(Provisional Translation)

Japan’s 2009 Action Plan
to Combat Trafficking in Persons

Ministerial Meeting Concerning Measures Against Crimes
Japan
December 2009

Introduction
Drawing up Japan’s 2009 Action Plan to Combat Trafficking in Persons
Trafficking in persons is a grave violation of human rights and requires a prompt andappropriate response from a humanitarian perspective as trafficking in persons causes
serious psychological and physical pain for the victims and recovery from such damage isvery difficult.
Following the Protocol to Prevent, Suppress and Punish Trafficking in Persons,
Especially Women and Children, supplementing the United Nations Convention against
Transnational Organized Crime (hereinafter referred to as the Protocol), the InterMinisterial Liaison Committee (Task Force) (regarding measures to combat trafficking inpersons) drew up Japan’s Action Plan of Measures to Combat Trafficking in Persons in
December 2004 (hereinafter referred to as the 2004 Action Plan) in order to promote
integral and comprehensive government-wide action to combat the transnationalorganized crime of trafficking in persons.
Article 3 of the Protocol defines trafficking in persons as follows.
Article 3
Use of terms
For the purposes of this Protocol:(a) “Trafficking in persons” shall mean the recruitment, transportation, transfer,harbouring or receipt of persons, by means of the threat or use of force or other forms of
coercion, of abduction, of fraud, of deception, of the abuse of power or of a position ofvulnerability or of the giving or receiving of payments or benefits to achieve the consent
of a person having control over another person, for the purpose of exploitation.
Exploitation shall include, at a minimum, the exploitation of the prostitution of others orother forms of sexual exploitation, forced labour or services, slavery or practices similar
to slavery, servitude or the removal of organs;(b) The consent of a victim of trafficking in persons to the intended exploitation set forthin subparagraph (a) of this article shall be irrelevant where any of the means set forth insubparagraph (a) have been used;(c) The recruitment, transportation, transfer, harbouring or receipt of a child for the
purpose of exploitation shall be considered “trafficking in persons” even if this does not
involve any of the means set forth in subparagraph (a) of this article;(d) “Child” shall mean any person under eighteen years of age.
In the five years since the 2004 Action Plan was drawn up, the Government of Japan(GOJ) has greatly improved its action against trafficking in persons through steadfast
efforts to implement the policies set forth by the 2004 Action Plan. Such policies
included promoting monitoring and countermeasures at the border (including the
introduction of IC passports), reviewing the criteria for landing permission for the statusof residence of “entertainer” and stepping up visa examination, criminalizing the conduct
of Buying or Selling of Human Beings, implementing thorough crackdowns, and revision1

of the Immigration Control and Refugee Recognition Act to allow the flexible operationof special permission to stay to protect victims of trafficking in persons. As a result, thereported number of cases of trafficking in persons has decreased and the attempt at
appropriately protecting victims has been improved, and thus, the 2004 Action Plan has
produced significant achievements.
However, while the number of victims entering the country with the status ofresidence of “entertainer” has decreased considerably, it has also been suggested thatcases of trafficking in persons have become more sophisticated and invisible. For
example, there have been cases where brokers and other perpetrators traffic victims into
the country by arranging false marriages so that the victims may enter the country withthe status of residence of “spouse or child of Japanese national” which has no limitations
on their work during their stay.
Additionally, trafficking in persons is a serious transnational problem, and thus, theinternational community pays close attention to Japan’s action against the crime and hassuggested that the government should take more comprehensive action (Note).
These suggestions made at home and abroad contain issues that should beappropriately examined and addressed while maintaining coherence with Japan’s policies.
In response to recent developments surrounding trafficking in persons in Japan, and toaddress issues surrounding the crime and to continue to promote comprehensive
government-wide action against the crime, the GOJ drew up Japan’s 2009 Action Plan to
Combat Trafficking in Persons, aiming to eliminate the crime of trafficking in persons.
Based on the same definition of trafficking in persons described in Article 3 of theProtocol, the 2009 Action Plan, like the 2004 Action Plan, aims to prevent trafficking inpersons by achieving close cooperation among all government ministries and agencies
concerned and enhancing cooperation between international organizations and NGOs. It
also aims to facilitate a more proactive understanding of cases of trafficking in persons
that may be hidden and to promote the elimination of such trafficking and the appropriate
protection of the victims. The definition of trafficking in persons includes not only thebuying and selling of persons but also a wide range of activities such as the recruitment
or transportation of persons for the purpose of, for example, sexual exploitation, forcedlabor or services, or the removal of organs. The 2009 Action Plan intends to raiseawareness of the general public to understand the definition of trafficking in persons, thefacts that victims of trafficking in persons include but are not limited to non-Japanesewomen and children, and that the crime should be tackled by society as a whole. It also
aims to continuously examine appropriate methods of cooperation among institutions
concerned and the necessity of system reforms, in order to improve the system tofacilitate action against the crime.
