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TO RUEHC/SECSTATE WASHDC PRIORITY 7636
INFO RUEHZM/GULF COOPERATION COUNCIL COLLECTIVE
RUEHXI/LABOR COLLECTIVE
RUEHDS/AMEMBASSY ADDIS ABABA 0162
RUEHAM/AMEMBASSY AMMAN 0639
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RUEHKA/AMEMBASSY DHAKA 0113
RUEHHI/AMEMBASSY HANOI 0022
RUEHIL/AMEMBASSY ISLAMABAD 1127
RUEHJA/AMEMBASSY JAKARTA 0074
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RUEHKH/AMEMBASSY KHARTOUM 0017
RUEHML/AMEMBASSY MANILA 0177
RUEHGO/AMEMBASSY RANGOON 0038
RUEHC/DEPT OF LABOR WASHINGTON DC

UNCLAS SECTION 01 OF 10 DOHA 000171 
 
SIPDIS 
 
SENSITIVE 
SIPDIS 
 
STATE FOR G/TIP, G, INL, DRL, DRL/ILCSR, PRM, IWI, NEA/ARP, 
NEA/RA, USAID 
LABOR FOR ILAB 
 
E.O. 12958: N/A 
TAGS: PHUM PREL PREF KCRM KWMN SMIG KFRD ELAB QA
SUBJECT: QATAR: INPUT FOR THE EIGHTH ANNUAL TRAFFICKING IN 
PERSONS (TIP) REPORT - PART I OF II 
 
REF: STATE 2731 
 
¶1. (SBU) Subsequent to the demotion of Qatar to Tier-3 status 
last year, information and statistics from Qatari Government 
and quasi-government stakeholders have been more difficult to 
obtain.  All government stakeholders, including the National 
TIP Coordinator and the TIP shelter, have been instructed 
that all requests for information and meetings with the U.S. 
Embassy must come through and be cleared by the Ministry of 
Foreign Affairs Human Rights Office.  To date, Post has not 
received government-supplied law enforcement or victim 
assistance information.  We will forward if and when received. 
 
¶2. (U) The following is Post's input for the eight annual 
Trafficking in Persons (TIP) Report.  Answers are keyed to 
reftel questions. 
 
¶3. (SBU) Paragraph 27.  OVERVIEW OF A COUNTRY'S ACTIVITIES TO 
ELIMINATE TRAFFICKING IN PERSONS: 
 
¶A. (SBU) Is the country a country of origin, transit, and/or 
destination for internationally trafficked men, women, or 
children? 
 
- Qatar is a country of destination and transit for 
internationally trafficked men and women. 
 
Provide, where possible, numbers or estimates for each group; 
how they were trafficked, to where, and for what purpose. 
 
- There are no firm estimates of the total numbers of men and 
women trafficked into the country; most came willingly to 
work as laborers and domestic workers. 
 
Does the trafficking occur within the country's borders? 
 
- Yes, and in some cases, across borders. 
 
Does it occur in territory outside of the government's 
control (e.g.  in a civil war situation)? 
 
- N/A 
 
Are any estimates or reliable numbers available as to the 
extent or magnitude of the problem? 
 
- 1000s 
 
What is (are) the source(s) of available information on 
trafficking in persons or what plans are in place (if any) to 
undertake documentation of trafficking? 
 
- Sources of information on trafficking in persons include 
other diplomatic missions, government officials, commercial 
contacts, international organizations, local and regional 
media, expatriate community support groups, and contacts at 
quasi-independent NGOs. 
 
How reliable are the numbers and these sources? 
 
- While the reliability of sources cannot always be 
ascertained, cross-referencing information among various 
sources helps to promote accuracy in information gathering. 
 
Are certain groups of persons more at risk of being 
trafficked (e.g.  women and children, boys versus girls, 
certain ethnic groups, refugees, etc.)? 
 
- Foreign laborers, mostly male, and domestic workers, male 
 
DOHA 00000171  002 OF 010 
 
 
and female, are most at risk of being trafficked.  Men and 
women from India, Pakistan, Bangladesh, Nepal, the 
Philippines, Indonesia, Vietnam, Sri Lanka, Ethiopia, Sudan, 
Thailand, Egypt, Syria, Jordan and the P.R.C. voluntarily 
travel to Qatar as laborers and domestic servants, but some 
subsequently face conditions of involuntary servitude. 
 
