naslovnica za provjerupanton -...

Trafficking

in Human

Beings in

South Eastern

Europe

2003 Update on Situation and Responses

to Trafficking in Human Beings in

Albania

Bosnia and Herzegovina

Bulgaria

Croatia

Serbia and Montenegro,

including the UN Administered Province of Kosovo

The Former Yugoslav Republic of Macedonia

Moldova

Romania

UNOHCHR

UN

OH

CH

R

TRAFFICKING IN HUMAN BEINGS IN SOUTH EASTERN EUROPE

2003 Update on Situation and Responses to Trafficking in Human Beings in Albania,Bosnia and Herzegovina, Bulgaria, Croatia, Serbia and Montenegro including the UNAdministered Province of Kosovo, the former Yugoslav Republic of Macedonia,Moldova and Romania.

Report by Barbara Limanowska;

• United Nations Children's Fund;• United Nations Office for the High Commissioner for Human Rights;• Organisation for Security and Cooperation in Europe/Office for the DemocraticInstitutions and Human Rights.

This publication was published with the support from the United Nations Children'sFund (UNICEF), the United Nations Office of the High Commissioner for HumanRights (UNOHCHR) and the OSCE Office for Democratic Institutions and HumanRights (ODIHR), within the framework of the Stability Pact Task Force on Traffickingin Human Beings. The opinions expressed in this report are those of the author anddo not necessarily reflect the policy and views of UNICEF, UNOHCHR andOSCE/ODIHR.

Published by UNDPPrinted in November 2003Print run: 2500© 2003 Copyright UNICEF/UNOHCHR/OSCE ODIHR

All rights reserved. The contents of this publication may be freely used and copied foreducational and other non-commercial purposes, provided that any such reproduction isaccompanied by acknowledgment of UNICEF, UNOHCHR and OSCE/ODIHR as the source.

II

Trafficking in Human Beingsin South Eastern Europe

UNICEFOffice for Bosnia andHerzegovina Kolodvorska 6Sarajevo, Bosnia andHerzegovinaTel: +387 33 660 118 Fax: +387 33 642 970E-mail:[email protected]

Website: www.unicef.org

UNOHCHRKolodvorska 6Sarajevo, Bosnia and HerzegovinaTel: +387 33 660 107Fax: +387 33 660 109E-mail: [email protected] Website: www.unhchr.ch

OSCE/ODIHRAl. Ujazdowskie 1900-557 Warsaw, PolandTel: +48 22 520 06 00 Fax: +48 22 520 06 05 E-mail: [email protected]:www.osce.org/odihr

UNOHCHR

AcknowledgementsThis Report has been prepared with contributions and assistance from a largenumber of people and organisations. The report could not have been preparedwithout the generous contributions of government agencies, non-governmentalorganisations, UN agencies, international organisations and other experts acrossSouth Eastern Europe. Funding was provided by UNICEF, UNOHCHR andOSCE/ODIHR, with the administrative assistance of UNDP in Bosnia andHerzegovina.

The report was researched and written by Barbara LimanowskaUNICEF/UNOHCHR/OSCE-ODIHR consultant, with the assistance of ElizabetaHopic, Project Assistant, and edited by Yulia Krieger UNICEF, Programme Officer,and Anne Hand, consultant editor.

The report provides an overview of the current situation and responses totrafficking in human beings in South Eastern Europe for the year 2002 and upto April 2003. The author is aware, however, that it may not fully document allthe activities and responses currently taking place across the region.

The author would like to express appreciation to the following people for theiradvice, comments and recommendations: Gabriele Reiter, OSCE/ODIHRWarsaw; Helga Konrad, Stability Pact Task Force on Trafficking in Human Beings,Vienna; Yulia Krieger, UNICEF BiH; Deborah McWhinney, UNICEF BiH; andMadeleine Rees, UNOHCHR Sarajevo.