(Note) For example, the United Nations Special Rapporteur on Trafficking in Persons
stated, “Japan is affected as a destination country for many victims of human trafficking,”
during her mission to Japan, which took place in July 2009. Prior to the official report,
the rapporteur also called attention to some issues of immediate concern, which are listed2

below. These issues included issues that had not been generally considered as cases oftrafficking in persons in Japan,but are internationally considered part of or closely related
to trafficking in persons according to the definition of Article 3 of the Protocol.
1. Non-ratification of the Protocol to Prevent, Suppress and Punish Trafficking in
Persons, Especially Women and Children, the Organized Crime Convention and theInternational Convention on the Protection of the Rights of All Migrant Workers andMembers of Their Families;
2. Lack of comprehensive definition of trafficking in the national legislation;
3. Unclear identification procedure which may lead to mis-identification of victims of
trafficking;4. That trafficking has gone underground due to a variety of factors including but notlimited to mis-identification, inadequate confidential services (psycho-social support),
language barrier and a weak redress system;
5. Appropriate shelters for victims of trafficking, and lack of the resources andspecialized know-how, including but not limited to language skills, required toprovide adequate assistance to victims and avoid their being re-trafficked at a laterstage;
6. Abuses within the trainees and technical interns programs: while this is a wellintended program to be encouraged for its objective of transferring skills andtechnology to some Asian countries, in a number of cases it is fuelling demand for
exploitative cheap labour under conditions that may well amount to trafficking;
7. Lack of access by victims to redress and compensation though the judicial systemeven though de jure this is provided;
8. The problem of coordinating effective action amongst relevant actors - Police, theImmigration Bureau and the Prosecutor's Office, and the lack of appropriate training
on trafficking for these law enforcement officers including judges. In particular,
training focusing on building capacity for identification, protection of victims, and on
the implementation of their right to effective judicial remedy, including
compensation;
9. Human trafficking responses by the State and assistance to victims are gendered andfocuses solely on women and on sexual exploitation; while this is important, otherforms of trafficking that affect both men and women, boys and girls must notneglected;
10. Efforts in the area of prevention are weak and need to be strengthened, using
innovative ICT and other channels of communication that especially appeal to young
people;11. Child pornography, child prostitution and “enjo kosai”- compensated dating - are notsufficiently addressed; and12. High incidence of domestic violence against women and girls.

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I. Thorough Understanding of the Current Situation of Trafficking in Persons(i) Understanding and analysis the cases of trafficking in persons
Through various activities (including procedures conducted by the Immigration
Bureau, patrolling of adult entertainment businesses and the enforcement of regulations
by the police, protection activities by the Women’s Consulting Offices for female victimsof trafficking in persons, and the collection of information from foreign embassies, NGOs,
lawyers, etc.), institutions concerned will make efforts to understand and analyze theworking conditions of non-Japanese women and workers, cases of trafficking in persons,and the current situation of broker organizations in Japan and abroad, as well as topromote efforts to share information among related organizations that may lead to theidentification of cases of trafficking in persons.
(ii) Sharing information with foreign governments and related institutions
The GOJ will make efforts to share information with foreign governments and related
institutions through various activities, including a dispatch of a Government Delegation
on Anti-Human-Trafficking Measures to a country where a victim of trafficking inpersons will be sent from. Making most of the contacts established for cases oftrafficking in persons at related government ministries and agencies, embassies, andNGOs, the GOJ will make efforts to share information and to arrest brokers and otherperpetrators in Japan and abroad.
II. Integral and Comprehensive Action against Trafficking in Persons
1. Prevention of trafficking in persons(1) Preventing potential victims from entering the country(i) Improvement of the visa screening system
To tackle the increasing number of cases of sophisticated visa application fraud(including false marriages and impersonation), an increasing number of visits to Japan of
mothers accompanying minors who have acquired Japanese citizenship after the revisionof the Nationality Act, and an increasing number of visa applications from parents andchildren who come to Japan to acquire Japanese citizenship, the GOJ will increase thenumber of visa officials at Japan’s diplomatic establishments overseas, particularly in thePhilippines and Thailand, and conduct more detailed individual interviews to prevent
trafficking in persons.
