mind  that  such  measures  should  be  balanced  and  not  lead  to  the 
criminalisation of victims of trafficking. GRETA has also stressed that efforts to discourage 
demand for the services of victims of trafficking for the purpose of labour exploitation 
should  include  reinforcing  labour  inspections,  in  particular  in  sectors  at  high  risk  such  as 
agriculture,  construction,  textile  industry,  the  hotel/catering  sector  and  domestic  work,  and 
effective penalties for those who exploit victims of trafficking. 

In  conclusion,  it  is  evident  that  further  efforts  are  required  in  this  field  in  order  to  ensure 
correct application of the legislation and protect victims. These are considerations that will be 
examined  by  the  Commission,  as  requested  by  the  Anti-Trafficking  Directive,  in  line  with 
Article  23,  paragraph  1-2  (entitled  "Reporting"),  whereby  "1.  The  Commission  shall,  by  6 
April 2015, submit a report to the European Parliament and the Council, assessing the extent 
64 

 
 
 
 
to which the Member States have taken the necessary measures in order to comply with this 
Directive,  including  a  description  of  action  taken  under  Article  18(4),  accompanied,  if 
necessary, by legislative proposals and 2. The Commission shall, by 6 April 2016, submit a 
report to the European Parliament and the Council, assessing the impact of existing national 
law, establishing as a criminal offence the use of services which are the objects of exploitation 
of  trafficking  in  human  beings,  on  the  prevention  of  trafficking  in  human  beings, 
accompanied, if necessary, by adequate proposals". 

65 

 
 
 
 
 
 
4.4.  Financial  support  to  address  trafficking  in  human  beings  and 

implement legal obligations 

One of the most important challenges in addressing trafficking in human beings identified by 
both Member States and non-governmental organisations is the limited resources available 
for anti-trafficking measures, victim assistance and prevention measures at national and 
local  level.  The  global  economic  crisis  has  exacerbated  the  situation  and  has  also  had  a 
negative impact on allocations of funds for trafficking in human beings. 

Indeed, investigations can be costly, not only in terms of logistics but also in terms of human 
capital;  and,  in  order  to  produce  results,  the  necessary  technology  and  staff  have  to  be 
dedicated to the purpose of assisting the victims and preventing the crime.  However, it has to 
be recalled that, also in this respect, the Anti-trafficking Directive provides clear obligations 
for  the  Member  States:  to  put  in  place  effective  investigative  tools,  train  the  services 
responsible for investigation and prosecution, effectively protect and support the victims, and 
take appropriate measures to prevent trafficking as such. In order to comply with these legal 
obligations and achieve concrete results, relevant budgetary allocations are necessary.  

In this respect, the European Commission plays an important supporting role, and in the 
reporting  period  has  allocated  funding  via  several  programmes  under  both  direct  and 
shared  management152.  Furthermore,  the  European  Commission  has  continued  to  provide 
financial  support  to  numerous  projects  to  address  trafficking  in  human  beings  in  a  range  of 
non-EU countries and regions. For the period 2007-2012, DG HOME only has allocated more 
than 32 million EUR for projects addressing trafficking in human beings. These projects co-
financed actions by Member States' authorities and non-governmental organisations focusing 
on diverse aspects, such as trainings, capacity building, research, addressing different forms 
of  trafficking.  Many  projects  addressing  trafficking  in  human  beings  (53  between  2011  and 
2013)  were  financed  by DG DEVCO (by  both  thematic and geographical  instruments).  The 
total budget for these projects was approximately 37 million EUR, though only few projects 
were  entirely  devoted  to  countering  trafficking  in  human  beings,  while  in  most  cases 
trafficking in human beings was one of the objectives amongst others. Most of these actions 
were implemented by major International Organisations (ILO, IOM, UNODC, UNHCR). All 
information on projects is available on the EU Anti-Trafficking website153, and as stipulated 

152  Direct management  means  that  a  fund or  programme  is directly  managed by  the  European  Commission or 
one  of  its  agencies.  The  management  involves  selecting  contractors,  awarding  grants,  transferring  funds, 
monitoring  activities  and  others.  Shared  management  means  that  the  management  of  the  EU  fund  or 
programme is delegated to EU countries. Most EU-funded projects, accounting for around 80 % of the EU 
budget, are under shared management. 

153  http://ec.europa.eu/anti-trafficking/eu-projects/_en?solrsort=ds_field_publication_date%20desc  

66 

 
 
 
 
  
                                                            
in  the  EU  Strategy,  a  study  for  a  comprehensive  policy  review  of  these  projects  is 
underway154. 

In  this  regard,  it  is  worth  highlighting  that  according  to  the  information  provided,  in  the 
majority of Member States the practical assistance to victims is not provided by the state 
or local authorities, but by non-governmental organisations.  It is therefore crucial for these 
organisations  to  be  securely  funded  in  a  way  that  allow  them  to  provide  efficient  and 
sustainable  short  as  well  as  long-term  assistance  solutions  to  victims  of  trafficking. 
However, the information provided for the Report shows that in a number of Member States 
civil  society  organisations  providing  assistance  and  shelter  to  victims  of  trafficking  are  not 
funded on a permanent or long-term basis. Instead they are often operating on "project status" 
and  receive  funds  on  an  annual  basis  following  yearly  application  cycles.  Civil  society 
organisations report that this may negatively affect their ability to work with victims and to 
guarantee sustainable and rights based provision of services. Civil society further points out 
that,  governments  often  have  to  abide  to  the  principle  of  the  lowest-price  in  public  tenders, 
and  thus  they  award  funding  for  services  and  shelters  that  are  the  most  economical  but  not 
necessarily of the best quality in order to cater to the needs of victims of trafficking.  

As noted in the European Commission's Study on the Gender Dimensions of trafficking 
in human beings155, the literature reviewed consistently demonstrates that lack of sufficient 
and  sustainable  funding  is  a  barrier  to  the  provision  of  quality  services  to  women 
trafficked for the purposes of sexual exploitation. The study notes that running projects are 
often forced to end due to a lack of sustainable funding for the service from government; the 
lack  of  financial  stability  experienced  by  specialist  providers  specifically  prevents  capacity-
building  to  address  increased  demand  for  services;  and  the  lack  of  sustainable  funding 
prevents  qualified  NGOs,  as  well  as  shelters  and  refuges  from  providing  enough  support 
services to address the needs.  

The  provision  of  specialised  services  to  victims  of  trafficking  has  to  be  appropriate  to  their 
needs.  These  are  different  according  to  the  form  of  trafficking  to  which  they  have  been 
subjected, and hence gender specific. These services are best provided by organisations that 
include users, victim-survivors of trafficking, and gender experts in their decision-making and 
which have sustainable funding.  

In conclusion, the main challenges identified by both Member States and non-governmental 
organisations in their contributions for the Report concern the level of budgetary allocations 
and the cooperation between the national and local authorities and the civil society. The issue 
of  resources  is  highlighted  not  only  as  regards  measures  for  the  support  and  protection  of 
victims,  but  also  measures  to  underpin  investigation  and  criminal  proceedings.  It  is  also 
highlighted  that  the  provision  of  specialised  services  to  victims  of  trafficking  should  be 
centred on the victims' needs, age and gender-specific, and specific to the form of trafficking; 

154  EU Strategy, Priority D, action 4.  
155  https://ec.europa.eu/anti-trafficking/eu-policy/study-gender-dimension-trafficking-human-beings_en   

67 

 
 
 
 
                                                            
and that these services are best provided by organisations that include users, victim-survivors 
of  trafficking,  and  gender  experts  in  their  decision-making  and  which  have  sustainable 
funding. 

68 

 
 
 
 
 
 
5.  GATHERING OF STATISTICS 

5.1. Data collection activities at EU and national level  

In  recent  years,  the  European  Commission  has  worked  together  with  Member  States  to 
develop an EU wide data collection system on trafficking in human beings, collecting data on 
victims as well as suspected, prosecuted and convicted traffickers, disaggregated by variables 
including  gender,  age,  form  of  exploitation,  and  citizenship.  The  first  Eurostat  statistical 
Working Paper on Trafficking in Human Beings was published in April 2013, and covered the 
years 2008-2010; the Second Working Paper was published in October 2014, later amended 
in January 2015, and included data from all 28 Member States for the years 2010-2012. This 
second data collection showed clear improvements from the previous exercise, but more 
efforts are necessary in order to facilitate data collection in this field, improve the quality 
of  the  data  and  statistics  on  trafficking  in  human  beings,  and  to  make  those  data  more 
comparable. 

Further improving the quality and availability of data will therefore be an important part  of 
the  forthcoming  3rd  Action  Plan  on  measuring crime  in  the  EU.  The  European  Commission 
has  already committed to  incorporate headline  statistics on trafficking  in human beings into 
the  Eurostat  annual  data  collection  on  crime  and  criminal  justice,  starting  with  the  2016 
exercise.    The  European  Commission  will  also  continue  work  on  the  collection  of  more 
detailed and disaggregated data to improve our understanding of trafficking in human beings.   