Special thanks are due to the following persons who provided input andcomments on the draft chapters:

REGIONAL OVERVIEW: Nancy Coan, IREX; Anne Maria Faradji, CoE;Sabine Fuehrer, UNHCR; Klaus Guenther, ILO; Maria Holtsberg, UNFPA;Laurence Hunzinger, RCP; Liisa Lintuluoto, EUROPOL; Osnat Lubrani, UNIFEM;Robert F. Oberloher, UNICRI; Ioana Spiridonica, SECI; Sarah Stephens, ICMC;Suter Teodora, IOM; Gerda Theuermann, ICMPD; Mihai Toader, UNDP Romania;Stephen Warnath, SPTF; and Galit Wolfensohn, Save the Children Alliance;

ALBANIA: Ledia Beci, OSCE; Pierre Ferry, UNICEF; Eglantina Gjermeni, TiranaWomen’s Centre; Hera Shanaj, IOM; Vincent Tournecuillert, Terre des Hommes;and Galit Wolfensohn, Save the Children Alliance.

BOSNIA AND HERZEGOVINA: Jasminka Dzumhur, UNOHCHR; AstridGanter, OSCE; Marco Gramegna, IOM; Fadila Hadzic, La Strada; Emir Nurkic,IFS; Zoltan Pop, EUPM; and Mara Radovanovic, Lara.

BULGARIA: Antonia Balkanska, Ministry of Justice; Elena Kabakchieva,Health and Social Development Foundation; Mila Mancheva, IOM; Ltc. PlamenPetrov, Ministry of the Interior; Milena Stateva, Animus Association/La Strada;Genoveva Tischeva, Bulgarian Gender Research Foundation; and RossankaVenelinova, Nadia Centre.

CROATIA: Amy Antoniades, ICMC; Darko Gottlicher, National Co-ordinator; Meri Katunaric-Kudric, OIP Split; Lovorka Marinovic, IOM;Nela Pamukovic, Centre for Women War Victims (ROSA); and AleksandraSelak-Zivkovic, CISP.

III


Vedrana Kovac

REPUBLIC OF MOLDOVA: Giovanna Barberis, UNICEF; Jana Costachi,CPTW; Kirsten Di Martino, UNICEF; Ana Palancean, La Strada; Mariana Petersel,Save the Children Moldova; Liliana Sorrentino, OSCE; and Liuba Revenko, IOM.

FYR MACEDONIA: Alvaro Ballesteros, OSCE; Geraldine Bjallerstedt, OSCE;Jasmina Dimishkovska-Rajkovska, La Strada; Gregory Grimisch, UNICEF;Karolina Lindhold, UNHCR; Biljana Lubarovoska, OSCE; Limaj Michelle, IOM;Goran Misevski, OSCE; Natasa Nankovska, OSCE; Monica Portillo, OSCE; ElenaRodriguez, OSCE; and Natasa Trpenoska Trenchevska, TEMIS.

EuropeSERBIA AND MONTEGNEGRO:Republic of Serbia (excluding Kosovo):Mona Dia, OSCE; Christopher Gascon, IOM; Maja Lazic, UNOHCHR; SandraLjubinkovic, ASTRA; and Dusan Zlokas, Ministry of the Interior;

Republic of Montenegro: Jamie Factor, OSCE/ODIHR; AleksandarMostrokol, MFA; Zana Pavicevic, IOM; Ljiljana Raicevic, Women’s SafetyHouse; Sanja Saranovic, UNICEF; and Ana Zec, CoE.

UN Administered Province of Kosovo: Sevdie Ahmeti, CPWC;Gretchen Ansorge, UMCOR; Jennifer Chase, OSCE; Monica Gutierrez, UNICEF;Habit Hajredini, PSIG; and Tatiana Sullini, IOM.

ROMANIA: Gabriela Alexandrescu, Save the Children; Cristina Gheorghe,IOM; Madalina Marcoci, Centre for Legal Resources; Iana Matei, Reaching Out;Eduard Pertescu, UNAIDS; and Smaranda Popa, UNICEF.

