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DE RUEHML #0539/01 0631122
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O 031122Z MAR 08
FM AMEMBASSY MANILA
TO RUEHC/SECSTATE WASHDC IMMEDIATE 9961
INFO RUEHZS/ASSOCIATION OF SOUTHEAST ASIAN NATIONS IMMEDIATE
RUEHC/DEPT OF LABOR WASHDC IMMEDIATE
RUEAWJA/DEPT OF JUSTICE WASHDC IMMEDIATE
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RUEHHK/AMCONSUL HONG KONG IMMEDIATE 4827

UNCLAS SECTION 01 OF 16 MANILA 000539 
 
SIPDIS 
 
SIPDIS 
SENSITIVE 
 
STATE FOR G/TIP, EAP/MTS, EAP/RSP, INL, DRL, IWI 
LABOR FOR ILAB 
JUSTICE FOR CIVIL RIGHTS DIVISION AND CRIMINAL DIVISION 
DHS FOR ICE, CBP 
 
E.O. 12958: N/A 
TAGS: ASEC ELAB KCRM KFRD KWMN PHUM PREF PREL SMIG RP
 
SUBJECT: PHILIPPINES: INPUT FOR THE 2008 TRAFFICKING IN 
PERSONS REPORT 
 
REF: A. STATE 2731 (PREPARING THE TIP REPORT) 
¶B. MANILA 333 (ANTI-TIP EFFORTS IN MINDANAO) 
¶C. 07 MANILA 3320 (LAUNCH OF ANTI-TRAFFICKING CAMPAIGN) 
¶D. 07 MANILA 3241 (ENERGIZING PHILIPPINE PROSECUTION EFFORTS) 
¶E. 07 MANILA 2450 (LATEST TIP CONVICTION) 
¶F. 07 MANILA 2405 (AMBASSADOR BREAKS GROUND ON TWO SHELTERS) 
¶G. 07 MANILA 1924 (FROM MANILA TO ABIDJAN AND BACK) 
¶H. 07 MANILA 1054 (PROSECUTING TIP OFFENDERS) 
¶I. 07 MANILA 1043 (NEW TRAFFICKING CONVICTION) 
¶J. 07 MANILA 788 (COMBATING TIP AT AIRPORT) 
 
MANILA 00000539  001.2 OF 016 
 
 
¶1. (U) This cable includes the Mission's input for the 2008 
Trafficking in Persons (TIP) Report.  The information and statistics 
cover the period from April 2007 to March 2008, unless otherwise 
noted.  The Mission's TIP point of contact is Political Officer 
Barry Fullerton, FullertonTB@state.gov, tel. (632) 301-2350, fax 
(632) 301-2472.  Rank of TIP action officer is FS-03.  Estimated 
completion time for report:  SFS officer: 2 hours; FS-01 officers: 2 
hours; FS-02 officers: 8 hours; FS-03 officers: 60 hours; FSN: 60 
hours. 
 
¶2. (U) Sources of information involved in the preparation of this 
report include the following Philippine government agencies:  the 
Department of Foreign Affairs (DFA); the Department of Justice 
(DOJ); the Department of Social Welfare and Development (DSWD); the 
Department of Labor and Employment (DOLE); the Department of 
Interior and Local Government (DILG); the National Bureau of 
Investigation (NBI); the Bureau of Immigration (BI); the Philippine 
National Police (PNP); the Philippine Overseas Employment Agency 
(POEA); and the National Commission on the Role of Filipino Women 
(NCRFW).  The following NGOs also provided significant input:  the 
American Center for International Labor Solidarity (ACILS); Trade 
Union Congress of the Philippines (TUCP); the Visayan Forum 
Foundation (VFF); The Asia Foundation (TAF); the International 
Justice Mission (IJM); and the Coalition Against Trafficking in 
Women, Asia Pacific (CATW-AP).  Some information stemmed from media 
reports. 
 
------------------------------------ 
OVERVIEW OF THE COUNTRY'S ACTIVITIES 
------------------------------------ 
 
¶3. (SBU) The answers below are keyed to the format contained in ref 
A, para 27: 
 
¶A.  TRAFFICKING OVERVIEW: The Philippines is primarily an origin, 
and to a lesser extent, a destination and transit country of men, 
women, and children trafficked internationally for sexual 
exploitation and forced labor. In a 2006 United Nations Office on 
Drugs and Crime (UNODC) report on global patterns of trafficking, 
the Philippines ranked "high" in the citation index as a country of 
origin of trafficked persons.  Trafficking also occurs within the 
country's borders. Estimates of various non-government and 
international organizations vary significantly -- some putting the 
number of Philippine citizens trafficked internally, into Southeast 
Asia, and beyond, at thousands each year.  Aside from working in the 
commercial sex industry, many trafficked persons work as domestic 
servants, as well as in unsafe and exploitative industries as forced 
labor. 
 
Women face a far greater risk of becoming victims of trafficking 
than men, and girls are more at risk than boys.  Trafficking in 
children is generally internal: children and young women from poor 
farming communities in the Visayas (the central Philippines) and 
Mindanao (the southern Philippines) are brought to major urban 
centers and employed as factory workers, domestic helpers, or 
prostitutes.  Ethnic minorities, migrant workers, and other socially 
marginalized groups are more at risk than other groups due to the 
high prevalence of poverty among them. 
 
The Philippine government has no central database of trafficking 
information.  The government's Inter-Agency Council Against 
Trafficking in Persons (IACAT) planned to create a central database 
for tracking cases of TIP; however, a lack of resources hampered the 
government's intention to have a consolidated TIP database.  Various 
government agencies and non-government organizations document cases 
of TIP generated from case studies, the number of beneficiaries of 
 
MANILA 00000539  002.2 OF 016 
 
 
programs extended to trafficking victims, and actual cases filed or 
incidents reported to law enforcement agencies.  Law enforcement 
agencies reported 155 alleged trafficking cases to the Department of 
Justice in 2007; of these, prosecutors filed 56 cases in court.  In 
2007, the Department of Social Welfare and Development (DSWD) 
provided services to 359 victims of trafficking or potential victims 
of trafficking, 258 victims of child labor, and 44 victims of 
pedophilia or child pornography.  In 2007, the NGO Visayan Forum 
Foundation provided services to 1,512 victims of trafficking rescued 
at major seaports in the country. 
 
¶B. UNDERSTANDING HUMAN TRAFFICKING IN THE PHILIPPINES: Endemic 
poverty, a high unemployment and underemployment rate, a cultural 
propensity to seek higher living standards elsewhere, a weak rule of 
law environment, and a flourishing sex tourism industry all 
contributed to the continuation of trafficking in the Philippines. 
Persons were trafficked from poor, rural areas throughout the 
Philippines to major urban areas within the country, especially 
Metro Manila and Cebu, but also increasingly to cities in Mindanao. 
A significant percentage of the victims of internal trafficking were 
from the Visayas and Mindanao and were fleeing poverty or violence. 
In 2007, 58 percent of the trafficking victims rescued by the 
Visayan Forum were from Mindanao.  Victims of internal trafficking 
work as domestic servants or small-factory workers, as well as in 
the drug trade and in the commercial sex industry.  They were often 
subject to violence, threats, debt bondage, inhumane living 
conditions, non-payment of salaries, and withholding of documents. 
 
Traffickers most often targeted the multitudes of workers seeking 
overseas and urban employment.  More than one million Philippine 
workers engaged in temporary overseas work assignments to all parts 
of the world in 2007.  An estimated 11 percent of Gross National 
Product came from workers' remittances.  The most common recruits 
for trafficking were girls and young women aged 13 to 30 from rural 
areas, mainly from impoverished families.  Girls from ethnic 
minorities as young as ten years old also ended up as commercial sex 
workers. 
 
Traffickers usually sent female recruiters to their own 
neighborhoods or villages to recruit friends or relatives, providing 
the victims a false sense of security.  Traffickers often 
masqueraded as private employment recruiters, while actually 
cooperating with organized crime rings.  The most common method to 
approach victims was to promise respectable and lucrative jobs with 
good benefits such as free room and board, transportation, and cash 
advances.  Parents and guardians were often supportive, believing 
that work abroad is the key to ascending the socio-economic ladder. 
 
 
NGOs suggested that organized crime syndicates from Japan and China 
controlled most of the sex industry in Manila.  Employment agencies 
were involved in much of the trafficking both within the country and 
to overseas destinations.  They may also have had a role in 
trafficking of persons into the country.  Some of these agencies may 
have also undertaken legitimate recruitment of personnel, making it 
particularly challenging to identify illegal recruitment, as the 
line between legitimate and illegitimate agencies was blurred. 
Other recruiters may have been relatives or neighbors, while some 
parents and guardians sold their children into bondage.  In many 
cases, trafficking syndicates used women in their mid-40s or older 
to seek out victims, given many victims' perception that older women 
were less likely to harm them. 
 
