LUXEMBOURG -- 2009 TIP REPORT: PRESS GUIDANCE AND

UNCLAS STATE 061199 SIPDIS E.O. 12958: N/A TAGS: KTIP ELAB KCRM KPAO KWMN PGOV PHUM PREL SMIG LU SUBJECT: LUXEMBOURG -- 2009 TIP REPORT: PRESS GUIDANCE AND DEMARCHE REF: A. (A) STATE 59732 ¶B. (B) STATE 005577 ¶1. This is an action cable; see paras 5 through 7 and 10. ¶2. On June 16, 2009, at 10:00 a.m. EDT, the Secretary will release the 2009 Trafficking in Persons (TIP) Report at a press conference in the Department's press briefing room. This release will receive substantial coverage in domestic and foreign news outlets. Until the time of the Secretary's June 16 press conference, any public release of the Report or country narratives contained therein is prohibited. ¶3. The Department is hereby providing Post with advance press guidance to be used on June 16 or thereafter. Also provided is demarche language to be used in informing the Government of Luxembourg of its tier ranking and the TIP Report's imminent release. The text of the TIP Report country narrative is provided, both for use in informing the Government of Luxembourg and in any local media release by Post's public affairs section on June 16 or thereafter. Drawing on information provided below in paras 8 and 9, Post may provide the host government with the text of the TIP Report narrative no earlier than 1200 noon local time Monday June 15 for WHA, AF, EUR, and NEA countries and OOB local time Tuesday June 16 for SCA and EAP posts. Please note, however, that any public release of the Report's information should not/not precede the Secretary's release at 10:00 am EDT on June 16. ¶4. The entire TIP Report will be available on-line at www.state.gov/g/tip shortly after the Secretary's June 16 release. Hard copies of the Report will be pouched to posts in all countries appearing on the Report. The Secretary's statement at the June 16 press event, and the statement of and fielding of media questions by G/TIP,s Director and Senior Advisor to the Secretary, Ambassador-at-Large Luis CdeBaca, will be available on the Department's website shortly after the June 16 event. Ambassador de Baca will also hold a general briefing for officials of foreign embassies in Washington DC on June 17 at 3:30 pm EDT. ¶5. Action Request: No earlier than 12 noon local time on Monday June 15 for WHA, AF, EUR, and NEA posts and OOB local time on Tuesday June 16 for SCA and EAP posts, please inform the appropriate official in the Government of Luxembourg of the June 16 release of the 2009 TIP Report, drawing on the points in para 9 (at Post's discretion) and including the text of the country narrative provided in para 8. For countries where the State Department has lowered the tier ranking, it is particularly important to advise governments prior to the Report being released in Washington on June 16. ¶6. Action Request continued: Please note that, for those countries which will not receive an "action plan" with specific recommendations for improvement, posts should draw host governments' attention to the areas for improvement identified in the 2009 Report, especially highlighted in the "Recommendations" section of the second paragraph of the narrative text. This engagement is important to establishing the framework in which the government's performance will be judged for the 2010 Report. If posts have questions about which governments will receive an action plan, or how they may follow up on the recommendations in the 2009 Report, please contact G/TIP and the appropriate regional bureau. ¶7. Action Request continued: On June 16, please be prepared to answer media inquiries on the Report's release using the press guidance provided in para 11. If Post wishes, a local press statement may be released on or after 10:30 am EDT June 16, drawing on the press guidance and the text of the TIP Report's country narrative provided in para 8. ¶8. Begin Final Text of Luxembourg,s country narrative in the 2009 TIP Report: -------------- Luxembourg (TIER 1) Luxembourg is a destination country for women trafficked primarily from Russia and Ukraine for the purpose of commercial sexual exploitation. An increasing number of women from Africa, primarily Nigeria, are engaged in prostitution in the country, and are particularly vulnerable to trafficking due to debts they incur in the process of migrating ) legally or illegally -- to Luxembourg. The government and NGOs did not identify any cases of forced labor during the reporting period. The Government of Luxembourg fully complies with the minimum standards for the elimination of trafficking. The government enacted additional anti-trafficking legislation and funded a sex trafficking demand reduction campaign during the reporting period. While formalized victim identification and referral procedures remained lacking, the government established a 90-day reflection period for victims in 2008. Recommendations for Luxembourg: Establish formal procedures to identify victims among vulnerable groups, such as women in the legal commercial sex trade and illegal migrants, and to refer these victims to available services; ensure there are adequate protection facilities in place for all trafficking victims, including victims of forced labor, and child and male victims; and launch an awareness campaign to educate authorities and the general public about forms of labor trafficking. Prosecution -------------- The Luxembourg government demonstrated progress in the prosecution of trafficking crimes during the reporting period. In February 2009, the government