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DE RUEHVT #0097/01 0531525
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O 221525Z FEB 10
FM AMEMBASSY VALLETTA
TO RUEHC/SECSTATE WASHDC IMMEDIATE 2562
INFO RUEHIL/AMEMBASSY ISLAMABAD 0030
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RUEHMO/AMEMBASSY MOSCOW 0063
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RUEAHLC/HOMELAND SECURITY CENTER WASHINGTON DC
RUEATRS/DEPT OF TREASURY WASHDC
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RHEFHLC/DEPT OF HOMELAND SECURITY WASHINGTON DC
RUEAUSA/DEPT OF LABOR WASHDC

UNCLAS VALLETTA 000097 
 
SENSITIVE 
SIPDIS 
 
DEPARTMENT FOR G/TIP 
DEPARTMENT ALSO FOR G-LAURA PENA, INL, DRL, PRM, 
EUR/PGI-JODY BUCKNEBURG, EUR/WE-STACIE ZERDECKI 
 
E.O. 12958: N/A 
TAGS: KTIP KCRM PHUM KWMN SMIG KFRD ASEC PREF ELAP
KMCA, MT 
SUBJECT: MALTA: TENTH ANNUAL TRAFFICKING IN PERSONS (TIP) 
REPORT 
 
REF: STATE 2094 
 
¶1. (SBU) Responses are keyed to numbered/lettered reporting 
questions paragraphs of reftel: 
 
 
¶25. (SBU) THE COUNTRY'S TIP SITUATION: 
 
-- A. What is (are) the source(s) of available information on 
human trafficking?  What plans are in place (if any) to 
undertake further documentation of human trafficking?  How 
reliable are these sources? 
 
The key source of information in Malta of information 
regarding trafficking in persons is the government, 
specifically the Police which fall under the Ministry of 
Justice and Home Affairs. There is an Assistant Commissioner 
of Police within whose responsibility TIP falls.  There are 
no non-governmental organizations (NGOs) specifically 
dedicated to the issue of human trafficking, likely because 
of the low reported incidence of trafficking in Malta.  The 
NGO Jesuit Refugee Services (JRS), the Office of the 
International Organization for Migration (IOM) and the Office 
of the United Nations High Commissioner for Refugees (UNHCR) 
follow the issue, however, and make recommendations to 
government on ways to address the matter in Malta.  There are 
no current plans to undertake any additional documentation of 
TIP.  Post believes that these are reliable sources of 
information regarding trafficking cases. 
 
-- B. Is the country a country of origin, transit, and/or 
destination for men, women, or children subjected to 
conditions of commercial sexual exploitation, forced or 
bonded labor, or other slave-like conditions?  Are citizens 
or residents of the country subjected to such trafficking 
conditions within the country?  If so, does this internal 
trafficking occur in territory outside of the government's 
control (e.g. in a civil war situation)?  From where are 
people recruited or from where do they migrate prior to being 
subjected to these exploitative conditions?  To what other 
countries are people trafficked and for what purposes? 
Provide, where possible, numbers or estimates for each group 
of trafficking victims.  Have there been any changes in the 
TIP situation since the last TIP Report (e.g. changes in 
destinations)? 
 
During this reporting period, there has been no evidence of a 
significant trafficking problem in Malta.  Malta has been a 
destination country for small numbers (almost certainly fewer 
than ten annually) of trafficked women in the past. According 
to the Police, there were no TIP cases reported or discovered 
in 2009 (though see below for discussion of cases 
investigated for possible trafficking, including a single 
case involving prostitution of a minor).  In 2008, there was 
one trafficking case in which three individuals were arrested 
- two for trafficking and one for living off the earnings of 
prostitution.  The case is currently being prosecuted in the 
Maltese criminal court system. 
 
In July 2009, a man was sentenced to one year's imprisonment 
and fined Euro 450 (USD 616 approx) after being found guilty 
of using a hotel to run a brothel in 2003.  Three Ukrainian 
women and one Bulgarian were found on the premises during the 
police raid.  The women admitted to prostitution, but 
evidence indicated they were using and paying for the hotel's 
services by their own arrangement as a part of their own 
activities and were not victims of TIP.  Based on information 
from their investigations and those conducted by social 
workers, police contacts assessed that it was highly unlikely 
that any of women were subject to an element of coercion. 
 
In September 2009, three Pakistanis working in Malta alleged 
to a reporter for a local Maltese-language newspaper that 
they were tortured, threatened and not paid wages. The Malta 
 
 
Employment Training Corporation and Maltese Police 
investigated the allegations.  Post discussed the case at 
length with the Assistant Police Commissioner responsible for 
TIP, and, after review, accepts police conclusions that in 
this instance the employee's statements were not credible and 
appear motivated by their dissatisfaction with their employer 
and desire to have him purchase return tickets to Pakistan 
for them (which was not part of their original agreement with 
the employer).  The Pakistani honorary consul (a Maltese 
national) also intervened in the case and brokered a 
resolution in which the employer did, in fact, agree to pay 
for the return of his employees to Pakistan. (Note: the 
employer, himself a Pakistani, owns several restaurants in 
Malta that are staffed largely by Pakistanis.  The high rate 
of turnover of employee 
 
s, and the seeming ease with which he obtains work permits 
for them, has raised concerns about possible facilitation of 
illegal immigration into the EU.  While allegations that he 
may be involved in human smuggling into the EU are credible, 
the facts in this case appear to be as stated above, and not 
indicative of TIP as defined by the TVPA.  Post continues to 
follow this situation closely. 
 
