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FOIA Number:
2006-0 198-F -4
FOIA
MARKER
This is not a textual record. This is used as an
administrative marker by the William J. Clinton
Presidential Library Staff.
Collection/Record Group:
Clinton Presidential Records
Subgroup/Office of Origin:
First Lady's Office
Series/Staff Member:
Melanne Verveer
Subseries:
Subject Files: Teen Pregnancy- Turkey
OA/ID Number:
20055
FolderiD:
Folder Title:
Trafficking: Vital Voices [1]
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Nov Q2 99 03:02p
. ...
EQUALITY NOW Jt
.250 West 57th Street, Suite 826, New York, NY 10019, Tel: (212)586-0906, Fax: (212) 586-1611
FAX
TO: Hillary_ Rodham Clinton, c/o Melanne Verveer
ORGANIZATION:
TELEPHONE: 202-456-626617560
FAX: 202-456-6244
FROM: Jessica Neuwirth
TELEPHONE: (212) 586-0906
FAX: (212) 586-1611
DATE: 2 November 1999
#PAGES ATTACHED: 5
"
~
·o.)-
N
/7~~r
URGENT
Dear Mrs. Clinton:
Gloria Steinem suggested that I send you a copy of the attached op-ed on trafficking
legislation, which we have sent out for publication. The House International Relations Committee
has scheduled a mark up of~itb.J(apturbill ~ 1356 - The Freedom from Sexual
·
Trafficking Act of 1999) fo
day, November
It is painful to be supporting legislation
.
sponsored by Chris Smith, but we are doing so with a coalition including reproductive rights
leaders Gloria Feldt and Frances Kissling because the bill is a stronger, better bill and will help us
/ . i n our campaign to stop sex trafficking.
jh!;
!/
I
4ti:
I am writing to urge you to intervene. The Administration and Congressman Gejdenson
are supporting alternative bills that in truth look more like Congressional resolutions than
meaningful legislation. In addition to the op-ed, I am attaching a copy of our coalition letter which
was sent to all members of the Committee, and a copy of the critique of Gejdenson's bill that was
sent by Gloria Steinem directly to Congressman Gejdenson.
As one of our strongest advocates for international women's rights, and in light of your
particular focus on the evils of sex trafficking, we really hope you· will help us with this
legislation.
Sincerely_:.. / }
~/~
ssica Neuwirth
esident
EQUALITY NOW WORKS FOR THE CIVIL, POLITICAL, ECONOMIC AND SOCIAL RIGHTS OF WOMEN AROUND THE WORLD.
�p.2
Nov 02 99 03:02p
. ·'
A BRIDGE OVER HOSTILE WATERS
Last month in Reykjavik, Iceland, Hillary Rodham Clinton made a speech about sex trafficking,
the international trade that is even bigger than drugs, more lethal to the millions of women and
girls {and some boys) being traded, and more profitable to its worldwide traders. "No
government and no citizen should rest," she concluded, "until we stop this modem form of
slavery, protect its victims and prosecute those who are responsible."
Now, U.S. women leaders have shown they agree so much that they are even willing to work
with their sworn enemies in Congress. In a coalition forged by Equality Now, activists Gloria
Steinem and Robin Morgan, NOW President Patricia Ireland, Gloria Feldt of Planned
Parenthood, Frances Kissling of Catholics for A Free Choice and Julia Scott of the National
Black Women's Health Project are supporting anti-sex trafficking legislation sponsored by
Representatives Chris Smith (Republican ofNew Jersey) and Marcy Kaptur (Democrat of Ohio).
Both are fierce opponents of the reproductive freedom that every leader and group in the
coalition considers to be a fundamental human right. Yet these women have chosen to support
the Smith-Kaptur bill over two put forward by traditional allies Senator Paul Wellstone of
Minnesota, Representative Louise Slaughter ofNew York, and Representative Sam Gejdenson of
Connecticut.
Why? Because only the Smith-Kaptur bill wilJ do the job. The Smith-Kaptur bill, as
Congressman Smith has agreed to amend it, defines sex trafficking to include all traffickers,
regardless of whether they rely on force or fraud. qr whether they prey on the desperation of
poverty and hunger to recruit their victims for sale into commereial sexual ex.ploitatiQQ.,.. The
Democratic alternatives would fail to protect a substantial number of trafficking victims, and also
shield many traffickers in the global sex trade from prosecution. Those bills are also overly
broad in another wa , mer ing with sex traffickin other harms su~ebt
bondage, which thou h e ualiy reprehenst
· s. The goal should be tg
end commercial sexual exploitation altogether, and to eliminate abuses of migrant labor - but not
migrant labor itself.
.
.
The Smith-Kaptur bill will also provide real incentives for governments to take action against
sex traffickers, who have been so successful because they generally operate with government
,
complicity. If governments do not prohibit sex trafficking and punish acts of sex trafficking
S""'- . . .c.--~
serious! , on a par with crimes such as forci
anitarian aid to these
ovemments will be withheld unless the Presi e ce ·
at such aid is nevertheless in t e
national interest. These provisions are hardly draconian. They merely require some pu 1c
accountability for the provision of foreign aid by the United States to governments which
condone trafficking. The Democratic bills do not provide for such certification, and simply
reiterate discretionary Presidential powers that already exist.
Provisions similar to those in the Smith-Kaptur bill are already in place for governments that
commit human rights violations, or condone or support drug trafficking. No one with even a
passing knowledge of the realities of international sex trafficking, a multi-billion dollar industry
controlled by organized crime, can doubt that it is as damaging as these other crimes.
�p.3
Nov 02 99 03:02p
~
Meanwhile, the number of women, girls, and boys being trafficked grows every year. The AIDS
epidemic has caused traffickers to use ever·younger girls, on the premise that they are not yet
infected. UNICEF cites estimates that nearly one million under-aged girls are drawn into
prostitution every year.
The Smith~Kaptur bill could be made even stronger by givin victims o
States a right to asylum, on a case y case asis, and by providing support for efforts to protect
gir-ls and women from trafficking through greater access to education and employment.
In any case, it will require Democratic support to pass. One can only hope that her own party
and Administration are listening to Hillary Clinton as much as some of her Republican
opponents seem to be doing.
Now that Smith and Kaptur are leading the fight for girls and women to control their own bodies
and sexual lives, perhaps they will also see the parallel with the right of women to control their
own bodies and reproductive lives, and end their opposition to safe and legal abortion - and in the
case of Representative Smith the contraceptive programs that could make abortion rare. If so,
this bridge over hostile waters could save the lives of even more millions of women ~orldwide.
Jessica Neuwirth
President
Equality Now
EqualityNow is an international human rights organization based in New York.
�p.4
Nov 02 99 03:03p
....
f~! EQUALITY NOW
.,;J~1
trJt..:ll
250 West 57th Street, 1826, New York, New York 10107 • Phone: (212) 586-0906/Fax: (212) 586-1611/Email: info@equalitynow.org
Hon. Benjamin OHman, Chairman
House International Relations Committee
2449 Rayburn HOB .
Washington, DC 20515
29 October 1999
Dear Congressman Gilman:
The undersigned, a coalition of women's rights organizations and activists united
against sex trafficking, support passage of the Freedom From Sexual Trafficking Act of
1999, a bill introduced in the House ofRepresentatives by Representatives Chris Smith
and Marcy Kaptur (H.R. 1356). We believe that the passage of this legislation wilJ make
a significant contribution to the international campaign against sex trafficking, a modem
day form of slavery which destroys the lives of millions of women and girls around the
world each year. 0_!:_lr support of this legislation is contingent on its amendment to ensure
that the definition of sex trafficking includes all those who traffic in women for
commercial sexual exploitation, regardless of whether such women have "consented" to.
being so trafficked.. Appropriate language changes have been discussed with
Congressman Smith's staff, and we note that our support is contingent on the formal
adoption of such amendments when the bill is marked up.
Of the bills which have been introduced in Congress, we feel the Smith-Kaptur bill
will provide the strongest support to international efforts to end the trafficking of women
and girls for commercial sexual exploitation. In particular, once amended, the SmithKaptur bill will have a clear and comprehensive definition of sex trafficking. Moreover,
support measures for victims of sex trafficking set forth in the bill and the establishment
of a moderate but effective enforcement mechanism to deal with countries which do not
meet minimum standards for the elimination of sexual trafficking are provisions of the
bill which we feel are critical to ensure the criminal prosecution of sex traffickers and the
protection of victims of sex trafficking.
We urge you to ensure that the Freedom From Sexual Trafficking Act of 1999 is
marked up quickly, and we urge you to oppose any amendments that wou)d weaken the
enforcement provisions of the bill. We also urge you to ensure that the bill is brought to a
floor vote before Congress recesses. Every day the multi-billion dollar sex trafficking
EQUALITY
NoW WORKS FOR THE CIVIL,
POLITICAL, ECONOMIC AND SOCIAL RIGHTS OF WOMEN AROUND THE WORLD.
�p.5
Nov 02 99 03:03p
~·
industry expands, dragging in new recruits - young girls .and women who are bought,
sold, abducted, deceived or otherwise coerced by brute force or desperate circumstances.
Sex trafficking is a human rights crisis which requires urgent attention and action. We
would be extremely grateful for your assistance in expediting this much needed
legislative initiative.
=e~~
ftssica Neuwirth, President
Gloria Feldt, President
Planned Parenthood Federation of America
Patricia Ireland, President
National Organization for Women (NOW)
Frances Kissling, President
Catholics for a Free Choice
Dorchen Leidholdt, Co·Executive Director
Coalition Against Trafficking in Women
Robin Morgan, Founder
Sisterhood is Global Institute
Hibaaq Osman, Director
Center for Strategic Initiatives of Women
Julia Scott, President
National Black Women's Health Project
Gloria Steinem, Founder
Ms. Magazine
�p.6
Nov 02 99 03:03p
. ..,''-
I. The Definition - Gejdenson 's definition of trafficking is
"recruiting or abducting, facilitating, transferring, harboring or transporting a person, by the threat or
use offorce, coercion, fraud or deception, or by the purchase, saie, tradtt. transfer or receipt ofa person,
for the purpose ofsubjecting that person to involuntary servitude; pe_onage, slavery, slavery-/ike
practiCeS, Or forced Or bonded labor Or ServiCeS. II
\I
In ou~ view this definition is problematic ..,It merges certain abuses·ofmigr~nt labor, which might be:
considered labor trafficking. with trafficking for the purpose ofcommerciahexual exploitation. While
we want to end commercial sexual exploitation altogether, our goal with regard to abuses of migr~nt labor
is only to eliminate the abuses and not migrant labor itself.. It is therefore necessary, we believe, to ·
· distinguish between labor trafficking and sex trafficking when drafting definitions of traffickin'g. · T~is is
not to say that one is worse than another but simply that .the long-feim o~jectivcs differ and require
different approaches. Gejdenson's definition does not even mention "commercial sexual ex Joitation" or
"prostitution". (Smith's e tmtton rs: "the taking of a person across an interntitional border for the
purpose oTa commercial sexual act".} As this is such a large componerit of the trafficking problem
throughout the world, it demands explicit attention. The Gejdenson definition is also problematic because
it does not cover some of the most common methods of sex trafficking which prey on and profit from the
economic desperation of women, girls, and their families by securing their "consent" to sale in prostitution
or marriage. The Gejdenson definition of trafficking would not only fail to protect a substantial number of
trafficking victims, it would also shield many traffickers in the global sex trade from prosecution.
2. Immigration Provisions
Gejdenson's bill allows, for a five year period only, immigration relief on a non-immigrant, temporary
basis only for material witnesses in trafficking cases and only for a non-extenoable three ,year period and
only up to a limit of I ,000 such visas per year. It should be noted that there is already a material witness
visa available for this purpose. There is. a possibility written into the bill of conversion to permanent
residence at the discretion of the Attorney General, but with all ofthese limitations presum.ably this would
be available to very few victims of trafficking in the US. The findings in Gejdenson's o~n bill estimate
the num!jer oftrafficki~g victims in the US at 50,000 per year. In contrast, the Smith-Kaptur bill allows
for the possibility of permanent residence to any .victim of sex trafficking who has not unreasonably ...
refused to provide assistance in the investigation or prosecution of traffickers (a broader scope than
"material witnesses"}. Moreover, there is no cap in the Smith-Kapture bill on the number of victims who
could be accorded relief under this provision.
3. Enforcement Provisions
~
.
'
"'
Gejdenson's bill provides with regard to all foreign aid-related enforcement mechanisms that the
President "may" activate such measures. This pro'>:ision adds nothing to the powers already vested in the
President. The Smith-Kaptur bill provides that if governm~nts ar!;! certified not to have met.the minimum
standards for the elimination of sexual trafficking (which are really pretty minimal), then the' President
must either withhold non-humanitarian aid or certify that such .aid is in the national interest of the United
States, despite the failure of the recipient government to meet the minimum standards. This means the
President has the power to give foreign assistance to any government, regardless of its record on
trafficking, even under the enforcement provisions of the Smith-Kaptur bill. These provisions are hardly
draconian and .at le;,t~t they require some public accountability for the provision offoreign aid to
·
·
·
governments which condone trafficking:
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�03/05/99
FRI 13:02 FAX 202 647 5337
PICW
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FLOTtTS Office
DISCUSSION POINTS
•
One year ago (March 11, 1998), as part of International Women's Day ceremonies,
the President signed an Executive Memorandum to combat trafficking.
•
This directive did three main things:
1) It made combating trafficking in women and children and prot~g_ its victims
~ =.=a top priority for the USG;
2) Itassigne__d responsibility across..th.e-A.dmini&kation --especially to the
Departments of State and Justice -- to take a range of actions and established the
President's Council as the coordinating body for domestic and international policy;
and
3) It adopted a three-part strategy consisting of:
0 prevention,
0 prosecm;jon and enforcement against traffickers, and
0 protection for victim1
....
•
We are holding this meeting at Melanne' s request because the President and the First
Lady, who both care deeply about this issue, will want to hear about the progress that
has been made on the Executive Memorandum as we reach its first anniversary.
•
We want to accomplish four things with this meeting:
1) To hear from
~bout their work to increase our understanding ofthe nature of
the trafficking pr~;;?
•
This understanding is needed both for sound policy development and to help
establish benchmarks to gauge meaningful measures of progress.
2) To take stock of where we are in responding to t~e directives contained in the
Executive Memorandum. Are there gaps in our response?-3) To begin a discussion that we will need more meetings to address-- namely, Phase II
of our work -- where we need to go .next and how each of the departments intends to help
us get there.
4) Finally, this meeting will serve as a preparatory discussion for a possible principals
meeting in the near future.
141 003
�03/05/99
FRI 13:02 FAX 202 647 5337
PICW
~~~
FLOTUS Office
.'
•
Just yesterday[?] the First Lady discussed trafficking in her remarks at the UN. Also
earlier this week, Secretary Albright went to a Thai village to see what types of
trafficking prevention and protection activities they are involved in and to discuss her
support for their efforts.
•
There is alot going on. We have ambitious goals. We cannot possibly cover all ofthe
activities in a single meeting but I think this will be a very helpful start today.
[4}004
�THE WHITE HOUSE
Of
of the Press Secretary
For Immediate Release
March 11, 1998
March 11, 1998
MEMORANDUM FOR THE SECRETARY OF STATE
THE ATTORNEY GENERAL
THE ADMINISTRATOR OF THE AGENCY
FOR INTERNATIONAL DEVELOPMENT
THE DIRECTOR OF THE UNITED STATES
INFORMATION AGENCY
SUBJECT:
Steps to Combat Violence Against Women and
Trafficking in Women and Girls
)
As we c ebrate International Women's Day today, we highlight
the achievements of women around the world. We also acknowledge
that there is much work yet to be done to ensure that women's
human rights are protected and respected.
The momentum
generated by the United Nations Fourth World Conference on Women
in Beijing in 1995 continues to encourage our government, as
well as nations around the world, to ful 11 our commitments to
improve the lives of women and girls.
I have, once again, called upon the Senate to give its advice
and consent to rati cation to the Convention on the Elimination
of all Forms of Discrimination Against Women, thus enabling the
United States to join 161 other countries in support of
Convention.
This Convention is an effective tool that can be
used to combat violence against women, reform unfair inheritance
and property rights, and strengthen women's access to fair
employment and economic opportunity. Rati cation of this
Convention will enhance our efforts to promote the status of
women around the world. As ,we look at Afghanistan and the
egregious human rights violations commit
against women and
girls at the hands of the Taliban, we recognize that this is an
issue of global importance.
�2
'
l
My Administration is working hard to eliminate violence against
women in all its forms.
Our efforts help to combat this human
rights violation around the world and here in the United States.
As part of the 1994 Crime Bill, I signed into law the Violence
Against Women Act.
This legislation declares certain forms of
violence against women to be Federal crimes and provides for
crit
assistance to States, tribes, and local communi es in
their efforts to respond to this problem. The Department of
Justice is implementing the Violence Against Women Act and
working with communities across the country to promote criminal
prosecution and provide services to victims.
Through the
Department of Health and Human Services, we have established for
the first time a nationwide domestic violence hotline, so that
women throughout the country can call one toll-free number and
be connected to a local domestic violence support center. We
have come a long way s
1994, and I am proud of our efforts.
Each day recognition of the importance of this issue grows
around the world.
In recent years, many countries have begun to
respond to calls for 1
slation and government programs
addressing violence against women.
The international community
increasingly regards violence against women as a fundamental
human rights violation, an impediment to a nation's development,
and an obstacle to women's full participation in democracy.
Today I am directing the Secretary of
, the Attorney
General, and the President's Interagency Council on Women to
continue and expand their work to combat
lence against women
here
the United States and around the world. We have made
great progress since the enactment of the Violence Against Women
Act in 1994, but there remains much to
done. We must
continue to work to implement the Act fully and to restore the
Act's protection for immigrant victims of domestic violence here
in
United States so that they will not be forced to choose
between deportation and abuse.
