The Government of China does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Accessing information on China's anti-trafficking efforts is difficult due to the closed nature of the government and the lack of many independent NGOs; however, based on the information currently available, China is placed on Tier 2 Watch List for a second consecutive year for its failure to show evidence of increasing efforts to address transnational trafficking. The Government of China provides reasonable protections to internal victims of trafficking; however, protections for Chinese and foreign victims of transnational trafficking remain inadequate and victims are sometimes punished for unlawful acts that were a direct result of their being trafficked -- e.g., violations of prostitution or immigration/emigration controls. However, the government began drafting a national anti-trafficking action plan, expected to be finalized later in 2006, that will formally designate anti-trafficking responsibilities to relevant state ministries and NGOs.

China should adopt comprehensive anti-trafficking legislation that includes a full definition of trafficking in persons in line with the UN Protocol to Prevent, Suppress, and Punish Trafficking in Persons, Especially Women and Children. It should recognize debt bondage and child commercial sexual exploitation--with "child" defined as a person below the age of 18--as forms of trafficking.

Prosecution
China vigorously investigates and prosecutes crimes of trafficking, although the P.R.C. Government's definition of trafficking in persons does not match U.S. and UN definitions. For example, the government considers fraudulent adoptions to be a form of trafficking in persons, but it does not consider debt bondage or involuntary servitude to be trafficking in persons crimes. A number of related criminal statutes address various aspects of trafficking in persons, including laws against trafficking or kidnapping for coercive prostitution, and laws aimed at individuals who traffic in girls under the age of 14 for commercial sexual exploitation. These laws carry substantial penalties, including execution. During the first 10 months of 2005, the Ministry for Public Security (MPS) reported 1,949 cases of trafficking of women and children, though the MPS acknowledges that cases of trafficking and smuggling are both included in this number. China does not provide statistics on convictions or sentences; however, given the nature of the criminal system in China (lack of an independent judiciary and rule of law), most cases likely resulted in convictions with substantial sentences or execution. As with past years, sex trafficking has been the center of the government's law enforcement efforts, not coercive labor practices, such as involuntary servitude and forced labor. The MPS plans to establish an anti-trafficking police unit, and its mandate should include these types of cases. The government conducted some anti-trafficking training for law enforcement officials during the past year. There were no known reports of action taken against trafficking-related corruption.

Protection
The focal point of China's protection policy is the All China Women's Federation (ACWF), which provides some assistance to trafficked Chinese women and girls and also coordinates with other government agencies and international organizations for victim care and assistance. The ACWF, however, has no clear and formal mandate to assume responsibility for the care of trafficking victims who, as victims of a serious crime, technically are part of the MPS mandate on crime. The MPS, however, has no resources or training with which to provide the necessary shelter and counseling for victims. This lack of coordination is expected to be addressed by a National Action Plan on Trafficking in Persons, now being drafted. The government reported that 3,574 women and children were rescued from trafficking situations during the first 10 months of 2005. The MPS, working with the Ministry of Civil Affairs, also provides some shelter, medical care, and psychological services for victims. The MPS, ACWF, and the Ministry of Civil Affairs collaborated in opening shelters and rehabilitation centers in Jiangsu, Yunnan, and Sichuan Provinces, areas with large numbers of reported trafficking victims. The government reported that 2,000 women have received help in these facilities. Another facility in Dongxing, Guangxi Province aids Vietnamese trafficking victims. However, none of these efforts is coordinated and there is no national referral mechanism for victims of trafficking. As such, protection measures vary widely from province to province. Despite providing some reasonable care to identified Chinese victims, efforts to protect foreign victims and P.R.C. women returning from Taiwan remain inadequate. Chinese officials do not adequately differentiate between trafficking victims and illegal migrants seeking to avoid criminal penalties. During the reporting period, there were reports that P.R.C. citizens who were subjected to conditions of trafficking in Taiwan faced fines or other punishment upon their return to the mainland; P.R.C. officials state that this practice is no longer occurring. Burmese and Vietnamese trafficking victims may also face punishment and summary deportation to their countries of origin. MPS officials do not offer foreign victims of trafficking legal alternatives to their removal to countries where they face retribution or hardship. This is particularly the case with regards to North Korean trafficking victims in China, as all North Koreans in China are presumed to be economic migrants.

Prevention
The government recognizes that trafficking is an issue that should be addressed and has significantly stepped up efforts to work with international organizations. The government is working with UNICEF on a National Plan of Action to combat trafficking in persons, but the plan has been languishing for a number of years. Nonetheless, the government does show signs of addressing forced labor conditions among informal and formal sector laborers, which continue to be reported throughout China, and it is actively working with the ILO to address such concerns. A country program to fight trafficking was coordinated by the ACWF, MPS, and UNICEF and resulted in the development of a training manual, video, and other materials designed to educate youth about the dangers of trafficking. ACWF also conducts a number of other anti-trafficking outreach efforts.

COLOMBIA (TIER 1)

Colombia is one of the Western Hemisphere's major source countries for women and girls trafficked abroad for the purpose of sexual exploitation. The government estimates that 45,000-50,000 Colombian nationals engage in prostitution overseas and that many of them have been trafficked. Colombian women and girls are trafficked to South, Central, and North America, the Caribbean, Western Europe, Japan, Hong Kong, and the Middle East. Within the country, although some Colombian men are trafficked for forced labor, trafficking by organized crime networks--some related to terrorist organizations--of women and children from rural to urban areas for sexual exploitation remains a much larger problem. Internal armed violence in Colombia has displaced many rural communities, making them more vulnerable to trafficking, and insurgent and paramilitary groups have forcibly recruited and exploited an estimated 6,000 to 11,000 children as soldiers, or in forced labor and prostitution. Child sex tourism is a problem in Cartagena and resort areas on the Caribbean coast. Some reports also suggest that Colombia is a transit point for movement of victims from other Andean countries on their way to Europe and the United States.

The Government of Colombia fully complies with the minimum standards for the elimination of trafficking and has demonstrated the political will to improve its efforts to combat trafficking. The government demonstrated enough progress during the reporting period to meet the minimum standards, but must show appreciable progress during the next year. Prosecutions and new investigations increased and courts convicted at least two traffickers during the reporting period. The government in August 2005 enacted additional legislation to strengthen anti-trafficking efforts, particularly in respect to victim protection and prevention. The government should vigorously pursue actions that bring traffickers to justice, expand support for victim assistance, and raise awareness in vulnerable populations regarding the dangers of trafficking. It should also develop and implement the national strategy against trafficking called for in the August 2005 law.

Prosecution
The Government of Colombia's enforcement efforts improved in comparison with the previous
reporting period. Colombia's anti-trafficking laws prohibit all forms of trafficking in persons. Penalties of up to 23 years' imprisonment are adequate to deter trafficking and equivalent to those for other serious crimes. Authorities arrested 49 trafficking suspects and prosecuted 25 trafficking cases during the reporting period. Courts confirmed two trafficking convictions during the reporting period; both traffickers received nine-year prison terms. In January 2006, police first used asset forfeiture provisions/laws to seize trafficker assets. Law 985, enacted in August 2005, strengthened anti-trafficking statutes by making a victim's consent to his or her movement irrelevant in proving whether trafficking has occurred. The government continued international cooperation efforts, working with Venezuela, El Salvador, Panama, and Japan in the investigation of trafficking networks. There were no reports of officials prosecuted for trafficking but two consular employees were investigated for arranging documents to move Chinese nationals into Colombia in a case that may have involved trafficking.

Protection
The government made modest progress in addressing victims' needs during the reporting period, but resources proved insufficient to keep pace with the demand for services. Colombian missions abroad referred 33 cases to IOM for repatriation assistance and assisted Colombian victims abroad in gaining access to host country protection and services. Police investigators set up interview facilities in Bogota's international airport to meet with returning victims, debrief them, and inform them of their rights and procedures for pressing charges. In various law enforcement operations within the country, authorities rescued more than 61 trafficking victims. There were no reports of the government arresting, deporting, or otherwise punishing foreign victims. In both domestic and international cases, the Ministry of Interior and Justice was the agency responsible for providing lodging, medical and psychological care, access to financial and employment assistance, legal support throughout the judicial case against the trafficker, and safe passage for victims returning to their home communities. However, services were insufficient to meet demand, particularly with respect to medium-term rehabilitative requirements. The government did not operate specially designated trafficking victim care or victim health care facilities. Government authorities worked closely with NGOs and international organizations that also provided services to victims. The government encouraged victims to help build cases against traffickers; however, most victims feared retaliation from trafficking networks and were reluctant to assist in prosecutions. No trafficking victims participated in the witness protection program administered by prosecutors.

Prevention
The government made modest progress during the reporting year in raising public awareness, but continued to rely heavily on NGOs and international organizations to create and conduct prevention campaigns. The Ministry of Communication ran televised public service announcements to raise public awareness. Law 985 of 2005 formally charged the Inter-institutional Committee to Combat Trafficking in Persons, headed by the Minister of Interior and Justice, with coordinating anti-trafficking policies and developing a comprehensive national action plan.