In November 2009, a Ukrainian women living in Malta was 
murdered by her husband.  Witnesses in the case included 
female associates of the murdered woman from Ukraine and 
Moldova who were in Malta without work permits and with 
expired entry permits.  Since women from these countries are 
frequently TIP victims, post again asked Malta Police to 
investigate the circumstances of their presence in Malta. 
Police did make further inquiries and determined that while 
the women were in the Malta without proper documentation, the 
evidence indicated they were in the country voluntarily, 
based on their association with the victim, and not as the 
result of any coercion. 
 
Also in November 2009, a seventeen-year old Maltese male 
(whose name is not legally discoverable because of his minor 
status) was arraigned on four charges related to the 
prostitution of a 17-year-old Maltese female minor and was 
remanded in custody.  Under the TVPA, post notes that a child 
who is being prostituted by a third party is presumed to be a 
trafficking victim.  Because both the perpetrator and victim 
in this case are minors, and the facts of the case are not 
discoverable due to the ages of the individuals involved, 
post is unable to provide additional information regarding 
the circumstances of the alleged offense (which has not yet 
been adjudicated).  Act XXXI of the Laws of Malta 2007 
stipulates a 3-9 year sentence for rape or prostitution of a 
minor, which can be increased if there are aggravating 
circumstances.  This exceeds on the lower end the 2-9 year 
punishment which is provided for trafficking in the Maltese 
criminal code, Articles 248A to E. 
 
Other than the case involving a minor, above, there is no 
credible indication that citizens or residents of Malta were 
subject to trafficking in 2009.  However, it is also accurate 
to say that there has been no substantial change in the 
incidence of TIP overall since the last TIP report.  In 
assessing TIP in Malta, and Maltese efforts to investigate 
and prosecute TIP crimes, it is important to recognize the 
scale of criminal activity generally in Malta.  Malta is an 
island that is less than 20 miles long, whose 404,000 people 
live in some 40 distinct cities, towns and villages that are 
for the most part surrounded by agricultural lands. The 
largest city has a population of 18,000. In 2006, there were 
no murders in the entire country. In 2007, there were a total 
of two murders, three in 2008, and four in 2009. 
 
-- C. To what kind of conditions are the trafficking victims 
subjected? 
 
When trafficking has been detected in the past, victims have 
 
typically been held against their will by devices such as 
threats of physical violence, seizure of passports, and 
prevention of communications with friends, family or 
authorities.  Victims have been forced to work as 
prostitutes.  The one individual (a Swedish national) found 
to have been trafficked to Malta in 2008 was held in a 
brothel and forced into prostitution by two Maltese men. 
 
-- D. Vulnerability to TIP: Are certain groups of persons 
more at risk of human trafficking (e.g. women and children, 
boys versus girls, certain ethnic groups, refugees, IDPs, 
etc.)?  If so, please specify the type of exploitation for 
which these groups are most at risk (e.g., girls are more at 
risk of domestic servitude than boys). 
 
The only TIP cases recorded by Malta have involved adult 
women; there have been no credible reports of children or men 
trafficked to Malta for purposes of sexual exploitation, nor 
of men trafficked for forced labor (though see B, above, 
regarding the possible prostitution of a minor by another 
minor). 
 
-- E. Traffickers and Their Methods: Who are the 
traffickers/exploiters?  Are they independent business 
people?  Small or family-based crime groups?  Large 
international organized crime syndicates?  What methods are 
used to gain direct access to victims?  For example, are the 
traffickers recruiting victims through lucrative job offers? 
Are victims sold by their families, or approached by friends 
of friends?  Are victims "self-presenting" (approaching the 
exploiter without the involvement of a recruiter or 
transporter)? If recruitment or transportation is involved, 
what methods are used to recruit or transport victims (e.g., 
are false documents being used)?  Are employment, travel, and 
tourism agencies or marriage brokers involved with or 
fronting for traffickers or crime groups to traffic 
individuals? 
 
See responses to B through D, above. 
 
¶26. (U) SETTING THE SCENE FOR THE GOVERNMENT'S ANTI-TIP 
EFFORTS: 
 
-- A. Does the government acknowledge that human trafficking 
is a problem in the country?  If not, why not? 
 
Malta acknowledges that Trafficking in Persons is a problem 
and an issue that must be addressed, and the government's 
commitment to addressing the problem is strong. 
Notwithstanding the limited scope of trafficking in Malta, 
the GOM does devote resources to address the matter and to 
train staff on screening and identification of victims. 
 
-- B. Which government agencies are involved in efforts to 
combat sex and labor trafficking - including forced labor - 
and, which agency, if any, has the lead in these efforts? 
 
Malta's Ministry of Justice and Home Affairs (MJHA) takes the 
lead on trafficking matters, and the Police, who are 
typically first responders, fall under MJHA.  Malta's 
national vice squad is headed by two specifically-dedicated 
police inspectors, both of whom are known to the Embassy as 
competent and motivated individuals who are aware of the 
dangers and indicators of TIP and who have shown a 
willingness to investigate and prosecute TIP-related offenses 
in the past. The inspectors, with the assistance of four 
dedicated constables, conduct raids on suspected brothels and 
arrest those living off the proceeds of prostitution 
(traffickers/pimps/madams) as well as women suspected of 
soliciting or prostituting themselves.  When indices of TIP 
are discovered through police or social services 
investigations, those leads are followed up. 
 
