RAPPingOK 17-06-2003 17:35 Pagina 1 ARTICLE 18: PROTECTION OF VICTIMS OF TRAFFICKING AND FIGHT AGAINST CRIME (ITALY AND THE EUROPEAN SCENARIOS) RESEARCH REPORT Project "Osservatorio sull'applicazione dell'art. 18 del D.Lgs. n. 286 del 25/7/1998 nel contesto delle norme di contrasto della criminalità contro i migranti" STOP Programme European Commission - Justice and Home Affairs Promoting Organisation Emilia-Romagna Region – Department for Social Policies. Immigration. Youth Project. International Cooperation Co-ordinating Organisation Associazione On the Road RAPPingOK 17-06-2003 17:35 Pagina 2 Copyright © On the Road Edizioni, 2002 On the Road Edizioni Associazione On the Road Via delle Lancette 27-27A 64014 Martinsicuro (TE) telephone (++ 39) 0861/796666 – 762327 fax (++ 39) 0861/765112 e-mail: [email protected] sito web: www.ontheroadonlus.it RAPPingOK 17-06-2003 17:35 Pagina 3 European Assessorato Politiche Sociali. Immigrazione. Associazione Commission Progetto Giovani. Cooperazione On the Road Internazionale This volume was written within the framework of the project “Observatory on the appli- cation of Article 18 of the legislative decree no. 286/1998, within the framework of the regulations aimed at combating crimes against migrants”, for which the Emilia-Roma- gna Region is accredited and which is being implemented by the Associazione On the Road. The project was approved of and financed by the European Commission, Direc- torate General for Justice and Home Affairs, through the STOP Programme. Participating bodies Universities of Turin, Bologna, Barcelona and Frankfurt; Italian Department for Equal Opportunities - Presidency of the Council of Ministers, and C.N.C.A. (National Coordi- nation of Care Communities). Scientific Committee Cinzia Ioppi (Emilia-Romagna Region - Italy), Maria Virgilio (University of Bologna - Italy), Davide Petrini and Franco Prina (University of Turin - Italy), Vincenzo Castelli and Marco Bufo (Associazione On the Road - Italy) Research experts Isabella Orfano (Associazione On the Road - Italy), Chiara Bertone and Valeria Ferra- ris (University of Turin - Italy), Francesca Curi (University of Bologna - Italy), Daniela Danna and Davide Bertaccini (University of Trento - Italy), Emanuela Fronza (Univer- sity of Modena and Reggio Emilia - Italy), Giulio De Simone (University of Teramo - Italy), Dagmar Oberlies (Fachhochschule Frankfurt am Main, University of Applied Sciences - Germany), Mercedes Garcìa Arán and Maria Cugat Mauri (Universidad Auto- noma de Barcelona - Spain), Maria del Mar Diaz Pita (University of Seville - Spain), Maria José Magaldi (University “Pompeu Fabra” - Spain). Editing: Isabella Orfano Layout: Eugenio Mucciconi This research could not have been completed without the help of the associations’ enti- re staff, NGOs, local authorities, law enforcement agencies, and the Public Prosecutor's Offices, who generously supported the research team by giving of their precious time and expertise. The content of this volume does in no case represent the official opinions of the European Com- mission or its Services. RAPPingOK 17-06-2003 17:35 Pagina 4 RAPPingOK 17-06-2003 17:35 Pagina 5 5 Table of contents Preface . 11 Introduction . 23 CHAPTER I General guidelines: placing the research in the context of general observations concerning Article 18 . 29 1. Analysis of Art. 18 within the framework of legislation concer- ning immigration and measures aimed at fighting organised crime. The history and rewarding nature of present and previous legislation, by Davide Petrini and Valeria Ferraris . 29 1.1 The law preceding Article 18: decree no. 477 of 1996 . 30 1.1.1 The provisions of the law: the conditions and proce- dure for the issuing of the residence permit . 32 1.1.2 The regulations governing the residence permit: dura- tion, extension and revocation . 34 1.1.3 Survival of the regulations, despite the lack of reitera- tion of decree no. 477 of 1996 . 35 1.2 Art. 18 of the legislative decree no. 286/1998: residence fo rea- sons of social protection of victims and to combat crime . 37 1.2.1 The identification and importance of the dual social and juridical path for the issuing of the residence permit for reasons of social protection . 41 1.2.2 Prerequisites for the issuing of a residence permit: vio- lence, exploitation and concrete danger to personal safety 45 1.2.3 The proposal . 