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Articles 1 (paragraph 1), 2 (paragraph 1), and 25, of the Convention. Trafficking of persons. The Committee notes the detailed information supplied by the Government in relation to the trafficking of persons and the actions undertaken to combat it.
The Government indicates in its report that the new and changing forms of socio-economic organization which have arisen from globalization have also had negative effects such as the increased involvement of organized criminal networks in the illicit trafficking of persons, leading to new forms of exploitation of labour. This is particularly the case with migrant workers, who are subjected to situations involving the exploitation of labour in conditions which clearly violate the freedom and dignity of persons and which could be tantamount to new forms of slavery.
The Committee notes with interest the information relating to action by the inspection authorities, undertaken with the cooperation of the state security forces, in relation to the trafficking of persons in connection with activities forming part of the unofficial or hidden economy. The inspection activities recorded 12 cases of trafficking in connection with 22 cases of exploitation of labour. With regard to sexual exploitation, inspection activities from ten jurisdictions recorded four cases involving the existence of organized networks for the exploitation of persons and six cases of trafficking. Women account for 85 per cent of persons affected. The Government adds that the vast majority of reports of sexual exploitation and exploitation of labour clearly relate to the foreign immigrant population (i.e. non-EU), accounting for 1,120 workers out of a total of 1,158 workers affected, i.e. 97.22 per cent.
With a view to coordinating the various competencies necessary to combat such practices, a protocol of cooperation between the Ministries of the Interior, Justice, and Labour and Immigration, represented by the Labour and Social Security Inspectorate, was signed in April 2008. The objectives of the protocol include the monitoring and surveillance of organized criminal networks involved in the exploitation of labour. The group is due to draw up a draft national plan for combating the trafficking of persons for the exploitation of labour.
The Committee notes that the Integrated Plan combating the trafficking of persons for sexual exploitation has been approved. The Plan provides for measures for the protection of victims. The Committee also notes that the Spanish Parliament is currently examining draft amendments to the Penal Code in which penalties are prescribed and/or increased for offences relating to the trafficking of persons, including with the purpose of exploiting labour or services, including forced labour or services, slavery or practices similar to slavery, or servitude.
The Committee observes from the information provided by the Government that offences which do not come under the heading of infringements of labour legislation and are offences against human freedom and dignity are referred by the police force and Civil Guard to the Office of the Prosecutor-General and so the labour inspectorate has no means of knowing how the offence is classified.
The Committee requests the Government to continue to supply information on the steps taken or contemplated to combat the trafficking of persons, which constitutes a serious violation of the Convention, particularly information on the measures taken by the Office of the Prosecutor-General, prosecutions instituted and penalties imposed on the perpetrators of the trafficking in persons. The Committee recalls that, under Article 25 of the Convention, the exaction of forced or compulsory labour shall be punishable as a criminal offence and the penalties imposed must be really adequate and strictly enforced. The Committee also requests the Government to supply information on the results of the reform of the Penal Code which is currently in progress.
Article 2, paragraph 2(c), of the Convention. Public interest work. The Committee notes the information supplied by the Government in its report according to which article 49 of the Penal Code concerning work for the benefit of the community has been amended. Under the terms of this article, work for the benefit of the community, which cannot be imposed without the consent of the convicted person, obliges him or her, without receiving any remuneration, to carry out certain activities of public utility which may take the form of jobs aimed at reparation of damages caused or that entail support or assistance to the victims. The Committee notes that work for the benefit of the community may be carried out through public interest associations (article 49, paragraph 1) and that the Administration my conclude relevant agreements to facilitate this work. The Committee observes that the performance of such work may not be subordinated to the pursuit of economic interests.
The Committee asks the Government to indicate the criteria used to identify the public interest associations for which this work can be carried out and, if it exists, to provide the list of such associations.
