FINLAND: 2007 ANNUAL TRAFFICKING-IN-PERSONS REPORT

UNCLAS SECTION 01 OF 08 HELSINKI 000122 SIPDIS SIPDIS STATE FOR G/TIP, G, INL, DRL, PRM, EUR/NB AND EUR/PGI E.O. 12958: N/A TAGS: KCRM PHUM KWMN SMIG KFRD ASEC PREF ELAB FI SUBJECT: FINLAND: 2007 ANNUAL TRAFFICKING-IN-PERSONS REPORT REF: A. 06 STATE 202745 ¶B. 06 HELSINKI 1156 ¶C. 06 HELSINKI 724 ¶1. (SBU) The following responses are keyed to the checklist in ref A. Post's point-of-contact on TIP is Political Officer David Allen Schlaefer; SchlaeferDA2@state.gov; 358-9-6162-5482 or 358-050-322-7923. Overview of Trafficking in Finland -------------- ¶2. (SBU) A: Finland is a transit and destination country for trafficked men, women, and children; it is not a source country. There are no reliable estimates as to the actual incidence of TIP in Finland, and there have been no comprehensive studies of the phenomenon. The GoF is considering funding an IOM survey of trafficking in Finland, but as of early 2007, the project has not yet begun. Destination cases are probably much lower than transit cases. Most victims trafficked through Finland are probably women and girls destined for western Europe's commercial sex industry and come from Russia, China, and, to a lesser extent, Moldova, the Baltic countries, and the Caucasus. ¶3. (SBU) B: There is both commercial sex and labor trafficking in Finland. The distinction between trafficking and smuggling, especially in labor cases, is often murky. Trafficking of women and girls for purposes of sexual exploitation is probably the larger problem. There are no "red light" districts in Finland, and there are only a handful of nightclubs and casinos in cities such as Helsinki, Turku, and Tampere that are associated with the Russian mafia. Russian women (primarily) work as prostitutes inside some of these nightclubs, and Finnish authorities and NGOs believe some of these women have been trafficked. Since the last TIP report, Finnish law enforcement authorities have cracked down on prostitution and some of the clubs have closed. In July 2006, the most "infamous" of the Russian clubs in Helsinki--Mikado--closed after successive raids by Finnish police. This has led to most prostitutes working out of private apartments. Services are solicited using internet ads or through word of mouth. Some prostitutes using this method are "independent", and others may be trafficking victims involved with organized crime syndicates. In general, Finnish women working as prostitutes are "independent", and Russian and other East European women are involved in trafficking. There are also a few "Thai Massage" parlors where Asian women may work as de facto prostitutes. ¶4. (SBU) B, cont.: Authorities believe that most women and girls who are trafficked to Finland are aware that they will work as prostitutes upon arrival; they do not, for example, believe that they will be domestic servants or agricultural workers. After arrival, the "rules" are changed, and they receive less compensation and are pressured to see more clients than anticipated. Most of these women come from larger cities in Russia and the former Soviet world. Finnish authorities believe that economic coercion and exploitation of women with limited financial resources plays a larger role than physical coercion in the recruitment and retention of these women by crime syndicates. In most cases, the victims' passports are taken by the traffickers, and their finances are controlled as well. The Finnish police believe that in order to elude authorities, Russian syndicates "rotate" women in and out of Finland frequently; a practice facilitated by the short traveling distances between major Russian cities like St. Petersburg and Finland. ¶5. (SBU) B, cont.: The GoF began focusing on labor trafficking in 2006. It is believed that most labor trafficking is small-scale and tied to ethnic businesses like restaurants. Labor victims are predominantly Asian or Indian. There is often a family or clan connection between the organizers/owners and the trafficked workers. The workers voluntarily enter Finland (legally or smuggled) for economic reasons, but after arrival, are forced to work long hours for minimal wages. Passports may be taken and the threat of violence or turning the victim over to immigration authorities is used. Finnish law enforcement authorities report that it is extremely difficult to investigate such cases due to the closed nature of immigrant communities in Finland, language barriers, and the unwillingness of victims and material witnesses (of the