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PP RUEHAG RUEHAST RUEHDA RUEHDBU RUEHDF RUEHFL RUEHIK RUEHKW RUEHLA
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DE RUEHSL #0138/01 0651959
ZNR UUUUU ZZH
P 061959Z MAR 07
FM AMEMBASSY BRATISLAVA
TO RUEHC/SECSTATE WASHDC PRIORITY 0739
INFO RUCNCIS/CIS COLLECTIVE
RUEHZL/EUROPEAN POLITICAL COLLECTIVE
RUEHBJ/AMEMBASSY BEIJING 0033
RUEHCN/AMCONSUL CHENGDU 0001
RUEHGZ/AMCONSUL GUANGZHOU 0005
RUEHGH/AMCONSUL SHANGHAI 0001
RUEHSH/AMCONSUL SHENYANG 0002
RUEAWJA/DEPT OF JUSTICE WASHDC
RUEHC/DEPT OF LABOR WASHDC
RUEATRS/DEPT OF TREASURY WASHDC
RHMFIUU/HOMELAND SECURITY CENTER WASHINGTON DC

UNCLAS SECTION 01 OF 13 BRATISLAVA 000138 
 
SIPDIS 
 
SENSITIVE 
SIPDIS 
 
STATE FOR EUR/NCE, G/TIP, EUR/PGI, G, INL, DRL, PRM 
STATE PLEASE PASS TO USAID 
 
E.O. 12958: N/A 
TAGS: PGOV KCRM PHUM KWMN ELAB SMIG KFRD PREF ASEC
LO 
SUBJECT: SLOVAKIA ANNUAL REPORT ON TRAFFICKING IN PERSONS 
 
REF: A. 06 STATE 202745 
     ¶B. 06 BRATISLAVA 817 
     ¶C. 06 BRATISLAVA 979 
 
BRATISLAVA 00000138  001.2 OF 013 
 
 
¶1. (U)  Embassy TIP Point of Contact: 
 
Name: Tanya Spencer 
Position: Political Officer 
Phone: 421 2 5922 3277 
Fax: 421 2 5922 3109 
E-mail: spencertk@state.gov 
 
Total time to complete TIP report: 
FSNs: 33 hours 
FS03: 40 hours 
FS02:  2 hours 
FS01:  1 hour 
 
------------------------------------- 
¶2. (SBU) OVERVIEW OF ANTI-TRAFFICKING 
         ACTIVITIES 
------------------------------------- 
 
¶A.  A COUNTRY OF ORIGIN AND TRANSIT 
 
Slovakia is considered a transit and a source country for 
trafficking in persons. The International Office for 
Migration (IOM) states that due to the small number of 
known victims who are third country nationals or those 
trafficked only within Slovak borders, the country cannot 
be classified as a destination country, though IOM and the 
government both admit that some women may be forced to work 
briefly in Slovakia while in transit to their final 
destinations in western Europe.  The Government of Slovakia 
does not yet fully comply with the TVPA's minimum standards 
but is making significant efforts to do so. 
 
Based on the fact that NGOs and authorities deal only with 
those who identify themselves to the police and the 
underreported nature of the crime, the IOM estimates 
between 150 to 200 individuals, mostly women in their late 
teens and 20s, are trafficked per year.  During the 
reporting period, NGOs dealt with approximately 60 
repatriated victims of trafficking and a few foreign 
victims.  Police investigations during 2006 revealed 31 
victims, 29 women and 2 men.  IOM has conducted two 
extensive studies on the trafficking problem in Slovakia 
and considers its estimates reliable.  NGOs and IOs concede 
that their workers are only in contact with a fraction of 
the victims of trafficking. 
 
Slovakia launched more police investigations of suspected 
traffickers and sentenced more traffickers than in previous 
years.  The Ministry of Interior (MOI) maintains official 
statistics regarding investigations; the General 
Prosecutor's office maintains statistics regarding 
prosecutions and convictions. 
 
Most trafficking cases involve young women from regions in 
Slovakia with high unemployment. Traffickers frequently 
recruit women through employment schemes.  In previous 
years, experts theorized that most Slovak victims were 
likely Roma, a traditionally economically underprivileged 
ethnic group in Slovakia. However during the reporting 
period, less than half of the NGO-identified victims were 
Roma, though this is still noticeably out-of-proportion to 
the approximately eight percent of the Slovak population 
comprised by the Roma.  Roma victims, in particular, are 
likely to know their traffickers.  Some Roma women enter 
into prostitution knowingly, fleeing the conditions of an 
abusive home or poor living conditions in a Roma settlement 
(or shantytown), and become victims of trafficking in the 
destination country. 
 
¶B.  SLOVAKIA RESUMES MOMENTUM AGAINST TIP 
 
The forward momentum generated in early 2006 with the 
 
BRATISLAVA 00000138  002.2 OF 013 
 
 
passage of the National Action Plan to Combat Trafficking 
in persons stalled for several months mid-year when the 
National Coordinator's position sat vacant after a new 
government came to office.  Focus returned to the issue in 
October 2006 when the Slovak Republic raised the profile of 
TIP by naming MOI State Secretary (equivalent to Deputy 
Minister) Jozef Bucek as the second National Coordinator in 
the Fight Against Trafficking in Persons.  He, in turn, 
created a high-level inter-ministerial expert group on TIP, 
which met for the first time in December 2006.  This group 
gives more political weight to efforts to fight trafficking 
than the previous working group, which has been redirected 
to work solely on prevention activities. 
 
