VZCZCXRO4089
RR RUEHSK
DE RUEHCP #0088/01 0470739
ZNR UUUUU ZZH
R 160739Z FEB 10
FM AMEMBASSY COPENHAGEN
TO RUEHC/SECSTATE WASHDC 5500
INFO RUEHUJA/AMEMBASSY ABUJA 0001
RUEHBK/AMEMBASSY BANGKOK 0999
RUEHCV/AMEMBASSY CARACAS 0003
RUEHCH/AMEMBASSY CHISINAU 0081
RUEHKV/AMEMBASSY KYIV 0013
RUEHSK/AMEMBASSY MINSK 0001
RUEHNY/AMEMBASSY OSLO 0001
RUEHPG/AMEMBASSY PRAGUE 0652
RUEHSM/AMEMBASSY STOCKHOLM 9058
RHEFHLC/HOMELAND SECURITY CENTER WASHINGTON DC
RUEATRS/DEPT OF TREASURY WASHDC
RUEHC/DEPT OF LABOR WASHDC
RUEAWJC/DEPT OF JUSTICE WASHDC

UNCLAS SECTION 01 OF 20 COPENHAGEN 000088 
 
SENSITIVE 
SIPDIS 
 
STATE FOR G/TIP,G:LPENA,INL,DRL,PRM,EUR/PGI:JBUCKNEBERG 
STATE ALSO PASS USAID 
 
E.O. 12958: N/A 
TAGS: KTIP KFRD KWMN PHUM PREF SMIG ELAB KMCA DA
KCRM, ASEC 
SUBJECT: TRAFFICKING IN PERSONS:  POST'S INPUT TO 10TH 
ANNUAL TIP REPORT 
 
REF: STATE 2094 
 
(U) SENSITIVE BUT UNCLASSIFIED; PROTECT ACCORDINGLY.  NOT FOR 
INTERNET DISSEMINATION. 
 
¶1. (U) Post is providing the following answers keyed to 
question headings in REFTEL. 
 
¶2. (SBU) DENMARK'S TIP SITUATION: 
 
-- A. The following is a list of sources and their websites 
that offer information regarding human trafficking in Denmark: 
 
-The United Nations Human Rights Council - 
www.un.org/en/rights/ 
-The United Nations Office on Drugs and Crime - 
www.unodc.org/unodc/en/ 
-The European Union Agency for Fundamental Rights ) 
fra.europa.eu 
-The Danish Parliament ) www.ft.dk 
-The Danish Ministry of Foreign Affairs ) www.um.dk 
-The Danish Ministry for Gender Equality ) www.lige.dk 
-The Danish National Police ) www.politi.dk 
-Statistics Denmark ) www.dst.dk 
-Danish Director of Public Prosecutions ) 
www.ridsadvocaten.dk 
-Womens' Council in Denmark ) www.kvinderraadet.dk 
-The Danish Institute for Human Rights ) www.humanrights.dk 
-The Danish National Organization of Shelters for Battered 
Women and their 
Children ) www.lokk.dk 
-The Danish National Board of Social Services ) 
www.servicestyrelsen.dk 
-The Danish Anti-Trafficking Center ) 
www.centermodmenneskehandel.dk 
-Save the Children, Denmark ) www.redbarnet.dk 
-The Danish Red Cross ) www.drk.dk 
-The Nest International ) www.kvindehandel.dk 
- Safe and Alive ) www.safe-and-alive.dk 
- Pro Vest - http://www.provest.dk/news.php 
-The Prostitution Competence Center - 
http://www.kcprostitution.dk/page659.asp 
-Hope Now - http://www.hopenow.dk/ 
-Humanity in Action - http://www.humanityinaction.org/denmark 
-Denmark International School - http://www.dis.dk/ 
-Danish Newspapers 
 
Currently, the national efforts to combat Trafficking in 
Persons are outlined in the National Action Plan (NAP): 
"Danish Government's Action Plan to Combat Human Trafficking 
2007-2011." The effort is described as a holistic, nationwide 
coordinated effort in offering support to victims of human 
trafficking with a long-term goal of combating trafficking in 
persons and reducing the number of persons trafficked to 
Denmark. The four goals of the project are: 
 
-to promote effective implementation of existing legislation 
and law enforcement, to ensure the identification and 
prosecution of traffickers 
-to support victims, by improving the social assistance 
available to them in Denmark 
-to increase public awareness, so as to prevent human 
trafficking by limiting the demand 
-to prevent human trafficking by improving the international 
cooperation, including developing preventative efforts in 
home countries 
 
Annual Reports on Implementation of the NAP are required. 
 
According to a UN assessment, the National Center for 
Investigations (NEC) of the Danish National Police carries 
out national and systematic monitoring of, among other 
crimes, trafficking in human beings. 
 
 
COPENHAGEN 00000088  002 OF 020 
 
 
The Danish Ministry of Foreign Affairs is engaged in funding 
efforts to combat Trafficking in Persons abroad in Ukraine, 
Belarus, and Moldova under the Danish Programme Against Human 
Trafficking (DANATIP/DPHT).  Its Report "Danish Programme 
Against Human Trafficking 2009-2011" outlines both the status 
of current goals and the targets for reducing trafficking in 
persons. 
 
This new program builds on the results of its predecessor 
which ran 2006-2008. Working through key implementing 
partners in Moldova, Ukraine, and Belarus, which include both 
international and non-governmental organizations, the 
programme supports national counter-trafficking plans and 
works with government agencies to support their role as 
leaders of counter-trafficking efforts. The program works 
within a widely recognized approach, whereby efforts are 
focused within the three broad areas of prevention, 
protection, and prosecution. 
 
The program has four objectives: 
(1) Strengthened national counter trafficking strategies and 
mechanisms; 
(2) Streamlined and improved access to and provision of 
services for VTs; 
(3) Better targeted prevention activities effectively reach 
vulnerable groups, and 
(4) Strengthened international and regional co-operation on 
responses to trafficking. 
 
The Embassy assesses these sources to be very reliable, and 
they are used by numerous respected international bodies when 
compiling their own reports. 
 
-- B. According to The Danish Anti-Trafficking Center, a 
subset of the National Board of Social Services, Denmark is 
considered a country of destination for trafficking. The 
Danish National Police also consider Denmark as a transit 
country in that the exchange of women between pimps in 
Denmark and surrounding countries (principally within the 
Schengen zone) creates a cross-border market, and the Danish 
Red Cross names Denmark specifically as a transit country for 
child victims of trafficking. 
 
There have been no reports or known public acknowledgements 
of Danish citizens in Denmark as victims of trafficking 
conditions. 
 
Those who are most likely associated with trafficking 
commonly come from the Baltic countries, East and Central 
Europe, Nigeria, Thailand, and South America (Colombia, 
Brazil, Ecuador, and Bolivia). 
 
The Danish National Police believe that victims transiting 
Denmark are often traded/resold between pimps within the 
Schengen Zone and the Baltic Sea region). 
 
From 01 August 2007 to 30 April 2009, investigators from the 
Ministry of Refugee, Immigration, and Integration Affairs met 
with 186 women suspected of being trafficked. It was 
determined that 49 of them were victims of trafficking. 
 
In the period 2007 to March 2009, The Danish Anti-Trafficking 
Center reported that a collection of social organizations had 
met with 683 women showing signs of being victims of 
trafficking and determined that 94 were victims. 
 
These meetings are done with cooperation between the 
Government and NGOs as a part of the "Danish Government's 
Action Plan to Combat Human Trafficking 2007-2011." 
 
As a whole, the National Board of Social Services says that 
an estimated 1500 women have been met since the government's 
action plan to combat trafficking came into force in 2007, 
and it is estimated that at least 130 were victims of 
 
COPENHAGEN 00000088  003 OF 020 
 
 
trafficking. 
 