same ethnic group) to cooperate with the police. The incidence of labor trafficking to Finland is unknown, but authorities believe there may be dozens of trafficked workers in major cities. HELSINKI 00000122 002 OF 008 ¶6. (SBU) B, cont.: Despite the presence of Russian criminal organizations in Finland, the actual number of TIP victims inside the country appear low. However, Finnish police are increasingly concerned about the transit dynamic, particularly trafficking from Asia. Chinese snakehead gangs began using expanded air routes among Helsinki, Beijing, Shanghai, and Bangkok several years ago to facilitate human smuggling and trafficking. Migrants and TIP victims that arrive at Helsinki's Vantaa airport then change planes and fly to their final destination elsewhere in the Schengen region. Since the travellers usually have valid visas for their final destination and--even in TIP cases--are often uncooperative when referred to secondary inspection, it is difficult for Finnish Frontier Guard and Customs officials to intercept them. Moreover, any migrant of any type who is detained has the opportunity to claim asylum before deportation or other legal proceedings begin, and any smuggled or trafficked persons intercepted in this way are typically taken to an asylum and refugee processing center (reception center) the first night that they are in Finland. Finnish reception centers are "open," and almost all of the referred persons disappear within 24 hours of arrival. It is presumed that they left the centers voluntarily, met their organizers, and continued on toward their destination by ferry. ¶7. (SBU) B, cont.: There is strong political will at the highest levels to combat TIP. President Tarja Halonen, Foreign Minister Erkki Tuomioja, and Interior Minister Kari Rajamaki make frequent public statements on trafficking. The National Bureau of Investigation (Finland's FBI equivalent), the Frontier Guard, the Immigration and Customs Service, and the police are all active in the fight against TIP. An interagency GoF task force exists to coordinate anti-trafficking policy. ¶8. (SBU) C: Corruption is not a problem in Finland. Law enforcement and legal authorities suffer from some underfunding due to budget constraints. ¶9. (SBU) D: The government makes periodic reports and statements about its anti-TIP efforts; and the interagency working group holds an annual review of government activities. The MFA maintains a list of projects outside of Finland's borders that the GoF contributes to. The government also disseminates information through multilateral organizations like the Nordic-Baltic Task Force Against Trafficking. Prevention Efforts -------------- ¶10. (SBU) A: The Finnish Government acknowledges that TIP is a problem in Finland. ¶11. (SBU) B: An interagency task force exists comprised of the following ministries and agencies: Foreign Affairs, Interior, Justice, Social Affairs and Welfare, Labor, National Bureau of Investigation (NBI),Frontier Guard, local police, and NGOs. The task force is co-chaired by the Labor and Interior Ministries. The Labor Ministry currently has the lead coordinating role. ¶12. (SBU) C: Domestic Finnish Government programs typically target demand reduction. The Social Affairs and Welfare Ministry has the lead on domestic prevention programs. Several programs specifically target Finns who might travel abroad to engage in sex tourism, and in 2006 there was more attention paid to this phenomenon and the responsibility of men who engage in such behavior for trafficking. As in past years, during the reporting period posters and other media targeting clients and challenging the view that sex tourism is a "victimless" crime have been displayed at ports-of-entry, post offices, and other locations. A separate information campaign also ran from 2003-2006 in northern Finland that aimed at discouraging potential clients and advising Russian women that they could seek help from Finnish authorities. Similar campaigns took pace in Finnish Karelia and Oulu. The Education Ministry includes education about trafficking in its curriculum for high school students. The GoF also funds an NGO-operated hotline for TIP and domestic violence victims. ¶13. (SBU) D: Finland's largest prevention projects are outside its borders, aimed at creating economic opportunity for at-risk women and girls before they are caught up in the HELSINKI 00000122 003 OF 008 trafficking dynamic. Projects that are currently being funded by the GoF include: Russia: -- In St. Petersburg, Finland has