46 1.2.4 The opinion of the Public Prosecutor and other neces- sary conditions for the issuing of a residence permit for rea- sons of social protection . 47 1.2.5 The duration, conversion and revocation of the resi- dence permit for reasons of social protection . 48 RAPPingOK 17-06-2003 17:35 Pagina 6 6 Table of contents 1.3 Article 18 as a rewarding norm? . 49 2. Article 18 within the framework of social policies concerning pro- stitution and immigration, by Franco Prina . 56 2.1 Some introductory remarks . 56 2.2 Construction of the issue through research, direct knowledge on the phenomenon and rhetorical simplifications . 59 2.3 Policies on prostitution at the intersection between rhetoric and interests . 64 2.4 Article 18 as part of policy-making on prostitution and immi- gration issues . 67 2.5 The relevance of the local dimension . 68 3. Article 18 within the framework of criminal legislation aimed at combating crime against migrants, by Maria Virgilio . 73 3.1 Law concerning immigration (1998-1999) . 75 3.2 Law against paedophilia . 75 3.3 The Legge Merlin concerning prostitution . 76 3.4 The “Rocco” Criminal Code of 1930 . 79 4. National data concerning residence permits, projects and proce- dures, and connected juridical routines, by Valeria Ferraris, Davide Petrini, Franco Prina, Maria Virgilio . 86 4.1 Data concerning residence permits . 86 4.2 Data on projects and individual experiences . 88 4.3 Data on relevant judicial activities . 93 5. Enquiry methods: choices, tools, problems, by Davide Petrini, Franco Prina, Maria Virgilio, Chiara Bertone, Valeria Ferraris, Isabella Orfano . 97 5.1 General aspects and problems of the enquiry . 97 5.2 Study of juridical aspects . 100 5.3 Study of reception and support projects . 102 5.4 Study of the relevant judicial activities . 103 RAPPingOK 17-06-2003 17:35 Pagina 7 Table of contents 7 CHAPTER II The study of sentences . 107 1. The judicial activity aimed at combating crimes against migrant, by Maria Virgilio . 107 1.1 The selection of sentences . 107 1.2 Modena . 110 1.2.1 Collection criteria . 110 1.2.2 The authors of the crimes . 111 1.2.3 The injured parties . 11 3 1.2.4 The charges made: the prevalence of Art. 3 of Law no. 75/58 . 11 5 1.2.5 Authority involved . 11 8 1.2.6 The outcome of trials for defendants . 11 8 1.2.7 Aggrieved party . 121 1.2.8 Two cases of obligation to slavery . 121 1.3 Bologna . 122 1.4 Ravenna . 123 1.5 Rimini . 124 1.6 Lecce . 128 1.7 Turin . 129 1.8 Rome . 131 1.9 Common aspects . 132 1.9.1 Comparison with protection measures . 132 1.9.2 Cognitive elements . 132 1.9.3 Trial outcomes and the role of reports . 133 1.9.4 Special evidence pre-trial hearing (incidente probatorio) 134 1.9.5 The constitution of the aggrieved party . 135 1.9.6 Free legal aid paid by the State . 135 RAPPingOK 17-06-2003 17:35 Pagina 8 8 Table of contents CHAPTER III The comparative dimension . 137 1 Introduction, by Maria Virgilio . 137 2. A comparison with the Spanish legal system, by Mercedes Garcìa Arán . 139 2.1 Introductory remarks . 139 2.2 Art. 59 of the law on foreign citizens . 142 2.3 The ambit of application . 143 2.4 Co-operation of the victim or witness with the authorities . 146 2.5 The reward . 147 2.6 The different prospects for migrants who have already been sanctioned . 148 2.7 The importance of the regulation from a social point of view 148 2.8 Conclusions . 149 2.9 Proposals on the co-operation of victims in the repression of criminal organised networks . 151 3. A comparison with the German legal system, by Dagmar Oberlies . 153 3.1 Preliminary remarks . 153 3.2 Prostitution: a social normality in Germany . 154 3.2.1 The legality of prostitution . 155 3.3 Trafficking in women . 157 3.3.1 Definition: trafficking in women and trafficking in human beings . 158 3.3.2 The trafficking of human beings in the German legal system . 160 3.3.3 The extent of the trafficking in human beings in Germany . 162 3.3.4 The penalties foreseen for trafficking in human beings 164 3.3.5 The legal situation of women under the laws on forei- gners (Ausländerrecht) . 164 3.3.6 List of indicators . 166 RAPPingOK 17-06-2003 17:35 Pagina 9 Table of contents 9 3.3.7 Stays during court cases . 168 3.3.8 Witness protection programmes . 169 3.3.9 The Frauenhandel (trafficking in women) Interministerial Working Group . 171 3.3.10 The specialised consultation centres . 173 3.3.11 Deportation . 175 3.4 An overview . 176 4. Transnational comparisons and prospects, by Maria Virgilio.