For many years, the Committee has been drawing the Government’s attention to the fact that the voluntary nature of work by prisoners for private enterprises is not formally set out in the provisions of the national legislation governing prison work. Indeed, both the general Organic Act respecting prisons (Act No. 1/79, section 26) and the Prison Regulations (Royal Decree No. 190/96, sections 132 and 133), provide that productive prison work is a right and a duty for detainees. In this respect, the Committee notes the Government’s indication that, firstly, prison work is free and, secondly, the expression "work is a right and a duty of detainees" must not be interpreted in a restrictive manner, as it corresponds to article 35 of the Spanish Constitution, under the terms of which "all Spanish nationals have the right and the duty to work". Considering that it is not formally established by the above legislative provisions that the productive work of prisoners, performed for a third party in production workshops in prison premises or outside them, is of a voluntary nature, the Committee requested the Government to take the necessary measures to bring the statutory law into line with practice, as described in the information provided by the Government. The Committee notes with regret that the Government did not take the opportunity afforded by the adoption of Royal Decree No. 782/2001, regulating the special employment relationship of prisoners working in prison workshops and repealing certain provisions of the Prison Regulations (Royal Decree No. 190/96), to amend sections 132 and 133 of the Prison Regulations. It hopes that on the occasion of a future amendment of the legislation, the Government will take its comments into account and will ensure that the legislation explicitly establishes the voluntary nature of work by prisoners performed for a third party in production workshops on prison premises or outside prisons for private enterprises. Furthermore, the Committee notes with interest the information provided by the Government in its latest reports on the remuneration of prisoners and the social security benefits to which they are entitled. The Committee also notes with interest that the labour and social security inspectorate is responsible for ensuring compliance with the rights of prisoners working in production workshops on prison premises in relation to wages, working time, health and safety and social security.
Article 1, paragraph 1, and Article 2, paragraphs 1 and 2(c), of the Convention. With reference to its previous comments, the Committee recalls that it noted that the Prison Regulations (Royal Decree No. 1202/81) did not clearly establish the voluntary character of work by convicts for private enterprises. The Committee notes the additional explanations provided by the Government based on the jurisprudence of the Constitutional Court in this matter. The Constitutional Court has recognized in particular that the right to paid work is a fundamental right of prisoners and has laid down an obligation to provide a sufficient number of workplaces for all prisoners within the prison system. It follows from the Court's jurisprudence that the autonomous body responsible for prison services and labour is facing difficulties in providing work for all prisoners, which has given rise to numerous judgements. The Committee notes this information with interest. It refers to its comments in paragraphs 116 to 125 of the 1998 General Report regarding the conditions imposed by the Convention with regard to work done by prisoners for the benefit of private enterprises, and invites the Government to take the necessary measures to incorporate its practice and jurisprudence into positive law, in particular with regard to the voluntary nature of the work done. The Committee also asks the Government to indicate in its next report how in practice prisoners' work for private enterprises is conducted, how prisons are remunerated, by giving examples, and also how they are integrated in the security system. The Government is asked to indicate any further measures taken in this respect.
In its previous observation, the Committee had requested the Government to take the measures necessary to establish the voluntary character of work by convicts for private enterprises, since this was not clearly established in the Prison Regulations (Royal Decree No. 1202/81).
The Committee takes note of Royal Decree No. 190/96 of 9 February 1996 which approves the new Prison Regulations. Under section 132 of the new Regulations, prison labour of a productive character is a right and a duty of the interned person. Under section 133(1) of the same Regulations, all prisoners have the obligation to work, except those undergoing medical treatment, those suffering a permanent disability, those over 65 years of age, those receiving retirement pensions, pregnant women and convicts who cannot work for reasons of force majeure.
In its report, the Government indicates that the work of prisoners is free; that the terms "labour ... is a right and a duty of the interned person" (section 132 of the Prison Regulations) are similar to those used in article 35 of the Spanish Constitution according to which "All Spaniards have the duty to work" and that to read this formulation as meaning forced labour supposes a partial and restrictive interpretation of its literal meaning.
The Committee notes that the Government repeats its former statements to the effect that the work carried out by prisoners is voluntary. It observes, however, that such practice does not correspond to sections 132 and 133(1) of the Prison Regulations, which establish that prison labour is mandatory.
The Committee regrets that the adoption of the new Prison Regulations did not lead to a formal harmonization of the legislation with the requirements of the Convention and hopes that the Government will take the measures necessary to give statutory effect to the practice which, according to the Government, already exists.
