TRAFFICKING

IN PERSONS R EPORT

J U N E 2003

TRAFFICKING VICTIMS PROTECTION ACT OF 2000

Dear Reader:

The Annual Trafficking in Persons Report is about modern day slavery and slave trading.
It is appalling that in the twenty-first century hundreds of thousands of women, children,
and men made vulnerable by civil conflict, dire economic circumstances, natural disasters
or just their own desire for a better life are trafficked and exploited for the purposes of
sex or forced labor. The deprivation of a human being’s basic right to freedom is an
affront to the ideals of liberty and human dignity cherished by people around the world.

The President, members of Congress, and I share a commitment to end modern day
slavery. This report is an important diplomatic tool towards that goal. The report details
international and U.S. efforts to end trafficking in persons, to protect and help victims,
and prosecute those who treat people like commodities or keep them in slave-like condi-
tions. The report emphasizes the human side of trafficking through victim stories and
highlights innovative measures some countries are using to prevent trafficking in per-
sons, prosecute those who traffic in human misery, and protect those most vulnerable to
this transnational crime. The Department of Justice is issuing a report this Spring that
will assess the United States Government’s efforts to combat trafficking domestically.

This year, because of tough provisions in the Trafficking Victims Protection Act of 2000,
there is a cost for turning a blind eye to trafficking in persons. Some countries could
potentially lose some forms of U.S. aid if their anti-trafficking efforts do not significantly
improve between the issuance of this report and a sanction decision by later this autumn.

I hope that this report will be informative and lead countries to strengthen their efforts to
combat trafficking in persons. All of us can and must do better in this struggle for
human liberty and dignity.

Sincerely,

Colin L. Powell
 TABLE OF C ONTENTS

I. INTRODUCTION........................................................................................................5
Who Is Being Trafficked?....................................................................................6
Who Are the Traffickers?....................................................................................6
What is the Scope and Magnitude of the Problem? ..........................................7
Why is Trafficking Flourishing? ..........................................................................7
Poverty and Desire for a Better Life...........................................................7
Ignorance of Trafficking’s Consequences ..................................................7
Disruption of Societal Values ....................................................................8
Political and Economic Instability .............................................................8
Demand for Cheap Labor...........................................................................9
High Profits ...............................................................................................9
Low Risk ....................................................................................................9
The Toll of Trafficking ..............................................................................10
Trafficking Is A Human Rights Violation and A Crime .............................10
Trafficking Increases Social Breakdown ..................................................10
Trafficking Deprives Countries of Human Capital ...................................10
Trafficking Undermines Public Health .....................................................11
Trafficking Subverts Government Authority .............................................11
Trafficking Funds Illicit Activities, Organized Crime................................11

About the Report

Definition of Severe Forms of Trafficking Box ..........................................12
What the Report Is and Is Not .................................................................13
Why This Year’s Report is Different..........................................................13
How the Report is Used ...........................................................................14
Methodology ............................................................................................14
The Tiers ..................................................................................................15
Minimum Standards................................................................................15
Penalties .................................................................................................16
Tier Movement .........................................................................................16
Areas for Improvement ............................................................................17

II. INTERNATIONAL LOW-COST BEST PRACTICES .........................................................18

III. TIER PLACEMENTS.................................................................................................21
IV. COUNTRY NARRATIVES...........................................................................................22
V. SPECIAL CASES ...................................................................................................165
VI. USG EFFORTS ......................................................................................................169
VII. RELEVANT INTERNATIONAL CONVENTIONS–MATRIX ...............................................172

3
These women from
Southeastern Europe
were found during a
raid of a night club
after the police raid-
ed the club in search
of trafficking victims.
 I NTRODUCTION

A trafficker recruited Nina, a 19-year-old from southeastern

Europe, to work as a waitress, but then raped, beat, and
drugged her, forcing her into prostitution. After a daring escape, her
trafficker hunted her down and kidnapped her. Taken into custody during a
police raid, Nina agreed to be a witness against her trafficker. The police
officer assigned to protect her gave away her location and her trafficker
threatened her life. At the trial, she was forced to sit next to her traffickers
and was insulted and humiliated by the judge and defense counsel. Her
pimps were found guilty but released on appeal. For her own survival, Nina
has fled to another country and assumed a new identity.

A S UNIMAGINABLE AS IT SEEMS, SLAVERY

and bondage still persist in the early twenty-

situations of forced labor and sexual slavery
with virtually no risk of prosecution. The
first century. Millions of people around the traffickers also exploit lack of political will
world still suffer in silence in slave-like sit- by governments to tackle trafficking and its
uations of forced labor and commercial sex- root causes. Corruption, weak inter-agency
ual exploitation from which they cannot free coordination, and low funding levels for min-
themselves. Trafficking in persons is one of istries tasked with prosecuting traffickers,
the greatest human rights challenges of our preventing trafficking, and protecting victims
time. It is, as the International Labour also enable traffickers to continue their oper-
Organization (ILO) points out, the “under- ations. The transnational criminal nature of
side of globalization.” trafficking also overwhelms many countries’
Human trafficking not only continues but law enforcement agencies, which are not
appears to be on the rise worldwide. Many equipped to fight organized criminal net-
nations are touched by it in some way, serv- works that operate across national boundaries
ing as source, transit, and destination coun- with impunity.
tries where human beings are
procured, transported, and A young 10 year old boy
enslaved through forced labor or shows his badly scarred
forearm at his home vil-
forced sexual exploitation.
lage in South Asia. He
Traffickers exploit the aspira- was bitten by a camel
tions of those living in poverty after being abducted and
and those seeking better lives. trafficked to a Near
They use dramatic improve- Eastern country four years
ago and forced to work as
ments in transportation and
a camel jockey.
communications to sell men,
women, and children into

5
 UZMA WAS TRAF-
FICKED FROM SOUTH This young girl was kid-
ASIA to a Middle napped, raped at gun-
Eastern country to point, and tortured by a
work as a domestic. rebel group in Eastern
Her employer took Africa. Her father and
her papers, beat her brother were murdered
regularly, and gave by the rebels and her
her little food. Male four sisters abducted.
relatives began sexu- Some rebel groups have
ally abusing her and been known to abduct
then took her to African women and
hotels, forcing her to girls to use them for
have sex with up to servants and sex slaves.
ten men over the
course of a few days.
She was locked in the
house and never
paid. She escaped
when a young boy opened the door. She the language and unfamiliar with the culture.
was picked up by police, who ordered Most importantly, the victims lose their sup-
her employers to send her back to her port network of family and friends, thus
country. The employers sent her back, making them more vulnerable to the traffick-
but only after three more days of prosti- ers’ demands and threats.
tuting her.
MERCY ESCAPED HER SLAVERS LAST YEAR.
Who Is Being Trafficked? Women, children Like many West African women smug-
and men are trafficked into the international gled or lured into Italy with the promise
sex trade and into forced labor situations of jobs, Mercy was forced into prostitu-
throughout the world. Women are lured by tion to earn her freedom. She was able
promises of employment as shopkeepers, to escape with the assistance of a reli-
maids, seamstresses, nannies, or waitresses gious order. Escape did not end her
but then find themselves forced into prostitu- nightmare. Three weeks after speaking
tion upon arrival to their destination. Many publicly to human rights groups about
victims are unaware that their travel docu- her experience, her sister was reported
ments will be seized, they will have to repay dead in Florence, true to the threats
an enormous debt, or that they will be sub- made by her former captors.
ject to brutal beatings if their earnings are
unsatisfactory. These victims do not know Who Are the Traffickers and How Do They
how to escape the violence or where to go Recruit Individuals? Traffickers use threats,
for help. The victims generally avoid author- intimidation and violence to force victims
ities out of fear of being jailed or deported, to engage in sex acts or to labor under con-
especially if they have fraudulent documents. ditions comparable to slavery for the traf-
Traffickers often move victims from their fickers’ financial gain. Traffickers may be
home communities to other areas—within freelancers or members of organized crimi-
their country or to foreign countries—where nal networks. They may recruit and find
the victim is often isolated, unable to speak potential victims through advertisements in

6
local newspapers offering good jobs at high estimate includes men, women, and chil-
pay in exciting cities or use fraudulent trav- dren trafficked into forced labor and sexual
el, modeling and matchmaking agencies to exploitation as defined in the Trafficking
lure unsuspecting young men and women Victims Protection Act of 2000. This esti-
into trafficking schemes. A trafficker may mate does not include internal trafficking.
be a family friend or someone well-known The new figures were generated from a
within the community who is able to con- database that examined reports of specific
vince the families that their children will be trafficking incidents, counts of repatriated
safer and better taken care of in a new victims, estimates for victims worldwide,
place. Traffickers often mislead parents and victim demographics derived from
into believing that their children will be analysis of information from press, govern-
taught a useful skill or trade—but the chil- ments, non-governmental and international
dren end up enslaved in small shops, on organizations, and academic reports from
farms, or in domestic servitude. Traffickers 2000 to the present.
also promise parents that they will marry
their daughters—but the girls are forced Why Is Trafficking Flourishing?
into prostitution. Traffickers also kidnap Poverty and Desire for a Better Life.
and abduct victims. Traffickers exploit impoverished and vulnera-
ble individuals seeking a better life. In coun-
What Is the Scope and Magnitude of the tries with chronic unemployment, widespread
Problem? No country is immune from traf- poverty or a lack of economic opportunities,
ficking. A recent U.S. Government estimate traffickers use promises of higher wages and
indicates that approximately 800,000- good working conditions in foreign countries
900,000 people annually are trafficked to lure individuals into their schemes. Many
across international borders worldwide and times the individuals have jobs or advanced
between 18,000 and 20,000 of those victims degrees but believe the traffickers’ promises
are trafficked into the United States. This because they want better lives.

Ignorance of Trafficking’s
A young Southeast Consequences. Most fami-
Asian girl cries on lies and victims are unaware
the back of a police of the dangers of trafficking
truck after being because of the “success sto-
convicted of illegal ries”, displays of wealth, or
entry. She was one remittances back to villages
of 14 young prosti- from relatives working
tutes, who social abroad or in urban areas that
workers claim were provide powerful incentives
trafficked into the for others to migrate for
commercial sex trade work. The negative conse-
against their will. quences of trafficking and
horror stories do not often
enough trickle back to rural
areas or at-risk populations.
Trafficking victims are often
ashamed or afraid to return
home if they have not made

7
 good money, have not
fulfilled the terms of the
working arrangements This seven-year-old
imposed by traffickers, boy washes tea
have contracted a sexual- glasses in South
ly transmitted disease or Asia. Child workers,
have lost social status. many of whom are
trafficked, are seen
Disruption of Societal in nearly every
Values. Greed and the industry from carpet
widespread subjugation weaving to candy
of women in much of factories. Police also
the world facilitate traf- report that boys are
ficking. Poor countries being driven into
have been flooded with prostitution.
images of wealth and
prosperity beamed in
through television or
radio and lavish displays
of wealth send powerful
messages to impover-
ished citizens about the
benefits of material acquisition. More often rebels killed him. Jonah is now four-
than not, an “ends justifies the means” teen, the civil war is over, and he lives
rationale has taken root within communities in the streets hawking goods because he
to legitimize the source of the wealth, has nowhere else to go.
regardless of how acquired. The low status
of women and girls in some societies con- Political and Economic Instability. Areas
tributes to the growing trafficking industry of conflict and post-conflict as well as tran-
since female lives are not as highly valued sitioning states are easy targets for those
as those of men and boys. Often, ethnic interested in plundering a country’s
minorities or lower class groups are more resources, including exploitation of its peo-
vulnerable to trafficking. In some societies, ple. Sudden political change, economic
the practice of entrusting poor children to collapse, civil unrest, internal armed con-
more affluent relatives may lead to abusive flict, and natural disasters greatly increase
and exploitative situations. the likelihood that a country will become a
source of trafficking victims as displaced
THE REBELS CAME TO JONAH’S VILLAGE populations are highly vulnerable to
in Sierra Leone when he was 10 years exploitation, abuse, and trafficking. In
old. Jonah’s mother refused to go with these environments, the victims may be one
the rebels and was raped and killed. of the few resources of marketable wealth.
Jonah and the other children were Hundreds of thousands of men, women, and
forced to walk days without food while children have been exploited in armed con-
carrying heavy supplies. When they flict zones, where government militaries
reached the rebel camp, they were and rebel commanders profit from the serv-
trained to kill and taught to loot vil- ices of child soldiers, porters, and sex
lages. His friend tried to escape but the slaves, and in post-conflict and transitioning

8
states where organized criminal groups High Profits. Modern-day slavery also
often fill power vacuums created by war, thrives because of its profitability. United
political change, and economic upheaval. Nations estimates indicate that trafficking
in persons generates $7 to 10 billion annu-
AN EMPLOYMENT AGENCY HELPED ally for traffickers. Human cargo can often
SUTINAH migrate within Southeast Asia be moved across borders and past immigra-
to work as a domestic. Upon arrival, her tion officials easier than narcotics or
documents were seized and she was told weapons caches, which are often seized
by the recruiting agency she had to work when found. Trafficking victims, even if
off a severely inflated debt. Her employ- caught, can be re-trafficked. Traffickers
er beat her, burned her with a hot iron, can make additional money off victims by
and refused to pay her. Unaware of her re-selling them to another employer after
rights, fearful she would never get paid their often-inflated debt is paid. Traffickers
if she complained, and knowing that if may earn a few hundred to thousands of
she left her employer she would have dollars for a trafficked child laborer and
only two weeks to find another job brothel owners may make a few thousand to
before being deported, Sutinah endured tens of thousands of dollars for each
the situation for three years. She even- woman forced into prostitution.
tually escaped this exploitation with the
assistance of a workers union. Low Risk. Traffickers often go unpunished
for their crimes where there is little rule of
Demand for Cheap Labor. Changes in for- law, lack of enforcement of existing anti-
mal and informal economies have increased trafficking laws, and corruption of law
the global demand for cheap and malleable enforcement institutions. Cases regularly
labor in many areas of the world. In many fall apart due to a lack of protection for wit-
countries, development patterns and imbal- nesses, family involvement in sending a son
ances between labor supply and the avail- or daughter away, or fear of deportation.
ability of legal work have created the Victims of trafficking are afraid of retalia-
demand for highly mobile workers to fulfill tion from the traffickers, recrimination with-
low-skill and service sector jobs. Lack of in their families and villages, and in cases of
employment and educational opportunities trafficking for sexual exploitation, the stig-
in villages or poor urban areas create a ma of prostitution. Governments and rebels
ready pool of vulnerable workers. are rarely held responsible for the forcible

These workers sew at a

maquila, or sweatshop in
Central America. Many
Central Americans have
been trafficked into forced
labor situations, including
sweatshops, where they
toil under harsh conditions
of indentured servitude.

9
 recruitment of combatants and sex slavery support networks makes the trafficking vic-
involving countries formerly in conflict. tim more vulnerable to the traffickers’
demands and threats and contributes to the
The Toll of Trafficking. Populations vulner- breakdown of societies. For families and
able to trafficking are growing with poten- communities, trafficking weakens parental
tially disastrous effects on the entire world authority, undermines extended family rela-
community. The number of orphans in many tionships, and eliminates the family’s nurture
developing countries is rising dramatically, and moral development of children.
thanks to civil conflicts and HIV/AIDS. The Trafficking interrupts the passage of know-
rapid rise of child-headed households is cre- ledge and cultural values from parent to child
ating fertile ground for traffickers. and from generation to generation, weaken-
ing a core pillar of society. Victims who do
Trafficking is a Human Rights Violation return to their communities may be more
and a Crime. Traffickers violate the univer- likely to become involved in criminal activity.
sal rights of all persons to life, liberty, and
freedom from slavery in all its forms. Trafficking Deprives Countries of Human
Trafficking undermines the basic need of a Capital. Trafficking has a negative impact
child to grow up in a protective environment on the labor market in countries, according
and human rights of children to be free from to the ILO, contributing to an irretrievable
sexual abuse and exploitation. Hundreds of loss of human resources for developing
men, women, and children die in transit or countries. Long-term effects of trafficking
upon arrival at their destination. Thousands include depressed wages for all workers, a
of victims are killed for refusing to submit to lower number of individuals left to care for
forced labor or sexual slavery, or for trying to an increasing number of elderly persons,
escape. Others die from contracting diseases social imbalances in the proportion of males
or suffering abuse during their enslavement. to females, and an undereducated genera-
tion. Forcing children to work at an early
Trafficking Increases Social Breakdown age and subjecting them to 10 to 18 hours
and Promotes Crime. The loss of family of work per day denies them access to the

This young woman, a traf-

ficking survivor from
South Asia, is accepting a
human rights award. She
spent two years in a
brothel in a neighboring
country after a family
friend sold her to a
madam. After escaping
with her young daughter,
she joined an organization
dedicated to freeing girls
forced into prostitution.

10
 This woman and her seven-
month old son look out
through their cell window
from prison. In many cases,
trafficked women wind up
being treated as criminals
and jailed instead of being
treated as victims and given
protection and assistance.

education necessary to break the cycle of cise control over the entire national territo-
poverty and illiteracy that makes conditions ry. Trafficking operations thwart govern-
ripe for trafficking. At-risk individuals can- ment attempts to exert that authority while
not acquire the skills necessary to compete undermining public safety, particularly the
in their country’s labor market, leaving security of vulnerable populations. Some
national labor forces ill-equipped to com- governments are unable to protect women
pete in the global economy, where success and children, who have been kidnapped
is based on skilled workers. from their homes, schools, or refugee
camps. Moreover, the bribes traffickers pay
Trafficking Undermines Public Health. challenge a government’s ability to combat
Trafficking brutalizes men, women, and corruption among law enforcement, immi-
children, exposing them to rape, torture, gration, and judicial officials.
and to HIV/AIDS and other sexually trans-
mitted and infectious diseases, violence, Trafficking Funds Illicit Activities and
dangerous working conditions, poor nutri- Can Feed Organized Crime Activities. The
tion, and drug and alcohol addiction. profits from human trafficking may
Increasing numbers of adults and children strengthen criminal groups by funding other
trafficked into prostitution as well as street illicit activities while weakening govern-
children are contracting HIV/AIDS. ment attempts to establish rule of law.
Trafficked children are less likely to partic- Organized criminal groups, gangs, docu-
ipate in immunization programs, defeating ment forgers, brothel owners, and corrupt
government efforts to eradicate early child- police or immigration officials funnel traf-
hood diseases. Severe psychological trau- ficking profits into both legitimate and
ma from separation, coercion, sexual abuse, criminal activities. Human traffickers are
and depression often leads to a life of often highly successful because of links
crime, drug and alcohol addiction, and sex- with other transnational criminal groups,
ual violence. such as arms dealers, drug traffickers, and
car theft rings, which provide them with
Trafficking Subverts Government safe and tested routes, access to cash,
Authority. Many governments do not exer- forged documents, and officials to bribe. ■

11
 D EFINITION OF “S EVERE F ORMS
OF T RAFFICKING IN P ERSONS ”

The Act defines “severe form of trafficking in persons” as

(a) sex trafficking in which a commercial sex act is induced by force,

fraud, or coercion, or in which the person induced to perform such an
act has not attained 18 years of age; or

(b) the recruitment, harboring, transportation, provision, or obtaining of a

person for labor or services, through the use of force, fraud or coercion
for the purpose of subjection to involuntary servitude, peonage, debt
bondage, or slavery.

Definition of Terms Used in the Term “Severe Forms of Trafficking in Persons”

“Sex trafficking” means the recruitment, harboring, transportation, provi-

sion, or obtaining of a person for the purpose of a commercial sex act.

“Commercial sex act” means any sex act on account of which anything of
value is given to or received by any person.

“Coercion” means (a) threats of serious harm to or physical restraint against

any person; (b) any scheme, plan or pattern intended to cause a person to
believe that failure to perform an act would result in serious harm to or
physical restraint against any person; or (c) the abuse or threatened abuse
of the legal process.

“Involuntary servitude” includes a condition of servitude induced by means

of (a) any scheme, plan, or pattern intended to cause a person to believe
that, if the person did not enter into or continue in such condition that
person or another person would suffer serious harm or physical restraint;
or (b) the abuse or threatened abuse of the legal process.

“Debt bondage” means the status or condition of a debtor arising from a

pledge by the debtor of his or her personal services or of those of a per-
son under his or her control as a security for debt, if the value of those
services as reasonably assessed is not applied toward the liquidation of
the debt or the length and nature of those services are not respectively
limited and defined.

12
 A BOUT THE R EPORT

T he third annual Trafficking in Persons Report (TIP Report) is the most comprehensive
worldwide report on the efforts of governments to combat severe forms of trafficking in per-
sons. The State Department issues the report to Congress as required by the Trafficking
Victims Protection Act (Division A of Public Law 106-386, or the “Act”). The law was
enacted in October 2000 to combat human trafficking by ensuring the effective punishment of
traffickers, enhancing protection for victims, and creating significant mandates for the
Departments of State, Justice, Labor, Health and Human Services and the U.S. Agency for
International Development. The Department of Justice expects to issue a progress report on
the U.S. Government’s domestic anti-trafficking efforts later this year.
The Act requires the State Department to submit an annual report to Congress on the sta-
tus of severe forms of trafficking in persons. The Act’s definition of “severe forms of traf-
ficking in persons” and related terms are reprinted in the previous box. In this report, “traf-
ficking” and “trafficking in persons” are used to describe “severe forms of trafficking in per-
sons” as defined in the Act.

What the Report Is and Is Not Establishing task forces and action plans
The annual trafficking report includes those are methods that some countries have suc-
countries1 determined to have a significant cessfully used to create goals and bench-
number of victims of severe forms of traffick- marks for their anti-trafficking efforts.
ing. The narratives provide an overview of However, these plans and task forces, on
the trafficking situation in the country and a their own, are not weighted heavily in
government’s efforts to combat trafficking. assessing country placements. Rather, the
The first paragraph of each narrative report focuses on concrete efforts that gov-
describes the scope and nature of the traffick- ernments have undertaken to combat traf-
ing problem in the country, and thus indicates ficking. Similarly, the report does not
the reasons the country has been included in weigh heavily laws that are in draft form or
the report. The second paragraph indicates that have not been enacted, because they
the extent of the government’s compliance cannot yet be used to combat trafficking. In
with minimum standards and includes some some cases, task forces, action plans or
suggestions for efforts to combat trafficking. draft laws have been mentioned in a country
The succeeding paragraphs describe some of narrative as examples of a positive attitude,
a government’s efforts to prevent trafficking, or preliminary steps that the government is
prosecute traffickers, and protect victims, and beginning to take to combat trafficking.
thus illustrate the reasons the country has
been placed in Tier 1, 2 or 3 of the report. Why This Year’s Report Is Different
The narratives do not include extensive This year, for the first time, governments that
details, comprehensive information about the are not making significant efforts to bring
countries or their governments, or the extent themselves into compliance with the mini-
of anti-trafficking activities undertaken by mum standards—those listed on Tier 3—face
non-governmental entities. The TIP Report potential sanctions that include loss of cer-
covers the time period of April 2002 through tain types of U.S. assistance; such sanctions
March 2003. would be effective October 1 and subject to
1
Under Section 4 (b) of the Taiwan Relations Act, “[whenever] the laws of the United States refer to foreign countries, nations, states,
governments, or similar entities, such terms shall include and such laws shall apply with respect to Taiwan.”

13
 possible waiver. In this year’s report, several using information from numerous meetings
countries have moved from their placement with foreign government officials, NGOs and
in last year’s report. Thirty countries are international organizations, published reports,
included for the first time in the TIP report research trips to every region, and the infor-
due to increased information on the scope mation submitted to the e-mail address,
and magnitude of trafficking. <tipreport@state.gov>, which was established
for NGOs and individuals to report informa-
How the Report Is Used tion on government progress in addressing
This report is a diplomatic tool for the U.S. trafficking. To compile this year’s report, the
Government as an instrument for continued Department took a fresh look at these sources
dialogue, encouragement for the current of information on every country to make the
work of some governments, and a guide to following assessments. Assessing each gov-
help focus resources on prosecution, protec- ernment involved a two-step process:
tion, and prevention programs and policies.
After the release of this year’s TIP Report, Step One: Significant Numbers of Victims.
as in past years, the Department will contin- First, the Department determined whether
ue to engage governments about the content or not a country is “a country of origin,
of the report to help strengthen cooperative transit, or destination for a significant num-
efforts to eradicate trafficking. In the next ber of victims of severe forms of traffick-
year, and particularly in the months before a ing”. In making this determination, the
determination is made regarding sanctions Office required credible reporting that the
for Tier 3 countries, the Department will country was a country of origin, transit or
use the information gained in the compila- destination for a number of victims on the
tion of this year’s report to target assistance order of one hundred or more, the same
programs more effectively and to work with threshold that was generally applied in the
countries that need help in combating traf- 2001 and 2002 reports. Only those countries
ficking. Finally, the Department hopes the that reach this threshold are included in the
report will be a catalyst for government and report. In some cases information was not
non-government efforts to combat traffick- available and countries were not included.
ing in persons around the world.
Step Two: Tier Placement. As a next step,
Methodology the Department placed each of the countries
The State Department obtained information included on the 2003 TIP Report into one of
for this report from U.S. embassies and con- the three lists, described here as tiers, man-
sulates around the world, foreign embassies in dated by the Act. This placement is based on
Washington, and non-governmental and inter- governments’ efforts to combat trafficking.
national organizations working on human The Department first evaluated whether gov-
rights and trafficking issues. Our diplomatic ernments fully comply with the Act’s mini-
posts reported on the trafficking situations and mum standards for the elimination of traf-
governmental efforts based on thorough ficking. Governments that do so were
research, including meetings with a wide vari- placed in Tier 1. For other governments,
ety of government officials, local and interna- the Office discussed whether their govern-
tional NGO representatives, international ments made significant efforts to bring
organizations, officials, journalists, academics, themselves into compliance. Those coun-
and victims. The Office to Monitor and tries making significant efforts were placed
Combat Trafficking in Persons (Trafficking in Tier 2. Finally, those countries whose
Office) compiled an initial draft of the report governments do not fully comply with the

14
 T HE T IERS
TIER 1: Countries whose governments fully comply with the Act's minimum standards.

TIER 2: Countries whose governments do not fully comply with the Act’s
minimum standards but are making significant efforts to bring themselves into
compliance with those standards.

TIER 3: Countries whose governments do not fully comply with the minimum standards
and are not making significant efforts to do so.

minimum standards and are not making sig- 2. Whether the government protects vic-
nificant efforts to bring themselves into tims of trafficking, encourages victims’
compliance were placed in Tier 3. assistance in investigation and prosecu-
tion, provides victims with legal alterna-
Minimum Standards tives to their removal to countries where
The “minimum standards for the elimina- they would face retribution or hardship,
tion of trafficking” are summarized as fol- and ensures that victims are not inappro-
lows. Governments should: priately penalized solely for unlawful
acts as a direct result of being trafficked.
1. Prohibit trafficking and punish acts of 3. Whether the government has adopted
trafficking. measures, such as public education, to
2. Prescribe punishment commensurate prevent trafficking.
with that for grave crimes, such as 4. Whether the government cooperates
forcible sexual assault, for the knowing with other governments in investigating
commission of trafficking in some of its and prosecuting trafficking.
most reprehensible forms (trafficking 5. Whether the government extradites per-
for sexual purposes, involving rape or sons charged with trafficking as it does
kidnapping, or that causes a death). with other serious crimes.
3. Prescribe punishment that is sufficiently 6. Whether the government monitors
stringent to deter and that adequately immigration and emigration patterns for
reflects the offense’s heinous nature for evidence of trafficking, and whether law
the knowing commission of any act of enforcement agencies respond appropri-
trafficking. ately to such evidence.
4. Make serious and sustained efforts to 7. Whether the government vigorously in-
eliminate trafficking. vestigates and prosecutes public officials
who participate in or facilitate traffick-
The Act also sets out seven criteria that ing, and takes all appropriate measures
“should be considered” as indicia of the against officials who condone trafficking.
fourth point above, “serious and sustained
efforts to eliminate trafficking.” If a government is not in compliance with the
Summarized, they are: minimum standards, the Department’s deter-
mination of whether that government is mak-
1. Whether the government vigorously ing significant efforts to bring itself into com-
investigates and prosecutes acts of traf- pliance with these minimum standards dic-
ficking within its territory. tates its placement in Tier 2 or 3. The Act sets

15
 out three mitigating factors which the Depart- dren. Possible reasons for which a waiver
ment is to consider in making such determina- may be considered would include that a
tions. Summarized, they are as follows: country is being placed on Tier 3 for the first
time this year. These sanctions also would not
1. the extent of trafficking in the country; apply if the Department finds that, after this
2. the extent of governmental noncompli- report and before the imposition of sanctions,
ance with the minimum standards, par- a government no longer qualifies for Tier 3,
ticularly the extent to which government i.e., it has come into compliance with the
officials have participated in, facilitated, minimum standards or is making significant
condoned, or are otherwise complicit in efforts to bring itself into compliance.
trafficking; and
3. what measures are reasonable to bring Tier Movement
the government into compliance with Several governments increased their efforts
the minimum standards in light of the to combat trafficking since issuance of the
government’s resources and capabilities. Department’s 2002 report. In some cases,
the increased efforts justified moving the
Penalties country to a higher tier. As an admirable
According to the Act, the governments of example, the United Arab Emirates has
countries in Tier 3 in the report for this and demonstrated a clear commitment to eradi-
subsequent years could be subject to certain cate trafficking and made great strides to
sanctions, notably withholding of non- strengthen its efforts throughout the year.
humanitarian, non-trade-related assistance. Since the government now fully complies
(Countries that receive no such assistance with the minimum standards, it moved from
would be subject to withholding of funding Tier 3 to Tier 1. Countries that moved from
for participation in educational and cultural Tier 3 in 2002 to Tier 2 in 2003 are Armenia,
exchange programs.) Consistent with the Bahrain, Belarus, Cambodia, Indonesia,
Act, such governments also would face U.S. Lebanon, Qatar, Russia, Saudi Arabia and
opposition to assistance (except for humani- Tajikistan. Although they do not yet fully
tarian, trade-related, and certain develop- comply with the minimum standards, each
ment-related assistance) from international was determined this year to be making sig-
financial institutions, specifically the nificant efforts to do so.
International Monetary Fund and multilater- Several other governments that were
al development banks such as the World placed in Tier 2 on the 2002 report improved
Bank. These potential consequences regard- to the degree that they now fully comply
ing bilateral and multilateral assistance sanc- with the minimum standards, and they are in
tions would take effect at the beginning of Tier 1 of this year’s report. These countries
the next fiscal year, or October 1, 2003 for are Benin, Ghana, and Morocco. Some gov-
countries in Tier 3 of this report. ernments, whose efforts disappointingly
All or part of the Act’s sanctions can be lagged over the last year, dropped from Tier
waived upon a determination by the President 2 in 2002 to Tier 3 this year or from Tier 1
that the provision of such assistance to the to Tier 2. In some cases the shifts occurred
government would promote the purposes of because of new information not available in
the Act or is otherwise in the national interest prior years. For others, new information or
of the United States. The Act also provides information not available in prior years indi-
its sanctions shall be waived when necessary cated that there were countries with signifi-
to avoid significant adverse effects on vulner- cant numbers of victims of severe forms of
able populations, including women and chil- trafficking. Many are included on the report

16
for the first time, some in Tier 3. ficking. Toward its goal of eradicating traf-
Regardless of tier placement, there is more ficking globally, the United States will con-
that every country can do. No country place- tinue to monitor progress throughout the
ment is permanent. All countries must main- world and work with partners to strengthen
tain and increase their efforts to combat traf- international efforts to end this scourge. ■

AREAS FOR IMPROVEMENT

The Trafficking Office continues to welcome suggestions to strengthen the
annual report and our engagement with foreign governments throughout the
year. The Trafficking Office received constructive criticism on last year’s
report in several areas in which we strove to improve this year.

Lack of Specific Information About Law Enforcement Efforts. The TIP Report was criticized
last year because data on arrests, prosecutions, and convictions was lacking. This
year’s report has more such information, but we can do better. Over the next year, the
Department will be working directly with governments, our diplomatic posts, and NGOs
to gather these statistics. While it is difficult in some instances to gather this informa-
tion, in order for more accurate assessments to be made regarding a country’s efforts
on arrests, prosecutions, and convictions, in the end, national governments must sup-
ply such information.

Omission of Countries From List. Many countries were not included in last year’s report. A
country’s absence from any of the three lists does not necessarily mean that it does not
have a trafficking problem, but rather it may be a reflection of the Department’s inability
to find credible information indicating a significant trafficking problem as defined above.
For many countries, particularly closed societies or those wracked by civil conflict, it is
difficult to collect information or to hold a government accountable. Over the past year,
the Department targeted its collection activities and as a result, 30 additional countries
were added to the lists. We continue to seek credible information in those countries that
are not included in this year’s report but that we suspect have a trafficking problem.

Smuggling Versus Trafficking. There is often confusion on the differences between migrant
smuggling and human trafficking. This confusion can make it difficult to obtain informa-
tion, especially from transit countries. The mere facilitation of illegal entry into or
through a country is not, on its own, trafficking in persons, although such migrant smug-
gling may be part of a trafficking operation or turn into a trafficking situation. Trafficking
victims, as they are being moved through transit countries, may not know that they will be
forced into prostitution or labor when they arrive in the destination country. Similarly,
border patrol or migration officials may recognize illegal entry into or transit through a
country but not have information alerting them of a trafficking situation.

Demand. The Trafficking Office was able to gather additional information on the
demand side of trafficking, particularly on sex tourism from studies in destination
countries. We seek more information on the relationship between demand and traffick-
ing and on long-term societal trends that encourage trafficking.

17
 I NTERNATIONAL E NGAGEMENT:
S HARING B EST P RACTICES

A number of innovative anti-trafficking efforts came to light during the preparation of

the TIP Report and through the Trafficking Office’s engagement with foreign governments
and international and non-governmental organizations throughout the year. Many of these
efforts are particularly notable because they demonstrate low or no-cost anti-trafficking
measures that are sustainable. Many developing countries have high percentages of working
children and a problem with trafficking for forced labor or forced commercial sexual
exploitation. In response, several have established local vigilance or watchdog committees
to assist authorities in rescuing children, catching traffickers, and preventing trafficking.
Some cash-poor governments are educating residents in trafficking-prone areas of the dan-
gers of trafficking through meetings with local traditional, religious, ethnic, or community
leaders; establishing child rights clubs in schools; running nationwide public awareness
campaigns that include radio and television spots, cartoons, talk shows, dramas, and
debates; and reaching bilateral and regional agreements to combat trafficking in persons.
After listening to victims and then mobilizing community participation, many are now
strengthening partnerships with non-governmental and international organizations, which are
well placed to assist victims.

“Red Card Against Child Labor”. African gov- Targeting Transporters. The Government of
ernments, the ILO, and the Federation for Benin educated transporters and the trans-
International Football Associations teamed port unions as well as taxi and lorry drivers
up with airlines, popular African soccer on the dangers of trafficking through meet-
players, music personalities, and television ings, briefings, and road signs. In addition,
and radio stations throughout Africa to local vigilance committees use chiefs and
launch a continent-wide anti-child labor respected local women to help legitimize
campaign during the Africa Cup of Nations the importance of enforcing penalties
Soccer tournament. Television and radio against traffickers.
stations broadcast songs and public service
announcements throughout the month-long Discouraging Sex Tourism. The Government of
tournament. In this campaign, airlines gave Brazil is fighting sex tourism by asking hotels
“red cards” to fans traveling to these match- to be active in discouraging child prostitution
es indicating their support to “eject” or end on their premises. Hotels participating in the
the worst forms of child labor. This cam- program receive an extra "star" in their quali-
paign is being replicated for other regions ty rating. Brazil also distributes brochures to
of the world and will be included in the visiting tourists making them aware of the
next World Cup tournament. Some African penalties associated with exploiting minors.
countries, such as Cote d’Ivoire and Ghana, The Government of The Gambia asks visitors
continue to use these anti-child labor broad- to give information to the police about sex
casting spots during national and local soc- tourists and the sexual exploitation of children
cer matches. through a special tip system. The government

18
requires fingerprints before residence permits broadcast time for a “Voice of the Children”
are issued to foreigners in order to check radio program run for and by children to
criminal records to prevent known exploiters assist in the psychological recovery process
from operating in the country. The Tourism from the civil war.
Bill before the National Assembly provides
protective measures for children against sex Ban on Child Camel Jockeys. The government
tourists. The Gambian Government and the of the United Arab Emirates (UAE) is the
Government of The Netherlands set up a spe- first to enforce a ban on the use of underage,
cial police unit to monitor and track Dutch underweight camel jockeys. DNA testing is
pedophiles in The Gambia. used to determine the parentage of children
coming into UAE for work as camel jockeys
Public Awareness. The Government of and hand-bone x-rays are used to determine
Mozambique has joined forces with non- the age of camel jockey applicants. These
governmental and international organiza- practices prevent reliance on potentially
tions to creatively utilize festivals, nation- fraudulent identity documents.
wide youth debates, dances, dramas, and
posters to raise public awareness about child Source-Destination Cooperation. UAE police
prostitution. They have saturated radio and and Uzbek non-governmental organizations
television with key anti-child exploitation are working together on the rescue and
messages. The government also has con- repatriation of victims. The UAE also is
ducted seminars for police emphasizing their working with the Government of
role in protecting children. Bangladesh to sensitively repatriate child
camel jockeys. The Government of Saudi
Mass Mobilization. The Government of Arabia has opened an information center in
Bangladesh and international donors organ- Sri Lanka, a major source country for for-
ized a month-long road march campaign eign labor, to provide briefings for foreign
throughout the country to highlight traffick- workers on their rights and responsibilities
ing in persons and other crimes against and on cultural mores in Saudi Arabia.
women. Bangladeshis and government offi- This is done in an attempt to better acquaint
cials participated in the marches that edu- potential workers—especially women—
cated communities about how to reintegrate, with the lifestyle they will be expected to
assist, and accept trafficking victims back lead in the Kingdom and helps prevent mis-
into their home communities. understandings with employers. Separate
entry lines for foreign workers at airports in
Mobilizing Children. The Government of Saudi Arabia are used to give workers
Tanzania is educating children on the impor- information on rights and responsibilities
tance of watching out for one another. and points-of-contact should they need
When children see one of their friends being assistance. The United Kingdom has
abused or about to be trafficked, they blow appointed prosecutors as liaison magistrates
wooden whistles that they have been taught in source countries as well as in Spain,
to make, to identify the child in need. Italy, and France.
Community members, hearing the distress
whistles being blown, then come to the Rewarding Law Enforcement. In Andhra
child’s rescue. Pradesh, India, a law enforcement officer’s
performance appraisal is linked to his or
Listening to Exploited Children. The her efforts to apprehend and investigate
Government of Sierra Leone provides human traffickers.

19
 Victim Assistance. The Government of Witness Protection. The Government of Sri
Morocco provides social workers to facili- Lanka encourages the use of video-taped
tate the repatriation of child maids to fami- testimony from children and other victims
lies. Moroccan diplomats in destination as evidence in trials of traffickers to
countries are trained about trafficking and decrease the traumatization of the victims.
actively go into Moroccan expatriate com-
munities to look for victims. The Government-NGO Cooperation on Law
Government of Sri Lanka assigns welfare Enforcement. The Government of Thailand
officers to its embassies in countries in the brings together government and NGO offi-
Middle East to assist trafficking victims. cials in an interagency working group to
The Kyrgyz Republic has labor offices to develop and implement comprehensive
identify vulnerable nationals working in anti-TIP strategies. NGOs work to identify
Russia. Police officers in Ukraine work victims, pass that information along to the
closely with an active network of non-gov- government, which can raid brothels, then
ernmental organizations to assist victims. refers victims’ names and addresses to the
NGOs for shelter and assistance. NGOs
Border Monitoring. In Nepal, former victims uncover information, such as the traffick-
work alongside Nepalese border officials to ers’ names and addresses, from the victims
identify traffickers and victims at key cross- and then pass that information back to the
ing points. The former victims are able to government to assist police work. The
spot potential victims and provide assistance. process makes for a regular exchange of
The Government of Colombia has sent offi- information at a tactical level. A similar
cials to the airports to identify and talk with law enforcement Task Force exists in Edo
likely trafficking victims as they are sitting State, Nigeria.
and waiting to fly out. In many cases, they
have succeeded in educating women about Shining Light on Patrons. In addition to clos-
the dangers of traffickers and many potential ing brothels that employ trafficking victims,
victims elected not to leave. The South Korean police have threatened to
Government of Romania facilitates cross-bor- publish the names of brothel owners and
der law enforcement cooperation and assists patrons. Many of the owners are prominent
in the coordinated anti-trafficking, joint law citizens and this strategy has proven to be a
enforcement operation throughout the region. real deterrent. ■

20
 T IER P LACEMENTS

TIER 1

AUSTRIA GERMANY MOROCCO SWEDEN

BELGIUM GHANA THE NETHERLANDS SWITZERLAND
BENIN HONG KONG NORWAY TAIWAN
COLOMBIA ITALY POLAND UNITED ARAB EMIRATES
CZECH REPUBLIC LITHUANIA PORTUGAL UNITED KINGDOM
DENMARK MACEDONIA KOREA, REP. OF
FRANCE MAURITIUS SPAIN

TIER 2

ALBANIA CROATIA LAOS SAUDI ARABIA

ANGOLA EL SALVADOR LATVIA SENEGAL
ARMENIA EQUATORIAL GUINEA LEBANON SERBIA & MONTENEGRO
BAHRAIN ESTONIA MALAWI SIERRA LEONE
BANGLADESH ETHIOPIA MALAYSIA SLOVAK REPUBLIC
BELARUS FINLAND MALI SLOVENIA
BOLIVIA GABON MEXICO SOUTH AFRICA
BRAZIL THE GAMBIA MOLDOVA, REP. SRI LANKA
BRUNEI GUATEMALA MOZAMBIQUE TAJIKISTAN
BULGARIA HONDURAS NEPAL TANZANIA
BURKINA FASO HUNGARY NICARAGUA THAILAND
BURUNDI INDIA NIGER TOGO
CAMBODIA INDONESIA NIGERIA UGANDA
CAMEROON ISRAEL PAKISTAN UKRAINE
CANADA JAMAICA PHILIPPINES VENEZUELA
CHINA, PEOPLE’S REP. OF JAPAN QATAR VIETNAM
CONGO, DEM. REP. OF KENYA ROMANIA ZAMBIA
COSTA RICA KUWAIT RUSSIA ZIMBABWE
COTE D’IVOIRE KYRGYZ REP. RWANDA

TIER 3

BELIZE DOMINICAN REPUBLIC KAZAKHSTAN SURINAME

BOSNIA & HERZEGOVNIA GEORGIA LIBERIA TURKEY
BURMA GREECE NORTH KOREA UZBEKISTAN
CUBA HAITI SUDAN

21
 C OUNTRY N ARRATIVES

ALBANIA (TIER 2)

Albania is a source and transit country primarily for women and children trafficked for the pur-
poses of sexual exploitation and begging, respectively. Female victims are trafficked to Italy and
Greece, and on to other EU countries, such as Belgium, France, the U.K, and The Netherlands.
Victims transiting Albania mostly come from Romania and Moldova, with smaller numbers from
Bulgaria and Ukraine. Children are also reportedly trafficked from Albania to work as beggars in
Italy and Greece.

The Government of Albania does not meet the minimum standards for the elimination of traffick-
ing; however, it is making significant efforts to do so. In the past year, the government improved
its law enforcement efforts, particularly in cooperation with Italy; police significantly reduced
clandestine speedboat traffic across the Adriatic, and the number of foreign women transited
through Albania for Western destinations decreased measurably. Nevertheless, corruption and
lack of protection for vulnerable children remained problematic.

Prevention
The government’s Inter-Ministerial Commission on Human Trafficking coordinates its National
Action Plan, now in its second phase of completion. Part of this plan included the appointment of a
Minister of State who serves as the country’s anti-trafficking coordinator. In this role, the Minister
works with various ministries, NGOs and the international community to address trafficking in
Albania. The Ministry of Education participated with NGOs to train teachers and to produce and
disseminate information in schools on the dangers and mechanics of human trafficking. A series of
12 programs on public awareness was broadcast on television in 2002. The Ministry of Public
Order completed a significant study indicating that more than 5,000 Albanian women and girls
were trafficked into prostitution in the last decade.

Prosecution
The government criminalized trafficking in women and children in 2001. The Chief of the
Ministry of Public Order’s (MOPO) Anti-Trafficking Sector coordinates the government’s anti-
trafficking law enforcement activities. The MOPO has a unit in each prefecture, and recently cre-
ated a delta force to enhance operations. Prosecutions of traffickers increased in the past year, as
did efforts to punish or arrest corrupt government officials for involvement in trafficking; howev-
er, corruption is a major problem with little follow-through on most investigations. The govern-
ment continues to show inadequate conviction and sentencing rates, with most defendants
released for lack of evidence or ultimately charged with lesser crimes. The Organized Crime
Sector and the Office of Internal Control also conduct specific anti-trafficking actions. In 2002,
144 trafficking cases were sent to trial by the General Prosecutor’s office and 17 people were con-
victed. The MOPO investigated 31 cases of police involvement in trafficking during 2002, with
at least one officer convicted but given a minimal sentence. The government showed increased
effectiveness in coordinated law enforcement efforts with the government of Italy and with the
SECI Center in Bucharest. Its new Three Port Strategy increased its ability to monitor its porous
borders and its overall interdiction capabilities. Albanian police also improved their investigative

22
and operational capabilities. In April 2003, the National Police conducted a three-day, cross-
country sweep targeting traffickers, and the Organized Crime Unit, working with Italian police,
disabled a sophisticated child-trafficking network, arresting high-ranking local customs and law
enforcement officials.

Protection
Through its nation-wide anti-trafficking units, police refer victims to victim assistance and pro-
tection centers throughout Albania, including the Linza shelter, which the government opened in
March 2003. The centers provide reintegration and education for domestic victims and repatria-
tion for foreign victims. Phase two of the National Action Plan mandates creation of a witness
protection program that currently is lacking. In the absence of a witness protection system, the
government has taken limited measures to protect witnesses, mostly ad hoc and relying on
NGOs and foreign governments. With funding by IOM, six police commissariats opened tem-
porary witness protection shelters in 2003. The government hosted the Third Regional
Ministerial Forum that produced a regional government declaration on the legalization of vic-
tims’ status in destination countries.

23
 ANGOLA (TIER 2)

Angola is a country of origin for persons trafficked primarily to Europe and South Africa for
labor and sexual exploitation. Angola also has an internal trafficking problem, fueled by the
large numbers of displaced persons, orphans, and former combatants and trafficking victims of
the country’s civil war, which ended in the April 2002 cease fire.

During the civil war, thousands of men, women, and children were abducted by the UNITA
rebel movement for use as forced laborers and as sex slaves and combatants.

The Government of Angola does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so despite severe resource con-
straints. The government needs to step up efforts aimed at preventing the country’s growing num-
bers of street children from becoming trafficking victims and enhance law enforcement efforts,
especially prosecutions and arrests.

Prevention
Over the past year, the Ministry of Social Reinsertion, in its efforts to resettle displaced persons and
rehabilitate victims, trained 1,070 child monitors who identified approximately 43,000 children
who had been separated from their families. With several international organizations and NGOs,
the government set in motion its national plan of action against commercial sexual exploitation of
children. The government also works with various international organizations to raise school atten-
dance and to publicize the plight of the estimated 24,000 children living in the streets.