¶B. (SBU) Please provide a general overview of the trafficking 
situation in the country and any changes since the last TIP 
Report (e.g. changes in direction) 
 
- Since the last TIP Report, there has been little tangible 
progress in government efforts at addressing trafficking in 
persons.  The government has acknowledged that trafficking 
within the expatriate labor sector is a problem and has 
drafted legislation to combat it.  A comprehensive 
anti-trafficking law, when enacted, would address 
prosecution, protection, prevention, and compensation.  A new 
sponsorship law that is currently being circulated within the 
government would purportedly would give more rights to 
expatriate workers and more responsibility to sponsors.  The 
National Human Rights Committee (a quasi-governmental 
organization) has concluded that the largest hindrance to 
criminalizing TIP violations is ignorance of the current law 
by all parties.  To combat this, the committee has organized 
a series of workshops for lawyers, judges, prosecutors, and 
law educators that will highlight TIP and the existing Qatari 
laws to combat it.  The workshops began in March 2007.  It 
hopes as an outcome to enable victims to bring criminal 
charges against the traffickers and to have the criminal 
court be able to fairly adjudicate those cases according to 
the criminal law.  Current legislation guiding the 
sponsorship of expatriate laborers and domestic workers has 
created conditions that in many cases lead to situations 
constituting forced labor or slavery.  Expatriate laborers 
are not allowed to leave the country without a signed exit 
permit or to change employment without a written release from 
their sponsor.  The sponsors commonly withhold the passports 
of the workers.  The dependence of foreign laborers on their 
employer for residency rights, plus the inability to change 
employment or travel, leaves them vulnerable to abuse.  Some 
sponsors have used this power against their workers.  They 
have withheld their consent to force foreign employees to 
work for longer periods to avoid having to pay a salary owed 
to the worker and to extract money from the laborer.  Many 
workers end up in Qatar's Deportation Detention Center due to 
their employer's refusing to pay back wages, withholding 
their passports, or failing to renew their residence permits. 
 Nepalese officials reported that as many as 1000 Nepalese 
workers have been held at the same time at the Deportation 
Detention Center during the year and many have been awaiting 
repatriation for several months.  Law enforcement officials 
apprehended many of the workers because they had expired 
residence permits that are supposed to be renewed by the 
sponsor.  The country also was a destination for women from 
East Asia, South Asia, and Africa who come to the country to 
work as domestic servants.  Women and girls also traveled to 
the country to work as domestic servants, where they were 
vulnerable to domestic servitude and physical and sexual 
exploitation and unprotected by labor legislation.  The 
Indian Embassy reported that 236 maids had been forced into 
these conditions.  During the year the embassies of India, 
Nepal, and Sri Lanka received a combined total of more than 
15,000 complaints from male and female workers alleging 
mistreatment by their employers.  The Nepalese Embassy 
reported that they received 10 to 11 complaints per day, and 
the Sri Lankan Embassy received between 50 and 60 per day. 
Complaints included sexual harassment, delayed and nonpayment 
of salaries, forced labor, contract switching, holding of 
 
DOHA 00000171  003 OF 010 
 
 
passports, poor accommodation, nonrepatriation, physical 
torture or torment, overwork, imprisonment, and maltreatment. 
 Abused domestic servants usually did not press charges for 
fear of losing their jobs.  According to Indonesian 
officials, 30 to 50 Indonesian housemaids ran away from their 
sponsors each month during the year.  The Nepalese Embassy 
reported that more than 20 of their residents had been 
recruited for positions as domestic workers in Qatar and 
after arrival, were trafficked into Saudi Arabia to serve as 
farm laborers.  The Indian Embassy reported that at least 28 
of their residents had likewise been trafficking into Saudi 
Arabia from Qatar.  Some of the workers were held 
incommunicado in Saudi Arabia for periods of more than one 
year, and at least two were abandoned and died.  Regarding 
the former child camel jockey problem, an interagency 
committee was formed by the government to ensure the 
implementation of the law banning the use of children as 
camel jockeys.  The committee conducted several visits to the 
camel racing tracks during the reporting period and found no 
violations. 
 
What kind of conditions are the victims trafficked into? 
 
- Horrendous living conditions. 
 
Which populations are targeted by the traffickers? 
 
