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

UNCLAS SECTION 01 OF 07 ROME 000599 
 
SIPDIS 
 
SENSITIVE 
 
DEPT FOR:  G/TIP, INL, DRL, PRM, IWI, EUR/PGI, EUR/WE 
E.O. 12958: N/A 
TAGS: KCRM PHUM KWMN SMIG KFRD ASEC PREF ELAB IT HUMAN RIGHTS EUN
SUBJECT:  2006 TIP REPORT: ITALY 
 
REF:  05 STATE 3836 
 
¶1.  Below is the 2006 Trafficking in Persons Report for 
Italy.  Answers are keyed to questions in reftel.  The 
Embassy point of contact is Labor Counselor Candace Putnam, 
telephone: 39-06-4674-2327, fax 39-06-4674-2623. 
 
OVERVIEW 
-------- 
 
¶2.  (SBU) 21.A.  Italy is a country of destination and 
transit for internationally trafficked men, women and 
children.  There is no evidence that Italy is a country of 
origin. 
 
¶3.  (SBU) Both NGO and government TIP experts agree that 
there was a general decline in the number of prostitutes and 
TIP victims in 2005.  An increase in the number of Romanian 
and Moldovan prostitutes did not fill the gap left by a 
larger decrease in the numbers of Nigerians and Albanians. 
According to NGOs, a growing number of prostitutes from 
Eastern Europe are arriving and working voluntarily and thus 
cannot be classified as TIP victims. As reasons for the 
decline, sources cite tougher police action against street 
prostitution, better border controls, education campaigns in 
countries of origin, and a sluggish economy that is 
convincing traffickers to send victims elsewhere.  Other 
trends include a growing role for women acting as recruiters 
and pimps for their countrywomen, traffickers moving victims 
more frequently between cities and countries, and a 
continuing decline in the age of prostitutes. 
 
¶4.  (SBU) According to PARSEC, the only social research 
institute that collects reliable statistics on TIP, there 
were approximately 2,500 new TIP victims in 2005, a decline 
from 2004.  PARSEC estimates that the number of prostitutes 
(overwhelmingly foreign) in Italy has declined from 20,000- 
25,000 to less than 20,000; the Ministry of Interior (MOI) 
agrees, estimating there are 15,000 street prostitutes. 
There was an increase in flows with approximately 4,500- 
5,000 prostitutes moving in and out of the country; 
traffickers are also moving victims more frequently with 
stays in major cities like Rome or Milan for only a few 
months at a time.  The percentage of minors has increased 
slightly from 5-6% with a drop in the age of Eastern 
European prostitutes. 
 
¶5.  (SBU) There are no specific statistics for other 
trafficking victims, including forced adult domestic or 
agricultural labor and trafficking in children; however, our 
contacts across the board are showing a greater awareness of 
these issues.  Trafficked children work primarily in the sex 
industry. In the past there were reports of children working 
in sweatshop labor in Italy's Chinese immigrant community, 
where children are considered to be part of the family 
production unit; we have no statistics on this issue. 
Overall, women and children are more at risk than men. 
 
¶6.  (SBU) Sources of information include Government and NGO 
officials, research projects contracted by the Government 
and prepared by social research organizations, Government 
statistics and reports, international conferences, and media 
reports. 
 
¶7.  (SBU)  21.B.  Persons trafficked to Italy primarily come 
from Nigeria, Romania, Moldova, Ukraine, and Albania. Other 
countries of origin include Russia, Bulgaria, China, East 
and North African countries and South America (Ecuador, 
Peru, Columbia, Brazil, Argentina).  Sources report that 
most trafficked Nigerians enter northern Italy legally, via 
air, from other EU countries; the estimated cost of travel 
is approximately 5,000 euro.  Victims from North and East 
Africa arrive illegally, via sea routes, especially from 
Libya, where the journey costs an average of 2,000 euro. 
Traffickers moving Chinese illegal immigrants are demanding 
passage fare of 7,000 euro.  According to Government and NGO 
sources, organized traffickers are increasingly 
sophisticated in the way they routinely move victims between 
cities and regions within Italy, as well as between European 
countries.  This mobility makes it particularly difficult to 
accurately measure the number of victims.  Trafficking 
organizations continue to employ principally three north- 
south axes (focused along the Adriatic and Tyrrhenian 
coasts) and three east-west axes to move their victims. 
 
