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ENACTING THE ANTI-PROSTITUTION LAW

PhilippineCommissiononWomen

Policy Brief No. 2

AddressingtheSystemofProstitutioninthePhilippines,ImposingPenaltiesforPerpetratorsand

ProvidingProtectiveMeasuresandSupportServicesforVictims:

ENACTINGTHEANTIPROSTITUTIONLAW(AMENDINGARTICLES202AND341OFTHEREVISEDPENALCODE)

Thispolicy

brief

provides

the

rationale

for

amending

Articles

202

and

341

of

the

Revised

Penal

Code

on

Prostitution

and

White

Slave

Trade.

ItalsopresentsrecommendationsonhowtoaddressthesystemofprostitutioninthePhilippinesbyprovidinglegalprotectionandsupport

servicesforitsvictimsandshiftingthecriminalliabilitytothosewhoexploitpeopleinprostitution.

WHAT IS THE ISSUE?Prostitution,aformofsexualexploitationandviolenceagainst

womenandgirlsisahumanrightsviolation.Itisanexploitative

systemthatcommodifies,objectifiesanddehumanizeswomen,

menandchildrenwhoarebeingsoldwithinthesystem.It

reinforcesthesubordinatestatusofthemorevulnerable

individualswhoaremoreoften,womenandchildren;asit

servestheinstantsexualgratificationofthemoreprivileged

clientelewhoaremostlymale.

Worldwide,theprostitutionbusinesshasaclearlinktohuman

traffickingforsexualexploitationandtointernetpornography.

TheUnitedNationsSpecialRapporteuronTraffickingin

Personsreportsthatforthemostpart,prostitutionas

actuallypracticedintheworldusuallydoessatisfytheelements

oftrafficking1.

Thecommonunderlyingcauseandwhatprimarilysustains

bothprostitution,trafficking,andpornographyisdemand.

Pornographyaccessedthroughinternetandmobiletelephony

isthetheory;prostitutionandtraffickingforsexualpurposes

arethepractice.Prostitutionhasbecomeinstitutionalized,

organized,

and

globalized

through

human

trafficking

and

the

internet.Differentformsofprostitutionthusexist,likestreet

solicitation,bars,brothels,akyatbarko,massageparlors,

escortservices,sextourism,cybersex,localandinternational

sextrafficking.

Therearetoomanywomenandgirlswhoareluredto

prostitution.Menandboysarealsobeingexposedforsexual

purposes.Inthe1998studybytheInternationalLabor

Organization(ILO),itwasestimatedthattherewereatleast

400,000to500,000prostitutedpersonsinthePhilippineswith

anestimated60,000to100,000children.In2004,thenumber

ofthoseexploitedinprostitutionalonereached600,000andit

ballooned

to

800,000

in

2005.

In

a

2009

study,

there

were

around800,000prostitutedpersonsinthePhilippines;halfof

themarechildren. Annually,itisestimatedthat3,266children

areforcedintoprostitution.ThePhilippinesranksfourth

amongthenationswiththemostnumberofchildrenin

1SigmaHuda,UnitedNationsCommissiononHumanRights,Integrationof

the Human Rights of Women and A Gender Perspective: Report of the

SpecialRapporteuronthehumanrightsaspectsofthevictimsoftrafficking

inpersons,especiallywomenandchildren2006

prostitutionasrevealedinastudyofUNICEF.Prostitutionmay

nowbethecountrysfourthlargestsourceofGNPaccordingto

thestudybythePsychologicalTraumaProgramofthe

UniversityofthePhilippines.2

Prostitutionthrivesbecauseofgenderinequalityandlackof

respectforwomenshumanrightsclearlymanifestedonthe

falsenotionthatwomenareinferior,sexualobjectsand

commoditieswhilemenaresuperior,decisionmakersand

ownersof

properties.

The

system

also

thrives

because

of

complexsocioculturalandeconomicfactors poverty,under

education,unemploymentandeconomicdisparityandpower

relations. ,makingiteasierforthosewhohavemoremoney

andpowertoexploitmorevulnerablepeopleandleadthem

intoprostitutionandthesextrade. Womendonotmakea

rationalchoiceinenteringprostitution;theysettlewiththe

limitedoptionsavailabletothembearingconditionsof

inequalitythataresetbythecustomerswhopaywomentodo

whattheywantthemtodo.Atsomepoint,Statepolicieswhich

aregenderblindontheissueofprostitutionmayevenresultin

compromisingFilipinowomensbodilyintegritytosextourists,

foreignandlocal,militaryandbigbusiness.Oursocietyhas

made

prostitution

hidden

in

plain

sight

although

it

is

everywhere,wetendtodisregardanddonotgivepriorityto

addressingit.