Produced by:UNICEF Sarajevo, Bosnia and Herzegovina

UNOHCHR Sarajevo, Bosnia and Herzegovina

OSCE/ODIHR Warsaw, Poland

IV


Abbreviations and Acronyms

ABA CEELI American Bar Association Central and Eastern Europe Law Initiative

BiH Bosnia and HerzegovinaCEDAW Convention for the Elimination of all forms of

Discrimination against WomenCIDA Canadian International Development AgencyCoE Council of EuropeCRC Convention on the Rights of the ChildEU/EC European Union/European CommissionFRY Federal Republic of YugoslaviaFYR Macedonia Former Yugoslav Republic of MacedoniaHIV/AIDS Human Immune Virus/Acquired

Immunodeficiency SyndromeICCO Inter-church Organisation for Development

Co-operationICITAP International Criminal Investigative Training

Assistance ProgrammeICMC International Catholic Migration CommissionICMPD International Centre for Migration Policy DevelopmentIHRLG International Human Rights Law GroupILO International Labour OrganisationILO-IPEC ILO International Programme on the Elimination

of Child LabourIMP International Migration Policy ProgrammeIOM International Organisation for MigrationIREX International Research and Exchanges BoardISS International Social ServicesMOU Memorandum of UnderstandingNGO Non Governmental OrganisationNPA National Plan of ActionODIHR OSCE Office for Democratic Institutions and

Human Rights (see below)OPDAT Office of the Overseas Prosecutorial

Development Assistance and TrainingOSCE Organisation for Security and Co-operation

in EuropeOSCE/CPC OSCE Crime Prevention CentreOSCE/ODIHR OSCE Office for Democratic Institutions and

Human Rights SCF Save the Children FundSDC Swiss Agency for Development and Co-operationSECI South Eastern European Co-operative InitiativeSEE South Eastern EuropeSIDA Swedish International Development AgencySP Stability PactSPOC Stability Pact Initiative against Organised CrimeSPTF Stability Pact Trafficking Task ForceSTI Sexually transmitted infectionsUMCOR United Methodist Committee for Relief

V


UNAIDS United Nations Joint Programme on HIV/AIDSUNDP United Nations Development ProgrammeUNFPA United Nations Population FundUNOHCHR United Nations Office of the High Commissioner

for Human RightsUNHCR United Nations High Commissioner for RefugeesUNICEF United Nations Children's FundUNICRI United Nations Interregional Crime and Justice

Research InstituteUNIFEM United Nations Development Fund for WomenUNODC/CICP United Nations Office on Drugs and Crime/Centre

for International Crime PreventionUSAID United States Agency for International Development

VI


Table of ContentsAcknowledgments ..............................................................IIIList of Abbreviations and Acronyms ......................................VTable of contents ................................................................VIIList of tables ........................................................................XForeword..............................................................................XIExecutive summary ..........................................................XIII

Introduction ..........................................................................1

1. Purpose and structure of the report ................................12. Policy approaches to anti-trafficking responses ................23. Changes and new trafficking trends in the region ............4

Regional initiatives................................................................91. Governments ..............................................................92. International Organisations ..........................................143. Non-governmental Organisations (NGOs) ......................254. Regional case study: Operation Mirage -

Failure of Regional Law Enforcement Action ..................295. Chart: Results of Operation Mirage (September 2002) ....32

Albania ......................................................................331. Migration, prostitution and trafficking ............................332. Current responses ......................................................35

2.1. National Plan of Action..........................................352.2. Anti-trafficking legislation......................................372.3. Victim assistance ................................................392.4. Trafficking in children............................................442.5. Prosecution ........................................................47

3. Summary ..................................................................484. Albania case study: child trafficking and migration ..........50

Bulgaria ......................................................................531. Migration, prostitution and trafficking ............................532. Current responses ......................................................55


3. Summary ..................................................................654. Bulgaria case study: assistance to children ....................67