Data is crucial not only to enable measurement of trends and developments in this field, but 
equally  important  in  order  to  assess  whether  or  not  implemented  actions  are  successful  in 
targeting the phenomenon. With better quantitative data we would be able to follow increases 
and decreases of the phenomenon and, by doing so, know where to best put public resources 
and  develop  properly  targeted  interventions.    Data  is  therefore  a  significant  tool  to  help 
ensure accountability of actions taken to address trafficking in human beings. 

There  are  however  many  challenges  that  remain  to  be  addressed:  different  definitions 
being  used,  a  wide  range  of  actors  that  collect  data,  different  methods  for  identification  of 
victims, the complexity of the crime itself and the fact that many traffickers are convicted for 
other  forms  of  crime  rather  than  trafficking  in  human  beings  (such  as  exploitation  of 
prostitution, procuring, fraud, breach of labour law etc.). 

The  challenges  demonstrated  regarding  data  comparability between  Member  States,  and  the 
steps  needed  to  enhance  efforts  in  this  field,  have  been  assessed  with  the  Member  States 
within  the  framework  of  the  Network  of  National  Rapporteurs  or  Equivalent  Mechanisms, 
with  the  contribution  of  Eurostat  and  other  independent  experts  and  international 
organisations.  

69 

 
 
 
 
  
5.2.  Data  collection  exercise  for  the  present  report  on  trafficking  in 

human beings and as per article 19 of the Anti-Trafficking Directive 

According to Article 19 Anti-trafficking Directive, the tasks of the NREMs shall include the 
carrying out of assessments of trends in trafficking in human beings, the measuring of results 
of  anti-trafficking  actions  including  the  gathering  of  statistics  in  close  cooperation  with 
relevant civil society organisations. 

In  the  initial  template  for  contributions  to  the  Report  on  trafficking  in  human  beings,  the 
Member States and NREMs were asked to provide data for the years 2011-2013. In order to 
ensure  that  the  most  recent  information  could  be  included,  a  specific  request  for  data 
covering  2013  and  2014  was  sent  out  to  the  Member  States  at  a  subsequent  stage.  The 
European  Commission  is  grateful  to  Member  States  for  their  swift  replies.  The  collated 
statistics are shown below and the tables and information on meta-data can be found in Annex 
II. For the years  2010-2012 the Eurostat  statistical working paper on Trafficking  in  Human 
Beings is the reference point.  

The data collection exercise for the Report should be viewed as  an interim and simplified 
collection  between  the  existing  Eurostat  working  papers  on  Trafficking  in  Human 
Beings,  and  the  planned  future  official  collections  described  above,  where  work  will  begin 
later in 2016. Although this collection builds on the methods used for the Eurostat collection 
and every effort has been made to ensure consistency in terms of definitions, indicators, and 
data  quality,  the  limited  scope  of  this  exercise  means  that  further  verifications  may  be 
necessary and the results presented here may not be comparable with past exercises.  

Although  the  exercise  indicates  encouraging  efforts  towards  better  data  collection,  not  all 
Member  States  have  provided  comprehensive  data  on  all  indicators,  for  example  as 
regards gender- and age-disaggregated data on forms of exploitation. In view of this, and the 
differences in both national definitions and recording systems, the figures presented should be 
interpreted  with  caution.  Comparisons  between  Member  States  should  therefore  be 
avoided, and disaggregated subtotals may not add up to the global total. A sudden increase or 
decrease of recorded victims can reflect the real situation but may also reflect administrative 
or  legislative  changes,  modifications  in  statistical  procedures  and  counting  rules,  or  be  the 
result of specific identification initiatives in the Member States.  

For more detailed and extensive information on the data collections exercises of the European 
Commission,  in  particular  regarding  the  methodology,  definitions  and  interpretation  of  the 
data, please refer to the Second Eurostat Working Paper on Trafficking in Human Beings.156  

156  Eurostat,  Statistical  Working  Papers,  Trafficking  in  Human  Beings,  2015  Edition,  https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/eurostat_report_on_trafficking_in_human_beings_-_2015_edition.pdf  

70 

 
 
 
 
 
 
                                                            
5.2.1.  Data on victims 

Identified and presumed victims  

Member States were asked to provide statistical data on the identified and presumed victims. 
In  accordance  with  the  definition  in  Anti-Trafficking  Directive  2011/36/EU  the  term 
identified victim refers to a person who has been formally identified by relevant authorities as 
a victim of trafficking. The term presumed victim is used for a victim of trafficking who has 
met  the  criteria  of  the  EU  Directive  but  have  not  formally  been  identified  by  the  relevant 
formal authorities as a victim or who have declined to be formally and legally identified as a 
trafficking victim. Some Member States have included both categories in their data collection 
whereas others only include one of the two categories157.   

In  2013  Member  States  reported  a  total  number  of  8  034  registered  (identified  and 
presumed)  victims.  In  2014,  a  total  of  7  812  victims  were  registered,  and  the  total 
number for the two years is 15 846 registered victims. 

These  numbers  are  lower  than  those  recorded  in  the  Second  Eurostat  Working  Paper  on 
Trafficking in Human Beings (e.g. in 2012, 10 998 victims were registered). Further analysis 
is  required  to  assess  the  reasons  for  these  differences,  including  reference  to  qualitative 
information. 

Breakdown by gender and age 

Over  three-quarters  of  the  victims  identified  in  the  EU  are  women  (76  %).    Out  of  the 
total number of victims of trafficking in the EU as many as 2 375 (15 %) were children. 

Breakdown by gender and forms of exploitation  

Sexual  exploitation  is  by  far  the  most  reported  form  of  exploitation  in  the  EU.  During 
2013  and  2014  in  total  10  044  registered  victims  were  trafficked  for  the  purpose  of  sexual 
exploitation  (67  %).  2  680  registered  victims  were  trafficked  for  the  purpose  of  labour 
exploitation (21 %).   

The vast majority of the victims trafficked for sexual exploitation were women (96 %).  A 
few  Member  States  have  registered  an  increase  in  the  number  of  men  trafficked  for  the 
purpose of sexual exploitation than in previous years.  

The majority of the victims of labour exploitation were men (74 %). 

1  783  victims  were  registered  and  reported  by  the  Member  States  for  other  forms  of 
exploitation (12 %). Examples of other forms of exploitation reported by Member States are 
trafficking  for  the  purpose  of  forced  begging,  criminal  activity,  forced  marriage,  sham 
marriage, or organ removal, trafficking of infants and young children for adoption, trafficking 

157  For information of how the Member States use either the term identified, presumed or both, see Table A in 

Annex II. 

71 

 
 
 
 
                                                            
in  pregnant  women  for  the  purpose  of  selling  their  new  born  babies,  trafficking  for  the 
production  of  cannabis  and  trafficking  for  the  purpose  of  drug  smuggling  or  the  selling  of 
drugs. Some Member States include in their data collection on "other forms of exploitation" 
also  trafficking  for  the  purpose  of  domestic  servitude  and  trafficking  for  seasonal  berry 
picking,  which  in  most  cases  as  well  as  according  to  the  definition  would  fall  under 
trafficking for the purpose of labour exploitation. 

Under  other  forms  of  exploitation,  Member  States  also  report  on  multiple  forms  of 
exploitation  such  as  victims  being  trafficked  for  both  labour  and  sexual  exploitation,  or 
trafficking for labour exploitation in combination with criminal activity. 

Citizenship of victims 

Similar  to  what  the  previous  data  collection  exercises  have  shown,  the  majority  of  the 
registered victims come from the Member States (65 %).  

Over  the  two  year  period  the  top  five  countries  of  citizenship  in  the  EU  were  Romania, 
Bulgaria,  Netherlands,  Hungary,  and  Poland.  These  are  the  same  countries  as  for  the  years 
2010-2012.   

For  non-EU  citizens,  the  top  five  countries  were  Nigeria,  China,  Albania,  Vietnam  and 
Morocco. Albania and Morocco were not on this list in the previous exercises. This illustrates 
an increase of registered victims from these countries and a slight drop in registered victims 
from Brazil and Russia that have been amongst the top five non-EU countries of citizenship in 
previous years.  

5.2.2.  Data on the criminal justice process 

It is  important  to  note that  not all Member States  have been able  to  provide  data  on the 
criminal  justice  process.  Furthermore,  whereas  the  majority  of  Member  States  do  refer  to 
individuals, some Member States refer to cases or offences rather than individuals.   

Persons brought into formal contact with the police/or the criminal justice system158 

During the years 2013 and 2014, Member States reported that 6 324 persons (3 152 + 3 172) 
were brought into formal contact with the police or the criminal justice system for the crime 
trafficking in human beings.  

Prosecutions and convictions of trafficking in human beings 

158  May  include  persons  suspected,  arrested  or  cautioned  for  a  criminal  offence  at  the  national  level.  For 
definition please see the Eurostat Crime  and Criminal Justice Metadata in Euro SDMX Metadata Structure 
(ESMS)      http://ec.europa.eu/eurostat/cache/metadata/en/crim_esms.htm  Not  all  Member  States  have 
provided data on the criminal justice process. Furthermore, although the majority of Member States refer to 
individual people, some Member States refer to cases or offences rather than individual people.   