This year saw the first official report of a man as a victim 
of trafficking in Denmark. The organization "Safe and Alive" 
reported in July that a man, who had been kidnapped in 
Nigeria, and trafficked through Spain and Germany, had been 
rescued in Denmark. The 19 year old male had been trafficked 
to Denmark in 2006 to serve in the sex industry. 
 
Based on the information in this report, the TIP situation 
has largely remained the same as the previous year. The Danes 
are increasing the strength of their initiatives in combating 
human trafficking, but the results have yet to affect the 
overall situation from year to year. 
 
-- C. Because all known cases of trafficking in Denmark 
involve the sex industry, the conditions described by Danish 
authorities are biased towards conditions related to victims 
in the sex industry. Some are held in isolation and other 
forced to be available for customers 24 hours a day. The 
individual is not allowed to decide when to go home and is 
often held in debt to the pimp. The debt is normally 
established with, among other things, a debt contract which 
the victim signs under which the debt is grossly out of 
proportion to the actual cost of travel and travel document 
expenses. 
 
Individuals have reported being raped by their pimps, 
receiving personal death threats or threats to their families 
at home, as well as being forced to have abortions if they 
become pregnant. 
 
-- D. According to the NAP and the 2009 National Police NAP 
Status Update, the largest target group for the prevention of 
human trafficking is, without comparison, women involved in 
prostitution. However, the NAP also includes children 
trafficked for crime, begging, or prostitution as well as men 
or women trafficked for forced labor, prostitution, or organ 
donation. 
 
Almost all of the official confirmed reports of trafficking 
in Denmark have involved the sex industry. Some reports 
dealing with child victims of trafficking have examples of 
children being trafficked into criminal pick-pocket rings. 
Although there may not be concrete examples available, the 
Danish Anti-Trafficking Center points out that victims of 
trafficking in Denmark are at risk to be forced to work in 
the following "industries" as well:  private housework 
(exploitation of au-pairs), hotel/restaurant work, factory 
work, agricultural work, work in mines, or as "donors" for 
organ sales. 
 
-- E. Traffickers and Their Methods: 
 
According to a 2009 report covering National Police efforts 
against the perpetrators of human trafficking, the 
traffickers/exploiters come from several different areas. One 
example cites a married couple running a massage clinic, 
which was involved in trafficking girls from Thailand. 
Another cites a situation where women from Nigeria were being 
intimidated by a local voodoo priest to cooperate with 
traffickers by exploiting their fear of supernatural 
reprisal. 
 
More information on "ju-ju" intimidation can be found in the 
Danish Immigration Service's 2008 Report: "Protection of 
Victims of Trafficking in Nigeria." 
 
In a memo to the Parliament, the Minister of Justice said 
that Outlaw Motorcycle Gangs in Denmark are involved in 
illegal prostitution. Since prostitution itself is not 
illegal in Denmark, this statement implies their involvement 
in the three related crimes under section 228 (Pimping), 
section 229 (Trafficking Middleman), and section 262 (Human 
 
COPENHAGEN 00000088  004 OF 020 
 
 
Trafficking) of the Danish Criminal Code. 
 
In March, a report claimed that three men involved in the 
leadership ranks of Hell's Angels in the city of Aarhus, were 
taken into police custody after it was discovered that they 
had made roughly USD 800,000 on the trafficking of 20 
Venezuelan girls for a private escort service. The case also 
featured the arrest of two unnamed prominent members of 
Aarhus society. 
 
In reference to victims being trafficked to Scandinavia, 
there are three major methods used to "recruit" them. The 
first method is kidnapping. After either having worked as a 
prostitute in their homeland or after being kidnapped by a 
partner or friend, they are sold to a pimp and trafficked 
abroad. Usually these women did not have financial problems, 
but in many cases weak family ties.  The second method is 
baiting. Some women or young girls seeking employment abroad 
in legal jobs such as waitresses, house workers, or 
hair-stylists, are lured in by false promises of work by 
"loverboys," family, "girlfriends," family members, or 
someone in their circle. They are convinced to go abroad 
without knowing the exact nature of their travel or who is 
waiting on the other end. The girls are often poor and 
uneducated, and therefore, are willing to take risks to 
escape their economic situation. The third method is 
exploitation through contract debt. In this case, women who 
have agreed to work on the "softer" side of the sex industry 
(i.e. strip clubs, bars) or as prostitutes in expectation of 
quick money and returning home soon, are driven into a 
contract debt out of proportion to the cost of travel and 
documents.  As a result, they become indentured servants who 
are often put on call 24 hours a day for customers.  Debts 
are often sold to other pimps, who move the victim in order 
to maintain a "fresh stable" for their clients.  Children can 
also be recruited by people who exploit a relationship of 
trust to send them abroad. 
 
Typically, the "recruiters" arrange the paperwork and 
transport through both legal and illegal means to traffic 
their victims. This arranged work is also often the source of 
debt when victims are forced into indentured servitude. 
 
One of the indicators that police use to identify trafficking 
victims is false travel or identification documents. This 
points to the fact that false documentation is a common 
aspect of trafficked persons in Denmark. Denmark's membership 
in the Schengen Agreement facilitates the movement of victims 
among Schengen member states, as there are no immigration 
checks when going from one country to another. 
 
As suggested by the 2009 status report of the NAP, massage 
clinics and bars are often involved in operating as front 
organizations for prostitution and potentially for 
trafficking. One example is the Thai massage parlor which was 
trafficking young women from Thailand for use as prostitutes. 
 
In a report released in early 2010, increasing evidence is 
seen to reveal the use of "au-pair" organizations as front 
companies for human trafficking. 
 
¶3. (SBU) SETTING THE SCENE FOR THE DANISH GOVERNMENT'S 
ANTI-TIP EFFORTS: 
 
-- A. Yes. In 2002, Section 262 was added to the Danish 
Criminal Code, criminalizing Human Trafficking.  In 2007, the 
Danish Government established a National Action Plan to 
combat trafficking in persons and also established The Danish 
Anti-Trafficking Center under the National Board of Social 
Services to coordinate the efforts of government entities and 
non-government organizations to address the "social" aspect 
of combating trafficking in persons. 
 
-- B. The following government agencies and NGOs are working 
 
COPENHAGEN 00000088  005 OF 020 
 
 
together through the Danish Anti-Trafficking Center to combat 
Human Trafficking: 
 
For Coordination of Social Assistance Efforts: 
- The Danish Anti-Trafficking Center (CMM) ) Leads the 
coordinated effort (A Division of the National Board of 
Social Services) 
- The Nest International ) Provides international assistance 
to trafficking victims (Under contract with CMM) 
- Pro Vest ) Anonymous Advisory and Health Service for 
Foreign Women (Under Contract with CMM) 
- The Prostitution Competence Center ) A division of the 
National Board of Social Services. 
- The Odense Crisis Center for Battered Women ) Under 
contract with CMM 
- The Danish National Organization of Shelters for Battered 
Women and their 
Children ) Under contract with CMM 
- The Danish Red Cross 
- Hope Now - Provides counseling and support services to West 
African trafficking victims and public awareness 
- Humanity in Action - Provides education and public 
awareness of human trafficking issues 
- Denmark International School - Provides education on human 
trafficking issues, including collaboration with U.S. Embassy 
Copenhagen through course instruction 
 
Data Collection and Law Enforcement: 
- The Danish National Police ) Lead Organization 
- The National Police Immigration Section 
- The National Research Center (NEC) ) A Division of 
theNational Police 
- The Ministry of Justice 
- The Danish Director of Public Prosecutions 
- The Danish Immigration Service 
- The Danish Ministry for Gender Equality 
 
International Efforts: 
- The Danish Ministry of Foreign Affairs 
- The Danish Immigration Service 
- Humanity in Action - ties in their international network on 
social issues, including combating TIP 
 
-- C. The largest criticism of the government's plan to 
combat human trafficking is its inability to get at the 
traffickers themselves. More often than not, the victims of 
trafficking are sent back to their country of origin. As a 
result, they do not cooperate with local police because they 
fear that their local authorities cannot protect them from 
reprisal once they are returned home.  So, in spite of the 
increased attention and action on human trafficking, the 
issue continues to be a problem in Denmark. Another 
significant problem is the lack of training for police in the 
harsh realities of human trafficking and in identifying 
victims. 
 
