A delegation of the Council of Europe’s Group of Experts on Action against Trafficking in Human Beings (GRETA) carried out an evaluation visit to Latvia on 7-11 April 2025 as part of the fourth evaluation round of the Convention on Action against Trafficking in Human Beings.

This evaluation round of monitoring the implementation of the Convention focuses on vulnerabilities to human trafficking and measures taken by States Parties to prevent them, detect and support vulnerable victims, and punish the offenders. This includes the use of information and communication technology (ICT), which brings structural changes to the way offenders operate and exacerbates existing vulnerabilities. In addition to the new thematic focus, GRETA examines how the main recommendations made in its third evaluation report have been implemented. Prior to the visit, the Latvian authorities provided a reply to GRETA’s questionnaire for the fourth evaluation round.

During the visit, the GRETA delegation met Mr Jānis Bekmanis, Deputy State Secretary of the Ministry of the Interior, Ms Beate Barkāne-Iļjenkova, Head of the Office of the Minister of the Interior, and Ms Agnese Zīle, National Anti-Trafficking Co-ordinator. Meetings were also held with representatives of the Ministry of Justice, the Ministry of Welfare, the Ministry of Culture, Ministry of Education and Science, the Ministry of Health, and the Ministry of Foreign Affairs. Further, the delegation met officials from the State Police, the State Border Guard, the Office for Migration and Citizenship, the State Labour Inspectorate, the State Employment Agency, the Financial Intelligence Unit, the Child Protection Centre, the Social Integration Foundation, the Court Administration, the Justice Academy, the General Prosecutor’s Office, and a judge from the Supreme Court. Meetings were also held with Members of Parliament and the Ombudsman Office. 

In addition, the GRETA delegation met representatives of the Riga Municipality Welfare Department and Riga’s Orphan’s and Custody Court, as well as the local social services and Orphan’s and Custody Court in Ropaži.

The GRETA delegation held separate meetings with representatives of non-governmental organisations and trade unions. Discussions were also held with representatives of the International Organization for Migration (IOM) and the United Nations High Commissioner for Refugees (UNHCR).

In the course of the visit, the delegation visited the “Lighthouse Transition Care” centre for young people leaving foster care, a day centre for refugees and homeless persons and a crisis centre for families and children operated by the Salvation Army in Riga. Further, GRETA visited an asylum reception centre and the immigration detention centre in Mucenieki.

The visit was carried out by Ms Antoaneta Vassileva, First Vice-President of GRETA, and Mr Luka Maderić, Second Vice-President of GRETA, who were accompanied by Ms Teresa Armengol de la Hoz of the Secretariat of the Convention. 

Following the visit, GRETA will prepare a draft report which will be sent to the Latvian authorities for comments. GRETA will subsequently adopt a final report which will be published.

 See also: GRETA and Latvia

Some 25 representatives of government agencies and civil society organisations of North Macedonia met in Skopje on 2 April 2025 to discuss progress in implementing the Council of Europe Convention on Action against Trafficking in Human Beings, based on the third evaluation report issued by the Group of Experts on Action against Trafficking in Human Beings (GRETA) and the related Committee of the Parties’ recommendation.

The round-table discussions centred on trafficking victims’ access to legal assistance, free legal aid and compensation, the criminal justice response to human trafficking, measures to combat trafficking for the purpose of labour exploitation, and action against child trafficking.

North Macedonia is expected to report to the Committee of the Parties on measures taken to comply with the recommendation by 16 June 2025.

 See also: GRETA and North Macedonia

Some 37 representatives of Serbian ministries, government agencies and civil society organisations met in Belgrade on 10 April 2025 to discuss progress in the implementation of the Council of Europe Convention on Action against Trafficking in Human Beings, on the basis of the third evaluation report issued by the Group of Experts on Action against Trafficking in Human Beings (GRETA) and the related Committee of the Parties’ recommendation.

The round-table meeting was co-organised by the Anti-Trafficking Division of the Council of Europe and the Ministry of the Interior of Serbia. At the opening of the meeting, Mr Nenad Simić, Serbia’s National Coordinator for Combating Trafficking in Human Beings, presented the draft Law on the Prevention and Suppression of Human Trafficking and Protection of Victims. Ms Petya Nestorova, Head of the Anti-Trafficking Division of the Council of Europe, noted the support that the Council of Europe has been providing to Serbia through the project “Strengthening anti-trafficking action in Serbia”, implemented within the joint programme of the European Union and the Council of Europe “Horizontal Facility for the Western Balkans and Türkiye”.

The discussions focused on trafficking victims’ access to legal aid, compensation and specialised assistance, measures to strengthen the criminal justice response to human trafficking and the protection of vulnerable victims, steps taken to combat trafficking for the purpose of labour exploitation and the prevention of child trafficking.

Serbia is expected to report to the Committee of the Parties on the measures taken to comply with the third-round recommendation by 16 June 2025.

 See also: GRETA and Serbia

On the occasion of the 25^th OSCE Alliance against Trafficking in Persons conference, the Council of Europe organised a side-event, in Vienna, on 1 April 2025, on preventing trafficking and online exploitation among displaced children of Ukraine.

War and mass displacement heighten the risks of human trafficking, and children are particularly vulnerable to such risks. Furthermore, as children increasingly use the internet for education and socialising, they face new risks.

Since the start of the armed aggression of the Russian Federation, millions of children are estimated to have been forced to flee Ukraine, the vast majority of them being hosted in Council of Europe member States. Using the Ukrainian context as a case study, the event examined how the Council of Europe standards can be applied to protect children from human trafficking and online exploitation. It highlighted existing tools and support mechanisms designed to prevent further victimisation through information and communication technologies.

Panellists included Dorothea Czarnecki, member of the Council of Europe Group of Experts on Action against Trafficking in Human Beings (GRETA), Head of anti-human trafficking/child protection at FORENSIK.IT, Berlin; Corah Caples, member of the Lanzarote Committee, Assistant Principal Officer, Criminal Justice Policy, Department of Justice of Ireland; Julia Sachenko, Director of Child Protection and Anti-Trafficking, Save Ukraine; and Virgil Spiridon, Head of Operations, Cybercrime Programme Office of the Council of Europe. The discussion was moderated by Petya Nestorova, Executive Secretary of the Council of Europe Convention on Action against Trafficking in Human Beings.

• Concept paper and relevant Council of Europe documents

Professor Conny Rijken, the Dutch National Rapporteur on Human Trafficking and Sexual Violence against Children, has been elected as the President of the Group of Experts on Action against Trafficking in Human Beings (GRETA) for a two-year term.

Upon her election, Professor Rijken expressed her commitment to advancing the work of GRETA. She stated: “This year marks the 20th anniversary of the opening for signature of the Council of Europe Convention on Action against Trafficking in Human Beings. Over the past two decades, this landmark treaty has provided a comprehensive framework for preventing trafficking, protecting victims, and prosecuting traffickers.

While significant progress has been made by member states in following the human-rights based approach of the Convention, the persistence of human trafficking and the emergence of new forms of exploitation call for renewed commitment from all actors. GRETA plays a crucial role in monitoring the implementation of the Convention.

Over the years, GRETA’s work has had a significant impact in improving anti-trafficking policies and measures across Europe. Our recommendations have led to legislative reforms, enhanced victim protection mechanisms, and stronger co-operation between stakeholders. By shedding light on emerging trends and challenges, we help shape more effective strategies to combat this serious human rights violation.

GRETA has launched the fourth evaluation round of the Convention, which focuses on vulnerabilities to human trafficking and measures taken by States Parties to prevent them, detect and support vulnerable victims, and punish the offenders. An additional focus concerns the use of information and communication technology (ICT), which exacerbates existing vulnerabilities.

By addressing vulnerabilities, we can take more effective action to protect those most at risk and ensure that no one is left behind. As President, I am committed to ensuring that GRETA remains a strong and independent voice in the fight against human trafficking."

The Group of Experts on Action against Trafficking in Human Beings (GRETA) held its 53rd plenary meeting from 24 to 28 March 2025, in Strasbourg, France.

GRETA elected its new Bureau for the next two-year period. Professor Conny Rijken, who is the Dutch National Rapporteur on Human Trafficking and Sexual Violence against Children, was elected as GRETA’s President. Antoaneta Vassileva, Head of the Bulgarian Safer Internet Centre, was re-elected as GRETA’s First Vice-President. Luka Maderić, a Croatian lawyer, was elected as GRETA’s Second Vice-President.

During the meeting, GRETA adopted final reports on Albania, Croatia and the Republic of Moldova as part of the fourth evaluation round of the Convention, as well as a final report on Ukraine under the third evaluation round of the Convention. These reports will be sent to the authorities concerned and will subsequently be made public, together with eventual final comments received from the authorities.

GRETA also approved draft reports on Bulgaria, Denmark, Georgia, Montenegro and Romania as part of the fourth evaluation round. GRETA decided to transmit these draft reports to the national authorities concerned and to ask them to submit their comments within two months. The comments will be taken into account when GRETA draws up its final evaluation reports. GRETA draft reports remain confidential until their final adoption.

 Composition of GRETA

 Photo gallery

In its latest report on the Slovak Republic, the Council of Europe’s Group of Experts on Action against Trafficking in Human Beings (GRETA) acknowledges progress in combatting trafficking in human beings but urges the authorities to prevent trafficking of vulnerable children, including Roma children and children in residential care, to identify victims of trafficking for the purpose of labour exploitation, and to effectively punish the offenders.

The report, covering the period 2020-2024, evaluates the measures taken by the Slovak Republic to prevent vulnerabilities to trafficking in human beings, detect and support vulnerable victims and punish the offenders, paying particular attention to the use of information and communication technologies to commit human trafficking offences.

The Slovak Republic remains primarily a country of origin and transit of victims of trafficking in human beings. Some 50 victims of human trafficking are identified every year, mainly for sexual exploitation, followed by labour exploitation. Most presumed victims are female and close to one-third are children.

GRETA welcomes that the country has expanded its legislative framework to enhance action against human trafficking. Key reforms include extending the non-punishment provision, amendments to the Victims Act facilitating access to state compensation, and an improved National Referral Mechanism that simplifies victim identification and referral procedures. In addition, the National Programme for Combating Trafficking in Human Beings (2024-2028) prioritises early victim identification, access to services, and improvements to the criminal justice process.

A key focus of GRETA’s report is the vulnerability of specific groups to trafficking. The Slovak authorities recognise that unaccompanied children and children living or leaving institutional care, persons from the Roma community, homeless individuals, migrants, asylum seekers, and persons with disabilities are particularly at risk.

Whilst acknowledging some measures in place to address the risks they are exposed to, GRETA urges further action to safeguard these vulnerable groups, including strengthening the protection of children in state care, increasing awareness and training for professionals working with Roma communities, and enhancing the capacity of labour inspectors to identify trafficking victims in the workplace.

The report notes positively Slovakia’s efforts to raise awareness and prevent human trafficking facilitated through information and communication technology. It, however, considers that the authorities should strengthen the capacity of investigators to monitor online activities, conduct undercover operations, and analyse social networks to detect and prevent human trafficking crimes carried out via digital platforms.

Despite this progress, GRETA remains concerned that several recommendations from its previous reports have not yet been fully implemented. It urges the authorities to:

• Ensure that cases of human trafficking are investigated proactively and promptly and prosecuted effectively, leading to effective, proportionate and dissuasive sentences;
• Facilitate access to compensation for victims of trafficking by ensuring that they can access legal aid at the outset of criminal proceedings, collecting evidence on financial gains obtained through the victims’ exploitation, and fully utilising asset freezing and forfeiture legislation to secure compensation for victims;
• Provide a legally mandated recovery and reflection period granting presumed victims of human trafficking access to assistance and protection before formal identification.

 GRETA and the Slovak Republic

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The Group of Experts on Action against Trafficking in Human Beings (GRETA) is an independent body which monitors the way countries implement the Council of Europe Convention on Action against Trafficking in Human Beings. All 46 member states of the Council of Europe are bound by the Convention, as well as non-member states Belarus and Israel.

Some 40 lawyers from different countries, members of the Council of Europe Network of specialised lawyers and NGOs providing legal assistance to victims of trafficking in human beings, joined a webinar on 13 March 2025 to discuss recent developments in the European Court of Human Rights case-law on trafficking in human beings.

Katarina Trnkova, Lawyer at the Registry of the Court, presented three new judgments: B.B. v. Slovakia, I.C. v. the Republic of Moldova and F.M. and Others v. Russia. Professor Parosha Chandran, who was the applicant’s lawyer in the B.B. v. Slovakia case, made an additional presentation on that case.

