Yelena is a 25-year-old Belarusian with a college degree. She responded to a Minsk employment agency’s advertisement seeking nightclub dancers in Cyprus. The agency provided Yelena with a work visa, a three-month employment contract, and a written guarantee that the job would not require any sexual activities. Immediately upon arrival in Cyprus, the owners of the nightclub where she was to work confiscated her passport and told her she would be forced to work as a prostitute at the club. They also told Yelena that she would have to repay a "debt" to cover her travel and visa expenses. Over the next three months she was forced to work in the Cypriot sex industry, suffering physical and psychological abuse. The club owners confiscated her earnings as "debt" payments. Once the owners recovered their expenses, they released Yelena with nothing.

The Government of Albania does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Arrests and prosecutions for trafficking-related offenses increased significantly, and the government continued its prevention of human trafficking by speedboat across the Adriatic. The government improved its monitoring of government officials involved in trafficking; however the government should take further steps to prosecute and convict complicit government officials, and improve its prevention and reintegration programs.

Prosecution
Albanian law prohibits trafficking in persons for sexual exploitation and for forced labor, with penalties up to 15 years’ imprisonment, with a maximum of life in prison for aggravating circumstances. In 2003, the government arrested 317 suspects for trafficking-related crimes, and imposed sentences in 75 of 102 convictions from two to over 10 years’ imprisonment. Some of these resulted from the government’s involvement in Operation Mirage II, a coordinated transnational law enforcement operation. Some courts released convicted traffickers pending appeal without offering protection for witnesses and victims. Trafficking-related corruption was a problem; the government arrested four police officers on related charges, and investigated 11 cases of police involvement in trafficking. In a joint Italian-Albanian operation against a child trafficking ring, the government arrested and placed 16 suspects in pre-trial detention, including high-ranking customs and law enforcement officials. The government attacked trafficking through the Organized Crime Task Force, made up of select police and prosecutors. Albania’s borders remained porous, though the government continued to improve interdiction at the country’s main ports of exit and entry. The Vlora Anti-Trafficking Center (VATC) became operational in gathering information and creating regional anti-trafficking responses.

Protection
The government provided some facilities and personnel to assist trafficking victims. In July 2003, the government assumed operation of the National Reception Center for adult and child victims, previously known as the Linza Center. Police made ad hoc referrals to an NGO shelter in Vlora, which assisted 231 trafficking victims in 2003. In most cases, police screened victims at police stations then referred them to shelters. Under a new centralized referral system, police referred victims to the IOM for initial screening, and then to an appropriate shelter or international organization for further care. In remote prefectures, shelters were not available, and trafficking victims were at times held temporarily in overcrowded, unsanitary conditions until transported to shelters. While it finalized adoption of new witness protection legislation, the government signed a memorandum of understanding with the Organization for Security and Cooperation in Europe (OSCE) and several NGOs for ad hoc witness protection. In 2003, five witnesses were relocated to third countries under this arrangement.

Prevention
The government conducted few prevention programs, relying on NGOs and international organizations to carry out such activities. The Ministry of Education and the IOM jointly developed two trafficking awareness manuals for secondary schools. The first phase of the program targeted 36 schools in at-risk regions. The government formed a Child Trafficking Working Group, which drafted a national strategy on child trafficking, and prepared a draft memorandum of understanding with Greece to prepare for the repatriation of child victims in advance of the 2004 summer Olympics.

The Government of Armenia does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Cooperation between police and NGOs increased the number of investigations, and provided police a greater under-standing of international and domestic sources of trafficking. The government should improve legal instruments to create more effective tools for law enforcement and should improve the transparency of its anti-corruption programs.

Prosecution
While prosecution efforts improved and victim identification increased, courts handed down few convictions, and only on related crimes with low sentences. Article 132 of the criminal code, adopted in August 2003, prohibited trafficking in persons for “mercenary purposes” with a maximum penalty for aggravating circumstances of four to eight years of imprisonment. These penalties were not commensurate with other grave crimes, such as rape. Previous reports highlighted trafficking to the U.A.E., and during the reporting period, police investigated suspected trafficking operations to Dubai involving an estimated 90 women. Police initiated two criminal investigations under Article 132 on trafficking in persons and 17 under Article 262 (operating a brothel), nine of which referred to pimping abroad or trafficking in persons for sexual exploitation. The sentences handed down ranged from substantial fines and correctional labor to one year imprisonment. Prosecutors noted a continuing problem with definitional elements and weak penalties; the National Assembly was expected to consider amendments to the criminal code. Corruption was a problem, and two police officers and two airport officials received administrative penalties for abuse of power related to a trafficking operation to the U.A.E. Police conducted in-service training using examples from actual trafficking investigations. The government cooperated with Georgia and the U.A.E. in investigating and apprehending traffickers, including cooperating in the return of a suspected trafficker from the U.A.E. to stand trial in Armenia.

Protection
Law enforcement improved its record of victim identification and referrals to a service-providing NGO. In one operation, police identified eight foreign prostitutes, suspected they were victims and referred them to an NGO for assistance. Armenian NGOs provided most victim assistance, but cooperated well with police. In order to alleviate vulnerabilities of an at-risk group, the government adopted a program to provide apartments to children who graduated from orphanages, and provided assistance to poor families with needy children.

Prevention
Prevention activities increased during the reporting period, especially through the use of mass media. The National Police were featured in several training films and TV shows on trafficking, and the Ministry of Education approved anti-trafficking educational lectures for secondary and university students. In January of 2004, the government approved an anti-trafficking national action plan for 2004-2006. The government contributed the equivalent of $11,000 of its own funds to support the work of the National Anti-Trafficking Commission, and foreign donors provided the remaining funds. The government’s Department for Migration and Refugees conducted extensive outreach on migration issues, which prevented a significant number of individuals from succumbing to trafficking, according to an independent survey.

The Government of Austria fully complies with the minimum standards for the elimination of trafficking. The government was particularly strong in mounting cooperative efforts with authorities from other countries, at both national and sub-national levels, to facilitate the investigation and prosecution of trafficking cases. Austrian authorities should take steps to ensure that convicted traffickers receive heavier sentences.

Prosecution
Austria expanded efforts to punish trafficking in persons in 2003. Several articles in the criminal code specifically prohibit trafficking and trafficking-related situations and impose sufficiently severe penalties. In February 2004, the Austrian parliament adopted an amendment to article 217 of the criminal code that expands the definition of trafficking to include exploitation of labor and the trafficking of organs. Under article 217, the key provision for the prosecution of traffickers, the government prosecuted 223 cases. The most recent conviction statistics, from 2002, indicate that the government filed 70 cases against suspected traffickers under this article, with 27 convictions. Seventeen of these persons spent some time in prison, with the majority serving a year or less. Prosecutors often rely on other provisions that criminalize alien smuggling, due to the difficulty of proving unlawful coercion and deception. Austrian authorities reported 744 prosecutions initiated in 2003 for alien smuggling crimes, some of which may involve suspected traffickers. The Interior Ministry’s Federal Bureau of Criminal Affairs has a division dedicated solely to combating human trafficking. Four Austrian judges specialize in trafficking cases. Austrian law enforcement officials have established contacts with authorities in countries of origin to facilitate the prosecution of suspected traffickers. Because of a rise in trafficked victims from Romania, Austrian police have improved their liaison with Romanian counterparts. The government supports and funds NGO and government sensitivity training for police and other public authorities in Austria and in other countries. In April 2003, the government helped fund the first judicial training program for Stability Pact countries.

Protection
The Austrian Government continues strong efforts to protect victims of trafficking. The government funds NGOs that provide shelter, legal assistance, and health services to trafficking victims. Victims also have direct access to government-funded services, including women’s shelters, located in each province. The Austrian Government commendably provides temporary resident status for trafficked victims. Officials have authority to delay repatriation proceedings pending completion of a court case. Victims of trafficking also have the opportunity to gain permanent residency in Austria. The Austrian Eastern European Cooperation, which forms part of the Austrian Development Assistance Organization, gave 1.7 million Euros to a women’s shelter in Belgrade in 2003.

Prevention
The government worked actively with international and regional organizations (EU, Interpol, OSCE, and UN) and an NGO to carry out preventive programs domestically and throughout the region. The Ministry of Interior developed a new database to assist in tracking victims and perpetrators of trafficking. The Foreign Ministry developed and distributed information packets on trafficking for use in Austrian embassies and consulates in Eastern Europe.

