COMMISSION OF THE EUROPEAN COMMUNITIES 
Brussels, 27.11.1996 
COM(96) 547 final 
COMMUNICATION FROM THE COMMISSION 
on combating child sex tourism 

Introduction 
1. The widespread development of child sex tourism is a relatively recent 
phenomenon, which is partly linked to the considerable increase in the number of 
business travellers and international tourists in the second half of the 20th century. 
In this context, tourism is seen as one of the channels for the commercial sexual 
exploitation of children. At the same time, it is becoming increasingly clear that the 
growing contribution of the tourist industry in combating this affliction is a key element 
in the solution to the problem. 
2. The sexual exploitation of children in tourism is perpetrated not only by 
paedophiles, who constitute the hard core of child sex abusers, but also by preferential 
abusers and occasional abusers.1 
This distinction between different types of child sex abusers, which is based on various 
scientific studies, is of practical interest not only as regards targeting information and 
awareness-raising campaigns (mainly aimed at occasional abusers), but also in the 
treatment and rehabilitation of the victims, to be adapted in function of the stage in the 
child's development and the types of abuse suffered. However, the distinction should in 
no way disguise the unacceptable nature of any such practices. 
Considerable progress has been made in identifying the reasons - psychological, social 
and cultural - which may lead a tourist to exploit children sexually (see Annex 1). It is 
therefore possible to draw up and implement measures to combat such practices in spite 
of some uncertainty surrounding the identity, motivation and behaviour of the sex tourist. 
3. As the preparatory work for the Stockholm World Congress held in August 1996 
has shown, the sexual exploitation of children in tourism is a real "business" on an 
international scale. It knows no geographical, cultural or social boundaries. It is often a 
highly organized phenomenon, which is extremely profitable and carries only low risks 
of prosecution and punishment. 
However, there are still some uncertainties, because, while there is little doubt that the 
sexual exploitation of children is on the increase, it is difficult, owing to the absence of 
qualitative and quantitative studies, to form a precise idea of its nature and its extent. 
Nevertheless, it is recognised that not only is the practice increasing, it is also spreading 
geographically. 
It is clear that the number of child prostitutes is constantly on the increase. While the 
figures from different sources should be handled with the greatest caution, according to 
current estimates, each year throughout the world, one million children join the ranks of 
the victims of sex tourism and organized prostitution. 
The term "preferential abuser" is used to designate individuals who have a sexual preference for 
children who have reached or passed the age of puberty. The term "occasional abuser" is used to 
designate individuals who exploit children sexually without being specifically interested in children. 
With regard to these concepts, reference should be made to the document The sex exploiter, submitted 
by ECPAT for the World Congress against Commercial Sexual Exploitation of Children (Stockholm, 
August 1996). 
The phenomenon also appears to be spreading. The flows of sex tourists are mainly from 
the economically developed countries of Western Europe, North America and Australasia 
to the poorer countries in other regions. Initially concentrated in South East Asia, child 
sex tourism has now spread to many countries in Asia itself, South America, the 
Caribbean and Africa. There are, however, also individuals in certain less developed 
countries who engage in sex tourism. Similarly, there are a number of destinations for sex 
tourism in developed countries. Moreover, certain countries in Eastern Europe are also 
beginning to attract sex tourists and export child prostitution to other countries.2 
The internal organization of sex tourism, particularly in the main destination countries, is 
usually linked to organized crime networks. At international level, the promotion and 
organization of sex tourism involving children - marginal practices compared with the 
bulk of tourist activity - operate in different ways (see Annex 2). 
4. In combating this phenomenon, neither tourism and the tourist industry nor the 
tourist destinations affected by this affliction should be discredited, but attention should 
focus on encouraging the drawing up and application of standards of conduct likely to 
eliminate practices which are not in line with the tourism ethic. 