Prosecution
There are no specific laws that prohibit trafficking in persons. Angola’s 1992 constitution bans
slavery, and would be the basic statute to prosecute trafficking cases. Laws against kidnapping,
rape, assault, and prostitution also could be applied in a trafficking case. We have no informa-
tion on prosecutions.

Protection
The government is resettling previously abducted Angolan citizens and reuniting displaced
persons with their families. It has launched a campaign to register and identify about five mil-
lion minors; as of November 2002, more than 1.5 million had been registered. The govern-
ment does not treat trafficking victims as criminals. They are entitled to emergency residence
status for humanitarian reasons and receive some services from a handful of government pro-
grams. The government operates orphanages throughout the country for abducted children.

24
 ARMENIA (TIER 2)

Armenia is a country of origin for international trafficking of girls and women for the purposes of
prostitution, to destination countries such as Turkey and the United Arab Emirates (UAE).
Additional suspected destinations are Germany, Greece, the United States and various Western
European countries. Experts are concerned by trafficking from orphanages and by individual fam-
ilies who allegedly press their daughters to sell themselves into prostitution.

The Government of Armenia does not comply with the minimum standards for the elimination
of trafficking; however, it is making significant efforts to do so. The government increased its
focus on trafficking as a domestic and international issue, and focused more law enforcement
resources on the problem. Protection remains weak.

Prevention
In the past year, the Armenian government acknowledged trafficking and the need for increased
action. A new inter-agency task force coordinated public awareness efforts throughout the country,
including pamphlet distribution at the borders. The government’s Refugee and Migration Service
included information on trafficking in an edition of its journal on legal migration and houses an
IOM-funded Migration Service Point with a hotline, allowing people to call in or come in to ask
about migration issues, including trafficking. The Office advertises the hotline in newspapers.

Prosecution
In April 2003, Armenia amended its criminal code to include a specific criminal prohibition against
trafficking for sexual exploitation. Before then, traffickers could be prosecuted under such articles as
illicit seizure, falsification and selling of personal documents, extortion, bogus marriages and
divorces, and coercion into sexual intercourse. The government instituted anti-corruption efforts in
the Customs Committee and upgraded the technology at the borders to combat trafficking. In 2002,
26 criminal cases were brought against pimps, including four charges against traffickers involved in
organizing illegal border crossings with false documents; these four suspects reside in the UAE.
The government is currently investigating several other suspected traffickers, three of whom traf-
ficked women to the UAE. The government cooperates with the UAE in the above investigations,
and cooperated with the Government of Germany regarding a criminal gang trafficking women
from NIS Countries to Germany. Long-term sentences were secured against defendants in both
countries. The government has mutual legal assistance agreements with the UAE, other countries of
the former Soviet Union, Bulgaria and Romania. An investigation from 2001 against two police
officers asserting control over a group of traffickers was completed in the past year and the suspects
are in detention.

Protection
No shelters or other reintegration services exist for victims and many police still do not recog-
nize trafficking victims as such. Preliminary steps toward protection measures began, such as
establishment of an anti-trafficking sub-commission of the National Commission on Women’s
Issues focusing on social, rehabilitative and health issues of trafficking victims, but the govern-
ment does not have any effective witness protection program. The Ministry of Foreign Affairs
does not have specific training programs for its staff, but it directed its consular officers in 2002
to follow any reported trafficking cases and report them to the MFA. In 2002, some victims
reported to Armenia’s consulate in Abu Dhabi, and the government took limited steps to assist
them in returning.

25
 AUSTRIA (TIER 1)

Austria is a transit and destination country primarily for trafficking of women from Bulgaria,
Romania, Czech Republic, Slovakia, Hungary, and countries of the former Soviet Union for the
purposes of prostitution. The final destinations for most women transiting through Austria are
other EU countries, especially Italy. Police noted increased trafficking of Romanian boys and
Bulgarian girls to engage in begging, stealing, and possible sexual exploitation.

The Government of Austria fully complies with the minimum standards for the elimination of
trafficking. The government was particularly strong with respect to law enforcement and victim
protection through referral to government-supported shelters.

Prevention
The government worked actively with international organizations and regional organizations
(EU, INTERPOL, OSCE, and UN) to carry out preventive programs throughout the region. The
government provides annual funding to Austria’s primary NGO dealing with trafficking issues,
for prevention programs. The government is funding IOM projects to conduct research and
awareness campaigns on trafficking in Slovakia.

Prosecution
Several articles in the criminal and alien codes specifically prohibit trafficking. However, arti-
cles prohibiting facilitation of illegal entry and exploitation of aliens are more often used to
prosecute traffickers. Penalties for trafficking in persons are commensurate with other grave
crimes, with trafficking crimes involving death and extreme violence receiving more severe
penalties. In 2002, over 2,000 charges were filed under the two main anti-trafficking and anti-
smuggling criminal articles. Most recent conviction statistics, from 2001, indicate over 500 per-
sons were sentenced under various anti-trafficking and anti-smuggling articles. Local and nation-
al level governments cooperate with authorities from other countries to investigate and prosecute
trafficking cases. The government cooperated with Eastern European countries in particular to
dismantle a number of trafficking rings. The Interior Ministry’s Federal Bureau of Criminal
Affairs has a division dedicated solely to combating human trafficking and smuggling. The gov-
ernment supports and funds NGO and government sensitivity training for police and other public
authorities both inside Austria and in other countries. In December 2002 the government held a
training seminar for police officers of Stability Pact countries.

Protection
The government funds efforts of an NGO to provide direct services to trafficking victims,
including shelter, legal assistance, health and medical services. That NGO also assists victims
transiting through Vienna during repatriations from other destination countries. Victims outside
of Vienna have access to government-funded services, including women’s shelters located in
each province. The Austrian government provides temporary resident status for trafficked vic-
tims. Officials may also issue a delay in repatriation proceedings pending completion of a court
case. Victims of trafficking also have the possibility of continued residence.

26
 BAHRAIN (TIER 2)

Bahrain is a destination country for trafficked persons in search of work who are put into situations
of coerced labor, where they endure physical abuse or other extreme working conditions. Victims
come primarily from the Philippines, Bangladesh, Indonesia, India, and Sri Lanka to work as
domestic servants and in the construction industry. Female domestic servants also may be sexually
or physically abused. Many low-skilled foreign workers in Bahrain have their passports withheld,
their contracts altered, and suffer non-payment of salaries of varying degree and duration.

The Government of Bahrain does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The government has made
great progress in the areas of prevention and prosecution, but it should expand services provided
to victims, and needs to continue to expand prosecution efforts.

Prevention
A newly created interministerial task force drafted and distributed a manual on the rights and
duties of expatriate workers in Bahrain to local embassies, Bahraini embassies abroad, and man-
power recruitment agencies in Bahrain. It also drafted a simpler brochure for distribution to
workers in their languages. A media campaign raised awareness nationwide about the manual
and brochures. In order to certify that employers need the number of foreign workers for whom
they are requesting visas and to inspect working conditions, the Ministry of Labor and Social
Affairs increased the number of labor inspectors from 9 to 40. The government reformed work
sponsorship rules to allow foreign workers to change sponsors or jobs without a “no objection”
letter from their current sponsor. This allows foreign workers to legally remove themselves from
potentially abusive situations.

Prosecution
The Penal Code outlaws forced labor and prostitution. Bahraini law enforcement actively inves-
tigates allegations of abuse. In addition to criminal remedies, through administrative measure
and mediation under labor laws, the government allows and assists domestic servants and for-
eign workers to seek redress against traffickers. There are no indications that government offi-
cials condone or facilitate trafficking.

Protection
The government does not regularly provide assistance to victims but does provide shelter in
extreme cases. There is no established system for providing legal or psychological services, but
emergency medical treatment is available to anyone in Bahrain. In cases where mediation does
not succeed, government officials assist workers in finding lawyers to pursue legal action. The
government often allows temporary residency during disputes and permits a foreigner to work
while he or she seeks settlement or legal redress.

27
 BANGLADESH (TIER 2)

Bangladesh is a country of origin and transit for women and children trafficked for purposes of
sexual exploitation, domestic servitude, and bonded labor. Women and girls are trafficked to
India, Pakistan, Bahrain, Kuwait, and the United Arab Emirates for commercial sexual exploita-
tion and domestic work. A small number of women and girls are transited through Bangladesh
from Burma to India. Boys are also trafficked to the United Arab Emirates and Qatar and forced
to work as camel jockeys and beggars. Internal trafficking of women and children from rural
areas to the larger cities for commercial sexual exploitation and domestic work also occurs.

The Government of Bangladesh does not fully comply with the minimum standards for the elim-
ination of trafficking; however, it is making significant efforts to do so despite severe resource
constraints. Bangladesh needs to curb corruption among law enforcement officials, better moni-
tor its borders, increase prosecutions of traffickers, and invest in more protection programs such
as increasing the shelter capacity for victims.

Prevention
Under its National Plan of Action, which is a comprehensive plan to combat child sexual
exploitation, the government supported awareness raising and community mobilization efforts in
educating the community about trafficking. Other activities include police sensitization efforts,
working with school populations to educate them about the problem, and improving laws.
Government officials actively participated in donor-funded workshops, meetings and public
awareness campaigns. The public awareness campaigns focused on showing the most vulnera-
ble populations the harmful affects of trafficking and how the community can help in the reinte-
gration and acceptance of victims. These campaigns were made through the radio, printed mate-
rial, and speeches. The Ministry of Women’s and Children’s Affairs, the Ministry of
Information, NGOs, and international organizations sponsored a month-long “Road March and
Campaign Against Human Trafficking, Violence Against Women and Acid Throwing,” making
stops in 18 districts, educating the community about various forms of abuse against women
including trafficking. The government supports “food for education” programs to encourage
parents to send their children to school and provides stipends to girls attending secondary
schools in rural areas. The government has initiated an anti-exploitation public information
campaign for citizens going abroad to work.

Prosecution
The country prohibits various forms of trafficking. The government does investigate trafficking
cases; however, the court system is backlogged by approximately one million cases, severely
hampering the ability to bring criminal cases to closure quickly. The government has arrested
and prosecuted some traffickers, and courts have handed down tough sentences. During the
year, the government arrested 60 alleged traffickers and convicted 30, an increase from four last
year. For those convicted, the sentences ranged from 20 years to life. Police and government
officials received specialized training from international organizations and NGOs in investigat-
ing and prosecuting trafficking cases. The anti-trafficking program office under the Ministry of
Women and Children’s Affairs, established in 2000, has developed relationships with both
donors and NGOs and has helped in the prosecution of cases over the past year. However, cor-
ruption is widespread at lower levels of the government; police, customs, immigration officials
and border guards reportedly are susceptible to bribery. If caught, prosecuted and convicted,
corrupt officials may receive a reprimand, but their employment is rarely terminated.

28
Protection
Victims are not detained, jailed, or prosecuted for violations of immigration or prostitution laws.
The government works closely with and refers victims to NGOs that provide shelter and access to
legal, medical and psychological services. The government provided specialized training to its offi-
cials in assisting victims but has yet to provide training on protection and assistance to its embassies
and consulates in foreign countries that are destination or transit countries for its citizens.

29
 BELARUS (TIER 2)

Belarus is a country of origin and transit for women and children trafficked for purposes of sex-
ual exploitation in Russia, Ukraine, Lithuania, Germany, Israel, Poland, Czech Republic, Turkey,
Cyprus, Greece, Hungary, and Serbia and Montenegro. Victims are trafficked mostly from more
economically depressed areas, where traffickers recruit through employment, marriage, and trav-
el agencies and have links to organized crime and narcotics trafficking.

The Government of Belarus does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The government showed
increased action with respect to prevention and prosecution efforts, even in light of limited
resources. Commitment to protection of victims, however, remains very weak.

Prevention
The government better acknowledges the trafficking problem, but resources and expertise are
inadequate and hinder successful prevention efforts. The government expanded outreach in the
regions and cooperates with NGOs in giving educational presentations at schools. The govern-
ment implemented a state program to combat trafficking in persons and prostitution, which out-
lines a 5-year strategy to focus on prevention and other vital areas of response. The government
sponsors a modest TV ad campaign on state television for young women to prepare against the
dangers of trafficking through pre-departure information and contingency plans in the event of
dangerous situations. The state passport offices in Belarus display informational leaflets, created
by NGOs, advertising hotline numbers to call for travel advice.

Prosecution
Belarus’ criminal code includes specific penalties for trafficking for the purposes of sexual or
other kinds of exploitation, but the government continues to group trafficking crimes with sexual
assault or rape. Investigations are hampered by lack of expertise, but improved due to training by
the NGO community and foreign governments. The Interior Ministry opened 90 cases of traffick-
ing women abroad for prostitution and 20 cases of recruitment for sexual exploitation and abduc-
tion of minors. A total of 35 defendants reportedly were convicted for trafficking in persons.
Belarusian police participated with German police in a criminal investigation involving the traf-
ficking of more than 160 Belarusian women and terminated the operations of 10 organized crimi-
nal groups operating in Belarus. The Ministry of Labor and Social Welfare works to regulate and
monitor newspaper ads to ensure each entity is licensed. Belarus has law enforcement agreements
with Turkey, Israel, Bulgaria, Romania, Germany, Russia, Poland, Lithuania, Estonia, Moldova,
Vietnam, and China, which include a focus on human trafficking. Official corruption, including
bribery of law enforcement and border officials, continues to be widespread, and some corrupt
government officials reportedly facilitate trafficking by turning a blind eye to traffickers.

Protection
The Government of Belarus provides limited assistance to returning victims through state clinics
and labor and welfare offices. The lack of trafficking-specific expertise prevents most victims
from receiving comprehensive care. Victims deported from destination countries for visa viola-
tions return to verbal harassment by police who treat them as criminals. The Criminal Code out-
lines procedures for victim statements and confidentiality, and authorizes police protection; how-
ever, there are no secure shelters or police escorts. There is no information regarding govern-
ment assistance for foreign victims in Belarus.

30
 BELGIUM (TIER 1)

Belgium is a destination and transit country for trafficked persons, primarily young women from
Sub-Saharan Africa, Central and Eastern Europe, and Asia, destined for Belgium’s larger cities
or other European countries, for the purposes of sexual exploitation. Chinese victims are often
young men destined for manual labor in restaurants and sweatshops.

The Government of Belgium fully complies with the minimum standards for the elimination of
trafficking. The government showed particularly strong efforts with respect to international law
enforcement cooperation and preventive campaigns in source countries.

Prevention
The government’s interdepartmental committee coordinates anti-trafficking efforts in Belgium’s
three distinct regions, as well as with its counterparts in France, The Netherlands, UK, Germany
and Luxembourg. The government supports information campaigns in countries of origin, such
as Russia, to warn young people of the dangers of trafficking. The government works closely
with local and national NGOs and international organizations in the fight against trafficking.
The government posts anti-trafficking liaison officers in Belgian embassies in several source
countries, including Albania, Ivory Coast, the Democratic Republic of Congo, Guinea,
Kazakhstan, and Ukraine.

Prosecution
Belgium has a broad anti-trafficking law and punishment for trafficking is commensurate with
other grave crimes, with particularly severe penalties for trafficking children. The government
arrested 80 people in 2002 for trafficking crimes, and 71 investigations are pending.
Trafficking-related sentences average from two to six years imprisonment with a range of fines;
however, trafficking convictions are less frequent than prostitution-related convictions and
observers note that cases involving illegal sweatshops which may relate to trafficking are rarely
pursued. Belgium’s Office of the Federal Prosecutor coordinates investigations and prosecutions
of traffickers and a special unit of the Federal Police is responsible for anti-trafficking enforce-
ment. The government appointed special anti-trafficking magistrates on the national and district
levels, and the Center For Equal Opportunity and the Fight Against Racism provides specialized
training to police officers and prosecutors involved in anti-trafficking activities.

Protection
Three regional centers, funded by the Belgian government and managed by NGOs, provide vic-
tim assistance. Trafficking victims who agree to testify against traffickers may obtain temporary
residence and work permits. At the conclusion of a trial, victims who cooperate with the investi-
gation may be granted permanent residence status and unrestricted work permits. The govern-
ment also provides financial assistance to facilitate the repatriation of victims who wish to return
home. Some shelter managers claim that witness protection remains inadequate due to lack of
sufficient resources.

31
 BELIZE (TIER 3)

Belize is a destination country for trafficking for sexual exploitation. Victims are mainly women
and girls from Central American countries lured by traffickers into prostitution and nude danc-
ing. Young Belizean women and girls also are trafficked internally for sexual exploitation.
There are reports of labor trafficking among the migrant agricultural worker community.

The Government of Belize does not fully comply with the minimum standards for the elimina-
tion of trafficking and is not making significant efforts to do so. Trafficking is not acknowl-
edged as a serious problem, nor publicly discussed by senior officials of the government and
members of law enforcement agencies.

Prevention
The government does not implement any direct anti-trafficking prevention efforts. In the context
of general public welfare, the government does support some activities that contribute to wider
social development. For example, the Ministry of Human Development, Women and Children
and Civil Society has a number of programs designed to advance the rights and well being of
women and children. Belize has high participation rates for primary education and high literacy
rates for both men and women.

Prosecution
In 1997, the government amended its Immigration Act to criminalize the offense of trafficking in
illegal immigrants. There are no laws that specifically prohibit trafficking in persons, although
general immigration laws could be applied to illegal trafficking entry into Belize. The govern-
ment has not prosecuted any traffickers, nor has it investigated any trafficking cases. The gov-
ernment does not adequately control its borders, nor does it monitor immigration and emigration
patterns to find evidence of trafficking. The constitution prohibits slavery and forced labor, and
there are statutes outlawing activities surrounding procuring and prostitution, but these laws are
rarely enforced.

Protection
The government does not assist victims of trafficking, although two NGOs operate shelters for
women. Foreign trafficking victims are generally treated as immigration violators and are
deported, fined, or jailed.

32
 BENIN (TIER 1)

Benin is a source, transit, and destination country for children trafficked for domestic and com-
mercial labor. Beninese children are trafficked to Ghana, Gabon, Nigeria, Cote d’Ivoire, and
Cameroon, while children from neighboring Niger, Togo, and Burkina Faso are trafficked to
Benin. Trafficking in persons also occurs within Benin, where the traditional practice of placing
poor rural children with wealthier urban households is increasingly corrupted, and many chil-
dren end up in situations of forced labor. To a lesser extent, Benin is a source country for
women trafficked to Europe and the Middle East for sexual exploitation.

The Government of Benin fully complies with the minimum standards for the elimination of
trafficking in persons despite severe resource constraints. Streamlining the prosecution process
for traffickers will further improve the government’s anti-trafficking process.

Prevention
Government-supported grassroots anti-trafficking public awareness campaigns have been ongo-
ing since the early 1990s, reaching rural villages with speakers, posters, films, radio messages,
and presentations by children. A 2-week anti-child labor campaign for unions and a series of
meetings with transporters, taxi drivers and motorcycle operators on trafficking were conducted
in 2002. The government established and supports local, volunteer vigilance committees to act
as watchdogs in high-risk areas for trafficking. Free primary education for girls, rural economic
diversification, micro-credit programs, and employment opportunities in road construction are
key prevention programs. In September 2002, a leading labor union organized a 2-week “sensi-
tization campaign” against child labor. Benin is one of the West African countries participating
in an international program to reduce trafficking in children and a regional plan of action to
combat trafficking in persons.

Prosecution
Benin does not prohibit trafficking in persons, although anti-trafficking legislation is in the legisla-
tive process. The government actively investigates trafficking cases. In 2002, 27 traffickers were
arrested, and 102 children were rescued. From January to April 2003, the government arrested five
traffickers and rescued 48 children. The government works closely with nearby countries, particu-
larly Nigeria, Togo, and Gabon, to intercept children being trafficked across borders.

Protection
The government cooperates closely with NGOs to provide shelter, medical care, and legal assis-
tance to trafficking victims. It has provided in-kind assistance to NGOs. The government and
NGOs trained local leaders, truck drivers and dock workers on trafficking during 2002.
Trafficked children are not arrested, but treated as victims.

33
 BOLIVIA (TIER 2)

Bolivia is a source country for trafficking in men, women and children for forced labor and sexu-
al exploitation. Bolivians are trafficked to Chile, Peru, Argentina, Brazil and Spain. Faced with
extreme poverty, many Bolivians are economic migrants, and some are victimized by traffickers
as they move from rural areas to cities and then abroad. In particular, Bolivian children are traf-
ficked internally, often exploited in slave-like labor conditions in mines, in domestic servitude,
and in agriculture. Because of its weak controls along its extensive five borders, Bolivia is also a
transit country for third country illegal migrants, some of whom may be trafficked.

The Government of Bolivia does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so despite limited resources.
Some officials are aware that trafficking occurs, and the Government of Bolivia has taken mod-
est steps within its limited capacity to address the problem despite political unrest that has hin-
dered its effectiveness. Expanded measures by the government to lessen the vulnerability of
children to trafficking and the continued removal of officials who are suspected of facilitating
the illegal movement of persons will help strengthen Bolivia’s anti-trafficking efforts.

Prevention
The government does not promote educational measures that address trafficking, but there is an
ombudsman who conducts informational campaigns on the rights of children and women. The gov-
ernment has an interagency committee to address the trafficking of adolescents, but it has yet to pro-
duce a plan of action, although Congress is considering legislation. The government, in conjunction
with UNICEF, has begun a program to provide free birth and identity documents to thousands of
undocumented citizens, a measure that should reduce their vulnerability to being trafficked.

Prosecution
There is a law prohibiting trafficking in persons for sexual exploitation, and some arrests have been
carried out under this statute; however, there is no information available on convictions of traffick-
ers. Corruption of public officials is a serious problem. The government removed a number of
immigration officials on suspicions of corruption, but further government action will be necessary to
curb this practice. Officials throughout the government are known to take bribes to facilitate smug-
gling and the illegal movement of people. The government has taken measures to reduce corruption
among judicial officials who authorize the travel of children; this is a positive step.

Protection
The government and international donors have programs designed to empower women economi-
cally and help keep children in school. The government recognizes that ongoing child labor
problems may include trafficking abuses and is seeking foreign donors to help finance a national
10-year plan to eliminate child labor, but the plan so far has received little funding. The govern-
ment provides no shelters for victims.

34
 BOSNIA AND HERZEGOVINA (TIER 3)

Bosnia and Herzegovina (BiH) is a destination and transit country for women and girls traf-
ficked into sexual exploitation, mostly from Moldova, Romania, and Ukraine, and to a lesser
extent, Russia, Belarus, Kazakhstan, and Serbia and Montenegro. Although the presence of
international civilian and military personnel has contributed to the trafficking problem in BiH,
the local population actively sustains it. Trafficking in persons is a subset of the organized crime
problem in BiH and the region.

The Government of BiH does not fully comply with the minimum standards for the elimination
of trafficking and is not making significant efforts to do so. While it has taken steps to address
structural and legislative weaknesses, corruption at the local level was the major factor limiting
the effect of these positive initiatives and requiring a Tier 3 ranking. Reports continued through-
out the reporting period that government officials facilitated, condoned or were otherwise com-
plicit in trafficking at the local level. The Government of Bosnia and Herzegovina's capacity to
combat trafficking is hampered by weak state-level authorities and institutions created by the
1995 Dayton Peace Accords, which ended the 1992-95 Bosnia war. The international community
continues to play an extraordinary role in Bosnia, most notably through the NATO-led
Stabilization Force (SFOR) and the Office of the High Representative (OHR), which respectively
oversee military and civilian implementation of the Dayton Accords. Government expenditures
remain dependent on international assistance and are increasingly unsustainable, with spending
on new programs constrained by IMF and World Bank limitations. Despite this, the government
made some progress to better cooperation between government agencies and NGOs regarding
victim protection, enhance anti-trafficking laws and regulations, and provide leadership by the
Ministry of Human Rights and Refugees (MHRR). A comprehensive effort to strengthen the rule
of law through judicial and criminal legislative reform is underway; however, anti-trafficking
efforts were neither systematic nor comprehensive, with poor coordination among agencies.

Prevention
A new State Commission was established to implement the 2001 National Action Plan, but did
not report significant progress. Border monitoring improved as the State Border Service (SBS)
took control of all major border crossings and installed a data network at all airports. Illegal
immigration through Sarajevo International Airport decreased by nearly 90%. Although the gov-
ernment did not train border guards on human trafficking prevention and identification, in some
cases NGOs stepped in to do so. New labor regulations require the MHRR to review all appli-
cations for work permits and reject those suspected to be related to trafficking. International
organizations instituted preventive codes of conduct for their personnel, but reports of interna-
tionals contributing to trafficking continued. The Federation Interior Ministry issued a directive
forbidding Federation police officers from visiting nightclubs linked to prostitution. No infor-
mation is available on compliance with or enforcement of this directive.

Prosecution
A new criminal code came into effect in March 2003 specifically criminalizing human traffick-
ing, including provisions for witness protection, special investigative methods and asset forfei-
ture. Trafficking offenses were previously prosecuted under related criminal prohibitions.

35
 BRAZIL (TIER 2)

Brazil is a major source country for women and children trafficked into prostitution primarily in
Europe, but also in Japan and some border countries. There is a significant internal problem
with trafficking of men and children into forced labor in agriculture, mines, and charcoal pro-
duction facilities. A small percentage of tourists to Brazil, primarily from Europe and the
United States, go in search of sex with children, some of whom are trafficked.

The Government of Brazil does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The government has made
notable efforts to free slaves and fight sex tourism. Since his inauguration in January 2003,
President Lula issued two important executive orders: a government-wide initiative to combat
sexual exploitation of minors, and a proposal for tougher punishments of those who use forced
labor. These efforts are a good first step toward needed improvements on enforcement.

Prevention
The Ministry of Tourism ran an international public awareness campaign to combat sex tourism,
which included pamphlet placement on flights into Brazil that explained the country’s laws
against sexual exploitation of minors to every traveler that gets a visa, and public service
announcements in Brazil. The National Human Rights Secretariat conducted a national campaign
against sexual exploitation of children. The government coordinates with NGOs and the private
sector to combat forced labor through the Executive Group to Reduce Forced Labor (GERTRAF).

Prosecution
Brazil does not have a comprehensive trafficking law, but has a collection of laws that may be used
to prosecute some traffickers. The Federal Police, which has primary responsibility for investigat-
ing international sex trafficking crimes, managed to make about 100 arrests last year even though it
is understaffed and underfunded. However, weak efforts at prosecution yielded only a few convic-
tions. Mobile inspection units from the Ministry of Labor and Employment freed more than 1,740
laborers from forced work camps, but there were few, if any, criminal proceedings.

Protection
Brazil has a variety of assistance programs, but most are underfunded. The most extensive is the
Sentinel Program, which counts more than 400 centers to assist child and adolescent victims of
sexual abuse. The National Coordinator’s Office to Combat Sex Trafficking under the Ministry
of Justice is foundering and so far has done little to coordinate governmental efforts or marshal
sufficient resources. Seven regional reference centers for victims of sex trafficking throughout
the country are staffed with dedicated professional psychologists, social workers, medical doc-
tors, lawyers, and police liaisons. But they are unpaid volunteers operating with little or no
budgets. The government works with NGOs to provide assistance to victims and operate the
small scale witness protection program. Government officials who may come in contact with
victims, both domestically and abroad, receive training on how to best protect and assist.

36
 BRUNEI (TIER 2)

Brunei is a destination country for persons trafficked for the purposes of forced labor and sexual
exploitation. Most trafficking occurs in the labor context, as foreign workers are recruited from
Indonesia, Malaysia, the Philippines, Pakistan, India, and Bangladesh for work in the garment
industries, agriculture and in homes as servants. There are also a small number of cases of traf-
ficking in women for purposes of sexual exploitation.

The Government of Brunei does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The government should be
more aggressive in investigating trafficking of foreigners and, in particular, should increase
measures to sanction foreign labor traffickers within its borders. The government also needs to
foster basic understanding of trafficking among operational-level officials and implement uni-
form policies in prevention, protection and prosecution.

Prevention
While there is awareness among senior officials of the criminal aspects of labor and prostitution
trafficking, there is little understanding of these issues at the operational and enforcement level
of government. There are no awareness programs to educate the public or specific training for
government officials on trafficking. In broad preventive measures not specific to trafficking, the
government provides a wide range of social and educational services to Brunei citizens, which
reduces their vulnerability to trafficking.

Prosecution
Brunei has immigration, labor, and religious regulations that should deter most trafficking, but
they are unevenly implemented. A specific statute outlaws sexual exploitation and trafficking of
women and girls, and there is also a wide range of other laws, mostly related to prostitution and
the protection of minors, which could be applied against sex traffickers. However, authorities
only rarely investigate and prosecute sex traffickers, particularly when the victims are foreigners.
Sanctions against labor traffickers are rarely invoked. Currently government mediation is most
commonly used to resolve labor disputes, including those involving severe forms of trafficking,
although abusive employers may also face criminal and civil penalties. The government rigor-
ously monitors its borders and migration patterns.

Protection
The government has a weak record in protecting foreign trafficking victims, whom it often pros-
ecutes or deports for violations of immigration and labor codes. There are government protec-
tive measures for foreign workers, although they are not uniformly carried out. They include
arrival briefings for workers, inspections of facilities, and a telephone hotline for worker com-
plaints. When a grievance cannot be resolved, repatriation of foreign workers is at the expense
of the employer, and all outstanding wages must be paid. The government provides funds for
shelters that service only Brunei citizens and residents, who are rarely the victims of trafficking.
No foreign NGOs exist in Brunei and NGOs that do exist are not oriented towards assisting for-
eigners. Some embassies provide protection services, including temporary shelter, for workers
involved in disputes with employers.

37
 BULGARIA (TIER 2)

Bulgaria is a source and transit country, and to a lesser but increasing extent, a destination coun-
try for the purposes of trafficking in women and girls for sexual exploitation. Bulgarian victims
are trafficked to fifteen countries across Western, Southern and Eastern Europe, as well as to
South Africa. Women and girls of the Roma minority are disproportionately represented among
Bulgarian-origin victims. Victims are trafficked to Bulgaria from Ukraine, Romania, Moldova,
Russia and the Caucasus countries. Traffickers use threats of or actual violence, false imprison-
ment, rape, and withholding of documents and earnings to ensure victim compliance. Risk fac-
tors for Bulgarian victims of trafficking include poverty, under-education and lack of employ-
ment, particularly among the Roma.

The Government of Bulgaria does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The GOB passed anti-traf-
ficking legislation in the past year, and showed some improvements in international law enforce-
ment cooperation. However, overall improvements from the previous year were limited.

Prevention
While the government did not fund prevention programs, it instituted a specialized module on
trafficking prevention in the Schools’ Liaison Program of the National Police and members of
the government’s Interagency Task Force on Trafficking participated in training activities organ-
ized by foreign governments and international organizations. The government conducted some
initiatives to improve education and job opportunities for the Roma – a particularly vulnerable
group. While not trafficking-specific, such initiatives could prevent further vulnerability.

Prosecution
Parliament recently passed amendments to the Criminal Code penalizing trafficking in persons
and prescribing penalties from one to 10 years in prison, plus fines. The government Task Force
on Trafficking arrested approximately 40 individuals, freed over 200 women and girls, but there
were no reports of any convictions as the government has no mechanism for collecting convic-
tion data once a case is passed to the prosecutor. Additionally, because of Bulgaria’s weak judi-
cial system and cumbersome criminal procedure code, trafficking cases were not successfully
completed. The government cooperates with other countries on trafficking and concluded bilat-
eral agreements on law enforcement with all bordering countries except Serbia and Montenegro.
The government conducted joint operations with The Netherlands, Czech Republic, France,
Germany and Italy, it has on-going cooperation with the Former Yugoslav Republic of
Macedonia and Romania, and participates in regional law enforcement initiatives such as the
Southeastern Cooperative Initiative (SECI). The government does not yet offer specialized inves-
tigative anti-trafficking training, though some NGOs offered training at the National Police
Academy. Two regional prosecutors work with the Interagency Task Force on Trafficking. Low
wages, inadequate resources and government corruption at many levels are significant obstacles.
Methods for investigating corruption or misconduct in the police ranks are ineffective.

Protection
The Interagency Task Force on Trafficking works closely with international and non-governmen-
tal organizations when victims are rescued, but the government provides no victim assistance.
Victims are not provided temporary or permanent residence status, or relief from deportation.
Victims are not jailed or prosecuted for prostitution or individual immigration law violations.

38
However, they are deported if they do not cooperate with the police or refuse voluntary NGO-
assisted repatriation. The government has a law on implementation of witness protection, but it
is rarely used and few in law enforcement know of the law’s existence. Victim restitution pro-
grams do not exist and given the relative inefficiency of the judicial system, civil lawsuits are
not considered an effective recourse. The government is expanding the number of Bulgarian liai-
son officers in Western Europe, but there is no specialized anti-trafficking training for consular
officers abroad.

39
 BURKINA FASO (TIER 2)

Burkina Faso is a source, transit, and destination country for children trafficked for forced labor
within West Africa and, to a much lesser extent, a source and transit country for women traf-
ficked to Europe for sexual exploitation. There are traditional regional patterns of poverty-driv-
en mass migration of children for work in the mining, crafts, and agricultural sectors and as
domestics. Intermediaries often take advantage of these patterns to trick parents into selling
their children, who are then subjected to harsh labor conditions and sometimes abuse.
Instability in neighboring Cote d’Ivoire is changing migration patterns, but the degree and direc-
tion of those changes are unclear as of now.

The Government of Burkina Faso does not fully comply with the minimum standards for the
elimination of trafficking in persons; however, it is making significant efforts to do so despite
severe resource constraints. The government should impose stiffer penalties on traffickers and
take steps to curb corruption among border officials.

Prevention
In 2002 the government’s national task force established rural vigilance and surveillance commit-
tees in five regions. In conjunction with NGOs, the government continues to support public aware-
ness campaigns, holding training seminars for soldiers and customs agents on trafficking in per-
sons. The government allots one quarter of its budget to education, and makes a particular effort to
educate girls. Burkina Faso is one of the West African countries participating in an international
program to reduce trafficking in children and a regional action plan to combat trafficking.

Prosecution
Burkina Faso currently has no law against trafficking. An anti-child-trafficking bill is before the
National Assembly and was developed in cooperation with international organizations and
NGOs. Labor laws and laws against slavery, kidnapping, and violence against children are used
to prosecute traffickers. In 2002, two traffickers from Benin were convicted using the kidnap-
ping laws, and sentenced to six months in prison. The government has worked with Cote
d’Ivoire on 30 trafficking cases. In 2001, according to the most currently available statistics, the
government investigated 23 cases of commercial sexual exploitation of children. It trained bor-
der control personnel on trafficking issues and negotiated cross-border agreements with neigh-
boring countries, such as Cote d’Ivoire, Benin, Togo, and Niger, to combat trans-border traffick-
ing through tighter documentation of minors.

Protection
The Ministry of Social Action and Solidarity assists regularly in the repatriation and re-integra-
tion of victims, and maintains two shelters and five transit centers for trafficking victims, mainly
children, with staff trained to identify trafficking situations and assist victims. In conjunction
with an international organization, the government’s shelters assisted 299 children in 2002. In
January 2003, the government established a project to provide trafficked children and their par-
ents with micro-credit loans and apprenticeships.

40
 BURMA (TIER 3)

Burma is a source country for persons trafficked for labor and sexual exploitation. Although the
government has taken steps to combat trafficking for sexual exploitation, significant use of inter-
nal forced labor continues, especially by the military. Burmese are trafficked mainly to
Thailand, but also to China, Taiwan, Malaysia, Pakistan, and Japan for sexual exploitation, as
well as domestic and factory work. Internally, trafficking of women and girls for prostitution
occurs from villages to urban centers and other areas, such as trucking crossroads, fishing vil-
lages, border towns, and mining and military camps.

The Government of Burma does not fully comply with the minimum standards for the elimina-
tion of trafficking and is not making significant efforts to do so. The military is directly
involved in forced labor trafficking. The ILO’s attempts to work with the government to address
forced labor abuses have had only limited success. Burma’s failure to make progress on forced
labor more than offsets the government’s improving, but still inadequate, record of combating
trafficking for sexual exploitation. The government has allowed some limited but important
NGO and international organization activity to educate officials and vulnerable populations, and
to assist trafficking victims returning from abroad.

Prevention
Governmental measures to prevent trafficking for sexual exploitation include publicizing the
dangers in border areas via government-sponsored discussion groups, distribution of printed
materials, and media programming. The government has worked with the UN to educate offi-
cials and potential victims on the nature of trafficking for sexual exploitation. The results are
uneven and their effectiveness is often undercut by the repressive political climate in Burma and
constrained by the government’s limited financial resources. Government involvement in forced
labor continues. Forced labor prevention efforts are limited to posting directives prohibiting
such practices. The government has not publicly acknowledged that forced labor is a wide-
spread problem and has rebuffed recommendations on prevention made by the ILO, which main-
tains an office in Rangoon.

Prosecution
Burma lacks a comprehensive anti-trafficking law, but a combination of statutes against kidnapping
and prostitution is used to arrest and prosecute offenders who traffick in persons for sexual exploita-
tion. According to official government data, Burma prosecuted about 100 such traffickers over the
last year. Although information on convictions is incomplete, sentences reportedly ranged from 5 to
12 years, with most carrying a prison sentence of seven years. Corruption is a problem as some
local and regional officials are suspected of turning a blind eye to trafficking. The Burmese military
has generally not implemented directives prohibiting forced labor trafficking, while continuing to
carry out abuses including forced portering, road construction, and military conscription (including
of children). There have been no arrests or prosecutions of corrupt officials related to trafficking.

Protection
The government provides limited programming to provide women with income-generating skills
and to assist returning victims of trafficking, but there is no specific budget for such activities,
which are largely “self-financing.” It allows two foreign NGOs and the UN to provide some
services and support for repatriation of victims trafficked for sexual exploitation. The govern-
ment provides no assistance to victims trafficked for forced labor.

41
 BURUNDI (TIER 2)

Burundi is a source and destination country for trafficking in persons, primarily children con-
scripted to serve as porters, cooks, and some as combatants in both government and rebel forces,
many of whom were forcibly recruited. Other children join the military using false documents,
and many orphans and children separated from their parents work as porters and cooks at gov-
ernment military camps. Rebel forces also reportedly recruit among growing numbers of street
children and orphans, among Burundian refugees in camps in Tanzania, and from other neigh-
boring countries.

The Government of Burundi does not fully comply with the minimum standards for the elimina-
tion of trafficking in persons; however, it is making significant efforts to do so despite severe
resource constraints. The government, inaugurated in early May 2003, needs to continue its
efforts to demobilize and assist child soldiers, take action against those using them, and provide
protection for demobilized child soldiers.

Prevention
Government policy prohibits child combatants, but many suspected children join the military
with false documents. Beginning in May 2002, the Ministry of Defense began investigating the
extent of the child soldier problem, holding discussions at three army camps and among senior
officers, and began a series of awareness raising seminars for senior officers in June and
November 2002. In August 2002, the government conducted a survey of families to determine
how many children had left to join the government or rebel forces. The Army then conducted a
census of minors in the military in October 2002. As a result, the Army Chief of Staff ordered
that commanders cease the use of children as combatants in January 2003. The government is
working with an international organization to demobilize child soldiers and participating in
another international program to prevent children, particularly street children, from becoming
involved in armed conflict. The government facilitated the travel of former child soldiers to the
Department of Labor conference on child soldiers.

Prosecution
Although there is no specific anti-trafficking law, forcing others into prostitution is prohibited.
Bonded labor is also prohibited. The Ministry of Defense prepared a package of laws, including
a new minimum age requirement for recruitment, and the government is reviewing laws to
strengthen punishments for sexual exploitation of children. The new Council of Ministers is
considering these reforms over the next three months. The government broke up a prostitution
ring in which four persons were imprisoned.

Protection
The government established a body to demobilize and reintegrate child soldiers that includes the
military, government, and non-governmental and international organizations. The government, in
partnership with an international organization, is reuniting children with parents and providing alter-
native education. The government is releasing child soldiers who have been detained or imprisoned.

42
 CAMBODIA (TIER 2)

Cambodia is a source and destination country for persons trafficked for sexual exploitation and
forced labor. Cambodian men, women, and children who cross into Thailand, often as illegal
migrants, are forced into labor or prostitution by traffickers. Cambodian children are trafficked
into Vietnam and forced to work as street beggars. Vietnamese women and girls are trafficked
into Cambodia for prostitution. Cambodian women and children are trafficked internally for
sexual exploitation.

The Government of Cambodia does not fully comply with the minimum standards for the elimi-
nation of trafficking; however, it is making significant efforts to do so. Faced with limited
resources, government officials have recognized that trafficking is a major problem confronting
the country and have put in place new measures—particularly in prosecution and law enforce-
ment—to address the challenge. Much remains to be done to build upon this modest start.
Government action should concentrate on removing corrupt officials linked to trafficking, ensur-
ing that procedures to protect victims function uniformly, and expanding bilateral cooperation,
particularly with Vietnam. Future government action should also include enacting an anti-traf-
ficking law, as well as increasing the number of prosecutions and convictions of traffickers.

Prevention
The government works with a wide-reaching array of NGOs and international organizations on
prevention. Both the Ministry of Women’s and Veterans’ Affairs (MOWVA) and the Ministry of
Social Affairs, Labor, Vocational Training and Youth Rehabilitation (MOSALVY) have worked
with NGOs and international organizations to build up community-based networks in high-risk
provinces to inform potential victims of the risks of trafficking. The MOWVA carried out infor-
mation campaigns, including grassroots meetings in key provinces. The Ministry of Tourism
works with NGOs to produce workshops and pamphlets to combat trafficking dangers associated
with sex tourism.

Prosecutions
The Government of Cambodia has no comprehensive anti-trafficking law. Law enforcement
against traffickers is possible under existing statutes. The Ministry of Interior runs a hotline to
gain tips on cases of child sexual exploitation. The hotline has helped officials to identify and
rescue victims at risk. According to available data, there were at least 75 convictions of sexual
exploiters under the Law on the Suppression of the Kidnapping, Trafficking, and Exploitation of
Human Beings. The number of convictions under the law specifically related to trafficking in
persons is not available, but NGOs reported at least nine criminal convictions, with six defen-
dants receiving sentences ranging from 10 to 20 years imprisonment. Victims were also award-
ed financial compensation. Prosecution of traffickers was hampered, however, because the judi-
cial system is backlogged and burdened by corrupt practices, a subject of continuing concern.
While authorities have arrested public officials on charges of corruption related to trafficking, no
complete information was available on these efforts. The government needs to take aggressive
steps to address the involvement of public officials and their families in trafficking.

Protection
The government has procedures to assist victims but they are limited and not uniformly imple-
mented. MOSALVY runs two temporary shelters for victims and attempts to place victims with
NGOs for long-term sheltering. However, victims are at risk of being taken out of these shelters

43
 and re-trafficked. MOSALVY’s efforts are hampered by a lack of resources. Officials have
pushed a much-needed memorandum of understanding (MOU) with Thailand, which when
implemented will regularize Cambodian repatriations. Government officials recognize the need
for regularized repatriation of Vietnamese, and the MOWVA has begun discussions with Hanoi
to promote an MOU.

44
 CAMEROON (TIER 2)

Cameroon is a source, transit, and destination country for children who are trafficked for forced
labor to and from neighboring countries such as Benin, Chad, Gabon, Niger, Mali, and Nigeria.
A majority of the children are trafficked internally to urban centers for indentured or domestic
servitude. Women are trafficked for prostitution to European countries, including France and
Switzerland.

The Government of Cameroon does not fully comply with the minimum standards for the elimi-
nation of trafficking; however, it is making significant efforts to do so despite severely limited
resources. Cameroon could step up its prevention efforts and more vigorously prosecute traf-
fickers to conviction.

Prevention
The government’s anti-child labor action plan was finalized in 2002. The inter-agency anti-traf-
ficking group, comprised of 10 ministerial agencies, supported public awareness raising pro-
grams throughout the year. The government provides free public education, micro-credit proj-
ects for vulnerable portions of the population such as women and young girls, and outreach to
parents in rural areas at high risk for trafficking. Cameroon is part of a regional effort to reduce
trafficking in children and participates in an international program to reduce the worst forms of
child labor, including trafficking. This program lays out a timeline with set goals.

Prosecution
Although it has no trafficking law, Cameroon has laws prohibiting slavery and trafficking into
prostitution, and the government investigates trafficking cases. The Penal Code “prohibits
reducing a person to or maintaining a person in slavery, or engaging, even occasionally, in traf-
ficking in human beings.” Forced or compulsory labor is also prohibited. Several cases are cur-
rently under investigation, and a few are in court. Penalties for trafficking include a prison sen-
tence ranging from 15-20 years and asset forfeiture. The police plan to implement an anti-traf-
ficking training in late 2003, and are in the process of creating a minors’ unit. Border officials
are giving more scrutiny to unaccompanied minors. Cameroon is working with Equatorial
Guinea, the Central African Republic, Gabon, Chad, and Congo-Brazzaville to develop a sub-
regional instrument to govern anti-trafficking actions on border control, extradition, and penal-
ties. Corruption remains a problem.

Protection
The government provides temporary residence status, shelter, and medical care to trafficking vic-
tims, and works closely with NGOs, opening a home for distressed child victims in December
2002. Children are placed in public or private institutions where they receive education, medical
care, and counseling assistance. Cameroon also provides in-kind assistance to NGOs working to
help trafficking victims, such as tax concessions, and duty-free importation privileges.

45
 CANADA (TIER 2)

Canada is a destination for persons trafficked into prostitution, and to a lesser extent forced
labor, with victims coming primarily from China, Thailand, Cambodia, Philippines, Russia,
Korea, and Eastern Europe. Traffickers also use Canada as a transit point for moving victims
from these countries to the United States.

The Government of Canada does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. Canada has a broad social
safety net, comprehensive legal structure, and coordinated enforcement. Implementation of the
Immigration and Refugee Protection Act, which took effect in June 2002, should enhance the
government’s uneven efforts to prosecute traffickers and impose tough sentences.

Prevention
Canada attempts to prevent trafficking before victims reach Canadian shores. The Canadian
International Development Agency contributes anti-trafficking funds to several developing coun-
tries. Immigration officers are stationed in key source countries to identify illicit migration and
stop traffickers before they depart for Canada. A new policy requiring that Canadian minors be
issued their own passports, rather than being included in a parent’s passport, is intended to pro-
tect children from traffickers posing as parents.

Prosecution
The Immigration and Refugee Protection Act prohibits trafficking and prescribes tough punish-
ments for traffickers. Task forces comprised of federal, provincial, and municipal law enforce-
ment officials have investigated illegal prostitution and smuggling rings and freed some traffick-
ing victims, but there have been few convictions of traffickers, due in part to deportation of wit-
nesses. Canadian and US law enforcement have excellent cooperation on migration and border
control with several successes in breaking up illicit migration operations.

Protection
Provincial governments provide protection and basic services such as shelters, health care, and
legal aid for all victims of violence and sexual abuse, including trafficking victims; however,
there are no specific efforts to work with and rehabilitate trafficking victims. Some provinces
have recently enacted legislation allowing victims to sue pimps and sex abusers for the costs of
treating the victims. Foreign trafficking victims are eligible to apply for refugee status under
gender-related persecution guidelines, but often they are deported.