(ii) Establishment and improvement of a Visa Wide Area Network (VISA WAN)
As part of the effort to detect trafficking in persons at the border, the Ministry ofForeign Affairs, and its diplomatic establishments overseas as well as related ministries
and agencies have been working and will continue to work to establish and improve an
information communication network system (VISA WAN) in order to promptly share
information concerning suspicious visa applications and to prevent trafficking in persons.
(iii) Reinforcement of Immigration Control
The GOJ will implement stringent examination for landing at airports and seaports
using the Trafficking in Persons Database (managed by the Immigration Bureau) andother resources. Additionally, to prevent illegal entry into Japan, the GOJ will dispatch4

liaison officers (experts in identifying forged documents) to airports in countries fromwhich many illegal entrants to Japan are known to originate. In addition, to prevent cases
where victims of trafficking in persons are moved via Japan in an attempt to enter a third
country, the GOJ will thoroughly patrol the transit areas at airports and, with thecooperation of airlines, will make efforts to monitor and detect suspicious activities
including the exchange of counterfeit passports from brokers and other perpetrators.
(iv) Enhancing action to counter forged documents
To ensure that counterfeit passports and other travel documents will not be used as ameans to enter Japan for victims of trafficking in persons, the offices for identifying
forged documents at the Narita, Kansai, and Chubu airports will implement stringent
identification checks for forged documents. In addition, to make the most of video
microscopes installed at airports and seaports, the officials working at these ports will
receive proper training.
(v) Examining the introduction of next-generation e-Passport
The GOJ will examine the introduction of next-generation e-Passports with second
biometrics to ensure that Japanese passports will not be used in cases of trafficking inpersons and to enhance the action against illegal uses of passports, including forgery, andthe illegal acquisition of passports through impersonation.
(2) Preventing trafficking in persons through the thorough management of residence
status(i) Preventing cases of trafficking in persons (that accompany illegal stays and stays
under false pretenses) through the stringent management of residence status
Through the stringent management of residence status, the GOJ will make efforts toprevent cases of trafficking in persons that accompany illegal stays and stays under false
pretenses. In particular, there is concern about the increase of cases of trafficking inpersons by means of false marriage. Therefore, to crack down on false marriages, followup investigations will be conducted on non-Japanese citizens who were working at adultentertainment stores (where the police uncovered criminal activity etc.) after entering
Japan with the status of residence of “spouse or child of Japanese national” and therefore
are suspected to be residing in Japan under false pretenses. In addition, to crack down on
illegal stays and stays under false pretenses (including false marriage) as well as brokers
and other perpetrators who are involved in these cases, the police and the Immigration
Bureau will promote efforts to exchange information, and, when they detect a criminal
case, they will cooperate to crack down on the crime, to determine whether it is atrafficking in persons case or not, and to protect the victims. Additionally, theImmigration Bureau and Japan’s diplomatic establishments overseas will enhancecooperation when examining certificates of eligibility (the Immigration Bureau) and visa
checks (diplomatic establishments overseas).
(ii) Preventing trafficking in persons through action against illegal employment
There are many victims of trafficking in persons who are forced to work illegally. The
police, the Immigration Bureau, the Labor Standards Inspection Offices, and otherinstitutions concerned will enhance cooperation and proactively exchange information to5crack down on illegal employment. When malicious employers, brokers, or otherperpetrators (involved in illegal employment of victims of trafficking in persons) aredetected, the police will crack down on the crime, explore cases of trafficking in persons,and protect the victims in cooperation with the Immigration Bureau, the Labor Standards
Inspection Offices, and other institutions concerned. In particular, as many victims of
trafficking in persons are working illegally in the adult entertainment and the sex
industries, the GOJ will strengthen its effort to crack down on illegal employment inthese industries. In addition, to improve the general public’s awareness of the preventionof illegal employment, the GOJ will conduct educational activities, including the annual
campaign (Illegal Work Prevention Campaign) to tackle the situation surrounding
illegally employed non-Japanese workers, which takes place in June (a nationalawareness month to educate the general public about the issues surrounding non-Japanese
workers).