-- C. What are the limitations on the government's ability to 
 
 
address these problems in practice?  For example, is funding 
for police or other institutions inadequate?  Is overall 
corruption a problem?  Does the government lack the resources 
to aid victims? 
 
The primary limitation has been the slowness of Malta's 
courts.  It is also not unusual for it to take 3-5 years for 
any criminal case (or civil case) to work its way through the 
Maltese justice system. Sentences are often light (or 
suspended in the case of first-time offenders) by U.S. 
standards, reflecting the general EU/European philosophy of 
favoring rehabilitation over incarceration. However, the 
sentences are similar to those awarded, e.g., for 
manslaughter to a defendant having no prior convictions. 
There has so far been no resolution to a 2008 case in which 
three Maltese men were arrested on charges related to 
trafficking of a Swedish woman. In a 2004 case that finally 
came to trial in 2008, a Maltese woman was convicted of 
trafficking Russian women to Malta and forcing them into 
prostitution; she was given a sentence of two years 
imprisonment suspended for four years (if the perpetrator 
commits another crime within the four year suspension period, 
she will be obligated to serve the two year sentence 
 
).  Malta recognizes this as a problem and in February 2010 
sent a senior court justice to a U.S.-funded International 
Visitor Program on judicial administration.  This justice, 
prior to embarking for the U.S., met with the U.S. Ambassador 
and other members of the embassy team, Malta's Attorney 
General and Malta's Chief Justice to prepare for a detailed 
assessment of the sources of the delay in the Maltese legal 
system.  Upon arrive in the U.S., this member of the Maltese 
judiciary will meet with Chief Justice of the U.S. Supreme 
Court John Roberts and the Director of the Administrative 
Office of the U.S. Courts.  The purpose of these meetings, 
and others in New York and at the National Judicial College 
in Nevada, is to identify mechanisms for reducing the length 
of time cases are on the docket in Malta.  Upon his return, 
he will work within the Ministry of Justice and Home Affairs 
and through the Attorney General's office to implement these 
mechanisms. 
 
-- D. To what extent does the government systematically 
monitor its anti-trafficking efforts (on all fronts -- 
prosecution, victim protection, and prevention) and 
periodically make available, publicly or privately and 
directly or through regional/international organizations, its 
assessments of these anti-trafficking efforts? 
 
The government monitors its anti-trafficking efforts 
regarding prosecution, victim protection and prevention 
systematically through the collection of statistics on TIP 
cases. The information is made available to international 
organizations or other governments upon request. 
 
-- E. What measures has the government taken to establish the 
identity of local populations, including birth registration, 
citizenship, and nationality? 
 
Maltese citizens have a national identity card, as is 
required of citizens in all EU countries.  There are no other 
substantial populations in Malta other than irregular 
migrants, who are carefully screened and examined at length 
to establish their identities (since they ordinarily have 
discarded all personal identification documents prior to 
arriving in Malta, in order to avoid repatriation), and 
tourists, who are required to provide appropriate 
identification establishing their date of birth, citizenship 
and nationality to customs and border control personnel at 
their port of entry.  The government makes use of biometric 
data, where possible, to assist in all identifications. 
 
--F. To what extent is the government capable of gathering 
the data required for an in-depth assessment of law 
 
enforcement efforts?  Where are the gaps?  Are there any ways 
to work around these gaps? 
 
The government is fully capable of gathering data on TIP 
needed for an in-depth assessment of its law enforcement 
efforts.  Given the limited number of TIP cases documented to 
have occurred in Malta, there are no substantial gaps in data 
gathering. 
 
¶27. (U) INVESTIGATION AND PROSECUTION OF TRAFFICKERS: 
 
For questions A-D, posts should highlight in particular 
whether or not the country has enacted any new legislation 
since the last TIP report. 
 
-- A. Existing Laws against TIP: Does the country have a law 
or laws specifically prohibiting trafficking in persons -- 
both sexual exploitation and labor?  If so, please 
specifically cite the name of the law(s) and its date of 
enactment and provide the exact language (actual copies 
preferable) of the TIP provisions.  Please provide a full 
inventory of trafficking laws, including non-criminal 
statutes that allow for civil penalties against alleged 
trafficking crimes (e.g., civil forfeiture laws and laws 
against illegal debt). Does the law(s) cover both internal 
and transnational forms of trafficking?  If not, under what 
other laws can traffickers be prosecuted?  For example, are 
there laws against slavery or the exploitation of 
prostitution by means of force, fraud, or coercion?  Are 
these other laws being used in trafficking cases? 
 
-- B. Punishment of Sex Trafficking Offenses: What are the 
prescribed and imposed penalties for the trafficking of 
persons for commercial sexual exploitation, including for the 
forced prostitution of adults and the prostitution of 
children? 
 
-- C. Punishment of Labor Trafficking Offenses:  What are the 
prescribed and imposed penalties for labor trafficking 
offenses, including all forms of forced labor?  If your 
country is a source country for labor migrants, do the 
government's laws provide for criminal punishment -- i.e. 
jail time -- for labor recruiters who engage in recruitment 
of workers using knowingly fraudulent or deceptive offers 
with the purpose of subjecting workers to compelled service 
in the destination country?  If your country is a destination 
for labor migrants (legal/regular or illegal/irregular), are 
there laws punishing employers or labor agents who confiscate 
workers' passports or travel documents for the purpose of 
labor trafficking, switch contracts without the worker's 
consent as a means to keep the worker in a state of compelled 
service, or withhold payment of salaries as means of keeping 
the worker in a state of compelled service? 
 
