This record is a partial extract of the original cable. The full text of the original cable is not available.

UNCLAS SECTION 01 OF 20 THE HAGUE 000521 
 
SIPDIS 
 
SENSITIVE 
 
STATE FOR G/TIP, G, INL, DRL, PRM, IWI, EUR/PGI, EUR/UBI 
 
E.O. 12958: N/A 
TAGS: KCRM PHUM KWMN ELAB SMIG ASEC KFRD PREF NL
SUBJECT: ANNUAL REPORT ON ANTI-TRAFFICKING IN PERSONS - THE 
NETHERLANDS 
 
REF: (A) STATE 7869      (B) 03 STATE 218687 
 
¶1. Part one summarizes progress achieved during the year 
(Reftel B) and Part two is the fourth annual report on anti- 
trafficking in persons (TIP) for the Netherlands.  The 
report follows the format outlined in reftel.  Preparation 
time is about 200 hours (FSN - 110; FS-02 - 80; FS-02 - 10 
hours). 
 
¶2.  Embassy's points of contact are Capie Polk and Mieke 
Gronheid in the Global Issues Section.  They can be reached 
at 31-70-310-9289/269 (phone), 31-70-310-9348 (fax), or 
email polkc@state.gov, and gronheidmc@state.gov. 
 
---------------- 
Part 1 - Summary 
---------------- 
 
¶3.   Working with a receptive government willing to commit 
significant resources (in difficult economic times) to the 
fight against TIP and a strong NGO community, we have noted 
considerable progress on TIP issues during the past year: 
 
- Justice Minister Donner proposed legislation in late 2003 
which would bring Dutch law in accordance with UN and 
international TIP standards.  The legislation expands the 
definition of people trafficking to include labor 
trafficking and raises the maximum penalties for violations. 
Passage and implementation is expected by June 1, 2004, in 
compliance with EU deadline. 
 
- The Office of National Rapporteur has received funding 
through 2004. 
 
- Using an October 2002 amendment to the Public Morality 
Act, the Netherlands arrested a Dutch citizen in October 
2003 for sexually abusing minors in the Gambia.  In 
addition, the travel industry and MFA have prepared 
materials and conducted outreach to educate the public about 
the problem of sex tourism.  The government has committed 
significant resources to funding anti-TIP programs in source 
countries, from Eastern Europe to Southeast Asia.  The 
government and NGOs have initiated public information 
campaigns against young prostitutes and lover boys in the 
Netherlands. 
 
- A senior MFA official told U/S Dobriansky TIP would be a 
Dutch priority during their priority, building upon their 
strong TIP record as OCSE chair.  The Dutch police TIP team 
is already developing a Joint Investigation Team with 
certain EU members to target Bulgarian traffickers. 
 
- Recognizing the importance of victim protection, Dutch 
government increased funding for women's shelters (open to 
Dutch and non-Dutch TIP victims) in 2004.  Police and 
prosecutors received additional training on dealing with TIP 
victims and informing them of their rights and the 
assistance available to them.  The government is revising 
its rules to permit TIP victims to work while in B-9 status. 
 
- The "Ama" problem has largely been resolved. 
 
- The government continued its no tolerance policy with high 
profile investigations, prosecutions and convictions of 
lover boys and traffickers.  Prosecutors and police are 
increasingly focusing on targeting the profits from 
trafficking. 
 
¶4.  The Dutch government remains politically committed to 
combating trafficking in persons and has a sustainable, 
broad based action plan to achieve results.  We look forward 
to working with the Dutch to build on these achievements 
domestically and internationally. 
----------------- 
Part 2 - Overview 
----------------- 
 
A-1.  The Netherlands is both a destination and transit 
country for international trafficking in persons (TIP), 
mostly women and girls for the purpose of sexual 
exploitation, although some labor trafficking occurs. 
Trafficking victims are also "recruited" internally by so- 
called "lover boys," primarily Moroccan or Turkish young 
men/boys living in the Netherlands, who seduce young, mostly 
immigrant girls into prostitution.  The problem with the 
disappearances of single underage asylum seekers (AMA's) 
mentioned in previous reports has been almost completely 
resolved thanks to tighter immigration regulations and 
controls and security at refugee centers. 
 
A-2.  The Netherlands has an advantage in the difficult task 
of obtaining accurate numbers on TIP victims in the 
Netherlands.  The Bureau of the National Rapporteur for 
Trafficking in Persons (NRM - "National Rapporteur") is a 
government-supported independent voice focusing only on the 
TIP issue.  It consults the broadest range of people (from 
police to NGOs to victims), has access to the greatest 
number of information sources and uses the most scientific 
methods in reaching its conclusions.  It estimates about 20% 
of the 25-30,000 prostitutes in country in 2000 were 
trafficking victims (at least 3,500 persons - the NRM's 
third annual report containing the most recent TIP figures 
is not yet published).  There is no agreement on numbers 
within the NGO community however, with one NGO putting its 
estimate as high as 80%. 
 
A-3.  The Dutch Foundation against Trafficking in Women 
(STV), which is the national reporting center for 
registration of and assistance to TIP victims in the 
Netherlands, registered 343 TIP victims in 2002, compared to 
284 in 2001.  Of these, about 12 percent were underage 
girls. 
¶B.  According to the STV, 170 came from Central and Eastern 
Europe, 105 from Africa, 21 from Western Europe, 13 from 
Asia, 11 from Latin America, and six from the Middle East 
(17 had an unknown origin).  The top five originating 
countries in 2002 were Bulgaria (59), Nigeria (45), Romania 
(22), the Netherlands (18), and Russia (16).  For 2003, the 
STV registered 257 victims (a 25-percent decrease from 2002 
numbers), of whom 134 were from Central and Eastern Europe, 
64 from Africa, 16 each from Latin America and Asia, and 13 
from the Netherlands.  Of the 257, 20 were under 18 years. 
The top five originating countries in 2003 were Bulgaria 
(47), Romania (32), Nigeria (22), Russia (15), and Brazil 
(14). 
 