funded a 400,000 Euro ILO-IPEC (International Program for the Elimination of Child Labor) program to combat the abuse of homeless children preyed on by traffickers and sexual predators. The program runs from 2005-2007. -- In Kaliningrad, Finland has funded a 151,040 Euro project called "Trafficking Assessment and Counter-trafficking Capacity Building for the Kaliningrad Oblast." The aim of the project is to prepare an extensive study on human trafficking in the region and promote cooperation among local judicial, police, and NGO actors, to combat TIP. The project was slated to end in 2006, but is still running with Finnish funding. -- In Moscow, Finland has funded a 300,000 Euro ILO-IPEC program to combat the abuse of homeless children at-risk for trafficking. The program runs from 2005-2007. -- The Finnish missions in St. Petersburg and Moscow have given small grants to local NGOs for counter-trafficking work. Uzbekistan: -- Finland plans to fund a UN Office of Drugs and Crime project called "Measures to prevent and combat trafficking in human beings in Uzbekistan" that is set to begin in 2007. The funding level has not yet been determined. Moldova: -- Finland is currently financing a project by the International Helsinki Foundation (IHF) that aims to combat human trafficking through a combination of police training and education campaigns for women's rights. IOM Projects: -- Finland is a donor to the IOM counter-trafficking project "Prevention and Capacity-Building in Kosovo and Macedonia", which is an ongoing project that began in 2004. -- Finland is a donor to the IOM counter-trafficking project "Prevention of All Forms of Trafficking in Women and Children in Cambodia", which is an ongoing project that began in 2003. Other Multilateral/Multinational Projects; -- Finland's support for UNICEF is partly allocated to anti-trafficking measures. -- Finland supports ECPAT (End Child Prostitution, Child Pornography, and Trafficking of Children for Sexual Purposes),an international NGO active in Russia and the Nordic-Baltic region. -- In addition to the above projects, Finland plays an active role in the anti-TIP efforts of the Nordic-Baltic Task Force Against Trafficking, the Council of Baltic Sea States, the Barents-Euro Arctic Council, and provides additional funding to these organizations. ¶14. (SBU) E: Finland is a social welfare state where the government is expected to assume responsibility for many services that elsewhere are largely provided by NGOs. As a result, there are no NGOs working exclusively on TIP, and only a few that address it among other issues of concern to women. Finnish NGOs receive almost all of their funding from the GoF with few restrictions on their activity; however, Finnish NGOs in the past have been critical about the government's response to the problem. This began changing in 2004-2005 when NGOs were invited to participate in the drafting the country's National Action Plan on TIP, and throughout 2006 relations continued to improve. The Labor Ministry has formed a partnership with several NGOs that run shelters for victims of domestic violence so that identified TIP victims can be referred there (rather than remain in government-run shelters) whenever possible. NGO HELSINKI 00000122 004 OF 008 representatives are also participating in police training programs on victim identification, and during the reporting period, the International Organization for Migration (IOM) held a series of training seminars for Finnish law enforcement authorities and police. Finn Church Aid, the Finnish Lutheran Church's assistance organization, has formed a particularly close collaborative relationship with the GoF, and the Finnish Orthodox Church in 2006 took similar steps to draft an action plan to assist in the fight against trafficking. ¶15. (SBU) F: Finnish law enforcement authorities monitor immigration patterns and screen applicants at ports-of-entry for TIP victims. The NBI and Frontier Guard maintain liaison officers throughout Europe, Russia, and Asia, and cooperate with other law enforcement services (including EU agencies like Europol and Eurojust) to detect and monitor trafficking patterns. In 2006, the GoF particularly concentrated on detection of Asian smuggling and trafficking routes. Given the close geographic proximity of St. Petersburg to the Finnish border, Finnish consular officers face a difficult task in screening visa applicants. Russian applicants with modest resources may still credibly claim they intend to make a short, inexpensive visit