EN EN

EUROPEAN COMMISSION

Brussels, 16.10.2026 COM(2026) 557 final

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN

PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL

COMMITTEE AND THE COMMITTEE OF THE REGIONS

on the progress made in the European Union in combating trafficking in human beings

(Sixth Report) and setting out a renewed EU strategy

{SWD(2026) 311 final}

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1. INTRODUCTION

This report is published at a pivotal moment when the current ‘EU Strategy on Combating

Trafficking in Human Beings 2021-20251’ (‘the 2021-2025 Strategy’) has reached the end

of its implementation period, while new and evolving trends (particularly technology-

facilitated trafficking) are increasingly reshaping the nature and scale of the threat and call

for the EU to adapt its response.

The report provides an overview of the implementation of the actions set out in the 2021-

2025 Strategy, identifies emerging challenges, and includes, as an annex the new ‘EU

Strategy on Combating Trafficking in Human Beings’, announced in the ProtectEU: the

European Internal Security Strategy2. In accordance with Article 20 of Directive

2011/36/EU3as amended by Directive (EU) 2024/17124 (Anti-Trafficking Directive), it

also presents a comprehensive assessment of the key trends, the main policy and

operational developments from 2025 to 2026 at European and national levels and an

analysis of statistics for the period 2023-2024, which is included in a Staff Working

Document5.

The report was drawn up with the support of the EU Anti-Trafficking Coordinator (EU

ATC), and it is based on contributions from Member States through the EU Network of

National Anti-Trafficking Coordinators and Rapporteurs, independent bodies, EU

Agencies6, members of the EU Civil Society Platform against trafficking in human beings,

and other documents from EU institutions, Member States and international organisations.

The data used in the report was gathered by Eurostat from all the Member States via the

national statistical authorities7.

Trafficking in human beings is increasingly becoming a transnational and technology-

enabled crime8. The misuse of online platforms has enabled traffickers to make their

operations more professional, diversify their recruitment strategies, and reduce in-person

interaction and their exposure to law enforcement. The boundaries between migrant

smuggling and trafficking are increasingly blurred, particularly through deceptive

1 EU Strategy on Combatting Trafficking in Human Beings 2021-2025. 2 ProtectEU: a European Internal Security Strategy 3 Directive 2011/36/EU of the European Parliament and of the Council of 5 April 2011 on preventing and

combating trafficking in human beings and protecting its victims. 4 Directive (EU) 2024/1712 of the European Parliament and of the Council of 13 June 2024 amending

Directive 2011/36/EU on preventing and combating trafficking in human beings and protecting its victims. 5 SWD(2026)311 6 The European Institute for Gender Equality (EIGE), the EU Agency for the Operational Management of

Large-Scale IT Systems in the Area of Freedom, Security and Justice (eu-LISA), the EU Agency for Criminal

Justice Cooperation (Eurojust), the EU Agency for Law Enforcement Cooperation (Europol), the EU

Fundamental Rights Agency (FRA), the European Border and Coast Guard Agency (FRONTEX), the EU

Agency for Asylum (EUAA), the European Labour Authority (ELA). 7 Since 2021, data is collected by Eurostat every year and is available in Eurostat’s database under ‘Crime

and criminal justice’ statistics. 8 EU Serious and Organised Crime Threat Assessment (EU SOCTA, 2025), The changing DNA of serious

and organised crime, p. 2.

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recruitment practices luring individuals into exploitative situations under the guise of

employment, accommodation or transportation9.

Recent developments indicate that criminal networks are rapidly adopting artificial

intelligence (AI) and employing algorithmic targeting, encrypted communications and

generative AI to recruit, coerce, manipulate, and control victims. The use of technologies

enables traffickers to target a broader range of victims across linguistic and cultural

boundaries, including the use of automated conversations in online recruitment and

exploitation, which can have detrimental consequences10.

The Anti-Trafficking Directive remains the cornerstone of the EU legal framework,

setting out minimum standards for defining criminal offences, sanctions, victim protection

and cross-border cooperation. The 2024 amendments, which had to be transposed into

national law by 15 July 202611, have brought about major legal and organisational changes

in Member States. As a result of those, some Member States have reshaped the

coordination structure and reinforced assistance and support for victims of trafficking12.

The EU’s anti-trafficking policy has been equally shaped and reinforced by the strategic

frameworks of the ProtectEU: a European Internal Security Strategy13 and the

European Asylum and Migration Management Strategy14, whose key initiatives

actively contribute to the Member States’ institutional, legal and operational capabilities

to combat human trafficking, including a strong focus on assistance and support for

vulnerable groups and victims.

2. TRENDS IN TRAFFICKING IN HUMAN BEINGS IN THE EU

2.1. Victims (sex, age, citizenship)

During 2023-2024, the increasing trend in the number of registered victims of trafficking,

which began in 2022, persisted with 20 022 victims registered in the EU. This represents

a 16.1% increase compared to the 2021-2022 period, when 17 248 victims were

registered15. However, the actual number of victims is certainly higher than reported

data suggests, as statistics only account for victims that are identified by registering

entities, namely law enforcement agencies, immigration authorities, social services and

civil society organisations.

9 Europol, European Migrant Smuggling Centre (EMSC, 2025), Annual Report, p. 6. 10 OSCE (2024) NEW FRONTIERS: THE USE OF GENERATIVE ARTIFICIAL INTELLIGENCE TO

FACILITATE TRAFFICKING IN PERSONS. 11 This report does not include an assessment of the Member States’ transposition efforts. 12 Germany, Ireland, Lithuania, Italy and Sweden. 13 Communication from the Commission to the European Parliament, the Council, the European Economic

and Social Committee and the Committee of the Regionson ProtectEU: a European Internal Security

Strategy (COM/2025/148 final). 14 European Asylum and Migration Management Strategy - Migration and Home Affairs. 15 Calculated based on Eurostat (online data code crim_thb_sex),

https://ec.europa.eu/eurostat/databrowser/view/crim_thb_sex__custom_22718139/default/table

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As in previous years, trafficking in human beings mostly affected women and girls, who

accounted for 63% of all the registered the victims, totalling 11 660 victims. Although

this represents a slight percentage decrease compared to the previous reporting periods,

65% in 2021-22 and 66% in 2019-2020, the absolute number of female victims

increased by 8.8% compared to 2021-2022, when 10 638 victims were registered16.

The overwhelming majority (93%) of the victims trafficked for sexual exploitation were

female, with 72% of them being adult women and 21% girls17. Conversely, men represent

the majority (74%) of the victims trafficked for labour exploitation18. These numbers

reflect long-standing gendered patterns in the types of exploitation prevalent across the

EU.

A notable shift in the demography of registered victims emerged in 2023-2024 with

non-EU nationals comprising 64% of all registered victims. 36% of registered victims

were EU citizens, which represents an 8.4% decrease since the last reporting period and

reverses the trend observed up to 2020 when EU nationals represented a larger share of

registered victims. The top five EU citizenships of trafficking victims by number were

French, Romanian, Polish, German and Hungarian, while the top five non-EU citizenships

were Nigerian, Colombian, Moroccan, Brazilian and Ivorian. 28% of all victims were

citizens of the Member State in which they were registered, which is a 6% decrease

compared to the previous reporting period19.

2.2. Trafficking in human beings for the purpose of sexual exploitation

During the 2023-2024 reporting period, trafficking for the purpose of sexual exploitation

continued to be the most prevalent form of exploitation in the EU. However, it continued

to decline, accounting for 48% of all victims compared to 49% in 2021-2022 and 51%

in 2019-2020. The percentage of non-EU victims of sexual exploitation further

increased to 53%, compared to 51% in 2021-202220.

Sexual exploitation has shifted significantly to the online sphere, and victims are recruited

and advertised through the internet on social media, adult websites, and in closed

messaging groups21. The online environment expands a pool of potential victims but also

broadens access to clients, while allowing criminals to minimise physical contact with both

groups and avoid detection22. Criminals are manipulating the victims via diverse methods

16 Eurostat (online data code crim_thb_vsage),

https://ec.europa.eu/eurostat/databrowser/view/crim_thb_vsage/default/table. 17 Eurostat (online data code crim_thb_expsxa),

https://ec.europa.eu/eurostat/databrowser/view/crim_thb_expsxa/default/table. 18 Eurostat (online data code crim_thb_expsxa),

https://ec.europa.eu/eurostat/databrowser/view/crim_thb_expsxa/default/table. 19 Calculated by Eurostat (extraction based on special request from THB annual data). 20 Eurostat (online data code crim_thb_expsxa),

https://ec.europa.eu/eurostat/databrowser/view/crim_thb_expsxa/default/table. 21 Romania, Latvia, Czechia, Belgium, Malta. 22 Europol Serious and Organised Crime Threat Assessment (SOCTA) 2025; The 9th Annual Report of the

European Migrant Smuggling Centre See also: https://www.europol.europa.eu/media-

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(e.g. lover-boy, sex extortion, debt bondage and exploitation framed as a form of

assistance)23. Online platforms and dating apps are increasingly utilised for ‘live-streamed’

exploitation, where victims are controlled remotely through digital means (e.g. webcam

chats)24. Member States reported cases of extreme violence against the exploited victims

either by the traffickers or the clients, when they were severely injured, attempted suicide

or died25.

Highly organised and violent criminal networks from Latin America increasingly recruit

and traffic vulnerable women from Brazil, Colombia, Venezuela and other Latin-American

countries to Europe, including to Albania, Austria, France, Poland, the Netherlands, Spain

and Croatia.

Operation Bogotá

During Operation Bogotá, Austrian law enforcement detected Latin American suspects who operated with

a high level of mobility and entanglement with EU based criminal networks.

Sexual services from the victims were advertised on adult websites, while negotiations on pricing and

services were handled by call centres in Latin America, leaving victims with no control over their own

lives. Traffickers oversaw every detail, from recruitment to money collection, often subjecting victims to

psychological and physical violence, as well as to threats against family members in Colombia. These

violent attacks were filmed by the criminals, who used the videos to intimidate other victims26.

International cooperation between Albania, Croatia and Colombia, facilitated through Europol, was

essential in linking the main organisers with local associates who acted on their behalf in transit countries

and countries of exploitation.

Trafficking gangs also exploit EU citizens outside the EU. Following a three-year

investigation, in early 2026 the Romanian and British authorities dismantled a network

exploiting Romanian women in prostitution in the United Kingdom, both in short-term

rental facilities or in street prostitution27.

2.3. Trafficking in human beings for the purpose of labour exploitation

Trafficking for the purpose of labour exploitation remained the second most prevalent

form of trafficking in human beings in the EU during 2023-2024 and it increased slightly

to 38%, compared to 37% in 2021-202228. It is the predominant form of exploitation in

press/newsroom/news/over-30-potential-victims-identified-in-action-against-human-trafficking-enabled-

online. 23 Europol Serious and Organised Crime Threat Assessment (SOCTA) 2025; IOM (2025). Europe and

Central Asia Region on The Move: Migration Data Report 2023-2024. 24 Romania, Latvia, Czechia, Belgium, Malta. 25 Austria, Germany, Luxembourg. 26 Dozens of sex trafficking victims in Austria – five arrests in Colombia - Criminal network forced its

victims into sexual exploitation, relying on severe physical violence and threats against their families |

Europol 27 Romanian criminal network trafficking women to the United Kingdom rolled up | Eurojust | European

Union Agency for Criminal Justice Cooperation. 28 Eurostat (online data code crim_thb_expsxa),

https://ec.europa.eu/eurostat/databrowser/view/crim_thb_expsxa/default/table.

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four Member States29. The number of victims has further increased by 15% and it affected

6 839 persons, compared to 5 940 victims in 2021-2022 and 3 940 in 2019-202030. The

share of non-EU victims increased by 20 percentage points to 74% in the EU in 2023-

2024, which is a significant increase compared to the previous reporting period31. Non-EU

victims have increasingly arrived from Asia, notably from Bangladesh, Pakistan, Vietnam,

Thailand, China and Nepal, similarly to the previous reporting period32.

The digital dimension also plays a continuing and increasing role in labour exploitation.

Criminals lure victims into trafficking through false advertisements on legitimate online

websites and in groups (e.g. targeting certain communities) on social media platforms33.

The main sectors at risk of labour exploitation remain the same as in the previous reporting

period, including agriculture, cleaning services, logistics, hospitality and manufacturing.

These sectors are often marked by a high turnover of employees due to short-term and

seasonal work. Moreover, domestic services and care remain at high risk for trafficking for

labour exploitation34 since labour inspections in private homes are legally restricted in

many Member States and rare in practice. In some cases, victims of forced labour are also

exploited by criminals to claim employment and social benefits, which are kept by the

traffickers35.

Victims are frequently recruited through false promises of work in their countries of origin,

mainly outside the EU, where they face severe economic hardship and limited employment

opportunities. In many cases, victims fall prey to highly sophisticated visa and document

fraud schemes before even reaching the EU. Traffickers supply fraudulent documents,

including forged residence permits and language certificates which facilitate their arrival

or stay. Alternatively, victims often arrive legally with work or study visas issued by

Member States. However, once their visa or residence permit expires, they are pushed into

an irregular situation. This loss of legal status renders them particularly vulnerable to

exploitation, as they fear deportation, lack access to labour rights and become dependent

on traffickers. Trafficking for labour exploitation is becoming more and more professional,

as traffickers establish legal entities such as job agencies and hospitality establishments36.

In Sweden and Finland, major investigations took place involving the labour exploitation

of berry pickers from partner countries (e.g. Thailand).

29 Belgium, Latvia, Luxembourg and Portugal. 30 Eurostat (online data code crim_thb_expsxa),

https://ec.europa.eu/eurostat/databrowser/view/crim_thb_expsxa/default/table. 31 The citizenship of 5% of registered victims of trafficking for labour exploitation was reported as ‘other’. 32 Calculated by Eurostat (extraction based on special request from THB annual data). 33 Europol Serious and Organised Crime Threat Assessment (SOCTA) 2025; Greece, Cyprus, Malta. 34 Europol Serious and Organised Crime Threat Assessment (SOCTA) 2025; Belgium, Bulgaria, Italy,

Latvia, Lithuania, Luxembourg, Poland, Greece, Portugal, Slovakia, Spain, Malta, German civil society

organisation (CSO), Portuguese CSO, Europol. 35 Council of the Baltic Sea States (2024). Human Trafficking for Benefit Fraud and related Financial Fraud:

Securing a Steady Revenue Stream. 36 Czechia, Greece, Latvia, Poland, Bulgaria, Ireland, Malta, Europol.

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How subcontracting chains can dilute responsibility while benefiting from exploitation –

an example from France

France successfully investigated a human trafficking case in the champagne industry, where mainly

African seasonal workers were exploited and housed in poor conditions during the 2023 harvest.

The exploitation was organised through a service company which managed recruitment, transportation

and housing via intermediaries. It was subcontracted by a local vineyard service company. The

intermediaries and service company were convicted of human trafficking, while the principal company

was convicted of undeclared work.

2.4 Trafficking in human beings for other forms of exploitation

During the reporting period, forms of trafficking in human beings, other than sexual and

labour exploitation, accounted for 15%37 of all victims38, which is one percentage point

more than in 2021-2022. Such forms of exploitation include forced criminal activities,

forced begging and trafficking for organ removal. Moreover, the 2024 Eurostat data

collection also included the three new forms of exploitation (exploitation of surrogacy,

forced marriage and illegal adoption) under the amended Anti-Trafficking Directive.

Trafficking for forced criminality remains a persistent challenge39 accounting for 2% of

all victims (343) in 2023-2024, a slight decrease compared to 3% in 2021-2022. Despite

this overall decrease, two Member States reported an increase in this form of trafficking40.

Victims of forced criminality are often highly vulnerable individuals such as minors,

migrants, and people experiencing severe poverty, social exclusion and marginalisation.

Criminals also use call centres to coordinate victims across different locations to commit

criminal offences41.This form of exploitation can pose particular challenges for victim

identification and protection, including the risk of being treated as offenders rather than

being recognised as victim of trafficking.

The most common type of forced criminal activities are thefts, money laundering,

property-related crimes and drug trafficking42. Belgium has identified an increase in the

exploitation of minors from North Africa by organised crime groups in organised thefts

and violence-as-a-service (VaaS)43, in the context of drug trafficking44. Social benefit

fraud affected 624 victims, mainly Polish nationals exploited in the United Kingdom.

37 Eurostat (online data code crim_thb_expsxa),

https://ec.europa.eu/eurostat/databrowser/view/crim_thb_expsxa/default/table. 38 In 2019-2020, other forms of exploitation represented 11% of cases of trafficking in human beings in the

EU, while in 2021-2022 this figure was14%. 39 Europol Serious and Organised Crime Threat Assessment (SOCTA) 2025; The 9th Annual Report of the

European Migrant Smuggling Centre (EMSC); Spain, France, Netherlands, Estonia, Greece, Ireland,

Lithuania, Latvia, Italy, Eurojust, Belgian CSO. 40 Belgium, Cyprus. 41 Frontex, Warsaw police uncover criminal network involved in human trafficking and narcotics - English

Section. 42 Bulgaria, Greece, Belgium, Austria, Lithuania. 43 VaaS refers to the outsourcing of violent acts to criminal service providers. This often involves the

recruitment and use of young perpetrators to carry out threats, assaults or killings for a fee. See: Operational

Taskforce GRIMM - Tackling violence-as-a-service and the recruitment of young perpetrators into serious

and organised crime. | Europol. 44 Belgium, Belgian CSO.

