WOMEN AS COMMODITIES: TRAFFICKING IN WOMEN IN ISRAEL 2003 Nomi Levenkron Yossi Dahan Hotline for Migrant Workers Isha L’Isha - Haifa Feminist Center Adva Center Hebrew text: Advocate Nomi Levenkron, Dr. Yossi Dahan Editing, Hebrew text: Ella Keren Style editing, Hebrew text: Sigal Geffen Consultancy: Dr. Yitzhak Saporta Translation, English text: Dr. Ruth Morris Style editing, English text: Barbara Swirski Cover design: Einat Raveh Illustrations, front and back cover: By victims of trafficking in women in Israel Acknowledgements Our thanks to all the volunteers of the Hotline for Migrant Workers and Isha L’Isha who make regular visits to the victims of trafficking in detention centers and safe houses, providing them with assistance in three areas: Personal assistance: information, moral support, legal aid and representation, and referral to overseas assistance centers Activities vis-a-vis the legal authorities: Representing victims of trafficking and giving lectures to officials Consciousness-raising and media activities for the general public. Thanks are due to Sarai Aharoni, Nitza Berkovitch, Yonatan Berman, Rita Chaikin, Ruti Gur, Ilana Hammerman, Shevy Korzen, Dana Mirtenbaum, Tal Raviv, Sigal Rozen, Hannah Safran, Hila Shamir, and Barbara Swirski for their comments. Special thanks are due to all the volunteers and law students from the Human Rights Division at the Ramat Gan Academic College of Law who interviewed the victims of trafficking, collected documentation and helped to gather data for this report: Galina Alchimovich, Joanna Bogomolny, Lily Donenfeld, Gili Ginsberg, Alla Jukov, Inna Katz, Hagar Kotef, Tal Levitas, Mark Lizerovich, Platon Malinovsky, Lena Maizlin, Alissa Mangofli, Svetlana Natkovich, Lidiya Nikitin, Galit Polatchek, Uri Sadeh, Galit Saporta, Hila Shamir, Kssenia Slesarenko, Lubov Taboriskaya, Larissa Yossilevitch. Further thanks are due to the Assistance Centers for the Victims of Sexual Assault, Amnesty International, Israel Women’s Network, the Coalition against Trafficking in Women, Awareness Center, “We Are Worthy,” Tamar Association, ELEM – Youth in Distress in Israel, Ministry of Social Affairs – the Hotline for Trafficked Women, Human Rights Clinic – Tel Aviv University, L.O. – Combat Violence against Women, all the Women’s Aid Centers, and Ms. Esther Eylam for their work on behalf of women in general, and the victims of trafficking in particular. © All rights reserved to The Hotline for Migrant Workers, Isha L’Isha - Haifa Feminist Center, and Adva Center 2003. No person shall, without the prior authorization of the publisher, copy, store in a database, duplicate, record or transmit in any way or using any electronic, mechanical or other means, all or part of this publication. 2 CONTENTS INTRODUCTION ........................................................................................................5 METHODOLOGY .......................................................................................................6 CHAPTER 1: TRAFFICKING IN WOMEN WORLDWIDE .......................................9 CHAPTER 2: VICTIMS OF TRAFFICKING – MYTH AND REALITY.................. 19 THE VICTIMS ........................................................................................................... 19 THE TRAFFICKING CHAIN ......................................................................................... 21 DAILY “LIFE” AT THE BROTHEL................................................................................ 26 THE MYTH OF THE “HAPPY HOOKER”........................................................................ 35 CHAPTER 3: HOW THE ISRAELI AUTHORITIES DEAL WITH TRAFFICKING IN WOMEN .................................................................................................................... 37 LEGISLATION .......................................................................................................... 37 ENFORCEMENT........................................................................................................ 41 THE STATE ATTORNEY’S OFFICE ............................................................................. 46 THE COURTS............................................................................................................ 48 ECONOMIC ENFORCEMENT....................................................................................... 53 ENFORCEMENT AGAINST THE VICTIMS – THEORY AND PRACTICE............................... 54 CHAPTER 4: PROTECTION AND REHABILITATION OF VICTIMS OF TRAFFICKING.......................................................................................................... 68 SUMMARY AND CONCLUSIONS .......................................................................... 