• Investigate and prosecute trafficking crimes, particularly labor trafficking crimes, and seek adequate penalties for convicted traffickers, including complicit officials, which should involve significant prison terms.
• Ensure all victims receive assistance by further increasing funding and availability of services and training employees of relevant institutions on understanding and applying NRM guidelines for referring victims to services.
• Proactively identify trafficking victims by screening for trafficking indicators among vulnerable populations, including children, migrants, and Roma.
• Introduce a sustainable financial mechanism for victim services and allocate adequate funding to service providers for the victim protection program.
• Ensure labor inspectors identify and report labor trafficking cases to law enforcement.
• Establish and implement a reliable comprehensive statistical system for collecting and collating victim identification and assistance data.
• Develop a formal mechanism that utilizes financial assets seized from convicted traffickers to supplement victim services and victim compensation.
• Train authorities, especially outside major cities, on investigating trafficking crimes, particularly labor trafficking and online sex trafficking crimes.
• Ensure trafficking victims are not inappropriately penalized solely for unlawful acts committed as a direct result of being trafficked.
• Enhance efforts to train law enforcement officials, prosecutors, and judges on victim-centered, trauma-informed approaches.
• Provide qualified legal counsel and courtroom protections for victims assisting prosecutions throughout the duration of criminal proceedings.

The government increased anti-trafficking law enforcement efforts.

Articles 159a-159d of the criminal code criminalized sex trafficking and labor trafficking and prescribed penalties of two to eight years’ imprisonment and a fine for crimes involving adult victims, and three to 10 years’ imprisonment and a fine for those involving child victims. These penalties were sufficiently stringent and, with respect to sex trafficking, commensurate with penalties prescribed for other grave crimes, such as rape. In 2024, the government enacted amendments to the criminal code extending the statute of limitations from 10-15 years to 20 years for trafficking crimes involving child trafficking victims, thereby providing authorities with additional time to investigate and prosecute such crimes.

In 2024, the Prosecution Service (PS) investigated 64 trafficking cases (50 sex trafficking and 14 labor trafficking), an increase from 52 investigations in 2023. The PS reported 171 investigations initiated in previous years remained ongoing. The PS prosecuted 33 traffickers (27 sex trafficking, five labor trafficking, one unspecified form of trafficking), compared with 31 prosecutions in 2023. Courts convicted 31 traffickers (24 sex trafficking and seven labor trafficking), compared with 39 convictions in 2023. The government also reported convicting 11 individuals for other forms of trafficking; however, it was possible some of the cases involved crimes that go beyond the scope of the international definition of trafficking. Courts issued custodial sentences for eight convicted traffickers and suspended sentences for 34 traffickers; suspended sentences weakened deterrence, did not adequately reflect the nature of the crime, and undercut broader anti-trafficking efforts. Courts issued suspended sentences to most first-time offenders of a crime – a standard practice among judges. Moreover, Bulgarian law allowed those convicted of a crime to be eligible for suspended sentences if the sentence received was for three years or less, which frequently happened in trafficking cases. Anti-trafficking advocates recommended amending the minimum sentence for trafficking from two to longer than three years to attempt to reduce the instances when convicted traffickers would receive suspended sentences. Some government and law enforcement officials criticized judges for not considering victims or the broader effects of lenient sentences for convicted traffickers. In order to clear case backlogs, prosecutors often agreed to plea bargains with traffickers, and courts approved ensuing settlements as a quicker and more cost-effective alternative to a full trial. In 2024, Bulgarian authorities cooperated with European counterparts on international investigations, multiple judicial requests, and eight extraditions. In addition, authorities participated in a Europol-led hackathon on online human trafficking. The Ministry of Interior (MOI) and its international partners maintained joint contact centers on the borders with Romania, Serbia, North Macedonia, Greece, and Türkiye and exchanged information about criminal activities, including trafficking cases.