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Forced begging remains present in Member States, representing 1% of registered victims

(253), which is one percentage point less than in the previous reporting period45. Often the

victims are children46 or persons with disabilities47, who suffer severe abuse from their

family members, who are usually the traffickers48. Greece reported a forced begging case

involving 12 Romanian victims. Poland reported a slight but noticeable increase in

potential victims, including non-EU nationals from the Russian Federation and Ukraine,

in forced begging.

Exploitation of forced marriage and sham marriages were also documented49,

accounting for 1% of registered victims (91)50. The reporting of such offences is usually

very low due to family bonds51. Victims often face violence and threats (e.g. spreading

their sensitive personal information online or threatening their family members), and may

be unable to leave the marriage, or may never have consented to it in the first place52. Other

forms of exploitation (sexual, labour exploitation or forced begging) can also happen in

the marriage.

Massive sham marriage operation

The Cypriot law enforcement authorities together with Portugal and Latvia dismantled a massive sham

marriage operation by an organised criminal group orchestrating 133 sham marriages concluded for

residence rights in the EU. Vulnerable women were recruited in Portugal and in Latvia and were forced

with bogus promises into marriages with Indian and Pakistani nationals53.

During the reporting period, the Member States did not report any exploitation of

surrogacy to Eurostat54. Greece reported forced reproduction practices with victims

from Bulgaria, Albania, Georgia, Moldova, Romania and Greece.

Trafficking for organ removal remains underreported55, representing 0.04% of registered

cases (10), similar to the previous reporting period (less than 1%)56. Driven by a global

shortage of legally donated organs, organised criminal groups exploit trafficking victims

for organ removal and the sale of their organs. Detection remains difficult due to low

45 Calculated by Eurostat (extraction based on special request from THB annual data). 46 Cyprus, France, Bulgaria, Spain, Slovakia, Estonia, Greece, Romania, Poland, Portugal, Lithuania, Latvia,

Italy, Italian CSO, Finnish CSO, Eurojust, Frontex. 47 OSCE (2024). Invisible Victims: The nexus between disabilities and trafficking in human beings;

Romania, Greece, Poland, Frontex. 48 Greece. 49 Spain, Hungary, Slovenia, Latvia, Finnish CSO. 50 Calculated by Eurostat (extraction based on special request from THB annual data). 51 KOK study: Neue KOK-Studie untersucht Zwangsverheiratung im Kontext von Menschenhandel | KOK

gegen Menschenhandel. 52 La Strada International (2025): 3646-LSI_IMPACT_The Legal and Policy Landscape on (Trafficking for

the Exploitation of) Forced Marriage Across Europe.pdf; High levels of violence when children and women

are forced into marriage | Swedish Gender Equality Agency; Finnish CSO. 53 https://www.europol.europa.eu/media-press/newsroom/news/15-arrested-for-arranging-sham-marriages-

in-cyprus. 54 Calculated by Eurostat (extraction based on special request from THB annual data). 55 Europol. 56 Calculated by Eurostat (extraction based on special request from THB annual data).

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reporting rates, patient–doctor confidentiality constraints and challenges in proving the

abuse of a position of vulnerability57.

2.5 Child trafficking

In 2023-2024, child victims constituted 15% of the overall registered trafficking victims

in the EU (where the victim’s age group was known) (2 913), which is a 0.88% decrease

in absolute figures since 2021-2022 (2 939). In 2024, 1 577 child victims were registered,

the second highest number since 2015 (the highest was in 2021 with 1 644 victims)58. The

slight decrease in the reporting period may be linked to the continuing increase in online

exploitation and grooming, whereby many (child) victims remain unidentified59. Child

trafficking encompasses all forms of trafficking, with the most prevalent being sexual

exploitation, forced begging and forced criminality60.

77% of child victims were EU citizens and 72.4% of them were trafficked within their

own Member State61. The proportion of child victims subjected to sexual exploitation

increased from 22% in 2023 to 26% in 202462. The hidden nature of child trafficking was

further proven during the 2025 EMPACT Hackathon when investigators from Member

States uncovered a dark web site where hundreds of traffickers offered a range of services

involving both male and female victims of all ages. The prices ranged from USD 800 to

USD 2 000 per hour, depending on the victim’s age and perceived ‘skills’, while the sale

of a permanent ‘home’ boy or girl was listed for between USD 20 000 and USD 60 00063.

Beyond sexual exploitation, recruitment of young people into criminality by organised

crime groups remains a major challenge, particularly in the context of trafficking for

forced criminality. Traffickers often target children to commit criminal offences as their

age may limit their criminal responsibility and the penalties they face, together with a lack

of prior offences and lower likelihood of arousing suspicion in public spaces. Children and

young adults are groomed through social media and gaming platforms into committing

criminal offences where criminals glamorise crime. Such criminal activity may constitute

recruitment for forced criminality where children are coerced and pressured into

committing a crime.

Central Mediterranean and Eastern Mediterranean routes remain the main entry point

for minors from Africa and the Middle East, accounting for 80% of total entries. Child

trafficking in the Western Balkans continues to rise despite enhanced legal and practical

57 Focus Group of specialised prosecutors against human trafficking: Outcome Report of the 4th meeting |

Eurojust | European Union Agency for Criminal Justice Cooperation. 58 Eurostat (online data code crim_thb_ vsage), https://ec.europa.eu/eurostat/databrowser/view/crim_thb_

vsage /default/table. 59 See also: https://www.europol.europa.eu/crime-areas/threats-to-minors. 60 Spain, Ireland, Italy, Slovakia, Czech CSO, French CSO, Spanish CSO, Frontex. 61 Calculated by Eurostat (extraction based on special request from THB annual data). 62 Eurostat (online data code crim_thb_expsxa),

https://ec.europa.eu/eurostat/databrowser/view/crim_thb_expsxa/default/table. 63 EMPACT Hackathon: 16 suspected human traffickers and 60 potential victims identified - During this

third edition of the EMPACT Hackathon, 76 experts from 27 countries targeted human traffickers online |

Europol.

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response measures. Unaccompanied children remain vulnerable to trafficking. The main

nationalities of the minors identified include Syria, Afghanistan, Egypt, Tunisia, Türkiye,

Guinea, Morocco and Mali.

Half of child victim cases in Greece relate to unaccompanied children

In 2024 Greece observed a concerning trend involving unaccompanied children from Egypt arriving in

large numbers, often in groups of more than ten. It also observed unaccompanied girls from Somalia

arriving in Greece in significant numbers, with potential exposure to trafficking risks.

In cases of forced begging, children are forced to beg on the street either by organised

crime groups or, in some cases, by their own family members. In addition to begging,

organised crime groups exploit children across Europe to commit thefts, pickpocketing,

burglaries, drug trafficking and sometimes even money laundering64. They take advantage

of areas with high levels of tourism and large metropolitan transport hubs, strategically

deploying child victims during seasonal tourist peaks, major public events and periods of

perceived lower law enforcement activity. Recruitments predominantly take place within

internal and familial settings with methods including grooming from early childhood,

normalisation of criminal activity, emotional manipulation, financial dependency or threats

of violence65.

2.6 Trafficking in human beings in the context of migration

In 2023-2024, 36% of registered victims with known citizenship were EU nationals

(7 023) and 64% were non-EU nationals (12 369), representing a ten percentage point

increase in non-EU national victims compared to the previous reporting period, when they

accounted for 54%66. The main origin of non-EU victims is Africa (5 450), in particular

Nigeria, Morocco and Côte d’Ivoire; Latin America (2 697), namely Brazil, Colombia,

Venezuela; and South(east) Asia (2 623), in particular Pakistan, India, Bangladesh,

Thailand and China67. Victims from Latin America are trafficked mainly for sexual

exploitation68, but increasingly also for labour exploitation.

Trafficking in the context of migration is often linked to labour exploitation and the

promise of employment by traffickers or to sexual exploitation69. This occurs in situations

of both irregular and legal migration when traffickers take advantage of migrants in

vulnerable situations (e.g. lack of knowledge of local employment rules and lack of

support). In this context, the exploitation of non-EU nationals residing in the EU on work

visas has been identified, highlighting vulnerabilities linked to limited access to

64 schleswig-holstein.de - Landgericht Kiel - Konto für Freunde freigeben? Vorsicht Geldwäsche-Falle! 65 Germany, the Netherlands. 66 Calculated based on Eurostat (online data code crim_thb_vctz),

https://ec.europa.eu/eurostat/databrowser/view/crim_thb_vctz/default/table?lang=en&category=crim.crim_

thb. 67 Extraction based on special request from THB annual data collected by Eurostat. 68 Brazil (sexual exploitation 61%, labour exploitation 34%), Colombia (sexual exploitation 61%, labour

exploitation 37%) and Venezuela (sexual exploitation 78%, labour exploitation 20%). 69 Greece, Latvia, Poland and Bulgaria.

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information, dependency on employers or intermediaries, and precarious working and

living conditions70. Spain has reported that some recruitment agencies in Latin America

take advantage of the visa-free regime for short stays in the EU to recruit Columbian,

Brazilian and other nationals from Latin-American countries along established migration

corridors and transport migrants to other Member States where they are subjected to forced

labour or other forms of exploitation.

3. EU AND MEMBER STATES’ ACTIONS TO ADDRESS TRAFFICKING IN

HUMAN BEINGS

3.1 Support to Member States to implement the Anti-Trafficking Directive and

the 2021-2025 Strategy

During the reporting period, the transposition and full implementation of the revised

and amended Directive 2011/36/EU by Member States by the deadline of 15 July 2026

remained a priority. To date, 6 Member States have notified the Commission of the

adoption of the necessary legal provisions aligning their national laws with the amended

Directive71. On 25 September 2026, the Commission decided to open infringement

procedures by sending a letter of formal notice to 20 Member States for failing to

communicate the complete transposition of Directive 2024/1712.72 To help Member States

with this, the Commission organised two transposition workshops (March 2025, January

2026) that addressed key challenges and practical questions raised by Member States,

providing clarifications, examples of good practices and guidance to the Member States.

In addition to facilitating the implementation of the amended Directive and the 2021-2025

Strategy, the Commission launched the Anti-Trafficking Hub73 on 5 June 2025, which

brings together expertise and engages in three main activities: research, analysis,

and advice in collaboration with stakeholders. During the first year of its activities the Hub

released three studies on topics of primary importance (data collection, definition of

trafficking for labour exploitation and the functioning of national referral mechanisms),

organised workshops to present the results and supported the Commission in the related

communication activities.

The collection and sharing of statistics lie at the heart of the national and EU anti-

trafficking policies and were identified as a key priority in the 2021-2025 Strategy. This is

because robust data underpins evidence-based policymaking, funding allocation and

operational activities. Under the revised Directive, Member States are now obliged to

collect and submit the data to Eurostat. On the occasion of the 10-year data collection on

13 October 2025, Eurostat released a report analysing 10 years (2013-2023) of EU data on

trafficking in human beings74, presenting key trends of the past decade. In addition, in June

70 IOM (2025). Europe and Central Asia Region on The Move: Migration Data Report 2023-2024. 71 Bulgaria, Croatia, Estonia, Hungary, Italy and Portugal. 72 Commission takes action to ensure complete and timely transposition of EU directives 73 https://home-affairs.ec.europa.eu/news/commission-launches-eu-anti-trafficking-hub-strengthen-fight-

against-trafficking-human-beings-2025-06-06_en. 74 Eurostat Trafficking in human beings in the EU: main findings 2013-2023.

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2026 the EU Anti-Trafficking Hub published a comprehensive study75 analysing

shortcomings in the methodology, organisation and infrastructure of data collection and

providing recommendations for improvement and further alignment across Member States.

As per the 2021-2025 Strategy, the Commission is supporting Member States with

funding to combat trafficking inside and outside the EU. During the reporting period two

calls to combat organised crime were published in 202376 and in 202677 respectively, each

awarding EUR 2.5 – 3 million under the Internal Security Fund (ISF) for better

investigation and prosecution of trafficking offences. In addition, in 2025, 8 projects were

awarded to governmental and non-governmental beneficiaries under the Asylum,

Migration and Integration Fund (AMIF) for the total amount of EUR 8 million to enhance

assistance and support for non-EU victims78.

3.2. Coordination and national action plans as pre-requisites to the

comprehensive approach to addressing trafficking in human beings

The 2021-2025 Strategy acknowledges the importance of a multi-stakeholder,

coordinated approach to effectively combat trafficking in human beings. Coordination at

the EU level ensured by the EU Anti-Trafficking Coordinator (EU ATC) has been

reinforced in the amended Directive, which explicitly provides for coordination with

national anti-trafficking coordinators, independent bodies, EU Agencies and the relevant

civil society organisations active in the field. During the reporting period the EU Network

of National Anti-Trafficking Coordinators and Rapporteurs held three meetings under

the joint chairmanship of the EU Anti-Trafficking Coordinator and the rotating Presidency

of the Council of the European Union79. They discussed child trafficking, the role of

technologies and AI in committing and combating trafficking in human beings, emergency

responses to crisis situations and national action plans.

Coordination is also addressed at national level. The amended Directive makes the function

of national anti-trafficking coordinators mandatory, requiring allocation of adequate

resources and describing their tasks80. Member States are encouraged to establish

independent national bodies for monitoring the implementation and impact of anti-

trafficking actions. Such reforms aimed at reorganising and streamlining the coordination

of responsibilities and efforts related to the prevention and combating of trafficking of

human beings were reported by several Member States81.

The majority of Member States reported having multiannual national strategies or action

plans dedicated to the fight against trafficking in human beings. A significant number of

75 Study on the collection and improvements of EU Statistics on trafficking in human beings. 76 Call for proposals on Organised Crime (ISF-2023-TF2-AG-OC). 77 ISF-2026-TF2-AG-OC. 78 AMIF-2024-TF2-AG-THB; call-fiche_amif-2024-tf2-ag-thb_en.pdf. 79 Meetings with the National Anti-Trafficking Coordinators and Rapporteurs held on 5-6 May 2025 with

the Polish Presidency; with the Danish Presidency on 15-16 December 2025 and with the Cypriot Presidency

on 4 June 2026. 80 Article 19 of Directive (EU) 2024/1712. 81 Germany, Ireland, Lithuania, Italy, Romania and Sweden.

12

Member States amended their respective strategy or action plan during the reporting

period82. For instance, Croatia adopted its National Plan for Combating Trafficking in

Human Beings for 2024-2030, which includes measures raising awareness among

vulnerable groups, preventing online trafficking, and improving the identification of

victims and assistance referral for them, including by reinforcing mobile teams. Romania

approved its 2024-2028 Strategy, which strengthens criminal justice responses by

prohibiting suspended sentences for trafficking offences83. In 2024, Germany adopted the

first comprehensive National Action Plan to Prevent and Combat Trafficking in Human

Beings and Protect Trafficked Persons84. In parallel to this, Germany also developed a

National Action Plan against Labour Exploitation and Forced Labour85.

3.3. Preventing trafficking in human beings

3.3.1 Reducing the demand that fosters the crime

Several Member States indicated that demand continues to be a central driver of sexual

exploitation86. Demand for sexual services disproportionately affects women, with

consequences for gender equality87. The increasing shift of trafficking into the digital

environment also enables traffickers to expand and sustain the demand by enhancing

anonymity and reducing visibility and traceability for law enforcement88. According to

Member States demand is still the driving force behind labour exploitation in labour-

intensive, low-wage, flexible (e.g. seasonal work) and in sectors that are not heavily

regulated (e.g. agriculture, construction, manufacturing and hospitality)89.

Both the2021-2025 Strategy and the Anti-Trafficking Directive aim to reduce demand

through a combination of legislative and non-legislative measures, including mandatory

criminalisation of knowingly using services provided by trafficking victims. Proving the

user’s knowledge of the exploitative situation is a challenge reported in some Member

States. In the EU in 2024, 130 individuals were suspected of using services provided by

victims of trafficking, with most suspected users reported by Sweden (68), Czechia (45),

82 Austria, Bulgaria, Croatia, Czechia, France, Germany, Greece, Italy, Latvia, Lithuania, Malta, Poland,

Portugal, Romania, Slovenia. 83 National Agency against Trafficking in Persons (Romania) / Ministry of Internal Affairs (2024). National

Strategy Against Trafficking in Persons 2024–2028.

84 Nationaler Aktionsplan zur Prävention und Bekämpfung des Menschenhandels und zum Schutz der

Betroffene published by the Federal Ministry for Education, Family Affairs, Senior Citizens, Women and

Youth, March 2025

https://www.bmbfsfj.bund.de/resource/blob/252144/7fcb39c4d3309aa7e429fd29f62a4140/nationaler-

aktionsplan-menschenhandel-data.pdf. 85 Federal Ministry of Labour and Social Affairs (Germany) (2025). National Action Plan against Labour

Exploitation and Forced Labour. 86 Austria, Bulgaria, Denmark, Greece, Spain, Italy, Malta and Slovenia. 87 EIGE contribution. 88 Greece and Ireland, EIGE and Myria (the Belgian independent national rapporteur that analyses trafficking

and smuggling of human beings). 89 Cyprus, Croatia Czechia, Greece, Ireland, Italy, Finland, Spain and Malta.