Further, Anders-Molander Skavlan, Lawyer at the Council of Europe Department for the Execution of Judgments of the Court, explained how lawyers and NGOs can submit communications to the Committee of Ministers with regard to the execution of judgments.

Since its establishment in 2016, the Network has served as a platform for exchanging good practices, facilitating cross-border co-operation among lawyers, and supporting strategic litigation initiatives.

 More information

Published today, the latest report on Austria from the Council of Europe’s Group of Experts on Action against Trafficking in Human Beings (GRETA), which is responsible for monitoring implementation of the Council of Europe Convention on Action against Trafficking in Human Beings, praises positive developments in the country, but also raises concerns.

The report, covering the period 2020-2024, evaluates the measures taken by Austria to prevent vulnerabilities to trafficking in human beings, detect and support vulnerable victims, and punish the offenders. It pays particular attention to the use of information and communication technology (ICT) to commit human trafficking offences as well as the use of technological innovations to prevent trafficking, protect victims and prosecute traffickers.

The number of human trafficking victims identified by the police has remained “relatively stable”, at about 120 per year. While the most frequent form of trafficking remains sexual exploitation of women and girls, the report notes an increase in male victims and victims trafficked for the purpose of labour exploitation. Most victims originated from Nigeria, Romania, Bulgaria, Iraq, Serbia, Philippines and Hungary.

The report praises the “broad consultation” for Austria’s 7th National Action Plan on Combating Human Trafficking (2024-2027), which took prior GRETA recommendations into account. GRETA moreover commends the issuing of new instructions concerning victims of trafficking identified during the asylum procedure and the increased funding provided to two specialised NGOs for assistance to victims of trafficking.

GRETA stresses a shift in human trafficking recruitment to the internet and social media, enabling traffickers not only to identify and recruit their victims remotely, but also a digital exchange of criminal proceeds. In 2023, Austria bolstered funding to the Federal Crime Office’s Joint Operational Office for Combating Migrant Smuggling and Human Trafficking to investigate trafficking offences facilitated by digital technology. The government also set up Cyber Crime Competence Centres at the Criminal Intelligence Service and all regional Public Prosecutor’s Offices. GRETA welcomes these measures, while suggesting that the authorities invest further in capacity building and digital tools for proactive investigations to identify victims recruited and/or exploited online.

Unaccompanied or separated children as a group are particularly vulnerable to human trafficking. In Austria, the majority of such children go missing from asylum reception centres usually at the beginning of the procedure. GRETA urges the authorities to ensure that all unaccompanied and separated children are placed in safe and appropriate accommodation, with adequately trained staff, and are appointed legal guardians as expeditiously as possible.

Another group vulnerable to trafficking are migrant workers in precarious sectors, including restaurants, domestic work, construction, agriculture/seasonal work and delivery services. The number of cases of alleged unlawful employment of third-country nationals has risen in recent years. While welcoming the range of measures put in place in Austria to protect migrant workers, GRETA considers that sufficient staff and resources should be made available to the agencies supervising the working conditions of migrant workers in order to enable them to carry out proactive inspections in at-risk sectors. The authorities should also increase the legal protection of 24-hour care providers and the legally binding certification of recruitment agencies.

GRETA also considers that the authorities should establish a procedure for the identification of victims of trafficking amongst asylum seekers, and take further measures to prevent vulnerabilities to trafficking of asylum seekers by facilitating their access to the labour market, vocational training and German language courses. The authorities should also continue to take measures to counteract the risks of trafficking and exploitation of sex service providers, through legislative improvements, information and awareness raising.

Furthermore, a certain number of recommendations made repeatedly by GRETA in preceding reports have not been implemented or have been only partially implemented. GRETA once again urges the Austrian authorities to act in the following areas:

• Victim identification. The Austrian authorities should set up a National Referral Mechanism (NRM) which follows a multi-disciplinary approach to victim identification and involves a range of frontline actors who may come into contact with trafficking victims, including labour inspectors, social workers, asylum staff, officials dealing with irregular migrants, prison staff, medical professionals, NGOs and trade unions.

• Recovery and reflection period. The Austrian authorities should enshrine in law the recovery and reflection period as provided in Article 13 of the Convention.

• Compensation. The Austrian authorities should make additional efforts to guarantee effective access to compensation for trafficking victims, by instructing prosecutors to systematically request compensation on behalf of victims as part of criminal proceedings, and providing training on the issue of compensation to prosecutors and judges.

 GRETA and Austria

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The Group of Experts on Action against Trafficking in Human Beings (GRETA) is an independent body which monitors the way countries implement the Council of Europe Convention on Action against Trafficking in Human Beings. All 46 member states of the Council of Europe are bound by the Convention, as well as non-member states Belarus and Israel.

In its judgment in the case of I.C. v. the Republic of Moldova (application no. 36436/22), delivered on 27 February 2025, the European Court of Human Rights found that the Moldovan authorities’ failure to protect an intellectually disabled woman from labour exploitation and sexual abuse, and to effectively investigate her allegations, amounted to breaches of Articles 3 (prohibition of inhuman or degrading treatment), 4 (prohibition of forced labour), 8 (right to respect for private and family life), and 14 (prohibition of discrimination) of the European Convention on Human Rights.

The case concerned a Moldovan woman with an intellectual disability who had always lived in State care until in 2013 she was taken by a couple to live on their farm and be the housewife of an employee on the farm. She alleged that the couple had forced her to work on the farm without pay and that the owner of the farm had repeatedly sexually abused her. After escaping in 2018, she contacted an NGO who helped her lodge a complaint with the police. Criminal cases were opened in relation to charges of rape, sexual abuse and human trafficking, but the ensuing criminal proceedings led to the acquittal of the couple who owned the farm.

The Council of Europe’s Group of Experts on Action against Trafficking in Human Beings (GRETA) submitted a third-party intervention in this case concerning the prevention of human trafficking, the interpretation of the concept of “abuse of a position of vulnerability” as part of the offence of human trafficking, and the effective investigation and prosecution of human trafficking offences. The ECtHR referenced GRETA’s submissions and its second report on the Republic of Moldova in its reasoning.

The Court found that the framework concerning the removal from State care of people with intellectual disabilities who had been deprived of their legal capacity and its implementation in practice had failed to provide effective protection from trafficking and/or other forms of treatment contrary to Article 4. It also held that there had been a further violation of Article 4 as concerned the investigation into the applicant’s allegations, in particular a failure to follow up on some obvious lines of inquiry. Further, the Court found that the authorities had had a discriminatory attitude towards the applicant as a woman with an intellectual disability. They had thus failed to properly assess her vulnerability and provide procedural adjustments which might have given her the possibility of obtaining justice.

The judgment highlights the State’s obligation to put in place an appropriate legislative and administrative framework and to take protective measures against human trafficking of persons with intellectual disabilities, as well as to conduct effective investigations into allegations of human trafficking made by vulnerable victims.

 Download the judgment: ECHR judgment in I.C. v. the Republic of Moldova

See also: ECHR case-law on human trafficking

Some 40 representatives of Polish government agencies and civil society organisations met in Warsaw on 28 February 2025 to discuss progress made in the implementation of the Council of Europe Anti-Trafficking Convention, on the basis of the third evaluation report issued by the Group of Experts on Action against Trafficking in Human Beings (GRETA) and the related Committee of the Parties’ recommendation.

The meeting was opened by Mr Czesław Mroczek, First Secretary of State at the Ministry of Interior and Administration, who stated that dismantling criminal groups involved in human trafficking and protecting victims of trafficking were part of the priorities of the Polish authorities. He underlined several steps taken since the publication of the third GRETA report on Poland, including the adoption of a new National Action Plan against Trafficking in Human Beings for the period 2025-2028 and the ongoing preparation of a comprehensive law on trafficking in human beings.

Further, Ms Karina Wegrzynowska, Head of the Council of Europe Office in Warsaw, stated at the opening of the meeting: “The Convention was adopted in Warsaw in 2005, and Poland was among the first countries to ratify it in 2008. This is a sign of the importance attached by the country to combating human trafficking.”

The discussions focused on trafficking victims’ access to legal assistance, legal aid and compensation, the criminal justice response to human trafficking, measures to combat trafficking for the purpose of labour exploitation and action against child trafficking.

Poland is expected to report to the Committee of the Parties to the Convention on the measures taken to comply with the recommendation by 16 June 2025.

The Joint Project “Improving the support services for child victims of trafficking in Austria”, which is implemented by the Council of Europe Anti-Trafficking Division in co-operation with the European Commission, was launched officially in a kick-off meeting held in Vienna on 28 February 2025. The Project is co-funded by the European Union via the Technical Support Instrument (TSI) and the Council of Europe.

The meeting brought together representatives of Austria’s Task Force on Combating Human Trafficking and its Working Group on Combating Child Trafficking, civil society organisations and international organisations active in combating human trafficking.

In his opening address, Andreas Kresbach, the interim Head of the Department Family Law policy and children's rights in the Federal Chancellery/DG Family and Youth, affirmed the commitment of Austria to combating trafficking in human beings, including through this new project aimed at improving the system for identification, assistance and protection of child victims of trafficking. On behalf of the European Commission, Marton Juhasz, Policy Officer in SG-REFORM, stated that the project is fully aligned with the priorities of the European Union and the EU Strategy on Trafficking in Human Beings (2021-2025). Petya Nestorova, Head of the Anti-Trafficking Division of the Council of Europe, underlined Austria’s efforts to combat human trafficking and implement the recommendations made by the Council of Europe Group of Experts on Action against Trafficking in Human Beings (GRETA), and recalled the importance of setting up a specialised facility for child victims of trafficking. Ambassador Ulrike Butschek, Head of the Human Rights Department in the Federal Ministry of European and International Affairs, recalled Austria’s international engagement in combating human trafficking and stressed the importance of coordinated efforts at international, national and regional level.

The purpose of the Joint Project, which will run for two years, is to finalise the concept for setting up a nationwide protection facility for child victims of trafficking and revise the Guidelines on identifying and referring potential victims of child trafficking.

Combating the financial flows associated with trafficking in human beings and confiscating criminal assets are the backbone of the fight against this serious crime. While progress has been made in understanding the scale of the problem, the percentage of criminal assets that are successfully confiscated remains low compared with the estimated volume of proceeds generated by human trafficking.

Article 23(3) of the Council of Europe Convention on Action against Trafficking in Human Beings places a general obligation on States Parties to implement financial sanctions enabling them to confiscate the instrumentalities and proceeds of human trafficking offences. The implementation of the Convention is monitored by the Council of Europe Group of Experts on Action against Trafficking in Human Beings (GRETA), which paid particular attention during the third evaluation round of the Convention to the financial aspects of human trafficking.

A new thematic study, prepared by Nathalie Le Rousseau-Martin, legal consultant and former GRETA member, clarifies the scope of Article 23(3) of the Convention and takes stock of its implementation by the States Parties on the basis of the reports published by GRETA. It puts forth recommendations to ensure that the international obligations related to the financial aspects of the fight against human trafficking are better understood and put into practice.

In a report published today, the Group of Experts on Action against Trafficking in Human Beings (GRETA) calls on Liechtenstein to improve the identification of victims of human trafficking and to step up efforts to prevent and combat trafficking for the purpose of labour exploitation.

While nine presumed victims of trafficking (eight women and one man) were detected by the police in 2018-2023, none were formally identified as victims. GRETA urges the Liechtenstein authorities to ensure that, in practice, the identification of victims of trafficking is not linked to the prospects of a successful investigation and prosecution. The authorities should also pay increased attention to the identification of victims of trafficking among asylum seekers and migrants.

Today’s report emphasizes the need for better access to justice for trafficking victims, including providing legal assistance at an early stage and ensuring victims are informed of their rights, such as the right to a recovery and reflection period and to compensation.

GRETA also highlights the need for improved investigations and prosecutions which do not rely mainly on the testimony of victims.

Moreover, GRETA urges the Liechtenstein authorities to provide sufficient staff and resources to the Labour Inspectorate to enable it to carry out inspections in at-risk sectors, such as construction, hospitality and personal care workers. The authorities should also increase the legal protection for domestic and live-in care workers by making labour law applicable to all such workers and developing the conditions under which access to private households can be granted to inspection.