46
 PEOPLE’S REPUBLIC OF CHINA (TIER 2)

The People’s Republic of China (PRC) is a source, transit and destination country for trafficking
for labor and sexual exploitation. There is also internal trafficking of young women and girls
sold as brides. Victims trafficked into the PRC originate from Thailand, Burma, Mongolia, Laos,
North Korea, Vietnam and Russia; they are most often young women and girls trafficked for
prostitution or sold as brides. Political prisoners in the PRC, including Tibetans, are occasional-
ly forced to work in prison and detention facilities. Chinese are trafficked to Taiwan, Singapore,
Australia, Japan, Malaysia, the Hong Kong or Macau Special Administrative Regions, South
Korea, North America, and Europe. Many Chinese migrants who are smuggled to North
America are trapped in forced labor to repay traffickers.

The Government of the People’s Republic of China does not fully comply with the minimum
standards for the elimination of trafficking; however, it is making significant efforts to do so.
Senior officials have expressed their determination to combat trafficking, and policies are in
place to do so. Although the implementation of those policies is uneven, the PRC’s continued
high-level engagement on fighting trafficking is vital to address the worldwide problem. The
PRC can sharpen its effectiveness by widening its international cooperation on law enforcement.
The government should continue to fight corruption along its lengthy borders.

Prevention
The PRC continued public awareness campaigns against trafficking in women and children,
including warning messages about domestic bride abuses. The Ministry of Public Security
(MPS) announced its four-year “Elimination of Trafficking: Zero Tolerance Plan” with UNICEF
targeting rural farmers via promotional awareness and educational activities. MPS drafted an
anti-trafficking action plan that established a national committee to oversee its development.
Other campaigns were aimed to keep children in school (“Spring Bud Plan”) and women’s
empowerment (“Rural Women Know All”) through vocational training and rights awareness.
The ILO-IPEC Mekong Sub-Regional Project continues to prevent trafficking through coopera-
tion between government officials and local communities.

Prosecution
Trafficking in women is specifically outlawed in the PRC. The government recognizes traffick-
ing as a priority law enforcement issue and has an anti-trafficking unit within the MPS. No gov-
ernment figures were released on prosecutions for the past year, although press releases note that
there were 469 arrests of suspected human traffickers in the Fujian province alone. Inter-gov-
ernment cooperation and exchanges between law enforcement officials took place with Vietnam
and Thailand.

Protection
PRC assistance is primarily focused on Chinese trafficking victims. Women are reintegrated
into their communities through resettlement centers offering legal, medical, and psychological
help. The PRC collaborated with UNICEF on three pilot “transit centers” offering victims tem-
porary lodging, counseling, and vocational training, as well as training hundreds of MPS officers
on victims’ needs.

47
 COLOMBIA (TIER 1)

Colombia is a major source of women and girls trafficked into prostitution. Victims are primari-
ly sent to Europe, especially Spain and The Netherlands, as well as Japan. There also is internal
trafficking in Colombia for prostitution and forced conscription in terrorist and guerrilla groups,
often with children as the victims.

The Government of Colombia fully complies with the minimum standards for the elimination of
trafficking. The widespread civil internal armed conflict, the existence of well-organized drug
trafficking groups, and economic pressures combine to make Colombia one of the three major
source countries for trafficking victims in Latin America (Brazil and Dominican Republic are
the others). However, despite these factors, the government continues to make serious and sus-
tained efforts toward the elimination of trafficking in persons, both at home and abroad.

Prevention
An interagency committee coordinates a variety of anti-trafficking prevention measures, includ-
ing the creation of a hotline, public awareness campaigns, and improved coordination with
INTERPOL. Police and immigration officials, with the help of NGOs, closely monitor airports
and have prevented dozens of Colombians from being trafficked by identifying would-be victims
and educating them on the dangers that lay ahead.

Prosecution
In 2002, improved anti-trafficking legislation broadened the definition of trafficking and tough-
ened the penalties—almost doubling the prison sentences and raising the maximum fine by a
factor of 10. Colombia is one of the leading countries engaged in cooperative international law
enforcement cooperation against traffickers. Police have conducted numerous international
operations in coordination with other governments, particularly Spain, The Netherlands, and
Japan, which have led to the freeing rescue of hundreds of trafficking victims and over 100
arrests. For example, in November 2002, information provided by Colombian law enforcement
authorities through Colombia’s diplomatic mission in Tokyo led Japanese officials to arrest a
major organized crime leader who had trafficked at least 400 Colombian women into Japan.
Several Colombian collaborators in the trafficking ring were deported to Colombia, where they
are under indictment and in custody. Domestically, police are proactive, attempting to break up
trafficking rings before women are victimized. In the last 18 months, government authorities
have arrested 44 persons on trafficking charges, indicted 30, and convicted 16. The government
encourages victims to testify against their traffickers, but the witness protection program is
underfunded, and successful intimidation by traffickers has helped keep the number of success-
ful prosecutions low.

Protection
The Ministry of Foreign Affairs assists Colombian victims abroad by providing basic services
and facilitating repatriation. The government cooperates with a network of NGOs and IOM to
provide support and assistance to victims once they return to Colombia. The government works
with IOM to train diplomats and consular officials on how to assist victims. IOM also works
closely with other governmental officials, training more than 500 officials last year on the imple-
mentation of the new trafficking law.

48
 DEMOCRATIC REPUBLIC OF THE CONGO (TIER 2)

The Democratic Republic of the Congo is a source country for trafficked persons. Rebel forces
and militias continue to abduct and forcibly recruit Congolese men, women, and children to
serve as forced laborers, porters, combatants, and sex slaves in areas of the country under their
control. Internal trafficking for forced labor and commercial sexual exploitation also occurs. To
a lesser extent, the Democratic Republic of the Congo is a source country for women trafficked
to France and Belgium on “entertainment visas” but then forced into commercial sexual
exploitation to pay off debts.

The Government of the Democratic Republic of the Congo does not comply with the minimum
standards for the elimination of trafficking; however, it is making significant efforts to do so.
The government should increase its commitment to raising public awareness, providing better
protection and assistance to victims, and step up law enforcement efforts, especially prosecu-
tions, in areas under its control.

Prevention
The government participates in an international program to prevent children from becoming
child soldiers and to combat child labor. It also conducts information campaigns on local radio
and in local community meetings. Over the past year, the government held workshops to assist
the reintegration of former child soldiers and other combatants into their home communities as
part of its ongoing demobilization program currently enforced by the National Bureau for
Demobilization and Reintegration. With NGOs, the government implements education pro-
grams for child soldiers, street children, and orphans and tries to improve educational opportuni-
ties for girls, a highly vulnerable group for trafficking. The Ministry of Family Affairs and
Labor now implements its action plan against sexual exploitation in conjunction with an interna-
tional organization.

Prosecution
The initial draft of the new constitution prohibits forced labor. In the meantime, the government
uses statutes prohibiting slavery, forced labor, debauchery, and rape to prosecute traffickers. We
have no information on prosecutions. In May 2002, the government filed a case in the
International Court of Justice against Rwanda for forced conscription, abduction, and rape of
Congolese citizens. The government is actively gathering testimonies from escaped abductees
and former child soldiers to try war criminals.

Protection
Due to a lack of resources, the government conducts few victim protection efforts, instead relying
heavily on non-governmental and international organizations. The government provides family
tracing services, medical assistance, psychological rehabilitation, reintegration, and counseling for
families accepting child soldiers. The government is willing to assist the repatriation of victims
trafficked to Europe for commercial sexual exploitation, but no requests have been made.

49
 COSTA RICA (TIER 2)

Costa Rica has internal trafficking and is primarily a destination country for women and children
trafficked into prostitution. Costa Rica is also a source and transit country for illegal migration,
which includes trafficking. Women and girls are trafficked to Costa Rica from Colombia,
Dominican Republic, Nicaragua, Panama, and to a lesser extent, Russia, Philippines, Romania
and Bulgaria. The vibrant tourism industry attracts a small but growing percentage of sex
tourists primarily from the United States, Canada, and Germany who prey on children.

The Government of Costa Rica does not fully comply with the minimum standards for the elimi-
nation of trafficking; however, it is making significant efforts to do so. Costa Rica has continued
to improve efforts to investigate and prosecute child sex abusers. There is significant political
will to fight trafficking in persons which hopefully will translate into further actions to assist
victims and prevent trafficking.

Prevention
The government implemented some public awareness activities, including a radio campaign on
the plight of street children who remain at high risk of being trafficked. In October 2002, the
government placed stricter controls on the emigration of minors by requiring an exit document if
the child was not traveling with a parent. Programs to raise school attendance and provide voca-
tional opportunities to young women have been carried out but could be expanded.

Prosecution
The Special Prosecutor on Sex Crimes reported hundreds of investigations launched in 2002,
which led to a handful of convictions. The government expanded training of police and govern-
ment officials on investigation methods and appropriate treatment of victims by the United
States, UNICEF and IOM. In late 2002, each of the nation’s 10 police districts established dele-
gations of two investigators and two prosecutors to focus solely on sexual exploitation. Several
anti-corruption cases are ongoing, some related to migration offenses. Increased prosecutions
are expected to follow as training increases.

Protection
Most victim assistance is provided through well-established NGOs and not through the govern-
ment. The Child Welfare Ministry has created various community boards to assist in the protec-
tion of children. The government should continue plans to provide shelters for child victims of
sexual exploitation as well as improve basic services. Medium and long-term care for victims is
appropriate and benefits judicial proceedings against traffickers.

50
 COTE D’ IVOIRE (TIER 2)

Cote d’Ivoire is primarily a destination country for children trafficked from Burkina Faso, Mali,
Benin, Togo, and Ghana for domestic and farm labor and a destination for women and girls traf-
ficked from Nigeria, Liberia, and Asia for commercial sexual exploitation. It is also a country of
origin for girls trafficked internally and to Europe and the Middle East for domestic servitude.
An armed rebellion in September 2002 resulted in closure of the borders with neighboring coun-
tries, changing trafficking patterns and creating larger displaced and vulnerable populations.

The Government of Cote d’Ivoire does not fully comply with the minimum standards for the
elimination of trafficking; however, it is making significant efforts to do so despite severely lim-
ited resources and instability. Passage of the anti-trafficking law and implementation of stiff
sentences for traffickers will enhance Cote d’Ivoire’s anti-trafficking efforts.

Prevention
The national task force to combat trafficking has high-level government support and significant
resource commitment from several agencies, including 20 Ministry of Women, Family, and
Children’s Affairs personnel working on child trafficking. Over the past year, the government
worked closely with international organizations to regulate child labor on cocoa farms. The
International Institute for Tropical Agriculture and government-supported national researchers
conducted a survey on child labor to assess the scope and magnitude of the problem. The gov-
ernment supported public awareness campaigns focused on the exploitation of children for labor,
trafficking of girls as domestics, and warning Ivorians about the dangers of private employment
agencies. Cote d’Ivoire participates in an international program to eliminate the worst forms of
child labor in the cocoa industry, which withdraws children from hazardous work and provides
income-generating activities, economic alternatives, and education. Cote d’Ivoire also partici-
pates in a regional plan of action to combat trafficking.

Prosecution
There is no anti-trafficking law, although one is pending in the National Assembly, but the gov-
ernment used other statutes, such as those against kidnapping and forced labor, to prosecute traf-
fickers. At least nine traffickers from Cote d’Ivoire and neighboring countries were arrested and
100 children rescued in 2002. In 2001, approximately 550 Malian and Burkinabe children were
rescued and 29 traffickers were arrested; those convicted received sentences ranging from 5 to
10 years in prison. There is no evidence of government complicity in trafficking, but there is
corruption among low-level border officials and police. Border officials deny entry to children
not traveling with their parents because there is a high likelihood they are being trafficked.
Anecdotal evidence suggests the Ivorian-Malian border agreement is leading to improved border
controls and a decline in child trafficking. Investigators and prosecutors participated in anti-traf-
ficking training with INTERPOL, NGOs, and neighboring countries.

Protection
The government facilitates the repatriation of trafficking victims. Rescued children are accom-
modated with host families and at reception centers, receiving health and psychological counsel-
ing until source country embassies can receive them.

51
 CROATIA (TIER 2)

Croatia is primarily a transit country to Bosnia and Herzegovina and Western Europe, and to a
lesser extent a source and destination country, for trafficking of women for the purposes of
forced prostitution. The extent of the problem in Croatia has been difficult to establish. In the
past year, more information emerged regarding trafficking routes through Croatia.

The Government of Croatia does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The government has shown
an enhanced willingness to establish preventive mechanisms, including cooperation with non-
governmental organizations and neighboring countries.

Prevention
The government created the National Commission for the Suppression of Trafficking in Persons,
chaired by the Deputy Prime Minister. The Commission does not meet regularly, but members
represent all relevant ministries, NGOs, international organizations, and the media; and it is
responsible for implementing the new National Action Plan. The Head of the Government Office
for Human Rights was appointed the government’s anti-trafficking coordinator. In the spring,
the Commission endorsed an IOM awareness campaign, which includes free spots on Croatian
National TV and 20 local radio stations nationwide. Campaign materials are concentrated in bor-
der crossings, public transport, schools and employment agencies. The government signed mem-
oranda of understanding with two international organizations assisting victims, and continued to
cooperate with regional governments through regional ministerial declarations and Stability Pact
capacity-building activities. Despite limited resources, the government funded a survey to be
conducted among high school students regarding awareness of human trafficking.

Prosecution
The Croatian criminal code contains a number of trafficking-related crimes, such as slavery,
international prostitution and illegal human transport across a state boundary; however, there
have been few convictions on trafficking-related crimes. The government forwarded to the
Parliament proposed amendments to the penal code to specifically criminalize TIP. Croatia par-
ticipates in the Southeastern European Cooperative Initiative (SECI) on law enforcement and is
part of the regional agreement on police cooperation in suppression of illegal migration and
organized crime. Croatia participated in SECI’s “Operation Mirage” which resulted in 14 arrests.

Protection
Civil society projects are underway to raise the government’s capacity to identify victims of traf-
ficking. The government provided some assistance to a shelter for victims and cooperates with the
International Organization for Migration, which is providing additional protective services. The
government also assisted an NGO network to establish and operate an SOS “800” number for vic-
tims of trafficking to call for assistance. The Ministries of Interior and Labor and Social Welfare
began training their officers to identify victims, leading to successful victim identification within a
group of detained illegal migrants. The officers contacted IOM, which assisted the victims.

52
 CUBA (TIER 3)

Cuba is a country of internal trafficking for sexual exploitation and forced labor. Minors are
victimized in sexual exploitation connected to the state-run tourism industry. Despite occasional
measures by the Government of Cuba to crack down on prostitution, state-controlled tourism
establishments and independent operators facilitate and even encourage the sexual exploitation
of minors by foreign tourists. Government authorities turn a blind eye to this exploitation
because such activity helps to win hard currency for state-run enterprises. Opponents of the
Cuban government, often arrested under the crime of “dangerousness,” are forced to carry out
state-run construction and agricultural labor that profit the state. Laborers are coerced to work
on foreign investment or government priority projects without adequate compensation, which is
retained by the state. Children are coerced to perform agricultural work.

The Government of Cuba does not fully comply with the minimum standards for the elimination
of trafficking and is not making significant efforts to do so. The government does not acknowl-
edge that its tourism institutions are involved in the sexual trafficking of minors; it does not
acknowledge that it participates in forced labor trafficking.

Prevention
The government does not acknowledge a trafficking problem per se, but does acknowledge the
existence of prostitution. The government carries out no public awareness campaigns to warn of
the dangers of trafficking, but it does endorse women’s participation in economic decision-mak-
ing and children staying in school.

Prosecution
The Cuban penal code makes it illegal to promote or organize the movement of persons in or out
of the country for prostitution. The code outlaws pimping, and the selling of and trafficking in
minors. Criminal penalties are imposed under the law, but the government makes no data avail-
able on the number of prosecutions and convictions of traffickers it has carried out. Over the
years, the Cuban government has reversed its position regarding its condemnation of the prosti-
tution that feeds sex tourism. There is no known law enforcement against traffickers who make
available state-controlled public facilities for the sexual exploitation of minors.

Protection
Government assistance to trafficking victims is inadequate. Social workers and state-controlled
“mass” organizations have provided some assistance to women in prostitution. Suspected prosti-
tutes are known to be detained by the police and sent to rehabilitation or “reeducation” centers.
Such centers provide legal and medical help, but have been criticized for violating the rights of
the internees.

53
 CZECH REPUBLIC (TIER 1)

The Czech Republic is a source, transit, and destination country for women trafficked from the
former Soviet Union (in particular, Russia, Belarus, Ukraine, and Moldova), Eastern Europe, the
Balkans, and Asia into the Czech Republic and onward to Western Europe and the United States
for prostitution. Small numbers of Czech men are trafficked to the United States for coerced
labor. There is some evidence of internal trafficking of Czech women and children from areas
of low unemployment near border regions with Germany and Austria. Additionally, foreign
minors are believed to be exploited in the commercial sex trade either in the Czech Republic or
other European countries.

The Government of the Czech Republic fully complies with the minimum standards for the
elimination of trafficking. The government focused its resources on all three areas, especially
prioritizing regional law enforcement cooperation. Information on court convictions was uneven
and lack of resources hampered some overall efforts.

Prevention
The Crime Prevention Division of the Interior Ministry implemented a national media campaign
on the dangers of trafficking, as well as an informational program in Czech schools targeting 13
and 14 year olds. The government created a National Plan for Combating Commercial Sexual
Abuse, including trafficking in women and children for sexual purposes, for which the Interior
Ministry has the leading role.

Prosecution
The government amended the criminal code to include a broader definition of trafficking victims,
and to raise the penalty from five to 12 years for traffickers who cause grave bodily harm to their
victims. In 2002, the Czech Republic investigated 19 cases under the trafficking in persons
statute, yielding 14 indictments. While none of the cases was concluded during the year, eight
individuals were held in pre-trial detention pending final resolution. Police recorded 139 traffick-
ing-related arrests during 2002. The Anti-Organized Crime Police has a special unit specifically
trained in human trafficking, and the Interior Ministry cooperates closely with NGOs to train
police and investigators handling trafficking cases. The government cooperates with regional
governments to investigate and prosecute trafficking cases. The Foreigner and Border Police work
closely with their counterparts in Germany and Austria, and in June 2002, Czech authorities con-
ducted a series of raids on suspected traffickers with counterparts in Germany, Austria, Bulgaria,
and Romania. Border monitoring is relatively weaker regarding the Polish and Slovak border, but
the government is using EU assistance to improve its border control.

Protection
The government refers trafficking victims to NGOs, which provide shelter and medical treat-
ment; the government also provides partial funding for these services. The Interior Ministry
funds an NGO which assists foreign victims with repatriation and Czech victims with reintegra-
tion services. Victims willing to testify against a trafficker may be offered temporary residence, a
work permit, access to social assistance, and in extreme cases, police protection. The govern-
ment continues to detain some possible victims, followed by removal either immediately or after
a thirty-day stay of deportation.

54
 DENMARK (TIER 1)

Denmark is both a destination and transit country for women and children trafficked from the for-
mer Soviet Union countries, Eastern Europe, and the Baltics, as well as Thailand, for the purpos-
es of sexual exploitation. Denmark as a transit for trafficked victims from Eastern Europe and the
former Soviet Union on their way to other European and Nordic countries may be exacerbated by
implementation of the Schengen Agreement and resulting relaxation of many border controls

The Government of Denmark fully complies with the minimum standards for the elimination of
trafficking, including making serious and sustained efforts to eliminate severe forms of trafficking
with regard to law enforcement, protection of victims, and prevention of trafficking. The govern-
ment showed a particularly strong focus on prevention in the past year, both domestically and inter-
nationally, and on protection activities in-country, but efforts should be made to avoid immediate
deportation of trafficked victims, some of which have been minors. With the passage of the new
anti-trafficking legislation, it is hoped that the government will maintain vigorous law enforcement
while improving its screening mechanism to prevent deporting victims in the coming year.

Prevention
The Government of Denmark established teams of fieldworkers that assessed the problem
through direct contact with victims, and facilitated dialogue between public authorities and
NGOs. The government earmarked nearly $1.5 million for a three-year strategy to combat
human trafficking. In conjunction with the release of Denmark’s National Action Plan in 2002,
the Ministries of Social Affairs and Gender Equality conducted an anti-trafficking ad campaign
in all major newspapers. In addition, the Ministries of Social Affairs and Gender Equality subsi-
dize a hotline and website.

Prosecution
New anti-trafficking legislation went into effect in late 2002 but its overall effectiveness is still
uncertain, as no cases were brought to trial. Previously, Danish authorities prosecuted traffick-
ing under other provisions of the criminal law, such as those against human smuggling. Three
foreigners and five Danish nationals were convicted for smuggling prostitutes, but all the convic-
tions were overturned on appeal. The Danish National Commissioner of Police maintains its
own internal task force on trafficking in persons, assists local police constabularies with investi-
gations and trains its officers to recognize and investigate instances of trafficking. The govern-
ment monitors trafficking largely through information-sharing between the national police and
immigration authorities of countries with common borders and shared concerns. The govern-
ment cooperates in international investigations, exchanges information with other Scandinavian
countries, and works with Europol to track trafficking victims across borders.

Protection
The Danish Aliens Act allows a 15-day legal stay for trafficking victims prior to their repatriation
in order to provide services to victims and ensure their safe return. During this time, victims can-
not be employed, but are provided medical assistance, counseling and safe housing. The repatria-
tion procedure applies to persons without visas, but may be extended to victims with valid visas
only. However, the government normally deports those found to be in the country illegally. This
may occur at the conclusion of a trafficking cases or much sooner. In some cases minors have
been immediately deported. Trafficked legal workers appear to have greater rights than trafficked
women illegally present in Denmark, but the law and social policy currently favors deportation in

55
 both situations. The government has no formal witness protection program, but guarantees safe
surroundings with access to professional social, medical and psychological support to those wait-
ing to testify in court. The government also funds an NGO that provides legal services to traffick-
ing victims. The government funds several NGO hotlines to support victims, prevent trafficking,
and gather empirical data on the problem. The Ministries of Social Affairs and Gender Equality
disseminate information to victims and provide confidential counseling.

56
 THE DOMINICAN REPUBLIC (TIER 3)

The Dominican Republic is a source, transit, and destination country for persons trafficked for
sexual exploitation and forced labor. Dominicans are trafficked internally, particularly poor chil-
dren who work as domestics. Some of the Dominican women and girls who are smuggled to
Europe, the United States and elsewhere in the Western Hemisphere end up in trafficked situations.
Some are trafficked to these destinations for sexual exploitation. Haitian children are trafficked
into the Dominican Republic. In addition, some of the many Haitians who enter the Dominican
Republic as illegal migrants become subject to trafficking abuses. Illegal migrants from a number
of countries transit through the Dominican Republic; some may be trafficking victims.

The Government of the Dominican Republic does not fully comply with the minimum standards for
the elimination of trafficking and is not making significant efforts to do so. While the government
recognizes trafficking as a problem, the effectiveness of these measures is diminished by the govern-
ment’s incomplete efforts to convict traffickers and deal with public corruption. The Dominican Re-
public remains one of the largest victim source countries in the Western Hemisphere. In response,
the government has not undertaken any notable prosecutions of traffickers. The government should
enact comprehensive anti-trafficking legislation, which is under consideration in Congress.

Prevention
A committee of several government offices, known as CIPROM, works on prevention matters.
The committee has worked with IOM to continue the distribution of printed materials that
informs potential victims, particularly young women, of the dangers of trafficking. The govern-
ment cooperates with the country’s leading NGO fighting trafficking to distribute printed materi-
als and run a telephone hotline. The government has been involved in a number of seminars and
public activities, including hosting an assembly of the OAS’s Inter-American Commission of
Women that addressed trafficking.

Prosecution
The Dominican Republic has no comprehensive anti-trafficking statute but has used existing
laws that apply to smuggling, domestic violence, and kidnapping to prosecute traffickers. Senior
government officials have spoken out in general terms about the need to combat trafficking and
acknowledge that trafficking is a problem, but law enforcement efforts have been lacking. Some
arrests have been made, usually in the context of smuggling. However, penalties are lenient and
rarely imposed, and kingpin traffickers are not prosecuted. Efforts by the government to work
with victims to prosecute traffickers have been hampered by the victims’ fear of the traffickers
and the government’s inability to protect victims. Several officials in the diplomatic and immi-
gration services implicated in facilitating or even participating in trafficking activities have not
faced sanctions. In the Foreign Affairs Ministry, internal procedures and practices in the context
of visa issuance continue to be open to misuse.

Protection
The Secretariat of Women through CIPROM takes the lead on protection issues for the govern-
ment. Working with NGOs and international organizations, the government opened a center to
assist returning migrant women in 2003. IOM worked with the government to assist Dominican
women trafficked to Argentina to return home. The Secretariat of Labor, working with ILO, has
become more involved in protecting children at risk, a continuing area of concern.
In a positive development, the Foreign Affairs Ministry is training diplomatic personnel on traf-
ficking issues and specifically how to assist victims overseas.
57
 EL SALVADOR (TIER 2)

El Salvador is a source, transit and destination country for trafficking for sexual exploitation.
Salvadorans are trafficked to other Central American countries, Mexico, and the United States.
Nicaraguans, Hondurans and South American nationals are trafficked to or through El Salvador.
Women and children are trafficked internally for sexual exploitation.

The Government of El Salvador does not fully comply with the minimum standards for the elim-
ination of trafficking; however, it is making significant efforts to do so despite limited resources.
The government recognizes that trafficking in persons is a problem. It fights trafficking by
enforcing its anti-migrant smuggling law, cooperating with NGOs and attempting to enforce
child labor standards.

Prevention
Government agencies and NGOs have worked together on information campaigns against traf-
ficking. For instance, the government has sponsored television public service messages to dis-
courage illegal migration and warn potential victims, as well as newspaper advertisements con-
demning the sexual exploitation of children. Labor ministry officials cooperate with the ILO to
formulate policies that address the worst forms of child labor.

Prosecution
Two laws prohibit trafficking. Although there have been no arrests for trafficking per se, the
authorities have prosecuted migrant smugglers who might have been involved in trafficking.
There is no evidence that the government is involved in or tolerates trafficking, and no officials
have been charged for violating trafficking statutes. However, individual police officers, migration
officials and politicians are under investigation in migrant smuggling cases. The anti-migrant
smuggling unit is also responsible for combating trafficking. Although airport controls are ade-
quate, the government is not able to adequately control or monitor its land and maritime borders.

Protection
The government provides legal, medical, and psychological assistance to detained illegal
migrants, including those who might be trafficking victims. However, the government does not
determine who among the detained might be a trafficking victim, and does not encourage for-
eign trafficking victims to assist in investigations. Although foreign victims are not treated as
criminals, the quick deportation process prevents them from filing a civil suit or pursuing legal
action against traffickers. The government funds foreign and domestic NGOs that provide serv-
ices to illegal migrants who might also be trafficking victims. A government agency provides
protection, counseling, and legal assistance to abused, homeless, and neglected children, includ-
ing those who might also be trafficking victims. Repatriated Salvadorans, including those who
may have been trafficking victims, receive government assistance. Salvadoran diplomats are
provided with instructional materials to alert them to the problems of migrants; some of these
migrants might also be trafficking victims.

58
 EQUATORIAL GUINEA (TIER 2)

Equatorial Guinea is a country of destination and, to a lesser extent, transit for women and chil-
dren trafficked for commercial sexual exploitation and forced labor. Recent growth in the coun-
try’s oil industry has fueled demand for women trafficked from Benin, Cameroon, and Nigeria.
Children are trafficked in from West and Central Africa and into exploitative work situations as
farmhands, domestic servants, and street hawkers. Equatorial Guinea is a transit country for
women being trafficked from other African countries to Europe, particularly Spain.

The Government of Equatorial Guinea does not fully meet the minimum standards to eliminate
trafficking in persons; however, it is making significant efforts to do so despite severely limited
resources. Aggressive enforcement of current statutes in the absence of anti-trafficking legisla-
tion and curbing of corruption are needed.

Prevention
The government, in conjunction with NGOs, sponsored a public-awareness campaign which
reduced young girls’ vulnerability to trafficking and the flow of children trafficked from Benin
to Equatorial Guinea for forced labor. The government is working with local community leaders
to raise public awareness about trafficking. Equatorial Guinea actively participates in regional
conferences and a regional plan of action to combat trafficking in persons. The government has
identified poverty and lack of education as root causes of trafficking and has made education
free and compulsory until age 14.

Prosecution
Equatorial Guinea does not have an anti-trafficking law but is in the process of drafting legislation.
In 2002, the Foreign Minister issued a public announcement threatening stiff penalties for the
crimes of sex trafficking and pedophilia, which drove prostitution underground. Equatorial Guinea
is an island nation and borders are inadequately monitored. The law prohibits forced labor.

Protection
The government is currently constructing two shelters for trafficked and disadvantaged children,
which are scheduled to open in late 2003. The government also assists abandoned children and
cooperates with NGOs that provide services to victims and at-risk women and children. In
2001, the government offered to care for and repatriate trafficked children found aboard a cap-
tured boat in transit from Benin to Gabon, but ceded to an international organization to manage
the repatriation. There are no reports of victims being deported or otherwise punished. In 2000,
a young Beninese trafficking victim was found in Equatorial Guinea; the government allowed
her to stay and aided her integration into the community.

59
 ESTONIA (TIER 2)

Estonia is a source country for women and girls trafficked for the purpose of sexual exploitation
both internally and abroad. Victims are usually trafficked to Finland, Sweden and the other Nordic
countries, as well as Germany and Italy. There are also indications of internal trafficking typically
from the northeast border region to the capital for prostitution. Those most at risk for being traf-
ficked are unemployed Russian-speaking non-citizens with little or no high school education.

The Government of Estonia does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. Within the last year, the
government passed anti-trafficking legislation and participated in regional anti-trafficking
efforts; however, protection efforts were relatively weak and it did not engage in concrete pre-
ventive efforts in Estonia.

Prevention
Estonia was active in regional cooperation efforts on prevention, including the Nordic Baltic
Council of Ministers anti-trafficking campaign; however, the government did not recognize the
full extent of the trafficking problem within the last year, nor did it provide specific resources to
prevention efforts.

Prosecution
The Government of Estonia passed new amendments to its Penal Code to criminalize trafficking
in persons and enslavement, with a maximum penalty of 12 years imprisonment. Eight people
were arrested under the new legislation, and 12 other cases were under investigation; but no
cases proceeded to prosecution. Police and government officials participate in NGO-sponsored
trainings, and trafficking issues are part of the curricula for the Police and Border Guard
Schools, and in the Public Service academy. Estonia has a cooperative agreement with Finland
to focus on border security and mutual assistance in prosecution, which may provide a frame-
work for anti-trafficking cooperation, although currently the agreement is used to combat drug
trafficking and prostitution. Two persons were extradited to Finland for procurement of prosti-
tutes, but the relevance to trafficking was not determined

Protection
The government does not provide assistance for programs specifically focused on trafficking
victims, but it provides limited funds to centers that provide shelter and volunteer training to
assist victims of all crimes. Victims may apply for financial assistance under the 2001 State
Compensation of Victims of Crime Act, although education and awareness campaigns about the
services were not reported. The Ministry of Social Affairs is introducing a new general victim
support system with the Evangelical Lutheran Church, which may be utilized for victims of traf-
ficking. Victims may file civil suits or seek legal action against traffickers, but victim restitution
is lacking. The government has no special programs or shelters specifically for trafficking vic-
tims and the government relies on assistance by international organizations, NGOs, and foreign
governments for trafficking victim assistance programs.

60
 ETHIOPIA (TIER 2)

Ethiopia is primarily a source country for women, and to a lesser extent, children trafficked to
Lebanon, Bahrain, Saudi Arabia, and the United Arab Emirates for domestic labor. Some
women, lured by the prospect of employment abroad, are subjected to domestic servitude and
sexual abuse. There is internal trafficking of children for forced labor. Large numbers of dis-
placed persons in camps are increasingly vulnerable to trafficking, particularly the exchange of
sexual services for food.

The Government of Ethiopia does not yetfully comply with the minimum standards for the elim-
ination of trafficking; however, it is making significant efforts to do so despite severe resource
constraints and a widespread food emergency. Enhanced law enforcement efforts, especially fol-
low-through on cases, witness protection, prosecution of cases to conviction, and curbing cor-
ruption are needed.

Prevention
The government and an international organization conducted a public awareness campaign and
inserted anti-trafficking messages into the school curriculum. Local government authorities,
trade unions, and children are being mobilized to prevent trafficking and identify traffickers to
authorities. Community task forces of barkeepers, police, health providers, and local politicians
are involved in anti-trafficking activities. The government provides anonymous complaint forms
in local areas to help identify traffickers and those who abuse children’s rights. Additionally, an
inter-ministerial committee on trafficking meets monthly to coordinate government activities.
The Ministry of Labor and Social Affairs monitors and keeps statistics on the numbers of
Ethiopians trafficked abroad. In concert with an international organization, the government
launched a project for pre-departure briefings of labor migrants to explain their rights in the des-
tination countries. The government supports an ongoing awareness-raising campaign about
abuse and exploitation during humanitarian crises.

Prosecution
The Criminal Code prohibits trafficking in women, infants, and young persons. More than 100
traffickers have been arrested in Ethiopia under other statutes, but lack of cooperation from wit-
nesses makes convictions difficult to obtain. Employment agencies, which are a key recruitment
mechanism for traffickers, are required to register with the government, but this regulation is not
fully enforced. Ethiopians traveling abroad must have a valid work permit; however, false docu-
ments are easily obtained and low-level collusion between traffickers and government officials
has led to weak enforcement. Allegations of official collusion are being investigated.

Protection
The government works with destination countries to provide assistance to victims abroad and
opened a consulate in Lebanon to address the needs of trafficking victims. The consulate, which
provides shelter and legal advice, is currently handling 710 cases. Victims are not detained or
jailed, and the government sometimes assists with transportation costs for returning victims to
travel from the capital to home areas. The government works with NGOs to help street children,
victims of child prostitution, and child laborers. Child Protection Units at police stations edu-
cate law enforcement officials on the rights of children.

61
 FINLAND (TIER 2)

Finland is a destination and transit country for women and girls trafficked by organized crime
syndicates into sexual exploitation, including into enclosed prostitution camps in the northern
part of the country. Traffickers bring women in the country on surreptitious marriage contracts
and then force them into prostitution. Victims are mainly from Eastern Europe and the Baltic
States (Russia, Belarus, Estonia, Latvia, Ukraine and Moldova), but also Southeast Asia
(Thailand and the Philippines). Once in Finland, many victims are trafficked throughout the
country and on to other Nordic countries and Western Europe.

The Government of Finland does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The government dedicated
resources to prevention efforts in neighboring source countries; however, law enforcement
efforts lacked focus on internal and labor trafficking. Moreover, the government should increase
efforts to distinguish trafficking from illegal immigration to ensure implementation of victim
protection mechanisms.

Prevention
The Government of Finland did not conduct significant prevention campaigns within Finland,
but it focused efforts regionally and internationally. The government participated in the 2002
Nordic Baltic Campaign Against Trafficking in Women, which calls upon governments to dedi-
cate significant resources to combat and monitor trafficking in the region. The government fund-
ed prevention activities in other countries, and allocated human resources for some Stability Pact
training events. The Ministry of Social Affairs and Health compiles information on international
commercial prostitution to combat its negative consequences and on June 1-3, 2003, Finland co-
hosted with the U.S., Canadian, and Swedish Embassies in Helsinki, a regional conference on
best practices in combating trafficking in minors.

Prosecution
Presently, the law does not specifically prohibit trafficking in persons, nor does the penal code
reference trafficking in persons. Many related crimes are absent from the Penal Code as well,
such as restricting another’s freedom of movement; trafficking in persons for transit purposes;
restriction of will, choice and movement of prostitutes via debt bondage; and passport confisca-
tion. The government is developing draft legislation that provides a legal definition for traffick-
ing and provides penalties commensurate with other grave crimes. The government instituted
strict border controls and benefited from positive law enforcement cooperation between the EU
and Nordic countries. Near the end of 2002, the Helsinki Police ended the most notorious organ-
ized prostitution ring in the Helsinki area, but made no arrests. High-ranking police officials
believe that the absence of anti-trafficking legislation resulted in insufficient police funding for
combating trafficking.

Protection
Cooperation between police and victim assistance organizations exists. The anti-trafficking
working group of the Police, Border and Immigration authorities consults with social and health
care authorities, and one NGO that works with trafficking victims receives funding from nation-
al ministries and local sources. Space at most shelters is limited, and some shelters are unwilling
to provide short or long-term assistance due to safety concerns. Although there is no formal wit-
ness protection program, the defendants that intimidate witnesses during trials are punished and

62
victims are provided legal support and a representative upon request. Authorities are unable to
effectively follow information flows and trends pertaining to trafficking as police are not trained
on victim identification and they deport foreign prostitutes in almost all cases, trafficked or vol-
untary. In general, those facing trafficking situations do not report out of fear of deportation or
of retribution. In addition, the police report that some women applying for visas at the Finnish
consulate in St. Petersburg quietly requested that the visa officer refuse their application, alerting
to a potential trafficking situation from that area.

63
 FRANCE (TIER 1)

France is a destination country for victims, primarily women, trafficked from Africa, Central and
Eastern Europe, and the former Soviet Union for the purposes of prostitution and domestic
servitude. French police estimate that 90% of the 15,000 prostitutes working in France are traf-
ficking victims, and that 3,000 to 8,000 children are forced into prostitution and labor, including
begging. To a lesser extent, France is also a transit country for women trafficked from Africa,
South America, and Eastern and Southern Europe to other European countries, and sometimes
traffickers “rotate” victims in and out of France and neighboring countries to avoid violating
visa regulations and evade the police. There are also reports of Chinese and Colombian men
trafficked into bonded or forced labor in France.

The Government of France fully complies with the minimum standards for the elimination of
trafficking. In 2003, France passed a comprehensive law to combat trafficking and slavery and
improve victim assistance, and developed an innovative preventive program through Air France.
The law and its related protections are still very new and while no information on implementa-
tion of the criminal and protective mechanisms is available as of now, these will be important
elements for fulfillment of the minimum standards in coming years.

Prevention
In an effort to prevent trafficking of would-be legal migrants, the government conducted focused
bilateral efforts with source country governments. For example, the government provided finan-
cial assistance to trafficking victims from Mali to prevent them from falling into traffickers’
hands, and France and Romania concluded a bilateral agreement to reduce child-beggar and
child-prostitute trafficking networks. Air France, a government enterprise, began a poster and in-
flight video campaign on sex tourism. The government provided financial support to organiza-
tions in France conducting prevention activities.

Prosecution
In February 2003, France passed an anti-trafficking and slavery law, including a provision
against trafficking of children for begging, with penalties of imprisonment or high fines. The law
enhances existing criminal provisions, including a 2002 law against child prostitution and traf-
ficking. Cases progressed to court, including an indictment against 11 defendants charged with
prostitution of a minor. The Central Office for the Repression of Trafficking in Persons
(OCRTEH) under the central criminal investigation directorate of the judicial police coordinates
operations among the law enforcement agencies and with NGOs, and keeps statistics on victims
and arrests. OCRTEH arrested 643 people for pimping, and assisted 875 victims. OCRTEH suc-
ceeded in dismantling 20 Eastern European trafficking networks, four Nigerian networks, and
arrested and sentenced the organizers of a West African prostitution ring. French police placed
liaison officers in Romania and Bulgaria, and finalized a two-year joint Russian-French investi-
gation of an international trafficking network run by the Russian mafia. Two notorious gang
leaders were indicted and two more are in custody.

Protection
According to the new interior security law, the government assists victims of trafficking by
opening its safe houses to victims, providing social assistance, and granting temporary residence
while victims apply for asylum or pursue cases against former employers. The government’s “ad
hoc” administrator is responsible for protecting unaccompanied minors through social care serv-

64
ices, legal representation and asylum procedures. The government opened a special center for
children who are victims of sexual exploitation. French legislation passed in October 2002
allows for the repatriation of trafficking victims and the government has worked with notable
source countries to ensure reintegration assistance. Foreign victims who collaborate with the
French judiciary are granted a temporary residence card, and a permanent one if the person who
trafficked them is convicted. Those who do not participate in court proceedings are immediately
sent back to their home countries, also with reintegration assistance.

65
 GABON (TIER 2)

Gabon is primarily a destination country for children trafficked from Benin, Burkina Faso, Mali,
Togo, and Nigeria for domestic servitude, street hawking, and agricultural labor. Parents in orig-
inating countries are duped by traffickers with promises of good employment and wages; instead
children are forced to work long hours, suffer physical abuse, and receive insufficient food, no
wages, and no access to education. A growing number of children are sexually abused.

The Government of Gabon does not fully comply with minimum standards for the elimination of
trafficking; however, it is making significant efforts to do so despite limited resources. The gov-
ernment should step up efforts to prosecute traffickers.

Prevention
The government continued a national anti-trafficking information campaign that includes bill-
boards, television coverage, radio announcements, dramas, school curricula, and child rights
pamphlets. Gabon participates in an international program that eliminates the worst forms of
child labor and hosted regional workshops on cross-border child trafficking throughout the year.

Prosecution
There is no anti-trafficking law, although anti-trafficking legislation was introduced into the
National Assembly in March 2003. In a January 2002 executive order, the President authorized law
enforcement to prosecute individuals illegally employing minors. Trafficking cases may be prose-
cuted under laws prohibiting exploitation, abandonment, and mistreatment of children as well as
organizing, facilitating, harboring, selling, or illegally employing trafficked or exploited children.

Protection
Victims are not jailed or detained; instead, the government turns them over to source country
embassies for repatriation or existing shelters. Neighboring countries work closely with the
government on repatriation and the government sometimes waives the $180 exit fee in the case
of child trafficking victims. However, there are many victims who were trafficked to Gabon
when they were younger, and as young adults have no proof of entry and cannot afford to pay
the fee. The government supports two shelters run by NGOs that have assisted more than 100
victims. A government-NGO hotline for trafficking victims is planned but not yet operational.

66
 THE GAMBIA (TIER 2)

The Gambia is a country of origin, transit, and destination for trafficked persons. Sex tourists
from The Netherlands, the United Kingdom, Sweden, Norway, Germany, and Belgium exploit
Gambian children and, in some cases, traffick them to Europe for prostitution and pornography.
Internal trafficking for domestic servitude also occurs. To a lesser extent, The Gambia is a desti-
nation for children trafficked from Liberia, Sierra Leone, Democratic Republic of Congo,
Guinea-Bissau, and Guinea for sexual exploitation. The Gambia also serves as a transit point
for criminal groups trafficking West African women to Europe.

The Government of The Gambia does not fully comply with the minimum standards for the
elimination of trafficking; however, it is making significant efforts to do so despite severe
resource constraints. The Gambia’s passage of sex tourism and anti-trafficking legislation will
enhance its law enforcement efforts.

Prevention
The government supported a study conducted by an NGO and the Gambian Child Protection
Alliance (CPA), a consortium of non-governmental organizations, on the country’s large-scale
sex tourism problem. The country is completing its own survey with an international organiza-
tion. Meanwhile, the National Task Force is undertaking a three-pronged plan of action with
international organizations, NGOs, and the CPA that includes prevention campaigns focused on
pedophiles and prostitution. The government held a two-day workshop to sensitize journalists
on reporting child exploitation stories in a victim-friendly way. The Gambian Tourist Authority
warns incoming tourists about youths offering assistance and sexual services. The Gambia par-
ticipates in a regional plan of action against trafficking in persons.

Prosecution
The government is in the process of harmonizing its laws with the U.N. Trafficking in Persons
Protocol, which it has ratified, and is already in compliance with the Child Rights Convention.
Trafficking nets a 10-year sentence and rapists receive life in prison, but this will increase to the
death penalty under the new amendments. Law enforcement arrested and deported five foreign-
ers for trafficking young girls out of The Gambia and in March 2003 broke up a pedophile ring.
The government cooperates with the Dutch police to monitor and investigate Dutch pedophiles.
The Tourism Bill is being amended to include protective measures for victims and stiffer penal-
ties for abuses committed by tourists. Government enforcement efforts, however, remain weak,
particularly against local hotel operators. Foreign applicants for temporary residence permits are
required to submit fingerprints for a police check for criminal records. The police have a mech-
anism by which they receive information on tourists. A special Tourism Force was established
with the National Guard. The government issues photo-digitized passports and provides addi-
tional training for immigration officers to reduce cross-border trafficking. Police received “After
Arrest Procedure” training for dealing with juveniles.

Protection
The government provides limited temporary shelter, medical care, and psychological services to
victims, but relies primarily on NGOs to provide these services. The Child Welfare Unit of the
Police is always commanded by a mother to ensure extra sensitivity to protection issues. The
Department of Social Welfare screens all children under 17 prior to travel to Germany,
Denmark, Belgium, Sweden, and Norway.

67
 GEORGIA (TIER 3)

Georgia is a source country for women trafficked primarily to Turkey, Greece, and the UAE,
with smaller numbers trafficked to Israel, Spain, Portugal and the United States for purposes of
sexual exploitation, domestic servitude and forced labor. Thousands of children living in the
streets and in orphanages are vulnerable to trafficking.

The Government of Georgia does not fully comply with minimum standards for the elimination
of trafficking and it is not making significant efforts to do so. Georgia is a country with limited
resources, exacerbated by 300,000 displaced persons and three breakaway republics outside gov-
ernment control. While the government made some efforts to strengthen law enforcement coor-
dination, and advanced closer to amending its criminal legislation, its efforts were unorganized
and lagged behind those of NGOs.

Prevention
The government conducted few preventive efforts. The National Action Plan issued by the
President in 2003 envisages a number of preventive activities yet to be implemented. The
Ombudsperson’s office created a working group with NGOs active on trafficking in persons but
did not implement specific programs. The Government Passport Office agreed to distribute pre-
vention pamphlets produced by local NGOs, but after review, some NGOs complained that those
pamphlets were not actually distributed at all. The government did not actively respond to the
potential threat of child trafficking.

Prosecution
Georgian criminal law addresses some elements of trafficking but lacks specific trafficking
crimes, and has no articles related to victim protection. The Ministry of Justice led a legislative
drafting group that presented a set of amendments to the criminal law to Parliament in early
2003, but as of April 2003, Parliament had not yet passed the draft amendments. The govern-
ment did not report information on the number of trafficking-related arrests or convictions in the
past year, although the Minister of the Interior appointed a six-person anti-trafficking unit cur-
rently conducting investigations. The new unit lacks resources, but its officers are cooperating
with NGOs and participating in capacity-building trainings. The unit is conducting two interna-
tional investigations with destination countries. Official corruption remains a problem and hin-
ders effective responses to the problem.

Protection
The government does not have a system for victim assistance nor does it provide witness protec-
tion. There are no active referral mechanisms, nor methods to screen potential victims. The
National Commission on Violence Against Women and Children logged one call to its hotline
related to child trafficking. The government indicated its political will to respond to trafficking
last year, which may lead to concrete actions in the future based on Presidential Decree 15 which
recognized the link between trafficking and organized crime, and which approved the National
Action Plan. Victim advocacy organizations will have a role in assisting the government to imple-
ment the plan, but they were excluded largely from the process of drafting. The Ministry of
Interior began investigating establishment of a safe location for repatriated victims, and while a
potential facility was located, no donors or funds were identified to implement the program.