2. Elimination of trafficking in persons(1) Thorough crackdowns(i) Thorough crackdown on trafficking in persons
Through various activities, including the uncovering of illegal activities and theoperation of Tokumei Tsu-ho Dial, the anonymous reporting line, the police, theImmigration Bureau, the Japan Coast Guard, and other related organizations will makeefforts to identify trafficking in persons as quickly as possible and thoroughly crack downon the crime. While attempting to identify criminal organizations behind individual casesof trafficking in persons, the police and the Japan Coast Guard will cooperate closelywith institutions concerned to stringently punish and penalize perpetrators (including
confiscation of crime proceeds) by proactively applying penal regulations to the Buying
or Selling of Human Beings, violations of the Immigration Control Act, violations of the
Act on Control and Improvement of Amusement and Entertainment Businesses, etc. andviolations of the Labor Standards Act as well as other punishments and penalties forcrimes related to trafficking in persons.
(ii) Thorough crackdown on prostitution, etc.
There have been many cases of trafficking in persons for the purpose of sexual
exploitation through prostitution, etc. Therefore, the GOJ will attempt to find cases oftrafficking in persons and stringently punish and penalize perpetrators by cracking down
on houses of prostitution disguised as adult entertainment establishments, prostitutedispatch services disguised as “delivery health” (legal escort) services, and other illegal
adult entertainment-related activities.
(iii) Stringent action against the sexual exploitation of children
The GOJ has zero tolerance for the sexual exploitation of children and will thoroughly
crack down on child prostitution and child pornography, and will punish and penalize
perpetrators more stringently by applying the regulations concerning crimes committed
outside Japan as well as the Act on Punishment of Activities Relating to Child
Prostitution and Child Pornography, and the Protection of Children. In addition, the GOJ
will enhance the action to eliminate child pornography and other illegal activities.

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(iv) Thorough crackdown on malicious employers, brokers, etc.
The GOJ will ensure that it implements such laws and regulations as the Act onControl and Improvement of Amusement and Entertainment Businesses, etc, theImmigration Control Act, and the Labor Standards Act. The police, the Immigration
Bureau, the Labor Standards Inspection Offices, the Japan Coast Guard, and otherinstitutions concerned will make efforts to share the recognition of possible cases oftrafficking in persons for the purpose of sexual exploitation, labor exploitation, or othertypes of exploitation. When these cases are detected, the police will closely work with the
Immigration Bureau, the Labor Standards Inspection Offices, the Japan Coast Guard, andother institutions concerned to crack down on the crime while attempting to arrest
malicious employers, brokers, and other perpetrators.
(2) Crackdown on transnational crime(i) Strengthened cooperation with related overseas institutions
In cooperation with the ICPO (International Criminal Police Organization), the GOJ
will accordingly share information about trafficking in persons, child prostitution, andchild pornography with the investigative authorities of the countries where victims of
trafficking in persons originate from or where Japanese perpetrators are suspected ofengaging in child prostitution or other types of exploitation. In addition, the GOJ will
make efforts with countries of origin of trafficking in persons through bilateral
consultations to share information about passports and visas used for such trafficking inorder to take action to prevent the crime. In particular, the GOJ will make suchpreventive efforts through bilateral consular conventions with the Philippines andThailand, and a joint task force with Thailand where many victims originate.
(ii) Enhancement of international mutual legal assistanceOn the understanding that child prostitution, child pornography, or other types of
exploitation(stipulated by the Optional Protocols to the Convention on the Rights of theChild) are criminalized in Japan, the GOJ will proactively provide assistance under the
related domestic laws and regulations, including the Act on International Assistance inInvestigation and Other Related Matters, when foreign governments attempt to prosecute
Japanese perpetrators of such crimes in their countries and request Japan’s assistance ininvestigation based on international comity, mutual legal assistance treaties, or otherrelated international agreements. In particular, the GOJ will consider the possibility ofconcluding mutual legal assistance treaties with the countries that the GOJ often works
together with in these matters.

3. Protection of victims of trafficking in persons(1) Identification of victims(i) Publicizing protection policies to potential victims
The GOJ will make brochures and place them where victims of trafficking in persons
are likely to see them. The Ministry of Justice will also make efforts to publicize
protection policies to potential victims (who do not acknowledge that they are being
victimized or who are afraid to report the crime) by, for example, providing information
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about trafficking in persons on the ministry’s English website. In addition, eachprefectural government will promote efforts to publicize to potential victims the roles ofthe Women’s Consulting Offices, which provide consultation and protection for women
who face various kinds of problems regardless of their nationality.