-- D. What are the prescribed penalties for rape or forcible 
sexual assault? (NOTE:  This is necessary to evaluate a 
foreign government's compliance with TVPA Minimum Standard 2, 
which reads: "For the knowing commission of any act of sex 
trafficking... the government of the country should prescribe 
punishment commensurate with that for grave crimes, such as 
forcible sexual assault (rape)."  END NOTE) 
 
A through D. Principal laws related to TIP, including both 
sexual and labor exploitation, are: 
 
a)    Subsidiary Legislation 217.07 - Permission to reside 
for victims of trafficking or illegal immigration who 
cooperate with the Maltese authorities.  Legal Notice 175 
(2007) (http://www.doi.gov.mt/EN/ legalnotices/ 
2007/07/LN%20175.pdf) 
b)    Criminal Code (1854, amended as indicated below) 
http://docs.justice.gov.mt/lom/ legislation/english/leg/ 
vol 1/chapt.pdf), Art. 54C(c, e, g, k) - Crimes against 
humanity (Added by Acts XXIV.2002.13); Art. 248A-E - Of 
 
Trafficking of Persons (Added by Acts III.2002.50). 
c)    White Slave Traffic (Suppression) Ordinance, Chapter 
¶63.  (Updated 2006, to specifically address TIP issues). 
(http://docs.justice.gov.mt/lom/ legislation/english/ 
leg/vol 3/chapt63.pdf) 
 
The Maltese criminal code, Articles 248A to E, specifically 
criminalize the trafficking of a person of majority age for 
the purpose of exploitation and calls for a punishment of two 
to nine years. If any of the offenses are accompanied by 
grievous bodily harm, generate over 10,000 Euros in income 
(about $15,000), or are organized with a criminal network, 
the punishment increases (See, Art. 248e(2); a single degree 
of increase in punishment will raise the maximum penalty from 
9 years to 12.  See Art. 31 ("Ascent and Descent from One 
Punishment to Another")). Traffickers can be charged for the 
offenses if the action takes place in Malta, or if the 
trafficker is a Maltese national or legal permanent resident 
living in or outside of Malta. 
 
Act XXXI of 2007 stipulates a 3-9 year sentence for rape or 
prostitution of a minor, which may be increased if there are 
aggravating circumstances. The language is general but would 
be applicable to trafficking cases, since the absence of 
capacity of a minor to consent to prostitution renders such a 
crime a trafficking offense under the provisions of the TVPA. 
 
The laws and penalties noted above apply equally to incidents 
of labor exploitation and forced or bonded labor. Malta's 
labor markets are closely regulated by a government agency, 
the Employment and Training Corporation (ETC). This 
government entity investigates, penalizes administratively 
and prosecutes criminally violations of Malta's labor laws. 
In addition to being subject to criminal penalties, employers 
found in violation of labor laws may be barred from 
participation in public tenders, a significant penalty for 
companies given the level of public spending for such 
projects in Malta. The ETC has conducted informational 
sessions within the closed detention centers to ensure that 
irregular migrants are aware of their rights and the process 
by which to attain work permits and proper employment. 
 
Loitering or soliciting in public for the purposes of 
prostitution, or for other immoral purposes, is illegal. 
Making financial gain from the services of a prostitute, for 
example as a brothel owner or pimp, is illegal. Paying for 
the services of a prostitute is not illegal. Malta has other 
laws against sexual exploitation and these are employed in 
cases of vice crimes. When Malta entered the European Union 
in 2004, EU authorities reviewed Malta's laws and deemed it 
unnecessary for Malta to make any changes to its laws to 
conform to the European Union Council framework decision on 
combating trafficking. 
 
-- E. Law Enforcement Statistics: Did the government take 
legal action against human trafficking offenders during the 
reporting period?  If so, provide numbers of investigations, 
prosecutions, convictions, and sentences imposed, including 
details on plea bargains and fines, if relevant and 
available.  Please note the number of convicted trafficking 
offenders who received suspended sentences and the number who 
received only a fine as punishment.  Please indicate which 
laws were used to investigate, prosecute, convict, and 
sentence traffickers.  Also, if possible, please disaggregate 
numbers of cases by type of TIP (labor vs. commercial sexual 
exploitation) and victims (children under 18 years of age vs. 
adults).   What were the actual punishments imposed on 
convicted trafficking offenders? Are they serving the time 
sentenced?  If not, why not? 
 
There were no trafficking offenses documented and no cases 
opened during the reporting period.  As noted above, the 2008 
case the arrest of three individuals - two for trafficking 
and one for living off the earnings of prostitution - is 
 
currently being prosecuted in the Maltese criminal court 
system.  There have been no reported cases of labor 
exploitation to date; all TIP cases in Malta thus far have 
involved sexual exploitation.  In addition, note one case 
above pending adjudication involving a minor who is accused 
of having prostituted another minor. 
 
-- F. Does the government provide any specialized training 
for law enforcement and immigration officials on identifying 
and treating victims of trafficking?  Or training on 
investigating and prosecuting human trafficking crimes? 
Specify whether NGOs, international organizations, and/or the 
USG provide specialized training for host government 
officials. 
 
Since March 2008, the Police and Appogg (the Social Welfare 
Services Agency, which falls under the Ministry for Social 
Policy) have worked under a Memorandum of Understanding that 
formalized an internal referral process whereby all 
prostitutes arrested were screened by a social worker to 
identify potential victims of trafficking. 
 