72 

 
 
 
 
                                                            
During the years 2013 and 2014, Member States reported 4 079 (2 059 + 2 020) prosecutions 
in the EU and 3 129 (1 524 + 1 605) convictions for trafficking in human beings.  

5.2.3.  Assessment of the data for the years 2013-2014 

Although this was a simplified exercise with only a select number of indicators, it has shown 
some  encouraging  results  in  that  that  the  availability  of  data  in  the  Member  States  is 
increasing.  All  Member  States  provided  data  on  victims  with  a  gender  breakdown,  and  all 
Member  States  were  able  to  provide  some  breakdown  between  adult  and  child  victims  at  a 
global level. Furthermore all Member States provided a breakdown by type of exploitation. Of 
note, Spain and France only reported registered cases of sexual exploitation.  

It is positive to note that the collection of data in the Member States is improving in terms of 
availability, indicators used and disaggregation. 

It  is  however  most  important  to  ensure  that  victims  of  trafficking  are  being  identified  and 
suspected  traffickers  are  being  brought  to  justice.  While  acknowledging  the  difficulties  in 
comparing  data  both  between  Member  States  and  over  time,  and  in  assessing  trends  and 
changes  based  on  data  alone,  the  lower  overall  totals  warrant  further  enquiries  about  why 
fewer victims are being registered. 

What is furthermore worrying is the consistency in terms of countries of citizenship, countries 
of destination, forms of exploitation, and the age and gender profile of victims over the five 
years  2010-2014.  This  consistency  could  give  the  impression  that  the  situation  has  not 
changed.  

The  European  Commission  has  expressed  its  commitment  to  continue  support  the 
Member  States  in  their  efforts  to  enhance  data  collection  in  the  field  of  trafficking  in 
human beings in order to properly monitor the phenomenon and even more importantly 
to  measure impact and ensure  accountability of  actions taken to  address trafficking in 
human beings. 

In the meeting of the NREM network during the Luxembourg Presidency in October 2015 a 
full  session  was  devoted  to  the  importance  of  enhancing  data  collection  in  the  field  of 
trafficking  in  human  beings.159  In  order  to  gain  a  more  accurate  and  detailed  picture  of  the 
phenomenon,  the  European  Commission  will  continue  with  the  ambitious  exercise  of 
gathering  statistics  on  trafficking  in  human  beings,  to  improve  comparability  and  enhance 
disaggregation  of  data  on  victims  (e.g.  forms  of  exploitation,  gender,  age,  method  of 
recruitment  etc.),  including  by  demographic  variables.  This  will  involve  issuing  improved 
guidelines and collecting data from the Member States on further indicators, to be used for a 
third statistical publication covering the years 2013-2016. 

159 Meeting of the Network or National Rapporteurs or Equivalent Mechanism, 19-20 October 2015, Brussels   

73 

 
 
 
 
 
                                                            
5.2.4.  Data Charts on victims of trafficking in human beings 

Statistics  presented  in  the  following  charts  are  based  on  the  subset  of  data  for  which 
information about all relevant characteristics was available.  Disaggregated subtotals, and in 
particular  percentages,  may  not  add  up  to  the  global  totals  or  to  other  subtotals  cited 
elsewhere in the report and accompanying staff working document. 

Victims by gender and type of exploitation (number of registered victims) 

Victims by gender and type of exploitation (% of total of registered victims) 

74 

 
 
 
 
 
 
 
 
 
 
 
Victims by gender and age 

Sexual exploitation 

75 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Labour exploitation 

Other forms of exploitation: 

76 

 
 
 
 
 
 
 
 
 
 
 
 
 
ANNEX I – Referenced documents 

EU Legislation  

  Directive  2011/36/EU  on  preventing  and  combating  trafficking  in  human  beings  and 

protecting its victims, OJ L 101, 15.4.2011 
http://eur-lex.europa.eu/legal-content/EN/ALL/?uri=CELEX:32011L0036 

  Directive  2011/93/EU  of  the  European  Parliament  and  of  the  Council  of  13  December 
2011  on  combating  the  sexual  abuse  and  sexual  exploitation  of  children  and  child 
pornography,  and  replacing  Council  Framework  Decision  2004/68/JHA,  OJ  L  335, 
17.12.2011 
http://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex%3A32011L0093  

  Directive 2012/29/EU of the European Parliament and of the Council of 25 October 2012 
establishing minimum standards on the rights, support and protection of victims of crime, 
OJ L 315, 14.11.2012 
http://eur-lex.europa.eu/legal-
content/EN/TXT/?qid=1421925131614&uri=CELEX:32012L0029 

  Directive  2009/52/EC  of  the  European  Parliament  and  of  the  Council  of  18  June  2009 
providing  for  minimum  standards  on  sanctions  and  measures  against  employers  of 
illegally staying third-country nationals, OJ L 168, 30.6.2009  
http://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32009L0052 

  Directive  2011/95/EU  on  standards  for  the  qualification  of  third-country  nationals  or 
stateless  persons  as  beneficiaries  of  international  protection,  for  a  uniform  status  for 
refugees  or  for  persons  eligible  for  subsidiary  protection,  and  for  the  content  of  the 
protection granted, OJ L 337, 20.12.2011 
http://eur-lex.europa.eu/legal-content/EN/ALL/?uri=CELEX:32011L0095 

  Directive 2014/42/EU of the European Parliament and of the Council of 3 April 2014 on 
the freezing and confiscation of instrumentalities and proceeds of crime in the European 
Union, OJ L 127, 29.4.2014 
http://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32014L0042  

  Directive  2013/33/EU  of  the  European  Parliament  and  of  the  Council  of    26  June  2013 
laying down standards for the reception of applicants for international protection (recast), 
OJ L 180/96, 29.6.2013 
http://eur-lex.europa.eu/legal-content/EN/ALL/?uri=CELEX:32013L0033 

  Directive 2013/32/EU of the European Parliament and of the Council of 26 June 2013 on 
common procedures for granting and withdrawing international protection (recast), OJ L 
180/60, 29.6.2013 
http://eur-lex.europa.eu/legal-content/EN/ALL/?uri=CELEX:32013L0032 

77 

 
 
 
 
 
 
 
 
 
  Directive 2014/36/EU of the European Parliament and of the Council of 26 February 2014 
on  the  conditions  of  entry  and  stay  of  third-country  nationals  for  the  purpose  of 
employment as seasonal workers, OJ L 94, 28.3.2014,  
http://eur-lex.europa.eu/legal-
content/EN/TXT/?qid=1456334345301&uri=CELEX:32014L0036  

EU Policy Documents  

  Council of the European Union, Council conclusions on the new EU Strategy towards the 

Eradication of Trafficking in Human Beings 2012–2016, 25 October 2012 
http://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/council_conclusions_on_the_new_eu_strategy_towar
ds_the_eradication_of_trafficking_in_human_beings_2012_-_2016_1.pdf 

  Council  of  the  European  Union,  Council  conclusions  on  establishing  an  informal  EU 
Network  of  National  Rapporteurs  or  Equivalent  Mechanisms  on  Trafficking  in  Human 
Beings, 4 June 2009 
https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/council_conclusions_on_national_rapporteur_networ
k_2009_en_1.pdf 

  Council of the European Union, Council Conclusions on the creation and implementation 
of  an  EU  policy  cycle  for  organised  and  serious  international  crime,  8  and  9  November 
2010 
https://www.consilium.europa.eu/uedocs/cms_data/docs/pressdata/en/jha/117583.pdf 

  Council of the European Union, Council Recommendations on effective Roma integration 

measures in the Member States, 10 December 2013 
http://www.consilium.europa.eu/uedocs/cms_data/docs/pressdata/en/lsa/139979.pdf 

  Council of the European Union Final report on the fifth round of  mutual evaluations on 

financial crime and financial investigations, 3 October 2012 
http://register.consilium.europa.eu/doc/srv?l=EN&f=ST%2012657%202012%20REV%20
2 

  Council of the European Union, Revised Draft Council Conclusions on an EU Framework 
for the Provision of Information on the Rights of Victims of Trafficking in Human Beings, 
13 June 2013 
https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/revised_draft_council_conclusions_1.pdf  

78 

 
 
 
 
 
 
 
 
 
 
 
 
 
  Council of the European Union, Valetta Summit Action Plan, 12 November 2015 

http://www.consilium.europa.eu/en/meetings/international-summit/2015/11/11-12/ 

  Council of the European Union, Declaration of the High-level Conference on the Eastern 

Mediterranean - Western Balkans Route on 8 October 2015 
http://www.consilium.europa.eu/press-releases-
pdf/2015/10/40802203368_en_635803350600000000.pdf  

  Eurojust,  Strategic  Meeting  on  Trafficking  in  Human  Beings,  Outcome  Report,  The 

Hague, 26-27 April 2012 
https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/eurojust_strategic_meeting_on_trafficking_in_human
_beings_1.pdf  

  European Commission, The EU Strategy towards the eradication of trafficking in human 

beings 2012-2016, COM (2012) 286 final 
http://eur-lex.europa.eu/legal-content/EN/ALL/?uri=CELEX:52012DC0286  