(ii) Responsibilities of related organizations
To promote the effort to identify and protect potential victims of trafficking in persons
by way of responding to a wide range of human rights violation against non-Japanese
residents (including trafficking in persons) as well as to the difficulties they face ineveryday life, the police, the Immigration Bureau, the Legal Affairs Bureau, theWomen’s Consulting Offices, the Child Guidance Centers, the Labor Standards
Inspection Offices, the Ministry of Foreign Affairs, municipal offices, and general
consultation offices for non-Japanese residents will cooperate with related organizations
to proactively and appropriately handle situations where victims of trafficking in persons
or related persons wish to seek guidance or to be protected. In addition, institutions
concerned will enhance the effort to identify victims by creating an environment where
people feel comfortable seeking guidance and do not hesitate to report cases oftrafficking in persons. For example, to create such an environment, foreign language
consultation services may be provided for non-Japanese residents, or female counselors
may talk to women who wish to seek guidance. Additionally, the GOJ will enhancecooperation and the exchanging of information with related NGOs by publicizing theirpoints of contact. The GOJ will also examine the possibility of managing or supporting a
multi-language hotline to make it easy for latent victims to report their situation.
(iii) Identifying victims during the process of a crackdown
The police, the Immigration Bureau, the Labor Standards Inspection Offices, andrelated organizations, when handling illegal entries into and stays in Japan, adultentertainment-related offenses, prostitution, child prostitution and pornography, andviolations of the Labor Standards Law surrounding non-Japanese workers, will take into
consideration the fact that there may be victims of trafficking in persons and make efforts
to find such cases as quickly as possible by creating an environment where people feel
comfortable and do not hesitate to report such cases from fear or anxiety. For example, tocreate such an environment, foreign language consultation services may be provided for
non-Japanese residents, or female counselors may talk to women who wish to seek
guidance. In addition, victims of trafficking in persons who are sexually exploited may
talk about their situations to their customers. Thus, when investigating prostitution cases
and questioning customers, the police and related organizations will make efforts tocollect information in a way that potential victims may be identified.
(iv) Dealing with newly identified victims
After victims of trafficking in persons are identified through consultation and otherservices or during the process of a crackdown, other victims may also be identified basedon the information collected from confirmed victims under protection or related persons.
Institutions concerned will cooperate with each other and promptly respond to such cases.
(2) Implementation of thorough victim protection
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(i) Protection of victims
When institutions concerned identify victims of trafficking in persons, they will reportto the police and/or the Immigration Bureau if necessary and cooperate with each other totake appropriate action to protect the victims, taking into consideration that malicious
employers, brokers, or other perpetrators may harm these victims.
(ii) Securing the safety of victims
To secure the safety of victims and prevent or reduce secondary victimization, thesituation and emotions of victims should be considered during interviews and othercriminal procedures by, for example, providing consultation services, choosing
appropriate interview locations, escorting victims in court (by advisors or othersupporting persons), providing information (using the Victim Notification System),making court proceedings unobservable, and using the video-link system (audiovisualcommunication through transmission of images and sound) to examine witnesses.
(iii) Considering the situation of victims
When the police and the Immigration Bureau identify victims of trafficking inpersons through consultation and other services or during the process of a crackdown,
they will notify the victims about victim protection policies, thoroughly explain legal
procedures, including special permission to stay , and explain future investigation
activities (to the extent that will not interfere with investigation). In addition, when avictim of trafficking in persons has committed a crime that was part of such trafficking,the investigative organizations will make efforts to thoroughly consider the situation of
the victim while looking at future investigation activities.
(iv) Securing the legal status of victims
To prioritize the protection of victims, the GOJ will thoroughly consider their situationand ensure the stability of their legal status according to their wishes. If victims arelegally staying in the country, the GOJ may grant them the extension of the period to stayor the change of status of residence. If victims are violating the Immigration Control Act
by illegally staying in the country, etc., the GOJ may grant them special permission tostay.
(3) Providing shelters and support(i) Protection and support activities by the Women’s Consulting Offices
The Women’s Consulting Offices will cooperate with the police, the Immigration
Bureau, other institutions concerned, foreign embassies in Japan, the IOM (International
Organization for Migration), and NGOs to provide temporary protection to female
victims of trafficking in persons regardless of nationality and age. The Women’s
Consulting Offices will make efforts to improve the support activities to suit thecondition of each victim by, for example, providing her with food, shelter, and clothes,
making specific arrangements for her room, bathing, and meals, and implementing night
security measures. When children are victims, the Women’s Consulting Offices will
work together with the Child Guidance Centers to take appropriate action to protect them.