GRETA and Liechtenstein

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The Group of Experts on Action against Trafficking in Human Beings (GRETA) is an independent body which monitors the way countries implement the Council of Europe Convention on Action against Trafficking in Human Beings. All 46 member states of the Council of Europe are bound by the Convention, as well as non-member states Belarus and Israel.

On 15 January 2025, the Council of Europe, the European Commission (DG REFORM) and the Directorate for Human Rights of the Prime Minister's Office of Malta co-hosted the Final Conference of the Technical Support Instrument (TSI) joint project  "Supporting Malta in the design and implementation of a new National Anti-Trafficking Strategy” (2022-2024).  Held in Saint Julians, the conference featured a presentation of Malta's new National Anti-Trafficking Strategy and Action Plan (2024-2030), which were developed as part of the project, alongside key implementation tools developed under it.

The National Strategy reaffirms Malta's commitment to fulfilling its international obligations in the area of combating human trafficking, in particular under the Council of Europe Convention on Action against Trafficking in Human Beings and the EU Directive 2011/36/EU on preventing and combating trafficking in human beings and protecting its victims. To support the implementation of the Strategy, the project developed key implementation tools, including Theory of Change, Monitoring and Evaluation Framework, Communication Strategy and Action Plan, and Implementation Guidelines.

Opening the conference, Ms Rebecca Buttigieg, Parliamentary Secretary for Equality and Reform, emphasised that the successful implementation of this TSI project has demonstrated Malta’s steadfast commitment to continue to strengthen its anti-trafficking system and to keep the fight against human trafficking high on Malta’s political agenda.

Ms Petya Nestorova, Executive Secretary of the Council of Europe Convention on Action against Trafficking in Human Beings, underlined that the adoption of Malta’s first National Anti-Trafficking Strategy was the expression of political will to reform the country’s anti-trafficking architecture and address new challenges, such as the increase in trafficking for the purpose of labour exploitation and the use of information and communication technologies to recruit and exploit victims.

Mr Angelos Binis, Head of Sector for Rule of Law, Public Administration and Governance, DG REFORM, stressed that trafficking in human beings remains a highly lucrative crime, affecting thousands of individuals, primarily women and girls who are trafficked for sexual exploitation. “We must all do more to help them. I hope the project will not only provide benefits in Malta but also provide a powerful model for others to emulate.”

The conference brought together some 100 participants from Malta’s government ministries and agencies, civil society and international organisations, as well as experts from Bulgaria, France, Greece, Portugal, Spain and the United Kingdom.

During the conference, participants explored key issues in a series of workshops, including developing an effective National Referral Mechanism for the identification of victims of trafficking and their referral to assistance, strengthening collaboration between law enforcement and civil society, and promoting ethical survivor engagement based on empowerment and support.

In addition, a side event on "Children's participation in the design of child-friendly anti-trafficking tools" was organised on 16 January 2025, highlighting the importance of integrating children's perspectives into initiatives to safeguard their rights and well-being.

 More information and resources

 Malta Anti-Trafficking Strategy Toolkit

* The project "Supporting Malta in the design and implementation of a new national anti-trafficking strategy" (September 2022-January 2025) is a joint initiative of the Council of Europe and the European Commission's Directorate General for Structural Reform (DG REFORM). It aims to strengthen Malta's capacity to combat trafficking in human beings by supporting the development of a National anti-trafficking strategy and Action Plan (2024-2030). The project has contributed to actions that strengthen national coordination, improve support for victims and bolster the effective prosecution of traffickers.

Some 20 representatives of Slovenian government agencies, public bodies and civil society met in Ljubljana on 10 December 2024 to discuss the implementation of the Council of Europe Anti-Trafficking Convention, on the basis of the third evaluation report issued by the Group of Experts on Action against Trafficking in Human Beings (GRETA) and the related Committee of the Parties’ recommendation focused on trafficking victims’ access to justice and effective remedies.

Organised by the Anti-Trafficking Division of the Council of Europe and the Ministry of the Interior of Slovenia, the meeting was opened by Ms Helga Dobrin, State Secretary at the Ministry of the Interior and National Anti-trafficking Coordinator. She highlighted Slovenia's commitment to implementing the recommendations and noted recent developments, such as amendments to the Crime Victims Compensation Act, which expanded the eligibility criteria for state compensation to non-national victims.

The discussion focused on the identification of victims of human trafficking, their access to legal assistance, free legal aid and compensation, and the investigation and prosecution of human trafficking offences.

The event provided an opportunity to present Recommendation CM/Rec(2022)21 of the Committee of Ministers to member states on preventing and combating trafficking in human beings for the purpose of labour exploitation.

Slovenia is expected to report to the Committee of the Parties on the measures taken to comply with its recommendation by 16 June 2025.

 GRETA and Slovenia

A delegation of the Council of Europe’s Group of Experts on Action against Trafficking in Human Beings (GRETA) carried out an evaluation visit to Malta on 9-12 December 2024, as part of the fourth evaluation round of the Convention on Action against Trafficking in Human Beings.

This evaluation round of monitoring the implementation of the Convention focuses on vulnerabilities to human trafficking and measures taken by States Parties to prevent them, detect and support vulnerable victims, and punish the offenders. This includes the use of information and communication technology (ICT), which brings structural changes to the way offenders operate and exacerbates existing vulnerabilities. In addition to the new thematic focus, GRETA examines how the main recommendations made in its third evaluation report have been implemented.

Prior to the visit, the Maltese authorities provided a reply to GRETA’s questionnaire for the fourth evaluation round.

During the visit, the GRETA delegation met Mr Jonathan Vassallo, Permanent Secretary of the Office of the Prime Minister for European Funds, Equality, Reforms and Social Dialogue, along with officials from the Human Rights Directorate of the Office. Meetings were also held with officials from other relevant ministries and agencies, including the Ministry for Health, the Foundation for Social Welfare Services, the Social Care Standards Authority, the International Protection Agency, the Agency for the Welfare of Asylum Seekers, the Department for Industrial and Employment Relations, the Jobsplus, the Identity Malta Agency, the Victim Support Agency, the Legal Aid Agency, the Correctional Services Agency, and the Financial Intelligence Analysis Unit. In addition, meetings were held with Ms Victoria Buttigieg, Attorney General, representatives of the judiciary and the police. Further, the delegation met with representatives of the Commission for the Rights of Persons with Disability and the Office of the Commissioner for Children. 

The GRETA delegation held separate meetings with representatives of non-governmental organisations and a lawyer representing victims of trafficking. Discussions were also held with representatives of the International Organization for Migration (IOM) and the United Nations High Commissioner for Refugees (UNHCR).

In the course of the visit, the GRETA delegation visited the safe house for victims of human trafficking and the emergency shelter for victims of domestic violence, run by the agency Appoġġ, which can also accommodate victims of human trafficking, as well as the Safi Barracks Detention Centre for immigrants.

The visit was carried out by Ms Antoaneta Vassileva, First Vice-President of GRETA, and Mr Georgios Vanikiotis, member of GRETA, who were accompanied by Mr Mesut Bedirhanoglu of the Secretariat of the Convention. 

Following the visit, GRETA will prepare a draft report which will be sent to the Maltese authorities for comments. GRETA will subsequently adopt a final report which will be published.

 GRETA and Malta

A delegation of the Council of Europe's Group of Experts on Action against Trafficking in Human Beings (GRETA) carried out an evaluation visit to the United Kingdom from 3 to 11 December 2024, as part of the fourth evaluation round of the Convention on Action against Trafficking in Human Beings.

This new evaluation round of monitoring the implementation of the Convention focuses on vulnerabilities to human trafficking and measures taken by States Parties to prevent them, detect and support vulnerable victims, and punish the offenders. This includes a focus on the use of information and communication technology (ICT), which brings structural changes to the way offenders operate and exacerbates existing vulnerabilities. In addition to the new thematic focus, GRETA examines how the main recommendations made in its third evaluation report on the United Kingdom have been implemented.

The visit enabled GRETA to hold meetings with officials, civil society representatives and individuals with lived experiences across the four constituent countries of the United Kingdom.

In London, the GRETA delegation met the Minister for Safeguarding and Violence against Women and Girls, Jess Phillips MP, and officials from the Home Office, the Ministry of Justice, the Foreign, Commonwealth and Development Office, the Department for Education, the Department of Business and Trade, the Crown Prosecution Service, the National Crime Agency, the National Police Chiefs’ Council, the Gangmasters and Labour Abuse Authority (GLAA), His Majesty’s Prisons and Probation Service, UK Border Force, UK Visas and Immigration, the Metropolitan Police, the Office of Communications, and the Office for Standards in Education, Children’s Services and Skills. Separate meetings were held with the Independent Chief Inspector of Borders and Immigration, David Bolt, and staff of the Office of the Independent Anti-Slavery Commissioner. Further, GRETA’s delegation exchanged with members of the UK Parliament’s All-Party Parliamentary Group on Human Trafficking and Modern Slavery.

In Cardiff, the GRETA delegation met Welsh Government officials and members of the Anti-Slavery Wales Forum and regional Anti-Slavery groups.

In Glasgow, meetings were held with officials from the Scottish Government, the Crown Office and Procurator Fiscal Service, Police Scotland, the Scottish Guardianship Service, Glasgow City Council and GLAA. Separate meetings were held with the Scottish Human Rights Commission and Commissioner for Children and Young People. Further, GRETA met representatives of the Criminal Injuries Compensation Authority, based in Glasgow.

In Belfast, the GRETA delegation met officials from Northern Ireland’s Department of Justice, Department of Health, Police Service, Public Prosecution Service, and GLAA. Discussions were also held with representatives of the Northern Ireland Human Rights Commission.

In the different countries of the UK, GRETA’s delegation held meetings with representatives of non-governmental organisations and trade unions, lawyers, researchers and survivors of trafficking in human beings.

Furthermore, the delegation visited safe houses for victims of trafficking in London, Cardiff, Glasgow and Belfast, as well as an immigration detention centre and a women’s prison.

The visit was carried out by Ms Helga Gayer, President of GRETA, and Mr Peter Van Hauwermeiren, member of GRETA, who were accompanied by Ms Petya Nestorova, Executive Secretary of the Convention, and Ms Parvine Ghadami of the Secretariat of the Convention.

Following the visit, GRETA will prepare a draft report which will be sent to the UK authorities for comments. GRETA will subsequently adopt a final report which will be published together with the authorities’ final comments.

 GRETA and United Kingdom

On 27 November 2024, a roundtable “Ensuring Sustainable Survivors’ Engagement” took place at the University of Malta, Msida, bringing together national anti-trafficking authorities, civil society representatives and international organisations. The event was co-organised by the Council of Europe, the European Commission (DG REFORM), the Human Rights Directorate (Office of the Prime Minister) and the University of Malta.  It aimed at providing national stakeholders with practical tools and strategies to engage survivors in anti-trafficking initiatives, while also promoting the creation of advisory bodies that ensure sustainability of survivors' involvement.  

In her opening address, Noellie Brockdorff, Dean of the Faculty of Media and Knowledge Sciences of the University of Malra, reaffirmed Malta's commitment to combating trafficking in human beings, and emphasised the critical role of survivor engagement in shaping meaningful reforms. Petya Nestorova, Executive Secretary of the Council of Europe Convention on Action against Trafficking in Human Beings, highlighted the principle of participation as a cornerstone of the human rights-based approach to action against human trafficking. She stressed the importance of supporting the creation of advisory bodies composed of individuals with lived experience and involving them in the development of anti-trafficking policies.

The European Commission underlined its commitment to combating human trafficking as part of the EU Strategy on Combatting Trafficking in Human Beings (2021-2025) which sets a comprehensive response to the crime, focusing on prevention, protection and empowerment of victims, and bringing traffickers to justice.  The Commission is pushing for EU-wide anti-trafficking strategies and supports Member States like Malta in their efforts to develop comprehensive, survivor-centred national strategies.

The workshop featured insightful contributions from members of the Lived Experience Advisory Panel (LEAP) of the United Kingdom’s Human Trafficking Foundation and the OSCE-ODIHR International Survivors of Trafficking Advisory Council (ISTAC). LEAP representatives addressed the spectrum of survivor engagement, emphasising different levels of involvement, from consultation to full partnership, and the transformative impact of integrating lived experiences into anti-trafficking efforts. Members of ISTAC presented the leading principles for engaging survivors, including trauma-informed practices, confidentiality and empowerment, and offered practical advice on setting up sustainable survivor consultation panels.

