SERBIA
AND MONTENEGRO (TIER 2 - WATCH LIST)
Released by the Office to Monitor and Combat Trafficking in Persons
June 14, 2004
The state union of Serbia and Montenegro is a source country for women and
girls trafficked internally and internationally for the purpose of sexual
exploitation and Roma children trafficked internally for the purpose of begging.
Serbia and Montenegro is also a transit and destination country for women
and girls trafficked into sexual exploitation from Moldova, Ukraine, Russia,
Romania and Bulgaria to Kosovo, Bosnia, Croatia, Albania and Western European
countries, principally Italy and Germany.
The Governments of constituent republics Serbia and Montenegro, to which
most authority has devolved, do not fully comply with the minimum standards
for the elimination of trafficking, but they are making significant efforts
to do so. The two republics do not conduct joint counter-trafficking activities;
this report consequently provides a separate analysis for each. The Tier
2 Watch List designation is based on the weighted aggregate of their efforts,
which showed a lack of significant progress, especially in the case of Montenegro.
The Government of the Republic of Serbia cooperated with NGOs in public
awareness activities and government trainings, but it should provide sufficient
tools for law enforcement authorities to conduct effective investigations
and victim protection, and utilize new laws on trafficking which carry increased
penalties.
The Republic of Montenegro failed to prosecute government officials involved
in trafficking, which had negative effects on its victim referral mechanisms.
During the latter part of the reporting period, the government focused on
reconstituting the halted victim referral mechanism and remedying legislative
weaknesses. Montenegro should increase the transparency of its counter-trafficking
activities, and strengthen oversight at every level to protect against government
complicity.
THE REPUBLIC OF SERBIA
Prosecution
In April 2003, the Serbian Parliament passed new criminal laws against trafficking
in persons for sexual and non-sexual exploitation, which prescribe penalties
of up to 10 years for a simple offense and increased penalties for aggravating
circumstances. Courts indicted suspected traffickers mostly under trafficking-related
charges with relatively light sentences. The Ministry of Justice reported
seven prosecutions for trafficking, 63 for mediation in prostitution, and
four for slavery. Thirteen traffickers were convicted in a joint trial on
charges such as mediation of prostitution, forgery, illegal deprivation of
liberty, illegal border crossing and rape. Sentences ranged from eight months
to three-and-a-half years; the defendants were released from custody pending
appeal. Official corruption is a continuing problem; off-duty police officers
were caught providing security at venues where trafficking victims were located.
Most of these individuals received only administrative sanctions, but one
officer was charged with a criminal offense. Each police district in Serbia
has a special anti-trafficking team, but their resources were limited.
Protection
The government and NGOs communicated well on protection activities, but police
operated without a formalized referral system and victims tended not to cooperate
due to insufficient protections. The Organization for Security and Cooperation
in Europe (OSCE) oversaw establishment of a referral center housed in the
Social Affairs Ministry. Police relied on an NGO-run shelter overseen by
the IOM to house victims. Police commonly interviewed victims upon police
apprehension, and those who did not self-identify as victims were charged
with prostitution or deported. The government did not implement a regional
Ministerial declaration on residency status for victims.
Prevention
Government officials spoke out against trafficking, but NGOs took the lead
on public information campaigns. The government increased the number of training
sessions for law enforcement officials. The Interior Ministry briefed consular
and diplomatic officials with country-specific trafficking information. The
Ministry of Social Affairs organized an anti-trafficking training project
for its employees.
THE REPUBLIC OF MONTENEGRO
Prosecution
The Government of the Republic of Montenegro suffered a loss in public and
international confidence after it failed to prosecute the deputy state prosecutor
for trafficking in the well-known “SC” case.* Responding to criticism,
the government reconstituted its referral system and drafted new criminal
and procedural laws that strengthen penalties and increase institutional
oversight. The Montenegrin criminal code prohibits trafficking in persons
for the purposes of sexual, labor and other exploitation, and prescribes
punishment of up to 10 years’ imprisonment for a simple offense, with increasing
penalties for aggravating circumstances. Of the 15 cases submitted to the
prosecution since 2002, there have been no convictions. Official corruption
remains a problem; victims named police and government officials who were
among their clients but the government did not take legal action. Prosecutors
who were involved in the decision not to prosecute in the “SC” case were
all dismissed, but with severance pay. The Ministry of Interior’s anti-trafficking
unit was disbanded. Montenegrin police successfully recaptured fugitive trafficking
kingpin Dilaver Bojku and returned him to Macedonia for trial.
___________
*SC represents the victim’s initials.