C-1.  The STV attributes the drop in reported victims to a 
new registration system that became operational in 2003 and 
enables it to keep more accurate records (diminishing 
possibility of double counting).  It is also true that in 
2003, the government and the public showed a much greater 
awareness of the problem of internal trafficking, 
particularly the "lover boy" method, and began several 
studies and awareness campaigns to define and tackle the 
causes of this primarily psychological form of enslavement 
into prostitution.  According to the national TIP 
prosecutor, about 25 percent of investigations in 2002 
related to internal trafficking. 
 
C-2.  The new STV registration system also allows STV to 
categorize more details of reported victims - such as their 
legal residency status.  STV urges caution when relying upon 
its numbers, however, because not all victims are reported 
to it.  For example, everyone does not yet know STV's 
function as a national referral center.  According to the 
STV, there was more focus on youth prostitution in 2003. 
However, youth organizations do not sufficiently recognize 
these young prostitutes as possible TIP victims.  They 
appear to consider them more as victims of prostitution. 
So, they do not necessarily report victims to STV. 
 
¶D.  The NRM, set up in April 2000, is an independent 
government agency, led by a judge with a staff of two 
analysts.  It receives about 500,000 dollars per year from 
five different ministries (Justice, Internal Affairs, 
Foreign Affairs, Social Affairs, and Health).   NRM 
published its first annual report in May 2002, followed by a 
second in January 2003.  Publication of the third report has 
been delayed to spring 2004.  Funding for the NRM has been 
guaranteed through 2004 and future funding will be discussed 
in Parliament in spring 2004. 
 
¶E.  According to the reports by the NRM and police, 
practically all trafficked women are forced to work in the 
illegal prostitution sector. 
 
E-1.  There are no data about other forms of labor, but a 
study by the Social Affairs Ministry's Labor Inspection 
(published in January 2004) showed that more than 18 percent 
of the 654 agricultural and horticultural companies 
inspected in 2002 were employing illegal immigrants.  They, 
however, were not considered TIP victims.  According to the 
Ministry, 101 companies were officially charged, and 18 
received warnings.  Most of the illegal laborers came from 
EU accession countries, such as Poland and the Czech 
Republic.  The Social Affairs Ministry will raise the number 
of labor inspectors in 2004 by 80 to 180 in an effort to 
fight illegal labor.  In addition, in September 2003, the 
government submitted a bill to parliament enabling labor 
inspectors to penalize employers hiring illegal workers 
directly.  Currently, violations of the Labor Law are 
punishable only by criminal sanctions.  The maximum civil 
fine under the pending legislation will be 45,000 euros. 
The bill is still awaiting parliamentary approval.  In 
January 2004, Immigration Minister Verdonk announced that 
families who make their au pairs work longer than 30 hours a 
week can expect a substantial fine and a five-year ban on 
employing au pairs.  Research showed many host families do 
not keep to the regulations with girls often performing 
heavy duties, which is not permitted. 
 
E-2.  The 2002 NRM report shows exploiters have many ways to 
control their victims and keep them from contacting the 
police or counseling agencies.  These include: 
 
- threat of or actual violence, rape and/or ill-treatment; 
- threat of or actual violence against the victim's family; 
- coercion by debt bonding; 
- withholding of money for a return ticket and seizure of 
identification papers; 
- confinement of victims at their workplace; 
- constant monitoring and prohibition of any contacts with 
family or friends; 
- tattooing of victims, especially in the case of "lover 
boys," as a sign of "ownership"; 
-    Sale of the victim, or threat of sale to another pimp; 
-    instilling fear of police, justice and victim support 
organizations; 
-    forced use of alcohol and drugs; and 
-    voodoo practices in the case of victims from Africa, 
particularly Nigeria and Malawi. 
 
¶F.  TIP victims are recruited both domestically, in the case 
of "lover boys," and internationally..  The victims of 
"lover boys" are mostly underage girls and young women of 
Moroccan and Turkish descent.  The internal and external 
lines are blurred in the case of EU member countries and EU 
accession countries where there are numerous legal work and 
residency arrangements.  According to the national TIP 
prosecutor, most TIP victims are legally resident in the 
Netherlands.  The national prosecutor described traffickers 
as primarily engaged in small networks, involving 
independent and interchangeable entrepreneurs, not highly 
organized and institutionalized.  Despite this "small 
network" characterization, both the national prosecutor and 
the national police TIP team leader believe there is 
substantial money made from trafficking and intend to focus 
law enforcement efforts on tracking and denying these 
profits. 
 
G-I.  The Dutch government is making serious and sustained 
efforts to eliminate severe forms of trafficking in persons. 
At the same time, the media keeps this issue at the 
forefront of public awareness and encourages government and 
NGO efforts to work against TIP.  There are no resource or 
legal limitations on the government's ability to address the 
problem in terms of prevention, protection and prosecution, 
other than the continuous balancing of priorities in tight 
budgetary times.  There is adequate police funding (the 
total number of police involved in TIP cases is mentioned in 
Prosecution paras F-G), and the government subsidizes many 
Dutch and foreign NGOs working with trafficking victims (see 
below).  The STV receives about 375,000 dollars per year 
from the Ministries of Health, Welfare and Sports and 
Justice for its basic organization - and much more for its 
programs and projects; the National Rapporteur receives 
about 500,000 dollars per year from the Justice and other 
Ministries.  Regional governments fund shelters, victim 
protection programs and local education programs. 
Anecdotally, these are more than adequate while actual 
funding statistics are not available. 
 
There are no reports of government officials' involvement in 
or tolerance of trafficking activities, nor are there any 
other reports of corruption in this area. 
 
¶J.  All anti-trafficking efforts are monitored and assessed 
by the National Rapporteur. 
 
