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Trafficking in Human Beings and Sexual Violence Against Children (2013)

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Trafficking in Human Beings and Sexual Violence Against Children (2013) Mensenhandel Negende rapportage van de Nationaal rapporteur Colophon Reference: Dutch National Rapporteur on Trafficking in Human Beings and Sexual Violence against Children (2013). Trafficking in Human Beings. Ninth report of the Dutch National Rapporteur. The Hague. National Rapporteur on Trafficking in Human Beings and Sexual Violence against Children P.O. Box 20301 2500 EH The Hague The Netherlands +31 (0) 70 370 45 14 www.dutchrapporteur.nl Graphic and digital realization: Studio Kers © National Rapporteur 2013 Contents List of figures and tables 7 Abbreviations 9 Foreword 13 1 Introduction 17 2 Trends and developments 27 2.1 Introduction 27 2.2 International developments 30 2.2.1 International trends in the nature and scale of human trafficking 30 2.2.2 Approach – international priorities 38 2.2.2.1 Protection of victims 39 2.2.2.2 The demand side 41 2.2.2.3 Private actors – NGOs and companies 42 2.2.2.4 Prosecution and trial 43 2.2.2.5 International criminal cooperation 45 2.2.2.6 Financial gains and compensation for victims 46 2.2.3 European Court of Human Rights 47 2.2.4 International monitoring and coordination 49 2.2.5 The Netherlands in an international context 50 2.3 Human trafficking and prostitution policy 53 2.3.1 Introduction 53 2.3.2 Criminalization of victims’ clients 57 2.3.3 The need for a national framework for prostitution policy 59 2.3.4 Local policy initiatives 65 2.3.4.1 The introduction of a broad package of measures in Utrecht 66 2.3.4.2 Initiatives in other municipalities 74 2.3.5 Prostitution policy in the future 83 2.3.5.1 Core of the discussion and a look at other countries 84 2.3.5.2 Does legalized prostitution generate more human trafficking? 86 2.4 Exploitation outside the sex industry 91 2.4.1 Introduction 91 2.4.2 Awareness-raising, identification and perception 98 2.4.3 Cooperation and information exchange 103 4 trafficking in human beings Ninth Report of the Dutch National Rapporteur 2.4.4 Victims 105 2.4.5 High-risk sectors and groups 105 2.4.5.1 Mushroom farming 106 2.4.5.2 Public toilets 108 2.4.5.3 Transport 109 2.4.5.4 Inland Shipping 110 2.4.5.5 Sham constructions 112 2.4.6 New forms of exploitation outside the sex industry 114 2.4.7 Principles of non-prosecution and non-punishment 119 2.4.8 The scope of the concept of human trafficking 121 2.4.8.1 The broad formulation of human trafficking in the Criminal Code 121 2.4.8.2 Possible solutions 125 2.5 Protection of victims: a national referral mechanism 126 2.5.1 Introduction 126 2.5.2 Urgency of a national referral mechanism in the short term 127 2.5.3 Guaranteeing protection 130 2.6 Victims and awareness-raising, prevention and identification 135 2.6.1 Introduction 135 2.6.2 Prevention 135 2.6.3 Identification and health care agencies 140 2.6.4 Identifying human trafficking in the asylum process 142 2.6.5 Identification of human trafficking in return procedures 146 2.6.5.1 Introduction 146 2.6.5.2 Policy for identifying human trafficking during the return procedure 146 2.6.5.3 Statistics about forced return of victims 149 2.7 Victims and criminal proceedings 157 2.7.1 Introduction 157 2.7.2 Developments in national and international legislation 157 2.7.3 Developments in practice 159 2.8 Victims and immigration law 167 2.8.1 Introduction 167 2.8.2 Temporary residence and the EU Directive on Human Trafficking 167 2.8.3 Entry into force of the Modern Migration Policy Act 169 2.8.4 Abuse/improper use 173 2.8.5 Criminalization of illegal residence 178 2.9 Victims: shelter and assistance 180 2.9.1 Developments in national and international legislation 182 2.9.2 The pilot project ‘Categorical shelter for victims of human trafficking’ 183 2.9.2.1 The COSM pilot project and its objectives 183 2.9.2.2 Numbers admitted and admission criteria 185 2.9.2.3 Diagnostic centres 186 2.9.2.4 Willingness to report an offence 187 2.9.2.5 Departure from shelters 188 2.9.2.6 Categorical shelter in other countries 192 2.9.3 Categorical shelter for large groups 193 2.9.4 Interpreters 194 5 Contents 2.10 Underage Dutch victims 195 2.10.1 Introduction 195 2.10.2 National and international legislation 198 2.10.3 Developments in policies and measures at the national level 200 2.10.4 Identification and registration 202 2.10.5 Assistance, shelter and treatment 206 2.11 Victims and return 212 2.11.1 Introduction 212 2.11.2 Voluntary return 214 2.11.2.1 Statistics on victims who have returned voluntarily 215 2.11.2.2 Characteristics of victims who returned voluntarily 216 2.11.2.3 Referrals to the IOM 222 2.11.2.4 Handling of applications for return 223 2.11.3 NGO initiatives in relation to repatriation 224 2.11.4 Coordination of initiatives by NGOs: ENPATES 226 3 Approach 229 3.1 Introduction 229 3.2 International cooperation 234 3.2.1 Cooperation in law enforcement 235 3.2.2 Multidisciplinary cooperation 241 3.3 Cooperation at the national level 242 3.3.1 Introduction 242 3.3.2 Partnerships 244 3.3.2.1 The LIEC and the RIECs 245 3.3.2.2 Safety Coordination Houses 247 3.3.3 Developments among chain partners 248 3.3.3.1 Police 249 3.3.3.2 Royal Dutch Marechaussee 251 3.3.3.3 Municipalities 251 3.3.3.4 Tax and Customs Administration, FIU-Nederland and the Chamber of Commerce 252 3.3.3.5 Partners in the health care sector 253 3.3.3.6 Other consultative forums 253 3.4 Cooperation: a programmatic and integrated approach 254 3.4.1 Programmatic approach 255 3.4.2 Integrated approach 257 3.4.3 Complementary 257 3.5 Programmatic approach 258 3.5.1 The initial phase of the programmatic approach 258 3.5.2 Pilots and the programmatic approach 260 3.5.3 Programmes in areas of prostitution 264 3.6 Results from the pilots 267 3.6.1 Programmatic approach as a flywheel 267 3.6.2 Multidisciplinary approach in practice 268 3.6.3 Embedding within organizations 269 6 trafficking in human beings Ninth Report of the Dutch National Rapporteur 3.6.4 Insight into human trafficking 270 3.6.5 Greater awareness 270 3.6.6 Identification of victims 271 3.6.7 Information exchange 271 3.6.8 Efforts at prevention 272 3.7 Lessons from the pilots 275 3.7.1 Cooperation 275 3.7.2 Trust and commitment 279 3.7.3 Conduct of research into the phenomenon 280 3.7.4 Increasing awareness 282 3.7.5 Commitment 285 3.7.6 Knowledge exchange 286 3.8 Innovation and blank spots 287 3.8.1 Blank spots 288 3.8.2 Mapping financial streams 290 3.8.3 Human trafficking and other forms of organized crime 290 3.9 Integrated approach 291 3.9.1 Local human trafficking policy 292 3.9.2 Waterbed effect 294 3.9.3 Directive role for mayors 294 3.9.4 Embedding the regional approach in RIECs and Safety Coordination Houses 297 4 Conclusions and recommendations 301 Literature 311 Appendices 329 B1a Article 273f DCC (as it applied until 1 April 2013) 331 B1b Article 273f DCC (as it applied from 1 April 2013) 333 B1c Article 273f DCC (as it has applied from 15 November 2013) 335 B2 Notes to tables, figures and statistics 337 B3 Tables relating to section 2.6.5 ‘Identification of human trafficking in return procedures’ 339 B4 Tables relating to section 2.11 ‘Victims and return’ 345 B5 Explanation of the research method used for the document analysis of the programmatic approach 351 List of figures and tables Chapter 2 Trends and developments Figure 2.1 The D9 procedure (victims of human trafficking) 148 Figure 2.2 Number of identified possible victims during the return procedure (2009-2012) 151 Figure 2.3 Gender (2009-2012) 152 Figure 2.4 Age categories (2009-2012) 152 Figure 2.5 Nationality (2009-2012) 154 Figure 2.6 Report of human trafficking offence (2009-2012) 155 Figure 2.7 Departure categories of aliens who entered the D9 procedure (2009-2012) 156 Figure 2.8 Number of B9 permits granted in the departure category ‘Permit granted’ (2009-2012) 157 Figure 2.9 Victims who returned voluntarily (2008-2012) 216 Figure 2.10 Gender (2008-2012) 217 Figure 2.11 Age (2008-2012) 218 Figure 2.12 Three top-ranked nationalities (2008-2012) 220 Figure 2.13 Referrals to IOM for voluntary return (total for 2010-2012) 222 Figure 2.14 Period between intake and departure (2008-2012) 223 Table 2.1 Top three nationalities 153 Table 2.2 Number of underage victims (2007-2011) 197 Table 2.3 Rankings of nationalities/countries of origin of victims who returned voluntarily (2008-2012) 219 Appendix 3 Tables relating to §2.6.5 ‘Identification of human trafficking in return procedure’ Table B3.1 Number of possible victims identified during the return procedure (2009-2012) 337 Table B3.2 Gender (2009-2012) 337 Table B3.3 Age categories (2009-2012) 338 Table B3.4 Nationality (2009-2012) 339 Table B3.5 Reporting of human trafficking (2009-2012) 340 Table B3.6 Exit categories (2009-2012) 341 Table B3.7 B9 permits granted within the category ‘Permit granted’ (2009-2012) 341 Appendix 4 Tables relating to §2.11 ‘Victims and return’ Table B4.1 Total number of victims who returned voluntarily (2008-2012) 343 Table B4.2 Gender of victims who returned voluntarily (2008-2012) 343 Table B4.3 Age categories of victims who returned voluntarily (2008-2012) 344 Table B4.4 Nationality or county of origin of victims who returned voluntarily (2008-2012) 345 8 trafficking in human beings Ninth Report of the Dutch National Rapporteur Table B4.5 Forms of exploitation of victims who returned voluntarily (2009-2012) 346 Table B4.6 Notifiers to IOM for voluntary return (2010-2012) 346 Table B4.7 Duration of period between intake and departure from the Netherlands (2008-2012) 347 Abbreviations ACM Amsterdam Coordination Centre for Human Trafficking ACVZ Advisory Committee on Migration
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