In December 2006, the Slovak parliament passed a law 
allowing for a renewable 40-day "tolerated stay" for 
foreign victims of trafficking.  Experts view the law as a 
significant step forward but cite technical concerns with 
the wording of the law. 
 
In February 2007, the National Coordinator signed 
agreements with three NGOs for one year pilot projects to 
identify and provide shelter and services to victims of 
trafficking. The National Coordinator has been working with 
the United Nations Office on Drugs and Crime (UNODC) to 
update an agreement aimed at strengthening the legislative, 
investigative, prosecutorial, and technical capability of 
Slovakia to fight trafficking.  The renewed agreement, for 
which UNODC will provide over USD 300,000 in funding, is 
expected to be signed by late March. 
 
According to the Police Anti-TIP unit and NGOs, most of the 
victims trafficked through Slovakia likely continue to come 
from the former Soviet Republics (especially Moldova and 
Ukraine), Bulgaria, the Baltics, the Balkans and China, and 
are trafficked to the Czech Republic, Germany, Switzerland, 
Italy, Austria, the Netherlands, United Kingdom, Spain, 
Croatia, and Slovenia.  Slovak victims usually come from 
economically depressed regions of Slovakia, including from 
the Roma minority population. 
 
Victims who have been returned to Slovakia are usually 
young females in their late teens or early 20s.  Many 
report being trafficked after accepting offers from 
relatives, acquaintances, or unlicensed agencies to arrange 
for work abroad.  Some consciously enter into prostitution 
only to become trafficked at a later date. 
 
Most experts agree that the increased number of repatriated 
victims helped by NGOs represents a greater awareness of 
the problem and the resources available for victims rather 
than an upswing in the number of Slovak TIP victims.  A 
minority of experts suspects an increase in the overall 
number of victims but does not believe that it would be 
substantial. 
 
¶C.  GOVERNMENT LIMITATIONS 
 
Though the government has designated the MOI as the leading 
ministry for anti-TIP efforts, the MOI does not have an 
ongoing TIP office, a permanent staff of TIP experts, or a 
guaranteed budget.  This lead to a stall in activities 
while the National Coordinator's seat sat vacant for 
several months in 2006.  Some projects in advanced planning 
stages under former Coordinator were shelved after he 
left.  As the new Coordinator came up to speed, he 
developed his own priorities and selected different 
projects.  The government's depth of expertise in combating 
TIP is still in a nascent stage.  Relevant government 
offices (e.g., Migration Office, Prosecutor's Office, 
police academies) lack across-the-board institutionalized 
training, though the number of individuals within these 
offices gaining awareness about TIP is growing. 
 
The National Coordinator's budget to fight trafficking 
remains low at SKK 2 million (around USD 76,000).  The 
money comes from the general budget of the Ministry of the 
 
BRATISLAVA 00000138  003.2 OF 013 
 
 
Interior.  One of new National Coordinator's strategies is 
to help NGOs and other actors apply for European Union 
funds. The government faces severe financial constraints in 
other areas as well, which inhibits the ability of certain 
institutions to work most effectively.  For example, the 
Police Anti-Trafficking Unit lacks funds for language 
training that would facilitate improved international 
cooperation.  No dedicated shelters for trafficking exist 
yet in Slovakia.  Plans to open a dedicated shelter have 
been put on hold while the MOI, in conjunction with an NGO, 
tries another model - maintaining a supply of individual 
apartments scattered across the country.  Domestic violence 
activists frequently complain about the lack of facilities 
for abused women, some of whom are trafficking victims. 
 
¶D.  GOVERNMENT SELF-MONITORING 
 
The MOI provides internal assessments and baseline 
information regarding the nature of trafficking in 
Slovakia.  In April 2007, the MOI will present its first 
annual report on the implementation of the National Action 
Plan to Combat Trafficking in Persons.  Individual offices, 
such as the Police Anti-Trafficking unit, share their 
statistics on trafficking. IOM Bratislava conducted the 
most complete research based on focus groups, press 
monitoring, interviews, and available official statistics 
from embassies.  A La Strada study has reported Slovak Roma 
women trafficked to Prague or Czech border towns near 
Germany, and anecdotal evidence from returned victims 
suggests this information is still valid. 
 
------------------------------- 
¶3. (SBU)  PREVENTION ACTIVITIES 
------------------------------- 
 
¶A.  ACKNOWLEDGMENT OF THE PROBLEM 
 
The Slovak government and officials acknowledge trafficking 
in persons as a problem.  In October, the country's second 
National Coordinator was appointed.  At the State Secretary 
level, the new National Coordinator and his high-ranking 
inter-ministerial expert group bring a higher political 
profile to the issue than it previous had. 
 
¶B.  GOVERNMENT AGENCIES 
 
The MOI is the ministry most actively involved in combating 
trafficking, gathering information, investigating cases, 
protecting witnesses, and cooperating with the NGO sector; 
it is also the Ministry to which the National Coordinator 
belongs.  Falling under the Police Anti-Organized Crime 
bureau, the Anti-Trafficking unit, which has 10 dedicated 
officers, coordinates most activity regarding trafficking 
both within Slovakia and with INTERPOL; members of the unit 
have traveled overseas to participate in seminars and 
training. The unit documents and investigates crimes, 
monitors known places of prostitution, investigates 
suspicious travel or employment schemes, and contributes to 
public awareness by giving presentations at conferences and 
conducting training.  The Border and Alien police are 
responsible for monitoring border crossings for evidence of 
trafficking, with the customs directorate and the MFA also 
playing a role. 
 