Corruption is not considered a significant problem in 
Denmark. Transparency international rates Denmark as the 2nd 
least corrupt country in the world according to its 2009 
Corruption Perceptions Index. 
 
The government has adequate resources to aid victims of 
trafficking, within the limits of the NAP, and where it does 
not, it engages the local NGOs to provide contracted 
assistance. 
 
-- D. The government produces an annual status report on the 
previous year's developments related to the NAP. In 2009 it 
was published in June. The National Police also produce an 
annual report on the status of the previous year's efforts 
against human traffickers and pimps. The data for 2008 was 
published in March. The Parliament also has periodic combined 
committee hearings on the subject of human trafficking to 
discuss the NAP and other efforts. The most recent hearing 
 
COPENHAGEN 00000088  006 OF 020 
 
 
was in October. 
 
-- E. In 1968 Denmark established a computerized central 
population registry (CPR), which included existing data from 
population registers and now serves as a nationwide registry. 
 Each citizen is identified by a unique personal number, 
which also keeps track of his/her data in the CPR. The CPR 
contains all data relating to personal identification for 
each registered person:  name, address, birth registration, 
citizenship, national church relationship, parentage, marital 
status, and status information.  Any information recorded in 
the CPR's protected database concerning occupation, local 
conditions, population register notes, subscription ratio, 
suffrage, and residence status is dependent on individual 
circumstances or wishes.  A CPR is issued either at birth or 
when one comes to live in Denmark. This information is the 
basis for counting the population and discerning the ethnic 
make-up of the society. 
 
-- F. Between Denmark's Statistical Database and the National 
Police Statistical Database, law enforcement authorities have 
the capability to assess their efforts numerically. There are 
not many gaps in their ability to collect information; 
however, unregistered persons become difficult to account 
for, although without a CPR number it is difficult to conduct 
any kind of domestic business in Denmark.  A CPR is necessary 
to do simple things like open a bank account, obtain a cell 
phone, or register with the Post Office. While it is 
difficult, it is by no means impossible to live without a 
CPR, and it is suspected that there are plenty of illegal 
immigrants living within immigrant communities. 
 
¶4. (SBU) INVESTIGATION AND PROSECUTION OF TRAFFICKERS: 
 
-- A. Existing Laws against TIP: 
 
Section 262(a) of the Danish Penal Code specifically 
prohibits trafficking in persons for sexual and non-sexual 
purposes.  Section 262(a) became effective on June 8, 2002. 
It is formulated in order to implement the relevant UN 
Protocol and the EU Framework.  The law covers both internal 
and external trafficking.  The anti-trafficking law includes 
a prohibition on slavery and exploitation of prostitution. 
No changes have been made to this law since the previous 
reporting period. 
 
Section 262(a) reads as follows: 
 
262(a): A person who by an act of recruiting, transporting, 
transferring, housing, or subsequently receiving another 
person shall be guilty of trafficking in humans and shall be 
liable to a term of imprisonment of no more than eight years 
if the following is used or has been used: 
(1) Unlawful coercion, under Section 260, 
(2) Illegal restraint, under Section 261, 
(3) Threats, under Section 266, 
(4) Unlawful inducement, encouragement or exploitation of a 
mistake or 
(5) Another manner of taking unfair advantage in order to 
exploit the person in question for sexual immorality, forced 
labor, slavery or slavery-like conditions or removal of 
organs. 
 
Subsection 2. In the same manner a person shall be subject to 
punishment that exploits the person in question for sexual 
immorality, forced labor, slavery or slavery-like conditions 
or removal of organs, 
 
(1) Recruits, transports, transfers, houses or subsequently 
receives a person under the age of 18, or 
(2) Provides payment or other consideration to obtain the 
consent to the exploitation from a person who has custody of 
the injured party and the person who receives such payment or 
other consideration. 
 
COPENHAGEN 00000088  007 OF 020 
 
 
 
"Sexual immorality" shall be interpreted in accordance with 
Section 228, subsection 1 of the Danish Penal Code concerning 
pimping. 
 
"Slavery" exists when a person, according to a specific 
assessment, is deprived of his or her liberty and is forced 
to carry out hard work. 
 
"Forced labor" shall be interpreted in accordance with 
applicable international instruments, including the ILO 
Forced Labor Conventions of 1930 and 1956. 
 
The second law used to prosecute TIP cases is Section 228 of 
the Danish Penal Code, which prohibits procurement (pimping). 
 Section 228 is used in suspected trafficking cases when 
insufficient evidence exists to prosecute under the 
anti-trafficking law. 
 
Section 228 (in pertinent part) reads as follows: 
 
228: Any person who- 
(1) induces another to seek a profit by sexual immorality 
with others; or 
(2) for the purpose of gain, induces another to indulge in 
sexual immorality with others or prevents another who engages 
in sexual immorality as a profession from giving it up; or 
(3) keeps a brothel; 
 
-shall be guilty of procuring and liable to imprisonment for 
any term not exceeding four years... 
 
A third law, Section 229 of the Danish Penal Code, is also 
used to prosecute those who act as intermediaries in human 
trafficking. This section reads as follows: 
 
229: Anyone who promotes sexual immorality for profit, or 
repeatedly acts as an intermediary, or exploits another's 
business for sexual immorality, can be punished by 
imprisonment for up to 3 years or, under extenuating 
circumstances, with a fine. 
 
Subsection 2 - Those who rent out rooms in a hotel or inn for 
use in commercial fornication, can be punished by 
imprisonment for up to 1 year or, under extenuating 
circumstances, with a fine. 
 
Police investigate financial crimes associated with organized 
crime activities.  For instance, tax evasion and money 
laundering convictions are often used to prosecute organized 
crime networks that may be engaged in trafficking among their 
criminal activities.  While prosecution of traffickers under 
these statutes can occur, prosecution under straight money 
laundering and other charges can result in trafficking 
victims never being identified as such, leaving them 
ineligible for the forms of relief that they would be 
eligible for if they were so identified. 
 
Denmark has a sophisticated legal system.  Civil remedies are 
available to victims of torts and crimes, including 
trafficking.  In practice, trafficking victims do not pursue 
civil remedies against traffickers.  Danish authorities are 
unaware of any instance of trafficking victims using 
non-criminal statutes that allow for civil penalties. 
Illegal contracts and illegal debts are unenforceable under 
Danish law.  Victims' compensation funds are available in 
Denmark and all victims of a crime in Denmark (including 
foreigners) are eligible to receive funds.  The law 
specifically provides additional compensation for victims of 
sexual offenses and crimes involving deprivation of liberty. 
The victims' compensation law is codified as State 
Compensation to Victims of Crime (Consolidation) Act No. 688 
of 28 June 2004. 
 
 
COPENHAGEN 00000088  008 OF 020 
 
 
Yes, Sections 228 and 229 are being used in trafficking cases. 
 
-- B. Punishment of Sex Trafficking Offenses: 
 
Trafficking in persons for sexual exploitation or forced 
labor is punishable by a jail sentence of up to eight years. 
Danish law also penalizes the deprivation of liberty under 
Section 261 of the Danish Penal Code with up to 12 years 
imprisonment if aggravated circumstances are identified. 
Although these are maximum sentences, police assigned to 
trafficking cases advise that a typical sentence would 
generally be not more than two years and a sentence of three 
or four years would be likely for a particularly heinous 
violator. During the reporting period, every convicted sex 
trafficker received a prison sentence. 
 
-- C. Punishment of Labor Trafficking Offenses: 
 
Section 262 of the Danish Penal Code, trafficking in persons 
for forced labor, is subject to the same punishment as 
trafficking for sexual exploitation. All known cases of 
trafficking in Denmark involve trafficking for sexual 
exploitation. 
 