--G. Does the government cooperate with other governments in 
the investigation and prosecution of trafficking cases?  If 
possible, provide the number of cooperative international 
investigations on trafficking during the repoting period. 
 
The Government of Malta has indicaed it will cooperate with 
other governments in ivestigation and prosecution of 
trafficking caseswhen appropriate and/or when requested.  In 
the ast the GOM has cooperated with Interpol and Russia 
authorities to arrest individuals in Moscow in onnection 
with information developed in local inestigations.  Post is 
unaware of any cooperativeinternational investigations 
during the reportin period. 
 
-- H. Does the government extradite perons who are charged 
with trafficking in other contries?  If so, please provide 
the number of trafickers extradited during the reporting 
period, nd the number of trafficking extraditions pending. 
In particular, please report on anypending or concluded 
extraditions of trafficking offenders to the United States. 
 
During the reporting period, there have been no requests for 
extradition of persons charged with trafficking in other 
countries, including the U.S.  For U.S. cases, extradition 
would be in accordance with the provisions of the U.S.-Malta 
Extradition Treaty, which entered into force in July 2009. 
In the past, there have been individuals extradited for 
charges related to human trafficking. 
 
-- I. Is there evidence of government involvement in or 
tolerance of trafficking, on a local or institutional level? 
If so, please explain in detail. 
 
There is no evidence of government involvement in or 
tolerance of trafficking. 
 
-- J. If government officials are involved in human 
trafficking, what steps has the government taken to end such 
complicity?  Please indicate the number of government 
officials investigated and prosecuted for involvement in 
trafficking or trafficking-related criminal activities during 
the reporting period.  Have any been convicted?  What 
sentence(s) was imposed? Please specify if officials received 
suspended sentences, or were given a fine, fired, or 
reassigned to another position within the government as 
punishment. Please indicate the number of convicted officials 
that received suspended sentences or received only a fine as 
punishment. 
 
Not applicable to Malta.  However, official corruption 
generally is treated seriously in Malta and is investigated 
and prosecuted.  The former Chief Justice of Malta was 
 
 
convicted in a non-TIP-related corruption case in November 
2009, and was sentenced to two years, nine months 
imprisonment, unsuspended.  He has been released pending 
resolution of his appeal of the sentence. 
 
-- K. For countries that contribute troops to international 
peacekeeping efforts, please indicate whether the government 
vigorously investigated, prosecuted, convicted and sentenced 
nationals of the country deployed abroad as part of a 
peacekeeping or other similar mission who engaged in or 
facilitated severe forms of trafficking or who exploited 
victims of such trafficking. 
 
Less than five Maltese military officials and policemen are 
currently participating in EU peacekeeping missions abroad. 
There are no allegations that they engaged in or facilitated 
trafficking or exploited victims of trafficking. 
 
-- L. If the country has an identified problem of child sex 
tourists coming to the country, what are the countries of 
origin for sex tourists?  How many foreign pedophiles did the 
government prosecute or deport/extradite to their country of 
origin?  If your host country's nationals are perpetrators of 
child sex tourism, do the country's child sexual abuse laws 
have extraterritorial coverage (similar to the U.S. PROTECT 
Act) to allow the prosecution of suspected sex tourists for 
crimes committed abroad?  If so, how many of the country's 
nationals were prosecuted and/or convicted during the 
reporting period under the extraterritorial provision(s) for 
traveling to other countries to engage in child sex tourism? 
 
There is no known problem of child sex tourists, nor are 
Malta's nationals reputed to be perpetrators of child sex 
tourism. 
 
¶28. (U) PROTECTION AND ASSISTANCE TO VICTIMS: 
 
-- A.  What kind of protection is the government able under 
existing law to provide for victims and witnesses? Does it 
provide these protections in practice? 
 
-- B.  Does the country have victim care facilities (shelters 
or drop-in centers) which are accessible to trafficking 
victims?  Do foreign victims have the same access to care as 
domestic trafficking victims?  Where are child victims placed 
(e.g., in shelters, foster care, or juvenile justice 
detention centers)?  Does the country have specialized care 
for adults in addition to children?  Does the country have 
specialized care for male victims as well as female?   Does 
the country have specialized facilities dedicated to helping 
victims of trafficking?  Are these facilities operated by the 
government or by NGOs?  What is the funding source of these 
facilities?  Please estimate the amount the government spent 
(in U.S. dollar equivalent) on these specialized facilities 
dedicated to helping trafficking victims during the reporting 
period. 
 
A-B. The Government of Malta assists foreign trafficking 
victims by offering temporary shelter in GOM-funded homes 
used primarily for victims of domestic violence. GOM has 
informed post that thus far, all trafficking victims 
discovered in Malta have requested repatriation to their home 
country; the victims number less than 20 in the last decade, 
including seven victims identified in 2007 and one Swedish 
woman identified in 2008. MJHA and Appogg confirmed that no 
individuals had expressed a desire to remain in Malta, but 
assured post that a victim would be permitted to do so if she 
requested, and that the victim's safety would be guaranteed. 
As noted in paragraph 27, above, Malta's Subsidiary 
Legislation 217.07 authorizes permission to reside in Malta 
for victims of trafficking or illegal immigration who 
cooperate with the Maltese authorities. 
 
-- C.  Does the government provide trafficking victims with 
 
 
access to legal, medical and psychological services?  If so, 
please specify the kind of assistance provided.  Does the 
government provide funding or other forms of support to 
foreign or domestic NGOs and/or international organizations 
for providing these services to trafficking victims?  Please 
explain and provide any funding amounts in U.S. dollar 
equivalent.  If assistance provided was in-kind, please 
specify exact assistance.  Please specify if funding for 
assistance comes from a federal budget or from regional or 
local governments. 
 