adopted long-awaited amendments to its penal code that distinguish human trafficking from smuggling or illegal migration and broaden the definition of human trafficking to include forced labor. Penalties prescribed in the new legislation increased from a maximum prison term of three years, to a range of five to 10 years, imprisonment. These penalties are sufficiently stringent and commensurate with penalties prescribed for other grave crimes. There were seven prosecutions and convictions of sex trafficking offenders during the reporting period, compared with six from the previous year. Sentences ranged from three months, imprisonment with fines to three years, imprisonment with fines. The majority of trafficking offenders were sentenced to two years, imprisonment or more. The government continued its ongoing training of police, immigration, and other government officials and NGOs on victim identification. There was no evidence of trafficking complicity by Luxembourg public officials during the year. Protection -------------- The government made some additional progress in protecting trafficking victims during the reporting period. The government adopted immigration legislation in 2008 that provides human trafficking victims with relief from deportation through the granting of temporary residence status for a 90-day reflection period. The government did not provide long-term shelter or housing benefits for victims of trafficking. The government encourages victims to participate in the investigation and prosecution of trafficking offenders during the reflection period, though the granting of the reflection period is not conditional on victims, cooperation with authorities. The government worked with neighboring countries on a witness protection plan for two trafficking victims during the reporting period. The government also funded two NGOs providing services for women in distress that also serve female human trafficking victims. Child victims of trafficking were placed in a general shelter for juveniles that offered specialized services for trafficking victims. The government has a stated policy of ensuring that victims are not punished for unlawful acts committed as a direct result of their being trafficked; it is unclear whether all women in prostitution who are in the country illegally are checked for trafficking indicators before being deported or imprisoned. It is also unclear whether authorities are proactively identifying victims among the estimated 500 women in prostitution in Luxembourg,s legalized sex trade. The government did not appear to employ a formal referral mechanism for authorities to use when referring victims to available services. Prevention -------------- The government made some progress in its efforts to prevent trafficking during the reporting period. It launched a sex trafficking public awareness campaign at bus stops. In addition, the Ministry of Equal Opportunity funded a sex trafficking demand reduction poster campaign bearing the slogan, &If you hire a prostitute, you are financing human trafficking.8 The government did not report any child sex tourism prosecutions or prevention efforts during the reporting period. -------------- ¶9. Post may wish to deliver the following points, which offer technical and legal background on the TIP Report process, to the host government as a non-paper with the above TIP Report country narrative: (begin non-paper) -- The U.S. Congress, through its passage of the 2000 Trafficking Victims Protection Act, as amended (TVPA), requires the Secretary of State to submit an annual Report to Congress. The goal of this Report is to stimulate action and create partnerships around the world in the fight against modern-day slavery. The USG approach to combating human trafficking follows the TVPA and the standards set forth in the Protocol to Prevent, Suppress and Punish Trafficking in Persons, Especially Women and Children, supplementing the United Nations Convention against Transnational Organized Crime (commonly known as the "Palermo Protocol"). The TVPA and the Palermo Protocol recognize that this is a crime in which the victims, labor or services (including in the "sex industry") are obtained or maintained through force, fraud, or coercion, whether overt or through psychological manipulation. While much attention has focused on international flows, both the TVPA and the Palermo Protocol focus on the exploitation of the victim, and do not require a showing that the victim was moved. -- Recent amendments to the TVPA removed the requirement that only countries with a "significant number" of trafficking victims be included in the Report. Beginning with the 2009 TIP Report, countries determined to be a country of origin, transit, or destination for victims of severe forms of trafficking are included in the Report and assigned to one of three tiers. Countries assessed as meeting the "minimum standards for the elimination of severe forms of trafficking" set forth in the TVPA are classified as Tier 1. Countries assessed as not fully complying with the minimum standards, but making significant efforts to meet those minimum standards are classified as Tier 2. Countries assessed as neither complying with the minimum standards nor making significant efforts to do so are classified as Tier 3. -- The TVPA also requires the Secretary of State to provide a "Special Watch List" to Congress later in the year. Anti-trafficking efforts of the countries on this list are to be evaluated again in an Interim