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### Viewing cable 04ANKARA1233, TURKEY: 2004 ANTI TRAFFICKING IN PERSONS REPORT

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
04ANKARA1233 | 2004-03-02 11:36 | 2011-08-24 01:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Ankara

`

    This record is a partial extract of the original cable. The full text of the original cable is not available.

` `

    UNCLAS SECTION 01 OF 06 ANKARA 001233

    SIPDIS

    SENSITIVE

    DEPARTMENT FOR G/TIP, G, INL, DRL, PRM, IWI, EUR/PGI

    E.O. 12958: N/A
    TAGS: KCRM PHUM KWMN SMIG KFRD ASEC PREF ELAB TU
    SUBJECT: TURKEY: 2004 ANTI TRAFFICKING IN PERSONS REPORT

    REF: SECSTATE 7869

    ¶1. (U) Sensitive but unclassified.  Please protect
    accordingly.

    ¶2. (U) Post's responses are keyed to questions in reftel.
    Embassy point of contact is David McFarland, who replaces
    Phil Kaplan following submission of this report.  Kaplan
    (rank: FSO-03) spent approximately 100 hours in preparation
    of this report.  McFarland (rank: FSO-05) spent approximately
    10 hours in preparation of this report.  The Political
    Counselor (rank: FS-01) spent roughly 10 hours in preparation
    of this report.

    --------
    Overview
    --------

    ¶A. (U) Turkey is a destination and transit country for human
    trafficking.  No territory within the country is outside of
    GOT control.  There are no estimates on the numbers of TIP
    victims.  Most reports of human trafficking involve foreign
    women engaged in illegal prostitution.  According to a study
    released in November 2003 by the International Organization
    for Migration (IOM), the volume of trafficking in Turkey "can
    only be guessed at."  The Turkish MFA recently added a
    special TIP reporting section to its official government
    website, (http://www.mfa.gov.tr).  The MFA reports that
    police actions against 40 "entertainment enterprises" have
    been initiated, with investigations ongoing.  Post is not
    aware of any reports involving the trafficking of children.

    ¶B. (U) According to the IOM study, women are trafficked to
    Turkey mostly from Romania, Georgia, Russia, Ukraine,
    Moldova, and Azerbaijan.  Turkey is also a transit country
    for the trafficking of women from Central Asia, the Middle
    East, Africa, and the former Yugoslavia to Europe.

    ¶C. (U) Trafficking, along with illegal migration in general,
    emerged as a problem in Turkey within the last 10-15 years.
    IOM reported that, until recently, Turkey had long been a
    country of emigration, with liberal border control policies
    aimed at attracting tourists and enhancing foreign currency
    reserves.  The collapse of the Soviet Union, among other
    factors, turned Turkey into a magnet for irregular migrants.
    The sudden change caught the GOT unprepared.  The GOT is now
    adjusting its policies.  While doing so, it has focused
    primarily on the need to control illegal border crossings,
    treating trafficking in persons (TIP) as a secondary concern,
    the IOM study concluded.

    ¶D. (SBU) As noted para A, IOM in November 2003 released a
    study on TIP in Turkey, the first of its kind.  The study
    reached no conclusions on the extent of the problem.  Regina
    Boucault, chief of the IOM Mission in Turkey, has told us her
    experience indicates the dimensions of the TIP problem in
    Turkey are relatively small, i.e. Turkey is not in the same
    category as the major destination and transit countries.

    ¶E. (SBU) According to Boucault, virtually all TIP victims
    enter Turkey willingly.  Most come with the intention of
    working illegally as prostitutes, though some may be lured
    under false pretenses.  They become TIP victims when they
    find themselves being kept under abusive conditions.  Pimps
    often hold their documents, and sometimes threaten and beat
    them.  Some TIP victims are held under slave-like conditions.
     In some instances, victims have escaped their captors and
    approached IOM for assistance.

    ¶F. (U) Turkey is not a country of origin.