Corruption in law enforcement and the judiciary, impunity or lack of meaningful sentences for complicit officials, and selective prosecution remained pervasive. Reports indicated some law enforcement and PS officials failed to follow up on potential labor trafficking cases or sometimes investigated such cases as violations of domestic labor rules, which carry lesser penalties. NGOs reported that law enforcement were sometimes reluctant to investigate trafficking cases because they either knew the traffickers or feared retaliation. In 2024, the government did not report any investigations, prosecutions, or convictions of government employees complicit in human trafficking crimes.

The MOI’s General Directorate for Combating Organized Crime (GDBOP) was the primary law enforcement department responsible for combating trafficking. GDBOP maintained a specialized police unit for investigating local and transnational trafficking cases involving organized crime. Other departments within the MOI, including the General Directorate for Border Police (GDBP) and the National Police, handled trafficking cases that did not involve organized crime. GDBP staffed specialized investigators for trafficking cases. The National Investigative Service (NIS) maintained a specialized criminal department that investigated cases related to serious crimes, including trafficking, with specialized investigators, but had limited jurisdiction over trafficking cases. NIS also maintained a cyber unit focused on internet-based crimes, including trafficking, and financial investigations to assist regional police in investigating crimes with online components. NGOs expressed concern authorities did not proactively investigate online cases, and the government lacked active policies for online child protection. Moreover, the increasing use of encrypted communications hindered authorities’ efforts to gather evidence for successful prosecutions, particularly involving online trafficking cases. NGOs reported authorities tended to focus on other crimes, such as drug trafficking or migrant smuggling, in rural areas, and recommended increasing capacity through specialized training and stronger interagency coordination. The PS did not have a dedicated unit responsible for investigating and prosecuting trafficking cases but specialized prosecutors worked throughout Bulgaria on human trafficking, among other crimes. The PS and the MOI maintained an interagency unit to monitor and support pre-trial investigations and collect and analyze information regarding organized crime groups and persons involved in human trafficking, drug trafficking, and migrant smuggling to enhance interagency cooperation and accelerate cases. The Ministry of Justice maintained the Council for Criminological Research assembling prosecutors, GDBOP, Supreme Court of Cassation judges, and academia to analyze criminal cases, including trafficking, and propose measures to improve the effectiveness of investigations and court proceedings. In 2024, the council published a report on human trafficking trends and preventing the crime, analyzing and making recommendations on current anti-trafficking laws, such as increasing the penalties for trafficking crimes, allowing for asset confiscation beyond the currently limited cases of recidivism or organized crime involvement, and using confiscated assets to finance a victim compensation fund. Authorities continued to seize financial assets from convicted traffickers; however, there was no formal mechanism in place to allow seized assets to supplement victim services or victim compensation.

Investigating and prosecuting labor trafficking cases remained a challenge. Observers criticized some investigative efforts among police and prosecutors, citing authorities sometimes used non-trafficking statutes, such as labor law violations, and called for more training for authorities involved in the criminal process, including judges. According to an NGO, law enforcement and judges lacked a common understanding about what constituted forced labor and recommended including the definition in the criminal code or adopting an interpretative decision by the Supreme Court. Observers reported some investigators, prosecutors, and judges continued to lack sensitivity toward trafficking victims and needed training on trauma-informed, victim-centered practices. Observers also reported uneven levels of knowledge about trafficking laws and referral procedures among investigators and prosecutors, particularly at the local level, and suggested it was easier for prosecutors to successfully prosecute immigration violations rather than trafficking crimes. To address knowledge gaps, the prosecutor general continued to mandate some prosecutors and investigative magistrates receive training on investigating and prosecuting trafficking cases. In 2024, NCCTHB, the agency that coordinated the government’s anti-trafficking efforts, in partnership with local commissions and other organizations conducted several trainings and seminars for investigators, prosecutors, judges, and social workers on various topics, including investigation methods, financial investigations, trauma-informed approaches, and victim identification.

The government slightly increased victim protection efforts.