¶K.  Prostitution for individuals 18 years of age and older 
is legal and regulated.  In October 2000, Article 250a of 
the Dutch criminal code was amended to strengthen penalties 
on forms of organized prostitution involving violence, 
misuse of power, deception and the exploitation of minors 
(under 18).  At the same time, the general ban on brothels 
was lifted as a means to fight trafficking in persons.  The 
aim was to set up a licensing system for brothel operators 
and improve working conditions for prostitutes, thereby 
lowering the sector's susceptibility to crime, particularly 
the victimization of prostitutes by pimps and traffickers. 
An important additional factor was the belief the licensing 
system would make the sector more transparent and easier for 
the police to monitor.  According to the national police TIP 
team leader, the policy has been successful.  As a result of 
strict controls and licensing requirements, the sector has 
become "cleaner and much more transparent . . . You no 
longer find illegal aliens or TIP victims working in 
brothels."   The STV concluded legal prostitution had become 
unattractive for illegal prostitutes, because of the strict 
licensing criteria and most TIP victims were now found in 
the illegal prostitution sectors: illegal escort services, 
street walking and home prostitution.  Government ministry 
officials and parliamentarians support the experiment in 
legalized prostitution for these reasons and state it is 
still too early for a complete analysis of success or 
failure. 
Clients who knowingly engage prostitutes who are TIP victims 
can be prosecuted under trafficking and vice laws (for 
benefiting from a criminal activity), but there have been no 
prosecutions of this type due to the difficulties in proving 
prior knowledge of the prostitute's status as a TIP victim 
by the client. 
 
In December 2003, Amsterdam closed its specially designated 
street-walking zone for prostitutes (distinct from 
prostitutes working from licensed brothels and windows). 
The Hague has limited the hours of its street-walking zone 
as of October 2003 and will close it down completely in 
¶2005.  Rotterdam has also proposed closing down its zone as 
well in 2005.  According to the cities' mayors, the zones, 
originally intended as places where drug-addicted 
prostitutes only could work (and get some protection and 
assistance), had become too busy with other women, mostly 
from Eastern Europe, who often were illegal and/or suspected 
TIP victims.  Amsterdam Mayor Cohen said he no longer wanted 
to "lend a helping hand" to criminals. 
 
¶L.  There is no practice of buying or selling child brides 
in the Netherlands.  A few years ago the Cabinet proposed 
raising the age at which marriage candidates from foreign 
countries are allowed access in the Netherlands from 18 to 
21 years.  That legislation is still pending.  The increase 
in age is meant to curb the inflow of young brides and 
grooms from Morocco and Turkey. 
 
---------- 
Prevention 
---------- 
 
¶A.  The Dutch government recognizes the seriousness of TIP 
crimes in the Netherlands and considers trafficking in 
people a flagrant and unacceptable violation of human 
rights.  High-priority government measures include support 
for the National Rapporteur's office, a more aggressive 
prosecution policy and extensive law enforcement (judges, 
prosecutors and police) training to identify and protect 
victims, as well as closer international cooperation and 
significant funding for foreign TIP programs. 
 
¶B.  The Ministries of Justice, Internal Affairs, Foreign 
Affairs, Health and Welfare, and Social Affairs and the 
Bureau of the National Rapporteur on Trafficking in Persons 
(NRM) are involved in anti-trafficking efforts. 
 
¶C.  The Dutch government attaches great importance to 
information and education campaigns, particularly aimed at 
building up the defense and self-esteem of young people in 
situations of (sexual) abuse of power, including abuse by 
"lover boys."  These "defense courses" (Marietje Kessels 
courses), financed by the Justice Ministry, were initially 
meant for elementary schools.  A similar curriculum has been 
developed for high schools in the context of the Justice 
Ministry's Stimulation Scheme for Crime Prevention.  In 
addition, the Amsterdam-based "Scarlet Cord" organization is 
giving prevention lessons in schools throughout the country 
in the context of its "Beware of Lover Boys" project. 
Similar local initiatives are described in the manual on 
"Prevention of and Assistance to Girl Prostitution," which 
has been widely distributed among Dutch municipalities.  The 
manual was published in the context of the National Action 
Plan on Sexual Abuse of Children, which is coordinated by 
the Justice Ministry.  In January 2004, Justice Minister 
Donner indicated willingness to subsidize a national 
expertise center aimed at combating the "lover boy" problem. 
 
At the end of 2003, the Second Chamber of the Dutch 
Parliament adopted a resolution asking the government to 
start a national awareness-raising campaign among 
prostitutes, which should include a central (stepping-out) 
phone line for prostitutes having questions about 
assistance, etc.  Justice Minister Donner promised the 
Chamber an inventory of existing campaigns and of witness 
protection programs in the first half of 2004.  The Justice 
and Health Ministries also subsidized information campaigns 
by the "Red Thread" Foundation, an NGO that defends the 
interests of prostitutes. 
 
In January 2004, Justice Minister Donner started the nation- 
wide "anonymous crime reporting" hotline after a similar 
experiment in five police regions proved successful. 
Although most tips concerned drug trafficking, people also 
reported (alleged) cases of trafficking. 
 
In order to fight (child) sex tourism, the Dutch Foreign 
Ministry's website includes travel information warning 
tourists of this problem.  Moreover, the National Travel 
Agents' Association (in which 90 percent of all Dutch travel 
agencies participate) together with ECPAT Netherlands have 
developed a travel agency "code of conduct" against 
trafficking as well as public awareness campaigns aimed at 
Dutch tourists and travel agencies, which are meant 
primarily to combat sexual exploitation of children.  In 
addition, the Netherlands has participated in the Interpol 
"specialists group on crimes against children" since 1992. 
The Public Morality Act penalizes Dutch nationals in the 
Netherlands, who abuse minor children in foreign countries, 
even if the offense is not a crime in the country where it 
took place.  See below for a recent prosecution under this 
law. 
 