DEMOCRATIC REPUBLIC OF THE CONGO (TIER 2)

The Democratic Republic of the Congo is a source and destination country for men, women, and children trafficked for forced labor and sexual exploitation. The vast majority of trafficking occurs within the country's unstable eastern provinces, where transitional government control is nominal and members of armed groups continue to perpetrate violent acts with impunity. Indigenous and foreign armed rebels continue to abduct and forcibly recruit Congolese men, women, and children to serve as laborers, porters, domestics, combatants, and sex slaves, albeit at a much reduced rate from previous years. Many people abducted in past years, including a limited number of Ugandan nationals being detained by Ugandan militia operating in Congolese territory, are still being held by these armed groups. There were reports of Congolese children in prostitution in brothels in the country. There were also numerous reports indicating that some local authorities attempted to recruit child soldiers for armed groups. During the year, there was one known case of Congolese children trafficked to Zambia.

The Government of the Democratic Republic of the Congo does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Given the transitional government's financial, military, and political inability to deal with armed rebel groups, its capacity to effectively address trafficking is limited. To further its anti-trafficking efforts, the government should continue demobilizing child soldiers, demonstrate progress toward the passage of anti-trafficking legislation, and arrest and prosecute traffickers. It should also continue military action against armed groups that recruit children for military service or abduct civilians for forced labor or sexual slavery.

Prosecution
Although the country's criminal justice system -- police, courts, and prisons -- was decimated by years of war and remains extremely weak, military tribunals sentenced commanders of armed groups to prison for illegally detaining children during the reporting period. There is no law specifically prohibiting trafficking in persons, but existing laws prohibit slavery, forced labor, the prostitution of children under the age of 14, and the activities of brothel owners, clients, and pimps. The Ministry of Justice, with French Government assistance, worked to revise the penal code to include specific laws against trafficking in persons; completed draft legislation is expected in September. The government lacks the funds to print and distribute copies of the current penal code to the country's 2,500 magistrates. In May 2005, the head of the Congolese armed forces (FARDC) instructed all brigade commanders not to recruit children and explained the severe punishments that would be meted out against anyone responsible for such conscription. FARDC's Auditor General also instructed all military courts to legally pursue anyone who continued to recruit children for military participation. As a result, in early 2006, Kanyanga Biyoyo, Commandant of rebel army Mundundu-40, was sentenced to five years in prison for war crimes, including the recruitment and use of child soldiers. In March 2006, the government arrested and turned over Thomas Lubanga, leader of the UPC rebel movement, to the International Criminal Court for recruiting and using children under the age of 15 in armed conflict. Local law enforcement authorities were rarely able to enforce existing laws due to lack of personnel, funding, and the inaccessibility of eastern areas of the country. However, local police in the east used laws barring underage persons from drinking establishments to close down suspected or known brothels; no one was arrested during these operations. In 2005, the Congolese embassy in Lusaka fully cooperated with the Zambian Government to repatriate Congolese child trafficking victims. At the national level, FARDC, with United Nations Mission to the Congo (MONUC) support, conducted dozens of operations in the eastern provinces to neutralize foreign armed groups, the primary perpetrators of human trafficking in the country.

Protection
Through its national demobilization commission, CONADER, the Ministry of Defense worked closely during the year with NGOs and international organizations to demobilize and reintegrate into society children associated with armed groups. When such groups disarm and are integrated into FARDC, CONADER identifies and separates out children and transports them to camps for temporary housing and vocational training. In 2005, 14,315 children were removed from armed groups. Of the 16,809 children demobilized since 2004, 8,663 were reunified with their families, 7,044 returned to academic schooling, and 4,609 received vocational training. As the government lacked funding to fully respond to the large numbers of demobilized children, NGOs provided legal, medical, and psychological services. The government lacks the resources not only to aid other categories of trafficking victims, but also to provide security and basic services to its citizens.

Prevention
The government's efforts to prevent trafficking increased during the reporting period. In 2005, CONADER and MONUC sensitized newly integrated FARDC troops -- both commanders and rank and file soldiers -- on the illegality of using child soldiers. There was no formal coordination or communication between various agencies on trafficking in persons; however, the expansion of FARDC and MONUC presence and operations in the eastern provinces reduced militia activity, effectively preventing additional forcible recruitment of child soldiers by foreign armed groups.

COSTA RICA (TIER 2)

Costa Rica is principally a source, transit, and destination country for women and children trafficked for the purpose of sexual exploitation. Women and girls from Nicaragua, the Dominican Republic, Colombia, Guatemala, Ecuador, Cuba, Peru, China, Russia, and the Philippines are trafficked to the country for sexual exploitation; Costa Rican women and children are trafficked within the country for the same purpose. The government acknowledges that child sex tourism is a serious problem. Costa Rica serves as a transit point for victims trafficked to the United States, Mexico, Canada, and Europe. Men, women, and children are also trafficked, usually within the country, for forced labor as domestic servants, agricultural workers, and workers in the fishing industry.

The Government of Costa Rica does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Authorities investigated numerous reports of minors trafficked for sexual exploitation, cooperated on international trafficking investigations, and initiated a new public awareness campaign that targeted girls and young women vulnerable to commercial sexual exploitation. The government should work with the legislature to pass necessary anti-trafficking laws. It should also improve services for victims and increase investigations and prosecutions of traffickers. When complaints are filed against officials allegedly involved in trafficking, they should be vigorously investigated. The government should also develop a national plan of action and designate an official to lead inter-agency cooperation.

Prosecution
The Government of Costa Rica showed only limited success in enforcement efforts against traffickers during the reporting year, and laws remained inadequate to address all forms of trafficking. Costa Rica lacks an anti-trafficking law; consequently, crimes that involve trafficking are difficult to track. A variety of criminal statutes were used against traffickers but the slow judicial system and the lack of trafficking-specific statutes prevented officials from confirming how many cases involving trafficking resulted in convictions in 2005. In practice, law enforcement anti-trafficking efforts focused on commercial sexual exploitation of minors, for which officials reported 37 new investigations during the reporting period. Authorities cooperated with Nicaraguan and U.S. counterparts in trafficking investigations, but lack of Costa Rican internal government coordination generally hampered enforcement efforts. Although there were indications that some border officials have been involved in trafficking, no reported complaints of trafficking-related corruption were filed during the reporting period.

Protection
The Costa Rican Government's efforts to protect trafficking victims remained extremely limited during the reporting year, largely due to the lack of resources. The government continued to punish some victims for unlawful acts they committed as a direct result of their being trafficked. Identified trafficking victims did not face jail, but officials treated some adult victims as illegal migrants and deported them. Foreign nationals identified as trafficking victims could seek repatriation; alternatively, they could apply for work permits or refugee status. Most protective services were severely lacking. The government operated no shelters or health care facilities designated for trafficking victims and lacked the ability to provide even temporary shelter or services. Officials used no standard referral process to transfer trafficking victims to NGOs and the government lacked the capacity to fund NGOs that assisted trafficking victims.

Prevention
The government made some progress on prevention during the year. An existing campaign against child sex tourism continued and a new campaign was launched using television, radio, and billboard notices to warn young women of the dangers of commercial sexual exploitation. The government relied heavily on third parties to raise awareness and provide anti-trafficking training.

COTE D'IVOIRE (TIER 2)

Cote d'Ivoire is a source, transit, and destination country for women and children trafficked for
forced labor and sexual exploitation. Women and girls are trafficked for domestic servitude and
used in prostitution. Boys are trafficked for agricultural labor on cocoa and palm oil plantations, in mines and for combat. Internal trafficking is prevalent, with children in refugee zones increasingly vulnerable to being trafficked. Internationally, Ivoirian women and children are trafficked to Spain, Italy, the Netherlands, Syria and Libya. Other victims are trafficked to Cote d'Ivoire from Burkina Faso, Ghana, Liberia, North Africa, Ukraine, China, and the Philippines.

The Government of Cote d'Ivoire does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Nearly four years of civil conflict has left the nation paralyzed by in-fighting among political factions and with an extreme budget shortfall. Despite these challenges, the government has demonstrated some political will to combat trafficking. To strengthen its response to trafficking, the government should pass its draft anti-trafficking legislation, increase law enforcement and victim protection efforts within its capabilities, and ensure that police are not complicit in trafficking.

Prosecution
The Government of Cote d'Ivoire demonstrated minimal efforts to combat trafficking through law enforcement during the reporting period. A law prohibiting trafficking drafted in 2002 still awaits adoption at the National Assembly. The government arrested two traffickers and prosecuted one trafficking case using a kidnapping statute. The government rarely investigates trafficking cases. Police report being unable to investigate brothels exploiting alleged trafficking victims because of a lack of vehicles. NGOs report, however, that Ivoirian police are themselves often the exploiters of women used in prostitution. In 2005 Cote d'Ivoire's National Committee for the Fight Against Trafficking and Child Exploitation (NCFTCE) took the lead in drafting a regional multi-lateral anti-trafficking agreement it entered into with eight other countries.