¶8.  (SBU) PARSEC estimates that 35% of women involved in the 
sex trade are Nigerian, a 10% decline from last year.  The 
number of Albanian victims has also declined, but an 
increase in the number of Romanian, Bulgarian, Ukrainian and 
Moldovan victims has not filled the gap.  Data on the origin 
of victims who receive temporary resident permits and 
services provide a general sketch of the trafficking 
situation:  In 2005, 922 victims received residence permits, 
down slightly from 927 in 2004. In 2005, health care, 
shelter and job training services were provided to victims 
from Nigeria (34%), Romania (29%), other former Soviet Union 
countries (16%), Albania (7%) and other countries (14%). 
Sources noted an increase in temporary (summer) traffic in 
transsexuals from Latin America, particularly Brazil, who 
are believed to be TIP victims. For the first time, benefits 
were extended to immigrants and victims of forced labor. 
 
¶9.  (SBU)  As the majority of trafficked victims in Italy 
are women and female children forced to work into 
prostitution, they face all the attendant risks of unsafe or 
unprotected sex, and few have access public health services. 
The majority of Nigerian women arrive willingly, often 
unaware of actual working conditions.  Eastern Europeans 
often arrive on legal tourist visas in search of legitimate 
jobs but find themselves in debt and exploited by the co- 
nationals who loaned them money for the trip.  Increasingly, 
however, Eastern European prostitutes are arriving and 
working voluntarily.  Traffickers enforce compliance by 
seizing the victims' documents and subjecting them to 
imprisonment, beatings and rape. 
 
¶10.  (SBU) 21.C  The 2002-2005 "clean streets" (strade 
pulite) campaign decreased the number of prostitutes working 
on the streets and partially shifted prostitution to private 
residences where it is more difficult to monitor or to 
assist victims.  Implementation of the anti-TIP law depends 
on cooperation between local police and NGOs; this 
cooperation varies widely, depending on local leadership. 
Government authorities neither condone nor facilitate 
trafficking.  However, there have been some isolated reports 
that local police or border officials have accepted bribes 
to facilitate issuance of visas or residence permits. 
 
¶11.  (SBU) 21.D.  The Government does not systematically 
monitor its anti-trafficking efforts.  Various Government 
agencies do collect national data on TIP arrests and 
prosecution, victims' assistance programs, illegal 
immigrants intercepted, issuance of temporarily residence 
permits, and calls to a victims' hotline.  Most national 
funding is disbursed through grants to NGOs; regional and 
local governments also fund programs.  However, there is no 
central mechanism for monitoring these activities. 
 
PREVENTION 
---------- 
 
¶12.  (SBU) 22.A.  The Government recognizes the problem and 
has devoted significant resources to combating trafficking 
in persons.  In the past few years, it has established an 
inter-ministerial committee on trafficking, enacted new 
legislation to specify trafficking as a crime with increased 
penalties, developed a victims' assistance program that is 
considered a model for Europe, funded numerous public 
awareness campaigns, sponsored international conferences, 
and worked bilaterally with other countries to control 
borders and combat trafficking. 
 
¶13.  (SBU)  22.B.  In 1998, Italy established an inter- 
ministerial committee to coordinate the fight against 
trafficking.  Government agencies involved include the 
Ministries of Interior, Equal Opportunity, Justice, Labor 
and Welfare, and Foreign Affairs, as well as an anti-Mafia 
prosecutorial unit. Regional and municipal governments are 
also actively engaged in efforts to combat trafficking. 
 
¶14.  (SBU)  22.C.  The Ministry of Equal Opportunity has the 
lead in funding public awareness programs. NGOs continue to 
distribute materials produced in 2004, including brochures, 
posters, bumper stickers and TV/radio ads providing 
information and assistance to victims.  Funding cuts 
prevented introduction of new ad campaigns in 2005.  Equal 
Opportunity also established a toll-free hot line to provide 
information and assistance to victims.  Between January and 
November 2005, the hotline received over 73,000 calls, nine 
percent of which were from trafficking victims. 
 