to Finland for shopping or to visit friends, making adjudication tricky. Political pressure from Russia to keep visa refusals low also complicates adjudication. In response to this, the GoF designed and implemented a training program for consular officers to assist them in better detecting trafficking situations as well as how to follow up when TIP is suspected. The program was developed in cooperation with the Frontier Guard and is now a standard part of consular training. ¶16. (SBU) G: Finland's interagency working group is described in para 11. ¶17. (SBU) H: Finland's National Action Plan was formally adopted in April 2005. The interagency working group is responsible for its implementation. Each agency also has its own "sub-plan" for carrying out its particular areas of responsibility. NGOs were a part of the working group that drafted the plan. The NAP has been published by the GoF and widely disseminated in Finnish society, beginning with a "kick-off" press conference in 2006 by Foreign Minister Erkki Tuomioja; the US Embassy was invited as a guest at the press conference. Investigation and Prosecution of Traffickers -------------- ¶18. (SBU) A: Trafficking-in-persons for both sexual exploitation and forced labor is illegal. The definition of trafficking used in the law mirrors that of the Palermo Protocol. The maximum penalty for trafficking is up to 7 years, allowing Finnish law enforcement authorities to use electronic surveillance techniques when investigating TIP cases. Trafficking of minors is considered an aggravated offense, and penalties could be higher. Related offenses such as human smuggling, kidnapping, pimping, pandering, and child rape can and have been used to prosecute traffickers. Finnish prosecutors have successfully prosecuted Finnish citizens who traveled abroad to have sex with minors (Thailand and Estonia). These laws are adequate to cover the full scope of trafficking. ¶19. (SBU) B: Persons convicted of trafficking can receive up to 7 years imprisonment. Aggravated circumstances such as trafficking of minors, etc., can add additional jail time to the sentence. ¶20. (SBU) C: See 18 and 19 above. The law does not differentiate between trafficking for sexual exploitation and labor trafficking as regards possible sentences. Both the organizers in source countries and the employer(s) in Finland could be prosecuted for labor trafficking under Finnish law. ¶21. (SBU) D: The maximum penalty for rape is 7 years, the same as that for trafficking. An aggravated offense could carry a longer penalty. ¶22. (SBU) E: Prostitution is legal, but the sale and purchase of sex in public is illegal. The law is interpreted in such a way that brothels and other clubs with sex on premises are prohibited. There are no "red light" districts in Finland. Pimping, pandering, and organized prostitution are illegal. The laws are generally enforced in practice, and there are periodic raids on nightclubs where prostitutes HELSINKI 00000122 005 OF 008 are known to operate. In 2006, ONE of Helsinki's more infamous nightclubs known for prostitution was repeatedly raided and eventually closed its doors. Most "Finnish" prostitution is facilitated through the internet and takes place in hotel rooms or private apartments. Foreign prostitutes, chiefly Russian, meet their clients at nightclubs and casinos. In 2006, the GoF introduced legislation to criminalize prostitution along the lines of the Swedish model; however, the bill was rejected by Parliament owing to strong opposition from left of center parties and feminist organizations that support legalized prostitution. A compromise bill was passed that criminalized the purchase of sexual services from trafficked persons only. It is too early to know if the new law has had any effect on prostitution inside Finland. ¶23. (SBU) F: In July 2006, eight Finnish and Estonian nationals were convicted of trafficking-in-persons and sentenced to jail terms ranging from 27 months to 5 years. The seven men and ONE woman were involved in an operation that trafficked women from Estonia to Finland where they worked as prostitutes in nightclubs and out of rented apartments. In some cases, closed circuit television cameras (CCTVs) were used by the traffickers to monitor activity remotely from Estonia. The most egregious case involved a mildly mentally retarded woman who was forced to see multiple clients each day for virtually no compensation. ¶24. (SBU) F, cont.: In November 2006, a Russian national was convicted of trafficking-in-persons and sentenced