Protection
For most of the reporting period, the government’s formerly effective referral
system was inoperative. Following mutual allegations of mishandling in the
“SC” case, the government and shelter operators ceased cooperation in June
2003. By March 2004, the government finalized a new agreement with an NGO
for shelter management and opened a new trafficking victim’s shelter. Despite
signing a regional ministerial declaration on residency for victims, foreign
victims were not provided residency status. Victims who failed to self-identify
as victims were charged with prostitution or deported.
Prevention
The National Project Board coordinated the government’s prevention efforts.
The Board’s activities were discontinued following the “SC” case, but the
government appointed a new coordinator, and reconstituted the Board. The
government also formed an anti-trafficking working group, and adopted a new
anti-trafficking strategy with recommendations by international experts.
The Ministry of Education conducted an anti-trafficking program for school
officials in eight school districts.
Full text report: http://www.state.gov/g/tip/rls/tiprpt/2004/
SRBIJA I CRNA GORA (NIVO 2 – NADZORNA LISTA)
Objavila Kancelarija za nadzor i borbu protiv trgovine ljudima
14. juni 2004.
Državna zajednica Srbije i Crna Gore je zemlja porekla žena i devojaka kojima
se trguje na lokalnom i međunarodnom nivou u cilju seksualne eksploatacije,
kao i romske dece kojima se trguje unutar zemlje da bi se bavili prosjačenjem.
Srbija i Crna Gora je takođe i tranzitna i odredišna zemlja za trgovinu ženama
i devojkama u cilju seksualne eksploatacije, a koje iz Moldavije, Ukrajine,
Rusije, Rumunije, i Bugarske stižu na Kosovo, u Bosnu, Hrvatsku, Albaniju
i zapadne evropske zemlje, pre svega Italiju i Nemačku.
Vlade republika članica Srbije i Crne Gore, koje imaju najveću nadležnost,
ne pridržavaju se u potpunosti minimuma standarda kojima bi se zaustavila
trgovina ljudima, iako ulažu znatne napore u tom pogledu. Dve republike ne
sprovode zajedničke aktivnosti u borbi protiv trgovine ljudima, te ovaj izveštaj,
shodno tome, daje posebnu analizu za svaku republiku. Oznaka ''Nivo 2 na
Nadzornoj listi'' se zasniva na zbiru njihovih napora, koji pokazuje da značajniji
napredak ne postoji, pogotovo kad je reč o Crnoj Gori.
Vlada Republike Srbije je sarađivala sa nevladinim organizacijama na aktivnostima
usmerenim ka podizanju svesti kod javnosti i obučavanju Vladinih službenika,
ali treba da pruži i adekvatna sredstva policiji kako bi se istrage efikasno
sprovodile, žrtve zaštitile, a novi zakoni o trgovini ljudima koji predviđaju
veće kazne primenili.
Republika Crna Gora nije krivično gonila Vladine zvaničnike umešane u trgovinu
ljudima, što se negativno odrazilo na mehanizme za pomoć žrtvama. Tokom poslednjeg
dela perioda na koji se izveštaj odnosi, Vlada se usmerila na ponovno uspostavljanje
prekinutih mehanizama za pomoć žrtava i na otklanjanje zakonskih manjkavosti.
Crna Gora treba da poveća transparentnost svojih aktivnosti na suzbijanju
trgovine ljudima i pojača kontrolu na svim nivoima da bi se sprečila mogućnost
saučesništva vladinih službenika.
Republika Srbija
Krivično gonjenje
Aprila 2003. godine, Skupština Srbije je usvojila nove krivične
zakone o trgovini ljudima radi seksualne i neseksualne eksploatacije, koji
propisuju kazne do 10 godina za lakše prekršaje i veće kazne za teža dela.
Sudovi su krivično gonili osumnjičene trgovce ljudima uglavnom na osnovu
prijava koje se odnose na trgovinu ljudima što se završavalo relativno blagim
presudama. Ministarstvo pravde navodi da je krivično gonjenje sprovedeno
u sedam slučajeva trgovine ljudima, 63 slučaja posredovanja u prostituciji
i četiri slučaja ropstva. Trinaest trgovaca ljudima je osuđeno u zajedničkom
sudskom procesu po optužbama za dela kao što su posredovanje u prostituciji,
falsifikovanje, protivpravno lišavanje slobode, ilegalni prelazak granica
i silovanje. Presude su se kretale od 8 meseci do tri i po godine, a optuženi
su pušteni iz pritvora do rešenja žalbe. Korumpiranost službenika je i dalje
problem; policajci koji nisu bili na dužnosti uhvaćeni su u obezbeđivanju
lokacija na kojima su držane žrtve trgovine ljudima. Većini ovih osoba je
izrečena samo administrativna kazna, dok je protiv jednog policajca podnešena
krivična prijava. Svaka policijska oblast u Srbiji ima specijalan tim za
borbu protiv trgovine ljudima, ali su njihova sredstva ograničena.