D-1.  The Dutch government supports domestic and foreign 
programs promoting the empowerment of women.  Dutch 
embassies in countries of origin try to warn women who are 
potential victims of trafficking by working through foreign 
NGO's and the IOM.  Moreover, the Dutch government attempts 
to prevent trafficking by carrying out projects that aim to 
foster economic self-reliance among women in developing 
countries with which the Netherlands has bilateral 
assistance programs.  "Gender mainstreaming" is an important 
aspect of Dutch foreign policy.  Following are some projects 
to prevent trafficking in persons funded from the Dutch 
Foreign Ministry's development cooperation budget: 
-- The "La Strada" program for the prevention of trafficking 
in women in Central and Eastern Europe.  The money is 
channeled via the STV to NGOs in 12 Central and Eastern 
European countries.  The Netherlands committed about USD 1.5 
million to the project's second phase (2001-2004). 
 
-- Albania:  The "TIR Anti-Trafficking Campaign" and the 
"TIR IOM Reintegration" projects.  Total contribution:  Over 
USD one million.  Implementing agency: IOM. 
 
-- Armenia:  The "Capacity Building Support and Victim 
Assistance" project.  Contribution: USD 305,000. 
Implementing agency: UNDP/UMCOR. 
 
-- Bulgaria:  The "Capacity Building and Program 
Development" project and the "Crisis Counseling and Social 
Rehabilitation"/continuation of the Bulgarian TIP project. 
Implementing agency: Dutch co-financing organization Novib. 
 
-- Croatia:  The "Prevention of Trafficking in Women and 
Children" project.  Contribution: 10,000 euros (large part 
of the total budget is financed by USAID).  Implementing 
agency: IOM. 
 
-- Latvia: "Youth Workers Education on Prevention of Human 
Trade."  Contribution: 1,534 euros.  Implementing agency: 
Valmiera Youth Support Fund. 
 
-- Lithuania: "Prevention of Trafficking in Women in 
Lithuania: Interactive Consultations via Internet and 
Telephone."  Contribution: 11,183 euros. 
 
-- Macedonia: "SKO IOM Trafficking/Victims."  Contribution: 
478,146 euros.  Implementing agency: IOM. 
 
-- Ukraine:  "Creating Videoclip: National Toll Free Hotline 
for Prevention of Trafficking."  Contribution: 1,759 euros. 
Implementing agency: La Strada Ukraine. 
 
-- Poland:  "Child Prostitution" project.  Contribution: 
6,210 euros.  Implementing agency: Pro-ECPAT. 
 
-- Romania:  "TIP Prevention through Student Campaign." 
Contribution: 9,610 euros.  Implementing agency: FAM-Net 
Federation. 
 
-- Serbia and Montenegro:  Several projects including the 
"Referral and Counseling Center" (109,000 euros - OSCE); 
capacity building program at Social Affairs Ministry, Serbia 
(USD 440,000 - UNDP); the "Montenegro Democratization" 
project (47,750 euros - OCSE); the "Open your Eyes" project 
(49,497 euros - ASTRA, local NGO); and the "Network of Trust 
to Fight Gender" (48,945 euros - Incest Trauma Center, local 
NGO) 
 
-- In Cambodia, the Netherlands finances several projects: 
 
     USD 645,969 to the "Law Enforcement against Child 
Sexual Exploitation and Human Trafficking" (LEASEC) project, 
a cooperation initiative of UNICEF with the Cambodian 
government; 
     EUR 589,914 to the UNDP/Netherlands Partnership for 
Gender Equity; 
     USD 300,000 to Licadho, an NGO that fights sexual 
exploitation of children; 
     USD 450,000 to Adhoc, an NGO that protects human 
rights; 
     USD 450,000 to Legal Aid Cambodia. 
 
In addition, the Dutch Embassy in Bangkok, which covers four 
countries (Thailand, Laos, Cambodia and Burma), contributes 
to the PKP ODA programs in relation to anti-trafficking 
efforts in Cambodia and Laos; to Healthcare Center for 
children in Phnom Penh; to the Cambodia Prostitute 
Collective; to a street children project in Phnom Penh, to 
the Cow Bank for the Handicapped in Pailin, which aims at 
raising community awareness concerning the issue of 
trafficking; and to a pilot project aimed at commercial 
sexual exploitation of children implemented by Sihanoukville 
Response Network. 
 
-- The Foreign Ministry contributes some USD 500,000 to the 
Esperanza Foundation in the Netherlands for the prevention 
(over a multi-year period) of trafficking in women in 
Colombia. 
 
-- The Netherlands annually contributes to the UN Women Fund 
(UNIFEM).  Its 2002 commitment was about USD 4 million and 
USD 3 million in 2003. 
 
The Netherlands is also tackling the problem in partnership 
with other EU member-states. 
 
D-2.  In the Netherlands, education is compulsory for boys 
and girls between the ages of 5 and 16.  Participation in 
education beyond compulsory school age has shown a 
progressive rise in recent years, especially among women. 
As a result, women around the age of 18 are now actually 
"over-represented" in full-time education. 
¶E.  Yes, the Dutch government actively supports prevention 
programs (see above) even in times of budgetary restraints. 
 
¶F.  There is a close relationship between government 
officials, NGOs and other relevant organizations on the 
trafficking issue.  Private-public partnerships are a common 
feature of Dutch society in this and many other fields.  The 
national and local governments provide much of the financial 
support for TIP NGOs throughout the country. 
 
¶G.  Under the Schengen agreement, the Netherlands has opened 
up its borders with neighboring EU countries.  In addition, 
its central geographical position and role as a major air 
and sea transfer nexus make it difficult to monitor all 
Dutch borders, but the Dutch commit major resources and 
priority to this issue.  The Royal Military Police (Kmar) is 
responsible for border controls.  The Dutch Immigration and 
Naturalization Service (IND) monitors immigration flows. 
Dutch law enforcement agencies respond appropriately (and 
have engaged in TIP training this past year) should there be 
any evidence of trafficking.  The National Rapporteur 
monitors these immigration patterns and includes them in her 
report. 
 