The problem of traf eking in women and girls, an insidious form
of violence, has received a great deal of attention from the
world community.
This is an international problem with national
implications. Here in the United States, we have seen cases of
trafficking for the purposes of forced prostitution, sweatshop
labor, and exploitative domestic servitude.
The victims in
these cases often believe they will be entering our country to
secure a decent job. Instead, they are virtual prisoners, with
no resources, little recourse, and no protection against
viol
ons of their human rights. My Administration is
�•
3
committed to combating trafficking in women and girls with a
focus on the areas of prevention, victim assistance and
protection, and enforcement. Our work on this issue has been
enhanced by a strong partnership with nongovernmental groups and
the U.S. Congress.
I am also directing the Secretary of State, the Attorney
General, and the President's Interagency Council on Women to
increase national and international awareness about trafficking
in women and girls.
I want to ensure that young women and girls
are educated about this problem so that they will not fall prey
to traffickers' tactics of coercion, violence, fraud, and
deceit.
I also want to provide protection to victims. And finally, I
want to enhance the capacity of law enforcement worldwide to
prevent women and girls from being trafficked and ensure that
traffickers are punished.
Therefore,
I direct:
I.
The Secretary of State, in coordination with the
Administrator of the Agency for International Development, to
strengthen and expand our efforts to combat violence against
women in all its forms around the world.
These efforts should
be responsive to government and nongovernment requests for
partnerships, expert guidance, and technical assistance to
address this human rights violation.
II.
The President'.s Interagency Council on Women to coordinate
the United States Government response on trafficking in women
and girls, in consultation with nongovernmental groups.
III.
The Attorney General to examine current treatment of
victims of trafficking including to determine ways to insure:
the provision of services for victims and witnesses in settings
that secure their safety; precautions for the safe return of
victims and witnesses to their originating countries; witness
cooperation in criminal trials against traffickers; and
consideration of temporary and/or permanent legal status for
victims and witnesses of trafficking who lack legal status.
IV.
The Attorney General to review existing U.S. criminal laws
and their current use to determine if they are adequate to
prevent and deter trafficking in women and girls, to recommend
any appropriate legal changes to ensure that trafficking is
criminalized and that the consequences of trafficking are
�•
4
significant, and to review current prosecution efforts against
traffickers in order to identify additional intelligence
sources, evidentiary needs and resource capabilities.
V.
The Secretary of State to use our diplomatic presence around
the world to work with source, transit, and destination
countries to develop strategies for protecting and assisting
victims of trafficking and to expand and enhance anti-fraud
training to stop the international trafficking of women and
girls.
VI.
The Secretary of State to .coordinate an intergovernmental
response to the. Government of Ukraine's request to jointly
develop and implement a comprehensive strategy to combat
trafficking in women and girls from and to Ukraine.
The U.S.Ukraine cooperation will serve as a model for a multidisciplinary approach to combat trafficking that can be expanded
to other countries.
VII.
The Secretary of State, in coordination with the Attorney
General, to expand and strengthen assistance to the
international community in developing and enacting legislation
to combat trafficking in women and girls, to provide assistance
to victims of trafficking, and to continue to expand efforts to
train legal and law enforcement personnel worldwide.
VIII.
The Secretary of State and the Director of the United
States Information Agency to expand public awareness campaigns
targeted to warn potential victims of the methods used by
traffickers.
IX.
The President's Interagency Council on Women to convene a
gathering of government and nongovernment representatives from
source, transit, and destination countries and representatives
from international organizations to call attention to the issue
of trafficking in women and girls and to develop strategies for
combating this fundamental human rights violation.
WILLIAM J. CLINTON
# # #
�Boundary representation is
nat ._!iya~J!!lori181ive.
746375 !R00352l 5-98
Within each region there is intraregional trafficking.
For the purpose of these estimates, children are defined as females younger that 18 years old.
This segment of the trafficking-mostly for prostitution--accounts for approximately 30 percent of the total,
according to various reports. Males under 18 years old account for a very small fraction-approximately
2 percent-of trafficking, mainly for slavery.
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�Heading
I am pleased to transmit for your immediate consideration
and enactment the "Comprehensive Anti-Trafficking in
Persons, Especially ~omen and Children, Act of 1999." Also
transmitted. is a section-by-section analysis.
This
legislative proposal would build upon the strategic ·
framework'that forms the foundation of current United States
policy by providing the United States with new tools to
prevent trafficking, prosecute traffickers and protect and .
assist trafficking victims.
Trafficking in persons, predominately women and children, is
a priority issue for the United States internationally and
domestically. Traffickers subject their victims to slavery
and slavery-like conditions, forced labor and services. This
includes work in the sex industry, domestic servitude and
other forms of coerced labor. I am hopeful that we will be
able to confront this egregious human rights and
transnational crime problem together with bipartisan support
and institutionalize the treatment of this issue for years
to come.
Trafficking in persons, predominately women and children, is
a global problem and the fastest growing organized criminal
enterprise.
It is estimated that over a million women and
children are trafficked around the world each year.
Over
50,000 of these women and children are trafficked to the
United States.
The number of trafficked persons is even
higher, because although women and children are the
predominate targets of traffickers, men are also trafficked.
'.
Trafficking is growing because of its high profits and
relatively low risk of. prosecution. There is a need for
stronger enforcement tools and protection and assistance for
trafficking victims.
This legislation p~ovides these tools.
Passage of the "Comprehensive Anti-Trafficking in Persons,
Especially Women and Children, Act of 1999" will evidence
our commitment to eradicating the scourge of trafficking
internationally and domestically.
I urge the prompt and
favorable consideration of this legislative proposal by
Congress.
[closing]
Secretary of State
�DRAFT - CLOSE HOLD -COPY # 1
FOR OMB CLEARANCE -- NOT FOR DISTRIBgTION
The Comprehensive Anti-Trafficking in Persons,
Particularly Women and Children, Act of 1999
Be it enacted by the Senate and House of Representatives of
the United States of America in Congress assembled,
SECTION 1.
(a)
SHORT TITLE; TABLE OF CONTENTS
SHORT TITLE.
This Act may be cited as the "Comprehens
Anti-
Trafficking in Persons Act".
(b)
TABLE OF CONTENTS.
The Table of Contents of this Act is as
follows:
Sec. 1.
Short Ti trle ;, Table of Contents
Sec. 2.
Purpose & Findings
Sec. 3.
Definitions
Sec. 4.
Mechanisms to Evaluate Progress in Combating
Sec. 5.
Prevention of Trafficking
Sec. 6 ..
Protection and Assistance for Trafficking Victims
Sec. 7.
Prosecution and Enforcement
Sec. 8.
Fostering International Cooperation And Mutual
Assessment of Country Efforts to Eliminate Trafficking
in Persons
Sec.
Monitoring International Progress
9.
Sec. 10.
SECTION 2.
(a)
Aga~nst
Trafficking
Trafficking
Authorization of Appropriations
PURPOSE AND FINDINGS
PURPOSE. -- The purpose of this Act is to combat the scourge of
trafficking in persons,
ly women and children, a
contemporary manifestation of slavery; in all of its violent and
coercive forms both ff\ternationally and domestically through
ion of trafficking, prosecution of and enforcement against
traffickers, while providing protection and assistance to victims
�of this fundamental human rights violation.
(c)
FINDINGS. --
(1)
Trafficking of persons is an insidious and growing global transnational
crime and human rights problem.
(2)
Trafficking in persons, predominantly women and children, is a form of
modern-day slavery. Trafficking schemes
generally involve
traffickers facilitating the victims' movement from their home
communities to an unfamiliar destination, away from family and
friends, churches and other sources of protection and support to
subject them to slavery or conditions of s
ke treatment,
forced labor or services.
(3)
Coerced into prostitution and sexual servitude, domestic servitude,
'·
.
bonded sweatshop labor, or other work or services enforced through
violence or threats so that
th~
victim
reasonably believes that
he or she has no viable alternative but to perform, traffickers
deny their victims
(3)
fundamental human rights.
Trafficking is
zed and
increasingly by
criminal enterprises. Worldwide, it is viewed as being the third
and fastest growing source of
for organized
criminal enterprises, behind only drugs and firearms. More and
more, profits from tra
in women and children are laundered
and underpin the growth and strengthening of
zed criminal
throughout the world, including the United States. Often
aided by official corruption, it perverts the
of rule of
law.
(4)
It is estimated that over one million women and children are trafficked
around the world each year.
Over 50,000 of these women and
children are trafficked into the United States.
(5)
Trafficking networks
ly target women and children facing poverty,
poor education, chronic unemployment, marginalization and lack of
viable economic opportunities at home.
Traffickers exploit these
conditions of economic and social deprivation to ensnare their
victims. Traffickers lure women into their networks through false
2
�promises of good working coriditions at relatively high pay as
nannies, maids, dancers, factory workers, sales clerks or models.
Or traffickers exploit the· poverty of families by buying young
girls and selling them to brothels, into domestic servitude, or
many types of bonded labor.
(7)
Trafficking is condemned by the United States and the international
community as a violation of fundamental human rights. At its core,
the international trade in human beings is about abduction,
coercion, violence and exploitation in the most reprehensible
ways.
Trafficking victims suffer extreme physical and mental
abuse, including rape and other forms of sexual abuse, torture,
starvation, imprisonment, death threats and physical brutality.
(8)
Trafficking contributes to the further destabilizing of economicallydepressed or impoverished communities where it flourishes.
It is
in those areas that traffickers make regular visits to purchase
and remove young women and girls away from their homes.
It is in
those areas that traffickers comb for children to take from the
village for cheap labor.
In some countries trafficking is a major
part of an underground economy.
These activities add to the
instability of already fragile regions.
(9)
Trafficking victims are moved and bought and sold as just another
commodity in interstate, intrastate and foreign commerce.
traffickers' of their
"inventor~·
The
of humans to advance their
schemes and trafficking negatively effects interstate and foreign
commerce, perverting the free flow of resources and the liberty
and labor of persons -in the stream of commerce.
(10)
The decision of the Supreme Court in the United States v. Kozminski,
does not reflect the intention of Congress that "involuntary
servitude," as used for prosecutions under 18 United States Code,
Sections 241, 1581, 1583, and 1584, not be limited solely to labor
compelled through force, threats of force, or legal coercion.
It
is Congress' intention to include labor compelled through other
forms of coercion, such as mental or psychological coercion. In
order to reach lesser forms of coercion, such as fraud and deceit,
a new statute is necessary.
3
�(11)
Sentencing guidelines for criminal violations of newly enacted
trafficking statutes and the Fair Labor Standards Act and Migrant
and Seasonal Agricultural Worker Protection Act should reflect the
guidelines scheme
tha~
exists for violations of related statues,
such as involuntary servitude, slave trade offenses, peonage,
transportation for coerced or illegal sexual activities, and
immigration laws.
SECTION 3. GENERAL DEFINITIONS. --
For the purposes of sections 4, 5, 6, 8, and 9 of this Act and
except as provided in subsection (c)
~a)
The general scope of trafficking involves recruiting or
abducting, facilitating, harboring or transporting a person,
by the threat or use of force, coercion, fraud or deceptio
(i)
or
by the purchase, sale, trade, transfer or receipt of a
(ii)
person,
for the purpose of subjecting that person to involuntary
servitude, peonage, slavery or other conditions of slavery,
forced or bonded labor or services.
(a)
The term " trafficking
victi~'
generally means any person
subjected to the actions set forth in paragraph (a).
(b)
In recognition of the fact that the definition of "trafficking of
persons" is currently under discussion in multilateral fora,
the definition of trafficking may be modified by the
Secretary of State'and the Attorney General, provided that
any modifications are consistent with the purposes of this
Act.
(c)
Congress recognizes that women and children are
disproportionately targeted by traffickers.
Tailor or
strategies to account for the predominate impact upon women
and children.
4
�SECTION 4. MECHANISMS TO EVALUATE PROGRESS IN COMBATTING
TRAFFICKING
(a)
INTERNATIONAL. --
In order to maximize the effectiveness of
United States anti-trafficking programs, the Secretary of
State shall establish mechanisms for evaluating global
progress to reduce trafficking to the extent resources
permit.
These mechanisms should set goals and permit
evaluation to assess progress to the extent resources permit
on (1)
prevention - including economic and public awareness components,
(2)
protection and assistance for trafficking victims, and
(3)
prosecution and enforcement against traffickers, including the
role of official corruption in facilitating trafficking.
(b)
DOMESTIC. -
In order to maximize the effectiveness of United States antitrafficking programs, the Secretaries of Health and Human
Services and Labor shall establish mechanisms to the extent
resources permit to measure United States progress concerning
protection and assistance for trafficking victims.
SECTION
(a)
5.
PREVENTION OF TRAFFICKING
ECONOMIC ALTERNATIVES TO PREVENT AND DETER TRAFFICKING. -
( 1)
To help the United States advance prevention goals
established under Section 4 to enhance economic
opportunity and alternatives for potential trafficking
victims, the President, through the Department of
State, the Department of Labor, and the Agency for
International Development shall target programs to
initiate, expand, and institutionalize initiatives
that include -
(i)
5
economic alternatives and opportunities for women, includi
�micro-credit, training in business development,
skills training, and job counseling;
programs to
(iii)
k~ep
children, especially girls, in elementary
and secondary school and development of educational
curricula about the dangers of trafficking; and
grants for nongovernmental organizations to accelerate the
(iv)
empowerment of women in political, local and
regional economic, and educational roles in their
countries.
The Agency for International Development shall include in
( 1)
appropriate existing reports to Congress the nexus
between: a) its programs increasing economic
alternatives and education for those at risk of
trafficking; and b) efforts to reduce trafficking
consistent with. the goals provided in Section 4.
Nongovernmental organizations should be consulted in
(2)
development of programs undertaken pursuant to this
subsection.
(a)
PUBLIC AWARENESS AND INFORMATION. --
(b)
The Department of State, and the Departments of Health and Human
Services, and Labor, should establish or expand initiatives
and programs, domestic and international, to increase public
understanding of the dangers of trafficking and protections
available for victims.
Th~s
should include projects
addressing demand-side factors that contribute to
trafficking's growth.
(ii)
Nongovernmental organizations should be consulted in
development of programs undertaken pursuant to this
subsection.
6
�(c)
IMPROVING UNDERSTANDING OF TRAFFICKING AND ESTABLISHING
'
BASELINES THROUGH STRENGTHENING THE COLLECTION OF
TRAFFICKING DATA AND RESEARCH.
(1)
The President shall establish interagency procedures to
.collect and organize data, significant research and resource
information on the international and domestic trafficking of
persons, particularly women and children.
(2)
Data collection and reporting under this Section shall
respect the privacy interests of trafficking victims .
.. ,._.
"
SECTION
6.
PROTECTION AND ASSISTANCE FOR
TRAFFICKING VICTIMS
(a)
VICTIMS IN OTHER COUNTRIES - AUTHORIZATION FOR PROGRAMS.
The
President, acting through the Secretary of State and the
Administrator of the United States Agency for International
Development, is authorized to provide programs and
initiatives abroad to assist trafficking victims and their
children, including mental and physical health services,
shelter, legal assistance, and safe reintegration efforts.
(b)
VICTIMS IN THE UNITED STATES - PROTECTION AND ASSISTANCE.
(1)
DOMESTIC PROGRAMS.
Notwithstanding Title IV of the Personal
Responsibility and Work Opportunity Reconciliation Act Of
1996, and irrespective of their immigration status, the
Department of Justice, the Department of Health and Human
Services, and the Department of Labor are authorized to
provide assistan~e to trafficking victims and their children
in the United States, including physical and mental health
7
�services, social and legal services,
shelter, and any other
programs and services administered by these agencies ..
(2)
ELIGIBILITY FOR CRIME VICTIMS FUND. --
Notwithstanding any
other provision of law and irrespective of their immigration
status, trafficking victims shall be eligible for all victim
benefits including victim services, compensation, and
assistance available under the Crime Victims Fund
established by the Victims of Crime Act of 1984.
(3)
ELIGIBILITY FOR VIOLENCE AGAINST WOMEN PROGRAMS & GRANTS TO
PROVIDE ASSISTANCE TO TRAFFICKED WOMEN AND CHILDREN
(a)
General Program and Purpose. - The purpose of this subsection is
to assist state, tribal governments and nonprofit
nongovernmental entities to develop and strengthen services
to victims of trafficking as defined under this subtitle,
especially women and children.
(b)
Grant Authority. --
The Attorney General may make grants to
States, Indian tribal governments, units of local
governments, or to nonprofit nongovernmental victim services
organizations to
1
d~.-ye1 ~p,
enlarge, or strengthen victim
service programs for trafficking victims as defined under
this subtitle.
(c)
Eligibility. - Eligible grantees are states, Indian tribal
governments, units of local government, and nonprofit
nongovernmental
( 1)
vic~im
services organizations that -
certify that their laws, policies, and practices do not
punish or deny services to trafficking victims on
8
�account of the nature of'their employment or services
in connection with being a trafficking victim,
including but ~ot limited to prostitution.
(a)
Federal Share. - The federal share of a grant made under this
subtitle may not exceed 75 percent of the total costs of the
projects described in the application submitted.
(b)
Research, Evaluation, and Technical Assistance. - Of the amounts
appropriated under this section, there shall be set aside -
( 1)
(2)
2 percent for training and technical assistance; and
(3)
(a)
3 percent for research, evaluation and statistics;
1 percent for management and administration.
Definitions. ( 1)
In this subtitle, "victim of trafficking" shall mean a
person who is recruited, abducted, transferred or
harbored through the use of force,
coercion,
deceoption, or fraud for the purpose of subjecting
that person to involuntary servitude or slavery-like
practices.