Article202oftheRPCasamendedbyR.A.101583provides:

Article202.Prostitutes;Penalty.Forthepurposesof

thisarticle,womenwho,formoneyorprofit,habitually

indulgeinsexualintercourseorlasciviousconduct,are

deemedtobeprostitutes.

Anypersonfoundguiltyofanyoftheoffenses

coveredbythisarticleshallbepunishedbyarresto

menororafinenotexceeding200pesos,andincaseof

recidivism,by

arresto

mayor

in

its

medium

period

toprisioncorrectionalinitsminimumperiodorafine

2StatisticspresentedinthePrivilegeSpeechofSenatorPiaS.Cayetanoon

theAntiProstitutionBill(SBN2341),September26,20113R.A.10158:AnActDecriminalizingVagrancy,AmendingArticle202ofRPC

whichwasenactedonMarch27,2012repealedArticle202provisionsthat

pertaintovagrancy,leavingbehindtheprovisionthatpenalizesprostitutes,

notwithstandingtheirexploitationwithinthesystemofprostitution.


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PCW Policy Brief

No. 2

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2013

2 ENACTING THE ANTI-PROSTITUTION LAW

rangingfrom200to2,000pesos,orboth,inthe

discretionofthecourt.

Notably,theaboveprovisionfocuseslawenforcementand

legalsanctionsexclusivelyonprostitutedwomen.Thisisclearly

anaffronttowomenasitcontinuestocriminalizeprostituted

women,while

letting

the

customers

and

the

pimps

go

unscathed.

WHY IS THE ISSUE IMPORTANT?Ourexistinglegislationonprostitutionisdiscriminatoryagainst

womenasitviewsprostitutedwomenascriminalswhoengage

inthesexindustryformonetarygain.Womenareviewedas

thecauseofillinthesociety,notthosewhocreatethedemand

sideofprostitution.Thegenderinequalityinprostitutionisalso

manifestedthroughthestigmaattachedtoprostitutedpersons

whichperpetuatesmaledominationoverwomenandgirls

bodies.Suchdiscriminationhasthepotentialtoimpairthe

fundamentaldignityandpersonhoodofwomenandgirls.

WHAT ARE THE EXISTING LAWS OR POLICYISSUANCES RELATED TO THE ISSUE?ArticleII,Section11ofthe1987PhilippineConstitution

providesthattheStatevaluesthedignityofeveryhuman

personandguaranteesfullrespectforhumanrights.In

addition,ArticleXIII,Section1statesthattheCongressshall

givehighestprioritytotheenactmentofmeasuresthatprotect

andenhancetherightsofallpeopletohumandignity,reduce

social,economic,andpoliticalinequalities,andremovecultural

inequitiesbyequitablediffusingwealthandpoliticalpowerfor

thecommongood.

RA9710

or

the

Magna

Carta

of

Women

(MCW)

specifically

recognizedthatprostitutionisanactofviolenceagainst

women(VAW)fromwhichwomenshouldbeprotected.

Section12ofthislawprovidesfortheamendmentorrepealof

lawsthatarediscriminatorytowomenwhich,amongothers,

includeArticle202oftheRevisedPenalCode(RPC)onthe

definitionofprostitution.

RPCArticle341onWhiteSlaveTradeimposespenaltyof

imprisonmentfrom2years,4monthsandonedayto6years

uponanypersonwho,inanymanner,orunderanypretest,

shallengageinthebusinessorshallprofitbyprostitutionor

shallenlisttheservicesofanyotherforthepurposeof

prostitution.

RA9208asamendedbyRA10364ortheExpandedAnti

TraffickinginPersonsActexplicitlydefinesprostitutionasany

act,transaction,schemeordesigninvolvingtheuseofaperson

byanother,forsexualintercourseorlasciviousconductin

exchangeformoney,profitoranyotherconsideration.Italso

penalizestheuseoftraffickedpersonsforprostitutionand

giveslegalprotectiontoprostitutedpersonswhoarevictimsof

trafficking.