The Equal Opportunity Office at the Ministry of Labor and 
Social Affairs (MOL) supports NGO activity through grants, 
manages the implementation of international protocols 
regarding worker's rights, and passed a National Action 
Plan for the Reduction of Violence Against Women in 2005 
which dovetails with the National Action Plan to Combat 
Trafficking in Persons.  The Ministry of Education 
coordinates with IOM to bring TIP awareness discussions 
into high school classrooms.  The MOJ is responsible for 
strengthening safeguards for victim protection.  The 
General Prosecutor is responsible for the prosecution of 
traffickers, and reported increases in both the number of 
investigations and the number of charges filed during the 
 
BRATISLAVA 00000138  004.2 OF 013 
 
 
last reporting period. 
 
Prevention activities are coordinated by an MOI working 
group while overall activities are coordinated by the new 
MOI expert group.  The budget for programs developed by the 
working group comes from the MOI's criminal prevention 
budget, which is in addition to the TIP budget.  The 
criminal prevention unit has put out several requests for 
proposals in which TIP awareness plays a part, including a 
targeted training project for mayors and teachers in towns 
near the Ukrainian border.  The MOI 2007 TIP budget 
allocates SKK 300,000 (USD 11,490) for education of 
government employees. 
 
¶C. ANTI-TRAFFICKING CAMPAIGNS 
 
Government officials and agencies cooperated with NGOs on 
anti-trafficking information and education campaigns, 
mostly targeting potential trafficking victims. The Slovak 
NGO Dotyk, which signed a cooperation agreement with the 
MOI in February, distributes multi-lingual leaflets, which 
instruct victims on how to seek help, in areas where 
potential victims are likely to be found, and also raises 
awareness of the issue.  IOM trained Slovak military 
personnel assigned abroad - particularly on peacekeeping 
missions - to identify and report potential trafficking 
victims they may encounter.  The Ministry of Education 
continues to assist in the organization of discussion 
groups in a number of schools and to distribute handbooks 
about working abroad legally associated with this project. 
NGOs are using government and EU support to implement 
creative awareness campaigns including films and theater 
performances.  The MOI's 2007 TIP budget includes SKK 
200,000 (USD 7,600) for awareness promotion. 
 
¶D. OTHER PROGRAMS 
 
NATIONAL ACTION PLANS 
 
The government continues to implement the National Action 
Plan for the fight against trafficking in persons, which 
passed in January 2006. The plan calls for the 
establishment of an increased network of victim support 
services (specifically regarding legal, psychiatric, 
medical, and social assistance), the creation of 
repatriation protocols for Slovak victims identified 
abroad, and increased media and youth outreach campaigns. 
 
The policy statement issued by the new government, and 
approved by parliament in August, named gender equality and 
the elimination of domestic violence as priorities. 
However, the government has not yet offered new initiatives 
in these areas, though it has maintained existing 
programs.  The National Action Plan for Women elaborates 
the governmental strategy for women for the next ten years 
in the areas of health, education, and political rights. 
The National Action Plan for the Reduction of Violence 
Against Women, which includes trafficking in persons, was 
passed in June 2005. 
 
The government continues to invest in transforming large 
state orphanages into small family based care, with a 
special emphasis on strengthening the foster care system. 
This system has proven effective within some Roma 
communities.  UNHCR reported that the government's 
migration office made improvements which tripled the 
capacity of a shelter specifically for unaccompanied minors 
who enter Slovakia illegally. UNHCR feels that the shelter 
helps protect minors from being preyed upon by 
traffickers.  In light of the fact that many Slovak 
trafficking victims are lured by false promises of 
legitimate jobs abroad, the Ministry of Labor, Social 
Affairs, and Family has a direct number that interested 
persons can call to verify the legitimacy of Slovak 
recruitment agencies. 
 
¶E. RELATIONSHIP BETWEEN GOVERNMENT AND NGOS 
 
BRATISLAVA 00000138  005.2 OF 013 
 
 
 
Cooperation exists between the government, NGOs, foreign 
embassies, and other international organizations focused on 
trafficking through working groups and committees.  Police 
worked with NGOs to receive training on victim 
identification and assistance, and are required by law to 
inform victims about how and where to find local support 
services.  NGO leaders stated that police have begun to 
contact them directly about certain cases and communication 
continues to improve.  One of the three NGOs that signed 
cooperation agreements with MOI in February noted a 
positive improvement in the responsiveness of the police 
after the signing. 
 
NGOs and IOM both report that the government's attitude 
towards trafficking has improved significantly in the past 
several years, and one NGO noted that anti-trafficking 
organizations that can demonstrate results have no problem 
finding government financial support. 
 
¶F.  MONITORING OF BORDERS 
 
The MOI has continually strengthened border protection 
mechanisms and improved cross-border cooperation, 
particularly to gain eligibility for the Schengen Treaty in 
¶2008.  However, Slovakia continues to be a transit country 
for illegal migrant smuggling to Western Europe.  Police 
continue to have success combating this crime, making 
significant progress - specifically along the Ukrainian 
border - in breaking up smuggling rings. 
 
The asylum process in Slovakia continues to have problems 
managing the flow of migrants.  UNHCR has criticized the 
process and urged improvements, including a review of the 
decision-making techniques used by the interviewing staff 
members.  The number of asylum cases granted remains below 
one percent. 
 