The act of depriving someone of freedom or compelling them 
into service, is unlawful under Sections 260 and 261 of the 
Danish Penal Code and is also addressed specifically in 
Section 262a, which covers Human Trafficking. 
 
-- D. Rape or Forcible Sexual Assault is illegal under 
Section 216 of the Danish Penal Code. This law carries with 
it a punishment of up to 8 years, and may be increased to 12 
years under aggravated circumstances. 
 
-- E. Law Enforcement Statistics: 
 
Yes, the government has taken legal action against human 
trafficking offenders during the current reporting period. 
Statistics for 2009 have not yet been released by the 
national police.  Most of the reports that post is aware of 
for 2009 come from the press.  The following are examples of 
events from 2009: 
 
-In February, five people were arrested in Aalborg for the 
trafficking of 5 African women and two Romanian women. 
 
-In March, the Supreme Court delivered its first sentence 
related to human trafficking when it sentenced a Croatian man 
to three and a half years in prison and deportation from 
Denmark for the 2006 exploitation of four Czech women. That 
month also saw the previously mentioned arrest of the former 
Hell's Angels man for his involvement in trafficking 20 women 
from Venezuela. 
 
-In April, an Israeli man and a woman of Czech origin were 
sentenced to two and a half years of prison for the 
trafficking of two Slovak women, but were cleared on charges 
of pimping. 
 
-In June, a Palestinian man and two others were arrested in 
relation to the trafficking (262a) of a 40 year old Ugandan 
woman. 
 
-Also in June, the status report on the National Action Plan 
was released. For the first quarter of 2009, it stated that 
police received and were investigating 19 reports of pimping 
(Section 228) and 6 reports of trafficking (Section 262a). 
In the same time period, police raised 24 charges for pimping 
(Section 228) and 12 charges of trafficking (Section 262a). 
There were also 14 legal decisions (on both Section 228 and 
Section 262a) resulting in 4 sentences. 
 
-In July, a 50 year old man was charged with forcing a 
Romanian woman into prostitution. 
 
COPENHAGEN 00000088  009 OF 020 
 
 
 
-In September, Police took into custody one man and two women 
on the suspicion of trafficking a series of Romanian women to 
Denmark. 
 
-In November, a Bulgarian man was charged with the 
trafficking of several Romanian women. 
 
Data released by the National Police for 2008 is as follows: 
(Category/Section-228/Section-229/Section-262 ) 
Reports/24/3/11 
Charges/51/3/30 
Legal Decisions/28/1/15 
Sentences/12/1    /7 
 
Unfortunately, these cases can take longer than one year to 
process and therefore, the number of sentences may not 
reflect the results of the number of cases pursued over one 
year. A good example is the Supreme Court case which 
delivered a sentence in 2009 for actions in 2006. Therefore, 
it is important to wait until the report for 2009 is released 
to get a more accurate picture of the trend in cases and 
decisions. 
 
-- F. The Danish Anti-Trafficking Center (CMM) has planned 
and implemented upgraded courses for professional social 
workers in one or two day seminars. This training is 
conducted in collaboration among the CMM, the National Police 
Immigration Section, the Public Prosecutor's Office, and the 
National Center for Investigations (NEC).  A series of 
related seminars was held in November 2008 including one for 
Danish diplomats and another for Red Cross personnel. In the 
first quarter of 2009, the CMM spent three days at the Police 
Training School training personnel on these subjects. 
However, it is unknown how many officers were trained in 
these sessions.  The U.S. Immigration and Customs Enforcement 
office in Copenhagen assesses that the number is relatively 
small. 
 
An International Organization for Migration representative 
visited to explain the organization's structure and work 
processes to contact personnel for the CMM, to help improve 
their own efforts. The US also sent training personnel to 
train CMM staff on US procedures and offered advice on how to 
legally deal with the problem of Human Trafficking. 
 
In 2007, the National Police instituted a standard training 
course for all new personnel on how to identify and combat 
human trafficking and pimping. The National Police and the 
Public Prosecutor's Office also have collaborated to provide 
increased training to case-workers and contact personnel 
working in police districts. The National Police has also 
been engaged with teaching at Danish Embassies around the 
world to educate Ministry of Foreign Affairs personnel on 
human trafficking. 
 
-- G. The Danish government cooperates with other governments 
in the investigation and prosecution of crimes, both on a 
bilateral and multi-lateral basis.  On a bilateral basis, 
Danish police regularly conduct joint investigations with 
their Swedish and Norwegian counterparts. Cooperation on a 
multilateral basis also occurs through numerous international 
organizations.  Denmark is an active member of Interpol and 
Europol.  Danish police also participate in a Nordic police 
and customs cooperation network and chair a working group 
focusing on criminal action related to drugs, prostitution 
and money laundering committed by West Africans in, between 
and through the Nordic countries.  Additionally, Denmark is 
an active member of the Task Force on Organized Crime in the 
Baltic Sea Region.  Danish police officers have also been 
assigned to posts in Baltic countries to assist host 
governments with organized crime investigations.  Denmark 
cooperates with legal attaches from several countries, 
including the United States.  International cooperation 
 
COPENHAGEN 00000088  010 OF 020 
 
 
focuses primarily on combating organized crime, narcotics 
smuggling and terrorism. U.S. Immigration and Customs 
Enforcement (ICE) works with the Danish Police, the Danish 
Anti-Trafficking Center and NGO's in Denmark on trafficking 
issues. This collaboration involves primarily best practices 
and information exchanges.  In May 2009, ICE hosted an 
Anti-TIP/Forced Child Labor/Child Sex Tourism conference with 
partners throughout Europe, the Middle East and Africa and 
included the Danish Police. 
 
In 2009, the government has continued its efforts with 
European Network for HIV/STI Prevention and Health Promotion 
among Migrant Sex Workers (TAMPEP), especially with Sweden 
and Norway. It has also been working on an ad hoc basis with 
other European Countries to ensure that victims of 
trafficking are helped by competent organizations once they 
return to their home country.  The IOM has been working under 
contract since 2008 with the Immigration Service to provide 
assistance for victims of trafficking who returned to their 
home country. The Ministry of Foreign Affairs (MFA) has also 
continued efforts related to its 2008-2012 program aimed at 
combating human trafficking coming from Ukraine, Moldova, and 
Belarus through cooperation with local entities. 
 
Although international investigations of organized crime 
networks may involve groups that engage in trafficking in 
Denmark, Danish authorities do not have data regarding any 
specific international trafficking-related cases. 
 
-- H. Denmark extradites persons to countries outside of the 
EU, provided that there would be no human rights abuses on 
the part of the receiving country.  Danish nationals are 
subject to extradition for crimes committed overseas. 
Effective in 2007, Denmark may now prosecute Danish nationals 
under Danish law for offenses committed overseas, even if the 
offense does not constitute a crime in the foreign country. 
 
To date, there have been no TIP-related extraditions or 
requests for extraditions either to or from Denmark. However, 
Danish authorities affirm that Denmark would extradite a 
person charged with trafficking in another country, given 
adequate human rights protections. 
 
There are no known pending or concluded cases involving 
traffickers being extradited to the USA.  ICE regularly 
engages with Danish counterparts in this area and has not 
encountered any instances of human trafficking between 
Denmark and the United States over the past several years. 
 
-- I. There is no evidence of government involvement in or 
tolerance of trafficking on any level in Denmark. 
 
-- J.There is no evidence of any government officials being 
involved in human trafficking in Denmark. 
 
-- K. There have been no reported cases of Danish 
peacekeepers, involvement in Human Trafficking. However, 
Danish authorities state that any such accusation would be 
investigated and, if warranted, the accused would be 
prosecuted.  Denmark is an active participant in 
international peacekeeping missions in Kosovo, Afghanistan 
and other countries.  In compliance with NATO standards, 
Denmark adopted a zero-tolerance policy in relation to its 
forces and personnel overseas.  The Ministry of Defense 
provides general human rights training to all soldiers prior 
to and during overseas deployments.  As part of this human 
rights training, the Ministry describes its zero-tolerance 
policy regarding human trafficking.  Danish soldiers 
participating in NATO operations also receive instruction on 
trafficking through NATO as part of their training. 
 