Notwithstanding Title IV of the Personal
Responsibility and Work Opportunity Reconciliation Act
of 1996, all trafficking victims, as defined in this
subsection, are eligible for services funded under
this section, regardless of their immigration status.
(g)
Authorization of Appropriations. - There are authorized to
be appropriated such sums as may be necessary to carry out
this section.
(4)
REINTEGRATION AND PROTECTION OF VICTIMS. --
The Department
of State, in consultation with nongovernmental
'
organizations, should pursue initiatives to enhance
9
�cooperative efforts'with victims' countries of origin to:
(i)
facilitate protection for trafficking victims reintegrated into
their country of origin; and
(ii)
assist appropriate reintegration [repatriation?] of stateless
trafficking victims.
(c) VICTIMS IN THE UNITED STATES - LEGAL PROTECTIONS.
(1)
PRIVATE CAUSE OF ACTION.
Any individual who is a victim of a violation of 18
u.s.c.
section 1589 and who suffers personal injury or monetary loss as
a result of such violation may sue in any appropriate United
States District Court and shall recover the actual damages
sustained, the costs of the suit including reasonable attorney's
fees, and punitive damages as determined by the District Court.
(2)
INITIAL HUMANITARIAN/MATERIAL WITNESS TRAFFICKING VICTIM
ASSESSMENT. -Whenever federal law enforcement operations or
investigation~.
reveal reasonable indicia of the
offenses set out in this Act, in Chapters 77 and 117
of Title 18 U.S. Code, or situations of abuse or
severe exploitation of a foreign national, a prompt
assessment should be made as to whether the individual
may be a trafficking victim. When it is concluded that
such person is in fact a trafficking victim, law
enforcement personnel should act to ensure that the
alien victim's continued presence in the United States
is authorized in order to effectuate prosecution of
~
those responsible and to further the humanitarian
interests of the United States.
10
�(3)
APPROPRIATE SHELTER AND TREATMENT FOR VICTIMS IN GOVERNMENT
CUSTODY.
While in federal government control or
custody, victims of trafficking
should --
be housed in appropriate shelter as early in the enforceme
(i)
process as possible, unless as
an emergency
measure temporarily necessary to protect t·he
life, safety or health of the victim;
receive prompt medical care,
(ii)
food and other necessary
treatment; and
be provided protection if the trafficking victim's safety
(iii)
at·risk or if there is danger of further
victimization.
(iv)
No claim against the United States is created by this
subsection.
(4) HUMANITARIAN/MATERIAL WITNESS NONIMMIGRANT VISA. --
(i)
PURPOSE. -- The purpose of this section is to
create a new nonimmigrant visa classification that
will strengthen the ability of law enforcement
agencies to detect, investigate, and prosecute cases
of trafficking of persons, while offering protection
to victims of such offenses in keeping with the
humanitarian interests of the United
States~
Creating
a new nonimmigrant visa classification will facilitate
the reporting of violations to law enforcement
officials by trafficked and exploited persons who are
not in a lawf~l/ immigration status.
It also gives law
enforcement officials a means to regularize the status
of cooperating individuals during investigations,
prosecutions, and civil law. enforcement proceedings.
,,
By providing temporary legal status to those who have
11
�been severely victimized by trafficking or similar
egregious offenses, it also reflects the humanitarian
interests of the United States.
Finally, the
provision gives the Attorney General discretion to
convert nonirnrnigrants under this section to permanent
status when it is justified on humanitarian grounds or
is otherwise in the national interest.
(ii)
ESTABLISHMENT OF A NEW NONIMMIGRANT CLASSIFICATION. -Section 101(a) (15) of the Immigration and Nationality
Act
( 8 U.S. C. 1101 (a) ( 15) is amended-
(1)
by striking "or" at the end of subparagraph (R),
(2)
by striking the period at the end of subparagraph (S) and
inserting"; or"'
and
(3)
;
'
by adding at the end the following new subparagraph:
"(T) subject to 214(m), an alien (and the spouse, children,
and parents of the alien if accompanying or following to
join the alien) who the Attqrney General determines possesses material information concerning criminal
(i)
other unlawful activity;
(ii)
is willing to supply or has supplied such informat
to Federal or State law enforcement officials;
(iii)
would be helpful, were the alien to remain in the
United States, to a properly authorized Federal
or State inVestigation or prosecution of the
criminal or other unlawful activity; and
(iv)
has suffered significant physical or mental abuse
result of the criminal or other unlawful
activity·.·"
(iii) CONDITIONS FOR ADMISSION. --
12
�NUMERICAL LIMITATIONS; PERIOD OF ADMISSION; ETC. --
(A)
Section
214 of the Immigration and Naturalization Act (8
U.S.C. 1184) is amended by adding at the end the
following new subsection:
"(m.)(1)
The number of aliens who may be provided a visa
as nonimmigrants under section 101 (a) (15) (T)
in any fiscal
year may not exceed 1,000.
"(2)
No alien may be admitted into the United States as
such a nonimmigrant more than 5 years after the date of the
enactment of this section.
"(3)
The period of admission of an alien as such a
nonimmigrant may not exceed 3 years.
Such period may not be
''"
extended by the Attorney General.
'
"(4) As a condition for the admission, and continued stay in
lawful status of such a nonimmigrant, the nonimmigrant " (A) may not be convicted of any criminal offense
punishable by a term of imprisonment of 1 year or
more after the date of such admission
"(B) must have executed a form that waives the
nonimmigrant's right to contest, other than on the basis
of an application for withholding of deportation or
removal, any action for deportation of the alien
instituted before the alien obtains lawful permanent
resident status; and
"(C) shall abide. by any other condition, limitation, or
restriction imposed by the Attorney General."
(B)
PROHIBITION OF CHANGE OF STATUS. -Section 248(1) of the
Immigration and Nationality Act (8 U.S.C.
1258(1)) is amended by striking "or (S)" and
inserting "(S) or (T) ."
13
�(C)
ADJUSTMENT TO PERMANENT RESIDENT STATUS. --
(1)
IN GENERAL. - Section 245 of the Immigration and Nationality
Act
(8 U.S.C. 1255) is amended by adding at the end
the following new subsection:
"(1) (1) The Attorney General may adjust the status of an
alien admitted into the United States under section
101 (a) (15) (T) (and the spouse, children, and parents of the
alien if admitted under that section) to that of an alien
lawfully admitted for permanent residence if -
"(A)
in the opinion of the Attorney General, the alien's
continued presence in the United States is justified on
humanitarian grounds or is otherwise in the national
,.,.
interest, and (B) the alien is not described in sections 212
(a) (3) (A) (i) (I),
(3) (A) (ii),
(3)
(A) (iii),
(3) (C), or (3 (E).
"(2) Upon the approval of adjustment of status under
paragraph (1), the Attorney General shall record the alien's
lawful admission for permanent residence as of the date of
such approval and the Secretary of State shall reduce by one
,.
the number of visas authorized to be issued under sections
201 (d)
(2)
and 203 (b) (4)
for the fiscal year then current."
EXCLUSIVE MEANS OF ADJUSTMENT. --
Section 245 (c) (5) of the
Immigration and Nationality Act (8 U.S.C. 1255(c) (5))
is amended by ·striking "section 101 (a) (15) (S) ;" and
inserting "sections 101 (a) (15) (S) or (T) ;".
(1)
(i)
14
SPECIALIZED TRAFFICKING TRAINING FOR ENFORCEMENT OFFICIALS. --
The Secretary of State may expand training of appropriate
�Department personnel "in identifying trafficking victims
~nd
their protection and is authorized to apply funds to the
extent resources permit for that purpose.
(iii) The Attorney General may expand training of appropriate
Department personnel in identifying trafficking victims and
their protection in the enforcement context, including
application of Section 6(c) (3) of this Act.
The Attorney
General is authorized to apply funds to the extent resources
permit for that purpose.
(iv)
Training shall include achieving trafficking objectives through
nondiscriminatory application of immigration and other laws.
SECTION 7. STRENGTHENING PROSECUTION AND PUNISHMENT OF
TRAFFICKERS
(a)
CRIMINAL PROVISIONS. Chapter 77 of Title 18, United States Code,
is amended as follows:
(1)
in Section 1581 by deleting at the end of subsection (a), "shall be fined
(A)
under this title or imprisoned not more than 10 years,
or both: and substituting in lieu thereof "shall be
punished as provided in section 1592n; and
(B)
by deleting at the end of subsection (b), "shall be liable
to the penalties prescribed in subsection 9a)n and
substituting in lieu thereof "shall be punished as
provided in section 1592u;
(1)
in Section 1584, by deleting "shall be fined under this title or
imprisoned not more than 10 years, or both and substituting
in lieu thereof "shall be punished as provided in section
1592u;
(2)
15
by adding at the end thereof the following four new sections:
�"§1589.
TRAFFICKING AND CRIMINAL EXPLOITATION OF WORKERS -
" (A)
Whoever " (1) recruits, harbors, provides, transports, employs,
purchases, sells or secures, by any means, any person,
knowing or having reason to know that person is or
will be subjected to involuntary servitude or peonage
or to unlawfully exploitative labor conditions as
defined in subsection (b); or
"
(2)
in any way, financially or otherwise,
knowingly
benefits from, or makes use of, the labor or services
of a person held to a condition of involuntary
servitude or peonage,
shall be punished as provided in 1590.
"(B) As used in this section, "unlawfully exploitative labor
conditions" means that the labor or services of a person,
.
.
which are in or affecting interstate or foreign commerce,
are obtained or maintained through any scheme or artifice to
defraud, or by means of any plan or pattern, including but
not limited to false and fraudulent pretenses and
misrepresentations, such that the person reasonably believes
he has no viable alternative but to perform the labor or
services.
" (C) This section does not apply to labor performed where
the employer is a municipal, local, state, or federal
government, and the relationship is penalogical, rather than
pecuniary.
"§1590.
UNLAWFUL POSSESSION OF DOCUMENTS IN FURTHERANCE OF
TRAFFICKING, WORKER EXPLOITATION, INVOLUNTARY SERVITUDE, OR
PEONAGE --
16
Whoever destroys, conceals, removes, confiscates or
�possesses any identification, passport or other immigration
documents, or any other documentation of another person " (1)
in the course of, or under circumstances which
facilitate "(a) a violation of section 1581, 1583, or 1589 or a
conspiracy or attempt to commit such a violation; or
"(b) the unlawful entry or attempted unlawful entry of
the person into the United States; or
"(2) to prevent or restrict, without la~ful authority, the
person's liberty to move or travel in interstate or foreign
commerce,
shall be fined under this title or imprisoned for not more
than 5 years, or both.
"§1591.
MANDATORY RESTITUTION.
"(a) In general.--
Notw~thstanding
addition to any other
ci~il
section 3663 or 3663A, and in
or criminal penalty authorized by
law, the court shall order restitution for any offence under this
chapter.
"(b) Scope and nature of order. " (1) Directions.
The order of restitution under this
section shall direct the defendant to pay the victim
(through the appropriate court mechanism) the full amount of
the victim's losses as determined by the court pursuant to
paragraph (3).
"(2) Enforcement.
An order of restitution under this
section shall be issued and enforced in accordance with
section 3664 in the· same manner as an order under section
3663a.
"(3) Definition.
For the purposes of this section, the term
"victim" means the individual harmed as a result of a crime
under this chapter, including in the case of a victim who is
under 18 years of age, incompetent, incapacitated or
17
�deceased, the legal guardian of the victim or a
representative of the victim's estate, or another family
member, or any
oth~r
person appointed as suitable by the
court, but in no event shall the defendant be named as such
representative or guardian.u
"§ 1592.
"(a)
GENERAL PROVISIONS, ATTEMPTS, AND PENALTIES.
In a prosecution under section 1581, 1583, 1584,
or 1589, a condition of involuntary servitude or peonage may
be established by proof that the labor or service of a
person was obtained or maintained by the existence of "(1)
force, threat of force, or legal coercion; or
"(2) mental oL,psychological coercion.
"(b) An attempt to violate section 1581, 1584, or 1589,
shall be punishable as provided in subsection (c).
"(c) A person who violates, or attempts to violate, section
1581, 1584, or 1589 shall be fined under this title, and
imprisoned "(1)
for not more than 20 years, if
"(A) the victim is a minor;
"(B) the victim is subjected to aggravated sexual
abuse as a result of acts committed as a result of
such violation or attempted violation;
"(C) the victim suffers serious bodily injury,· or is
subjected to
s~rious
illness, as a result of such
violation or attempted violation;
"(2)
for life or any term of years, if death of the victim
results from such violation or attempted violation; or
"(3)
for not more than 10 years, in any other case.n, and
"(4) by amending the table of sections for the chapter by
inserting at the end thereof the following:
18
�"1589.
Trafficking and criminal exploitation of workers.
"1590.
Unlawful possession of documents in furtherance of
trafficking, worker exploitation, involuntary servitude, or
peonage.
"1591. Mandatory Restitution.
"1592. Penalties and general provisions.
(b) RICO
Chapter 96 of 18 United States Code is amended as follows:
Delete section·"§§ 1581 - 1588" and insert "§ 1581- § 1592"
Delete and insert
"
II
after slavery and add "trafficking in
persons"
(c)
AMENDMENT TO THE SENTENCING GUIDELINES.-"(1) IN GENERAL.----Pursuant to its authority under
section 994 of title 28, United States Code, and in
accordance with this section, the United States
Sentencing Commission shall review and, if
appropriate, amend the sentencing guidelines and its
policy statements applicable to persons convicted of
offenses involving the trafficking of persons,
including component or related crimes of peonage,
involuntary servitude, slave trade offenses, coercive
worker exploitation, and possession, transfer, or sale
of false immigration documents to further the
exploitation of workers.
"(2)REQUIREMENTS.--~In
carrying out this section, the
Sentencing Commission shall:
" (a) ensure that the sentencing guidelines and policy
statements applicable to the offenses described in
subsection(b) (1) are sufficiently stringent to deter such
19
�offenses and adequately reflect the heinous nature of such
offenses;
" (b) cons
conforming the sentencing guidelines
applicable to offerises involving worker exploitation to the
guidelines applicable to peonage, involuntary servitude, and
slave trade offenses;
" (c) cons
providing sentencing enhancements for
those convicted of the offenses described in subsection
(b) ( 1) that---" ( i)
involve a large number of victims;
"(ii) involve a pattern of continued and flagrant
violations;
"(iii) involve the use or threatened use of a
dangerous weapon;
"(iv) result in the death or bodily injury of any
person.
"(3) EMERGENCY AUTHORITY.----The Commission may
promulgate the guidelines or amendments under this
subsection in accordance with the procedures 'set forth in.
section 21(a) of the Sentencing Act of 1987, as though the
authority under that Act had not expired."
SECTION 8. FOSTERING INTERNATIONAL COOPERATION AND MUTUAL
ASSESSMENT OF COUNTRY EFFORTS TO ELIMINATE TRAFFICKING IN
PERSONS. Findings:
The nations of the world are linked together as countries of
origin, transit and destination in the vicious chain of
trafficking of persons, especially women and children;
Eradicating trafficking in persons will require vigorous and
sustained international cooperation among all countries of
in, transit and destination to eradicate;
The vast majority of nations of the international community are
prepared to work together in cooperation to eliminate this
repugnant transnational crime and human rights violation;
The United States seeks to.engage any countries resistant to
j
this internationai c?nsensus to obtain their support for
the elimination of traficking demonstrated through policies and
programs;
20
�THEREFORE, it is the sense of Congress that the President should
employ a strategy of bilateral and multi-lateral mutual
assessments in which countries:
1)
expand existing cooperative policies and programs consistent
with the purposes of this Act;
2)
gauge progress toward the urgent need to eliminate
trafficking around the globe; and
3)
apply the cpncerted resolve and resources of the
international community to identify and engage any
country demonstrating resistance to reflecting official
condemnation of trafficking in persons through policies
and actions, including making serious and sustained
efforts to:
i)
ii)
iii)
vigorously prosecute and punish traffickers at a level
commensurate with the severity of the crime;
investigate and prosecute official corruption that
contributes to trafficking;
.
pibtect trafficking victims, including working
cooperatively with international and
nongovernmental organizations.
SECTION 9. MONITORING INTERNATIONAL PROGRESS AGAINST TRAFFICKING
(a)
EXPANSION OF TREATMENT IN HUMAN RIGHTS REPORTS. --
The
Department of State .through the Assistant Secretary of State
for Democracy, Humi~ Rights and Labor shall expand its
reporting to Congress as . . part of its annual Country Reports
..
.
on Human Rights ··Pra'ctices addressing the status of
·····
.
-
internati-onal traffi·cking ·o-f persons, including-.
(1)
. ....
a description of the nature and extent of trafficking of persons
in each country;
(2)
a description and i~s~~~ment of the effbrts by countries to
combat trafficking through prevention, protection and
,·
assistance for vic~{m~ and prosecution and enforcement
against traffickers; and
(3)
the role of
corrupt~on
and official cooperation or complicity in
�a country's activities.
(b)
TREATMENT IN REPORT. -- Trafficking in persons shall receive
separate treatment within the reporting on each country.
(c)
COOPERATION WITH NONGOVERNMENTAL ORGANIZATIONS. --
In
compiling data and assessing trafficking for the Country
Reports on Human Rights Practices, United States mission
personnel shall foster contacts with human rights and other
nongovernmental organizations, including receiving reports
and updates from such organizations.
SECTION 10.
(a)
AUTHORIZATION OF APPROPRIATIONS
AUTHORIZATION FOR
DEP~TMENT
OF STATE. --
ro
carry out the
purposes of this bill, there are authorized to be
appropriated to the Department of State such sums as may be
necessary.
(b)
AUTHORIZATION FOR DEPARTMENT OF JUSTICE. -purposes of this bill, there are
authoriz~d
To carry out the
to be
appropriated to the Department of Justice such sums as may
be necessary.