Yes.  The GOM funds APPOGG, the Social Welfare Services 
Provider, which includes the Child Protection Service, 
Domestic Violence Unit and the Community Development Unit. 
This is a government agency which provides psychological 
assistance to trafficking victims. Appogg has services 
available for victims of trafficking and works with victims 
through police referrals. The social workers state that the 
relationship they have developed with the police facilitates 
the ease of such referrals and ensures that the appropriate 
services are provided in such situations. GOM law enforcement 
personnel and social service providers have told the Embassy 
that there is a system in place both to identify potential 
victims of trafficking and to provide them with services. 
 
-- D. Does the government assist foreign trafficking victims, 
for example, by providing temporary to permanent residency 
status, or other relief from deportation?  If so, please 
explain. 
 
As noted above, no individuals have expressed a desire to 
remain in Malta or required any deportation relief, but 
Maltese subsidiary legislation contemplates and authorizes 
such assistance, and GOM officials have assured post that a 
victim would be permitted to remain in Malta if he or she 
requested, and that the victim's safety would be guaranteed. 
 
-- E. Does the government provide longer-term shelter or 
housing benefits to victims or other resources to aid the 
victims in rebuilding their lives? 
 
Not applicable.  No such cases exist. 
 
-- F. Does the government have a referral process to transfer 
victims detained, arrested or placed in protective custody by 
law enforcement authorities to institutions that provide 
short- or long-term care (either government or NGO-run)? 
 
Yes, although it has not been necessary to house trafficking 
victims for extended periods of time.  This care would be 
provided through Appogg. 
 
-- G. What is the total number of trafficking victims 
identified during the reporting period?  (If available, 
please specify the type of exploitation of these victims - 
e.g. "The government identified X number of trafficking 
victims during the reporting period, Y or which were victims 
of trafficking for sexual exploitation and Z of which were 
victims of nonconsensual labor exploitation.)  Of these, how 
many victims were referred to care facilities for assistance 
by law enforcement authorities during the reporting period? 
By social services officials?  What is the number of victims 
assisted by government-funded assistance programs and those 
not funded by the government during the reporting period? 
 
There were no identified victims during the reporting period. 
In the one case from last year's 2008 TIP report, involving a 
victim of trafficking for sexual exploitation, Appogg offered 
counseling services, and assisted in the repatriation of the 
individual to her country of origin, per her request. The 
victim was allowed to provide testimony against her 
traffickers through video conferencing.  The GOM encourages 
victims to assist in the investigation and prosecution of 
trafficking crimes.  There are no victims post is aware of 
 
 
who have not received services, care or counseling requested. 
 
-- H. Do the government's law enforcement, immigration, and 
social services personnel have a formal system of proactively 
identifying victims of trafficking among high-risk persons 
with whom they come in contact (e.g., foreign persons 
arrested for prostitution or immigration violations)?  For 
countries with legalized prostitution, does the government 
have a mechanism for screening for trafficking victims among 
persons involved in the legal/regulated commercial sex trade? 
 
Yes, the Police have formalized a system - an MOU signed with 
the social service agency Appogg - under which all 
prostitutes are screened by a social worker from Appogg to 
identify possible victims of trafficking.  In addition, 
police and ETC routinely investigate labor complaints, and as 
part of their review seek to determine whether labor 
trafficking may be involved. 
 
-- I. Are the rights of victims respected?  Are trafficking 
victims detained or jailed?   If so, for how long?  Are 
victims fined?  Are victims prosecuted for violations of 
other laws, such as those governing immigration or 
prostitution? 
 
Yes, the rights of the victims are respected. Trafficking 
victims have not been jailed or punished in any case post is 
aware of.  Victims have not been prosecuted for violation of 
other laws. (NOTE: as indicated above, no trafficking cases 
have been identified during the reporting period, so this 
information is based on historical data) 
 
-- J. Does the government encourage victims to assist in the 
investigation and prosecution of trafficking?  How many 
victims assisted in the investigation and prosecution of 
traffickers during the reporting period? May victims file 
civil suits or seek legal action against traffickers?  Does 
anyone impede victim access to such legal redress?  If a 
victim is a material witness in a court case against a former 
employer, is the victim permitted to obtain other employment 
or to leave the country pending trial proceedings?  Are there 
means by which a victim may obtain restitution? 
 
Yes, the GOM encourages victims to assist in the 
investigation and prosecution of trafficking crimes. 
Although no victims were reported in 2009, the GOM 
facilitated this process by allowing the one identified 
victim in 2008 to provide testimony via video conference.  In 
labor trafficking cases (which have not been noted to date), 
victims would be permitted to obtain other employment and, 
contingent upon their migration/asylum status under the EU's 
Dublin agreement, would be permitted to leave the country 
pending trial proceedings if normally and otherwise qualified 
to do so. 
 
-- K. Does the government provide any specialized training 
for government officials in identifying trafficking victims 
and in the provision of assistance to trafficked victims, 
including the special needs of trafficked children?  Does the 
government provide training on protections and assistance to 
its embassies and consulates in foreign countries that are 
destination or transit countries?   What is the number of 
trafficking victims assisted by the host country's embassies 
or consulates abroad during the reporting period?  Please 
explain the type of assistance provided (travel documents, 
referrals to assistance, payment for transportation home). 
 