-- L. Denmark is not normally identified as a destination 
country for sex tourism. The legal age of consent in Denmark 
is 15 (18 for a person offering sexual services for 
 
COPENHAGEN 00000088  011 OF 020 
 
 
compensation).  ICE has worked with Danish authorities to 
investigate allegations of child sex tourism to Denmark, 
however these cases have not led to any U.S. prosecutions as 
the age differences between the participants has been 
minimal, the sexual activities were consensual and no 
violations of Danish law occurred. 
 
Effective in 2007, Denmark may now prosecute Danish nationals 
under Danish law for offenses committed overseas, even if the 
offense does not constitute a crime in the foreign country. 
According to Secion 222 of the Danish Penal Code, it is 
illegal in Denmark to have sex with a child under the age of 
¶15. 
 
According to the campaign &Stop Sex Tourism,8 sponsored by 
the Danish National Police and Save the Children, no official 
statistics exist regarding the number of Danes who are 
arrested and brought to court for sex-tourism. 
 
An investigation published in February by the Danish branch 
of Save the Children was able to document, from various 
official and unofficial sources, that a small number of 
Danish citizens were involved in the sexual exploitation of 
children in Thailand, Cambodia and Burma. The secrecy 
involved in this form of criminal activity has made it 
difficult to uncover the true number of Danish citizens 
involved in this form of sexual abuse and exploitation.  It 
is also difficult to obtain official statistics which reveal 
how many Danes have been arrested, charged and convicted of 
committing sexual offences against children abroad.  Only a 
few cases have been documented with law enforcement agencies 
in the three countries involved in this investigation. The 
vast majority of travelling sex offenders are probably never 
identified.  According to a senior official at the NGO, FACE 
(Fight Against Child Exploitation), two Danish citizens had 
been registered.  One Danish man was charged for sexual 
intercourse with a girl aged 14 in a hotel room in Pattaya in 
¶1997.  He was sentenced to five years, imprisonment. Another 
Dane managed to escape Thailand after allegedly abusing two 
13 year old boys in two villages in Thailand. 
 
¶5. (SBU) PROTECTION AND ASSISTANCE TO VICTIMS: 
 
-- A.  Denmark offers victims police transportation to 
shelters and victims, assistance centers in undisclosed 
locations.  During the investigative process and trial, the 
names and locations of the victims are kept confidential to 
provide increased psychological and physical security. 
Victims' advocates report that Danish authorities value the 
privacy and safety of trafficking victims.  Danish shelters 
are provided by two organizations funded through government 
contract. The Danish witness protection program allows a 
cooperating witness to enroll and receive protection in any 
case involving the threat of violence or retribution.  In 
2008, 46 women sought shelter at the two crisis centers 
funded through contract by the Danish Government. Denmark 
works with NGOs and social services through the IOM in the 
victims' country of origin to ensure a safe and productive 
repatriation. 
 
-- B.  The Danish Government has a contract with The Nest 
International and The Danish National Organization of 
Shelters for Battered Women and their 
Children, to assist victims of trafficking at crisis centers 
located in Odense, Aarhus, and one undisclosed location. A 
meeting center specifically for foreign women involved in 
prostitution was established in Copenhagen in June 2008, and 
was utilized 134 times between its opening and the end of 
that year.  Health services are offered at all the crisis 
centers and at the meeting center. These health facilities 
are run by NGOs under government contract, such as The Nest 
International, Pro Vest, The Prostitution Competence Center, 
and the Anti-Trafficking Center. 
 
 
COPENHAGEN 00000088  012 OF 020 
 
 
Foreign victims have the same access to these facilities as 
domestic victims. 
 
In Denmark, children of trafficking victims receive 
additional social services and are placed in specially 
designated shelters or foster care as appropriate. 
Unaccompanied minors receive a personal representative to 
assist them with their asylum cases or repatriation to their 
country of origin. Unaccompanied minors, including children 
who are trafficked, receive health care provision through the 
Danish Red Cross, which runs Center Gribskov. 
 
The crisis centers are mainly dedicated to specialized care 
for adults. 
 
The crisis centers are aimed primarily at assisting women. 
The only known male victim of trafficking in Denmark found 
assistance with a private support organization called &Safe 
and Alive.8 According to the website of &Safe and Alive,8 
the Ministry of Justice and the Community of Copenhagen are 
among its sponsors. 
 
Yes, the NGOs that work under contract with the government 
have many more crisis centers, but the ones used in 
cooperation with the Anti-Trafficking Center are dedicated to 
victims of trafficking. 
 
As previously mentioned, the facilities are run by NGOs whose 
activities are funded under Government contract. 
 
The National Action Plan directed approximately USD 14 
million (70 Million DKK) over the four years (2007-2010) of 
the plan towards activities aimed at combating human 
trafficking and helping its victims. 
 
-- C.  The Government offers medical, dental, legal and 
psychological services to victims of trafficking directly and 
indirectly via contract with NGOs. Legal support includes: 
advice on legal issues and rights, provision of a lawyer in 
the event of a trial, and support during police actions. 
However, no support is provided to foreign victims of 
trafficking in Denmark beyond the reflection period. Any 
additional support is done in the home country. 
 
Through the National Action Plan,s budget, the Government 
supplies funding via contract to several NGOs for support 
with victim assistance, information gathering, and 
contributions to the overall national strategy.  Examples of 
these NGOs are The Nest International, The Red Cross, and The 
Danish National Organization of Shelters for Battered Women 
and their Children. These NGOs work directly with an 
independent governmental organization, The Danish 
Anti-Trafficking Center, to coordinate government and 
non-government efforts. The Ministry of Foreign Affairs (MFA) 
and the Immigration Ministry (Ministry of Refugee, 
Immigration and Integration Affairs) also work via contract 
with the International Organization for Migration to support 
victims after they return to their home countries.  The MFA 
also works with and helps fund locally present international 
and domestic NGOs in Moldova, Ukraine, and Belarus via Danish 
Programme Against Human Trafficking (DANATIP or DPAHT) under 
the umbrella of The Neighborhood Programme to combat human 
trafficking before it reaches Denmark. 
 
Funding for all domestic programs comes directly from the 
Government itself. 
 
The government has allocated USD 14 Million to fund the 
National Action Plan against Human Trafficking over the four 
years 2007-2010. Through The Neighborhood Programme, 
DANATIP/DPAHT,s efforts in Moldova, Ukraine, and Belarus 
were given a USD 6 Million budget over three years from 
2009-2011. 
 
 
COPENHAGEN 00000088  013 OF 020 
 
 
-- D. Like other aliens staying in Denmark illegally, aliens 
who are victims of human trafficking are subject to the 
Danish Immigration Service,s maintenance obligation.  Under 
the Danish Aliens Act, the Danish Immigration Service shall 
be responsible for providing accommodation, healthcare 
treatment and financial support and*in the event the person 
in question is not granted a residence permit* in 
collaboration with the relevant organizations and government 
agencies, to the greatest extent possible, ensure that all 
victims of human trafficking are offered a well-planned and 
properly-managed reception in their country of origin. 
 
This prepared return covers both the activities in Denmark 
(in terms of offering psychological, legal and social aid to 
learning and health promotion) and treatment activities in 
the home country (in the form of receipt by an organization 
there, whenever possible). The intention behind the scheme 
aims to help strengthen individuals and thereby prevent them 
from being victimized again when they return to their home 
country. 
 
When an alien has been determined to be a victim of 
trafficking by the Immigration Service, his or her departure 
date can be postponed for up to 100 days.  Having this 
&reflection period8 in Denmark - if there is a need for it 
) allows the victim to receive offers from the government 
for medical, psychological, and dental treatment as well as 
legal and social aid, to help the victim deal with the 
experiences to which they had been exposed. 
 