  European  Commission,  Mid-term  report  on  the  implementation  of  the  EU  strategy 

towards the eradication of trafficking in human beings, 2014  
http://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/commission_staff_working_document_-_mid-
term_report_on_the_implementation_of_the_eu_strategy_towards_the_eradication_of_tra
fficking_in_human_beings.pdf  

  European  Commission,  Study  on  case-law  relating  to  trafficking  in  human  beings  for 

labour exploitation, 2015 
http://ec.europa.eu/anti-trafficking/sites/antitrafficking/files/study_on_case-
law_on_trafficking_for_the_purpose_of_labour_exploitation_2.pdf 

  European Commission, Study on high-risk groups for trafficking in human beings, 2015 

https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/study_on_children_as_high_risk_groups_of_trafficki
ng_in_human_beings_0.pdf  

  European  Commission,  Study  on  prevention  initiatives  on  trafficking  in  human  beings, 

2015 
https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/study_on_prevention_initiatives_on_trafficking_in_h
uman_beings_0.pdf  

79 

 
 
 
 
 
 
 
  
 
  
 
 
  European Commission, Study on the Gender Dimensions of trafficking in human beings, 

2016 
http://ec.europa.eu/anti-trafficking/eu-policy/study-gender-dimension-trafficking-human-
beings_en    

  European Commission, The EU rights of victims of trafficking in human beings, 2013 

http://ec.europa.eu/dgs/home-affairs/e-
library/docs/thb_victims_rights/thb_victims_rights_en.pdf 

  European Commission, Guidelines for the identification of victims of trafficking in human 

beings, Especially for Consular Services and Border Guards, 2013 
http://ec.europa.eu/dgs/home-affairs/e-library/docs/thb-victims-
identification/thb_identification_en.pdf 

  European  Commission,  Staff  Working  Document,  Handbook  on  addressing  the  issue  of 
alleged  marriages  of  convenience  between  EU  citizens  and  non-EU  nationals  in  the 
context of EU law on free movement of EU citizens, COM(2014) 604 final 
http://ec.europa.eu/justice/citizen/files/swd_2014_284_en.pdf 

  European  Commission,  Communication  on  the  State  of  Play  of  Implementation  of  the 

Priority Actions under the European Agenda on Migration, COM(2016) 85 final 
http://ec.europa.eu/dgs/home-affairs/what-we-do/policies/european-agenda-
migration/proposal-implementation-
package/docs/managing_the_refugee_crisis_state_of_play_20160210_en.pdf 

  European  Commission,  Communication  on  the  EU  Agenda  for  the  Rights  of  the  Child, 

COM(2011) 60 final 
http://eur-lex.europa.eu/legal-content/en/ALL/?uri=CELEX:52011DC0060  

  European  Commission,  Reflection  Paper  (10  principles  for  integrated  child  protection 
systems)  on  the  9th  European  Forum  on  the  rights  of  the  child  on  Coordination  and 
cooperation in integrated child protection systems, 30.4.2015 
http://ec.europa.eu/justice/fundamental-rights/files/2015_forum_roc_background_en.pdf  

  European  Commission,  Study  on  children's  involvement  in  criminal,  civil  and 
administrative  judicial  proceedings  -  Reports:  http://bookshop.europa.eu/children-in-
criminal-judicial-proceedings; 
http://bookshop.europa.eu/children-in-administrative-
  http://bookshop.europa.eu/children-in-civil-judicial-proceedings; 
judicial-proceedings; 
Data: www.childreninjudicialproceedings.eu 

80 

 
 
 
 
 
 
 
  
 
 
 
 
 
  European Commission, A European Agenda on Migration, COM(2015) 240 final 
http://ec.europa.eu/dgs/home-affairs/what-we-do/policies/european-agenda-
migration/background-
information/docs/communication_on_the_european_agenda_on_migration_en.pdf 

  European Commission, The European Agenda on Security, COM(2015) 185 final 

http://ec.europa.eu/dgs/home-affairs/e-library/documents/basic-
documents/docs/eu_agenda_on_security_en.pdf 

  European  Commission,  EU  Action  Plan  against  migrant  smuggling  2015-2020, 

COM(2015) 285 final 
http://ec.europa.eu/dgs/home-affairs/e-
library/documents/policies/asylum/general/docs/eu_action_plan_against_migrant_smuggli
ng_en.pdf  

  European  Commission,  Action  Plan  on  Human  Rights  and  Democracy  2015-2019, 

"Keeping human rights at the heart of the EU agenda", JOIN(2015) 16 final   
https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/joint_communication_on_human_rights_and_democr
acy_en.pdf 

  European Commission, Gender Equality and Women's Empowerment: Transforming the 
Lives  of  Girls  and  Women  through  EU  External  Relations  2016-2020,  SWD(2015)  182 
final  
http://ec.europa.eu/europeaid/sites/devco/files/staff-working-document-gender-2016-
2020-20150922_en.pdf 

  European  Parliament,  Resolution  of  26  February  2014  on  sexual  exploitation  and 

prostitution and its impact on gender equality (2013/2103(INI)) 
http://www.europarl.europa.eu/sides/getDoc.do?type=TA&language=EN&reference=P7-
TA-2014-0162  

  Europol, Situation Report, Trafficking in Human Beings in the EU, 2016 

https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/situational_report_trafficking_in_human_beings-
_europol.pdf  

  Europol, The THB financial business model: Assessing the Current State of Knowledge, 

July 2015  
https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/europol_financial_business_model.pdf 

81 

 
 
 
 
 
 
  
 
 
 
 
 
  Europol, The Internet Organized Crime Threat Assessment, 2014 

https://www.europol.europa.eu/content/internet-organised-crime-threat-assesment-iocta   

  Europol, EU Serious and Organised Crime Threat Assessment Executive Report, 2013 

https://www.europol.europa.eu/content/eu-serious-and-organised-crime-threat-
assessment-socta   

  Europol, Trafficking in Human Beings and the Internet, Intelligence Notification 15/2014, 

2014 
https://www.europol.europa.eu/content/trafficking-human-beings-and-internet   

  Europol,  Child  trafficking  for  exploitation  in  forced  criminal  activities  and  forced 

begging, Intelligence Notification 16/2014, 2014 
https://www.europol.europa.eu/content/fighting-child-trafficking-main-priority-eu-law-
enforcement   

  Europol, Marriages of Convenience: A link between facilitation of illegal immigration and 
2014. 

THB, 
https://www.europol.europa.eu/content/marriages-convenience-link-between-facilitation-
illegal-immigration-and-thb  

Notification 

2014/08, 

Warning 

Early 

  Europol, Knowledge Product, Trafficking in Human Beings in the European Union, 2011 
https://www.europol.europa.eu/content/publication/trafficking-human-beings-european-
union-2011-1507  

  Eurostat, Statistical Working Papers, Trafficking in Human Beings, 2015 Edition 

http://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/trafficking_in_human_beings_-_eurostat_-
_2015_edition.pdf  

  Frontex, Anti-trafficking Training for Border Guards – Trainer’s Manual, 2012 

http://frontex.europa.eu/assets/Publications/Training/Fundamental_Rights_Training_for_
Border_Guardsl.pdf  

  Frontex, VEGA Handbook on children at airports, 2015 

http://frontex.europa.eu/news/frontex-publishes-vega-handbook-children-at-airports-
bvtPly 

  Fundamental Rights Agency (FRA), Guardianship for children deprived of parental care: 
A  handbook  to  reinforce  guardianship  systems  to  cater  for  the  specific  needs  of  child 
victims of trafficking, 2014 

82 

 
 
 
 
 
 
 
 
 
 
 
 
 
http://fra.europa.eu/en/publication/2014/guardianship-children-deprived-parental-care-
handbook-reinforce-guardianship  

  Fundamental  Rights  Agency  (FRA),  Guardianship  systems  for  children  deprived  of 
parental care in the European Union - With a particular focus on their role in responding 
to child trafficking, 2015 
http://fra.europa.eu/en/publication/2015/guardianship-children-deprived-parental-care   

  Fundamental Rights Agency (FRA), Child-friendly justice – Perspectives and experiences 
of professionals on children’s participation in civil and criminal judicial proceedings in 10 
EU Member States, 2015 
http://fra.europa.eu/en/publication/2015/child-friendly-justice-perspectives-and-
experiences-professionals-childrens    

  Joint statement of the Heads of the EU Justice and Home Affairs Agencies, 5th EU Anti-

Trafficking Day, 2011 
https://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/joint_statement_final_18_oct_2011_1.pdf 

Other Documents 

  Anti-Slavery  International,  ‘Trafficking  for  Forced  Criminal  Activities  and  Begging  in 
2014 

Europe: 
http://www.antislavery.org/includes/documents/cm_docs/2014/t/2_trafficking_for_forced
_criminal_activities_and_begging_in_europe.pdf  

Exploratory 

Examples’, 

Practice 

Study 

Good 

and 

  Council of the Baltic Sea States, Handbook for diplomatic and consular personnel on how 

to assist and protect victims of human trafficking, 2011 
http://www.cbss.org/wp-content/uploads/2012/11/CBSS-TF-THB-Handbook-for-
Diplomatic-and-Consular-Personnel.pdf    