The Government of Malta has coordinated with the 
International Organization for Migration (IOM) on a 
'train-the-trainers' program. A vice squad inspector 
developed a curriculum and trained other police officers in 
methods of identifying victims of trafficking and offering 
them assistance. There were three internal training sessions 
conducted in January 2009 for 60 officers from the 
 
immigration police, vice squad, general crimes, and key 
districts. In February 2009, IOM cooperated with Appogg to 
conduct an internal training session for social workers from 
the various units including those who operate hotlines which 
potential victims could use, and social workers from AWAS who 
work with the refugee population. 
 
GOM authorities responsible for issuing visas, for border 
security and for renewing visas in-country indicate that 
their personnel are routinely trained in detecting victims of 
trafficking and use active screening techniques to prevent 
these activities. GOM officials and personnel have 
participated in a wide variety of training, information 
sharing and other activities through contacts with similar 
authorities throughout the EU. Malta maintains few embassies 
around the world, and those embassies run on a very limited 
staff, for instance Malta's Embassy to the United States has 
one mid-level diplomat in addition to the ambassador. There 
have been no cases reported in memory where Maltese Embassies 
facilitated the return of Maltese national trafficking 
victims to Malta, nor have there been any cases in memory of 
Maltese nationals having been discovered to be trafficking 
victims abroad. 
 
-- L. Does the government provide assistance, such as medical 
aid, shelter, or financial help, to its nationals who are 
repatriated as victims of trafficking? 
 
Not applicable. There are and have been no cases of Maltese 
nationals repatriated as victims of trafficking. 
 
-- M. Which international organizations or NGOs, if any, work 
with trafficking victims?  What type of services do they 
provide?  What sort of cooperation do they receive from local 
authorities? 
 
There are no NGOs who work specifically or uniquely with 
trafficking victims.  Jesuit Refugee Services (JRS) works 
with the migrant population and looks for possible 
trafficking victims. 
 
 
¶29. (U) PREVENTION: 
 
-- A. Did the government conduct anti-trafficking information 
or education campaigns during the reporting period?  If so, 
briefly describe the campaign(s), including their objectives 
and effectiveness.  Please provide the number of people 
reached by such awareness efforts, if available.  Do these 
campaigns target potential trafficking victims and/or the 
demand for trafficking (e.g. "clients" of prostitutes or 
beneficiaries of forced labor)?  (Note: This can be an 
especially noteworthy effort where prostitution is legal. 
End Note.) 
 
GOM acknowledges that trafficking is a problem and is 
committed to addressing it. During 2009, Appogg has continued 
to distribute a brochure it produced to raise awareness about 
trafficking, how to identify potential victims and where 
victims could access assistance. These brochures have been 
distributed at hospitals and other health clinics, local 
councils, community centers, churches, and to businesses 
within the nightlife area where it could reach both potential 
victims and (in the case of the nightlife establishments) 
clients of the sex trade. In January 2009, the Assistant 
Commissioner of Police, Michael Cassar used an appearance on 
the TV talk show Xarabank, which has the highest viewership 
of any talk show in Malta, to discuss TIP, including a 
detailed explanation on how to identify and assist victims 
and the importance of avoiding situations which might 
contribute to trafficking. 
 
In late 2009, the Malta government agency Appogg and the 
private business The Body Shop teamed up in an international 
 
campaign to Stop Sex Trafficking of Children and Young People 
whereby proceeds from products sold at The Body Shop were 
used to support training and services for vulnerable children 
and young adults and to assist Appogg in creating an 
awareness campaign about human trafficking of children and 
young people for sexual exploitation.  This was primarily 
aimed at potential trafficking victims, but also included an 
element to increase awareness of the potential results of 
demand for sexual services.  There was no effort undertaken 
to determine the effectiveness of the campaign, and it is 
unclear exactly how much funding was made available as a 
result of the campaign. 
 
-- B. Does the government monitor immigration and emigration 
patterns for evidence of trafficking? 
 
Yes.  An annual average of 1,500 to 1,800 irregular migrants 
are rescued at sea en route from Africa to Italy by the Armed 
Forces of Malta (AFM) and brought to Malta, where their 
asylum claims are processed. In 2009, the number of migrants 
brought to Malta was 1,475. The majority of these are 
nationals of sub-Saharan African countries. 
 
The GOM conducts interviews of these migrants at several 
points during their processing: at the initial point of 
contact when they are rescued at sea (or in rare cases on the 
shore) by the AFM; by the Agency for Welfare of Asylum 
Seekers (AWAS) -- a Maltese government agency reporting to 
the Ministry of Justice and Home Affairs -- when they are 
taken to detention or holding centers in Malta by the AFM 
Detention Services; and again when they are interviewed 
regarding their asylum claim by the Malta Refugee Commission. 
Since late 2008, AWAS interviews have included questions 
intended to screen for indications of trafficking, and to 
date no evidence had been obtained that any these migrants 
were being trafficked against their will to Malta. The 
preponderance of evidence gathered by government agencies, as 
well as by UNHCR and NGOs that work with the immigrants, 
indicates that the immigrants leave Libya willingly, paying 
human smugglers to transport them to Europe. Malta is nearly 
always not the desired destinati 
 
on, whose goal is to reach mainland Europe. 
 