(c)
AUTHORIZATION FOR DEPARTMENT OF LABOR.
To carry out the
purposes of this bill, there are authorized to be
appropriated to the Department of Labor such sums as may be
necessary.
-.1,·
(c)
AUTHORIZATION FOR DEPARTMENT OF HEALTH AND HUMAN SERVICES. -carry out the purposes of this bill, there are authorized to
be appropriated to the Department of Health and Human
Services such sums as may be necessary.
22
To
�Vienna, 23 November 1999
Let me thank you once again for meeting with me in Istanbul in connection with
the OSCE's role in combating trafficking in human beings. I was very grateful for your
recognition of Austria's etiorts to contribute to the elimination of this scourge which
particularly affects women.
I wish to express to you my sincere appreciation for your wonderful initiatives in
this field as well·as to assure you of Austria's.full support for your call to action. Your
untiring efforts in combating the eviloftrafficking in human beings make you a shining
example for all women. The eventyou organized in Istanbul was highly informative and
provided an excellent oppprtunity to alert' a wider international public to the need of
taking energetic· measures against such trafficking. .. · . ·
Let me further underline that Austria as the. next OSCE Chair will spare no effort
to enhance the role of that organization in combating trafficking in human beings.
Hoping that you will be able t() visit Austria once again, I remain
/),~ ~t'e_ a.tpf ilf/_/K~'P.h'P"l-
~~J:MII-~
Mrs. Hillary Rodham Clinton
First Lady
The White House
Washington, D.C.
�e Verve~;~ .· ·
· fing for
..
!,
""">
..
The Pr
" s Intera g '',
Febru
.
1-4Tf·T··'i,·'}l':,•c;;,,
"
,
1
11
wCouncil on
,.,"''""'·}'' ' ' ' ' ' ' ""'
�Trafficking in Women and Children:
USG Definition
s involved ·fil
.
. ring or sale o ::.:! ...
!.!
in national or
•
· · tion or
coerc1o
s ofplac
or servi .
. . . . . domestic·· . •.•. ·\
'
·········· ...
ery-like prac · · ··
.
•
•
ons In s1
,,!J as forced
1~ude debt bon
@fif
.,,.~
'
�Within each region there is intraregional trafficking.
Due to the clandestine nature of alien smuggling, our estimates are very general and are based on sketchy reporting.
For the purpose of these estimates, children are defined as females younger that 18 years old.
This segment of the trafficking-mostly for prostitution-accounts for approximately 30 percent of the total,
according to. various reports. Males under 18 years old account for a very small fraction-approximately
2 percent--of trafficking, mainly for slavery.
�Trafficking in Women and Children:
Human Rights Issue
•···on women ar tl
world
. 50-100,000
e U.S. each y
. er Soviet
.
+ Tra
abus ·.
death.
!:·
+Worn·
4
••.· g rape,
starvation,
d physi > • t······················t~lity.
:i1~:~1r
•· children tr . • t etl into the sex . ..
deadly diseas~~' including HIV an
:
-::-·:::-:.
;:
are
�Trafficking in Women and Children:
" conomics a
· r . · n Issue
;_
.
;:
· !'WhL,ckers capitali
tegrating socia
· . en worldwi
and
..
o&utries,
Soviet 'G1\ni . ~.
urope
'::·,
ured into ·
king networ
+Vic
throu
promise .• \. :::.
working
condi
. at high pay ·• n •·••·· oihestic workers,
fact
orkers, sex workers, nannies, waitress . ·. ,
sales · rks or models
·jd
;
�Trafficking in Women and Children:
Trans n a tie~rJlt'Y-.,.~
fN.·\""
· ed into·
· fficking
11
, .· .cials facil h··
. . ' industry and
,~'law enforc mL.' · :::and rule of la
�Key Source Countries by Region
JL~
.
.·
'·~· · · imi·~~~~~~~~
<
;litl:l;:lfl··~··~:J ·. ependent Sta .··Li···
+Africa
. . . :· ·. .
.
:
: ~ :
\0.1 . . . . . . . . . . . . . . . . . . . .
:'
•· · /· · · · · · · ·:· i· ·IJB~
..
..
:
.
:
~ :.
:
industrial~Zed
. ' 'eked women and children is toward
nations, inc.·.·· ·ng the U.S., or toward neighboring countries with
marginally higher standards of living
�Trafficking Industry's Rapid Expansion
ontributin .
iable econo
unities at ho
"~l!ltural prac .
···.ecution
.· . . . ·•.· t~;;I}Otential
_"'""",. . . ·anal
qnsportatiorl ...
1Itfrastructures
~;":~tj:1;
+ lack of
ve
.::h~:~;:
lf~
official corrupti
+ weak visa and border .
controls
�.
Trafficking
...
;£011iz±± .
Ca~.~s
-~
.· .:-.:. -::~:=··-~:·.:/
in the U.S ...
..
workers' • ... . . . . . . . .
~· ·~· · ·~· · ~ ~· ~·• I··~~~ggled an <
··
+ .Mexi '
. ..
ee::~ers hel '
. .
sl:very and fore : ::
prosti. · · ion in Florida and Carolinas
i
.
'
�United States' Laws
is no compfe . .
sand infras
. /. ims do not
·.·.· · · · inal sancti
, g scheme
aybe
dimmi
dnapping,
fraud
·•· · aws, or cr1m
•
on, conspiracy,
I.:':.L':.L'-·
�The USG Response
rt'?'.'''~'t"'"'-,. t Clinton iss ",. , .,·"·'""
·•· blishing
trategy
·PREVE
·PRO
·PROS.,
tary Albri ·
+ The dir,
· t's Council"'~n , :tO . ,•'., .·... ,.,.c . . ordinate au'l'Ji(r ' ,,,
· e also charge· USG agencies to
implem t the strategy
�USG Anti-Trafficking Efforts
......•... · · .·•·.· .•· · · ·. ency working . . · .· ·. ·
··:>}·HHS, USIA,
.!-·
has an internal
d DOL hav
· tion that
pros
of traffic
UN osc·······. . . .·. . ·
.
· · · ·•· g with th
. +DO
'
'
'
ell as the
ASE
ents ofltaly, . . . . . . .·
the Ukraine
+ USG i orking bilaterally, tnultilaterally, with NGOs
Congress
�USG Objectives
networks,
·. pool of data .
d recruitin ·m .· ·· ·
. •. ment economic
ams forwome
• to pr,
h
traffi ·
+ Devo ·
comprehe
d assist
.: .·..
ent resour • · .·
: ..
·.. : -~ ::
::~::
+ Expan
destin a
aborative efD ·.
countries
T
:~
: ·.
~j: :=
::\:!::::
El.
n ~source, transit
�USG Initiatives: Prevention
•
. .•. •··.·.·. ·.· ...... .• . sponsoring pu . . . .
.····· · · ·• . · •· ·es to warn pot . .,· .·. . .~· · · ·
· g methods
•
.... ·. ·.
.. ,UNICEF':~··•·•·••••:I·
.., ., ~., .,·.·~· · · · .. velopme~f-~·l~~~~~~!~~
coun · ·• · • • ··•••• ·•·•• vide econ
1ure o ' . • . ent oppo J~lll ~~~~~~
.···•·•·••·. ··•.·m ofTWC ·.·.
tldifferently in ea ...•.•.
region, . · .·. · · •
will convene meetings to develop the
capaci
each region to combat TWC
1
:
�USG Initiatives: Protection
· working with
. on countrie . · · · ·
. traffickers· and
funding progr .· •·
. -. ·es to assist tr
+
transit and
>
Tli:;: ,t~~ sident' s Co
Sand
sical heal
progr
also w
Protee
.· ng adequ
· meet needs o
g to include tr
nProgram
. • . • ···.·laws, policies
·eking victims.
· eking victims in its
�USG Initiatives: Prosecution
e associated ·with
+ DOJ'
ucts training
sist them
prosecute
king group is · iewing possible lev,.rE,..,,,.,.,,..,
en enforcement tools and protect traffic
�-------
Conclusion
is no compr ••.·. .•••.•.•. ' • .
:-~·~· ·•I•·~·.•I• ..·~;•.Ia:nd infra·
' '
: ·•· ·•.
·· ........ ·.· .·.· · · . TWC,
:<
do
· •· '·••. · ·• .,. •·ton issued. ·•1· lt~~~~~~~:
estab·.· •··• ............... · e USG' s
preve .· ••. · , protection fori(:·
enfor . · · ···· nt against traffic·
sident's Interagency Council on Women is
··. ordinating all USG policy on TWC
char~ed
'
�FRtJr1 :,V" T;-iE_PROTECTJON PROJECT_
t,. t· ~
PHONE NO.
2025182254
Rpr. 06 1999 03:22PM P2
WOMEN i\ND PlJill.JC !'Ol.tCY I'IH1CRAM
The Pwtecti(m Project:
LAURA), I.EI)fRER
Research Diredor and Projl:Ct Manager
April 6, 1999
M.s. M.elanne Verveer
Chief of Staff
Office of the First Lady
Room 100
Old Executive Office Building
Washington, DC 20500
Dear Ms. Verveer:
I am writing to tell you about the Protection Project, which is gathering and analyzing
laws from 200 countries and all over the United States to determine the current legal protections
for women and children against commercial sexual exploitation, such as trafficking, forced
prostitution, and chjld pornography. Our goal is to provide, for the first time, objective
information and legal analysis about current laws and to develop recommendations tor model
legislation. The Project has rec~i.ved support from a wide range of agencies and organizations,
including the U.S. Department of State, UNICEF, several private foundations with a long history
of funding human rights and wom1.:n's rights projects, and religious organizations such as the
Presbyterian Women's Division and the United Methodist Women's Division.
I have been very encouraged by the First Lady's interest in the issue of trafficking, and
would appreciate the opportunity to meet with you and with her, at your convenience, to provide
preliminary information from our project. If it were possible, I would be glad to do so prior to
our first Capitol Hill briefing, which is scheduled for April23.
Our Project recently moved to Washington, DC, and is located in the new offices of the
Kennedy School of Govt:roment in Dupont Circle. Dr. Diana Zuckerman is serving as the senior
policy advisor on this project and she has told me of your strong commitment to human rights and
women's issues and suggested that I contact you since I will be unable to attend your scheduled
presentation at the State Department on Wednesday, April7. Diana will be attending the
meeting to represent the Project, since I have been asked to speak on that day to the Council of
Women World Leaders at their second international Sumrnit at Harvard's Jolm F. Kennedy
School of Government. The Council is a newly formed association of women presidents and
parliamentarians.
As you know, the trafficking of women and children is a human tragedy that is becoming
more common in many countries because it is a lucrative bus1ness and the laws against it are
weak and enforcement is rare. As I said at a recent Capitol Hill press conference, drugs can be
1779 Massachusetts Avenue, N.W., Suite Sl 5, Washington, D.C. 20036
telephone: 202·518-2236 fax: 202-5 J8-2255 e-mail: laura.Jederer@lharvard.edu
�[~p!'1
·i..
"CHE_PROTECT I ON PROJECT_ _ __ _
PHONE NO.
2025182254
Apr. 06 1999 03: 22Pf1 P3
sold for use only on~c, but human beings ~an b~ sold over and over again. I have bt.:t;n working
in Lhis area for 25 yean;, und directing this project for t1ve years. This year, J am hopeful that the
issue: is t1nally getting the high level, bipartisan attenHon that it deserves.
Thank you so much for your interest and involvement in this issue. I hope to meet you
soon.
rely2£/!
.. ···
-·-:( i
Le rer, J.D.
/
-~
�E8f-Jf1 ;_. T.HE_PROTECT I ON PROJECT_ ----
T H ll S T 1'. fi S.
PHONE NO.
2025182254
Apr. 05 1999 03:23PM P4
o f..
HARVARD_
U N ! V F. R S I r.
TilE WASII!NCTON, D.C OFFICI'
\' .
THE PROTECTION PROJECT
l
A Brief Descriptio if
The Women and Public Policy Program ofthe John F. Keooedy School ofG~vemment at
Harvard University is conducting a two-year legal research project entitled, "Creating an
International Fr:.>.rnework for Legislation to Protect Wonten and Children from
Commercial Sexual Exploitation ("The Protection Project11) " . The research is being
directed by Dr. Laura J. Lederer. ·The purpose ofthc Project is to produce a
cornprehensi ve legal database of national and international legislation protecting women
and childn;m from commercial sexual exploitation. Over the past year the Project has had
a dozen researchers contacting the 190 independent states and 63 dependencies. Between
us, we have had in-house language capability for French, Spanish, Portuguese, Japanese,
Gennan) Latvian, Russian, Cantonese, English and some Mandarin and Arabic.
Researchers are documenting laws on child prostitution and prostitution, child
pornography and pornography, pimping, pandering, procuring, trafficking and forced
prostitution, extradition laws, extrate:rritorialityt and other cross-jurisdictional issues,
com.1ption of minors, and other related laws. The Project is also documenting age of
majority, age of consent to sexual relations, age of marriage, and other ages relevant to
commercial sexual exploitation issues. In addition, we are examining range of penalties,
defenses to the charges, sentencing patterns, reporting requirements, law enforcement
capabilities, victim assistance programs, and related legal matters. Collection of data is
taking place between September I, 1998 to March 31, 1999 through a series of three
questionnaires.. A four-section database has been designed to compile data from each
country for the following:
•
•
•
•
Country Notes: Each country will be given an opportunity to describe the
scope of the problem and the nature of the legislation in their country;
Legislation: The text ofthe penal code will be quoted in the original language
and in English;
Comparative Legal Charts: The accumulated data will be organized in short
form on a series ofregional and global charts;
Maps: A set of maps will delineate legislative approaches and, to the extent
they can be documented, national and international trafficking routes
In the second year, the Project will embark on a comparative legal analysis of the laws,
studying the strengths and weaknesses of various fonns oflegislation, identifying
loopholes in laws, and examining the laws for their effectiveness, ability to interact with
the laws of the other countries, enforcement capability, deterrent value, and
1779 Massachusetts Avenue, N .W. Washington, D.C. 2003()
telephone: 202-518-2.230 fax.: 202-518·2247
�FRQM
·- .
~~
: THE_PROTECTION PROJECT-
"'-,..,:,
----
PHONE NO.
2025182254
Apr. 06 1999 03:23PM P5
harmonization of definitions and penalties with the laws of other countries. This work is
being amplified by an analysis of case law worldwide .
.A.mong the final products of these phases will be the following:
•
•
•
A database presenting a worldwide legal picture, on a country-by-country basis,
cross-referenced by issue areas (prostitution, pornography, adoption for illicit
purposes, etc.) and cross-referenced again for criminal codes in both the original
language and in English.
A draft of model intemationallegislation that can be utilized by countries that
wish to improve or strengthen their laws. The legislation presented will be based
on the best statutes from every country and tailored to the major legal systems of
the world.
A fmal report containing a summary of the data, the comparative legal analysis,
and a set of recommendations and inteiVentions.
When the Project is complete, the database and final report will be released to the public.
Information will be available over the Internet at specific web site, and in a final report.
For more information please contact:
Laura J. Lederer, Research Director and Project Manager
The Protection Project
·
Harvard University
Kennedy School of Government
1779 Massachusetts Avenue, NW, Suite 515
Suite 515
Washington, DC 20036
(202) 518-2236 (Phone)
(202) SlS-2255 (Fax)
laura_lederer @ barvard.edu
�E!:pr·1 ··-~ JHE_PRDTECT rON
PROJECT_
WOtU.:IJ rU.W:l
PHONE NO. : 2025182254
WIIi S HI 1\)1=)TOD T-'o ~~
R
Apr. 05 1999 03:24PM P5
:::>A:l'U)UJAY, l\ll.Altt:H 20, l'J9')' Ji/
A Different Kind of Trade War:~
1leonean
and her
!f aJTive
by
tor at the
in the
Freetown,
ststop as
~
rheir
lr'll
Bd for ·
1ring
a haven for
1alfaminion
,sfrom
:out West
·ees
I
Home
U.N. reiu;ed $24 mil·
)gTams this
have been
nless. Congion, more:ng the bornew and
1, the world
'{ly indifferght.
community
~s,"
Ogata
·place. It is
Divided Hill Wwlis to Outlaw Trafficking in WOmen, Chilo/~l:Z
By WXLl.LA).!" B!!ANIGIN
Washingtor~ l'IJ>t Stajj'Writer
A growing international trade in
women and children is raising con• cems in Congress and the adrnini&
· tration, but Derruxrats and Repu.bfi..
: cans appear divided over how to
attack the problem. ·
The divisions emerged thls week
after Sen. Paul D. Wellstone (DMinn.) introduced legislation aimed
primarily at protecting the victimS of
international trafficking for prostitution or fora::d labor. Rep. Louise M.
Slaught:et- (0-N.Y.) said ihe plans·b:J
intn;xiuce a similar bill shortly.
Republicans c:hatged that the
Der:nocrats were trying to co-opt an
issue that Rep. Christopher l! Smith
(&NJ.) is addressing in draft legislation ciro.lla.ting on the Hill Smith's
bill focuses more narrowly on the
t:raffi.clcing of women and children for
the sex trade, but includes tougher
inte:mational $3D.ctlons on countries
frlat permit the pr.ld:ice, <L'l well as
new U.S. criminal penalties.
While both parties are vying to
take the lead on the i!lS!le, there is
little dispute about the seriousne:ss of
the ptoblern.
"'Every year, the trafficking of
human beings fur the sex trade ·or
, dom.estic servitude affects hundreds
of thousands of mmen throughout
the world," WeDstone told a news
conference TU&<iday in announcing
· his bilL "We must understand this
pr.actice for what it is: a modem form
a. HI
T
of slaWry." He dt:ed U.S. government
estimates that traflick.ers ateund the
world ~e 1 million to 2 million
women and girls every year. He said
50,000 to 100,000 of them "are
trafficked U) the United States alone."