  Council of Europe Convention on Action against Trafficking in Human Beings, 2005 
https://www.coe.int/t/dghl/monitoring/trafficking/Docs/Convntn/CETS197_en.asp  

  Dutch National Rapporteur on Trafficking in Human Beings and Sexual Violence against 
Children,  Trafficking  in  Human Beings: Ninth  report  of the Dutch National Rapporteur, 
The Hague, 2013 
http://www.dutchrapporteur.nl/reports/ninth/  

  European Migration Network (EMN), Study on Identification of victims of trafficking in 

human beings in international protection and forced return procedures, 2014 
http://ec.europa.eu/anti-trafficking/publications/emn-study-identification-victims-
trafficking-human-beings-international-protection-and_en  

83 

 
 
 
 
 
 
 
 
 
 
 
  European Migration Network (EMN), Synthesis Report on Policies, practices and data on 

unaccompanied minors in the EU Member States and Norway, 2015 
http://ec.europa.eu/dgs/home-affairs/what-we-
do/networks/european_migration_network/reports/docs/emn-
studies/emn_study_policies_practices_and_data_on_unaccompanied_minors_in_the_eu_
member_states_and_norway_synthesis_report_final_eu_2015.pdf 

  Finnish National Rapporteur on Trafficking in Human Beings, Report 2014 

http://ec.europa.eu/anti-
trafficking/sites/antitrafficking/files/national_rapporteur_on_trafficking_in_human_beings
_-_report_2014.pdf  

  Group of Experts on Action against Trafficking in Human Beings (GRETA), 4th General 
2015 
GRETA's 

Report 
http://www.coe.int/t/dghl/monitoring/trafficking/Docs/Gen_Report/GRETA_2015_1_4th
GenRpt_en.pdf 

activities, 

on 

 

 

 

 

 

Immigrant Council of Ireland, Submission on the accommodation needs of adult victims 
of sex trafficking in Ireland, September 2014 
http://immigrantcouncil.ie/files/publications/21d36-proposal-for-housing-of-adult-victims-
of-sex-trafficking.pdf  

International Labour Organisation (ILO),  Profits and Poverty: The Economics of Forced 
Labour, 2014 
http://www.ilo.org/wcmsp5/groups/public/---ed_norm/---
declaration/documents/publication/wcms_243391.pdf 

International  Organisation  for  Migration  (IOM),  Addressing  human  trafficking  and 
exploitation in time of crisis: Evidence and recommendations for further action to protect 
vulnerable and mobile populations", July 2015 
https://publications.iom.int/system/files/addressing_human_trafficking.pdf 

International  Organisation  for  Migration  (IOM),  Addressing  Human  Trafficking  and 
Exploitation  in  Times  of  Crisis,  Evidence  and  Recommendations  for  Further  Action  to 
Protect Vulnerable and Mobile Populations, December 2015  
https://publications.iom.int/system/files/addressing_human_trafficking_dec2015.pdf 

International  Organisation  for  Migration  (IOM)  and  UNICEF  Data  Brief:  Migration  of 
Children to Europe, November 2015 
http://www.iom.int/sites/default/files/press_release/file/IOM-UNICEF-Data-Brief-
Refugee-and-Migrant-Crisis-in-Europe-30.11.15.pdf 

84 

 
 
 
 
 
 
 
 
 
 
 
 
  Organization  for  Security  and  Co-operation  in  Europe  (OSCE),  How  to  prevent  human 
trafficking  for  domestic servitude in diplomatic households and protect  private domestic 
workers, 2014 
http://www.osce.org/handbook/domesticservitude?download=true 

  Rikspolisstyrelsen,  Människohandel  för  sexuella  och  andra  ändamål,  Lägesrapport  14, 

2014   
https://polisen.se/Global/www%20och%20Intrapolis/Rapporter-
utredningar/01%20Polisen%20nationellt/M%C3%A4nniskohandel/Lagesrapport_14_Man
niskohandel.pdf 

85 

 
 
 
 
 
 
 
 
ANNEX  II  –  Statistical  data  2013  –  2014:  tables  and  information  on 

metadata 

A specific request for data covering 2013 and 2014 was sent out to the Member States for the 
purpose  of  the  Progress  report  and  the  accompanying  Staff  Working  Document.  This  data 
collection  exercise  should  be  viewed  as  an  interim  and  simplified  collection  in  between  the 
two existing Eurostat working papers on trafficking in human beings, and the planned future 
official  collections.  For  more  detailed  information  on  the  data  collection  exercises  of  the 
Commission, in particular regarding the methodology, definitions and interpretation of data, 
the  most  recent  Eurostat  Statistical  Working  Paper  on  Trafficking  in  Human  Beings,  2015 
edition, is the reference point.  

The relevant tables and information on metadata can be found below, whereas the analysis of 
the collated statistics can be found in the Staff Working Document. 

Table A: Number of registered victims (identified and presumed) by Member State 

Identified 
victims 

2013 
Presumed 
victims 

Total 

Identified 
victims 

2014 
Presumed 
victims 

Total 

AT 
BE 
BG 
CY 
CZ 
DE 
DK 
EE 
EL 
ES 
FI 
FR 
HR 
HU 
IE 
IT 
LT 
LU 
LV 
MT 
NL 
PL 
PT 
RO 
SE 
SI 
SK 
UK 
Total 

72 
116 
540 
30 
57 
603 
76 
2 
102 
264 
56 
871 
31 
176 
44 
756 
47 
: 
22 
9 
: 
171 
145 
896 
2 
37 
30 
819 
5 974 

: 
: 
: 
110 
30 
: 
: 
22 
: 
: 
: 
: 
: 
: 
: 
: 
: 
8 
0 
4 
1 437 
222 
56 
: 
84 
3 
0 
84 
2 060 

72 
116 
540 
140 
87 
603 
76 
24 
102 
264 
56 
871 
31 
176 
44 
756 
47 
8 
22 
13 
1 437 
393 
201 
896 
86 
40 
30 
903 
8 034 

86 

78 
138 
491 
42 
67 
583 
71 
2 
78 
153 
47 
710 
37 
283 
46 
424 
47 
: 
34 
17 
: 
148 
48 
757 
4 
5 
34 
834 
5 178 

: 
: 
: 
67 
48 
: 
: 
: 
: 
: 
: 
: 
: 
: 
: 
: 
: 
10 
0 
3 
1 561 
207 
113 
: 
93 
8 
0 
524 
2 634 

78 
138 
491 
109 
115 
583 
71 
2 
78 
153 
47 
710 
37 
283 
46 
424 
47 
10 
34 
20 
1 561 
355 
161 
757 
97 
13 
34 
1 358 
7 812 

 
 
 
 
 
 
Table B1: Number of registered victims by gender and age (Adult/Child): 2013 

Female 

Male 

Other 

Unknown 

Total 

Age 

AT 
BE 
BG 
CY 
CZ 
DE 
DK 
EE 
EL 
ES 
FI 
HR 
HU 
IE 
IT 
LT 
LU 
LV 
MT 
NL 
PL 
PT 
RO 
SE 
SI 
SK 
UK 
Total 

A
d
u
l
t
s

(
1
8
+
)

(

U
n
d
e
r

1
8
)

C
h

i
l

d
r
e
n

60 
: 
427 
100 
13 
: 
62 
13 
49 
251 
34 
5 
93 
26 
: 
19 
8 
22 
10 
1 035 
: 
49 
299 
2 
39 
19 
427 
3 062 

4 
: 
49 
9 
20 
: 
2 
1 
1 
12 
3 
16 
28 
7 
: 
5 
: 
0 
1 
227 
: 
24 
278 
: 
0 
2 
125 
814 

A
d
u
l
t
s

(
1
8
+
)

(

U
n
d
e
r

1
8
)

C
h

i
l

d
r
e
n

8 
: 
46 
27 
23 
: 
12 
10 
50 
1 
19 
8 
6 
2 
: 
18 
: 
0 
: 
131 
: 
107 
297 
: 
1 
9 
288 
1 063 

: 
: 
18 
4 
31 
: 
0 
: 
2 
0 
0 
2 
49 
9 
: 
5 
: 
0 
: 
32 
: 
11 
22 
: 
0 
0 
63 
248 

T
o
t
a

l

64 
48 
476 
109 
33 
531 
64 
14 
50 
263 
37 
21 
121 
33 
565 
24 
8 
22 
11 
1 262 
161 
81 
577 
2 
39 
21 
552 
5 189 

T
o
t
a

l

8 
68 
64 
31 
54 
70 
12 
10 
52 
1 
19 
10 
55 
11 
182 
23 
0 
0 
: 
163 
61 
119 
319 
: 
1 
9 
351 
1 693 

A
d
u
l
t
s

(
1
8
+
)

(

U
n
d
e
r

1
8
)

: 
: 
: 
: 
: 
: 
0 
: 
: 
: 
: 
: 
: 
: 
: 
0 
: 
0 
: 
0 
: 
0 
: 
: 
0 
0 
0 
0 

87 

C
h

i
l

d
r
e
n

T
o
t
a

l

A
d
u
l
t
s

(
1
8
+
)

(

U
n
d
e
r

1
8
)

C
h

i
l

d
r
e
n

T
o
t
a

l

A
d
u
l
t
s

(
1
8
+
)