¶15.  (SBU)  22.D.  In 2005, the MOI continued to fund 
outreach/information campaigns in Bosnia-Herzegovina (police 
training) and Bulgaria (campaign in schools).  MOI also 
financed and distributed a new book for law enforcement 
officials on TIP laws and best practices for dealing with 
victims.  In 2005, the Ministry of Foreign Affairs financed 
a television spot aired on national and local stations in 
Balkan countries to inform young women about the risk of 
being lured by traffickers and remaining trapped in 
prostitution in Western Europe.  Italy combats trafficking 
through its law enforcement activities and funds numerous 
national and international projects aimed at helping 
victims.  Italy spent xxx (need to update) million on law 
enforcement activities and 4.3 million euro on TIP victims' 
assistance programs in 2005; 70% of victims' assistance was 
provided by the national government and 30% by regional and 
municipal governments. 
 
¶16.  (SBU)  22.F.  The government funds and works closely 
with over 200 NGOs involved in anti-trafficking initiatives; 
many of these provide independently funded services for TIP 
victims. Both jointly participate in seminars, conferences, 
training, and outreach programs.  NGOs do not hesitate to 
express their opinions, even when they disagree with 
government officials. 
 
¶17.  (SBU) 22.G.  With over 2,000 miles of coastline and 
geographic proximity to both North Africa and Eastern 
Europe, Italy has become a new frontier for illegal 
immigration.  Between 50,000-70,000 illegal immigrants 
entered Italy in 2005, 22,800 of them from North Africa; 
approximately 24,000 were either expelled or denied entry in 
the first five months of 2005.  The Government has responded 
with both bilateral and international initiatives to control 
illegal immigration.  Italy successfully conducted joint 
border patrols with and provided immigration control 
training to Slovenia and Albania, efforts that dramatically 
cut trafficking flows across the Adriatic.  It began a 
similar effort with Libya in 2003-04; according to the 
International Organization for Migration, this reduced by 
half the number of illegal immigrants entering Italy from 
North Africa.  The MOI insists that it properly screens 
illegal immigrants for asylum seekers and TIP victims, 
although some NGOs were critical of these efforts. 
 
¶18.  (SBU) 22.H.  The Ministry for Equal Opportunity leads 
an inter-ministerial committee charged with monitoring 
trafficking and coordinating government activity to combat 
it.  Other members include the Ministries of Interior, 
Justice, Labor and Social Affairs, and Foreign Affairs, as 
well as a special anti-Mafia prosecutorial unit.  In October 
2004, Italy created a Public Corruption Task Force. 
 
¶19.  (SBU) 22.J.  There is no annual action plan to combat 
trafficking.  There is a national action plan for assisting 
victims.  The inter-ministerial Committee Against 
Trafficking, led by the Ministry of Equal Opportunity, is 
responsible for coordinating policy at the national level. 
The Ministry regularly works with NGOs to coordinate and 
implement anti-TIP initiatives. 
 
INVESTIGATION AND PROSECUTION 
 
¶20.  (SBU)  23.A.  The most recent anti-trafficking law was 
enacted in 2003.  It specifically prohibits trafficking in 
persons; trafficking previously had been prosecuted using 
other sections of the Penal Code.  The law provides for 
increased sentences of 8-20 years' imprisonment for 
trafficking in persons and for enslavement.  For convictions 
in which the victims were minors destined for prostitution, 
sentences were increased by one-third to one-half (to 12-30 
years). The law applies special anti-Mafia prison conditions 
to traffickers that are designed to limit criminals' ability 
to continue their operations from jail.  The law also 
mandates strong penalties (4-12 years' imprisonment; fines 
up to 15,000 euro for each alien smuggled) to combat alien 
smuggling and human trafficking. 
 
¶21.  (SBU) 23.B.  See 23.A.  Forced labor is covered under 
the anti-trafficking law. 
 
