New EMN study examines international support measures aimed at combatting trafficking in human beings

The EMN study “Trafficking in Human Beings – the International Dimension” provides an overview of the measures implemented by 25 EMN Member and Observer Countries aimed at combatting trafficking in human beings of third-country nationals during the period 2021–2023. The study examines initiatives in areas such as prevention, law enforcement, victim support, international cooperation and policy development - all in line with the EU Strategy on Combating Trafficking in Human Beings 2021–2025. The study highlights both common challenges and good practices, as well as ongoing discussions on the need for further policy development.

Background

Trafficking in human beings is a complex crime and constitutes a serious violation of human rights under international law and the Charter of Fundamental Rights of the European Union (Article 5.3). Whilst many victims of trafficking within the EU are EU citizens, the proportion of third-country nationals is rising sharply. In 2022, they accounted for 63.1% of victims of trafficking in human beings, compared to approximately 43% for the period 2019–2021. At the same time, many victims remain undetected.

This trend, particularly the international dimension of trafficking in human beings, has led to strongerefforts under the EU Strategy on Combating Trafficking in Human Beings 2021–2025, to include measures outside the EU borders. This includes a revised EU Anti-Trafficking Directive in 2024 and new tools for investigating trafficking in human beings offences and providing better support to victims.

Initiatives from EMN Member and Observer Countries

EMN Member and Observer Countries have implemented a range of measures to address the international dimension of trafficking in human beings. Focus is often on specific third countries, regions or migrant groups, using specially developed methods to effectively manage the risks of trafficking in human beings. These efforts are often carried out in cooperation with international organisations, primarily the International Organization for Migration (IOM) and/or civil society organisations, with combined funding from national budgets and EU.

Priority areas include, among others:

• crime prevention
• support for victims
• coordinated law enforcement
• prosecution of perpetrators.

Most of the EMN Member and Observer Countries addressed the international dimension as part of broader strategies against trafficking in human beings and linked policy measures within the frameworks of migration, asylum, border management and organised crime. No country has a separate strategy for the international dimension of trafficking in human beings.

Operational cooperation and strategic partnerships

Several EMN Countries, including Sweden, Germany, Finland, France, Belgium, Greece, Spain, Serbia and Georgia, have revised their national strategies aimed at combatting trafficking in human beings. Germany, Greece and Serbia have implemented measures to strengthen international cooperation. Enhanced cooperation with certain third countries, continued capacity-building within the responsible government agencies and policy development are priority areas.

• EU support. The EU supports EMN Countries through funding, coordination and information exchange. This support is provided via the European Multidisciplinary Platform Against Criminal Threats (EMPACT) as well as other channels.
• Cooperation with EU agencies. Eleven EMN Countries, including Belgium, Estonia, Spain, Finland, Slovenia and Georgia, have reported cooperation with EU agencies such as the European Union Agency for Law Enforcement Cooperation (Europol), the European Border and Coast Guard Agency (Frontex) and the European Union Agency for Criminal Justice Cooperation (Eurojust). This cooperation encompasses operations in third countries, particularly in the areas of law enforcement and judicial cooperation. The EU has directly managed and/or funded development cooperation programmes in third countries focusing on law enforcement, cybercrime and economic crime linked to human trafficking, as well as the identification of, and support to, victims.
• Smuggling of migrants. In November 2023, the European Commission presented a legislative package of measures to strengthen efforts against migrant smuggling, which is often linked to trafficking in human beings. The package includes a proposal for a new directive aimed at preventing and combating the facilitation of unauthorised entry, transit and stay in the EU. In addition, a new regulation is proposed to strengthen police cooperation and Europol’s role in the fight against migrant smuggling and trafficking in human beings.
• Strengthening of international cooperation against trafficking in human beings. EMN member and observer countries have identified the necessity of improving the identification and protection of victims of trafficking in human beings. This includes initiatives in financial investigations, digital surveillance and measures against labour exploitation.

Good practices in combating trafficking in human beings

EMN Countries highlight the deployment of Police Liaison Officers (PLOs) in third countries and support from EU agencies for law enforcement efforts. Some countries are strengthening cooperation with countries of origin and partner countries, whilst others have relied on cooperation projects with non-governmental and civil society organisations. Whilst the form of cooperation with international organisations varies, EMN Countries collaborate with the United Nations Office on Drugs and Crime (UNODC), the Organisation for Security and Co-operation in Europe (OSCE), the International Centre for Migration Policy Development (ICMPD) and the International Organization for Migration (IOM). Sweden cooperates extensively with UNODC, OSCE and IOM.

Some initiatives

• Thirteen EMN Countries (including Croatia, the Netherlands, Bulgaria, Poland, Sweden, Finland and Georgia) identified good practices in relation to policy development and measures towards third countries to prevent trafficking in human beings.
• Nine EMN Countries (including Belgium, Cyprus, Germany, France, Estonia and Sweden) have carried out awareness-raising initiatives in third countries to prevent trafficking in human beings, whilst others have undertaken capacity-building activities.
• Mentoring, training and law enforcement units have been established in several countries.
• Nine EMN Countries (including Austria, Germany, Greece, Poland, Hungary, Serbia and Georgia) have established structured cooperation with third countries, including bilateral agreements, to tackle cross-border trafficking in human beings. Many cooperate operationally on an ad hoc basis, focusing on regions such as the Sahel, the Horn of Africa, North Africa, Eastern Europe and the Western Balkans.
• Greece, France and Poland report positive experiences in preventing trafficking of unaccompanied children.

Challenges in the fight against trafficking in human beings

EMN Member and Observer Countries face several recurring challenges: preventing trafficking in human beings, reducing demand, strengthening law enforcement and the judiciary, providing support to victims, and improving international cooperation.

• The COVID-19 pandemic increased victims’ vulnerability and accelerated the shift of trafficking in human beings to digital platforms. Today, new methods are required to combat trafficking in human beings online.
• Nine EMN Countries (including Sweden, Germany, Spain and Austria) identified challenges in preventing trafficking in human beings in third countries of origin and transit of (potential) victims. Low levels of trust and/or cultural differences with third countries hinder joint efforts such as information exchange and the sharing of resources to combat trafficking in human beings.