to 35 months in prison for his role in a ring that brought Russian women to Finland to work as prostitutes in nightclubs. Several other individuals associated with this ring were convicted of related offenses such as organized prostitution. ¶25. (SBU) F, cont.: In September 2006, police arrested the owners of a Chinese restaurant in Savonlinna and seized over 500,000 Euros in assets. The subjects were accused of forcing as many as ten Chinese workers over an 8 year period to work for virtual slave wages, and for hours far exceeding those prescribed by Finnish labor law. The initial trafficking charges were dropped to facilitate prosecution, but the owners were successfully convicted under profiteering and kidnapping charges, and the assets were forfeit. ¶26. (SBU) F, cont.: In October 2006, two Vietnamese nationals were arrested in Pietarsaari on suspicion of labor trafficking in a similar case involving 5 Vietnamese restaurant workers. The case is still being investigated. ¶27. (SBU) F, cont.: In January 2007, a Bangladeshi sea captain was convicted of trafficking-in-persons and sentenced to 18 months in prison. The case involved 8 Bangladeshi nationals who arrived at Helsinki's Vantaa Airport in September 2006, claimed political asylum immediately upon arrival, and then subsequently disappeared from the reception center where they had been taken to. They were later determined to have been part of a transit-trafficking operation. ¶28. (SBU) F, cont.: Finnish authorities confirm that there are additional cases of both sexual trafficking and labor trafficking under investigation. ¶29. (SBU) G: Finnish authorities believe that most trafficking to and through Finland is facilitated by large organized crime syndicates, chiefly based in Russia and Asia. An exception may be small-scale labor trafficking facilitated by conspiracies of a few individuals. The traffickers typically remain outside of Finland. Government officials are not involved. Employment, travel, and tourist agencies are not involved. Marriage brokers are not involved. Profits are believed to be channeled back to the organized crime syndicates. ¶30. (SBU) H: Finland actively investigates trafficking. As part of its national action plan, the National Bureau of Investigation formed a dedicated anti-trafficking unit. Finnish liaison officers with anti-trafficking responsibility are now stationed in Murmansk, Petrozavorsk, St. Petersburg, Moscow, Tallinn, The Hague, Lyon, Malaga, and Beijing. Finland also participates in the "Nordic Cooperation Network", a network of Finnish, Swedish, Danish, Norwegian, and Icelandic law enforcement liaison officers scattered throughout Europe, Asia, and the MIddle-East. Maximum penalties for traffickers are sufficient (7 years) to allow law enforcement to use electronic surveillance techniques HELSINKI 00000122 006 OF 008 when investigating trafficking rings. ¶31. (SBU) I: The GoF provides specialized training for law enforcement personnel regarding TIP. In April 2006, the Embassy and the US LEGATT in Copenhagen facilitated the visit to Finland of three FBI Special Agents involved in TIP investigations in the United States. The Special Agents presented a series of training seminars for Finnish law enforcement personnel from the National Bureau of Investigation (NBI),the Special Security Police (SUPO), Frontier Guards, and local police officers. More than 100 Finnish personnel participated in the training. Finland assumed the EU Presidency on July 1. Combating trafficking-in-persons was ONE of Finland's top Justice and Home Affairs priorities during the Presidency. Finnish Interior Minister Kari Rajamaki referred to TIP as a "scourge" afflicting the EU during his initial address in July on Finland's JHA agenda and committed the GoF to finding new ways to enhance trans-Atlantic cooperation against trafficking. In October 2006, Rajamaki organized an EU-wide conference on child victim identification and interview issues as part of Finland's EU Presidency anti-trafficking initiative. The Embassy again worked with our LEGATT in Copenhagen to bring back Kimberly Poyer--one of the FBI Special Agents who had visited Finland in April--to reprise her performance during two days of seminars and workshops. The GoF has also worked with IOM during the reporting period to train law enforcement personnel; and continued its consular officer training program in association with the Frontier Guard. ¶32. (SBU) J: Finland cooperates with Europol, Eurojust; with the Nordic-Baltic countries, through