- Primarily South- and East-Asian domestic workers and 
laborers in countries with generally high unemployment rates 
and low standards of living. 
 
Who are the traffickers/exploiters?  Are they independent 
business people? 
 
- Exporting and domestic recruiting agencies and Qatari 
sponsors.  Some are independent business people. 
 
Small or family-based crime groups? 
 
- Not known. 
 
Large international organized crime syndicates? 
 
- Not known. 
 
What methods are used to approach victims? (Are they offered 
lucrative jobs, sold by their families, approached by friends 
of friends, etc.?) 
 
- Victims are often offered fair wages and benefits for work 
in Qatar by source country recruiting agencies. 
 
What methods are used to move the victims (e.g., are false 
documents being used?). 
 
- Most often victims arrive willingly with valid travel 
documents. 
 
Are employment, travel, and tourism agencies or marriage 
brokers involved with or fronting for traffickers or crime 
groups to traffic individuals? 
 
- There is no information to indicate that these 
organizations are fronts for other trafficking groups. 
 
¶C. (SBU) Which government agencies are involved in 
anti-trafficking efforts and which agency, if any, has the 
lead? 
 
 
DOHA 00000171  004 OF 010 
 
 
- Officials from the Ministry of Foreign Affairs, Ministry of 
Interior, Ministry of Labor and Social Affairs (Labor 
Department), Supreme Judicial Council, General Health 
Authority, General Prosecution, National Human Rights 
Committee, the Qatar Foundation for Women and Children 
Protection and the Supreme Council for Family Affairs are all 
involved in anti-trafficking efforts.  As of February 2007, 
the Supreme Council for Family Affairs has the lead in 
anti-trafficking efforts. 
 
¶D. (SBU) What are the limitations on the government's ability 
to address this problem in practice? 
 
- There are cultural and socio-economic limitations in 
addressing this problem in practice. 
 
Is overall corruption a problem? 
 
- Overall corruption is not a problem in this area. 
 
For example, is funding for police or other institutions 
inadequate? 
 
- Funding is not a problem. 
 
Does the government lack the resources to aid victims? 
 
- No, but employment of resources is a problem. 
 
¶E. (SBU) To what extent does the government systematically 
monitor its anti-trafficking efforts (on all fronts - 
prosecution, victim protection, and prevention) and 
periodically make available, publicly or privately and 
directly or through regional/international organizations, its 
assessments of these anti-trafficking efforts? 
 
- Although the government has identified various agencies to 
implement anti-trafficking reforms, it does not effectively 
monitor its anti-trafficking efforts.  When requested, the 
government does make available its assessments of its 
anti-trafficking efforts to the requesting organization. 
 
¶4. (SBU) Paragraph 28.  INVESTIGATION AND PROSECUTION OF 
TRAFFICKERS: 
 
¶A. (SBU) Does the country have a law specifically prohibiting 
trafficking in persons -- both for sexual and non-sexual 
purposes (e.g. forced labor)?  If so, please specifically 
cite the name of the law and its date of enactment and 
provide the exact language of the law prohibiting TIP and all 
other law(s) used to prosecute TIP cases. 
 
- Qatar does not have a law specifically prohibiting all 
forms of trafficking in persons.  The Government of Qatar has 
drafted, but not enacted, amendments to its sponsorship 
regulations intended to protect the rights of foreign 
workers.  The Qatari government has also drafted an 
anti-trafficking law that is being circulated to relevant 
agencies for comment.  It is unclear when the laws will be 
enacted.  The director of the Supreme Council for Family 
Affairs also noted that a new law specifically addressing 
domestic workers is also being drafted; however, domestic 
workers remain unprotected by general labor laws. 
 
If so, please specifically cite the name of the law and its 
date of enactment and provide the exact language of the law 
prohibiting TIP and all other law(s) used to prosecute TIP 
cases. 
 
 
DOHA 00000171  005 OF 010 
 
 
- On July 28, 2005, Law No. 22, banning the transport, 
employment, training, and involvement of children under the 
age of eighteen in camel races, came into force.  According 
to Article 4, anyone who violates the law faces three to ten 
years' imprisonment and a fine ranging between $13,000 and 
$55,000. 
 
Does the law(s) cover both internal and external 
(transnational) forms of trafficking? 
 