(

U
n
d
e
r

1
8
)

C
h

i
l

d
r
e
n

: 
: 
: 
: 
: 
: 
0 
: 
: 
: 
: 
: 
: 
: 
: 
0 
: 
0 
: 
0 
: 
0 
: 
: 
0 
0 
0 
0 

: 
: 
: 
: 
: 
0 
0 
: 
: 
: 
: 
: 
: 
: 
9 
0 
: 
0 
: 
0 
: 
0 
: 
: 
0 
0 
0 
9 

: 
: 
: 
: 
: 
: 
0 
: 
: 
: 
: 
: 
: 
: 
: 
0 
: 
0 
: 
0 
: 
0 
: 
62 
0 
0 
0 
62 

: 
: 
: 
: 
: 
: 
0 
: 
: 
: 
: 
: 
: 
: 
: 
0 
: 
0 
: 
0 
: 
0 
: 
21 
0 
0 
0 
21 

: 
: 
: 
: 
: 
2 
0 
: 
: 
: 
: 
: 
: 
: 
: 
0 
: 
0 
: 
0 
: 
: 
: 
84 
0 
0 
0 
86 

68 
112 
473 
127 
: 
: 
74 
23 
99 
252 
53 
13 
99 
28 
699 
37 
8 
22 
10 
1166 
191 
156 
596 
64 
40 
28 
715 
4 302 

4 
4 
67 
13 
: 
: 
2 
1 
3 
12 
3 
18 
77 
16 
44 
10 
: 
0 
1 
259 
31 
35 
300 
21 
0 
2 
188 
1 061 

T
o
t
a

l

72 
116 
540 
140 
87 
603 
76 
24 
102 
264 
56 
31 
176 
44 
756 
47 
8 
22 
11 
1 437 
222 
201 
896 
86 
40 
30 
903 
6 934 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Table B2: Number of registered victims by gender and age (Adult/Child): 2014 

Female 

Male 

Gender 
Other 

Unknown 

Total 

Age 

A
d
u
l
t
s

(
1
8
+
)

(

U
n
d
e
r

1
8
)

C
h

i
l

d
r
e
n

AT 
BE 
BG 
CY 
CZ 
DE 
DK 
EE 
EL 
ES 
FI 
HR 
HU 
IE 
IT 
LT 
LU 
LV 
MT 
NL 
PL 
PT 
RO 
SE 
SI 
SK 
UK 
Total 

47 
: 
433 
74 
18 
497 
60 
: 
54 
139 
34 
9 
138 
26 
: 
19 
3 
26 
14 
1 055 
: 
81 
283 
2 
10 
22 
634 
3 678 

5 
: 
29 
8 
14 
41 
3 
1 
13 
7 
1 
20 
107 
5 
: 
2 
: 
0 
1 
218 
: 
14 
280 
: 
2 
0 
202 
973 

A
d
u
l
t
s

(
1
8
+
)

(

U
n
d
e
r

1
8
)

C
h

i
l

d
r
e
n

26 
: 
17 
24 
36 
38 
6 
1 
10 
7 
9 
4 
21 
7 
: 
23 
6 
8 
5 
160 
: 
44 
184 
2 
1 
12 
351 
1 002 

: 
: 
12 
3 
0 
7 
2 
: 
1 
0 
2 
4 
17 
8 
: 
3 
1 
0 
: 
65 
: 
7 
10 
: 
0 
0 
170 
312 

T
o
t
a

l

52 
54 
462 
82 
32 
538 
63 
1 
67 
146 
35 
29 
245 
31 
295 
21 
3 
26 
15 
1 273 
143 
103 
563 
2 
12 
22 
836 
5 151 

T
o
t
a

l

26 
84 
29 
27 
36 
45 
8 
1 
11 
7 
11 
8 
38 
15 
125 
26 
7 
8 
5 
225 
64 
56 
194 
2 
1 
12 
521 
1 592 

A
d
u
l
t
s

(
1
8
+
)

(

U
n
d
e
r

1
8
)

: 
: 
: 
: 
: 
0 
0 
: 
: 
: 
: 
: 
: 
: 
: 
0 
: 
0 
: 
0 
: 
0 
: 
: 
0 
0 
1 
1 

88 

C
h

i
l

d
r
e
n

T
o
t
a

l

A
d
u
l
t
s

(
1
8
+
)

(

U
n
d
e
r

1
8
)

C
h

i
l

d
r
e
n

T
o
t
a

l

A
d
u
l
t
s

(
1
8
+
)

(

U
n
d
e
r

1
8
)

C
h

i
l

d
r
e
n

: 
: 
: 
: 
: 
0 
0 
: 
: 
: 
: 
: 
: 
: 
: 
0 
: 
0 
: 
0 
: 
0 
: 
: 
0 
0 
0 
0 

: 
: 
: 
: 
: 
0 
0 
: 
: 
: 
: 
: 
: 
: 
4 
0 
: 
0 
: 
0 
: 
0 
: 
: 
0 
0 
1 
5 

: 
: 
: 
: 
: 
0 
0 
: 
: 
: 
: 
: 
: 
: 
: 
: 
: 
0 
: 
0 
: 
0 
: 
74 
0 
0 
0 
74 

: 
: 
: 
: 
: 
0 
0 
: 
: 
: 
: 
: 
: 
: 
: 
0 
: 
0 
: 
0 
: 
: 
: 
19 
0 
0 
0 
19 

: 
: 
: 
: 
47 
0 
0 
: 
: 
: 
: 
: 
: 
: 
: 
0 
: 
0 
: 
0 
: 
: 
: 
93 
0 
0 
0 
140 

73 
133 
450 
98 
54 
535 
66 
1 
64 
146 
43 
13 
159 
33 
392 
42 
9 
34 
19 
1 215 
173 
125 
467 
78 
11 
34 
986 
4 900 

5 
5 
41 
11 
14 
48 
5 
1 
14 
7 
3 
24 
124 
13 
30 
5 
1 
0 
1 
283 
34 
23 
290 
19 
2 
0 
372 
1 314 

T
o
t
a

l

78 
138 
491 
109 
115 
583 
71 
2 
78 
153 
46 
37 
283 
46 
424 
47 
10 
34 
20 
1 561 
207 
161 
757 
97 
13 
34 
1 358 
6 907 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Table C: Number of registered victims by type of exploitation and gender 

Sexual 

Labour 

2013 

F
e
m
a
e

l

47 
36 
411 
78 
22 
518 
58 
10 
: 
263 
27 
853 
18 
119 
21 
: 
9 
8 
3 
9 
904 
67 
49 
450 
2 
39 
15 
369 

M
a
e

l

1 
1 
17 
0 
32 
23 
0 
: 
: 
1 
2 
18 
0 
51 
8 
: 
0 
: 
0 
: 
41 
0 
: 
0 
: 
0 
0 
11 

T
o
t
a

l

48 
37 
428 
78 
54 
542 
58 
10 
39 
264 
29 
871 
18 
170 
29 
408 
9 
8 
3 
9 
945 
67 
51 
450 
43 
39 
15 
380 

F
e
m
a
e

l

: 
12 
11 
13 
4 
13 
5 
4 
: 
: 
5 
: 
3 
2 
6 
: 
2 
: 
4 
2 
84 
15 
24 
80 
: 
0 
3 
76 

M
a
e

l

: 
67 
33 
27 
22 
47 
6 
10 
: 
: 
15 
: 
10 
4 
2 
: 
2 
: 
0 
: 
99 
19 
105 
295 
: 
1 
7 
304 

T
o
t
a

l

: 
79 
44 
40 
26 
61 
11 
14 
57 
: 
20 
: 
13 
6 
8 
131 
4 
0 
4 
2 
183 
34 
129 
375 
31 
1 
10 
380 

AT 
BE 
BG 
CY 
CZ 
DE 
DK 
EE 
EL 
ES 
FI 
FR 
HR 
HU 
IE 
IT 
LT 
LU 
LV 
MT 
NL 
PL 
PT 
RO 
SE 
SI 
SK 
UK 

Total 

4 405 

206 

5 102 

368 

1 075 

1 663 

Other 

M
a
e

l

7 
: 
6 
4 
: 
: 
7 
: 
: 
: 
3 
: 
: 
0 
1 
: 
21 
: 
0 
: 
9 
20 
6 
24 
: 
0 
2 
36 

146 

F
e
m
a
e

l

17 
: 
7 
18 
: 
: 
0 
: 
: 
: 
5 
: 
: 
0 
6 
: 
13 
: 
15 
: 
179 
21 
4 
47 
: 
0 
8 
107 

447 

T
o
t
a

l

24 
0 
13 
22 
: 
: 
7 
: 
6 
: 
8 
: 
: 
0 
7 
207 
34 
0 
15 
: 
188 
41 
10 
71 
12 
0 
10 
143 

818 

K
n
o
w

D
o
n
'
t

T
o
t
a

l

: 
: 
: 
0 
7 
: 
0 
: 
: 
: 
: 
: 
: 
0 
: 
10 
0 
: 
0 
: 
126 
80 
11 
: 
: 
0 
0 
: 