QuezonCityOrdinanceNo.SP1516,seriesof20054recognizes

personsinprostitutionasvictims.Itimposespenaltiesonlyon

theperpetrators,

such

as

the

pimps

and

recipients

of

the

sexual

act.Italsoprovidesservicestopersonsexploitedinprostitution

througheducationcampaignsagainstprostitution,crisis

interventionservice,educationandsocioeconomicassistance,

sustainablelivelihoodskillstraining,financialsupportforscale

businesses,integrationandcompleteaftercareprograms,

healthservices,counseling,andtemporaryshelter.

WHAT ARE THE EXPERIENCES OF OTHERCOUNTRIES IN ADDRESSING THE ISSUE?Swedenprohibitsthepurchaseofsexualserviceswith

punishmentsofstifffinesorimprisonment,thusdeclaringthat

prostitutionisntadesirableeconomicandlaborsector.The

governmentalso

decriminalizes

women

in

prostitution

by

helpingthemgetoutofthesystemandrebuildtheirlives5.This

iswhatSwedencalledastheNordicModel6whichwas

adoptedbyNorwayandIcelandin2009.Insteadofprosecuting

prostitutedwomen,theyveofferedthemsocialservices,

educationalsupportandgenuinealternatives,while

criminalizingpimpsandcustomersorjohns7.

InVenezuela,alandmarkrulinggivenbytheMinistryofLabor

rejectedtheviewthatprostitutionshouldbeconsideredwork

becauseitlacksthebasicelementsofdignityandsocialjustice.

TheSocialistRepublicofVietnampunishespimps,traffickers,

brothelowners,andbuyerssometimespublishingbuyers

names

in

the

mass

media.

For

women

in

prostitution,

the

governmentfinancesmedical,educational,andeconomic

rehabilitation.

InOctober2000,theU.S.CongresspassedtheVictimsof

TraffickingandViolenceProtectionActof20008,introducedby

NewJerseyrepublicanrepresentativeChrisSmith.Underthis

lawpenaltiesfortraffickersareraisedandprotectionsfor

4AnOrdinanceAddressingtheSystemofProstitution, ImposingPenaltiesonits

Perpetrators,ProvidingProtectiveMeasuresandSupportServicesfortheProstituted

Persons,andforOtherPurposes5Actual text of the law states: A person who obtains casual sexual relations in

exchange for payment shall be sentenced unless the act is punishable under the

SwedishPenal

Code

for

the

purchase

of

sexual

services

to

afine

or

imprisonment

for

at the most six months. Attempt to purchase sexual services is punishable under

Chapter 23 of the Swedish Penal Code (Sweden, Law Prohibiting the Purchase of

SexualServices)19986Also known as the Swedish Model, which is a set of laws that penalizes the

demandforcommercialsexwhiledecriminalizingindividuals inprostitution. Ithastwo

main goals: curb the demand for commercial sex that fuels sex trafficking, and

promoteequalitybetweenmenandwomen.7Outlined in Shari Graydons column: Liberalizingprostitution lawswontprotect

women,June14,20138http://www.state.gov/documents/organization/10492.pdf


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ENACTING THE ANTI-PROSTITUTION LAW

victimsincreased.Reasoningthatdesperatewomenareunable

togivemeaningfulconsenttotheirownsexualexploitation,

thelawadoptsabroaddefinitionofsextraffickingsoasnotto

excludethesocalledconsensualprostitutionortraffickingthat

occurssolelywithintheUnitedStates.

OnJune20,2013,theUSSupremeCourtissuedafarreaching

62decisioninthecaseofAgencyforInternational

Developmentet.al.v.AllianceforOpenSocietyInternational,

Inc.,et.al.9.Itruledthatthegovernmentmaynolongercompel

USbasedAIDSfundingrecipientstoopposeprostitutionasa

conditionofreceivingfederalfunding.Whilethisrulingonly

appliestotheAntiProstitutionLoyaltyOath(APLO)

requirementportionoftheGlobalAIDSAct10

asviolativeofthe

FirstAmendment,theCourtaffirmsthattheUSgovernment

deemstheeradicationofprostitutiontobecentraltothefight

againstHIV/AIDS11

,andupholdstheCongressionalrightto

spenditsfundsonselectedprogramsthatagreewiththis

mission.Thus,thefederalgovernmentcancontinuenottofund

anyspecificprogramsthatmaypromoteprostitution.