Assessment that the Secretary of State must provide to Congress by February 1 of each year. Countries are included on the "Special Watch List" if they move up in "tier" rankings in the annual TIP Report -- from 3 to 2 or from 2 to 1 ) or if they have been placed on the Tier 2 Watch List. -- Tier 2 Watch List consists of Tier 2 countries determined: (1) not to have made "increasing efforts" to combat human trafficking over the past year; (2) to be making significant efforts based on commitments of anti-trafficking reforms over the next year, or (3) to have a very significant number of trafficking victims or a significantly increasing victim population. As indicated in reftel B, the TVPRA of 2008 contains a provision requiring that a country that has been included on Tier 2 Watch List for two consecutive years after the date of enactment of the TVPRA of 2008 be ranked as Tier ¶3. Thus, any automatic downgrade to Tier 3 pursuant to this provision would take place, at the earliest, in the 2011 TIP Report (i.e., a country would have to be ranked Tier 2 Watch List in the 2009 and 2010 Reports before being subject to Tier 3 in the 2011 Report). The new law allows for a waiver of this provision for up to two additional years upon a determination by the President that the country has developed and devoted sufficient resources to a written plan to make significant efforts to bring itself into compliance with the minimum standards. -- Countries classified as Tier 3 may be subject to statutory restrictions for the subsequent fiscal year on non-humanitarian and non-trade-related foreign assistance and, in some circumstances, withholding of funding for participation by government officials or employees in educational and cultural exchange programs. In addition, the President could instruct the U.S. executive directors to international financial institutions to oppose loans or other utilization of funds (other than for humanitarian, trade-related or certain types of development assistance) with respect to countries on Tier 3. Countries classified as Tier 3 that take strong action within 90 days of the Report's release to show significant efforts against trafficking in persons, and thereby warrant a reassessment of their Tier classification, would avoid such sanctions. Guidelines for such actions are in the DOS-crafted action plans to be shared by Posts with host governments. -- The 2009 TIP Report, issuing as it does in the midst of the global financial crisis, highlights high levels of trafficking for forced labor in many parts of the world and systemic contributing factors to this phenomenon: fraudulent recruitment practices and excessive recruiting fees in workers, home countries; the lack of adequate labor protections in both sending and receiving countries; and the flawed design of some destination countries, "sponsorship systems" that do not give foreign workers adequate legal recourse when faced with conditions of forced labor. As the May 2009 ILO Global Report on Forced Labor concluded, forced labor victims suffer approximately $20 billion in losses, and traffickers, profits are estimated at $31 billion. The current global financial crisis threatens to increase the number of victims of forced labor and increase the associated "cost of coercion." -- The text of the TVPA and amendments can be found on website www.state.gov/g/tip. -- On June 16, 2009, the Secretary of State will release the ninth annual TIP Report in a public event at the State Department. We are providing you an advance copy of your country's narrative in that report. Please keep this information embargoed until 10:00 am Washington DC time June ¶16. The State Department will also hold a general briefing for officials of foreign embassies in Washington DC on June 17 at 3:30 pm EDT. (end non-paper) ¶10. Posts should make sure that the relevant country narrative is readily available on or though the Mission's web page in English and appropriate local language(s) as soon as possible after the TIP Report is released. Funding for translation costs will be handled as it was for the Human Rights Report. Posts needing financial assistance for translation costs should contact their regional bureau,s EX office. ¶11. The following is press guidance provided for Post to use with local media. Q1: Why was Luxembourg given a ranking of Tier 1? A: The Government of Luxembourg fully complies with the minimum standards for the elimination of trafficking. Q2: What progress has Luxembourg made in the past year? A: The government enacted additional anti-trafficking legislation and funded a sex trafficking demand reduction campaign during the reporting period. While formalized victim identification and referral procedures remained lacking, the government established a 90-day reflection period for victims in 2008. Q3: What can Luxembourg do to improve its fight against trafficking in persons? A: To improve its anti-trafficking performance, the Government of Luxembourg could: establish formal procedures to identify victims among vulnerable groups, such as women in the legal commercial sex trade and illegal migrants, and to refer these victims to available services; ensure there are adequate protection facilities in place for all trafficking victims, including victims of forced labor, and child and male victims; and launch an awareness campaign to educate authorities and the general public about forms of labor trafficking. ¶12. The Department appreciates posts, assistance with the preceding action requests. CLINTON