¶22.  (SBU)  23.C.  The penalty for rape or forcible sexual 
assault is up to 12 years' imprisonment. 
 
¶23.  (SBU)  23.D.  Prostitution is legal in Italy and 
prostitutes may solicit clients on the street or make 
arrangements to meet in private residences.  The legal 
minimum age is 15.  Prostitution is not formally regulated. 
Prostitutes do not face criminal charges for their 
activities, but authorities use other administrative 
regulations (i.e., loitering and traffic laws) to discourage 
their activities.  The law does criminalize organized 
prostitution.  Brothel owners/operators and pimps do face 
criminal charges. 
 
¶24.  (SBU)  23.E.  Italy's anti-TIP law does not require the 
government to maintain statistics on prosecution; however, 
the Ministry of Justice is now providing national data on 
investigations, arrests, prosecutions and convictions.  This 
data continues to lag behind the USG TIP Report's schedule. 
The USG request for data on sentencing was added in 2004, 
and the government has promised to provide 2005 data when it 
becomes available. 
 
¶25.  (SBU) Investigations and arrests:  The number of 
persons investigated for trafficking decreased from 2,231 in 
2003 to 1,861 in 2004; arrests increased from 328 to 341 
respectively.  We do not yet have data for 2005. 
 
¶26.  (SBU) Convictions and prosecutions:  The slow pace of 
the Italian justice system creates extensive delays between 
arrests and convictions, but most trafficking defendants 
remain in detention during criminal proceedings.  The MOJ 
reports on the number of court rulings acted upon; one case 
can include more than one person charged with multiple 
crimes.  Between 2003-2004, the number of lower court 
rulings increased from 56 to 120 (64 percent of which were 
convictions); the total number of convictions increased from 
32 to 77 respectively; the number of appeals decreased from 
45 to 40, but appeals were denied in 95 percent of the 
cases.  We do not have reliable statistics on individual 
convictions.  Because some court cases were filed under the 
old laws, it will take time for statistics to fully reflect 
a commitment to enforcing the 2003 law.  We do not yet have 
2005 data on convictions and prosecutions. 
 
¶27.  (SBU) 23.F.  Traditionally, trafficking victims from 
the Balkans and Eastern Europe are controlled by organized 
crime groups, frequently from Albania.  Although Albanian 
groups continue to participate heavily in trafficking in 
Italy, their role as middlemen has diminished as Romanian, 
Moldovan, Bulgarian and Ukrainian crime organizations 
traffic in their co-nationals.  Because the Albanian mafia 
is considered the most violent, a decline in their 
activities has decreased violent abuse of trafficked 
prostitutes.  An unwelcome development, however, is the 
increased use of women from Eastern European acting as 
recruiters and pimps for their countrywomen.  Women 
reportedly are considered by victims as more trustworthy 
interlocutors, and police are less likely to stop a group of 
women traveling together than a man and a group of women. 
 
¶28.  (SBU)  Nigerian prostitutes work individually or are 
controlled by a Nigerian madam, usually a formerly 
trafficked person, who holds the lien on the loan paid by 
the victim.  Victims from Africa and the Middle East usually 
are controlled by small, freelance operators who generally 
smuggle individuals for a one-time fee. 
 
¶29.  (SBU)  Italian organized crime has not traditionally 
been involved in trafficking, except for providing 
logistical support and lodging.  Routes and operations tend 
to follow established methods and organizations for moving 
illegal drugs, weapons and other contraband. 
 
¶30.  (SBU) 23.G.  Italians use a full range of methods, 
including electronic surveillance and undercover operations, 
to investigate trafficking cases.  Prosecutors report that 
telephone intercepts are the most widely-used tool in 
investigations.  Plea bargaining is not allowed in Italy, 
but those convicted may receive reduced sentences if they 
cooperate with prosecutors.  Article 18 of the Anti- 
Trafficking Law allows victims to receive a temporary 
resident permit.  Investigators consider this a useful tool 
in obtaining cooperation and testimony leading to the arrest 
and conviction of traffickers. 
 