Republic of Moldova....................................................711. Migration, prostitution and trafficking ............................712. Current responses ......................................................75


3. Summary ..................................................................87VII


Table ofContents

4. Moldova case study: reintegration programmes ..............89Romania ....................................................................91

1. Migration, prostitution and trafficking ............................912. Current responses ......................................................93


3. Summary ..................................................................994. Romania case study: victim-centred assistance ............101

Bosnia and Herzegovina ..........................................1051. Migration, prostitution and trafficking ..........................1062. Current responses ....................................................108

2.1. National Plan of Action ........................................1082.2. Anti-trafficking legislation ....................................1102.3. Victim assistance................................................1112.4. Trafficking in children..........................................1162.5. Prosecution........................................................117

3. Summary ................................................................1194. Bosnia and Herzegovina case study: temporary instructions

for the treatment of victims of trafficking ....................121

Croatia ......................................................................1231. Migration, prostitution and trafficking ..........................1232. Current responses ....................................................124


3. Summary ................................................................1324. Croatia case study:separated children

in Europe programme................................................133

Serbia and Montenegro ............................................135Republic of Serbia (excluding Kosovo) ......................1361. Migration, prostitution and trafficking ..........................1362. Current responses ....................................................137


3. Summary ................................................................1424. Serbia case study: national referral mechanism ............144

Republic of Montenegro ............................................1471. Migration, prostitution and trafficking ..........................1472. Current responses ....................................................148


3. Summary ................................................................154VIII


Table ofContents

4. Montenegro case study: "the Moldovan case" and lack of victim/witness protection ..........................................155

The UN Administered Province of Kosovo ................1611. Migration, prostitution and trafficking ..........................1612. Current responses ....................................................163

2.1. Kosovo Plan of Action..........................................1632.2. Anti-trafficking legislation ....................................1652.3. Victim assistance................................................1662.4. Trafficking in children..........................................1702.5. Prosecution........................................................171

5. Summary ................................................................1736. Kosovo case study: unconditional victim assistance ......175

The Former Yugoslav Republic of Macedonia ............1771. Migration, prostitution and trafficking ..........................1772. Current responses ....................................................178


3. Summary ................................................................1854. FYR Macedonia case study: Government shelter

for victims of trafficking ............................................187

Impact of anti-trafficking action in SEE: lack ofeffectiveness of law enforcement and migrationapproaches ........................................................189

1. Current criteria for the assessment of anti-trafficking responses ..........................................189

2. Identification of victims by law enforcement: victim or criminal? ....................................................192

3. Victims' access to assistance: the only option is to return home ..................................196

4. Inadequate victim/witness protection results in the lack of prosecutions....................................................................198

Summary and recommendations ..............................2011. Coordination of anti-trafficking action within the framework

of the NPA....................................................................2012. Legal reform and prosecution ........................................2073. Victim assistance ..........................................................2094. Trafficking in children ....................................................2155. Awareness raising and prevention ..................................2166. Training........................................................................218

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Table ofContents

X


List of Tables

TABLE 1: SUMMARY OF REGIONAL INITIATIVES .................. 221

TABLE 2: LIST OF PROJECTS AND ACTIVITIES IN ALBANIA ..231

TABLE 3: LIST OF PROJECTS AND ACTIVITIES IN BULGARIA 237

TABLE 4: LIST OF PROJECTS AND ACTIVITIES INTHE REPUBLIC OF MOLDOVA ..................................243

TABLE 5: LIST OF PROJECTS AND ACTIVITIES IN ROMANIA 253

TABLE 6: LIST OF PROJECTS AND ACTIVITIES IN BOSNIAAND HERZEGOVINA..................................................259

TABLE 7: LIST OF PROJECTS AND ACTIVITIES IN CROATIA ..268

TABLE 8: LIST OF PROJECTS AND ACTIVITIES IN THEREPUBLIC OF SERBIA (excluding Kosovo) .............. 273