Protection
During the reporting period, the Government of Cote d'Ivoire made significant efforts to protect trafficking victims. Though lacking its own shelters, the government contributed a building and utilities to a local NGO for a shelter, as well as nine civil servants to staff the shelter. In addition, the government provided modest funding to a local NGO that provides reintegration services to trafficking victims. The government rescued 17 Burkinabe children trafficked to Cote d'Ivoire and cooperated with UN and Burkinabe authorities to repatriate them to Burkina Faso. In addition, the Minister of Labor, in collaboration with the West African Project Against Abusive Child Labor in Commercial Agriculture (WACAP), withdrew 6,270 children from hazardous work on farms, enrolled another 1,224 children vulnerable to becoming victims of hazardous labor in alternative education programs, and provided income-generating activities to parents. While officials often refer victims to indigenous NGOs for assistance, on several occasions victims were treated as criminal violators and kept in juvenile detention centers. Moreover, some trafficking victims have been punished for unlawful acts committed as a direct result of their being trafficked -- prosecuted for offenses such as prostitution or document fraud.

Prevention
Cote d'Ivoire made significant efforts to prevent trafficking over the last year. The Minister of Labor signed a National Action Plan to combat the worst forms of child labor with strategies for providing education, shelter, and repatriation services to trafficking and child labor victims. In addition, the Ministry of Labor collaborated with WACAP to educate 21,000 farmers about child labor exploitation and started a data bank to track the number of children in worst forms of labor. In June 2005, the government organized an ILO-funded trafficking awareness seminar for local communities in Bondoukou, a source region for trafficking victims. In 2006, the government reinstated a Child Labor Task Force that had disbanded during civil conflict.

CROATIA (TIER 2)

Croatia is a country of transit, and increasingly a source and destination, for women and girls trafficked for the purpose of sexual exploitation. Female victims from Romania, Bulgaria, Bosnia and Herzegovina (BiH), and other parts of Eastern Europe are trafficked through BiH and Serbia and Montenegro to Croatia. Due to Croatia's border with the EU, many victims are trafficked into Western Europe. There was one reported case of trafficking for forced labor in 2005.

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. Although the government increased its law enforcement investigations in 2005, follow-through on law enforcement efforts remained inadequate and, due to an enormous judicial case backlog, no traffickers were convicted or sentenced in 2005. The government continued to employ a systematic screening process to identify and assist trafficking victims and implemented comprehensive awareness and prevention programs in 2005. The government should vigorously prosecute trafficking cases with the purpose of obtaining convictions and adequate sentences for traffickers. The government should continue to work to ensure the institutionalized screening process already in place reaches all potential victims transiting Croatia, including illegal migrants and, increasingly, migrants who transit the country legally.

Prosecution
In 2005, the Government of Croatia increased implementation of its 2004 trafficking law. The government conducted over 44 trafficking investigations, an increase from 17 the previous year. While the government prosecuted seven trafficking cases, no convictions were reported. Croatia's laws criminalize all forms of trafficking; during the reporting period, the government drafted legislation that would allow for prosecution of clients who knowingly use the services of trafficking victims. In 2005, in cooperation with IOM, the government completed its comprehensive train-the trainer program for law enforcement and trained an additional 250 border police on victim identification and 20 officers on specific techniques for interviewing foreign trafficking victims. The government collaborated with other governments in the region to assist victims and arrest traffickers. While there were no specific reports of trafficking-related complicity, corruption and organized crime continued to hinder Croatia's anti-trafficking efforts.

Protection
In 2005, the government continued to provide all identified victims with shelter, and legal, medical, and psychological services as well as educational and vocational training; government assistance was not conditioned on victim cooperation in a trafficking case. The government continued to implement a national referral system, employing joint NGO-IOM-police "mobile teams" through which victims are identified and referred for assistance. Border police continued to follow a specific protocol outlining aggressive investigative techniques to identify trafficking victims transiting through Croatia, and referred cases involving potential trafficking victims to the Criminal Police Directorate for Organized Crime within the Ministry of Interior. Despite the government's efforts to train police and other front-line responders on victim identification, the number of trafficking victims identified in Croatia overall remains inadequate. As a result, only five victims were identified during the reporting period, a decrease from 18 identified the previous year. The government provided two victims with one-year residency permits in 2005. Victims have adequate protection if they choose to testify.

Prevention
In 2004, the government continued to monitor its anti-trafficking efforts via its anti-trafficking coordinator, and a working group that includes NGOs met regularly to discuss specific trafficking cases and programs. In 2005, the Government of Croatia funded two public awareness campaigns targeting potential victims among the general public and children. Law enforcement officials, specially trained in trafficking, participated in the comprehensive awareness campaigns, which included roundtables, local TV and radio spots, and print ads at train stops and billboards, all of which advertised the government's anti-trafficking hotline. In 2005, the Ministry of Interior developed a flyer, translated it into four languages, and distributed it at border crossings to potential trafficking victims. In December 2005, the government organized a series of seminars to educate journalists on trafficking issues, with a special emphasis on protection of victims' identity. During the reporting period, the government adopted a National Plan for Trafficking in Children.

CUBA (TIER 3)

Cuba is a source country for women and children trafficked for the purposes of sexual exploitation and forced child labor. The nature and extent of trafficking in the country is hard to gauge due to the closed nature of the government and a lack of non-governmental reporting.¹ However, Cuba is a major destination for sex tourism, which largely caters to hundreds of thousands of European, Canadian, and Latin American tourists. Cuba's thriving sex trade involves large numbers of minors and there is anecdotal evidence that state-run hotel workers, travel company employees, taxicab drivers, bar and restaurant workers, and law enforcement personnel are complicit in the commercial sexual exploitation of these children. There are also reports that Cuban women have been trafficked to Mexico for sexual exploitation, in addition to unconfirmed reports that Cubans are forced to work as deckhands on smuggling trips in order to pay off large smuggling debts. Cuban forced labor victims also include children coerced into working in commercial agriculture.

The Government of Cuba does not fully comply with the minimum standards for the elimination of trafficking and is not making significant efforts to do so. Information related to trafficking in Cuba is difficult to obtain because the Government of Cuba will not publicly release information and any attempt to engage the Government of Cuba is rebuffed as politically motivated. To improve its efforts to combat trafficking, the government should publicly acknowledge that trafficking occurs and make efforts to investigate, prosecute, and convict those who are abusing women and children in the sex trade.

Prosecution
The government has no anti-trafficking law enforcement policy and there were no investigations, arrests, prosecutions, or convictions of traffickers over the period covered by this report. The Cuban penal code provides penalties for trafficking-related crimes; however, the Cuban Government does not provide information on the actual enforcement of these laws. Article 302 of the Cuban penal code provides for penalties ranging between four and 20 years for inducing or promoting prostitution. Penalties are increased to 20 to 30 years if the act involves facilitating a person's entry to or exit from the country. Article 316 provides penalties of seven to 15 years' imprisonment for the trafficking of minors. Cuba also has laws against forced labor and sexual exploitation. Despite the presence of laws that may be used to prosecute traffickers, it is not known if any such laws resulted in a prosecution or a conviction during the reporting period. There were no known investigations or prosecutions of public officials for complicity in trafficking during the reporting period.

Protection
Cuban Government efforts to aid trafficking victims were not seen or reported over the last year. Victims are punished for unlawful acts committed as part of their being trafficked; women and children in prostitution are occasionally sent to "reeducation" programs, and most are sentenced to several years in prison. Furthermore, "rehabilitation centers" for women and children engaged in prostitution (some of whom may be trafficking victims) are not staffed with personnel who are trained or equipped to adequately care for potential trafficking victims. Additionally, there is evidence to suggest that such rehabilitation centers are in fact the equivalent of prisons and do not provide any necessary services to the women and children housed there. There is no coordination on trafficking-related matters with international organizations or NGOs operating in the country.

Prevention
The government undertakes no information campaigns to prevent trafficking for sexual exploitation, and does not officially admit that Cuba has a trafficking problem. There are passing references to trafficking-related issues in a National Action Plan for Youth and Adolescents, but nothing specific regarding the prevention of trafficking or how to address the growing numbers of children engaged in prostitution in the country. The Cuban Government does not tolerate independent NGOs and most are in fact operating under the direction of the Cuban government.

CYPRUS (TIER 2 WATCH LIST)

Cyprus is primarily a destination country for a large number of women trafficked from Eastern and Central Europe for the purpose of sexual exploitation. Other countries of origin include the Philippines and the Dominican Republic. Traffickers continued to fraudulently recruit victims for 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 or student visas. Traffickers often rotated victims between different cabarets in cities throughout Cyprus. There were credible reports of female domestic workers from India, Sri Lanka and the Philippines forced to work excessively long hours and denied proper compensation.