This workshop is part of the European Union - Council of Europe joint Project on “Supporting Malta in the design and implementation of a new anti-trafficking strategy (2022-2024)”.

A delegation of the Council of Europe's Group of Experts on Action against Trafficking in Human Beings (GRETA) carried out an evaluation visit to Montenegro on 2-5 December 2024, as part of the fourth evaluation round of the Convention on Action against Trafficking in Human Beings.

This evaluation round of monitoring the implementation of the Convention focuses on vulnerabilities to human trafficking and measures taken by States Parties to prevent them, detect and support vulnerable victims, and punish the offenders. This includes the use of information and communication technology (ICT), which brings structural changes to the way offenders operate and exacerbates existing vulnerabilities. 

Prior to the visit, the Montenegrin authorities provided a reply to GRETA’s questionnaire for the fourth evaluation round. In addition to the new thematic focus, GRETA examined how the main recommendations made in its third evaluation report have been implemented.

During the visit, the GRETA delegation met representatives of the Ministry of the Interior, including the Department for the Fight against Trafficking in Human Beings, the Group for Combating Smuggling, Trafficking in Human Beings and Irregular Migration, the Border Police, the Directorate for Asylum, the Directorate for Foreigners, Migration and Readmission, the Directorate for Reception of Foreigners Seeking International Protection, the Group for Countering Cybercrime, as well as the Ministry of Justice, the Ministry of Labour, Employment and Social Dialogue, the Ministry of Social Welfare, Family and Demography, the Ministry of Tourism, the Ministry of Health, the Ministry of Education, Science and Innovation, the Ministry of Foreign Affairs, and the Ministry for Human and Minority Rights.  Meetings were also held with the prosecution authorities, representatives of the Supreme Court and High Court in Podgorica, and the Administration for Execution of Criminal Sanctions. Further, the delegation met with representatives of the Office of the Protector of Human Rights and Freedoms, members of the Parliament, and the Roma Council.

The GRETA delegation held separate meetings with non-governmental organisations. It also met with representatives of the United Nations High Commissioner for Refugees (UNHCR), the Organization for Security and Cooperation in Europe (OSCE), the United Nations Children’s Fund (UNICEF), and the International Organization for Migration (IOM).

The visit provided an opportunity to visit the shelter for child victims and the shelter for adult female victims of human trafficking, as well as the reception centre for asylum seekers in Podgorica.

The visit was carried out by Ms Biljana Lubarovska and Mr Luka Mađerić, members of GRETA, who were accompanied by Ms Asja Žujo of the Secretariat of the Convention.

Following the visit, GRETA will prepare a draft report, which will be sent to the Montenegrin authorities for comments. GRETA will subsequently adopt a final report which will be published.

 GRETA and Montenegro

At its 35th meeting (29 November 2024), the Committee of the Parties to the Council of Europe Convention on Action against Trafficking in Human Beings elected the following eight members of the Group of Experts on Action against Trafficking in Human Beings (GRETA) for a term of office of four years, running from 1 January 2025 to 31 December 2028:

• Mr Thomas AHLSTRAND (Swedish) – second term of office
• Ms Lynn CHIRCOP FAURE (Maltese) – first term of office
• Ms Dorothea CZARNECKI (German) – first term of office
• Ms Ulrike HABERL-SCHWARZ (Austrian) – first term of office
• Mr David MANCINI (Italian) – first term of office
• Ms Conny RIJKEN (Dutch) – second term of office
• Mr Peter VAN HAUWERMEIREN (Belgian) – second term of office
• Mr Georgios VANIKIOTIS (Greek) – second term of office

At the same meeting, the Committee adopted recommendations concerning Aruba, based on GRETA’s first/second round evaluation report, the Czech Republic and Türkiye, based on GRETA’s second round evaluation reports, and San Marino, based on GRETA’s third round evaluation report.

The Committee also considered the reports submitted by the governments of Belgium, Bosnia and Herzegovina, Greece, Ireland, Latvia, Luxembourg, Portugal and United Kingdom on measures taken to comply with the recommendation issued by the Committee concerning these countries.

 Photo gallery (Flickr)

The Group of Experts on Action against Trafficking in Human Beings (GRETA) held its 52nd plenary meeting from 18 to 22 November 2024 in Strasbourg, France.

GRETA adopted the final reports on Austria, Cyprus and Slovak Republic as part of the fourth evaluation round of the implementation of the Council of Europe Convention on Action against Trafficking in Human Beings, and on Liechtenstein as part of the third evaluation round. These final reports will be sent to the authorities concerned and will subsequently be made public, together with eventual final comments received from the authorities.

Furthermore, GRETA approved the draft third round report on Ukraine, and draft fourth round reports on Albania, Croatia and the Republic of Moldova. GRETA decided to transmit these draft reports to the national authorities concerned and to ask them to submit their comments within two months. The comments will be taken into account when GRETA draws up its final evaluation reports. GRETA draft reports remain confidential until their final adoption.

GRETA members also held an exchange of views with Ms Agnes Von Maravić, Executive Secretary to the Lanzarote Committee, and Ms Ekaterina Malareva, Legal Advisor in the Secretariat of the Lanzarote Committee.

• Photos gallery (Flickr)

To mark the 30th anniversary of its creation, the Committee against Modern Slavery (Comité Contre l'Esclavage Moderne, CCEM) organised a colloquium entitled “30 years of fighting to make the invisible visible" in Paris on 15 November 2024. Key speakers included Petya Nestorova, Executive Secretary of the Council of Europe Convention on Action against Trafficking in Human Beings, Cyril Cosmes, Director of the International Labour Organisation Office in Paris, Magali Lafourcade, Secretary General of the National Consultative Commission on Human Rights (Commission Nationale Consultative des Droits de l'Homme, CNCDH), and Roxana Maracineanu, Secretary General of the Interministerial task-force on combatting violence against women and human trafficking (Mission Interministérielle en charge de la lutte contre la traite, MIPROF).

"The statistics included in the country reports of the Council of Europe Group of Experts (GRETA) indicate that trafficking for the purpose of labour exploitation has been on the rise and has emerged as the predominant form of exploitation in many countries. Combating this form of trafficking requires co-ordinated action between states, civil society, trade unions and the private sector," said Petya Nestorova at the opening.

The Council of Europe has established comprehensive standards to help states combat human trafficking, and its Committee of Ministers adopted, in September 2022, a recommendation specifically on trafficking for labour exploitation. It draws on GRETA's monitoring work, its Compendium of good practices and its Guidance Note on preventing and combating trafficking in human beings for the purpose of labour exploitation, as well as the case law of the European Court of Human Rights.

Civil society organisations such as CCEM play an essential role in combating human trafficking through awareness raising, detecting victims, providing them with assistance, and supporting them through the criminal justice process. They also contribute to the monitoring of the implementation of the Council of Europe Anti-Trafficking Convention, by providing valuable information to GRETA.

See also:

• Council of Europe thematic file on labour exploitation

Following the declaration of territorial application of the Council of Europe Convention on Action against Trafficking in Human Beings to Aruba deposited by the Kingdom of the Netherlands on 23 January 2015, the Council of Europe’s Group of Experts on Action against Trafficking in Human Beings (GRETA) carried out the first evaluation of Aruba which combined the first and second evaluation rounds of the Convention.

In its first report on Aruba published today, GRETA welcomes the steps taken to develop the legal and policy framework for combating trafficking in human beings, the setting up of co-ordinating structures and specialised entities, and the efforts made to raise public awareness.

However, GRETA expresses concern about gaps in victim identification and urged the authorities to strengthen mechanisms for early victim detection and to ensure that, in practice, the identification of victims, upon which assistance measures depend, is not linked to the prospects of the investigation and prosecution.

GRETA also urges the Aruban authorities to ensure that access to assistance for foreign victims is not conditional on their co-operation with law enforcement, and that adequate resources are put in place to enable all victims of trafficking to benefit from assistance and support.

No compensation has been paid to victims of trafficking by perpetrators and there is no state compensation mechanism for victims of crime. Consequently, GRETA calls on the Aruban authorities to adopt legislative or other measures to facilitate and guarantee access to compensation for victims of trafficking.

GRETA also asks the authorities to adopt a specific legal provision on the non-punishment of victims of human trafficking for their involvement in unlawful activities, to the extent that they were compelled to do so, and to develop relevant guidance for law enforcement officials and prosecutors.

Moreover, GRETA calls on the authorities to ensure that a recovery and reflection period of at least 30 days, as provided for in Article 13 of the Convention, is specifically defined in law.

Aruba is predominantly a country of destination for trafficked persons. The authorities detected 34 presumed victims of trafficking in 2015-2023, of whom 17 were confirmed by the police as victims of trafficking. The majority of the victims originated from Colombia and Venezuela, and were trafficked for the purposes of sexual and labour exploitation.

The Council of Europe Group of Experts on Action against Trafficking in Human Beings (GRETA) has urged the San Marino’s authorities to adopt a national action plan for combatting human trafficking, including measures in the areas of prevention, identification of victims, awareness raising and training of relevant professionals.    

In its latest report published today, GRETA assesses developments since the publication of its second evaluation report on San Marino in 2019 as regards the implementation of the Council of Europe Convention on Action against Trafficking in Human Beings.

No victims of human trafficking have been identified in the country. Nevertheless, GRETA notes that the strong demand for foreign labour creates trafficking risks for the purpose of labour exploitation, particularly in sectors such as domestic work, construction, tourism, and agriculture.

There is no specific provision in Sammarinese law on the non-punishment of victims of trafficking for unlawful activities and for granting a recovery and reflection period to victims of trafficking. GRETA urges to adopt such provisions.

GRETA is concerned that trafficking for the purpose of labour exploitation may be underestimated, therefore a raise awareness operation should be implemented. The Labour Inspectorate should be in the position to detect possible victims of trafficking, and to co-operate with trade unions and the private sector in preventing and combating labour trafficking.

Moreover, GRETA urges the authorities to develop a multi-disciplinary framework for the identification and referral to assistance of victims of trafficking, to provide indicators for the identification of victims, as well as guidance and training to all relevant professionals.

While welcoming the agreements concluded with structures in Italy, GRETA considers that San Marino should take further steps to ensure that any presumed and identified victims of trafficking can receive adequate assistance and support.

A child-specific identification mechanism based on multi-agency co-operation is required considering also the potential risks including recruitment and abuse through internet and via social networks.

 GRETA and San Marino

The Group of Experts on Action against Trafficking in Human Beings (GRETA) is an independent body which monitors the way countries implement the Council of Europe Convention on Action against Trafficking in Human Beings. All 46 member states of the Council of Europe are bound by the Convention, as well as non-member states Belarus and Israel.

The Group of Experts on Action against Trafficking in Human Beings (GRETA) today published its latest report evaluating Türkiye’s implementation of the Council of Europe Convention on Action against Trafficking in Human Beings.

According to official data, 1,466 victims of trafficking were formally identified in Türkiye between 2019 and 2023, representing a significant increase on the previous four years.

The main form of exploitation remained sexual exploitation (52%), followed by labour exploitation (30%), forced marriage (9%) and forced begging (6%). The primary countries of origin of trafficking victims were Syria, Uzbekistan and Afghanistan, followed by Türkiye itself.

The report highlights progress made by the Turkish authorities in a number of areas. These include setting up a national Co-ordination Board for Combating Human Trafficking and co-ordination commissions in all 81 provinces, as well as designating a National Rapporteur on human trafficking.

Efforts have also been made to provide training to relevant professional groups and to raise public awareness of human trafficking. Moreover, material conditions have improved in the two specialised shelters for victims of trafficking.

Nevertheless, GRETA highlights a number of pressing concerns that require immediate action.

These include the need to adopt, without further delay, a national action plan against human trafficking, with clearly defined objectives, activities and stakeholders, as well as adequate budgetary resources.

The Turkish authorities should also intensify efforts to prevent human trafficking for the purpose of labour exploitation, strengthen the protection of children from trafficking and enhance the detection of trafficking through border control measures, in particular in the context of increased migration.

Additionally, the report stresses the need for improved support and assistance to victims, including better access to compensation.

GRETA also urges the Turkish authorities to improve the investigation and prosecution of trafficking cases, and to adopt a specific legal provision allowing for the non-punishment of victims for crimes they were forced to commit.

Furthermore, GRETA calls on the authorities to build strategic partnerships with NGOs and other relevant civil society actors, and to ensure that anti-trafficking NGOs have adequate access to funding.

Today’s report has been published together with the response of the Turkish authorities.