Traffickers used land and sea transportation to transfer victims 
from island provinces to major cities within the country.  The 
system of ferries and barges connecting the islands from Mindanao to 
Luzon was the most common and cheapest mode of travel used by 
traffickers to transport victims.  Traffickers also took advantage 
of the growing budget airline carriers to transport victims out of 
the country.  Traffickers used fake travel documents, falsified 
permits, and altered birth certificates. 
 
Foreign trafficking rings brought the victims to destinations 
throughout Asia, Europe, the Middle East, North America, and Africa. 
 In 2007, foreign service posts of the Philippine Department of 
Foreign Affairs reported that the majority of victims of trafficking 
rescued were from Malaysia and Singapore, while the rest were from 
 
MANILA 00000539  003 OF 016 
 
 
Thailand, China, Hong Kong, Commonwealth of the Northern Mariana 
Islands, Palau, Japan, United Arab Emirates, Ivory Coast, Cyprus, 
Turkey, and Canada.  The Philippines was only occasionally a 
destination point for internationally trafficked individuals. 
Reports indicated trafficking of women into the Philippines from 
China and, more recently Thailand, for the purpose of sexual 
exploitation.  International organized crime gangs also transited 
trafficked persons from mainland China through the Philippines to 
third country destinations. 
 
The government made progress in combating trafficking in 2007, 
particularly in the areas of law enforcement coordination and victim 
protection and assistance.  The government secured convictions in 
three cases in 2007 (two during the reporting period), and law 
enforcement agencies filed more than 150 cases of alleged 
trafficking with prosecutors.  Of these cases, DOJ prosecutors filed 
56 in court, while the rest remained in preliminary investigation or 
were dismissed due to lack of evidence or on technicalities.  Since 
2003, DOJ filed 198 cases of trafficking in court.  Slow processing 
times, as well as corruption within law enforcement agencies, 
appeared to be the key obstacles to additional convictions in 2007. 
Local non-governmental organizations (NGOs) continued to provide 
assistance to victims and placed pressure on government officials to 
bolster anti-TIP activities. 
 
¶C. GOVERNMENT EFFORTS: Several cabinet-level agencies and 
sub-agencies actively worked to combat trafficking in the 
Philippines.  The IACAT coordinated, monitored, and oversaw the 
implementation of the anti-trafficking law (Republic Act 9208 of 
2003), and served as an umbrella organization to coordinate anti-TIP 
efforts.  The Secretary of Justice and the Secretary of Social 
Welfare and Development co-chaired the IACAT.  Other member agencies 
included Department of Foreign Affairs, Department of Labor and 
Employment, Philippine Overseas Employment Administration, National 
Commission on the Role of Filipino Women, National Bureau of 
Investigation, Bureau of Immigration, and Philippine National 
Police.  Three non-government organizations representing women, 
children, and overseas workers were also part of the IACAT. 
 
Other government agencies' efforts to combat human trafficking 
included: 
 
-- The Department of Foreign Affairs (DFA) extended assistance to 
victims of trafficking abroad and oversaw the voluntary repatriation 
of victims.  It acted as the central coordinating unit for all 
bilateral, regional, and multilateral efforts.  The DFA's Commission 
on Filipinos Overseas (CFO) provided pre-departure orientation and 
counseling services and offered liaison services to citizens 
immigrating overseas with the help of other government and private 
agencies.  The CFO also coordinated with the Bureau of Immigration 
(BI) regarding the apprehension of violators. In coordination with 
Department of Labor and Employment (DOLE), the DFA, through its 
Philippine embassies, took the lead in protecting the rights of 
migrant workers abroad.  Philippine Overseas Labor Offices (POLOs), 
the operating arm and overseas representative of DOLE, were under 
the supervision of the Philippine Chief of Mission or Ambassador; 
 
-- The Department of Social Welfare and Development (DSWD) focused 
on the protection of victims and was the responsible agency for the 
social reintegration of victims of trafficking.  DSWD operated 42 
temporary shelters for victims throughout the country.  In addition 
to DSWD's services within the Philippines, social workers were 
deployed to the Philippine diplomatic missions in Hong Kong, 
Singapore, Taipei, Tokyo, Dubai, Abu Dhabi, Kuwait City, and Riyadh 
to provide psycho-social counseling to overseas Filipino workers 
(OFWs) in distress, and worked in conjunction with POLOs; 
 
-- The Department of Labor and Employment (DOLE) was responsible for 
coordinating the government's campaign against illegal recruitment, 
and for maintaining records of overseas Filipino workers.  It 
ensured the strict implementation of, and compliance with, the rules 
and guidelines on the employment of persons locally and overseas. 
It also monitored, documented, and reported cases of trafficking in 
persons involving employers and labor recruiters.  DOLE officers 
worked as labor attaches at Philippine diplomatic missions and spent 
much of their time assisting overseas workers.  Thirty-nine labor 
attaches served at thirty-four POLOs around the world at Philippine 
 
MANILA 00000539  004 OF 016 
 
 
diplomatic missions; 
 
-- The Overseas Workers Welfare Administration (OWWA), an attached 
agency of DOLE, had responsibility for protecting overseas workers 
and their dependents.  It provided counseling and legal assistance 
programs to overseas workers and conducted information dissemination 
and awareness campaigns.  In countries with large numbers of OFWs, 
an OWWA officer often served as Assistant Labor Attache; 
 
-- The Department of Justice was responsible for protecting the 
rights of victims of trafficking and prosecuting traffickers.  It 
also offered free legal assistance for trafficked persons in 
coordination with the DSWD and NGOs.  After the passage of the 
anti-trafficking law in May 2003, DOJ established the Task Force on 
Anti-Trafficking in Persons, composed of 17 prosecutors from the DOJ 
who focused specifically on trafficking.  Additionally, 
approximately 72 prosecutors in regional DOJ offices handle cases of 
trafficking in persons.  DOJ continued to lead the government's 
efforts, with the Secretary of Justice acting as Chair of the 
government's anti-TIP coordinating body, the Inter-Agency Council 
Against Trafficking in Persons; 
 
-- The National Bureau of Investigation (NBI), the Philippine 
National Police (PNP), and the National Police Commission (NAPOLCOM) 
worked to identify, investigate, and dismantle trafficking 
operations and prosecute offenders.  The NBI created a task force 
focused solely on investigating trafficking allegations, a task 
force on the protection of women against exploitation and abuse and 
a task force on the protection of children from exploitation and 
abuse; 
 
-- The Department of Interior and Local Government (DILG) conducted 
systematic information and prevention campaigns and, together with 
NAPOLCOM, was creating a databank for the efficient monitoring, 
documentation, and prosecution of cases of trafficking in persons; 
 
-- The National Commission on the Role of Filipino Women (NCRFW) 
instituted development plans for women and provided technical 
assistance in setting up and strengthening response to gender 
issues.  It formulated and monitored policies on trafficking in 
persons in coordination with relevant government agencies; 
 
-- The Bureau of Immigration (BI) administered and enforced 
immigration and alien administration laws and adopted measures for 
the apprehension of suspected traffickers both at the place of 
arrival and departure.  It ensured the compliance of Filipinos 
engaged or married to foreign nationals with the guidance and 
counseling requirements in the trafficking law.  It also controlled 
and monitored border points by deploying deputized marines to help 
enforce immigration laws; 
 
-- The Philippine Overseas Employment Administration (POEA), 
affiliated with DOLE, was the primary administrator of licenses for 
recruitment agencies.  An average of 3,000 citizens visited POEA's 
main office each day, seeking employment overseas.  Recruitment 
agencies cannot solicit employees for overseas work without the 
permission of POEA.  POEA had authority to place on probation or bar 
from recruiting new workers any agencies in violation of POEA 
standards.  POEA also administered pre-employment orientation 
seminars and pre-departure counseling programs to applicants for 
overseas employment.  POEA trained diplomatic staff, overseas labor 
officers, and social welfare officers in methods for assisting 
trafficking victims abroad.  It also provided free legal assistance 
to trafficked victims.  In December 2006, POEA issued new employment 
requirements for overseas Filipino household workers better to 
protect them from widespread employer abuse and trafficking in 
persons. The new requirements increased the monthly minimum wage 
from US$200 to US$400 and raised the minimum age from 18 to 23; 
 
-- Philippine Center on Transnational Crime (PCTC) collected 
information for the effective monitoring, documentation, and 
prosecution of trafficking cases of foreign nationals. 
 
