Forced Labour Convention, 1930 (No. 29) - Sweden (Ratification: 1931)
Protocol of 2014 to the Forced Labour Convention, 1930 - Sweden (Ratification: 2017)

Direct Request (CEACR) - adopted 2024, published 113rd ILC session (2025)

The Committee notes the observations of the Swedish Confederation for Professional Employees (TCO), the Swedish Confederation of Professional Associations (SACO) and the Swedish Trade Union Confederation (LO) received on 13 September 2024. The Committee requests the Government to provide its comments on these observations.

The Committee takes note of the information provided by the Government on measures taken to address the root causes and factors that heighten the risks of forced labour (Article 2, clause (f) of the Protocol) as well as on international cooperation initiatives (Article 5 of the Protocol)

Article 1(1) of the Convention and Article 1(1) and (2) of the Protocol. National policy and systematic and coordinated action. In its previous comments, the Committee requested the Government to provide further information on the implementation of the National Action Plan to combat prostitution and trafficking in human beings adopted in 2018 and the activities of the Gender Equality Agency (GEA), which is responsible for combating prostitution and trafficking in persons. The Government indicates in its report that the activities of the GEA include coordinating the fight against trafficking in persons, developing cooperation between relevant stakeholders, assisting authorities with methodological support and skills development, and promoting the development of measures to prevent trafficking in persons. The GEA integrates the issue of trafficking for forced labour into all its core activities as well as into specific activities focusing on trafficking for forced labour. It coordinates the 16 regional coordinators against prostitution and human trafficking across the country, whose role consists of advising professionals in cases of trafficking in persons, promoting cooperation on trafficking in persons at regional and local level, conducting training courses and helping to ensure that victims have access to support and protection. The Government also states that the National Task Force against Prostitution and Human Trafficking (NMT) meets four times a year, with bi-annual thematic meetings.

The Committee encourages the Government to pursue its efforts to combat all forms of forced labour, including trafficking in persons, and requests it to provide information on the activities carried out by the Gender Equality Agency to ensure systematic and coordinated action in this regard by the competent authorities, including the National Task Force against Prostitution and Human Trafficking and the regional coordinators against prostitution and human trafficking. The Committee also requests the Government to provide specific information on the implementation of the National Action Plan to combat prostitution and trafficking in human beings, specifying whether an assessment of the national action to combat trafficking in persons has been undertaken, the difficulties identified, and the steps taken to overcome them.

Article 2 of the Protocol. Preventive measures. Clause (b). Educating and informing employers. In response to the Committee’s requests on the measures taken to educate and inform employers about trafficking for labour exploitation and other forms of forced labour, the Government indicates that the knowledge and materials, such as online training on trafficking, prepared by the GEA for professionals working on trafficking, can be used by all employers. The Committee requests the Government to indicate if targeted measures are envisaged to raise awareness and inform employers about forced labour, including trafficking in persons and labour exploitation, and to specify the measures taken to ensure that they have access to GEA’s tools on trafficking in persons.

Clause (d). Protecting migrant workers during the recruitment and placement process. In its previous comments, the Committee noted that the Agency Work Act provides for an umbrella organization to supervise the activities of temporary work agencies and companies renting out staff for temporary work. The Committee requested the Government to provide information on the measures taken to prevent risks of trafficking and labour exploitation in the activities of temporary work agencies. The Committee notes that the Government refers to the adoption of the Law of 20 April 2022 to tighten and improve current rules regarding labour immigration, which provides, among other things, that: (i) employers may be obliged to notify if employment conditions change and become less favourable; (ii) the Swedish Migration Agency (SMA) shall be able to require an employer to report the working conditions of a foreigner who has been granted a work permit. The Government also refers to the situation of berry pickers and points out that the Swedish Municipal Workers’ Union (SKAF) has the opportunity to make a statement on the employment conditions of berry pickers. Furthermore, according to the SMA, there were more work permit rejections in 2023 than previously for berry-pickers from Thailand, and these rejections were issued as a result of deeper controls carried out by the SMA following information on false employment contracts and non-payment of wages.

