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### Viewing cable 05HELSINKI407, FINLAND: UPDATE ON TRAFFICKING-IN-PERSONS; FINLAND

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
05HELSINKI407 | 2005-04-07 15:03 | 2011-04-24 00:00 | UNCLASSIFIED | Embassy Helsinki

`

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

` `

    UNCLAS SECTION 01 OF 04 HELSINKI 000407

    SIPDIS

    DEPARTMENT FOR G/TIP, EUR/PGI, AND EUR/NB

    E.O. 12958: N/A
    TAGS: PHUM SMIG SOCI FI
    SUBJECT: FINLAND: UPDATE ON TRAFFICKING-IN-PERSONS; FINLAND
    RELEASES LONG-AWAITED NATIONAL ACTION PLAN

    REF: A. HELSINKI 00274
         ¶B. HELSINKI 00353

    Summary
    -------

    ¶1. (U) This supplemental report provides additional
    information about trafficking and Finland, in particular
    Finland's newly released National Action Plan, which centers
    on victim assistance.  The 66-page plan was released on March
    ¶31.  An English language translation of the entire plan is
    expected in the near future, but this cable summarizes many
    of the key points.  We also address various questions post
    received from EUR and G/TIP after Ref A was submitted.  End
    Summary.

    Finland's New National Action Plan
    ----------------------------------

    ¶2. (U) Foreign Minister Erkki Tuomioja unveiled Finland's new
    National Action Plan (NAP) to combat trafficking-in-persons
    on March 31.  Speaking at a televised press conference before
    Finland's national press, and flanked by the members of
    Finland's anti-trafficking interagency working group,
    Tuomioja said that Finland had been "too sanguine" in the
    past about human trafficking, and that the NAP was a strong
    signal that Finland was aware of the problem and ready to do
    its share along with other EU countries.  Tuomioja described
    the NAP as a "human rights-based and victim-centered"
    approach aimed at preventing human trafficking, protecting
    and assisting victims, and ensuring that those guilty of
    human trafficking are prosecuted and punished.

    ¶3. (U) Johanna Suurpaa, the working group's chairperson and
    Director of the MFA's Human Rights Unit, told reporters that
    identification of TIP victims was the most difficult and
    important issue in the short term; the lowest possible
    threshold should be set as regards investigating situations
    where trafficking is suspected.  She also said that demand
    reduction campaigns needed to feature as prominently as
    victim assistance and investigations.  (Note: This was a
    point particularly stressed by Finnish President Halonen in
    the June 2003 conference on combating trafficking that was
    co-sponsored by the Embassy and the GoF.)  Suurpaa added that
    a new telephone hotline would be set up in Finland for TIP
    victims -- or anyone else with information about suspected
    trafficking.

    ¶4. (U) Major Ilkka Herranen, Regional Commander of Finland's
    Frontier Guard, told reporters that the USG has been correct
    in pointing out that Finland has a problem with
    trafficking-in-persons.  (Note: Herranen is scheduled to
    participate in the June 2005 European regional International
    Visitor program on combating trafficking in persons.)

    ¶5. (U) Members of the press asked the Finnish officials
    several pointed questions about the recent case in which a
    busload of Georgian women was stopped at the Finnish-Russian
    border and the passengers ultimately denied entry into the
    Schengen area (Ref B).  Reporters wondered whether the police
    had acted inappropriately by taking the women into protective
    custody.  Tuomioja and the other officials present strongly
    defended the police's actions, and said that investigating
    the suspicious situation had been the right thing to do.
    (Note: As reported Ref B, it was first suspected that the
    women were being trafficked for sexual purposes.  GoF
    ministries drew on the as-yet-unpublished NAP to guide their
    response, housing the women passengers at a refugee-asylum
    center and interviewing them over the course of several days
    to attempt to determine whether they were trafficking
    victims, rather than returning them outright.)

    A Victim-Centered Approach
    --------------------------

    ¶6. (U) Finland's NAP is based on three principles: 1) all
    efforts against human trafficking must be grounded in human
    rights and must focus on the victim, 2) emphasis must be
    placed on the "gender perspective" and the particular
    vulnerability of women in certain trafficking situations, and
    3) intra-governmental cooperation within Finland, and
    bilateral and multilateral cooperation among like-minded
    partners, are essential.  The NAP covers the entire chain of
    human trafficking.  The need for continued
    government-sponsored demand reduction efforts is highlighted,
    as is the need to aggressively implement Finland's new
    anti-TIP law, enacted last August.  However, the NAP's core
    consists of new guidelines for victim assistance.  Highlights
    of the NAP's victim-centered approach include:

    -- Temporary Residency:  The EU Council Directive
    (2003/81/EY) -- stating that by August 6, 2006 EU members
    must pass legislation guaranteeing some form of temporary
    residency to victims -- will be enacted.  It may be possible
    to amend Finland's current "Alien's Act" to specifically
    provide temporary residence for victims.  TIP victims would
    not be returned or deported while the permit was being
    processed, even if they were illegally in the country.
    Victims would also be able to work inside Finland without
    having to obtain a standard labor permit.  Victims would be
    given time before having to decide whether they wished to
    apply for the residency permit or return to their home
    country.