The Government of Azerbaijan does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. A more complete picture of trafficking in Azerbaijan warrants its inclusion in this report for the first time. In the absence of government identification, local and international experts catalogued a significant number of victims trafficked from or through Azerbaijan during the reporting period. The government merits the designation of Tier 2 Watch List because its efforts are in initial stages and progress is expected in the near future. Law enforcement officers were neither trained nor instructed on victim identification and did not adequately investigate trafficking, nor the extent to which government corruption facilitates it. The government should promptly adopt and fully implement its national action plan and undertake and implement necessary legal reform.

Prosecution
Trafficking was not specifically criminalized in the Azerbaijan criminal code. Slavery, rape, coercion into prostitution and inducing a minor into prostitution were used to prosecute trafficking crimes. In the absence of the crime of trafficking, the government reported 23 trafficking-related arrests, 20 of which resulted in convictions with sentences of imprisonment or fines. The government did not provide sentences, but most trafficking-related crimes carry maximum penalties between three to six years’ imprisonment, except rape, which carries a maximum penalty of 15 years’ imprisonment. Corruption was a continuing problem during the reporting period and the government dismissed the chief of a regional passport registration office and two inspectors for issuing illegal citizenship identification cards to several individuals.

Protection
The government had no measures in place to protect victims or to refer them to NGOs. The government provided mandatory health screening and treatment to prostitutes, many of whom fit the trafficking profile. The government did not provide these individuals with information on trafficking, nor did they have a method for systematically referring such information to law enforcement authorities.

Prevention
While the Ministry of Interior coordinated the government’s anti-trafficking activities, international organizations and NGOs conducted the bulk of anti-trafficking prevention. A government working group, under the leadership of international organizations, drafted elements of a comprehensive national action plan. The plan had not been finalized by March 2004. The Ministry of Interior improved its capacity to track potential traffickers and victims transiting through the airport. The government regularly communicated with neighboring governments on transnational crime issues, including trafficking in persons.

The Government of Belarus does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. The government has recognized that trafficking is a serious problem in Belarus and has increased investigative efforts and overall awareness, despite resource constraints. Although more remains to be done, particularly in the area of protection and assistance to victims, the government of Belarus has demonstrated its political will to combat trafficking in persons.

Prosecution
The Belarusian criminal code provides specific penalties for trafficking for the purposes of sexual or other kinds of exploitation, though many prosecutors pursue trafficking crimes under sexual assault, abduction, or recruitment for sexual exploitation statutes. The government convicted 45 individuals for trafficking or trafficking-related abuses, with a majority of sentences ranging from two to five years. The Interior Ministry reported 191 investigations of alleged trafficking, including the trafficking of women abroad for sexual exploitation, the recruitment of women for the purpose of sexual exploitation abroad, and the abduction and recruitment of minors for prostitution. In April 2003, the Interior Ministry dismantled a criminal organization that had trafficked over 400 Belarusian women to Western Europe and the Middle East since 1997. In addition, it broke up 17 organized criminal groups connected to trafficking crimes. In an effort to improve police anti-trafficking operations, the government in 2003 collaborated with an international organization to produce a counter-trafficking operations handbook. Attention to trafficking at the borders has increased, but segments of the border remain largely uncontrolled. Corruption among government officials continues. The government uncovered a trafficking scheme in April 2003 involving two Belarusian officials, who are now under investigation. The Belarusian Government commendably collaborated with foreign governments to pursue trafficking investigations. For example, it assisted law enforcement agencies in Germany, England, Lithuania, Austria, and Poland on nine trafficking cases.

Protection
The Government of Belarus cooperates with NGOs to provide limited assistance to trafficking victims, although it does not directly fund such assistance programs. Belarus authorities did not arrest, fine, or charge victims with prostitution or immigration violations. NGOs reported a sharp increase in victim protection referrals from law enforcement officials, due in part to better awareness and to an increase in the number of trafficking investigations. The criminal code contains procedures for witness protection, but government officials contend that financial restraints limited the government’s capacity to implement those procedures.

Prevention
The government’s recognition of the trafficking problem in Belarus and its efforts to address the issue have increased trafficking awareness among government agencies. The government did not conduct an independent anti-trafficking information campaign during 2003, but state-controlled media outlets have increased news coverage of the issue. Labor and Education Ministry officials coordinated spot checks on organizations that arrange student exchanges and work-abroad programs. The Labor Ministry also continued to monitor and license activities of employment agencies offering Belarusian citizens labor contracts in foreign countries.

The Government of Belgium fully complies with the minimum standards for the elimination of trafficking. The government continued to show a well-coordinated system of protection and law enforcement, leading to numerous prosecutions and convictions. Despite sentencing guidelines allowing for higher penalties, actual sentences imposed by Belgian courts are often light. As a demand country, Belgium would benefit from domestic demand-reduction and awareness programs.

Prosecution
Belgian police continued to take a sophisticated approach to trafficking investigations and obtained a significant number of convictions in 2003. Belgium’s anti-trafficking legislation focuses on international trafficking for the purposes of both sexual and non-sexual exploitation. The law provides penalties for severe forms of trafficking commensurate with those for rape and sexual assault, ranging from one to 15 years of imprisonment with the possibility of life imprisonment for crimes against victims under 10 years of age. Penalties in recent years rarely exceeded eight years. In 2003, the federal police opened 126 new trafficking investigations; 97 involved sexual exploitation and 29 dealt with economic exploitation. Conviction data for 2003 was not yet available. In 2002, courts convicted 130 defendants on trafficking-related charges; prison sentences ranged from three months to eight years, with an average sentence of three years. A large proportion of sentences included fines averaging approximately $5,800. In one notable case in 2003, a judge determined that the exorbitantly high transport fee and extremely exploitative transport conditions of a smuggling case amounted to human trafficking and sentenced the offender to 10 years. The government posted liaison officers in source countries to assist in case development, and signed numerous bilateral judicial agreements, most recently with Thailand.

Protection
The government continued to financially support and refer victims to three specialized trafficking shelters. The shelter staff determines a victim’s status and informs the police. Victims are initially provided a 45-day “reflection” period to consider whether to assist in the investigation of their traffickers; subsequent government protection is directly linked to a victim’s willingness to testify. Residency permits, initially granted for three to six months, are renewable during legal proceedings. The government generally approves long-term residency for victims whose cooperation leads to a conviction. The government repatriates those who choose not to cooperate. Victims may qualify for a humanitarian visa based on a successful showing of hardship upon return. Shelters provide a full range of services, including legal assistance for victims initiating civil suits against their traffickers. The government eased its directive on work permits to allow victims to obtain temporary employment and to change employment without seeking permission. In 2002, the latest year for which statistics were reported, the three shelters reported assisting over 500 victims.

Prevention
The government provided international assistance for preventive education campaigns in source countries; it was weaker with regards to demand-reduction campaigns in Belgium. Belgium funds international organizations conducting regional and global anti-trafficking projects. The government also funds Belgium's independent Center for Equal Opportunity and the Fight Against Racism, which is charged with collecting trafficking data and making recommendations for government action. The King Baudouin Foundation sponsored a major anti-trafficking awareness-raising program in Belgium, which involved the participation of the royal family and the prime minister, and resulted in nationwide media coverage of the problem of trafficking in persons both domestically and abroad.

The Government of BiH does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. The government’s efforts were reclassified from Tier 3 to Tier 2 in September 2003 after it strengthened its law enforcement response and anti-corruption measures. The government successfully took control of policing in 2003 and prosecuted and convicted organized trafficking figures, but the government should increase its prevention activities by squarely confronting the problem of official corruption.

Prosecution
The BiH Criminal Code prohibits human trafficking for the purposes of sexual, labor, and other kinds of exploitation, and prescribes penalties of up to 10 years’ imprisonment, including increased penalties for aggravated circumstances. In March 2004, four defendants operating with a notorious trafficking kingpin were sentenced up to nine years in prison for human trafficking and sexual slavery. Fourteen associates were also charged and placed in detention. These convictions led to the dismantling of one of the largest human trafficking networks in the Balkans. In total, during the reporting period, courts initiated 17 prosecutions against 49 defendants, and handed down 15 convictions, all on trafficking and related crimes. Regrettably, courts imposed very low sentences averaging only a few months. The state level inter-agency Strike Force against human trafficking and illegal migration, in close cooperation with local law enforcement and international police advisors, gathered intelligence and directed investigations. The anti-trafficking National Coordinator established a system of police liaison officers stationed throughout the country to facilitate information-exchange and investigations. Official corruption remained a problem, but the government increased its anti-corruption efforts. In February 2004, Federal authorities arrested the local Interpol Deputy Director on corruption charges.