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 has been placed on Tier 2 Watch List because of its failure to show evidence of increasing efforts to address its serious trafficking for sexual exploitation problem. While there were seven convictions using prostitution and sexual exploitation laws, the government failed to utilize its anti-trafficking legislation during the reporting period. The government did not proactively implement its National Action Plan, nor did it formally open a trafficking shelter. The government slightly decreased the number of "artiste" visas issued in 2005, but failed to fulfill its commitment to abolish this visa category. The government should assign a clear political priority to fighting trafficking immediately. It should start prosecuting trafficking crimes. As promised in the National Action Plan, the government should significantly reduce the number of "artiste" visas and abolish this visa category to prevent further exploitation of trafficking victims in Cyprus. It should produce and launch a national public awareness campaign to reduce demand for trafficking victims in Cyprus. The Cypriot Government should complete, proactively implement, and distribute its standardized handbook for screening and referral of victims and ensure its wide distribution to all foreign workers entering Cyprus.

Prosecution
In 2005, the Government of Cyprus failed to sustain the anti-trafficking law enforcement momentum started in the previous year. The government finalized its proposed laws on trafficking but has not yet introduced them to Parliament; this proposed legislation would abolish the "artiste" visa and expand Cypriot law to include other forms of trafficking. In 2005, the Cypriot police arrested an increased number of traffickers. While the government convicted seven suspects on charges related to prostitution, it was unable to confirm whether a trafficking element was involved. In March 2006, the Council of Ministers introduced amendments to its current immigration law to the House of Representatives, which would harmonize it with EU directives to combat human trafficking. During the reporting period, the government cooperated in five international trafficking investigations and responded to requests for assistance from source countries. During the year the press reported that at least 19 officers have been implicated in corruption cases, at least two of which were related to prostitution or possible trafficking. To combat police corruption, the Council of Ministers appointed an independent body to investigate police corruption in April, 2006, but failed to investigate reports of trafficking-related corruption.

Protection
The Government of Cyprus did not demonstrate tangible progress in providing protection and assistance to victims of trafficking in 2005. It fell short of targets established by the government's own National Action Plan. Although the government procured funding, obtained permits and signed a lease for a shelter for trafficking victims, it failed to open it during the reporting period. The anti-trafficking unit informally referred victims to an NGO shelter in Limassol, but the government did not establish a formalized screening and referral process. The government's Welfare Services provided financial aid, counseling and temporary shelter to 36 victims for up to three weeks in subsidized homes for the elderly. Although the planned 2004 standardized internal guidelines on victim identification and referral were completed and sent to all ministries for final review, they have yet to be printed or distributed. The government cooperated with NGOs in preparing the new immigration legislation and handbook. During the reporting period, the police identified 55 victims of trafficking, 42 of whom testified or pressed charges against their traffickers. Identified victims were offered legal alternatives to their removal and were allowed to remain in the country in order to testify. In the absence of a formal screening process, some unidentified victims continued to be at risk of deportation.

Prevention
The Government of Cyprus made some limited progress in implementing prevention elements of its National Action Plan in 2005. The government printed 60,000 trafficking prevention leaflets in four languages for those entering Cyprus on "artiste" visas, and began distributing these at immigration police offices and at airports. Although the government funded a promised demand oriented public awareness campaign, it has yet to conduct any large scale campaigns to generate public awareness about the role customers play in contributing to trafficking in Cyprus. The government drafted a pamphlet in Greek for all foreign workers entering Cyprus on other work visas, but has yet to print or distribute it. It issued 4,000 new "artiste" visas in 2005, a 13 percent decrease from the previous year.

Area Administered by Turkish Cypriots:
The northern part of Cyprus is governed by a Turkish Cypriot administration that has declared itself the "Turkish Republic of Northern Cyprus" ("TRNC"). The United States does not recognize it, nor does any other country, except Turkey.

The area administered by Turkish Cypriots is a destination for women trafficked from Eastern and Central Europe for the purpose of sexual exploitation. Reportedly, men were trafficked to work in the construction industry. There are continued indications that it is also used as a transit point for persons trafficked into forced labor into the EU.

The area administered by Turkish Cypriots does not have a law that specifically prohibits trafficking in persons. In 2005, all potential trafficking cases were tried on the charge of "living off the earnings of prostitution." Persons convicted under this law can receive a maximum sentence of two years in prison. This is not commensurate with the penalties for other similar crimes in the area administered by Turkish Cypriots, such as rape. Police arrested 25 suspects, prosecuted 16 cases and convicted nine suspects, all of whom paid minor fines. In 2005, 1,031 "artiste" visas were issued to women working in 46 nightclubs, and as of January 2006, 378 foreign women were working in this area. In 2005, immigration police repatriated 150 women who wished to curtail their nightclub contracts. Police corruption remained a problem; in May 2005, two police officers were questioned on suspicion of involvement in a false visa ring but no arrests were made. In 2006, Turkish Cypriots established an anti-trafficking hotline, but have not publicized it. Turkish Cypriots should take proactive steps to train law enforcement and other front-line responders on victim identification techniques, including the key difference between trafficking and smuggling -- exploitation.

CZECH REPUBLIC (TIER 2)

The Czech Republic is a source, transit, and destination country for women from the former Soviet Union, China, and Vietnam trafficked to and through the Czech Republic for the purpose of sexual exploitation. Czech women are trafficked to Germany, Austria, the Netherlands, and Scandinavia. The Czech Republic is a transit and destination country for men and women trafficked from Ukraine, Belarus, China, Vietnam, India, and North Korea for the purposes of labor exploitation. IOM reported in 2005 that labor trafficking is a growing problem in the Czech Republic. Ethnic Roma women remain at the highest risk for trafficking within the country.

The Government of the Czech Republic does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. The Czech Republic is placed on Tier 2 because of inadequate sentences for traffickers and concerns over forced labor. The North Korean (D.P.R.K.) regime provides contract labor for private industry in the Czech Republic. There are allegations that this labor is exploitative, specifically that the D.P.R.K. government keeps most of the wages paid to the North Korean workers and that workers' movement is controlled by D.P.R.K. government "minders." The Czech Government has conducted four investigations since 2004 and continues to investigate the North Korean workers' presence in the Czech Republic. To date, however, it has not confirmed that they enjoy freedom of movement away from D.P.R.K. government "minders" and are not subject to other coercive practices, such as the collection of a majority of the workers' salaries by D.P.R.K. officials. While concerns remain over efforts to combat forced labor and trafficking sentences, the government continued to provide excellent victim protection and assistance services as well as funding to all local NGOs with trafficking assistance programs. Law enforcement efforts also showed steady improvement. Several hundred police were trained in trafficking awareness and victim identification. The government should ensure that more convicted traffickers serve time in prison, and establish clear internal guidelines for police and prosecutors to successfully investigate and prosecute labor trafficking cases. The government should vigorously investigate all reports of suspected labor trafficking and regulate the practice of labor brokers that recruit guest workers to work in the Czech Republic. To this end, the government should implement recommendations made under the National Strategy to increase the number of police in the Organized Crime Unit. More labor inspectors should be given mandatory training on trafficking and on identifying labor trafficking victims.

Prosecution
The government demonstrated some progress in its anti-trafficking law enforcement efforts over the past year. During the reporting period, police conducted 18 trafficking investigations, down from 30 in 2004. There were 12 trafficking prosecutions resulting in 20 convictions. This total is up from 12 convictions in 2004. Additionally, 52 traffickers were prosecuted and convicted of offenses relating to but not specifically for trafficking in 2005. Although the number of prosecutions increased, the majority of convicted traffickers continued to receive suspended sentences. During the reporting period, only eight traffickers received prison sentences; twelve convicted traffickers received suspended sentences. The government sponsored several trainings for prosecutors and judges to improve prosecutions and increase prescribed sentences during the reporting period. Although there were no reports of institutional involvement in trafficking by Czech Government agencies, NGOs reported allegations of individual cases of corruption within the Czech Alien and Border police. There were 90 convictions of police and border officers for corruption in 2005, though the Czech government could not confirm any cases related to trafficking.

Protection
The government demonstrated significant efforts to protect and assist victims. The government permanently funds a victim assistance program that provides comprehensive victim protection. Victims choosing to cooperate with authorities may receive temporary-stay visas and are provided with health care, financial support, housing, additional counseling, job-placement assistance for foreign victims, and vocational training for repatriated Czech victims. Upon completion of legal proceedings, victims may choose to apply for permanent residency in the Czech Republic. Two victims were granted permanent residency during the reporting period. Beginning in 2005, victims granted a temporary stay visa were allowed to receive work permits. During the reporting period, 17 victims enrolled in the victim assistance program. The government also funds an IOM repatriation program for victims from Georgia and Moldova.

Prevention
Prevention efforts were adequate during the reporting period. As part of its demand reduction program, the government funded a study of prostitution clients and the demand for sexual services in the country. The Foreign Ministry continued its anti-trafficking education programs and provided trafficking information to persons applying for Czech visas in countries identified as sources of trafficking. In addition, consular officers received a new instructional manual on trafficking and some consular officers were provided training to identify potential victims. The government carefully monitored migration patterns for evidence of trafficking.

DENMARK (TIER 1)

Denmark is primarily a transit and destination country for women and children trafficked from Ukraine, Moldova, Russia, the Baltic States, Thailand, and Nigeria for the purpose of commercial sexual exploitation. In 2005, there was one reported case of internal trafficking. Most cases of child trafficking involved the commercial sexual exploitation of young women aged 14 to 18. The government recognizes that trafficking is a problem in Denmark.