    ¶G. (U) Combating TIP became a GOT priority in 2002.  An
    inter-agency task force, chaired by the Ministry of Foreign
    Affairs, comprises officials from the Ministry of Interior,
    Ministry of Justice, Ministry of Finance, Ministry of Labor
    and Social Security, Ministry of Health, and the Prime
    Ministry.  The task force first met in October 2002 and has
    met five times to date. As a result of the task force's
    efforts, the GOT adopted a TIP National Action Plan in March
    ¶2003.
    ¶H. (U) In July 2003, police in Erzurum arrested 11 people on
    trafficking charges, including three police officers.
    Judicial proceedings in the case are ongoing, though two of
    the police officers were reportedly sentenced to 6-month jail
    terms while the remaining officer was acquitted. Prosecutors
    opened a related case against 13 additional police officers
    for alleged involvement in the crime.  There are credible
    reports of law enforcement officials receiving bribes either
    to smuggle aliens or turn a blind eye to illegal
    prostitution.

    ¶I. (SBU) Although the GOT has ample law enforcement resources
    to fight trafficking, it says it does not have adequate
    funding for shelters or rehabilitation for trafficking
    victims.  MFA has unsuccessfully sought funding from the
    Finance Ministry for shelters and other services outlined in
    a protocol signed by the GOT and the Human Resources
    Development Foundation (HRDF), an Istanbul-based NGO.  HRDF
    has also been unsuccessful to date in its efforts to secure
    private-sector support.  As a result of the MFA-HRDF
    protocol, provincial governors throughout Turkey were tasked
    to identify property that may be converted to serve as
    regional shelters.  In the absence of funding, no further
    action has been reported.

    ¶J. (U) As noted para G, the GOT has a task force on TIP,
    which monitors the various facets of its anti-TIP efforts.
    MFA releases monthly reports on the GOT's anti-TIP efforts.

    ¶K. (U) Prostitution is legal and regulated.  The minimum age
    is 18.

    ¶L. (U) According to the women's advocacy group Flying Broom,
    among traditional, rural communities in Turkey's southeast,
    about 4 percent of brides are under 18.  There is a
    traditional practice in the region whereby the groom pays
    money to the bride's family, though this practice has become
    far less common in recent years.  There have been cases where
    brides have been brought from Syria to southeast Turkey, but
    this is not common, according to Flying Broom.

    ----------
    Prevention
    ----------

    ¶A. (U) While government officials acknowledge that
    trafficking occurs, they argue that its scope is limited.
    They state that Turkey has a problem of foreign prostitution
    and illegal migration, contending that Turkey's liberal visa
    regime for Balkan, Black Sea Littoral, and Caucasian states
    -- usually an automatic visa at the border for a nominal fee
    -- obviates the need for human smuggling gangs.  However, in
    response to international pressure, the GOT over the past two
    years has taken what IOM has described as "remarkable steps"
    to combat TIP both in Turkey and in the region.

    ¶B. (U) Government agencies involved in anti-trafficking
    efforts include the Ministry of Foreign Affairs; the Ministry
    of the Interior, which oversees the police, Jandarma
    (paramilitary rural police), and border guards; the Ministry
    of Labor; the Ministry of Justice; the Ministry of Health;
    and the Directorate on the Status and Problems of Women
    attached to the Ministry of Labor.

    ¶C. (U) There have not been any nationwide anti-trafficking
    campaigns aimed at the general public.  Ad hoc, individual
    governors and police officials are reported to have engaged
    in public awareness campaigns against trafficking at the
    local level utilizing local NGOs.  In December 2003, the
    Directorate General on the Status and Problems of Women held
    its second annual panel in Ankara on human trafficking.  Law
    enforcement officials from around the country, journalists,
    and NGO representatives attended the event.  In July 2003 the
    Tourism Ministry distributed a guide to the tourism industry
    notifying companies that the government is obligated by
    international agreement to take measures against foreigners
    visiting the country for sex tourism.  In August 2003 FM and
    Deputy PM Gul issued a press statement on TIP, distributed
    widely to media outlets.

    ¶D. (U) As noted para I in Overview section, the GOT signed an
    anti-TIP protocol in September 2003 with HRDF.  The protocol
    included a number of anti-TIP initiatives, including:
    providing shelters for TIP victims; establishing a center to
    provide medical and legal assistance to TIP victims; and
    raising public awareness of TIP.  Neither the GOT nor HRDF
    has secured funding for the protocol, but HRDF did fulfill
    its obligation to establish a regional network with NGOs in
    neighboring countries to coordinate on trafficking issues.