- Unknown. 
 
If not, under what other laws can traffickers be prosecuted? 
For example, are there laws against slavery or the 
exploitation of prostitution by means of force, fraud or 
coercion? 
 
- Traffickers can be prosecuted under Article 321 (slavery) 
or Article 322 (forced labor) of the Criminal Law of 2004, 
which bans forced or coerced labor.  The penalty for Article 
321 is imprisonment of no more than seven years and the 
penalty for Article 322 is imprisonment of no more than six 
months and/or a fine of no more than QR 3,000 (USD 825).  If 
the victim is under 16, the penalty is imprisonment of no 
more than six years and/or a fine of no more than QR 10,000 
(USD 2,750).  Also, Articles 318-319 of the Criminal Law 
address crimes that violate human liberty and sanctity 
(kidnapping).  Specifically, Article 318 prohibits the 
abduction, seizure or deprivation of an individual's liberty. 
 The penalty for crimes that violate human liberty and 
sanctity is imprisonment of not more than ten years.  In 
2002, the government also passed a money laundering law 
(Article 2) that specifically defines as a money laundering 
crime the handling of money related to trafficking of women 
and children.  Although the new labor law enacted in January 
2005 expands some worker rights, the new law does not extend 
to domestic workers. 
 
Are these other laws being used in trafficking cases? 
 
- These laws are not being used to prosecute trafficking 
cases. 
 
Please provide a full inventory of trafficking laws, 
including non-criminal statutes that allow for civil 
penalties against alleged trafficking crimes, (e.g., civil 
forfeiture laws and laws against illegal debt). 
 
- There are no specific trafficking laws.  The labor law 
(which does not apply to domestic workers) allows the alleged 
victim to bring his case to the labor court (a civil court) 
to attempt to retrieve actual losses (dues owed), but there 
are not additional remedies available (i.e., restitution). 
 
¶B. (SBU) What are the prescribed penalties for trafficking 
people for sexual exploitation? 
 
- Pimping is punishable by imprisonment of not more than ten 
years. 
 
What penalties were imposed for persons convicted of sexual 
exploitation over the reporting period? 
 
- Unknown; statistics not provided. 
 
Please note the number of convicted sex traffickers who 
received suspended sentences and the number who received only 
a fine as punishment. 
 
 
DOHA 00000171  006 OF 010 
 
 
- Unknown; statistics not provided. 
 
¶C. (SBU) Punishment of Labor Trafficking Offenses: What are 
the prescribed and imposed penalties for trafficking for 
labor exploitation, such as forced or bonded labor and 
involuntary servitude? 
 
- There are no specific trafficking laws addressing forced or 
bonded labor.  Abduction for the purpose of forced labor is 
punishable by imprisonment of not more than seven years. 
Forced labor is punishable by imprisonment of not more than 
six months and a fine not to exceed $825, or both. 
 
Do the government's laws provide for criminal punishment, 
i.e.  jail time, for labor recruiters in labor source 
countries who engage in recruitment of laborers using 
knowingly fraudulent or deceptive offers that result in 
workers being trafficked in the destination country? 
 
- N/A 
 
Are there laws in destination countries punishing  employers 
or labor agents in labor destination countries who confiscate 
workers' passports or travel documents, switch contracts 
without the worker's consent as a means to keep the worker in 
a state of service, or withhold payment of salaries as means 
of keeping the worker in a state of service? 
 
- There is currently no prohibition on the confiscation of 
worker's passports or travel documents; however, the proposed 
amendments to the existing Sponsorship Law will purportedly 
make the practice illegal.  Withholding payment may be 
punishable by imprisonment of no more than six months and/or 
a fine of no more than QR 3,000 (USD 825).  If the victim is 
under 16 years of age, the punishment is imprisonment of no 
more than six years and/or a fine of QR 10,000 (USD 2,750). 
 
If law(s) prescribe criminal punishments for these offenses, 
what are the actual punishments imposed on persons convicted 
of these offenses?  Please note the number of convicted labor 
traffickers who received suspended sentences and the number 
who received only a fine as punishment. 
 
- These provisions have not been used. 
 
 ¶D. (SBU) What are the prescribed penalties for rape or 
forcible sexual assault? 
 