68
 GERMANY (TIER 1)

Germany is both a transit and destination for internationally trafficked persons, primarily women
from the former Soviet Union and Central Europe (especially Belarus, Ukraine, Lithuania,
Poland, Russia, and Latvia), for prostitution. Some victims also come from Africa (particularly
Nigeria), and Asia (particularly Thailand). In 2001, the most recent year for which statistics are
available, the Federal Office for Criminal Investigation officially counted and registered 987 vic-
tims of sex trafficking that year, representing a 6.6% increase from the previous year.

The Government of Germany fully complies with the minimum standards for the elimination of
trafficking. The government’s response was particularly effective in preventive engagement with
source countries and increased training and awareness programs for consular officers abroad.
One cause for concern is the growing number of victims from Eastern Europe and Africa. This
will bear watching in coming years.

Prevention
Germany’s federal government focused on reaching potentially trafficked victims before they
enter the country. German embassies and consulates abroad distribute an official brochure avail-
able in thirteen languages that provides information on residency and work permit requirements,
counseling centers for women, health care, and warnings about trafficking. The Ministry of
Foreign Affairs provides funds for German embassies to organize or sponsor anti-trafficking
projects in foreign countries and conducted sensitivity training for consular officers from several
embassies of countries of origin.

Prosecution
Germany’s Federal Criminal and Labor Codes cover the full scope of trafficking, including spe-
cific provisions regarding trafficking for sexual exploitation. Related laws, including sexual
coercion/rape, kidnapping, false imprisonment, and crimes against personal freedom allow
penalties similar to trafficking crimes. Germany actively investigates cases of trafficking at both
the state and federal level. The Federal Office for Criminal Investigation has a special traffick-
ing-in-persons team that, inter alia, coordinates international operations, offers special training,
and publishes the annual trafficking in persons report. Latest available figures list 273 pre-trial
investigations for trafficking for sexual exploitation, and 148 convictions. Law enforcement
authorities also cite other crimes such as smuggling and pimping that are easier to prove and
provide for the similar penalties. The Federal Interagency Working Group facilitates coordina-
tion among the relevant agencies, NGOs, and law enforcement agencies.

Protection
The government partially funds various NGO victim counseling centers, including the approxi-
mately 38 centers countrywide, although the funding base for these centers is not firm. The
Interagency Working Group has developed a cooperation program between local counseling cen-
ters and various state police offices for protection of and assistance to trafficked victims who
agree to testify against their traffickers. The police are required to inform an NGO if they
encounter a trafficking victim. Some temporary immigration benefits, such as a four-week grace
period and a status of “temporary toleration” are granted for witnesses who remain for the dura-
tion of a trial. The government covers the costs of repatriation of victims. Victims of violence
also are entitled to the federal victims’ compensation, which now includes trafficked victims
with a status of “toleration” (see above), for the duration of the trial.

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 GHANA (TIER 1)

Ghana is a source, transit, and destination country for trafficked persons and has an internal traf-
ficking problem. Most victims are children trafficked internally for forced labor, such as in the
fishing industry or for street hawking. Ghanaian adults and children are trafficked to neighboring
countries for labor and prostitution. Some women are trafficked to Europe and forced into prosti-
tution, and Ghana has become a transit point for Nigerian women trafficked to Italy, Germany, and
The Netherlands for commercial sexual exploitation.

The Government of Ghana fully complies with the minimum standards for the elimination of traffick-
ing. The government could further improve by passing an anti-trafficking legislation to help expedite
prosecutions through to final conviction and give momentum to the national anti-trafficking task force.

Prevention
The national task force used the African Union Day of the Child and National Children’s Day to
highlight the dangers of child trafficking and child labor. Elected government officials are actively
involved with efforts to raise awareness of trafficking and have organized sensitization meetings on
trafficking with opinion leaders, chiefs, and village elders. The government funds ten percent of
an international program to eliminate the worst forms of child labor. It also sponsors radio and tel-
evision public service announcements against trafficking and distributes handbills on trafficking to
transport owners and local officials. The Ghana National Drama Company uses nationally recog-
nized stars in a television drama to further sensitization on cultural practices that encourage traf-
ficking. The government uses a World Bank loan package to directly assist street children. The
government has established a Needy Child Fund to reach 50 children in each of 110 districts. The
government is using the Red Card Against Child Labor campaign at national and local soccer
matches. Ghana participates in regional efforts to combat trafficking.

Prosecution
Ghana lacks an anti-trafficking law. However, law enforcement efforts are moving forward while
the trafficking law moves slowly through the legislative system. The Inspector General of Police
has issued letters directing local police commanders to assist NGOs working on trafficking cases.
The government has banned ritual servitude, indentured servitude, indecent assault, and forced
marriages and has increased the penalties for defilement and child prostitution. Statistics for traf-
ficking are not kept separately. The government investigated 1,620 cases of defilement, which
mandate 5 to 15 year sentences, in 2002 and 429 from January to March 2003. There were 729
kidnapping and abduction cases and 34 child-stealing cases in 2002. Five child-stealing cases have
been reported from January to March 2003. Several recent trafficking cases were the result of a
tip-off system for local residents. Immigration officers are trained in detecting fraudulent docu-
mentation and identifying TIP victims, including training arranged by the Chief of Immigration.

Protection
The government rescues street children and closely cooperates with NGOs that provide shelter and
rehabilitation and has provided a government building for use as a project office and transit camp
for children. The government uses World Bank funds to return street children to their homes in the
north. The Ministry of Manpower is attempting to provide more counseling services. In partner-
ship with international organizations, the government is currently returning 571 children trafficked
into the fishing industry and offering fishermen incentives to release a total of 1,200 children. The
Women and Juvenile Unit of the Police has an outreach program for communities on trafficking
and domestic violence.
70
 GREECE (TIER 3)

Greece is a destination and transit country for women and children trafficked for the purpose of
sexual exploitation. According to a government source, as many as 18,000 people were traf-
ficked to Greece in 2002. Major countries of origin include Albania, Bulgaria, Moldova,
Romania, Russia, and Ukraine. Women from Asia, Africa and other countries are also trafficked
to Greece, and in some cases are reportedly trafficked on to Cyprus, Turkey, and the Middle
East. Child trafficking is a problem. While sources in Greece find that child trafficking has
decreased, the problem persists and Albanian children are known to make up the majority of
children trafficked for forced labor, including begging, and stealing. Children from the Greek
Roma community are also trafficked for labor.

The Government of Greece does not fully comply with minimum standards for the elimination
of trafficking and is not making significant efforts to do so. The government showed a shift in
political will to address trafficking through its recent comprehensive legislation on sex traffick-
ing. However, the government has not yet effectively enforced the law. Victim assistance mech-
anisms have not yet been implemented and NGO cooperation remains weak. Moreover, traf-
ficked children are reportedly treated by Greek authorities as either criminals or illegal aliens.
One report claims that trafficked children are summarily arrested, deported and then dropped off
and abandoned along the Albania-Greece border.

Prevention
The Government of Greece did not conduct widespread prevention campaigns. It did allow pub-
lic space for a six week-long anti-slavery poster exhibition to raise awareness, and an anti-traf-
ficking campaign on state-owned television. The government also funded a public service
announcement which ran on seven Greek radio stations to educate the public about the problem,
and funded one NGO in the amount of US $125,000 to create an anti-TIP campaign. The gov-
ernment did not sponsor prevention activities in source countries during the reporting period.
The government’s new anti-trafficking legislation offers preventive strategies, but they are broad
and at present, neither developed nor implemented. The government increased the number of
border control agents.

Prosecution
In October of 2002, the government passed new anti-trafficking legislation to criminalize and
punish traffickers, as well as develop victim support, but there is no provision for labor traffick-
ing. There have not been any prosecutions or convictions under the law’s criminal provisions,
which became immediately effective upon passage last October. There were approximately 140
trafficking-related arrests under the new law, but there is no data yet on convictions. Lack of
progress on arrests limits the ability to measure overall effectiveness of the new law. Prosecution
of traffickers is limited due to a slow and inefficient judicial system. A training module on traf-
ficking is given to new police recruits as part of their introductory training, while more senior
police attend a five-day seminar on trafficking issues. Some NGOs report that local police are
still often complicit and bribed by sex club owners. The Pan Hellenic Confederation of Police
Officers publicly acknowledged the involvement of the police in networks that traffick women.
To date, there are no convictions of police officers complicit in human trafficking. With the
exception of regional working groups, bilateral engagement to date is poor with source countries
such as Bulgaria, Albania and Moldova.

71
 Protection
The provisions of the new anti-trafficking law outlining victim protection and assistance await a
presidential decree, which is expected to be signed by the necessary ministers and published in
June 2003. Minors trafficked into Greece for the purpose of forced labor and sexual exploitation
are often detained by police as criminals. Those under 12 years old are placed in reception cen-
ters, while those as young as 13 have been put in jail for begging or illegal immigration.
According to one NGO, the Greek government detains and deports children in groups and
returns them to the Albanian border without ensuring their reception by Albanian authorities, nor
their protection from re-trafficking. Child authorities in Thessaloniki reported the assisted repa-
triation of 191 trafficked children - between the ages of 5-17 years; however, few cases were
reportedly conducted with advance notice to prepare the families and transport them safely.
Some reports say that children were deported with less than 24 hours notice and without suffi-
cient coordination on both sides of the border. To date, there are neither referral systems for vic-
tim assistance nor shelters for trafficked victims. The government reported that 62 victims were
liberated from traffickers, and some of them were placed in battered women’s shelters. In gen-
eral, temporary residence is legally allowed to victims who agree to testify against their traffick-
ers, but only at the discretion of the prosecutor. Illegal aliens are deported, regardless of traf-
ficking victim status. The government’s financial commitment to develop and implement the
provisions of the new anti-trafficking law on victim support, such as shelters, medical and psy-
chological assistance and protections from police detention and immediate deportation, awaits
the presidential decree.

72
 GUATEMALA (TIER 2)

Guatemala is a source, transit, and—to a lesser extent—a destination country for trafficking of
persons. Most often, Guatemalan victims are young women and minors who are trafficked
abroad for sexual exploitation. There is also internal trafficking involving the forced labor and
sexual exploitation of children. Foreign victims are mainly Central and South Americans,
including Ecuadorians, often being smuggled through Guatemala to Mexico and the United
States, who are pushed into sexual and other exploitation by traffickers. Guatemala is also a
transit country for illegal migrants, some of whom may be trafficked.

The Government of Guatemala does not fully comply with the minimum standards for the elimi-
nation of trafficking; however, it is making significant efforts to do so. Officials in the govern-
ment are aware of the trafficking challenge, but have made only limited progress in implement-
ing policies to combat the problem. Further cooperation between the governments of Guatemala
and Mexico is needed to address trafficking abuses on their common border.

Prevention
The government’s Action Plan against Sexual Exploitation of Minors and Adolescents, approved
in July 2001, is a comprehensive plan but so far has demonstrated minimal results. The Human
Rights Ombudsman’s office conducts the government’s prevention efforts. The office sponsored
public information campaigns on the dangers of trafficking found in illegal migration. Other
governmental offices are dedicated to assisting indigenous women abused in domestic violence.
The Presidential Secretariat of Social Welfare coordinated government cooperation with civil
society groups under the plan to combat sexual exploitation of minors. The government pro-
vides office space to many NGOs that work to gather information and prevent trafficking.

Prosecution
The Government of Guatemala has shown some resolution to combat trafficking, but law
enforcement does not receive the priority it should be given. Guatemala has several laws against
trafficking in its immigration and criminal statutes, but the prosecutions and convictions of traf-
fickers have been few. Officials in the Human Rights Ombudsman’s office, Labor Ministry, and
State prosecutors investigate trafficking cases. According to government figures, during the
reporting period some 50 prosecutions dealing with possible cross-border trafficking abuses
were initiated. There was at least one conviction, but information on convictions is incomplete.
In 2003, in a positive move, police arrested several likely child traffickers. Under the applicable
statutes, penalties for traffickers are generally too lenient. Mid-level and senior immigration
officials have been accused of corrupt practices, and there have been allegations that former mil-
itary officers have been involved in migrant smuggling rings. The government named a new
anti-corruption commission in 2002 to address its serious corruption problem. During the
reporting period, about 130 officials were dismissed for corruption, according to the govern-
ment. The government does not fully monitor and control its borders; and efforts particularly
along the Mexican border, a region of much international trafficking, have been inadequate.

Protection
The government does not assist trafficking victims specifically, but it does provide limited gen-
eral assistance to crime victims in centers in provincial capitals. Trafficking victims can use any
of these centers, but there is no information available on the number of victims who have done
so. Foreign victims are not treated as criminals; however, some are subject to quick deportation,

73
 but many stay in Guatemala. Trafficking victims are not encouraged to act as witnesses against
their traffickers. The government provides specialized training for police and other officials for
dealing with victims of crime.

74
 HAITI (TIER 3)

Haiti is mainly a source country for trafficking of children for forced labor and sexual exploita-
tion. Haitian children are trafficked internally by poor parents who place their children as ser-
vants (“restaveks”) in households of better-off families. Although not all children are victimized
in this process, significant numbers are sexually exploited and otherwise abused in sometimes
slave-like conditions. The Government of Haiti states that from 90,000 to 120,000 children are
restaveks (UNICEF’s estimate is 250,000 to 300,000). Haitian children also are trafficked into
the Dominican Republic where some are similarly exploited. Large numbers of Haitian eco-
nomic migrants illegally enter the Dominican Republic where some become trafficking victims.
On a smaller scale, Haiti is a transit and destination country. Victims are third country illegal
migrants, often Chinese, transiting through Haiti on the way to North America, where they
encounter forced labor exploitation to repay traffickers. Women from the Dominican Republic
are trafficked into Haiti for prostitution. Reports indicate that many of these women travel vol-
untarily, but some are victims of trafficking.

The Government of Haiti does not fully comply with the minimum standards for the elimination
of trafficking and is not making significant efforts to do so. Although faced with a wide array of
national challenges, the Government of Haiti needs to undertake significant steps even in the
context of its limited capacity to address trafficking.

Prevention
The government is attempting to educate the public with national television and radio messages
on the mistreatment of children, including restaveks. Officials, including the First Lady, have
spoken out against the use of restaveks. However, more needs to be done. The Ministry of
Labor and Social Affairs, charged with redressing the restaveks abuse, is one of the least-funded
in the government. In 2003, the government planned a series of seminars to target parents, edu-
cators, and children to discourage them from taking part in the restaveks practice.

Prosecution
The Government of Haiti has recently passed a law prohibiting the trafficking of children and
held an inter-ministerial conference to plan its implementation; however, the government to date
does not arrest or prosecute traffickers. There are national statutes regulating child domestic
labor, but these laws are not enforced. Governmental measures to address the problems associ-
ated with restaveks are in their infancy. The government does not adequately monitor and con-
trol its border.

Protection
Government efforts to address abuses of restaveks have been frustrated due to continuing severe
financial limitations. The Haitian Ministry of Labor and Social Affairs finances four monitors
(four others are financed by donors) to oversee the welfare of the tens of thousands of restaveks
children. The government sponsors a hotline where abuses can be reported. Monitors investi-
gate and respond to calls for assistance, but given the magnitude of the restaveks problem, these
efforts are minimal. The number of children rescued from trafficking has declined in the past
three years (in 2002 it was about 100). Government officials work with local NGOs to resettle
children or find their natural families.

75
 HONDURAS (TIER 2)

Honduras is a source and transit country for trafficking for sexual and labor exploitation. Most
Honduran victims are young women and girls, who are trafficked to Guatemala, Belize, El
Salvador, Mexico, the United States, and Canada. Women and children are trafficked internally,
most often from rural to urban settings.

The Government of Honduras does not fully comply with the minimum standards for the elimi-
nation of trafficking; however, it is making efforts to do so despite limited resources. It
acknowledges that trafficking is a problem, is aware that Honduran children are particularly vul-
nerable, and has a national plan to combat the sexual exploitation of children. Many of the gov-
ernment’s anti-trafficking measures are conducted in the context of combating the illegal move-
ment of migrants. Honduras has been open to NGO engagement and international cooperation.
The government worked with Mexico to identify and repatriate more than 200 Honduran minors
working as prostitutes in southern Mexico. Honduran officials have also cooperated with
American authorities on U.S. trafficking investigations in 2002. Further attention to issues of
corruption and rule of law will strengthen the government’s anti-trafficking efforts.

Prevention
The government has not undertaken public information measures against trafficking, but it has
tried to raise awareness of children and women’s rights and risks associated with illegal migra-
tion. A national commission attempts to combat child labor abuses and seeks to reincorporate
working minors into educational programs. Several government agencies, international organi-
zations and NGOs have nearly completed developing a national plan against the sexual exploita-
tion of children, which is an important first step in developing an overall anti-trafficking national
plan. Finalization and implementation of this plan will be among the important indicators of the
government’s progress in eliminating trafficking.

Prosecution
Government law enforcement efforts are inadequate. Honduras has no comprehensive anti-traf-
ficking law, but assorted penal, child exploitation and immigration statutes criminalize trafficking
and would enable the state to prosecute traffickers. Officials, however, have prosecuted very few
traffickers. In 2002, the government arrested and prosecuted eight “coyotes,” some of whom
were smuggling minors. It is unclear if any of these cases involved trafficking. Corruption is a
serious problem and renders obtaining court convictions difficult. Some officials have been
investigated and dismissed for corruption. The Immigration Director fired 35-40 officers for cor-
ruption in 2002, but further efforts to address corruption are needed. Honduran Frontier Police
have worked with U.S. officials to construct a border control inspection facility that can be used
against traffickers, but more steps need to be taken to control the country’s borders.

Protection
The government does not provide any assistance to foreign victims of trafficking, nor does it
provide funding for NGOs helping victims; however, while constrained by a lack of financial
resources, government officials are open to cooperating with NGOs where they can. Officials
work closely with a local NGO, for example, to help Honduran children. Honduran consular
officials are aware of trafficking issues when abroad. Foreign trafficking victims in Honduras
are subject to arrest for residency violations.

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 HONG KONG (TIER 1)

Hong Kong is a point of transit and destination for persons trafficked for sexual exploitation and
forced labor. Although primarily a transit region for illegal migrants, Hong Kong is a destina-
tion for women from the People’s Republic of China (PRC) and Southeast Asian countries traf-
ficked for sexual exploitation. Victims transit Hong Kong, originating from the PRC and
Southeast Asia, en route to North America and Australia.

The Government of Hong Kong fully complies with the minimum standards for the elimination
of trafficking. Hong Kong authorities implement anti-trafficking measures in the context of
combating migrant smuggling. The government carries out effective border and immigration
controls, information campaigns designed to educate shipping industry officials about smuggling
patterns, and has a tight web of criminal ordinances designed to punish traffickers.

Prevention
Hong Kong maintains effective border and immigration control as its first line of prevention.
There is inter-agency coordination among the police, immigration, customs, private industry, and
the NGO community. Multi-lingual pamphlets are also distributed in key public areas to inform
foreign women of their worker rights. Hong Kong’s human smuggling police unit publishes a
biannual report that gives updates on tactics used by traffickers, and regularly shares this infor-
mation with foreign governments. Officials have taken steps to curb the use of shipping contain-
ers for the clandestine movement of persons.

Prosecution
Hong Kong has no specific anti-trafficking law, but related criminal ordinances are used to prose-
cute traffickers. According to available data, law enforcement efforts resulted in at least six con-
victions against traffickers. Sentences ranged from one- to five-year prison-terms. Over 1,500
officers are deployed to monitor security, borders, airports, flights and shipping, and also monitor
for potential trafficking. In the past year, there has been increased sharing of intelligence with
friendly governments and more international cooperation on prosecutions. Although regularly
published reports and general statistics are made available by law enforcement to keep the public
informed, the government needs to take steps to keep better statistics on trafficking victims.

Protection
Trafficking victims have access to a breadth of general protective services provided in Hong
Kong. Regardless of legal status or charge of offense committed, trafficking victims have access
to temporary lodging in women’s refugee centers, basic necessities, medical services, and a vic-
tim support center. Women who provide testimony against their traffickers are granted immuni-
ty and allowed to return home without penalty. Foreign domestic helpers are given the same
access to services as local workers in labor suits, such as free legal aid, against employers.

77
 HUNGARY (TIER 2)

Hungary is primarily a transit, and secondarily a source and destination country for women and
children trafficked for the purpose of sexual exploitation. Foreign victims from Russia,
Romania, Ukraine, Moldova, and Bulgaria may be subject to exploitation in Hungary before
being transited to Austria, Germany, Spain, The Netherlands, Italy, France, Switzerland, and the
United States. Men from Iraq, Pakistan, Bangladesh, and Afghanistan reportedly are trafficked
through Hungary to European Union countries and the United States for forced labor.

The Government of Hungary does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The government is increas-
ingly engaged with trafficking issues at its upper levels; however, lack of consistent prioritiza-
tion within government ranks and insufficient cooperation between NGOs and government offi-
cials remained weaknesses in the past year.

Prevention
The government provides some financial assistance to prevention programs. With the assistance
of IOM, the Ministry of Education implemented a national preventive education program in sec-
ondary school curricula; and the Ministry of the Interior posted information brochures on victim
protection in every police station. The government consulted with NGOs to provide anti-traf-
ficking sensitivity training to police, border guards, and consular officials.

Prosecution
Trafficking is specifically criminalized in Hungary with penalties commensurate with other
grave crimes, including more severe penalties in cases involving minors and organized crime.
The Ministry of Interior and the Hungarian Office of Interpol report 34 arrests in 2002, and
Prosecutors brought legal proceedings in 30 cases related to trafficking. In many instances,
police and immigration officials refuse to investigate reports of missing women. Border guard
corruption remains a problem, but police have arrested border guards for assisting human smug-
glers or traffickers. The government established the International Center for Co-operation in
Criminal Affairs, signed a bilateral cooperation agreement with Europol, and participates in
organizations contributing to cooperation in Central and Eastern Europe, including the
Southeastern Cooperative Initiative (SECI), the Stability Pact, and the Council of Europe.

Protection
The Victim Protection Office, recently established by the Ministry of Interior, operates in 46
localities, where they provide psychological support services and legal advocacy for victims, and
safeguard victims’ rights. In theory, assistance with temporary residence status, short-term relief
from deportation, and shelter assistance are available to trafficking victims who cooperate with
police and prosecutors. However, in practice, the government only provides limited assistance
to trafficking victims either directly or through assistance to NGOs. In many instances, potential
victims are not accorded special rights or privileges, and may even be criminalized. There are
no safe houses or other assistance programs to aid Hungarian victims of trafficking, although
Hungarian victims would have access to the Hungarian social system.

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 INDIA (TIER 2)

India is a country of origin, transit, and destination for thousands of trafficked persons. Internal
trafficking of women, men, and children for purposes of sexual exploitation, domestic servitude,
bonded labor, and indentured servitude is widespread. Indian men and women also are put into
situations of coerced labor and sometimes slave-like conditions in countries in the Middle East
and the West. India is a destination for sex tourists from Europe and the United States.
Bangladeshi women and children are trafficked to India or transited through India en route to
Pakistan and the Middle East for purposes of sexual exploitation, domestic servitude, and forced
labor. Nepalese women and girls are trafficked to India for commercial sexual exploitation.

The Government of India does not yet fully comply with the minimum standards for the elimi-
nation of trafficking; however, it is making significant efforts to do so despite limited resources.
It is strongest in the areas of prevention and protection. Significant progress was made in prose-
cution this past year but much more needs to be done. The government should speed up the
prosecution of trafficking cases, increase training on trafficking for low-level police officers
throughout the country, and increase prosecutions of corrupt officials. A major concern is the
high number of child victims forced into commercial sexual exploitation in the mega-cities of
India. Prosecutions of those involved in perpetrating the commercial sexual exploitation of chil-
dren should substantially increase over the next year to combat this dreadful scourge.

Prevention
Both the central and state governments support prevention campaigns. They partner with inter-
national organizations, foreign governments, and faith-based groups in programs aimed at pre-
venting trafficking and alleviating poverty. The central government’s Poverty Alleviation Project
reserves forty percent of its budget for women’s projects and spent $3 million over the last year
for micro-credit programs in key source areas for trafficking. In an effort to reduce the number
of those vulnerable to trafficking, the project supports an educational scholarship program for
girls and young women in 2000 of India’s poorest regions, and a Women’s Empowerment
Scheme, covering 7,300 villages in 51 districts of several states. The Ministry of Social Justice
and Empowerment established a child helpline that covers 40 cities. The central government
and an international organization signed a $400 million agreement for a five-year program to
prevent trafficking and to assist at-risk children. Together with another international organiza-
tion, the government is conducting the world’s largest child labor elimination program, which
includes providing primary education for 250 million children.

The state of Goa, together with NGOs, is supporting public awareness campaigns about pedophil-
ia and sex tourism on the beaches. The State Transport Network in the state of Maharashtra con-
ducts training programs for drivers and bus conductors to spot girls in distress and has prominent-
ly displayed anti-trafficking help line numbers at major bus stations. The state of Tamil Nadu
established village level “watchdog” committees to prevent trafficking in women and children.
These committees include representatives from the village council, school officials, representa-
tives from police stations, and members of NGOs. The Chennai Central Railway Station set up a
“Childline” to rescue and keep a record of children being taken out of the state for labor and to
watch for runaways and other at-risk children. Stree Shakti (Women Power) is the state govern-
ment of Karnataka’s movement to empower rural women below the poverty line to achieve finan-
cial independence through income-generating activities such as agriculture and farming. The plan
has over 7,500 self-help groups with savings amounting to $1.8 million. In an effort to bring chil-

79
 dren back to school, the Karnataka State Education Department launched a massive public aware-
ness campaign called “From Labor to Learning” to raise awareness about the legal implications
of child labor among employers and parents. In Bihar and West Bengal, NGOs and representa-
tives from village governments and police have developed community-level watch groups to mon-
itor the movements of women and children from, to and through the area.

Prosecution
Prosecution of traffickers, brothel owners, and others associated with trafficking, once rare, has
increased significantly over the past year. Three special courts in New Delhi have been designated
to hear trafficking cases. A total of 48 cases against traffickers and brothel owners are in the queue
to be prosecuted and 14 people have been convicted and sentenced in New Delhi so far. In
Mumbai, a Swiss couple was sentenced to seven years imprisonment for kidnapping and molesting
a child, and making child pornography films for distribution on the Internet. The three minor vic-
tims were allowed to testify in camera to avoid trauma. Forty-two trafficking cases involving hun-
dreds of traffickers were booked in the Krishna district in the state of Andhra Pradesh alone. In
two other districts of Andhra Pradesh, local police arrested 14 traffickers and rescued 70 victims.
Ten cases are presently in court facing trial and investigations are pending for two cases. In
Karnataka, the police and an NGO rescued 29 girls in the Mysore district and arrested 20 traffick-
ers. All of these cases are proceeding to trial, and many of the traffickers are being held in jail
awaiting trial. Bangalore City Police busted a prostitution ring involving women from Africa and
the Middle East and arrested six people. Railway police at the Chennai Central Railway rescued
five boys from Tamil Nadu being trafficked to Hyderabad to work as laborers and arrested the five
traffickers. District administration officers in Tamil Nadu rescued 55 child laborers and 17 bonded
laborers from brick kiln factories and charged the factory owners under the Bonded Laborers Act.

India has numerous federal laws criminalizing trafficking for sexual exploitation and labor. The
Immoral Traffic (Prevention) Act (ITPA) prohibits trafficking in persons, criminalizes sexual
exploitation, and provides enhanced penalties for offences involving minors. During investiga-
tions, police frequently do not utilize all provisions of the ITPA and, as a result, may minimize
potential criminal penalties against traffickers and brothel owners for exploiting minors.
Officials used numerous provisions of the Indian Penal Code and the Juvenile Justice Act to
prosecute traffickers. Legislation also exists in numerous states to prohibit the dedication to reli-
gious shrines of girls for exploitation. Forced, bonded, or indentured child labor is illegal in
India. Penalties for trafficking are commensurate with penalties for rape or forcible assault.

India’s central government is handicapped in the fight against trafficking by the lack of federal
laws to establish jurisdiction over inter-state crimes for central agencies to investigate. Although
the anti-trafficking laws are national laws, their enforcement is a state government responsibility.
The execution of the law is further complicated when it involves cross-border trafficking due to
varying degrees of coordination and networking between state police forces. The government
has significantly increased the number of arrests, prosecutions, and convictions of traffickers and
brothel owners over the past year, but backlogged courts slow criminal justice proceedings.

Low-level border guards have taken bribes or turned a blind eye to trafficking across borders. In
addition, some law enforcement officials have been implicated in “tipping off” brothels to raids.
The Central Bureau of Investigation (CBI), charged with investigating allegations of corruption,

80
bribe taking, or collusion of public officials and law enforcement in trafficking, has prosecuted
numerous police officers, public defenders, and prosecutors; those corrupt officials have been
found guilty of receiving bribes and have been punished with fines and jail sentences. The CBI, in
cooperation with law enforcement in Goa, investigated a foreign racket, in which a trafficker, a cit-
izen of New Zealand, under the guise of running an orphanage for destitute children, sexually
abused the children and supplied them to foreign tourists for sexual abuse and pornography. The
ringleader was sentenced to life imprisonment. The CBI requested extradition of six other foreign
nationals (of Sweden, New Zealand, Australia, Germany, Thailand/UK, and France) in this case.

Trafficking and brothel-keeping are now crimes under an amended state of Maharashtra Control of
Organized Crime Act, which means that those accused of these offenses are unable to receive bail.
The Maharashtra police organized a course on preventing trafficking as a mandatory part of its train-
ing for direct-hire police officers. The state government of Andhra Pradesh instituted new anti-traf-
ficking performance indicators for police officers that require they be evaluated on the number of
arrests made of traffickers and brothel owners, not women for solicitation. Calcutta City Police and
West Bengal State Police have agreed to permit NGOs to accompany them on brothel rescues.

The borders are patrolled and monitored but the levels of monitoring vary and there are many
incidents of unchecked border crossing. The border between India and Pakistan is closely moni-
tored. Passports and visas are not required for Nepalese to enter India, and thus the border
between Nepal and India is very open. The Governments of Nepal and India have agreed to
form a Joint Cross Border Committee against Trafficking in order to collaborate on investiga-
tions and more efficiently share information about traffickers. The border between Bangladesh
and India is monitored, and passports and visas are required for entry; however, there continues
to be a regular influx of migrants searching for work and women trafficked to India.

Protection
A recent Supreme Court of India decision held that victims of trafficking may testify in camera.
The Department of Women and Child Development (DWCD) helps NGOs finance the repatria-
tion of women and children trafficked to India from other countries. Over the past two years,
state governments have established eighty Protective Homes that provide custodial care, educa-
tion, vocational training, and rehabilitation. The DWCD and the Juvenile Justice Act sponsor a
network of 350 short stay homes for the protection and rehabilitation of victims. The DWCD
launched a project in 2001 called “Swadahar” to provide services for women in difficult circum-
stances, including trafficking victims, that includes shelter, food, clothing, counseling, medical
and legal assistance, vocational training, and education. Thirty programs in several states are in
various stages of development. The central government supports rehabilitation projects in 11
states for 200,000 children removed from hazardous work conditions. The state government of
Andhra Pradesh created a statewide rescue and rehabilitation policy, which requires every dis-
trict to form anti-trafficking committees. Together with NGOs, the Calcutta City Police have
opened support service centers in every police station that has a female police officer to help
victims of trafficking or rape. Indian embassy officials in key destination countries help citizens
trafficked into exploitative labor situations.

81
 INDONESIA (TIER 2)

Indonesia is a source, transit and destination country for persons trafficked for sexual and forced
labor. Indonesian victims are trafficked to Malaysia, Singapore, Taiwan, Hong Kong, Brunei,
Persian Gulf countries, and Australia. Extensive trafficking also occurs within Indonesia’s bor-
ders for labor and sexual exploitation; and the country is a destination for some victims traf-
ficked for sexual exploitation.

The Government of Indonesia does not fully comply with the minimum standards for the elimi-
nation of trafficking; however, it is making significant efforts to do so. During the last year, the
government approved key legislation to protect children from trafficking and established an anti-
corruption commission and court. The government has also completed amendments to its crimi-
nal code and increased law enforcement efforts against traffickers. Indonesia is open to multilat-
eral cooperation to combat trafficking—the Bali ministerial process on trafficking is a notewor-
thy example of this—but much remains to be done, particularly within the country. A major
challenge facing the government is to end the direct participation of its own public officials in
trafficking. Progress is needed in reducing trafficking-related public corruption.

Prevention
Through a presidential decree, Indonesia has adopted a national plan to combat both sexual and
labor trafficking, but its implementation is hindered given the country’s overall lack of capacity
and resources. Government efforts have increased the awareness of public officials at all levels,
but overall public awareness of trafficking remains inadequate. The government works with
NGOs, conducting sporadic information campaigns aimed at the public using television, radio,
and printed materials in some areas. In conjunction with NGOs, the government has conducted
some training of state employees in crisis centers, but officials, particularly at the operational
level among police, military and immigration authorities, are not sufficiently educated on how to
prevent trafficking.

Prosecution
The government has not yet passed a comprehensive anti-trafficking law, but a bill is currently in
the legislature. The legislature has amended the criminal code to include tougher penalties for
traffickers and passed a Child Protection Act, which should help to protect minors from traffick-
ing. The lack of a comprehensive statute against trafficking, however, hampers law enforce-
ment. Officials have used existing statutes to carry out an increasing number of arrests, but no
comprehensive nation-wide data on convictions are available. Corruption remains a major
obstacle, but some arrests against public officials linked to traffickers have been carried out.
More needs to be done. Much-needed international law enforcement cooperation, particularly
with Malaysia, has begun freeing victims and arresting traffickers.

Protection
The national plan calls for proper treatment of trafficking victims, but implementation varies
widely. Some local officials continue to treat victims as criminals and abuse them. Although
overall government victim assistance has increased, it remained small in comparison with the
scope of the problem. The government worked with NGOs and civil society organizations to
establish some general shelters and provide limited counseling. Ministry of Foreign Affairs con-
sular officials and Manpower Ministry have increased efforts to assist trafficking victims abroad.

82
 ISRAEL (TIER 2)

Israel is a destination country for trafficked persons. Women from Moldova, Russia, Ukraine,
and other countries in the former Soviet Union are trafficked to Israel for the purpose of com-
mercial sexual exploitation. Persons in search of work are trafficked into situations of coerced
labor, where they endure physical abuse or other extreme working conditions. Many low-skilled
foreign workers in Israel have their passports withheld, their contracts altered, and suffer non-
payment of salaries of varying degree and duration. Construction firms and other businesses
have brought male laborers from China and Bulgaria into Israel to work under conditions equiv-
alent to debt bondage or involuntary servitude.

The Government of Israel does not fully comply with the minimum standards for the elimination
of trafficking; however, it is making significant efforts to do so. Although the government has
pursued numerous cases of trafficking for the purpose of sexual exploitation, it must continue
taking steps to combat trafficking for forced labor and sexual exploitation. Labor trafficking is a
relatively new phenomenon in Israel and the government should increase its efforts to prosecute
those involved in perpetrating labor trafficking over the next year. The government should
ensure that employers comply with labor regulations, protect the rights of migrant workers, and
curb fraud associated with issuance of work permits.

Prevention
The government, in conjunction with NGOs, has undertaken public awareness campaigns that
include the development and distribution in Israel of flyers and other information in Russian on
trafficking for commercial sexual exploitation. It also is using its consulates and embassies in
source countries to provide information to potential victims of sex trafficking.

Prosecution
Israeli law criminalizes trafficking in persons for purposes of sexual and labor exploitation. Other
charges such as rape, false imprisonment, retaining a passport, forced labor, prostitution by means of
coercion or fraud, and kidnapping for the purpose of prostitution may also be brought. The maxi-
mum penalty for aggravated trafficking or trafficking of a minor is 20 years in prison and the penal-
ties proscribed by law are commensurate with those for rape and assault; however, the majority of
cases are resolved through plea bargains that result, on the average, in sentences of about two years.
Law enforcement actively investigates allegations of trafficking for sexual exploitation and last year
opened 67 investigations of 138 people and arrested 92 suspects. The government prosecuted some
30 cases resulting in 28 plea bargains, many of which carried sentences ranging from six months to
nine years and fines. The government also is investigating individual policemen for taking bribes or
tipping off brothels of raids, but these instances of corruption are not widespread; a small cadre of
dedicated officials works to combat trafficking, but low staffing and funding hamper the officials’
efforts. The Ministry of Justice held anti-trafficking seminars for prosecutors and police. To com-
bat labor trafficking, the Immigration Authority was established in September 2002 to coordinate
government activity related to foreign nationals, including the investigation of offenses against
migrant workers. Labor laws determining minimum wage, guaranteed pay and annual leave apply
to all workers in Israel but enforcement measures are mainly directed against migrant workers and
not against the employers who may openly breach the law. The Immigration Authority has an
investigation unit that has uncovered several networks of criminals involved in document forgery
and fraud. Prosecutors filed an indictment against four suspects allegedly involved in abusing work-
ers from Bulgaria. Israel exercises strict control and supervision of its borders.

83
 Protection
Victims of trafficking for commercial sexual exploitation who are willing to testify against their
traffickers are housed in police-funded hostels, and are provided full board, pocket money, and
access to medical care. Victims unwilling to testify are deported. Victims are not prosecuted or
fined for offenses material to their trafficking, such as illegal entry or forged documentation.
Police actively encourage victims to file complaints against traffickers. The government partial-
ly funds a hotline. Regulations stipulate that migrant workers who report a criminal offense are
not detained, are allowed access to an interpreter, and may stay in Israel as witnesses during a
criminal trial; some NGOs allege that these regulations are sometimes violated.

84
 ITALY (TIER 1)

Italy is a country of destination and transit to other EU countries for sex and labor trafficking.
Italian authorities estimate 70,000 victims of sex trafficking are reported in the country, originat-
ing from Nigeria, Albania, Moldova, Ukraine, Russia, Romania, Bulgaria, China and South
America (Ecuador, Peru and Colombia). Albanian gangs control the majority of street prostitu-
tion with the cooperation of Italian mafia.

The Government of Italy fully complies with the minimum standards for the elimination of traf-
ficking. The Italian government has a strong legal framework that criminalizes trafficking and
prioritizes human rights. Italian anti-trafficking law enforcement continued to be strong both
domestically and internationally. Advocates are concerned that pending laws on immigration and
prostitution may conflict with the currently strong legal protections for trafficking victims.

Prevention
The government focused its prevention efforts on bilateral activities with source countries, such
as Nigeria, Albania, Ukraine, and Romania, to diminish trafficking. With Nigeria in particular,
Italy has provided financial resources, equipment and training to Nigerian police and NGOs
working on trafficking prevention. The government also entered a regional agreement with
neighboring countries to strengthen border controls, cooperation, and visa requirements. The
Ministry of Equal Opportunity sponsors information campaigns and a hotline for potential vic-
tims in both Italian and English. The police sponsored law enforcement sensitivity training on
general trafficking, including increased efforts on labor trafficking awareness.

Prosecution
The government vigorously enforces its anti-trafficking criminal legislation, especially through
coordinated international operations. Italian police have a special anti-trafficking unit trained and
directed to enforce anti-trafficking criminal laws, dedicating 85 Italian law enforcement officers
to trafficking cases. In conjunction with Europol, Italian police executed “Operation Sunflower
Two” through which they apprehended 80 traffickers in several Western European countries.
Through “Operation Kanun”, a joint operation with the Government of Albania, Italian police
sentenced 104 Albanian traffickers to prison for trafficking-related mafia activities. According
to public sources, Italian authorities arrested and prosecuted over 100 other suspected traffickers
in the territory of Italy.

Protection
Over 2,500 temporary residency and work permits were given to trafficking victims in 2002,
granting access to legal and medical assistance, work, education, and witness protection via an
established network of government-recognized NGOs working on trafficking. Provisions for
trafficking victims’ protection are outlined under Article 18 and administered by the Ministry of
Equal Opportunity. The Ministry introduced the “Exit Door” publicity campaign to help prosti-
tutes know their rights and exit the trade. While the government’s 2002 budget reduced the
majority of all financial allocations for social services, including anti-trafficking expenditures,
seventy projects out of eighty submitted last year were approved, representing a net increase of
10% compared to 2001.

85
 JAMAICA (TIER 2)

Jamaica is a country of internal trafficking of minors for sexual exploitation, particularly con-
nected to the domestic tourism industry. Jamaica is also a transit country for illegal migrants;
some of those migrants may be trafficked.

The Government of Jamaica does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The government acknowl-
edges that sexual exploitation of children is taking place on the island, but officials have been
hampered in addressing the problem due to legal restrictions in convincing minors to testify.
The government is in the beginning stages of devising a plan of action, much of which is tied to
the “Child Care and Protection Act,” legislation currently being considered in the Parliament.
The Jamaican Government is working with the International Organization for Migration (IOM)
to develop an efficient entry/exit system that should reduce the unauthorized movement of per-
sons. The government is also working with the International Labor Organization (ILO) to devel-
op a strategy to address child labor issues (including underage prostitution).

Prevention
The government is aware that children are at risk and has begun to implement prevention meas-
ures. A newly established national steering committee for the protection of children is mapping
out a strategy to deal with all issues of child labor in the country. The Ministry of Health
inspects sex clubs and facilities where minors are suspected of working, but current law makes it
difficult for officials to establish whether persons found there are minors. In an effort to address
the root causes of trafficking, the Ministry of Labor provides microcredit lending and small loan
programs to at-risk populations.

Prosecution
Law enforcement efforts need to be improved. There is no comprehensive anti-trafficking law,
but criminal statutes prohibit procuring minors for prostitution. Currently, no information is
available on the number of traffickers prosecuted. Officials conducted a raid in 2001 on an area
in Sa La Mar where children were being “auctioned” off to clubs that promoted sexual exploita-
tion of children. Arrests were made, driving the “auction” activity underground. More needs to
be done. Prosecutions have been frustrated, however, due to criminal law procedures that
require minors to act as witnesses against defendants. The Child Care and Protection Act, cur-
rently under consideration by the Parliament, will provide the cornerstone for a more aggressive
approach to prosecuting traffickers. Immigration officials are working with their U.S. and
British counterparts on improving procedures in Jamaica’s international airports. A new U.S.
Government-funded project to create an efficient entry/exit system for Jamaica’s airports and
seaports should augment the government’s efforts to deal with corrupt officials who facilitate the
illegal movement of persons through Jamaica.

Protection
Appropriately, Jamaica does not arrest child prostitution victims. They are put in places of safe-
ty. Minors typically leave such protective custody and return to the sexually exploitative work.
A number of NGOs are active in Jamaica, working with the government to rehabilitate street
children and offer assistance services. The government is partnering with a range of organiza-
tions to remove minors from child labor and the street.

86
 JAPAN (TIER 2)

Japan is a country of destination for men, women, and children trafficked for sexual exploita-
tion. Victims come mainly from China, South Korea, Thailand, Taiwan, the Philippines,
Colombia, and Eastern Europe. Some victims are lured to Japan under false pretenses; others
come aware that they will work in the lucrative Japanese sex trade and are abused after their
arrival. Trafficking also occurs within Japan as victims are “resold” between traffickers.

The Government of Japan does not fully comply with the minimum standards for the elimination
of trafficking; however, it is making significant efforts to do so. The government is providing
international funding for anti-trafficking efforts in Southeast Asia and conducting symposiums
that help focus other governments. At home, however, measures are less advanced. The govern-
ment has no national plan of action. Japan’s law enforcement and immigration response is seri-
ously hindered because government officials, unclear on the nature of trafficking, tend to define
the crime too narrowly and disagree among themselves about who is a trafficking victim.

Prevention
Japan is active internationally, conducting training seminars for immigration officials in source
countries throughout Southeast Asia to help them prevent trafficking. Domestically, the govern-
ment holds information campaigns against the abuse of foreign workers. The government spon-
sored a seminar in 2003 with UNICEF to raise awareness of child trafficking, but needs to take
further legislative efforts to address the issue of commercial sex tourism where some citizens
travel abroad with the express purpose of having sex with minors.

Prosecution
Japan has no law specifically prohibiting trafficking, although in practice it applies mainly the
immigration and labor laws against traffickers. The government does investigate traffickers, but
the number of prosecutions has been too few and the penalties too weak to act as an effective
deterrent against the professional syndicates involved in trafficking. The 2003 arrest and convic-
tion of kingpin trafficker Koichi “Sony” Hagiwara were significant. His criminal sentence, like
many violent crime sentences in Japan, was light by U.S. standards (less than two years for a
repeat offender who operated a criminal trafficking organization which moved hundreds of victims
from Colombia) indicating a weakness in Japan’s punishment of traffickers. The government does
not aggressively prosecute and punish the criminal organizations involved in trafficking.

Protection
The Japanese Government does not adequately protect victims. The government’s authority to
provide temporary residency status to foreigners in an emergency is rarely invoked for foreign traf-
ficking victims. Japanese officials are trained to deal with the extenuating circumstances of for-
eign victims; however, in practice, they tend to treat them as illegal migrants and quickly deport
them. Victims who are suspected of attempting to avoid deportation may be held in detention cen-
ters, a treatment inappropriate to their status as crime victims. Facing deportation, victims have
few options to seek legal remedies against traffickers in civil courts. Japan is active internationally
making generous donations to UNDP and IOM to aid victims in Vietnam and Cambodia.

87
 KAZAKHSTAN (TIER 3)

Kazakhstan is a source, transit and destination country for women and men trafficked for purposes
of sexual exploitation and labor. Victims are trafficked to and through Kazakhstan from the Kyrgyz
Republic, Tajikistan, and Uzbekistan and are trafficked from Kazakhstan to the United Arab
Emirates, Greece, Cyprus, France, Italy, Portugal, Switzerland, Belgium, South Korea, Turkey,
Israel, and Albania. Some internal trafficking has been reported from rural areas to the cities.

The Government of Kazakhstan does not fully comply with the minimum standards for the elim-
ination of trafficking and is not making significant efforts to do so. The government’s anti-traf-
ficking focus and activity dropped significantly last year and it failed to follow through on plans
devised in the previous year. However, it presented to Parliament long-awaited draft anti-traf-
ficking legislation, which passed the lower house of Parliament on May 15.

Prevention
The government’s anti-trafficking prevention campaigns were limited to activities conducted in
varying degrees at the regional level. With the departure of the former head of the President’s
Commission on Women and Family from the position of government anti-trafficking coordina-
tor, the Commission’s focus on trafficking weakened. However, the Commission, in conjunction
with the Gender Crimes unit of the Ministry of Interior, conducted research on trafficking vic-
timization, although the results were not yet released by April 2003. Representatives of the
Commission conducted varying preventive activities, such as circulating NGO-produced anti-
trafficking information in schools, in all 16 of Kazakhstan’s administrative districts. The govern-
ment began implementing a bilateral labor agreement with the Kyrgyz Republic that allows a
quota of legally protected Kyrgyz workers in Kazakhstan.

Prosecution
The operative anti-trafficking article in Kazakhstan, Article 330, criminalizes organization of illic-
it migration, which includes trafficking across international borders and trafficking of minors.
Some trafficking cases may be prosecuted under related crimes, such as recruitment for sexual or
other exploitation and organization of brothels. While there were many reported investigations,
officials reported no cases for any of the above-mentioned crimes which had proceeded to court.
The police currently are investigating a case against a North Korean accused of trafficking women
from Uzbekistan to Kazakhstan, as well as cases in Akmolinsk, Northern Kazakhstan, Southern
Kazakhstan, and Zhambul oblasts. The government also cooperated with the governments of
South Korea, the United Arab Emirates, and Turkey on trafficking cases. The Financial Police
arrested the owner of a suspect travel agency after Almaty police dropped a criminal case against
the same company. The civil case has been ongoing for two years, as have advocates’ attempts to
see prosecution. The suspect is now in custody. A working group led by the Ministry of Justice
completed a set of anti-trafficking amendments to the criminal code and forwarded them to
Parliament for a vote on May 15. The government appointed the Prosecutor General to take the
lead as the focal point for trafficking efforts, and the Law Enforcement Coordinating Council is
working on anti-trafficking strategies. The government included a three-hour anti-trafficking
training module in the prosecutors’ mandatory re-certification training program.