    ¶E. (U) The GOT (which is currently operating under an IMF
    program that sets targets related to its budget) claims
    financial difficulties in funding prevention programs.
    However, the GOT is pursuing alternate funding opportunities,
    most notably NGO support, and expanding current training
    programs to GOT officials on TIP.

    ¶F. (SBU) As noted above, the GOT signed an anti-TIP protocol
    in September 2003 with HRDF, an Istanbul-based NGO.
    According to IOM, which recommended HRDF for the protocol,
    there are few NGOs in Turkey with TIP expertise.  The GOT
    cooperates with IOM, UNHCR and the EU on TIP-related training
    for judicial and law enforcement officials.  However, the GOT
    and IOM have not established a voluntary repatriation
    program, in part because the GOT is reluctant to provide IOM
    with the airport access necessary to escort returnees until
    they board the airplane.

    ¶G. (SBU) Turkey borders Georgia, Azerbaijan, Armenia, Iran,
    Iraq, Syria, and Bulgaria, as well as EU member Greece.
    Istanbul has a large international airport and there are also
    international ports of entry by land, sea, and air through
    several other cities, including Ankara, Trabzon, Erzurum,
    Adana, and Sarp, on the Georgian border.  Although the
    government expends considerable law enforcement resource to
    monitor its borders, which are vast and remote, it is not
    always successful, and the smuggling of goods and humans
    occurs.  Contacts report, however, that the vast majority of
    trafficking victims and other foreign women who engage in
    prostitution enter Turkey legally, either by getting work
    permits at Turkish Embassies abroad or, more commonly, by
    obtaining one month visas at the border.  Since the collapse
    of the Soviet Union, Turkey has adopted a liberal visa regime
    with countries formerly in the Soviet Empire to encourage
    trade and tourism.  Women who are deported for prostitution
    come back repeatedly, according to police.  They alter their
    names slightly or receive a passport in an entirely different
    name with the help, according to Turkish police, of corrupt
    officials in source countries or organized criminals.  Poor
    centralization in Turkish border control or corruption may
    also aid reentry.  Only the passports of women testing
    positive for sexually transmitted diseases are scanned into a
    centralized computer system.

    ¶H. (U) See para G in Overview section.

    ¶I. (U) Turkey plays an active role in the international
    community by regularly attending conferences hosted by SECI,
    USDOS, and IOM.  GOT further works with the United Nations,
    OSCE (Stability Pact and ODIHR), Interpol, and the European
    Union to combat trafficking.  Turkey has been especially
    active in the Trafficking Task Force within the framework of
    the Stability Pact/ODIHR.  In November 2003 the GOT submitted
    a draft protocol proposing bilateral anti-TIP cooperation
    with Ukraine, Moldova, Azerbaijan, Georgia, Bulgaria,
    Romania, Russia, and Belarus.  To date, according to Security
    Director and Head of the Department of Foreigners Border and
    Immigration Affairs Mehmet Terzioglu, only Belarus has
    responded.

    ¶J. (U) See para G in Overview section.  The National Action
    Plan has been submitted to all relevant government agencies,
    and is available upon request.  Embassy submitted a copy to
    G/TIP shortly after the plan was adopted in March 2003.

    ¶K. (U) The MFA's Deputy Director General for Illegal
    Migration spearheads the GOT's anti-trafficking initiatives
    as head of the coordinating body for all agencies involved.

    -----------------------------
    Investigation and Prosecution
    -----------------------------

    ¶A. (U) On August 3, 2002, the Turkish Parliament passed
    anti-trafficking legislation, Article 201(b) of the Turkish
    Penal Code.  The text of the law is as follows:

    "Those who provide, kidnap, take or transfer from one place
    to another and house other individuals with the intention of
    making them work or serve by force, subject them to slavery
    or similar treatment, threaten, pressure, use force or
    coercion to persuade them to give up their bodily organs, use
    undue influence, secure their consent by deception or by
    using the desperation of such individuals shall be sentenced
    to five to ten years of heavy imprisonment and a heavy fine
    of not less than one billion liras.