They range ·from Rllssian women
found working in a massage parlor in
~unlike
drugs·. _..a
human being ...
can be sold over
and over again~",
-laura J. Lederer,
Kennedy Scnool of Government.
Ha!Vard University
Ethiopian woman who was l:)rctllght
to the United States by an employee
of the International Moneta.r~{'Fund
and put to work as a domestic
servant in slave-like conditions tor
more than eight ye-ars. Teterra,
whose ordeal was re~.in·The
Washington Past in Januai}:; ll!iocf'the
household last year but ~s. ~
nerable becau.'le her visa ~edJong
ago.
:. ·:.:
Wellsl:one's bill would allow her
and potentially thousands pf other
abused domestics to remai:O. ·iii the
United States and work legaJJY, Uf,l,der
temporary nonimmigrant visas while
they pursue civil or c:riminal;.~. or
seek asylum.
.
·.; ;, .::' ~'
It also would bar U.S. police.a&si::r
tance-subject to a presidential;waiver-to furelgn governments ·.iinplicat. ed in trnfficlcing. And it would amend
· U.S. law to define invalunta:ty ~
tude as trrlolviltg not just 'physical.
force but also "bonphys.ical~fueans"
i:ommon)y used by traf!kkeis't.b hold
people in virtual slavery, slfclf ·as
Bethesda to Mexican girls foi'O:ld into
prostitution in Florida. In other c'iSeS
that have c:Oille to light, Latvian
women have befm ~ in to
dance nude in Chicago nightclubs, Mdebt bondage, b41donail, fraUd; deand women and ~Js frOm the PhiliP" ceit, isolation and p:sychologlbt'"' ··res.
"
. :.,~ -.? .
pines and China have been,. 59ld into ·sure.
.
,._
brothels in the Northern Mariana
Smith's draft bill would 'ticite a
Islands.
tough new $tatute against ~eking
"Jt's a very fucrative business," il>t the sex trade, treating Clffen~
;;aid Laura 1. Lederer of Harvard · the same as rapists. It would ~r~lupit
University's John F. Kennedy School nonhuroanitarian U.S. aid . foreign
of Government "Unlike drub'S. whicll countries that "fuil to --"m1!1H~A ,, d
~'4>~M•Fr'• !l1l
are sold only once, a human being ..• appropriately punish intepl:l&i:Jal
sexual trafficking," acx:ording -tO a
can be sold aver and over again."
Also appearing at the news confer- · 8'l.IIJl1DaiY. The sanctions a4;o ·~uld
ence was Yeiliehareg Teterra, an' be waived by the presidenl , :,,, · .>
�- SUNDAY, JANUARY
)., ,A,_
j~L_~ . ·
•
..
~: ~~ ~· ~
'Jnte'flt#tional Human·R.ightt; Day •jget· lei's s~op-~orldwide;trafti~~ing in'
~:Foliowing tJJe ;ext of ~~ks ~Uv- Sotithe~st
-
-
.
.
'
.
Is
:
Asia they COJ.Ile from .
'·divided llouSe
imui at ihe 50th_ -~fliVersary observanrie. :Philippines and Thailand.
··
' fiscal year (m .
(Jfthe Vniversal ()eclaraiion_.OfHuman . The flow.-is towards m1mstn1ml
dy·d\d:not par-'·
Right~ on,Dece~ber ]0, 1998, at the. countries _and involves, to a greater
'll!l put .together
- ·University of Pennsylvania by Ulana _ lesser extent, aU . _ · counlries:
:a budget i_t is. ·
Baluch Mazurtevith, 'i:halrper$on ofihe
-Traffickers-operate_b_oldly_:IIC11oss· inter•i
ar;s,gift to the
Ukrainiail Hunum Rights Conviiiltee arid. natioruil · borders. Th!!'Y- lure their
~: Communisls
forme~_ public mem~er ·of _the _u.s. - witll promises-of fantastic salaries '
l9 alloeated for
Congressional' Commission on the most c8ses res.Pectable jobs such as: ply !OO.P,cior tx)•'
Ukraine 'Famine.'
· ··
club entertainers, nrumies,.danc:<irs,
y from sinkfug ;
· _resses, sales clerks and models: This
• The ri~glng w(lrds of the Oniversru intemation!ll;orgallized crime generate~
Woneiary Fuod. · . Dei:hfration of Human R,ights were the .. liigh profits with. relatively. low ris.ks. ·
iugh the 1!\Ws ' - worlqwic.J,e ~spo11se; (o the evilof - Trpfficki!lg. the actual sale, of Thai .
!O!IIIheinoneY ·Naiism; "AU human beings are born_ free· women' toJapan; Germany and Taiwan _
\
_.
and equal in.dignity lind-righ~: they ,are generate8 close to $3 billion: In Japan
nunent ligUres
eri~ed with reason and C!Jnscieni:e and alone~ Thai women and girls .Working as'
.m; perl)aps its
shoiild act towaids one.clinoth"r iii a spirit . piostifutes· bring iii .as _much _as· $4.7 bik
1'}99. Wliethe.r
of brother~ood.~ Tlie word~ of· the_ Iio11. · -' · -_- _•· ·. - .
·· ··. · -_. · ·
::an rolled: the: . -- Universal' Deciiu:atlmi were the guiding
:One-of the most-lucrative sex trade
ved about luilf_
.light fur lllllJlY human rights aetivisiB and · marketS and a new source ·or women for
ization of gov- - hunian rlghis organiZatiOns ~ among then;~ · slaw lraffic is Central EulljpC and the new
mioe_f!illi!tlito
- the Ukrainian Human-Rights Committee, independent' states of'the former Soviet
which for river the -past 20 years fought Union. bet n\e:for ,a minute focus on
~debt on gov~
·the suppression of Ulcminian language;-· _Ukraine. Wilh-ll)e breal!:-~p of the SoViet
>eS not Prqvide
culture)nd religionbyS(Ivietautliorities; , . Union; Ukraine was'}lea~efully trans·.
me's guJlll!l;- · .
. . In worl,i!lg with.foriner pOlitical priS~ •• formed fiorn a-communist state inf\1 a ln1e
t, if it is in flll:t
.oneis, \Ve wet-e.li>Id thsUhCijoliesfof,holy, . deinocrscy.. H!lwever,.democracy dOes nOt
rovide credits
dl!y~ _in,the.vast gulag of !?ovie! prisons·: ._speD econoniii: success;.and unfom.mate!y
fleiuole in the . - was not Christinas, not Easter nor Yoin _ ·a larg\1, segment:qf the ·population· I~
tined .to put its
kippW-. It was'~Jxir IO,_the dRy eele--· .. ·:-·caught in ail. ec:Onomic nightmare. This
biated:iniematioiially' its· HUIIIllil:Rights , situation· brings out deilpair in ir!anY young .
iicid .i>bsenceis .• ·~y; OuiSi(ie the w&!I~:oftlle COru:en~~:;,wo~e!l,'who inmally.c~ses are·hil!hJy
.did in~ 6rsi - . ti<in caf!ip&:courageous'.hliman righ~s ·.:'\'(lucilted. yet 80 plrt;ent of!hem.cailn(jt
f; Would iesuit ·- .· actiVlsl!l.fu)~MiJscoW to Mie.nsk m:Xyiv< 'Aind work.~ young woinen'face stark..
le value wbefl '
''w'!,)lllctorganiz~ ..pbser~ai!CCs,,o( tliis' ~ality; no jobs, no money. They tum tO
Politicilit)s
, amii~etsru:y~He!j:.ijl
:w~:u!lit~-~;< ag~nl:ies thatpropose l~;~c~ativ~ j~lls:
tm1~ti:nn salu-'·'ed ,in ~!ldillitY 'Wi . __
l!~llruly,; I,J:.Infortl!nately, many_ of~ advertis~ents
'
are ·,
inliP.U~md- .
.
•'
·-.---·.;$em0~~1~~~~~~~n~~~;-t.;~~~~~~i?!;~~:.~~~bf·
·~
- :v~r~a·
~~hl~e
'by_._the ''>Y<or4$(0f :'tlil' .
...... -.·-
.
_
.,face the ·hQrror;
theU: de91c
~e;~~;i\_~;$!~~~~~~:iev~i:~ ..
!;l!se iinfi~a;·.sh«!:,~s~o!lde~ -_
It'sli)allllki¢it,inn i new,8ptlper
· - · srael. Sbe arrive~ in
_ ~lie' "'oui~ .~ilrk.. for
~t
- ,.sav~'tlle·iiloney_ :and_
mqnili)g het:;bO~ atihe
-where she''worki:d drove'her io
.
·
··
. -• .. - • .
:~f: .•:~;;dshe was:hJS property,., : .--- ··" · · 8\ld:;~;r~::f:i:~~~~~
.lhat
_
UUl:,
, toth~giiliig;Fot:'iiui,"' ;:;Anotltercase involved aGe~ citl~
. rest oftlie poJlldare;_SI!IIin had (lifferent •. k.e11 #ho .recruited hjS vi,ctim's by. placing
plan: An lirtificial f~l.l:was,~ at:~aifs: for !)aliyaitters. One of the victims·
·_ an area known a~ the •.•breadbasket of · ·_was· :a "16 yCBr--old who stated that he~
·
· : :Europe."·Sovi~( ~uthorities .scoured' the ' passp:On was cootiseaied; she was raped,
l at the Embassy .. i:ountrysi$1~,. remo:vil!g alLfciodstuffs, -: bei!tell and taken to Hamburg. 'fhere she
,Yaskov Bleicli; every kernefiinil every grain;: even bread <was placed'iri:a brothel andfori:edto'have
etter•in Ukraine ·:baking in the oven w&S confiscated,_. ' __ sex with 10 clients per day, Police suspect
os of tbat'iegionc _ - How. cduld 7 million ·deaths be con- · thilt this·inan wanesponsible for traffick;
il·ci>~dent · ·cealetJ?-Sinipie: . close~ the. borders Of .irtg up to 500 women• into Gertni\IIY.- all
· · · . Ukraine; isoliite Ukrain~, cQntairi:'thll - ulidei-flilse pf11tenses;
_
eight years; said :famine lind deny: deny. ~eny thst tipll_ions
: The globs[ community is responding to
yimd cautionat
stsi'Vil)g irian area thst.was export- _this vioJence·agaill5t women. The United
ai, organization- ·· ing "'heat to Europe.
- ;
States •imd the •EUropeap ·Union fonnally .
imd".'Of Jews· in
In 1986 COngress mandated a congres. launehed a joint infunnation campaign to
iiitinitS: lind four .. :sin~ c:Ommission io irivestigate'the -arti· combat. the trafficking of women. The·
ficiru famine, collect eyewitneSs testimO:. · United StateS is helping Ukraine· in an
~ creamcl by the 'ny _and !>ring out the full scop~: and infOITIJlltiqn Campaign targeting potential
mmuangov~
- - -.
victims: The European Union is sponsor•
y of thiS homm :
.where nation
. -One of the ntost imildious and. blatant .ing· a similar infol:mation campaign iri.
ithin ~e fuimC:, violations ofhunuili rights iS ta!dng place Poland, since this countty alsO is a• source ·
"
at this very inoment. It.is'the'slave trade .and transit .venue for trafficking of
of which are in of_ women and girls. This is a globru prob- -· womem The. U.S .-European: partnership
rcent of Jewish lem, Trafficking of .women- and girls has provides information to locru border and
-a population of
bec;ome 'qne of thC fiiSttist growing crimi- · consular c;>fficials to help them recognize
ld _oiit; is' better
nru enteiprises in the: world. An estimated_ and deter slaVe lraffic. Qf. women._
Today, on this anniversary of the·
kmine · a-better· l:million to 2 million women ai-e traf-·
..
ficked annually. Trafficked womim COirul Universal Declaration of Human Righlll;
ar Jews~" ''111at
from almolit all corners Of the world, let' us cotiunit ~lves tojoin the bsttle
"but I think ihat
They come from Gliana, Nigeria and ·. agmnst this insidious assault on women~s.:
!lC in Ukraine!'Morocco. They come from·B~I an(l dignity,- The declaration created
wrlries," by Yon) <::olumbia. In the Caribbean they .:Orne .,. ·an.-ldesHhat reouires--dailv vi
'
l~rs-w,en;,shi
a
were
',;'
'
·
. :.
'.' .. ,:.
-
.
-
�Oli26/98
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January 16, 1998
TO:
C - Ambassador Wendy R. Shennan
FROM:
G - Theresa Loar
SUBJECT:
Lack of Reliable Intelligence on Trafficking in Women
•
As we discussed previously, we are asking for your assistance in talking to INR, CIA,
and FBI to highlight the need for intelligence collection on trafficking in women. This
would follow up on my discussion with Phyllis Oakley two weeks ago.
•
We know that international organized crime is a primary factor in the trafficking of
women for profit: PDD 42, the Presidential directive against organized crime, provides
the mandate to combat international ol:'ganized crime. The U.S_ is committed to
combating international organized crime, its illicit activities, the funding of those
activities, the connections among the trafficking of women, drugs, arms, etc. The
profits from the trafficking industry most likely feed organized crime's other illicit
activities.
•
The U.S. is also interested in combating corruption. It appears that some traffickers
utilize their ties to corrupt officials abroad to obtain false documentation for minors to
work abroad or new identities for women by acquiring false passports with genuine
information. Other corrupt law enforcement officers either turn a "blind eye" to the
trafficking industry or may profit from it.
•
The U.S. promotes democracy, good governance, and human rights. The trafficking
ofwomen clearly violates women's political, civil and human rights.
•
We understand that President Clinton saw the Sunday, January 11 New York Times
article about trafficking in Slavic women to the Middle East and Europe and asked
what the USG is doing to control this problem. As you know, the President's
Interagency Council on Women heads up an interagency working group on this issue.
The group has identified the lack of reliable intelligence as a serious problem which
must be remedied if they are to effectively develop strategies and programs to deal
with the issue.
•
We have asked our embassies some of the source countries to provide information.
INL has collected information on trafficking from non-govenmental organizations
working with trafficked victims. However, for law enforcement purposes, we need
reliable intelligence on the traffickers if we are to be effective.
Attached are general talking points for your use on this subject.
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GENERAL POINTS
•
The White House, State Department, Justice Department, and Federal law
enforcement agencies are all extremely interested in obtaining more information,
especially intelligence, on international organized crime and its involvement in
trafficking in women and girls to and within the U.S.
•
The U.S. is committed to combating international organized crime, its illicit activities,·
the funding of those activities, the connections among the trafficking of women, drugs;
arms, etc. Profits from the trafficking industry most likely feed organized crime's other
illicit activities.
•
The U.S. is also interested in combating corruption. It appears that sometraffickers
utilize their ties to corrupt officials abroad to obtain false documentation for minors to
work abroad or new identities for womert by acquiring false passports with genuine
information.
•
Over the past several years, the intelligence community has received a stronger
mandate to focus on international organized crime. Better intelligence would
contribute to the USG's understanding of both the trafficking in women issue and
intemational organized crime. It would provide infonnation, for example, on the
trafficking routes to and within the U.S. as well as the correlation among trafficking
operations and other illicit activities, such as alien smuggling and drug trafficking.
Intelligence would provide information on the degree to which foreign government
officials are involved in trafficking activities. etc.
•
There are no accurate statistics on how many women and girls are trafficked
worldwide, or a process to determine how many are trafficked for the purpose of
sexual exploitation versus other forms of exploitative labor.
•
The lack of reliable intelligence data hampers senior officials from effectively
developing targeted counter-trafficking strategies and programs.
14!003
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Talking Points
Trafficking in Women Research Proposal
•
The Department's proposed project on ''International Organized Crime and its
involvement in Trafficking Women and Children to the United States" will fill a critical
intelligence gap, as no other intelligence conununity has undertaken such a study.
•
The project will further the intelligence communities' understanding of international
organized crime, its illicit activities, and profits as authorized under PDD 42
(Presidential directive against international organized crime).
•
Over the past several years, the intelligence community has received a stronger
mandate to focus on international organized crime. The project would contribute to
the USG's understanding of both the trafficking in women/children issue and
international organized crime. It would provide information, for example, on the
trafficking routes to and within the U.S. as well as the correlation among trafficking
operations and other illicit activities, such as alien smuggling and drug trafficking. I
would provide infonnation on the degree to which foreign government officials are
involved in trafficking activities, etc.
•
The project could combine intelligence, sensitive law enforcement information, NGO
and human rights reporting. The N GOs do not have the entre into the intel or law
enforcement communities. The NGOs also cannot coordinate intelligence collection.
•
The project could also serve as the focal point and "clearinghouse" for all information
both in and outside the government on the topic of international organized crime's
involvement in tni..fficking women and children to the U.S. The intel community would
gain an ''in-house" expert on the issue and I would maintain a database of relevant
infonnation.
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Trafficking in Women Initiatives
(INTERNAL WORKING NOTES)
The globalization of criminal issues poses many challenges to the international
community. Among the most serious has been an increase in transnational
trafficking in women. International organized crime is a prime factor involved in
trafficking in women for profit. Traffickers in women, much Like narcotic
traffickers, operate boldly across international borders, using state-of-the-art
means of communication and trade.
Generally, we have found that women are trafficked for purposes of sexual
exploitation, for domestic servitude or as labor in sweat shops; this usually
involves the recruitment or transportation of a human being across national
borders, by coercion, deception or force.
Trafficking in women has received greater attention by governments and NGOs
following the September 1995, UN Fourth World Conference on Women in
Beijing. The President and the Secretary of State continue to highlight the need
to take part in global efforts to fight illegal trafficking in women.