multilateral processes such as the Nordic-Baltic Task Force and Arctic Council; with Nordic-Baltic countries through the Nordic-Baltic information sharing network; and bilaterally with Russia, the Baltic countries, and any other relevant countries. The case detailed in para 23 was investigated and prosecuted with the assistance of Estonian authorities, and the case detailed in para 24 was aided by Russian authorities. Finland in the past has also cooperated with US law enforcement to try and intercept a trafficking case. ¶33. (SBU) K: Finland will extradite persons charged with trafficking to any country with which it has an extradition treaty. Finland will extradite its own nationals on a case by case basis to other countries with which it has an extradition treaty provided that the individual would not be subject to the death penalty if convicted of an offense. Finland has ratified the EU Arrest Warrant. 34, (SBU) L: Government officials are not involved in trafficking and do not tolerate trafficking. ¶35. (SBU) M: Government officials are not involved in trafficking. ¶36. (SBU) N: Finland is not a source or destination country for child sex tourism. However, at least two Finns have been prosecuted for having sex with minors abroad (Estonia and Thailand). ¶37. (SBU) O: Finland is a signatory to the listed ILO, CRC, and UN conventions. Protection and Assistance to Victims -------------- ¶38. (SBU) A: Trafficking victims are taken to reception centers for refugees and asylum seekers operated by the Labor Ministry. The system has a capacity for 2,539 persons country-wide, and operates at any point in time at 60%-80% capacity. Several centers have been designated as "preferred" TIP shelters, including ONE in Helsinki and another near the Russian border. TIP victims are housed in separate units within the centers. Finnish reception centers are open (residents can come and go),but visitors are screened and not allowed to contact residents without their consent. Victims receive legal counseling, medical and psychological services, and monthly stipends. Recently, after urging from IOM and other NGOs, the GoF has revised its policy and is now encouraging victims to leave the reception centers as soon as possible for private, NGO-run shelters. There are several shelters for victims of domestic abuse that have expanded their services to include counseling and care for trafficking victims. During the reporting period, a TIP HELSINKI 00000122 007 OF 008 victim who was scheduled to testify against her traffickers was allowed to stay in her private apartment awaiting the proceedings, and was subsequently abducted by members of the criminal organization in question. She was later found unharmed. The incident prompted speculation about whether Finland's "open door" policy and reluctance to keep victims in institutional settings was too lax and failed to offer adequate protection to victims, irrespective of the victims' stated preferences. ¶39. (SBU) A, cont.: The reception centers are clean and well-run, and medical services are adequate, but Finnish officials admit the current system could be improved. The shelters are not dedicated TIP shelters and are designed to handle political and, chiefly, economic refugees and migrants, not victims of violent and/or sexual abuse and exploitation. Psychologists from Finland's National HEALTH Service have experience with domestic violence victims, but less experience with TIP victims, and need specialized training. The GoF in 2006 had hoped to pool resources with other Nordic countries to sponsor a seminar to address these issues; but this failed to happen due to budgetary constraints and the competing demands of other events and projects during Finland's EU Presidency. Finnish officials hope that the project can be revived in 2007. The language barrier can also be a problem. There are few Chinese or Thai speakers in Finland, and Asian TIP victims may have problems communicating with Finnish caregivers. Finally, the already identified problem of victims disappearing from the "open" shelters remains outstanding. Victims are usually only placed in protective custody in a "closed" facility when they are minors. ¶40. (SBU) B: The GoF provides the majority of funding to Finnish NGOs for victim services. The GoF also provides funding to IOM, the Nordic-Baltic Task Force, and the OSCE to fund anti-TIP projects. Finn Church Aid receives its funding directly from a "religious tax" that is levied on all Finns for the Lutheran Church (Finns can opt out if they