¶D. LIMITATIONS ON GOVERNMENT EFFORTS: The Philippines remains one of 
the poorest countries in Asia.  The government's ability to address 
the trafficking problem remained limited by inadequate resources, 
including for police.  Corruption in the government and the general 
 
MANILA 00000539  005 OF 016 
 
 
ineffectiveness of the judicial system were also factors that 
impeded the government's ability to prosecute trafficking cases. 
The lack of resources and high judgeship vacancy rate in the 
judiciary significantly slowed trial times.  A 2005 UN Development 
Program (UNDP) and Philippine Supreme Court study found that the 
average trial takes over three years.  Many government agencies have 
not yet fully implemented the 2003 anti-trafficking law due to lack 
of training and orientation on the scope and magnitude of the 
problem. 
 
National and international NGOs and other foreign donors (including 
the USG) complemented official government programs. Anti-trafficking 
resources focused primarily on prevention and protection for 
overseas Filipino workers.  The strongest efforts existed in the 
areas of helping to prevent persons from becoming victims, 
repatriating victims in destination countries, and reintegrating 
them into Philippine society upon their return home. 
 
¶E. MONITORING ANTI-TRAFFICKING EFFORTS: The government had no 
central database of trafficking information.  Several agencies 
maintained their own separate databases, but many of these did not 
focus exclusively on trafficking.  The Philippine Center on 
Transnational Crime (PCTC) collected information on transnational 
crime activities, but its records were not comprehensive.  The 
Commission on Filipinos Overseas (CFO), an attached agency of the 
DFA, developed a database to monitor legal problems involving 
Filipinos overseas, but its system was not restricted to trafficking 
and also generated reports on other cases such as domestic violence 
and human smuggling.  The CFO plans to integrate this information 
into a shared government database on migration.  The DILG tasked the 
National Police Commission (NAPOLCOM) to maintain a database of 
trafficking cases based on the quarterly reports from PNP.  In 
December 2006, the DILG directed the PNP to monitor trafficking 
cases and to provide information to the NAPOLCOM database.  While 
law enforcement information was entered into the database in 2007, 
the system was not yet a reliable source of trafficking data. 
 
Government officials involved in anti-TIP activities met regularly 
with concerned NGOs, foreign donors, embassies, and regional and 
international organizations to share information and assessments, 
but all agreed solid data about the extent of the problem remained 
difficult to obtain. 
 
In November and December 2007, IACAT, in partnership with NGOs and 
with support from the donor community, held three sub-national 
conferences on anti-trafficking in persons in the three main areas 
of the Philippines -- Luzon, Visayas, and Mindanao.  The conferences 
brought together government organizations, NGOs, and civil society 
groups to assess ongoing government and non-government initiatives 
to combat trafficking; make recommendations for further 
advancements; and share relevant experiences, best practices, and 
success stories. 
 
-------------------------------------------- 
INVESTIGATION AND PROSECUTION OF TRAFFICKERS 
-------------------------------------------- 
 
¶4. (SBU) The answers below are keyed to the format contained in ref 
A, para 28. 
 
¶A. LAWS AGAINST HUMAN TRAFFICKING: The Anti-Trafficking in Persons 
Act of 2003 (Republic Act 9208) is the Philippine landmark 
legislation to protect women and children from sexual exploitation 
and forced labor.  The law affirmed the government's resolve to 
prevent and suppress the illegal trade in persons, especially women 
and children, and carried penalties not only against traffickers but 
also against users or buyers of victims.  Under the law, the 
recruitment, transportation, transfer, harboring, or receipt of a 
minor for the purpose of exploitation was enough to file a case 
against a trafficker.  It is not necessary to show that such acts 
were made through threats, use of force, or other coercive measures. 
 The law penalizes both internal and transnational trafficking. 
 
In addition to the anti-trafficking law, the government used several 
laws to prosecute traffickers, including:  the Migrant Workers and 
Overseas Filipinos Act (Republic Act 8042), which gave the 
government the authority to combat illegal recruiting; the 
 
MANILA 00000539  006.3 OF 016 
 
 
MAIL-ORDER BRIDE LAW (REPUBLIC ACT 6955), WHICH MADE IT UNLAWFUL FOR 
FOREIGN MEN TO MARRY FILIPINO WOMEN FOR THE PURPOSE OF EXPLOITATION; 
THE INTER-COUNTRY ADOPTION ACT OF 1995 (REPUBLIC ACT 8043), WHICH 
SOUGHT TO PROTECT FILIPINO CHILDREN FROM ABUSE, EXPLOITATION, 
TRAFFICKING, AND/OR SALE; THE SPECIAL PROTECTION OF CHILDREN AGAINST 
CHILD ABUSE, EXPLOITATION, AND DISCRIMINATION ACT (REPUBLIC ACT 
7610), WHICH ESTABLISHED PENALTIES FOR CHILD EXPLOITATION, INCLUDING 
CHILD TRAFFICKING; AND THE ANTI-CHILD LABOR LAW (REPUBLIC ACT 9231), 
WHICH PROHIBITED THE EMPLOYMENT OF CHILDREN BELOW THE AGE OF 15 
EXCEPT WHEN GRANTED SPECIAL PERMISSION BY DOLE, AND GUARANTEED THE 
PROTECTION, HEALTH, AND SAFETY OF CHILD WORKERS. 
 
¶B. PENALTIES UNDER THE TRAFFICKING LAW: THE ANTI-TRAFFICKING IN 
PERSONS ACT OF 2003 IMPOSED HARSH PENALTIES ON PERSONS ENGAGED IN 
TRAFFICKING.  THE LAW DISTINGUISHED BETWEEN THREE TYPES OF 
VIOLATIONS: DIRECT PARTICIPATION IN TRAFFICKING; ACTS THAT PROMOTED 
TRAFFICKING; AND MORE SERIOUS ACTS OF TRAFFICKING, CALLED 
"QUALIFIED" TRAFFICKING.  THE PENALTY FOR A DIRECT ACT WAS A FINE OF 
P1 MILLION TO P2 MILLION (25,000 TO 50,000 USD) AND UP TO 20 YEARS 
IMPRISONMENT; PROMOTION OF TRAFFICKING THROUGH FALSIFICATION OF 
DOCUMENTS AND TAMPERING WITH CERTIFICATES CARRIED UP TO 15 YEARS 
IMPRISONMENT AND A FINE OF P500,000 TO P1 MILLION (12,500 TO 25,000 
USD).  THE MAXIMUM PENALTY APPLIED WHERE THE VICTIM WAS A CHILD, 
TRAFFICKING WAS CONDUCTED ON A LARGE SCALE, OR THE CRIME INVOLVED 
MILITARY OR LAW ENFORCEMENT AGENCIES AND PUBLIC OFFICERS OR 
EMPLOYEES, RESULTING IN LIFE IMPRISONMENT AND A FINE OF P2 MILLION 
TO P5 MILLION (50,000 TO 125,000 USD).  THOSE WHO ENGAGED THE 
SERVICES OF TRAFFICKED PERSONS FOR PROSTITUTION FACED PENALTIES OF 
BETWEEN SIX MONTHS OF COMMUNITY SERVICE AND A FINE OF P50,000 (1,250 
USD) TO A MAXIMUM OF ONE YEAR IMPRISONMENT AND A FINE OF P100,000 
(2,500 USD). 
 
THE ANTI-TRAFFICKING IN PERSONS ACT OF 2003 LAW PRESCRIBES THE SAME 
PENALTIES FOR TRAFFICKING FOR PURPOSES OF SEXUAL EXPLOITATION, 
PROSTITUTION, PORNOGRAPHY, FORCED LABOR, SLAVERY, INVOLUNTARY 
SERVITUDE, OR DEBT BONDAGE.  DURING THE REPORTING PERIOD, TWO CASES 
OF TRAFFICKING FOR SEXUAL EXPLOITATION, ONE IN CEBU CITY AND ANOTHER 
IN DAVAO CITY, RESULTED IN THE CONVICTION OF THREE TRAFFICKERS.  THE 
JUDGE IN EACH CASE FOUND THE DEFENDANTS GUILTY OF "QUALIFIED" 
TRAFFICKING, AND IMPOSED THE MAXIMUM PENALTY - LIFE IMPRISONMENT. 
IN THE JULY 20 RULING IN CEBU CITY, THE JUDGE ALSO ORDERED THE TWO 
DEFENDANTS TO PAY A FINE OF USD 75,000.  IN THE JULY 27 RULING IN 
DAVAO CITY, THE JUDGE ORDERED THE TRAFFICKER TO PAY A FINE OF USD 
50,000. 
 