¶H.  The Netherlands has an interdepartmental working-group 
on TIP representing experts from the Ministries of Foreign 
Affairs, Interior, Justice, Health and Welfare, and Social 
Affairs.  The NRM acts as a mechanism for coordination and 
communication.  The Rapporteur reports annually to the 
government on the nature and extent of TIP, latest 
developments and the effects of policy.  The NRM advises the 
government on how to improve the TIP fight and prevention 
methods.  In 1999, the Dutch police set up the "Prostitution 
and Trafficking in Persons Project Group," which brings 
together representatives of all police regions as well as 
the national police, the Royal Military police and the 
national TIP prosecutor.  A steering group including the 
NRM, the mayor of The Hague, and the national prosecutor 
monitors this police project.  The Netherlands also has a 
public corruption task force. 
 
¶I.  The Dutch government actively participates in 
multinational and international working groups and efforts 
to prevent, monitor and control trafficking.  It placed the 
topic high on the agenda of the Organization for Security 
and Cooperation in Europe (OSCE), which the Dutch chaired in 
2003, and successfully shepherded through an Action Plan on 
TIP, establishing a mechanism to combat TIP.  In addition, 
the Netherlands currently chairs the Council of Europe 
(November 03-May 04), and one of its priorities is be the 
draft European trafficking convention.  According to the 
Foreign Ministry, TIP will also be a priority for the Dutch 
EU presidency in the second half of 2004.  The Dutch 
government has close ties with Europol, which is 
headquartered in The Hague. 
¶J.  The annual reports by the Rapporteur and its 
recommendations are considered the national action plan of 
the Dutch government to address trafficking in persons.  The 
Rappporteur consults widely in preparing her reports -with 
government agencies and officials and with the law 
enforcement officers, NGOs, victims and academics.  The 
reports are presented to and discussed in Parliament.  They 
are available over the internet and copies provided to 
anyone who is interested.  In addition, the Dutch government 
published a national plan of action to fight sexual abuse of 
children in April 2000. 
¶K.  The National Rapporteur - see H. 
 
-------------------------------------------- 
Investigation and prosecution of traffickers 
-------------------------------------------- 
 
A-1.  Article 250a of the Dutch criminal code defines as 
punishable offences: 
 
-- forcing another person to engage in prostitution by means 
of violence, or by means of the threat of force or another 
act of violence, or by abusing his or her authority ensuing 
from an actual relationship, circumstance or by 
misrepresentation, or who undertakes any action which he or 
she knows or could reasonably suspect, may bring the other 
to perform sexual acts; 
 
-- inducing a minor to engage in prostitution; 
 
-- recruiting, abducting or taking a person to engage in 
prostitution in another country (pursuant to the 1933 
international convention for the suppression of the traffic 
in women of full age); 
 
-- receiving income from prostitution involving a minor or a 
person forced to engage in prostitution; 
 
-- forcing another person to surrender income from 
prostitution. 
 
A-2.  On November 12, 2003, Justice Minister Donner 
submitted to the Second Chamber of Parliament the "bill on 
smuggling and trafficking in persons" to bring Dutch law in 
line with other international treaties.  The bill expands 
the definition of people trafficking to all forms of modern 
slavery and the removal of human organs.  It defines 
exploitation as "exploitation of another in prostitution, 
other forms of sexual exploitation, forced or compulsory 
labor or services, slavery and practices that can be 
compared to slavery or bondage."  Exploitation of minors, 
defined as people under 18, is always punishable, even if 
there is no coercion.  The bill raises the maximum penalty 
for all types of trafficking to 12 years in case of serious 
physical injury and 15 years in case of death, which is 
commensurate with penalties for other grave crimes (i.e., 
rape).  The bill currently is in the final stages of the 
customary legislative process and passage is expected.  The 
Justice Ministry anticipates the new legislation will be in 
place by June 2004. 
 
A-3.  In addition to the anti-trafficking law, the 
Netherlands also has national legislation penalizing slave 
trade and abduction, as well as strict labor laws.  Taken 
together, these laws are fully adequate to cover the full 
scope of trafficking in persons.  In addition, this year, a 
district court in Heerlen used public nuisance ordinance to 
fine a man for driving slowly through the streets asking 
streetwalkers for their prices.  The appeals court upheld 
the decision. 
¶B.  The current maximum sentence for trafficking in persons 
is six years.  In cases involving minors, severe physical 
violence or organized trafficking, the maximum sentence is 
ten years.  The pending legislation raises these penalties 
to a maximum of 15 years. 
 
C-1.  Article 242 of the criminal code says any person who 
by means of violence or other means or threat of violence or 
other means, compels another person to submit to an act 
which includes or constitutes physical penetration, shall be 
guilty of rape and liable to a term of imprisonment not 
exceeding 12 years and/or a fifth-category fine (15 years in 
the case of death).  Similar penalties are set forth for 
serious trafficking offenses in the pending legislation. 
 
C-2.  Article 246 of the criminal code says any person who 
compels another person to commit or submit to an indecent 
act, by means of violence or the threat of violence or any 
other means, shall be guilty of indecent assault and liable 
to a term of imprisonment not exceeding 8 years and/or a 
fifth-category fine, 12 years in the case of serious 
physical injury, and 15 years in the case of death. 
 
¶D.  There is an active investigation and prosecution policy 
against traffickers.  Some examples of successful recent 
investigations/prosecutions include: 
 
-- In February 2004, the Rotterdam court convicted three 
"lover boys" to maximum prison sentences of 3.5 years; 
 
-- In October 2003, the Dutch police arrested a Dutchman for 
sexual abuse of minors in Gambia committed between 1999 and 
¶2002.  Prosecutors are still investigating the case; 
 
-- In November 2003, 200 police officers searched 18 
premises throughout the country in a major investigation and 
disruption of a child porn network.  Seven arrested suspects 
are accused or producing and distributing child porn and 
organizing sex trips to other countries.  The investigation 
continues; 
 
-- Since January 2003, the Supra-Regional Police Team 
"Haaglanden-Hollands Midden" has been investigating a major 
case against a group of Bulgarians and a Dutchman suspected 
of having trafficked at least 10 Bulgarian women to the 
Netherlands, who were put to work as prostitutes; 
-- In a separate case, in November 2003, the Alkmaar court 
imposed a three-year sentence on the two main Bulgarian 
suspects of a people trafficking network.  The group of five 
men and one woman were found guilty of forcing Bulgarian 
women into prostitution; 
 
-- In July 2003, the Breda district court sentenced the 
female manager of a sex club to 18 months in prison.  The 
woman was accused of having smuggled at least 14 women from 
Eastern Europe into the Netherlands and forced them to work 
as prostitutes. 
 