In 2024, the government identified 207 trafficking victims (101 sex trafficking, 69 labor trafficking, and 37 other or unspecified forms of trafficking), a slight increase from 191 identified victims in 2023. Of the 207 identified victims, 46 were child victims (17 sex trafficking, four labor trafficking, 25 unspecified forms of trafficking), a notable decrease from 60 in 2023. Authorities identified 10 foreign victims, compared with five in 2023. Observers noted victim data collection remained inadequate and unreliable, including double counting, and, in turn, inhibiting the government’s ability to assess the scope of the trafficking problem.

The NRM standardized victim identification, referral, and assistance; defined the roles and responsibilities of different stakeholders; and included specific procedures for children and third-country nationals. NGOs reported the government had not updated the NRM in nearly a decade, and the outdated framework created challenges coordinating efforts to support victims, particularly third-country nationals. NGOs also reported NRM awareness and implementation outside of Sofia was lower than in the capital. Additionally, NGOs alleged some authorities did not proactively screen for trafficking indicators and could not effectively identify victims, especially among vulnerable groups, such as asylum-seekers, migrants, children in residential care, individuals in commercial sex, and members of the Romani community. To increase identification efforts, the NCCTHB, local commissions, and other partnering institutions trained relevant actors on implementation of the NRM, and the NCCTHB and the Regional Directorate for Border Police organized proactive screening days throughout the year to identify potential trafficking victims. The PS and law enforcement authorities were responsible for formally identifying potential trafficking victims, while government employees and NGOs could informally identify victims, allowing victims to access services and support programs immediately. The State Agency for Refugees (SAR) maintained guidelines to identify potential victims among foreigners seeking international protection, carry out risk assessments, assess immediate needs, and assist identified victims with accommodation, medical examinations, interviews, and special status pursuant to the Asylum and Refugees Act. SAR did not identify any trafficking victims in 2024. Authorities, NGOs, and the NCCTHB referred victims to services after determining their immediate needs. In 2024, the government referred 97 identified victims to services, a more than three-fold increase from 21 victims in 2023, but only assisted 62 of 207 identified victims (30 percent) a similarly low number as in 2023 when it assisted 56 of 191 victims (28 percent).

Under the NRM, all formally or informally identified domestic and foreign trafficking victims received access to services, including counseling, shelter, medical support, and reintegration assistance, regardless of their participation in investigations or prosecutions. The NCCTHB contracted two NGOs to operate seven dedicated centers and shelters – three counseling centers, three shelters for temporary accommodation, and one shelter for reintegration – providing specialized services for adult trafficking victims. The shelters accommodated only female trafficking victims. The government did not fund or operate any specialized shelters for male victims, but they could stay in the reintegration shelter as needed. In 2024, the NCCTHB provided 484,640 Bulgarian lev (BGN) ($257,790) for the seven dedicated centers and shelters, more than double the amount in 2023 – 233,628 BGN ($124,270). Additionally, in March 2025, the NCCTHB completed a one-year public procurement procedure for the three dedicated trafficking shelters in Burgas, Sofia, and Varna. As the procurement was only for one year, there was no consistent funding mechanism in place to ensure the sustainability of the shelters from year to year. Experts noted that although the shelters’ funding was significantly increased in 2024, the victim protection program remained insufficiently funded compared to the demand for services, hampering implementation of a victim-centered approach, and the financial resources invested did not correspond with the actual needs. Observers noted some shelter staff lacked expertise and training in trafficking and trauma-informed approaches, leaving some victims without adequate assistance. Observers also noted the limited number of dedicated shelters for trafficking victims, particularly for men and children, throughout the country resulted in some victims without sufficient protection. While there were other crisis centers and shelters available to trafficking victims, they were foremost intended for victims of violence; in 2024, two trafficking victims received services at crisis centers. The Agency for the Quality of Social Services monitored and conducted inspections of service providers, municipalities, and local bodies for compliance with requirements and quality of services.