- The penalty for rape or forcible sexual assault is 
imprisonment.  The penalty for sexual exploitation is 
imprisonment and carries with it a minimum sentence of five 
years and a maximum of fifteen years.  Cases involving 
children carry an automatic fifteen-year sentence. 
 
How do they compare to the prescribed penalties for crimes of 
trafficking for commercial sexual exploitation? 
 
- There are no trafficking laws addressing commercial sexual 
exploitation. 
 
¶E. (SBU) Is prostitution legalized or decriminalized? 
 
- No. 
 
Specifically, are the activities of the prostitute 
criminalized? 
 
- Yes, but women suspected of prostitution are often 
summarily deported rather than prosecuted under the law. 
 
DOHA 00000171  007 OF 010 
 
 
 
Are the activities of the brothel owner/operator, clients, 
pimps, and enforcers criminalized? 
 
- Yes, but those suspected of facilitation are often 
summarily deported rather than prosecuted under the law. 
 
Are these laws enforced? 
 
- Rarely. 
 
If prostitution is legal and regulated, what is the legal 
minimum age for this activity? Note that in many countries 
with federalist systems, prostitution laws may be under state 
or local jurisdiction and may differ among jurisdictions. 
 
- N/A. 
 
¶F. (SBU) Has the government prosecuted any cases against 
human trafficking offenders? 
 
- Not specifically. 
 
If so, provide numbers of investigations, prosecutions, 
convictions, and sentences served, including details on plea 
bargains and fines, if relevant and available. 
 
- Unknown; statistics not provided. 
 
Please indicate which laws were used to investigate, 
prosecute, convict, and sentence traffickers. 
 
- Criminal laws are not used to investigate, prosecute, 
convict, or sentence traffickers. 
 
Also, if possible, please disaggregate by type of TIP (labor 
vs. commercial sexual exploitation) and victims (children, as 
defined by U.S. and international law as under 18 years of 
age, vs. adults). 
 
- N/A. 
 
Does the government in a labor source country criminally 
prosecute labor recruiters who recruit laborers using 
knowingly fraudulent or deceptive offers or impose on 
recruited laborers inappropriately high or illegal fees or 
commissions that create a debt bondage condition for the 
laborer? 
 
- Qatar is not a labor source country. 
 
Does the government in a labor destination country criminally 
prosecute employers or labor agents who confiscate workers' 
passports/travel documents, switch contracts or terms of 
employment without the worker's consent, use physical or 
sexual abuse or the threat of such abuse to keep workers in a 
state of service, or withhold payment of salaries as a means 
to keep workers in a state of service? 
 
- No.  There is currently no prohibition on the confiscation 
of workers' passports or travel documents; however, the 
proposed amendments to the existing Sponsorship Law will 
purportedly make the practice illegal.  Employers who switch 
contracts or terms of employment without the worker's 
consent, or withhold payment of salaries are sometimes 
summoned to the labor court and the cases are treated as 
civil cases between employers and employees.  Laborers and 
domestic workers are often detained for months at the 
Deportation Detention Center awaiting the outcome of their 
 
DOHA 00000171  008 OF 010 
 
 
cases against their employers. 
 
Are the traffickers serving the time sentenced? 
 
- Traffickers are not criminally prosecuted.  The two Qataris 
that were sentenced to five-year prison terms for physical 
abuse of their maid were released upon payment of blood money 
to the maid's family.  The maid subsequently died after being 
returned to Indonesia. 
 
If not, why not? Please indicate whether the government can 
provide this information, and if not, why not? 
 
- Traffickers are not criminally prosecuted.  The government 
does not identify trafficking crimes as trafficking. 
 
¶G. (SBU) Does the government provide any specialized training 
for government officials in how to recognize, investigate, 
and prosecute instances of trafficking? 
 
- Yes.  TIP training has been incorporated into basic and 
continuing training at the police academy.  The TIP Office, 
with assistance from the NHRC, also organized a series of 
training courses and workshops for government and private 
officials, including officials from the Ministry of Interior 
and the Attorney General's Office, dealing with labor and 
domestic helpers' affairs to educate them on the rights of 
laborers and the obligations of employers.  It included 
police officers training on various methods of dealing with 
TIP victims. 
 
Specify whether NGOs, international organizations, and/or the 
USG provide specialized training for host government 
officials. 
 
- The USDOJ has provided a host government funded proposal to 
the GOQ to provide specialized training on TIP. 
 