UNHCR believes that the majority of smuggled or trafficked 
persons "disappear" by terminating their asylum cases after 
being registered at reception and refugee facilities. 
Slovakia has made progress in deterring illegal migration 
across its borders: in the past year, the number of new 
asylum cases decreased by 19 percent, and the number of 
asylum seekers who terminate the procedure decreased 34 
percent, from 2,930 people in 2005 to 1,940 in 2006.  UNHCR 
notes that better implementation in recent years of 
Slovakia's Readmission Treaty with Ukraine has reduced the 
number of migrants who seek asylum in Slovakia after 
crossing the Slovak/Ukrainian border. 
 
NGOs monitoring asylum camps have hypothesized in the past 
that some women, especially Ukrainian and Moldovan asylum 
applicants, may fall victim to traffickers for the purpose 
of sexual exploitation along this route; however, no 
research has been conducted in this area.  The Alliance of 
Women has commented in the past that NGOs should have more 
access to women and unaccompanied minors throughout this 
process.  The MOL funded two organizations to create 
facilities for unaccompanied minors, and the law allows 
other organizations, besides solely the Migration Office, 
to serve as legal guardians for this population.  NGO field 
workers in asylum centers believe that all involved would 
benefit from TIP awareness training, including themselves, 
Migration Office staff, and the asylum-seekers. 
 
NGOs and IOM also continue to conduct police training and 
have cooperated with border police to identify potential 
trafficking victims among migrant populations.  This 
cooperation with police has increased and is generally 
positive, according to NGO reps. 
 
¶G.  INTER-GOVERNMENTAL COORDINATION 
 
The National Coordinator at the MOI is the point for 
inter-governmental coordination on trafficking.  Within his 
office, he has designated one person to be the 
 
BRATISLAVA 00000138  006.2 OF 013 
 
 
working-level point of contact.  The National Coordinator 
convened a high-level expert group in December to approve 
strategies to fight trafficking in persons.  The group is 
designed to have the political weight to enforce measures 
to combat TIP.  However, it has less depth of experience 
and intends to meet less often, possibly as little as once 
a year, than the previously established working group.  The 
new group includes Directors and State Secretaries from 
MOI, MOJ, MOL, Ministry of Finance, Ministry of Health, 
MFA, the office of the Deputy Prime Minister, the General 
Prosecutor, three NGOs, and IOM.  The existing 
inter-governmental working group, comprised of various 
Ministry stakeholders  as well as representatives from the 
police, will continue to meet but with a redirected focus 
on prevention activities.  In addition, many agencies serve 
on IOM's steering committee, the Committee for the 
Prevention of Criminality, and the MOJ Working Group for 
Victim Protection.  The GOS has had an anti-corruption 
office in operation since 2001, however its Director left 
after the change in government in July and has not been 
replaced.  While the government anti-corruption office is 
not currently active, a special prosecutor and a special 
court against corruption are now in their second year of 
operations to deal particularly with high-level corruption 
cases. 
 
¶H.  NATIONAL ACTION PLAN OF ACTION 
 
The government approved its first National Action Plan for 
the Fight Against Trafficking in Persons in January 2006, 
written by an inter-ministerial working group which also 
included IOM and one NGO.  The Action Plan prioritizes the 
additional steps to be taken by the government, placing 
first priority on creating an increased victim support 
network focusing on providing victims with legal, 
psychiatric, medical, and social assistance.  The National 
Coordinator explained that three of the 19 tasks remain, 
twelve were completed and four are continuously on-going. 
Some NGOs and IOs, while pleased with the plan itself, have 
indicated that not every task which has been checked off 
the list has been thoroughly implemented. 
 
------------------------------------ 
¶4. (SBU)  Investigation and 
          Prosecution of Traffickers 
------------------------------------ 
 
¶A.  LEGAL FRAMEWORK 
 
Starting in January 2006, the amended criminal code 
provides for wider definitions and stricter punishment of 
trafficking in persons than the previously existing 
anti-trafficking legislation.  TIP is defined and 
criminalized through Section 179 in the Criminal Code. 
Trafficking in children is a separate crime, covered by 
sections 180 and 181. Other related legislation includes: 
Section 367 on Procurement (Pimping), Section 208 on 
torture of a close person or person in one's charge, 
Section 371 on endangering morality.  New amendments state 
explicitly the extra-territorial nature of this crime and 
acknowledge that the crime also entails fraudulent means, 
violence, threat, or other forms of coercion to elicit 
agreement from a victim older than 18 years (for section 
179) for the crime of trafficking. These laws are being 
used in trafficking cases and adequately cover the full 
scope of trafficking. 
 
In December 2006, parliament passed a law allowing for a 
renewable 40-day "tolerated stay" status for foreign 
victims of serious crimes, including trafficking in 
persons.  The law came into effect in January 2007.  See 
paragraph 5.A for further details. 
 
Parliament amended and ratified relevant trafficking 
legislation to conform to EU directives and UN 
requirements.  The UN Protocol to Prevent, Suppress and 
Punish Trafficking in Persons, Especially Women and 
 
BRATISLAVA 00000138  007.2 OF 013 
 
 
Children, supplementing the United Nations Convention 
against Transnational Organized Crime was signed November 
2001, ratified by Parliament in August 2004, and approved 
by the president in August 2004.  Last year, parliament 
passed a law on victim assistance requiring police to 
provide victims of any crime information on organizations 
that can help them.  Organizations for victims of 
trafficking stated that this is helping foster closer 
cooperation between law enforcement officers and active 
NGOs. 
 