Child victims of violence, including trafficking, could stay in municipality-operated crisis centers for up to six months at which point the State Agency for Child Protection (SACP) could place them with relatives, a foster family, or another residential care facility. The crisis center for children in Sofia granted priority to child trafficking victims. Mobile crisis intervention teams were available to provide immediate socio-psychological assistance when necessary, through the Agency for Social Assistance (ASA). ASA, in conjunction with regional education departments and health inspection directorates, provided guidance on reporting potential child victims to all schools, kindergartens, nurseries, support centers, residential care facilities, and medical facilities; social workers investigated any reports. The Social Assistance Directorate created a multidisciplinary team for every child trafficking case to develop an action plan for protection; social workers, in coordination with the team, were responsible for evaluating cases within 24 hours. Child protection departments of the Directorate actively monitored child trafficking cases for one year, with the possibility of an extension, to provide necessary support and prevent children from being re-victimized. In 2024, child protection departments supported nine child trafficking victims. SAR or municipal social service centers provided specialized support services to foreign child trafficking victims in Sofia and Harmanli. SACP provided support services to unaccompanied children – a population vulnerable to trafficking – and maintained an interagency coordination mechanism for identification, referral, protection, and support of unaccompanied children and repatriated child trafficking victims. SACP tracked unaccompanied children registered in the national system and maintained a database of unaccompanied and separated children from third countries who were seeking or had already received international protection. The government implemented its four-year national program for the prevention of violence and child abuse, which included activities for child trafficking victims, such as reintegration. SACP operated the 24-hour national hotline for children at risk, including trafficking, providing information, counseling, assistance, and a means to identify potential victims. During the reporting period, the hotline received 33 reports of children at risk of trafficking and exploitation. Local commissions and other institutions trained social workers and juvenile prevention officers throughout the year on understanding trafficking and identifying child victims.

Bulgarian law allowed foreign victims participating in criminal proceedings to receive long-term residence permits and work in Bulgaria for the duration of the proceedings. For foreign victims who chose not to participate in criminal proceedings, the government provided a 30-day recovery period (60 days for foreign child victims) before repatriation. Observers noted some victims did not participate in criminal proceedings because they did not believe the judicial system would protect them, effectively administer justice, or convict perpetrators with meaningful sentences. In 2024, the NCCTHB reported 20 victims participated in criminal proceedings. The law exempted trafficking victims from punishment for unlawful acts committed as a direct result of being trafficked; however, practitioners noted this law did not provide full exemption as force was not always applied. While the law provided free legal assistance to victims, qualified legal aid was difficult to access, and NGOs noted lawyers required more training working on trafficking cases. The National Office for Legal Assistance continued to implement a three-year project to improve access to justice for persons living below the poverty line, with a focus on women, children, and Roma, allocating 1.47 million BGN ($781,910) for the duration of the project. The project provided legal aid to persons from vulnerable groups, improved coordination between different municipal and local authorities, supported various administrative units helping victims, and improved the capacity of lawyers in this area. The process for seeking compensation remained overly bureaucratic and discouraged victims from filing civil suits. In addition, the law only entitled trafficking victims to financial compensation for material damages after the completion of criminal proceedings. NGOs noted victims were responsible for providing proof of damages, which they typically could not prove, to receive compensation, which could not exceed 10,000 BGN ($5,320). NGOs called for the government to use seized assets to fund victim compensation and raise the maximum amount allowed. In 2024, the NCCTHB, along with other institutions, continued to train lawyers, employees of the National Office for Legal Assistance, social workers, psychologists, and representatives from service providers on victim compensation. Courts did not award restitution to any trafficking victims in 2024.

Due to inadequate/inconsistent screening among vulnerable populations, the government did not take effective measures to prevent the inappropriate penalization of potential victims solely for unlawful acts committed as a direct result of being trafficked. Observers noted police did not understand individuals in commercial sex were vulnerable to trafficking or the non-punishment provision for crime victims could apply to them. For example, law enforcement often viewed members of the Romani community as voluntarily engaging in commercial sex and did not consider them trafficking victims. In 2024, reports persisted of “pushbacks” of asylum-seekers and migrants along the border with Türkiye; such “pushbacks” involved a practice that potentially increased a person’s vulnerability to trafficking, exacerbated distrust of foreign officials, and disallowed for the reporting of any exploitation experienced.