The Committee notes the information supplied by the Government concerning the remuneration of productive labour in the special prison labour relationship.
In previous comments the Committee has referred to observations from the Trade Union Confederation of Workers' Committees on the application of the Convention, alleging that prisoners are not guaranteed the conditions of employment set out in agreements as regards working hours, remuneration and benefits, and that the conditions to which prisoners are subject as regards social security are not the same as those for other workers. The Committee also observed that the Prison Regulations (Royal Decree No. 1202/81) do not establish clearly that the free consent of convicts is required for them to work in private enterprises.
(a) With regard to the prisoner's free consent, the Committee notes the Government's indication that inmates wishing to do so apply of their own accord to work under the independent body "Trabajos penitenciarios" and a selection is then made among the applicants. The Government adds that this system is based on section 183(3) of the Prison Regulations.
The Committee observes in this connection that section 183(3) refers to persons detained pending trial who, by virtue of the Convention, may not be compelled to work but may work if they wish, on a purely voluntary basis. With regard to convicts, the Committee once again asks the Government to take the necessary steps to establish the voluntary nature of the work done by prisoners for private enterprises.
(b) The Committee asked the Government to provide information on the standards set by the independent body "Trabajos penitenciarios" for fixing the inter-sectoral minimum wage and copies of contracts between private enterprises and prisoners.
As regards the question of wages, the Committee notes the comments made by the Trade Union Confederation of Workers' Committees, sent by the Government with its report, to the effect that the wages of prisoners who work for private enterprises are fixed without the prisoners or their representatives intervening, and are determined in accordance with the rules of the independent body "Trabajos penitenciarios".
According to the Government's statement in its report, prisoners' contracts with private enterprises are subject to the pay conditions prevailing in the sector, depending on the labour market, and in cases where the employer is "Trabajos penitenciarios", the rules governing special labour relationships are applied in accordance with the Regulations.
The Committee asks the Government to provide the rules set by "Trabajos penitenciarios" to determine the inter-sectoral minimum wage, and notes the specimen contract between a prisoner and a private enterprise, sent by the Government, which is a fixed-term contract in which, according to the Government, the above-mentioned independent body does not intervene. The Committee notes that in this case the pay conditions prevailing in the sector have been applied.
In its previous comments, the Committee noted the observations made by the Trade Union Confederation of Workers' Committees (CC.OO.) concerning the application of the Convention, according to which prisoners are not guaranteed the conditions of employment set out in agreements as regards working hours, remuneration and benefits. The CC.OO. also indicated that the conditions to which prisoners are subject as regards social security are not the same as those for other workers.
The Committee notes that the above organisation repeated its allegations in comments that were transmitted by the Government in its report received in November 1991.
The Committee also noted that the Prison Regulations (Royal Decree No. 1201/81) do not establish clearly that the free consent of convicts is required for them to work in private enterprises.
So that it can ascertain the current situation in practice, the Committee requested the Government to provide copies of agreements that have been signed between prisons and private enterprises, as well as copies of contracts signed between prisoners and private enterprises, and any other relevant information on the conditions of employment of convicts who work for private enterprises.
The Committee notes the detailed information supplied by the Government on the various systems under which work is carried out in prisons.
The Committee notes that, according to the Government, in practice the voluntary nature of work performed by convicts for private enterprises does not raise difficulties, in view of the fact that work under an open system is greatly sought after by prisoners and, moreover, is comparable with the normal employment relationship in terms of remuneration and social security. The Government points out that productive employment is governed by the labour legislation (sections 185(1)(c), 185(2), 186(1), 189 and 191 of Royal Decree No. 1201/81), which implies that it is performed on a voluntary basis and that it is governed by the specific provisions contained in the Regulations.
The Committee takes due note of these statements and requests the Government to supply copies of contracts that have been concluded between private enterprises and prisoners, whether or not they have been concluded through the prison management.
The Committee notes that, under the fifth paragraph of the model collaboration contract between the independent body "trabajos penitenciarios" and private enterprises, which was supplied by the Government, the "minimum inter-sectoral wage shall be determined when the contract is concluded in accordance with the standards laid down by the independent body 'trabajos penitenciarios'".