The Committee requests the Government to continue to provide information on the measures taken to protect migrant workers from abusive and fraudulent practices during the recruitment and placement process, in particular by temporary work agencies, and to indicate how these agencies are supervised with a view to prevent the occurrence of such practices.The Committee also refers to its comments on the application of the Migrant Workers (Supplementary Provisions) Convention, 1975 (No. 143), in relation to the enforcement of the Foreign Posting of Employees Act.

Article 3 of the Protocol. (i) Identification of victims. Following the Committee’s requests regarding the collection of statistics on victims identified, the Government indicates that 375 victims of trafficking or human exploitation were identified in 2022 (including 130 cases of trafficking for forced labour or labour exploitation and 174 cases of trafficking for sexual purposes), and 490 in 2021 (including 145 cases of trafficking for forced labour or labour exploitation and 249 cases of trafficking for sexual purposes). The Government specifies that the GEA is responsible for collecting information on suspected victims of trafficking who are identified by the regional coordinators or through the national helpline for professionals run by the GEA. The Government points out that the identification of victims of trafficking for forced labour has increased rapidly in recent years, thanks to the increased efforts of several authorities to combat trafficking for forced labour. This development in the number of identified victims can be seen as a positive development, as it can be assumed that the actual number of victims is much higher.

The Committee further notes that, according to the 2023 report of the Council of Europe Group of Experts on Action against Trafficking in Human Beings (GRETA), the SMA has developed internal procedures to be followed by case officers in cases of suspected trafficking in persons. The SMA has provided training on trafficking in persons to its employees and has increased its efforts to identify victims of trafficking in the asylum procedure and in reception centres, in recent years. The SMA identified 515 presumed victims of trafficking in 2022 and 261 in 2021. The GRETA report points out that not all cases reported to the police by the SMA are treated as victims of trafficking because the police seem to apply a higher threshold when identifying victims amongst persons who were not exploited in Sweden, but in another country prior to arriving in Sweden. The Committee encourages the Government to pursue its efforts to ensure the proper identification of all victims of forced labour, regardless of the place of exploitation and including among refugees or asylum seekers, and requests it to continue to provide information on the number of victims of trafficking in persons and human exploitation identified.

(ii) Protection and assistance of victims. In terms of support and protection granted to victims, the Government indicates that the GEA is responsible for the National Referral Mechanism (NRM), which provides support and practical guidance to professionals who encounter victims of trafficking, and gives a general overview of the support and protection available to victims. In 2023, the GEA launched a digital version of the NRM, accessible on the GEA website. The Government further indicates that the GEA funds the Assisted voluntary return and reintegration Programme for victims of trafficking (AVRRPTIP) implemented by the IOM, through which 30 people received support in 2022, and 61 in 2021. The GEA also funds the National Support Programme (NSP), which provides additional support to victims of trafficking trough a number of NGOs, with a function complementary to that of the public authorities. The NSP certifies new shelters and addresses the needs for accommodation of victims of trafficking. Support also includes legal advice and funding for specific needs such as access to an interpreter. The Government indicates that in 2022, 62 victims of trafficking received support under the NSP Programme, and 39 in 2021.

The Committee notes that the GRETA indicates, in its 2023 report, that it appears that the regional coordinators responsible for the coordination of victims’ access to assistance services are not always informed on time about possible cases of trafficking. GRETA was informed that the availability of services greatly varies depending on the municipality. In addition, according to the GRETA report, the number of persons who were granted a recovery and reflection period was as follows: 9 in 2021 and 17 as of September 2022. The Committee requests the Government to pursue its efforts to ensure effective protection, recovery and rehabilitation for all victims of forced labour throughout the country, including the benefit of a reflection period. Please continue to provide information on the number of victims who have benefited from assistance and protection services, and on the nature of the services provided to them.

Article 4(1) of the Protocol. Access to remedies. Compensation. The Committee recalls that victims of trafficking may claim compensation by the State from the Swedish Crime Victim Compensation and Support Authority, or lodge a private claim for compensation to be paid by the offender. The Committee notes that the government has not provided statistical information in this regard. It further notes that GRETA indicates in its 2023 report that no statistics were available regarding compensation from perpetrators awarded to victims of trafficking in criminal proceedings. If the offender is unable to pay or not identified and there is no insurance to cover the injuries, State compensation may be granted. The GRETA report indicates that six victims of trafficking were granted State compensation in 2021 and one victim in 2022, and that the Swedish Prosecution has issued guidelines on compensation for prosecutors.