Unfortunately, the latest data on prosecutions and 
convictions will not be available until the publication of 
the National Rapporteur's third annual report later this 
spring.  We will forward the latest statistics as soon as 
they are available.  In addition to the National 
Rapporteur's report, the Police Monitor of the National 
Project Group on Prostitution and Trafficking in Persons 
will also not publish its information before this 
submission's March 1 deadline.  This means, for the time 
being, we have only last year's data: 
 
The number of completed police investigations into TIP, that 
were sent to the public prosecutor's office, rose from 25 in 
2000 to 48 in 2001 (latest available statistics), of which 
36 were transnational cases and 12 were domestic.  The 
number of suspects rose from 129 in 2000 to 142 in 2001. 
The average duration of a police investigation in 2001 was 
six months. 
 
A data analysis shows that in the period 1995 through 2001 
some 892 TIP cases were registered with public prosecutors. 
In 2001, there were 132 cases, of which 27 related to 
underage victims.  This compares to 138 and 36, 
respectively, in 2000.  In the period 1995 through 2001 
Dutch courts settled 516 TIP cases (primary charges).  Below 
follows a survey of the settlements by the prosecution and 
courts as compiled by the National Rapporteur.  Note that, 
as settlements may have taken place in a later year than the 
year of registration with the public prosecution, the 
distinction made so far by year (of registration) in the 
tables relating to settlements, is no longer used: 
 
                                   1998  1999  2000  2001 
                                   ----  ----  ----  ---- 
Settled by the public prosecution 
Total number of cases:               105   139    99   163 
of which: 
--summoned                            57    84    77   103 
--dismissed                           44    45    17    46 
--other (settlement)                   4    10     5    14 
 
Settled by the court                  63    63    84    86 
of which: 
--convicted                           56    52    71    75 
--acquitted                            3     6    11     7 
--other verdicts                       4     5     2     4 
 
The sentences imposed varied from two weeks to 10 years. 
The average (unconditional) imprisonment of cases with a 
single TIP offense was 17.2 months; the average for multiple- 
offense cases was 34 months.  In the Netherlands two-thirds 
of a sentence are usually serviced, except for very serious 
forms of crime.  The Netherlands doesn't have a plea 
bargaining system. 
 
¶E.  A 2001 police investigation showed that almost half of 
arrested suspects were of Dutch nationality, but most of 
them were born outside the Netherlands.  Proportionately, 
many suspects came from (former) Yugoslavia, Albania, 
Nigeria, and, to a lesser extent, Ghana.  A majority of 
suspects of domestic trafficking were of Moroccan origin. 
Reports by public prosecutors also mentioned suspects from 
Bulgaria, Turkey and Russia.  According to the police, the 
percentage of suspects illegally residing in the Netherlands 
is rising rapidly.  About 75 percent of suspects arrested in 
2001 belonged to a criminal network.  These networks are 
mostly small interchangeable networks with branches 
throughout Europe.  Some 58 percent of police investigations 
in 2001 involved criminal networks, 25 percent individuals 
and 17 percent "isolated criminal groups."  Of the suspects 
arrested in 2001, 12 percent were sex club operators. 
According to police estimates, average profits per suspect 
amounted to some 210,000 euros in 2001. However, the figure 
is not representative for profits of an average trafficker. 
The national TIP prosecutor and national police TIP team 
leader indicate there is a new investigation and prosecution 
strategy focusing on attacking the profits of trafficking. 
In 14 percent of TIP investigations in 2001, victims have 
sought compensation through a judge. 
 
¶F.  The Dutch Justice Ministry, public prosecutors and the 
police actively investigate trafficking cases.  The police 
use the full array of investigative tools available to them: 
electronic surveillance, telephone tapping, undercover 
agents and sting operations.  According to the police, Dutch 
law allows mitigated punishment for cooperating suspects 
only in highly exceptional cases, but not in trafficking 
cases.  Use of criminal informers is not allowed in the 
Netherlands, except in serious terrorism cases.  All 25 
regional police forces have established units with special 
expertise to combat trafficking in persons.  Regional and 
national police experts have set up a regular plan for 
cooperation and consultations.  In addition, the national 
police service has a four-person TIP team.  The Netherlands 
has a National Public Prosecutor especially charged with 
coordinating efforts against trafficking, smuggling in 
people and child pornography.  This national TIP prosecutor 
also leads the Trafficking in Persons unit, which is part of 
the new National Crime Squad (Nationale Recherche) set up in 
2003, adding more investigative resources.  In addition to 
the National Prosecutor, each regional prosecutor's office 
has its own TIP prosecutor. 
 
¶G.  As set forth in the National Police Policy Plan, the 
police pay special attention to TIP.  In 1999, the police 
set up the Prostitution and Trafficking in Human Beings 
Project Group, in which all regional police forces are 
represented.  The project group has published a manual with 
information on how to recognize TIP victims and investigate 
TIP cases.  Since the introduction of the new prostitution 
act in October 2000 (legalizing brothels), police schools 
have started special "prostitution control" courses, whereby 
attention is paid to detection of and assistance to victims 
of trafficking.  According to the police, all 500 to 600 
police officers engaged in TIP investigations received such 
training.  This has led to an increase in criminal 
investigations as well as reports to the police.  The police 
have also developed a similar training module for public 
prosecutors, which includes victim identification and 
protection.  The pilot program in September 2003, in which 
some 20 prosecutors participated, proved successful and will 
be continued this year. 
 