Normally, cases involving asylum seekers and foreigners 
without legal residence are overseen by the Immigration 
Service. Foreigners who are determined to be victims of 
trafficking, and are also staying illegally in Denmark, may 
stay in an asylum center, however, if they prefer to be 
accommodated in one of the crisis shelters, the Immigration 
Service can approve this. 
 
If a victim of trafficking is also an illegal alien and has a 
need of special protection, this is taken into account. In 
cases where the Immigration Service has approved 
accommodation of a resident at a shelter, the victim stays 
there and is paid an allowance every 14 days by mail from the 
related reference center. The Crisis Center staff ensures 
that the victim is offered all available resources to include 
activities, education, health care, psychological or legal 
help. 
 
The prepared return also means that a victim of trafficking 
will be received by an organization in his/her homeland. 
Reception implies, in particular, the offer of accommodation 
for the victim,s needs, the possibility of training / 
education and psychosocial counseling.  The Immigration 
Service on 26 March 2008 signed a contract with the 
International Organization for Migration (IOM) to assist with 
the portion of the prepared return that will take place at 
home. The Immigration Service has agreed with the CMM, that 
the CMM should conduct "prepared return interviews" with the 
victimized foreigners. The information from the interview 
will then be forwarded to IOM in order to assist in 
initiating the return journey. 
 
-- E. The government allows victims to stay for up to 100 
days in a crisis center. In 2008, the average stay was 
typically between 20 and 25 days, depending on the Crisis 
Center. In addition to the medical, psychological, and legal 
assistance, mentioned before, The Nest International 
(assisted by government funding) provides long term help, and 
while victims are in the crisis center, they can take short 
courses to help them move towards a new job.  Legal residents 
of the EU are also offered social assistance. There is also a 
mechanism by which victims of trafficking can apply for 
asylum status. In 2008, only 1 of 8 victims of trafficking 
identified as illegal residents who sought asylum, was given 
 
COPENHAGEN 00000088  014 OF 020 
 
 
permission to stay in Denmark. 
 
-- F. If the Police encounter a situation where a person who 
has been arrested or detained exhibits signs or is suspected 
of being a victim of trafficking, they may inform the CMM 
which will send a representative to sit in on police 
questioning. They will then inform the detainee of her/his 
rights and options as a victim of trafficking. The 
Immigration Service will make a determination of status as a 
victim of trafficking, and if the person is determined to be 
a victim, s/he is referred to one of the state-sponsored NGO 
shelters for a reflection period and assistance. 
Unfortunately, trafficking victims will often deny that they 
are victims and it can take months for them to develop enough 
trust in local authorities to admit they were trafficked. 
However, by this time, it is too late for authorities to help. 
 
-- G. In November, during a speech to the Danish branch of 
the European Movement, a representative of the Danish 
Anti-Trafficking center said that this year, there were 
approximately 825 trafficked women in Denmark.  She did not 
specify whether or not they were involved in the sex trade or 
forced labor, but did say that around 25% of them were 
brought to Denmark under the false promise of legitimate 
jobs. 
 
Of these, how many victims were referred to care facilities 
for assistance by law enforcement authorities during the 
reporting period? 
 
In the first quarter of 2009, the CMM was called in to assist 
in 19 police actions where trafficking victims was suspected. 
The exact number of victims was not reported. 
 
In the first quarter of 2009, the crisis centers experienced 
10 new enrollments. Social Service personnel are actively 
engaged in meeting with and interviewing women working in 
massage clinics and on the street who are suspected of being 
involved in trafficking. In the first quarter of 2009, social 
service personnel met with over 50 women of foreign origin in 
massage clinics and on the street, who were suspected of 
being involved in trafficking. 
 
Because government and non-government assistance is 
intertwined, it is not possible to separate the efforts. 
Published numbers show that in the first quarter of 2009, 10 
women were assisted by crisis centers and 50 women were 
interviewed by social services.  More up-to-date figures are 
not yet available. 
 
-- H. The Danish government has a system of identifying 
victims of trafficking among high-risk persons.  The 
Government engages in an outreach program through three 
organizations operating in four main target locations around 
the country, and these teams actively investigate massage 
parlors, interview prostitutes on the street, in escort 
service environments, as well as in the asylum centers, 
prisons, and safe-houses in an attempt to locate and identify 
trafficking victims. A hotline for reporting human 
trafficking and for information has also been established. 
 
In 2007, Danish police implemented a standardized approach to 
identifying and screening victims of trafficking.  A Danish 
police anthropologist accompanies Danish police in raids of 
unlicensed brothels and inspections of venues used by 
prostitutes to screen them for cases of trafficking. 
Additionally, Danish police allow a member of a social 
organization to participate in the screening and questioning 
of prostitutes. 
 
The Danish government conducts regular inspections of 
suspected and commonly known venues used by prostitutes.  The 
Danish government also conducts raids of businesses/venues 
suspected of illegal activities.  In 2008, the Police 
 
COPENHAGEN 00000088  015 OF 020 
 
 
conducted 778 visits in 462 localities.  From these visits, 
the Police registered a total of 507 businesses/venues 
serving the sex industry in Denmark. As part of the 
inspections or raids, Danish social workers screen for 
trafficking victims among the prostitutes.  All foreign women 
in the brothels are offered medical and psychological care 
through social services.  In addition, Danish social 
organizations provide voluntary screening and counseling to 
prostitutes. 
 
-- I. The consensus opinion among Danish victim advocates is 
that Danish police respect the rights of victims.  Suspected 
victims of trafficking are detained by police, but only in 
order to remove them from the potentially exploitative 
situation.  Danish police work with social workers to 
determine the needs of the victim and transfer victims from 
police custody to the government-sponsored organizations 
responsible for victim assistance in the region.  Because the 
victims' assistance organizations are involved initially, the 
primary goal is to provide assistance to victims as soon as 
possible after the detainment.  With counselors present 
during the police questioning, victims begin to receive 
assistance prior to their transfer to a victims' assistance 
center.  Victims of trafficking in women are informed about 
their rights and their options.   Victims who are nationals 
of the European Union have certain additional rights, such as 
the right to work and travel among EU countries. 
 
NGOs claim that if a victim has committed a violation of 
Danish law, s/he will likely be prosecuted, as Denmark does 
not have prosecutorial discretion.  Thus if a foreign 
prostitute does not have a work permit s/he may be arrested 
for working illegally and/or not paying taxes on earned 
income and, because the charge is not prostitution, may never 
be counted or interviewed as a potential trafficking victim. 
In addition, foreign prostitutes who traveled to Denmark 
using false documents are less likely to avoid repatriation 
to their home countries.  Foreign prostitutes who may be 
eligible to stay in Denmark often face barriers to entry into 
the legal labor market, as they did not have permission to 
work in Denmark and did not pay taxes on their earnings. 
 
-- J. Danish authorities encourage victims to assist in the 
investigation and prosecution of trafficking.  However, 
Danish authorities report that victims are often unwilling to 
cooperate.  NGOs believe this may be due to fear of the 
traffickers, economic uncertainty, stigmatization in their 
home country or with family, inability to see themselves as 
victims, fear of Danish authorities, and/or a sense of 
futility of cooperation since the end result for the victim 
is the same: deportation.  Victims who serve as witnesses 
against an accused trafficker are permitted to remain in the 
trafficking victims' shelter for the duration of their 
involvement in the case, even if this exceeds the 100-day 
reflection period.  Victims are also permitted to leave the 
country pending trial if they prefer.  Women who have 
accepted the offer of an assisted voluntary repatriation may 
stay in Denmark up to 100 days and will receive help from 
local NGOs and the International Organization for Migration. 
Cooperation with the police is not a condition of the 
extended reflection period.  In many cases, women disappeared 
before being sent home at the end of the 30 day or 100 day 
reflection period. Between August 2007 and April 2009, 41 out 
of 49 women, who were confirmed by the Immigration service to 
be both victims of trafficking and illegal residents, left 
Denmark without engaging authorities. This may have been a 
result of personal initiative or it possible that their 
trafficking organizations may have played a role in 
retrafficking them. The Danish government also provides funds 
to compensate victims of crimes.  Danish authorities stress 
that victims who assist in the investigation and prosecution 
of their traffickers are often better able to meet the 
requirements of a successful asylum case (i.e., to show that 
they were victims of violence). However, the results of this 
 
COPENHAGEN 00000088  016 OF 020 
 
 
claim are unclear in practice. 
 