There has been no evidence or allegation that migrants are 
being trafficked to Malta for the purposes of sexual or labor 
exploitation. However, there have been concerns expressed 
that migrants who are living in "open centers" (no longer 
subject to detention, but unable to support themselves in 
Malta's economy, therefore living in government provided 
quarters) might be vulnerable to trafficking as they would 
have no obvious means of supporting themselves. Both UNHCR 
and IOM have in the past reported cases where asylum seekers 
who work in the "grey" informal labor market have not been 
paid for their work or were underpaid for the work performed. 
UNHCR and IOM representatives have stated that there had not 
been any indices of forced labor in these cases, and have 
referred cases of non-payment or underpayment to the General 
Workers Union (GWU), which has a unit specifically devoted to 
following up on these claims. GWU has continued in 2009 to 
successfully resolve many of these cases by approaching the 
employers d 
 
irectly and publicizing the circumstances, when additional 
leverage is required. The Maltese government's Employment and 
Training Corporation continues provide assistance to migrants 
in understanding how to go about finding employment and 
filing for work permits. 
 
GOM authorities responsible for issuing visas, for border 
security and for renewing visas in-country advise that their 
personnel are trained in detecting victims of trafficking and 
use active screening techniques to prevent these activities. 
AWAS, the GOM agency responsible for the welfare of asylum 
 
seekers, evaluates immigration patterns to identify potential 
victims of trafficking, and has begun asking questions in its 
interviews aimed at establishing whether the individual might 
be a victim of trafficking. GOM authorities responsible for 
border security are trained in detecting victims of 
trafficking and use active screening techniques to prevent 
these activities. GOM personnel participate in a wide variety 
of training, information sharing and other activities through 
contacts with similar authorities throughout the European 
Union. 
 
-- C. Is there a mechanism for coordination and communication 
between various agencies, internal, international, and 
multilateral on trafficking-related matters, such as a 
multi-agency working group or a task force? 
 
GOM has an excellent working relationship with IOM, which 
maintains a full-time office in Malta. GOM officials 
participated in IOM-led training sessions in February 2009. 
There are no formal mechanisms for communication between or 
among international or multilateral agencies on 
trafficking-specific matters due to the small number of 
cases. The GOM does have mechanisms for communicating with, 
e.g., Interpol and other international police agencies, and 
is also represented in EU agencies such as Frontex, which 
closely review migration issues. 
 
-- D. Does the government have a national plan of action to 
address trafficking in persons?  If the plan was developed 
during the reporting period, which agencies were involved in 
developing it?  Were NGOs consulted in the process?  What 
steps has the government taken to implement the action plan? 
 
The GOM does not have a formal national plan of action to 
address TIP, but is receptive to the recommendations 
contained in G/TIP's most recent Action Plan. The GOM has 
implemented a public awareness campaign with the publication 
and distribution of brochures, developed a formal referral 
system to identify and provide assistance to victims and 
conducted internal training sessions so that a broad range of 
police officers are able to identify and assist victims of 
trafficking. 
 
-- E: Required of all Posts: What measures has the government 
taken during the reporting period to reduce the demand for 
commercial sex acts? (please see ref B, para. 9(3) for 
examples) 
 
In order to reduce demand for commercial sex acts, GOM has 
distributed brochures in the nightlife area which call 
attention to the issue of and harm caused by trafficking. 
Also, in January 2009, Assistant Commissioner of Police 
Michael Cassar addressed the issue of trafficking in his 
appearance on a widely-viewed local talk show to discuss the 
problem of trafficking. 
 
-- F. Required of all Posts: What measures has the government 
taken during the reporting period to reduce the participation 
in international child sex tourism by nationals of the 
country? 
 
There have been no specific actions taken to reduce the 
participation of Maltese nationals in child sex tourism, nor 
has there been any indication that any Maltese nationals are 
involved in child sex tourism. Maltese law provides for a 
Commissioner for Children who has the power to investigate 
any breaches or infringements on the rights of children.  See 
Malta's Commissioner for Children's Act 
(http://docs.justice.gov.mt/ lom/Legislation/English/ 
Leg/VOL 14/Chapt462.PDF).  Appogg also provides a Child 
Protection Service, including Helpline. 
 
-- G. Required of posts in countries that have contributed 
over 100 troops to international peacekeeping efforts. 
 
 
Not applicable to Malta 
 
¶30. (U) PARTNERSHIPS 
 
Secretary Clinton has identified a fourth "P", Partnerships, 
recognizing that governments' partnerships with other 
government and elements of civil society are key to effective 
anti-TIP strategies.  Although the 2010 Report will include 
references and/or descriptions of these partnerships, they 
will not be considered in the determining the tier rankings, 
except in cases where a partnership contributes to the 
government's efforts to implement the TVPA's minimum 
standards. 
 
-- A.  Does the government engage with other governments, 
civil society, and/or multilateral organizations to focus 
attention and devote resources to addressing human 
trafficking?  If so, please provide details. 
 
Not specifically, other than as noted above. 
 
-- B.  What sort of international assistance does the 
government provide to other countries to address TIP? 
 
There is no specific assistance provided, other than the 
cooperative law enforcement support which the GOM provided in 
the past to Russia and states it be willing to provide in an 
appropriate case in the future. 
 
NEW REQUIREMENTS FOR THE CHILD SOLDIERS PREVENTION ACT 
 
¶31. - 33.  Not applicable to Malta. 
 
NOMINATION OF HEROES AND BEST PRACTICES 
 
Post has no submissions. 
 
¶2.  (U) Embassy point of contact is 
Political-Economic-Commercial Chief Thomas Yeager, Phone 
356-2561-4167.  In preparing the report FSO spent 
approximately 30 hours and Pol Assistant spent approximately 
40 hours. 
KMIEC