¶31.  (SBU) 23.H.  The MOI has specialized training to 
sensitize police to the problem of trafficking, the 
difference between trafficking and illegal immigration, the 
need to treat victims as victims, and the special skills to 
investigate cases.  As of 2005, there were over xx (need to 
update) police officers in Italy specialized in the handling 
of trafficking cases.  The Ministry of Equal Opportunity 
also has printed and distributed a booklet outlining the 
provisions of the 2003 anti-Trafficking law and participated 
in training programs for magistrates and police officers. 
In 2005, the MOI also produced a book for law enforcement 
officers on TIP laws and best practices for assisting 
victims. 
 
¶32.  (SBU)  23.I. The Government cooperates with other 
governments in investigating and prosecuting trafficking 
cases.  In 2004, the anti-Mafia unit of the MOJ signed an 
agreement with the Nigerian MOJ to improve the exchange of 
information on investigations under the aegis of UNICRI 
(United Nations Interregional Crime and Justice Institute), 
Italy actively participates in EU-wide initiatives to share 
information on law enforcement, especially cross-border 
crimes, but differences in legal systems, law-enforcement 
organization, and criminal statutes impeded cooperation.  In 
2005, Italian police worked with their counterparts in 
Greece, France, UK and Turkey to disrupt 90 members of a 
criminal organization that had trafficked more than 5,000 
Kurds and other nationals from the Middle East.  Also in 
2005, Italian magistrates cooperated with colleagues from 
Romania on cross-border trafficking cases.  In 2006, Italian 
police, in cooperation with Libyan authorities, disrupted a 
33-person gang (Libyans, Ethiopians, Bulgarians) accused of 
trafficking and smuggling illegal immigrants; of the 22 
arrested, some may face charges of murder for killing two 
Nigerians who attempted to escape during a sea crossing. 
 
¶33.  (SBU) 23.J.  Italy has not been asked to extradite 
persons charged with trafficking in other countries, nor has 
it had any cases requiring extradition of one of its own 
nationals charged with a trafficking offense.  The 2003 law 
provides a clear new legal basis for such extraditions. 
 
¶34.  (SBU) 23.K.  There is no evidence to indicate 
Government involvement in, or tolerance of, trafficking on a 
local or institutional level. 
 
¶35.  (SBU)  23.L.  See 23.K. 
 
¶36.  (SBU)  23.M.  Italy does not have a child sex tourism 
problem and, in fact, has a model Code of Conduct for the 
Italian tourism industry to combat sex tourism.  The law 
punishes with imprisonment and/or stiff fines crimes 
relating to child prostitution and child pornography, even 
when the offense is committed abroad. This law applies to 
Italian military/police participating in overseas 
operations. 
¶37.  (SBU)  23.N.  In 2000, Italy signed and ratified ILO 
Convention 182 Concerning the Prohibition and Immediate 
Action for the Elimination of the Worst Forces of Child 
Labor. 
 
--Italy has signed and ratified ILO Convention 29 and 105 on 
forced or compulsory labor. 
 
--In 2000, Italy signed the Optional Protocol to the 
Convention on the Rights of the Child on the sale of 
children, child prostitution, and child pornography; Italy 
ratified it in 2002. 
 
--In 200, Italy signed the Protocol to Prevent, Suppress and 
Punish Trafficking in Persons, Especially Women and 
Children, supplementing the UN Convention Against 
Transnational Organized Crime; Italy ratified it in 2002. 
 
PROTECTION AND ASSISTANCE TO VICTIMS 
 
¶38.  (SBU) 24.A.  Italy continued to expand implementation 
of the 2003 Anti-Trafficking Law.  Article 18 of the law 
provides for temporary residence/work permits that can lead 
to permanent residency and victims' assistance programs. 
Minors receive an automatic residency permit until they are 
¶18.  Adults who are identified as trafficking victims are 
granted a six-month residency permit, renewable if the 
person has found work or has enrolled in a training program. 
In 2005, victims requested approximately 1,100 temporary 
residence visas; 922 were issued.  The Government provides 
legal and medical assistance through NGOs as soon a victim 
has been identified. 
 