To coordinate and increase efforts by the U.S. Government to prevent and combat
trafficking in women, the President's Interagency Council on Women established an
interagency working group, chaired by Theresa Loar, Senior Coordinator for
International Women's Issues. Drawing on senior officials from various federal
agencies, the working group uses an interdisciplinary and coordinated approach
involving participants from law enforcement, migration, health, labor, and members
of grassmots organizations. The three major components of trafficking are
prevention, enforcem~nt and protection.
Activities in the areas of prevention, enforcement and protection.
Prevention
--Research:
1. Determine scope oftrafficking;
2. Review laws covering both prosecution of traffickers and protection of
victims (including immigration laws in destination
countries);
3. Create a clearinghouse for information on international migrant
trafficking;
4. Sponsor research programs that assist US. efforts to determine the
degree of trafficked women and children.
-- Public Awareness:
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Mount public information programs in source and destination
countries.
-· Overseas Deterrence:
1. Develop communication international and national coinmunication
links to share information on traffickers to governments and to
assistance trafficked victims~
2. Establish international exchange programs among law enforcement
agencies and NGOs to foster fonnal and informal working
relationships.
ACTIVITIES:
Research:
The Departments's Bureau oflntelligence and Research (INR) has completed
an analysis on "International trafficking in women from Central Europe
and the NlS." Resulting from this work and highlighting the importance
of this issue to the US, INR has submitted a proposal to the CIA - Center
for the Study of Intelligence to request that an analyst be allowed to
research " International Organized Crime and its Involvement in
Trafficking Women and Children to the United States."
The Depanment's Bureau of Consular Affairs (CA) is developing profiles of
victims trafficked into the US by country to send to U.S. consulates
worldwide.
The Department's Bureau oflntemational Narcotics and Law Affairs (INL)
has sponsored a two year research program at the University of Minnesota
to develop a comprehensive data base on national and international
legislation protecting women and children from commercial sexual
exploitation. The project will conduct a comparative analysis oflaws,
penalities and victim assistance programs and draft model legislation for
countries seeking to improve their laws on trafficking.
Public Awareness:
At the United States-European Union summit in May '97, President Clinton
announced a US-EU joint mitiative to prevent trafficking in women. The Bureau
of Population, Refugees and Migration at the Department of State leads the
implemention of this public awareness campaign, The U.S. campaign will be
conducted in Ukraine and the EU will concurrently sponsor a campaign in Poland.
A wrap up/evaluation workshop will be }leld in Spring 1998 in Ukraine.
-- As part ofthe US-EU Information Campaign Against Trafficking in
Women, INL also developed a public awareness campaign and infonnational
brochure on the tactics criminal groups use to coerce and traffic women, the
risks of trafficking, what women can do to protect themselves against
illegitimate groups, and where women can seek assistance while in the United
2
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States. The brochures will be translated in Ukranian, Polish and Russian and
placed in U.S. embassies abroad, beginning with Poland and Ukraine.
~- The US is working with Italy and Canada to coordinate a bi-lateral
agreements on trafficking. The Italians approached the USG to work
bilaterally on trafficking. The American Embassy in Rome is exploring a GOI
agreement to refine areas of cooperation by February 1998 to coincide with
the next round ofEnhanced Consultations in the U.S. The ultimate goal is to
have concrete results and a "deliverable" for President Clinton and PM
Prodi in ApriVMay 1998. Similarly, the Canadians and the U.S. are exploring
possible initiatives regarding of trafficking in women.
--U.S. collaboration with NGOs on issue of trafficking in women.
1. Theresa Loar spoke at a Moscow conference entitled "The Trafficking
ifNIS Women" coordinated by the Global Survival Network, the International
League ofHuman Rights, and the Syostri Centre.
2. Carnegie Endowment's International Migration Policy Program hosted
a meeting on "Trafficking in Women'' to exchange information on the scope and
definition ofthe problem and explore avenues for protection of trafficked victims.
Participants included NGOs. congressional and government officials.
FUTIJRE ACTIONS:
-~ Pending INL Front Office approval of the Migrant Trafficking Division's
FY 1998 budget request, the Migrant Trafficking Division plans to fund
modest information campaigns on the dangers of trafficking in women and
children in select source and transit countries.
-- INL will draft a demarche cable to various U.S. embassies requesting that
host governments be briefed on the USGs interest in combating trafficking in
women and asking that all embassies and consulates in the U.S. respond
positively to their female nationals who require assistance.
-- Establish links with INS immigration data- INL is trying to obtain
information through International Law Enforcement Telecommunications
System (NLETS) regarding the number of foreign born women who are
arrested throughout the United States for prostitution. While this
information will not show whether these women have been trafficked it may
at least give us an indication of the number offoreign bom prostitutes in the
US. INS' Law Enforcement Support Center (LESC) provides immigration
status information of foreign-born criminals through NLETS to the criminal
justice community throughout the U.S. lNL recently learned that LESC
submitted a request to AG Reno that all federal agencies, including the State
3
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MON 19:45 FAX 2026475337
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Department, be linked to NLETS in 1998. The AG will consider this
request.
•
Enforcement
-- Enact and enforce laws and regulations against trafficking
--Legislation (review existing/develop new)
.,. Institute strong penalties for trafficking, including asset forfeiture
--Training of law enforcement officers Gudges, police)
ACTIVITIES:
-- The Justice Department has created an inner-agency working subgroup cochaired by Ray Fisher, the Associate Attorney General and Bonnie Campbell,
Director of the Violence Against Women Office. The group will deal specifically
with the prosecution of traffickers and special protection for victims (refer to
Protection section).
-- INL has sponsored a number of workshops 1 exchanges, and training
programs with other countries to assist our efforts to combat trafficking.
They sponsored a worldwide review oflegal and enforcement loopholes to
assist US enforcement efforts. INL is currently funding INS to conduct two
immigration training programs for mid-level border-guards and immigration
officials from Central Europe and Central and South America. The first
program provides an overview ofU.S. immigration functions and operations
as well as technical, legal, and managerial training to enhance the participant's
ability to effectively implement border security. The second program focuses
on the process for designing, developing, managing delivery, and evaluating a
basic immigration officer training program.
FUTURE ACTION:
--In 1998, INL hopes to expand the training program to East Asia, South
Afi:'ica) and the Caribbean. At INL's request; INS is presently revising the
training program to include 1-2 hours on the issue of trafficking in women
and children.
--Use oftitle 18, Section 2424 of the USCA: Section 2424 is a little known
1902 statute requiring brothels in the United States to provide INS with
infonnation on aliens employed for the purposes of prostitution or any other
immoral purpose. Failure to provide this information to INS results in a fine
up to $2000 and/or imprisorunent of the brothel owner for up to two years.
This statute was amended as recently as 1986. William Birkette, Legislative
Counsel from INS has agreed to do research to determine if this statute has
been enforced in the past.
4
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--We are working with the International Woman Judges Foundation and the
Northwestern Law School of Lewis and Clark University to explore the
proposal of a two day seminar to educate U.S. judges and prosecuto~;s about
the issue of trafficking. One result would be a manual to be available to
judges and prosecutors pertaining to the nature of trafficking and applicable
laws. This type of seminar could also be used with other law enforcement and
irrunigration officials.
•
Protection
-- Victims protection
Review and /or develop special visa provisions for victims to protect
them during prosecution of the traffickers;
--Victims Assistance
·
1. Develop hotline # for help
z. Provide legal and medical counseling to victim
3. Provide shelters for assistance and protection
4. Develop economic alternatives
ACTIVITIES:
-- With strong Congressional support on this issue, we will conduct briefings,
and build on their interest. To date, Congresswoman Louise Slaughter
introduced a resolution concerning trafficking of women and girls in Thailand.
Broad support from Senate, includi'ng Judiciary (Kennedy and Abraham) and
Leahy. Theresa Loar, along with several working group members, including
Justice Department members, will go to the hill on January 23 to brief both
House and Senate staff interested in trafficking in women.
5
�! 01/1,2/98
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- - · - - ! - -·-~·
~~N l1: oo f'A.X. ;t02 7J~ 45U
PJ~CW
::; l'AT~ Uhr',l.'
.Ll'I,Ld
u .. .J
__
·
fU y I i ;Jtt:s
ll.l!w
_.,..n,.,
Yn
..,_
z.4aya, a Ru:ss.illtl. prostic:utr. at the Tropic:.3,!1.a dub in Tc:l ~viv. The sign oo the door r~da, "N'o Smoking'.''
Traffickers' New Cargo: Naive Slavic Women
By~UC&\ELSP6CTER
RAM:t.£, Israel - Irina al\ila.ys
li.Ssumed tbat ber beauty would
1110mohow nscu.a taer 'rom the pov•
arty Zl.ll4 hopelessness a1' viUage Ufa.
1\ rew months ago, after unSWJ:ring a
vague ad In a small Ukrwntan newspaper, she lilipped orr ill tour boat
when it put in l![ Haifa. hoping to
ma,l(e a bundle: dancing naked on the:
tops of tatlleli.
She ,...l!lS :ill, selt-usured and gl ild
to be out of Ukr11ine. Israel gffered a
new world, an<l for a w~elc or t\ilo
e"erything se.::med possible. Then,
one morning. she was driven to a
brotheL where her boss t>urnll!d 1\cr
'1
I·
where selling nlll've lllld desperate
yoW'Ig 'tllamen lnto sex~o~al baadage
CONTRABAND WOIWIEN
A
bu become one of th"' fll!ltest•growlng c:rirntnal entl!!rprtses in the ro-
spceial report.
bU$t global economy.
passpon before her eyes.
'Ibe lnu:rnatlonal bazaar tor 'WQJ:Il..I own )'Ou," she ~alle4 bis !fay- . en l.s hardly neW, 0( c::ourse.. A!lan5 ..
ing. "Yol.l ~rt! my pre~perty and you have been it5 basic: eommad.U.y tor '
will wvrk uncll you earn your way decade&. But ecoonomic hopelciiSCeS!$ I
out. Don't try I'D lea'lf1;!. You have: no in the Slavic:: worlcl bas op!!!ned what
p"d)en: and you don't speak HI!! brew. experts c.all tl'le most lucr;~tlve ~nar·
Yol.l 111111 be al,"tesced and deponed. teet of iil.l to criminal gllllfl$ Utat bave
Tben we WW get you and bring you nQurished ~tnet;t the fall of C:omnu~
ba<:l<.''
nlsm: whlte W<Jmen with little ro
It happens every .single 12ay. Not sustain thc:m b1.1t their dreams.
Just in tsrael, whicn hu cJc;:pc:.ru::d Plm~s. law enforr::eml!!nt oCficlals
nearly l,SOO it.\lSsla.n and Ukrainian
and relief gnmps aU ' a&ree tl'lat
wom~n lil<e Irina in che pa:st tl\ree
years. 'Eiut tl\roughout thE! world,
Ccmtlrtwr.:d on f'a(J,P-15
,.
/1• .
.
..
.. . . ' .
~
~··
.-·'. . •..
.
''
'
___1:@004
�.; 01{-.f:";/98
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-
-·-·
··-·· ---·
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·-
~005
;:>J.A..l:.t: il.t:r'T lNLd .1.'--J
MON 11:01 FAX 202 736 45!5
"Sullf you want'ta'USe'l'l\.itnl:ll\rs:" he.sa111~·,
Ulr. rainlan ano ttusslsn women are 110w the
mosl valuable in the u·aGe.
·
Becll.ll:se meir Immigration is often Ulegl).\
_ :md because some· pereentag~ of the
wcnlen choose to work as pros\ltu,es s~::..tlstiCS are <!IUic.ult to asses$. But the
United Nations estimates tha[ four mllll.,l\
people tllrou,hout tile world are traffic.~
el\cl'l )"!>Rr - fare~!<! thrau&h lies and eoe~r
cic;,n to work i\gain:;t tnelr wllllr~ many l)'I)@S
ol servi(~:tde. The rnteroational organlz&.Lion
far Migration hilS said that. all many as
500 ooo women ar<il annually tratrldted Into
W~[ern Europe alone.
·Many end up like lrll'la. Stunned an4 out· '
raged by th11 s~.tdden ord.er to prostitute
herself she simply refused. She was b£:;w:n
and raped bdore :~he s~.~ccumbed. Finally
:;he got a break. The b~othel wu raided and
she was brollght l'lere to .Neve Tlrtsa In
Ramie, the only women's prl~on in l$raol.
Now like nunc!lret1s of Ulc:ralnuan anc1 P.us5ion'women with no cloc:umcnt:9 or obvious
rargerlf!li, she is waitlne; co be sent home.
"I c:lon't think the rnan Who rulnr:.4 my life
will even be fined " she saJd :~oltly, stow·
,
tears filling her eno~:moull green eyes. ''"ou
..
can call me <\ f(I(JI fo£' comU'IB here. That's
· my t:l"lme, lam :stupid. A stupid Sid from 1!1.
licde. vllla,ge. j;lut c:an peaple ~:~ally buy and
sell women and ac:t away with lt? Sometimes IIS!t here and uk myself If tbat really
happened. to me, If It ea.n really happen at
siL"
Tl'len. waving h~r arm loWI'ltd the ml.ld.dy
prison yard, where litU.Slllan·ts spoken more
commonty thm Hebrew. she whispe1red one
lase tbol.lgbt: "('m nat the only one. you
K.now. They bav"' ruined ..as a.ll.''
Traffic;; Patterns
Russia and Ukraine·
Supply the Flesh
Centered ln MosCD.P and the Ukn:unlan
capital. KilN. the nctworli:S trafficking women rurr east to r st~an 8fttS -:{halland, wher11
of youne; Slavle women now wcrl';
against their wiU as prosttwte>, and vrest to
the Adriatic Coast and be)lond. The rw.J.eS
thousands
a['f! c:untrolle<l by Russian c:nme gangs based
in Moscow. Even whan tl'ley ao 111lt specitlc:ally move !be wome11 e~ver'.llt::i!I.S, t~ey prnvlcle
se-;urit:Y, lagl3Ucal support,. halsot'l With
brothc:l awners in ma11y countties an~. usually. (al.se documents.
Women ofr.o;n start thei.t' hellish journey by
chCillce. Seell;ing a bett~r U[e, they are lured
l:ly .local advertisements for gaod jobs in
foreign c:ountrles a.t wag¥ tl'ley COY14 rto:ver
Imagine ~t home.
1n Ul<:raine alon<:, Ule numqer or women
who leave Is sc~etlng. A.s matly as 400,000
W!lme:n under JO have Gone In th~:~ p ..st decade, ac:cording to ~heir eauntry's Interior
Ministry·, The Thai Emb~ssy It> Moscow,
which proc:e&Sc::$ visa applia~tian:;; from Russia and Ukraine, says it rec:.eivc:s Marly l,oou
visa applications a· day. mo::t of me.se from
women.
Israd is a f:ab1r twic&l dt!!lltit~auan. P(D:stiwtlan Is not itlegDI here. alc.bcu.tgh brothels
ar~. Mel whh 2SD,QOO (orel5n male "'orkcrs mosl o( whom ao:e sil'tgle: ar here. withO\ll
rheir wives - the dcmaru1 Is Steal'. Poll~;:e
olflc:ia.ls asdm:u.e l.h1u mere lln! 2S.OOO paid
~wx;ual <ran5actions e\lcry day. Brolhels are
UbiqUl{DI,jS.
N~;~n.e
cf lhe wome" .~rn lo reallz~: the
"think aba\l~ mi·5; Two huniSted mitllon :peo:·:
plq ara victin:ls of ~(etnporary forms o( ·
slavory. Mo-st aft:n't prostitutes, of course,.
but chlldr~n In .sweau1hops, domestic: workers:, mlsranLs. During faur c:encurles. l2 million pcoph::· were believed 1:0 be involved in
the slave trat!ll between Afri~ and the New
Wnrld. The 200 million -and rnl!lhY of co<.•r$e
are women who are uafrlc:kl!<l fer Sl;l< - is a
a..rrent
fi~;-e- lt'i!~
happening now.
'1"oo~:~y:·
risks they run until il Is 1.00 late, 01'tC:C !hcy
c:ro$8 the borde'r their p~sports wlll b~ COil·
flscnte<l, (haif fr~ofl'l5 c.•.uuilt:d and what
little tnQncy they have taken from tllem at
once.
"YCIU Wlllnt \O lell these kids [hat if some·
thing seems tOQ good 1..., bli! true It usually is,"
said L.yuctrnilla Biryuk. 11. U\o;ralnlan CISYCI'IOIogl.!!.t Who nas .c.ounseled women lllho have
escaped or been released from bondage.
"But oyov can't Imagine what fel'l.r and real
ign~tan.ce c:an do to a per!ltln."
.
11l.t!: women are sml.l&gled b)' ear, bus, !:~oat
and plane. Ha!'ld£d grf i\"1 the dead of nl2ht,
many ;m~ rold they will pick oranges, work
as d.~ncers or as ..a~aHresses. OtMrs hi~VC:
daeideCI to (f'Y their luck II[ prost.iwtlon,
<.~sually for 1.11h;~t th~y ilLSsume will be a few
h.H:I'iltlve month.s. They nave no Idea or U.e
violence th~l awl.il:l!i lhem.
: The efflci~llt, ec:onolflieaiiY brutal routine
- whe~r here In ISta.el. or In one or a ciozltn
otbef CQUntries- rarely VB.l'iet;. Women are
held in aparuneru:s, bars and makcsbilt
. brolheiS; there they servlc::e, by their own
co4nl, sll mlln}' a:s Hi ellen~ a day. Often !.hey
sleep in shifts, r01.1r to a be4. The best that
most hQpe for Is r.o be deported a.fcer the
police finally cau::\1 up with Ulelr tapr.ors.