The Government of Denmark fully complies with the minimum standards for the elimination of trafficking. Denmark has shown considerable progress in addressing the problem of trafficking both internally and abroad. The government collaborates well with civil society organizations in addressing trafficking issues. In September 2005, the government amended its National Action Plan to bring greater attention to the trafficking of children. Government services offered to victims immediately upon their identification are sufficient. In order to provide more protection to victims who are returned to source countries, the Danish government should consider extending the 15-day stay currently offered to victims, as well as adopt legal alternatives to the removal of victims who may face retribution or hardship upon repatriation. The government should also centrally compile and maintain more comprehensive data regarding investigations, prosecutions, convictions, and sentences.

Prosecution
The Government of Denmark showed continued progress in its anti-trafficking law enforcement efforts. Danish police conducted more than 30 trafficking investigations. In 2005, the government prosecuted four trafficking cases using its anti-trafficking law and 26 trafficking cases using its procurement law. Three people were convicted under the anti-trafficking law and 57 traffickers were convicted under the sexual procurement law. There was no comprehensive data provided on the specific sentences prescribed to traffickers; however, Danish law provides that all traffickers serve time in prison. No traffickers received suspended sentences. The government provided specialized training for authorities on how to recognize, investigate, and prosecute instances of trafficking. The National Police maintained a website with up-to-date information on trafficking that is accessible by the police. The government regularly cooperated with neighboring countries on joint investigations. While victims were encouraged to assist in investigations and prosecutions, few victims were willing to testify for fear of retribution upon their repatriation or against their family members in their home country.

Protection
The Danish Government's efforts to provide care for victims of trafficking improved during the reporting period. The government continued to fully fund three organizations that provided services for actual and potential victims. In 2005, one organization provided support for 60 trafficking victims, an increase from 29 in 2004. When police raided brothels or suspected trafficking rings, they often included social workers to assist victims onsite. Victims received immediate medical care and counseling. The newly introduced trafficking in children appendix to the National Action Plan provides for greater NGO support to minors, including the appointment of a guardian for each minor. Victims found in violation of immigration law are neither jailed nor fined and are offered a 15-day stay before repatriation during which they receive health care, counseling, and shelter. If these victims do not voluntarily return to their countries of origin, they are barred from re-entry to Denmark for one year. The government is aware that some victims may face hardship or retribution upon repatriation. Danish organizations attempt to arrange NGO care for these victims upon re-entry in their country of origin; however, the government is often unable to make such arrangements due to the underdeveloped NGO systems in many source countries.

Prevention
Denmark continued its progress in trafficking prevention. The government adequately monitored its borders and cooperated with other EU member states to prevent suspected criminals from entering Denmark. The government allocated $162,000 for an information campaign that targets the demand for trafficking and increases public awareness; the campaign will be launched in fall 2006. The government funds social organizations that regularly held information and outreach campaigns in local regions for both child and adult trafficking.

DJIBOUTI (TIER 2 WATCH LIST)

Djibouti is a source, transit, and destination country for women and children trafficked for the purposes of sexual exploitation and possibly forced labor. Small numbers of girls are trafficked to Djibouti from Ethiopia, Somalia, and the self-proclaimed Republic of Somaliland for sexual exploitation; economic migrants from these countries also at times fall victim to trafficking upon reaching Djibouti City or the Ethiopia-Djibouti trucking corridor. A small number of girls from impoverished Djiboutian families also engage in prostitution as a means of income, and they may be victims of trafficking. Children in prostitution are found on the streets or in brothels. Individuals acting as pimps or protectors are frequently used to set up transactions; older children reportedly force younger children to engage in prostitution and then collect their earnings. Women and children from neighboring countries reportedly transit Djibouti for Arab countries, Somalia, and Somaliland for ultimate use in forced labor or sexual exploitation.

The Government of Djibouti does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Djibouti is placed on Tier 2 Watch List because the determination that it is making significant efforts is based partly on the government's commitments to undertake future steps over the coming year, particularly in regard to drafting and passing a comprehensive anti-trafficking law. To begin combating trafficking in Djibouti, the government should initiate anti-trafficking legal reform, begin to educate government officials and the general public on the issue of trafficking in persons, and establish a mechanism for providing protective services to trafficking victims, particularly through the forging of dynamic partnerships with NGOs and associations already engaged in child protection activities.

Prosecution
The Government of Djibouti showed negligible efforts to punish acts of trafficking during the reporting period. Djibouti does not have a specific law prohibiting trafficking in persons, though laws against pimping and unpaid labor could potentially be used to prosecute trafficking cases. There were no prosecutions of traffickers during the year. The Brigade des Moeurs (Vice Police) is responsible for confronting the problem of children in prostitution; the brigade conducts nightly patrols of the bars in Djibouti City for persons under 18 years of age. In 2004, the brigade arrested 412 children in prostitution; 255 of these children were Ethiopian and 152 were Somali. Children under the age of 18 arrested for prostitution are typically charged with a misdemeanor crime as opposed to the full criminal charge prostitution normally carries; these girls are usually released. Police stations were, at times, used as temporary shelters for children while they waited for expedited court hearings. The government did not provide any specialized training for government officials in trafficking recognition or in the provision of assistance to trafficking victims.

Protection
There were no government efforts to protect victims of trafficking during the reporting period. Victims could, in theory, receive the same medical care available to victims of other crimes, but there were no known cases of this happening. The government punishes trafficking victims for unlawful acts they have committed as a direct result of their being trafficked. The government also failed to offer legal alternatives to the removal of foreign trafficking victims to countries where they could face hardship or retribution. Undocumented foreign trafficking victims are deported by truck to their country of origin. Djiboutian victims are returned to their families. During the year, the police reportedly turned some street children over to two child protection NGOs for care; no further information on these activities is known.

Prevention
There is minimal understanding within the Djiboutian political hierarchy of what constitutes trafficking in persons. The government did not conduct anti-trafficking public education campaigns during the reporting period. The Labor Inspector's Bureau, which consists of one Inspector and six Controllers, lacks funding and has limited reach; the current state of labor inspection makes it nearly impossible to accurately assess labor conditions, including those potentially involving trafficking for forced labor, throughout the country. Both vulnerable Djiboutian women and Djiboutian trafficking victims could potentially take advantage of available micro-credit loans that assist poor women in starting income-generating activities.

DOMINICAN REPUBLIC (TIER 2)

The Dominican Republic is a source, transit, and destination country for men, women, and children trafficked for the purposes of sexual exploitation and forced labor. IOM estimates that 50,000 Dominican women work in prostitution around the world and that an estimated one-third of these women are trafficking victims. Other international organizations estimate that between 30,000 and 50,000 Dominicans are victims of trafficking. Dominican women are often recruited through acquaintances or family networks, and by means of false promises and misleading employment advertisements. Many are unaware of the true nature of the work, the coercive demands that later will be made of them, or the amount of money they will receive. The primary destinations include Argentina, Australia, the Netherlands, Brazil, Costa Rica, the Netherlands Antilles, Germany, Greece, Italy, Japan, Panama, Suriname, and Switzerland. There is also significant internal trafficking of women and children from rural areas to cities and tourist districts. Haitians are trafficked to the Dominican Republic to work in the sugarcane industry in shantytowns, referred to as "bateys." The conditions in the bateys are substandard; in some bateys, armed guards reportedly kept workers' clothes and documents.

The Government of the Dominican Republic does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. The Dominican Republic has undertaken modest improvements to combat trafficking throughout the country, but much more should be done to address corruption, which often impedes investigations and law enforcement efforts in the country. Additionally, more attention should be given to identifying and aiding potential Haitian victims of trafficking. Increased efforts in victim protection are also necessary, and the government should work to increase funding to those agencies and organizations that are providing shelters and social services to trafficking victims.

Prosecution
The Dominican Republic's anti-trafficking law enforcement efforts increased over the reporting period, and the government made significant efforts to provide trafficking-related law enforcement data. The Dominican Republic has an anti-trafficking law, enacted in 2003. The law addresses both alien smuggling and trafficking in persons, and provides for penalties from 15-20 years' imprisonment and fines of 175 times the minimum wage. This law was used to convict seven individuals over the reporting period. There are also a number of related criminal laws that may be used against traffickers. During the reporting period, the government closed several brothels where children were being exploited, and convicted one of the brothel owners, sentencing him to five years' imprisonment. The government also secured convictions of four other trafficking defendants under its anti-trafficking law. These convictions resulted in 15-year prison terms for each defendant and 24 children were rescued from a brothel as a result. Child trafficker Maria Martinez Nunez, who had been awaiting trial since 2002, was also convicted. According to the Attorney General's Office, there are an additional 10 prosecutions underway. There were no reported investigations or prosecutions of public officials for complicity in trafficking despite widespread reporting of such corruption.