TABLE 9: LIST OF PROJECTS AND ACTIVITIES IN THEREPUBLIC OF MONTENEGRO ..................................280

TABLE 10: LIST OF PROJECTS AND ACTIVITIES IN KOSOVO ..285

TABLE 11: LIST OF PROJECTS AND ACTIVITIES INFYR MACEDONIA....................................................291

XI

ForewordTrafficking in human beings is no longer a new issue in South EasternEurope. It has been more than three years since the U.N. Palermo Protocolwas passed and it will come into force in December 2003. Ministers of thegovernments of the region that signed the Palermo Stability PactDeclaration have committed their countries to implementing effectiveprogrammes of prevention, victim assistance and protection, legislativereform, law enforcement and prosecution of traffickers. Since that time,generous donors have poured tens of millions of dollars into all of the,countries/entities of the region to address this issue. A number ofconferences and meetings throughout the region are being held on thistopic every year and high-level delegations reaffirm that fighting traffickingin human beings remains a top priority. It is time to take stock of where weare, if we are making progress on meaningful indicators and if we areheading in the right direction. This report is a contribution to shedding lighton these issues.

There has been significant progress in many important ways. Countrieshave now established a foundation of institutional mechanisms: nationalgovernment co-ordinators have been appointed in each country;multi–disciplinary national working groups have been established; andnational plans of action have been adopted. A regional framework wasagreed to harmonise the approaches by focusing on regional co-operation.In addition, significant progress is being made in law reform in order tocriminalise trafficking in human beings and its related crimes. Importantissues such as trafficking in children and victim/witness protection havebeen receiving additional attention recently. Co-operation in areas such aslaw enforcement is improving.

But, as this fine report underlines, there remain serious fundamental gaps inregional and national responses. Effective implementation in many areas islagging behind. Long-term assistance for trafficking victims is not available.Referral mechanisms to ensure that the victims of trafficking discovered bylaw enforcement agencies are transferred appropriately to service providersgenerally do not exist. Crime bosses of trafficking networks continue tooperate with impunity in many countries. Corruption and/or complicity byauthorities contribute to the effectiveness of traffickers. Investment indeveloping sustainable local and national non-governmental andgovernmental involvement and accountability has to be improved.

The fight against trafficking in human beings must go forward on many frontsbecause the character of human trafficking is that it is a complex problem. Acomprehensive and integrated approach to human trafficking recognises thatit has to do with human rights and their violation, with migration – legal andillegal - with trans-national, organised crime, money laundering andexploitation, with public health issues, etc. And it has to do with the economicand social situation in many countries of origin, with gender based violenceand discrimination and last, but not least, with demand.

If the contents of this thorough report are read with the seriousness of purposethat this issue demands and deserves, it will help move all relevant actors in theright direction toward concrete, effective and sustainable implementation.

This report shows that we can be proud of the accomplishments that have


Foreword

XII


been made in a relatively short time. But we should be impatient as well –as a consequence of the seriousness of this crime and the violations ofhuman rights that it engenders. We must always be mindful that in the timeit takes to read this foreword, many people around the world – especiallywomen and girls – are at this moment being targeted and trapped byhuman traffickers into a violent, sometimes deadly, experience. The realityis that there is no time to rest on our laurels, we must constantly moveforward if we wish to stop or at least diminish trafficking in human beings.

I would like to express my deep appreciation to UNICEF and my specialthanks to Ms. Barbara Limanowska, the tireless author of this report, fortheir most valuable contribution to the understanding of trafficking inhuman beings in South Eastern Europe. I am also grateful to those whohave provided financial and technical support – especially OSCE / Office forDemocratic Institutions and Human Rights and the United Nations Office ofthe High Commissioner on Human Rights – for bringing this excellent reportto completion. This valuable contribution to the work of the Stability PactTask Force on Trafficking in Human Beings in South Eastern Europe offersprofound insights into the complex problem of trafficking in human beings.