¶C. PUNISHMENT FOR LABOR TRAFFICKING OFFENSES: THE ANTI-TRAFFICKING 
LAW CLEARLY STATED THAT IT WAS ILLEGAL TO RECRUIT, TRANSPORT, 
TRANSFER, HARBOR, PROVIDE, OR RECEIVE A PERSON BY ANY MEANS, 
INCLUDING UNDER THE PRETEXT OF DOMESTIC OR OVERSEAS EMPLOYMENT, 
TRAINING, OR APPRENTICESHIP, FOR THE PURPOSE OF PROSTITUTION, 
PORNOGRAPHY, SEXUAL EXPLOITATION, FORCED LABOR, SLAVERY, INVOLUNTARY 
SERVITUDE, OR DEBT BONDAGE.  ACTIVITIES THAT PROMOTED OR FACILITATED 
TRAFFICKING COULD RESULT IN IMPRISONMENT OF UP TO 15 YEARS AND A 
FINE BETWEEN P500,000 TO P1 MILLION (12,500 TO 25,000 USD).  THERE 
HAD BEEN NO CONVICTIONS FOR TRAFFICKING FOR FORCED LABOR. 
 
THE MIGRANT WORKERS AND OVERSEAS FILIPINOS ACT OF 1995 (REPUBLIC ACT 
8042) REGULATES THE RECRUITMENT AND DEPLOYMENT OF FILIPINOS FOR 
OVERSEAS WORK.  THE LAW IMPOSES IMPRISONMENT OF SIX TO 12 YEARS AND 
A FINE OF P200,000 TO P500,000 (5,000 TO 12,500 USD) TO RECRUITERS 
AND PLACEMENT AGENCIES THAT ARE NOT REGISTERED WITH THE POEA, AND TO 
RECRUITERS, WHETHER REGISTERED OR NOT, WHO PLACE WORKERS IN JOBS 
HARMFUL TO HEALTH AND MORALITY, OR ALTER EMPLOYMENT CONTRACTS TO THE 
PREJUDICE OF THE WORKER. 
 
IN 2007, POEA FILED 469 ADMINISTRATIVE CASES AGAINST LICENSED LABOR 
RECRUITERS WHO USED FRAUDULENT AND DECEPTIVE OFFERS TO ENTICE 
JOBSEEKERS OR IMPOSED INAPPROPRIATELY HIGH OR ILLEGAL FEES ON 
PROSPECTIVE EMPLOYEES. 
 
¶D. PENALTIES FOR RAPE OR SEXUAL ASSAULT: UNDER REPUBLIC ACT 8353, 
THE ANTI-RAPE LAW OF 1997, THE PENALTY FOR RAPE IS LIFE 
IMPRISONMENT.  UNDER REPUBLIC ACT 7877, OR THE ANTI-SEXUAL 
HARASSMENT ACT OF 1995, ANY PERSON WHO VIOLATED THE PROVISIONS OF 
THE ACT SHALL FACE IMPRISONMENT OF NOT LESS THAN ONE MONTH OR MORE 
THAN SIX MONTHS, OR A FINE OF UP TO P20,000 (500 USD), OR BOTH A 
FINE AND IMPRISONMENT. 
 
MANILA 00000539  007.2 OF 016 
 
 
 
¶E. PROSTITUTION LAWS: Prostitution was illegal, but remained 
widespread.  Many prostitutes worked independently in small brothels 
rather than in prominent entertainment clubs.  Hostesses, referred 
to as "guest relations officers" (GROs), sometimes engaged in 
illegal prostitution, although their employers usually barred them 
from leaving an establishment with a customer.  The government 
required GROs to undergo frequent health checks. 
 
An anti-prostitution bill remained under consideration in the House 
of Representatives.  It would punish those involved in the industry, 
such as pimps and brothel owners, while decriminalizing the action 
of those exploited in the prostitution industry.  The draft bill 
stated that women and children who engaged in prostitution could be 
victims and should be free from criminal liability.  It also stated 
that people exploited in prostitution were entitled to support and 
protection, and could seek legal redress. 
 
¶F. PROSECUTING HUMAN TRAFFICKING OFFENDERS: Since the passage of the 
2003 anti-trafficking law, the Department of Justice has obtained 
convictions in eight cases.  In 2007, law enforcement agencies 
reported 155 trafficking cases to DOJ for review.  Of these, DOJ 
filed 56 in court. Seventy-seven cases remained in preliminary 
investigation at DOJ; three were filed under other related laws; and 
19 were dismissed by the prosecution.  Since 2003, DOJ has filed 198 
cases under the anti-trafficking law in court.  During the reporting 
period, Philippine courts convicted three individuals in two cases 
under the 2003 anti-trafficking law.  All three traffickers received 
life sentences after the courts found them guilty of "qualified 
trafficking" of minors for prostitution.  The convicted traffickers 
remained in jail serving their life sentences. 
 
Despite the DOJ's intensified efforts to prosecute and convict 
traffickers, the majority of cases continued to drag because of an 
overburdened judicial system.  Judicial process on average takes 
three years from the filing of charges to resolution of a case. 
There were convictions under related legislation, such as child 
abuse and illegal recruitment. 
 
Under certain circumstances and with approval of the court, 
Philippine law permitted private attorneys to prosecute cases under 
the direction and control of a public prosecutor.  These "private 
prosecutors" serve on behalf of the victims in court proceedings. 
The government used this provision effectively, allowing and 
supporting International Justice Mission (IJM) and other NGOs that 
provide legal assistance to investigate and prosecute trafficking 
cases.  In addition to DOJ's ongoing TIP cases, IJM initiated 32 
criminal cases of qualified trafficking against suspected 
traffickers since 2003.  Of these 32 cases, one resulted in a 
conviction (the July 20 conviction in Cebu City); 14 remained on 
trial at the end of the reporting period; eight were in preliminary 
hearings; eight were under investigation; and one was archived 
because the accused remained at large. 
 
The government actively investigated cases of trafficking-related 
offenses, but was hampered by scarce resources.  The principal 
investigative agencies were BI, NBI, and PNP.  At PNP, the Criminal 
Investigation and Detection Group (CIDG) and the Women and 
Children's Concerns Division handled most trafficking cases.  In 
2007, PNP investigated 104 cases of trafficking involving women and 
children.  PNP recommended 103 cases to the DOJ for prosecution. 
 
From April 2007 to January 2008 the NBI's Anti-Human Trafficking 
Division investigated 97 complaints of trafficking.  At the end of 
the reporting period, one case was filed with DOJ for potential 
prosecution.  The Philippine Center for Transnational Crime 
investigated nine cases of trafficking.  The BI ensured that all 
foreign nationals within its territorial jurisdiction complied with 
existing laws to ensure the protection of women and children against 
commercial sexual exploitation.  BI's interceptions at Philippine 
airports typically went to NBI for further investigation. 
 
¶G. TRAINING FOR GOVERNMENT OFFICIALS: Government agencies continued 
to increase the frequency of TIP training and orientation efforts. 
The programs included training for several thousand officials, 
including prosecutors, judges, NBI investigators, local government 
units, and city councilors.  In 2007, the IACAT, with the support 
 
MANILA 00000539  008.3 OF 016 
 
 
from USAID's Rule of Law Effectiveness Program, conducted the 
Filipino Initiative Against Trafficking, a series of activities 
including training of prosecutors, law enforcers and social workers, 
on effective coordination in the investigation and prosecution of 
trafficking cases.  The USG, UNICEF, and other donors also supported 
training of police officers and prosecutors. 
 
The PCTC conducted training on upgrading its personnel's skills in 
combating transnational crimes, including trafficking.  POEA 
sponsored a seminar on evidence-gathering for the effective 
prosecution of illegal recruitment and participated in various 
forums on human trafficking. 
 
¶H. INTERNATIONAL COOPERATION: The government cooperated with other 
countries in the investigation and prosecution of TIP cases, 
particularly in cases with Malaysia, Hong Kong, New Zealand, and 
Australia.  Because there was no central database linking the 
various law enforcement agencies, numbers of cooperative 
investigations conducted were not available.  The Philippines had 
treaties on mutual legal assistance on criminal matters with 
Australia and the United States.  The Philippines was also a 
signatory to the ASEAN Mutual Legal Assistance Treaty to share 
information and evidence among ASEAN member-states. 
 
The Philippines participated in other international efforts to 
prevent, monitor, and control trafficking.  Having completed Phase I 
of an agreement with the United Nations Center for International 
Crime Prevention-Office for Drug Control and Crime Prevention 
(CICP/ODCCP) to gather information on organized criminal groups 
involved in trafficking, the DSWD began implementation of the second 
phase of a project to provide capacity building to service providers 
in havens for women and children, rehabilitate trafficked victims by 
providing full security, financial assistance, and non-formal 
training, and establish linkages with the business community for 
possible internship programs. 
 