13

Romania (16), and the Netherlands (1)90. In addition, 33 individuals were prosecuted,

primarily in Greece (22).

3.3.2 Preventive measures targeting legal persons

The Commission put forward numerous actions in the 2021-2025 Strategy to prevent

trafficking in the online environment through closer cooperation with the online platforms.

Moreover, the 2021-2025 Strategy foresaw mandatory due diligence through the supply

chain to reduce labour exploitation and the strengthened accountability of companies to

ban forced labour. During the reporting period several legislative measures were adopted,

further developed or implemented at EU level to pursue these objectives.

Trafficking in human beings is a criminal offence that falls within the scope of y the Digital

Services Act (DSA)91 specifically referred to among the offences involving a threat to the

life or safety of a person that providers of hosting services are required to report to the law

enforcement or judicial authorities of the Member States where they have a suspicion that

such an offence has taken place, is taking place, or is likely to take place. Providers of

hosting services which become aware of any information giving rise to such suspicion

must notify law enforcement agencies or judicial authorities of the Member States.

Online Platforms used to commit trafficking in human beings

The different phases of the trafficking offence usually take place on various types of online platforms.

1. Perpetrators can profile, identify, target and recruit vulnerable individuals at scale.

2. Direct contact often then shifts to encrypted or private communication services.

3. Victims are advertised – particularly for sexual exploitation –on adult websites, dating platforms

and other specialised services.

4. In some cases, even the exploitation itself is streamed online.

This fragmented and cross-platform nature of trafficking highlights the need for a coherent

and reinforced enforcement approach combining the supervisory role of the Commission

for VLOPs and VLOSEs with the oversight and investigative powers of national digital

services coordinators. In line with the DSA, VLOPs and VLOSEs must also assess and

mitigate systemic risks linked to trafficking, stemming from the design and functioning of

their service, including their misuse for online recruitment, grooming and cross-platform

amplification of exploitative services. This highlights the importance of the supervisory

role of the Commission to ensure coherent and effective enforcement. To this end,

Working Group 7 (Orders and Criminal Issues) of the European Board of Digital

Services, chaired by the Commission, discussed this crime area in April 2026 to raise

awareness among the Digital Service Coordinators and to hear about their experience.

Members also discussed their outreach strategies to law enforcement authorities.

90 Calculated by Eurostat (extraction based on special request from THB annual data). 91 Regulation (EU) 2022/2065 of the European Parliament and of the Council of 19 October 2022 on a Single

Market for Digital Services and amending Directive 2000/31/EC (Digital Services Act) (OJ L 277,

27.10.2022, p. 1, ELI: http://data.europa.eu/eli/reg/2022/2065/oj). See in particular Recital 56.

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On 14 July 2025, the Commission adopted the Guidelines on the protection of minors

under the Digital Services Act (DSA)92, setting out a non-exhaustive list of proportionate

and appropriate measures by VLOPs and VLOSEs to protect children from online risks,

including with the purpose to prevent and address the grooming, control and exploitation

by traffickers.

The Commission actively engages with private-sector stakeholders through the EU

Internet Forum93, which is a collaborative environment for EU governments, the internet

industry and other partners to discuss and address the challenges posed by malicious and

illegal content online. At the latest EU Internet Forum technical-level meeting on

trafficking in human beings (held on 26 March 2026)94, participation extended beyond the

usual platform providers to include actors from adult service websites, short-term rental

platforms and ride-sharing companies, all of whom contributed to targeted discussions on

the online dimensions of trafficking in human beings. This broader engagement reflects

the recognition that trafficking-related activities span a wide range of online services and

business models, requiring tailored cooperation with different types of intermediaries.

The Directive on corporate sustainability due diligence95of 13 June 2024 is

complementary to Directive 2011/36/EU. It sets out a cross-cutting framework to foster

the contribution of businesses and their subcontractors operating in the single market to

respect for human rights and the environment through their own operations and through

their supply chains. Following its review in 2025 under the EU’s competitiveness and

simplification agenda, its scope was reduced to very large companies and obligations were

recalibrated. Member States are required to transpose the rules by July 2028, and

companies begin to comply from 2029 onwards, while the core duty to conduct human

rights and environmental due diligence across operations and value chains remains intact.

The Regulation on prohibiting products made with forced labour on the Union

market96will start to apply on 14 December 2027 and will provide for administrative

procedures to investigate and ban products made with forced labour from being placed on

the EU internal market. To support the coherence of the procedures in Member States, the

Commission issued Guidelines97 on 26 June 2026 on the application of the Regulation,

which recommends that Member States closely coordinate parallel administrative

92 Commission publishes guidelines on the protection of minors | Shaping Europe’s digital future. 93 European Union Internet Forum - Migration and Home Affairs. 94 Report: 7a44bf6e-8352-4965-9308-7149214eb70d_en. 95 Directive (EU) 2024/1760 of the European Parliament and of the Council of 13 June 2024 on corporate

sustainability due diligence and amending Directive (EU) 2019/1937 and Regulation (EU) 2023/2859 (Text

with EEA relevance) (OJ L, 2024/1760, 5.7.2024, ELI: http://data.europa.eu/eli/dir/2024/1760/oj). 96 Regulation (EU) 2024/3015 of the European Parliament and of the Council of 27 November 2024 on

prohibiting products made with forced labour on the Union market and amending Directive (EU) 2019/1937

(OJ L, 2024/3015, 12.12.2024, ELI: http://data.europa.eu/eli/reg/2024/3015/oj). 97 Commission Notice: Guidelines on the application of Regulation (EU) 2024/3015 on prohibiting products

made with forced labour on the Union market. (OJ C, C/2026/4637, 3.9.2026: https://eur-lex.europa.eu/legal-

content/EN/TXT/?uri=celex%3A52026XC04637).

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proceedings to ban products and criminal proceedings on trafficking for labour exploitation

to safeguard the confidentiality of the investigation.

On 8 May 2026 the Commission adopted the implementation report of

Directive 2009/52/EC (Employers Sanctions Directive), which includes criminal offences

covering particularly exploitative working conditions suffered by illegally staying third-

country national workers and the use of their exploited services by employers who know

that the illegally staying third-country nationals are victims of trafficking. Moreover, the

European Labour Authority (ELA) together with the European Union Agency for

Fundamental Rights (FRA) developed a guide for workplace inspectors on how to detect

labour exploitation. This guide is a practical tool for labour inspectors and focuses on non-

national workers in the EU, who work in a country other than their own98. Additionally,

the Commission’s proposal on the revision of the Regulation establishing the European

Labour Authority (ELA)99 adopted on 15 September 2026 as part of the Fair Labour

Mobility Package100 aims to strengthen labour monitoring, information exchange and the

protection of mobile workers across the EU, including by facilitating cooperation between

labour inspectorates. The revision also clarifies ELA’s role in supporting Member States

in cases involving non-EU citizens.

3.3.3 Cooperation with the private sector

The majority of Member States launched new cooperation initiatives with the private sector

during the reporting period101 targeting specific sectors, notably hospitality, agriculture,

information technology, transport, sports and finance. Several Member States concluded

public-private partnerships102. In France, an agreement was signed in 2024 with Gites de

France and Airbnb to combat sexual exploitation103. Italy signed a Memorandum of

Understanding with large companies and trade associations for Legality in Public

Procurement Contracts in the Fashion Supply Chain in 2025, which aims to combat illegal

employment and exploitation by ensuring transparency and fair working conditions. In

other Member States, e.g. in Bulgaria and Poland, cooperation with the private sector is

part of their national strategy, which can take concrete forms and target concrete industries

depending on specific needs. The private sector is increasingly engaging on a voluntary

basis. For example, ECPAT Germany signed a code of conduct with 25 travel agencies

against child sexual exploitation in travel and tourism104.

3.3.4 Awareness-raising campaigns

In line with the 2021-2025 Strategy in which the Commission committed to organise

prevention campaigns, the Commission launched the awareness-raising campaign ‘End

98 New guide empowers workplace inspectors to combat labour exploitation in the EU | European Labour

Authority. 99 COM(2026) 985 final, 15.9.2026. 100 COM(2026) 970 final, 15.9.2026. 101 Austria, Belgium, Bulgaria, Cyprus, France, Estonia, Greece, Hungary, Ireland, Italy, Poland, Romania,

Slovakia and Sweden. 102 Bulgaria, Estonia, France, Italy, Ireland, the Netherlands, Poland, Romania. 103 https://www.citoyens-justice.fr/k-stock/data/pdf/miprof_rapport_dactivite_2023-2024.pdf. 104 The Code – ECPAT Deutschland e. V.

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human trafficking. Break the invisible chain’ on 18 October 2023105, which entered its

second phase in February 2026. This campaign targeted specific Member States106 aiming

to raise awareness on trafficking in human beings, including for sexual and labour

exploitation, and for forced begging.

In both the first phase and the second phase, the Commission created a campaign page,

where it made available an online video and online materials in all official languages that

can be freely used by anybody, a list of national helplines and a list of indicators of

exploitation. In the national campaigns, posters were also placed in public places including

transport hubs and highly frequented commercial spaces. EU Agencies also engaged in

awareness-raising during the reporting period on the EU Anti-Trafficking Day

(18 October).

During the reporting period, awareness‑raising continued to play a central role in national

prevention efforts to combat trafficking and address demand. In the Member States a

gradual shift can be observed from ad hocinitiatives, prevalent in the past, towards

more targeted and diversified approaches, including the use of sector‑specific outreach

and interactive formats, alongside traditional public information campaigns. The

campaigns adopted at national level aimed to increasingly address distinct forms of

exploitation in a more targeted manner and reach those sectors where trafficking risks are

higher. Campaigns targeting potential users of exploited services were conducted in

several Member States107, including targeting employers active in high-risk sectors, the

financial sector and consumers.

3.3.5 Training

Training and capacity-building are key requirements in preventing and fighting trafficking

in human beings and are key elements of the 2021-2025 Strategy. The amended Directive

requires Member States to promote regular and specialised training for professionals likely

to come into contact with potential victims of trafficking in human beings. In most Member

States this resulted in a significant shift from one-off initiatives towards strategic and

systemic training and capacity-building programmes anchored in the national anti-

trafficking strategies or action plans.

During the reporting period, Member States offered a broad range of multidisciplinary and

multi-sectoral training activities to various stakeholders, including competent authorities,

civil society organisations and the private sector. Several Member States implemented

sector-specific training targeting high-risk environments for trafficking, in particular the

hospitality, transport, retail and accommodation sectors, focusing on prevention,

trafficking indicators and referral pathways108.

At EU level, several EU agencies conducted training activities.

105 End human trafficking. Break the invisible chain - European Commission (europa.eu). 106 Bulgaria, Spain, France, Hungary, Italy and the Netherlands. 107 Slovenia, Sweden, Finland and Ireland. 108 Belgium, Sweden; Finland and France.

17

• The European Union Agency for Law Enforcement Training (CEPOL) continued

to provide multi-layered training on investigating sexual and labour exploitation

and child trafficking. This includes onsite and online courses and training packages

available online. This CEPOL training focuses specifically on enhancing expertise

in digital investigation, which has become mandatory for investigators to

participate in Hackathons.

• In partnership with CEPOL, the ELA also delivered training modules and onsite

courses on labour exploitation for labour inspectors.

• The European Judicial Training Network (EJTN)109 provided training for judges

and prosecutors on the judicial aspects of child trafficking and the challenges for

criminal proceedings.

• The European Union Asylum Agency (EUAA) delivered specialised trafficking

training through dedicated modules on awareness of trafficking and on

interviewing possible victims of trafficking and offered regular, operational and ad

hoc support to national authorities. The EUUA's vulnerability-related training

modules also integrate aspects on trafficking.

3.4. Breaking the criminal business model of traffickers

3.4.1 Investigations

Europol's ‘EU Serious and Organised Crime Threat Assessment 2025’ (EU-SOCTA) and report

on ‘Decoding the EU’s most threatening criminal networks’110 confirm that there has been a

profound shift in the nature of organised crime in the EU, with direct implications for trafficking

in human beings. It highlights the fact that organised crime has evolved into a highly adaptive,

system-level threat, increasingly digital, technologically enhanced and deeply embedded in the

legal economy. In this context, human trafficking has shifted from a standalone offence to part

of a broader polycriminal ecosystem, where criminal networks simultaneously engage in

multiple activities such as migrant smuggling, fraud, cybercrime, document fraud and money

laundering. SOCTA underscores that these networks are more professional, flexible and

transnational, using complex business structures, digital tools and global supply chains to

maximise profits and minimise risks.

To respond to other emerging developments, the Commission will propose to modernise the

legal framework on organised crime in order to facilitate the fight against high-risk criminal

networks and to identify and prosecute their ringleaders. On 24 June 2026 the Commission

proposed to revise the Europol and Eurojust Regulations111with a view to consolidating

Europol’s role as the EU’s criminal information hub, enhancing Europol’s operational support

to national investigations, and reinforcing Europol’s role as a technological hub.

In addition to the transposition and implementation of the amended Anti-Trafficking Directive,

Member States stepped up efforts to prevent and detect new and emerging forms of exploitation,

109 European Judicial Training Network (EJTN). 110 Decoding the EU’s most threatening criminal networks: Blueprint-of-criminal-opportunism.pdf. 111 Commission strengthens Europol and Eurojust: 2026/0165 (COD) and 2026/0164 (COD).

18

especially exploitation of forced marriage, social security fraud and trafficking for organ

removal. Those efforts included studies to understand the situational picture and the legal

background, screening databases of existing cases and preparing operational guidelines112. In

the Netherlands, a national focal point was established to monitor patients who travelled

abroad for an organ transplant and to share this information in a pseudonymised form. This

would help detection of potential trafficking offences for organ removal.

Law enforcement cooperation at EU level remained intensive during 2024-2025113,

despite a 7% decrease in the total number of suspected traffickers compared to 2021-

2022. Nevertheless, the figure remains significantly higher than in previous years114. EU

citizens accounted for 73% of all suspects registered in the EU in 2023-2024, which is a

1% increase compared to the previous reporting period115.

Trafficking in human beings is one of the priorities of the European Multidisciplinary

Platform Against Criminal Threats (EMPACT). The new operational EMPACT cycle

for 2026-2027 identified 15 operational actions along the political and operational

priorities reflecting the situational picture, emerging trends, increasing use of technology

and the main countries of origin and transit. In 2024, EMPACT THB operational actions

resulted in 4 985 victims being identified and reported, 876 arrests, 869 new investigations

and the seizure of EUR 4 625 650 in cash and cryptocurrency.

The major global outreach of EMPACT is the annually organised ‘Operation Global

Chain’ Joint Action Days. These action days took place in June 2026 in 59 countries, led

by Austria and Romania, with support from Europol, Frontex, Ameripol and Interpol. The

operations targeted sexual exploitation, forced criminality and forced begging, and it

resulted in 334 arrests for human trafficking and the identification of 2 070 potential

victims, including 162 children116.

EMPACT hackathons continue to be instrumental in countering the growing threat of

online-enabled human trafficking that transcends borders. In September 2025, EU Member

States joined forces with non-EU countries117 to monitor, detect and investigate leads on

human trafficking activities enabled by the internet. They did this by checking 44 online

platforms and targeting trafficking enabled by social media and dating apps with the

support of Europol and Eurojust. In order to facilitate digital investigations, Europol and

12 countries held a ‘Digital sprint to disrupt sexual exploitation of Ukrainian

112 Italy, France, the Netherlands. 113 Europol supported 80 operational meetings in 2023, 90 in 2024 and 116 in 2025. There were 23 Joint

Operational Action Days and 2 Operational Task Forces in 2023 while in 2024-2025 there were 28 action

days. 114 16 437 suspects were registered in 2023-2024 as compared to 17 711 in 2021-22, 15 214 in the period

2019-2020 and 11 788 in 2017-2018. 115 Calculated by Eurostat (extraction based on special request from THB annual data).

116 1 024 arrests in global operation against human trafficking - Operation ‘GLOBAL CHAIN’ took place on

five continents and focused on trafficking for sexual exploitation, forced criminality, and forced begging |

Europol. 117 Over 30 potential victims identified in action against human trafficking enabled online - 73 experts from

26 countries participated in the operation | Europol.

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nationals’118 in February 2025 to detect and disrupt human trafficking networks online.

The sprint checked 690 entities (including online platforms, usernames and locations) and

identified 41 potential victims and 21 suspected traffickers.

The EMPACT Joint Action Day targeting trafficking in human beings for labour

exploitation, with a special emphasis on the agricultural sector, took place in autumn 2025.

Led by France and the Netherlands and carried out by authorities from 32 countries with

support from Europol and the European Labour Authority (ELA), it resulted in the arrest

of 54 persons and the identification of 404 potential victims. Moreover, the INVERT

project financed under the ISF119 delivered a set of risk indicators and technological

solutions to identify companies which are likely to engage in trafficking for labour

exploitation.

Criminal networks increasingly rely on decentralised and technology‑enabled financial

channels to move and obscure profits from human trafficking. Alongside cash couriers and

informal value‑transfer systems, traffickers use crypto‑assets to launder proceeds to

fragment and hide financial trails. These digital and hybrid methods are often combined

with money-laundering transactions through seemingly legitimate businesses, such as

travel agencies or real‑estate intermediaries, to further mask illicit earnings. Despite

increasing confiscation results, Europol considers the absence of comprehensive financial

data related to human trafficking offences to be a major intelligence gap. To address this

challenge, law enforcement agencies need to enhance their understanding and invest in

specialised resources and establish close cooperation with financial institutions120.