Protection
The government's efforts to protect victims of trafficking continued to be hampered by a lack of resources. Under the anti-trafficking law, victims are entitled to housing, medical care, and access to educational and other services. There are no shelters in the country specifically aimed at assisting trafficking victims; resource constraints make it difficult to fulfill this aspect of the law. The government's social services agency (CONANI) runs seven shelters in the country that may aid child trafficking victims. In addition, the government provides some funding to the Adoratrices Center, a religious organization that is coordinating with IOM to rehabilitate trafficking victims and provide them with vocational training. Adult trafficking victims are generally referred to IOM or to anti-trafficking NGOs. An important aspect of anti-trafficking efforts is the government's professional development institute (INFOTEP), which provides job training to trafficking victims. The government has also stepped up efforts to control the Haitian border, and some advocates believe this has lowered the number of Haitians trafficked into the country. The government continues to deny birth certificates to Haitians born in the Dominican Republic, which leaves them more vulnerable to traffickers and also leaves them without access to certain services in the Dominican Republic.

Prevention
The government acknowledges that trafficking is a problem and has established anti-trafficking units in the Attorney General's office, the National Police, the Migration Directorate, and the Secretariat of Foreign Relations. The government sponsored several education and prevention campaigns, including "La Ley Pega Fuerte" ("The Law Strikes Hard"), with posters and brochures that highlight the legal consequences of trafficking in persons. The government also held and participated in international seminars aimed at preventing trafficking, including a program designed to provide job training for youth at risk of trafficking. An October program in Boca Chica, a known hotspot for sex tourism, reached 400 adolescents.

EAST TIMOR (TIER 2)

East Timor is a destination country for women trafficked for the purpose of sexual exploitation. There are also unverified reports of men trafficked for forced labor. The majority of women trafficked to East Timor are from Thailand, Indonesia, the Philippines, and the P.R.C. Within the country, there is internal trafficking of women and girls from rural areas to the capital, Dili, for commercial sexual exploitation. There are reports indicating that the decline in the international peacekeepers' presence has resulted in a decrease in the number of foreign trafficking victims.

The Government of East Timor does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. The East Timorese government collaborated with NGOs and regional and international bodies, but it continued to have difficulty distinguishing trafficking victims from illegal migrants. While the government suffers from a lack of adequate financial resources, it also lacks political will to combat trafficking. The Government of East Timor should concentrate on arresting and prosecuting traffickers, improving victim protection measures, and raising awareness of trafficking. The government should also adopt a strong and comprehensive anti-trafficking law.

Prosecution
The Government of East Timor's law enforcement efforts against trafficking were minimal over the last year. There were no arrests or prosecutions of traffickers; the government did not compile information on law enforcement efforts. East Timorese authorities did not conduct investigations or raids over the last year. East Timor has basic legislation that criminalizes internal and external trafficking and is in the process of finalizing a new penal code that will criminalize the activities of pimps and brothel owners/operators. The Immigration and Asylum Act of 2003 criminalizes all forms of trafficking but penalties are less severe than penalties for rape and forcible sexual assault. There is a lack of coordination between prosecutors and the police, and law enforcement officials generally lack training. Despite rumors of law enforcement officials' complicity in trafficking, there were no reported prosecutions of corrupt officials related to trafficking.

Protection
The East Timorese government, lacking adequate resources, did not provide protection and assistance to trafficking victims during the reporting period. The government has a working group to focus on trafficking and coordinate with NGOs and international organizations. While some trafficking victims were repatriated through the help of their embassies and international organizations, most victims were charged and deported for prostitution and immigration violations. The Ministry of Labor and Community Reinsertion has informally collaborated with a local NGO, "Organization of Timorese Women," which has worked to identify and help potential domestic trafficking victims free themselves and find work outside of the sex industry. The government did not fund foreign and domestic NGOs but continued to refer victims to international organizations and NGOs that run programs providing protection for victims of trafficking.

Prevention
The Ministry of Labor, in collaboration with IOM, hosted a pre-departure training program for a group of Timorese nationals going to South Korea as part of a bilateral labor agreement; the training included a session aimed at raising the participants' awareness of the threat of trafficking. The government has considered, but not developed, a national action plan to address trafficking. The East Timorese government did not place a priority on trafficking prevention programs although it continued to recognize that trafficking is a problem.

ECUADOR (TIER 2)

Ecuador is a source, transit, and destination country for persons trafficked for the purposes of sexual and labor exploitation. Many victims are children trafficked for sexual exploitation. Ecuadorians are trafficked to Western Europe, particularly Spain and Italy, and Colombia and Venezuela. Traffickers also move Colombian women and girls to Ecuador for exploitation in prostitution. However, most victims are trafficked within the country's borders. Child sex tourism is also a problem.

The Government of Ecuador does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Ecuador moved from Tier 3 to Tier 2 as a result of clear progress in several key areas. The government enacted anti-trafficking legislation and took steps to identify trafficking situations, arrest and prosecute traffickers, assist victims, and raise public awareness. The government should provide sufficient staff, training, and resources to ensure that traffickers face prompt prosecution, and it should continue working with civil society to train officials, raise public awareness, and improve protection for victims.

Prosecution
The Government of Ecuador made significant progress in identifying and punishing acts of trafficking during the reporting period. A trafficking law passed in June 2005 prohibits all forms of trafficking, raises the legal age for prostitution to 18, and establishes sentences of up to 35 years in prison. Since enactment of the law, trafficking investigations have increased. A 10-member investigative unit in DINAPEN, the national police agency charged with protecting children, and a special police intelligence unit dedicated to actions against trafficking and alien smuggling, actively pursue trafficking investigations. The Attorney General's office reported 41 arrests and 15 trafficking cases involving adolescent Ecuadorian and foreign girls and women trafficked for sexual exploitation that reached some stage of prosecution during the reporting period. One trafficker was sentenced to nine years' imprisonment in June 2005. An official has been tasked with tracking data on trafficking cases, and the Attorney General appointed special prosecutors in Quito and Guayaquil to handle trafficking cases. Although corruption is a problem in general, there were no reports of government officials involved in or prosecuted for trafficking.

Protection
The Ecuadorian Government stepped up efforts to identify and assist trafficking victims during the reporting year. The Victim and Witness Protection Program, administered by the Public Ministry, assisted 32 trafficking victims. Although the Program is not uniquely designed for trafficking victims, it works with government agencies and NGOs to provide shelter, police protection, psychological and medical care, economic assistance, employment assistance, and educational support for children to victims willing to assist in investigations and prosecutions. The Program provided funds to, and had contractual agreements with, NGOs and other service providers. There were no reports of victims jailed or deported. The government assisted in the repatriation of one victim from the United States.

Prevention
The government launched a national public awareness campaign in January 2006 and made significant efforts to prevent trafficking in the latest months of the reporting period. Government leaders, including the President, the First Lady, and cabinet members brought national attention to the country's trafficking problem. The National Institute for Children and Family, headed by the First Lady, led initiatives that spread awareness through radio, television, skits, information booths at concerts and fairs, buttons, shirts, and billboards. The government also reached agreements with several private companies to include anti-trafficking messages at public theaters, through fliers distributed with bank and credit card statements, and on board local air flights. The Ministry of Foreign Affairs trained key officials in Machala and Quito, and provided guidance to Ecuador's embassies on trafficking and how to assist Ecuadorian victims. The government worked closely with NGOs and international organizations to provide training to officials throughout the country regarding new national laws against trafficking.

EGYPT (TIER 2 WATCH LIST)

Egypt is a transit country for women trafficked from Eastern Europe -- primarily Uzbekistan, Moldova, Ukraine, and Russia -- to Israel for the purpose of sexual exploitation. These women generally arrive in Egypt through air and seaports as tourists and are subsequently trafficked through the Sinai Desert by Bedouin tribes. Men and women from sub-Saharan Africa and Asia are similarly believed to be trafficked through the Sinai Desert to Israel and Europe for labor exploitation. Bedouins, who are very knowledgeable of desert routes and methods of avoiding detection, routinely rape and abuse victims during journeys that can take up to two months to complete. In addition, some Egyptian children from rural areas are trafficked within the country to work as domestic servants or laborers in the agriculture industry.

The Government of Egypt does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Egypt is placed on Tier 2 Watch List for its failure to show evidence of increasing efforts to address trafficking over the past year, particularly in the area of law enforcement. The government failed to conduct an assessment of the trafficking situation, or to draft a planned comprehensive anti-trafficking law, and had few trafficking prosecutions during the year. In 2005, however, Egypt improved training for border security officials to prevent smuggling and trafficking, and incorporated innovative tools to interdict traffickers as they travel through the Sinai Desert. Egypt should take proactive measures to investigate trafficking and increase prosecutions of Egyptians involved in trafficking rings. The government should also improve its cooperation and communication with source and destination country governments.