 GRETA and Türkiye

* * *

The Group of Experts on Action against Trafficking in Human Beings (GRETA) is an independent body which monitors the way countries implement the Council of Europe Convention on Action against Trafficking in Human Beings. All 46 member states of the Council of Europe are bound by the Convention, as well as non-member states Belarus and Israel.

The annual meeting of the Council of Europe Network of specialised lawyers and NGOs providing legal assistance to victims of trafficking in human beings, which coincides with the European Anti-Trafficking Day, affirmed the commitment towards achieving justice for victims of trafficking.

The network has over 100 members across the states parties to the Council of Europe Convention on Action against Trafficking in Human Beings. It serves as a platform for exchanging experiences and information on key aspects of legal assistance to victims of trafficking, including to claim compensation and access other rights.  

Mary Henderson, solicitor at the Immigrant Council of Ireland, noted: “Our network is committed to sharing experiences of good practices and innovations in identifying victims as well as holding states to account when they fail to support victims of human trafficking. By working together, we can learn to more quickly identify victims and ensure that national authorities can take action against the people who profit from the exploitation of others.”

Participants discussed developments in the case-law of the European Court of Human Rights related to human trafficking. In its most recent judgment related to trafficking, in the case T.V. v. Spain, the Court reaffirmed and further developed the states' obligations to investigate serious allegations of human trafficking. Parosha Chandran, a barrister who represented the applicant, highlighted the importance of the Council of Europe network: “This case was referred to me by a member of our network, underlining how crucial our co-operation is in advancing victims' rights. It also demonstrates what can happen when civil society organisations support vulnerable victims of trafficking in their legal proceedings.”

 Photos of the meeting

War and mass displacement typically amplify the risks linked to human trafficking, and the war in Ukraine is no exception. As the war drags into its third year, these risks have not diminished but changed form. Children, particularly those displaced by Russia’s war of aggression, face an increased risk of human trafficking.

In response to this alarming phenomenon, a report on “Understanding the risks of human trafficking, including for the purpose of sexual and labour exploitation of children of Ukraine” was produced by the Secretariat of the Council of Europe's Consultation Group on the Children of Ukraine (CGU) in collaboration with the Secretariat of the Council of Europe Convention on Action against Trafficking in Human Beings. The report sheds light on the key risks and potential mitigation measures discussed during the Special Hearing on this issue, which took place on 2 July 2024 as part of the CGU’s  3rd plenary meeting.

At the heart of the report is a message of co-operation and commitment: despite the many challenges posed by the ongoing war, protecting the children of Ukraine from human trafficking must remain a top priority. Therefore, this report:

• encourages governmental authorities, local and regional authorities, international organisations, and civil society organisations to work together to increase awareness of all relevant stakeholders of the risks of human trafficking to protect children of Ukraine, and
• stresses the importance of refining strategies, investing in multidisciplinary and multisectoral collaboration, strengthening law enforcement agencies, and enhancing cooperation with the private sector to effectively address new challenges.

The report concludes that only through co-operation, innovation, and continuous vigilance, can the risks of trafficking be effectively mitigated, ensuring the protection and well-being of all children of Ukraine in Europe.

See also:

 Risks of trafficking in human beings related to the war in Ukraine and the ensuing humanitarian crisis

In 2024, armed conflict and humanitarian crises are intensifying, with ongoing violence in Ukraine and the Middle East. Migrants and asylum seekers, especially those traveling under unsafe conditions, always increase in number during such conflicts. They are particularly exposed to trafficking and exploitation.

On this European Anti-Trafficking Day, it is clear that there must be immediate action to combat trafficking as the escalation of current global challenges threatens to create more victims. To address this issue, the Council of Europe’s Group of Experts on Action against Trafficking in Human Beings (GRETA) has launched a new monitoring cycle, focusing on trafficking among vulnerable groups.

GRETA’s reports highlight critical gaps in the identification and protection of trafficking victims. Immigration policies must align with legal obligations to assist these individuals, ensuring they are protected rather than punished or overlooked.

We must unite to protect those most at risk, prevent human trafficking, and build a society that upholds the dignity and rights of all, including the most vulnerable ones.

 Council of Europe action against trafficking in human beings

A delegation of the Council of Europe's Group of Experts on Action against Trafficking in Human Beings (GRETA) carried out an evaluation visit to Denmark from 7 to 11 of October 2024, as part of the fourth evaluation round of the Convention on Action against Trafficking in Human Beings.

This new evaluation round of monitoring the implementation of the Convention focuses on vulnerabilities to human trafficking and measures taken by States Parties to prevent them, detect and support vulnerable victims, and punish the offenders. An additional focus concerns the use of information and communication technology (ICT), which brings structural changes to the way offenders operate and exacerbates existing vulnerabilities.

Prior to the visit, the Danish authorities provided a reply to GRETA’s questionnaire for the fourth evaluation round. In addition to the new thematic focus, GRETA examined how the main recommendations made in its third evaluation report on Denmark have been implemented.

During the visit, the GRETA delegation met officials from the Ministry of Environment and Gender Equality (including the Danish Centre against Human Trafficking and the Department of Gender Equality), the Ministry of Employment (including the Working Environment Authority and the Agency for Labour Market and Recruitment), the Ministry of Taxation (including the Tax Agency), the Ministry of Immigration and Integration (including the Immigration Service, the Agency for International Recruitment and Reintegration, and the Return Agency), and the Ministry of Social Affairs and Housing. Meetings were also held with several agencies under the Ministry of Justice: the Office of the Director of Public Prosecutions, the Criminal Injuries Compensation Board, the Danish National Police (including the Specialised Crime Unit, the Assets Recovery Office, the National Cybercrime Centre, the Financial Intelligence Unit and the Police Academy). The delegation also met a judge from the Western High Court.

Furthermore, GRETA’s delegation held consultations with the Danish Institute for Human Rights. It also met Members of Parliament, including the spokespersons on Legal Affairs and on Immigration and Integration.

In addition, GRETA’s delegation held meetings in Esbjerg and Fredericia with members of the South Jutland Police, a prosecutor coordinating human trafficking cases, and a judge from the Eastern High Court. Discussions were also held with representatives of the social services of Copenhagen municipality.

The GRETA delegation held separate meetings with several non-governmental organisations.

In the course of the evaluation, the GRETA delegation visited an NGO-run shelter for female victims of human trafficking in Copenhagen, a shelter for homeless people operated by the Salvation Army in Hørhuset, as well as a health clinic providing psychological support and health care to victims of trafficking in Fredericia. The visit also provided an opportunity to visit the Immigration Detention Centre in Ellebaek and the Asylum Reception Centre and Centre for minors in Sandholm.

The visit was carried out by Ms Svala Ísfeld Ólafsdóttir and Ms Conny Rijken, members of GRETA, who were accompanied by Ms Teresa Armengol de la Hoz of the Secretariat of the Convention.

Following the visit, GRETA will prepare a draft report, which will be sent to the national authorities for comments. GRETA will subsequently adopt a final report which will be made public.

 See also: GRETA and Denmark

A delegation of the Council of Europe’s Group of Experts on Action against Trafficking in Human Beings (GRETA) carried out an evaluation visit to Romania from 7 to 11 October 2024, as part of the fourth evaluation round of the Convention on Action against Trafficking in Human Beings.

This new evaluation round of monitoring the implementation of the Convention focuses on vulnerabilities to human trafficking and measures taken by States Parties to prevent them, detect and support vulnerable victims, and punish the offenders. This includes the use of information and communication technology (ICT), which brings structural changes to the way offenders operate and exacerbates existing vulnerabilities.

Prior to the visit, the Romanian authorities provided a reply to GRETA’s questionnaire for the fourth evaluation round. In addition to the new thematic focus, GRETA examined how the main recommendations made in its third evaluation report have been implemented.

During the visit, the GRETA delegation met Mr Valentin Vătăjelu, State Counsellor and President of the Interministerial Committee for Strategic Intersectorial Coordination of the Fight against Trafficking in Persons, as well as officials from the Ministry of the Interior (including the National Agency against Trafficking in Persons, the General Inspectorate for Immigration, the General Inspectorate of the Romanian Police, the Border Police and the Gendarmerie), the Ministry of Justice, the Ministry of Labour and Social Solidarity (including the Labour Inspectorate and the National Agency for Employment), the Ministry of Family, Youth and Equal Opportunities, the Ministry of Foreign Affairs, the Ministry of Education, and the Ministry of Health. Meetings were also held with representatives of the Directorate for Investigating Organised Crime and Terrorism (DIICOT) of the Prosecutor’s Office, judges of the Superior Council of Magistracy, and officials from the National Agency for the Management of Seized Assets and the National Agency for Roma. Further, GRETA’s delegation met members of the Romanian Parliament’s Group for Combating Trafficking in Persons and representatives of the People’s Advocate Institution (Ombudsman).

In addition to having meetings in Bucharest, the delegation travelled to Brașov and Bacău where it met representatives of the regional and local authorities, including Mr Mihai-Cătălin Văsii, Prefect of Brașov, law enforcement officers, prosecutors and labour inspectors.

The GRETA delegation held separate meetings with representatives of non-governmental organisations and victims of human trafficking supported by them, as well as with researchers. Meetings were also held with representatives of the International Organization for Migration (IOM), the United Nations Children’s Fund (UNICEF), and the United Nations High Commissioner for Refugees (UNHCR).

In the course of the visit, the GRETA delegation visited an NGO-run shelter accommodating victims of human trafficking in Bacău, two shelters for children in need of protection in Brașov and Bacău, as well as the Edmond Nicolau accommodation centre for Ukrainian refugees in Bucharest.

The visit was carried out by Mr Sergey Ghazinyan, 2nd Vice-President of GRETA, and Ms Ia Dadunashvili, member of GRETA, who were accompanied by Mr Mesut Bedirhanoglu and Ms Asja Zujo from the Secretariat of the Convention.

Following the visit, GRETA will prepare a draft report which will be sent to the Romanian authorities for comments. GRETA will subsequently adopt a final report, to be published in 2025.

 See also: GRETA and Romania

In its judgment in the case of T.V. v. Spain (application no. 22512/21), delivered on 10 October 2024, the European Court of Human Rights found that significant shortcomings in the Spanish authorities’ investigation into a criminal complaint of human trafficking for the purpose of forced prostitution amounted to a breach of Spain's procedural obligations under Article 4 of the European Convention on Human Rights.

The case concerned a Nigerian woman’s complaint that she had been trafficked to Spain as a minor and subjected to sexual exploitation between 2003 and 2007. She managed to escape her alleged traffickers, started receiving assistance from a non-governmental organisation, and brought the criminal complaint in 2011. However, the criminal case against the alleged perpetrators was eventually dismissed by the Spanish courts because the victim’s allegations, in particular concerning her age at the time of being trafficked to Spain, were considered to be inconsistent.

The Court found that the investigation had been tainted with shortcomings. In particular, the authorities had failed to act with the requisite diligence and to pursue obvious lines of inquiry, even though the applicant had provided a detailed description of the alleged events in her complaint. The decision to provisionally dismiss the case had been superficial and insufficiently reasoned. The Court held that those shortcomings showed “blatant disregard for the obligation to investigate serious allegations of human trafficking, an offence with devastating consequences for its victims”.

GRETA submitted a third-party intervention in this case, stressing that investigations into suspected human trafficking should be proactive, making use of special investigative techniques and financial investigations to collect evidence and avoid overreliance on victims’ testimony. Moreover, GRETA noted that the age assessment procedure should not be used to cast doubt on a person’s claim that he or she was a victim of human trafficking. In its judgment, the Court referred to GRETA’s reports on Spain, including to GRETA’s conclusion that the authorities should review the age assessment procedures applied to potential victims of trafficking.

The judgment underlines states' obligation to conduct effective investigations into credible allegations of human trafficking, carefully considering all relevant evidence.

 See also: ECHR case law on human trafficking

The Czech authorities should strengthen their efforts to prevent and combat trafficking in human beings, in particular as regards labour exploitation, improve the identification of victims, and take further action to prevent child trafficking, according to a new report released today by the Council of Europe’s Group of Experts on Action against Trafficking in Human Beings (GRETA).

According to official statistics, 90 adult victims of trafficking were identified in 2019-2023. The majority were foreign nationals exploited in the sectors of construction, agriculture, forestry, manufacturing, food processing and domestic work. There is no data available on child victims of trafficking.

