According to the U.S. Department of State’s 2026 Trafficking in Persons Report, Serbia remains on Tier 2. This designation means that the government does not fully meet the minimum standards for the elimination of trafficking but is making significant efforts to do so. The report notes progress in certain areas while highlighting serious shortcomings in victim identification and protection, access to justice, and the response to allegations of forced labor involving foreign workers.
More Convictions, but Fewer Alleged Traffickers Prosecuted
In 2025, police investigated 13 trafficking cases, compared with 11 the previous year. Courts convicted 27 traffickers, up from 21 in 2024, while the number of alleged traffickers prosecuted fell from 32 to 27. The number of specialized prosecutors increased from 25 to 38, but no system was established to ensure that cases are consistently referred to prosecutors and judges with relevant expertise and experience. Potential sex trafficking cases continued to be prosecuted under offenses carrying more lenient penalties, such as mediation in prostitution.
Fewer Victims Identified Despite Increased Referrals
According to the report, 58 victims were officially identified in 2025, compared with 64 in 2024, although the number of potential victims referred to the Center for Protection of Trafficking Victims increased from 184 to 285. Those identified included 24 children and 21 foreign nationals. Insufficient proactive identification and a lack of interpretation services remain barriers to effective protection.
The report particularly highlights the penalization of victims for unlawful acts committed as a direct result of their exploitation: at least two victims of forced criminality received prison sentences. Twenty-one victims were granted “especially vulnerable witness” status, while technical arrangements for testimony via video link and access to professional support were not consistently available. No compensation was awarded to victims as part of criminal sentences.
NGOs Provide Most Support, While Allocated Funds Remain Undisbursed
The Department of State emphasizes that NGOs continue to provide most victim support and reintegration services, while NGO-run shelters accommodate most victims requiring long-term assistance. According to the report, the government allocated 22 million dinars for NGOs to provide these services, but the funds were not disbursed, largely due to delays in licensing organizations. The report also highlights the lack of specialized support for children and male victims, as well as cases in which children were returned to their families even when their parents were involved in their exploitation.
Lack of an Effective Response to Forced Labor Allegations
Of particular concern is the lack of progress in the investigation into forced labor allegations at a Chinese-owned tire manufacturing plant in Zrenjanin, alongside the absence of reported investigations into similar allegations at Chinese-owned copper mines. The report describes passport confiscation, wage withholding, debt bondage, threats, forced overtime, and inadequate living conditions. It also notes that authorities dismissed claims that foreign workers were trafficking victims without fully screening the workers or investigating the allegations.
The report further highlights ineffective regulation of recruitment agencies, the failure to hold them accountable for fraudulent recruitment, and the absence of a prohibition on charging recruitment fees to workers. These findings point to the need for a stronger institutional response, better protection of workers, and sustainable funding for specialized victim support.
The full report is available on the U.S. Department of State website.