According to the national police TIP team leader, the 
stricter controls and licensing requirements of brothels 
have been successful.  These (legal) sex houses no longer 
employ illegal aliens, minors or TIP victims.  The police 
have now started to target the illegal sector, such as 
illegal escort services, with several high-profile 
investigations in 2003.  The police have developed a new 
plan of action, which includes measures such as sting 
operations and restrictions on advertising by escort 
services.  The national police TIP leader has also made use 
of the media to send strong messages about enforcement 
efforts in this area. 
 
¶H.  The Dutch government cooperates closely with other 
governments on this issue.  The Balkenende government 
intends to make TIP a priority issue during the Dutch EU 
Presidency in the second half of this year.  The Dutch are 
already in the process of forming a ground-breaking Joint 
Investigation Team (JIT) under the new EU MLAT with Belgium, 
the UK, Germany and Europol targeting Bulgarian traffickers. 
Chief police commissioner Jan Wiarda, who will be the police 
coordinator during the Dutch EU Presidency, leads the 
negotiations.  The JIT, which is expected to be in place by 
April 2004, will include repatriation, reintegration and 
prevention components.  Under the PHARE Program for EU 
association countries, the Netherlands (and the UK) will 
assist the Czech Republic in combating TIP.  This 
assistance, under the EU's Twinning Project, will include 
all aspects of TIP.  Turkey has also invited the UK and the 
Netherlands for a similar twinning project, but this still 
needs to be approved by the European Commission. 
 
¶I.  Yes, the Netherlands extradites persons charged with 
trafficking, as long as there is a bilateral extradition 
treaty with the requesting country.  No such extradition 
requests, however, have been received recently.  In 
September 2003, Justice Minister Donner sent a bill for 
approval to the Second Chamber implementing the new European 
arrest warrant.  This will simplify and expedite extradition 
procedures among EU member-countries. 
 
¶J.  There is no evidence of government involvement in or 
tolerance of trafficking. 
 
¶K.  Not applicable. 
 
L-1.  The Netherlands signed and ratified ILO convention 
182, 29 and 105. 
 
L-2.  The Netherlands signed the Optional Protocol on the 
Sale of Children, supplementing the Rights of the Child 
Convention in September 2000.  Ratification is pending in 
the Council of State awaiting passage of the new Dutch TIP 
legislation. 
 
L-3.  The Netherlands signed the Trafficking Protocol to the 
UN Convention Against Transnational Organized Crime in 
December 2000.  Ratification is in the Council of State 
awaiting passage of the new Dutch TIP legislation. 
 
------------------------------------ 
Protection and assistance to victims 
------------------------------------ 
 
A-1.  In 1988, a special ruling was obtained under the Dutch 
Aliens Law to prevent persons illegally residing in the 
Netherlands, who may have become victims of trafficking, 
from being deported before related  investigations have been 
carried out.  Paragraph B-9 of the Aliens Law states that 
"at the mere suspicion of trafficking, a victim will be 
allowed time (three months) to consider pressing charges. 
When the victim has done so, he/she will be allowed to stay 
in the Netherlands legally until the whole juridical process 
has been completed."  During this period, the victim 
receives legal, financial and psychological assistance. 
He/she is entitled to a safe shelter, medical check-up and 
social security benefits.  This provision for trafficking 
victims also applies to witnesses who are willing to testify 
for the prosecution in trafficking cases.  People in B-9 
status are not allowed to work in the Netherlands, but in 
November 2003, Immigration Minister Verdonk told Parliament 
she and Labor Minister De Geus had agreed TIP victims in B-9 
will be allowed "to participate in the regular labor process 
(except for prostitution activities)," which is in line with 
a draft EU directive.  The new rule is expected to become 
effective before summer 2004.  STV is currently working with 
government officials to draft appropriate language to permit 
work and educational opportunities for B-9 participants. 
In reaction to criticism by the National Rapporteur that 
only five percent of TIP victims make use of the B-9 
regulation, Minister Verdonk asked the Justice Ministry's 
research center to study the bottlenecks and report by 
spring 2004.  She also improved the information flow about B- 
9 procedures to all police and immigration officers via 
newsletters, according to police and prosecution contacts, 
in response to parliamentary criticism the alien police 
deport illegal women who may be TIP victims too quickly 
without pointing out to them the B-9 regulation.  This 
spring a meeting will be organized for experts involved in 
this issue, including NGOs such as the STV, to improve 
communication and coordination of B-9 procedures. 
 
In addition to the proposed change in the B-9 procedure, the 
STV has requested the Justice Ministry to increase 
protection of TIP victims who are not/don't want to 
participate in the B-9 program.  The problem in the 
Netherlands is that illegal aliens, including TIP victims 
who are not in B-9, are not eligible for shelters, social 
welfare and other assistance.  The STV has asked the Justice 
Ministry to adopt a social program for these victims similar 
to one in Italy, which is aimed at providing time and 
resources for reintegration and safe return. 
 
In February 2004, the STV, together with the Dutch 
Interchurch Development Cooperation Organization (ICCO), 
organized an international conference of NGOs working with 
TIP victims, which was funded by the Dutch government.  The 
outcome of this conference was to lobby the Dutch to use 
their upcoming EU presidency (second half of 2004) to set 
minimum standards in the EU for safe return and 
reintegration of TIP victims.  These harmonized standards 
should include a first-risk assessment, shelter and training 
possibilities.  The participants agreed to make an inventory 
of best practices of reintegration projects. 
 