Protection
In late March 2004, victim referral procedures were formalized into a by-law to the Law on Movement and Stay of Foreigners, but the addition had not yet been made formally binding. During the majority of the reporting period, the police anti-trafficking units made ad hoc referrals to NGOs who offered comprehensive services and shelter. Some law enforcement officials continued to criminally detain and remove potential trafficking victims without instituting proper screening or referral. In general though, the government improved its protection of victim witnesses. In a major prosecution, the government relocated six witnesses to third countries. Humanitarian visas were issued to provide victims with temporary residency, but the government had not reported official numbers of recipients.

Prevention
Responding to criticisms that it failed to prioritize and coordinate efforts at the state level, the government instituted a National Coordinator’s Office to report directly to the BiH Council of Ministers. In December and February, the National Coordinator’s Office trained police officers, judges, prosecutors and State Border Service (SBS) Agents. The training sessions focused on international and domestic anti-trafficking laws, victim identification and assistance, child trafficking, and case development. The SBS prevented several illegal border crossings and referred potential victims to IOM for screening. The government did not sponsor public awareness or educational campaigns.

The Government of Bulgaria does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. The government passed the Law on Combating Trafficking in Human Beings, which criminalizes trafficking and provides comprehensive victim assistance. The government should vigorously implement the new legislation, and strengthen its efforts on prevention.

Prosecution
New anti-trafficking legislation criminalizes all forms of trafficking in persons and fulfills international obligations. Potential prison sentences range from 5 to 15 years and property may be confiscated. The courts sentenced one person to 12 years’ imprisonment for acts relating to trafficking. The government reported six prosecutions against 13 defendants under the new legislation. The Anti-Trafficking Task Force headed by the Ministry of Interior’s National Service for Combating Organized Crime (NSBOP) gathers intelligence on trafficking. Official corruption impedes Bulgaria’s efforts, and the Prosecutor’s Office launched 399 investigations against police officers, resulting in indictments against two officers for human trafficking charges, three for rape, and one for forced prostitution. The government assigned nine criminal liaison officers to destination countries. Although joint investigations were conducted, no information was available to confirm any resulting prosecutions.

Protection
NGOs continued to provide the bulk of victim assistance in Bulgaria. With a grant from Germany, the State Agency for Child Protection cooperated with the IOM to train local experts and to monitor the reintegration and provision of services for child trafficking victims. In early 2004, the government passed regulations authorizing the establishment of shelters and centers for victims’ assistance and protection. The Ministry of Interior identified 104 trafficking victims in 2003, and referred 86 of them to IOM. The new law provides foreign victims with the possibility of special residency status if they are willing to cooperate with police. Witnesses may remain in Bulgaria as long as their assistance is required and are provided with access to government work and education programs. Victims unwilling to cooperate may remain in country for 40 days, with the possibility of extension for children. The government has not provided information as to implementation of these provisions.

Prevention
The government implemented numerous training sessions for law enforcement personnel and the media throughout 2003. As part of the Employment Protection Act, the Ministry of Labor and Social Policy implemented projects to address unemployment among at-risk populations for trafficking. The National Committee is intended to implement and coordinate activities between state bodies, local authorities and NGOs; however, the government provided no reports on its activities.

The Government of Croatia does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Croatia is on Tier 2 Watch List due to lack of evidence of sufficient progress from the previous year, especially in supporting the National Committee for the Suppression of Trafficking in Persons (the Committee), and in victim identification. While the government achieved its first trafficking-related conviction and provided some funds for a new trafficking shelter, it should be more proactive in all areas of anti-trafficking efforts, including providing sufficient financial and political support for the Committee. The government should also more vigorously investigate trafficking and pursue cases in a transparent and accountable manner.

Prosecution
Croatia’s ability to identify victims and follow through with appropriate law enforcement actions remained inadequate. Croatia does not specifically prohibit trafficking in persons, but prohibits related crimes such as slavery, international prostitution and illegal human transport, which carry penalties of from three months to 10 years. In December, for the first time, a Croatian court sentenced a defendant to three years in prison for slavery and importation of prostitution. In the past year, the government initiated 30 trafficking-related investigations on suspicion of illegal migrant smuggling, international prostitution, and slavery. Under the leadership of the IOM and domestic NGOs, 150 judges and prosecutors were trained to recognize, investigate, and prosecute trafficking cases. Two hundred and fifty police officers were trained through regular in-service training or through specialized courses on trafficking-recognition. The government provided some information to border guards on detection of trafficking victim identification.

Protection
The government’s support for victim protection improved during the reporting period, though financial assistance was minimal. The Croatian Parliament passed a Law on Foreigners that permits trafficking victims to apply for temporary residency status for 90 days, renewable for up to two years. The government, working with NGOs, supported a shelter for trafficking victims and three reception centers to accommodate victims on a temporary basis. The Ministry of Labor and Social Welfare signed a specific memorandum of understanding with IOM on victim protection and assistance. The government funded the operating costs for a national SOS hotline devoted solely to trafficking. The government was developing regulations for implementation of a new witness protection law that entered into force on January 1, 2004.

Prevention
The government did not provide sufficient financial support for anti-trafficking activities nor did it provide adequate institutional support for the Committee. The Committee held only four meetings since May 2002. The newly elected government came into power in December 2003 and, as of March 2004, had not assigned the new members of the Committee. The former government formed a lower-level “Operational Team” to support the Committee, but it met infrequently with few concrete results. The government relied on NGOs to carry out most activities listed in the national action plan. The Ministries of Labor and Interior conducted training sessions for staff that included components on trafficking. The government provided limited funding for two NGOs to conduct general awareness raising activities regarding trafficking.

Cyprus is a destination country for women trafficked from Eastern Europe, primarily Ukraine, Romania, Moldova, Russia, Belarus, and Bulgaria for the purpose of sexual exploitation. Traffickers who forced women into prostitution generally recruited their victims to work as dancers in cabarets and nightclubs on short-term “artiste” visas, for work in pubs and bars on employment visas, or for illegal work on tourist visas.

The Government of Cyprus does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Cyprus is included in this year’s report due to evidence of significant trafficking from source countries, advocates in Cyprus and the Ombudswoman’s 2003 trafficking report. Cyprus is on Tier 2 Watch List because its efforts against trafficking are based largely on the government’s commitments to implement the Ombudswoman’s recommendations in the near future. The government’s efforts were underway at the close of the reporting period. The government should focus specifically on understanding the nature of the problem better and developing a partnership with NGOs to improve victim identification and support.

Prosecution
Cyprus’ comprehensive anti-trafficking law prohibits trafficking in women and children across international borders for the purposes of sexual exploitation and prescribes punishment of up to 20 years’ imprisonment. The law is gender-specific and does not address internal or labor trafficking. Officials pursued isolated cases of trafficking under forced prostitution and related crimes. In March, Cypriot courts convicted four individuals of forcing women into prostitution. Late in the reporting period, Cypriot police established the Office of Trafficking and Cyber-crime and the Human Trafficking Prevention Unit. Neither entity had sufficient time to measure successful results. In December, the government signed a legal cooperation agreement with Bulgaria dealing with international crime and trafficking.

Protection
Anti-trafficking legislation provides protections for women and child trafficking victims, but such protections have rarely been mobilized. Anti-trafficking legislation designates the head of the Welfare Department as the “Guardian of Victims,” but the government did not identify specific resources for trafficking victims. During the reporting period, three victims were referred to the Welfare Department, and were offered general assistance. Like other foreign workers, “artistes” are required to undergo a medical exam upon arrival and renewal of their visas, but “artistes” must additionally be tested for sexually transmitted diseases. Towards the end of 2003, police began bringing “artistes” to district police stations for personal interviews without employers present, and they increased checks on cabarets. Such efforts were intended to expand opportunities to this vulnerable group to file complaints that would enable police to initiate investigations. The law provides victims the right to seek compensation, shelter and medical care, as well as to change employers or have a guardian appointed.

Prevention
In an attempt to prevent the exploitation of “artistes,” the government gave arriving “artistes” information sheets, available in several languages, explaining their rights and obligations and providing emergency information, but it had no anti-trafficking programs targeting other vulnerable groups, nor the public at large. The Ombudswoman’s report generated brief media attention and some ongoing inter-ministerial dialogue. The Attorney General’s office coordinated the work of the anti-trafficking Group of Experts, which included representatives from relevant ministries, police and NGOs. The Group of Experts was formulating a national strategy for official approval during the reporting period.