The report welcomes positive developments since the publication of GRETA´s first evaluation report on Czechia in 2020 as regards the implementation of the Council of Europe Convention on Action against Trafficking in Human Beings. The Czech authorities have amended the guidelines for the Programme for Support and Protection of Victims of Trafficking and passed new laws to combat exploitation and irregular work, among other measures. The government also broadened the Intergovernmental Coordination Group for Combating Trafficking to include the State Labour Inspection Office. It has made efforts in collaboration with NGOs and international bodies to provide more comprehensive training for professionals on human trafficking. GRETA also welcomes the existence of specialised investigators assigned to human trafficking cases within the National Centre for Combating Organised Crime and a national correspondent for combating human trafficking within the Supreme State Prosecutor’s Office.

Despite these measures, GRETA urges the Czech authorities to step up their efforts to prevent trafficking for labour exploitation, particularly through tighter supervision of recruitment agencies and the establishment of safe reporting and effective complaint mechanisms for workers, to ensure that victims in exploitative situations can refer their case without fear of repercussions.

GRETA also calls on the authorities to establish a formal procedure for identifying trafficking victims which follows a multi-disciplinary approach and involves specialised NGOs, labour inspectors and health professionals. The identification of victims of trafficking should not depend on the initiation of criminal proceedings.

Furthermore, GRETA calls for additional measures to prevent child trafficking and strengthen the proactive identification of child victims, including amongst unaccompanied children and children in institutional care. In addition, they should carry out awareness-raising campaigns to prevent child trafficking and address the roots of the risks faced by vulnerable children.

Moreover, GRETA urges the Czech authorities to take measures to strengthen the criminal justice response to human trafficking and ensure that investigations lead to effective, proportionate and dissuasive sanctions.

The collection of data on human trafficking also needs to be significantly improved. GRETA recommends that the authorities maintain a coherent system to gather data on trafficking victims, to have a more precise insights into the trafficking landscape and enhance efforts to protect victims.

 GRETA and Czechia

The Group of Experts on Action against Trafficking in Human Beings (GRETA) is an independent body which monitors the way countries implement the Council of Europe Convention on Action against Trafficking in Human Beings. All 46 member states of the Council of Europe are bound by the Convention, as well as non-member states Belarus and Israel.

A delegation of the Council of Europe's Group of Experts on Action against Trafficking in Human Beings (GRETA) carried out an evaluation visit to Bulgaria from 30 September to 4 October 2024, as part of the fourth evaluation round of the Convention on Action against Trafficking in Human Beings.

This new evaluation round of monitoring the implementation of the Convention focuses on vulnerabilities to human trafficking and measures taken by States Parties to prevent them, detect and support vulnerable victims, and punish the offenders. This includes the use of information and communication technology (ICT), which brings structural changes to the way offenders operate and exacerbates existing vulnerabilities.

Prior to the visit, the Bulgarian authorities provided a reply to GRETA’s questionnaire for the fourth evaluation round. In addition to the new thematic focus, GRETA examined how the main recommendations made in its third evaluation report have been implemented.

During the visit, the GRETA delegation met several of the members of the National Commission for Combating Trafficking in Human Beings, subordinated to the Council of Ministers, along with its Secretary, Ms Daniela Saveklieva. The delegation also engaged with officials from the Ministries of Justice, Internal Affairs, Labour and Social Policy (including representatives from the General Labour Inspectorate, the National Employment Agency, and the Agency for Social Assistance), Education and Science, and Foreign Affairs.

Additionally, the delegation held discussions with representatives from the State Agency for Child Protection, the State Agency for Refugees, the Prosecutor’s Office, the National Investigation Service, the Supreme Court of Cassation, the National Legal Aid Bureau, the National Institute of Justice, the National Council for Assistance and Compensation to Victims of Crime, and the National Statistical Institute.

GRETA’s delegation also consulted with the Office of the Ombudsperson, the Commission for Protection against Discrimination, the Commission for Countering Corruption and Forfeiture of Illegally Acquired Property, and the Central Commission against Antisocial Behaviour of Minors and Juveniles. Furthermore, the delegation had the opportunity to meet with Members of Parliament.

In addition to holding meetings in Sofia, GRETA’s delegation travelled to Burgas, Sliven and Varna, where it met with members of the Local Commissions for Combating Trafficking in Human Beings, including deputy mayors and representatives of social and child protection services, law enforcement agencies, prosecutors and civil society representatives.

The GRETA delegation held separate meetings with representatives of non-governmental organisations and trade unions, lawyers representing victims of human trafficking and researchers. It also met representatives of the International Organization for Migration (IOM), the United Nations agency for children (UNICEF), the UN Refugee Agency (UNHCR), and the Fundamental Rights Office of the European Border and Coast Guard Agency (Frontex).

In the course of the evaluation, the GRETA delegation visited the three specialised shelters for adult victims of human trafficking, in Sofia, Burgas, and Varna, a shelter for long-term integration in Burgas, crisis centres for child victims of violence and human trafficking in Sofia and Varna, as well the Child and Youth Advocacy Centre “Zona ZaKrila” in Sofia.  

The visit was carried out by Mr Thomas Ahlstrand and Ms Ia Dadunashvili, members of GRETA, who were accompanied by Ms Petya Nestorova, Executive Secretary of the Convention, and Ms Jenna Logeais of the Secretariat of the Convention.

Following the visit, GRETA will prepare a draft report, which will be sent to the Bulgarian authorities for comments. GRETA will subsequently adopt a final report which will be published in 2025.

GRETA and Bulgaria

A two-day conference organised by the Council of Europe in Sarajevo explored the impact of information and communication technologies on trafficking in human beings and ways to address it through collaboration between public institutions, tech companies and civil society. The conference, entitled “The impact of digital technology on human trafficking: changing the way we respond”, gathered some 60 national and international experts with the aim of supporting Bosnia and Herzegovina, North Macedonia and Serbia in taking further actions. Participants examined the securing and sharing of digital evidence in cases of human trafficking, the use of technologies to strengthen prevention and improve victims’ access to services, and better use of the Council of Europe Cybercrime Convention.

"The widespread use of information and communication technology in the recruitment, control and exploitation of victims of human trafficking - many of whom are children – poses a major challenge. However, tech tools can also be part of the solution, by helping law enforcement authorities to detect, investigate and prosecute human trafficking cases," stressed Bojana Urumova, Head of the Council of Europe Office in Sarajevo.

Stanislava Tanić, Head of the Department for Combating Human Trafficking and Illegal Immigration at the Bosnia and Herzegovina Ministry of Security, pointed out that the increased use of the Internet has multiplied opportunities for traffickers who use social networks to recruit victims and gain their trust. "This is why it is crucial to educate the general public about the risks of the internet and ways of protection, so that they can safely use the internet and be able to recognise the signs of recruitment," explained Tanić.

"Given the increased number of cases in which information and communication technologies are used by traffickers in the recruitment and exploitation of victims, a comprehensive and effective joint response is necessary, from prevention campaigns, through proactive investigations and digital evidence collection. This requires better sharing of experiences and procedures between institutions and Council of Europe legal instruments," said Nenad Simić, National Coordinator for Combating Trafficking in Human Beings, Ministry of the Interior of Republic of Serbia.

"The prevention of new forms of human trafficking facilitated by technologies must also target the youth, in order to protect young people and children who are particularly vulnerable to this heinous crime," said Biljana Lalova, Head of the Anti-Trafficking Unit at the Ministry of the Interior of North Macedonia.

The conference built on the findings from the GRETA’s study on Online and Technology-facilitated Trafficking in Human Beings and the conclusions of research studies, seminars and workshops organised by the Council of Europe in Bosnia and Herzegovina, North Macedonia and Serbia.

The conference was organised within the framework of the Council of Europe project "Strengthening the fight against trafficking in Bosnia and Herzegovina" and the anti-trafficking projects in Serbia and Northern Macedonia, which are part of the joint European Union and Council of Europe programme "Horizontal Facility for the Western Balkans and Turkey" (phase III).

 More information about co-operation projects

About 20 representatives of Luxembourg government agencies and civil society met on 27 September 2024 in Luxembourg to discuss the implementation of the conclusions of the third evaluation report of the Group of Experts on Action against Trafficking in Human Beings (GRETA) and the related Committee of the Parties’ recommendation concerning the implementation of the Council of Europe Convention on Action against Trafficking in Human Beings by Luxembourg.

The meeting was co-organised by the Anti-Trafficking Division of the Council of Europe and the Ministry of Justice of Luxembourg.

The discussions focused on trafficking victims’ access to justice, including to information on their rights, legal aid and compensation, the criminal justice response to human trafficking, and  the identification of human trafficking victims.

The event also provided an opportunity to present Recommendation CM/Rec(2022)21 of the Committee of Ministers to member states on preventing and combating trafficking in human beings for the purpose of labour exploitation.

Luxembourg is expected to report to the Committee of the Parties on the measures taken to comply with its recommendation by 25 November 2024.

 GRETA and Luxembourg

Some 30 representatives of government agencies, public bodies and civil society of Belgium met in Brussels on 1 October 2024 to discuss the implementation of the recommendations from the third evaluation report prepared by the Group of Experts on Action against Trafficking in Human Beings (GRETA) and the related Committee of the Parties’ recommendations.

The meeting was organised by the Anti-Trafficking Division of the Council of Europe and the Criminal Policy Department of the Federal Public Service of Justice of Belgium.

The discussions focused on trafficking victims’ access to justice and effective remedies, including compensation and legal aid, the criminal justice response to trafficking, and the identification and assistance of victims. The preparation of a new national action plan for combating human trafficking was also discussed.

The event provided an opportunity to present Recommendation CM/Rec(2022)21 of the Committee of Ministers to member states on preventing and combating trafficking in human beings for the purpose of labour exploitation.

Belgium is expected to report to the Committee of the Parties on the measures taken to comply with its recommendation by 25 November 2024.

 GRETA and Belgium

A delegation of the Council of Europe's Group of Experts on Action against Trafficking in Human Beings (GRETA) carried out an evaluation visit to Georgia from 23 to 27 September 2024, as part of the fourth evaluation round of the Convention on Action against Trafficking in Human Beings.

This new evaluation round of monitoring the implementation of the Convention focuses on vulnerabilities to human trafficking and measures taken by States Parties to prevent them, detect and support vulnerable victims, and punish the offenders. This includes a focus on the use of information and communication technology (ICT), which brings structural changes to the way offenders operate and exacerbates existing vulnerabilities.

Prior to the visit, the Georgian authorities provided a reply to GRETA’s questionnaire for the fourth evaluation round. In addition to the new thematic focus, GRETA examined how the main recommendations made in its third evaluation report on Georgia have been implemented.

During the visit, the GRETA delegation met Mr Beka Dzamashvili, Deputy Minister of Justice, and officials of the Ministry of Justice (including the Secretariat of the Inter-Agency Council on Combatting Trafficking in Human Beings), the Ministry of Internally Displaced Persons from the Occupied Territories, Labour, Health and Social Affairs, the Agency of State Care and Assistance to (statutory) victims of trafficking, the Ministry of Internal Affairs, the Ministry of Finance, the Ministry of Education and Science, the Labour Inspection Office, the Legal Aid Service, and the National Tourism Administration. Discussions were also held with prosecutors of the Prosecution’s Service of Georgia and judges of the Tbilisi City Court.

Furthermore, the GRETA delegation met representatives of the Public Defender’s Office (Ombudsperson). A meeting was also held with staff of the Human Rights Committee of the Parliament.

In addition to having meetings in Tbilisi, the delegation travelled to Kutaisi where it met representatives of the local social services and police, as well as members of the mobile group which carries out outreach work to detect children in street situation. It also had an online meeting with police officers and prosecutors of the Anti-Trafficking Task Force of the Adjara Autonomous Region.

The GRETA delegation held separate meetings with non-governmental organisations and representatives of the International Organisation for Migration (IOM), the United Nations Children's Fund (UNICEF), the United Nations High Commissioner for Refugees (UNHCR) and the International Centre for Migration Policy Development (ICMPD).

In the course of the visit, GRETA’s delegation visited an NGO-run shelter for victims of domestic violence and victims of trafficking, a shelter for children in street situation, a reception centre for migrants, as well as the Centre for Psychological and Social Services for Children Victims of Violence.

The visit was carried out by Ms Tatiana Catana and Ms Dorothea Winkler, members of GRETA, who were accompanied by Ms Parvine Ghadami of the Secretariat of the Anti-Trafficking Convention.