If a victim decides not to press charges after the three- 
month period, the person must return to the country of 
origin.  Repatriation is arranged by the police or by the 
immigration service, and the Justice Ministry pays for the 
trip.  For reasons of privacy, the victim's identity papers 
do not show the reason for expulsion.  Victims also have the 
possibility to request a permanent residence permit on 
humanitarian grounds.  Over the past three years however, 
only 28 such requests were made.  A recognized cause of this 
low rate is the requirement victims themselves prove the 
risks associated with repatriation (although publicly 
provided legal aid is available).  Verdonk has now agreed 
the government will work with victims, prosecutors and 
(foreign) NGOs to collect evidence to support the claim. 
The Dutch government (and public opinion) is reluctant to 
give victims, who are in the B-9 program automatic, 
permanent residence fearing it would attract illegal aliens 
to the Netherlands.  However, this spring Verdonk will 
submit a more critical assessment of the risks of 
repercussions to victims in their native countries. 
 
The Netherlands has an extensive network of victim support 
organizations.  The STV is the national reporting/referral 
center for registration of and assistance to TIP victims in 
the Netherlands.  The National Rapporteur has identified 
some 155 organizations and pressure groups having connection 
with victim support.  In 2000, these organizations came into 
contact with some 608 victims, of whom 470 were non-Dutch. 
In the Netherlands, there are no separate shelters for TIP 
victims.  For reasons of safety, victims of household 
violence and trafficking victims are put together.  In 2004, 
the Dutch government boosted its support for women's 
shelters by 1.2 million euros, for a total of 45.9 million 
euros.  It will continue to add money to the regularly 
budgeted amount, achieving a 4 million increase by 2007. 
These extra funds will increase the capacity of these 
shelters.  According to the STV, there is a good 
infrastructure of shelters, but more sustained funding is 
needed.  Voluntary HIV/Aids testing is offered, but results 
are considered private information. 
 
¶B.  The Ministries of Health, Welfare and Sport (VWS) and of 
Justice subsidize the STV and fund numerous specific 
programs and projects in which STV and other NGOs 
participate.  Local governments fund most private 
organizations.  The government supports national and 
international projects, such as the "La Strada" program for 
the prevention of trafficking in women in Central and 
Eastern Europe, and the European network of anti-trafficking 
organizations.  During his visit to the La Strada 
organization in Warsaw, Poland in October 2003, PM 
Balkenende reconfirmed political support for La Strada's 
activities and continued funding.  In September 2003, 
Minister Verdonk opened a shelter for single underage asylum 
seekers (Ama's) in Angola.  The shelter is for Angolan youth 
who have been denied refugee status in the Netherlands and 
are repatriated.  The shelter, paid for with Dutch aid 
funds, is a joint project of the Foreign Affairs and Justice 
Ministries and was built by the IOM.  If the shelter program 
proves successful, Verdonk intends to set up similar 
shelters or orphanages in other countries, e.g., Togo, 
Congo, Somalia, China and Afghanistan. 
 
¶C.  As soon as the police have any suspicion of trafficking, 
the victims must be informed of their eligibility for B-9 
status (noted above), meaning they would be given three 
months to consider pressing charges, during which period 
they are not detained, jailed or deported.  During the 
initial three months and the criminal proceedings, the 
victim (whether legal or illegal, of Dutch, EU or third 
country nationality) has access to shelters and social 
services.  The victim is granted a temporary residence 
permit for the duration of the criminal proceedings. 
Victims are not fined or prosecuted for violations of other 
laws. 
 
D-F.  The focus of national policy is twofold: (1) encourage 
victims to press criminal charges; and (2) give witnesses 
the best possible protection.  It is often difficult for 
victims to press charges, given the risks of being harmed 
upon their return home and the financial cost of abandoning 
their source of income.  According to the national TIP 
prosecutor, prosecutors have a serious interest in victim 
protection, because their case is always better served if 
victims give statements in courts and participate in 
prosecution.  A problem in protecting witnesses is that 
victims often do not want to give up their identity and go 
into witness protection.  Despite complex procedures to hide 
victim identities, there is fear the traffickers will 
discover their police cooperation and retaliate against them 
or their families.  According to police and prosecutors, 
these obstacles have led them to have a greater focus on 
informing victims right at the beginning about their rights, 
social services, the legal process, etc.  A study by the 
Clara Wichman Institute (2003), however, shows the problem 
of victims or witnesses being threatened is non-existent in 
the Netherlands, and, according to Justice Minister Donner, 
the Netherlands has sufficient possibilities to offer 
protection. 
 
According to the national TIP prosecutor, TIP victims can 
file a civil action in the Netherlands for simple damages in 
connection with a criminal case.  In fact, the judge in the 
criminal case can sentence the perpetrator and collect the 
money for the victim for material and immaterial damages 
suffered. 
 
¶G.  The police and prosecutors provide specialized training 
to help law enforcement officials, including judges, to 
identify and assist trafficked victims.  STV and other NGOs 
also sponsor specialized training to social workers and 
educators to assist TIP victims.  Dutch diplomatic missions 
carry out prevention projects and work closely with foreign 
NGOs that assist trafficked women. 
 
¶H.  Not applicable. 
 
¶I.  The STV, set up in 1987, is the national expertise 
center.  It is an independent organization offering social 
support, legal advice, medical aid, safe shelters and 
psychosocial counseling to victims of trafficking.  The STV 
has developed regional networks of relief services for 
trafficked victims.  It also provides training and 
information programs.  The STV was one of the initiators of 
the "La Strada" program.  In addition, the National 
Rapporteur has identified about 155 organizations that give 
support to victims.  Several organizations have set up 
special projects to help underage TIP victims, such as the 
Christian "Scarlet Cord" organization working in Amsterdam's 
red-light district.   Another Dutch NGO is the "Working 
Group of the Devout against Trafficking in Women," which 
tries to warn women in 60 foreign countries of the dangers 
of trafficking by distributing informational brochures.  In 
the larger Dutch cities, municipal services and local police 
have set up special projects to assist victims of 
trafficking.  For example, Dutch NGOs Humanitas Rotterdam 
and Novib have started the "Bonded Labor in the Netherlands" 
(BLIN) project, offering care to victims both at home and 
abroad. 
Sobel