In view of the low number of victims of trafficking who have received compensation, the Committee requests the Government to take the necessary measures to ensure that all victims of forced labour are informed of their rights to claim compensation and are able to assert these rights and have access to effective remedies, including compensation. The Committee requests the Government to provide information in this regard, and to indicate the number of victims of trafficking or human exploitation who have received: (i) compensation from the perpetrator; or (ii) State compensation from the Swedish Crime Victim Compensation and Support Authority.

Article 6 of the Protocol. Consultation with social partners. Noting the absence of information on this point, the Committee once again requests the Government to provide information on the consultation with the organizations of employers and workers concerned to determine measures to apply the Protocol and the Convention, including in relation to the development and implementation of the national policy to combat forced labour.

Article 25 of the Convention and Article 1(1) and (3) of the Protocol. 1. Prosecution and application of dissuasive penalties. Further to its previous comments, the Committee takes note of the information provided by the Government on the measures taken by the GEA to strengthen the knowledge and capacity of relevant professionals on trafficking in persons, including the organization of trainings, seminars and lectures by the GEA and the regional coordinators on trafficking in persons for various stakeholders (including workplace inspectors, border police and prosecutors), as well as the development of a basic course on prostitution and trafficking on the GEA’s website. The Government also indicates that in 2021, 24 trafficking offenses (criminalized under section 1(a) of Chapter 4 of the Criminal Code) for forced labour were reported.

The Committee further notes the statistical information in the 2023 GRETA report on trafficking and labour exploitation offences. With regard to trafficking offences, 146 investigations were carried out in 2021 (of which 74 for sexual exploitation and 31 for forced labour), and 141 in 2022 (of which 62 for sexual exploitation and 21 for forced labour). In 2021, prosecutions for trafficking were initiated in only one case, and one person was sentenced to imprisonment during that year. With regard to human exploitation offences (criminalized under section 1(b) of Chapter 4 of the Criminal Code), 156 cases have been investigated since 2018, of which 41 are still ongoing and 13 have led to prosecution. GRETA refers to the existence of prosecutors specialised in trafficking in persons and of specialised anti-trafficking police units.

The Committee requests the Government to continue to develop the knowledge and capacity of law enforcement bodies, including the police and the prosecutors, to ensure that all cases of trafficking in persons and human exploitation are promptly investigated to allow for their effective prosecution and the imposition of sufficiently dissuasive penalties on perpetrators. Please provide information on the number of investigations conducted, prosecutions initiated and convictions handed down under sections 1(a) and 1(b) of Chapter 4 of the Criminal Code.

2. Inter-agency collaboration against work-related crime. The Government indicates that the Inter-Agency collaboration against work-related crime, which comprises nine government agencies (including the GEA, the Work Environment Authority, the Migration Agency, the Police, the Prosecution Authority, the Tax Agency and three other government agencies), is tasked with tackling and preventing work-related crime, including trafficking for forced labour and labour exploitation. In 2022, these agencies have been commissioned to establish seven regional centres to strengthen inter-agency work against crime in the workplace. The agencies have also been tasked with organizing and implementing information campaigns in 2022 and 2023, aimed at informing vulnerable workers of their rights and the general public. The Government also refers to the 2022 Annual Report of the Swedish Work Environment Authority, which states that in 2022, 2600 inspections were carried out jointly with several authorities, within the framework of the inter-agency collaboration. The Government specifies that the regional coordinators participate operationally in joint authority workplace inspections to improve victim identification, where there is a strong suspicion of trafficking in persons.

The Committee takes due note of the measures taken by the Government to strengthen collaboration in order to better detect situations of forced labour, and requests the Government to pursue its efforts in this regard. The Committee requests the Government to indicate (i) the number of cases of trafficking in persons and human exploitation identified in the context of inter-agency workplace inspections, as well as (ii) the activities of the regional centres against work-related crime to combat trafficking for forced labour and labour exploitation.