Prosecution
Over the year, Egypt made modest progress in its law enforcement efforts against traffickers. Egypt does not have a law specifically criminalizing human trafficking, and despite reports in 2004 that an anti-trafficking law was forthcoming, none has yet been presented to the Parliament for ratification. While other sections of the criminal code can be used to prosecute trafficking offenses, there were no reported prosecutions in 2005. According to State Security officials, the government has reportedly increased prosecutions against travel agencies complicit in the trafficking of women through Egypt. In a possible trafficking case, a criminal court in South Sinai in February 2005 convicted an Egyptian man of attempting to smuggle five Russian and Moldovan women to Israel. He was sentenced to 3.5 years in prison. Egypt should increase its investigations against Bedouin tribes involved in human smuggling and trafficking and should improve communication with source and destination countries to provide information relevant to interdicting trafficking rings. The government should also assess the level of trafficking of children for domestic or agricultural servitude and prosecute their traffickers.

Protection
Egypt took some modest measures to protect victims of trafficking this year. The government does not have a systematic mechanism to connect trafficking victims with organizations providing assistance, but does generally refer victims to IOM and their embassies to aid in their care and repatriation. Egypt also provides food, health care, and lodging to some victims on an ad hoc basis through the Ministry of Health. The government should improve its screening system at the border to ensure that trafficking victims are not detained with illegal migrants or deported without receiving victim assistance. The government does not offer legal alternatives to the removal of victims to countries where they face retribution or hardship.

Prevention
During the year, Egypt made significant progress in preventing trafficking through the Sinai Desert to other destinations. In particular, in response to terror bombings in Sinai, the government made a concerted effort to increase security in the Sinai, especially with regard to alleged illegal activities by Sinai Bedouin tribes, which include trafficking of persons. Border officials participated in training aimed to improve their skills in interdicting traffickers. They also employed Bedouin trackers and sophisticated technology such as night-vision goggles to enhance their ability to capture Bedouin traffickers in the desert. In addition, the government increased scrutiny at major airports in Cairo and Sharm el Sheikh to prevent traffickers from entering the country. The government should institute a public awareness campaign to educate employers on the rights of children working in their homes or in the agriculture industry.

EL SALVADOR (TIER 2)

El Salvador is a source, transit, and destination country for women and children trafficked for the purpose of sexual exploitation. El Salvador is also a source country for forced labor. Salvadorans are trafficked to Guatemala, Mexico, and the United States. Salvadoran women and children are also trafficked internally from rural to urban areas for exploitation in prostitution. The vast majority of foreign victims are women and children from Nicaragua and Honduras trafficked for sexual exploitation.

The Government of El Salvador does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Authorities maintained momentum in implementing anti-trafficking laws and improving efforts to protect victims and work with countries of origin to achieve safe and orderly repatriations. The government should expand victim protection, improve cooperation between police and prosecutors to achieve better success against traffickers, and work with NGOs and the media to sustain public awareness of the trafficking problem.

Prosecution
The Government of El Salvador made modest law enforcement progress against traffickers during the reporting period. Salvadoran law criminalizes all forms of trafficking in accordance with international standards and specifies penalties of up to eight years' imprisonment that are increased by one-third in aggravated circumstances. During the reporting year, police arrested 17 individuals for trafficking and prosecutors obtained four convictions with sentences ranging from three to eight years in prison. The government also demonstrated its commitment to cooperate in international trafficking investigations by working with the Governments of Belize, Guatemala, and Nicaragua on trafficking cases throughout the year.

Protection
The government made notable improvements in victim protection, particularly in the treatment of foreign victims, during the reporting period. Victims' rights were generally respected; all victims had access to medical and psychological care; and foreign victims were not deported. The Ministry of Foreign Affairs worked with its counterparts in countries of origin to effect orderly repatriations, or offered refugee status to foreign victims with a credible fear for their life should they return home. The Government of El Salvador signed memoranda of understanding with Mexico and Guatemala to facilitate repatriation of trafficking victims. A lack of resources prevented the government from funding NGOs that work with victims. Child victims were placed with child protective services and offered shelter, counseling, and medical assistance. The social services unit of the police service operated a provisional shelter and returning Salvadoran victims received temporary shelter through a program that assists recently deported Salvadorans. The government still needs to address the lack of both adequate witness protection and long-term shelter for victims.

Prevention
The government made little progress in its prevention efforts during the reporting period. New efforts focused on training consular officials. In early 2006, the government hosted a regional trafficking conference to train consular officials on identifying and assisting trafficking victims. The government also developed a trafficking handbook for its consular officers. The government relies heavily on NGOs, the ILO, and IOM for anti-trafficking initiatives but usually funds a small portion of project costs.

EQUATORIAL GUINEA (TIER 2 WATCH LIST)

Equatorial Guinea is a transit and destination country for women and children trafficked for forced labor, involuntary domestic servitude, and commercial sexual exploitation. Children are trafficked from surrounding countries -- primarily Benin, Nigeria, Mali, and Cameroon -- to work in the agricultural and commercial sectors of Malabo and Bata, where demand is high due to a booming oil sector. Children work as farmhands, street vendors, and household servants. Girls and women are trafficked for commercial sexual exploitation from Cameroon, Togo, Nigeria, and China to Malabo and Bata.

The Government of Equatorial Guinea does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. Equatorial Guinea is placed on Tier 2 Watch List for its failure to provide adequate evidence of concrete measures to address trafficking over the past year. The government's initial progress made in the prior year appears to have stalled. Specifically, the government made insufficient law enforcement and victim protection efforts, despite having substantial resources. The government, however, conducted some anti-trafficking awareness campaigns and adopted a national anti-trafficking action plan. Additionally, the government launched a campaign to shut down unlicensed foreign shopkeepers in Equatorial Guinea intended, in part, to reduce the incidence of child trafficking. To strengthen its anti-trafficking efforts, the government should educate law enforcement and government officials about its trafficking legislation and increase victim protection efforts.

Prosecution
The Government of Equatorial Guinea made minimal law enforcement efforts to combat trafficking during the reporting period. Although Equatorial Guinea enacted an anti-trafficking law in 2004, the government was unable to report any trafficking arrests or prosecutions during the reporting period. The President of the Supreme Court held a weeklong workshop for all the judges in the country on family law that included seminars on trafficking. The government also passed decrees stating that parents of children working at night would be arrested. The government does not provide law enforcement officials with training on trafficking and has not been active in investigating trafficking cases. Equatorial Guinea has no system of monitoring immigration or emigration patterns for evidence of trafficking or for collecting trafficking crime statistics. The government did not report any investigations or prosecutions of public officials complicit in trafficking.

Protection
Equatorial Guinea provided insufficient protection and care to trafficking victims during the reporting period. The government currently has no facilities for providing care to victims, although the new anti-trafficking action plan calls for the creation of shelters. Equatorial Guinea lacks a screening and referral system to identify and transfer victims found by government officials to NGOs providing victim care. While the government has expressed willingness to support a local NGO shelter, the shelter has not yet received assistance. The government reports that it supports two additional NGO shelters, but has not released details about the extent of its contribution. The government, however, does assist in the repatriation of foreign victims to their home countries.

Prevention
Equatorial Guinea continued to make modest efforts to prevent trafficking during the reporting period. The government conducted several awareness-raising campaigns, including a radio campaign about the anti-trafficking law. Equatorial Guinea adopted a national anti-trafficking action plan in February 2006.

ESTONIA (TIER 2)

Estonia is a source, transit, and destination country for women and children trafficked for the purpose of sexual exploitation. Estonian women and girls are trafficked to Finland, Sweden, Norway, and, to a lesser extent, other EU countries. Women from Russia, Latvia, and Ukraine are trafficked through Estonia to Nordic countries and some victims are believed to be transited to China. Women from Russia, Latvia, and Ukraine are also trafficked to Estonia primarily for sexual exploitation.

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 showed clear political will during the reporting period to improve anti-trafficking efforts. In January 2006, the government adopted a National Action Plan to fight trafficking; the plan defines each ministry's responsibilities and allocates $13,000 to be spent on government and NGO anti-trafficking efforts in 2006. The plan also created a national database that will provide reliable statistics and assist the government to more efficiently assess the trafficking problem in Estonia. In compliance with EU legislation, the government is expected to amend its law to no longer treat trafficking victims who are in Estonia illegally as immigrant cases and will provide temporary residence permits to such victims. The government should expand its public awareness campaigns to address demand; these campaigns should be targeted at foreign tourists.

Prosecution
While Estonia does not have any trafficking-specific laws, the criminal code prohibits enslavement, abduction, pimping, and offering or engaging minors for prostitution and sexual acts. The penalties for such acts range from five to 12 years' imprisonment. Estonia has successfully employed these statutes to prosecute traffickers. However, in a 2005 report IOM noted that courts find it relatively difficult to convict solely on the basis of enslavement because of the difficulty in proving that the victim had no opportunity to flee from the conditions of sexual exploitation or seek assistance from law enforcement agencies. Estonia increased its total number of trafficking convictions from nine in 2004 to 22 in 2005. The government used the anti-enslavement statute in two cases and successfully convicted seven traffickers. Five criminal cases for child prostitution were initiated, resulting in the conviction and sentencing of 15 traffickers with sentences ranging from three months to two years and three months. Estonia cooperates with neighboring countries, the United States, EUROPOL, and INTERPOL in trafficking investigations and prosecutions. In January 2006, the Ministry of Justice developed a registry of criminal procedures that provides an overview of all crimes related to trafficking; this will serve to aggregate and analyze trafficking-related cases and may aid authorities in improving their fight against trafficking.