Protection
The government does not have a system for identifying potential victims amongst vulnerable
groups, which puts possible victims at risk for summary deportation and criminalization during

88
police street sweeps. The government provides some protection in individual cases brought to its
attention, but it does not actively screen for victims in order to offer protection. The criminal
procedure code allows for certain protections in and out of court for witnesses; however, lack of
resources prevents protection for witnesses in trafficking cases. Government officials refer vic-
tims to NGOs for services at the local level, although no reports were provided regarding actual
victims assisted during the reporting period.

89
 KENYA (TIER 2)

Kenya is country of origin and transit for trafficked persons, primarily women and children.
Internal trafficking occurs in the form of forced child labor and child prostitution. There are an
estimated 200,000 street children in Kenya, a significant number of whom are engaged in illegal
activities, including prostitution. Women are trafficked to Lebanon and other Middle Eastern
countries for labor, while children are often trafficked to Uganda for work. Women from
Eastern Europe and Asia are trafficked through Kenya en route to western countries.

The Government of Kenya does not fully comply with the minimum standards for the elimination of
trafficking; however, it is making significant efforts to do so despite severe resource constraints. The
government needs to prosecute traffickers vigorously, provide training to law enforcement on the dis-
tinction between trafficking and smuggling, step up public awareness on child trafficking and the
worst forms of child labor, and act against corruption among the police and immigration officials.

Prevention
The Constitution prohibits slavery, servitude, and forced labor. The Children’s Act of 2001 pro-
hibits all forms of child labor that would prevent children under 16 from going to school or that is
exploitative and hazardous. The Children’s Act also prohibits child sexual exploitation. The
Ministry of Home Affairs and an international organization have set up community-based District
Advisory Committees to monitor child labor issues at the district and local levels, including school
attendance and assistance provided to children. These committees have assisted 2,803 children;
including 1,252 working in hazardous conditions and 297 working in forced labor conditions. The
government is removing street children, placing them in youth homes and in social halls, and pro-
viding them with meals and shelter to prevent them from being victimized. The government par-
ticipates in an international program seeking to eliminate the worst forms of child labor and is
undertaking a survey of the extent of the problem. The government also works with the child labor
unit of the labor unions to assist children working in the agricultural sector, by providing training
and education for employers about child labor. The government cooperates with international and
non-governmental organizations to raise awareness about child domestics. Free primary education
has been reinstated as a means to assist vulnerable populations and prevent trafficking.

Prosecution
Although there are no laws that specifically prohibit trafficking, there is a law that prohibits child
labor, the transportation of children for sale, and the commercial sexual exploitation of children;
and the Penal Code prohibits detaining females against their will for the purposes of prostitution.
Child labor laws are enforced by the Ministry of Labor’s Child Labor Unit, which has 10 full-
time inspectors who also coordinate enforcement with other government agencies. A Human
Trafficking Unit within the police was established in 2002, but its focus has been on immigration
fraud. Government officials were implicated in identification fraud to facilitate illegal smuggling
and six foreign nationals were deported for suspected smuggling of citizens to the Middle East.

Protection
The government provides programs to place street children in shelters. The government pro-
vides some support to international organizations and NGOs to assist children in domestic serv-
ice that includes education, skills training, counseling, legal advice, and a shelter for girls abused
by their employers.

90
 KUWAIT (TIER 2)

Kuwait is a destination country for women from who are put into situations of coerced labor,
where they may endure physical abuse or other extreme working conditions. Victims come pri-
marily from Bangladesh, Indonesia, the Philippines, Sri Lanka, and Pakistan. They may have
their passports withheld, contracts altered, and suffer non-payment of salaries. Some male for-
eign laborers kidnap runaway maids and force them into prostitution. Boys reportedly are traf-
ficked from Bangladesh and Pakistan to be camel jockeys.

The Government of Kuwait does not meet the minimum standards for eliminating trafficking in
persons; however, it is making significant efforts to do so. The government is strongest in pre-
venting abuse of domestic servants and prosecuting those involved in trafficking. The govern-
ment needs to take additional steps to ensure that children are not used in camel races and pro-
tect victims of trafficking.

Prevention
The government established an interministerial task force to coordinate anti-trafficking efforts.
The government works actively with labor attaches from source country embassies to resolve
cases of labor contract disputes and cases involving the abuse of domestic servants. Foreign
workers’ contracts are based on standardized contracts provided by the Ministry of Interior that
clearly explain the rights and responsibilities of the employer and the employee. A foreign
worker may not obtain a visa to Kuwait without presenting a contract signed by the employer
and employee. The Camel Racing Club mandates that all camel jockeys must be 18 years of age
or older to minimize the chances that children would be involved in these races.

Prosecution
The government does not have a law specifically criminalizing trafficking in persons. There are
laws against slavery, forced labor, coercion, rape, assault, kidnapping, prostitution, inducing or
assisting others to commit prostitution, pandering and/or operating a brothel, and the exploita-
tion of prostitution by means of coercion or fraud. Law enforcement investigates cases of mis-
treatment of foreign workers and allegations of abuse. In addition to criminal remedies, through
administrative measures and mediation under labor law, the government allows and assists
domestic servants and foreign workers to seek redress against traffickers. It is illegal to with-
hold a foreign worker’s passport, however, enforcement of this is mixed. The government has
taken individual employers and companies to court for non-payment of wages and blacklists
employers who do not fulfill their responsibilities. Over 4,000 Kuwaiti sponsors have been
blacklisted from sponsoring domestic workers due to their failure to provide prescribed benefits.
Persons convicted of heading prostitution rings or forcing women into prostitution face long jail
sentences, deportation, and, in severe cases, death. Last year the Criminal Court sentenced a
Bangladeshi man to death for kidnapping, raping, and forcing two women into prostitution.
Police also arrested a Bangladeshi pimp for running several brothels. He admitted to kidnapping
several Asian women, mostly runaway maids, and forcing them into prostitution. The penalties
for rape or forcible sexual assault range from five years to life imprisonment, or, in severe cases,
death. Victims of trafficking may file a criminal complaint or a civil suit against their employ-
ers. There is no evidence of government involvement in trafficking. The government adequately
monitors its borders, but does not monitor immigration patterns for evidence of trafficking.

91
 Protection
The government sponsors a center that assists domestics who have complaints against their
employer that is staffed by female lawyers who help resolve labor dispute and ensure that
employers meet contractual obligations. Disputes arise frequently, and the vast majority of
problems are resolved through mediation. In addition, the government opened a conciliation
center attached to a police station so that runaway domestics can file complaints against their
employer. Many source country embassies harbor runaway domestics. The government works
with foreign governments on trafficking when cases are brought to their attention. Victims of
trafficking may be treated as criminals and are detained, jailed, or deported if they are violating
other laws, such as those governing immigration or prostitution.

92
 KYRGYZ REPUBLIC (TIER 2)

The Kyrgyz Republic is a country of origin, transit and, to a lesser extent, destination for traf-
ficked women, men and children. Women are trafficked to the United Arab Emirates, Turkey,
China, Germany, and Greece for prostitution. Men and women are trafficked to Kazakhstan for
forced labor. Women who are either destined for or transiting through the country usually come
from Uzbekistan and Tajikistan.

The Government of the Kyrgyz Republic does not fully comply with the minimum standards for
the elimination of trafficking; however, it is making significant efforts to do so. Overcoming a
lack of available resources, the government showed increased political will to respond to traf-
ficking, maximized its cooperation with IOM, and improved its collaboration with local NGOs
to institute preventive and protective mechanisms.

Prevention
The government’s preventive efforts were weak, but it took some concrete steps, with the assis-
tance of IOM. The National Action Plan on Trafficking in Persons was approved by Presidential
Decree and the inter-agency task force charged with implementing the plan approved distribution
of IOM educational materials in schools, public awareness materials on buses and in bus stations,
free airtime on television and radio for anti-trafficking announcements, and directed hundreds of
law enforcement officials at central and local levels to participate in IOM anti-trafficking lectures.
The government’s Southern Regional Migration Service conducted a study of migration patterns
and vulnerability to trafficking from that region to Russia and Kazakhstan. The Border Police are
improving their border monitoring capabilities with assistance from IOM, including improving
the security of its passports and visas, which are notoriously easy to fabricate. The government
instituted stringent licensing procedures for firms sending would-be laborers abroad.

Prosecution
The current criminal code lacks sufficient provisions to prosecute the full range of trafficking
activity. Before the draft anti-trafficking law, which was introduced to Parliament, enters into
force, traffickers may be prosecuted under other laws. Although local law enforcement officers
need greater support from the central level in order to prioritize trafficking investigations and
cases, the government secured three convictions on recruitment of persons for exploitation and
four convictions on trafficking in children. The government is investigating recruitment and
employment agencies and in a recent review, the Migration Service found that two out of nine
such companies lack appropriate licenses. A criminal investigation is underway against the
founders of one of those companies. The Parliament approved mutual legal assistance treaties
with five known trafficking destination countries to improve international cooperation. Endemic
bribery and corruption prevents victims from seeking assistance from police.

Protection
The government does not have a method for screening trafficking victims nor for referring them
to NGOs for assistance. NGOs active on the issue report good cooperation with local police and
prosecutors in the few cases they refer for investigation. The government began implementing its
bilateral labor agreement with Kazakhstan and will monitor the treatment of Kyrgyz workers
through representatives there. The government is setting up labor offices in destination areas in
Russia to better serve Kyrgyz nationals working in Russia who may be exploited. At least one of
those offices will have consular representation.

93
 LAOS (TIER 2)

Laos is a source of large numbers of economic migrants, some of whom are trafficked for sexual
exploitation and forced labor. Most victims are trafficked to Thailand, where they may end up
in involuntary servitude or, in the case of girls and young women, into prostitution.

The Government of Laos does not fully comply with the minimum standards for the elimination
of trafficking; however, it is making significant efforts to do so despite severely limited
resources. The government recognizes trafficking as a problem and supports anti-trafficking
endeavors, chiefly by cooperating with NGOs operating in its territory and providing some in-
kind support such as office space and air time for public service announcements.

Prevention
The government does not directly fund any anti-trafficking prevention measures, and it does not
control its long and porous borders well. However, it does utilize government-controlled party
organizations to alert Lao citizens to the dangers of potential trafficking abuses in connection
with international travel. Most anti-trafficking projects are carried out by international organiza-
tions and NGOs, and include consciousness raising and skills development for at-risk groups.
State-controlled television and radio have broadcast anti-trafficking spots funded by NGOs and
the government. The government cooperates with UN agencies, particularly the UN Interagency
Project, to monitor, document, and suggest remedies for trafficking-related problems and has
provided salaried government employees to work on an IOM project to gather data on preven-
tion and protection statistics.

Prosecution
There is no specific anti-trafficking law in Laos, but there are laws against kidnapping and prosti-
tution. The central government keeps no data on efforts of local officials to prosecute traffickers.
Almost all government action to address trafficking is concentrated in the Ministry of Labor and
Social Welfare (MOLSW). As a first step, the ministry has provided some limited training to law
enforcement officials, although police sensitivity to victims remains inadequate. Overall, judicial
and law enforcement institutions are extremely weak, and the government is far short of develop-
ing a program to arrest and prosecute traffickers. Corruption remains a serious problem, as some
local officials reportedly profit from activities involving the illegal movement of persons.

Protection
The Government of Laos signed a border control and labor memorandum of understanding
(MOU) with Thailand that addresses the repatriation of Lao trafficking victims. This agreement
is the first of its kind in the Mekong region and commits governments to regularize the return of
victims. Depending on how the MOU is implemented, the agreement may be a significant step
forward. MOLSW has begun a program for repatriation of girls returning from prostitution or
forced labor.

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 LATVIA (TIER 2)

Latvia is a source and transit country for women and an increasing number of girls trafficked to
Finland, Sweden, Norway, Denmark, Spain, Germany, and Portugal for the purpose of sexual
exploitation. There has also been an increase in boys trafficked to Spain for both labor and sexu-
al exploitation. Internal trafficking of women and girls for sexual exploitation also occurs within
Latvia, from rural areas of high unemployment to the capital.

The Government of Latvia does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. Improvements from the pre-
vious year are limited and include only a few new efforts.

Prevention
The government addresses trafficking through the national plan on organized crime, resulting in
limited government resources for trafficking-specific programs. The roles and responsibilities of
different ministries and law enforcement agencies are still undefined and central government
coordination is lacking. The Ministry of Labor offers some free training for unemployed women
and very often, local municipalities assist the government to fund trafficking prevention pro-
grams, sometimes with foreign funding, such as small prevention campaigns.

Prosecution
The Government of Latvia has legislation in place to prosecute trafficking crimes, impose stiff penal-
ties and seize assets of traffickers. Trafficking in minors brings a prison sentence with a maximum of
fifteen years. The government acknowledges that trafficking is a problem and has tasked the Latvian
National Police Vice Squad, Border Guards of the Ministry of Interior, Department of Social Policy
Development of the Ministry of Welfare, and Consular Affairs of the Ministry of Foreign Affairs to
prepare annual reports on their progress with combating trafficking in persons. The professionalism
of the Vice Squad of the Latvia State Police, the principal anti-trafficking law enforcement institu-
tion, improved and the number of investigations increased. Eight people were convicted for traffick-
ing related crimes, six of whom were sentenced to four years in prison and one sentenced to seven
years. The most important trafficking case in Latvia was the conviction and sentencing of a trafficker
to thirteen years in prison. However, some prosecutors and judges still do not view human trafficking
as a serious crime and have reduced some of the sentences on appeal to higher courts. Cooperation
between the Border Guards, Latvian Police and NGOs increased and contributes to the effective con-
trol of the border areas. International cooperation in investigations and prosecutions is well estab-
lished with Denmark and Germany, but continues to be difficult with Spain. The Border Guard
Service manages an information database used to reveal several trafficking trends in Latvia.

Protection
Law enforcement improved its relationship with NGOs, publicly recognizing and cooperating with
specialists in witness protection and rehabilitation programs. Law enforcement officials do not treat
victims as criminals, although some officials continue to blame the victim. The government pro-
vides a witness protection center, managed by the Latvia Criminal Authorities in cooperation with
NGOs and encourages trafficking victims to assist in the investigation and prosecution of their traf-
fickers. Most victims, however, do not cooperate due to fears of retribution and social stigma. The
government also mandates training for consular officers from NGOs on victim identification, while
Latvian missions abroad provide travel documents for trafficking victims.

95
 LEBANON (TIER 2)

Lebanon is a destination country for persons, primarily women from Ethiopia, Sri Lanka, and the
Philippines, trafficked to work as domestics. Many trafficking victims voluntarily and legally trav-
el to Lebanon in search of work, but are put into situations of coerced labor. In such situations,
they often endure extreme working conditions or physical abuse. Employers sometimes physically
or sexually abuse domestics. To a lesser extent, women who travel from Russia, Romania,
Ukraine, Moldova, and Bulgaria to Lebanon are forced into commercial sexual exploitation.

The Government of Lebanon does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The government’s strengths
in combating trafficking are in the area of prevention. The areas of protection and prosecution,
including law enforcement coordination with source countries, need to be expanded.

Prevention
The Ministry of Labor meets regularly with source country embassies to ensure that workers are
aware of new employment agency regulations and the “complaint line” for reporting violations.
Lebanon and Sri Lanka established a training program for Sri Lankan domestics bound for
Lebanon. Two offices are open (and three more are planned). The Labor Ministry is working
with Ethiopia to develop a similar program, which once established might be a worthy preven-
tion measure. The Prime Minister engaged two human rights lawyers to draft a pamphlet defin-
ing trafficking, outlining the complaint process, providing contact information for government
agencies, law enforcement, and non-governmental organizations. Officials will distribute it to
migrant workers upon their arrival at the airport.

Prosecution
Lebanon does not have a law criminalizing trafficking in persons. However, the Penal Code
criminalizes the deprivation of personal freedom of others by abduction or other means. The
Ministry of Labor refers cases of abuse reported to its complaint line to law enforcement for
investigation and prosecution. It also enacted regulations prohibiting employment agencies from
withholding foreign workers’ passports for any reason and specifically defining sponsors’
responsibilities with regard to the treatment of domestics. In 2002, 18 employment agencies
were closed for non-compliance with these new regulations. The Surete Generale actively inves-
tigates adult clubs employing “artistes” from Eastern Europe and issues warnings to those who
do not comply with regulations. Last year it issued 20 warnings and closed one club. There are
no indications that government officials condone or facilitate trafficking.

Protection
The government does not provide protection to victims, but does cooperate with non-govern-
mental organizations that provide victim services. The Surete General allows NGOs access to
the Retention Center for Foreign Persons to provide legal assistance, counseling and medical
care to foreign workers. Victims may file civil suits or seek legal action. The government
signed agreements with intergovernmental organizations to assist in repatriating illegal workers.
Employers must show proof of health insurance for their employees every year to renew work
permits. In addition, prospective employers of domestics must pay a deposit to the government
that can be used for repatriation.

96
 LIBERIA (TIER 3)

Liberia is a source and destination country for trafficked persons, and also has a significant
internal trafficking problem. The government and rebel forces in Liberia forcibly conscript men,
women, and children to serve as porters, forced laborers, combatants, and sex slaves. The use of
child soldiers is widespread, and many are sent into conflicts in neighboring countries, such as
Cote d’Ivoire. The government forcibly recruits conscripts from displaced persons’ camps.
Anecdotal evidence indicates that Liberian rebel forces may traffick men, women, and children
into Liberia from displaced persons’ camps in Guinea. Government officials reportedly use
forced labor on their farms and reportedly force children to work in mines and on farms.

The Government of Liberia does not fully comply with the minimum standards for the elimina-
tion of trafficking and is not making significant efforts to do so. The government must stop
forced conscription and the use of child soldiers, punish those—including government offi-
cials—responsible for trafficking, and provide protection programs for trafficking victims.

Prevention
The government does not take action to prevent trafficking.

Prosecution
Although there is no specific anti-trafficking law, the law prohibits procuring a woman or a girl
under the age of 16 years for prostitution or immoral purposes. However, the government does
not arrest and prosecute traffickers.

Protection
The government provides no protection to trafficking victims. International and non-govern-
mental organizations provide some protection and have created separate and secure areas for
children in displaced persons camps.

97
 LITHUANIA (TIER 1)

Lithuania is a source, transit and destination country for trafficking in women and children, for
the purpose of sexual exploitation. Lithuanian women are increasingly trafficked to Spain,
Germany, Italy, Norway, and Sweden. Women are trafficked through and within Lithuania from
Ukraine, Russia (including Kaliningrad), and Belarus.

The Government of Lithuania fully complies with the minimum standards for the elimination of
trafficking. The government showed strong preventive campaigns and increasingly vigorous law
enforcement efforts, including against government officials complicit in trafficking.

Prevention
The government continues to earmark significant funds in its national budget to implement its
two-year Program on the Control and Prevention of Trafficking in Humans and Prostitution.
This program addresses the causes of human trafficking in order to design better preventive
measures. The government conducted two vigorous preventive information and education cam-
paigns with international and non-governmental organizations, and the Nordic Council of
Ministers. The Education Ministry uses its regional network to focus on prevention among
potential victims of sexual abuse and trafficking. Trafficking issues are presented during ethics
and religion classes in schools and a toll-free hotline for students and their parents provides
information on sexual abuse and trafficking in persons.

Prosecution
Trafficking in persons into or out of Lithuania for purposes of sexual abuse, material or personal
gain, and prostitution, is criminally prohibited. Penalties range from four to eight years of impris-
onment, with more severe penalties for aggravating circumstances, including trafficking in chil-
dren. The law also provides for asset forfeiture and confiscation, with new penalties for traffick-
ing in minors, operating a brothel and possession of child pornography. The government success-
fully employed electronic and undercover surveillance, as well as videoconference technology in
the courts, in investigations and proceedings against traffickers suspected of forcing several hun-
dred women from Lithuania into European brothels. The government initiated 22 criminal cases
against traffickers mostly concerning international trafficking, with six convictions handed down
in 2002, and the government made its first arrests for internal trafficking. The government moni-
tors its own police and six former police officers received sentences from three to seven years’
imprisonment for involvement in trafficking, extortion and pimping. The government has bilateral
agreements with the Interior Ministries of more than 20 countries, including cooperation in the
area of trafficking. The government coordinates with law enforcement from several regional and
European countries via trilateral and bilateral agreements, Interpol and EU liaison officers sta-
tioned in Lithuania. Enhanced border control led to a decrease in trafficking victims from
Ukraine, Russia and Belarus, transiting through Lithuania, and the police have been working to
create a national database to monitor traffickers through other related crimes. Trafficking increas-
ingly falls under the mandate of the organized crime police.

Protection
Police provide temporary shelter, access to medical services, and some legal and counseling
services to victims who need protection, and the government provides temporary to permanent
residence status. Legally, victims should not be punished for prostitution or illegal immigration
into Lithuania; however, relief from deportation in trafficking cases is not always provided in

98
practice. The Ministry of Social Security and Labor trained social workers assisting trafficking
victims and the government trains Lithuanian consular and embassy staff in destination or transit
countries, which may fund assistance to victims. Government agencies and NGOs also encour-
age victims to file civil suits or to seek legal action against their traffickers, but find that fear of
retribution discourages this practice.

99
 MACEDONIA (FORMER YUGOSLAV REPUBLIC OF) (TIER 1)

Macedonia is a country of transit and destination for women and children trafficked for prosti-
tution from the former Soviet Union and Eastern Europe, notably Ukraine, Moldova, Romania
and Bulgaria. Some victims remain in Macedonia, while others are trafficked to Albania,
Kosovo or Italy.

The Government of Macedonia fully complies with the minimum standards for the elimination
of trafficking. The government showed increasingly effective law enforcement activities in eth-
nic-Albanian areas not under government control during the 2001 conflict, and in areas where
trafficking activity is prevalent. As a post-conflict country with limited resources, it focused sig-
nificant efforts on combating trafficking. The low conviction rate relative to arrests emerged as
an area of concern and numerous press and public reports were published questioning the
integrity of members of the judiciary. Efforts should continue in the next year to strengthen the
judiciary’s capacity to enforce rule of law.

Prevention
The government co-sponsored with IOM and local NGOs several preventive events, including a
public awareness campaign for the public at large, and a focused campaign in the country’s third
largest city. The inter-ministerial National Anti-Trafficking Committee, headed by the Ministry
of Interior State Secretary, oversees implementation of the National Action Plan. The govern-
ment instituted a new policy on issuance of work permits, whereby a centralized policy review
board approves all work permit requests. Requests for permits for dancers and waitresses are
given strict review and most are denied. The government continues to participate actively in
Stability Pact regional ministerial meetings and capacity-building programs.

Prosecution
Criminal articles on organized and forced prostitution are used to prohibit and punish trafficking
in persons. During the reporting period, courts handed down 11 convictions, ranging from six
months to seven years. Police increased the ability to investigate and arrest traffickers in areas of
previously limited government control, and the government filed over 70 trafficking-related
charges against over 100 perpetrators. The government arrested and prosecuted notorious traffick-
ing kingpin Dilaver Bojku and two associates. For activities conducted before enactment of the
current anti-trafficking legislation, the applicable criminal article held only a maximum penalty of
one year; the court handed Bojku a six-month sentence in Ohrid Jail, He was transferred to a
prison halfway house, during which time the Ministry of Interior secured additional trafficking
charges against him and extended his detention, pending trial. The government routinely cooper-
ates with neighboring countries through its Southeastern Cooperative Initiative (SECI) liaison and
through its bilateral cooperation agreements with UN authorities in Kosovo, Serbia and
Montenegro and Bulgaria. Government efforts to crack down on corruption continued, and sever-
al internal investigations are ongoing. In 2003, charges were brought against a local police offi-
cial on trafficking and other charges, and the case is proceeding through the court system.

Protection
Police routinely place victims found during anti-trafficking raids in the government’s transit
shelter for trafficking victims. Once the victims are in the transitional shelter, a local NGO con-
ducts interviews, and they are offered repatriation, counseling, medical and other support servic-
es through IOM. During the reporting period, 292 foreign female victims were processed

100
through the shelter, of whom 23 were under 18. Victims of trafficking in Macedonia do not
receive temporary residency status. While the government was working to enact a witness pro-
tection law and program, the police and IOM provided ad hoc witness protection for some wit-
nesses willing to testify. Police and prosecutors receive training on trafficking.

101
 MALAWI (TIER 2)

Malawi is a source country for women and children trafficked to South Africa, Botswana,
Swaziland, Zimbabwe, and Europe for forced labor and sexual exploitation. Nigerian traffickers
are increasingly active in Malawi, trafficking women and girls to Europe. Malawi also is a transit
for persons trafficked to The Netherlands, Germany, Italy, and Belgium. Internal trafficking for
forced labor and commercial exploitation also occurs. Sex tourism is an increasing problem. The
HIV/AIDS epidemic has resulted in 2 million orphans and an increasing number of child-headed
households, thereby drastically increasing the vulnerability of this population to traffickers.

The Government of Malawi does not meet the minimum standards for the elimination of traf-
ficking; however, it is making significant efforts to do so despite severe resource constraints.
The government should increase its efforts to protect victims and follow through on its review of
anti-trafficking statutes to enhance law enforcement efforts.

Prevention
The inter-ministerial committee on children implemented a child rights awareness program, an
HIV/AIDS awareness program, domestic violence campaigns, workshops, and training sessions.
Also, the committee disseminated the Convention on the Rights of the Child in local languages.
In addition, the government has targeted local customs, such as girl-child initiation rights at
puberty and early marriage, as putting children at risk for trafficking and launched campaigns
against such practices. The government established an ombudsman on children’s issues and
abolished school fees to encourage school attendance. The government provides assistance to
the growing numbers of families caring for HIV/AIDS orphans and child-headed households, to
minimize those increasingly at risk for trafficking. It also supports a multitude of youth associa-
tions working on children’s issues. The government is implementing programs to eliminate the
worst forms of child labor and is withdrawing 1,500 children from hazardous work and provid-
ing them with alternative job skills training.

Prosecution
There is currently no anti-trafficking law in Malawi. The National Task Force on Child Labor
and the Law Review Commission are reviewing child labor and trafficking statutes. The Penal
Code prohibits commercial sexual exploitation of children. Laws against promoting, managing,
or transporting any person for prostitution mandate a 14 year sentence, which is appropriately
severe. Since 2001, police have prosecuted seven cases of trafficking and closed down at least
two nightclubs during an international conference because of the presence of minor prostitutes.
Malawian police are working with INTERPOL to investigate brothel rings controlled by organ-
ized crime.

Protection
The government provides repatriation assistance for victims, including health care. Juvenile-
friendly courts handle cases involving minors.

102
 MALAYSIA (TIER 2)

Malaysia is a destination and to a lesser extent a source and transit country for trafficking for
sexual exploitation. Foreign trafficking victims come from Indonesia, Thailand, China, the
Philippines, and Uzbekistan. On a smaller scale, Malaysian women (mostly ethnic Chinese) are
trafficked to Japan, Canada, the United States, Australia and Taiwan for sexual exploitation.
Some clandestine transiting may take place through the country’s international airports.

The Government of Malaysia does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The government acknowl-
edges that trafficking is a problem and enacts most of its anti-trafficking measures in the context
of its fight against illegal migration. Malaysia needs to pass a comprehensive anti-trafficking law
to enable officials to deal with the problem. Malaysia recognizes that anti-trafficking measures
require a multilateral approach, and its growing cooperation with Indonesia is an important step.
Officials are only slowly recognizing the importance of foreign victim protection.

Prevention
The government provides funding to NGOs, which inform Malaysian women of the dangers of
sex trafficking. Government ministries provide direct job training assistance in rehabilitation
centers to young Malaysian women considered at risk of falling into prostitution.

Prosecution
Malaysia has not passed a comprehensive anti-trafficking law. Existing criminal and security
statutes can be applied against traffickers, but most traffickers are prosecuted as smugglers under
the immigration statute and as a result receive only fines or light sentences. Immigration offi-
cials have stepped up border security measures and are scrutinizing foreign visa applicants more
closely to look for potential trafficking victims. Petty corruption is a problem, but the govern-
ment is engaged in removing corrupt officials and police officers. The Home Affairs Ministry
established an inter-agency task force to crack down on criminal offenses involving vice, includ-
ing trafficking. Malaysia signed an agreement with the Philippines and Indonesia to cooperate
on transnational crimes, including trafficking in persons, and will initiate law enforcement con-
tact with its neighbors. Special cooperation is underway between the states of Sabah and
Sarawak and the Indonesian state of Kalimantan.

Protection
The government provides extensive funding for NGOs in Malaysia working generally to assist
Malaysian women; however, because the scope of the trafficking problem is small, relatively few
of these women are trafficking victims. Overseas, the Ministry of Foreign Affairs provides
assistance to Malaysian victims trafficked abroad. In Malaysia, the government applies a lower
standard of protection for foreign trafficking victims who are generally treated as immigration
offenders, often detained and held for up to several months before deportation. They are
released to the care of shelters or foreign consulates in the minority of cases when the govern-
ment clearly identifies them as bona fide trafficking victims and not economic migrants.
Malaysian officials are not trained in assisting foreign trafficking victims; operationally, officials
continue to define trafficking narrowly and treat victims as accessories.

103
 MALI (TIER 2)

Mali is primarily a source country for children trafficked to Cote d’Ivoire for farm labor. It has also
become a transit country for children and women being trafficked to and from neighboring countries
and to Europe; anecdotal evidence also suggests that it is a destination country for women from
Nigeria. Some Malian children are trafficked internally to urban centers for forced labor.

The Government of Mali does not fully comply with the minimum standards for the elimination
of trafficking; however, it is making significant efforts to do so despite severely limited resources.
Mali should strengthen its anti-trafficking efforts through enhanced prosecution of traffickers.

Prevention
As part of Mali’s comprehensive plan to combat trafficking in children, the government has par-
ticipated in several media campaigns including the “Red Card to Child Labor” program, intro-
duced during the 2002 African Cup of Nations soccer tournament in Bamako. Since February
2002, minors are required to have written parental permission to cross borders; this program is
believed to have been moderately successful in decreasing trafficking in its first year. The gov-
ernment is targeting high trafficking areas with public awareness campaigns. Mali is one of the
West African countries participating in an international organization’s program to reduce traf-
ficking in children and a regional effort to combat trafficking.

Prosecution
Trafficking in children is illegal in Mali and carries severe penalties under the law. Trafficking
in adults can also be prosecuted under laws against slavery, kidnapping, and prostitution. We
have no information on prosecutions. The government is investigating organized trafficking
rings in Mali. The government has announced plans to train border officials in spotting and
investigating traffickers. Mali’s cooperative agreement with Cote d’Ivoire appears to be working
to combat trafficking. Cooperation with border authorities from Cote d’Ivoire and Burkina Faso
has also gained momentum. As a result of both the agreement and the instability in Cote
d’Ivoire, the number of children trafficked to Cote d’Ivoire appears to be declining.

Protection
The government has established “welcome centers” which provide shelter and medical and psy-
chological services to victims; more than 600 children have been repatriated through the centers
since 2000. Victims are not treated as criminals, and the government encourages them to assist
in investigation and prosecution of traffickers. Victims also have the right to seek legal action
against their traffickers on their own.

104
 MAURITIUS (TIER 1)

Mauritius is a source country for women and children trafficked internally for commercial sexu-
al exploitation. Sex tourism is a serious concern and is being addressed through a broad coali-
tion of government and civic service institutions.

The Government of Mauritius fully complies with the minimum standards for the elimination of
trafficking. Mauritius could further enhance its anti-trafficking efforts by increasing the number
of prosecutions.

Prevention
The government is aggressively implementing its 5-year plan to protect children against
exploitation. The Ministry of Women’s Rights, Child Development, and Family Welfare, in con-
junction with the University of Mauritius, conducted a survey of exploited children and is estab-
lishing a database to track commercial sexual exploitation. During the year, the government
undertook anti-trafficking campaigns targeting child prostitution, created “Police de Proximite”
to encourage community members to report information, educated children on their rights, and
worked through women’s and youth centers, factories, and parent-teacher associations to explain
trafficking and sexual abuse. Other actions included hiring a full-time consultant to work on
pamphlets, television ads, radio spots, and booklets on child prostitution; a train-the-trainer pro-
gram for 200 community and youth leaders; and establishment of mechanisms to use the 53
social welfare centers, 109 community centers, and 12 women and youth centers and village
information councils as resources on commercial sexual exploitation. To decrease school absen-
teeism—identified as a primary cause of trafficking—the government assigns a social worker to
truant children and their families. The government also provides income generating and micro-
credit programs for poor families and educates parents about child prostitution. Sex Area
Protection Committees and Child-Watch networks are being established in high-risk areas. An
omsbudsman for children’s issues is being created. The government trains and funds NGOs.

Prosecution
The government is reviewing existing legislation to increase protection for victims and the
penalties for trafficking. Trafficking is prosecuted under statutes prohibiting brothel keeping,
debauchery, sex with a minor, and causing a child to be abused. Police at the Grand Bay Police
Station report about 6 child prostitution cases per year. Thirty law enforcement officials are
being trained in investigation and prosecution and a training manual for police is being devel-
oped. The government monitors and reports sex offenders to INTERPOL. Family courts are
reviewing procedures for dealing with the commercial sexual exploitation of children. A Family
Protection Unit of the police has been trained on child exploitation and an information technolo-
gy unit has been established to monitor Internet solicitation of minors.

Protection
The Ministry’s Child Development Unit carries out intervention, treatment, and protection serv-
ices 24 hours per day, 7 days per week. Victims are sheltered in government-supported, NGO-
run facilities and the government mandates compensation from exploiters. The government also
offers free medical, psychological, and legal assistance and has established a drop-in center for
victims of sexual abuse.

105
 MEXICO (TIER 2)

Mexico is a major source of and transit point for primarily Mexican and Central American
migrants traveling to the United States, some of who are trafficked or at risk of being trafficked
for labor or sexual exploitation. Others from Asia, South America, and Eastern Europe transit
Mexico to the United States. Those who do not succeed in passing through are often forced into
prostitution in Mexico, including a high number of children in the border area with Guatemala.
In addition to international trafficking, Mexico has internal trafficking, especially for the sexual
exploitation of children.

The Government of Mexico does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The government has
launched a national campaign against the sexual exploitation of children and achieved a high
level of success in interdicting illicit migration, including trafficking; however, efforts to assist
victims and punish traffickers, especially those that sexually exploit minors, are still limited.

Prevention
The national campaign against sexual exploitation of children, which urges people to report the
crime, has begun to show positive results. Continued and increased efforts to raise awareness
under this initiative will help identify and assist a greater number of victims.

Prosecution
Mexico’s record on law enforcement against trafficking is uneven. There have been great suc-
cesses, including the significant reduction of illicit migration and trafficking in persons between
Baja California and the United States thanks to excellent cooperation between Mexican and U.S.
officials. However, in other areas, such as Ciudad Juarez, which reports a high incidence of
child prostitution and pornography, investigation was weak. Enforcement may improve in
Ciudad Juarez as the federal social welfare agency recently contributed to a study of the problem
and NGOs have begun sensitivity training for police. In Tapachula, near the Guatemala border,
brothel owners have trafficked hundreds of Central American minors into prostitution with
almost complete impunity. Mexico continues to improve its efforts to monitor its borders well
in many places. In 2001, border officials turned back 15,000 undocumented aliens and hundreds
of migrant smugglers and in 2002, federal police arrested the head of an international alien
smuggling network. Some of these were traffickers and victims, but no data is available on the
scope of the crime for two main reasons: Mexico is primarily a transit country, so the extent of
trafficking may not be evident until the victim reaches the destination; and Mexican officials do
not attempt to distinguish victims or traffickers, they simply deport all. Corruption and poor
enforcement against exploiters of children weaken Mexico’s prosecution efforts.

Protection
The government’s social welfare agency assists trafficking victims repatriated from the United
States by providing them with shelters and health care, and by returning victims to their fami-
lies. The availability and quality of these programs varies widely by region. The federal gov-
ernment occasionally funds NGOs to assist victims, but overall the level of services should be
expanded to meet the current need. Foreign victims of trafficking who are in Mexico illegally
are generally deported instead of receiving public assistance while helping prosecutors to devel-
op a case against the trafficker.

106
 MOLDOVA (REPUBLIC OF) (TIER 2)

Moldova is primarily a source country for women and children trafficked to the Balkans
(Bosnia-Herzegovina, Macedonia, Albania, Serbia-Montenegro and Kosovo); other European
countries (Italy, France, Portugal, Germany, Romania, Bulgaria, Hungary, Slovakia, Czech
Republic, Poland, Greece, Cyprus and Turkey); and the Middle East (Lebanon, Israel, United
Arab Emirates, Pakistan and Afghanistan). There has been an increase in Moldovans trafficked
to Israel, via Moscow and Egypt, and a recently discovered case of Moldovans trafficked to
Japan. Moldovan men have been trafficked to Russia and neighboring countries for forced labor
and begging. Moldova is also a transit country for victims trafficked from Ukraine to Romania.
The border region of Transnistria, not under the central government’s control, also serves as a
source and transit point for trafficking victims.

The Government of Moldova does not fully comply with minimum standards for the elimination
of trafficking; however, it is making significant efforts to do so. The government established a
National Working Group, which developed a multi-year strategic plan for combating trafficking.
However, improvements from the previous year are limited, as the problems of endemic corrup-
tion, lack of resources and inadequate protection hinder the government’s comprehensive and
effective response.

Prevention
The government acknowledges that Moldova is one of the most significant source countries for
trafficked persons around the world, but does not yet treat it as a top priority. Most activities are
initiated by international organizations, subsidized by foreign institutions, and implemented by
NGOs, without any support from the government. The State Migration Service (SMS) increased
its anti-trafficking efforts through maintenance of a database of legally licensed agencies that it
can match with people interested in working abroad. The SMS works closely with international
organizations to educate people about the potential dangers of working abroad. In addition, over
60 representatives from the Ministry of Labor serve as trainers in a regional women’s economic
empowerment initiative.

Prosecution
Trafficking in persons is criminally prohibited in Moldova. During the reporting period, two peo-
ple were convicted and sentenced to 15 and 10 years, respectively, for trafficking children to
Russia for the purpose of begging. Of the 42 other trafficking criminal cases initiated, eight were
referred to court, 19 are pending, two were suspended, and 13 were dismissed. Trafficking-related
offenses are also prosecuted under laws on pimping, fraud, forgery and maintaining brothels. The
government’s Counter-Trafficking Division actively employs special investigative techniques,
such as electronic surveillance and undercover operations. The Government of Moldova also
works with other countries under the Stability Pact and with international organizations to
enhance anti-trafficking law enforcement skills and programs. Moldovan officials cooperate with
their counterparts in other countries and shared data were incorporated into the majority of traf-
ficking investigations in Moldova. Several human trafficking routes were closed due to interna-
tional cooperation. Most recently, officials stopped a woman who trafficked other women to
Japan. This was the first registered case of trafficking in Moldovan women to Japan. Widespread
corruption and lack of resources prevent adequate border control and monitoring of traffickers,
especially in the Transnistria region. The Moldovan Police Academy cooperated with an NGO to
develop a new curriculum and implement an anti-trafficking module for the police academy train-

107
 ing program. The government is investigating trafficking-related crimes involving government
officials, such as a mayor who was arrested for taking a bribe for issuing false documents.

Protection
The Government of Moldova fails to protect victims adequately. While it does not treat victims
as criminals it does not provide residency status, relief from deportation, shelter, or access to
legal, medical, or psychological services for victims. The government encourages victims to assist
in investigations and prosecutions. Moldovan law provides for witness protection, including
change of identity and residence, but in practice this is not always provided due to lack of
resources. There are no standard operating procedures for the identification of victims of traffick-
ing, nor are victims provided compensation. Victims can obtain employment while the trafficker
is prosecuted, but job opportunities are scarce in Moldova. The Ministries of Interior and Foreign
Affairs improved victim identification and support strategies for Moldovan consular staff abroad.

108
 MOROCCO (TIER 1)

Morocco is a country of origin and transit for trafficked persons. Internal trafficking of girls from
rural areas to cities for domestic servitude as child maids is widespread. Internal trafficking of
women for purposes of commercial sexual exploitation takes place on a smaller scale. Some
Moroccan men and women seeking work in Europe and the Middle East as domestic servants or
in the hotel or construction industry have been forced into situations of coerced labor, narcotics
trafficking, or commercial sexual exploitation. There are also unsubstantiated reports that some
who transit from West African countries through Morocco to Europe may be trafficked.

The Government of Morocco fully complies with the minimum standards for the elimination of
trafficking.

Prevention
The Government of Morocco participated in several high-level meetings with the European
Union and the Governments of Italy and Spain to strengthen migration policies and procedures
to Europe. Moroccan diplomats in both transit and destination countries are trained to assist
Moroccan victims, and Moroccan consular officers are trained to provide counsel to unattended
at-risk adolescents in Spain and Italy. Working with non-governmental organizations, the gov-
ernment has supported numerous anti-trafficking public awareness campaigns that warn young
people about the dangers of migration to Europe and citizens against using child maids.

Prosecution
Morocco has no law that specifically prohibits trafficking; however, the government utilizes a
number of statutes covering kidnapping, forced prostitution, and coercion against traffickers.
Law enforcement agencies actively investigate, prosecute and convict traffickers. A former
Belgian consul general was arrested in Morocco for recruiting Moroccan women to work in
Belgian nightclubs. An accomplice working in the Moroccan Secretariat of the Royal Palace
Guards was arrested and charged with deceit and forgery for drafting bogus letters of reference
for the women. The police worked together with law enforcement from Saudi Arabia to break
up a Moroccan trafficking ring consisting of 40 family members. Law enforcement officers par-
ticipate in training and seminars about trafficking that are held by other countries. The
Moroccan Council of Ministers announced that it had adopted a law that will increase punish-
ments against traffickers. There is no evidence of official government involvement in traffick-
ing, but some border officials and police have taken bribes to turn a blind eye to trafficking or
smuggling. A government crackdown on all types of corruption within the public sector has
investigated approximately 10,000 officials for allegations of corruption, including corruption
related to trafficking in persons.

Protection
The government provides modest funds to non-governmental organizations, participates in anti-
trafficking and anti-child labor campaigns with international organizations, repatriates former
child maids to their families, and has created a Center for Immigration that provides counseling
services including explanation of legal and civil rights to migrants. The Secretary of State for
Family has taken custody of abused child maids.

109
 MOZAMBIQUE (TIER 2)

Mozambique is a source country for men, women, and children trafficked to South Africa for
forced labor and commercial sexual exploitation. Trafficking of children for forced labor and
commercial sexual exploitation occurs within the country.

The Government of Mozambique does not fully comply with the minimum standards for the
elimination of trafficking; however, it is making significant efforts to do so despite severe
resource constraints. Mozambique’s monitoring of borders remains weak, and corruption ham-
pers cooperation with neighboring law enforcement officials.

Prevention
A multi-sectoral anti-trafficking “Campaign Against Trafficking in Children,” kicked off by the
Prime Minister, includes public figures, well-known musicians, and Catholic Church dignitaries.
The campaign continues with a massive public awareness effort on radio and television, training
for journalists, workshops for children, and training for police officers. Children participate in
nationwide debates, festivals, dances, dramas, and in the creation of leaflets to educate other
children about prostitution. Lack of funds hampers the implementation of the national plan on
abuse and exploitation of children.

Prosecution
There is no law against trafficking, and the government lacks investigative capacity; but prosecu-
tions of cases of sexual assault and rape, some of which are trafficking-related, are on the
increase. In 2002, there were seven cases in which exploiters were charged with indecent
assault of a minor with penalties ranging from two to eight years. A training seminar was held
to teach police officers how to recognize and investigate trafficking cases. Three pilot stations
staffed with special officers trained to assist trafficking victims were set up in provincial capi-
tals. Children are prohibited from going in nightclubs and cabarets. Two violations led to clo-
sure of the businesses.

Protection
Government assistance is available for victims on a short-term basis, but long-term care is limit-
ed by lack of funds. Victims are not mistreated when seeking assistance but are often asked to
pay for medical tests. Government hospitals work with NGOs that provide victim assistance in
Maputo, Beira, and Nampula. Maputo Central Hospital runs a youth psychological rehabilita-
tion center to assist children traumatized by abduction and for victims of sexual abuse.

110
 NEPAL (TIER 2)

Nepal is a source country of women and girls trafficked primarily to India for the purposes of
commercial sexual exploitation and debt bondage. Nepali women traveling to the Middle East
in search of work have been put into situations of coerced labor and other slave-like conditions.
Internal trafficking also takes place in Nepal. Women are trafficked from rural areas to cities for
commercial sexual exploitation and children are placed into debt bondage or other exploitative
child labor by their impoverished parents. An ongoing Maoist insurgency has used violence to
wrest control of remote areas from the government; many trafficking victims originate from
those areas. The insurgents have forcibly conscripted girls and boys.

The Government of Nepal does not fully comply with the minimum standards for the elimina-
tion of trafficking in persons; however, it is making significant efforts to do so despite severe
resource constraints. Pioneering efforts have been undertaken in preventing trafficking. More
vigorous efforts to prosecute all forms of trafficking, stronger coordination of law enforcement
efforts, and serious efforts to curb corruption will improve Nepal’s anti-trafficking efforts.

Prevention
The Ministry of Women, Children and Social Welfare (MWCSW) supported local, regional, and
national information campaigns on trafficking including radio and audio-visual programs, book-
lets, pamphlets, and signboards. As a pilot program, the government established “Village
Vigilance Committees” in some districts to train local residents to recognize trafficking and alert
authorities. The MWCSW publishes a newsletter and operates a program in 47 districts to
emphasize the importance of sending children to school, a key component of the government’s
campaign to eliminate child labor. The Ministry of Labor requires all workers traveling overseas
to attend an orientation session explaining worker rights and safety issues. Government-initiated
income generating projects have been introduced in 3900 villages; those projects include provid-
ing micro credit loans, introducing savings programs, and encouraging female entrepreneurs.

Prosecution
The Human Trafficking Control Act of 1986 prohibits selling persons and provides for penalties
of up to twenty years imprisonment for traffickers. However, this legislation does not criminal-
ize the separation of minors from their legal guardians with the intent of trafficking. Thus, traf-
ficking children out of Nepal may not be prosecutable as a crime until it is too late. Last year
92 cases against traffickers were taken to court; prosecution and sentencing statistics are not yet
available. Nepal’s open land border with India does not allow for stringent monitoring. Border
officials receive training from non-governmental and international organizations on how to rec-
ognize potential trafficking victims. Former trafficking victims patrol along side border officials
and help them spot potential trafficking situations. The Governments of Nepal and India have
agreed to form a Joint Cross Border Committee against Trafficking in order to collaborate on
investigations and more efficiently share information about traffickers.