79 BIBLIOGRAPHY....................................................................................................... 81 3 About The Hotline for Migrant Workers The Hotline for Migrant Workers is a non-political organization whose goal is to protect the rights of migrant workers and victims of trafficking in women in Israel. The Hotline’s volunteers regularly visit migrant workers awaiting expulsion in jail. Their activities also include providing migrant workers with information about their rights, humanitarian aid, legal advice and advocacy. In the public sphere the organization campaigns for change in government policy that will help to eradicate the modern forms of slavery existing in Israel. 33 Hachashmal Street, Tel Aviv 65117 Tel: 03-5602530 Fax: 03-5604175 Email: [email protected] Website: http://www.hotline.org.il About Isha L’Isha - Haifa Feminist Center Isha L’Isha is a Jewish-Arab feminist center that strives to change Israeli society by promoting women’s rights, empowering women, eradicating all types of violence against women, and engendering solidarity between women. The Center seeks to disseminate a feminist awareness, to build up a leadership of Arab and Jewish women, to empower impoverished women, and more. 47 Hillel Street, Haifa 33727 Tel: 04-8530159 Fax: 04-8511954 Email: [email protected] About Adva Center The Adva Center is an independent, action-oriented policy analysis center focusing on equality and social justice in Israeli society. The center offers alternatives to current social policy trends for social change organizations and decision-makers. The Adva Center is active in four areas: advocacy, research, organizing social coalitions, and conducting in-service training courses and symposia on issues relating to equality. POB 36529, Tel Aviv 61364 Tel: 03-5608871 Fax: 03-5602205 Email:[email protected] Website: http://www.adva.org The publication of this report has been made possible by the support of the Heinrich Boell Foundation, the New Israel Fund, the Open University, and the Ramat Gan Academic College of Law. The activities of the organizations involved in drawing up this report are supported by private individuals and foundations including the United States Embassy in Israel, Kvina Till Kvina, the American Friends Service Committee, U.S./Israel Women to Women, the Richard and Rhoda Goldman Foundation, the Moriah Fund, the Gimprich Family Foundation, the Rich Foundation, and others. 4 INTRODUCTION Trafficking in human beings worldwide, and in Israel, is steadily increasing. Its main victims are the weakest sectors: inhabitants of poverty-stricken countries, minorities, children, and women. Human trafficking has many faces, but the most common form, and the one that is the focus of this report, is trafficking in women in the sex industry. The report examines the policies of the Israeli authorities (Knesset, Israel Police, prosecuting authorities, courts, and other agencies) toward trafficking in women, and discusses the effects of these policies on the victims. As far as possible, the report seeks to convey the point of view of the victims, in terms of their experiences as sex slaves in Israel, documenting the violations of their human rights. Trafficking in women in its current form has existed in Israel since the early 1990s. The reasons leading up to its present scale involve both global and local processes; and there are both “supply” and “demand” aspects to this development. The break-up of the Soviet Union contributed greatly to the increase in the supply of women available for prostitution. The economic upheaval and the collapse of the social safety nets in the countries of the former Communist bloc brought about a situation in which millions of destitute men and women need to struggle just to survive. Trafficking in women also thrives because of the enormous demand, estimated at a million visits to brothels in Israel every month.1 The indifference to this phenomenon demonstrated by both the enforcement agencies and the general public indicates that the purchase of sex enjoys a high level of legitimacy in Israeli society. Until 2000, victims of sex trafficking were perceived as criminals who had entered the country clandestinely in order to engage in shady business in Israel. The prosecuting authorities instructed the Israel Police not to interfere in what went on in brothels, other than in exceptional circumstances. Accordingly, the police preferred to use pimps as intelligence sources for investigating other crimes, treating trafficking in women as an insignificant offence. Victims of trafficking rarely gave evidence about the crimes perpetrated against them, and the authorities simply arrested and deported them. In May 2000, Amnesty International published a highly critical report about trafficking