The government increased prevention efforts.

In 2024, the Council of Ministers adopted a new NAP, which included several anti-trafficking initiatives, such as updating anti-trafficking laws, establishing a register for child trafficking victims, and enhancing data collection. The NCCTHB acted as the national rapporteur, implemented the NAP, governed national anti-trafficking policies, and facilitated international cooperation. In addition, the NCCTHB maintained a permanent working group with anti-trafficking experts from relevant government institutions, civil society, international organizations, and NGOs. The NCCTHB devolved regional efforts to 10 local anti-trafficking commissions, comprising judges, prosecutors, law enforcement officials, municipal employees, and other civil servants. Over the past three years, under multiple caretaker governments, the NCCTHB faced challenges executing critical functions and working on long-term projects due to limited financial and human resources. However, the regular government in 2023-2024 appointed a permanent secretary, hired new employees, and allocated additional funding for anti-trafficking programs, which remained in place under the caretaker governments in 2024-2025. During the reporting period, the NCCTHB’s work stabilized, and they completed several anti-trafficking projects, such as developing the new 2025 NAP, organizing an international anti-trafficking conference, coordinating trainings and awareness campaigns, and completing a public procurement procedure for shelters. Nonetheless, observers continued to note the NCCTHB faced insufficient funding, inconsistent coordination with stakeholders, and challenges identifying and assisting victims. In 2024, the government allocated 644,400 BGN ($342,770) to the NCCTHB for anti-trafficking programs, including shelters, services, trainings, and prevention activities, nearly doubling its 2023 allocation of 326,900 BGN ($173,880). According to observers, the increase only slightly improved anti-trafficking initiatives and victim services. Some municipalities funded and conducted separate anti-trafficking initiatives but did not report the amount allocated. In 2024, SAR and a civil society foundation signed an agreement to implement campaigns, projects, and trainings for recognizing and assisting human trafficking victims, particularly among individuals and children seeking international protection. Additionally, in 2024, the NCCTHB and the local commissions conducted multiple campaigns and information sessions, including raising awareness about online trafficking and trafficking risks, targeting vulnerable groups, such as children, migrants, and Roma. The NCCTHB maintained a phone line, email, and website for the public to inquire about or report trafficking-related crimes. The government continued to support an NGO-run hotline for victims of violence, including trafficking, allocating 64,000 BGN ($34,040), and received 13 calls related to potential trafficking cases. Separately, the government supported a dedicated NGO-run hotline through consultative services, including advice on assistance and identification, and promotional materials; the NCCTHB also trained hotline employees who identified 15 potential trafficking victims. The government made efforts to reduce the demand for commercial sex acts by criminalizing the purchase of organized commercial sex, which includes brothels and commercial sex rings.