The police have not published numbers regarding how many 
victims of trafficking have cooperated with police. In March 
2009, they announced an offer of full anonymity for victims 
of trafficking if they can provide information on their pimps 
and traffickers. The police acknowledge that the largest 
problems preventing the victims, cooperation with police are 
the fear of reprisal from their traffickers and the knowledge 
that they are going back to their home country. 
 
Victims may file civil suits or seek legal action against 
traffickers.  However, Danish authorities cannot identify a 
single instance of a trafficking victim seeking legal action 
against a trafficker.  The victim's reluctance to cooperate 
with authorities or confront a former trafficker is the most 
significant impediment to the victim's access to such legal 
redress. 
 
There are no known instances in which someone prevented a 
victim of trafficking from access to legal redress. 
 
The Government places no restraints on victims of trafficking 
in terms of their mobility. If they are legal residents of 
the EU, they can pursue other employment, but illegal 
residents who do not obtain asylum status are returned to 
their native countries or third countries where they have 
residency. 
 
A victim has the option to bring civil suit against their 
traffickers, but this requires their cooperation with police 
for an investigation, and there are no reported examples of 
this kind of action.  The lack of clarity on who has to pay 
for the lawsuit may also be affecting victims, decisions on 
whether or not to pursue restitution. 
 
-- K. The Danish government provides specialized training in 
both identifying trafficking victims and providing assistance 
to trafficking victims.  The National Anti-Trafficking Center 
provides training to members of the TIP Action Plan working 
group.  Additionally, the Danish national police provide TIP 
training to all police precincts.  New police recruits 
receive a special course on trafficking as a component of 
their basic training.  However, there have been questions 
about the effectiveness of this training. The National 
Anti-Trafficking Center works with the Ministry of Foreign 
Affairs and Danish embassies to develop and refine networks 
with NGOs that serve trafficked victims in the countries of 
origin.  For instance, Denmark has well-established links 
with its counterparts in the Baltic countries to assist in 
the repatriation of trafficking victims.  The Danish 
Immigration Service works with organizations in Denmark and 
abroad, such as the International Organization for Migration 
(IOM), to ensure that trafficking victims can safely travel 
back to their country of origin and receive social services 
upon their arrival. The Ministry of Foreign Affairs (MFA) 
also meets with representatives of source, transit and 
destination countries in Denmark. 
 
The National Police has also been involved in training MFA 
employees in Embassies and Consulates around the world on the 
subject of human trafficking. 
 
Denmark is not a source country for trafficking; there is no 
known instance of a Danish embassy assisting a Danish 
trafficking victim abroad. 
 
-- L. The services available to foreign victims of 
trafficking are also available to Danish citizens, although 
there are no known cases of Danes being trafficked and 
victimized abroad. 
 
 
-- M. In addition to the Danish government-sponsored 
 
COPENHAGEN 00000088  017 OF 020 
 
 
organizations (mentioned in section 26B), the Danish Red 
Cross and Save the Children Denmark both work in cooperation 
with the Danish government to combat trafficking in persons, 
especially with children.  Tjekpunkt, a youth outreach 
program, also works with at-risk minors.  Safe and Alive, a 
independent NGO, works with trafficking victims in the 
Copenhagen area, but is not associated with the National 
Anti-Trafficking Center, although it does receive support 
from the Ministry of Justice. The government-sponsored 
organizations and NGOs work closely with the national 
umbrella organization of women's crisis centers and shelters 
in Denmark (LOKK) to provide safe-haven for trafficking 
victims.  The government-sponsored organizations cooperate 
with the Anti-trafficking Center and the Danish police.  All 
of the organizations are members of the National Action Plan 
working group.  Danish authorities work with the IOM on 
repatriation of victims.  The IOM, where possible, monitors 
the reintegration process, for up to three months for adults 
and up to six months in the case of children.  Denmark also 
supports anti-trafficking initiatives through the EU, OSCE 
and the UN.  In all, the Ministry of Foreign Affairs (MFA) 
donated approximately USD 10 million in 2008 to Save the 
Children projects worldwide.  The Nordic Council, whose 
Secretariat is in Copenhagen, and the Council for Baltic Sea 
States, are also involved in regional efforts to combat 
trafficking in Nordic and Baltic countries. 
 
¶6. (SBU) PREVENTION: 
 
-- A. Other than the efforts included in the National Action 
Plan, the main human trafficking awareness campaign of this 
reporting period was the annual EU sponsored Anti-Trafficking 
Day which was held on 18 October. The day was marked by 
events sponsored by The Nest International, The Danish 
Institute for Human Rights, The Women,s Council in Denmark, 
Christian,s Friends, and Hope Now. 
 
A conference was held in connection to this awareness day in 
Chisinau, Moldova, on October 21-22, 2008 by the 
International Center for Women Rights Protection and 
Promotion &La Strada8 (Moldova) in partnership with 
Ministry of Social Protection, Family and Child and IOM 
mission to Moldova, with support of the Ministry of Foreign 
Affairs of Denmark. 
 
ICE has been working with Danish authorities and NGO,s since 
2007 in an effort to stimulate public awareness of 
trafficking, including sharing strategies and offering 
resources.  Thus far, Danish authorities have been slow to to 
take advantage of the resources offered. 
 
The general objectives were to raise awareness of the issue 
and to raise money for the efforts to combat human 
trafficking.  The effectiveness of spreading information on 
human trafficking within Denmark was likely limited to those 
in attendance at the two major events. 
The objectives of the MFA supported conference were: 
 
- Analyze the process of National Referral Mechanism (NRM) 
development in Bulgaria, Belarus, Moldova, Romania and 
Ukraine, including the political context, methodology, 
elements of the NRM, the level of cooperation and ways to set 
up cooperation structures; 
- Identify the various NRM actors in each country and the new 
emerging NRM elements/components/functions that are being 
developed and the context leading to their  development; 
- Assess how the human rights approach to trafficking has 
been implemented and what are the existing gaps; 
- Explore best practices on cooperation between state 
structures, civil society and international organizations in 
the identification, assistance and protection of trafficked 
persons; 
- Strengthen participants, knowledge of the human rights 
based international anti-trafficking policy; 
 
COPENHAGEN 00000088  018 OF 020 
 
 
- Develop recommendations for the efficient implementation of 
NRM. 
 
Data on the number of people attending the events in Denmark 
are not available. The event in Moldova was attended by 120 
representatives, mainly from Bulgaria, Belarus, Moldova, and 
Ukraine. 
 
This recognition day was aimed more towards awareness, 
financial support, and political support for measures against 
human trafficking than it was towards demand for trafficking. 
 
-- B. Denmark monitors immigration and emigration patterns 
for evidence of trafficking and has identified the typical 
migration patterns for trafficking into Denmark. Danish 
police also conduct immigration interviews at airport points 
of entry in Denmark and are trained to screen for potential 
trafficking victims.  However, land borders into Denmark are 
open and migrants are not inspected upon arrival by land. The 
Immigration Service also conducts fact-finding missions to 
foreign countries such as Thailand and Ghana in 2008 and 
Nigeria in 2009 to understand the patterns of international 
trafficking into Denmark. 
 