¶I. EXTRADITIONS: Philippine law permits extradition, and the 
Philippines had extradition treaties with Australia, Canada, the 
Federated States of Micronesia, Hong Kong, Indonesia, Republic of 
Korea, Switzerland, the United States, and the Kingdom of Thailand. 
Under the terms of the 2003 anti-trafficking law, trafficking in 
persons is considered an extraditable offense.  However, the 
government received no extradition requests for trafficking 
offenders, foreign or national, during the reporting period. 
 
¶J. GOVERNMENT INVOLVEMENT AND/OR TOLERANCE: Government officials at 
all levels publicly stated their commitment to combating trafficking 
in the Philippines.  While there was no evidence that the 
government, as an institution, tolerated, permitted or allowed 
trafficking crimes, widespread corruption at all levels of 
government permitted many organized crime groups, including 
traffickers, to conduct their illegal activities.  Corruption among 
law enforcement agents remained pervasive.  At the street level, it 
was not uncommon for officers to demand petty bribes for minor 
offenses, real or alleged.  Law enforcement officers often extracted 
protection money in exchange for permitting businesses to conduct 
legitimate operations without necessary permits, or for illegitimate 
businesses, such as brothel owners or gambling and drug lords.  It 
is widely believed that some government officials are involved in, 
or at least permit, trafficking operations within the country. 
 
¶K. EFFORTS TO INVESTIGATE AND PROSECUTE GOVERNMENT OFFICIALS FOR 
INVOLVEMENT IN TRAFFICKING: During the reporting period, the 
prosecution and defense attorney concluded the presentation of 
evidence in the trial of police officer Dennis Reci, charged in June 
2005 for allegedly trafficking minors for sexual exploitation at his 
nightclub in Manila.  Reci remained under detention while the case 
was pending court's decision.  A decision is expected in 2008. 
 
In February 2007, the Task Force Against Trafficking at the Ninoy 
Aquino International Airport (NAIA), an inter-agency task force 
composed of DOJ, BI, Customs, Airport Police and the Manila 
International Airport Authority, was formed to combat trafficking at 
the airport by intercepting undocumented passengers, assisting 
trafficking victims, and monitoring reported involvement of airport 
personnel.  During the reporting period, the NAIA Task Force filed 
one case of trafficking in persons involving an immigration employee 
 
MANILA 00000539  009.2 OF 016 
 
 
at the airport.  Two other cases of trafficking-related corruption 
involving four immigration personnel were filed with the Office of 
the Ombudsman.  Because of reports of alleged collusion of 
government officials and immigration employees with organized 
trafficking syndicates, the Bureau of Immigration instituted a 
number of preventive measures at the airports, including prohibition 
of immigration officers from carrying mobile phones on duty and 
regular rotation of officers at assigned counters. 
 
In 2007, the Office of the Ombudsman created the Tanodbayan 
(Ombudsman) Against Government Employees Involved in Trafficking 
(TARGET), composed of special investigators and prosecutors tasked 
to investigate cases against government officials engaged in 
trafficking in persons or trafficking-related corruption.  The 
Office of the Ombudsman also conducted a study to identify points 
within government procedures that were particularly vulnerable to 
corruption and trafficking, and expressed commitment to investigate 
enforcement gaps. 
 
¶L. INTERNATIONAL PEACEKEEPING TROOPS: The Philippines deployed a 
total of 725 military and police personnel in nine United Nations 
peacekeeping missions.  There were no reports of Philippine 
peacekeepers engaging in or facilitating trafficking.  Before 
deploying troops to peacekeeping operations, the Department of 
National Defense and the PNP conducted seminars and training for 
peacekeepers, including a training module on trafficking in persons. 
 The DFA also provides pre-departure orientation seminars to foreign 
service officers and other government personnel, including military 
and police, before being assigned abroad. 
 
¶M. CHILD SEX TOURISM: Child sex tourism continued to be a serious 
problem for the Philippines.  Sex tourists reportedly came from 
Asia, Europe, and North America to engage in sexual activity with 
minors.  The government cooperated with the USG in prosecuting 
American nationals under the terms of the U.S. PROTECT Act of 2003, 
which criminalized the commission by American nationals overseas of 
child abuse, including child pornography and other sexual offenses 
against a minor.  At the end of the reporting period, Immigration 
and Customs Enforcement (ICE) of the U.S. Department of Homeland 
Security had nine ongoing PROTECT Act investigations in 
collaboration with Philippine law enforcement.  ICE received stellar 
cooperation from the government in three earlier PROTECT Act cases 
involving Edilberto Datan, Bernard Lawrence Russell, and John W. 
Seljan.  In each case, the individuals traveled to the Philippines 
to engage in sexual activity with minors.  All three received 
convictions; courts also ordered Edilberto Datan and Bernard Russell 
to pay restitution fees to their victims. 
 
------------------------------------ 
PROTECTION AND ASSISTANCE TO VICTIMS 
------------------------------------ 
 
¶5. (SBU) The answers below are keyed to the format contained in ref 
A, para 29. 
 
¶A. ASSISTANCE TO FOREIGN TRAFFICKED VICTIMS: The Anti-Trafficking 
Law provides that foreign trafficked victims or trafficking victims 
who transit the Philippines are entitled to the same assistance and 
protections as Philippine citizens.  The government provides 
temporary residency status, relief from deportation, shelter, and 
access to legal, medical, and psychological services to foreign 
victims of trafficking.  During the reporting period, the Philippine 
Center for Transnational Crime, in cooperation with the Embassy of 
Thailand in the Philippines, assisted three victims of trafficking 
from Thailand. 
 
¶B. GOVERNMENT ASSISTANCE TO TRAFFICKING VICTIMS: The government 
assisted victims by providing temporary residency status, relief 
from deportation, shelter, and access to legal, medical, and 
psychological services.  Additional protective services included 
telephone hotlines for reporting abused/exploited cases of women and 
children.  The DSWD's Residential Care unit provided 24-hour 
residential group care to children on a temporary basis to 
facilitate healing, recovery, and reintegration with their families 
and communities.  DSWD maintained 42 residential care units; of 
these, 13 centers were for women, 13 for girls, and the remaining 
for men, boys, and the elderly.  Substitute homes, or havens, served 
 
MANILA 00000539  010.2 OF 016 
 
 
the needs of female victims of trafficking and other forms of abuse. 
 Twelve substitute homes provided shelter for over 1,400 women and 
their children.  The DSWD also referred cases to accredited NGOs for 
children and accredited NGOs for women, which provided temporary 
shelter and community services to women and children in crisis, 
including victims of trafficking.  While DSWD's efforts to protect 
victims were impressive, government funding for DSWD's programs 
remained inadequate. 
 
Crisis intervention and child protection units operated in many 
public hospitals throughout the country.  The crisis units also 
provided telephone counseling, conducted rescue operations, and 
provided overnight facilities and referral services for longer-term 
shelters.  Women and Children Protection Units in Department of 
Health (DOH) hospitals offered medical services and psychological 
counseling to victims of violence.  The Philippine General Hospital 
in Manila evaluated and treated TIP victims on behalf of the 
government. 
 
¶C. GOVERNMENT SUPPORT OF NGO SERVICES FOR VICTIMS: The government 
cooperated well with NGOs to support and provide services to 
trafficking victims.  The Philippine Ports Authority's Gender and 
Development (GAD) Focal Point Program, an agency under the DOTC, 
provided the building and amenities for a halfway house, which the 
VFF managed.  Activities of the halfway house staff included regular 
inspection of the different port areas, assistance to possible 
victims of traffickers and victims of illegal recruitment, 
information dissemination, and basic orientation seminars. 
 
VFF ran the Multi-Sectoral Network Against Trafficking in Persons 
(MSNAT) to promote cooperation and sustain partnership among 
government, NGOs, the private sector, and civil society.  Government 
partners included the DOJ, DOLE, DFA, DILG, DSWD, National Police 
Commission, Philippine Ports Authority (PPA), and the Commission on 
Human Rights.  DSWD provided limited funding to accredited NGOs to 
help meet the basic needs of victims, such as food, clothing, 
medicine, and legal services.  With assistance from DFA, DSWD 
established arrangements with NGOs in other countries to provide 
distressed OFWs with temporary shelter, counseling, and medical 
assistance. 
 
VFF, which the State Department's Trafficking in Persons Report 
highlighted in 2004 for its best practices, works closely with 
Philippine Ports Authority to operate halfway houses for victims and 
potential victims of TIP.  VFF currently operates shelters in 
Batangas, Davao, Manila, Sorsogon, and Zamboanga.  It plans to open 
additional halfway houses and safe houses in Iloilo and Surigao in 
¶2008. 
 