Slovakia is a signatory to all international agreements 
relating to trafficking in persons and most multilateral 
conventions on combating organized crime.  The country 
participates in all EU structures and working groups in the 
field of justice and home affairs that seek to monitor and 
control trafficking in persons. According to UNHCR, 
Slovakia incorporated higher standards into its laws than 
the EU minimum requirements for protection of refugees and 
asylum seekers. 
 
¶B. PENALTIES FOR TRAFFICKING 
 
The GOS increased the minimum sentences for trafficking in 
¶2006. The provision on trafficking (both for the purpose of 
sexual and labor exploitation) states that any person, who 
entices, enlists, transfers or receives another person to 
or from abroad with the intention to engage such person in 
sexual intercourse or exploitation is liable to a term of 
imprisonment of four to ten years.  A four to ten year 
sentence is also applicable to a person who exploits 
another person through forced labor, involuntary servitude, 
slavery, or other similar forms of exploitation.  The 
penalty increases to a seven to 12 year prison term if a) 
the perpetrator gains considerable profit, b) the offense 
is committed against a protected person, c) the offense is 
committed with a special motive, or d) the offense is 
committed in conjunction with another grave illegal 
activity, such as organized crime. The penalty increases to 
12 to 20 years if a) the perpetrator gains extensive 
profit, b) the offender causes serious bodily harm or death 
or other extraordinarily serious effect, or c) the offense 
is committed as a member of a dangerous group. Lastly, a 
term of 20 to 25 years can be applied if the perpetrator 
gains large scale profit or causes serious bodily harm to 
or the death of multiple persons. 
 
¶C. PENALTIES FOR LABOR TRAFFICKING 
 
The penalty for trafficking for labor exploitation is the 
same as for trafficking for sexual exploitation.  See 
paragraph 4.B above. 
 
¶D. PENALTIES FOR RAPE 
 
The government increased the minimum and maximum penalties 
for rape, which are on par with those of trafficking, in 
¶2006. The sentence for rape is five to 10 years' 
imprisonment and could be increased to seven to 15 years 
depending on the age of the victim or whether violence was 
used.  The sentence may be further increased to 15 to 20 
years if the act results in serious bodily harm, and 20 to 
25 years if the perpetrator causes the death of the victim 
or the crime is committed in a crisis situation.  In 2006, 
police investigated 174 claims of rape, and brought charges 
in 103 cases. 
 
¶E. PROSTITUTION 
 
Prostitution is not explicitly forbidden in Slovakia, nor 
is it regulated.  The Criminal Code prohibits pimping 
activities, including coercing or taking advantage of or 
gaining from the prostitution of others.  Sentences range 
from one to 15 years depending on the age of the victim, 
method in which the crime was committed, whether organized 
crime was involved, and whether the crime resulted in 
bodily harm or death.  If the offense involves children 
 
BRATISLAVA 00000138  008.2 OF 013 
 
 
under the age of 15 or between 15 and 18, the Criminal Code 
adds three to 10 and seven to 12 years to the sentences 
respectively. Because prostitution is not regulated, there 
is no minimum age at which a person may legally choose to 
be a prostitute.  However, the minimum age of consensual 
sex is 15.  Sex with a minor aged 14 or younger is 
considered statutory rape regardless of the circumstances. 
Local governments can prohibit the offer of sexual services 
in public places and offenders can be fined. 
 
¶F. PROSECUTION OF TRAFFICKERS 
 
In February 2007, Slovak police arrested seven members, two 
Slovenes and five Slovaks, of an international trafficking 
ring for sexual exploitation.  They had charged a Slovene 
woman, the reputed leader, and two Slovaks the previous 
December in the same case.  According to police statistics, 
police opened 20 investigations of TIP cases, one of which 
was for child trafficking, in 2006.  One case during 2006 
involved labor exploitation of a Slovak to the United 
Kingdom.  These police statistics show an increase in the 
number of new investigations compared to the previous year, 
when 16 new cases, two of which involved child trafficking, 
were opened. 
 
According to the General Prosecutor, the number of 
trafficking cases handled by the prosecutor's office was 32 
(28 for trafficking in persons, four for trafficking in 
children) in 2006, compared to 47 in 2005.  (Trafficking 
cases, which are generally complex, often remain under 
prosecution for several years.  The police statistics show 
newly opened cases while the prosecutor's statistics 
combine all active cases, meaning new plus ongoing ones, 
thus accounting for the difference in figures.) In 2006, 
the courts convicted 18 traffickers. (NOTE. We received 
statistics in January from the MOI that 24 traffickers, 
including eight under the child trafficking provision, were 
sentenced in 2006.  The MOJ has now provided statistics 
that courts convicted 18 traffickers but none for child 
trafficking.  We are trying to find to find out which 
version is correct. For the moment, since MOJ has 
jurisdiction over the courts, we will defer to its figure. 
END NOTE.)  Sentences varied as some perpetrators were 
tried under earlier statutes and some under the newer, 
harsher statues.  Three convictions were handed down in 
¶2005.  Early releases are not a formal part of the Slovak 
legal system; therefore the lengths of sentences are 
standard for those convicted and the government confirms 
that traffickers are serving the time in prison.  Plea 
bargaining was introduced to the Slovak legal system in 
2006, though the prosecutor's office did not use this 
method to resolve TIP cases.  Prosecutors have not received 
special training for trafficking in persons. 
 