The Government of the Czech Republic fully complies with the minimum standards for the elimination of trafficking. In 2003, the government approved a National Strategy of Combating Trafficking in Human Beings for the Purpose of Sexual Exploitation, cooperated extensively with European governments in investigating and prosecuting trafficking cases, conducted strategic studies on the nature of trafficking in the Czech Republic, and launched a pilot program to improve victim assistance. But convictions and sentences remain low. Czech authorities should use trafficking legislation to give stronger penalties to convicted traffickers. The government should also expand the victim assistance pilot program nationwide, as planned, and provide the necessary funds. The Czech Government is considering the submission to its Parliament of a legislative proposal to regulate prostitution, which can contribute to the phenomenon of trafficking for sexual exploitation.

Prosecution
The Government of the Czech Republic specifically criminalizes the trafficking of individuals for the purpose of sexual exploitation, and the Cabinet has recently approved for submission to Parliament criminal code amendments to criminalize other forms of trafficking, such as trafficking for forced labor. Currently, Czech authorities prosecute forced labor cases under human-smuggling provisions. A special division of the Organized Crime Investigation Unit of the State Police is specifically trained and dedicated to trafficking crimes. This unit is authorized to use special investigative techniques such as electronic surveillance and undercover operations. During the reporting period, Czech authorities arrested 19 and convicted five other individuals under trafficking statues. Of the five convicted, only one received a prison sentence of one to five years; four received conditional sentences, akin to suspended sentences. Czech authorities also arrested 103 and convicted 80 individuals under pimping statutes, some of whom may be involved in trafficking. No government officials were indicted or convicted for corruption in connection with trafficking, but NGOs have reported victims’ concerns about the involvement of individual border police officers facilitating border crossings for traffickers. The Czech Government cooperated extensively with other Central and Eastern European governments in investigating and prosecuting trafficking cases. The Czech Republic participated in seven cooperative international investigations in 2003, and efforts with Austria, Germany, and Spain resulted in trafficking convictions. The Ministry of Justice extradited 117 individuals during the reporting period, some of whom were extradited on trafficking charges to Austria, Germany, Bulgaria, and Serbia and Montenegro.

Protection
Under the current Czech system, victims who are willing to cooperate with police may be granted temporary residence in anonymous safe houses run by NGOs, a work permit, and access to social assistance. The government provided funding to NGOs to help victims find shelter and healthcare assistance. The Czech Republic’s primary NGO on trafficking issues provided shelter and care to 30 victims and counseling to 350 victims in 2003. During the reporting period, some victims were treated as illegal immigrants and expressed fear of testifying due to safety concerns. In a major effort to address these issues and improve victim protection, the Czech Republic launched a victim assistance pilot program in October 2003 that is expected to go nationwide following a six-month trial period and evaluation. Under this pilot program, currently involving 10 individuals, trafficking victims receive a 30-day grace period for assistance and counseling during which a victim can decide whether to cooperate with the Czech police. Foreign victims who choose not to cooperate will be offered voluntary return to their home country. The Czech Government’s initiation of the victim assistance pilot program is currently funded by the UN, but the Czech Government plans to fund it following the trial period. The government continued to fund a local branch of an international organization to assist victim repatriation.

Prevention
Partially funded by the Ministry of Justice, NGOs continued the successful primary and secondary school effort to educate Czech youth about the risks of working abroad and the ways that traffickers entrap women. The Foreign Ministry trained some consular officers in trafficking awareness and cooperation with NGOs. Czech consular officers in Romania, Bulgaria, Russian, Ukraine, and Kazakhstan ran joint projects with an international organization to make certain visa applicants aware of the risks of trafficking. The Czech Republic helped sponsor trafficking-related projects abroad, including a victim shelter in Moldova and an information campaign in Bosnia and Herzegovina. The Czech Republic approved its National Strategy of Combating Trafficking in Human Beings for the Purpose of Sexual Exploitation in September 2003. The Czech Government signed a bilateral agreement with the Slovak Republic in January 2004 on joint border control that allows for greater exchange of information on cross-border crime, including trafficking. The Czech Republic has also instituted a new visa foil with increased security features.

The Government of Denmark fully complies with the minimum standards for the elimination of trafficking. The government demonstrated appreciable progress in the areas of protection and prevention, but needs to undertake more vigorous anti-trafficking law enforcement efforts.

Prosecution
Denmark has a trafficking in persons law criminalizing both sexual and non-sexual exploitation that came into effect in June 2002. The Danish Government did not make its first arrests under the law until December 2003, when police arrested five men on trafficking and pimping charges. The trial of the five men plus one additional suspect began in April. Danish authorities reported no convictions during the reporting period. Under Danish law, penalties for trafficking are sufficiently severe, and the government provides specialized training to police officers to identify and combat trafficking and assist victims. Denmark cooperates with other governments and with organizations such as Europol, Eurojust, Interpol, Council of the Baltic Sea States, and the Police and Customs Cooperation in the Nordic Countries to investigate trafficking.

Protection
The Government of Denmark improved its protection of victims under its national action plan to Combat Trafficking in Women. The government provided partial funding to an NGO to provide shelters for foreign trafficking victims. These shelters provide security and access to professional services prior to repatriation. Consistent with the government’s action plan, the NGO has begun to develop an international network of NGOs to provide better and safer repatriation services. A formal process is in place to transfer victims from police detention to NGO shelters. Danish law allows a 15-day legal stay for trafficking victims. Police rescued 14 victims from the Czech Republic, Bulgaria, and Romania. Of these 14 victims, only five accepted the 15-day stay; the rest chose to be immediately repatriated. The government encourages victims to testify in court against traffickers. According to police, a witness can provide recorded testimony usually within days of a trafficker’s arrest, and this testimony can be used as evidence in a trial.

Prevention
The Danish Government continues to strengthen its prevention efforts. The national action plan to Combat Trafficking in Women was published in December 2002 and became fully effective in October 2003. Under the plan, the government and several NGOs published anti-trafficking advertisements in major newspapers that provided a hotline telephone number for victims and the public that would reach multilingual operators. The hotline provides information on support services, Danish laws, and guidelines on repatriation related to victim services. In the first seven months of operation, the hotline received 254 calls or e-mails. Also under the action plan, a government-supported NGO hired five employees to locate foreign prostitutes, collect information, and provide information on services. The government allocated an annual amount of $1.7 million to the action plan for the first three years.

The Government of Estonia does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. The government is placed on Tier 2 Watch List for lack of evidence of progress. High-ranking government officials condemned trafficking during the past year, but were slow to support such statements with institutional support or priority. The government should identify relevant focal points in each ministry and promptly establish a referral system for victim assistance, protection and increased outreach.

Prosecution
The government's prosecution record was unchanged from the previous reporting period. Trafficking in persons is prohibited in Estonia under related criminal articles on enslavement and abduction, with basic penalties of one to five years’ imprisonment and increasing penalties up to 12 years for aggravated circumstances. Prosecutors prepared the government’s very first trafficking case for trial during the reporting period, but as of April 2004, the trial had not commenced. The government conducted four abduction and enslavement investigations, and convicted eight organized crime figures for organized prostitution. A new police anti-trafficking task force investigated organized prostitution rings with trafficking-related elements. The government cooperated with neighboring countries on transnational and organized crime, and cooperated with at least one destination country prosecuting an Estonian trafficker in its jurisdiction.

Protection
The government increased its funding to crime victim programs, which would be applicable to trafficking victims, but no trafficking victims reportedly benefited from such protections. The government’s new Crime Victims Compensation Act of 2003 enlarged the system of victim support and increased the amount of compensation the government could provide victims. The three Baltic States made a joint agreement on witness protection, and the 10 Baltic Sea States agreed to a region-wide witness protection program, which could apply to trafficking victim-witnesses. The government did not institute a referral system to NGOs for assistance, shelter or repatriation, although victims would be entitled to support under general (non-trafficking-specific) assistance programs.