In July 2006, VFF signed a 10-year agreement with the Manila 
International Airport Authority to establish an airport halfway 
house for TIP victims.  Under this partnership, VFF will also train 
airport immigration and customs officials on how to identify 
potential victims of human trafficking. 
 
In general, NGOs cannot rely on government funding.  They typically 
turned to foreign governments, foreign and domestic religious 
groups, third-country and multinational donor agencies, and private 
foundations.  However, the government remained highly aware of the 
value of NGOs in combating trafficking, and routinely sought 
cooperation and input from NGOs. 
 
¶D. LAW ENFORCEMENT IDENTIFICATION OF TRAFFICKING VICTIMS: The 
implementing rules of the 2003 anti-trafficking law outlined 
procedures to identify and refer victims of trafficking, whether the 
incident occurred inside or outside of the country.  After rescue 
operations, investigation, and filing of cases, victims of 
trafficking rescued within the country went under the custody of the 
DSWD for proper treatment.  For cases overseas, consular officers 
and personnel from the POLO conducted visits to the jail, work site, 
or residence of the victim, and then provided temporary shelter, and 
legal, financial, and repatriation assistance to the victims.  Upon 
arrival in the Philippines, the DSWD, the NBI, or PNP provided 
psycho-social interventions, psychological and medical examinations, 
and therapy sessions, if necessary. 
 
Port personnel referred victims, as well as domestic workers 
 
MANILA 00000539  011.3 OF 016 
 
 
detained at port police stations, to the halfway houses run by the 
VFF.  The DSWD also referred cases of physical and verbal abuse 
against domestic workers to VFF for psycho-social intervention and 
short-term care until repatriation of the victims.  The VFF 
maintained five halfway houses in strategic port areas in Batangas, 
Manila, Davao, Sorsogon, and Zamboanga City.  VFF similarly 
coordinated with the PPA, DOLE, DSWD, shipping companies, and 
workers' groups.  Halfway house staff provided direct services to 
trafficked victims in ports, including temporary shelter, referral, 
repatriation, and counseling. 
 
¶E. COUNTRIES WITH LEGALIZED PROSTITUTION: This question is not 
applicable to the Philippines. 
 
¶F. TREATMENT OF TRAFFICKING VICTIMS: The 2003 anti-trafficking law 
recognized trafficked persons as victims and did not penalize them 
for crimes related to the acts of trafficking or for obeying 
traffickers, regardless of their consent to exploitation.  Police 
sometimes brought charges of vagrancy against prostitutes and 
trafficked victims. 
 
¶G. VICTIM COOPERATION WITH LAW ENFORCEMENT: The government actively 
encouraged victims to assist in the investigation and prosecution of 
trafficking and related crimes.  Victims can file civil suits or 
seek legal action against traffickers.  The Secretary of Justice 
issued a DOJ Circular instructing that all cases involving 
violations of the anti-trafficking law should receive preferential 
attention.  The circular also ordered all prosecutors to reject 
calls by defense attorneys for dismissal of cases in which the 
victims recant their testimony.  Pursuant to the Rape Victim 
Assistance and Protection Act, an all-female team of police 
officers, examining physicians, and prosecutors must handle 
investigations of offenses committed against women.  In the case of 
trafficked children, the Special Protection of Children Act and the 
Rule on Examination of a Child Witness mandated that a single panel 
conduct an interview to avoid the potential damaging effect of 
feeling re-victimized through a series of repeated questioning.  All 
fines by the courts on offenders accrue to a trust fund that IACAT 
administered, which it used to prevent acts of trafficking, protect 
and rehabilitate victims, and reintegrate trafficked persons into 
the community. 
 
¶H. VICTIM AND WITNESS PROTECTION: Under the Witness Protection, 
Security, and Benefit Program, the DOJ offered protection to 
witnesses from reprisals and economic dislocation by providing 
security protection, immunity from criminal prosecution, housing, 
livelihood expenses, travel expenses, medical benefits, education to 
dependents, and job security.  However, some witness protection 
participants complained of insufficient security and of abusive 
guards.  Moreover, due to lack of resources to fund the program, 
many who would have liked to participate could not.  Many other 
potential witnesses may not have been aware of the existence of this 
program.  In addition to the halfway houses, VFF also ran two 
safehouses in Manila and Legazpi for longer protective custody of 
victims, especially for those who decided to take legal actions 
against traffickers. 
 
¶I. TRAINING FOR GOVERNMENT OFFICIALS TO IDENTIFY AND PROTECT 
VICTIMS: The government, through IACAT and with funding from USAID 
and other donors, conducted regular training seminars for government 
officials, including those from DSWD, PNP, DOJ, DFA, DOLE, 
Commission on Human Rights, and various NGOs, on gender- sensitive 
and child-friendly handling of trafficking cases. 
 
The BI also conducted periodic training on basic immigration laws 
and procedures for immigration officers and agents in the field and 
other personnel involved in operations.  Training on 
anti-trafficking in persons was in the Pre-Departure Orientation 
Seminar (PDOS) for consular staff, as well as Foreign Service 
officers and attaches, en route to foreign missions.  ILO and the 
Department of Foreign Affairs Foreign Service Institute developed an 
anti-trafficking in persons training module.  The training module 
(in CD format) will benefit DFA Foreign Service officers who were 
unable to undergo anti-trafficking training through PDOS. 
 
¶J. GOVERNMENT ASSISTANCE FOR REPATRIATED TRAFFICKING VICTIMS: DFA, 
OWWA, and DSWD assisted repatriated Filipino workers who were 
 
MANILA 00000539  012.2 OF 016 
 
 
victims of trafficking.  The OWWA's Halfway Home program provided 
temporary shelter, transport services, financial assistance, and 
counseling services through a network of NGOs.  The DSWD, working 
with DOLE and DOH, provided protective custody, recovery, and 
healing services for victims.  Services included organization of 
support groups, psychological and psychiatric interventions, 
medical, legal and livelihood services, provision of limited 
financial assistance, and educational assistance. 
 
¶K. GOVERNMENT COOPERATION WITH NGOS: The vibrant local and 
international NGO community in the Philippines included many 
organizations that work directly with trafficking victims.  The most 
active contributors included: 
 
-- Coalition Against Trafficking in Women - Asia Pacific 
(CATW-AP) is an international network of feminist groups, 
organizations, and individuals fighting the sexual exploitation of 
women.  The coalition brings attention to trafficking in women and 
girls, prostitution, pornography, sex tourism, and bride selling, 
mainly through media campaigns and policy advocacy.  It provides 
preventive education program on migration and trafficking at the 
community and grassroots level and conducts dialogues with 
government agencies such as the POEA, DOLE, and DSWD on preventive 
and curative measures.  Services include referring trafficking cases 
to member and partner organizations for legal, counseling and 
support services, and documentation of trafficking cases based on 
the Human Rights Information and Documentation System used by a 
global network of organizations concerned with human rights issues; 
 
 
-- VFF focuses on the promotion of child welfare, especially migrant 
working children, and is active on the issue of domestic trafficking 
of women and children.  It provides 24-hour services for victims, 
including the operation of several temporary shelters, counseling, 
employment referrals, training, and advocacy.  Staff positioned at 
port arrival areas identify and intercept probable victims of 
trafficking as they disembark ships.  Through funding assistance 
from The Asia Foundation and the USG, VFF spearheaded the creation 
of MSNAT, a national network committed to provide immediate and 
appropriate response mechanisms to prevent trafficking, investigate 
and prosecute offenders, and protect, rescue, recover, and 
reintegrate victims, especially women and children; 
 
-- TUCP is the largest trade union network in the Philippines.  The 
TUCP forges coalitions with various labor groups in its efforts to 
promote and protect the rights and welfare of workers and other 
disadvantaged groups, including women, youth and children, and 
migrant workers.  TUCP's Women's Bureau is particularly active in 
anti-trafficking initiatives, such as public information and media 
campaigns, database collection and documentation, provision of legal 
assistance to victims, and networking.  With funding support from 
the American Center for International Labor Solidarity and the USG, 
TUCP conducted an anti-trafficking project establishing a coalition 
of private sector organizations that will coordinate with the 
government to ensure the implementation of activities on trafficking 
in persons; 
 
-- The American Center for International Labor Solidarity (ACILS), 
active in the Philippines since 1969, has an extensive network with 
the government, NGOs, trade unions, academia, and the business 
community.  ACILS addresses labor issues, including irregular 
migration and trafficking in persons.  In 2003, ACILS established a 
multi-sectoral Technical Working Group (TWG) to assist trafficking 
victims, monitor trafficking developments, process inquiries and 
complaints, and initiate filing of trafficking cases.  TWG is 
composed of 37 organizations including 18 national government 
agencies, and 19 trade unions, NGOs, and advocacy groups; 
 