Helga KonradChair of the Stability Pact Task Force on Trafficking in Human Beings

TASK FORCE ON TRAFFICKING IN HUMAN BEINGS

Foreword

XIII


Executive SummaryThis report assesses the situation and existing responses to trafficking inhuman beings in the countries of South Eastern Europe (SEE): Albania,Bosnia and Herzegovina, Bulgaria, Croatia, the UN administered provinceof Kosovo, the Former Yugoslav Republic of Macedonia, Moldova, Romaniaand Serbia and Montenegro. The report focuses on the status ofimplementation of the National Plans of Action, legislative reform, victimassistance, trafficking in children and prosecution, and it serves to updatethe earlier review of the situation and responses to trafficking in SEEpresented jointly by UNICEF, UNOHCHR and OSCE/ODIHR in June 2002.IThe data for this report were collected between November 2002 and April2003, and are presented as the results of concrete actions that have beentaken by the participating agencies, governmental, non-governmental andinternational.

The general situation of trafficking in human beings in SEE is similar to theone outlined in the 2002 report: 90 percent of foreign women working inprostitution are alleged victims of trafficking; 10 –15 percent of thesewomen are girls under the age of 18; and younger children, both boys andgirls, are being trafficked for forced labour.

Some new trends have, however, become apparent. The estimated numbersof trafficked women being identified and assisted have significantly dropped,from the estimated 35 percent of all trafficked women in 2002. Traffickershave modified their modus operandi as the SEE Governments start to enforceanti-trafficking legislation, so that trafficking has become less visible. Therehas been an increase in trafficking within the region, with Balkan countriesbecoming countries of destination, origin and transit.

Governments have started to play a leading role in the fight againsttrafficking resulting in enormous improvements in government structuresand anti-trafficking legislation throughout the region. National Co-ordinators have been appointed to oversee the implementation of NationalPlans of Action against trafficking, and anti-trafficking actions have becomemuch better co-ordinated at all levels, between agencies, bi-laterally andregionally. The majority of new legislation throughout the region complieswith the definition in the Palmero Trafficking Protocol. The issues oftrafficking in children and internal trafficking are being addressed, in linewith the priorities of the Stability Pact Task Force on Trafficking in HumanBeings for 2003: trafficking in children; because not enough evidence canbe amassed against them. Usually the only evidence available is thetestimonies of the victims of trafficking, but these can rarely be usedeffectively because there is a lack of proper protection for witnessesthroughout the region. The European Union Police Mission in Bosnia andHerzegovina is shifting the emphasis of anti-trafficking law enforcementtowards the traffickers and away from the victims, leading the way towardsevidence-based policing in the region. Trafficked women often only testifybecause they believe their illegal status means they are obliged to do so.Victims need to be properly informed about their rights, including legalsupport and protection, as well as being given sufficient time to make aninformed decision.

The human rights perspective needs to be further emphasised in anti-

ExecutiveSummary

I Barbara Limanowska, Trafficking in Human Beings in South Eastern Europe. Current situation andresponses to trafficking in human beings in Albania, Bosnia and Herzegovina, Bulgaria, Croatia, theFederal Republic of Yugoslavia, the Former Yugoslav Republic of Macedonia, Moldova and Romania.UNICEF, UNOHCHR, OSCE/ODIHR. Belgrade 2002. The report can be found at www.seerights.org

XIV


trafficking actions generally. The police still tend to treat women picked upin bars or at border crossings as criminals rather than victims. The assistingagencies need to pay particular attention to standard operating procedures,to the human rights perspective of their activities, and to developingstrategies to hand over their programmes to local agencies. One of themain objectives of the Stability Pact anti-trafficking programme is toencourage and support the countries of SEE to assume control of their ownand the regional initiatives to combat trafficking in human beings.

Progress is being made across SEE towards combating trafficking in humanbeings, although the countries of the region are each placing emphasis ondifferent aspects of the trafficking problem. The aim must be to bringtogether these strands of progress to create a holistic, consistent andhuman rights-based approach to combating trafficking across the region.

ExecutiveSummary

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