¶H. (SBU) Does the government cooperate with other governments 
in the investigation and prosecution of trafficking cases? 
 
- The government is not known to cooperate with other 
governments in the investigation and prosecution of 
trafficking cases.  However, it coordinated with the Embassy 
of Sudan in the repatriation of the young Sudanese boys 
employed as camel jockeys.  Also, the government shares 
information with other countries in the region on patterns 
involving prostitution.  It works with labor attaches from 
South Asian countries to resolve cases of labor contract 
disputes, abuse of domestic servants, and workers present in 
Qatar without authorization. 
 
If possible, can post provide the number of cooperative 
international investigations on trafficking during the 
reporting period? 
 
- Unknown; statistics not provided. 
 
¶I. (SBU) Does the government extradite persons who are 
charged with trafficking in other countries? 
 
- According to the NHRC, the law does not permit the 
extradition of convicted Qatari citizens to any other foreign 
country. 
 
If so, can post provide the number of traffickers extradited 
during the reporting period? 
 
- Unknown; statistics not provided. 
 
DOHA 00000171  009 OF 010 
 
 
 
Does the government extradite its own nationals charged with 
such offenses? 
 
- There are no known cases. 
 
If not, is the government prohibited by law form extraditing 
its own nationals? 
 
- According to the NHRC, yes. 
 
If so, what is the government doing to modify its laws to 
permit the extradition of its own nationals? 
 
- Unknown. 
 
¶J. (SBU) Is there evidence of government involvement in or 
tolerance of trafficking, on a local or institutional level? 
If so, please explain in detail. 
 
- Some government tolerance of trafficking is demonstrated in 
the enactment of legislation such as the Sponsorship Law, 
which is authored by government offcials and which creates 
and facilitates TIP situaions.  For example, the Sponsorship 
Law engenders situations of bondage and servitude by 
prohibiting workers from leaving the country or changing 
employment without the permission of their current sponsor. 
Finally, the lack of enforcement of existing criminal 
statutes and labor laws could be construed as official 
toleration of TIP activities. 
 
¶K. (SBU) If government officials are involved in trafficking, 
what steps has the government taken to end such 
participation? 
 
- No known specific cases. 
 
Please indicate the number of government officials 
investigated and prosecuted for involvement in trafficking or 
trafficking-related corruption during the reporting period. 
 
- No known specific cases. 
 
Have any been convicted? 
 
- No known specific cases. 
 
What sentence(s) was imposed? 
 
- No known specific cases. 
 
Please specify if officials received suspended sentences, 
were given a fine, fired, or reassigned to another position 
within the government as punishment. 
 
- No known specific cases. 
 
Please provide specific numbers, if available. 
 
- No known specific cases. 
 
Please indicate the number of convicted officials that 
received suspended sentences or received only a fine as 
punishment. 
 
- No known specific cases. 
 
¶L. (SBU) As part of the new requirements of the 2005 TVPRA, 
for countries that contribute troops to international 
 
DOHA 00000171  010 OF 010 
 
 
peacekeeping efforts, please indicate whether the government 
vigorously investigated, prosecuted, convicted and sentenced 
nationals of the country deployed abroad as part of a 
peacekeeping or other similar mission who engage in or 
facilitate severe forms of trafficking or who exploit victims 
of such trafficking. 
 
- As part of UNIFIL, Qatari troops have not been identified 
as engaging in trafficking. 
 
¶M. (SBU) If the country has an identified child sex tourism 
problem (as source or destination), how many foreign 
pedophiles has the government prosecuted or 
deported/extradited to their country of origin? 
 
- There is no identified child sex tourism problem. 
 
What are the countries of origin for sex tourists? 
 
- N/A. 
 
Do the country's child sexual abuse laws have 
extraterritorial coverage (similar to the U.S.  PROTECT Act)? 
 
 
- Article 7 of the Qatari Penal Code includes explicit 
provisions endorsing the principles of territoriality and 
extraterritorial jurisdiction over offences committed by 
Qatari national or if the deceased is a Qatari. 
 
If so, how many of the country's nationals have been 
prosecuted and/or convicted under the extraterritorial 
provision(s) for traveling to other countries to engage in 
child sex tourism? 
 
- Unknown; statistics not provided. 
RATNEY