-- Development Action for Women Network (DAWN) addresses the 
concerns of Filipino women migrants in Japan as well as the growing 
number of Japanese-Filipino children (JFCs).  Almost 90 percent of 
Filipino OFWs in Japan are female entertainers, making them 
vulnerable to trafficking and sexual exploitation.  In coordination 
with its DAWN-Japan volunteers, the local branch assists JFCs 
abandoned by their Japanese fathers; 
 
-- Women's Legal Bureau (WLB) is a feminist legal NGO composed of 
 
MANILA 00000539  013.3 OF 016 
 
 
lawyers, academics, and members of other professions.  It provides 
legal services to victims and survivors of violence against women 
and conducts education and information campaigns to raise public 
awareness on women's issues.  Other programs include representation 
of women in judicial proceedings, training of law enforcers and 
members of the legal profession on gender sensitivity, empowering 
communities to respond to feminist issues, especially those 
involving violence against women, and working with women's groups 
toward promoting human rights; 
 
-- Third World Movement Against the Exploitation of Women (TWMAEW) 
addresses the needs of children and women in prostitution and other 
victims of sexual exploitation through shelters and support centers. 
 It offers skills training, livelihood assistance, and psycho-social 
intervention.  In collaboration with UNICEF and DepEd, it conducted 
awareness-raising campaigns on sexual abuse for 13,291 elementary 
school pupils.  Social workers, educators, and survivors of sexual 
abuse facilitated the workshops; 
 
-- Kanlungan Center Foundation (KCF) works with OFWs and their 
families in addressing the problems of migrant workers.  It provides 
legal and welfare assistance, psycho-social counseling, temporary 
shelter, and education and training.  Courses include Basic 
Migrants, Orientation, Migrant Rights, Legal Remedies, and Gender 
Awareness and Sensitivity. Kanlungan also intervenes at the 
grassroots level and addresses the psycho-social and economic causes 
and effects of migration by forging partnerships with other 
organizations at the community level; 
 
-- End Child Prostitution, Child Pornography and the Trafficking of 
Children for Sexual Purposes (ECPAT) campaigns to raise general 
public awareness in tourism, the travel industry, and high-risk 
communities on the issue of children victims of sexual abuse and 
commercial sexual exploitation. ECPAT is a member of the Special 
Committee for the Protection of Children under the DOJ and works 
with local government units in major provinces and cities, other 
NGOs, and church-based organizations. 
 
---------- 
PREVENTION 
---------- 
 
¶6. (SBU) The answers below are keyed to the format contained in ref 
A, para 30: 
 
¶A. GOVERNMENT ACKNOWLEDGEMENT OF TRAFFICKING PROBLEM: The government 
considered trafficking a serious problem facing the country and 
actively took steps to combat trafficking.  President Arroyo and her 
administration frequently spoke out in public about the evils of 
trafficking and the efforts of the government to combat TIP.  They 
made clear the government has zero tolerance for TIP in any form. 
Senior officials also stressed that the government would not condone 
official complicity in such trafficking. 
 
¶B. ANTI-TRAFFICKING PUBLIC AWARENESS CAMPAIGNS: Government agencies 
increased the frequency of their TIP information and education 
campaigns, mostly thanks to funding by bilateral international donor 
agencies. 
 
-- In 2007, IACAT, with support from USAID, conducted "road show" 
campaigns against human trafficking in three provinces in Luzon 
(Batangas, Cagayan, and Quezon), each identified by the national 
steering committee as strategic points for intervention.  The road 
shows aimed to raise the level of awareness in the community, 
especially for potential victims of trafficking and their families. 
The awareness and advocacy campaigns reached more than 6,000 
citizens, not counting radio listeners and television viewers; 
 
-- The government, through IACAT, broadcast anti-TIP infomercials 
that aired on local TV networks in three provinces where road shows 
were held.  The infomercial provided basic information about TIP as 
well as information on how to report incidents to proper 
authorities; 
 
-- In November and December 2007, the government held three 
Sub-National Conferences on Anti-Trafficking in Persons in Davao 
City, Cebu City, and Manila.  The conferences brought together 
 
MANILA 00000539  014.2 OF 016 
 
 
government organizations, NGOs, and civil society groups to assess 
ongoing government and non-government initiatives to combat 
trafficking; make recommendations for further advancements; and 
share relevant experiences, best practices, and success stories. 
These conferences improved awareness of trafficking issues in the 
provinces, as well as forged relationships between national-level 
and local partners; 
 
-- POEA conducted nearly 1,000 pre-employment orientation seminars 
for more than 60,000 departing overseas Filipino workers (OFWs) in 
¶2007.  These seminars sought to educate the OFWs on the risks and 
rewards of overseas employment.  The seminar module included a video 
presentation on trafficking in persons; 
 
-- NCRFW, in partnership with End Child Prostitution and Trafficking 
(ECPAT), the Coalition Against Trafficking of Women Asia Pacific 
(CATW-AP), and other NGOs, conducted community awareness and 
education campaigns throughout the country in 2007; 
 
-- From April 2007 to February 2008, the ACILS/TUCP Anti-Trafficking 
Project continued its public awareness activities on TIP in 14 
regions of the country.  ACILS also distributed information, 
education, and communication materials on migration and trafficking 
issues to youth, women, civic, and faith-based groups; 
 
¶C. GOVERNMENT RELATIONSHIP WITH NGOS AND CIVIL SOCIETY: The 
relationship between government agencies, NGOs, and other elements 
of civil society concerned with trafficking issues was excellent. 
NGOs assisted the government in preventing trafficking activities, 
protecting and reintegrating trafficking victims, and prosecuting 
traffickers.  NGOs often referred trafficking victims to government 
agencies, as the NGOs lacked the necessary funding fully to help 
victims and their families.  Government agencies recognized the 
importance of engaging NGOs in their advocacy programs.  Several 
government agencies had NGO desks that oversaw government-NGO 
coordination.  Additionally, three NGOs focused on women, children, 
and OFWs were part of the IACAT. 
 
Two examples of strong NGO-government relationships were the 
experiences of the Visayan Forum Foundation and the International 
Justice Mission.  The VFF coordinated closely with local law 
enforcement, port authorities, and private shipping companies in 
rescuing trafficking victims at Manila's North Harbor Port and other 
ports throughout the country.  Since 2001, IJM, a U.S.-based NGO 
employing private Philippine investigators and prosecutors, closely 
coordinated with government agencies to increase the number of pro 
bono prosecutions in the country under the 2003 anti-trafficking 
law.  IJM investigated and gathered evidence against establishments 
that employed trafficked women and children, and shared this 
information with law enforcement.  In close coordination with 
government prosecutors, IJM's attorneys then filed criminal cases on 
behalf of the exploited victims. 
 
¶D. IMMIGRATION AND EMIGRATION PATTERNS: Approximately five million 
passengers transited Manila's North Harbor in 2007, the country's 
largest port; as many as half were in search of employment 
opportunities.  Despite efforts to guard major port areas, the 
government did not have sufficient resources adequately to monitor 
its borders.  With more than 7,000 islands, fully monitoring 
maritime borders was virtually impossible given the limited 
resources of the maritime services. 
 
The Philippine Coast Guard, under the Department of Transportation 
and Communication (DOTC), intercepted some ferries in order to 
identify trafficked victims and illegal recruiters in coordination 
with private shipping companies.  The Maritime Police conducted 
investigations upon the disembarkation of passengers.  It referred 
victims of trafficking to government agencies or local NGOs for 
further assistance. 
 
Owners, managers, and key personnel of shipping companies conducted 
regular orientation and awareness seminars with their crews to 
educate them on ways to identify and report suspected trafficking 
victims onboard.  Often, shipping companies assisted in facilitating 
the repatriation of minors by offering discounted fares. 
 
In February 2007, IACAT established its first anti-trafficking task 
 
MANILA 00000539  015.2 OF 016 
 
 
FORCE AT MANILA'S INTERNATIONAL AIRPORT.  THE NINOY AQUINO 
INTERNATIONAL AIRPORT TASK FORCE AGAINST TRAFFICKING IN PERSONS 
INCLUDED REPRESENTATIVES FROM THE MANILA INTERNATIONAL AIRPORT 
AUTHORITY, THE AIRPORT POLICE DEPARTMENT, BI, NBI, PNP, PASAY CITY 
PROSECUTOR'S OFFICE, POEA, BUREAU OF CUSTOMS, DFA, CFO, DSWD, AND 
THE AIRLINE OPERATORS COUNCIL.  THE TASK FORCE WILL IMPROVE 
INFORMATION-SHARING ACROSS AGENCIES IN ORDER TO IMPROVE THE 
INTERCEPTION, INVESTIGATION, AND PROSECUTION OF TRAFFICKERS, AS WELL 
AS TO COORDINATE IMMEDIATE ASSISTANCE TO TRAFFICKING VICTIMS.  IACAT 
PLANS TO ESTABLISH SIMILAR TASK FORCES AT THE AIRPORTS IN CEBU, 
DAVAO, AND ZAMBOANGA. 
 