WHAT ARE THE CONSIDERATIONS INADDRESSING THIS ISSUE IN THE COUNTRY?

Promoting womens rights and gender equalityGenderequalitywillremainunattainableaslongasmenbuy,

sellandexploitwomenandchildrenbyprostitutingthem12

.

Addressingthesystemofprostitutionbypenalizingthereal

culpritsinthesexindustry,meaningthetraffickers,pimps,

customersorbuyersofsexandtheexploiters,and

decriminalizingthosewhoareexploitedinthesystemof

prostitution,willeventuallyleadtoeradicatetheproblemof

prostitution.

Responding to International CommitmentsArticle6oftheUNConventionontheEliminationofAllForms

ofDiscriminationAgainstWomen(CEDAW)requirestheState

totakeallappropriatemeasures,includinglegislation,to

suppressallformsoftrafficinwomenandexploitationof

prostitutionofwomen.

The2006CEDAWCommitteeConcludingCommentsonthe5th

and6th

PhilippineCountryReportraiseditsconcernsonthe

exploitationofprostitutionthatcontinuestothriveinthe

Philippinesandthelowratesofprosecutionandconvictionof

thosewhoexploittheprostitutionofwomen.Itcalledonthe

9http://www.supremecourt.gov/opinions/12pdf/1210_21p3.pdf

10Otherwiseknownasthe USGlobalLeadershipAgainstHIV/AIDS,

Tuberculosis,andMalariaReauthorizationAct of2008underthe

President'sEmergencyPlanForAIDSRelief(PEPFAR)11

OutlinedintheUSGlobalLeadershipAgainstHIV/AIDS,Tuberculosis,and

MalariaReauthorizationAct of200812

SwedishMinistryofIndustry,EmploymentandCommunications

ProstitutionandTraffickinginWomen,FactSheetOctober2004

Philippinegovernmenttodiscouragethedemandfor

prostitution,facilitatethereintegrationofprostitutedpersons

intosocietyandproviderehabilitation,socialintegrationand

economicempowermentprogramstowomenandgirlswhoare

victimsofexploitationandtrafficking.

TheDeclarationontheEliminationofViolenceAgainstWomen

adoptedbytheUNGeneralAssemblyin1993recognized

prostitutionasanactofviolenceagainstwomenandurged

StatesPartiestopursuewithoutdelayapolicytoeliminateit.

TheConventionfortheSuppressionoftheTrafficinPersons

andoftheExploitationoftheProstitutionofOtherswhichwas

approvedbytheUNGeneralAssemblystatesthat

prostitutionandtheaccompanyingevilofthetrafficin

personsforthepurposeofprostitutionareincompatiblewith

thedignityandworthofthehumanpersonandendangerthe

welfareoftheindividual,thefamilyandthecommunity".

Alignment with National PrioritiesTheproposedmeasureisconsistentwithitem13ofthe

governments16PointagendaonGenderEqualitywhichstates;fromalackofconcernforgenderdisparitiesand

shortfalls,tothepromotionofequalgenderopportunityinall

spheresofpublicpoliciesandprograms.

Thisisalsoincludedasoneofthelegislativeagendaofthe

socialdevelopmentsectorinthePhilippineDevelopmentPlan

for20112016.AccordingtothePDP,thelegislationonanti

prostitutionseekstoaddressthesystemofprostitution

throughtheapprehensionandprosecutionofagents,recruiters,

traffickers,pimps,procurers,establishmentowners,customers

andotherswhoderivesexualgratification,financialgainorany

otherbenefitfromtheprostitutionofanotherperson.Itshall

alsocomplement

the

current

laws

on

anti

trafficking

and

violenceagainstwomen,inprotectingandpromotingtherights

ofthevulnerablegroups,especiallywomenandchildren.

ItisalsoinlinewiththePhilippinePlanforGenderResponsive

Development(19952025),whichcomprehensivelytackles

violenceagainstwomen(VAW)withinthecontextofanational

developmentframework,andviewsprostitutionasahuman

rightsviolationandidentifyingthedecriminalizationofwomen

inprostitutionasastartingpointinaddressingtheproblem.