    -- Witness Protection:  A witness protection program will be
    set up to enable victims to testify anonymously at trials of
    traffickers.  Protection would extend to the victims'
    families as well.  This will require new legislation, since
    persons accused of any crime in Finland have the right to
    "face their accuser" in court, and there are no exceptions in
    current Finnish law for special circumstances like
    trafficking.

    -- Housing: Certain safehouses and shelters will be dedicated
    for TIP victims; they will also be able to live in private
    dwellings if they have the resources and so choose.

    -- Income/Support: Victims will have the right to earn income
    and receive support while in Finland.

    -- Education: Victims will have the right to language
    training, basic literacy skills training, and vocational
    training.

    -- Integration: The Social Affairs Ministry will be
    responsible for designing an integration program for victims
    to help them live and, if they so choose, eventually
    assimilate into Finnish society.  Part of this will be the
    appointment of a National Rapporteur for Trafficking Victims.

    -- Psychiatric Services: Victims will receive psychiatric
    services and counseling from the national health service,
    particularly recognizing the trauma that victims of sexual
    exploitation have gone through.

    -- Health: Victims will eligible to use the full range of
    Finland's national health services.

    -- Legal Assistance: Victims will have, and be advised of,
    the right to legal assistance and counseling.

    ¶7. (U) The NAP will now be sent by the Foreign Minister to
    the Council of State for adoption as GoF policy; no
    objections to the NAP are expected as the key ministries
    involved were all a part of the interagency working group
    that drafted the plan, and as both President Halonen and
    Prime Minister Vanhanen have voiced support.  A new
    interagency working group, co-chaired by the Interior and
    Social Affairs Ministries, will be appointed to oversee the
    Plan's implementation.

    Addressing the Department's Questions on
    ----------------------------------------
    the Scope of Trafficking in Finland
    -----------------------------------

    ¶8. (U) Embassy understands that there may be some confusion
    about the number of women entering Finland for prostitution
    each year.  Post reported in Ref A that police and NGOs
    estimate there were 6000-8000 entries into Finland each year
    by women for prostitution.  Since many women enter Finland
    multiple times each year to engage in prostitution, the
    actual number of women involved would be lower than
    6000-8000; some of these might have been trafficked into the
    country.  The 6000-8000 entry estimate, or similar estimates,
    have been quoted for several years in press and NGO accounts
    of prostitution and/or trafficking in Finland.  However, no
    hard figures exist.  While preparing this supplemental
    report, post pressed both GoF and NGO contacts about the
    accuracy of this commonly cited 6000-8000 range.  Without
    exception, these contacts backed away from the estimate and
    said that there was no way to know the actual incidence of
    prostitution or trafficking in Finland since neither the
    police nor NGOs have conducted any systematic surveys.  Post
    now believes that the previous 6000-8000 figure was more the
    result of self-referential feedback from government and NGO
    contacts than a scientific estimate.

    ¶9. (U) Finland's National Action Plan states that while the
    actual incidence of TIP in Finland is unknown, there could
    "possibly be hundreds" of women and girls trafficked to and
    through Finland each year.  Johanna Suurpaa, the Director of
    the MFA's Unit for Human Rights and chairperson of the
    interagency anti-TIP working group, admitted to PolOff that
    even this number is ultimately a guess and not based on a
    survey.  The IOM office in Helsinki declined to speculate as
    to the incidence of trafficking into and through Finland.
    According to Lucy Laitinen, the IOM's regional anti-TIP
    coordinator, there has never been a systematic survey done in
    Finland to estimate scope or incidence.  She said that the
    IOM had no current cases open in Finland.  The IOM has
    submitted a proposal to the GoF to undertake a survey of
    trafficking in Finland.
    ¶10. (U) Reftel B cites new information that as many as 1500
    women may have been trafficked or smuggled through Finland
    from Georgia since 2002.  It is not known whether these women
    were involved with commercial sex trafficking, labor
    trafficking, or labor smuggling/illegal immigration, although
    the GoF has stated that it believes "at least some" were part
    of the commercial sex trade.  Some Georgian officials and
    media have subsequently criticized the GoF for its handling
    of the case, claiming that the women were legitimate tourists
    and were victims of police discrimination.