    "If the actions that constitute a crime attempted with the
    intentions laid out in the first paragraph exist, the victim
    is assumed not to have given his/her consent.

    "If the children below the age of eighteen are provided,
    kidnapped, taken or transferred from one place to another or
    housed with the intentions specified in paragraph one, even
    when no intermediary actions relation to the crime are
    committed, the penalties foreseen in paragraph one shall
    still be applied to the perpetrator.

    "If the crimes listed in the paragraphs above are committed
    in an organized manner, the penalties foreseen for the
    perpetrators shall be doubled."

    ¶B. (U) The penalty for traffickers is five to ten years of
    heavy imprisonment and a fine of not less than one billion
    Turkish Liras.  These penalties may be doubled if the crimes
    were committed in an organized manner.

    ¶C. (U) According to the Turkish Penal Code Article 416, the
    penalty for rape and/or forced sexual assault is at least
    seven years.  Attorney contacts note, however, that rape is
    difficult to prove and suspects may receive lighter sentences
    for various reasons related to the incident.  There are also
    articles in the Penal Code that: allow rapists to avoid
    punishment if they marry their victims; set different levels
    of punishment depending on whether the victim is married, or
    a virgin; and define rape as a crime against society rather
    than a crime against the individual.

    ¶D. (U) Prosecutors have opened 14 cases against alleged
    traffickers under the anti-TIP legislation adopted in August
    2002, charging a total of 46 suspects.  Courts have ruled for
    acquittal in three cases; the remaining cases are ongoing.

    ¶E. (SBU) Contacts repeatedly state that trafficking, where it
    exists, is in the hands of small operators.  Groups may be as
    small as four or five people who are connected, most often,
    through kinship or friendship.  Increasingly, former
    prostitutes who have gained Turkish citizenship are working
    as procurers and pimps and bring women on tourist visas.
    Traffickers posing as tourist agencies or firms in source
    countries bring women to Turkey with official work permits.
    Hotel owners are also believed to coerce women who work as
    prostitutes.

    ¶F. (U) Official sources tell us Turkey actively investigates
    cases of trafficking using special investigation techniques.
    Police officials in Trabzon stated they used primarily
    undercover operations against traffickers.  The Ministry of
    Interior recently instructed governorships to issue
    humanitarian visas and temporary residence permits for
    victims to begin rehabilitation.  Our legal contacts hope
    these visas and residence permits will allow victims to serve
    as witnesses in investigations and trials of traffickers.
    Mitigated punishment or immunity for cooperating suspects may
    be granted unofficially; under Turkish law, there is no
    policy for plea-bargaining or other confessional treatment
    for victims of trafficking.

    ¶G. (U) The GOT provides formal training programs on
    trafficking for police and judicial officials.  The Ministry
    of Justice has given several training seminars to
    approximately 600 judges and prosecutors on the issue of
    combating TIP between October 2002 and February 2003.  The
    Ministry of Interior conducted a trafficking training program
    for 75 police officials.  As these training programs were
    internally developed and administered, Post is unaware of the
    content discussed or length of these seminars.  The GOT also
    provides special training to the TNP's Foreigner Section
    officials in areas such as visa fraud, passport forgery, and
    illegal entries.  During 2003, UNHCR included an IOM TIP
    module in its Jandarma training program, and IOM has provided
    TIP training to prosecutors and Justice Ministry officials.

    ¶H. (U) Turkey maintains security cooperation agreements,
    which deal with trafficking, with Belarus, Moldova, Ukraine,
    Georgia, Azerbaijan, Bulgaria, Romania, and Russia.  Other
    than from Belarus, the GOT says it has not received a
    response to a diplomatic note it sent in July 2003 to eight
    source countries (Bulgaria, Romania, Moldova, Russia,
    Georgia, Azerbaijan, Ukraine, and Belarus) seeking closer
    cooperation on combating TIP.  In November 2003 the GOT
    prepared a draft protocol on bilateral anti-TIP cooperation
    and submitted it for consideration to the governments of the
    eight source countries.  Turkey cooperates with the OSCE, EU,
    Interpol, Europol, and the Black Sea Economic Cooperation.
    GOT officials have attended numerous international
    conferences on the issue of trafficking, organized by
    governmental and NGO bodies.