¶G.  PERPETRATORS 
 
According to the testimony of some victims and offenders, 
trafficking in Slovakia is usually an organized criminal 
activity.  Small-scale Slovak perpetrators feed victims 
into larger international syndicates at their 
destinations.  Organized trafficking groups consist of 
Germans, Czechs, Russians, Ukrainians, Albanians, Italians, 
Macedonians, Poles, or Slovenes.  Among Roma, trafficking 
tends to be perpetrated from within the community.  Male 
and female Slovak traffickers usually have prior knowledge 
and direct experience in the sex industry in Western 
Europe.  They typically utilize employment or hostess 
agency schemes, but also rely on personal connections with 
women.  In a 2004 case, famous photographers, businessman, 
and makeover consultants were accused of collaborating with 
a Slovak hostess agency that reportedly solicited 230 
women, in some instances using coercion, in both the Slovak 
and Czech Republics.  There have been no convictions of any 
governmental officials in crimes related to trafficking in 
persons. There were no reports about where profits from 
trafficking were channeled.  Police have theorized that the 
profits from trafficking are used to expand the illegal 
 
BRATISLAVA 00000138  009.2 OF 013 
 
 
activities of the perpetrators.  The pending UNODC project 
includes a segment on analyzing the trends of the 
perpetrators and their modus operandi. 
 
¶H.  INVESTIGATION OF CASES 
 
The government actively investigates cases of trafficking. 
After the creation of the specialized anti-trafficking unit 
at Police Headquarters, the country participated in 
numerous international investigations and had several 
successful arrests.  The Police utilize techniques such as 
inspections of suspected places of prostitution, and 
monitor internet sites actively.  Two TIP experts from the 
MOI traveled to the U.S. on an International Visitor 
program in 2006 to learn more about police investigative 
techniques.  The pending UNODC project will assess law 
enforcement capability and include training in 
investigative techniques. 
 
¶I.  TRAINING 
 
To date, the American Bar Association's Central European 
and Eurasian Initiative (ABA/CEELI), IOM, and other NGOs 
collaborated with MOI officials to provide 
inter-disciplinary training concerning the treatment of 
victims, trafficking indicators, and investigative 
techniques. Currently, the 10 officers in the Police 
Anti-trafficking unit located in Bratislava are fully 
trained in TIP.  Most police districts have one officer who 
receives at least some additional instruction and, among 
his/her other duties, serves as a point of contact with the 
Anti-trafficking unit.  For the rest of the police corps, 
trafficking in persons is raised in educational modules at 
the police academy concerning victim protection and human 
rights.  Several NGOs have stated that officers in general 
are gradually becoming more aware of trafficking as a 
discreet crime.   More training is necessary for border 
police, customs officials, and staff and social workers at 
the refugee camps and asylum reception facilities. 
 
¶J. INTER-GOVERNMENTAL COOPERATION 
 
The GOS cooperated with a number of foreign governments in 
the investigation and prosecution of trafficking cases. The 
police Anti-trafficking unit explained that most 
trafficking cases require an international investigation. 
Specifically, Slovak police have cooperated with the 
Federal Criminal Bureau of Germany, the Austrian Criminal 
Service, the police force of the Czech Republic, the 
criminal service of the Slovene police, and others.  Some 
Slovak embassies abroad have a police attachQ who helps 
with joint investigations.  Many international 
investigations occur in the framework of Interpol and 
Europol, which Slovakia joined in 2003.  The specialized 
trafficking unit notes that the lack of English language 
ability among Slovak police sometimes limits 
investigations.  No specific number of international 
investigations is available. 
 
¶K. EXTRADITION 
 
Based on the Law on Criminal Court Procedures of 2002, 
Slovakia can extradite persons for any crime with a 
corresponding sentence longer than one year, except a crime 
political in nature.  Slovak citizens can only be 
extradited when governed by a treaty signed by Slovakia. 
The UN Convention against Transnational Organized Crime 
allows for Slovakia to extradite traffickers.  In February 
2005, the government signed an updated bilateral 
extradition agreement with the U.S. implementing the 
U.S.-EU treaty which allows for the extradition of 
non-Slovaks to the United States.  During 2006, Slovakia 
did not receive any requests to extradite a human 
trafficker. 
 
¶L. GOVERNMENT INVOLVEMENT IN TRAFFICKING 
 
 
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There is no evidence of governmental involvement in or 
tolerance of trafficking.  Despite governmental efforts to 
combat petty corruption on the borders and among police, 
the problem still exists.  However, the criminal activities 
of these individuals do not reflect institutional 
acceptance on a local or national level.  In general, women 
involved in "sex business" in any way are viewed negatively 
by society. 
 
¶M. GOVERNMENT STEPS TO END INVOLVEMENT IN TRAFFICKING 
 
According to police sources, there were no convictions of 
police involved in trafficking. 
 
¶N. CHILD SEX TOURISM 
 
Slovakia is not identified as a destination for child sex 
tourism.  According to news reports and recent research, 
Slovak victims under the age of 18 have been sighted on the 
Czech-German border that has been known to attract 
pedophiles.  The trafficking in children law, like the 
trafficking in persons law, reflects extraterritoriality. 
 