Few ever testify. 'Dia:<;e who do ril!lk death. ·
Last year In IStanbul Turkey. according ta
Ukrainian pollee 111'1e!iiligaUlrS, [\1/Q wpmen
we~ th(bwn ro Ulcir «1c:aths fi'IJm a ba.lcony
while six ar their :Russian friends watched.
ln Serbia.. alSO Last year, sail2 a youhg
Ukr"'lnlan woman whQ esc.a,ped ln Ocll:lber. a
woman who refused ro 'llork as a ()l'l';lsdruta
was behe114ad·iu public.
In MilAn a week berore Christmas, the
palic:e broke up a ring th¥ was boh;Ung
.auC:tiofts in which "(Ometl abductt:d f1'1:1m the
countries of the former Scwiet Union were
pl.lt on blacks, p!\rtlall)' naked. and. s.OU:l at an
a."era,ge prl~ or just under Sl,OOO.
· '"This IS happcnillg wltere.ver ~ou look
j . riolll." said Mlch~el Platzllr. the VIennabased head O[ ope['atiorl$ for rhe Unicecl
Nauans' Cen~er ror lnt~mat.lonal Crime Prevention. "The marta Is not stupll.'l. 'There Is
less taw e.n(orarment slna: the SOvter Union
tell apart and more fl'ei!Ciom or movemeht.
The eornings are incredible. The ove~:head is
low- you <lon't h~'lle m buy cl!l.rs and guns,
Orui:.S yau sell once ancl they are sone.
Women can earn money rot a long ~lme."
"Also:· he. added, "the lllWS hel[l Qle gangsters. ProStitution is semilegal in many
plactos and thal malu~s enforcement tricky.
, · In •nosl case;~ pu!'llsh!Tleot Is Yef')' ligh~:·
ln some wumries, tsraP.I among them,
there is not even a .1o1pecifll;; law aga.lnsc the
sal~ of humaro beings.
Mr. Platzer said that lllthough c::enainly
•'tens of thousani.ls'' or women w~:~r.: Solei into
pi'D:stltullon cadl year, he was unc:omfonable with statistic:.<: sine!! noboQy tnvotv~
has 1111y reason to tell thtt (Nth.
I
I
Distress Calls
Far~Flung
Victims
Provide Few Clues
The distress c:all came from Donetslc., the
bleak cent~r of c:oa.l pro<:~uc:tioll In southern
Ukraine, A 11/CJml.\h was !>Creaming on the
telephMe line. Her sister anc:l 1:1 friend were
pri!Kiner6 in a b~Jr sr;~mewhere near lil,ome.
They spolce. no ll$11!111 and had no way out
but had managed, briefly, to get hold of a
man's ull phone.
"Do you ha"e :~.oy Idea wher<: they are,
eJCactlY?" n:sked Olga Shvecl, who runs La
Strada in Kiev, Ukraine's new .;:enter dedlC:IW!d tn flghtlng the trarrl.c:king of V~omen in
Eutero Europe and the countries of the
farmer Soviel Union.
The· woman's answer was no_ M.s. Shvoec!
bli!illh se:<~r~lng for riles and telephone num·
bers of the local cansul, (I'll! polit:e, any!)()dy
who (:OU!d llelp.
"Do l:lley ltnow how tar from Rorne they
a.re?" she aliJ(c<:l, her voice tightening w(th
each word. "What abo~o~c the: name o( rhe
strec:t or the bar? Anything will help,'' sne
said, jotting notes furiously as !lhe spoke.
"Wt! Cotll if!!l the polic:e on this, but we need
S(lrrtf:thing. n thE:y call back, tell tnein [0 .~tive
us$ clue. The street number. The number of
a bus that runs past One thing is all we
need.''
Ms. Shved hung up and ca.lled o[t{(:l.;j!S <It
Ul(ralne's lmerlor Ministry aM the Farelgn
MinistrY. Her conversations W!!:l"l! short, eli·
rec;;c ""nd obvlousl)' a ro\ltine. part of her Job,
That Is beCl!IU.Se Ultt<li.l\1!: - and to a lesser
degree its Sla<Jit! nei)!hbors RuSSia Md Belarus- has n:placed·lballand aM the :Philip.
pines as the c:plc:.enter of the Slobal bus:iMSS .
in trafficking women. Tile Ukrainian prol>
lem 1'\a.s been worsened by a r._vaged ec:.on-omy, an atrophi,ed system of law. ellfarcement, and c:rlmin11.1 gangs that grow more
braze" e;~c:h year. YQI..Ing European Women
an~ In demand, and Ul(ralne, n country of 51
million people, hu a seemingly endless sup·
ply. H ls !lot lh.nt hare.! to soo why.
l'leif.her Russia n~;~r Ukraine n!pcrts accurate: Unemployment StlltiS~iCS. i3ut eueo pa r•
tia! numb!rs pr;::sent a clear :story of chao,;
and c:conomic di3location. Federal employ·
mem statistiC!> In Ukraine indh:atc tha{ more
than two-thlfcts o( 1.1'1" unemployed nre worn·
en. The ~cmmenc also ~eeps another statistic.: ett>,ploy~ buc not 1110rking. Those an:
p-eopiP. who technkaUy havr~ jobs, and can
use company amc.nith:s like day-care centers
anr.l hospitals. aut they do;> not wofl< or t;:ct
paid. Three-qu~ners are \lftlmen. And nf
lhose who haw lost their jobs since the
Soviet Union <.li:s;.:olved In 1991, more tnan 1:!0
~rcent nre women.
�·:' Vit,t_;,/ lH!
--'-
'
Ol{ l2198
__ -- -·
.J
MON 15.:54 FAX 2026475337
--·- -·-III.ON 1 1~
-~-
:E.~...~~-~~f
,
tlACW
@ooa
.,.l:IH>
:STA'J.·~ J)~r·.l: J.N1../ J.l.."
at>
1,uU:Iy, uu; a<.!, u.!l."¢ 6Qrtt'Q ~» OI~PP'"'c:
~~~~h~ly"t~~~~$j;i ~:~ ·month. _bu.t It is halt :\
5
lnat in me small cawns th:lt cnrnlnll.l g~
ravor {or rocrultlnjl: women to •on< a,btoa ·
on average, there a~ lt\ ~ppllcantS ~or f!!Ne~
jol> I!\ most Ulc.rainlli\n dueS. Thc:t<:: 15 no re
hn . but there Ill trec:do•n.
i.hat climate, looklnll for wnrlt. in lurelgn
counu·lc:s h::i:< 1!'\t:fcasint;IY bc:cgmc a rna~ter
or aurvlvll 1.
.
t I
VI
"It's nu 11ecret thut ttlc l11g~ pr c;.cs no
,a for lhe wl'lltc warnen," S«lcl Mllrc:o Bl.lffO,
t'..ilec.~o~~i"u dlrc.::tor or On the Road, a11 and·
trufrkkillg ore:!lf'l~tlon in north,u·n ltaly,
''They are \tie nrwelty Item tlnW. It used to be
Ni~c:ril\1\S <>nd /l.siltns Ill thtl top or the marl<t!l. rolow It's the Ukrah1ians."
.
E:conum lcs Is not tne uoly (ac:tpr c~usn'g
111 also
women to flee their hOmeland~. There
:;ocial reality. For the rirst lime:, young women lo Ukraine and ii.I4SSia !'lave the nght, tr'le
;abili~Y anC1 the willpoWJ:r to walK away from
tlleir paren(s •uV!I th!!lr hometo.,.,ns. Village
IHe is disll'lte~r'ating throughQut much of tl'>e
rormer Soviet world, and young:ner~ arc:
grabbing any c:han~;e lhey c;:lll'l find to SRVI\!
themS~Z:Ivcs.
"Alter the wall tell doWTl, i.llt'! Ukralnl<~n
pc.Qplc tried to live in ttle new c:l\'c:umSlances:· said Mll. Shved, ''lt was very har<.l.
and It ge,ts no easier. Girls now l'lave rew
opportunities yet great freedom. They see
•Prill()' Woman,' or 11 tnau.sand moviea ;mt:S \
ads with th!! sarne ()(lint, that somebody wh~;~ .
Is ric:h can save thetn. Tlte glor:Y a.nt'.l ease or ·
wealth ill :~lmost the basic potnt ot the ~<=st·
ern advertising that we :.ee. Here the towns
aN< dying. What jQbS there lllll go to men. So
they leave."
Firsc, nowaver, they answer ads from employment 118!!1'lcle:; promllllng Co find them
wei'\< in a foreign country. Herlil again, RLIS·
sian crim~: gilllgs play a central role. They
oflen n:ctuit peopl~ thro1.1gh :~~mlngly in·
nao::~&ous ··mall order bride" meetings. E>ten
wllen they do not, (c:w !iUCh organizations can
operate without paylnJ
one gang or another. Someclrnes want ads afe almost hon-'
es~. sugge&tlng that tllt. women can earn up
to $1.000 11. month as •·esccrts" abro-!ld. Often
th ..y are vague: or blatantly untn.Je.
·
r;:'
orr
Recruiting Methods
Ads Mcike Offers
.
Too Good to Be True
'
One t:ypic.;.ll ad ~se4 by trartlcker:s in Kiev
Yll!21r read: "Girb: fw(US[ be slngl~ allll
vc:r:y pretty, Yo1.11'1g ancl {all. We invi(e. YQU tor
wcrk ~ models, ~eere~a,rles. dat11::ers, choreogrllphc:rs, gymnasts. Houslna is :~uppli~d.
~;~·.~.ign posl~ avnllabte. Must ~~pl,y in per- \
I<~St
one younJil wom<1n who did, and !'nade ll
nacl< 11live, aescribed a ham:~wlng Journey.
" ( met with thllse f:lcuys and thoy a.sked If I
wo'-lld work .at <l, strip bar," she said. "Why'
not. l though(, Th111y said we woul(l have to
leav<;: at once. We went by car to the Slo"ak
Rcp1.1bll<: where they grab'b<=d my pa);sport.. r
think they go! me new p<~.pers there:, bl,l\
thrE;latencd me If I spolc<i' out. We made it to
Vi~;>nnll, then to Turkey. r was l<:~:rH in $ bar
and t "-'!1:5 ~old l owed $5,000 Cor my travel. [
worked for thrt:e days, and on the fourth !
"'as. arresl<i!d.' ·
'j51Jl ,...wUOJIS .... lU 1'10' oc: oll{tlf?l"'· - · .......__
e;at~gS risk little by ferry\n.; W'?aJen. ~t of the
. coUI'Ill"Y; iJ;I!leed, many o! the. wont.cn go
voJunc:ui(y. La~ a'C'e vagu~t. cooperation~~
t\1/el!ln <OOI.lntrilil-S ra~ <Jild pv.n\sbmt!:nt tlll.f·
(ickers a.lmoot nan~x\stenl. Without worlt or
muc:h hope of a future al home, an eager
tcen·-age.r will find \lhard to believe tl\at 11\e
promise of a job in Ualy, Tur\l:c;y or l$rU.C:Ii&
almbSt c:ena\n to be worthle~~>s.
"l a.ns•en:d an act to be a ...,aitress,·· said
Tamara, 19, ~Ukrainian prostitute in a rnassagc.pulor near Tel .fllvlv"s old Central Bus
StatiDI'I, .iii llussian.-langu:;tge ghetto ror the
ch~~:apest brothels. ''I'm not :!ure I would go
from tha main dtiez- ..,.h,..,re lhe reahtle:o of
such atfers are known now. These days Cl'le
:appeal!: are made. in the provinces, "'here
their sucrflSl' Is undiminished.
Most or tne li'I<.>I.UHI.nds oC Ukralnian lllornen
who go al;u'Oad c:ac;h yea!' ::.re ille,&lll imO'll·
tJ,t'LIIII.S who do nnt work In ~he sex ti\.Jslness.
Orten Lhey :1pply ror a le&.DI vi:sa - to dane:-::,
ilr work In ;, bar - anCI tl'le11 :nay lldter tl
or
l!lXpires.
M.<~ny go to Turlu:y and GerrnllllY, where
Russiao crirn~ grr:n..tp:; al'l! partlc:ula.rly IXIW·
errul. IJ;racli lcadei'S :;zay tha• R.u$$lan worn·
~n ·-they tend to rerer la all vrome~J trom ~he
former Soviet U11lon as ~usslan- di,;appe;~r
or£ to1.1r boalll every day, Officials In Italy
estlmlltc: thnt at le~st 30,1100 Ukrai.JIIan wornen are employed lllegall)l thefe now.
..
Most are ctomestlc workers. but a grow111g
nuJnber are prosti(l.ltes, some or tb.crn having
beeo protnisecl work ~ domestics ordy to
find out their jobs were a lie. Part o( th~
problem became c:le<lr In P two..year lltudy
1 -ece~t.ly cQM;luded by tht!:. Washil'lgton·bl!lled
noltprcfit group Global Survival Network:
polic:e officials In many eountries jusr don't
care.
.
bac:k n~;~w
wa.tc::!'lec! closely .,nile she l'emalned within
.
the gari$11 confines of the "h.,alth dub,"
"l didn't plan tg do this," sh., said. looking
The netllllorl<, a(tel' vndercaver intel"'lew:s
wl~h gangsrcr$, pimps and corrupL ofridals,
round that laca.l police force:s - often those
best ablt! to prevem tcaWcking - are least
interested in helping.
sourly at the ridl
re~
watts and leopard
pdms around her. ''They took mY pa.ssp~n.
so 1 don't !'lave much choice. J);ut they do gt,•e
me money. And believe
it'!S b~tter tMn
anything I could ev£r get at home."
Yltzhlll<: Tyler. the dli!!~ o.f ,un~erccver
ac:(ivttles for the Haifa polic;e, IS a. b1g, open·
taeed man "'ho coesn't mlnc:<Z words.
me,
GiiUao Caldwell or Global Survival Net~
l.lt'or!C h-.s been deeplY involve<! in lhe study,
"ln T~;~kyo," she said, "a sympathetic :set;~a·
tor arranged a meeting for us wi,:h sen10r
iJOiicr.: officials to diJ~C.US!i the gro,ro,s prP.Va~
lane~ of ~raffic:k.lng from lilussia mto Japan.
The pollee insisted It wasn't a prabletn, and
they didn't 11ven want the .::onerete inform&·
tion we c:.ollld have provided. That di4n't
Sl.lrplise local rehef agencies, who c.lted
if 1 cQ\Ild. What wmtld I do tnerE:,
stand on 21 bread line (lr work in a facrot·y tor
no 'lllage:~T'.
.
Tamara, like all other such 16/omen uner'
Vjewed for this article, asked that _he\ ru.H
name not be pUI;IIisheC!. She 11a:;. <:.lasstc Slavac
featur~, with t~;~ng blond hair and ckep green
ey«"S. She wrneo ~~ral pote!"'tlal customers
away sa she o;:ould speak at length with <~
rej:XIrter. She Vlll:i willing t~ [Bile as lon& as
her baS$ willS out. She sa1d she was not
tn--
st<U'I(es in which )XIII~ had ac:tua!Jy sold
trafficked wctnen bac;k t<:~ !:he criminal net·
works which hlld enslaved Cl'lem.'·
·
Offieial Reactions
I
Best-Placed to Help,
But Least Inclined
I
I
.I
''We got ::1 hell of a problem on our hands,''
he said. The J?Ol't city of 20Q,OOO has become
111~ easiest emrywa,y for women broug'lu r.o
rsrael to work i!l!i pl'l;l1;tltutc:s- tho1.1gh by no
mearu; the only one. Sometimes they walk olf
tour boats. b1.1t i.ncre~slngly they come with
for(cd documents lh:al enable. them to live
and lilork 11'1 Israel. These·hava often been
I!!Dught or st.Qien from c:ldetly JewiSh women
'" J:?.ussit~ or Ukraine.
"This is a $0phi~ic.ated, global operation,"
Mr. Tyler said. "lt's evil, and It's succe!lSfiJI
becatule the maney Is so goo;~cl. These men
pay $SOO to St,oao lor a Ukrainian or l;tussian
womM. OD you llnderstaltl:l what ! am telling
you? They will buy these women 11nd malce a
fortUI\1! out af them.''
To Illustrate his point, Mt- Tyler grabb.td a
black calwlator and started c~lllng aut th!!
l!il.lms B!l he pune'hed lhem ln.
"Take 8 sm.all Pla~e," nr:o said, ''Wit!\ 10
girts. Each has l!i UJ20 clien~s a day. Multiply
Chat by say 200 shekel$. So say 30,000 shekels
a day eomes In to each pla.::e. E:ac:h girl
works 25 days a momh. Minimum."
complacency amon& police 1\(!;eiJcles Cl not
uncommon.
''Women's grm~ps want to bloW Chis all out
of prt~portio!'l," sai4 Oennacll V. L;eP~nli:o,
c:hi(;'jf of }Oev's branch of (nterpol. die mtero11tlot1S.I police agency... Perh11ps this was a
problem a few yeur:s ago. But it"~ under
conh:ol now."
Mr. ·ryler was b~,~sy cloing math as tw
Th:~c is no~ the view at Ukraine's Parliaspokq;, ''So we arc l<~lklng about 750.000 ~hek·
m~nt - which i:s tryin~ to pa:;~.s new law:s to
protect young women - or at (he Interior • t!ls a month, or ;sbol,lt $Zl5,000. A man often
ollfniS five or fhese pl:i!c~;:s. Thai's ~ million
Mlnl!>try.
dollars. No {a:w;e:s, no real overhead, If's a
"We have a very serious problem here a:nd
rac::tory with slav~ labor. Ancl 'llle.'ve got them
we .are simply no~ equlppc:d 10 S'llve it by
\ all aver [srat'.!!."
ot~!'Se!ves:' sailS Mikhail Lebed. chler or
criminal invcstig~tions tor tM Ukrainian
Interior ·Minlscry, "It Is a human tragedy,
bu~ <II so, rr:mkly, !lnational crisis. Gaftgaterll
make more lrom lhcse ""omen In a week
Umn we have in our Ia.., t::nfon::ement budget
lor the whol" year. To be hone::t, unless we
~:et som~: help we: are not goln1,0 to stop it."