Prevention
Estonia’s efforts were slow and the government did not finalize a central strategy on prevention or law enforcement during the reporting period. The government led public discourse over the link between trafficking in persons and prostitution to determine a strategy for future action, but it did not institute a policy or plan during the reporting period. The National Anti-Trafficking Roundtable was formed as an informational clearinghouse and a central coordinating body with responsibility for drafting a national action plan. Lack of inter-agency coordination and identification of relevant focal points in each ministry hindered concrete actions. Funded by the Nordic-Baltic Campaign Against Trafficking in Women, the Ministry of Social Welfare conducted training and awareness-raising for social workers and schools nationwide. The Ministry of Social Welfare appointed two employees to coordinate the training sessions and support the National Roundtable. The Ministry of Foreign Affairs participated in various international anti-trafficking activities, including the Council of Europe and regional fora.

The Government of Finland does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. The government’s efforts improved in the past year, likely due to focused attention from the highest levels and stronger regional and bilateral programs. The lack of a criminal definition and institutionalized victim protections continued to hinder the government’s progress, but improvement is expected with implementation of pending anti-trafficking legislation. The government should better educate the public about trafficking in Finland, especially focusing on the profile of a victim. Moreover, government efforts would benefit from an established a memorandum of understanding regarding information exchange and victim referral with NGOs.

Prosecution
Finnish law enforcement approached trafficking as organized prostitution and adeptly profiled the crime groups involved and cooperated within police services. But it did not evidence vigorous law enforcement nor did it provide any comprehensive statistics on its efforts. Law enforcement efforts suffered from the lack of a criminal statute on trafficking in persons. While some related criminal acts were prohibited, such as pimping, rape, fraud and sexual exploitation of a minor, the criminal code lacked other important elements. A specialized working group drafted new anti-trafficking criminal legislation to bring Finland in line with regional international standards. Border police made numerous arrests against organized prostitution rings, which resulted in court convictions from six months to one year’s imprisonment. Finland provided criminal liaison officers in targeted source countries to enhance joint investigations and two regional investigations in early 2004 led to the disruption and arrest of several individuals trafficking Latvian and Estonian women into Finland. The government exercised extra-territorial jurisdiction over two Finnish nationals and arrested them for child sexual abuse in Estonia and Russia during the reporting period.

Protection
Finland has strong victim’s rights laws, but lacks adequate victim assistance mechanisms; the government did not conduct widespread victim screening and rarely informed potential trafficking victims of such options. In some instances, the government offered potential victims the right to temporary residency in return for cooperation, but there was no referral system and, as a general rule, Baltic nationals were released without assistance, while Russians and others were deported. In a notable effort to improve, the government appointed a special rapporteur to analyze and provide recommendations for creating effective protection mechanisms for trafficking victims, and it withheld deporting the victims identified in police actions in the past year. The government funded the Nordic-Baltic Task Force on Trafficking in Persons to develop a specific regional protection and prevention initiative in Russia. Border guards were trained to identify organized prostitution crimes, and to offer women profiled in such a category the opportunity to speak out against their traffickers.

Prevention
The government focused its prevention efforts on border control and profiling of potential victims at points of entry. The government co-sponsored a major conference on child trafficking in June and partially funded the new Nordic-Baltic Task Force. The Ministry for Social Affairs ran an anti-trafficking campaign focusing on demand-reduction. During the reporting period, the government provided funding from slot-machine revenues to NGOs for services such as a phone hotline for abused or battered women and a rape crisis center. Such programs provided the potential for outreach to at-risk groups.

The Government of France fully complies with the minimum standards for the elimination of trafficking. France passed comprehensive anti-trafficking legislation in 2003 and arrests for trafficking offenses rose during the reporting period, but convictions under new trafficking legislation were not yet finalized and enforcement could not be measured. The French Government should cooperate with Brazil on combating sex trafficking of Brazilian women to French Guiana and investigate the extent, if any, of trafficking in its other overseas territories.

Prosecution
The government reinforced its anti-trafficking police investigation team and strengthened inter-national cooperation. France’s anti-trafficking law criminalizes trafficking for sexual and non-sexual exploitation, with penalties of up to seven years in prison and a fine of about $190,000. Penalties for soliciting child prostitutes range up to 10 years. Trafficking-related sentencing guidelines, such as rape, and the sentences for some types of trafficking convictions were light. The exploitation of foreign labor and exposing laborers to inhumane conditions were criminal offenses under other statutes. Employers could be punished by up to three years’ imprisonment or substantial fines. In 2003, France’s special anti-trafficking police unit arrested 709 individuals on trafficking-related charges, an increase of 66% over the previous year. The organizers of 32 trafficking networks were arrested, including 15 large-scale organized prostitution networks. Police arrested 67 adults for organizing child prostitution and begging after two child victims provided information to counselors. While conviction statistics had not yet been reported for 2003, records from 2002 revealed over 300 convictions for trafficking-related crimes, with maximum sentences of nearly 5 years’ imprisonment. The government increased funding and staff for its specialized anti-trafficking police unit. The Paris Prefecture created a special investigative unit to deal with trafficking networks. The government cooperated actively with other countries, such as Bulgaria.

Protection
The government continued to screen and refer victims to counseling centers and safe houses for comprehensive services. The government offered victims three to six months’ renewable temporary residency according to an assessment of needs and cooperation with police. Cooperating victims were guaranteed a residency extension; if cooperation led to a conviction, a 10 year extension could be granted. In 2003, the government reported that 120-140 victims were granted temporary residency in return for providing information to police. Child victims were assumed to be in danger and provided immediate shelter while the government determined the child’s long-term best interests. French police worked closely with NGOs to which it referred prostitutes for screening and assistance. The government funded a special reintegration program with Bulgaria to repatriate Bulgarian victims who were placed with an NGO in Bulgaria for shelter and assistance.

Prevention
The government focused outreach and prevention programs on domestic prostitution and sex tourism abroad. The Prime Minister’s inter-ministerial commission on clandestine workers and illegal labor continued its work, and a new inter-ministerial working group on sex tourism began work on recommendations for the Tourism Ministry. In 2003, Air France, a government-owned carrier, provided a portion of the in-flight duty-free sales of toys, amounting to almost $350,000, to an international NGO conducting awareness programs on child sex tourism. The government provided funding to NGOs conducting outreach to women in sexual servitude, and to organizations fighting child prostitution. The government also funded trafficking prevention programs in Central and Eastern Europe and West Africa. Within the EU, the government supported anti-trafficking programs, including information campaigns, seminars, bilateral training programs for police units and lawmakers, and assigned criminal liaison officers throughout Europe to identify trafficking networks.

The Government of Georgia does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Georgia has been placed on Tier 2 Watch List because of its failure to provide evidence of increasing efforts to combat severe forms of trafficking in persons compared to the previous year, and its commitment to take future steps over the next year. Georgia’s efforts were recognized by its Tier 2 classification in September 2003 following targeted law enforcement actions and increasing public awareness activities. During the latter part of the reporting period, a new government came into power. The changeover in government required reconstituting most government-supported mechanisms. The new government is expected to respond more effectively to institutional weaknesses and corruption which hindered the previous government’s anti-trafficking efforts. The government should create a formalized referral system to NGOs, ensure consistent resources for police and improve protection of victim identity in public fora.

Prosecution
Article 143 of the criminal code prohibits trafficking in persons and Article 172 prohibits trafficking in minors, both for the purposes of sexual, labor and other forms of exploitation. Both articles provide for basic penalties from 5-12 years’ imprisonment, with maximum penalties of 20 years for aggravated circumstances. Experts were revising these articles during the reporting period in order to strengthen the terms and provide victim protection, but passage of draft amendments was expected to require additional time. District prosecutors were investigating two cases of trafficking in women to Turkey for sexual exploitation and the two defendants were placed in pre-trial detention. During much of the reporting period, the Ministry of Interior’s anti-trafficking unit focused on illegal adoptions rather than trafficking as understood in the international instruments. The two-year-old unit lacks government resources to adequately operate.

Protection
The government did not have a formalized referral mechanism for victim protection, nor did it provide protection or assistance. Due to the scarcity of resources, it relied on the expertise of international organizations and NGOs, but few victims were recognized for assistance. While injured party rights during criminal proceedings were theoretically available to victims, they were not commonly used.

Prevention
The government participated in several prevention programs, including broadcasting a trafficking documentary, but its focus weakened during the latter part of the reporting period. The National Security Council, under the new government, retained the responsibility for trafficking policy and formed a new high-level working group that met in February 2004. The working group established a Coordinating Council to meet bi-weekly at the Public Defender’s Office. The Public Defender’s office previously coordinated the operation of a trafficking hotline, but this hotline was discontinued for lack of funding. Border guards monitored migration patterns, but did not focus specifically on trafficking patterns and did not disseminate prevention information to potential victims. Police, prosecutors, hotline operators and National Security Council officials cooperated with NGOs to conduct regional training sessions on trafficking prevention and identification. The Public Defender’s office ran a training session for airport personnel funded by a foreign donor.