In addition, Temporary protection may be commissioned to private shelters by the
Women's Consulting Offices in a case where the victim is expected to be taken care of9more appropriately there due to the fact that the address of the said accommodation is notknown to the public or that the said accommodation has staff who understand the victim’s
native language.
(ii) Interpretation services at the Women’s Consulting Offices
To protect and support victims of trafficking in persons, the Women’s Consulting
Offices will enhance the effort to support victims in their native languages by hiring andtraining interpreters with the budget specified for that purpose.
(iii) Counseling and medical care by the Women’s Consulting Offices
Professional psychologists at the Women’s Consulting Offices and psychological carestaff at temporary shelters will provide counseling services for victims of trafficking inpersons. In addition, counselors at the Women’s Consulting Offices will cooperate withinstitutions concerned to provide counseling services based on the wishes of victims.
Additionally, a free/low-cost medical treatment program or medical-cost subsidies will beapplied to provide necessary medical care to victims. When children are victims, theChild Guidance Centers will arrange sessions with child psychologists or checkups withmedical doctors if necessary. In cases where highly specialized treatment is required, theChild Guidance Centers will cooperate with specialized medical institutions to provide
psychological treatment.
(iv) Publicizing legal assistance policies to victims
The GOJ will publicize legal assistance policies to victims so that they can use the
Civil Legal Aid services (provided by the Japan Legal Support Center based on theComprehensive Legal Support Act) to claim damages from perpetrators when the victims
are lawfully residing in Japan with proper addresses and meet certain requirements,
including those regarding their incomes. The GOJ will also publicize to victims that they
can request to appoint court-appointed attorneys at law for victims through the Japan
Legal Support Center in order to take advantage of the system for victims to participate in
the criminal procedures when the victims meet certain requirements, including thoseregarding their incomes. In addition, as part of efforts to support victims, the Women’s
Consulting Offices will offer legal assistance by providing information about free-ofcharge legal consultation services and available laws and regulations for female victims,
as well as by, if necessary, requesting lawyers to give advice to the staff at the Women’s
Consulting Offices and to make arrangements with related organizations and/or persons.
(4) Enhancing victim protection policies(i) Examining mid- and long-term protection policies
To reduce the burden on victims due to living in Japan for a long period of time, theGOJ will examine the enhancement of the protection and support system at the Women’s
Consulting Offices as well as of cooperation between the Women’s Consulting Offices
and investigative organizations. The GOJ will also examine the circumstances causing
victims to stay in the country longer and consider establishing necessary protection
policies. In addition, the GOJ will respect the wishes of victims who cannot return totheir home countries and institutions concerned will cooperate with each other to provide
necessary support while giving consideration to their reasons, languages, etc. The GOJ
10will grant a status of residence that allows to work if it is deemed necessary after
comprehensively examining individual circumstances. Moreover, the GOJ will, if
necessary, provide job search support to suit the wishes of victims who have acquired astatus of residence that allows to work.
(ii) Examining protection policies for male victims
Male victims may be identified in the cases of trafficking in persons for the purpose oflabor exploitation of non-Japanese workers. Since the Women’s Consulting Offices
specialize in protection for women and cannot deal with the protection of male victims,
the GOJ will consider establishing protection policies for male victims.
(5) Promotion of repatriation assistance to victims(i) Creating an environment for the smooth repatriation of victims
The Women’s Consulting Offices, police, the Immigration Bureau, and institutions
concerned will enhance cooperation while working closely with the IOM and private
shelters as well as foreign embassies to create an environment to smoothly repatriate
victims of trafficking in persons to their home countries.
(ii) Exchanging information with countries concerned to allow the prompt issuance oftravel documents for repatriation
To promptly protect victims of trafficking in persons, the GOJ will promote efforts to
exchange information with the countries concerned and ensure that their embassies will
issue travel documents for repatriation to victims who wish to return to their homecountries.
(iii) Improving repatriation assistance
The GOJ will improve the repatriation assistance system (conducted through the IOM)
for victims of trafficking in persons and work together with foreign governments
concerned to provide comprehensive support to victims by, for example, helping them
integrate into their local communities and collecting information to prevent
revictimization.