-- C. In September 2007, Denmark opened the National 
Anti-Trafficking Center, which falls under the National Board 
of Social Services.  The National Anti-Trafficking Center 
serves as a single point of contact for TIP matters and 
coordinates the involvement of other relevant parties.  The 
government also maintains a reference group with 
representatives from NGOs, the National Police, the Ministry 
of Health, the Tax and Customs Administration, the 
Immigration Service, the Ministry of Foreign Affairs, the 
Ministry of Gender Equality, and the Office of the Public 
Prosecutor, who meet approximately twice a year to share 
knowledge and contacts. The trafficking unit of the Danish 
National Police also has a hotline for victims of human 
trafficking, which serves as a single point of contact for 
public inquiries and anonymous leads. 
 
-- D. Denmark has a national action plan to address 
trafficking, which runs from 2007 to 2010.  The National 
Board of Social Services developed the 2007-2010 action plan 
based on the conclusions of an independent audit of the 
2002-06 action plan.  The independent audit gathered 
information from government officials and NGO 
representatives.  NGOs also contributed information to the 
development of the new action plan. The Danish government has 
publicized the action plan and has translated the plan into 
English.  The Ministry of Social Welfare, the National 
Anti-Trafficking Center and the National Police all refer to 
the action plan to assess their progress. The progress of the 
plan is reported each year in a Status Report on the Progress 
of the National Action Plan. The National Police also provide 
an annual report on their efforts against the pimps and 
traffickers behind human trafficking. 
 
-- E: Required of all Posts: 
 
The National Board of Social Services launched a campaign in 
2009 to reduce the demand for commercial sex acts. The 
initiative, which is called &Who Pays the Price?8 has also 
developed discussion material for educational purposes in 
secondary schools and in the upper classes in primary 
schools. The material consists of a debate magazine and DVD 
dilemma stories about prostitution, produced by Dansk Radio, 
the national media network.  It is widely publicized that 
approximately 14% of Danish men are consumers in the 
commercial sex trade. Therefore, this information campaign is 
aimed at young males to dissuade them from engaging in 
commercial sex. It is important to note that prostitution is 
not illegal in Denmark. Persons cannot be punished for 
prostituting themselves unless another part of the law is 
violated.  However, prostitution is not a recognized 
 
COPENHAGEN 00000088  019 OF 020 
 
 
profession in Denmark. 
 
-- F. Required of all Posts: 
 
No new efforts were launched during the reporting period; 
however, Danish authorities continued to work within an 
initiative in cooperation with Scandinavian Airlines, the 
Association of Danish Travel Agents and Save the Children to 
combat child sex tourism.  As part of this initiative, 
Denmark has funded public service announcements to inform the 
Danish public that the Danish police can now investigate and 
prosecute a Danish national who commits a sexual offense 
against a child overseas due to the 2008 expansion of the 
Danish government,s ability to prosecute its citizens for 
crimes committed abroad.  Denmark also established a hotline 
for travelers to provide information about suspected child 
sex tourism overseas. The Ministry of Foreign Affairs directs 
Danish embassies to report Danes suspected of pedophilia or 
child sex tourism to Danish authorities. 
 
-- G. Denmark is an active participant in international 
peacekeeping missions in Kosovo, Afghanistan and other 
countries.  In compliance with NATO standards, Denmark 
adopted a zero-tolerance policy in relation to its forces and 
personnel overseas.  The Ministry of Defense provides general 
human rights training to all soldiers prior to and during 
overseas deployments.  As part of this human rights training, 
the Ministry describes its zero-tolerance policy regarding 
human trafficking.  Danish soldiers participating in NATO 
operations also receive instruction on trafficking through 
NATO as part of their training. 
 
¶7. (SBU) PARTNERSHIPS 
 
-- A.  The Danish government cooperates with other 
governments in the investigation and prosecution of crimes, 
both on a bilateral and multi-lateral basis.  On a bilateral 
basis, Danish police regularly conduct joint investigations 
with their Swedish and Norwegian counterparts.  Cooperation 
on a multilateral basis also occurs through numerous 
international organizations.  Denmark is an active member of 
Interpol and Europol.  Danish police also participate in a 
Nordic police and customs cooperation network and chair a 
working group focusing on criminal action related to drugs, 
prostitution and money laundering committed by West Africans 
in, between and through the Nordic countries.  Additionally, 
Denmark is an active member of the Task Force on Organized 
Crime in the Baltic Sea Region.  Danish police officers have 
also been assigned to posts in Baltic countries to assist 
host governments with organized crime investigations. 
Denmark cooperates with legal attachs from several 
countries, including the United States.  More specifically, 
the U.S. Immigration and Customs Enforcement (ICE) works with 
the Danish Police, the Danish Anti-Trafficking Center and 
NGO,s in Denmark on trafficking issues. This collaboration 
involves primarily best practices and information exchanges. 
Other international cooperation focuses primarily on 
combating organized crime, narcotics smuggling and terrorism. 
 
 
In 2009, the government has continued its efforts with 
European Network for HIV/STI Prevention and Health Promotion 
among Migrant Sex Workers (TAMPEP), especially with Sweden 
and Norway. It has also been working on an ad hoc basis with 
other European Countries to ensure that victims of 
trafficking are helped by competent organizations once they 
return to their home country. The IOM has been working under 
contract since 2008 with the Immigration Service to provide 
assistance for victims of trafficking who returned to their 
home country. The Ministry of Foreign Affairs (MFA) has also 
continued efforts related to its 2008-2012 program aimed at 
combating human trafficking coming from Ukraine, Moldova, and 
Belarus through cooperation with local entities. 
 
 
COPENHAGEN 00000088  020 OF 020 
 
 
--B.  The largest current initiative for assistance in human 
trafficking abroad is the Ministry of Foreign Affairs, 
Danish Programme Against Human Trafficking, 2009-2011. This 
program focuses on Eastern and South-Eastern Europe, 
specifically Moldova, Ukraine, and Belarus, and attempts to 
work in tandem with locally present international and 
non-governmental organizations to combat trafficking in 
persons at its source.  Its overall budget is about USD 6 
million. This program builds on the 2006-08 initiative. 
Working through key implementing partners in Moldova, 
Ukraine, and Belarus, which include both international and 
non-governmental organizations, the program supports national 
counter-trafficking plans and works with government agencies 
so that they assume their role as leaders of 
counter-trafficking efforts. The program works within a 
widely recognized approach, whereby efforts are focused 
within the three broad areas of prevention, protection, and 
prosecution. It has four immediate objectives: (1) 
strengthened national counter trafficking strategies and 
mechanisms; (2) streamlined and improved access to and 
provision of services for Victims of Trafficking; (3) better 
targeted prevention activities effectively reach vulnerable 
groups, and (4) strengthened international and regional 
co-operation on responses to trafficking. 
 
This program works through Country Steering Groups, in which 
the key implementing partners in each country work together 
to design and implement multi-faceted national programs. A 
Regional Steering Group facilitates the coordination of 
regional activities, including, where possible, countries of 
destination in addition to the three program countries. 
Emphasis is placed firmly on local ownership of the program, 
with funds disbursed by IOM Kiev and managed by each Country 
Steering Group and the Regional Steering Group in the case of 
the regional program. Technical assistance is provided where 
necessary to ensure efficient use of funds and comprehensive 
monitoring and adjustment of activities. The Ministry 
consults with all the implementing partners annually in a 
Regional Partner Forum where budgetary and other issues may 
be discussed and broader subjects of general interest 
included 
 
¶8. (SBU) HEROES: 
 
No recommended entries. 
 
¶9. (SBU) COMMENDABLE INITIATIVES: 
 
No commendable initiatives can be identified due to the 
difficulty in assessing the current effectiveness of the 
Danish programs in operation. 
 
¶10. (U) Embassy Point of Contact for the TIP report is 
Spencer Fields, tel:  45 3341-7335, fax:  45 3542-1349, 
fieldssm@state.gov. 
 
¶11. (U) Minimize Considered. 
FULTON