The Government of Germany fully complies with the minimum standards for the elimination of trafficking. In the area of prevention, the German Government established a new program during 2003 to fund development projects overseas to combat trafficking in women. German authorities made many trafficking convictions, although the government should consider changes in criminal law, within European Union (EU) guidelines, which would lead to harsher sentences for convicted traffickers.

Prosecution
The German criminal code contains provisions specifically prohibiting trafficking in persons for sexual exploitation. Forced labor trafficking is pursued under crimes against personal freedom. The penalty for trafficking for the purposes of sexual exploitation is commensurate with penalties for other serious crimes, including sexual coercion/rape, kidnapping, false imprisonment, and crimes against personal freedom. German authorities actively investigate cases of trafficking and employ a full range of investigative techniques including wiretaps, electronic surveillance, undercover operations, and mitigated punishment for cooperating suspects. The Federal Office for Criminal Investigation has a special trafficking-in-persons team that promotes international law enforcement cooperation, offers a two-week seminar on trafficking for police and border patrol officers, and publishes an annual trafficking in persons report. The latest available law enforcement statistics, from 2002, indicate 289 pre-trial investigations of trafficking for sexual exploitation and 159 convictions (up from 148 convictions in 2001). Although the government reported that 151 defendants received a prison sentence from one month to 10 years, 87 received suspended sentences. German courts routinely suspend sentences of up to two years for most crimes, particularly for first-time offenders and where no aggravating circumstances are present, but offenders are subject to strict parole conditions. There was no official evidence of government involvement in or tolerance of trafficking in persons, although a recent trial of Ukrainian alien smugglers raised serious questions about the German Government’s tourist visa issuance policy in Eastern Europe from 2000 to 2003.

Protection
Germany has a wide range of protections for victims including a four-week “reflection” period. If victims testify against their traffickers, deportation is temporarily suspended and victims are granted “temporary toleration.” With this status, victims can obtain temporary work permits for the duration of the trial, and victims with injuries due to crimes of violence can receive compensation under the Victims’ Compensation Act. Police refer trafficked victims to 25 mainly state-funded counseling centers and 12 NGOs. They provided trafficking victims with assistance, counseling, and protection. Due to a lack of funds, four women’s counseling centers in Hesse were closed in 2003. The most recent statistics, from 2002, indicate that 104 women were granted “temporary toleration” and 35 remained in the witness protection program. Once the victims are no longer required as witnesses, they must be repatriated unless there is a suspicion of imminent danger to the victim under the Aliens Act. The government continued to fund basic victim repatriation costs through the IOM.

Prevention
Germany’s Federal Government continued to focus on reaching potentially trafficked victims before they enter the country. In 2003, the Federal Ministry for Economic Development began funding trafficking projects. The projects were developed and executed by a government-owned corporation, and included information campaigns with brochures and posters in several Eastern European countries. Awareness training seminars were conducted with police officials from source countries. Other education campaigns included conferences on the problem of sex tourism and publications on sex tourism by government-funded think tanks. Additionally, Germany and the Czech Republic, which is a major destination country for German sex tourists, have joined forces in a counter-trafficking working group consisting of high-ranking officials. Germany participates in and provided funding to the Task Force on Trafficking in Human Beings under the Stability Pact for South Eastern Europe, and to the trafficking unit of the Organization for Security and Cooperation in Europe (OSCE) Office for Democratic Institutions and Human Rights.

The Government of Greece does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Greece was reassessed as Tier 2 in September 2003 after releasing significant funds to NGOs for prevention and assistance, and taking targeted law enforcement actions. It is placed on Tier 2 Watch List this year for failure to finalize promised actions, most notably regarding protection. The government should fully implement the Presidential Decree to cease the detention and removal of victims and should finalize the protocol with Albania on the return of child victims.

Prosecution
Greek Law 3064/2002 criminalizes trafficking in persons for sexual exploitation and forced labor, with penalties commensurate with that for other grave crimes, such as rape. In 2003, the government reported arresting 284 alleged traffickers, rescuing 93 potential victims, and securing 69 criminal convictions on trafficking-related charges. No convictions were yet reported under Law 3064 and sentences under related charges were not reported. Notable arrests focused on sex trafficking rings involving adult and minor victims in sexual exploitation. The Athens City Council reported closing a bar due to the owner’s involvement in trafficking. Some police took bribes from traffickers and patronized establishments implicated in trafficking. With the prosecution’s dismissal of its case against a police officer accused of having sexual relations with a trafficked woman, the government reported no actions against government officials.

Protection
The government’s legal mandate on victim protection stems from Presidential Decree 233/2003, signed in August 2003. The government provided the equivalent of $1.4 million to Greek and foreign NGOs for protection programs, but the implementation of the Presidential Decree had not progressed to the point of providing residency for victims illegally present in Greece. Lack of status severely hampered NGO ability to fulfill the Presidential Decree’s mandate for victim services. The government reported releasing approximately 300 victims in anti-trafficking raids, and one NGO shelter reported assisting 30 victims. Because the government could not provide status, and because it did not conclude a memorandum of understanding (MOU) with NGOs on victim assistance and referral, police made ad hoc referrals for victims with legal status only. Police cooperation with NGOs for adult victims with legal status improved, but child victims over the age of 13 were subject to mandatory removal from Greece as unaccompanied minors. These removals were not coordinated with source countries. Despite earlier plans to do so, the government had not yet amended its policy for removals to Albania. The police produced a multi-lingual “know-your-rights” leaflet for victims which was distributed to police stations throughout the country.

Prevention
While the Ministry of Health was formally tasked with anti-trafficking coordination, the Ministry of Foreign Affairs informally coordinated anti-trafficking policy through an inter- agency task force. Part of the government’s funding to NGOs was targeted to prevention programs, but there were no demand-oriented prevention activities. The government funded the production of an informational leaflet aimed at the general public, as well as media announcements on the trafficking of women and children. Some medical students used government-funded leaflets on trafficking when conducting their sexual education courses at secondary schools.

The Government of Hungary does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. While the government has sharpened its focus on trafficking issues, in practice, victim assistance remains weak. The country lacks a formal process for enforcement officials to identify victims, refer them to NGOs, and ensure they receive adequate services. The government should train border officials to better distinguish trafficking from smuggling, and to interview victims more effectively. Additionally, the Hungarian Government should improve trafficking data collection efforts.

Prosecution
Trafficking is criminalized in Hungary with sufficiently severe penalties. In 2003, Hungarian authorities arrested nine suspected traffickers. The Hungarian Prosecutor’s Office prosecuted 22 individuals under the trafficking in persons law; 18 of the 22 were convicted. Of the 18 convict-ed, authorities sentenced 12 to prison; the others were given suspended sentences. Additionally, the Interior Ministry in 2003 investigated 22 new trafficking cases. Trafficking-related corruption remains a problem. The government established the International Center for Cooperation in Criminal Affairs to better facilitate cooperation with foreign law enforcement agencies. It is also working to revise bilateral cooperative agreements on combating organized crime, coordinating with Europol via a liaison officer and, participating in organizations such as the Southeastern Cooperative Initiative (SECI), the Stability Pact, and the Council of Europe.

Protection
The Government of Hungary provides limited assistance to trafficking victims. Victims who cooperate with police and prosecutors are entitled to assistance such as temporary residency status, short-term relief from deportation, and access to shelter. In practice, services are limited and not generally provided to victims. Border guards often fail to distinguish between trafficking in persons and migrant smuggling. Trafficking victims are often detained, deported, or prosecuted for the violation of other laws, such as those relating to prostitution or illegal immigration. The Victim Protection Office—established by the Ministry of Interior—operates in 46 localities, but assisted only six trafficking victims in 2003. Hungarian consular officials are provided training in counter-trafficking. Repatriated victims have rights to the range of social services available to all Hungarians, but no specialized assistance or support is provided.

Prevention
The government provides modest funding for prevention programs. With the assistance of the IOM, the Education Ministry continued to implement a national prevention program in secondary schools, but no statistics indicate the number of schools that use the anti-trafficking materials. The National Crime Prevention Center established a task force in June 2003 to collect and analyze trafficking data. The Government of Hungary has not yet adopted a national strategy on combating trafficking in persons.