Direct Request (CEACR) - adopted 2020, published 109th ILC session (2021)

The Committee welcomes the ratification by Sweden of the Protocol of 2014 to the Forced Labour Convention, 1930, and takes due note of the Government’s first report.

Article 1(1) of the Convention and Articles 1(1) and (2) of the Protocol. Institutional framework. National policy and systematic action. The Committee notes the Government’s indication in its report that a National Action Plan to combat prostitution and trafficking in human beings for all forms of exploitation was adopted in 2018, without specifying a time frame for the implementation of the Plan. The Government also indicates that the national assignment on prostitution and trafficking for sexual and other purposes is under the responsibility of the Swedish Gender Equality Agency, which manages an operational network of authorities – the National Task Force against Prostitution and Human Trafficking (NMT). In its 2018 report, the Group of Experts on Action against Trafficking in Human Beings (GRETA) expresses its concern about the implications of the decision to transfer the mandate for anti-trafficking action to the Gender Equality Agency in 2018 from the County Administrative Board of Stockholm (CABS), since the primacy focus of the new agency would be trafficking for the purpose of sexual exploitation, given that its creation is linked to the new National Strategy to Prevent and Combat Men’s Violence against Women (paragraph 32). The Committee requests the Government to provide further information on the implementation of the national Action Plan and the activities of the Gender Equality Agency, in particular regarding trafficking for labour exploitation.

Articles 1(1), 2(1) and 25 of the Convention and Article 1(3) of the Protocol. Definition and criminalization of forced labour and application of sanctions. The Committee notes the Government’s information that forced labour is defined and criminalized mainly under the provision on trafficking in Chapter 4, section 1(a) of the Criminal Code (trafficking for sexual purposes and forced labour, among others). Moreover, a new criminal provision (Chapter 4, section 1(b)) on human exploitation was introduced into the Criminal Code in 2018, aimed at strengthening criminal law protection against exploitation of persons for work or begging, in cases not covered by the definition of trafficking. It provides that a person who, by unlawful coercion, deception or exploitation of another person’s position of dependence, defencelessness or difficult situation, exploits another person in forced labour, labour under clearly unreasonable conditions or begging, is guilty of human exploitation and is sentenced to imprisonment for at most four years. Under aggravated circumstances, the person found guilty is sentenced to two–ten years. On 5 December 2019, the first judgment on the provision on human exploitation was delivered, regarding a restaurant owner who was sentenced to eight months’ imprisonment. The Committee also notes the statistical information in the 2018 GRETA report regarding the application of Chapter 4, section 1(a) of the Criminal Code on trafficking. In 2016, the number of reported trafficking offences was 197, of which 81 for sexual purposes, 27 for forced labour and 33 for forced begging. In 2017, there were 214 reported trafficking offences, of which 82 for sexual purposes, 39 for forced labour and 40 for forced begging (paragraph 13). However, in 2016, only three persons were prosecuted for trafficking for the purpose of sexual exploitation; two were sentenced to three years and six months’ imprisonment. Further, in 2016, four persons were convicted of trafficking for the purpose of forced begging. In 2017, four persons were prosecuted for trafficking for the purpose of sexual exploitation (paragraph 192). GRETA is concerned that the number of prosecutions for trafficking remains low and the number of convictions is even lower. Moreover, most of the investigated cases have concerned trafficking for the purpose of sexual exploitation. It is more difficult to start legal proceedings in cases of trafficking for the purpose of forced labour (paragraph 193). The Committee requests the Government to continue to provide information on the application in practice of sections 1(a) and 1(b) of Chapter 4 of the Criminal Code criminalizing trafficking in persons and forced labour, including the number of convictions and penalties applied. It also requests the Government to continue to provide information on measures taken or envisaged in order to strengthen the capacity of the competent authorities, in particular regarding trafficking for labour exploitation and forced labour.