(iv) Ensuring the safety of victims at the time of repatriation
To prevent revictimization after repatriation, the GOJ will work together with foreign
governments concerned, the IOM, and other related organizations to ensure the safety ofvictims in their home countries and take appropriate action according to individual
circumstances from a humanitarian standpoint.
4. Establishing the foundations to promote comprehensive action to combat trafficking inpersons(1) Participation in international frameworks(i) Conclusion of the Protocol to Prevent, Suppress and Punish Trafficking in Persons,
Especially Women and Children
In June 2005, the Diet approved the Protocol to Prevent, Suppress and Punish
Trafficking in Persons, Especially Women and Children, supplementing the United
11Nations Convention against Transnational Organized Crime, and domestic laws wereamended for the implementation of the Protocol. The GOJ will promptly ratify theConvention and the Protocol. In addition, the GOJ will proactively participate in the
United Nation’s and other international frameworks concerning trafficking in persons.
(ii) Sharing information with related foreign organizations, etc.
The GOJ will promote the following efforts to share information with related foreignorganizations, etc.
① The GOJ will make efforts to extend and strengthen cooperation in overseas
investigations within Southeast Asia through the International Symposium
on Measures to Prevent the Commercial and Sexual Exploitation ofChildren in Southeast Asia (sponsored by the National Police Agency),
where investigative organizations from Southeast Asia and elsewhere, andNGOs from Japan and abroad participate.
② The GOJ will share information concerning trafficking in persons throughexchanging the information and opinions at the Seminar on Immigration
Control (held by the Immigration Bureau, the Ministry of Justice), where
immigration officers in Southeast Asia and personnel from the IOM andrelated organizations participate.
③ Through various training programs at the United Nations Asia and Far East
Institute for the Prevention of Crime and the Treatment of Offenders(UNAFEI), the GOJ will endeavor to enhance the capacity of criminal
justice authorities in developing countries to cooperate internationally; itwill further endeavor to strengthen relationships among such countries’
investigating authorities.
④ To promote the sharing of information on trafficking in persons in the Asia
Pacific region, the GOJ will proactively participate in the Bali Process(follow-up to the Ministerial Regional Conference on People Smuggling,
Trafficking in Persons and Related Transnational Crimes in Bali).
⑤ The GOJ will consider establishing a bilateral framework for cooperationand information sharing with countries of origin of victims of trafficking inpersons.
(iii) International assistance
The GOJ will promote international cooperation efforts through ODA programs by,for example, helping Southeast Asian and other countries (where many victims of
trafficking in persons in Japan originate) to provide education, support victims, improve
occupational capacity, and implement stricter enforcement of regulations. The GOJ will
also make efforts through various international assistance means to reduce poverty(which is one of the major causes of trafficking in persons) and to cooperate with eachcountry to prevent of trafficking in persons and for the support of victims.
(2) Ensuring understanding and cooperation from the general public(i) Comprehensive awareness and PR activities
To raise awareness of the general public about trafficking in persons and to facilitate
efforts to eliminate trafficking in persons, the GOJ will work together with a wide range
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of organizations, including prefectural and municipal governments, to conduct awarenessand PR activities during the Campaign for Eliminating Violence against Women, whichtakes place every November and aims to eliminate violence against women, including
victims of trafficking in persons. In addition, institutions concerned will cooperate witheach other to ensure awareness raising and cooperation from the general public byproactively publicizing, for example, that trafficking in persons is an unforgivablemalicious crime and includes sexual and labor exploitation, and that there aregovernmental policies to combat trafficking in persons. Such publicizing activities will
include making and distributing pamphlets, placing information on websites, and PR
efforts aimed at the countries of origin of victims of trafficking in persons by
Japan’sdiplomatic establishments overseas .
(ii) Making and distributing awareness-raising brochures on human rights
The Human Rights Organs of the Ministry of Justice will make and distributeawareness-raising brochures on human rights that include descriptions of Japan’s action
to combat trafficking in persons. In addition, the Organs will hold nationwide awarenessraising activities throughout the year, by putting the slogans "Respect human rights offoreigners" and "Eradicate Trafficking in Persons" in their annual matters of priority andconduct various awareness-raising activities, such as holding lectures and training
programs, through the Legal Affairs Bureaus and the District Legal Affairs Bureaus
nationwide.
(iii) Measures of school education, etc..