Protection
The Government of Nepal provides limited resources to non-governmental organizations to pro-
vide victim assistance for rehabilitation, counseling, and medical care. Victims are not jailed,
detained, or deported. Once a victim files a civil suit or makes a criminal complaint against a
trafficker, the government will prosecute the case at no cost to the victim.

111
 THE NETHERLANDS (TIER 1)

The Netherlands is both a significant destination and transit country for trafficking, most notably
for the purposes of sexual exploitation, although there is also labor trafficking. Most victims
originate from Central and Eastern Europe, primarily Bulgaria, the Czech Republic, the Russian
Federation, Ukraine and Moldova, and from African countries, primarily Nigeria. According to
some experts, the number of reported trafficking victims, almost all foreign, has more than
quadrupled over the past decade, rising from 70 to 341.

The Government of The Netherlands fully complies with the minimum standards for the elimi-
nation of trafficking. The Government of The Netherlands has numerous and sophisticated pre-
vention, prosecution, and protection programs. However, the lack of a specific law and punish-
ment against forced labor trafficking, lack of punishment for sex trafficking of equal severity to
that for other grave sex crimes, and limited outreach by the government to the large number of
foreign victims of sex trafficking warrant concern.

Prevention
The Government of The Netherlands does not conduct prevention campaigns targeting the
demand within the public at large, but it subsidizes numerous NGO information campaigns in
Dutch schools and youth clubs. Dutch NGOs complain of insufficient efforts to target source
countries, but the government engages in bilateral assistance to many countries to sponsor pre-
ventative education programs. Most impressive, the government funds a National Rapporteur on
Trafficking in Human Beings, who investigates trafficking and publishes in-depth reports.

Prosecution
Trafficking for the purpose of sexual exploitation is specifically prohibited and subject to pun-
ishment in The Netherlands. But while the punishment for rape is twelve years, the punishment
for trafficking for sexual exploitation is six years with more severe penalties for aggravating cir-
cumstances, such as trafficking of a minor. The average sentence for trafficking for sexual
exploitation alone is even lower: eighteen months. A law to prohibit and punish other forms of
trafficking, such as forced labor and protection of victims of forced labor was introduced but
was not adopted as of April 2003. There is a national public prosecutor for sex trafficking and
an anti-trafficking coordinator in each district court. Sex trafficking is reportedly a high priority
for police in many regions of the country. Approximately 217 cases were prosecuted last year,
showing an increase from the previous year. While there were no reported convictions, the pro-
portion of cases resulting in sentences was quite high in previous years. According to the Dutch
Rapporteur, the majority of foreign victims do not usually avail themselves of the government’s
B-9 immigration law, which allows the victim to remain in the country three months while pur-
suing prosecution. This is due to the lack of knowledge, unequal access to legal counsel, fear of
retribution and restrictions on employment during this period.

Protection
The government subsidizes various Dutch and foreign NGOs working with victims trafficked for
sexual exploitation and the Dutch government cooperates with source country governments.
Most shelters are designed for Dutch victims of domestic violence, but seek to address the needs
of all victims. The Health Ministry assisted in publishing a manual that instructs relief workers
about the rights of foreign victims. Special shelters have been set up for underage foreign vic-
tims, but victim organizations have called for additional measures.

112
 NICARAGUA (TIER 2)

Nicaragua is source and transit country for persons trafficked for sexual exploitation. Many of
the victims are minors trafficked within the country, including children in prostitution and girls
who dance in nightclubs. Some Nicaraguan women and children are trafficked to other parts of
Central America for the purpose of sexual exploitation. Nicaragua is also a transit country for
illegal migrants; some of those migrants may be trafficked.

The Government of Nicaragua does not fully comply with the minimum standards for the elimi-
nation of trafficking; however, it is making significant efforts to do so. Aware of the problem,
the government does not tolerate trafficking in persons. The government carries out measures
against cross-border trafficking in the context of combating migrant smuggling. Government
efforts to address internal trafficking, which most often involves the exploitation of children, are
complicated by a lack of resources and politicization of the issue.

Prevention
A government national council headed by the First Lady has developed strategies to protect chil-
dren against forced labor and sexual exploitation. These measures focus on raising awareness of
public officials. The police work with schools to warn at-risk teenagers about trafficking. The
government works with a number of international organizations and NGOs that promote chil-
dren’s welfare, but the government does not conduct any public awareness campaigns.

Prosecution
Nicaragua has a law prohibiting trafficking for sexual exploitation, and authorities have made
some arrests under this law, but there have been very few prosecutions. A joint Nicaraguan-U.S.
task force coordinates strategy and law enforcement on the illegal international movement of per-
sons. A special police unit combats trafficking as a part of migrant smuggling. Enforcement of
child labor rules is spotty. Corruption is an overall problem, although there is no evidence that
Nicaraguan officials are engaged in trafficking-related corruption. The government does not ade-
quately monitor its borders, but officials are taking steps to improve technology and methodology.

Protection
The government does not provide special services to Nicaraguan trafficking victims beyond gen-
eral limited assistance to victims of violent crime. The government does not provide assistance to
foreign victims of trafficking. Police are not trained to recognize trafficking victims other than
minors in nightclubs. Government efforts to inspect working conditions of children are limited.

113
 NIGER (TIER 2)

Niger is a source, transit, and destination country for trafficked persons. Workers from Benin,
Togo, Nigeria, and Ghana are promised well-paying employment in Niger but often find them-
selves exploited in poorly paid domestic work or prostitution. Internal trafficking of children for
labor occurs which often leads to indentured servitude or debt bondage. Child prostitution is on
the rise. Some religious leaders exploit children sent to them for education by forcing them to
beg in the streets. Niger is a transit country for women being trafficked from West Africa to
Europe through North Africa, primarily by Nigerian traffickers. Some children from Niger are
trafficked within West Africa for forced labor.

The Government of Niger does not fully comply with the minimum standards to for the elimina-
tione of trafficking; however, it is making significant efforts to do so. A survey of migration
and trafficking patterns would help the country assess needs, and Niger should undertake addi-
tional efforts to reach rural populations, implement newly passed anti-trafficking legislation, and
prosecute traffickers.

Prevention
The President and Prime Minister discussed publicly the dangers of child trafficking. The gov-
ernment and international organizations conducted anti-trafficking information campaigns. The
government’s Child Protection and Survival of Children division publicizes the rights of children
through seminars, workshops, broadcasts, and other media. The division also actively reaches
out to at-risk children about the dangers of prostitution, HIV/AIDS, and other sexually transmit-
ted diseases. The government hosted a regional meeting of five countries that resulted in the
introduction of an Authorization Certificate for children traveling with people other than their
parents. The Ministry of Justice, Association of Traditional Chiefs, and an international organi-
zation have joined forces to prevent early marriages and forced child labor. The government
identified poverty alleviation schemes as a critical component to providing alternatives to fami-
lies who allow children to work in exploitative conditions and offers short and long-term train-
ing programs for girls and micro-credit loans to families as a means to address some of the root
causes of trafficking. The government participates in an international program to end the worst
forms of child labor and a regional plan of action to combat trafficking.

Prosecution
There is no anti-trafficking law in Niger, but the abduction, harboring, or concealment of others
is a criminal offense. The proposed anti-trafficking law will carry a sentence of five to 10 years.
We have no information on trafficking arrests in 2002, but in 2001, a trafficker from Nigeria was
arrested escorting eight women on their way to Italy. The government provides training to
police and border officials on trafficking.

Protection
The government supports the efforts of NGOs, primarily through in-kind support, to improve the
living conditions of girls who are sexually exploited and is working with an international organi-
zation to assist street children and other children working in the gold mines. This includes pro-
viding education, medical care, support groups, and other activities for child prostitutes. The
government has a witness protection program.

114
 NIGERIA (TIER 2)

Nigeria is a source, transit, and destination country for trafficked persons, predominantly women
and children. Nigerians are trafficked to Europe, the Middle East, and other parts of Africa for
forced labor, domestic servitude, and sexual exploitation. Nigerian women are trafficked for
commercial sexual exploitation, particularly to Italy, France, Spain, The Netherlands, Cote
d’Ivoire, and South Africa. Nigerian children are trafficked primarily for domestic labor within
Nigeria and throughout West and Central Africa. Children from neighboring Togo, Benin,
Ghana, and Cameroon are trafficked to Nigeria for forced labor.

The Government of Nigeria does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. More vigorous law
enforcement response to all forms of trafficking, better protection efforts including a systematic
repatriation network for trafficked children, and serious efforts against any officials found com-
plicit would improve Nigeria’s anti-trafficking efforts.

Prevention
Nigeria is withdrawing children from the worst forms of child labor through international and
regional programs to eliminate child labor and combat trafficking in persons. Several ministries
sponsor information campaigns on child rights and child labor. Federal, state, and local govern-
ment support active child rights clubs in schools. Several state governments are implementing
aggressive public awareness campaigns about the dangers of child trafficking and trafficking to
Europe. These campaigns include radio and television announcements, talk shows, documen-
taries, dramas, leaflets, briefings in local government areas, and augmented school curricula.
The Nigerian Immigration Service’s newly created human trafficking unit carried out a sensitiza-
tion campaign throughout the year that included meetings with governors, legislators, traditional
rulers, religious leaders, and educators in trafficking-prone states.

Prosecution
The Senate passed a comprehensive anti-trafficking law in March 2003. Anti-trafficking police
units were created in 11 trafficking-afflicted states. The federal police anti-trafficking unit in Edo
State, the primary source state for women trafficked to Italy, is actively investigating 100 cases,
with 30 being prosecuted. One case involved a high chief, who was subsequently stripped of his
title pending trial. The State Security Service intercepts victims and arrests traffickers. A 12-per-
son trafficking syndicate was caught processing false documents and subsequently dismantled. A
former customs officer and two others suspected of child trafficking are under investigation. A
high-profile break-up of a Nigerian trafficking ring operating in Guinea fell apart after witnesses
failed to testify without protection. Immigration authorities record 20 cases of child trafficking
each month, but lack of equipment, logistical problems, and corruption hamper their effectiveness
in processing cases to conclusion. Progress in monitoring child labor has been slow but noticeable
and is overseen by a child labor office in the Ministry of Employment, Productivity, and Labor.

Protection
The government provides support to international and NGOs, which protect victims. Nigerian
embassies in destination countries, particularly Gabon, provide assistance to victims, and the
foreign ministry created a high-level position to facilitate victim repatriation. Regional centers
to monitor child rights violations have been established. Witness protection remains weak; fami-
ly involvement in trafficking also makes it difficult to protect victims.

115
 NORTH KOREA (TIER 3)

The Democratic People’s Republic of Korea (North Korea) is primarily a source country for per-
sons trafficked for the purposes of sexual exploitation and forced labor. Economic and political
conditions in North Korea drive large numbers of Koreans to seek a way out of the country, put-
ting them at risk of victimization by traffickers. Women who enter Northern China may be sold
as brides and exploited into prostitution. The Government of North Korea carries out wide-
spread forced labor abuses within the country. North Koreans are transported to work in isolated
regions in Russia, under circumstances of forced labor exploitation, in order to pay down the
North Korean government’s foreign debt to Moscow.

The Government of North Korea does not fully comply with the minimum standards for the
elimination of trafficking and is not making significant efforts to do so. North Korea does not
recognize that trafficking in persons is a problem; in fact, the government profits from the labor
of trafficking victims.

Prevention
The government does not take measures to prevent trafficking.

Prosecutions
There are no reports of government efforts to prosecute traffickers.

Protection
There are no reports that the Government of North Korea takes measures to protect victims of
trafficking. In fact, North Koreans who were victimized by traffickers and later returned to their
country may face detention and interrogation from government authorities.

116
 NORWAY (TIER 1)

Norway is a destination country for a small but growing number of trafficked women and chil-
dren for the purposes of sexual exploitation. Children may be trafficked to Norway from the
Balkans for sexual exploitation under the guise of adoption and refugee placement. There are
also occasional instances involving household servants and youth from Eastern Europe forced to
participate in petty theft rings.

The Government of Norway fully complies with the minimum standards for the elimination of
trafficking. Although trafficking-specific reports or statistics are limited, the government of
Norway acknowledges that there is sufficient information to intensify anti-trafficking efforts.

Prevention
The government’s National Action Plan classifies trafficking as a modern form of slavery, pro-
motes cooperation between government authorities and NGOs, and allocates $15 million over
three years to prevent and prosecute trafficking and protect victims. In 2002, during its
Chairmanship of the Nordic Council, Norway initiated a Nordic-Baltic Campaign against
Trafficking in Women and Children. The Ministry of Foreign Affairs (MFA) and the Norwegian
Barents Secretariat of the Barents Euro-Arctic Council fund various prevention projects in the
Baltics and Russia. The government launched a prevention campaign for all government employ-
ees, prohibiting the purchase of sexual services on official travel and reminding all Norwegian
travelers that they will be prosecuted for engaging in child sexual abuse and/or trafficking, even if
these acts take place in a foreign country. Under the National Action Plan, the MFA initiated proj-
ects targeting at-risk populations in Eastern and Southeastern Europe, Russia, the Caucasus, and
Central and South Asia. The Norwegian Development Agency allocates funding to organizations
working to prevent trafficking and assist victims in developing countries.

Prosecution
Trafficking is not a separate criminal offense, but laws regarding, for example, labor, anti-slav-
ery, indentured servitude, immigration, sexual assault, and prostitution were used to investigate
trafficking cases. Although there is reason to believe there have been many prosecutions and
convictions, the police force keeps information on trafficking investigations confidential to pro-
tect the victims, rendering it impossible to ascertain the exact number of actions against traffick-
ers. The government earmarks significant resources to its organized crime divisions for investi-
gation and prosecution of human trafficking. The government monitors its borders and immi-
gration patterns for human trafficking. It works closely with other EU countries and made an
agreement with Finland and Russia on border control and surveillance.

Protection
Victims of trafficking have the same legal rights as other foreigners to apply for residency, asy-
lum, welfare and social assistance, and emergency health care. The government introduced a
reflection period, during which expulsion decisions may be suspended up to 45 days for traffick-
ing victims. Most NGOs in Norway that provide victim assistance receive funding from the gov-
ernment. The Ministry of Health funds an NGO that manages a center staffed with social work-
ers to provide legal assistance, counseling, harm reduction and health services for both domestic
and foreign prostitutes. Other government agencies fund NGOs for training and/or seminars on
victim assistance for public servants such as social workers and the police. The government is
also assessing the needs of women and children who cooperate with investigators to improve
current protection assistance, such as considering granting refugee status to trafficking victims.
117
 PAKISTAN (TIER 2)

Pakistan is a country of origin, transit, and destination for women and children trafficked for
purposes of sexual exploitation and bonded labor. Internal trafficking of women and girls from
rural areas to cities for purposes of sexual exploitation and labor also occurs. Pakistan is a
source country for young boys who are trafficked to the United Arab Emirates, Kuwait, and
Qatar as camel jockeys. Pakistani men and women travel to the Middle East in search of work
and are put into situations of coerced labor, slave-like conditions, and physical abuse. Pakistan
is a destination for women and children trafficked from Bangladesh, Afghanistan, Iran, and
Central Asia for purposes of commercial sexual exploitation and labor. Women trafficked from
East Asian countries and Bangladesh to the Middle East transit through Pakistan.

The Government of Pakistan does not yet fully comply with minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so despite severely limited
resources and the fact that some of its territory is beyond the control of the government. The
Government of Pakistan is strongest in prevention and protection. The government should increase
training for low-level police officers, prosecutors, and judges throughout the country. Prosecution
and conviction of those involved in perpetrating trafficking should increase over the next year.

Prevention
The government does not support specific anti-trafficking prevention programs. The government
supports targeted prevention programs such as poverty alleviation, the eradication of child labor,
promotion of girls’ education, and women’s income generation projects, aimed at eradicating the
root causes of trafficking. A government child labor initiative to keep children in school also
targets those children and families most susceptible to trafficking. The government started a
new program with benchmarks and target dates to eliminate child labor. At the provincial level,
the Punjab Ministry of Social Welfare established women’s workshops and training centers
offering instruction in income generating activities. The Federal Investigative Agency (FIA)
Academy in Islamabad provides trafficking awareness training.

Prosecution
In October 2002, the government passed a law that criminalizes all aspects of trafficking, from
recruitment and transporting to receiving a person. If rape or forced prostitution cases are prosecut-
ed under the Islamic law-oriented Hudood ordinances, victims are reluctant to testify since, the
woman’s testimony is tantamount to an admission of adultery if prosecutors conclude that her testi-
mony does not meet the burden of proof. Law enforcement investigates trafficking cases. The
Federal Investigative Agency (FIA) reports that 11 people have been arrested for trafficking under
the new statute and that prosecutions of those individuals are pending. Backlogged courts slow legal
proceedings. Pakistan and Iran signed an agreement to conduct joint investigations on trafficking in
persons and narcotics. The country worked with Iranian authorities on cases involving the traffick-
ing of camel jockeys. The government is improving its ability to patrol its borders through training
and equipment, but large areas of uncontrollable borders allow traffickers to bring women and chil-
dren into Pakistan. Despite the establishment of a National Accountability Bureau and some note-
worthy prosecutions of corruption cases, corruption remains a problem throughout Pakistan.

Protection
The government sponsors a variety of shelters and training programs throughout Pakistan that
provide medical treatment, limited legal representation, and vocational training. The govern-

118
ment provides temporary residence status to foreign trafficking victims, as well as a lawyer on
demand. However, without the advocacy of an NGO, victims may be treated as criminals and
detained on the basis of their illegal immigration status. Many victims languish in jail for
months or years without having their cases heard. On the provincial and local level, the Punjab
Ministry for Social Welfare collaborates with approximately 400 NGOs in providing women’s
shelters, orphanages, and rehabilitation programs for women and children. In destination coun-
tries for Pakistani laborers, embassy officials assist those who have been trafficked or placed in
abusive working conditions.

119
 THE PHILIPPINES (TIER 2)

The Philippines are a source, transit and, to a lesser extent, destination country for persons trafficked
for labor and sexual exploitation. A strong tradition in the country of seeking economic opportunity
outside the Philippines puts many Filipinos at risk of trafficking. Filipino women are trafficked for
sexual exploitation to destinations throughout Asia, the Middle East, Africa, Europe and North
America. Traffickers lure such victims abroad with false promises of legitimate employment.
International organized crime gangs traffick persons from Mainland China through the Philippines.
Less frequently, the Philippines are the final destination point for victims from China. There is
internal trafficking from rural to urban metropolitan areas. The sexual exploitation of children in the
Philippines through pornography, the Internet, and sex tourism is a growing concern.

The Government of the Philippines does not fully comply with the minimum standards for the
elimination of trafficking; however, it is making significant efforts to do so. The government
recognizes that trafficking is a problem and has been engaged internationally for a number of
years to combat it. The Philippine president ordered a senior-level task force headed by the
Department of Foreign Affairs to address trafficking. The 2002 agreement between the
Philippines, Malaysia and Indonesia to work cooperatively on transnational crime matters,
specifically to include trafficking in persons police work, has the potential to be a significant
step forward. Despite economic fluctuations that affect its ability to provide consistent funding,
the government still engages in good measures in the areas of prevention and protection. An
area for improvement, however, is in criminal prosecution against traffickers.

Prevention
Fourteen government agencies are involved in anti-trafficking efforts, much of which is preven-
tion-oriented. Officials oversee pre-departure sessions with overseas contract workers to warn
them about trafficking. Officials have made commendable efforts to control “mail-order bride”
businesses through increased monitoring. Government offices conduct information campaigns
on child labor and sexual exploitation for the hotel industry and other tourism businesses.

Prosecution
The Philippines in May 2003 enacted a comprehensive anti-trafficking law. The government
carries out some arrests and prosecutions of traffickers, but those efforts are small in comparison
to the scope of the problem. The number of convictions is a serious shortcoming. Available
data on prosecutions is incomplete, but reports indicate that there were 18 arrests, one conviction
and 29 trafficking establishments closed in the reporting period. There also were 13 arrests of
child pornography producers. The government is addressing malfeasance in the issuance of offi-
cial documents that certify women as “entertainers” eligible for foreign visas. Corruption
remains a problem that requires further attention.

Protection
Given years of experience with trafficking cases, many Filipino officials have developed an
understanding of the issue and how to assist trafficking victims. The government’s “Half-Way
Home” program works with NGOs to repatriate victims and provide them temporary shelter,
transportation, counseling and financial assistance. The government trains law enforcement offi-
cials on dealing with trafficking victims. Philippine embassies take steps to assist victims abroad.
Consular officials in embassies receive awareness training on dealing with trafficking victims.

120
 POLAND (TIER 1)

Poland is a country of origin, transit, and destination for trafficking in persons, primarily women
and girls, for the purpose of sexual exploitation. Some internal trafficking occurs. Individuals
are trafficked to and through Poland primarily from Ukraine, Bulgaria, Romania, Belarus, and
Russia. Polish nationals are trafficked to Western Europe, including Germany, Italy, Belgium,
and The Netherlands.

The Government of Poland fully complies with the minimum standards for the elimination of
trafficking. In the past year, the government continued its law enforcement activities and
increased its support to NGO shelter projects, but it showed weaker progress in offering status in
country to victims in need of protection or willing to testify in proceedings. As a country with
relatively few resources and which is confronting serious economic difficulties, the govern-
ment’s consistent efforts are commendable. Continual improvement in its efforts to identify and
treat victims as victims will be vital in years to come.

Prevention
In the reporting period, the government cooperated with NGOs to publish educational materials on
trafficking in persons and to organize training and workshops on the issue. The Ministry of Foreign
Affairs conducts education campaigns for young girls regarding how to identify potential traffickers
and the Ministry of Education offers programs aimed at decreasing the teenage dropout rate.

Prosecution
Polish law prohibits forcing individuals into prostitution, trafficking, and pimping. The govern-
ment actively investigates trafficking and while it is hampered by lack of resources, during the
reporting period, police conducted 149 trafficking investigations leading to 47 arrests, 18 prosecu-
tions and eight convictions. In all, these investigations uncovered 167 victims of trafficking. The
government instituted a training course for police cadets on investigation of trafficking cases and
treatment of victims. While there are reports of corruption among some police officials, no evi-
dence of high-level governmental complicity in trafficking has emerged. Recognizing the gravity
of the problem, the government approved an inter-ministerial plan to combat corruption. The gov-
ernment cooperates with other countries and regional security organizations in trafficking cases
and the repatriation of victims. It also devotes considerable resources to monitoring its border.
The Polish National Police participate in bilateral task forces with Czech, German, and Swedish
police forces and a multilateral Baltic law enforcement task force.

Protection
The government provided a public building to an NGO to use as a shelter for trafficking victims,
and gave another organization a grant to build a similar shelter. The number of shelters remains
inadequate, however, for the number of victims. Legislation allows foreign victims with illegal
status to remain in Poland during the investigation and trial of their traffickers, but resources are
not available to support them financially. In many cases, victims are deported as soon as possi-
ble, preventing the government from providing assistance. In the past year, the government pro-
vided full assistance to three victims who cooperated in prosecutions. NGOs and police cooper-
ate on police sensitivity training to improve treatment of victims during investigations. The gov-
ernment developed a pamphlet for police officers on treatment and resources for trafficking vic-
tims. There is no specific assistance set aside for repatriated victims to Poland, although they are
eligible for unemployment and welfare benefits. Poland cooperates fully with other countries in
anti-trafficking efforts and the repatriation of victims.
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 PORTUGAL (TIER 1)

Portugal is primarily a destination country for trafficked persons from Ukraine, Moldova,
Russia, Romania, Lithuania, and Belarus, as well as Brazil, Angola and Cape Verde, for the pur-
poses of forced and exploited labor of men and to a lesser extent, sexual exploitation of women.
There is some evidence of internal trafficking of children from boarding schools and orphanages
by an organized pedophilia ring, currently under investigation. Other trafficked persons transit
mainland Portugal en route to the United Kingdom and other European countries.

The Government of Portugal fully complies with the minimum standards for the elimination of
trafficking. Efforts were especially strong in the areas of prosecution and protection, with some
additional prevention action taken since last year’s report.

Prevention
All government efforts were conducted in the absence of a central, governmental task force on
trafficking, and without a constant and clear distinction between migrant smuggling and traffick-
ing. The Portuguese Ministry of Labor continued to disseminate a “welcome guide” to teach
new immigrants the basics of living and working in Portugal and prevent exploitation by traf-
fickers. The government also helped to coordinate efforts of various non-governmental and
international organization programs, including toll free hotlines and awareness-raising activities.

Prosecution
A new immigration act criminalizes new categories of trafficking and increases penalties for traf-
fickers, but laws on false documentation, extortion, fraud and other criminal activities were also
used to prosecute and convict traffickers. According to the Border and Foreigner Service (SEF),
329 trafficking-related investigations were undertaken in 2002-03. Of these, four Ukranians were
sentenced from two and a half to nine years for related crimes; 3 Portuguese citizens were sen-
tenced between seven and 15 years for involvement in a human trafficking network of 3,000 vic-
tims; and 16 defendants were charged with forced labor, trafficking and kidnapping of more than
300 Brazilian and Moldovan women forced into prostitution. The government trains its law
enforcement officers on trafficking, coordinates well with Interpol and Europol and participates in
occasional joint trainings; however, overall law enforcement efforts were hindered by jurisdiction-
al rivalries. The government increased its border monitoring at the airport, but control over the
land border—where the vast majority of traffickers and their victims enter the country—was
weaker. The government is currently working with the governments of Germany, Italy and Spain
to develop an organized crime database under Europol that will better track cross-country move-
ment of human traffickers and other criminals, mostly from Ukraine and Moldova. The govern-
ment employs special investigative techniques to investigate trafficking cases, and offers legal res-
idency as an incentive for victim participation. The government investigates its officials where it
has evidence of their involvement in trafficking persons. Judges instituted longer sentences of
traffickers amid public pressure to address the spread of organized crime.

Protection
The rights of victims are respected, and the government provides legal residence status to victims
who cooperate with authorities, and provides trafficking victim assistance. While most illegal
immigrants are either quickly deported or asked to leave the country, new legal provisions allow
the government to bypass residency visa requirements for victims who assist in the investigation
and prosecution of their traffickers. The government provided witness protection and relocation

122
for involvement in trafficking cases and offered some temporary shelter to victims. The
Portuguese Border Authority subsidizes the voluntary repatriation and reintegration assistance of
an international organization. The government introduced stronger child protection measures as a
result of extensive media attention and public outrage at the recent discovery of an organized
pedophilia ring trafficking children from boarding schools and orphanages. The government also
supports NGOs via its Health, Education and Labor Ministries, including informing trafficking
victims of their legal rights and assisting in their integration into Portuguese society.

123
 QATAR (TIER 2)

Qatar is a destination country for women who are put into situations of coerced labor, where they
may endure physical abuse or other extreme working conditions. Victims come primarily from
East Asia, South Asia, and Africa to work as domestic servants. They often have their passports
withheld, contracts altered, and suffer non-payment of salaries. Qatar is also a destination country
for boys trafficked from Sudan and to a lesser extent Pakistan and Bangladesh as camel jockeys.

The Government of Qatar does not fully comply with the minimum standards for the elimination
of trafficking; however, it is making significant efforts to do so. The government is strongest in
preventing domestic servitude and protecting victims. The government needs to take additional
steps to prevent the use of children in camel jockey races.

Prevention
The government works actively with labor attaches from South Asian countries to resolve cases of
labor contract disputes and cases involving the abuse of domestic servants. Strict controls on immi-
gration and willingness to enforce labor contracts have for the most part prevented sex trafficking
and forced labor. The government runs a 24-hour hotline staffed by the Ministry of Interior and
Supreme Council for Family Affairs personnel to advise and assist women and children in abusive
situations. The Camel Racing Association established a new minimum weight for jockeys to mini-
mize the chances that children would be involved in these races. There are planned increases in
minimum weight for the coming racing seasons. Banning children in the camel racing industry out-
right would be the most effective method of preventing children from being used as camel jockeys.

Prosecution
Qatari law specifically prohibits trafficking in persons. In addition, in 2002 the government
passed a new money laundering law, in which Article 2 specifically defines the handling of
money related to trafficking of women and children as a crime. Law enforcement agencies
actively investigate allegations of trafficking. Last year two individuals were charged as traffick-
ers; one was found guilty. The Qatari Labor Department charged 105 companies in court for
non-payment of wages and maintains a “black list” of companies that have severely violated
labor laws or abused their workers. The government strictly monitors its immigration and emi-
gration patterns for evidence of trafficking. Immigration officials refer suspect travel documents
or birth certificates establishing family relationships to local embassies for verification.
Governmental authorities and individual members of government do not facilitate, condone or
act in an otherwise complicit manner in trafficking.

Protection
The government provides assistance to domestics who have suffered from abuse in the form of
payment of back wages and repatriation. Runaway domestics are provided shelter by the gov-
ernment in deportation centers. The Qatari Labor Department is active in resolving labor dis-
putes and in ensuring that employers meet contractual obligations. Disputes arise frequently,
and the vast majority of problems are resolved through mediation. With the approval of the
Ministry of Interior, sponsorship of employees who filed valid complaints of abuse by employers
can be transferred without the current employer’s agreement. Employers are required to repatri-
ate workers at the end of their contracts, or earlier if either party wishes to terminate the contract
with notice.

124
 ROMANIA (TIER 2)

Romania is a source and transit country primarily for women and girls trafficked from Moldova
and Ukraine to Bosnia, Serbia, Macedonia, Kosovo, Albania, Greece, Italy, and Turkey for the
purpose of sexual exploitation.

The Government of Romania does not meet the minimum standards for the elimination of traf-
ficking; however, it is making significant efforts to do so. The Government’s efforts stood out in
the past year as it continued to establish itself as a leader in regional law enforcement coopera-
tion and maintenance of comprehensive records. The government showed relative weaknesses in
securing final convictions against traffickers, and while it made efforts to root out official cor-
ruption, this area needs further improvement, especially among the ranks of law enforcement.

Prevention
All relevant ministries participate in an IOM-coordinated Counter-Trafficking Steering
Committee. Together with IOM, the government developed and distributed course materials on
trafficking to schools, taught an anti-trafficking course for teachers of various subjects and lev-
els, and conducted mass media prevention campaigns targeting the public at large. A related
preventive effort involves a two-year ILO program, supported through international assistance,
to alleviate child labor and to keep children in school. The government continues to improve its
ability to monitor its borders and keeps statistics on illegal migration and movements of persons.

Prosecution
Trafficking is criminalized pursuant to a special anti-trafficking law prescribing sentences from 3
to 28 years, depending on aggravating factors; however, no convictions were brought under this
law during the reporting period. One hundred and fifty persons were convicted for an aggregate
168 offenses under various provisions of the law, and 303 victims were identified during the course
of these criminal investigations. A number of related crimes in the criminal code were used to
prosecute, convict, and sentence traffickers, such as 190 charges for slavery and 329 for pimping.
The Ministry of Interior has a specialized unit devoted to trafficking, migration, and adoption with
seven persons at headquarters and investigators in 15 regions throughout the country. The
Prosecutor General’s office assigned prosecutors throughout the country specifically to prosecute
trafficking and related crimes. The Government of Romania played a substantial role in organizing
and coordinating the SECI-led Operation Mirage. Border monitors have procedural guidelines for
identifying and responding to trafficking situations, and police interdicted several trafficking opera-
tions at the borders. The police have traveled to destination countries on occasion to bring victims
home and conduct investigations. In the past year, Romania and France agreed on cooperation on
prosecution of child trafficking rings and protection of Roma children trafficked to France.

Protection
The government drafted regulations for implementing the victim protection aspects of the anti-
trafficking law. The regulations were finalized in the latter part of the year, but without budget
allocations, law enforcement conducted victim referrals and protection during investigations
without financial support. Due to some changeovers in the government agencies tasked with
anti-trafficking, some NGOs complained that referrals and protection mechanisms suffered. The
government provides space and police protection at a refugee center turned trafficking shelter,
although the shelter did not operate consistently throughout the year. The government actively
assists in preparing documents for repatriations but relies on IOM to carry out repatriations from

125
 destination countries. The Government generally respected the legal prohibition against punish-
ing victims for crimes committed through the course of the trafficking. Foreign and domestic
victims are provided support services, including rights presentations and legal assistance.
Foreign victims’ right to work is regulated per domestic law on work permits and they are free
to leave unless they are participating in a criminal proceeding.

126
 RUSSIA (TIER 2)

Russia is a major source country for women trafficked to numerous countries globally for the
purposes of sexual exploitation. Russia is also reported to be a transit and destination country for
trafficking in persons for sexual and labor exploitation. Reportedly, women from former Soviet
countries are transited through Russia to Gulf States, Europe, and North America for the purpos-
es of sexual exploitation. Russia is also increasingly understood as a destination country for
labor trafficking both within the former Soviet Union and from neighboring countries. Internal
trafficking is also reported to exist.

The Government of Russia does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. Efforts made in the report-
ing period will need to be strengthened in light of the scale of the trafficking problem. However,
central government officials showed a strong increase in political will to recognize and confront
their trafficking problem, and recent efforts to initiate new reforms were positive. Russia’s legal
structure still does not allow for effective prosecution of traffickers, nor for victim assistance,
and efforts to prosecute traffickers for related crimes have been largely unsuccessful. The
Government of Russia must adopt and actively implement both the criminal and protective ele-
ments of the proposed legislation, and as a major source country, focus on a nation-wide, effec-
tive prevention campaign is also strongly needed.

Prevention
The government did not sponsor a comprehensive anti-trafficking campaign, but engaged in a
number of public awareness events, aimed both at the general public and potential victims. The
Deputy Chair of the Duma Legislative Committee chaired a legislative working group, which
conducted a series of national and international conferences to educate various constituents of
the anti-trafficking community and design a national action plan. The working group participat-
ed in over 50 press events arranged by the group's press liaison, including placing articles with
discussion of trafficking in Russia in major newspapers and magazines, conducting discussions
on Russian television and radio, showing a dramatic film on the trafficking of a young Russian
girl to a cross-cutting group of public professionals and leaders with educational discussions
before and after the film. Regionally, the Governments of Irkutsk and Khabarovsk established
anti-TIP commissions which include information-sharing and research, and some regional gov-
ernments and police sent their officers to trainings offered by NGOs. In one region,
Yekaterinburg, the local government encourages its officers to work with the NGOs in preven-
tion programs. The regional response is not directed by the central government and while the
geographic immensity of Russia requires a local government approach, it has not been consistent
or widespread.

Prosecution
Russia does not currently have anti-trafficking legislation, although it does have legislation
against slavery, rape, and falsification of documents. One major obstacle to active investigations
and prosecutions has been the weak legal structure related to trafficking crimes, and the small
number of investigations conducted in the past year mostly failed for lack of evidence. A high
level multi-agency legislative review working group drafted a comprehensive new anti-traffick-
ing draft law criminalizing trafficking in persons and establishing victim assistance and protec-
tion. As of April 2003, the criminal trafficking elements were being incorporated into the
President’s omnibus criminal code revision while the special law proceeded through readings in

127
 Parliament. The government passed a new criminal procedure code which allows greater protec-
tions for victims and witnesses in court proceedings, and which allows prosecution in Russia of
Russian citizens who engage in crimes abroad, including trafficking-related crimes. The
Prosecutor General’s office established a new office on international cooperation mandated to
fulfill requests from foreign governments on mutual legal assistance. The Ministry of Internal
Affairs cooperated in two ongoing international trafficking investigations with the US, and
assisted French law enforcement in investigation of a trafficking ring dismantled in October of
2002. In 2002, the Governments of Russia and the United States conducted a joint operation
against child exploitation and trafficking in Russia, resulting in several ongoing investigations in
Russia, and some final convictions. Regarding investigations against employment and recruit-
ment agencies, agents of two firms were prosecuted in relation to the preparation of false docu-
ments. Police do not respond actively to victims’ complaints pursuant to the belief that any
criminally proscribed behavior, such as slavery and rape, mostly happens after victims have left
their jurisdiction. In the far eastern region where trafficking from China is a concern, the
Ministry of Internal Affairs created a special unit to focus on migration-related crimes and sexu-
al exploitation of migrants, with a particular interest in trafficking. In an effort to decrease the
incidence of corruption in the police and judiciary, President Putin quadrupled the salary of
judges and doubled the salary of police. The government instituted a Code of Civil Service
Behavior also in an attempt to prevent corruption.

Protection
NGO’s active throughout Russia mostly report positive cooperation with local police and gov-
ernment counterparts, but many also report corruption as a major hindrance. The central govern-
ment does not provide assistance to victims nor does it support NGOs providing assistance, but
some regional governments cooperate with local NGOs. Central government authorities did not
establish a referral mechanism, but some regional governments did, most notably in the high-
risk region of Irkutsk. Current federal law provides mechanisms for victim rights and witness
protection during court proceedings, including the right to question the defendant and seek com-
pensation from the defendant without filing a separate civil suit. As trafficking in persons is not
yet a prosecutable crime, this cannot yet be measured for trafficking victims. Amendments to
witness protection laws will enhance existing protection, and the Ministry of Interior established
a new witness protection unit.

128
 RWANDA (TIER 2)

Rwanda is a source country for victims internationally trafficked to South Africa. Internal traf-
ficking for labor and sexual exploitation, particularly of children, occurs. Child prostitution is a
serious problem; an international organization estimates that there are 2,140 child prostitutes in
the major cities and tens of thousands of street children who are exploited for labor. There were
reports that Rwandan-backed Congolese militias operating in the Democratic Republic of the
Congo abducted men, women, and children for forced labor and sexual exploitation and to serve
as combatants in early 2002. Children and young men are abducted from roadsides, markets,
and their homes and then trained in military camps.

The Government of Rwanda does not fully comply with the minimum standards for the elimina-
tion of trafficking in persons; however, it is making significant efforts to do so despite severe
resource constraints. The government should implement additional sensitization campaigns
designed to increase public awareness on the exploitation of children, investigate allegations of
exploited children living and working in the streets, and take concrete steps to implement recently
ratified international protocols related to trafficking. The government should also discontinue sup-
port for its allies that forcibly conscript child soldiers and encourage them to release those abduct-
ed from servitude; and punish those officials or soldiers that carry out such recruitments.

Prevention
The government participates in an international program to eliminate the worst forms of child
labor and a regional program to prevent children from being involved in armed conflict. As part
of the government demobilization of child soldiers, it also began training its military’s officers
and enlisted soldiers on child rights to include monitoring and promoting child rights, interna-
tional and legal instruments that protect children in armed conflicts, provision of assistance to
children in armed conflict, and creation of a regional network of military trainers on children’s
issues. At least 25 of 100 designated training officers have completed this training. The govern-
ment is assisting street children with vocational and other educational opportunities. The
Ministry of Local Government has organized seminars on child rights for government officials,
civil society groups, and police. In collaboration with donors and non-governmental organiza-
tions, the government established micro-credit programs for rural women to strengthen their
families economically and protect themselves and their children from exploitation.

Prosecution
There is no specific anti-trafficking law, but laws against slavery, prostitution by coercion, kidnapping,
rape, and defilement are used to prosecute traffickers. The government actively prosecutes cases of
sex crimes, but does not keep trafficking statistics separately. In 2002, there were 479 cases recorded
of sex crimes against children. All but a few cases brought to court were fully prosecuted. The gov-
ernment recently ratified seven key international conventions, including the UN Trafficking Protocol.
We have no information on government efforts to punish Rwandan soldiers, Rwandan-backed militia,
or citizens for supporting the forcible recruitment of individuals in Rwandan-controlled DROC.

Protection
The Ministry of Local Government has opened childcare centers that serve as safe-houses for
street children in each of the country’s 12 provinces. The government continued to reunite chil-
dren separated from their families, who remain vulnerable to traffickers, during the genocide and
civil unrest. The government has released and reintegrated all children imprisoned for participa-
tion in the 1994 genocide.
129
 SAUDI ARABIA (TIER 2)

Saudi Arabia is a destination country for trafficked persons. Victims come primarily from the
Philippines, Bangladesh, Sudan, Ethiopia, India, Indonesia, and Sri Lanka to work as domestic
servants and menial laborers. Some persons who come to Saudi Arabia in search of work are
forced into situations of coerced labor or slave-like conditions, and in some of those cases they
also suffer extreme working conditions and physical abuse. Some female domestic servants
work in conditions of forced labor, and in some cases those trafficking victims are also physical-
ly and sexually abused. Many low-skilled foreign workers have their passports withheld, con-
tracts altered, and suffer non-payment of salaries of varying degrees and durations.

The Government of Saudi Arabia does not fully comply with the minimum standards for the
elimination of trafficking; however, it is making significant efforts to do so. The government’s
strengths in combating trafficking are in the areas of prevention and protection. The government
is taking steps to increase the enforcement of trafficking by revising its visa system.

Prevention
The Ministries of Labor and Interior work closely with their counterparts from the Philippines
and Sri Lanka on foreign labor issues. Various ministries have supported public awareness cam-
paigns advising abused domestic workers to seek refuge in government-sponsored shelters, and
brochures are distributed to domestic servants in their own languages upon arrival, advising
them on how to report abuse. Foreign workers must now use licensed agencies in the Kingdom
and nationally licensed recruitment agencies in the source country. The Saudi Arabia National
Recruitment Committee instituted a unified labor contract for foreign workers clarifying require-
ments and expectations of recruitment agencies and workers. The government is funding an
awareness-training program in Sri Lanka for women seeking work in Saudi Arabia as domestics
where they receive information on their rights and useful telephone numbers. A senior religious
figure has warned Saudis against abusing their foreign workers, reminding them that Islam does
not permit the oppression of workers regardless of their religion.

Prosecution
The Government of Saudi Arabia outlawed slavery in 1962. Islamic law prohibits sexual relation-
ships outside the context of marriage and provides for strict penalties if the law is breached. Law
enforcement investigates cases of large-scale mistreatment of workers and allegations of abuse.
Some abusive household employers have been arrested. Although domestics are exempt from the
labor law, the Social Welfare Office works as a mediator between employee and sponsor. Arbitration
runs in favor of foreign workers up to 90% of the time. As part of the standard curriculum for all
officers, police academies include a class on labor regulations, including how to handle cases of
abused foreign workers. The government has shifted worker visa issuance authority to the Ministry
of Labor and Social Affairs to rein in the practice by which Saudi sponsors request more visas than
needed and sell them to middlemen. The police worked together with law enforcement from
Morocco to break up a Moroccan trafficking ring consisting of 40 family members. There are no
indications of government involvement or complicity in trafficking.

Protection
The Government of Saudi Arabia operates three shelters, called Welfare Camps, in the largest cities
for abused or trafficked female foreign workers. Police bring runaway domestics to the shelters.
Women stay there, receiving food and medical care, while law enforcement investigates their cases.
Foreign embassies have access to their citizens. These shelters have resulted in foreign embassies
no longer needing to harbor domestics on their compounds.
130
 SENEGAL (TIER 2)

Senegal is a source and transit country for women and girls trafficked to Europe, South Africa,
and the Middle East for sexual exploitation, and a destination country for children trafficked
from surrounding countries. Large numbers of Senegalese children are forced to beg in the
streets for food and money by religious leaders. Nigerian criminal organizations use Dakar as a
transit point for women trafficked for purposes of prostitution to Europe, especially Italy. Some
religious instructors in Koranic schools bring children from rural Senegal to Dakar and hold
them under conditions of involuntary servitude.

The Government of Senegal does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so despite severe resource con-
straints. Appropriate next steps would include drafting anti-trafficking legislation, continuing
efforts to centralize and streamline government anti-trafficking efforts, enforcing current
statutes, and carrying out nationwide public awareness campaigns.

Prevention
The government participates in a pilot project with an international organization that is creating
a migration statistics unit for West Africa. The Ministries of Foreign Affairs, Interior, and
Justice cooperated to produce a handbook of definitions, a regional work plan, and a survey of
migration data sources. All cases of clandestine prostitution and trafficking have been entered
from 1998-2001. Government programs are underway to make women more self-sufficient,
improve educational opportunities for children (particularly girls), assist children in Koranic
schools, foster income-generating projects in their villages, and eliminate the worst forms of
child labor. In conjunction with international organizations, the government is implementing 10
programs to withdraw children from the worst forms of child labor and build capacity of civil
society to protect children. Senegal is participating in a regional plan of action to combat traf-
ficking in persons.

Prosecution
Senegal has no law against trafficking, but existing laws do cover abduction, hostage taking, and
the sale of persons and are used against traffickers. Senegal has had some success in trafficking-
related law enforcement efforts. In 2001, a high-profile attempt to traffic Senegalese women to
Libya was prevented. In 2002, the Senegalese police responded to the allegations of an escaped
Nigerian trafficking victim with several arrests and also broke up a Chinese brothel ring. The
government provides anti-trafficking awareness training and capacity reinforcements for govern-
ment officials. The government and NGOs are working together to develop a training manual
on trafficking for police and for military peacekeepers.

Protection
The government works with several international organizations and NGOs to provide assistance
and protection to trafficking victims.

131
 SERBIA AND MONTENEGRO1 (TIER 2)

Serbia and Montenegro is a transit country and, to a lesser extent, a source and destination coun-
try, for women and girls trafficked for sexual exploitation. Victims, mostly from Moldova,
Romania, Ukraine, and Bulgaria, end up in Kosovo, Bosnia, Albania, and Western Europe. Roma
children are trafficked through Serbia and Montenegro for begging and theft in Western Europe.

The Government of Serbia and Montenegro does not fully comply with the minimum standards
for the elimination of trafficking; however, it is making significant efforts to do so. In the past
year, the federal and republic governments increased their capacity to protect victims and to
cooperate with NGOs, but lack of proper treatment of victims in court, low court convictions,
and potential government complicity are still serious weaknesses in the government’s ability to
meet the minimum standards.

Prevention
Through their anti-trafficking task forces, both republics continued local prevention coordination
mechanisms with NGOs. The Republic of Montenegro institutionalized the government’s anti-
trafficking coordinator position and established three local offices to coordinate its preventive
activities. The National Project Board in Montenegro organized awareness campaigns, including
television spots donated by government stations. Access to government schools and other public
facilities was provided for awareness campaigns.

Prosecution
The Serbian Parliament passed anti-trafficking amendments to the criminal code in the spring of
2003. Before the amendments, trafficking crimes were pursued under related laws. In the past
year, Serbian police arrested 104 individuals for trafficking-related crimes and all cases
advanced to pre-trial investigation or court proceedings. The Montenegrin Parliament passed a
republic-wide anti-trafficking law used to prosecute 22 suspects for human trafficking and 14
individuals for facilitating prostitution. The majority are in court proceedings, four are in pre-
trial investigation, 12 were dismissed and three individuals were convicted and sentenced to one-
two years’ imprisonment. Despite enhanced law enforcement capacity, court adjudication gener-
ally was weak. In several instances, courts dismissed cases for lack of evidence or allowed con-
fusing and degrading testimony in trial. Police forces in both republics have anti-trafficking
units that receive specialized training, and the border police and police academy in Serbia have
anti-trafficking training as well. A notable case in the Republic of Montenegro against a public
official included allegations of government complicity.2 Police placed the government suspect in
detention and the case is currently in pre-trial investigative procedure.