Directive (EU) 2024/1260 on asset recovery and confiscation121 will have to be

transposed and implemented by 23 November 2026. The Directive will reinforce the

capacity of law enforcement, prosecutors and judges to trace and confiscate the profits that

organised criminal groups gain through their illicit activities, including trafficking in

human beings.

At EU level, institutional developments have reinforced the operational capacity to address

trafficking within a broader organised-crime framework. A key development under the

reinforced Europol Regulation122 has been the formal establishment of the European

Centre Against Migrant Smuggling within Europol, which strengthens the EU’s ability

118https://www.europol.europa.eu/media-press/newsroom/news/digital-sprint-to-disrupt-sexual-

exploitation-of-ukrainian-nationals. 119 INVERT Project – Disrupting Exploitation Networks; Assessing the Risk of Labour Exploitation in Legal

Business Supply Chains - Transcrime - Transcrime. 120 Europol contribution. 121 Directive (EU) 2024/1260 of the European Parliament and of the Council of 24 April 2024 on asset

recovery and confiscation (OJ L, 2024/1260, 2.5.2024, ELI: http://data.europa.eu/eli/dir/2024/1260/oj). 122 Regulation (EU) 2025/2611 of the European Parliament and of the Council of 16 December 2025

amending Regulation (EU) 2016/794 as regards the strengthening of Europol’s support and enhancing police

cooperation, for preventing and combating migrant smuggling and trafficking in human beings, OJ L,

2025/2611, 22.12.2025, Regulation - EU - 2025/2611 - EN - EUR-Lex.

20

to counter migrant smuggling. In parallel, the trafficking in human beings team in Europol

has been integrated into the Organised Crime Directorate.

3.4.2 Prosecutions and convictions

The number of prosecutions and convictions for trafficking in human beings continued to

rise in 2023-2024. Prosecutions (13 126) increased by 49% compared to 2021-2022

(8 804), and convictions increased by 3.8%, with 4 908 persons convicted compared

to 4 728 in 2021-2022. EU nationals accounted for 67% of all prosecuted and 75% of all

convicted individuals in 2023-2024123. This upward trend in prosecution and conviction

contributes significantly to breaking the business model of the traffickers and to the

fulfilment of one of the four pillars of the 2021-2025 Strategy.

Several Member States provide regular training courses for prosecutors and the judiciary.

Eurojust reported that judicial cooperation in trafficking cases has stabilised after a

period of decline; the numbers of cases, coordination meetings and joint investigation

teams (JITs) remain steady124. A recent example of Eurojust analytical work is a leaflet

on trafficking for sexual exploitation and related crimes, which aims to raise awareness of

the challenges identified by Eurojust in judicial cooperation regarding legal qualifications

and the interpretation of facts constituting a trafficking offence for sexual exploitation and

related crimes125.

In line with the 2021-2025 Strategy, the Focus Group of Specialised Prosecutors against

Trafficking in Human Beings (‘THB Focus Group’) continued to hold its regular

meetings to discuss the latest developments in the fight against human trafficking and

exchanges on how to reinforce judicial cooperation and improve prosecution for trafficking

in human beings126. The meetings focused on awareness-raising on trafficking for the

purpose of organ removal, the role of AI in human trafficking, challenges and best practices

in cross-border investigations and judicial cooperation in cases of trafficking involving

child victims, the implementation of the non-punishment principle and cooperation with

Latin-American countries127..

Cooperation between national prosecution and judicial authorities will be elevated to a new

level and further reinforced through a dedicated EMPACT operational action and a

specific action on judicial cooperation led by the Netherlands. This initiative aims to

increase prosecutions and convictions by facilitating the exchange of expertise and best

123 Calculated by Eurostat (extraction based on special request from THB annual data). 124 Eurojust had 349 cases (12 new cases and 229 ongoing from the previous year); 38 JITS of which 13 were

new; it held 53 case-specific coordination meetings. 125 Trafficking in human beings for sexual exploitation and related crimes | Eurojust | European Union

Agency for Criminal Justice Cooperation. 126 24-25 September 2025 and 17-18 June 2026. 127 Outcome Report THB 2025.

21

practices among Member States in concrete cases, fostering real-time cooperation and

ensuring better integration between judicial and law enforcement efforts128.

The concept and definition of trafficking for labour exploitation was analysed by a study

of the EU Anti-Trafficking Hub129 comparing the legislation and judicial practices in five

Member States. Key findings show that proving trafficking for labour exploitation in court

requires the fulfilment of strict legal criteria, which sets a high threshold for applying the

human trafficking framework. The report notes that accurate identification of trafficking

cases has implications for victims’ access to rights and support, as trafficked persons are

entitled to specialised assistance and protection measures.

3.5. Early identification, assistance and protection of the victims

During the reporting period, victim protection and support in the EU were further

strengthened through a combination of legislative developments, operational measures and

reinforced coordination at both EU and Member State levels. The ongoing implementation

of the amended Anti-Trafficking Directive has played a central role, with a clear shift

towards a more structured, victim-centred and multidisciplinary approach, notably through

the new obligation of Member States to establish national referral mechanisms (NRMs)

and national focal points for the cross-border referral of victims.

The Victims’ Rights Directive130 as revised in June 2026 by Directive (EU) 2026/1472

further strengthens the rights, protection and support of victims of crime in the EU,

including the rights of the most vulnerable victims, such as victims of trafficking in human

beings. In particular, those victims will benefit from an improved individual assessment,

as well as better access to information, reporting, support, protection, access to justice and

compensation. The revised Victims’ Rights Directive applies to victims irrespective of

their residence status and obliges Member States to ensure that victims who are non-EU

nationals are not discouraged from reporting a criminal offence, such as trafficking, and

that they are treated in a non-discriminatory manner.

This key development has been supported by the work of the EU Anti-Trafficking Hub

since the Hub’s dedicated study provided model provisions and practical guidelines,

which have been facilitating Member States’ endeavours to design or upgrade their

NRMs131. These mechanisms define more clearly roles and procedures for the

identification, referral, assistance and protection of victims, bringing together law

enforcement, judicial authorities, immigration authorities, labour inspectorates and civil

society organisations. In parallel, several Member States have strengthened or newly

128 Specialised prosecutors meet at Eurojust to strengthen the fight against human trafficking | Eurojust |

European Union Agency for Criminal Justice Cooperation. 129 Study on the concept of trafficking in human beings for the purpose of labour exploitation based upon the

legislation and case law across selected EU Member States: Italy, Finland, France, Spain and the Netherlands. 130 Directive of the European Parliament and of the Council amending Directive 2012/29/EU establishing

minimum standards on the rights, support and protection of victims of crime, and replacing Council

Framework Decision 2001/220/JHA 131 Policy Paper on National Referral Mechanisms in the EU: Mapping, Analysis and Further Guidance |

Migration and Home Affairs

22

designated their national referral mechanisms and national focal points, ensuring better

coordination at national level and more effective cross-border cooperation132. Together,

these developments are expected to contribute to a more systematic and operational

approach to victim identification and support, including in complex and cross-border cases.

In addition, increasing links have emerged with the EU Pact on Migration and Asylum

because of implications for the early detection and identification of victims, particularly

upon arrival in the EU. Early detection within asylum and migration procedures is

essential, as many victims are first encountered in reception facilities or during asylum

interviews. The EU Anti-Trafficking Directive’s new binding obligations on early

detection, identification, assistance and cross-border referral need to be embedded within

the asylum, reception and return architecture introduced with the Pact and its

implementation at the national level. In this context, the annual meeting of the EU Anti-

Trafficking Coordinator with ICAT (Inter-Agency Coordination Group against Trafficking

in Persons)133 further highlighted the links between trafficking in human beings and the

implementation of the Pact, underlining the need to ensure that anti-trafficking safeguards

are fully embedded in migration management systems.

During the reporting period the EUAA developed information materials, scripts and

guidance documents for frontline personnel. It implemented awareness-raising sessions on

human trafficking concerning applicants for international protection and fostered early

identification and referral mechanisms. Furthermore, the EUAA implemented and updated

procedures in Italy and Greece to strengthen the identification and referral of potential

victims of trafficking in human beings, focusing particularly on unaccompanied minors.

In 2025, the EUAA successfully provided structural support to Belgian authorities

deploying the Agency’s personnel at the Immigration Office Vulnerability Unit in Brussels

for the pre-identification and activation of the referral mechanism for people with special

needs, with a specific focus on victims of trafficking. Additionally, in Cyprus the EUAA

supported the management of a safe zone in Pournara where vulnerable applicants,

including trafficking victims, are hosted.

One of the challenges highlighted by Member States is that dedicated and sustainable

funding is not always explicitly provided for in national anti-trafficking legislation or

accompanying frameworks, creating risks for discontinuity of services and uneven

implementation. Many Member States reported the adaptation of support services for

victims of human trafficking in need of specialised care as a key challenge134. Some

Member States reported a lack of adequate specialised services for male victims, underage

victims and asylum seekers who are victims of trafficking135. Insufficient shelter space and

132 Poland, Italy, Romania and Slovakia; see also Grenzüberschreitende Verweisung von Betroffenen des

Menschenhandels | Institut für Menschenrechte. 133 From policy to action: emerging trafficking trends demand a united response | The Inter-Agency

Coordination Group against Trafficking in Persons. 134 Austria, Bulgaria, Czechia, Denmark, Estonia, Finland, Greece, Hungary, Ireland, the Netherlands and

Slovenia. 135 Austria, Bulgaria, Hungary and Slovenia.

23

the provision of legal and psychological support for victims, especially for those with

special needs, remained a critical issue in some Member States136.

Some Member States137 identified the reintegration of victims into their communities or

the integration of non-EU victims into society as particularly difficult, mainly due to the

lack of available housing or the difficulty of integration into the labour market.

At EU level, stakeholder engagement has also been reinforced. On 30 September 2025, the

Commission renewed the EU Civil Society Platform against Trafficking in Human Beings,

bringing together 77 civil society organisations. The renewed platform reflects improved

geographical balance and a broader thematic scope, ensuring that civil society continues

to play a central role in victim identification, assistance and policy development138.

3.6. International dimension

The European Asylum and Migration Management Strategy firmly places the ‘whole-

of-route’ approach at the centre of its anti-trafficking response, requiring strong

international partnerships. This approach is further underpinned by the persistent reality

that a majority of victims identified in the EU are non-EU nationals. This strategic

orientation has also been reaffirmed at political level by Council conclusions on

‘combating trafficking in human beings, with particular attention to the situation

related to Russia’s war of aggression against Ukraine’, adopted during the Polish

Presidency in June 2025139.

Accordingly, the EU’s engagement with partner countries aims to address trafficking along

the entire criminal chain, from recruitment and coercion in countries of origin, through

transit routes, to exploitation in destination countries. This includes strengthening legal

and institutional frameworks in partner countries, enhancing law enforcement and judicial

capacities, and supporting victim identification and assistance systems. Increasingly, such

cooperation is put into operation through EMPACT enabling partner countries to

participate in concrete actions targeting priority crime areas and through various

cooperation partnership frameworks. Moreover, political, human rights and migration and

mobility dialogues with partner countries also include combating trafficking in human

beings as a policy area of major importance140.

Trafficking in human beings is addressed within the EU enlargement process.

Enlargement partners are required to align their legislation with the EU acquis, including

the Anti-Trafficking Directive. In this context, legislative revisions and reforms have been

undertaken in particular in Serbia, Moldova and Montenegro, strengthening their legal

frameworks and operational capacities. They also need to demonstrate that procedures

136 Cyprus, Greece, Poland and Spain. 137 Belgium, Cyprus, Bulgaria, Denmark, Poland. 138 Intensifying a coordinated and comprehensive response to trafficking in human beings - Migration and

Home Affairs. 139 Council conclusions on combating trafficking in human beings, with particular attention to the situation

related to Russia’s war of aggression against Ukraine and the protection of minors. 140 Latin-America, Nigeria, China, Pakistan, Morocco, Bangladesh, Western Balkans, Türkiye, etc.

24

work in practice, including to identify, protect, support and compensate victims, and to

develop a solid track record in investigating, prosecuting and adjudicating cases of

trafficking in human beings.

Ukraine remains a particularly important partner. In addition to the Common Anti-

Trafficking Plan141 developed under the leadership of the EU Anti-Trafficking

Coordinator, the implementation and subsequent extension of the Temporary Protection

Directive until 4 March 2028142 have provided an important protective framework for

displaced persons from Ukraine and has contributed significantly to reducing vulnerability.

However, risks of exploitation persist, particularly in informal labour markets and online

environments. While EU statistics indicate a decreasing number of registered Ukrainian

victims, this trend is to be interpreted cautiously. Evidence from national authorities and

insights from bodies such as the European Union Agency for Fundamental Rights (FRA)

continue to show that Ukrainian nationals – especially women – remain highly vulnerable

to exploitation143.

Recent cases in Poland and Spain illustrate this vulnerability. In Poland, Ukrainian

nationals were coerced into participating in sophisticated online drug trafficking144, while

in Spain vulnerable Ukrainian women were recruited through gaming platforms for

money-laundering operations145. These cases highlight the evolving nature of trafficking,

where victims are increasingly forced into cyber-enabled criminal activities, blurring the

lines between trafficking, fraud and financial crime.

Ukraine is committed to developing its anti-trafficking legislative and institutional

framework and currently participates in 14 EMPACT operational actions.

The EU has also intensified cooperation with key regions along trafficking routes. In the

Western Balkans, the EU4FAST programme funded under IPA III has been reinforced

through an increased budget of EUR 9 million, allowing expanded operational activities,

training and cross-border coordination. This reflects the region’s continued strategic

importance in addressing trafficking flows.

Cooperation with Türkiye has delivered results through the P-ACT project financed

by the EU under the Migration Partnership Facility framework, which has addressed all

four pillars of anti-trafficking policy – prevention, protection, prosecution and partnership.

The project has supported law enforcement capacities, enhanced victim assistance and

141 An Anti-Trafficking Plan to protect people fleeing the war in Ukraine - European Commission

(europa.eu). 142 EU countries agree to extend temporary protection for those fleeing Ukraine until March 2028 -

Consilium. 143 Fundamental Rights Agency, Seeking Safety from War: Violence and rights abuses against women from

Ukraine, 144 https://tvpworld.com/91288874/call-center-scam-exposes-human-trafficking-drug-lab-in-warsaw. 145 12 members of money laundering scheme exploiting Ukrainian women arrested in Spain - Authorities

identified 55 victims following Europol-supported investigation | Europol.

25

introduced innovative tools such as AI-supported translation for victim communication. It

has also fostered regional cooperation, including with Central Asian partners.

Engagement with Latin-American countries has also been strengthened, particularly

within EMPACT frameworks. Joint operational actions and awareness-raising initiatives

– such as those under EMPACT actions targeting victim protection and global trafficking

chains – demonstrate the increasing scope of EU external action. These efforts are closely

linked to broader cooperation on organised crime and migration, ensuring a coherent and

integrated approach. In addition, within EU programmes such as El PAcCTO 2.0 and

EUROFRONT, cooperation continues across multiple fronts, encompassing judicial

cooperation, border management and the dismantling of criminal networks operating along

major trafficking corridors.

Cooperation with the region is also advancing through the EU-CLASI (Latin American

Committee for Internal Security) and EU-CELAC (Community of Latin American and

Caribbean States) frameworks. In the EU-CLASI Ministerial Declaration of March

2025146, the Ministers of Interior and Security from both regions reaffirmed their

commitment to cooperate against organised crime, including trafficking in persons, by

identifying and jointly tackling priority criminal networks. As agreed in that Declaration,

CLASI undertook to launch a platform modelled on EMPACT and develop its own

Operational Action Plans (‘CLASI OAPs’), focusing initially on three priority areas, one

of which is trafficking in human beings and smuggling of migrants147.

The EU continues to support Common Operational Partnerships against migrant

smuggling and trafficking in human beings, focused on law enforcement and judicial

cooperation and covering cooperation with Albania, Bosnia and Herzegovina, Comoros,

Côte d’Ivoire, Guinea, Kosovo, Mauritania, Moldova, Montenegro, Nigeria, North

Macedonia, Pakistan, Senegal, Serbia, The Gambia, and Türkiye.

In the southern Mediterranean, regional cooperation has been complemented by bilateral

EU support to key countries along major trafficking and migration routes, including Egypt,

Tunisia, Morocco and Libya, aimed inter alia at strengthening investigative capacities,

cross border cooperation, identification and referral of victims and the disruption of

criminal networks. For instance, the “Partnership to Counter Migrant Smuggling and

Trafficking in Persons in Egypt” (PACSOM) project148 dedicates EUR 30 millionand the

“Action to combat migrant smuggling and trafficking in human beings in Tunisia (ACTT)”

146 Strengthening EU-Latin America security cooperation: EU-CLASI ministerial meeting adopts joint

declaration and roadmap - International Partnerships. 147 The action on trafficking and smuggling is led by Uruguay, with the Dominican Republic as co-leader.