¶E. COORDINATION AND COMMUNICATION BETWEEN GOVERNMENT AGENCIES: THE 
IACAT COORDINATED, MONITORED, AND OVERSAW THE IMPLEMENTATION OF THE 
ANTI-TIP LAW, AND SERVED AS AN UMBRELLA ORGANIZATION TO COORDINATE 
ANTI-TIP EFFORTS IN THE PHILIPPINES.  THE DOJ SECRETARY AND THE DWSD 
SECRETARY CO-CHAIRED THE IACAT.  OTHER MEMBER AGENCIES INCLUDED DFA, 
 
SIPDIS 
DOLE, POEA, NCRFW, NBI, BI, AND THE PNP.  THREE NGOS REPRESENTING 
WOMEN, CHILDREN, AND OVERSEAS FILIPINO WORKERS WERE ALSO PART OF THE 
IACAT. 
 
IN ADDITION TO THE NATIONAL-LEVEL IACAT, THE GOVERNMENT CREATED 
LOCAL AND REGIONAL INTER-AGENCY COUNCILS AGAINST TIP.  THE LOCAL 
IACATS SIMILARLY INCLUDED VARIOUS GOVERNMENT AGENCIES, LOCAL 
GOVERNMENT UNITS, AND NGOS.  ALONGSIDE THE LOCAL IACATS, LOCAL TASK 
FORCES IN SOME HOT SPOT AREAS COORDINATED LAW ENFORCEMENT AND 
PROSECUTION EFFORTS. 
 
THE DOJ LED A NATIONAL TASK FORCE ON THE PROTECTION OF WOMEN AGAINST 
ABUSE, EXPLOITATION, AND DISCRIMINATION, AS WELL AS A TASK FORCE ON 
CHILD PROTECTION, TO ADDRESS CASES OF VIOLENCE AGAINST WOMEN AND 
CHILDREN. 
 
THE ANTI-ILLEGAL RECRUITMENT COORDINATING COUNCILS (AIRCCS) SERVED 
AS A VENUE AT THE GRASSROOTS LEVEL FOR CONSULTATION AND INFORMATION 
SHARING TO MAP OUT STRATEGIES IN IMPROVING THE GOVERNMENT'S 
ANTI-ILLEGAL RECRUITMENT PROGRAMS. 
 
LOCAL COUNCILS FOR THE PROTECTION OF CHILDREN EXISTED AT THE 
PROVINCIAL, CITY, MUNICIPALITY, AND VILLAGE LEVELS TO ASSIST IN 
IDENTIFYING CONDITIONS RELATED TO CHILD ABUSE, NEGLECT, AND 
EXPLOITATION, AND TO FACILITATE IMMEDIATE RESPONSES TO REPORTED 
CASES OF CHILD ABUSE AND EXPLOITATION. 
 
BOTH THE OFFICE OF THE OMBUDSMAN AND THE PRESIDENTIAL ANTI-GRAFT 
COMMISSION PURSUED OFFICIAL CORRUPTION CASES AND COORDINATED THE 
GOVERNMENT'S ANTI-CORRUPTION EFFORTS. 
 
¶F. NATIONAL PLAN OF ACTION TO ADDRESS TRAFFICKING: THE GOVERNMENT 
MAINTAINED ITS NATIONAL ACTION PLAN TO ADDRESS TIP, CREATED WITH NGO 
INPUT.  IACAT LEAD THE IMPLEMENTATION OF THE PLAN INVOLVING DOJ, 
DSWD, DOLE, AND OTHER GOVERNMENT AGENCIES.  ALL AGENCIES INVOLVED IN 
IACAT SHARED RESPONSIBILITIES FOR DEVELOPING AND IMPLEMENTING 
ANTI-TRAFFICKING PROGRAMS.  AS CO-CHAIR OF IACAT, DOJ ENSURED THE 
PROTECTION OF PERSONS ACCUSED OF TRAFFICKING, PROVIDED ACCESS TO 
FREE GOVERNMENT OR NGO LEGAL ASSISTANCE, AND TRAINED PROSECUTORS IN 
HANDLING TRAFFICKING-RELATED CASES.  DSWD TOOK THE LEAD IN 
IMPLEMENTING REHABILITATIVE AND PROTECTIVE PROGRAMS FOR TRAFFICKED 
PERSONS AND PROVIDING VICTIMS WITH COUNSELING AND TEMPORARY SHELTER. 
 IT ALSO DEVELOPED A SYSTEM FOR ACCREDITATION AMONG NGOS IN ORDER TO 
ESTABLISH CENTERS AND PROGRAMS FOR INTERVENTION AT THE COMMUNITY 
LEVEL. 
 
¶G. GOVERNMENT EFFORTS TO REDUCE DEMAND FOR COMMERCIAL SEX ACTS:  THE 
GOVERNMENT, GIVEN ITS LIMITED RESOURCES, DID NOT HAVE SPECIFIC 
PROGRAMS AIMED AT REDUCING THE DEMAND FOR COMMERCIAL SEX ACTS. 
HOWEVER, SEVERAL NGOS, INCLUDING THE COALITION AGAINST TRAFFICKING 
IN WOMEN, SPONSORED DEMAND REDUCTION PROGRAMS TARGETING TEENAGE 
MALES IN SOME COMMUNITIES. 
 
¶H. GOVERNMENT EFFORTS TO REDUCE PARTICIPATION IN INTERNATIONAL CHILD 
SEX TOURISM BY NATIONALS: THIS QUESTION IS NOT REQUIRED FOR THE 
PHILIPPINES PER REF A. 
 
¶I. INTERNATIONAL PEACEKEEPING TROOPS: THE PHILIPPINES DEPLOYED A 
TOTAL OF 725 MILITARY AND POLICE PERSONNEL IN NINE UNITED NATIONS 
PEACEKEEPING MISSIONS.  BEFORE DEPLOYING TROOPS TO PEACEKEEPING 
 
MANILA 00000539  016 OF 016 
 
 
operations, the Department of National Defense and the PNP conducted 
seminars and training for peacekeepers, including a training module 
on trafficking in persons.  The DFA also provide pre-departure 
orientation seminars to Foreign Service officers and other 
government personnel, including military and police, before being 
assigned abroad. 
 
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2008 Anti-Trafficking Hero - Cecilia Flores-Oebanda 
--------------------------------------------- ------ 
 
¶7. Mission's nomination for Anti-Trafficking Hero for the 2008 
Report: 
 
Cecilia Flores-Oebanda, a longtime advocate against trafficking, 
continues to pave the road for NGO and government collaboration on 
anti-trafficking efforts in the Philippines.  Her unwavering 
commitment to protect victims of abuse and exploitation inspires 
government and NGO leaders not only in the Philippines but around 
the world.  As the President and Executive Director of the Visayan 
Forum Foundation, Ms. Flores-Oebanda is the epitome of an 
anti-trafficking "hero," recognized through her work for the welfare 
of marginalized migrants, especially those working as domestic 
workers and trafficked women and children.  She has spent most of 
her life working with the urban poor, peasants, sugar plantation 
workers, women, youth, and children.  Because of her activism, she 
became a political prisoner for four years under the Marcos regime. 
She was released from detention as a result of the 1986 People Power 
Revolution and immediately began work on the blueprint for the 
Visayan Forum Foundation. 
 
In 1991, she founded the Visayan Forum to strengthen the rights of 
migrant women and children from poor areas of the Visayas and 
Mindanao who were trafficked to urban communities as child laborers 
or for commercial sexual exploitation.  Seventeen years later, the 
Visayan Forum has six regional offices and seven project areas at 
strategic locations around the highways and ports of the Philippines 
and is at the forefront of providing services to trafficked victims 
and exploited domestic workers.  It manages five halfway houses and 
four domestic centers, which have rescued and provided assistance to 
more than 19,000 victims and potential victims of trafficking.  Ms. 
Flores-Oebanda is the recipient of Anti-Slavery International's 
Anti-Slavery Award in 2005 and a Department of State International 
Visitor grantee in 2001.  While Visayan Forum's operations were 
recognized as a best practice in the 2005 Trafficking in Persons 
Report, Post would strongly encourage G/TIP to consider naming Ms. 
Flores-Oebanda as one of its 2008 Anti-Trafficking Heroes. 
 
KENNEY