Protection
In the absence of an institutionalized system of victim protection, federal and republic govern-
ments signed memoranda of understanding with victim services organizations to ensure protec-
tion and assistance for victims. Some police were trained to identify victims as defined in the
United Nations Anti-Trafficking Protocol and to make referrals to NGOs for assistance. Both
1 On February 4, 2003, the Yugoslav parliament adopted the Constitutional Charter and Implementation Law, marking the end of the
Federal Republic of Yugoslavia and the beginning of the state union of Serbia and Montenegro. Since June 1999, Kosovo has been
administered under the authority of the United Nations Interim Administration in Kosovo (UNMIK).
2 The Minister of Interior, after backing the arrest and investigation of the deputy public prosecutor and three other suspects on sus-
picion of trafficking and facilitating prosecution, was not included in the Prime Minister’s new government—a move widely inter-
preted as a virtual dismissal.

132
republics have victim shelters and in Serbia, the Ministry of Social Services provides the premis-
es for a national counseling center. Police receive ongoing training and awareness to decrease
detention and deportation of victims. Victims do not have the right to temporary residency, but
may stay in the trafficking shelter for 30 days. They are obligated to stay as long as necessary if
they are assisting in criminal proceedings. The government signed the Stability Pact Ministerial
agreement on shelter and residency for victims, and the Ministerial agreement between Stability
Pact countries to exchange trafficking information. Victims may file civil suits and seek compen-
sation, but foreign victims have no right to work and there is no victim compensation fund. In
the notable Montenegrin case mentioned above, the victim in question was referred to the shelter
and, although she was subject to intense publicity and prolonged questioning, her treatment dur-
ing the pretrial investigation appeared to proceed according to international standards and she was
eventually resettled in a third country. Cooperation between the republic government’s anti-traf-
ficking coordinator and some NGOs serving on the National Project Board declined after the
coordinator admitted to being a close friend of one of the four suspects in the case.

KOSOVO
Kosovo, while technically a part of Serbia and Montenegro, is currently administered under the
authority of the United Nations Interim Administration in Kosovo (UNMIK) pending a determi-
nation of its future status in accordance with United Nations Security Council Resolution
(UNSCR) 1244. Since the adoption of UNSCR 1244 in June 1999, UNMIK has provided tran-
sitional administration for Kosovo including in the area of rule of law. UNMIK is aware of the
serious trafficking problem in Kosovo and conducts anti-trafficking efforts. The Special
Representative of the UN Secretary General promulgated a trafficking regulation with the force
of law in 2001, and a specialized anti-trafficking police unit made up of UN police and Kosovo
Police Service officers actively enforces the regulation.

133
 SIERRA LEONE (TIER 2)

Sierra Leone is a source country for trafficked persons. Tens of thousands of men, women, and
children were trafficked internally in Sierra Leone throughout the civil war, which ended in
January 2002. During the course of a 10-year conflict, rebels of the Revolutionary United Front
(RUF) abducted individuals and forced them to work as laborers, mainly in the country’s dia-
mond fields. Women and girls were used as sex slaves and for domestic labor. Despite the end
of the conflict and the release of some victims, the number of girls released was an extremely
small percentage of the estimated number of girls used as sex slaves during the conflict.
Moreover, it is likely that small groups of captured individuals are still being held for forced
labor or sexual servitude. Children are reportedly being trafficked to Liberia as forced con-
scripts, and some children are being trafficked to Europe in false adoption schemes. Child pros-
titution is on the rise as well.

The Government of Sierra Leone does not fully comply with the minimum standards for the
elimination of trafficking; however, it is making significant efforts to do so despite severe
resource constraints. Sierra Leone can make additional progress through undertaking a compre-
hensive public awareness campaign, stepping up law enforcement efforts, and committing addi-
tional resources for victim protection and repatriation of victims.

Prevention
The government conducts a survey of trafficking victims, works with international and non-gov-
ernmental organizations on trafficking, and now includes trafficking issues in its ongoing recon-
struction. The government’s primary focus is on demobilization of child soldiers and reunifica-
tion of families separated during the war. Government officials and non-governmental organiza-
tions provided briefings and counseling to local communities which accepted returned children.
The government supports Voice of the Children, a radio program run by children for children.
Sierra Leone is participating in a regional plan of action to combat trafficking in persons.

Prosecution
Although there is no specific anti-trafficking law, there are laws against procuring a female by
threats or coercion for the purpose of prostitution. The government assists a special UN court in
the trials of the former Interior Minister and other rebel commanders on charges of kidnapping
and recruitment of child soldiers in March 2002. The police are actively compiling a database
of trafficking cases. Police raided brothels in February 2003, breaking up a Nigerian trafficking
ring. The ringleader escaped from custody. Police officials receive training in trauma healing
and sexual and gender-based violence from non-governmental and international organizations.
Police work closely with child protection advisors attached to the peacekeeping mission.

Protection
The government and international organizations have demobilized an estimated 5,200 former
child combatants and reunited 2,363 non-combatant separated children, a significant number of
whom were trafficked. The police are also actively involved in locating and securing the release
of others still held captive, directing minors to UN programs, including the Child Protection
Unit of the peacekeeping force, and others to NGOs for assistance.

134
 SLOVAK REPUBLIC (TIER 2)

The Slovak Republic is an origin, transit and destination country primarily for women trafficked
into sexual exploitation. Slovak women have been trafficked to Spain, Greece, Italy, Switzerland,
France, Mexico and Japan. Women from former Soviet republics and Eastern Europe transit
through the Slovak Republic on their way to Austria, the Czech Republic, Germany, and other
European countries and may be trafficked into prostitution during transit.

The Government of the Slovak Republic does not meet the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The government signifi-
cantly increased its focus on trafficking and showed strong law enforcement capacity to investi-
gate and prosecute trafficking crimes. Efforts were relatively weaker regarding prevention and
protection, and petty corruption in the police and lack of resources continued to hamper the gov-
ernment’s overall ability to respond effectively.

Prevention
The government has relatively few resources to devote to trafficking, but the Ministry of Labor
provided a small grant to one NGO for its trafficking prevention programs. From the transit
country perspective, the government’s strongest preventive strategy was in strengthening law
enforcement’s ability to recognize potential trafficking schemes and share information between
agencies and neighboring countries. The anti-trafficking unit in the Bureau of Organized Crime
investigates travel and employment schemes while the Border and Alien Police coordinate infor-
mation sharing between ministries about border crossings.

Prosecution
In 2002, the government passed new amendments to existing anti-trafficking legislation. The
amended legislation brings domestic law closer in line with the UN Anti-Trafficking Protocol
provisions by including all forms of trafficking and prescribing a penalty of three to ten years,
with an increased penalty if the activity was organized or if the victim is under 18. During the
year, there were 17 reported arrests for trafficking in adults with six persons convicted, and two
arrests for trafficking in children. The Ministry of Interior created a specialized police unit to
investigate trafficking and sexual exploitation, which achieved some initial success; however, the
unit lacks training and resources. The government cooperates with a number of neighboring
countries on investigations and capacity building, and cooperated closely with German law
enforcement in a recent operation against a trafficking ring. To tighten controls at the borders,
the government instituted stronger anti-corruption measures, including firing certain officials in
customs and border agencies and arresting others.

Protection
In early 2003, the government initiated an inter-agency task force, with NGO representation, to
discuss improving witness protection and victim assistance for all crime victims, including traf-
ficking victims. The Slovak Republic cooperates with foreign governments and concluded bilat-
eral cooperation agreements with its neighbors, which have facilitated joint law enforcement
investigations. The government does not have mechanisms in place to protect trafficking victims
who could be detained, charged with related crimes, and deported. Witness protection is avail-
able and witnesses in a major anti-trafficking operation in the past year were provided protection
and assisted police in a successful investigation. Still, lack of trust in the police often prevents
potential witnesses from cooperating.

135
 SLOVENIA (TIER 2)

Slovenia is primarily a transit, and secondarily a destination, country for women and teenage
girls trafficked from Southeastern, Eastern, and Central Europe to Western Europe, the United
States, and Canada. Slovenia is also a country of origin for a small number of women and
teenaged girls trafficked to Western Europe.

The Government of Slovenia does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The government showed a
strong preventive approach, and improved law enforcement response in the past year.

Prevention
The Government of Slovenia increased public awareness through programs to sensitize potential
victims through distribution of leaflets about trafficking both at embassies and consulates for
visa recipients within vulnerable categories, and for middle and high school-aged girls regarding
recruitment methods. The government also funded a mass-media information campaign on traf-
ficking and domestic violence. Members of the Interdepartmental Working Group participated
in radio interviews, panel discussions, and arranged the TV airing of a video on trafficking vic-
tims. The government adequately monitors its borders; however, valid work permits are often
misused to facilitate trafficking.

Prosecutions
Slovenia lacks a law specifically prohibiting trafficking, although such legislation is pending. In
the meantime, the government continues to investigate and prosecute traffickers under pimping,
procurement of sexual acts, inducement into prostitution, rape, sexual assault, bringing a person
into slavery or similar conditions, or the transportation of slaves. The Inter-Departmental
Working Group for Combating Trafficking in Human Beings reports that in 2002 police made
55 trafficking-related arrests and prosecutors initiated 21 prosecutions, involving 28 victims, 15
of whom are considered victims of enslavement. During the reporting period, a special task
force of prosecutors was established to handle trafficking cases. During the past year the gov-
ernment put into practice a nation-wide Standard Operating Procedure for handling potential
trafficking cases which requires police officers to direct suspected trafficking cases to a central-
ized office in the criminal police directorate that specializes in such crimes. The government
has an independent anti-corruption office and it has participated in the Stability Pact Task Force
on Trafficking in Human Beings and other regional anti-trafficking efforts.

Protection
An adequate and sustainable system of shelter and protection for victims and witnesses has not
yet been fully established. Many victims trafficked to Slovenia enter legally and carry work per-
mits as “artistic dancers” and are therefore not under threat of deportation. Those who lose the
protection of the permit and who are subject to deportation may be referred to a new NGO shel-
ter, or to a detention facility for illegal migrants awaiting deportation. The government funds
NGOS working on trafficking-related issues. In particular, the government works closely with
one Slovenian NGO which offers reintegration services to Slovenian victims as well as counsel-
ing, legal support, and shelter to all victims. Victims who wish to return to their home country
are referred to the local IOM office, while those requesting asylum are referred to the govern-
ment’s immigration officials and UNHCR.

136
 SOUTH AFRICA (TIER 2)

South Africa is a destination country for women trafficked from other parts of Africa, Eastern
Europe, Asia, and the former Soviet Union for commercial sexual exploitation. South African
women and children are also trafficked internally for labor and commercial sexual exploitation.
Powerful trafficking syndicates from Russia, Thailand, China, and Nigeria control much of the
sex trade. Sex tourism is also increasing. South Africa is a country of transit for trafficking
operations between developing countries and Europe, the United States, and Canada.

The Government of South Africa does not fully comply with the minimum standards for the
elimination of trafficking; however, it is making significant efforts to do so. South Africa should
expedite the enactment of anti-trafficking legislation, commit more resources to understaffed
police units, provide temporary status and protection for foreign trafficking victims, and enhance
witness protection programs, particularly for child victims.

Prevention
The Ministry of Labor has established ten Child Labor Inter-Sectoral Groups, which include
several government ministries, international organizations, NGOs, unions, and employers. These
entities coordinate services, help raise public awareness, and enforce labor laws against the
worst forms of child labor. The government provided a school building for NGOs to educate
street children, funded free school uniforms for 1,900 poor children, and established 167 child
societies to promote awareness of children’s rights. Despite a media campaign against child
prostitution, high crime, child rape, domestic abuse, and HIV/AIDS remain overwhelming social
priorities. The government is working with an international organization to eliminate the worst
forms of child labor and provides child support grants and family allowances to high-risk
groups, especially child-headed household and HIV/AIDS orphans.

Prosecution
South Africa does not have a comprehensive anti-trafficking law. An anti-child trafficking provi-
sion was inserted into the Child Welfare Act, and the South African Law Commission began
drafting a comprehensive anti-trafficking law. The government is currently prosecuting a high
profile case against a prominent brothel and several child prostitution cases in Cape Town.
Victim reluctance to testify and the deportation of foreign victims continue to hamper investiga-
tions and prosecutions. The government established an anti-trafficking unit at Johannesburg
International Airport, and border police incorporated protection of women and children into their
training curriculum. Police and judicial officials received training on the commercial sexual
exploitation of children, and labor inspectors were trained and performed inspections of busi-
nesses and agricultural farms throughout 2002. South Africa cooperates with neighboring coun-
tries, but police units handling trafficking issues are understaffed and information sharing with
neighbors is hindered by corruption.

Protection
South Africa uses 20 Sexual Offenses courts to handle trafficking cases, but relies heavily on
NGOs to provide witness protection. Non-governmental organizations provide shelter, medical,
and legal assistance for child prostitutes and a hotline for victims of child abuse. The govern-
ment has donated land and buildings for various shelters for victims of sexual abuse, street chil-
dren, and orphans.

137
 REPUBLIC OF KOREA (TIER 1)

South Korea is a source, transit and destination country for women trafficked for sexual exploita-
tion. Victims come mainly from Southeast Asia (particularly the Philippines and Thailand),
China, Russia, Uzbekistan, and Kazakhstan. Women often enter South Korea on “entertainer”
visas and are forced to work as prostitutes in bars and private clubs. South Korean women are
also trafficked abroad to Japan and the United States.

The Government of South Korea fully complies with the minimum standards for the elimination
of trafficking. The government recognizes that trafficking is a national problem and undertakes
comprehensive efforts to prevent it, protect victims and prosecute traffickers. The government’s
decision to apply stricter standards in the issuance of “entertainer” visas is a positive move and
will require further monitoring. The government has taken important steps to reduce police cor-
ruption associated with trafficking.

Prevention
Many government agencies undertake education and prevention campaigns. The Korean National
Police Agency prints materials in various languages explaining the dangers of trafficking and
detailing the assistance and services offered to victims by the government. Thousands of police
officers visit schools to discuss trafficking issues with children. The highest-ranking woman police
officer has reached out to foreign embassies and potential trafficking victims. South Korean
embassies in source countries distribute leaflets warning visa applicants of sex trafficking.

Prosecution
South Korea has no anti-trafficking law, but uses a variety of criminal statutes to prosecute traf-
fickers. In 2002, the government reported that it detained and investigated 450 suspected traf-
fickers, indicted 90, and convicted 68 perpetrators. Penalties varied based on the criminal
statute applied, but three years was the average sentence. South Korea cooperates international-
ly on law enforcement, working with INTERPOL and national governments to identify and
arrest traffickers. Senior police officials have addressed incidents of corruption in their lower
ranks, and two Korean consular officials were indicted for accepting bribes to issue visas.

Protection
Government protection efforts are comprehensive and officials are aware of the need to protect
victims. The Ministry of Gender Equality provides assistance for temporary and long-term shel-
ters, which offer trafficking victims free lodging and food, medical assistance, counseling, and
legal services. The government also provides funding to domestic NGOs, which offer victims
shelter. The rights of foreign victims are generally respected, and they are not charged with ille-
gal employment or residency. Victims are provided with free legal services to seek compensa-
tion for unpaid wages. When trafficking victims report a crime or act as a witness in court, their
identity and personal information are kept confidential for their personal protection.

138
 SPAIN (TIER 1)

Spain is both a destination and transit country for trafficked persons for the purposes of sexual
exploitation and, to a lesser degree, forced labor. Victims of trafficking for sexual exploitation
come primarily from Brazil, Colombia, Ecuador, Nigeria, Guinea, Sierra Leone, Bulgaria,
Ukraine, and Russia, but an increasing number of victims come from Romania. Occasional
cases involve victims trafficked for forced labor in agriculture, sweatshops, and restaurants.
Reports increased of trafficking in Latvian boys and adolescents for both labor and sexual
exploitation. Spain is a transit country for trafficking victims destined for Portugal and Italy.

The Government of Spain fully complies with the minimum standards for the elimination of
trafficking. Effective law enforcement measures continued, with some additional international
operations taken since last year’s report.

Prevention
The government, under its Strategic Plan on Immigration, explicitly recognizes the need to fight
trafficking in persons, operates information awareness literature campaigns, funding for informa-
tion and prevention campaigns in major source countries, and a referral system by the police for
trafficking victim support.

Prosecution
Spanish law adequately prohibits internal and international trafficking in persons. The law
assigns stiff penalties to traffickers, depending on the severity of the trafficking, and contains a
specific provision for labor trafficking. Within the last year, the government broke up approxi-
mately 217 networks and arrested 880 individuals, including 164 in Madrid and 71 in Murcia,
for involvement in human trafficking. In March, the National Court sentenced eight people to 4-
15 year prison sentences for trafficking persons from Ukraine into forced labor and debt
bondage. Exploitation of prostitutes and minors through coercion and fraud is prohibited.
Immigration authorities are especially active in dismantling human trafficking organizations and
regional and local governments provide significant law enforcement assistance to control illegal
immigration and dismantle trafficking networks. The National Police Academy offers courses
on trafficking in persons and document fraud, as well as methods for identifying traffickers.
Spain cooperates with other governments on trafficking cases via INTERPOL and Europol;
however, cooperation with Latvia, a known source country, remains weak.

Protection
The Ministry of Labor and Social Affairs investigates substandard working conditions and pro-
vides funding to organizations that assist trafficking victims. Spanish law provides for tempo-
rary residence for undocumented persons who cooperate with law enforcement to prosecute
migrant smugglers, including traffickers. Undocumented trafficking victims who are scheduled
for deportation are eligible for free legal assistance from both government and non-governmen-
tal sources. Victims who are granted the right to stay in Spain in return for testimony against
traffickers are authorized to work and travel within the country, but generally are only eligible
for emergency medical care. The government funds shelters, which can accommodate traffick-
ing victims, and national, regional, and local governments fund domestic NGOs, which provide
assistance to trafficking victims.

139
 SRI LANKA (TIER 2)

Sri Lanka is a country of origin and destination for trafficked persons. Commercial sexual exploita-
tion of children, especially that of boys, occurs domestically, often in tourist areas. Many of these
children, especially girls, are lured by promises of job opportunities or overseas travel, and family
members or friends often introduce them into commercial sexual activity. Internal trafficking of per-
sons for purposes of domestic servitude and combat also takes place in Sri Lanka. In many cases,
Sri Lankan women go to the Middle East to countries such as Lebanon, Kuwait, Bahrain, United
Arab Emirates, or Saudi Arabia in search of work, only to be put into situations of coerced labor,
slave-like conditions, or sexual exploitation. A small number of Thai, Russian, and Chinese women
have been trafficked to Sri Lanka for purposes of sexual exploitation. The Liberation Tigers of Tamil
Eelam (LTTE) abduct children for purposes of forced labor and military conscription. A ceasefire
has been in place since December 2001, but children are still at risk in rebel-controlled areas.

The government of Sri Lanka does not fully comply with the minimum standards for the elimi-
nation of trafficking; however, it is making significant efforts to do so. Sri Lanka can improve
its anti-trafficking performance by stepping up law enforcement efforts, particularly against sex
tourists, and ensure the protection of children recruited as child soldiers by the LTTE as peace
negotiations continue. The government needs to ensure that foreign women who are trafficked
to Sri Lanka are not arrested.

Prevention
The government, together with NGOs, has conducted public awareness campaigns regarding
child labor and created hotlines for reporting child labor abuse. Some NGOs also work with the
government in starting educational campaigns geared towards keeping mothers from working in
the Middle East, where they often work without many civil protections. The government is
working collaboratively with other governments in educating Sri Lankan women about their
rights in destination countries.

Prosecution
The Sri Lankan Penal Code specifically criminalizes trafficking in persons, and law enforcement
authorities have undertaken some investigations of traffickers. Sri Lanka has a labor mediation
board and the government also helps in investigating fraudulent employment agencies and contracts.
The government’s Overseas Employment Bureau works with Sri Lankan embassies abroad to
resolve problems that domestic workers encounter. The LTTE controls territory in the north and
east of the country, so the government is unable to investigate or prosecute traffickers in these areas.

Protection
The Police Women’s and Children’s Bureau, the National Child Protection Authority (NCPA), and a
police unit directly attached to the NCPA work together to combat trafficking and protect victims.
The government provides rehabilitation camps and other services for victims. The government’s
ability to provide long-term assistance to victims is limited; however, the NCPA provides medical
and psychological assistance to Sri Lankan victims of trafficking and former child soldiers. The
NCPA also coordinates the monitoring of the tourism industry and the commercial sexual exploita-
tion of children. Sri Lanka shares information with foreign governments and law enforcement
organizations about the identification of child abuse. The government has assigned welfare officers
to its embassies to countries in the Middle East to assist women who may have been trafficked.

140
 SUDAN (TIER 3)

Sudan is a source and destination country for internationally trafficked persons and has wide-
spread internally trafficked persons. Sudanese government-sponsored militias and rebel groups
have abducted thousands of men, women, and children who are used as sex slaves, domestic
workers, and child soldiers from within Sudan and Uganda. Men are conscripted as soldiers and
laborers. Women and children are also subjected to intertribal abductions for domestic servitude
and sexual exploitation in the southern part of the country. There is a wide divergence in the
estimates of abducted and/or enslaved persons. An undetermined number of women and chil-
dren remain in captivity in situations of forced servitude. There are reports of Sudanese being
sold into slavery and transported through Chad to Libya and of Sudanese boys being trafficked
to the Middle East as camel jockeys.

The Government of Sudan does not fully comply with the minimum standards for the elimina-
tion of trafficking and is not making significant efforts to do so. The government has taken
some steps in the form of public statements, attempts to document abductees, and cooperation
with international observers over the past year, but lack of government will and resources con-
tinues to hamper efforts to combat trafficking in Sudan.

Prevention
Lack of government will has resulted in little progress toward preventing trafficking. The gov-
ernment signed an agreement to stop supporting the Lord’s Resistance Army of Uganda (LRA),
but the group still operates from Sudanese territory. The LRA has stepped up its activities over
the past year, and continues to hold large numbers of abductees.

Prosecution
Despite expanded authority to investigate and prosecute abductions, the government-sponsored
Committee for the Eradication of the Abduction of Women and Children (CEAWAC) and an
international NGO have documented 2,000 cases of abductees. Twenty-two intertribal commit-
tees were established to identify trafficking cases. However, abductors and users of forced labor
have not been publicly identified, nor have they been prosecuted.

Protection
The first requirement of systematic research into abduction and enslavement is a comprehensive
record of who has been abducted. No such record currently exists and will continue to hamper
repatriation efforts. Three hundred victims of the LRA were repatriated in 2002. There is some
governmental interaction with international organizations and NGOs, which provide some train-
ing of CEAWAC and victim assistance.

141
 SURINAME (TIER 3)

Suriname is a destination and transit point for Brazilian, Colombian, Dominican, and Guyanese
women trafficked into prostitution. Some women enter the country to become prostitutes, but
once in Suriname, club owners often hold passports presumably until debts are paid. Some vic-
tims are routed through Suriname to The Netherlands or other European destinations, according
to NGO reports. Suriname is a transit country for Chinese smuggled to the United States, some
of whom may be trafficked. There have been cases of Surinamese prostitutes selling their own
children for sex.

The Government of Suriname does not fully comply with the minimum standards for the elimi-
nation of trafficking and is not making significant efforts to do so. Even though the government
has extremely limited resources, it must begin to enforce laws against traffickers. Poor border
controls and widespread corruption contribute to an atmosphere where international smugglers
and traffickers can easily operate.

Prevention
The government is essentially indifferent to the issue of trafficking. No significant prevention
efforts take place. The government contributed to research by an NGO that looked at the prob-
lem of Surinamese prostitutes selling their children for sex.

Prosecution
A patchwork of laws exist which could be used to prosecute traffickers, although not all forms
of trafficking are illegal; for example, there is no protection for trafficked adult males. Although
prostitution of women is illegal, police do not investigate or in any way disrupt organized prosti-
tution that may harbor victims of trafficking. Police have intervened to help prostitutes retrieve
passports being held by brothel owners, but do not proactively investigate organizations or indi-
viduals who may be involved in trafficking.

Protection
The government does not provide any significant protection for victims. Police have assisted a
few victims of trafficking to return to their countries at the victims’ expense. Some NGOs
attempt to provide assistance to victims, but resources are greatly lacking and there is little gov-
ernment support.

142
 SWEDEN (TIER 1)

Sweden is a destination country for trafficked women and an increasing number of girls for the
purposes of sexual exploitation. Victims mostly are from the Baltic countries and central and
eastern Europe, but a small number are from Latin America and the Caribbean. Sweden also is
a transit country for trafficked victims on their way to Spain, Germany, Denmark, and Norway.

The Government of Sweden fully complies with the minimum standards for the elimination of
trafficking. Although the Government of Sweden has dedicated resources in source countries, it
must focus more on the problem within its own borders, such as including labor trafficking in its
legislation so as to fully criminalize all types of trafficking in persons; increasing prosecutions
and convictions, and better distinguishing of trafficking from illegal immigration to prevent
immediate deportation of victims. Implementation of Sweden’s pioneering legal approach to
criminalizing trafficking and prostitution will be monitored with interest as a potentially effec-
tive anti-trafficking model.

Prevention
Swedish law enforcement and social services recently began to distinguish trafficking from ille-
gal immigration and prostitution. The government engages in active research to improve the
effectiveness of legal actions against traffickers, to support and protect victims, and to better
combat trafficking in general. As a result, the government launched several education campaigns
in Sweden and neighboring countries to raise awareness and improve cooperation in the region.
Sweden also supports the Stability Pact for Southeastern Europe, specifically the programs on
prosecution. The Ministry of Foreign Affairs and Swedish International Development and
Cooperation Agency (SIDA) significantly funds international organizations’ anti-trafficking
efforts in other countries in the Baltics and Balkans, such as NGO capacity building, prevention
campaigns, and rehabilitation for victims.

Prosecution
The government passed a new law on trafficking in persons for sexual purposes in July 2002,
but the law does not cover labor trafficking. The government also passed a pioneering law that
criminalizes the purchase, rather than the sale, of sex, while police and prosecuting authorities
actively investigate cases of trafficking. Out of 200-300 trafficking cases reported by the
National Police within the last year, three were actively investigated and are pending, but no
convictions were secured. Various Swedish anti-trafficking units established in police districts
during the previous year were terminated due to lack of financial commitment. The government
cooperates with INTERPOL and Europol to investigate and prosecute traffickers and it ade-
quately monitors its borders.

Protection
The government encourages victims to assist in the investigation and the prosecution of traffick-
ers, and Sweden’s social services agencies have a legal responsibility to provide shelter to vic-
tims while they take part in trial proceedings. Victims also are entitled to legal, emotional, and
psychological support during trials. However, in practice, victims do not fully utilize the shelter
provided by social services agencies, as they are sent home almost immediately after authorities
uncover the crimes. The Migration Board shelters asylum seekers, but most trafficking victims
do not apply for asylum. In many cases, victims are deported immediately.

143
 SWITZERLAND (TIER 1)

Switzerland is primarily a country of destination, and secondarily transit, for mostly women traf-
ficked for the purposes of sexual exploitation and domestic servitude. Federal police estimate
that between 1,500 and 3,000 persons are trafficked into Switzerland each year. Authorities
believe that trafficking victims originate from Thailand and parts of Africa and South America,
with an increasing number of women from Eastern Europe and the Soviet Union. Authorities
suspect that traffickers bring some victims, many from Eastern Europe and the former Soviet
Union, to Switzerland on temporary and “artistic” visas.

The government of Switzerland fully complies with the minimum standards for the elimination
of trafficking. While the legal framework against trafficking continues to be strengthened, the
government’s practice of summarily deporting foreign women who potentially fit the victim pro-
file, without conducting a screening, is of concern as victim protection is a vital criterion for the
fulfillment of the minimum standards.

Prevention
The Government has an office to combat trafficking of young women for the purpose of com-
mercial sexual exploitation. The government financially supports the Women’s Information
Center, which implements awareness-raising projects on human trafficking in source countries.
The Federal Department of Foreign Affairs’ Development Cooperation Office provided funding
to several anti-trafficking information and education campaigns in Eastern Europe and the for-
mer Soviet Union, and to projects under the auspices of IOM, the OSCE and the Stability Pact.
Switzerland’s borders are adequately monitored with stringent immigration regulations, and the
government cooperated with a Swiss NGO to train Swiss consular officials to educate visa appli-
cants in their home countries on the risks of falling victim to trafficking. The government takes
an active stance against trafficking in persons in a number of international fora including various
UN agencies, the Council of Europe, the OSCE, and the European Union.

Prosecution
The Swiss penal code has two articles specifically prohibiting trafficking in persons, both of
which focus on sexual exploitation and prostitution, but not labor trafficking. Other forms of
human trafficking or exploitation are covered by criminal provisions against threat, coercion,
deprivation of personal liberty, rape and kidnapping; the immigration law prohibits the facilita-
tion of illegal migration and employment of foreigners into Switzerland, and the Constitution
prohibits forced compulsory labor. The Swiss Federal Court further defined trafficking when it
upheld the decision to sentence a Thai trafficker, finding that hiring foreign women for prostitu-
tion in Switzerland by taking advantage of their difficult economic situation removes their “con-
sent” and generally constitutes human trafficking. The Federal Department of Police’s Central
Coordination Office for Human Trade and Human Smuggling began operations at the beginning
of 2003. The government was active in international cooperation and investigations including:
working jointly with U.S. agents to dismantle an Asian crime ring trafficking Chinese women
into prostitution in the US and signing a legal assistance treaty in criminal matters with the
Philippines. Two separate units within the Federal Criminal Police handle trafficking issues, and
have increased the number of agents assigned to trafficking-related cases, especially internet
crimes. One notable area of weakness is the low conviction rate. Of an estimated 3,000 cases
of human trafficking every year from Eastern Europe, some 1% is reported to the police, leading
to fewer than five convictions per year.

144
Advocates believe that Switzerland’s restrictive immigration policy undermines the effectiveness
of the Penal Code and the Victim’s Assistance Law. In December 2002, the Parliament amended
the Penal Code to allow jurisdiction in Swiss courts over perpetrators of crimes such as traffick-
ing regardless of the location of the crime.

Protection
Under the Swiss Victim’s Assistance Law, individuals identified as trafficking victims may seek
help from centers providing counseling, material, and legal aid to abuse victims. This law also
safeguards victims’ rights in criminal prosecutions with special rules for trial procedures and for
compensation and redress. Federal and cantonal governments provide funding to NGOs and
women’s shelters that provide services to victims, and cantonal authorities may grant temporary
residency permits on a case-by-case basis to victims willing to assist in investigations and testify
in court. In cases of serious hardship, a federal ordinance allows cantonal police authorities to
grant a residency permit to victims of sexual exploitation or forced labor, and while practice in
this area was reportedly spotty, such permits were provided in several dozens of cases. Despite
the range of protections, some victims are summarily deported to their country of origin. The
government contributes to victim assistance internationally, and funded an international organi-
zation program providing reintegration services for victims from Eastern Europe and the former
Soviet Union.

145
 TAIWAN (TIER 1)

Taiwan is a source, transit and destination region for persons trafficked for sexual exploitation
and forced labor. Victims are trafficked to Taiwan from the PRC, Thailand, Cambodia, Vietnam,
Indonesia, and the Philippines. Some victims are lured to Taiwan as brides or under other false
pretenses; others are aware of the work they will be doing and are abused after their arrival.
Taiwan’s lucrative sex trade, widespread people-to-people exchanges with the PRC, and large-
scale movement of foreign workers provide opportunities for traffickers to exploit victims.
Women from Taiwan are trafficked to Japan for the commercial sex trade. Illegal migrants tran-
sit Taiwan on their way to North America, where some, such as those from the PRC, are des-
tined for forced labor to repay traffickers.

Taiwan authorities fully comply with the minimum standards for the elimination of trafficking.
Taiwan recognizes the problem of trafficking in persons and has carried out commendable anti-
trafficking measures, most notably to prevent the exploitation of minors. Officials devote sub-
stantial efforts to interdict the illegal movement of travelers through Taipei’s international airport.

Prevention
Authorities in Taiwan financially support anti-trafficking public awareness efforts by the NGO
community. The authorities support the work of NGOs to prevent domestic violence and deal
with family issues that may be a root cause of sex trafficking. Taiwan’s president personally
helped launch a prevention campaign directed at teenage girls, which are an at-risk population
group. Tourism officials work with NGOs, hotels, and travel agents to discourage sex tourism.
In 2003, authorities in Taiwan issued regulations designed to curb the rate of fraudulent mar-
riages between Taiwanese citizens and foreign spouses.

Prosecution
Taiwan has a statute that specifically penalizes trafficking in children for sexual exploitation, and
it has other statutes that criminalize general trafficking activities. According to data from
authorities on Taiwan, there were 233 indictments and 122 convictions during 2002 under these
statutes; some of these cases are still pending. Law enforcement authorities are trained to inves-
tigate and prosecute internet-related sex crimes involving minors. On labor matters, authorities
also take steps to police manpower recruitment agencies and employers, who occasionally traf-
fick foreign laborers. Authorities in Taiwan deal with the governments of Thailand, the
Philippines and Vietnam in an attempt to regulate the recruitment of foreign laborers in Taiwan.
Officials monitor Taiwan’s borders, but lack the capacity to prevent some illegal entries carried
out by traffickers.

Protection
The authorities in Taiwan have worked closely with NGOs to assist women and girls who have
been sexually abused. Local centers run by authorities and NGOs provide a wide range of serv-
ices to victims of sexual assault, including shelter, legal assistance, medical care, and job train-
ing. Typically, financial assistance provided by the authorities in Taiwan approaches half of
NGO operating expenses. The authorities train police and judicial officials in trafficking issues
dealing with victims. Minors who are victims of trafficking are also provided with shelter,
counseling and medical care.

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 THE REPUBLIC OF TAJIKISTAN (TIER 2)

Tajikistan is a country of origin for young women trafficked to Uzbekistan, Kazakhstan, the
Kyrgyz Republic, Russia, and countries of the Persian Gulf including the United Arab Emirates,
Yemen, Iran, and Saudi Arabia for purposes of sexual exploitation. There are reports of labor
trafficking to Kazakhstan as well.

The Government of Tajikistan does not fully comply with the minimum standards for the elimi-
nation of trafficking; however, it is making significant efforts to do so. Tajikistan is a post-con-
flict country and the poorest of the former Soviet states, with a per capita GDP estimated at
$182 for 2002. Despite its limited resources, the government took some steps forward, most
notably in its recognition of the problem and willingness to work alongside organizations with
greater resources and expertise.

Prevention
The President of Tajikistan appointed the Deputy Head of the President’s Office on Women and
Children as the government’s anti-trafficking coordinator, and he commissioned an inter-ministe-
rial committee to work jointly on improving the government’s response. The government sup-
ported international organizations’ and local NGOs’ prevention campaigns, including distributing
IOM brochures at railway stations and airports, and mandated official participation in anti-traf-
ficking activities throughout the country. The government increased support for greater rural
education and women’s business associations through its overall Poverty Reduction Strategy.

Prosecution
Tajikistan’s lower house of Parliament passed a specific anti-trafficking bill in spring of 2003,
which would also amend the criminal code to harmonize with this legislation. Until final pas-
sage, existing related criminal laws are used to prosecute cases, for which the penalties were rel-
atively light in comparison to other grave crimes. Four cases related to trafficking were prose-
cuted in the last year. In two cases, traffickers were convicted on charges of kidnapping,
exploitation of prostitution, and document and immigration fraud, and each received five-year
sentences. One of the convicted traffickers benefited from a previous presidential decree on
amnesty for certain offenses, and was released after serving only a few weeks. Members of two
other trafficking networks were arrested under similar charges. The national police academy
trains cadets on existing laws in relation to trafficking. Corruption related to bribes and pay-offs
is reported to exist among low-ranking officials, and there are no reports that the government is
taking action.

Protection
The Government of Tajikistan has no protection or reintegration programs for victims or wit-
nesses. The government cooperates with regional transit and destination countries to assist traf-
ficked Tajik nationals in specific cases. In most cases, the government, does not jail, fine, or
detain victims, although on rare occasions victims are punished for prostitution offenses. The
government lacks the expertise in dealing with victims. The level of awareness of trafficking
amongst police and social service providers is still low. The government does not provide traf-
ficking-specific training for its few consuls, although it has engaged its consulate in Russia to
oversee the condition of Tajik workers in Russia.

147
 TANZANIA (TIER 2)

Tanzania is a source and destination country for trafficked persons. Children are trafficked inter-
nally from rural to urban areas within the country for domestic work, commercial agriculture,
fishing, mining, and child prostitution. Children in the country’s large refugee population are
especially vulnerable to being trafficked to work on Tanzanian farms, and some refugees in
camps in Tanzania are recruited as child soldiers for participation in conflicts in neighboring
countries. To a lesser degree, Tanzania is a destination country for trafficked persons from India
and Kenya. Some sources also suggest that Tanzanian women and girls may be trafficked to
South Africa, the Middle East, North Africa, Europe, and the United States for commercial sexu-
al exploitation.

The Government of Tanzania does not fully comply with the minimum standards to for the elim-
inatione of trafficking; however, it is making significant efforts to do so despite severe resource
constraints. The government should provide more training to law enforcement on trafficking
issues, develop child-friendly witness protection mechanisms, and undertake more systematic
public awareness campaigns.

Prevention
A multi-agency government task force coordinates anti-child labor programs. There are public
awareness campaigns regarding the dangers of child labor and exploitation. Tanzania is one of
three countries participating in a pilot program to eliminate the worst forms of child labor. The
program brings together government agencies, trade unions, and legal and social welfare organi-
zations to combat child labor, including trafficking. The government has begun to provide free
education to primary school children, and has expanded the proportion of its budget dedicated to
education, a key strategy to prevent child labor and child prostitution.

Prosecution
Law enforcement agencies traditionally investigate cases of migrant smuggling, and it is unclear
how many of these cases are related to trafficking. There are laws related to sexual offenses and
trafficking for sexual purposes. A section of the penal code was enacted in 2001 that criminalizes
trafficking within or outside of Tanzania; however the penalty is relatively light. During the year
nightclubs were raided and 23 girls were repatriated to India for not having valid work permits.
The owners were fined. In August 2002, 12 individuals were arrested for operating a brothel in
Dar es Salaam where several underage girls were found working. This case is still pending.

Protection
The cash-strapped government does not provide victims of trafficking with assistance, but sup-
ports NGOs that are involved with anti-child labor and education efforts by providing public
buildings for classrooms and community centers. The government, in conjunction with interna-
tional organizations, is removing children from hazardous work and prostitution and providing
education and vocational training. Foreign victims are routinely repatriated.

148
 THAILAND (TIER 2)

Thailand is a source, transit and destination country for persons trafficked into sexual exploitation
and forced labor. Economic disparity in the region helps to drive significant illegal migration into
Thailand from its neighbors, presenting traffickers opportunities to move victims into labor
exploitation and, particularly women and children, into prostitution. International trafficking vic-
tims come mainly from Burma, Laos, Cambodia, and China. Many victims are from stateless
ethnic tribes in Northern Thailand and the surrounding region. Widespread sex tourism in
Thailand encourages trafficking for prostitution. Thai victims—and others sometimes transiting
through Thailand—are trafficked to Australia, South Africa, Japan, Taiwan, Europe and North
America mainly for sexual exploitation; many go willingly and are later victimized by traffickers.

The Government of Thailand does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. The government has recog-
nized for years that trafficking in persons is a problem, but the issue is still not among Thailand’s
top priorities. Concerned Thai officials, however, are gradually increasing the government’s
regional and bilateral initiatives, a positive development because Thailand has the capacity to
become a leading country in the law enforcement effort against traffickers. Thailand needs to
give more focused national government direction to prosecutions and increase the number of
arrests and convictions of traffickers at home. It also needs to continue working with its neigh-
bors on regional law enforcement. Official complicity in trafficking remains an area of concern.

Prevention
The government provides life skills training to children and young women at risk of being traf-
ficked; it works at the community level and with local industry to encourage youth to seek jobs
outside the sex trade. The government works well with NGOs and international organizations
giving wide latitude and support for these organizations to engage in public awareness cam-
paigns against trafficking and provide support services.

Prosecution
The Government of Thailand enforces laws against traffickers, but given the scope of the traf-
ficking problem within its borders, more national focus needs to be given to these efforts, partic-
ularly against kingpin traffickers. According to government data, in 2002, there were 504 traf-
ficking related arrests, resulting in 42 prosecutions and 21 jail sentences. The establishment of a
special transnational crime department, which will have a unit dedicated to combating traffick-
ing, is a high priority of the government. The first legal and administrative steps to create this
new institution have been taken. This is an important expression of the government’s long-term
commitment to law enforcement and engagement on regional police cooperation. Prosecutorial
attention should continue and expand against public officials who are involved in trafficking
abuses. Dealing with trafficking-related official corruption merits continued government efforts.
The government does not adequately control its long land borders, but it does monitor migration
at Bangkok international airport.

Protection
Overall, senior Thai officials make commendable efforts to provide protection to trafficking vic-
tims; however, the relatively large size of the country and the scope of the problem hinder the
smooth implementation of these measures. Officials attempt to ensure that foreign victims are
not treated as illegal migrants through internal government agreements. The government oper-

149
 ates 97 shelters for abused women and children, and works with NGO shelters to place traffick-
ing victims. Thailand has negotiated a migrant labor memorandum of understanding (MOU)
with Laos that also helps regularize the repatriations of foreign trafficking victims; an MOU
with Cambodia specifically addressing trafficking is near final agreement. Thai police and con-
sular officials receive training on how to deal with trafficking issues, and Thai missions overseas
provide support to victims who want to return home.

150
 TOGO (TIER 2)

Togo is a source and destination country for internationally trafficked persons, mostly children.
The majority of the victims are trafficked to Cote d’Ivoire, Benin, Gabon, Ghana, Burkina Faso,
Nigeria, Niger, and Europe for indentured servitude or domestic labor. Children are also traf-
ficked internally and from Benin, Nigeria, and Ghana to Togo’s urban areas for domestic labor.

The Government of Togo does not fully comply with the minimum standards for the elimination
of trafficking; however, it is making significant efforts to do so despite severe resource con-
straints. The government should step up its financial commitment to anti-trafficking programs
and protection efforts, penalize law enforcement officials for corruption or failure to act against
traffickers, and enhance its efforts to prosecute traffickers to conviction.

Prevention
The government stepped up its anti-trafficking public awareness campaigns during 2002. With
training from an international NGO, 278 Togolese workers traveled throughout the country to
conduct grassroots education campaigns in individual villages on the dangers of child traffick-
ing. They spoke to an estimated 35,000 people, especially young women, teachers, taxi drivers
and village leaders. The government has established four centers to provide sex- and health-
education for young women, and has also kept school fees lower for girls than for boys. In
December 2002, the government hosted a regional meeting with the governments of Benin, Cote
d’Ivoire, Mali, and Burkina Faso. Togo is participating in an international program to eliminate
the worst forms of child labor and is a member of the regional plan of action against trafficking.

Prosecution
Togo has no specific anti-trafficking law, but the government has used other laws on the illegal
movement or transfer of children, child labor, and sexual exploitation to prosecute and sentence
traffickers. The Minor’s Brigade, a police unit dedicated to juvenile issues, investigates traffick-
ing cases. The most recent year for which statistics are available is 2000, with 50 prosecutions
of traffickers. Corruption remains a problem. A bill was introduced into the National Assembly
in late 2002 to outlaw trafficking and provide specific penalties, including for parents who may
unwittingly send their children away for work. Togo cooperates with the governments of Benin,
Nigeria, and Ghana to allow expedited extraditions between the four countries.

Protection
The government works closely with and supports NGOs in providing services to victims, primarily
through in-kind donations. Four victim care centers have been established with the government
providing land and buildings. Eighty children were being sheltered in the centers as of December
2002. Victims are generally respected and not treated as criminals by government officials, includ-
ing the security forces, although this does not always occur. Victims are allowed to remain in Togo
and obtain other employment in some cases. The NGOs encourage victims to seek legal action
against traffickers. Specialized training programs are available for some victims.

151
 TURKEY (TIER 3)

Turkey is a destination country for persons trafficked for the purposes of sexual exploitation and
labor. It is also a country of transit to other European destinations, for women and girls traf-
ficked into sexual exploitation. Most victims come from countries of the former Soviet Union,
including Azerbaijan, Georgia, Armenia, Russia, Ukraine, and Moldova.

The Government of Turkey does not fully comply with the minimum standards for the elimina-
tion of trafficking and it is not making significant efforts to do so. Overall, the government is to
be commended for the new anti-trafficking criminal article and the law enforcement efforts,
including strengthening immigration laws, which were made within a relatively short amount of
time. However, the government’s progress was slow in the past year, particularly in the areas of
prevention and protection—namely, deportation without screenings—and those areas need sig-
nificant improvement.

Prevention
The government did not implement any trafficking-specific preventive campaigns, but it evidenced
some increased political will to address the trafficking issue. The Ministry of Foreign Affairs
chairs an inter-agency task force on trafficking. The task force does not meet regularly but drafted
a national action plan that the government adopted in April 2003. The government amended its
law on foreigners to allow a centralized system of work permits for foreign nationals entering
Turkey under legitimate programs. The new law will authorize foreigners to work as domestics,
something currently practiced illegally. The government actively monitors its borders, but they are
long and porous and difficult to monitor in some regions. Turkey's cooperation with source coun-
tries was reportedly limited, although improvement efforts were initiated in the spring of 2003.

Prosecution
The government amended its criminal code in the past year to prohibit trafficking in persons
(Article 201/b). The law prescribes serious penalties that are increased with aggravating circum-
stances. As of April 2003, six trafficking cases were opened in Turkish Penal Courts pursuant to
the new article, against a total of 17 suspects. In two cases, the court ruled for acquittal, finding
three defendants not guilty and determining that the two alleged victims had not been illegally
trafficked. The other four cases are ongoing. In these cases, 14 suspects will be on trial and 12
people have filed a complaint against them. More trafficking-related arrests were made in the
past year and referred to the courts, but no convictions were reported under previously existing
laws. The Ministries of Justice and Interior conducted training on the anti-trafficking legislation.

Protection
The government does not have a system for victim identification and protection; however, according
to the Ministry of Interior, seven foreign citizens exposed to trafficking were issued a humanitarian
visa (one month temporary residence permit). Five additional people were offered the humanitarian
visa but declined and requested to leave Turkey. The government supports shelters for Turkish vic-
tims of domestic violence and while it claims they can be used to serve trafficking victims, this has
not yet occurred in reported cases. Some local law enforcement officers reportedly find accommo-
dation for victims out of their personal expense. Turkey’s cooperation with source countries was
reportedly ineffective, and the government continued to deport potential victims as criminals with-
out consistently ensuring their true nationality and without proper screening as victims. The govern-
ment does not have a repatriation program, and its discussions with IOM were unsuccessful.

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 UGANDA (TIER 2)

Uganda is a source country, primarily for women and children trafficked to Sudan. Over the past 15
years, a rebel group, the Lord’s Resistance Army (LRA), has abducted tens of thousands of adults
and children and forced them to carry stolen goods, cook, serve as sex slaves, and become rebel sol-
diers. In 2002, after the government attempted to deprive the LRA of safe haven in Sudan with mil-
itary action, the number of abductions in Uganda increased significantly. The government acknowl-
edges that internal trafficking of children for labor and commercial sexual exploitation is a growing
problem. Street children and child domestics work long hours, are frequently denied food, endure
physical and sexual abuse, and are isolated from their families and friends. There are reports of
children being commercially sexually exploited, particularly in the capital and border towns.

The Government of Uganda does not fully comply with minimum standards for the elimination
of trafficking; however, it is making significant efforts to do so despite severe resource con-
straints. There are more than 1.7 million orphans and thousands of displaced persons from civil
unrest and HIV/AIDS. The government needs to develop anti-trafficking legislation, but in the
meantime, it should step up civilian prosecutions of traffickers under current statutes.