Following the visit, GRETA will prepare a draft report, which will be sent to the national authorities for comments. GRETA will subsequently adopt a final report which will be made public in 2025.

 GRETA and Georgia

Some 40 representatives of government departments, agencies, civil society and international organisations met in Dublin on 19 September 2024 to discuss the implementation of the recommendations from the third evaluation report on Ireland by the Group of Experts on Action against Trafficking in Human Beings (GRETA) and the related Committee of the Parties’ recommendation.

The meeting was co-organised by the Anti-Trafficking Division of the Council of Europe and the Department of Justice of Ireland. The discussions focused on trafficking victims’ access to legal aid and compensation, measures to strengthen the criminal justice response to human trafficking and the protection of vulnerable victims, as well as the identification of victims and their access to specialised assistance. Participants also discussed the third National Action Plan to prevent and combat human trafficking 2023-2027 and the Criminal Justice (Sexual Offences and Human Trafficking) Act 2024, which address many of the recommendations made by GRETA.

The event provided an opportunity to present Recommendation CM/Rec(2022)21 of the Committee of Ministers to member states on preventing and combating trafficking in human beings for the purpose of labour exploitation, and to discuss ways to strengthen action against this form of trafficking in Ireland.

Ireland is expected to report to the Committee of the Parties on the measures taken to comply with its recommendation by 25 November 2024.

A new Guidance Note published today by GRETA, the Council of Europe anti-trafficking body, highlights the purposes and principles of the recovery and reflection period and its legal basis and procedures. Provided for in Article 13 of the Council of Europe Convention on Action against Trafficking in Human Beings, the recovery and reflection period is an essential element of protecting and assisting all victims of trafficking.

“The recovery and reflection period is recognised as an effective means of protecting the human rights of victims of trafficking,” stressed Helga Gayer, President of GRETA. She pointed that regrettably in some countries, the recovery and reflection period is still not provided for in internal law or is construed in a way which is not consistent with Article 13. “This Guidance Note is an important tool that clarifies and facilitates the practical arrangements for its full application”.

The purpose of the Guidance Note is to strengthen the implementation of the obligation to grant a recovery and reflection period to victims of trafficking in all the states bounded by the said Convention by providing concrete and practical guidance for relevant authorities, agencies and civil society organisations.

The recovery and reflection period provided for in Article 13 of the Council of Europe Anti-Trafficking Convention must be granted as soon as there are reasonable grounds to believe that a person is a victim of trafficking in human beings. The aim is to enable victims to recover a minimum of psychological stability and to allow them to make an informed decision on whether they want to co-operate with the competent authorities in the investigation and prosecution of traffickers. During this period, it is not possible to enforce expulsion orders against the presumed victims, thus guaranteeing them essential protection.

The Group of Experts on Action against Trafficking in Human Beings (GRETA) is an independent body which monitors the way countries implement the Council of Europe Convention on Action against Trafficking in Human Beings. All 46 member states of the Council of Europe are bound by the Convention, as well as Belarus and Israel.

Measures to enhance national and regional anti-trafficking responses and strengthen their impact were the focus of the largest annual meeting of the National Anti-trafficking Co-ordinators and Rapporteurs, which kicked off today at OSCE headquarters in Vienna, Austria.

The Office of the OSCE Special Representative and Co-ordinator for Combating Trafficking in Human Beings (OSR/CTHB) and the Council of Europe (CoE) co-organised the two-day meeting, which concludes tomorrow.

More than 170 participants, representing over 60 countries from across the Council of Europe and OSCE regions, gathered to discuss ways to increase political will and bolster effective anti-trafficking responses vis-à-vis other national priorities and challenges. They also discussed institutional and legislative initiatives, policies, capacity-building measures and other anti-trafficking initiatives that have the potential for high impact.

“National Anti-Trafficking Co-ordinators and Rapporteurs are uniquely positioned to enhance cross-border co-operation, forge strategic partnerships, and reinforce regional commitments,” said Michael Cluett, Chargé d'Affaires of 2024 OSCE Chair Malta, in his welcoming remarks. “International organizations like the OSCE and the Council and Europe stand ready to support these efforts, offering a platform for dialogue and exchange,” he added.

“After 24 years of efforts to combat human trafficking, the situation remains dire. Traffickers adapt, victims suffer new forms of exploitation, and prosecutions lag behind. It's time to reassess our strategies and ask: are we truly making a difference?” said Dr. Kari Johnstone, OSCE Special Representative and Co-ordinator for Combating Trafficking in Human Beings, in her opening remarks.  “It is important to take stock of efforts so far and scrutinize the impact they have delivered to properly plan for the future,” she added.

“A clear political commitment and broader societal involvement are needed to sustain and strengthen the efforts to combat human trafficking. We can make better use of existing resources, networks, knowledge and expertise. No one can do it all alone, but together we can make a difference for the benefit of the victims and to the detriment of the traffickers,” concluded Petya Nestorova, Executive Secretary of the Council of Europe Anti-Trafficking Convention.

A deeper understanding of what exacerbates vulnerabilities to human trafficking, as well as understanding the measures to prevent these risks and how to detect and support vulnerable victims was discussed during the working sessions of the meeting.  Also among the topics covered was punishing offenders, engaging and integrating the expertise of survivors of trafficking for policy and practice, and strengthening access to justice and effective remedies for victims of trafficking.

 Summary report

On the occasion of the World Day against Trafficking in Persons, the Council of Europe Group of Experts on Action against Trafficking in Human Beings (GRETA) joins the Inter-Agency Coordination Group against Trafficking in Human Beings (ICAT) in calling for concerted measures to reduce the vulnerability of children to trafficking, provide specialised assistance to child victims, and end the impunity of traffickers.

Referring to the "Call for accelerated action by 2025 to prevent and end child trafficking", ICAT’s statement stresses that with one in three identified victims of trafficking globally being a child, efforts to prevent and end child trafficking are still insufficient to make a tangible difference. It is therefore crucial to ensure that the prevention of child trafficking and the assistance and protection of child victims are an integral part of child protection systems and, in case of conflicts and crisis situations, are streamlined into humanitarian co-ordination structures and responses, particularly for unaccompanied and separated children.

"A child-sensitive approach is reflected throughout the Council of Europe's Anti-Trafficking Convention,  which requires States Parties to take specific measures to protect children and reduce their vulnerability to trafficking, in particular by creating a protective environment for them," said Helga Gayer, President of GRETA. "Children who are victims of trafficking are frequently treated as offenders and punished for crimes they were forced to commit, such as theft or drug-related offences. States must live up to their legal obligations relating to the rights of victims of trafficking. This includes improving the proactive identification of child victims of trafficking, including in the online environment, and strengthening multi-disciplinary co-operation to ensure the respect of the best interests of the child at all stages," stressed GRETA’s President.

GRETA’s monitoring of the Convention has paid particular attention to the development of prevention measures targeting children in the most vulnerable situations, such as children whose births have not been registered, children in street situations, children placed in or leaving institutions, children from disadvantaged communities, unaccompanied and separated children and asylum-seeking children. GRETA has stressed the urgent need for increasing the measures to prevent online recruitment of children, including by co-operating with Internet service providers and raising the awareness of children, parents and education professionals of the risk of recruitment of children through the Internet. Moreover, GRETA’s reports have highlighted gaps in the identification of child victims of trafficking and the provision of assistance to them. An area of particular concern is the absence of long-term support to ensure the reintegration of child victims of trafficking.

GRETA’s stocktaking of the third evaluation round of the Convention, which had a thematic focus on access to justice and effective remedies for victims of trafficking, paid particular attention to child-sensitive procedures for obtaining access to justice and remedies. The issue of addressing vulnerabilities to trafficking in human beings, including those of children, is at the focus of the ongoing fourth evaluation round of monitoring the implementation of the Anti-Trafficking Convention by GRETA.

GRETA calls upon State Parties to the Convention to live up to their legal obligations relating to the rights and treatment of child victims of trafficking, which includes their proactive identification and referral to specialised assistance, the prompt appointment of legal guardians to unaccompanied children, and full respect of the non-punishment provision.

GRETA is responsible for evaluating compliance with the Council of Europe Convention on Action against Trafficking in Human Beings by the States Parties. It is the only independent group of experts to monitor the implementation of binding international legal provisions in this field. The Convention entered into force in 2008 and has been ratified by all 46 member States of the Council of Europe, as well as two non-member States, Belarus and Israel.

The Inter-Agency Coordination Group against Trafficking in Persons (ICAT) is a UN policy forum mandated by the General Assembly resolution 61/180 to improve coordination and cooperation among UN agencies and other relevant international organisations to facilitate a holistic and comprehensive approach to preventing and combating trafficking in persons, including protection and support for victims and survivors. Since 2018, the Council of Europe has been a partner of ICAT.

At a meeting held on 8 July 2024, Malta’s Anti-Human Trafficking Inter-Ministerial Committee and Human Trafficking Monitoring Committee adopted the country’s first National Anti-Trafficking Strategy, with an accompanying Action Plan. The process will be concluded with the final adoption of the Strategy by the Cabinet of Ministers and its launch on 29 July 2024.

In an opening address, Jonathan Vassallo, Chairperson of the Human Trafficking Monitoring Committee and Permanent Secretary at the Ministry for European Funds, Equality, Reforms and Social Dialogue, affirmed Malta’s commitment to combatting trafficking in human beings and noted the importance of consultations with all relevant stakeholders to ensure ownership of the first National Anti-Trafficking Strategy.  Petya Nestorova, Executive Secretary of the Council of Europe Convention on Action against Trafficking in Human Beings, underlined that the Strategy would equip Malta with more effective tools to prevent human trafficking, protect the rights of victims, and ensure the punishment of offenders, while paying attention to new trends and challenges.

During the meeting, a roadmap to strengthen national co-ordination of anti-trafficking action and co-ordination guidelines were also discussed.

The Human Rights Initiatives Unit within the Human Rights Directorate of the Ministry for European Funds, Equality, Reforms and Social Dialogue also launched an awareness-raising campaign focusing on the United Nations Blue Heart theme “Leave No Child Behind”.

This activity was carried out in the framework of the Project “Supporting Malta in the design and implementation of a new anti-trafficking strategy”, which aims to contribute to the ongoing policy reform for combating trafficking in human beings in Malta. The project is co-funded by the European Union via the Technical Support Instrument, and implemented by the Council of Europe, in co-operation with the European Commission.

The Group of Experts on Action against Trafficking in Human Beings (GRETA) held its 51st plenary meeting from 1 to 5 July 2024 in Strasbourg, France.

GRETA adopted the final report on San Marino as part of the third evaluation round of the implementation of the Council of Europe Convention on Action against Trafficking in Human Beings, final reports on Czechia and Türkiye as part of the second evaluation round, and on Aruba (Netherlands) as part of the combined first and second evaluation rounds. These reports will be sent to the authorities concerned and will subsequently be made public, together with eventual final comments received from the authorities.

Furthermore, GRETA approved the draft third round report on Liechtenstein, and draft fourth round reports on Austria, Cyprus and the Slovak Republic. GRETA decided to transmit these draft reports to the national authorities concerned and to ask them to submit their comments within two months. The comments will be taken into account when GRETA draws up its final evaluation reports. GRETA draft reports remain confidential until their final adoption.

In addition, GRETA approved the draft guidance note on Article 13 of the Anti-Trafficking Convention (recovery and reflection period).

GRETA members also held an exchange of views with Ms Evgenia Giakoumopoulou, Head of the Sexual Orientation, Gender Identity, and Sex Characteristics (SOGIESC) Unit of the Council of Europe and Ms Gabriella Calleja, Senior Policy Advisor.

Millions of Ukrainian children have fled their homeland as a result of Russia’s war of aggression, with many of them being hosted in Council of Europe member states. Armed conflicts create particular vulnerabilities for children leading to increased risks of abuse at many levels, including trafficking in human beings. In this context, new challenges in preventing and combating human trafficking affecting children have emerged.

Against this background, the Council of Europe Consultation Group on the Children of Ukraine (CGU), a multilateral operational co-operation platform set up as a direct follow-up to the Reykjavík Summit, dedicated part of its 3rd plenary (1-2 July) to a special hearing on “Understanding the risks of human trafficking, including for the purposes of sexual and labour exploitation of children of Ukraine”. The event was held in an enlarged format, bringing together a wider audience of relevant partners.