¶O.  INTERNATIONAL INSTRUMENTS 
 
-- ILO Convention 182 concerning the elimination of the 
worst forms of child labor: Ratified December 9, 1999 
-- ILO Convention 29 Abolition of Forced Labor: Ratified 
January 1, 1993 
-- ILO Convention 105 Abolition of Forced Compulsory Labor: 
Ratified September 9, 1997 
-- Optional protocol to the UN Convention of the Rights of 
the Child (CRC) regarding the sexual exploitation of 
children and the sale of children: Ratified June 14, 2004 
-- The Protocol to Prevent, Suppress and Punish Trafficking 
in Persons, especially Women and Children, supplementing 
the UN Convention Against Transnational Organized Crime: 
Ratified August 25, 2004 
 
------------------------------ 
¶5. (SBU) Protection and 
         Assistance to Victims 
------------------------------ 
 
¶A. VICTIM ASSISTANCE 
 
Approximately 60 trafficking victims sought and received 
full or partial assistance from NGOs, including those using 
MOI funding, and IOM during 2006. 
 
In December 2006, the GOS passed a law allowing for a 
renewable 40-day "tolerated stay" for foreign victims of 
serious crimes, including trafficking in persons.  This 
status would give the victim the right to work.  There are 
some concerns that the law is not as thorough as it should 
be to provide long-term protection to victims. One expert 
has explained that the law, though a step in the right 
direction, does not meet international standards.  Police 
would have the right to decline to renew the tolerated stay 
if the victim decided not to cooperate with the law 
enforcement investigation.  Without the renewed stay, it 
appears that the law, though as yet untested, would leave 
the victim without legal status in Slovakia, thereby 
subject to deportation.  However, a foreign victim has the 
right to apply for asylum and thereby receive "subsidiary 
protection" status.  UNHCR was impressed by the expedited 
granting of asylum to a refugee identified as a previous 
trafficking victim in late 2005.  A legal assessment of the 
new "tolerated stay" law is included in the UNODC 
cooperation with the MOI, expected to be signed in second 
half of March.  In addition to the "tolerated stay" law, 
the Slovak authorities are required to postpone deportation 
of any third-country national who seeks to enter a witness 
protection program or who claims asylum, thus providing 
temporary residency status. 
 
Access to legal, medical, and psychological services for 
 
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victims was the cornerstone of Slovakia's National Action 
Plan, approved by parliament in January 2006. During the 
course of 2006, the MOI cooperated on a case-by-case basis 
with local NGOs, such as Victim's Support Slovakia, Dafne, 
the Alliance for Slovak Women, and with IOM, in order to 
locate temporary shelter and health services. Dafne and 
Urobme received start-up funds from the GOS to establish 
asylum facilities, but have not been able to raise 
additional funds or secure proper locations.  Several NGOs 
noted that promises by the former National Coordinator to 
contribute to systematic victims? assistance projects were 
shelved after he left the MOI when the government 
administration changed hands in July.  In one of the three 
cooperation agreements signed between the new National 
Coordinator and NGOs in February, the MOI will provide 
funding to Dotyk for all assistance necessary to 
trafficking victims referred by MOI, including shelter, 
health services, and more.  However, the MOI will fund a 
maximum of 40 days per victim.  After that, Dotyk will use 
other sources, such as provide donations, to continue care 
and training for the victim as long as necessary and 
feasible.  The MOI agreement is a one-year pilot project to 
assess the best model of assistance. 
 
Slovakia does not have a dedicated shelter for trafficking 
victims.  The Dotyk model, currently supported by MOI 
funding, is to maintain a supply of individual apartments 
at different locations across the country.  Dotyk has about 
two dozen apartments available at any given time.  The NGO 
uses a private security firm to protect the victims, and 
contracts out health, educational, and other services on an 
as-needed basis.  Other NGOs have various models, though 
none have group shelters solely for trafficking victims. 
Occasionally, trafficking victims are housed in shelters 
for victims of domestic violence.  This approach has had 
mixed results, since trafficking victims have different 
psychological needs to which domestic violence shelters, 
which house a lot of children, are not conducive. 
 
¶B. FUNDING FOR NGOS 
 
During 2006, the MOI provided money to several NGOs to 
support victims? services.  In early 2007, the MOI signed 
cooperation agreements with three NGOs, Dotyk, Prima, and 
Storm, for various services.  The government continues to 
contribute to IOM expenses by providing basic materials and 
a portion of rent. 
 
The largest portion of 2007 MOI TIP budget, SKK 1.5 million 
(USD 57,450) is allocated for victim support.  While the 
2007 SKK 2 million TIP budget is an increase over the 2006 
TIP budget of SKK 1.9 million, it is unclear how much of 
the 2006 budget was actually spent.  It is possible that a 
portion of the 2006 budget was rolled into the 2007 
budget. 
 
The Ministry of Labor administers grants to NGOs via the EU 
PHARE program, and NGO representatives have been pleased 
with the funding they have received in recent years. In 
2005, the Ministry of Labor and Social Affairs received NGO 
grant requests totaling SKK 1,080,340 (around USD 34,000) 
for TIP programs; it awarded SKK 620,000 (around USD 
19,800). 
 
¶C. IDENTIFYING AND REFERRING VICTIMS 
 
Police refer identified victims to NGOs, based on a law 
requiring authorities to provide information about 
organizations offering support services to potential 
victims.  The Anti-Trafficking Unit screens and refers 
victims who are actively participating in the investigation 
process or witness protection.  IOM circulates multilingual 
information to migrant communities at risk for 
trafficking.  Dotyk distributes brochures about 
trafficking, in nine languages, in neighborhoods where 
potential victims might be found. 
 