Prevention
The government acknowledges that the abductions constitute a trafficking problem and has ongo-
ing military efforts to defeat the LRA. In conjunction with an international organization, the gov-
ernment launched a national campaign to combat the worst forms of child labor by targeting the
growing population of orphans, street children, and child-headed households, all of which are vul-
nerable to exploitation. Public sensitization campaigns are being conducted, and district groups to
address the needs of children, especially those in domestic service, are being formed. Education
for girls and orphans are priorities for the government’s universal primary education program.
Uganda also participates in a regional program to combat child labor in the commercial agricultur-
al sector, which is providing incentives to families to remove their children from hazardous work.

Prosecution
The Ugandan Penal Code prohibits the import, export, purchase, sale, receipt or detention of
persons as slaves but does not cover other severe forms of trafficking. Soliciting females for
prostitution carries a 7-year sentence, and rape is punishable by 18 years or the death penalty.
There is no information that civilian cases were prosecuted in 2002, but when captured, LRA
rebels normally are prosecuted for other crimes, such as treason and sedition, which carry harsh
penalties. The government also has an amnesty law that absolves abducted persons and former
rebels from criminal liability if they return and renounce rebellion. In 2002, the government
increased efforts to interdict activities of the LRA. Police do not receive specialized training,
but labor inspectors are educated and trained about the worst forms of child labor.

Protection
The government rescues children and others abducted by the LRA during its military operations
against the rebels. It provides food and shelter until victims can be transferred to NGOs. The
military has a child protection unit trained to assist abductees and child soldiers. The government
trains its embassy personnel in Sudan and Kenya to assist amnesty applicants. The cash-strapped
government works closely with donors and NGOs and supports counseling services, reintegration
programs, and other assistance for returning victims. It also provides support for food, shelter,
rehabilitation, education, and vocational training services for street children, child prostitutes,
domestic workers, and children involved in cross-border smuggling and drug trafficking.
153
 UKRAINE (TIER 2)

Ukraine is a source country for women and girls trafficked to Central and Western Europe and
the Middle East for purposes of sexual exploitation. There are reports that men and boys are
trafficked for labor purposes. The growth of internal trafficking of young girls is a rising con-
cern, as is the susceptibility of children in orphanages to traffickers. Victims are recruited via
agencies and firms as well as through relatives and acquaintances.

The Government of Ukraine does not yet fully comply with minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. In the past year, the gov-
ernment has shown an effort to sustain and improve existing anti-trafficking structures and
mechanisms and increase the ability to prosecute and convict traffickers. Inconsistent coopera-
tion between central government authorities and varying levels of corruption impeded some of
the government’s planned efforts.

Prevention
Last year, the Ukrainian Government approved the Comprehensive Program for Combating
Trafficking in Persons for 2002-2005, which created specific mandates for each ministry. The
government has two separate anti-trafficking councils: one is a coordinating body headed by the
Ombudswoman, while the other is headed by the Deputy Prime Minister with the primary task
of reporting to the Cabinet of Ministers and the President. The Ministry of Education continued
to support mandatory education initiatives in schools. NGOs are active in lobbying government
counterparts at both the local and central levels, and government officials regularly attend NGO-
offered trainings and workshops, thus increasing the level of cooperation. The government sup-
ports preventive public awareness campaigns, although such campaigns are primarily conducted
by NGOs.

Prosecution
The current criminal code prohibits international trafficking and related crimes, but it does not
proscribe internal trafficking, which must be pursued under related offenses. The Ministry of
Interior has an Anti-Trafficking unit with officers in 27 administrative regions throughout
Ukraine. In the past year, the police opened 169 trafficking investigations, with 41 prosecutions.
Twenty-eight defendants were sentenced, with 17 receiving prison terms. While fear of retribu-
tion prevents the majority of victims from cooperating with police and prosecutors, 202 victims
provided testimony during the year.

Protection
Regional referral systems between police and NGOs exist throughout Ukraine, due to the alloca-
tion of specific anti-trafficking police officers in each region and active victim assistance NGOs.
NGOs rehabilitate and reintegrate victims and put them in touch with police for protection and
pursuit of criminal cases. The government’s witness protection law is not effectively implement-
ed due to a lack of funds, but in-court protections exist, such as protection identifying informa-
tion in court records. In the absence of a functioning program at the central level, NGOs collab-
orate with local police and secure ad hoc witness and victim protection. In specific cases, they
provide mobile phones to call police, apartment relocation assistance, and police and victim
joint surveillance of the potential movement by traffickers. Local NGOs that provide victim
assistance enhanced their cooperation with local police, and referrals between NGOs and police
are increasingly common.

154
 UNITED ARAB EMIRATES (TIER 1)

The United Arab Emirates (UAE) is a destination country for trafficked persons. Foreign nation-
als comprise about 85% of the population, and guest workers make up 98% of the country’s pri-
vate sector workforce. Women trafficked into domestic servitude come primarily from Sri
Lanka, Indonesia, India, and the Philippines. Victims trafficked as domestic male servants,
laborers, and unskilled workers in construction and agriculture come mainly from Pakistan,
Afghanistan, India, and Bangladesh. Many low-skilled foreign workers have their passports
withheld, contracts altered, and suffer partial, short, or long-term non-payment of salaries.
Women from Central Asia and Eastern Europe have reported being lured with the promise of
legitimate jobs and then forced into commercial sexual exploitation. Boys from Pakistan and
Bangladesh have been trafficked to the United Arab Emirates to be camel jockeys.

The Government of the United Arab Emirates fully complies with the minimum standards for
the elimination of trafficking. Given the new ban on child camel jockeys, the government
should emphasize enforcement until each of the Emirates has completely eliminated it. It should
expand cooperation and coordination with source countries in the rescue of trafficking victims
and investigation and arrest of traffickers.

Prevention
The Dubai Police Human Rights Department conducted an outreach program to foreign
embassies to advise of programs and services available to residents and visitors. The Dubai
Tourist Security Department operates a 24-hour hotline to assist visitors with inquires or prob-
lems. Information about the hotline is distributed to tourists, who are potential trafficking vic-
tims, at points of entry. The Ministry of Labor and Social Affairs distributes an information
booklet to foreign workers outlining their rights under the labor law, describing how to pursue
labor disputes, and providing contact information for assistance. The Minister of State for
Foreign Affairs contacted source country foreign ministers asking for their cooperation in com-
bating trafficking. The Ministry of Information and Culture supported a public awareness cam-
paign in English and Arabic about the law banning the use of child camel jockeys. The Ministry
of Health requires annual physical exams for foreign employees and medical personnel with spe-
cialized training to look for signs of abuse.

Prosecution
The penal code specifically prohibits trafficking; cases of trafficking can also be prosecuted
under other statutes. Law enforcement actively investigates trafficking cases and complaints of
abuse. The government recently criminalized the use of child camel jockeys. It conducts DNA
and medical tests to investigate “parents” of camel jockeys. The Ministry of Labor created a
task force to inspect all industrial establishments in the private sector and added 54 labor
inspectors. After being found guilty of labor violations, 215 companies were blacklisted from
submitting applications for work permits or sponsorship transfers and were fined. The Institute
for Judicial Training and Studies at the Ministry of Justice has mandatory courses for prosecu-
tors and judges on human rights, sex offenses, immigration, and labor violations. The
Department of Naturalization and Residency at the Ministry of Interior established a central
operations room to track the arrival and departure of individuals in the Emirates. To combat
document fraud, the government instituted the use of retinal scan to add biometrics identifica-
tion information to its databases.

155
 Protection
The government provides assistance and protection to victims; they are not detained, jailed or
deported. Victims are not prosecuted for violations of other laws, such as immigration or prosti-
tution. Counseling services are available in public hospitals. The Ministry of Health maintains
social workers and counselors in all public hospitals to which medical personnel refer patients
when abuse is suspected. The Human Rights Department of the Dubai Police developed a
Crime Victims’ Assistance Program, which included the creation of Victim Assistance
Coordinators at each police station and police training in victim protection and assistance.
Police departments provide shelter for victims who are separate from jail facilities. The govern-
ment works with foreign governments and NGOs on trafficking in women when cases are
brought to their attention. The Government is working closely with the Governments of
Bangladesh and Pakistan on the repatriation of camel jockeys.

156
 UNITED KINGDOM (TIER 1)

The United Kingdom is primarily a country of destination for internationally trafficked women
from Eastern Europe; particularly Albania, Kosovo, Romania, Bulgaria, Lithuania, and Russia.
Some also come from East Asia, especially Thailand and China, and from West Africa, particularly
Nigeria, Liberia, and Sierra Leone. The trafficked population includes children and men. While
women are trafficked primarily into sexual exploitation and domestic servitude, trafficking of
laborers, predominantly male, into agriculture, sweatshops, and industry also occurs. The United
Kingdom also may play a minor role as a transit country to other western European countries.

The Government of the United Kingdom fully complies with the minimum standards for the
elimination of trafficking. The government’s efforts were particularly strong with regard to
strengthening cooperation between police and prosecutors both domestically and internationally,
and in supporting preventive programs in source countries and regions. In order to fully assess
law enforcement strategies and mechanisms, this report must consider statistics on trafficking-
related offenses and prosecutions. While such information was unavailable, new legislation
establishing trafficking-related offenses will hopefully provide information in the coming year.

Prevention
The government focused on prevention and reduction both at the national and EU levels. The
Foreign and Commonwealth Office and the Department for International Development conduct-
ed preventive campaigns in countries of origin, including disseminating anti-trafficking materials
in Southeastern Europe. The Department for International Development has contributed funding
to a project by the International Program on the Elimination of Child Labor to combat the traf-
ficking of children within the Mekong sub-region of Southeast Asia. The government supports
multinational and international efforts to prevent trafficking, in particular, EU, UN, OSCE and
Stability Pact initiatives. It also worked closely with various NGOs to produce an awareness
raising toolkit on trafficking. The government adequately monitors its borders.

Prosecution
There is no law specifically prohibiting all forms of trafficking in persons, but many human traffick-
ing offenses are punishable under existing laws. The Nationality, Immigration and Asylum Act of
2002 was changed to establish an offense of trafficking for prostitution that carries a maximum
penalty of 14 years. New offenses related to human trafficking are in recently introduced legislation
on sexual offenses. Strengthening the operational and legal fight against human trafficking is one of
the government’s priorities for the European Commission five-year (2003-07) funding program in
the area of police and judicial cooperation. Task Force Reflex, a U.K. law enforcement initiative,
coordinates all agencies involved in combating trafficking and migrant smuggling. With the
Nationality, Immigration and Asylum Act of 2002 only in effect since November 2002, numbers of
trafficking-related prosecutions under this act were not yet reported, but public reports in the press
highlighted a number of trafficking investigations and arrests. The Crown Prosecution Service
works closely with the police at home, appoints prosecutors as liaison magistrates abroad, and
works increasingly with Eurojust (an initiative of the EU Justice and Home Affairs Council) to com-
bat serious cross-border crime, including trafficking in persons. Prosecutors provide advice to
police at the investigation stage, and joint police-prosecutorial criminal justice units were established
in 46 towns, with some 85 more to come. As an effort to combat transnational crime, including
trafficking in persons, the government provided liaison magistrates in Spain, Italy and France.

157
 Protection
The government assists victims with a full range of social and health care services, and tempo-
rary residence is available on an individual basis. It provides funding to UK and foreign victim-
assistance NGOs. The government established a pilot project to support victims of trafficking
through cooperation with a specialized domestic violence NGO. Victims who wish to return
home or who are not authorized to remain are provided reintegration assistance, including initial
counseling, suitable accommodation and support in reintegration into their own community. The
police issued standard operating procedures to prevent the intimidation and harassment of wit-
nesses. The Home Office prepared specific guidance for officials who may encounter trafficking
to understand the difference between trafficking victims and illegal migrants. Victims are
encouraged to assist in investigation and prosecution of trafficking and may file civil suits.

158
 UZBEKISTAN (TIER 3)

Uzbekistan is primarily a source and to a lesser extent, a transit country for the purposes of pros-
titution and labor. Confirmed information on the extent of trafficking from Uzbekistan only
recently emerged, and there is a concern that the deterioration in the economy may lead to a
growing problem. Known destinations are Kazakhstan, UAE, South Korea, Malaysia, Thailand,
Kosovo, and Israel. According to economists, 40-80% of the population has fallen into poverty
in the eleven years since independence from the Soviet Union. Many of these newly poor earn
less than $1 per day.

The Government of Uzbekistan does not fully comply with the minimum standards for the elimi-
nation of trafficking and is not making significant efforts to do so. The Government of Uzbekistan
only recently recognized that it has a problem with trafficking in persons, and that trafficking
could become a greater problem if left unchecked. During the spring of 2003, central govern-
ment authorities showed a greater willingness to focus on the issue, especially through improved
dialogue with victim assistance NGOs. This recognition came late in the reporting period, and
now its treatment of known victims and of women fitting the victim profile must be improved.

Prevention
The government has thus far taken only limited preventive actions of its own. The government
denies exit from Uzbekistan to young women and does not screen them to determine if they are
victims and does not offer them preventive information on trafficking. The government worked
alongside other organizations on prevention in some instances, such as the permission granted
by the Ministry of Education to one NGO to conduct anti-trafficking programs in schools. Some
regions have been more proactive than the central government, with the regional government's
Women’s Committee in Samarkand engaging with NGOs to establish information-sharing and
referral for victims.

Prosecution
The criminal code does not contain an anti-trafficking law. Other criminal articles prohibit vari-
ous aspects of trafficking in persons, and the government pursued some criminal investigations
under these laws, but there have been no final prosecutions or convictions of traffickers in
Uzbekistan. An organized trafficking ring from Uzbekistan to Kazakhstan was exposed in
February 2003. Under international pressure, the government investigated this case and has
expelled the two North Koreans responsible. However, the Prosecutor General has taken actions
against illegal recruitment, especially through marriage agencies and tourist firms and is pursu-
ing a case involving 56 men who may have been labor trafficking victims in Siberia. It is also
investigating the case of a girl trafficked for sex to the UAE. Border guards reportedly harass
returning victims and require pay-offs at the border for women possibly fitting the victim pro-
file. While no actions against this corruption were reported for the period covered by this report,
in early 2002 the government convicted two border guards on corruption charges for allowing
people to be trafficked.

Protection
The government does not have a mechanism for screening, recognizing, sheltering or otherwise
assisting victims, nor does it have a referral mechanism to victim-assistance NGOs. However, it
is increasing its efforts at victim assistance and protection. In late spring 2003, the government
began to share information with one victim-assistance NGO, and border officials informally

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 agreed to provide that NGO greater access to returning victims at the airport. However, victims
complain of harsh treatment by police and border agents when returning. The government con-
tinued to charge a $25 fee to victims abroad who are seeking new travel documents. Most vic-
tims were not able to pay this fee. NGOs were unable to secure effective assistance from con-
sular officers in many cases throughout the year, but in spring of 2003, the government began to
respond to some of the pleas of NGOs advocating for and assisting in the repatriation of victims,
and it began using temporary travel documents to bring trafficking victims home from abroad.
The government engaged in discussions with IOM regarding a repatriation program, but still has
not entered into any agreement for such a project.

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 VENEZUELA (TIER 2)

Venezuela is a destination, transit, and source country for trafficking in women and children for
sexual exploitation. Women are trafficked to Venezuela from Colombia, Brazil, the Dominican
Republic, Ecuador, Peru and Cuba. Venezuelan women and girls are trafficked internally from
rural to urban areas and internationally to Spain, Portugal and the United States. Children are
trafficked internally for labor and sexual exploitation. Some undocumented residents in
Venezuela from Colombia, Ecuador and Peru fall victim to traffickers. Because of its lax border
controls, illegal migrants transit Venezuela; some of these migrants may be trafficked.

The Government of Venezuela does not fully comply with the minimum standards for the elimi-
nation of trafficking; however, it is making significant efforts to do so, despite limited resources.
The government’s ability to address trafficking is uniquely hindered by the country’s current
political and economic situation. Many officials are only slowly recognizing the nature of the
trafficking problem. Some government offices — such as the National Institute for Women —
are institutionally capable of responding to trafficking, but have not focused heavily on this
issue. By committing more resources to the investigation and prosecution of trafficking cases,
cooperating with NGOs to widen the understanding of the issue, and addressing trafficking-
related corruption, the government can make progress in combating trafficking in persons.

Prevention
The government’s National Institute for Women (called “Inamujer”) runs a toll-free telephone hotline
in which counselors are on standby to advise women in distress, but has not conducted any specific
outreach or anti-trafficking information campaigns to make this resource more widely known.
NGOs active in combating trafficking seek opportunities to cooperate with the government in devel-
oping a national plan. In prevention efforts not specific to trafficking, the government provides some
support to prevent violence against women and increase women’s participation in the economy.

Prosecution
Venezuela has no comprehensive law to address trafficking. The Organic Law to Protect
Children and Adolescents could be used to prosecute traffickers of minors, but there is no infor-
mation on any such prosecutions. In 2002, the Attorney General planned to increase significant-
ly the number of prosecutors working on immigration matters, but budget cuts stymied this
effort. Venezuela does not adequately monitor its borders. Corruption is a problem; some offi-
cials are accused of facilitating the illegal movement of people.

Protection
The Venezuelan legal system has good intentions with regard to the protection of women and
children, but specific resources committed to combat trafficking are limited. Inamujer has
opened three emergency shelters to help battered women, which include trafficking victims.
Women sheltered under the aegis of Inamujer have recourse to legal services; however, victims
are not specifically encouraged to pursue legal action against traffickers and there is no informa-
tion on any such cases. Foreign victims are not treated as criminals and their rights are theoreti-
cally respected; however, the government makes no special efforts to determine who is a victim
and some may be deported as illegal migrants. Venezuelan diplomatic officials are instructed to
give consular assistance to their nationals in need overseas, but the government does not general-
ly provide specialized training on trafficking.

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 VIETNAM (TIER 2)

Vietnam is a source, transit and, to a lesser extent, destination country for persons trafficked for
forced labor and sexual exploitation. Vietnamese women and girls are trafficked to Cambodia,
Malaysia, China, Hong Kong, Macau and Taiwan for sexual exploitation and forced marriages.
Victims from China transit Vietnam on trafficking routes to Australia, Europe and North
America. Cambodian children are trafficked into Vietnam to beg in urban areas. Vietnamese
rural laborers are exploited by traffickers. Labor export companies recruit and send workers
abroad; some of these laborers have been known to suffer trafficking abuses.

The Government of Vietnam does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so. Particular concern remains,
however, about the government’s effectiveness in addressing cases of labor exploitation.
Vietnamese state-owned labor companies have entered into international contracts that have
resulted in incidents of labor trafficking. The government needs to protect workers through bet-
ter oversight measures in these companies, which it regulates. Vietnam’s efforts to combat traf-
ficking for sexual exploitation could be enhanced by cooperating with Cambodia to address
cross-border issues, including how to repatriate and care for victims.

Prevention
The government partners with multiple international organizations on anti-trafficking studies and
surveys, and there is limited prevention measures in at-risk communities through leaflets and
community trainers. The government-controlled Vietnam Women’s Union sponsored a mass
media campaign using television and newspapers. In other measures not specific to trafficking,
the government is providing limited funds for development projects to increase compulsory edu-
cation to nine years, and vocational and micro-credit programs for at-risk women and youth.

Prosecution
An inter-ministerial working group, chaired by the deputy prime minister, coordinates anti-sex traf-
ficking activities, but clarification of responsibility at the agency level is needed to focus govern-
ment action. Vietnam has a statute that prohibits sexual exploitation and the trafficking of women
and children. The government investigates, arrests, and convicts sex traffickers; however, it does
not make comprehensive statistics on arrests and convictions available, so these efforts cannot be
fully evaluated. General statistics on trafficking in persons are not kept, but a much-needed pro-
posed project would create a data collection system within a new crime statistics office. The gov-
ernment has taken part in bilateral police cooperation to combat trafficking, sending officials to
Cambodia and China for better information sharing. The government is also addressing corrup-
tion. High-profile efforts include bringing four trafficking cases to trial against local government
officials in 2002, and one high-profile 2003 case, in which over 150 persons, including ex-ministe-
rial and law enforcement officials, were indicted for prostitution and migrant smuggling.

Protection
The government should take additional steps to ensure that victims are not abused. Many
women found engaged in prostitution are not jailed or given criminal records, but placed in one
of over 40 rehabilitation centers. These centers reportedly provide medical treatment, vocational
training, and counseling in efforts to deter the victims’ return to prostitution. However,
Vietnam’s efforts in rehabilitating some victims can be controversial. The centers have been
criticized for conducting “reeducation” and limiting victims’ freedom of movement.

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 ZAMBIA (TIER 2)

Zambia is primarily a source country for men, women, and children trafficked to South Africa for
labor and commercial sexual exploitation, and a destination country for women trafficked from
Thailand for commercial sexual exploitation. Until the April 2002 cease-fire, Zambians were
sometimes abducted and forcibly conscripted in rebel groups during the civil war in Angola.
Internal trafficking of children, both for labor and for sexual exploitation, is also a major problem.

The Government of Zambia does not fully comply with the minimum standards for the elimina-
tion of trafficking; however, it is making significant efforts to do so despite severe resource con-
straints. Though strong on prevention and protection efforts, particularly to exploitative child
labor, Zambia needs to step up its law enforcement efforts.

Prevention
The government works actively with an international NGO to address child labor. It works with
international partners to remove children from exploitative work in prostitution, domestic serv-
ice, hawking, and mining. It supports public awareness campaigns. Ministry officials at all lev-
els are receiving training and sensitization about the commercial sexual exploitation of children.
The government implemented programs to rehabilitate child prostitutes and other street children.
Zambia also abolished fees for primary schools, waived uniform requirements in rural areas,
established volunteer-based community schools for children who have fallen behind in their
studies, and focused on “girl-friendly” education initiatives, all measures designed to reduce the
vulnerability of children to trafficking. School curricula are being updated and new “schools
without walls” allow children to be educated on the streets, minimizing the time away from
work. Street children are offered counseling services. The government also is strengthening the
district level coordination to empower HIV/AIDS orphans and other vulnerable children, includ-
ing extension of micro-credit programs to families living with HIV/AIDS.

Prosecution
Zambia’s constitution bans trafficking in children under the age of eighteen, as well as trafficking
in women for immoral activities. The constitution also prohibits slavery and forced labor. The
government actively investigates accusations of trafficking. The government assisted in the repatri-
ation of two Zambian girls trafficked to Ireland and charged two Congolese (DRC) nationals with
abduction and rape. In one recent case, a police officer was sentenced to 9 years’ labor for the rape
of a minor girl. The government also worked with Angolan officials to resolve abduction cases
from the civil war and with the government of Botswana in a case of suspected trafficking that was
eventually proven false. The Employment Act requires anyone taking young Zambians to another
country for employment to obtain government approval. The Ministry of Labor and Social
Security’s Child Labor Unit is charged with enforcing labor laws, but inadequate training and
resources result in weak enforcement. The government is taking steps to improve its capacity to
monitor its borders.

Protection
The government is assisting in the repatriation of two girls trafficked to Ireland and has agreed
to provide counseling. The government has provided medical aid, personnel, and facilities for
programs that have removed over 2,400 children from exploitative labor situations. The govern-
ment supports the protection efforts of non-governmental organizations. Victims are not treated
as criminals.

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 ZIMBABWE (TIER 2)

Zimbabwe is primarily a source country for men, women, and children trafficked to South
Africa for farm labor and commercial sexual exploitation, as well as a transit country for per-
sons trafficked from Asia, Malawi, Zambia, and Mozambique to South Africa. As a result of
Zimbabwe’s recent economic downturn and a growing number of HIV/AIDS orphans and child-
headed households, internal trafficking of young women for commercial sexual exploitation is a
growing problem.

The Government of Zimbabwe does not fully comply with the minimum standards for the elimi-
nation of trafficking; however, it is making significant efforts to do so despite severe resource
constraints. Zimbabwe should improve its anti-trafficking performance through stepped up law
enforcement efforts.

Prevention
The Child Labor Task Force Committee and the Department of Welfare work with NGOs to
train adults and children on identification of exploitation of children. School curriculum and
other information programs raise children’s awareness of child exploitation. The government
supports programs to create educational opportunities for poor children, operates 15 training
centers for out-of-school children throughout the country, and administers programs enhancing
economic self-sufficiency for women.

Prosecution
Zimbabwe has no specific anti-trafficking law, but penalties do exist for abduction, forced labor,
and transporting persons across the border for sexual exploitation. Child labor is regulated; chil-
dren under 18 are prohibited from working during school hours without governmental permis-
sion, and from working at night or in hazardous conditions. The Sexual Offences Act, passed in
2001, outlaws procurement and forced prostitution and carries a penalty of up to seven years in
prison and a fine. The government cooperated with 20 other countries in a ten-month investiga-
tion of child pornography. There is no evidence of governmental involvement in trafficking.
Two humanitarian workers were dismissed for sexual abuse of refugees. The government is
working with INTERPOL and neighboring immigration authorities to prevent trafficking of chil-
dren for prostitution.

Protection
The government has established Victim Friendly Courts for victims of sexual abuse, who
includes trafficked persons. Child friendly legal facilities now link police stations, hospitals,
social welfare, families, community leaders, and prosecutors together in abuse cases involving
children. The government, especially law enforcement, is supporting international organizations
and NGOs assisting trafficking victims.

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 S PECIAL C ASES

T he Department was unable to place the following countries in tiers because of extenuat-
ing circumstances in transitioning states, and information that is incomplete, unclear, contra-
dictory, or difficult to corroborate. These cases merit special mention because there are
indications of trafficking in each of these countries.

The first set of special cases involves countries where there is no effective central govern-
ment or the central government does not exercise full control over the country. These
transitional governments cannot be fairly evaluated on actions by previous governments.

AFGHANISTAN

A country in transition after more than twenty years of war, the Transitional Islamic State of
Afghanistan (TISA) has condemned trafficking. The TISA is scheduled to hold a Constitutional
Loya Jirga (Grand Assembly) in October 2003 to adopt a new constitution, followed by nation-
wide elections for a permanent Afghan government scheduled to take place in June 2004.

Scope and Magnitude. Press and refugee reports assert Afghanistan is a country of origin and
transit for women and children trafficked for the purposes of sexual exploitation and labor.
These reports indicate that women and children have been trafficked internally or sold by
impoverished families to Pakistan, Iran, and the Middle East. There are also reports of the
involvement of warlords in trafficking in areas outside the central government’s control.

Government Efforts. The government established a commission to combat human trafficking

in April 2003 that is collecting information on the causes of trafficking, developing victim-
friendly repatriation strategies, identifying governmental capacity, and potential international and
non-governmental partners. With the assistance of international donors, the government is
establishing 14 women’s resource centers throughout the country and has enrolled more than
one million girls in school, an important prevention effort to assist vulnerable populations. The
government is reviving old anti-slavery statutes as it prepares its new legislative framework.
Some state-run orphanages take in trafficking victims and children from families that cannot
afford to keep them as an alternative to selling them.

Areas for Improvement. The government, in collaboration with internal donors and non-gov-
ernmental organizations, could undertake low or no-cost anti-trafficking measures such as con-
duct awareness-raising campaigns with free radio air-time for public service announcements,
sensitize local assemblies and community leaders on trafficking, seek ways to shelter and pro-
tect victims, and collaborate with destination countries such as Pakistan and Iran to curb cross-
border trafficking, protect victims, and arrest traffickers. Once international donors and the
government form and train national and border police and re-establish a functional legal, court,
and prison system, law enforcement should investigate and prosecute traffickers operating with-
in Afghanistan.

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 IRAQ

Another country in flux, Iraq is showing signs that a trafficking problem could emerge. The
existence of displaced persons, widows and other vulnerable women, separated children or
orphans dependent on humanitarian assistance to survive could gravitate toward peacekeepers
and humanitarian workers as sources of potential income and safety only to be exploited for
labor or sex. In many post-conflict situations, criminal elements have exploited the breakdown
of rule of law and the desperation of vulnerable families, and abducted, forced, or tricked indi-
viduals into prostitution. Traffickers also flourish in situations with weak law enforcement.
There is a lack of infrastructure for victims services and protection. This lack of medical servic-
es, counseling, and shelters are likely to discourage trafficking victims from coming forward.
As we have seen elsewhere, the demand for prostitution often increases with the presence of
military troops, expatriates, and international personnel who have access to disposable income.

SOMALIA

Somalia has been without a central government since its last president, dictator Mohammed Siad
Barre, fled the country in 1991, but is a country with a significant number of victims. Somalia is a
source country for trafficking victims, primarily women and children trafficked internally for forced
labor by local militias. An increasing number of Somali children are smuggled to Europe by inter-
national criminal rings, many of which are trafficked into situations of forced labor and prostitution.
Family members, smugglers, and traffickers use deception, pressure, and force to make Somali chil-
dren accept false identities, use fraudulent documents, and exploit the social security systems in des-
tination countries. In Somalia, children, some as young as 11 years old, are forcibly conscripted
into militias to serve as combatants and servants. An international organization’s pilot demobiliza-
tion project is underway in Mogadishu for 120 children, including 20 girls. A small number of
women may be trafficked to the Middle East for commercial sexual exploitation.

Areas for Improvement. All of the major factions in Somalia, including the Transitional
National Government, need to stop the use of forced labor and conscripts, especially children.
In addition, all groups should take measures to rein in smuggling and trafficking rings.

The following special cases are based on lack of information or information that is
fragmentary or difficult to assess and corroborate.

ALGERIA, TUNISIA, AND EGYPT

These countries may be transit countries for trafficking but the prevalence of smuggling
makes it difficult for host governments to distinguish between migrant smuggling and
human trafficking. In Algeria, transiting illegal immigrants from West and Central Africa
travel through the country to destinations in Europe. It appears that some are forced into
prostitution while awaiting onward travel. Tunisia is increasingly concerned about traffick-
ing as it has become a key transit country for smugglers. Anecdotal evidence suggests
Egypt is a transit country for persons being trafficked from East Africa and South Asia to
Europe and from the former Soviet Union to Israel. Hard data on the number of trafficking

166
victims is lacking for these countries. The Department will, over the next year, engage these
governments on trafficking in an effort to educate government and law enforcement officials
on the issue and effective measures to combat trafficking.

IRAN

Without a diplomatic presence in Iran, the Department has found it difficult to corroborate
information.

Scope and Magnitude. Press reports and reporting from destination countries indicate that Iran
is a country of origin and transit for women and girls trafficked to the Gulf States, Turkey,
France, Britain, and Pakistan for purposes of commercial sexual exploitation. Boys are traf-
ficked through Iran to the United Arab Emirates where some are forced to work as camel jock-
eys. Internal trafficking of women and girls for purposes of sexual exploitation occurs, fueled
by the increasing number of runaways. Many of these victims are lured with the promise of
good jobs, rich husbands, or exciting lives abroad.

Government Efforts. The Government of Iran is arresting, investigating, and prosecuting a sig-
nificant number of cases involving prostitution and/or trafficking and working with Pakistan to
increase border patrols to prevent cross-border trafficking of drugs and persons. Iranian law does
not specifically prohibit trafficking; however, there are other statutes that are used to prosecute
traffickers, including prohibiting procurement for the purpose of fornication. Over 7 months in
2002, police closed down 70 brothels. During the year, the government arrested hundreds of peo-
ple for involvement in “corruption networks” related to prostitution where young girls were traf-
ficked abroad. No consolidated information on the total number of convictions is available, but
there are cases where facilitators of a prostitution rings have received sentences from 3 years to
death. There have been unconfirmed reports of victims being arrested and jailed, as well as a past
case in which a girl was arrested and later referred to a rehabilitation center. There were also
reports in November that 20 girls were rescued with cooperation from the Pakistani government
from a brothel in Pakistan. Although there are not any shelters or rehabilitation centers specifical-
ly for victims of trafficking, there are homes and shelters for street children (boys) and a shelter
for troubled girls. According to press reports, the shelter for boys, called the “Green House,” is a
subsidiary body of the Tehran Municipality’s Social Affairs Department where 4,271 boys were
looked after and returned to their families or either assigned to welfare homes. News articles
claim the “Reyhaneh House” for girls provides various services and assistance, including shelter,
to runaway girls or other girls in need. There are 20 social workers at the shelter that provide
counseling and assistance. Press reports say that out of the 450 girls who found shelter at the
center, at least 149 girls were treated and returned to their families. It is impossible to determine
if all victims are treated this way or if victims are punished.

Areas for Improvement. The Government needs to ensure that those who are being punished for
trafficking are not the victims and are sheltered appropriately. More public awareness campaigns
and attention need to be focused on the issue of trafficking, especially as it relates to the problem of
runaways, as well as the training of police officers in dealing with victims of trafficking. Iran needs
to curb corruption among law enforcement officials and judges and better monitor its borders.

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 MAURITANIA

A relatively closed society, information to gauge the scope and magnitude of trafficking in
Mauritania is difficult to obtain and available information is dated, unclear, incomplete, and diffi-
cult to corroborate. There are only a few documented cases related to the vestiges of slavery
reported by human rights groups and non-governmental organizations over the past several years.
The Department will visit Mauritania this coming year to attempt to gain a better understanding
of the social complexities surrounding alleged vestiges of slavery and other forms of trafficking.

Scope and Magnitude. The problem in Mauritania deals with reports of internal trafficking in
persons, primarily for forced labor. Slavery was prohibited in 1981, but some former slaves
reportedly work without remuneration to retain access to the land they traditionally farmed. We
have no hard data on the numbers of individuals in forced labor situations. Lack of economic
alternatives and deeply embedded psychological and tribal bonds make it difficult for many indi-
viduals who had ancestors who were slaves to leave their former masters. Adult females report-
edly often find it difficult to leave servitude because former masters may claim to be the father of
the children and refuse to allow the children to leave. Trafficking of children occurs for domestic
servitude and forced labor. Some children are trafficked to the Middle East as camel jockeys.

Government Efforts. The government’s primary mechanism for eradicating the vestiges of slav-
ery and preventing trafficking is enhancing education, literacy, and access to health care. Many
national and local government officials, including Ministers, Parliamentarians, and mayors are
descendents of former slaves. The government is using debt relief packages to build schools and
improve education. It has also hosted nation-wide workshops on the slavery prohibition and its
impact on certain individuals. Efforts to eradicate child labor include a law prohibiting children
selling goods in the streets of the capital, government-funded public service announcements
against the worst forms of child labor, and a training program targeting street children. Trafficking
is not prohibited, but the use of fraud or violence to abduct minors is a criminal offense with a 5 to
10 year sentence. Forced and bonded labor is prohibited, but the government’s enforcement of this
prohibition is weak. Typical judicial cases on slavery issues revolve around child custody and
inheritance disputes. In 2002, judges resolved at least three child custody cases in favor of women.
In May 2002, the government arrested two traffickers who were recruiting young boys to take to
the Middle East as camel jockeys. They were convicted for falsification of documents and corrup-
tion of minors. According to human rights organizations, the government does respond to cases
involving the vestiges of slavery, but is often slow in reacting. The government trains police and
border officials on trafficking and protection of human rights. With NGOs, the government,
including judges handling juvenile issues, provides assistance to orphans, unaccompanied or sepa-
rated minors, and street children until they can be reunited with family members.

Areas for Improvement. The Government should strengthen and vigorously enforce the legal
regime prohibiting forced labor, provide adequate protection for workers reporting exploitation
and slavery, punish government officials who do not respond effectively to these cases, reward
officials for taking positive actions, and broaden education efforts on worker exploitation, rights,
and recourse for the public and government officials.

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 U.S. G OVERNMENT E FFORTS

T he U.S. Government condemns trafficking in persons and remains firmly committed to fight-
ing this scourge and protecting victims who fall prey to traffickers. In addition to mandating the
annual Trafficking in Persons report, the Trafficking Victims Protection Act established the fol-
lowing mechanisms to facilitate U.S. Government efforts to combat trafficking in persons:

President’s Interagency Task Force to Monitor and Combat Trafficking in Persons. President Bush
established the President’s Interagency Task Force to Monitor and Combat Trafficking in
Persons in February 2002. This Task Force is chaired by the Secretary of State and is made up
of the Attorney General, the Secretary of Labor, the Secretary of Health and Human Services,
The Secretary of Homeland Security, the Director of Central Intelligence, the Director of the
Office of Management and Budget, and the Administrator of the U.S. Agency for International
Development. The Task Force’s responsibilities include coordination of the implementation of
the Act. The Task Force and the Senior Operating Group efforts are guided by a National
Security Presidential Directive Against Trafficking in Persons, which President Bush signed in
December 2002. This Directive instructs federal agencies to strengthen their collective efforts,
capabilities, and coordination to support the policy to combat trafficking in persons.

Office to Monitor and Combat Trafficking in Persons, U.S. Department of State. Established in
October 2001, the Trafficking Office leads the development and implementation of our interna-
tional engagement on trafficking in persons and provides assistance to the Task Force. It also
prepares reports and analyses on trafficking, coordinates international anti-trafficking programs,
and conducts outreach with non-governmental organizations (NGOs) and international organiza-
tions. Pursuant to a 2003 law, the office coordinates agency policies, including grants, concern-
ing international trafficking of persons. In addition, other federal agencies represented on the
Task Force provide detailees to the Trafficking Office in order to strengthen interagency coordi-
nation and assist with Task Force activities. More information about the Trafficking Office can
be found on its website at <www.state.gov/g/tip>.

The efforts of the Trafficking Office are guided by a legislative mandate to combat and eradicate
human trafficking; focus worldwide attention on the international slave trade; assist countries
with the elimination of trafficking; promote regional and bilateral cooperation for trafficking
eradication; support service providers and NGOs in their trafficking prevention and victim pro-
tection efforts; coordinate US agency grant policies on trafficking; assist other governments to
draft or strengthen anti-trafficking laws as well as provide enforcement training to ensure traf-
fickers are fully investigated and prosecuted to final conviction. The Trafficking Office is struc-
tured to accommodate these mandates:

The Trafficking In Persons Report Section. This section of the Trafficking Office is responsible for
collecting information and engaging governments throughout the year to assess the progress of
governments in combating trafficking. This report, addressing 116 countries that were found to
have a significant number of victims of severe forms of trafficking, is the most comprehensive
international anti-trafficking review issued by any single government.

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 International Programs Section. The Trafficking Office program section coordinated U.S.
Government anti-trafficking efforts covering over 240 anti-trafficking programs in over 75 coun-
tries in fiscal year 2002. The types of assistance include the following: economic alternative pro-
grams for vulnerable groups; education programs; training for government officials and medical
personnel; development or improvement of anti-trafficking laws; provision of equipment for law
enforcement; establishment or renovation of shelters, crisis centers, or safe houses for victims;
support for voluntary and humane return and reintegration assistance for victims; and support for
psychological, legal, medical and counseling services for victims provided by NGOs, internation-
al organizations and governments. The State Department’s priority is to help the governments of
countries in Tiers 2 and 3 and some less developed countries in Tier 1 that are eligible for assis-
tance and committed to combating trafficking.

Public Diplomacy and Outreach Section. In February 2003, the State Department and the War
Against Trafficking Alliance held a successful conference “Pathbreaking Strategies in the Global
Fight Against Sex Trafficking” which brought together some 400 activists and government offi-
cials from 110 countries around the world to share innovative approaches to preventing traffick-
ing, prosecuting traffickers, and protecting victims. The State Department values partnership
with NGOs and has actively sought out their crucial expertise and practical experience to wage
an international campaign to combat trafficking. Within this last year, the Trafficking Office has
hosted numerous meetings and briefings with NGOs to solicit their expertise and recommenda-
tions. The Trafficking Office asked over 200 NGOs to provide information on trafficking prac-
tices and programs throughout the world to help prepare this report.

O THER U.S. A GENCY A CTIVITIES

Department of Justice. The Department of Justice (DOJ) prosecuted 79 traffickers in FY 2001

and 2002, three times as many as the previous two years, opened 127 investigations of traffick-
ing cases, and conducted the largest ever training for federal prosecutors and agents in October
2002. During the first six months of FY 2003, the Department has prosecuted 11 additional traf-
fickers, despite increased strain on law enforcement resources in the wake of the September 11,
2001 attacks. Prosecutors stepped up their international efforts, working to build anti-trafficking
capabilities and to share best practices with police and prosecutors in Eastern Europe and Latin
America. The Department also held the first DOJ summit on protecting children from prostitu-
tion, launched a community response program, and worked with the Department of Health and
Human Services to certify hundreds of trafficking victims so that they can receive federal and
state benefits and services. The Department funded a number of non-governmental organiza-
tions to provide services to victims immediately upon liberation. The Department of Justice will
write an assessment of U.S. Government anti-trafficking efforts.

Department of Homeland Security. The Department of Homeland Security’s Bureau for Citizen and
Immigration Services issues a “T Visa” to enable certain trafficking victims to live and work legal-
ly in the United States for three years while their cases are being investigated and prosecuted.

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Department of Health and Human Services. The Department of Health and Human Services
(HHS) has certified 392 victims of severe forms of trafficking, enabling them to receive a wide
range of services to help them recover and gain self-sufficiency. HHS has provided $8.4 million
in grant funding to 37 non-profit organizations that provide community education, outreach, and
direct assistance to victims of trafficking. In addition, HHS is undertaking a public awareness
campaign to inform victims of trafficking and those who might encounter a victim of trafficking
of the programs to assist victims, and will be initiating a hotline for persons seeking information
on how victims can obtain support services.

U.S. Agency for International Development. The U.S. Agency for International Development
(USAID) has increased its programs for anti-trafficking activities in developing and transitioning
countries, spending more than $10 million in over 30 countries in FY 2002. USAID’s anti-traf-
ficking strategy focuses on trafficking prevention, protection of victims, and implementation of
anti-trafficking legislation targeted to specific countries and/or regions. These efforts are rein-
forced by USAID’s platform of economic development, good governance, education, health and
human rights programs. These programs address issues such as girls’ education, reduction of
violence against women and promotion of their rights, poverty reduction, administration of jus-
tice, and refugee assistance.

Department of Labor. The Department of Labor (DOL) supports programs through the
International Organization’s International Program on the Elimination of Child Labor as well as
through non-governmental and faith-based organizations that address child trafficking in 20
countries around the world, either as the central focus of the project or as a component of a
broader project. These projects rescue children from trafficking and exploitative work situations
and provide them with rehabilitation services and educational opportunities in addition to under-
taking prevention campaigns. Programs funded under DOL’s Child Labor Education Initiative
promote school attendance and provide educational opportunities for victims of child trafficking
and children at risk of being trafficked. In the United States, DOL’s Employment and Training
Administration also assists victims with job training regardless of immigration status. This
training includes job search assistance, career counseling, and occupational skills training.

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 R ELEVANT I NTERNATIONAL C ONVENTIONS *

Protocol to, ILO Convention Optional Protocol Optional Protocol

Prevent, Suppress 182, to the Convention to the Convention
Country & Punish Elimination on the Rights on the Rights
Trafficking in of Worst Forms of the Child of the Child
Persons of Child Labor on the Sale of Children in Armed Conflict

Signature Ratification, Ratification Signature Ratification, Signature Ratification,

Accession(a) Accession (a) Accession (a)
Albania X X X
Angola X
Armenia X
Austria X X X X X
Bahrain X
Bangladesh X X X X X
Belarus X X X (a)
Belgium X X X X X
Belize X X X
Benin X X X X
Bolivia X X
Bosnia & Herzegovina X X X X X X
Brazil X X X X
Brunei
Bulgaria X X X X X X X
Burkina Faso X X X X X
Burma
Burundi X X X
Cambodia X X X X
Cameroon X X X X
Canada X X X X X X
People’s Republic of China X X X X
Colombia X X X
Congo, Dem. Rep. Of the X X X X
Costa Rica X X X X X X
Côte D’Ivoire X
Croatia X X X X X X X
Cuba X X X
Czech Republic X X X X
Denmark X X X X X
Dominican Republic X X X
El Salvador X X X X X
Equatorial Guinea X X X X (a)
Estonia X X
Ethiopia
Finland X X X X X
France X X X X X X X
Gabon X X X

172
 Protocol to, ILO Convention Optional Protocol Optional Protocol
Prevent, Suppress 182, to the Convention to the Convention
Country & Punish Elimination on the Rights on the Rights
Trafficking in of Worst Forms of the Child of the Child
Persons of Child Labor on the Sale of Children in Armed Conflict

Signature Ratification, Ratification Signature Ratification, Signature Ratification,

Accession(a) Accession (a) Accession (a)
Gambia, The X X X X X
Georgia X X
Germany X X X X
Ghana X
Greece X X X X
Guatemala X X X X X
Haiti X X X
Honduras X X (a) X (a)
Hungary X X X X
India X
Indonesia X X X X
Israel X X X
Italy X X X X X X
Jamaica X X X X
Japan X X X X
Kazakhstan X X X X X
Kenya X X X X
Korea, Rep. Of X X X X
Kuwait X
Kyrgyz Republic X X (a)
Laos
Latvia X X X
Lebanon X X X X
Liberia
Lithuania X X X
Macedonia (FYROM) X X X X
Malawi X X X
Malaysia X
Mali X X X X (a) X X
Mauritius X X X
Mexico X X X X X X X
Moldova, Republic of X X X X
Morocco X X X X X
Mozambique X X (a)
Nepal X X X
Netherlands, The X X X X
Nicaragua X
Niger X X X

173
 Protocol to, ILO Convention Optional Protocol Optional Protocol
Prevent, Suppress 182, to the Convention to the Convention
Country & Punish Elimination on the Rights on the Rights
Trafficking in of Worst Forms of the Child of the Child
Persons of Child Labor on the Sale of Children in Armed Conflict

Signature Ratification, Ratification Signature Ratification, Signature Ratification,

Accession(a) Accession (a) Accession (a)

Nigeria X X X X X
North Korea
Norway X X X X X
Pakistan X X X
Philippines X X X X X
Poland X X X X
Portugal X X X X X
Qatar X X (a) X (a)
Romania X X X X X X X
Russia X X X
Rwanda X X X (a) X (a)
Saudi Arabia X X
Senegal X X X X
Serbia & Montenegro X X X X X X
Sierra Leone X X X X X
Slovak Republic X X X X
Slovenia X X X X
South Africa X X X
Spain X X X X X X X
Sri Lanka X X X X X
Sudan X X
Suriname X X
Sweden X X X X X
Switzerland X X X X X
Tajikistan X (a) X (a) X (a)
Tanzania X X X (a)
Thailand X X
Togo X X X X
Turkey X X X X X X
Uganda X X X X (a)
Ukraine X X X X
United Arab Emirates X
United Kingdom X X X X
Uzbekistan X
Venezuela X X X X X
Vietnam X X X X X
Zambia X
Zimbabwe X
* Ratification determined when State deposits ratification instruments at the international organization

174
 Photo Credits
Cover: AP Photos; page 2: AP Photo/Aman Sharma; 4: AP Photo/Hidajet Delic; 5: AP Photo/Bangladesh Women Lawyers Association;
6: AP Photo; 7: AP Photo/Andy Eames; 8: AP Photo/Tomas VanHoutryve; 9: AP Photo/Jaime Puebla; 10: AP Photo/Douglas C. Pizac;
11: AP Photo/Suzanne Plunkett

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 U.S. D EPARTMENT OF S TATE P UBLICATION 11057
O FFICE OF THE U NDER S ECRETARY FOR G LOBAL A FFAIRS

Revised June 2003