choose to leave the Church). ¶41. (SBU) C: Finnish law enforcement and social workers have a system in place to identify TIP victims or at-risk individuals. Depending upon the circumstances of the case, the victims may be referred to a private shelter or put in one of the government-run reception centers. In the case of minors and persons deemed particularly at-risk or threatened, protective custody in "closed" reception centers may be used. Potential witnesses in trials are supposed to remain in protective custody, although the case mentioned in para 38 shows that this is not always done in practice if the victim is resistant to the idea. The GoF emphasizes that it used protective custody arrangements only when absolutely necessary, and that any victims who choose to return to their country of origin will be allowed to do so as soon as arrangements can be made. TIP victims are kept in sex-segregated units, and juveniles are kept apart from adults. ¶42. (SBU) D: The rights of TIP victims are generally respected. Identified TIP victims will not be jailed or detained for crimes like prostitution or solicitation. They will not be fined. Finland has stopped the practice of deporting likely TIP victims. TIP victims may apply for a special residency permit that allows them to remain in the country for a "stabilization" period, and also allows them to apply for permanent residency at a later period if they so desire. ¶43. (SBU) E: The GoF encourages victims to assist in the investigation and prosecution of trafficking. Police and prosecutors have an informal system in place to protect witnesses that cooperates with investigations, and the GoF is working toward a formal witness protection program. ¶44. (SBU) F: See paragraphs 38, 39, and 41 for a detailed description of government-run shelters and the types of services they provide. ¶45. (SBU) G: See paragraphs 15 and 31 for a description of specialized training for government officials in the recognition of trafficking and in the provision of assistance to trafficking victims, including children. ¶46. (SBU) H: There are no known cases of Finnish trafficking victims. HELSINKI 00000122 008 OF 008 ¶47. (SBU) I: Major NGOs addressing trafficking (in addition to other issues) include: IOM, Finn Church Aid, League of Finnish Feminists, Pro-tukipiste, MonikaNaiset, the Refugee Advice Center, the National Council of Women in Finland, and SALLI (commercial sex workers union). Several of these NGOS operate shelters that provide assistance and counselling to TIP victims. Pro-tukipiste operates a phone hotline. IOM in 2006 organized training seminars for Finnish law enforcement authorities. Some NGOs are also involved in demand reduction efforts. All NGOs (with the exception of the international NGO IOM) receive the bulk of their funding from the GoF. NGOs participated in the drafting of the National Action Plan and are frequently consulted by the GoF on TIP issues. NGOs also participate in government-run seminars, such as the April 2006 seminar that three FBI Special Agents were at, as well as the October 2006 EU-wide seminar. ¶48. (SBU) A FINNISH HERO: EVA BIAUDET. Eva Biaudet was appointed as the OSCE Special Representative on Combating Trafficking in Human Beings in October 2006. This is the highest position that a Finn has held in any multilateral organization as regards combatting trafficking. Biaudet's appointment caps a long history of work against TIP in Finland and the Nordic-Baltic region. As a former Minister of HEALTH and Social Services, Biaudet was ONE of the First Finnish officials to highlight the problem and urge concerted government action to address it. Through the Nordic-Baltic Council, she launched a campaign against trafficking and was strongly engaged throughout the region in raising awareness and fostering public debate on the problem. As a member of Parliament, Biaudet played a leading role in drafting Finland's anti-TIP legislation in 2005 and subsequently securing its approval and implementation. Biaudet was ONE of a handful of influential Finns who used their political capital and profile to raise the TIP issue to the highest level in Finland and institute a sea change in how the GoF thinks about and responds to TIP. Biaudet has also participated for many years in the TIP-related activities of NGOs. As OSCE Special Representative, Biaudet will assist the OSCE's member states in implementing the OSCE Action Plan to Combat Trafficking in Human Beings, originally adopted at the 2003 Maastricht Ministerial Council. WARE