The GOJ will enhance efforts to cultivate a spirit of respect for human rights throughschool and social education at various developmental stages and turning points in life. To
prevent prostitution, the GOJ will make efforts to give scientific sex education to students
and educate them so that they learn to respect life, are able to think and make judgments
individually, and develop sound behavior through total school education. As part of such
efforts, the GOJ will make efforts to educate students and raise their awareness to learn torespect social norms that may lead to the prevention of prostitution, etc. through juvenile
delinquency prevention programs and other PR activities. In addition, the National
Women's Education Center will study measures to educate, raise awareness andcooperate to prevent trafficking in persons with a view to preventing prostitution.
(iv) Promoting compliance with laws and regulations related to trafficking in persons, etc.
The purposes of trafficking in persons include sexual exploitation and labor
exploitation, and there are cases where employers engage in activities related totrafficking in persons without recognizing it. Therefore, to prevent employers fromengaging in such activities, the GOJ will emphasize PR activities and awareness raising
to employers so that they will have a better understanding of trafficking in persons andunderstand and comply with laws and regulations surrounding trafficking in persons(including the Penal Code, the Immigration Control Act, the Anti-Prostitution Act, theAct on Control and Improvement of Amusement and Entertainment Businesses, etc,, theEmployment Security Act, the Labor Standards Act, the Child Welfare Act, the Act on
Punishment of Activities Relating to Child Prostitution and Child Pornography, and theProtection of Children).
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(v) Raise awareness of the demand side of sexual exploitation
The GOJ will promote efforts to raise awareness of the demand side of sexual
exploitation by publicizing that many victims of trafficking in persons are sexually
exploited through prostitution, etc. According to Japan’s laws and regulations it is illegal
for Japanese travelers overseas to patronize a prostituted child, and such offenses willencourage trafficking in persons in those countries, so the GOJ will also promote efforts
to raise awareness of the potential perpetrators of sexual exploitation by posting posters
at and distributing leaflets to travel agencies, passport centers, and related organizationsin Japan to prevent Japanese travelers from patronizing a prostituted child.
(3) Strengthening the system to promote action against trafficking in persons(i) Enhancing knowledge and awareness of staff working at institutions concerned
To tackle increasingly sophisticated and hidden cases of trafficking in persons and to
appropriately protect victims of trafficking in persons, institutions concerned will educate
staff to enhance their knowledge and skills, and to raise awareness as required tofacilitate action against trafficking in persons through specialized and practical training
programs for identification, protection and support for victims of trafficking in persons.
(ii) Enhancing cooperation and information sharing among institutions concerned
Institutions concerned will cooperate with each other to examine the total procedure,from identifying and protecting victims to providing them repatriation assistance, as wellas the modes of cooperation to systemize how to handle cases of trafficking in persons. In
addition, related ministries and agencies will make intergovernmental efforts to share
information and improve statistics related to trafficking in persons. Related ministries andagencies will also compile case examples of trafficking in persons to examine how to
identify victims and appropriately handle such cases, and how to share information
between related ministries and agencies, between national governments and prefecturaland municipal governments, and between institutions concerned at the prefectural andmunicipal levels. In addition, the GOJ will examine the necessity of establishing a bureau
that handles policy planning and implementation concerning trafficking in persons in an
integrated manner.
(iii) Ensuring cooperation between NGOs, the IOM, and other related organizations
The GOJ will continue to regularly hold liaison committees between related ministries,
agencies and NGOs as well as to appropriately cooperate with NGOs, the IOM, and otherrelated organizations in order to promote the public and private sectors’ taking joint
action to combat trafficking in persons.
(iv) Cooperating with the framework for the promotion and examination of policies
surrounding non-Japanese residents
When related ministries and agencies promote action against trafficking in persons,they will ensure consistency with Japan’s policies surrounding non-Japanese residents
and will cooperate with the framework of various policies surrounding non-Japanese
residents.

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(v) Cooperating with the framework for the promotion and examination of measures forcrime victims
To enhance Japan’s policies to protect victims, when related ministries and agencies
promote various policies to protect victims of trafficking in persons, they will ensure
consistency with the Basic Plan for Crime Victims and cooperate with the framework forthe promotion and examination of measures for crime victims.
(vi) Promoting effective and continuing action against trafficking in persons andreviewing the Action Plan
To promote effective and continuing government-wide action against trafficking inpersons, the GOJ will regularly verify the progress of each policy, make efforts tounderstand the latest conditions surrounding trafficking in persons, examine and promote
policies required to respond to changes in the means of trafficking in persons, and review
the Action Plan as needed.

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