The Government of Italy fully complies with the minimum standards for the elimination of trafficking. The government worked closely with regional partners and source countries to combat trafficking and provided the majority of funding for victim assistance programs within Italy. Despite the government’s notable achievements, the magnitude of the trafficking problem appeared to remain constant, if not continue to grow. As such, the government should focus on education campaigns within Italy that address the growing demand. Moreover, the government should ensure its new anti-trafficking law is vigorously implemented and should review implementation of immigration laws to ensure it is not compromising protections afforded to trafficking victims.

Prosecution
Italian law enforcement officials enforced anti-trafficking laws, but their approach conflated trafficking and illegal immigration. In 2003, the government criminalized trafficking and increased penalties for offenders to a range of eight to 20 years’ imprisonment. In 2003, police arrested 128 people on charges of enslavement, trade of slaves, smuggling and trafficking in minors for prostitution. Italy formalized anti-trafficking law enforcement cooperation with several countries, including Libya and Germany, and joint actions with those countries led to 23 arrests of suspected traffickers. Available prosecution statistics from 2002 show 21 convictions for offenses including enslavement, trade of slaves, smuggling and trafficking in minors for prostitution. Italian law enforcement and judicial authorities were compiling a statistical profile of sentences conferred on traffickers at the time of this report. Italy also conducted joint border patrols with Slovenia and trained police forces in Albania.

Protection
The Italian Government funded and supported victim referral to NGOs providing shelter and comprehensive services. The new trafficking legislation created a separate budget category for victim assistance programs and the central government provided 70% of this budget in 2003. The government provided assistance and temporary residence and work permits to victims, which could be renewed or converted to permanent residency under certain conditions. Minor victims were automatically eligible for residency. The government provided 848 temporary residence permits to trafficking victims, although NGOs complained that officials in some locales used access to residency permits to pressure victims into cooperating with law enforcement. According to NGOs, tougher immigration laws prompted authorities to deport illegal immigrants without first determining whether they were trafficking victims. In 2003, the government funded voluntary repatriation and six month reintegration assistance for 47 victims.

Prevention
Italy cooperated both regionally and bilaterally with source countries to combat trafficking and illegal migration, but it fell short in addressing the domestic demand for trafficking victims. The government used its EU presidency to create a coordination mechanism between trafficking source and destination countries, and proposed the EU’s Council Directive on Trafficking. In Italy, the Department for Equal Opportunity continued its toll-free hotline for victims. It funded an IOM information campaign aimed at current and potential victims. Italy signed a Memorandum of Understanding with Nigeria to coordinate anti-trafficking efforts.

The Government of Kazakhstan does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Kazakhstan was reassessed as meeting the standard for Tier 2 placement in September 2003, after the government took significant actions to combat trafficking in persons, to include the adoption of anti-trafficking legislation and the establishment of law enforcement guidelines. The government remains listed on Tier 2 because of continued progress during the reporting period; it has been placed on Tier 2 Watch List to permit tracking of near-term actions mandated in the February 2004 National Plan of Action to combat trafficking in persons. The government has convicted traffickers under its new anti-trafficking legislation passed in mid-2003. The government does not face the severe resource constraints of its neighbors, and thus should increase funding for prevention and protection efforts. It should also seek longer prison sentences for convicted traffickers and adopt the Law on State Social Assistance to better fund protection and prevention efforts. The plan obligates ministries, agencies, and regional governments to use discretionary funds to, among other things, provide anti-trafficking information in mandated school curricula and conclude formal agreements with victim crisis centers.

Prosecution
The Government of Kazakhstan criminalizes trafficking with penalties of one to 10 years in prison. Kazakhstani authorities conducted nine trafficking investigations. Four of these were closed or discontinued, two are ongoing, and three have been suspended. The government also prosecuted and convicted four individuals during the reporting period and has initiated a fifth prosecution. One individual was convicted under the new legislation and sentenced to three years’ probation. A second individual was convicted for organization of illegal immigration and received one year of probation. The third and fourth individuals were convicted under multiple charges, and sentenced to four and three years’ imprisonment, respectively. While this record demonstrates appreciable progress over the past reporting period, the number of convictions remains low and sentences often do not reflect the seriousness of the offenses. Official corruption remains widespread, but no instances of government complicity in trafficking-related crimes have been reported. The Ministries of Interior and Justice established national hotlines for citizens to report corruption by officials and other instances of unlawful behavior. During the past year, the government cooperated on trafficking investigations with the United Arab Emirates, Turkey, Uzbekistan, and Tajikistan.

Protection
During the September 2003 reassessment, the government announced the establishment of a victim referral system, though it was employed for only 15 victims during the reporting period. The government specifically named an Almaty-based NGO as the official NGO for referral. In about one-third of the country’s regional districts, police departments and NGOs have developed and formalized cooperative relationships to assist victims, conduct training, and investigate cases. Informal cooperative relationships exist in almost all of the 16 districts. In three districts, the lack of effective local NGOs has limited the extent of this cooperation, though local authorities in one district have cooperated with an NGO in a neighboring district to address this problem. Law enforcement agencies participated in trafficking awareness trainings sponsored by NGOs, but officials often failed to differentiate between illegal immigrants and foreign victims trafficked into the country illegally. By contrast, Kazakhstani victims were generally treated humanely and were frequently referred to NGOs. The government relies on 33 victim assistance centers operated by NGOs and international organizations, six of which are funded entirely by the government. Some other victim assistance centers have received government funds. These centers reported assisting 26 trafficking victims during the reporting period. Additionally, the government provided housing and limited funds to four foreign trafficking victims who gave evidence leading to the conviction of their traffickers. Police protection of victims remained inconsistent. The Ministry of Foreign Affairs reported assisting in the repatriation of 24 Kazakhstani citizens from abroad.

Prevention
The government supports efforts by international organizations, though rarely financially, that conduct information campaigns and establish hotlines for trafficking victims. The Justice Ministry produced a public service announcement entitled “Trafficking in Persons An Illegal Phenomenon” that began airing in November 2003. The Justice Ministry has prepared educational material on trafficking. It screened a 10-minute documentary on trafficking prevention during a February 2004 Interagency Commission meeting attended by the media. According to the Justice Ministry, its officials gave 45 television and radio interviews, published 50 articles, and participated in 120 seminars or roundtables on trafficking since September 2003. Local districts provide NGOs with access to schools to conduct trafficking awareness seminars and lectures in every region of the country. During the reporting period, the Committee for National Security withdrew licenses from five travel agencies that issued illegal documents to Kazakhstanis seeking citizenship in Russia, a practice often associated with trafficking in persons.

The Government of the Kyrgyz Republic does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Despite few resources, the government improved law enforcement efforts and continued to work with NGOs and international organizations on prevention and protection efforts. The government should focus greater attention on addressing official corruption, which inhibits progress on the trafficking problem. It should also make a greater effort to protect victims by referring them to the shelter, expeditiously finalizing referral protocols to that end, and instituting witness protection programs.

Prosecution
The Government of the Kyrgyz Republic amended its criminal code in August 2003 to penalize trafficking crimes with penalties ranging from three to 20 years in prison. The government established an anti-trafficking unit in June 2003. During the reporting period, police charged 96 individuals for trafficking-related crimes, including recruiting for sexual or labor exploitation, organizing illegal migration, and marriage to underage persons. The government provided limited information regarding prosecutions and convictions. It is difficult, therefore, to assess how effectively laws are enforced. Independent sources confirmed that Kyrgyz authorities convicted and sentenced at least one person to five years in prison under the new trafficking legislation. Another six individuals were convicted under trafficking-related charges. Endemic official corruption impedes progress on the trafficking problem. Victims reported smooth and highly organized trafficking operations that often involved the cooperation of local police, immigration officials, and airport security. In early 2004, Kyrgyz police arrested three people involved in a trafficking scheme, including an immigration official and a former employee of the state passport department. Two of the three have been charged under the new trafficking in persons law; the third individual is still under investigation. Government investigations of labor export and travel companies forced five companies to change their policies; the government also suspended the activities of three companies and the representative of a fourth. Kyrgyz authorities developed anti-trafficking cooperation with counterparts in Uzbekistan, Tajikistan, Kazakhstan, Russia, Ukraine, China, South Korea, and the United Arab Emirates.