Participants are Argentina, Chile, Colombia, Ecuador, El Salvador, Panama, Honduras, the Dominican

Republic, Uruguay and AMERIPOL.  This designation is without prejudice to positions on status and is in line with UNSCR 1244/1999 and the

ICJ Opinion on the Kosovo declaration of independence. 148 PRESS RELEASE Official Launch of the EU-Funded Project “Partnership to Counter Smuggling of

Migrants and Trafficking in Persons in Egypt” - PACSOM Egypt.

26

project149dedicates EUR 18 millionto support detection, investigation and victim

assistance on a bilateral basis.

A particular development of concern is the rise of scam centres operating outside the EU,

mainly in Southeast Asia and increasingly in Latin America and in Africa but targeting

trafficking and fraud victims globally. These centres frequently rely on trafficked persons

who are coerced into carrying out online fraud, phishing and other cyber-enabled crimes.

The EU has stepped up its efforts to combat this phenomenon, recognising its strong links

to trafficking in human beings and organised crime networks. In this context, the EU has

engaged actively with international partners and partner countries, also within EMPACT,

and is supporting global initiatives, including cooperation under UNODC, such as the

intended signature of the Joint Statement by the Global Partnership against Online

Scams.

In South Asia the EU is funding the “Preventing and Addressing Trafficking in Human

Beings and Smuggling of Migrants” project150 with EUR 9 million for the period of 2024-

2027, which is implemented with the help of UNODC.

In parallel to operational and partnership-based approaches, the EU is advancing tools to

enhance accountability for trafficking and related crimes. On 9 July 2026, the Commission

and the High Representative proposed a new cross-cutting sanctions regime to counter

threats from migrant smuggling, human trafficking and other forms of organised

crime151. The regime would complement existing criminal-law instruments by enabling

the freezing of assets and the imposition of travel bans on key actors involved in

transnational criminal networks.

In October 2024, in line with the EU’s strategic priorities, restrictive measures were

adopted in relation to Myanmar, where trafficking-related abuses have been

documented152. Moreover, on 30 July 2026 the EU imposed restrictive measures onseven

persons and three entities responsible for serious human rights violations in scam centres

in Southeast Asia153.These measures demonstrate the EU’s commitment to addressing

trafficking not only as a criminal justice issue but also from fundamental rights perspective.

An important dimension of international cooperation lies in strengthening border

management capacities to better detect and prevent trafficking at an early stage. Frontex

plays a key role in this regard. Frontex has given more attention to addressing human

trafficking with the creation in 2024 of a multi-target THB Focus Group aimed at further

enhancing Frontex's efforts to combat trafficking in human beings and emphasising the

need for coordinated and coherent actions to combat this complex crime. This has involved

149 Chef.fe de projet / Coordinat.eur.rice - Civipol 150 GLO.ACT South Asia 151 Commission and High Representative propose new sanctions regime. 152 Myanmar/Burma: EU lists three individuals and one entity responsible for scam operations entailing

serious human rights violations and threatening the peace, security and stability of Myanmar and the region

- Consilium. 153 Scam centres in Southeast Asia: EU lists seven persons and three entities responsible for serious human

rights violations - Consilium.

27

increased efforts and enhanced synergies among different actors, also including the

members of the Frontex Consultative Forum. Frontex uses the network of frontex liaison

officers - deployed in several partner countries154 to support cooperation between Member

States and partner countries - also to combat human trafficking155.

International organisations remain essential partners in shaping and implementing the

global response to trafficking. UNODC is a strategic partner for the EU through its

analytical, normative and operational work. Its global reports and policy guidance provide

an essential evidence base, while its field programmes support capacity-building in partner

countries. Supported with EU funding, UNODC acts as the Secretariat to the Niamey

process, supporting countries in West Africa and the Central Sahel in implementing the

commitments of these countries to counter trafficking in human beings and migrant

smuggling in the Niamey Declaration of 2018.

In November 2025, UNODC and the International Centre for Migration Policy

Development (ICMPD) organised a joint thematic meeting of the Rabat, Khartoum and

Niamey processes in Nigeria to analyse current challenges in countering trafficking in

human beings and migrant smuggling and to identify opportunities for cooperation.

Another joint thematic meeting will take place in October 2026 in Brussels.

The EU-funded ‘Promoting global action and cooperation against trafficking in human

beings and the smuggling of migrants (PACTS)’, implemented by UNODC, has facilitated

key platforms for exchange and cooperation, including international prosecutor forums

held in Vienna and Marrakech. The primary objective of PACTS is to increase the

investigation and prosecution of trafficking in human beings and migrant smuggling cases,

to strengthen the human rights protection and assistance framework for trafficking victims

and smuggled migrants, and to step up engagement at the global level in policy debates

and exchanges of best practices on these crimes. Within PACTS, UNODC also organised

the first Global Forum for Human Trafficking Survivors on 24-25 June 2025156.

In the field of civil aviation, in 2025 the International Civil Aviation Organisation (ICAO)

updated the recommendations (provisions 8.49 and 8.50)157 on combating trafficking in

human beings by air, in Annex 9 (Facilitation) to the Civil Aviation Convention, to

standards, which leads to greater harmonisation of prevention and detection measures

concerning potential victims of trafficking at the airports and on the aircraft. The

Commission continues to work with the ICAO to monitor the implementation of the

standards to gain a better understanding of the potential gaps and challenges.

At national level, Member States have contributed to the strengthening of relations with

partner countries and international organisations. In particular, they have improved

information sharing and criminal intelligence on various aspects of trafficking with partner

154 Türkiye, Serbia, Albania, Senegal, Moldova, Ukraine, Georgia, Armenia, Azerbaijan, Pakistan and

Morocco. 155 Frontex contribution. 156 First Global Forum for Human Trafficking Survivors – Voices of Resilience. 157 Manual on a Comprehensive Strategy for Combating Human Trafficking in the Aviation Sector.

28

countries, notably with the Western Balkans, Ukraine and Moldova, Africa, the Middle

East, and Southeast Asia. They also participated in awareness-raising and prevention

activities, for example the Netherlands has funded the School Anti-Trafficking Education

and Advocacy Project in Nigeria. This project aims to support the Nigerian government in

tackling human trafficking through education within the school community.

4. CONCLUSION

During the reporting period trends in trafficking in human beings indicate a continued

increase in the number of detected victims across the EU, confirming the growing scale

and complexity of the phenomenon. The gender dimension of trafficking remained

pronounced, with women and girls continuing to represent the majority of registered

victims, particularly for sexual exploitation. At the same time, labour exploitation

continued to account for a significant share of identified cases, reflecting the diversification

of exploitative practices across sectors. The trends also point to a considerable growth in

the proportion of non-EU nationals among victims of trafficking. At the same time, the

number of suspects, prosecuted and convicted persons also increased, demonstrating a

strengthened criminal justice response and more robust operational, law-enforcement and

judicial cooperation at both EU and international levels.

The findings of this report provide compelling evidence that the 2021-2025 Strategy has

delivered substantial and measurable results across all four pillars – prevention, protection,

prosecution and partnership. Underpinned by a significantly strengthened legal framework,

in particular the reinforced Anti-Trafficking Directive, the EU has enhanced its capacity

to prevent exploitation, improve victim identification and support, and step up

investigations and prosecutions. The 2021-2025 Strategy has also driven a higher level of

coordination at EU and national levels, fostered operational cooperation through

instruments such as EMPACT, and deepened engagement with key stakeholders, including

civil society and international partners. It remains essential to ensure the full and effective

implementation of the Directive across all Member States as a key condition for achieving

a consistent and effective EU-wide response.

This report also confirms that the rapidly evolving nature of trafficking requires the EU to

further adapt and deepen its response. Growing geopolitical instability and emerging

conflicts call for a stronger focus on preparedness and resilience to ensure that the EU and

its Member States are equipped to anticipate, prevent and respond swiftly to heightened

risks of exploitation.

Technology plays an increasingly central role in shaping trafficking patterns, including

through the rise of online scam centres and other forms of technology-facilitated

exploitation, requiring more sophisticated tools, enhanced digital capabilities and targeted

responses.

Furthermore, the increasing interlinkage between trafficking and migration, as

demonstrated by the increasing number of non-EU nationals exploited in the EU,

underlines the importance of ensuring coherence with the implementation of the Pact on

29

Migration and Asylum, including through strengthened identification, referral and

protection mechanisms.

In addition, further efforts are needed to intensify action against labour exploitation,

particularly in sectors employing non-EU nationals, and to reinforce cooperation with

labour market actors and relevant authorities. In parallel, the creation and strengthening of

effective cross-border referral mechanisms, as well as the provision of coordinated cross-

border victim support, will be essential to ensure that victims are identified, protected and

assisted seamlessly across jurisdictions.

Stronger engagement with the private sector will also be indispensable, alongside

increased accountability across key industries, including the technology sector, the

financial sector and other high-risk sectors. Given the growing sophistication of criminal

networks and the increasing use of seemingly legitimate businesses and activities to

conceal exploitation, it will be essential to ensure enhanced cooperation and coordination

across sectors. Continued multidisciplinary and multi-sectoral approaches will be pivotal

to effectively addressing trafficking in all forms and to deepen the collective understanding

of this complex and evolving crime.

Building on the strong achievements to date and addressing the gaps identified in this

report, these elements provide a robust foundation for the development of a new, forward-

looking EU Strategy as annexed to this report – one that is better equipped to respond to

emerging threats, harness innovation and ensure a sustained, coordinated and effective EU

response to trafficking in human beings.

EN EN

EUROPEAN COMMISSION

Brussels, 16.10.2026 COM(2026) 557 final

ANNEX

ANNEX

to the

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN

PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL

COMMITTE AND THE COMMITTEE OF THE REGIONS

on the progress made in the European Union in combating trafficking in human beings

(Sixth Report) and setting out a renewed EU strategy

{SWD(2026) 311 final}

1

EU Strategy on combating trafficking in human beings

Trafficking in human beings, though largely a hidden crime, is an increasing reality across the

EU. In 2023-20241, more than 20 000 victims of trafficking were registered, a 16.1% increase

compared to 2021-2022 data, demonstrating the persistent and evolving nature of the crime2. Out

of the registered victims in 2023-2024, 36% were EU citizens, while the great majority 64%, were

non-EU citizens. Trafficking continued to disproportionately affect women and girls, who

accounted for 63% of all registered victims in 2023-2024; most of them were trafficked for sexual

exploitation. By contrast, the majority of victims trafficked for labour exploitation were men

(74%3). As presented in the report on the progress made in the EU in combating trafficking in

human beings (Sixth Report), the overall trends evolved significantly comparing to the period

when previous Strategy was adopted4.

Anyone can become victim of trafficking, regardless of gender, age or citizenship status, though

vulnerable populations are especially at risk. Trafficking affects all Member States and involves

many forms of exploitation, including sexual exploitation, labour exploitation, forced criminality,

forced begging and forced marriage. Trafficking is a violation of fundamental rights5 and a serious

threat to a person’s security. It is closely linked to organised crime and generates substantial illicit

profits6. It impacts societies and economies and a wide range of sectors, undermining the rule of

law, distorting legitimate markets and fuelling corruption7.

Trafficking in human beings cannot be addressed in isolation. It requires coordinated actions

across multiple policy areas and stakeholders, including competent authorities, civil society

organisations and private parties at EU, national and international levels with the support of the

EU Anti-Trafficking Coordinator. The four pillars of prevention, prosecution, protection and

partnerships, recognised at international level8, remain the foundation of the EU response.

Preventing exploitation, reducing vulnerabilities and addressing demand must go hand in hand

with strengthening investigations and prosecutions, ensuring effective protection and support for

victims and their families from criminal organisations and reinforcing cooperation among all

relevant actors

1 Trafficking in human beings statistics - Statistics Explained - Eurostat, assessed on 4.9.2026. 2 The actual number is likely to be significantly higher as many victims remain undetected. 3 Calculated by Eurostat (extraction based on special request from THB annual data). 4 COM(2021) 171 final, 14.4.2021. 5 Trafficking in human beings is prohibited by the EU Charter of Fundamental Rights (Article 5 paragraph 3) and

considered as a serious form of organised crime by the Treaty on the functioning of the European Union (Article 83). 6 Europol’s EU Serious and Organised Crime Threat Assessment (SOCTA) underlines that trafficking in human

beings remains a substantial criminal market for organised crime, increasingly facilitated online and hidden within

closed communities. 7 Trafficking in human beings remains the second most prevalent criminal market in 2025, after financial crimes. See

Global Organized Crime Index 2025-Crime at a Crossroads. 8 The UN Protocol to Prevent, Suppress and Punish Trafficking in Persons, adopted by the United Nations in

November 2000 as part of the United Nations Convention against Transnational Organized Crime, is the world’s

primary legal instrument to combat human trafficking, aiming at preventing trafficking, protecting and assisting the

victims of trafficking and promoting cooperation among States Parties. Similarly, the United Nations Global Plan of

Action to Combat Trafficking in Persons, adopted on 30 July 2010, addresses the four objectives: prevention of

trafficking; protection and assistance to victims of trafficking; prosecution of the perpetrators of trafficking; and

strengthening partnerships.

2

However, despite sustained efforts at EU and national level, trafficking remains a highly profitable

and relatively low-risk crime for the perpetrators. Organised criminal networks adapt rapidly,

exploiting vulnerabilities, gender inequality, migration dynamics and technological

developments. Criminal networks increasingly operate transnationally, within legal economic

structures and supply chains, making detection more difficult. Victims continue to be significantly

under-identified, while investigations, prosecutions and convictions remain limited compared to

the scale of the phenomenon. The digital transformation has further reshaped trafficking patterns,

enabling recruitment, control and exploitation through online platforms, social media, encrypted

communication tools and emerging technologies such as artificial intelligence (AI) and deepfakes.

The current geopolitical, migration and security context further exacerbates trafficking risks and

creates conditions that increase vulnerability to exploitation, as illustrated by the events in Ceuta,

Spain, during July and August 2026.

The renewed strategy aims to ensure that the EU remains at the forefront in addressing these

challenges, reflecting a sustained and continuous commitment to tackling trafficking. It identifies

six strategic pillars to strengthen operational capacities and resilience against trafficking,

including:

• the growing digital dimension of the crime, by leveraging technology to strengthen

prevention, detection and investigation;

• reinforcing cooperation with the private sector to prevent trafficking and reduce

exploitation risks;

• strengthening the EU’s capacity to combat transnational trafficking and its links to

organised crime;

• further addressing trafficking risks in the context of migration;

• enhancing prevention, preparedness and rapid response in crisis situations; and

• strengthening the protection of persons vulnerable to trafficking and exploitation.

Furthermore, the strategy strives to ensure a victim-centred, child-sensitive, gender-responsive,

disability-inclusive, intersectional and rights-based approach across all actions. Under the

amended Anti-Trafficking Directive9, Member States are required to adopt national action plans

and update them regularly. This strategy would contribute to guide these national action plans by

providing a framework that reflects the common EU’s priorities in this area.

This more strategic, integrated and future-proof response to trafficking in human beings includes

support for actions to prevent trafficking, protect and support victims and strengthen the technical

expertise and operational capacities of law enforcement, judicial authorities, including

prosecutors and judges, and other frontline actors. Particular attention will be given to emerging

challenges in the digital environment. A strong emphasis will also be placed on ensuring that

responses are victim-centred, child-sensitive and gender-responsive. Specialised training for all

professionals and frontline actors working with victims of trafficking will remain essential.

Building on these efforts within the EU, the external dimension will also remain an important part

of the overall approach, recognising that effective action along migration routes and in partner

9 Directive (EU) 2024/1712, 24.6.2024.

3

countries contributes directly to preventing trafficking within the EU. In this context, support will

also be provided for anti-human trafficking responses along migration routes and in partner

countries, strengthening all aspects of migration and asylum governance and border

management10. Finally, awareness raising, information and communication campaigns and

education programmes will remain key to preventing trafficking, identifying victims at an early

stage, and increasing public understanding of the crime.

The EU Anti-Trafficking Coordinator coordinates the EU’s comprehensive response to

trafficking, including by promoting cooperation between Member States, EU bodies, civil society

organisations and international partners, including non-EU countries. Instrumental in this context

are the EU Network of National Anti-Trafficking Coordinators and Rapporteurs (NACR)

and the EU Civil Society Platform against trafficking in human beings11.

Trafficking in human beings also remains a priority in the context of enlargement and accession

negotiations. As such, cooperation with candidate countries and potential candidates will also be

strengthened, including through support for alignment with the EU acquis, fundamental rights and

relevant international standards, capacity building for national authorities and reinforced

operational and policy cooperation to prevent and combat the crime, while protecting its victims,

building across the relevant pillars of the strategy.

The Commission will:

- monitor the transposition and full implementation of the amended Anti-Trafficking

Directive, support Member States with appropriate measures and, where necessary,

initiate infringement proceedings against Member States that fail to transpose or

correctly implement the Directive;

- in line with the amended Directive, submit a report assessing the impact of such

measures;

- support awareness raising and information campaigns inside and outside the EU to

reduce vulnerabilities and mitigate the risk of trafficking and exploitation.

Member States are invited to:

- provide specialised multi-sectorial training to all key actors on trafficking in all its

forms, including on emerging trends and the online dimension, to strengthen prevention

and ensure effective, comprehensive and victim-centred responses;

- promote awareness-raising activities to improve the early identification of victims and

increase public awareness of the crime. Campaigns should be reinforced to provide

better information to local communities.