AccordingtothePPGD,thedesiredeffectofsuchlegislationisthatwomenandchildrenshouldnolongerbearrestedorfinedlikecriminals.POLICY RECOMMENDATIONItisworthwhiletonotethataddressingtheissueof

prostitutionnecessarilystartswithstrengtheningthelegal

frameworkwithinwhichlawenforcementagencieswork.There

mustbesignificanteffortstoreducetheincidenceof


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PCW Policy Brief

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4 ENACTING THE ANTI-PROSTITUTION LAW

prostitutionfocusingonitsdemandsideandbroadenthe

baseofillegalityofthesaidact.Thismeansthatcriminal

liabilityshouldbeshiftedtoclients(customersorrecipientsof

sexualservices)andtheexploiters(pimps,traffickers,brothel

owners).Detainingwomeninprostitutionisnottheanswer.It

istimetoremovethepenaltyimposedontheminorderto

upholdtheir

rights.

It

is

recommended

that

Revised

Penal

Code

provisiononProstitutionandWhiteSlaveTradebeamendedas

follows:

1. Redefineprostitutionasanyact,transaction,schemeordesigninvolvingtheuseofapersonby

another,forsexualintercourseorlascivious

conductinexchangeformoney,profitoranyother

consideration.

2. Definepersonexploitedinprostitutionoraprostitutedpersontoreferto"awoman,manor

childused,employed,orexploitedforanother

person'ssexualgratificationorpleasure,andfor

themonetary

gain

or

profit

of

others.

3. Targetthedemandside;criminalizethosewhoexploitpeopleinprostitutiontheproblemof

prostitutionwillbeeffectivelyaddressedifthose

whofuelitsdemandarepenalized.Puttinginplace

anationallawwhichexplicitlyidentifiesthosewho

buypersonsinprostitutionandotherpeopleand

businessesinvolvedinsuchactivitieswill

eventuallyreduceitsdemand.

4. Decriminalizewomeninprostitution;regardthemasvictimsNOTcriminalsthisconsistsonlyofthe

removalofpenalsanctionstowomenin

prostitution,withouttakinganyfurthermeasures

toregulate

or

legalize

prostitution.

This

should

recognizethatprostitutedpersonsarenot

criminalsbutvictimsofthesystemofprostitution

thatdeserveprotection,notpunishment.This,

however,doesnotautomaticallyexempt

prostitutedpersonswhothemselvescommitany

oftheprohibitedactsofprostitution(suchas

pimpingotherpeople)fromcriminalliability.

5. Establishsupportmechanismsforprostitutedpersonstogetoutofthesystemofprostitution

recognizethattheroadto

recoveryforsurvivorsofprostitutionislongand

arduous.The

government

shall

facilitate

the

provisionofsupportservicestovictimssuchas

psychosocialcounselingtohelpthemintheir

healingprocess;legalassistanceinordertoseek

redressagainsttheperpetrators;andreferralto

appropriatetrainingandothergovernment

programsthatwillopenforthemdoorsto

economicopportunities.

Therationaleforcriminalizationofthedemandsideisthat

restrictivelawswilldeterindividualsfromtakingpartinthe

activity,orfailingthat,theywillatleastbepunishedfortheact

oftakingadvantageofanotherpersonsvulnerability.Itis

aimedat

ensuring

that

those

who

induce

persons

into

prostitutionandthereafterexploitthemaredealtwith

appropriately.Ontheotherhand,decriminalizationofthe

prostitutedpersonsseemstobetheonlywaytoeliminating

discriminatoryenforcementand,atthesametime,requiring

thelawenforcementofficerstoprosecutecrimesperpetrated

onthem.

CONCLUSIONLegislativemeasurestoamendArticle202oftheRevisedPenal

CodewerefiledinthepreviousCongressesbutwerenot

approved.Tothisend,itiswithhopethatourlegislators,

consistentwiththeirmandatesundertheConstitutionandthe

MagnaCarta

of

Women,

shall

give

highest

priority

to

the

enactmentofmeasuresthatprotectandenhancetherightof

allthepeopletohumandignityandfavortheimmediate

enactmentofanantiprostitutionlaw.#

PCWPolicyBriefsaimtostimulateinformeddiscourseandguidepolicyactionsonissuesconcerningthe

empowermentofwomenandpromotionofgenderequality.

OFFICEOFTHEPRESIDENT

PhilippineCommissiononWomen

1145J.P.LaurelStreet,SanMiguel,1005Manila

http://www.pcw.gov.ph|[email protected]|+6327358918

2 anti prostitution

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