Article 2 of the Protocol. Preventive measures. Clause (b). Educating and informing employers. The Committee notes the Government’s information that the Gender Equality Agency allocates funding to civil society organizations who work against prostitution and trafficking for sexual purposes. The organization Realstars has, for instance, been granted funding for a project entitled “An enterprise free from trafficking”. Within the project, the organization will produce guidelines for companies on how to conduct a risk assessment and develop policies to combat trafficking. However, there is an absence of information on measures taken by the Government to educate employers about trafficking for labour exploitation, as well as other forms of forced labour. The Committee requests the Government to provide information on measures taken or envisaged to educate and inform employers about trafficking for labour exploitation and other forms of forced labour.

Clause (c). Labour inspection services and other services. The Committee notes the Government’s information that the Work Environment Authority (WEA) coordinated an assignment with seven other authorities, covering the period of 2018–2020, to develop methods for joint control to tackle several problems, including trafficking for labour exploitation. In 2018, two joint operations were carried out under the EU policy cycle on trafficking within the framework of Europol, of which the first one focused on forced labour and other forms of exploitation of workers with the participation of the WEA. GRETA indicates in its 2018 report (paragraph 70) that the WEA inspectors have not received sufficient training to enable them to detect victims of trafficking for the purpose of labour exploitation. Moreover, although inspections of private households are possible, they rarely take place in practice. The Government further indicates that the Swedish Tax Agency officials often come across suspected cases of trafficking when investigating undeclared labour schemes. A guideline to raise awareness on trafficking is under development, providing indicators of trafficking and describing how STA officials should report cases of trafficking and labour exploitation. The Committee requests the Government to continue to provide information on the activities of labour inspectors in combating trafficking for labour exploitation and forced labour. It also requests the Government to provide information on the development of the guideline for tax officers.

Clause (d). Protecting migrant workers during the recruitment and placement process. The Committee notes that, according to the information in the 2018 GRETA report (paragraph 75), the operation of temporary work agencies in Sweden is regulated by the Private Placement Act. However, such agencies do not require a licence to operate and there is no public sector supervision of their work. Further, the Agency Work Act regulates the renting out of employees for temporary work. There is an umbrella organization for temporary work agencies and companies renting out staff for temporary work, which supervises the activities of its members. The Committee requests the Government to provide further information on measures taken or envisaged to prevent trafficking and labour exploitation in the activities of temporary work agencies.

Clause (f). Addressing the root causes and factors that heighten the risks of forced labour. The Committee notes that, according to the 2018 GRETA report (paragraphs 91 and 92), the Swedish authorities stress that the ban on the purchase of sexual services has reduced the prostitution market in Sweden and thereby demand for sexual services provided by victims of trafficking, and has contributed to making the purchase of sex socially unacceptable. However, research by the CABS and the Swedish Association for Sexual Education about the effects of the ban on purchasing sex shows that while there has been a clear reduction in street prostitution, the offer of sexual services on the Internet has markedly increased. There is also research highlighting some negative consequences of the criminalization of the purchase of sexual services, such as weakened safety procedures, fear of being subjected to police surveillance and difficulties faced by non-governmental organizations and social agencies in implementing harm-reduction measures. The Committee requests the Government to provide further information on the follow-up to the above-mentioned research regarding the ban on the purchase of sexual services. It also requests the Government to provide information on other measures taken or envisaged to address the root causes and factors that heighten the risks of trafficking for both sexual and labour exploitation.

Article 3 of the Protocol. (i) Identification of victims. Collection of information. The Committee notes the Government’s information that the Gender Equality Agency gathers statistics regarding potential victims of trafficking from other agencies and actors, based on the cases that come to its attention. However, according to the 2018 GRETA report (paragraphs 13 and 103), there is no formally established system for identification of victims. The statistics collected by the National Council for Crime Prevention refer to reported offences, rather than to presumed or identified victims. Moreover, according to data provided by the National Rapporteur, the number of persons deemed to be victims of trafficking on reasonable grounds was much lower: in 2015, there were two victims of trafficking for sexual purposes; in 2016, seven victims (two for sexual purposes and five for “other” purposes); and in 2017, 12 victims (two for sexual purposes and ten for “other” purposes, namely forced begging). The Committee requests the Government to indicate the measures taken or envisaged to strengthen the systematic collection of statistics of victims identified, and to provide such statistical information once available.