10 For more information, see Proposal for a Regulation of the European Parliament and of the Council establishing

Global Europe, COM/2025/551 final, 16.7.2025. 11 The EU Anti-Trafficking Hub also contributes to the implementation of EU anti-trafficking policies, by supporting

all stakeholders with research, analysis and advice, in collaboration with experts; EU Anti-Trafficking Hub -

Migration and Home Affairs - European Commission.

4

STRATEGIC PILLARS

1. HARNESSING MODERN TECHNOLOGY TO COMBAT TRAFFICKING

Objective: Leverage technology to prevent, detect, investigate and respond to trafficking in

human beings while contributing to a safer digital environment and strengthening the

protection of victims online.

The digital transformation makes it easier for traffickers to recruit, control and exploit victims,

while also making it easier to avoid detection. Online platforms, social media, encrypted

communication services and digital advertising tools are increasingly used for criminal operations.

Children and young people are particularly exposed to online risks, in particular of sexual

exploitation and forced criminality. Emerging technologies further increase the risks of

manipulation, deception and coercion. A growing concern are the set-up of scam centres

(compounds linked to transnational criminal networks), initially established in South-East Asia,

now also set up in other regions, including Africa and Latin America, due to their links to

trafficking and transnational organised crime. Victims are often recruited through deception and

then coerced into carrying out online fraud, phishing schemes and other cyber-enabled crimes. In

this context, the Commission will present an EU action plan against digital fraud to strengthen

law enforcement cooperation to combat online scams, including scam centres, in cooperation with

the relevant non-EU countries.

At the same time, digital technologies can improve prevention, detection, investigations and

victim support. The EU should pursue a coordinated and innovation-driven response that

strengthens digital investigative capacities, digital evidence collection and responsible use of

technological tools against trafficking practices. Existing EU measures provide a strong

framework to address trafficking online, by improving reporting mechanisms, transparency,

systemic risks awareness and accountability, supporting the protection of children, reinforcing

law enforcement cooperation and strengthening digital investigative capacities, while supporting

cross-border investigations and information exchange in full compliance with fundamental rights

and data protection rules. This includes the Digital Services Act12; the amended Anti-

Trafficking Directive, under which the use of information and communication technologies to

commit or facilitate sexual exploitation is considered an aggravating circumstance; the proposal

strengthening support through Europol13 to cross-border investigations and information

exchange; the Regulation (EU) 2023/1543 on European Production Orders and European

Preservation Orders for electronic evidence in criminal proceedings (“E-evidence Regulation”)14;

the proposal for recast of Directive regarding the European Investigation Order in criminal matters

and the European Remote Participation Order15; and theProtectEU: a European internal

security strategy16, which includes actions further strengthening law enforcement capacity in the

digital environment.

12 Regulation 2022/2065/EU - DSA, 27.10.2022. 13 COM(2026) 580 final, 24.6.2026.14 Regulation (EU) 2023/1543, 12.7.2023. 15 COM(2026) 313 final, 23.6.2026. 16 COM/2025/148 final, 1.4.2025.

5

Through the European Multidisciplinary Platform Against Criminal Threats (EMPACT)17,

the EU will support innovative approaches to digital investigations. This includes hackathons to

detect exploitation on online platforms and assist Member States in the analysis of digital data in

investigations. Closer cooperation with financial intelligence units, online platforms, technology

companies, financial institutions and fintech providers is also essential to improving the detection

of suspicious activities and disrupting criminal networks. To drive this agenda forward, the

Commission will enhance the dialogue with online service providers and other relevant

stakeholders through the EU Internet Forum on combating trafficking in human beings, to

support the exchange of operational expertise and practical insights on trends, good practices,

challenges and actions needed.

Victims should also benefit from accessible, user-friendly, safe and readily available channels for

reporting, including through digital channels. These can facilitate reporting of crimes, access to

information, protection and specialised support services, particularly for victims with special

needs or victims who may face barriers in accessing physical support structures.

The Commission will:

- regularly monitor the implementation of the EU Digital Services Act with regards to

the crime of trafficking in human beings and undertake relevant action when necessary;

- engage with the private sector and digital industries, through the EU Internet Forum,

and promote the exchange of good practices against trafficking in human beings, with

the support of EU agencies;

- facilitate information exchange and operational cooperation related to online

trafficking patterns and digital financial investigations, with the support of EU

agencies, including within EMPACT.

Member States are invited to:

- make full use of existing instruments for operational cooperation, such as joint

investigation teams, with support from Europol and EMPACT;

- strengthen cooperation between law enforcement and judicial authorities, financial

intelligence units and relevant private-sector actors to strengthen online prevention,

while promoting awareness of victims’ rights and information about reporting

mechanisms, including through digital technologies.

2. STRENGTHENING PRIVATE SECTOR ENGAGEMENT TO PREVENT

TRAFFICKING IN HUMAN BEINGS

Objective: Strengthen business accountability and deepen cooperation with the private sector

to prevent trafficking, reduce exploitation risks, improve early detection and promote

responsible business conduct across supply chains and high-risk economic sectors18.

17 EU Policy Cycle - EMPACT - EMPACT 2026-2029 Fighting crime together | Europol 18 High-risk sectors include agriculture, construction, hospitality, transport, domestic work, manufacturing and care

services.

6

Trafficking in human beings increasingly infiltrates legitimate economic activities and supply

chains across the EU and beyond. Criminal networks exploit gaps in labour protections,

recruitment practices and supply chains to conceal exploitation and maximise illicit profit19.

Trafficking for labour exploitation remains one of the most difficult forms of trafficking to

detect20, investigate and prosecute. Victims often remain invisible due to the precarious nature of

their employment, their dependence on their employers, their reluctance to report their exploiters

to the authorities due to fear of retaliation, the language barriers they face or their illegal migration

status. At the same time, complex legal rules and lack of specialisation and capacity in Member

States can lead to different approaches to dealing with trafficking cases, unequal treatment of

victims and a lack of standardised guidelines or procedures. As a result, cases are too often

addressed only as minor labour violations rather than serious labour violations or serious

trafficking offences21. A more strategic and coordinated response is therefore required. Member

States should ensure that specialised investigators, prosecutors and judges are available and

equipped not only with a thorough understanding of the legal aspects of trafficking for labour

exploitation but also with the expertise needed to understand the broader dynamics of exploitative

labour practices and their impact on victims.

The EU has boosted its framework on responsible business conduct and fair labour mobility and

the prevention of forced labour through a range of legislative and policy initiatives. These include

the Regulation on prohibiting products made with forced labour on the Union market22, the

Directive on corporate sustainability due diligence23 and the Employers Sanctions

Directive24, including its evaluation, which will also assess its impact on reducing labour

exploitation. Additionally, the Commission’s proposal on the revision of the Regulation

establishing the European Labour Authority (ELA)25 adopted on 15 September 2026 as part

of the Fair Labour Mobility Package26 aims to strengthen labour monitoring, information

exchange and the protection of mobile workers across the EU, including by facilitating

cooperation between labour inspectorates. The revision also clarifies ELA’s role in supporting

Member States in cases involving non-EU citizens.

A more ambitious and structured partnership with the private sector in preventing trafficking in

human beings is needed. Partnerships with high-risk sectors can help raise awareness, identify

suspicious activities and facilitate early intervention27, detection and reporting of trafficking

indicators, through closer cooperation between authorities, the private sector and sectoral

19 While the role of technology, online platforms and other digital services has been addressed under the first pillar,

this section focuses on the engagement of the private sector in relation to legitimate economic activities, labour

markets, recruitment practices and supply chains. 20 Nevertheless, between 2019 and 2023,the number of registered victims trafficked for labour exploitation in the EU

increased by 70%. For more information, see Eurostat report on 10 years (2013-2023) of EU data on trafficking in

human beings 21 For more information, see Study on the concept of trafficking in human beings for the purpose of labour

exploitation. One example is the criminal offence under Article 9(c) and (d) of the Employers Sanctions Directive

2009/52/EC. 22 Regulation (EU) 2024/3015, 12.12.2024. 23 Directive (EU) 2024/1760, 5.7.2024. 24 Directive 2009/52/EC, 30.6.2009. 25 COM(2026) 985 final, 15.9.2026. 26 COM(2026) 970 final, 15.9.2026. 27 For example see Doc 10171 - Manual on a Comprehensive Strategy for Combating Human Trafficking in the

Aviation Sector by ICAO on guidance and recommendations for combating human trafficking in the aviation sector.

7

operators. Such partnerships should be used more systematically to improve prevention,

strengthen victim protection and increase accountability throughout economic sectors. This would

require closer cooperation with businesses, employers, recruitment agencies, industry

associations, trade unions and civil society organisations. The Commission is aiming at

strengthening engagement with the private sector, including on a voluntary basis, on prevention

and due diligence, through meetings and exchanges of good practices and by bringing together

actors from different economic sectors as part of a European business coalition against

trafficking in human beings28.

Labour inspectors and frontline professionals need enhanced training and operational guidance

to identify trafficking and severe exploitation in the private sector. Training should be mandatory

for all key actors, including police officers, magistrates and labour inspectors. Greater

coordination between labour inspections and criminal investigations is essential to ensure that

serious exploitation is correctly identified, effectively investigated and prosecuted29.

Victim protection and labour rights enforcement should remain mutually reinforcing

objectives. It is essential to strengthen labour inspections, enforce labour standards and address

exploitative working conditions. This would not only help prevent trafficking and identify victims

at an early stage but also ensure that victims can access their rights and pursue recovery without

fear of retaliation, penalisation or loss of protection.

The Commission will:

- strengthen cooperation between labour inspectors through ELA;

- support cross-border cooperation and information exchange related to labour

exploitation and trafficking risks in the context of EMPACT;

- enhance cooperation towards a European business coalition against trafficking,

including through voluntary engagement of the private sector and existing networks

such as the European Social Partners and the Labour Migration Platform.

Member States are invited to:

- increase cooperation with the private sector to prevent, identify and address

trafficking risks within supply chains and business operations;

- improve coordination and cooperation between labour authorities, law enforcement

authorities and judicial authorities and strengthen labour inspections and monitoring

mechanisms in high-risk sectors;

- improve access to support, compensation and reintegration measures for victims of

trafficking;

- promote responsible recruitment practices and effective due diligence across supply

chains.

28 The private sector may include, among others, partners from the aviation, hospitality and accommodation, tourism,

transport, agriculture, construction sectors. 29 Victims need to be enabled to talk to labour inspectors freely and protection against possible reprisals must be

ensured.

8

3. DISRUPTING TRANSNATIONAL TRAFFICKING LINKED TO ORGANISED

CRIME

Objective: Strengthen the EU’s capacity to disrupt, dismantle and prosecute trafficking in

human beings as a core component of organised crime, through enhanced cross-border

cooperation, intelligence-led policing, financial investigations and effective asset recovery.

Trafficking in human beings is increasingly carried out by sophisticated, adaptive and highly

threatening organised criminal networks operating across borders30. Profit remains a key driver

of trafficking, which promises significant illicit gains for relatively low exposure to risk. To

maximise profit, criminal networks are able to exploit differences in legal systems, enforcement

capacities and operational coordination. Trafficking is often closely linked to other forms of

serious crime, including migrant smuggling, drug trafficking, document fraud, corruption and

money laundering. Disrupting financial flows, targeting assets and strengthening financial

intelligence are therefore essential components of an effective response.

The EU is reinforcing national efforts to combat trafficking and disrupt the criminal networks

behind it through a stronger legislative and operational framework designed to target traffickers

not only as individual perpetrators but as part of a broader criminal ecosystem, including through

the Directive on asset recovery and confiscation31. The new sanctions regime targeting

organised crime including migrant smuggling and trafficking32 willempower the EU to freeze

criminals’ assets, restrict their movements, cut off their profits and disrupt their business model.

Additionally, the upcoming proposal to modernise rules to combat organised crime will target

all organised crime, including criminal networks involved in trafficking, with a view to increasing

penalties, improving the intelligence picture and strengthening the prevention of criminal

infiltration. Anti-corruption measures are also important in disrupting enabling environments

for trafficking networks, including those facilitating the movement of victims, the falsification of

documents and the avoidance of detection. Against this broader context, the Commission will

present the EU anti-corruption strategy, which will set out the EU’s priorities and its action to

prevent and fight corruption in a comprehensive and coherent manner within and beyond the EU.

To address Member States’ operational needs in tackling serious crime and terrorism, in addition

to theproposed new mandate for Europol, the Commission has also proposed to revise the

Eurojust regulation33, which will contribute to a more efficient fight against serious, organised

and cross-border crimes, including trafficking in human beings.

In this context, operational cross-border cooperation through joint investigation teams and

EMPACT remains essential. Financial investigations are an important tool for preventing

organised crime from infiltrating the illicit economy34. Victims’ rights, support and protection

should also remain an integral component of law enforcement and judicial responses; such

30 For more information, see Decoding the EU’s most threatening criminal networks - Issue 2 | Europol. 31 Directive (EU) 2024/1260, 2.5.2024. 32 Press Release, Commission and High Representative propose new sanctions regime, 9 July 2026. 33 COM(2026) 570 final, 24.6.2026. 34 The Europol Financial Intelligence Public Private Partnership (EFIPPP) issued a guide on successful operational

cooperation between financial institutions and investigative authorities to combat financial crime. See EFIPPP

Practical Guide for Operational Cooperation between Investigative Authorities and Financial Institutions | Europol.

9

responses should be conducted in a victim-centred, trauma-informed, child-sensitive, gender-

responsive and rights compliant manner to foster trust and cooperation with competent authorities.

4. PREVENTING EXPLOITATION LINKED TO MIGRATION STATUS

Objective: Strengthen the EU’s capacity to prevent trafficking in human beings by integrating

robust anti-human trafficking safeguards into migration, asylum and border management

systems, and by ensuring early identification of victims among persons on the move, their

protection and referral to appropriate services.

Trafficking in human beings is increasingly linked to migration and displacement flows. Since

2021, the majority of registered victims of trafficking in the EU have been non-EU citizens,

accounting for 64% of all registered victims in 2023-202435. This reflects a shift in the victims’

demographic and underscores some links between trafficking and the migratory status of the

victim. Migrants, asylum seekers and displaced persons are particularly vulnerable to exploitation

at all stages of their journeys, including in countries of origin, transit and destination. Criminal

networks exploit illegal migration routes, administrative complexity, limited access to

information and protection gaps to recruit, transport and exploit victims.

35 Calculated based on Eurostat (online data code crim_thb_vctz),

https://ec.europa.eu/eurostat/databrowser/view/crim_thb_vctz__custom_22684785/default/table.

The Commission will:

- streamline anti-human trafficking priorities within the broader EU policy against

organised crime;

- follow up on the implementation of the new sanctions regime once adopted, led by the

European External Action Service and in coordination with Member States;

- support law enforcement and judicial cooperation among Member States and external

partners, including in cross-border and international cases, targeting trafficking

networks and their links to organised crime, with the support of EU agencies, including

within EMPACT.

Member States are invited to:

- strengthen cross-border operational cooperation through joint investigation teams

with the support of Europol and Eurojust, including within EMPACT and share

information with relevant EU agencies;

- improve cooperation between law enforcement, judicial authorities and financial

intelligence units and use financial investigations and asset recovery tools in

trafficking cases;

- increase criminal intelligence sharing and coordination with EU agencies;

- ensure that operations are victim-centred, child-sensitive, gender-responsive and

accompanied by effective victim identification and protection.

10

While migrant smuggling and trafficking may often involve the same criminal networks and affect

migrants in vulnerable situation in overlapping ways, the two criminal offences remain distinct

and require differentiated but closely coordinated operational and policy responses. Non-EU

citizens may be smuggled into the EU for exploitation, while others may be exploited along the

migration route or after arrival. However, trafficking is not limited to illegal migration, when it

concerns non-EU citizens. Often, victims who arrive legally with work or study visas issued by

Member States subsequently become victims of trafficking. Recent trends show an increasing

number of victims originating from Latin American countries, alongside a growing presence of

trafficking networks with links to Latin America. In some cases, traffickers take advantage of visa

liberalisation regimes to move victims throughout the EU, to the cities and countries, where they

will be exploited36. Regardless of whether they have arrived in the EU legally or illegally, victims

of trafficking are rights-holders and are entitled to protection, and particular efforts should be put

in place to avoid the risk of re-trafficking. The revised Victims’ Rights Directive37 applies to

victims irrespective of their residence status and obliges Member States to ensure that victims

who are third-country nationals, are not discouraged from reporting a criminal offence, such as

trafficking, and that they are treated in a non-discriminatory manner.

The implementation of the Pact on Migration and Asylum38provides further opportunity to

systematically integrate anti-human trafficking safeguards into migration management. It

provides a legal framework that allows Member States to address the specific challenges the

Member States face in protecting persons in vulnerable situations, including victims of

trafficking39. In this context, being identified as a victim of trafficking and receiving support

meeting the specific needs often runs in parallel with the migration process. These procedures

should be complementary40. Close cooperation between migration authorities, asylum services,

border guards, law enforcement authorities and judicial actors is essential. Clear referral

mechanisms are needed to ensure the rapid identification of victims of trafficking and their access

to protection and support services.