Th~ 'fropic<!lna,, In Tel AViv's hl,lst\ing bUSi·
ness district; is one:: of the busiest bordellos.
\ The worncn who 101ork there, like nearly all
pro:;ritutcs In Israel today, l'ln: Russi;~n.
Their boss. however. is not.
�): Oll.t_:/98
MON 15:55 FAX 2026475337
PIACW
@! 007
S'i'AT.C Ul:::t'T J.NI...I.l c..,;,J
Det:errent St.-ategies
A System That Fails
Those Who Testify
Eve.-y o11ce in a while, ILs•.udly witb gn.:al
ranf:are and plen(y of advance nodce, Mr.
"lsraeiL<~
lave RU!Isian girl$," sal4 Jac:ab
Golan. who owns this IIJJ1d two other dubs,
and spake .,...lllingly about the. busin~s he
flncis 50 ''s\lcc.e.llsful." "Th~ are blorttle and
giXld·looldng and ciifCerent from us," he said,
cl'lur.ll.linl as he clrew h.itfha.rnt over bls black
hair. "And they are dcspe:ta~e. They are
ready to clo Bllythlng far mooe:y."
Alwll)"6 filled with half-naked· Russian
women. the club is open a.('OI.1nd the c:Jock,
'nlere is a s<:he<lule em the wall next I'.Q the
receptionist ~ with each woman's hours
listed in a different calor, and thl! d&ys and
shlrt.s rot:atlng, aa. at a rr.;:ta.qrant' or a bar.
Next to the: scl'ledule a sign rea&, .. We don't
accept cl\ec;k$.'' Next (D that there is. u pGS.{eT
for Ol mis$ln4J tsraeli womM.
There are l:Z c:utlicles at the Tn;~plcana
where 20 women work in shltts, 8 dt.lring the
d!!ytime, 12. <1t night. Business lS atw:~~s
booming, and nor just with ton;llgn woril:l!lrs.
Israeli l!IQJdlers. with rUles on thrdr shoulde•s. frequent me p!.ac:e, as do busin!!S:> e.l(ac·
utives and tourists.
Mr. ~olan wa.:~ ask.cd It most women ¥1hO
work. at the dub ® so voluntarily. He
laughed heartily,· ·
"I don't get infll that;• he s.;~.ld, s~aring
vacantly acrass his club tu fouf -~ussia:n
women ~lttlng on a tow couch. .. Thay are
brought here a.nd told to Wl\)rk. [ don't force
tl'lem. I pay lhem. Wha.c goes On between
them l!l111 the men thay 'at!! witl'l, bow c:auld
that be my problem?''
G<Jian gets raid.l!ld. He pays D fine, and the
women wichou{ good false aoc:uments are
taken •o priSora.
Jf \bey lll'e aeparted, the charges against
them are dropped. But i( a woman
\
WW'Its
to
rile a complaint, uu~n Sh., must remain In
ptison until a ulal is held. ·'In tl'le past four
yeers." Betty Lahan. prison dlrec:ll:lror Neore
Tirua here, said, ''I don't know of a single
CllSe ..,here a 111oman d'IO$@ to testifY."
such punitive ueatmenr of vic:tlms Js tlle
rule rathe.r thrm the a'l<cepuon. ln Italy,
where lhe pollc:e :say killings or women
forGed ini:D prostitution a~e one a mol'lth
Parliament tl'ied 1.0 create a son. ot Wi.cncs~
prctectlon program. But it only ~llow~d
wotnen to stay in the c:DLifttl}' for ona year
and di4 nothing to l:!lde El'leir Identities.
"The deck· is: just so completely- stac:ke<2
against the women In 1111 rbis," said Danlella
Pom~l. 1!111.1mmi,uratlon .&peclallst wlt.lt the
c:ommunlty of Sant' EglGio, me Cutllolic relief
agency in Roflle.. "The palice Is the last place
tttese women w<:~nt ro go.'' She said that Qnly
zo wome:n had e'Vf!r usec~ the p~ec:tion pro·
aram.
It is not clear who will stop th~ mob. On a
trip to Ukraine late last year, Hillary RQd·
h:am Clinton spoke out about tbe new White
stave trade Ul:at has developed so C!!pidly
there. The Unil:ed States and dle Et.~ropel!lll
Union have plans 11:1 wcrk toget:lier to educate .
young women abour ttle d~rs of working
abroad. Other inltlativ.::s, Uke lit~ of dep;.rtatian fCir prisoners, victims' 5helters 11.nc:(
counsellnu. have also be«~ dlseQssed.
''I don't C:al"e about any or l.l'uu." illld Lena
a YQung Latvi.an, one ot the inmarea waitlrut
to be deported here. •'I Just wan[ tQ know one
thing. Haw will l'eyoer walk down the street
lik:e a human belng again?··
�02/01/00
{'
TUE 13:40 FAX 202 456 9140
NATIONAL
NSC DEMOCRACY
SECURITY
[4]001
COUNCIL
FAX COVER SH'EET
NATIONAL
SECURITY
COUNCIL
it From:
Wendy Patten
, ,. To: Melanne Verveer; Katy Button- Office of the First Lady
!<if',
(''Fax Number: 6-6244
':,oatefTime: 2~1-00
. '
;·.':,No. of pages to follow: 1
,·'
,Message: comments on draft letter on trafficking. With my messy
!edits on the 2"0 para, it would read: Contrary to what you state,
the United States is supporting a global anti-crime treaty to attack
"::traffickers. Nothing in the draft treaty would require the United
20504
~ States or any country to weal<en its laws on prostitution, and we
1
, would never support any treaty that had such an effect. In fact, at
'o·d
t
Jete
1
:
yotu ge ~ c~m~ If ' t 1
jthe latest round of negotiations in Vienna, the U.S. delegation
:c1no , . • re1'tera t ed ourst rang oppos1-t-ton to prost't ut·
'"
·t
· ear ransmiSSion .
•
1 1on - aII 1 s f orms.
m
pease ca 11 .
·
1
1
' I have no problem with "in its opening statement" -just trying
(202) 456-9141
.. , save space after my lengthy edits. Please call if you have
l~\i\questions or want to discuss. I am working on finalizing the
~~~~!POT US response to Jessica which I'll send you later for nay
!- .. ;suggestions you might have. thanks-- WLP
.17th & Penn, N.W.
Washington, D.C.
�'/
v.::;ul;_u_u_T_;UE lJ: 40 FAX _202 456 9140 _
NSC DEMOCRACY
@002
January 31, 2000
The Editor
The Washingto~imes
3600 New York ve,, NE
Washington, DC 0002
Dear Edltior:
Your editorial, "Defining Prostitution" (1/21199) relies on a misin o
ion campaign that is
distorting the -~dministration's position on a very important proposed EX:Jreaty to
trafficking-r il"'
\ women and guls.
.
l.hrh!i ~tc.&
. ,
1\
41\11 .. en me.
.
Contrary to what yol).;;tate, the l';i£ is supporting a global treaty to attack traffick.:w:·~!.i:M,...~~::sbif'l90rt any actious-taat ,.,retrkblegit~il!e g;r:)epAitze p=is6tufie; In fact, il!'R·~~~·~·~~~He'!rl
recwtm:eti.Ag in Vi:n!m, the VJC:Pde.ga~t~on0~u?1 >lmHhethzited States
..
•
ee-hws-aH:d pehexe5 to c~st1tl::l- ..ai+-ef;ft ierms. ~rtll.c.A..~
,. ~fOi"ii' li.oo6S I~
(ltO~+i\.)t)on ·lt'l .:l..l.l 'ih
:>1,. :.~---- -. · . ·-: _ .
~·
..; rr
·
'*
-to
.
~~co_ptr~ t~our assertion, no vote was ever scheduled for Janu
Indeed~
t 7 in ierma.
Our intent h always een to gather support
for an anti-trafficking protocol that Imposes new punishments on the pet trators an unprecedented
assistance to victims- whether they are sold into prostitution, sweatsl p labor, do stic servitude or other
,
lu~~~~g¥Jl~Ji5ierilrC!pPilee until the latte.t pan of the year.
debt l!leoo~. ~Ufloihflv-e. ~livfl...fion\,
~\lt~-iirst.-o~
Mrs. Clinton surely needs no lecture about the horrors at women in these circumstances endure.
She has met with countless women from the G77 countries aspoken out about their plight. She met with
women in Eastern and Central Europe, who, with tears in eir eyes, asked her for help in finding their
em into modern slavery. In Thailan~1e held
daughters and sisters and punishing those who have sol
teenage girls in her arms who were dying of AIDS th they contracted when they were sold in&-prostitution.
·
~·
~ art t..~~~"
~~ one _has worked harder to put this iss
O?- the ageifda of all governme~.ts- il~duding our own.
No admmtstratlon has done more to combat tr fickmg. 13:h:::~· HtfH~u~t:l-.t 1 tMbtm.e to prevent
trafficking, to protect its victims, and punis tts perpetrators. We are working with Congress to enact the
strongest possible legislation. We hav~ e ablished a taskforce that is prosecuting traffickers in the United
States andpngaged in anti-trafficking
paigns with many other countries.
~(((C..
Ifwe fail to enact this trea because of politics and demagoguery, it will be rhe countless girls and
won1en who are victims who w· lose. We rnust not let them down.
t
~
~~
'
Sincerely,
.
�~=~·
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........· ········.·Ji !··.····
.it!Jc l\lft(SlJi~tn~·o.•l<!lt1"~" ..
. ·.... I .. ·. . . . .
WEDNES~~~ F1BR,UA,R.Y 9.· 2000 .··
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�08/14/00
:.,
......-;>- ...
MON 14:56 FAX 202 647 5337
PI_QW
lgj002
---·
(-;::
Page I of 2
·
rj~.~--~
·(RIA) Botti, Anita Louise
From:
Predham. Lorraine
Sent:
Wednesday, August 02, 2000 3:14PM
To:
(RIA) Menares-Bury, Carla H; Kux, Sally; (RIA) Botti, Anita Louise
· Subject: FW: (Stop-traffic] Israel's first trafficking trial
1 wonder if this is the case the Israeli's raised at Kiev conference??
Lorraine Predham Keir
Director, Democratic Initiatives
Office of the Coordinator for US Assistance to the NIS
U.S. Department of State
telephone: 202-647-4337
fax: 202-647-2636
NOTE new email addr'ess: lpredham@pd.state.gov
-----Original Message----From: Ann Jordan [mailto:Annj@HRLawgroup.org]
Sent: Wednesday, August 02, 2000 10:30 AM
To: Stop-Traffic (E-mail)
Subject: [Stop-traffic] Israel's first trafficking trial
This mail was sent to
from the Ha'aretz
HA'ARETZ
EnglishEdition
Wednesday, August 2, 2000
Sex slave testifies against pimps, kidnappers, ra
Be'er Sheva
Hy Zvi Harel
Ha'aretz Legal Correspondent
· A woman who was enslaved as a sex worker testified yesterday in Tel Aviv District Court in the trial o
arrested on counts of conspiracy to kidnap, kidnapping to perpetrate sexual offenses, false imprisonme
Yesterday's witness, a Ukrainian native, is one of four prostitutes slated to testify in the trial.
The prosecution has made haste to bring these four women to the witness stand, since they lack penni
Israel and face deportation.
8/11/00
�UB/14100
MON 14:56 FAX 202 647 5337
- - - - - · - - - - - - - - - · - - - - · · - -PICW- ---
(@003
Page 2 of2
The witness attested yesterday to wide-scale sale and enslavement of sex workers. She said that shew
threats that she could be sold to Arab pimps in the territories, for $17,000.
She explained that handlers in the territories exploit prostitutes until they are "worn out" - the women
three months, the witness said.
Yesterday's testimony related to the fourth count in the indictment, which charges that on May 6th of
the defendants, Rauf Shlomov, Eliezer Negdiman and Pa'sar Avdiev, conspired to kidnap prostitutes.
The three men tried to shove the witness and a second woman into an automobile outside of a hotel. N
knife to force the witness inside the car while the other woman escaped.
The then defendants took the woman to Be'er Sheva, and kept her confined there.
Avdiev and another defendant are accused of sexually abusing the women while she was kept imprison
capital.
The charge sheet charges that Boris Shposhnik, also a defendant in the case, is alleged to have kept th
Sheva home, while a $5,000 sale ensued to return the woman back to her original pimp, outside
regton.
Be'~r
Cross-examination of the witness will continue today.
8/11/00
�\10/.l'i/\llJ
-
-..::;-·
MUN 14:57 FAX 202 647 5337
··- -·· ·-·----·-· ...•
·-
PICW
--~-
~004
Botti, Anita L
Neumann, Sally
Thursday, August 10, 2000 11:43 AM
Warlick, Mary B; Botti, Anita L.; O'Neill, Amy W
O'Reilly, Maureen T.
US-Ukraine Law Enforcement Workshop Webpage
From:
Sent:
To:
Cc:
Subject:
AIII didn't know if you've seen this, but post did a great job designing this website.
Take a look and pass it along:
~
www. usemb.
Thanks.
Sally
k1ev.ua/rla/an!!,:affickin~
r;:::>"
<
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(I {)._'/.)(
1
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�01/18/00
13:04 FAX 202 647 0753
U/S Global Affairs
U.S. Delegation Opening Statement
United Nations Protocol to Prevent, Suppress, and Punish
Trafficking in Persons, Especially Women and Children
Supplementing the United Nations Convention Against
Transnational Organized Crime
January 18, 2000
Vienna, Austria
14!002
�U/S Global Affairs
Thank you Madam Chair.
As we begin our negotiating session here in Vienna on the
U.N. Protocol Against trafficking in Persons, Especially
Women and Children associated with the U.N. Convention
Against Transnational Crime, the United States wants to
reaffirm its unwavering commitment to combating trafficking,
a modern day form of slavery.
With this protocol we are addressing a terrible problem that
our countries share - modern-day slavery that manifests
itself as trafficking in persons, especially women and
children. We believe that we have an historic opportunity
now to agree upon an unprecedented instrument of
international cooperation that will give us the tools we
need to be tough on traffickers and protect trafficking
victims.
This organized crime agreement targets the full range of
severe forms of trafficking in persons - those which are
coercive - whether they arise in the sex industry or in any
other form, including domestic servitude, bonded sweatshops
and other forced labor.
If we can reach agreement to stand
united to fight together against this broad scope of
trafficking
truly among the most h~inous crimes that human
beings inflict upon one another - it will be a remarkable
achievement.
What we are trying to do here has never been
done before.
We must not lose this opportunity.
The United States continues to support and enforce laws and
policies to end prostitution in all of its forms.
The
exploitation of the prostitution of others is an offense
against human dignity. At an appropriate time we will
propose language to be included in the text of the Protocol,
calling on States to take appropriate measures t6 discourage
prostitution, including efforts aimed at combating the root
causes of prostitution such as poverty, and encouraging ~hem
to provide women with economic alternatives so that they do
not return to prostitution as a result of poverty.
In
addition, we support, as do the vast majority of
delegations, including in this Protocol a savings clause
that makes it clear that nothing in the Protocol affects the
rights, obligations, and responsibilities of States and
individuals under international law, including international
humanitarian law and international human rights law.
Right now, we have an unique opportunity to demonstrate to
traffickers that the nations of the world are united against
trafficking.
We must not lose this opportunity.
~003
�''
...
01/18/00
13:05 FAX 202 647 0753
U/S Global Affairs
We are interested in hearing the views of other delegations
as the negotiations proceed. We intend to offer additional
language at an appropriate time reflecting the views we have
expressed.
Spicw/docs/general/trafficking (for all)/Protocol Statement
~004
�
Dublin Core
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Title
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First Lady's Work on Children’s Issues and Women’s Rights
Creator
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White House Office of Records Management (WHORM)
Caligraphy Office
Chief of Staff
Domestic Policy Council
First Lady’s Office
Management & Administration
Millennium Council
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Women’s Initiative and Outreach
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1995-2000
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<a href="http://clinton.presidentiallibraries.us/items/show/36054" target="_blank">Collection Finding Aid</a>
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2006-0198-F Segment 4
Description
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<p>This collection contains records regarding conferences and events attended and hosted by the First Lady, Hillary Rodham Clinton. The key events in this collection consist of the United Nations Fourth World Conference on Women, Vital Voices, Beijing +5, and the Early Childhood Development Conference. The records include background materials in preparation for each of these conferences.</p>
<p>This collection contains records from the following offices: White House Office of Records Management, Calligraphy Office, Chief of Staff, Domestic Policy Council, First Lady's Office, Speechwriting, Management & Administration, Millennium Council, Public Liason, Special Envoy for the Americas, and Women’s Initiative and Outreach. The collection includes records created by: Ann Lewis, Harold Ickes, Cheryl Mills, Linda Cooper, Ann Bartley, Lisa Caputo, Lissa Muscatine, Marsha Berry, Eric Massey, Nicole Rabner, Shirley Sagawa, Christine Macy, June Shih, Laura Schiller, Melanne Verveer, Alexis Herman, Ruby Moy, and Doris Matsui.</p>
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Clinton Presidential Records: White House Staff and Office Files
Clinton Presidential Records: White House Office of Records Managment
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301 folders in 30 boxes
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Trafficking: Vital Voices [1]
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Box 25
<a href="http://clintonlibrary.gov/assets/Documents/Finding-Aids/2006/2006-0198-F-4.pdf">Collection Finding Aid</a>
<a href="http://catalog.archives.gov/id/2068127">National Archives Catalog Description</a>
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2006-0198-F Segment 4
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Clinton Presidential Records: White House Staff and Office Files
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42-t-20060198f4-025-003
1766805