234 

72 
116 
485 
140 
87 
603 
76 
24 
102 
264 
57 
871 
31 
176 
44 
756 
47 
8 
22 
11 
1 442 
222 
201 
896 
86 
40 
35 
903 

7 817 

89 

Sexual 

Labour 

2014 

F
e
m
a
e

l

30 
38 
398 
59 
25 
533 
57 
1 
: 
146 
28 
681 
27 
233 
26 
: 
8 
3 
0 
7 
995 
60 
76 
498 
2 
9 
13 
486 

M
a
e

l

: 
5 
11 
2 
: 
24 
0 
: 
: 
7 
0 
29 
3 
22 
6 
: 
0 
: 
0 
: 
31 
0 
0 
0 
: 
0 
0 
19 

4 439 

159 

T
o
t
a

l

30 
43 
409 
61 
64 
557 
57 
1 
56 
153 
28 
710 
31 
255 
32 
215 
8 
3 
0 
8 
1 026 
60 
76 
498 
33 
9 
13 
506 

4 942 

F
e
m
a
e

l

: 
12 
3 
9 
0 
5 
2 
: 
: 
: 
1 
: 
3 
0 
3 
: 
1 
: 
4 
10 
127 
31 
13 
33 
: 
1 
4 
119 

381 

M
a
e

l

: 
74 
13 
19 
46 
21 
1 
1 
: 
: 
7 
: 
4 
16 
4 
: 
5 
7 
8 
3 
146 
31 
43 
155 
: 
1 
8 
404 

T
o
t
a

l

: 
86 
16 
28 
46 
26 
3 
1 
5 
: 
8 
: 
7 
16 
7 
46 
6 
7 
12 
12 
273 
62 
56 
188 
13 
2 
12 
523 

1 017 

1 461 

Other 

M
a
e

l

26 
5 
6 
6 
: 
0 
2 
: 
: 
: 
4 
: 
1 
0 
5 
: 
21 
: 
0 
: 
2 
13 
9 
39 
2 
0 
5 
98 

244 

F
e
m
a
e

l

22 
4 
25 
14 
: 
0 
7 
: 
: 
: 
5 
: 
2 
12 
2 
: 
12 
: 
22 
: 
58 
21 
10 
32 
: 
2 
12 
231 

493 

K
n
o
w

D
o
n
'
t

T
o
t
a

l

: 
: 
: 
0 
5 
0 
2 
: 
: 
: 
: 
: 
: 
0 
: 
2 
0 
: 
0 
: 
216 
51 
9 
: 
: 
: 
0 
: 

285 

78 
138 
456 
109 
115 
583 
71 
2 
78 
153 
45 
710 
41 
283 
46 
424 
47 
10 
34 
20 
1 575 
207 
161 
757 
97 
13 
42 
1 358 

7 653 

T
o
t
a

l

48 
9 
31 
20 
: 
0 
9 
: 
17 
: 
9 
: 
3 
12 
7 
161 
33 
0 
22 
: 
60 
34 
20 
71 
51 
2 
17 
329 

965 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Table D1: Number of victims by citizenship (EU Citizens) 

Citizenship 
Romania 
Bulgaria 
Netherlands 
Hungary 
Poland 
France 
Slovakia 
Lithuania 
United Kingdom 
Germany 
Latvia 
Czech Republic 
Portugal 
Croatia 
Spain 
Ireland 
Greece 
Estonia 
Italy 
Slovenia 
Belgium 
Cyprus 
Finland 
Sweden 
Malta 
Austria 
Denmark 
Luxembourg 
Total 

2013 Total 

2014 Total 

Grand Total 

1 898 
908 
468 
428 
223 
127 
168 
106 
115 
91 
48 
47 
41 
36 
18 
9 
15 
< 5 
6 
6 
< 5 
< 5 
< 5 
< 5 

4 772 

3 959 
1 876 
924 
904 
396 
326 
267 
217 
201 
191 
106 
98 
80 
59 
39 
22 
21 
19 
18 
7 
7 
6 
< 5 
< 5 
< 5 
< 5 
< 5 

9 752 

2 061 
968 
456 
476 
173 
199 
99 
111 
86 
100 
58 
51 
39 
23 
21 
13 
6 
16 
12 
< 5 
< 5 
< 5 
< 5 
< 5 
< 5 
< 5 
< 5 

4 980 

90 

 
 
 
 
 
 
 
 
 
 
Table D2: Number of victims by citizenship (EU citizens) and registering country: 2013-2014 

D
K

11 

A
T

B
E

B
G

C
Y

C
Z

D
E

58 
19 

32 

6 

59 
12 

1 031 

53 

60 
51 

7 

353 
241 

73 
40 

178 

13 

6 

Registering Member State 

E
E

E
L

E
S

F
I

F
R

H
R

H
U

I
E

I
T

L
T

L
U

L
V

M
T

N
L

P
L

P
T

19 

197 
39 

8 

419 

42 
39 

207 
20 

353 
89 

322 

10 

25 

55 

10 

17 

20 

12 

93 

56 

193 
10 

79 
25 

98 

59 

409 
277 
923 
264 
119 

19 
17 

12 
8 
10 
15 

7 

6 

6 

R
O

1 651 

S
E

S
I

S
K

35 

62 

6 

U
K

163 
13 

93 
126 

159 
100 
197 

36 
52 

T
o
t
a

l

3 959 
1 876 
924 
904 
396 
326 
267 
217 
201 
191 
106 
98 
80 
59 
39 
22 
21 
19 
18 
7 
7 
6 

 124 

77 

1 031 

129 

65 

898 

17 

17 

95 

256 

11 

788 

59 

421 

49 

267 

94 

6 

56 

2 107 

205 

262 

1 652 

6 

45 

62 

949 

9 752 

Due to statistical secrecy in place in Member States to protect the identity of victims, actual EU totals may be slightly higher than the numbers reproduced here. 

Between 1 and 4 victims registered 

C
i
t
i
z
e
n
s
h
p

i

RO 
BG 
NL 
HU 
PL 
FR 
SK 
LT 
UK 
DE 
LV 
CZ 
PT 
HR 
ES 
IE 
EL 
EE 
IT 
SI 
BE 
CY 
FI 
SE 
MT 
AT 
DK 
LU 
Total 

91 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
  
  
 
  
 
  
  
 
  
  
 
 
 
 
  
 
 
 
 
 
  
  
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
  
 
 
 
 
 
 
  
 
  
 
  
 
  
 
 
 
  
 
 
  
 
 
  
 
 
 
  
  
 
  
 
 
  
  
  
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
  
 
 
 
  
  
 
 
  
  
 
  
 
 
  
 
 
 
  
  
 
 
 
 
 
 
 
 
 
 
 
 
 
  
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
  
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
  
 
 
 
 
 
  
 
 
 
  
 
 
  
  
 
 
 
  
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
  
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
Table D3: Number of victims by citizenship (non-EU Citizens) 

2013 Total 

2014 Total 

Grand Total 

Nigeria 
China 
Albania 
Viet Nam 
Morocco 
Brazil 
Philippines 
Bangladesh 
Guinea 
India 
Sierra Leone 
Ukraine 
Eritrea 
Cameroon 
Uganda 
Ghana 
Pakistan 
Egypt 
Afghanistan 
Other citizenship* 
Total 

661 
246 
149 
141 
79 
70 
51 
68 
56 
35 
45 
35 
6 
32 
34 
34 
27 
37 
32 
735 
2 573 

527 
221 
298 
161 
107 
112 
113 
30 
39 
49 
33 
42 
69 
33 
31 
25 
27 
17 
18 
653 
2 605 

1 188 
467 
447 
302 
186 
182 
164 
98 
95 
84 
78 
77 
75 
65 
65 
59 
54 
54 
50 
1 388 
5 178 

*Other may contain some EU citizens whose precise citizenship could not be established.  

92 

 
 
 
 
 
 
Table D4: Number of victims by citizenship (non-EU Citizens) and registering Member State: 2013-2014 

Citizenship 

A
T

B
E

C
Y

C
Z

D
E

D
K

E
E

E
L

E
S

F
I

F
R

H
R

H
U

I
E

I
T

L
U

M
T

N
L

P
L

P
T

R
O

S
I

S
K

U
K

Registering Member State* 

Nigeria 
China 
Albania 
Viet Nam 
Morocco 
Brazil 
Philippines 
Bangladesh 
Guinea 
India 
Sierra Leone 
Ukraine 
Eritrea 
Cameroon 
Uganda 
Ghana 
Pakistan 
Egypt 
Afghanistan 
Other citizenship 
Total 

13 
15 
6 

32 

8 

10 

27 

8 

33 

83 

6 

8 
6 

9 

7 

50 
14 

16 

40 

9 

225 
226 
9 

26 
92 

35 

26 

15 

10 

388 
63 
51 

88 
16 

37 

7 

21 
6 

7 
15 
46 

11 

9 

36 

14 

21 

25 

13 

96 
51 
25 
25 
21 
21 
91 

86 
17 
55 
14 
35 
11 
22 
15 

12 
75 
Due to statistical secrecy in place in Member States to protect the identity of victims, actual EU totals may be slightly higher than the numbers reproduced here. 