Moreover, the 2023 legislative package to counter migrant smuggling41 consists of a proposal for

a new Directive laying down minimum rules to prevent and counter the facilitation of

unauthorised entry, transit and stay in the Union42 and a proposal for a Regulation to

reinforce police cooperation and Europol’s role in the fight against migrant smuggling and

trafficking in human beings43. The Regulation was adopted in 202544 and has built further

capacities for cross-border investigations in both migrant smuggling and trafficking in human

beings. In parallel, the Global Alliance to Counter Migrant Smuggling emphasises that efforts

36 Europol’s Decoding the EU’s most threatening criminal networks - Issue 2 mentions that Latin America is a key

region of interest, due to its interconnections with trafficking in human beings. 37 Directive (EU) 2026/1472, 17.6.2026. 38 Pact on Migration and Asylum - Migration and Home Affairs. See also Report on the state of play on the

implementation of the Pact on Migration and Asylum, presented on 8 May 2026. 39 For more information, see Screening Regulation (EU) 2024/1356, Asylum Procedure Regulation (EU) 2024/1348

and Reception Conditions Directive (EU) 2024/1346 from 22.5.2024. 40 See Article 11(4)(c) and recital 21 of the amended Anti-Trafficking Directive. 41 For more information, see Legislative package to counter migrant smuggling 42 COM/2023/755 final, 28.11.2023. 43 COM/2023/754 final, 28.11.2023. 44 Regulation (EU) 2025/2611, 22.12.2025.

11

to counter migrant smuggling should be accompanied by measures addressing trafficking in

human beings45. Additionally, the Pact for the Mediterranean Action Plan46 further reinforces

cooperation with partner countries along key migration routes, including operational and

institutional border management capacities, information exchange, victim protection and law

enforcement and judicial cooperation.

EU agencies play a crucial role in this context, by strengthening early identification, operational

coordination and information-sharing among national authorities and international actors.

National authorities are encouraged to intensify their cooperation with EU agencies to improve

operational coherence, situational awareness and overall effectiveness. The strengthened mandate

of Frontex further contributes to improving border management, risk analysis and cross-border

cooperation, thereby supporting the identification of indicators of trafficking and of persons in

vulnerable situations. The EUAA supports national administrations in identifying and referring

potential victims of trafficking to specialised care and support services, as well as in providing

training modules, practical tools and guidance material for addressing and managing the needs of

trafficking victims in asylum and reception47.

The Commission and the European External Action Service (EEAS) will strengthen and deepen

cooperation with key international partners. This includes close engagement with relevant United

Nations agencies, such as the United Nations Office on Drugs and Crime and the International

Organisation for Migration, as well as the Council of Europe, the Organization for Security and

Cooperation in Europe and other organisations active in the field. With a view to strengthening

prevention, cooperation with countries of origin and transit of victims will be further

intensified, including through security and migration mobility dialogues with partner countries

and via EEAS. Cooperation will focus on capacity-building and information exchange, victim

protection, support and assistance and effective law enforcement and judicial responses, in due

respect of fundamental rights. In addition, the European Network of Immigration Liaison

Officers (ILO Network)48 will contribute to improving the collection and exchange of information

on trafficking trends and risks in non-EU countries, thereby enhancing the EU’s situational

awareness. Furthermore, under the Global Alliance Rapid Response Initiatives49, the EU aims

at delivering swift and context-specific communication responses to address evolving migration

dynamics and emerging trafficking patterns in key non-EU countries.

The Commission will:

- support the European Parliament and the Council in their negotiations on the proposed

Anti-Smuggling Directive, by facilitating discussions, where appropriate, to help

advance the legislative process;

- ensure that relevant EU agencies integrate trafficking risks and assistance to national

authorities on victim identification, support and protection in their actions, including

45 For more information, see Call_to_action and Global Alliance Joint Declaration_final.pdf. 46 For more information, see EU presents first Action Plan under the Pact for the Mediterranean - Middle East, North

Africa and the Gulf 47 For more information, see European Asylum Agency, Situational update of July 2025. 48 Regulation (EU) 2019/1240, 25.7.2019. 49 For more information, see the Info Note on Global Alliance Rapid Response Initiatives .

12

through the development of operational guidance and training on the identification,

support and protection of victims of trafficking;

- together with the European External Action Service, strengthen cooperation with

partner countries, including with the support of EU agencies, the European Network

of Immigration Liaison Officers (ILO Network), international organisations and other

relevant international partners along migration routes and raise rights-compliant, gender-

responsive and children-sensitive responses to trafficking in political dialogues,

including human rights dialogues, as relevant50.

Member States are invited to:

- establish and maintain clear referral mechanisms for victims and potential victims of

trafficking within migration and asylum systems;

- ensure effective coordination between migration, asylum, border and law enforcement

authorities, with the support of EU agencies;

- strengthen cooperation with partner countries and international organisations on

trafficking prevention and response.

5. ANTICIPATING AND ADDRESSING TRAFFICKING IN CRISIS SITUATIONS

Objective: Strengthen prevention, preparedness and rapid response to trafficking risks,

including in the context of crises, conflicts, public health emergencies, climate-related disasters

and large-scale displacement situations.

Emergencies and crisis situations often disrupt protection systems, weakening institutional

capacities, and expose affected populations and migrants, particularly women and children, to

heightened vulnerability and risks of exploitation and trafficking. Russia’s war of aggression

against Ukraine has demonstrated the heightened risks of trafficking that can arise in situations

of conflict, displacement and humanitarian crises. The swift mobilisation of the EU, its Member

States and Ukraine to identify and address these risks highlighted the importance of preparedness,

early prevention measures, a coordinated crisis response and effective protection mechanisms for

persons in vulnerable situations51. Building on this experience, anti-human trafficking safeguards

should be systematically integrated into crisis response mechanisms at EU and national level.

These should be accompanied by strengthened inter-agency cooperation, contingency planning,

early identification systems, referral mechanisms and targeted victim protection measures. In

humanitarian settings, the Commission will support actions through humanitarian partners that

contribute to reduce the vulnerability to exploitation, including trafficking risks and ensure the

inclusion of trafficking victims into humanitarian services.

50 In line with EU Action Plan on Human Rights and Democracy 2020-2027 which sets out that the EU will promote

measures to prevent and fully eradicate trafficking in human beings, including by countering impunity for all

perpetrators involved, as well as to assist and protect all victims, in particular women and children, according to their

respective needs, including through the provision of mental health and psycho-social support, gender responsive and

child sensitive approach. 51 For more information, see A Common Anti-Trafficking Plan to address the risks of trafficking in human beings

and support potential victims among those fleeing the war in Ukraine.

13

The amended Anti-Trafficking Directive strengthens preparedness and preventive measures to

address risks of trafficking arising from crises. It provides that the national anti-trafficking

coordinators or equivalent mechanisms may include contingency response plans to prevent the

threat of trafficking in the event of major emergencies. The revised Victims’ Rights Directive

requires Member States to ensure that specialist support services remain fully operational for

victims in times of crisis, such as health crises, humanitarian situations or other states of

emergency.

In parallel, the implementation of the EU Preparedness Union strategy52, the Pact on Migration

and Asylum53, including the Crisis and Force Majeure Regulation54, the ProtectEU: a European

internal security strategy and future EU crisis-management initiatives provides an important

opportunity to mainstream anti-human trafficking safeguards across preparedness and emergency-

response frameworks. Furthermore, the Migration Preparedness and Crisis Blueprint network

provides the operational framework for monitoring and anticipation of migration flows and

migration situations, building resilience as well as organising a coordinated response to any

relevant migratory situation. Reliable data is also essential for anticipating and responding to

challenges55.

The Commission will:

- strengthen coordination among EU agencies, Member States, international

organisations and civil society during crisis situations to mitigate the risks of

trafficking and exploitation among persons in vulnerable situations;

- develop operational guidance for different actors involved on identifying and

addressing trafficking risks during crises, with the support of EU agencies, Member

States and civil society.

Member States are invited to:

- integrate anti-human trafficking measures on preparedness and crisis response

mechanisms into national action plans on the risks of trafficking caused by

humanitarian crises;

- strengthen cross-border operational cooperation and systematically exchange data

and information on trafficking risks during crisis situations;

- improve the capacity of relevant national authorities for the early identification and

victim’s referral and support, to ensure victims basic needs during emergencies and

humanitarian situations are addressed including at least emergency care, shelters and

measures of physical protection and psychological support of victims.

52 JOIN(2025) 130 final, 26.3.2025. 53 EU Pact on Migration and Asylum. 54 Regulation (EU) 2024/1359, 22.5.2024. 55 Eurostat provides an important evidence base for identifying emerging trends, assessing evolving risks and

improving situational awareness across the EU. Europol supports the situational awareness of trafficking through the

analysis of information provided by Member States and other partners and helps develop a better understanding of

the threat.

14

6. STRENGTHENING PROTECTION OF PERSONS VULNERABLE TO

TRAFFICKING

Objective: Strengthen the protection of persons most vulnerable to trafficking in human beings

by embedding child-sensitive, gender-responsive, disability-inclusive, intersectional and

rights-based safeguards across prevention, identification, assistance, protection and justice

systems.

Trafficking in human beings disproportionately affects individuals exposed to structural

vulnerabilities, including women and girls, children, migrants, persons with disabilities, persons

belonging to marginalised communities, including Roma, LGBTIQ+ persons and individuals

facing social exclusion, racial or ethnic discrimination or economic hardship. Vulnerable groups

which can become potential victims of trafficking include unemployed adults and young people

Not in Employment, Education or Training if they have no source of income. These vulnerabilities

are often compounded in an intersectional manner by migration status, poverty and homelessness,

dependency relationships or lack of access to social protection systems. Women and girls make

up the majority of registered victims in the EU, trafficked mainly for sexual exploitation both in

physical and digital environments. Children represent 15% of registered victims in the EU and are

particularly vulnerable to the risk of trafficking for the purpose of sexual exploitation, forced

criminality and forced begging.

Ensuring the effective protection of victims remains at the heart of the EU’s response to trafficking

in human beings. Therevised Victims’ Rights Directive sets out stronger rules on victims’ rights,

including victims of trafficking, and the upcoming strategy on victims’ rights will further

support the protection of victims of all crimes. Moreover, the EU has significantly strengthened

its legal framework with the revisedvictim-centred Anti-Trafficking Directive, which reinforces

provisions that provide for heightened protection of victims. Additionally, several other legislative

proposals aim to strengthen EU rules on child sexual abuse, such as the Commission’s proposal

for a Regulation laying down rules to prevent and combat child sexual abuse56 and the

proposal for a Directive on combating the sexual abuse and sexual exploitation of children

and child sexual abuse material57 .

The Directive on combating violence against women and domestic violence58 (“VAW

Directive”) includes specific prevention, protection and support measures to fight violence against

women, complementary to the measures laid down in the Anti-Trafficking Directive. As 63% of

victims of trafficking in human beings are women and girls, most of them trafficked for sexual

exploitation, such victims are at the same time victims of violence against women under the VAW

Directive. As such, they are entitled to the Directive’s protection, justice and support measures.

Also, the Directive requires Member States to adopt preventing measures to reduce the demand

for victims of sexual exploitation. In its Recommendation on integrated child protection59, the

Commission invites Member States to strengthen child protection systems in a more coordinated

56 COM/2022/209 final, 11.5.2022. 57 COM/2024/60 final, 6.2.2024. 58 Directive (EU) 2024/1385, 24.5.2024. 59 Commission Recommendation (EU) 2024/1238, 23.4.2024.

15

way, centred on children’s needs, to fight any forms of violence against them, including human

trafficking.

The Union of Equality strategies, including the 2026-2030 gender equality strategy60, the 2026-

2030 anti-racism strategy61, the 2026-2030 LGBTIQ+ equality strategy62, the Communication on

enhancing the strategy for the rights of persons with disabilities up to203063 and the EU Roma

strategic framework for equality, inclusion and participation 2020-203064 help address the specific

situations of vulnerabilities and needs of persons at heightened risk of exploitation and raise

awareness on the specific risks they are facing. Additionally, the Commission’s upcoming action

plan on the protection of children against crime will set out a coherent and coordinated

response to the multiplicity of threats faced by children from crime, both online and offline.

Strengthening victim protection is not only essential to safeguarding fundamental rights but also

to preventing re-trafficking and supporting the successful prosecution of traffickers. In this

context, the early identification of victims is a prerequisite for effective protection. Member

States should strengthen mechanisms for the proactive identification of victims and potential

victims across all relevant sectors, including law enforcement; labour inspection; migration and

asylum systems; healthcare, education, social services and child protection systems.

Multidisciplinary and inter-agency cooperation should be strengthened at national and local level,

including with civil society organisations. By building trust, such organisations can often play a

key role in identifying victims, who are often reluctant to come forward through official channels.

Clear referral pathways, shared understanding of indicators and well-defined roles and

responsibilities are essential to ensuring that potential victims are referred to appropriate support

and assistance services. Member States should also facilitate cross-border referrals by appointing

a focal point for the cross-border referral of victims in line with the amended Anti-Trafficking

Directive.

The effective implementation of the non-punishment principle is equally essential to victim

protection. Victims of trafficking shall not be penalised for unlawful activities that they were

compelled to commit as a direct consequence of their exploitation.

Victims should also have access to appropriate, safe and specialised accommodation, as well

as to medical and psychological care, legal assistance, interpretation services, education,

training and employment opportunities and compensation from the employer which was

responsible for the exploitation65. Equally important are safe and supportive environments in

which frontline staff understand the ways in which trauma can affect behaviour, memory and the

ability to establish trust. Particular attention should be paid to the specific needs and rights of

60 COM/2026/113 final, 5.3.2026. 61 COM/2026/12 final, 20.1.2026. 62 COM/2025/725 final, 8.10.2025. 63 COM(2026)541 final, 6.5.2026. 64 COM(2020) 620 final, 7.10.2020. 65 Article 4(1) of Protocol 29 amending the ILO Forced Labour Convention C29 states: «Each Member shall ensure

that all victims of forced or compulsory labour, irrespective of their presence or legal status in the national territory,

have access to appropriate and effective remedies, such as compensation».

Protocol 29 has been in principle endorsed by the EU Member States, although some Member States have not yet

ratified it.

16

children, including through integrated child-friendly procedures and guardianship for

unaccompanied children. Not least to avoid the risk of re-victimisation and re-trafficking,

reintegration into society is also a key element of sustainable protection and should include

access to education, vocational training, employment, housing and community-based support.

The Commission also recognises the invaluable insights and expertise, based on their lived

experience, that survivors of trafficking can bring to shaping effective and victim-centred

policies and responses. In this respect, the Commission will cooperate with civil society, including

through the EU Civil Society Platform against trafficking in human beings, also by ensuring

that the experiences and perspectives of victims are taken into account and inform policy.

The Commission will:

- support the development and implementation of child-sensitive, gender-responsive

disability-inclusive and rights-based anti-human trafficking measures and initiatives;

- support cooperation among Member States’ focal points for victims’ referral in

cross-border cases;

- support Member States in ensuring the consistent application of the non-punishment

principle, including through the exchange of good practices among judicial and law

enforcement authorities.

Member States are invited to:

- ensure the effective functioning of national referral mechanisms and appoint a focal

point for the cross-border referral of victims;

- provide for safe accommodation, specialised support services (including legal

assistance) and reintegration programmes for victims, while making full use of

available EU funding opportunities;

- strengthen cooperation between law enforcement, the judiciary, social services,

healthcare systems and civil society organisations.

CONCLUSION

This renewed strategy recognises that trafficking in human beings cannot be addressed in isolation

and that it requires a whole-of-society and whole-of-government response, bringing together

Member States, EU institutions, EU agencies, civil society, social partners, the private sector and

international organisations and partners, including non-EU countries. Progress will be supported

through existing coordination mechanisms, including the EU Anti-Trafficking Coordinator,

together with the EU Network of National Anti-Trafficking Coordinators and Rapporteurs and

the EU Civil Society Platform, as well as relevant EU agencies and international organisations.

Data collection, knowledge-sharing and operational cooperation will remain essential components

of implementation.

A successful implementation will require sustained and targeted investment at EU, national

and international levels. The Commission will work to ensure that addressing trafficking in

human beings remains a priority in the future, post-2027, multiannual financial framework,

17

reinforcing its capacity to prevent trafficking, reduce vulnerabilities, support victims, dismantle

criminal networks and strengthen partnerships in the EU and globally.

The EU will continue to play a leading role globally in preventing and combating trafficking in

human beings, promoting international cooperation, supporting partner countries, addressing root

causes and ensuring that safeguarding human dignity and fundamental rights remain at the centre

of its internal and external action.

EN EN

EUROPEAN COMMISSION

Brussels, 16.10.2026 SWD(2026) 311 final

COMMISSION STAFF WORKING DOCUMENT

Statistics and trends in trafficking in human beings in the European Union in 2023-2024

Accompanying the document

Communication from the Commission to the European Parliament, the Council, the

European Economic and Social Committee and the Committee of the Regions

on the progress made in the European Union in combating trafficking in human beings

(Sixth Report) and setting out a renewed EU strategy

{COM(2026) 557 final}

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0.1. Total number of victims: current situation and trends1

The total number of victims registered in the EU27 increased by 16.1% between 2021-

2022 (17 248) and 2023-2024 (20 022) with 10 556 registered victims in 2023 and 9 466 in

2024, with an average of 22 registered victims in the EU per million inhabitants in 2024. The

actual number of victims is likely significantly higher than the reported data suggests, as these

statistics only include victims that become known to one of the registering entities and many

victims remain undetected.