Zaštita
Postojala je dobra komunikacija između Vlade i nevladinih organizacija
u vezi sa aktivnostima koje se tiču zaštite, ali je policija radila bez formalnog
sistema pomoći, a žrtve nisu želele da sarađuju zbog nedovoljne zaštite.
Organizacija za evropsku bezbednost i saradnju (OEBS) je nadgledala uspostavljanje
centra za pomoć žrtvama pri Ministarstvu za socijalna pitanja. Policija se
oslanjala na skloništa za smeštaj žrtava koje vode nevladine organizacije,
a koje nadgleda IOM (Međunarodna organizacija za migracije). Policija je
obično ispitivala žrtve nakon policijskog privođenja, a oni koji se nisu
izjasnili kao žrtve optuženi su za prostituciju ili su deportovani. Vlada
nije primenila regionalnu Ministarsku deklaraciju o boravišnom statusu žrtava.
Prevencija
Vladini zvaničnici su se izjašnjavali protiv trgovine ljudima,
ali su nevladine organizacije bile na čelu kampanja za informisanje javnosti.
Vlada je intenzivirala obuku policijskog osoblja. Ministarstvo unutrašnjih
poslova je upoznalo konzularno i diplomatsko osoblje sa informacijama o trgovini
ljudima specifičnim za zemlju. Ministarstvo za socijalna pitanja je za svoje
službenike organizovalo obuku za borbu protiv trgovine ljudima.
REPUBLIKA CRNA GORA
Krivično gonjenje
Vlada Republike Crne Gore je izgubila poverenje javnosti lokalno
i u međunarodnim okvirima pošto nije krivično gonila zamenika državnog tužioca,
a za trgovinu ljudima u dobro poznatom slučaju S.Č*. Kao odgovor na kritike,
Vlada je ponovo uspostavila sistem pomoći žrtvama i uradila nacrt novih krivičnih
zakona i zakona o krivičnom postupku koji utvrđuju kazne i povećavaju institucionalnu
kontrolu. Crnogorski krivični zakon zabranjuje trgovinu ljudima u cilju seksualne,
radne i druge eksploatacije i propisuje kaznu do 10 godina zatvora za lakše
prekršaje i veće kazne za teža dela. Ni u jednom od petnaest slučajeva predatih
tužilaštvu od 2002. godine nije izrečena nijedna presuda. Korumpiranost službenika
je i dalje problem; žrtve su imenovale policijske i Vladine zvaničnike koji
su bili njihovi klijenti, ali Vlada nije preduzela nikakve zakonske mere.
Iako su otpušteni svi tužioci koji su bili uključeni u donošenje odluke da
se ne sudi u slučaju S.Č., otpremnina im je isplaćena. Jedinica za borbu
protiv trgovine ljudima Ministarstva unutrašnjih poslova je raspuštena. Crnogorska
policija je ponovo uspela da uhapsi odbeglog Dilavera Bojkua, ključnog čoveka
kad je reč o
trgovini ljudima, i da ga vrati u Makedoniju na suđenje.
*S.Č. su inicijali žrtve.
Zaštita
Tokom najvećeg dela perioda na koji se ovaj izveštaj odnosi,
Vladin prethodni sistem pmpći žrtvama nije bio delotvoran. Nakon uzajamnih
optužbi da je slučaj S.Č. pogrešno vođen, u junu 2003. godine je prekinuta
saradnja između Vlade i rukovodilaca skloništa. Do marta 2004. godine, Vlada
je pripremila novi sporazum o saradnji sa nevladinim organizacijama i otvorila
novo sklonište za žrtve trgovine ljudima. Uprkos potpisivanju regionalne
Ministarske deklaracije o boravišnom statusu žrtava, žrtvama stranim državljanima
nije obezbeđen boravak. Osobe koje se nisu deklarisale kao žrtve optužene
su za prostituciju ili su deportovane.
Prevencija
Komisija za nacionalni projekat je koordinirala Vladine napore
za prevenciju trgovine ljudima. Aktivnosti Komisije su prekinute nakon slučaja
S.Č., ali je Vlada imenovala novog koordinatora i ponovo uspostavila rad
Komisije. Vlada je takođe formirala radnu grupu za borbu protiv trgovine
ljudima i usvojila novu strategiju po preporukama međunarodnih stručnjaka.
Ministarstvo obrazovanja je održalo program za borbu protiv trgovine ljudima
za školske radnike u osam obrazovnih oblasti.
Kompletan tekst izveštaja može se naći na internet adresi: http://www.state.gov/g/tip/rls/tiprpt/2004/
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