 
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¶D. RIGHTS OF VICTIMS 
 
When an individual is identified as a trafficking victim, 
the victim's rights are respected and he/she does not face 
fines or jail sentences.  However, it has been reported 
that unidentified victims have been treated as illegal 
migrants or prostitutes and have been detained or 
deported.  The Alliance of Slovak Women stated that access 
to detained women or other potential victims in order to 
determine whether the individual could be the victim of a 
crime is minimal.  Several NGOs note that as regular police 
officers are gradually becoming more aware of trafficking 
as a specific crime, they are more likely to recognize and 
refer victims to NGOs. 
 
¶E. LEGAL ACTION AGAINST TRAFFICKERS 
 
In the past, trafficking arrests were mostly due to victim 
complaints and follow-up cooperation, which the government 
strongly encourages; in 2006, the government has 
demonstrated an increase in investigations and convictions. 
By law, victims may file civil suits or seek legal action 
against traffickers.  According to the IOM, victims are 
reluctant to do so because of lengthy trials and the 
perceived lack of psychological, financial, and legal 
assistance, though the National Coordinator believes an 
increased support network will help this perception.  The 
MOJ states there are provisions for the compensation of 
victims, but many have difficulty finding legal 
representation without adequate resources.  The MOJ is now 
currently implementing new EU directives that make the 
state more liable for victim compensation.  Slovakia has a 
victims' compensation program.  Victims who suffer serious 
injury, whether physical or mental, as the result of a 
crime in Slovakia can apply for compensation of medical and 
mental health expenses through the Ministry of Justice. 
 
¶F. PROTECTION FOR VICTIMS AND WITNESSES 
 
The government provides witness protection for victims, 
based upon a decision by an inter-ministerial committee. 
Other witness protection measures include recorded 
testimony or testimony through video connection, which is 
now mandatory for minors.  Another law explicitly states 
that the victim and perpetrator must be kept separate 
during the judicial procedure, thus requiring video 
testimony for most current trafficking cases.  Outside of 
the witness protection program, MOI will fund up to 40 days 
of care for victims, including any services deemed 
necessary on an individual basis.  According to the MOI, 
juvenile victims are housed separately from adult victims. 
 
¶G.  TRAINING FOR ASSISTANCE TO TRAFFICKED INDIVIDUALS 
 
The GOS has cooperated with NGOs to provide training in 
recognizing trafficking victims, and it is included in the 
human rights curriculum at the Police Academy.  The MOL has 
provided grants in the past to organizations that provide 
specialized services for unaccompanied minors.  Slovak 
Embassies and consulates abroad are able to provide help to 
victims of trafficking including providing travel 
documents, assistance with money transfers, contacting 
relatives, arranging services, and travel home, and the 
Ministry of Foreign Affairs helps refer repatriated victims 
to NGOs for assistance.  In some foreign missions, it is 
permissible to allow temporary accommodation and boarding. 
Slovak embassies abroad and NGOs cooperate according to the 
needs exhibited in the host country. 
 
¶H.  GOVERNMENT ASSISTANCE 
 
The 40-day MOI-funded assistance program described above is 
available to repatriated Slovak citizens as well as foreign 
victims identified in Slovakia.  IOM runs a specialized 
victims' assistance program exclusively for repatriated 
Slovaks.  According to IOM, the situation in Slovakia has 
improved dramatically since 2004.  The focus on increased 
 
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victims support - including legal, psychological, medical, 
and social assistance - by the competent government 
Ministries has increased the country's capacity to help 
victims and encouraged returning victims to seek 
assistance. 
 
¶I.  NGO ASSISTANCE 
 
Most NGOs aiding trafficking victims in Slovakia are 
domestic, although they may have loose cooperation 
agreements with NGOs abroad.  Some of these Slovak NGOs 
are: the Alliance of Women, Dafne, Dotyk, Prima, Storm, and 
Victims' Support Slovakia.  They provide a wide range of 
services, from preventive awareness education and 
identifying victims to arranging for repatriation transport 
to post-trafficking needs such as medical, mental health, 
legal, and protective services, and work re-training 
courses.  IOM is the only organization to have conducted 
research in trafficking in Slovakia and which has the 
capacity to launch nation-wide projects.  IOM provides 
prevention awareness and offers a comprehensive 
repatriation and assistance program to returning victims. 
 
------------------------ 
¶6. (SBU)  Best Practices 
------------------------ 
 
Post recommends the IOM high school discussion group as a 
best practice for prevention.  IOM identifies high schools 
in at-risk areas and requests permission from the Minister 
of Education and the school principal to organize a 
discussion group.  IOM provides trained discussion 
facilitators to talk with girls aged 16-18 about 
trafficking.  The facilitator knows the coercive tricks, 
primarily false promises of nanny or hostess jobs abroad, 
that are commonly used by traffickers in Slovakia and 
guides the girls towards identifying the warning signs. 
Most importantly, the girls themselves do the majority of 
the talking and the sharing.  IOM has found that a 
surprising number of girls in these discussion groups have 
relatives, friends, or acquaintances touched by 
trafficking.  Helping these girls spread the word and 
prevent others from falling prey is a successful model that 
could be used in at-risk communities around the world. 
 
VALLEE