    Prostitution vs. Trafficking
    ----------------------------

    ¶11. (U) All Embassy contacts in Finland cite the difficulty
    in disaggregating prostitution from trafficking as a main
    reason no hard estimates exist as regards TIP.  It is
    believed that most foreign prostitutes in Finland come from
    nearby countries and voluntarily enter Finland to engage in
    prostitution.  There are a small number of known cases, such
    as that cited in Ref A section 18 (B) detailing a Latvian
    minor who was duped by traffickers into believing that she
    would be offered a job picking strawberries only to be forced
    into prostitution.  Such cases may be the exception rather
    than the rule, however.  When trafficking for purposes of
    sexual exploitation occurs in Finland, it is almost always
    because women who have become involved with organized crime
    syndicates find themselves coerced into continuing to work as
    prostitutes after their "contract" has been altered and the
    conditions in which they work have been changed (negatively).
     According to police, such coercion may be violent,
    aggressive (taking away passports or threatening the victim's
    family), or more psychological and subtle.  Finnish police
    cannot say how many foreign prostitutes may be subject to
    such coercion, thereby making them TIP victims.  However, the
    police do report that they do not believe that a majority of
    foreign prostitutes in Finland are subject to such coercion.
    NGOs inside Finland seem to agree with this assessment.  Lucy
    Laitinen of IOM told PolOff that the Finnish situation was
    "one of the most difficult" that IOM was working with as
    regards the disaggregation of trafficking from prostitution;
    as mentioned above, she would not even speculate as to the
    number of women possibly trafficked to and through Finland
    each year.

    ¶12. (U) As reported in Ref A, Finnish police report that
    there were 12 investigations in 2004 that led to multiple
    arrests and the break-up of prostitution rings; there were 31
    total prosecutions from these cases (for pimping).  Since
    these crimes occurred before Finland's new TIP law came on
    the books, it is unknown how many of these cases might
    actually have involved trafficking.

    ¶13. (U) Since Finland's new TIP law was enacted last August,
    three investigations into possible trafficking have been
    initiated and are still underway; the investigations have not
    yet been referred to prosecutors.

    The Estonian Connection to Trafficking in Finland
    --------------------------------------------- ----

    ¶14. (U) Finnish officials and NGOs agree that, as reported in
    Reftel A, most foreign prostitutes in Finland come from
    Russia and Estonia; the GoF and NGOs presume that this also
    holds for most trafficking victims, although they can provide
    no numbers to back this up.  Major Ilkka Herranen, Regional
    Commander of Finland's Frontier Guard, told PolOff that he
    believes perhaps "75% of foreign prostitutes in Finland are
    Russian and 25% are from Estonia," but declined to provide
    actual numbers.  Herranen also opined that given the ease
    with which Estonians can travel to and from Finland, there
    were probably more Russian trafficking victims than Estonian.
     Herranen and other Finnish authorities said that Estonian
    prostitutes in Finland were generally better educated and
    "more sophisticated" than Russian prostitutes and seemed less
    likely to become victims of trafficking; the Russian women
    were much more isolated and cut off from their home
    communities, whereas the Estonian women could communicate
    more effectively (given the close relationship of the Finnish
    and Estonian languages), could maintain close contact (even
    daily) with friends and family in Estonia via mobile phones,
    and were only a 90-minute ferry ride away from their
    homeland.  Because of this, Herranen opined that most
    Estonian prostitutes were associated with crime rings or were
    freelancers, but were not victims of trafficking.

    ¶15. (U) Finland's Frontier Guard reported that in 2003, 150
    Estonian women were denied entry into Finland for suspicion
    of prostitution; most had entered Finland multiple times and
    made contradictory statements about their trips during
    secondary inspection.  Some confessed to coming to Finland to
    work as prostitutes, although some maintained their
    innocence.  Few women showed any inclination to cooperate
    with Finnish authorities, and most asked to return to Estonia
    on the next ferry.  The Frontier Guard report only ten such
    cases in 2004.  Herranen attributed the drop to Estonia's EU
    accession.  He said that Estonians entering Finland are no
    longer subject to the same screening procedures as before,
    and that only extremely suspicious persons or persons already
    entered into Finland's law enforcement database would be
    questioned.  Given the paucity of information about possible
    Estonian trafficking victims in Finland, post defers to
    Embassy Tallinn's reporting for more definitive information.

    ¶16. (U) In addition to Russia and Estonia, other countries
    that have been cited as possible source countries for
    trafficking to and through Finland in recent years include
    Georgia, Ukraine, Belarus, Moldova, Latvia, Lithuania, and
    most recently China, Thailand, and other "unspecified Asian
    countries."  There are no numbers for how many women from
    these countries might have been trafficked to and through
    Finland other than the Georgian case detailed in Ref B and
    the Latvian minor mentioned in Ref A.

    ¶17. (U) In conclusion: Now that Finland has a National Action
    Plan in place, one that engages the GoF and local NGOs in
    victim assistance, we would expect that over time more
    concrete information on each of the issues raised above will
    develop.  We also expect this process of clarification to be
    aided by the new U.S.-funded anti-trafficking NGO project
    involving an Estonian NGO with Finnish partners (Ref A para
    (19)(C)).
    MACK

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