(ii) Protection and assistance of victims. The Committee notes the Government’s information that persons who are victims of human trafficking are offered support by the social services according to regulations in the Social Services Act on the municipality’s responsibility for providing support and assistance to people in need in general. Support may include sheltered housing, aid in contact with other agencies, financial assistance, interpretation and psychosocial support. This support is independent of whether the person is granted a recovery and reflection period and of cooperation with the law enforcement authorities. Provisions of several national legislative provisions also provide for access to health care for victims with or without a regular status in Sweden. Moreover, according to the 2018 GRETA report (paragraphs 111–113), since 2016, special assistance to victims of trafficking is provided under the National Support Programme (NSP), which is implemented by the Swedish Civil Society against Human Trafficking platform. Victims receive 30 days of assistance, extendable by a further 90 days in cases in which the presumed victims do not wish to formalize their victim status by reporting to the police or cannot obtain formal victim status, for example because they were exploited before arriving in Sweden. There are seven certified shelters within the NSP programme, with another three being reviewed with a view to certification. The Government further indicates that recovery and reflection periods and resident permits are granted to victims pursuant to Chapter 5, sections 6 and 15 of the Aliens Act. The Committee requests the Government to continue to provide information on the measures taken to provide victims of forced labour with protection, recovery and rehabilitation. It also requests the Government to provide statistical information on the number of victims who have benefited from the above-mentioned services.

Article 4(1) of the Protocol. Access to remedies. Compensation. The Committee notes the Government’s information that the Swedish Crime Victim Compensation and Support Authority subordinated to the Ministry of Justice is responsible for dealing with applications for criminal injuries compensation by the State, based on relevant provisions of the Criminal Injuries Compensation Act, in particular section 15. The injured party in criminal proceedings may also lodge a private claim for compensation of damages to be paid by the offender in conjunction with, or separately from, the prosecution of the offence, according to the relevant provisions of the Code of Judicial Procedure (Chapter 22) and the Tort Liability Act (Chapter 2, section 3). The Committee requests the Government to provide statistical information on the number of victims of trafficking and forced labour who have claimed and obtained compensation, awarded by the Swedish Crime Victim Compensation and Support Authority or granted by the courts, as well as the amount of compensation received.

Article 5 of the Protocol. International cooperation. The Committee notes the Government’s information that the Gender Equality Agency financed the project entitled “Competence building, Assistance provision and Prosecution of labour exploitation cases in the Baltic Sea Region” (CAPE), which is implemented by the Council of the Baltic Sea States. The main objective of the project is to support relevant national and local authorities in combating and prosecuting forced labour in labour exploitation cases in Sweden and in assisting victims. The project will report on 31 August 2021. The Committee requests the Government to provide information on the implementation of the CAPE project, as well as the results achieved.

Article 6 of the Protocol. Consultation with social partners. The Committee notes the absence of information on this point. The Committee requests the Government to provide information on the consultation with the organizations of employers and workers concerned to determine measures to apply the Protocol and the Convention.

Direct Request (CEACR) - adopted 1997, published 86th ILC session (1998)

The Committee notes the information supplied by the Government in reply to its earlier comments. It notes, in particular, that the validity of the Community Service Act was extended until the end of 1998. The Government indicates that the Penal System Committee has proposed that community service be made an integral feature of the regular penal system, and that its proposals have been circulated for comment and are now being studied within the Ministry of Justice. The Committee would be grateful if the Government would continue to provide, in its future reports, information on any developments in this field and, if applicable, on any amendments of the above-mentioned Act, as well as on any further extension of its validity.

Direct Request (CEACR) - adopted 1993, published 80th ILC session (1993)

The Committee notes the information supplied by the Government in its report concerning the application of the Act on community service of 7 December 1989; it notes the content of the Act and that it is of limited duration (until the end of 1992) owing to its experimental nature.

The Committee asks the Government to indicate whether the period of application of this Act has been extended and to provide information on the evaluation of this experiment, as well as any extension of its scope and, if applicable, any amendments.

Direct Request (CEACR) - adopted 1990, published 77th ILC session (1990)

The Committee notes the Government's information in its report that a Bill providing for an experimental scheme of community service has been introduced in the Rijksdag on 28 September 1989. The Committee requests the Government to communicate a copy of the Bill when enacted.