    ¶I. (U) We have no information regarding the extradition of
    persons charged with trafficking from other countries or
    whether or not the government allows the extradition of its
    own nationals, if any, charged with such offenses.

    ¶J. (SBU) See para H in Overview section for information on
    police accused of involvement in trafficking.  We have no
    direct evidence of official involvement in or tolerance of
    trafficking at higher levels.  Contacts state there is some
    tolerance of foreign prostitution as long as it is kept
    within certain limits.  Authorities may turn a blind eye in
    the belief prostitution brings an economic benefit.  Places
    where foreign women congregate may provide a cover for
    trafficked women.

    ¶K. (U) We do not have any evidence of GOT involvement in
    trafficking.

    ¶L. (U) Turkey has adopted the following conventions:

    -- ILO Convention 182 (Ratified early 2001).

    -- ILO Convention 29 and 105 on Forced or Compulsory Labor
    (ILO Convention 29 went into effect on January 27, 1998 and
    ILO Convention 105 on December 21, 1960).

    -- Optional Protocol to the Convention on the Rights of the
    Child on the Sale of Children, Child Prostitution, and Child
    Pornography (Ratified May 9, 2002).

    -- The Protocol to Prevent, Suppress and Punish
    Trafficking-in-Persons, especially Women and Children,
    Supplementing the UN Convention Against Transnational
    Organized Crime (Signed December 2000; Ratified January 31,
    2003 and put into force February 4, 2003).

    -------------------------
    Protection and Assistance
    -------------------------

    ¶A. (U) The GOT has established a Humanitarian Visa and
    Temporary Residence Permit to allow TIP victims to remain in
    the country for rehabilitation and treatment.  The MFA
    indicates authorities have issued such visas to 16 TIP
    victims; several others were offered the visas, but decided
    to return to their home countries instead.  According to
    Security Director Mehmet Terzioglu, in an effort to comply
    with Stability Pact provisions, these special residency
    permits have been extended from 1 month to 5 months.  In
    August 2003, the GOT adopted a measure allowing TIP victims
    to receive free medical treatment.  If a foreign woman is
    detained for prostitution, she is tested for sexually
    transmitted diseases (STD) before deportation.  According to
    the police chief in Trabzon, if a woman tests positive for a
    STD and requests assistance, she would receive medical help.

    ¶B. (U) The GOT in September 2003 signed an anti-TIP protocol
    with the Istanbul-based HRDF (see para D in the Prevention
    section) that includes shelters, but has not funded the
    initiative.  No other Turkish NGOs provide such services.
    HRDF has worked with IOM to assist in the return of foreign
    women who have been detained for prostitution or escaped from
    traffickers.

    ¶C. (SBU) There is no established, consistent screening and
    referral process in place.  GOT officials claim police
    regularly screen illegal migrants to determine whether they
    might be trafficking victims; this appears to be true in some
    cases, but it is not clear how often this happens in practice.

    ¶D. (U) It is longstanding police practice to deport illegal
    migrants, and foreign women detained for illegal
    prostitution.  Subjects of most such cases have generally
    been deported within two weeks of detention.  The concept of
    screening illegal migrants to determine whether they may be
    TIP victims is new, and implementation has been slow.

    ¶E. (U) We have no evidence indicating that victims are
    encouraged to file civil lawsuits or seek legal action
    against traffickers.  The introduction of humanitarian visas
    and temporary residency permits (see para A) may help enable
    victims to seek legal action.

    ¶F. (U) To our knowledge, the government does not provide
    protection to victims and witnesses.

    ¶G. (U) See para G in Investigation and Prosecution section.
    Turkey is not a source country.

    ¶H. (U) Turkey is not a source country.

    ¶I. (U) See para D in Prevention section on HRDF.  No other
    Turkish NGOs work with trafficking victims to our knowledge.
    EDELMAN

`