New report acknowledges several positive developments while highlighting persistent gaps in identifying and assisting victims
In a report published today, the Council of Europe's Group of Experts on Action against Trafficking in Human Beings (GRETA) calls on Luxembourg to strengthen the identification and assistance of trafficking victims.
The report, which covers the period from July 2022 to June 2026, assesses measures taken by Luxembourg to prevent vulnerabilities to trafficking, detect and assist victims in vulnerable situations and punish traffickers. In doing so, it pays particular attention to the use of information and communication technology.
GRETA welcomes a number of positive developments, including the opening of a dedicated shelter for trafficking victims, the creation of a specialised police protection division for victims exposed to violence or serious threats and the establishment of a national centre for victims of violence.
Other positive developments include the significant increase in the number of labour inspectors and the introduction of new legislative tools to combat trafficking facilitated by digital technologies.
However, noting that Luxembourg’s first national action plan against human trafficking was adopted in 2016 and has not been evaluated or updated since, GRETA urges the Luxembourg authorities to adopt a new national action plan against trafficking without delay.
Trafficking profile
Of the 118 victims formally identified between 2022 and 2024, over 80% were women, mainly subjected to sexual exploitation. Most female victims came from Russia and Ukraine, while male victims, primarily exploited for their labour, came mainly from Brazil and Albania.
Addressing vulnerabilities to trafficking
Children in the care of the child protection system and unaccompanied children are at heightened risk of human trafficking. GRETA calls on the Luxembourg authorities to strengthen measures to prevent trafficking of children by ensuring that all unaccompanied children receive effective protection and have access to appropriate services, and by developing targeted measures to address the specific vulnerabilities of children to trafficking.
In addition, the report notes that measures restricting access to accommodation for applicants for international protection introduced in 2023 makes them more vulnerable to human trafficking. It asks the authorities to ensure that they are provided with adequate accommodation and access to work.
GRETA is concerned about a draft law that would require migrant workers to remain with their first employer for six months and would extend the duration of the initial residence permit from one to two years. This could increase the risk of migrant workers becoming dependent on their employers, thereby exposing them to a greater risk of exploitation.
Victim identification and assistance not linked to criminal proceedings
Noting that no changes have been made to the victim identification procedure, GRETA once again urges Luxembourg to ensure that the identification of trafficking victims and access to assistance do not depend on the opening or continuation of criminal proceedings. The report stresses that all presumed and identified victims should receive appropriate assistance based on their individual needs, regardless of where their exploitation occurred.
Moreover, GRETA calls on the authorities to strengthen pro-active identification of child victims of trafficking and ensure appropriate assistance, particularly for children exploited for criminal activities or begging.
Strengthening access to justice for victims of trafficking
There were 20 convictions of human trafficking in 2022-2025, but all imprisonment sentences were suspended. GRETA calls on the authorities to intensify proactive investigations and ensure effective, proportionate and dissuasive penalties for human trafficking offences.
Victims continue to face significant obstacles in obtaining compensation, with only one victim having been awarded compensation by a criminal court since 2022. The criteria for obtaining compensation from the state have not been changed, limiting access to it for victims of trafficking. GRETA urges the authorities to provide training on victim compensation to relevant professionals and to review the conditions for access to state compensation.
***
The Group of Experts on Action against Trafficking in Human Beings (GRETA) is an independent body which monitors the way countries implement the Council of Europe Convention on Action against Trafficking in Human Beings. All 46 member states of the Council of Europe are bound by the Convention, as well as non-member states Belarus and Israel