In 2023-2024, most victims were registered in France (4 270), Italy (3 955), the Netherlands

(1 812), Germany (1 647) and Poland (1 359).

Figure 1. Victims of trafficking by registering organisation

Source: Eurostat (extraction based on special request from THB annual data)

If one considers the number of victims proportionate to the population size, rather than the

absolute number of victims, in 2023-2024 Member States with the most victims registered per

million inhabitants were in Luxembourg (114), the Netherlands (51), Greece (48) and Austria

(47).

1 Note: The figures have been adjusted to reflect only the known values in the dataset, excluding estimates or

unknowns. This adjustment ensures the accuracy and reliability of the data presented. Any discrepancies between

previous reports and the current figures are due to this refinement process.

2

Figure 2. Trafficking victims per million inhabitants of the registering Member State

Source: Eurostat (online data code, crim_thb_sex)

1. Trends in the forms of exploitation

1. Overview of trends

The main forms of exploitation in 2023-2024 in the EU were sexual exploitation and labour

exploitation. During the reporting period 2023-2024, sexual exploitation2 (combined with

other forms of exploitation) made up 48% of trafficking cases, followed by labour

exploitation (made up 38%).3 This was a slight decrease in the share of sexual exploitation

since the previous reporting period (2021-2022), during which sexual exploitation was (made

up 49%) of trafficking cases and labour exploitation made up 37% of trafficking cases.

Trafficking for other form of exploitation amounted to 15% during 2023-2024 compared

to 17% in the previous reporting period.

2 The figure includes trafficking for the purpose of sexual exploitation alone and combined with trafficking for

other forms of exploitation. 3 In Finland, all trafficking cases were registered by the police which did not register the form of exploitation.

3

Figure 3. Victims of trafficking by aggregated form of exploitation

Source: Eurostat (online data code, crim_thb_expsxa)

2. Sexual exploitation

The number of victims of trafficking for sexual exploitation in the EU overall increased from

2023 (4 201) to 2024 (4 296)4. In 2023-2024, the victims of sexual

exploitation were primarily female (93%), as 72% were women and 21% girls. In 2021-

2022, 68% of victims of sexual exploitation were women and 24% were girls.

In 2023-2024, in all Member States where the sex of the victim was registered, female victims

accounted for more than three in four victims of sexual exploitation. The Member

States registering the most adult female victims of sexual exploitation were France (1 331),

Italy (992), the Netherlands (736) and Germany (728).

In 2023-2024, children accounted for 24% of victims of trafficking for sexual exploitation,

compared to 27% in 2021-2022. Concerning the reporting period, in 2024, the share of child

victims of sexual exploitation increased from 22% in 2023 to 26% in 2024. The Member States

registering the highest number of female child victims of trafficking for sexual exploitation in

2023-2024 were France (638), Romania (401), Germany (330) and the Netherlands (57). The

citizenships most represented among registered victims for sexual exploitation in 2023-2024

were France (1 250), Romania (968), Nigeria (935), Colombia (555), Germany (520), Brazil

(278) and China (238).

4 A breakdown by sex and age was not available for Poland or for most victims in Austria. As noted before,

Finland did not report the breakdown by form of exploitation.

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Figure 4. Victims of trafficking of sexual exploitation as at least one form by sex and age

Source: Eurostat (online data code, crim_thb_expsxa)

3. Labour exploitation

The number of reported victims of labour exploitation indicates a 17.3% increase in

absolute numbers, rising from 5 940 victims in 2021–2022 to 6 965 in 2023–2024. Over the

reporting period, the number of labour exploitation victims in the EU was 3 457 in 2023 and 3

508 in 2024. In line with the preceding sections, in 2023-2024, trafficking for labour

exploitation or forced labour remained the second main form of exploitation in the EU

(38%), slightly higher than in 2021-2022 (37%). Labour exploitation includes domestic

work, care activities and cleaning services. The Member States registering the highest numbers

of victims of trafficking for labour exploitation were France (1 504), Italy (1 181), the

Netherlands (655), Poland (560) and Portugal (503). The citizenships most represented among

registered victims for labour exploitation in 2023-2024 were France (512), Morocco (502)

Romania (396), Colombia (343), India (318) and Pakistan (293).

In 2023-2024, the victims of trafficking for labour exploitation were mainly male (74%), while

females accounted for 26%. In 2021-2022, the victims of trafficking for labour exploitation

were 70% male and 30% female. The share of child victims of trafficking for labour

exploitation decreased from 7% in 2021-2022 to 6% in 2023-2024.

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Figure 5. Victims of trafficking of labour exploitation as at least one form by sex and age

(%)

Source: Eurostat (online data code, crim_thb_expsxa)

4. Other forms of exploitation

Forms of exploitation falling under the umbrella term ‘other’ include criminal activities (13%

of victims of other forms of exploitation during 2023-2024), forced begging (9%), benefit fraud

(23%), and removal of organs (0.3%). Cases of benefit fraud increased singnificantly from 1%

to 23% since the last reporting period due to an increase in Poland. Cases marked as

‘other’ (i.e., not indicating any of the aforementioned forms) account for 39% of cases of other

forms of exploitation during 2023-2024. In that same period, the victims of trafficking for other

forms of exploitation were mainly women (44%), while men accounted for 31% and children

25%. These proportions were roughly the same as in the last reporting period.

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Figure 6. Victims of trafficking for other form of exploitation (%)

Source: Eurostat (extraction based on special request from THB annual data)

Figure 7. Victims of trafficking for other form of exploitation as at least one form by sex

and age

Source: Source: Eurostat (online data code, crim_thb_expsxa)

2. Trends in the types of people who are trafficked

1. Victims by age – child victims of trafficking in human beings

In 2023-2024, child victims constituted 15% of registered victims in the EU where the

victim’s age group was known, representing a decrease since 2021-2022 (19%). The

citizenship of the registered child victims in 2023-2024 where the age group was known were

France (698), Romania (606), Germany (349), Bulgaria (108) and the Netherlands (93).

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Member States registering the highest number of child victims were France (887), Romania

(554), Germany (471), Greece (199) and Italy (156).

Figure 8. Victims of trafficking by age

Source: Eurostat (online data code crim_thb_vsage)

2. Victims by sex

In 2023-2024, 63% of all the victims in the EU were female (50% women and 12% girls)

and 37% were male (34% men and 4% boys), ranging from 14% in Lithuania to 100% in

Malta and Slovenia. This represents a 3% decrease since 2021-2022 (65%)5.

The Member States with the highest percentage of female victims were Malta and Slovenia

(100% each) and Czechia (85%). The Member States with the highest percentage of male

victims (men and boys) during the registering period were Lithuania (86%), Portugal (81%),

and Cyprus (69%).

The Member States registering the most female victims were France (2 719), Italy (2 260),

Germany (1 218), and the Netherlands (1 049). The Member States registering the most male

victims were France (1 551), Italy (1 524), Netherlands (749), and Portugal (498).

5 The breakdown of victims by sex was not available for Poland for the whole period 2023-2024.

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Figure 9. Victims of trafficking by sex

Source: Eurostat (online data code crim_thb_vsage)

3. Victims by citizenship

In 2023-2024, 36% of the registered victims with known citizenship were EU citizens (7

023) and 64% were non-EU nationals (12 369)6. This represents a 7.7% decrease in the

number of registered EU citizen victims since the last reporting period. The majority of

registered victims with known citizenship were therefore from non-EU nationals, this is in line

with the trend between 2019-2020 (45% non-EU nationals) and 2021-2022 (54% non-EU

nationals) where the majority of victims had no EU citizenship.

Within the reporting period, the share of non-EU victims was 64% in 2023 and 62% in 2024,

decreasing in absolute terms by 11.36 %, from 6 557 in 2023 to 5 812 in 2024.

6 The breakdown of victims by citizenship was not available for Sweden for the whole period.

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Figure 10. Victims of trafficking by citizenship

Source: Eurostat (online data code, crim_thb_vctz)

Among EU victims the citizenships most represented in 2023-2024 were French (1 918),

Romanian (1 637), Polish (799), German (530) and Hungarian (473). If one considers the

number of victims proportion to the population size, rather than the absolute number of

victims, Romanian (43 per million inhabitants), Bulgarian (29), Hungarian (25), Slovakian (16)

and French (14) were the EU citizenships most represented in 2023-2024.

The main countries of citizenship of non-EU victims in the EU in 2023-2024 were Nigerian

(1 747), Colombian (1 083), Moroccan (864), Brazilian (477), Ivorian (464) and

Bangladeshi (430).

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Figure 11. Number of victims of trafficking per citizenship of EU27 and top 10 non-EU

nationals and sex

Source: Eurostat (extraction based on special request from THB annual data)

Across the EU in 2023-2024, approximately 28% of all registered victims were citizens of

the country in which they were registered, compared to 33% in 2021-2022.

Member States with the highest rates of registering their own citizens were Bulgaria (100%),

Romania (97%), Hungary (94%), Slovakia (93%) and Croatia (71%).

3. Trends in criminal justice system indicators that are related to trafficking offences

Eurostat collects data on different aspects relating to suspected individuals, prosecuted

individuals, convicted individuals, final decisions of prosecutions and Court judgements.

1. Individuals suspected of crime of trafficking in human beings

The total number of individuals suspected of trafficking crimes (both EU and non-EU

citizenships) decreased by 7% between 2021-2022 (17 711) and 2023-2024 (16 437).7 EU

citizens accounted for 73% (11 065) of all suspects in 2023-2024.

The Member States with most nationals among those suspected of trafficking crimes in 2023-

2024 were France (2 850), Romania (2 462), and Italy (2 356).

The most frequent non-EU nationalities among suspects were Chinese (720), Nigerian (269),

Colombian (246) and Moroccan (228).

7 Almost all countries reported positive numbers of suspects in both 2023 and 2024, with the exception of Malta

in 2023. For Estonia, the number of suspects was not available for both 2021 and 2022. For Belgium, the number

of suspects was not available for 2021.

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Figure 12. Number of suspects per EU citizenship and top 10 non-EU nationals

Source: Eurostat (extraction based on special request from THB annual data)

Where information on sex is recorded, 76% of individuals suspected of trafficking crimes were

male (12 205) in 2023-2024. Men accounted for the majority of individuals suspected of

trafficking crimes in almost all EU Member States in 2023–2024. The exceptions were Czechia

and Poland, where the proportion of female suspects of trafficking crimes were 51% and 50%,

respectively. In Spain and Slovakia, the proportions of women among suspects of known sex

was also relatively high, at 45% each.

Figure 13. Suspected for trafficking crimes by sex

Source: Eurostat (online data code, crim_thb_sex)

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With respect to various aggregated types of exploitation, in 2023-2024 individuals were most

frequently suspected in relation to sexual exploitation (72%), followed by labour exploitation

(21%), and other forms of exploitation (8%). In 2021-2022, individuals were also most

frequently suspected in relation to sexual exploitation (75%), followed by labour exploitation

(14%) and other forms of exploitation (11%).

Figure 14. Suspects for trafficking by aggregated form of exploitation

Source: Eurostat (extraction based on special request from THB annual data)

2. Individuals prosecuted for trafficking offences

The total number of individuals prosecuted for crimes of trafficking in human beings

(both EU and non-EU citizenships) increased by 49% (8 804 in 2021-2022 and 13 126 in

2023-2024).8 EU citizens accounted for 67% of all prosecuted individuals in 2023-2024.

The Member States with most nationals among those prosecuted for trafficking crimes in 2023-

2024 were France (2 660.), Romania (1 111), Italy (993) and Greece (633).

The most frequent known non-EU nationalities among the prosecuted individuals were Chinese

(351), Pakistani (192), Moroccan (166) and Albanian (148).

8 No data on individuals prosecuted for THB crimes were reported in Germany. And no 2024 data on prosecuted

for Finland and Belgium.

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Figure 15. Number of prosecuted individuals per citizenship of EU and top 10 non-EU

nationals

Source: Eurostat (extraction based on special request from THB annual data)

Where information on the sex of prosecuted individuals was recorded9, 75% of individuals

prosecuted for trafficking crimes were male in 2023-2024 (6 153). The Member States with

the highest shares of women among those prosecuted in 2023-2024 were Lithuania (50%) and

Spain (46%).

9 Germany did not report the number of prosecuted individuals for 2023-2024. Bulgaria and Italy reported this

number but not by sex. Belgium, Denmark and Finland values are missing for 2024.

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Figure 16. Prosecuted for trafficking by sex

Source: Eurostat (extraction based on special request from THB annual data)

Sexual exploitation was still the most common reason for prosecution, accounting for 77% of

all recorded prosecutions for trafficking crimes across the EU as compared to 72% in 2021-

2022. In 2023-2024, all trafficking prosecutions (100%) in Malta and Slovenia were for sexual

exploitation. The second most common form of exploitation was labour exploitation,

representing 14% of all prosecutions for trafficking crimes in the EU.

Figure 17. Prosecuted for trafficking by form of exploitation

Source: Eurostat (extraction based on special request from THB annual data)

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3. Individuals convicted of trafficking offences

The total number of individuals convicted of trafficking crimes (both EU and non-EU

citizenships) increased by 3.8% between 2021-2022 (4 728) and 2023-2024 (4 908). Within

the reporting period 2023-2024, EU citizens accounted for 75% of all individuals with known

citizenship convicted for trafficking crimes.

The Member States with most citizens among convicted individuals were France (1 530),

Romania (518), Hungary (318), and Italy (251).

The most frequently recorded known non-EU countries of citizenship among convicted

individuals were China (103), Nigeria (81), and Pakistan (67).

Figure 18. Trafficking convicts per citizenship of EU and top 10 non-EU nationals

Source: Eurostat (online data code, crim_thb_sex)

In line with the preceding sections, the overwhelming majority (78%) of individuals convicted

of trafficking crimes in the EU in 2023-2024 were men. Member States that convicted a high

share of women in 2023-2024 were Ireland (100%) and Portugal (55%).

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Figure 19. Persons convicted for trafficking by sex10

Source: Eurostat (online data code, crim_thb_sex)

Sexual exploitation was the most frequent form of exploitation recorded for convicted

individuals (76%), reaching 100% in Estonia, Ireland, and Luxembourg. The Member States

with the lowest numbers of convictions for sexual exploitation were Lithuania (17%), Cyprus

(26%) and Italy (27%)11.

Figure 20. Persons convicted for trafficking by form of exploitation

Source: Eurostat (extraction based on special request from THB annual data)

10 The values for Belgium are missing in 2023 and 2024 and the values for Ireland and Finland are missing for

2024. 11 The breakdown of convictions by form of exploitation was not available for Bulgaria, Czechia, Denmark,

Austria, Poland, Portugal, and Slovakia in 2023-2024. In addition, no such data on 2024 were available for

Finland, Ireland, and Malta.

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4. Final decisions of prosecution

In 2023-2024, 68% of 5 135 final decisions of the prosecutors in the EU brought charges for

trafficking in human beings, 2% for another criminal offence and 24% of final prosecutorial

decisions did not bring charges at all12.

All final decision of the prosecutors brought charges for trafficking in human beings in seven

Member States: Denmark, Italy, Latvia, Hungary, Malta, Slovakia and Sweden. The Member

States with the smallest percentage of final decisions bringing charges for trafficking in human

beings were Luxembourg (14%), Romania (27%) and Poland (34%).

The Member States with the highest percentage of final prosecution decisions where

charges were not brought at all was Romania (73%), while the countries with the smallest

percentage of final decisions where no charges were brought at all were Greece (7%), Cyprus

and Poland (8% each).

Figure 21. Final prosecution decisions by outcome

Source: Eurostat (extraction based on special request from THB annual data)

5. Court judgements

In 2023-2024, 77% of 6 558 court judgements in Member States led to convictions, while 11%

led to acquittals13.

The Member States with the highest percentage of acquittals in their total number of

court judgements were Slovenia (100%), Denmark (69%), and Finland (57%). The

countries with the lowest percentage of acquittals in their total number of court judgements

were France, Hungary and Romania (1% each), Poland (6%) and Czechia (7%). The totality

12 The number of final decisions of the prosecution service by outcome was not available for Germany, Spain

Austria, Portugal and Finland in 2023-2024. In addition, such data were not available for Denmark and Estonia

in 2024. 13 The number of court judgements by outcome was not available for Spain for 2023-2024. In addition, this number

was not available for Belgium and Slovakia for 2023 and for Ireland for 2024.

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(100%) of court judgements led to convictions in eight Member States: Belgium, Croatia,

Estonia, Ireland, Latvia, Lithuania, Luxemburg and Malta.

Figure 22. Court judgements for trafficking by decision

Source: Eurostat (extraction based on special request from THB annual data)

6. Use of exploited services

In the EU in 2024, 130 individuals were suspected of using services provided by victims

of trafficking. Most suspected users were reported by Sweden (68), followed by Czechia (45),

Romania (16), and the Netherlands (1). In addition, 33 individuals were prosecuted, primarily

in Greece (22). Many countries do not report the data as the use of services is not criminalised

or data are not available.