Protection
Progress by the Kyrgyz Republic on victim protection remained weak. The government does not provide foreign trafficking victims temporary residence status or criminal immunity for violations committed as a consequence of their trafficked condition, but border authorities reported that they do not penalize Kyrgyz victims who admit to the use of false documents or illegal entry into the country. Although police have begun to refer victims to an NGO shelter opened in October 2003, formal referral protocols are under development. The government established a working group to outline measures for witness protection. Kyrgyz embassies and consulates are directed to cooperate with NGOs and law enforcement agencies to search for and assist Kyrgyz citizens who wish to return, but their staffs have received no victim-awareness training. The number of individuals trafficked to Kazakhstan and Russia for forced labor has decreased largely due to the signing of bilateral agreements with Russia and Kazakhstan on labor migration.

Prevention
The Kyrgyz Government over the last year displayed a willingness to work with NGOs and donors on joint programs to prevent trafficking. Over 900 justice and police personnel received training on trafficking issues from NGOs and international organizations in 2003. The Foreign Affairs Ministry released a booklet of information for Kyrgyz citizens seeking to work abroad in former Soviet Union countries to better inform labor migrants of their rights. The government publicized arrests and prosecutions of traffickers, which were reported by state-run and independent media. The Border Police continued to improve their border monitoring capabilities with assistance from outside sources. In 2003, the Border Guard Service created a database to track trafficking-related cases, and introduced a new entry/exit system in early 2004 to better monitor migration trends. In March 2004, the government made plans to assume funding of the two-person Secretariat of the National Council to Combat Trafficking, which had been previously funded by the International Organization for Migration.

The Government of Latvia does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Although much remains to be done, Latvia made noticeable improvement in its efforts to enforce laws against trafficking. On March 2, 2004, Latvia’s cabinet of ministers approved a national action plan to Combat Trafficking in Persons, which assigns roles and provides for coordination among agencies, NGOs, and international organizations. The national action plan also requires the government to submit an annual report on anti-trafficking efforts and to fund anti-trafficking programs beginning in fiscal year 2005.

Prosecution
The Government of Latvia has laws that criminalize international trafficking with sufficiently severe penalties. The Interior Ministry has proposed to amend these laws to also criminalize internal trafficking within Latvia’s borders. Currently, domestic trafficking cases are prosecuted under laws outlawing pimping. In 2003, the government convicted 23 individuals of trafficking-related crimes, compared to eight individuals convicted in 2002. Sentences in these cases ranged from a six-month suspended sentence to four years in prison; most sentences ranged from two to three years. The Latvian police's small anti-trafficking squad needs additional training, staffing, and improved cooperation with the Prosecutor’s Office. In 2003, the Latvian anti-trafficking unit cooperated with German, Danish, Swedish, Lithuanian, Estonian, and Finnish law enforcement agencies on five international trafficking investigations, all of which are ongoing. Control of Latvian borders is adequate, but could be improved. Latvia has established an anti-corruption bureau and continues to fight official corruption.

Protection
Latvia's protection of trafficking victims regressed during the reporting period. Due to insufficient funding, two government shelters in Riga and Jelgava closed. Trafficking victims now must use an alternate center shared with asylum seekers. The government funds no rehabilitation facilities specifically for trafficking victims, nor does it provide direct funding to foreign or domestic NGOs for services to victims. Law enforcement officials do not criminally punish victims, but rather refer them to NGOs for assistance. According to victims, police interviewing techniques need improvement. The Latvian Government continues to provide annual training to consular officers assigned abroad on how to recognize trafficking and assist victims in obtaining the necessary travel documents to return to Latvia.

Prevention
In part due to resource constraints and competing priorities, the Government of Latvia does not conduct independent anti-trafficking campaigns, but supports the efforts of NGOs. The Ministries of Education and Welfare arranged for students to attend free showings of the Swedish anti-trafficking film, “Lilya 4-Ever.” More than 10,000 students between the ages of 16 and 18 attended the free showings. The government has incorporated the video and an informative booklet into the high school curriculum. While prevention efforts need improvement, Latvia’s new national action plan to Combat Trafficking in Persons is an important step forward.

The Government of Lithuania fully complies with the minimum standards for the elimination of trafficking. The government demonstrated a strong commitment throughout the reporting period through increased funding for anti-trafficking efforts and sustained law enforcement activities. To further strengthen anti-trafficking efforts, the government should establish formal screening and referral mechanisms to ensure that victims receive adequate assistance services, and ensure that police and social workers remain vigilant in identifying and addressing the needs of trafficked individuals as victims.

Prosecution
Lithuania’s criminal code has prohibited trafficking in persons since 1998. The new criminal code that came into force in May 2003 includes eight articles that address trafficking with sufficiently severe penalties. Each of the 10 counties in Lithuania assigned a police officer to coordinate trafficking issues. During the reporting period, Lithuanian authorities initiated 15 new criminal investigations and convicted a total of 13 traffickers as compared to eight in 2002. Trafficking sentences ranged from fines to 14 years’ imprisonment, with an average sentence of two to three years’ imprisonment. While there was no official evidence of government involvement in or tolerance of trafficking in persons, some individual police officers may condone it. A 2003 court decision reduced the sentence of a former police officer convicted of trafficking in persons from seven years in prison to two years’ probation, citing a lack of evidence. Lithuanian law enforcement officials continued to cooperate with other governments on trafficking investigations and participated in over 25 joint investigations in 2003.

Protection
Several government agencies and organizations provide social, psychological, and legal assistance to trafficking victims. In addition to shelters run by NGOs, the city of Vilnius and some other municipalities operated hostels to provide shelter and social support to victims of domestic violence and trafficking victims. No formal screening and referral procedures are used, but police cooperate with assistance providers as appropriate. Over 200 trafficking victims are estimated to have received assistance at shelters in Lithuania during the reporting period. In July 2003, the government established and provided funds for a pilot program, called “Psychological Rehabilitation, Professional Orientation, and Employment of Victims of Trafficking and Prostitution,” to work with individual victims. Police did not charge trafficking victims with prostitution and immigration violations during the reporting period. The Police Department’s “Witness and Victims Protection Service” provides protection to a limited number of victims. Trafficking victims and witnesses composed 13% of all protected people in 2003. The government routinely provides its embassies and consulates in destination and transit countries guidance on handling trafficking cases and assisting victims. The Lithuanian Ministry of Foreign Affairs assisted 20 trafficking victims to return to Lithuania during the reporting period.

Prevention
The government continued to fund its Program on the Control and Prevention of Trafficking in Humans and Prostitution. The Lithuanian Government also provided funds to 11 local organizations involved in prevention in 2003, as compared to five in 2002. It cooperated closely with NGOs and international organizations to implement several major anti-trafficking projects in 2003. With the support of the IOM and the Nordic Council of Ministers, the government developed and approved trafficking prevention curricula for schools, prepared a guide for teachers, and distributed a brochure to familiarize young girls with the dangers of trafficking. The curricula and guide are used on a voluntary basis in schools and areas where trafficking in persons is recognized by the municipality and/or school as a problem. The Lithuanian Government, in conjunction with IOM, trained over 300 social workers, teachers, and municipal leaders in TIP prevention during the reporting period.

The Government of Macedonia fully complies with the minimum standards for the elimination of trafficking. While the government passed new anti-trafficking legislation and increased convictions, institutional deficiencies in the judiciary hindered greater progress in combating trafficking. Weaknesses were evidenced through the case of trafficking kingpin Dilaver Bojku’s initial light sentencing and subsequent escape from prison in June 2003, before his capture and retrial. The government should institute more effective protections for judges and prosecutors trying trafficking cases and expand prevention programs for vulnerable groups.

Prosecution
While instances of official impropriety and corruption continued to degrade judicial effectiveness, several major trafficking trials during the reporting period resulted in sentences commensurate with grave crimes, and all convictions appealed to the Supreme Court were upheld. The Criminal Code adequately criminalizes severe forms of trafficking in persons and provides for sentences of four to 15 years. During the reporting period, courts handed down 19 convictions with sentences ranging from three to 12 years. The government retried Dilaver Bojku, whose original sentencing was inadequate and evidence of possible pressure on the judiciary. Trafficking-related corruption remains a problem. The government successfully convicted several former government officials and police officers on corruption charges and one police inspector for selling information about a planned trafficking raid.

Protection
The government continued operating the Transit Shelter Center for trafficked persons. The IOM and a local NGO implemented support, medical and other services for victims in the Center. In 2003, the government and IOM formalized victim assistance at the Center by agreeing on Standard Operating Procedures defining the roles of police and NGOs and codifying victims’ rig