Protection
The Government of Estonia continued to make progress in assisting and protecting trafficking victims. Victims are offered medical, psychological, legal, police, and social assistance. The Ministry of Social Affairs worked closely with local authorities and NGOs to provide victim assistance services. In 2005, the Ministry trained 35 victim assistance volunteers that operate in 16 towns across Estonia; they are paired with police and given workspace within police stations to facilitate victim identification and assistance. There are no trafficking-specific shelters, but there are three shelters for domestic violence victims that provide assistance to both adult and child trafficking victims. The government continued to work closely with NGOs that provide victim assistance and protection and provided some funding to IOM for the production of a victim assistance manual distributed to social workers.

Prevention
The government was active in raising trafficking awareness among government officials and institutions; during the reporting period, trafficking curricula were introduced at the Police Academy, Border Guard School, and Public Service Academy. Two law enforcement training activities were conducted. The government also held some training sessions in cooperation with NGOs for teachers, social workers, school psychologists, victim support specialists, counselors, and police. In 2005, five training sessions were held for soldiers serving in the Balkans, Afghanistan, and Iraq to enable them to better understand, recognize, and address trafficking while deployed abroad.

ETHIOPIA (TIER 2)

Ethiopia is a source country for men, women, and children trafficked for forced labor and sexual exploitation. Children and adults are trafficked within the country for domestic servitude and, to a lesser extent, for commercial sexual exploitation and labor, such as street vending. Small numbers of men are trafficked to Saudi Arabia and the Gulf States for low-skilled forced labor. Ethiopian women are trafficked to the Middle East, particularly Lebanon, for domestic servitude; other destinations include Egypt, South Africa, Sudan, and Djibouti. Small percentages of these women are trafficked for sexual exploitation. Transit countries for trafficked Ethiopians reportedly include Djibouti, Egypt, Kenya, Libya, Somalia, and Sudan.

The Government of Ethiopia does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so. While Ethiopia's ongoing efforts to educate migrating workers about the dangers of trafficking and detect cases of child trafficking within the country are notable, its small number of prosecutions compared to the large number of investigations is a continued cause for concern. To further its anti-trafficking efforts, the government should improve the investigative capacity of police and enhance judicial understanding of trafficking to enable a greater number of successful prosecutions, and launch a broad anti-trafficking public awareness and education campaign.

Prosecution
The Ethiopian Government's law enforcement response to trafficking improved in 2005. In May, the government enacted a new penal code with improved anti-trafficking language that criminalizes most forms of human trafficking. Working with a local NGO, police monitored five key towns for possible trafficking. At security checkpoints throughout the country, the Immigration Authority verified the legality of migrants' travel documents. Border guards on the Bossasso route reported mass movements toward Somalia; the guards stopped travelers without proper documentation and issued warnings about the dangers of irregular migration. In 2005, 520 cases of child trafficking were reported, eight of which remained under investigation at year's end. Police referred 38 cases to the prosecutor's office: by the close of the reporting period, two resulted in conviction, 18 were pending prosecution, and 18 were closed for lack of evidence or because the defendant absconded. The low conviction rate for trafficking cases serves as a poor deterrent to traffickers, who can operate with relative impunity. In late 2005, police officers assigned to anti-child trafficking units in Addis Ababa were transferred from those duties to deal with recurring street disturbances. The Ministry of Labor (MOLSA), in cooperation with the Airport Immigration Authority, prevented an unspecified number of labor migrants without valid employment contracts from departing for the Middle East.

Protection
The government provided limited assistance to trafficking victims over the last year. The child protection unit in each Addis Ababa police station collected information on rescued trafficked children to facilitate their return to their families; it also referred 262 girls to an NGO for care pending transport home. The Ethiopian consulates in Beirut and Dubai dispensed limited legal advice to trafficking victims and provided temporary shelter for victims awaiting funds to pay off abusive employers for their freedom. In 2005, MOSLA investigated 52 complaints filed by returnees and families of aggrieved employees by verifying employment agencies' reporting through the Ethiopian missions abroad: 45 complaints were determined to be unfounded, four were amicably resolved, and legal proceedings for contract violations began against labor migration agencies in three cases. Government authorities made no effort to interview returned victims about their experiences in the Middle East.

Prevention
Ethiopia's efforts to prevent international trafficking increased, but measures to increase awareness of internal trafficking were lacking. During the past year, the government tightened its implementation of foreign employment regulations, resulting in a trafficking route shift; more Ethiopian victims are reportedly transiting neighboring countries rather than flying directly out of the main airport. The Immigration Authority continued to provide printed information on trafficking to those applying for passports and required applicants to view a video on the dangers of human trafficking. MOLSA supervised the work of legal labor migration agencies through surprise inspections and required biweekly reports. In 2005, the number of registered agencies rose from five to 17, facilitating the travel of 6,200 workers to six countries. MOSLA, in conjunction with Ethiopian consulates in the Middle East, approved foreign labor contracts for an additional 1,345 workers; many Ethiopians still continue to seek international employment through black market channels. The inter-ministerial anti-trafficking committee convened regularly, but its activities were not disclosed. The counter-trafficking task force, chaired by the Ministry of Justice, was inactive for most of the reporting period.

FINLAND (TIER 1)

Finland is a transit and destination country for women and girls trafficked from Russia, China, and to a lesser extent from Moldova, the Caucuses, and Thailand, for the purpose of sexual exploitation. Victims are trafficked through Finland to other Nordic and Western European countries and to the United States. Finland is also a destination country for men and women trafficked from Russia, Estonia, Turkey, and Asia for the purpose of forced labor. Most victims are exploited in the construction industry, restaurants, and as domestic servants. In April 2005, authorities intercepted a bus of potential labor trafficking victims from Georgia; authorities believe these women were possibly being trafficked to Italy for the purpose of domestic servitude.

The Government of Finland fully complies with the minimum standards for the elimination of trafficking. The government has made significant strides in its over-all anti-trafficking efforts. Finland implemented its comprehensive victim protection program under its 2005 national action plan, established a victim referral mechanism to ensure victims are referred to NGO-run shelters, intensified its prevention efforts both domestically and in source countries, and ceased its deportation of trafficking victims. The government could further improve victim care by providing trafficking-specific training to victim counselors and finalizing plans to issue temporary residence permits to victims. Finland should also consider creating a formal witness protection program and providing additional training for prosecutors and judges on how to effectively utilize the new anti-trafficking laws in addition to strengthening the penalties assessed to convicted traffickers.

Prosecution
The government improved its law enforcement efforts. During the reporting period, police conducted five trafficking investigations resulting in four prosecutions. Although prosecutors did not use Finland's new anti-trafficking law in 2005, four traffickers were convicted using other criminal statutes. The four convicted traffickers, including two Korean nationals, one Chinese national, and one Russian national were involved in transit cases. Sentences for convicted traffickers ranged from 10 months to 17 months in prison. Finland actively cooperates with other governments in investigations and prosecutions. The National Bureau of Investigation has anti-trafficking officers in nine Finnish Embassies and Consulates in key source countries in Europe and Asia. In December 2005, the police began an awareness and victim identification training program for its officers. A training session was held in December 2005 for prosecutors to improve their ability to successfully prosecute transit cases.

Protection
Finland demonstrated significant progress in assisting victims throughout the year. A national action plan against trafficking, which provides a victim-centered approach, was formally adopted in April 2005. Upon their identification, victims are taken to reception centers. Fifteen victims were housed in the reception centers during the reporting period. In response to NGO requests, the government recently began referring victims to NGO-run shelters whenever possible as housing alternatives to the reception centers. Great progress was made on the issue of victim deportation. In the past, trafficking victims were frequently deported without receiving any victim assistance. Now, police have a screening process in place to identify victims and ensure they are referred for assistance. Beginning in 2005, the government began systematically screening for victims and identified 15 probable victims. Victims receive legal counseling, medical and psychological services, and monthly stipends.

Prevention
The government continued to improve its trafficking prevention efforts. Finland conducted a domestic prevention program focused on demand reduction; the government displayed posters and other media at ports-of-entry, post offices, and other locations to target clients and to challenge the view that prostitution and sex tourism is a "victimless crime." In late 2005, the Ministry of Foreign Affairs designed a training program to teach Finnish consular officers to better detect trafficking situations as well as how to follow up when trafficking is suspected. Since April 2005, 400 border guards have received victim identification training; during the reporting period, authorities at Vantaa airport intercepted a group of three adults and seven minors being trafficked from Asia to Western Europe.

FRANCE (TIER 1)

France is a destination country for women and girls trafficked for the purpose of sexual exploitation, primarily from Romania and Bulgaria. Other countries of origin include Albania, Nigeria, Sierra Leone, and Cameroon. Reports continued of women and children trafficked into involuntary domestic servitude, the majority from Africa. The government estimates that there are 10,000 to 12,000 likely trafficking victims in France. Trafficking of Brazilian women and girls for sexual exploitation to French Guiana -- a French possession -- remained a serious problem.