The Committee requests the Government to supply information on the standards laid down by the independent body "trabajos penitenciarios" for the determination of the inter-sectoral minimum wage and to indicate the wage levels actually paid under the contracts in question.
In its previous observation, the Committee noted that the Prison Regulations (RD No. 1201/81) do not establish clearly that the free consent of convicts is required for them to work in private enterprises.
The Committee noted the comments submitted by the Trade Union Confederation of Workers' Committees concerning the application of the Convention, in which the above organisation alleged that prisoners are not guaranteed the conditions of employment set out in agreements as regards working hours, remuneration and benefits. The Confederation also indicated that the conditions to which prisoners are subject as regards social security are not the same as those for other workers.
In its report the Government again states that productive prison labour is subject to the labour legislation (sections 185(1)(c), 185(2), 186(1), 189 and 191 of the Prison Regulations), implying that it is performed on a voluntary basis and that the specific standards contained in the Regulations are applied.
So that it can ascertain the current situation with regard to practice, the Committee asks the Government to provide copies of agreements that have been signed between prisons and private enterprises, of contracts signed between prisoners and private enterprises, and any other relevant information on the conditions of employment of convicts who work for private enterprises.
The Committee also asks the Government, so as to avoid any ambiguity, to take the necessary measures to establish the voluntary nature of labour by convicts in private enterprises, i.e. with regard to their explicit consent and the conditions of a free employment relationship.
In its previous observation, the Committee referred to the draft Royal Decree to govern the labour relations of convicts in prison and noted that this draft had not been given statutory effect. since the General Organic Prison Act and the Prison Regulations contained sufficiently broad and systematic regulations to give prison labour an adequate legal framework.
The Committee also noted the comments made by the Trade Union Confederation of Workers' Committees concerning the need to adopt special regulations respecting the free and remunerated labour of prisoners in order to improve observance of the Convention.
In its last report, the Government once again states that the above draft was not adopted and that it is now no longer possible to adopt it as the legal time-limit for doing so has passed and it would be necessary to issue the legal power to do so once again. Prison labour will therefore continue to be governed by the General Organic Prison Act (Act No. 1/79) and the Regulations thereunder (RD No. 1201/81).
The Committee refers to section 183 of the Prison Regulations under which all convicts are obliged to work in accordance with their physical and mental capacity. The same Regulations lay down the procedures for work under an open system and through an ordinary system of contracting labour to private enterprises. In previous comments, the Committee recalled, as it indicated in paragraphs 97 to 99 of its 1979 General Survey on the Abolition of Forced Labour, that the work of prisoners in the service of private employers is not compatible with the Convention, unless it is performed under the conditions of a free employment relationship, namely, based on the explicit consent of the persons concerned and subject to certain guarantees, particularly regarding wages and social security, consented to in appropriate cases by the trade unions concerned.
In its report, the Government states that productive prison labour is subject to the labour legislation (sections 185(1)(c) and 185(2)) which implies that it is performed on a voluntary basis and that the specific standards contained in the Regulations are applied.
The Committee notes the comments submitted by the Trade Union Confederation of Workers' Committees on the application of the Convention, in which it alleges that prisoners are not guaranteed the conditions of employment set out in agreements as regards working hours, remuneration and benefits. It adds that the conditions to which prisoners are subject as regards social security are not the same as those for other workers.
The Committee notes that the free consent of prisoners when working for private enterprises is not clearly established in the Prison Regulations. Furthermore, by referring explicitly to the termination of the employment contract of prisoners under the open system, which is to be governed by the normal labour legislation (section 188) and by categorically establishing the voluntary nature of labour for persons detained pending trial, the Regulations appear to confirm that labour is compulsory for convicts.
The Committee requests the Government to supply information on the measures that have been taken or are envisaged to establish the voluntary nature of labour in private enterprises for convicts, i.e. that they should give their explicit consent and that it should be under the conditions of a free employment relationship. The Committee also requests the Government to supply copies of agreements that have been signed between prison institutions and private enterprises and any other relevant information concerning the conditions of employment of convicts who work for private enterprises.