23 
102 

73 
161 

175 
788 

162 
913 

50 
120 

16 
130 

16 
26 

15 
68 

21 
91 

38 
38 

9 
41 

9 
9 

9 
9 

12 

27 

15 
65 

6 
8 

30 
209 
288 

8 
291 
891 

*BG, LV, LT, SE did not register any non-EU citizens in the period in question. 

Between 1 and 4 victims registered 

93 

T
o
t
a

l

1 188 
467 
447 
302 
186 
182 
164 
98 
95 
84 
78 
77 
75 
65 
65 
59 
54 
54 
50 
1 388 
5 178 

198 
68 
348 
223 
6 

27 
19 
7 
25 
19 

34 
12 
33 
25 
22 

8 
231 
1 312 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
  
 
 
  
 
 
  
  
  
 
 
 
  
  
 
 
  
 
  
  
 
 
  
 
 
 
 
 
 
 
 
 
 
  
 
  
 
 
 
 
  
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
  
 
  
  
  
 
 
 
  
 
  
 
 
 
 
  
  
 
 
 
  
 
 
 
 
 
  
 
 
 
 
 
  
 
 
 
 
 
 
 
 
  
 
 
 
  
  
 
  
 
 
  
 
 
 
  
 
 
 
 
 
  
 
 
 
 
  
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
  
  
 
 
  
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
  
  
 
  
 
  
 
  
  
 
 
 
 
 
 
 
  
  
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
  
  
  
 
 
  
  
  
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
  
  
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
  
 
  
 
 
 
  
  
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
  
 
 
 
 
 
  
  
 
 
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
  
  
  
  
  
  
  
 
Table E: Suspects, prosecutions and convictions* 

Reporting 
Country 
AT 
BE 
BG 
CY 
CZ 
DE 
DK 
EE 
EL 
ES 
FI 
FR 
HR 
HU 
IE 
IT 
LT 
LU 
LV 
MT 
NL 
PL 
PT 
RO 
SE 
SI 
SK 
UK 
Total 

2013 
Suspects  Persons 

Prosecuted 
11 
432 
129 
34 
30 
: 
20 
2 
42 
92 
34 
: 
: 
106 
16 
: 
33 
: 
5 
: 
254 
47 
29 
552 
3 
9 
12 
167 
2 059 

: 
: 
111 
: 
25 
: 
20 
9 
142 
: 
9 
629 
: 
164 
: 
: 
: 
: 
18 
: 
254 
135 
36 
1 363 
: 
15 
12 
210 
3 152 

Persons 
Convicted 
2 
90 
106 
4 
19 
: 
6 
2 
46 
9 
4 
688 
: 
: 
10 
: 
11 
: 
13 
: 
151 
24 
9 
253 
2 
2 
4 
69 
1 524 

2014 
Suspects  Persons 

Prosecuted 
25 
258 
89 
50 
25 
: 
12 
7 
40 
113 
24 
: 
: 
185 
14 
: 
40 
: 
11 
: 
278 
21 
: 
616 
3 
9 
10 
190 
2 020 

: 
: 
87 
: 
16 
: 
15 
3 
125 
: 
4 
590 
: 
222 
: 
: 
: 
: 
17 
: 
278 
103 
43 
1 438 
: 
8 
34 
189 
3 172 

Persons 
Convicted 
23 
84 
56 
12 
6 
: 
12 
2 
15 
11 
0 
739 
: 
: 
9 
: 
18 
: 
14 
: 
124 
17 
: 
331 
1 
0 
23 
108 
1 605 

*Numbers may refer to persons, offences, or cases.  Please see metadata for details 

94 

 
 
 
 
 
 
Metadata 

Member State  Comments on what is included in "Other", for type of exploitation 
AT 
BE 

BG 
CY 

CZ 
DE 
DK 
EE 
EL 
ES 
FI 
FR 

HR 
HU 

Forced obedience, organ removal, pregnant women trafficked for the purpose of selling their new-borns 
2013 (10 female for forced marriages, 3 female for begging, 1 female for giving a baby for adoption and 2 
male as unaccompanied minors) 
2014 (7 female for forced marriages, 11 female and 4 male as unaccompanied minors)  

Production of cannabis and selling of drugs 

FORCED BEGGING 

Les chiffres retenus sont toute qualification confondue. Les chiffres ne comptent que les victimes 
identifiées, nous ne disposons pas des chiffres sur les victimes présumées.  

Transit phase 
Please, be informed that the information derives from the official Unified Statistical System of 
Investigations and Prosecutions. The following articles of Act IV. of 1978 (the old Criminal Code) and Act C. 
of 2012 (new Criminal Code) were taken into account when providing the data: Act IV. of 1978 (the old 
Criminal Code): 
Section 175/B. Trafficking in Human Beings 
Section 204. Crimes with Illegal Pornographic Material 
Section 205. Promotion of Prostitution 
Section 206. Living on Earnings of Prostitution 
Section 207. Pandering 
Section 202/A. Sexual Abuse of Children 
Section 195. (3), Abuse of a Minor 
Section 174. Coercion 

95 

Metadata on offences, if not recorded by persons 

Prosecution:  "Cases"   / Convictions: "One conviction is 
associated with a person who was principally convicted for acts 
of human trafficking." 
First column refers to newly initiated pre-trial proceedings 

Les chiffres dans la première colonne correspondent au nombre 
de personnes mises en cause. 
Notre système de données sur la nomenclature des infractions 
étant récente, nous ne disposons pas encore de ces données. 
Le nombre d'infractions : on compte 1365 infractions toute 
qualification confondue en 2013, et 1477 en 2014.  

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Section 175. Violation of Personal Freedom 
Section 214/B. Unlawful Employment of Third-Country Nationals 
Section 173/I. Illegal Use of a Human Body 
Act C. of 2012 (the new Criminal Code) : 
Section 192 Trafficking in Human Beings  
Section 193 Forced Labour  
Section 194 Violation of Personal Freedom  
Section 195 Duress  
Section 196 Sexual Exploitation  
Section 200 Pandering  
Section 201 Procuring for Prostitution or Sexual Act  
Section 202 Living on Earnings of Prostitution  
Section 203 Exploitation of Child Prostitution  
Section 204 Child Pornography  
Section 209 Child Labour 
Section 356 Unlawful Employment of Third-Country Nationals 
Section 175 Illegal Use of a Human Body 
Criminal/Begging, Both Labour and Sexual, Uncategorised Exploitation 
begging, illicit economy, domestic servitude, organ trafficking 
one woman for forced marriage, the rest for criminal activities 

Sham marriages (exploitative marriages) 

Please note that all those data are from criminal investigations 
initiated  in  2014,  this  means  that  the  data  are  higher  if  we 
include the investigations started in previous years 
Information not available at the moment 

forced begging, criminal exploitation, domestic servitude 
2013: Forced Begging; Exploitation of criminal activities; sexual and labour exploitation; adoption/selling 
of minor; 2014: Labour and Exploitation of criminal activities; Exploitation of criminal activities; Forced 
begging; Adoption; Sexual and Labour Exploitation;  
BEGGING, COMMITING THEFTS AND TENTATIVES TO TRAFFICKING 
Other: begging, removal of organs, petty crimes, other purposes 
forced marriage 
forced marriage, forced begging and forced criminal activities 
Domestic Servitude, Organ Harvesting and Unknown (Labour includes Criminal) 

96 

Prosecutions and convictions are recorded by offence NOT by 
person (one defendant can be charged with more than one 
offence) 

IE 
IT 
LT 

LU 
LV 
MT 
NL 
PL 
PT 

RO 
SE 
SI 
SK 
UK 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Further metadata 

Number of registered victims 

ES  Presumed  Victims:  This  concept  does  not  exit  in  our  national  legislation.  From  the  Ministry  of 
Interior (BDTRATA database) we use other concept: people at risk that means those persons identified 
in the course of an administrative inspection in those places where prostitution takes place, so it is not 
a comparable figure. 
Number of presumed victims: 2013: 13159; 2014: 13983 
Elsewhere, all victims refer to identified victims for THB for sexual exploitation.  We hope we will 
able  to  provide  figures  also  in  THB  for  labour  exploitation  next  year,  and  also  for  other  forms  of 
exploitation in a near future. 
SE  Formally  only  use  the  term  identified  victims  in  the  official  data  collection  but  for  this  exercise 
also provided information on presumed victims 

Breakdown by age/gender 

Totals may not add up due to non-identification of age and/or gender. 
PL Breakdown by age and gender is only for presumed victims 

Type of Exploitation 

Totals may not add up due to non-identification of gender, or because a victim was exploited for more 
than one purpose.  Specific notes: 
CZ  For  2014,  full  breakdown  by  gender  of  sexual  exploitation  victims  is  not  available.  Number  of 
females is at least 25. 
HR In 2014, 3 female victims were exploited for both sexual and labour purposes. 
PL Breakdown by type of exploitation is only for presumed victims 
UK For 2014, sexual exploitation includes 1 person with gender "Other" 

Citizenship 

CZ  The  data  are  only  for  presumed  victims  as  the  statistics  of  identified  victims  does  not  register 
citizenship of the victims (will be available since 2016). 

97