Benoît van Keirsbilck, member of the UN Committee on the Rights of the Child and of the CGU noted "Crisis and emergency situations, including armed conflicts put children at greater risk of being separated from their parents and protective environment, and of being displaced without the control or supervision by the authorities. These children are easy prey for child traffickers, illegal adopters, and exploitation in general, including sexual exploitation. All our senses must be on alert to prevent these risks and protect the children who are victims, offering them psychological, legal and social support."

Petya Nestorova, Executive Secretary of the Council of Europe Group of Experts on Action against Trafficking in Human Beings (GRETA) presented GRETA’s work on preventing and combating human trafficking focusing on risks related to Russia’s war of aggression against Ukraine. She underlined “Unaccompanied and separated children, including children evacuated from residential care facilities, are particularly vulnerable to trafficking and exploitation. GRETA has recommended providing child-friendly materials to inform children about the risks of trafficking, including recruitment and exploitation online, and to help them develop skills in identifying and avoiding risks, learning how to protect themselves, where to get support and report abuse.”

The hearing underscored the need to enhance awareness about the risks of human trafficking of the children of Ukraine in Council of Europe member states.

The CGU members also discussed the work of the Thematic Dialogue Groups on Transnational Procedures and Cooperation, on Guardianship, and on Psychological Support and Trauma-informed care and considered concrete ways to address unique and novel challenges that arise in this context, such as dual guardianship arrangements. In addition, the Group discussed a Mapping Study on access of Ukrainian children to education in Council of Europe member states, prepared in collaboration with the Council of Europe’s Education Department.

 Agenda

The 34th meeting of the Committee of the Parties to the Council of Europe Convention on Action against Trafficking in Human Beings took place on 21 June 2024, in Strasbourg and online.

During the meeting, the Committee re-elected Ambassador Maria Spassova (Bulgaria) as Chair for a second term of office of one year and elected Ambassador Sini Paukkunen-Mykkänen (Finland) as Vice-Chair for a first term of office of one year.

On the basis of GRETA’s reports, the Committee adopted recommendations addressed to the authorities of Andorra, Finland, Germany, Hungary, Italy, Lithuania, Monaco and Switzerland under the 3rd evaluation round of the Convention.

The Committee also considered the reports submitted by the authorities of Estonia (second evaluation round) and Armenia, France, Malta and Norway (third evaluation round) on measures taken to comply with the Committee’s recommendations.

 Photos gallery

In a report published today, the Council of Europe’s Group of Experts on Action against Trafficking in Human Beings (GRETA) calls on Switzerland to take more measures against trafficking, particularly by improving victim identification and access to compensation, combating trafficking for the purpose of labour exploitation and providing specialised assistance to children and asylum seekers who fall victim to trafficking.

GRETA welcomes the progress made since the publication in 2019 of its second evaluation report on Switzerland as regards the implementation of the Council of Europe Convention on Action against Trafficking in Human Beings. For example, the authorities adopted the third National Action Plan against Trafficking in Human Beings, which will be subject to regular monitoring and an independent evaluation. Roundtables responsible for the co-ordination of anti-trafficking action were also established in three additional cantons.

Although the relevant legal framework is in place, few victims of trafficking have been awarded compensation. GRETA therefore asks the authorities to facilitate and guarantee effective access to compensation, in particular by ensuring that evidence of the harm suffered by the victim is collected as part of the criminal investigation. Victims who ask to be compensated by offenders for unpaid wages should be able to obtain a decision on this as part of the criminal trial.

While welcoming the fact that there are lawyers who specialise in assisting victims of trafficking, GRETA is concerned that requests for free legal aid are approved at a later stage in proceedings. Switzerland should guarantee access to legal assistance as soon as there are reasonable grounds for believing that a person is a victim of human trafficking and ensure that victims have access to free legal aid from a specialised lawyer in all relevant legal proceedings, including civil proceedings.

GRETA also welcomes the existence of specialised police units and prosecutors in some cantons, and the establishment of the exchange platform on human trafficking for prosecutors. However, the low number of prosecutions and convictions and, in some cases, the excessive length of criminal proceedings are still a source of concern. GRETA calls on the authorities to take measures to remedy this. It also recommends that guidelines on the application of the non-punishment principle be transposed into directives throughout the country and that prosecutors and the police be given training on this.

The report also calls for an increase in the capacity of labour inspectors to detect victims of trafficking. To combat trafficking for the purpose of labour exploitation, it is necessary for example to adopt specific guidelines on investigations into this form of trafficking but also to strengthen monitoring of domestic work and agriculture and co-operation with specialised NGOs and trade unions.

While welcoming the more efficient detection of victims of trafficking among asylum seekers, GRETA asks the Swiss authorities to ensure that a harmonised victim identification procedure is put in place in all cantons and that specialised organisations are involved in the procedure for the identification of victims of trafficking during the asylum process.

All victims, including asylum seekers and persons exploited abroad but identified in Switzerland, must benefit from specialised assistance measures and sufficient funding must be provided for NGOs providing assistance to victims of trafficking.

The report also urges the Swiss authorities to set up a formalised procedure for the identification of child victims of trafficking in all cantons, and to ensure that child victims throughout the country benefit from assistance measures.

Lastly, GRETA calls on the authorities to strengthen their efforts to ensure that all presumed foreign victims of trafficking are offered a recovery and reflection period. They should also benefit in practice from the right to obtain a renewable residence permit for the purpose of co-operating with the authorities or on humanitarian grounds.

According to the report, Switzerland is still predominantly a country of destination for victims of trafficking. Between 2019 and 2023, the police identified 295 victims, most of whom were women and around 8% of whom were children. The number of victims identified during the asylum procedure grew considerably. Sexual exploitation is still the main form of exploitation, affecting mainly women and girls, although trafficking for the purpose of forced criminality (including forced begging) and labour exploitation are also on the rise.

 GRETA and Switzerland

The Group of Experts on Action against Trafficking in Human Beings (GRETA) is an independent body which monitors the way countries implement the Council of Europe Convention on Action against Trafficking in Human Beings. All 46 member states of the Council of Europe are bound by the Convention, as well as non-member states Belarus and Israel.

The Advisory Group (AG) to the Joint European Union and Council of Europe Project “Supporting Malta in the design and implementation of a new anti-trafficking strategy” held its fifth meeting (online) on 11 June 2024 with the participation of all of its members from the European Commission’s DG-REFORM, the Council of Europe, the Office of the Prime Minister, European Funds, Equality, Reforms and Social Dialogue (OPM-EES) and its Human Rights Directorate (HRD) and Human Rights Initiatives Unit (HRIU), as well as the Ministry for Home Affairs, Security, Reform and Equality (MHSR).

The HRIU confirmed that the draft National Anti-trafficking Strategy and Action Plan have been validated by the Maltese Anti-Human Trafficking Inter-Ministerial Committee (IMC) and Human Trafficking Monitoring Committee (HTMC) and will be sent to the Cabinet of Ministers for adoption after the final feedback of the Ministry of Justice.

The Project is supporting the implementation phase with tools to strengthen national coordination as well as evaluation and monitoring capacities. A presentation on the Theory of Change and Monitoring and Evaluation Framework was made during the AG meeting and will be followed by a series of trainings to IMC members in June and July 2024. A joint IMC and MC meeting will also take place in July 2024 to discuss the preparation of coordination guidelines.  

This activity was carried out in the framework of the Project “Supporting Malta in the design and implementation of a new anti-trafficking strategy”, which aims to contribute to the ongoing policy reform for combating trafficking in human beings in Malta. The project is co-funded by the European Union via the Technical Support Instrument, and implemented by the Council of Europe, in cooperation with the European Commission.

A delegation of the Council of Europe's Group of Experts on Action against Trafficking in Human Beings (GRETA) carried out an evaluation visit to Croatia on 3-7 June 2024, as part of the fourth evaluation round of the Convention on Action against Trafficking in Human Beings.

This new evaluation round of monitoring the implementation of the Convention focuses on vulnerabilities to human trafficking and measures taken by States Parties to prevent them, detect and support vulnerable victims, and punish the offenders. This includes the use of information and communication technology (ICT), which brings structural changes to the way offenders operate and exacerbates existing vulnerabilities. 

Prior to the visit, the Croatian authorities provided a reply to GRETA’s questionnaire for the fourth evaluation round. In addition to the new thematic focus, GRETA examined how the main recommendations made in its third evaluation report have been implemented.

During the visit, the GRETA delegation met Mr Alen Tahiri, Director of the Office for Human Rights and Rights of National Minorities and National Co-ordinator for Combating Human Trafficking, as well as representatives of the Ministry of the Interior, the Ministry of Foreign and European Affairs, the Ministry of Justice, Administration and Digital Transformation, the Ministry of Defence, the Ministry of Labour, Pension System, Family and Social Policy, the Ministry of Health, the Ministry of Tourism and Sport, the Labour Inspectorate, the Croatian Employment Service, and the Institute for Expertise, Vocational Training Rehabilitation and Employment of Persons with Disabilities. Meeting were also held with the State Attorney’s Office, the Supreme Court, the Police and Judicial Academies, and the Bar Association. Further, the delegation met with representatives of the Office of the Ombudsperson, the Office of the Children’s Ombudsperson, the Office of the Gender Equality Ombudsperson, and the Office of the Ombudsperson for Persons with Disabilities.

In addition to holding meetings in Zagreb, GRETA’s delegation travelled to Čakovec where it met with members of the mobile team against human trafficking and representatives of the Institute for Social Work from Čakovec, Osijek and Zagreb, the Police Administration of the Međimurje County, as well as with representatives of the local self-government.

The GRETA delegation held separate meetings with non-governmental organisations and lawyers representing victims of human trafficking. It also met representatives of the United Nations High Commissioner for Refugees (UNHCR) and the International Organization for Migration (IOM).

The visit provided an opportunity to visit a shelter for adult victims of human trafficking, as well as the reception centre for asylum seekers in Zagreb.

The visit was carried out by Ms Biljana Lubarovska and Ms Rita Penedo, members of GRETA, who were accompanied by Ms Asja Zujo of the Secretariat of the Convention.

Following the visit, GRETA will prepare a draft report, which will be sent to the Croatian authorities for comments. GRETA will subsequently adopt a final report which will be published in 2025.

 GRETA and Croatia

In a report published on 11 June 2024, the Council of Europe Group of Experts on Action against Trafficking in Human Beings (GRETA) calls on the Principality of Monaco to take further steps to combat trafficking, including by improving the identification of victims and the criminal justice response, and by strengthening measures to combat trafficking for the purpose of labour exploitation.

Although no victims have been formally identified in Monaco since the entry into force of the Council of Europe Convention on Action against Trafficking in Human Beings in 2016, the risk of labour exploitation continues to raise concerns, particularly in sectors such as domestic work, construction, hotels and restaurants, and in work on private yachts. There are also concerns about the possible sexual exploitation of people who come to Monaco occasionally, notably for important events.

There has been some progress since the previous evaluation (2020), in particular as regards the legislative framework, the definition of the offence of trafficking, training for professionals and the provision of information to victims. The institutional and strategic framework has remained unchanged, however. GRETA considers that the authorities should adopt a strategic policy document on action against trafficking or incorporate such measures in a more general strategic policy document.

The report calls for further steps to improve the identification of possible victims of trafficking, including among domestic workers, migrant workers and people in an irregular situation, and for the adoption of the draft circular on the identification and assistance of THB victims to be finalised.

With regard to preventing and combating trafficking for the purpose of labour exploitation, the authorities are called upon to strengthen the capacities and resources of the Labour Inspectorate, map the sectors considered to be at risk from exploitation, increase the number of unannounced inspections carried out in these sectors and set up safe and effective reporting mechanisms.

GRETA is concerned that the relevant professionals may have a restrictive interpretation of what constitutes trafficking and urges the authorities to take the necessary legislative measures to ensure that the offence of trafficking can be effectively investigated, prosecuted and punished, including by adding the offence to the Criminal Code.

GRETA welcomes the introduction of a state compensation scheme for victims of offences, which covers victims of trafficking. It considers that the authorities should ensure that any victims detected are systematically informed of their right to seek compensation and are provided with legal assistance from the outset of the proceedings. 

Lastly, GRETA urges the authorities to provide in their internal law for a recovery and reflection period and the possibility of issuing a renewable residence permit to trafficking victims.

GRETA and Monaco

The Group of Experts on Action against Trafficking in Human Beings (GRETA) is an independent body which monitors the way countries implement the Council of Europe Convention on Action against Trafficking in Human Beings. All 46 member states of the Council of Europe are bound by the Convention, as well as non-member states Belarus and Israel.