Experts noted systemic issues, such as the lack of resources, limited legal authority to identify and pursue labor trafficking cases, and insufficient training impeded labor inspectors’ ability to enforce laws effectively. To address this concern, the government trained inspectors and professionals working with migrants to recognize trafficking indicators and take the necessary steps to prevent the crime. Additionally, in 2024, the NCCTHB, the Council of Europe, and a regional security organization organized an international conference on strengthening the role of the private sector in combating human trafficking and labor exploitation in supply chains. Separately, the NCCTHB and an NGO hosted an international conference on best practices for mitigating labor trafficking risks among third-country nationals and fostering collaboration between government and civil society. Bulgarian labor laws prohibited employers and labor agents from charging recruitment fees, withholding identity documents, unilaterality changing employment contracts, or delaying payment of workers’ wages. NGOs criticized the government for failing to identify and prosecute cases of severe labor exploitation, including labor trafficking, alleging authorities focused instead on labor law violations that carried administrative sanctions. The General Labor Inspectorate (GLI) conducted inspections to oversee implementation of labor regulations, including subcontractors who employed “posted” or temporary workers. The GLI operated two national hotlines for reports regarding labor laws and workers’ rights violations, respectively. In suspected labor trafficking cases, the GLI conducted joint actions with GDBOP. The government continued outreach work on labor trafficking, including conducting information sessions for seasonal workers and publishing information on safe labor migration and protection from labor trafficking. The Employment Agency retained Roma labor mediators to conduct consultations with individuals predominantly of Roma ethnic origin, assist with work placement, advise on labor rights, and inform of trafficking risks. The Bulgarian and German ministries of labor continued a bilateral work program to combat labor trafficking, including joint anti-trafficking activities, informational campaigns targeting the large number of Bulgarians seeking employment in Germany, and a bilateral referral mechanism for trafficking cases between the countries. In addition, the governments of Bulgaria and the Republic of Moldova signed an agreement on the regulation of labor migration, which included measures to prevent trafficking, offer fair working conditions, and protect third-country nationals from labor trafficking and fraud. The agreement also included a standard template for labor contracts and established clear recruitment rules. The Ministry of Labor and Social Policy maintained labor offices in EU countries with large Bulgarian communities and considered high-risk trafficking destinations; the offices provided information and advice to job seekers on trafficking and reported cases to the NCCTHB for repatriation.

Trafficking affects all communities. This section summarizes government and civil society reporting on the nature and scope of trafficking over the past five years. Human traffickers exploit domestic and foreign victims in Bulgaria, and traffickers exploit victims from Bulgaria abroad. Bulgaria remains one of the primary source countries of human trafficking in the EU. Populations vulnerable to trafficking include children in residential care, individuals in commercial sex, migrants, persons with disabilities, persons who are homeless, persons with little education and income, and Roma. Sex trafficking remains the most prevalent form of trafficking in Bulgaria; young women from Ukraine, Africa, and the Middle East are especially vulnerable. Family- or clan-based organizations and independent traffickers are overwhelmingly of Romani ethnicity and usually know the victims. Sex trafficking rings typically consist of Bulgarian traffickers who cooperate with foreign nationals in destination countries but have no direct ties to foreign organized crime groups. Traffickers increasingly use technology, such as social media and messaging applications to recruit victims through fake job advertisements and exploit victims in commercial sex. Women and girls from the Romani community forced into marrying third-country nationals are vulnerable to sex trafficking and labor trafficking; the “husbands” use the marriages to obtain EU residency benefits. Traffickers exploit Bulgarian women and girls in sex trafficking throughout Western Europe and in Bulgaria, particularly in the capital, resort areas, and border towns. Traffickers exploit Bulgarian men and boys in forced labor across Europe, predominantly in the agriculture, construction, and hospitality industries. Reports indicate an increase in labor trafficking among women exploited in the service sector, such as cleaners and caregivers, and unemployed, middle-aged men. Foreign workers in Bulgaria are vulnerable to forced labor, including domestic servitude. Traffickers involved in legitimate businesses control victims by confiscating identity documents and threatening them. Traffickers exploit Bulgarian men with disabilities in forced begging abroad. Traffickers exploit children in forced criminality, particularly begging, the distribution of narcotics, and pickpocketing. NGOs report the exploitation of children, particularly Romani children, in the informal economy, mainly in agriculture, construction, hospitality, and the service sector. A UN special rapporteur report found child sexual exploitation, including potential sex trafficking, prevalent among children living in government-run institutions. Asylum-seekers and migrants from Afghanistan, Syria, and Iraq, some potential trafficking victims, transit Bulgaria en route to western Europe. Thousands of Ukrainian refugees fleeing the Russia-Ukraine War and seeking sanctuary in Bulgaria are highly vulnerable to trafficking. Government corruption in law enforcement and the judiciary allegedly continues to enable some trafficking crimes.