¶39.  (SBU) In 2005, the Ministry of Equal Opportunity spent 
over 4.3 million euro on 72 projects to assist 7,400 women 
victims.  The services provided included health care (48%), 
legal advice (32%), and psychological support (20%). Under 
Article 18, 1,900 victims, including 139 minors, entered 
social protection programs, a 2% decrease from 2004 (note: 
incomplete data for 2005).  The majority of victims were 
housed in shelters, while others lived independently with 
support.  Other projects funded included reintegration, 
assisted repatriation, victims' assistance and job training 
programs.  NGOs, with Government funding, provided literacy 
courses for 428 people and vocational training for 462; they 
helped 265 victims find temporary employment and another 840 
find a permanent job.  Officials noted the challenge of 
assisting a diverse group of victims; Nigerians often 
arrived illiterate with few job skills, while most Eastern 
Europeans were better educated and more easily integrated 
into both society and the workplace. 
 
¶40.  (SBU)  24.B.  Yes, the Government provides funding for 
both domestic and foreign NGOs.  See above. 
 
¶41.  (SBU)  24.C.  Article 18 provides for the 
identification and transfer of victims placed under 
protective custody to NGOs that provide transition, 
reintegration and/or repatriation services to victims.  NGOs 
that receive victims are registered by the Ministry of Labor 
and Welfare and monitored by the Ministry of Equal 
Opportunity. 
¶42.  (SBU)  24.D.  Victims in Italy usually do not face 
prosecution for other laws they may have broken if they file 
a complaint against a trafficker.  There was still some 
deportation of victims, especially Nigerian prostitutes. 
¶43.  (SBU)  24.E.  The Government encourages victims to 
assist in the investigation and prosecution of trafficking 
through the offer of a temporary residence permit.  Some 
NGOs criticized the Government for conditioning, in some 
cases, issuance of the permit in exchange for cooperation. 
Italian law does not allow victims to seek redress or 
compensation through civil court proceedings. A victim who 
is a material witness in a court case against a former 
employer is allowed to obtain other employment.   Under a 
victims' restitution program monitored by the IOM, 78 
victims (Romanians and Nigerians) were repatriated in 2005. 
These victims were given 500 euro by the Government for 
repatriation, up to 1,600 euro for resettlement in their 
home country, and reintegration assistance for six months. 
 
¶44.  (SBU)  24.F.  The Government can and does protect 
victims and witnesses.  Victims are enrolled in programs run 
by NGOs or religious communities that provide shelter and 
support. 
 
¶45.  (SBU)  24.G.  Both MOI and the Ministry of Equal 
Opportunities provide training to identify and assist 
victims.  Since Italian citizens are not victims of 
trafficking, Italy does not provide training to its 
embassies and consulates and does not need to provide 
assistance to repatriated nationals. 
 
¶46.  (SBU) 24.H.  Italian nationals are not victims of 
trafficking. 
 
¶47.  (SBU)  24.I.  There are over 200 domestic and 
international NGOs working in Italy that work on the 
trafficking issue.  The most notable include: 
 
(a) PARSEC.  This is a social research institute that 
collects the most reliable data on trafficking in Italy.  It 
also operates several mobile assistance units and works 
closely with local governments. 
 
(b) On The Road Association.  Located in the Marche, 
Abruzzo, and Molise regions, it provides legal, medical, 
social, and psychological assistance through its mobile 
units, shelters and safe houses.  It also has an employment 
program that provides victims with jobs and pays them for 
their work. 
 
(c) CARITAS.  This is a large lay Catholic association that 
works with the needy in numerous shelters throughout Italy. 
It collects statistics on and works with immigrant 
communities providing food, shelter and assistance. 
 
(d) ECPAT (End Child Prostitution, Pornography and 
Trafficking) and Save the Children.  Both work with other 
NGOs to ensure that police treat juvenile prostitutes as 
trafficking victims, not criminals. 
 
(e) Gruppo Abele and IROKE in Turin, the Orlando Association 
in Bologna, and Progetto Arcobaleno in Florence also have 
multiple projects to assist trafficking victims. 
 
¶48.  (SBU)  Post spent a total of 65 hours preparing this 
report; 15 hours for one officer and 50 hours for one FSN.