Indeed, the spread of child sex tourism is in flagrant contradiction of the spirit and the 
letter of the provisions of the World Tourism Organization's (WTO) Tourism Bill of 
Rights and Tourist Code, adopted by the General Assembly of the WTO at its sixth 
session (September 1985). 
Hence, the declaration by the WTO on the prevention of organized sex tourism, adopted 
by the General Assembly at its eleventh session (October 1995), which "denounces and 
condemns in particular child sex tourism, considering it a violation of Article 34 of the 
Convention on the Rights of the Child (United Nations 1989), and requiring strict legal 
action by countries sending and receiving tourists ". 
5. The Commission is fully aware both of the extent and seriousness of the problem 
and of the fact that European public opinion in general, and tourists and the tourist 
industry in particular, are becoming increasingly sensitive to this affliction. 
As the Commission considers that it has as duty to ensure that the vulnerability exploited 
which is making children easy prey should also entitle them to special care and 
protection, it has taken the initiative to draw up this communication specifically on 
combating child sex tourism. 
In this connection, it should be recalled that the proposal for a Council Decision 
concerning the first multiannual programme to assist European tourism 
"PHILOXENIA"3, adopted by the Commission in April 1996, had already made specific 
reference to the problem of child sex tourism. 
2 Helena Karlén and Christina Hagner, L'exploitation sexuelle des enfants à des fins commerciales dans 
certains pays de l'Europe de l'Est, ECPAT, 1996. 
3 COM(96) 168 final, of 30.04.1996. 
This communication incorporates the findings of the Stockholm Congress held in August 
1996 against the commercial sexual exploitation of children, particularly the various 
references made to sex tourism or the tourist industry in the Stockholm Agenda for 
Action. As part of the general contribution of the European Union to the efforts to combat 
the sexual abuse and exploitation of children, it gives specific, concrete responses on how 
to combat child sex tourism. 
The aide-mémoire entitled The European Union's contribution to reinforcing the prevention of the sexual 
abuse and exploitation of children, presented by the Commission at the informal meeting of the Ministers 
of Justice and Home Affairs on 26 and 27 September 1996, gives an overall picture demonstrating the 
Commission's wish to give greater cohesion to all its work on the problem of protecting children. 
It includes detailed information on the Commission's action in this area, setting out the various measures 
already carried out, in progress, and planned. Some of these have already borne fruit. For instance, in 
October 1996, the Commission adopted both the communication on Harmful and illegal content on the 
Internet4 and the Green Paper on the Protection of minors and human dignity in audiovisual and 
information services5-
These two specific contributions, which are in line with the Commission's overall approach, are of interest 
in connection with other areas. For example, the link with combating child sex tourism is particularly clear 
if all the new opportunities offered by technological progress are considered, particularly for the exchange 
of information between sex tourists and the promotion and organization of sex tourism. 
The contents of the communication on Trafficking in women for the purpose of sexual exploitation, 
adopted in November 1996", are also particularly relevant to combating the sexual exploitation of 
children. 
The Commission is of the opinion that, while children will always remain the main focus 
of attention, a number of solutions to the problem of child sex tourism relate to 
deterrence and punishment of child abusers. 
It is all the more necessary to pay attention to the demand aspect as this is a frequently 
neglected aspect of child protection. Attention is usually unequal, focusing on the abused 
rather than the abuser, seeking solutions addressing the source of supply without 
corollary measures to stem the demand for children. 
The Commission is aware that, although the tourist industry can contribute to combating 
child sex tourism, the means at its disposal are nevertheless limited. To be effective, 
measures taken by the industry must be part of a wider approach, combining increased 
action by the countries involved and by the relevant international organizations, and the 
many measures taken by civil society and non-governmental organizations with 
recognized experience in this area. 
Community action in this field is justied on more than one count. First, there is the 
transnational nature of the phenomenon and its effects, which considerably limits the 
impact of isolated reactions or piecemeal measures. There is also the risk that measures 
will be spread too thinly, particularly if no significant effort is made to increase 
4 COM(96) 487 final, of 16.10.1996. 
5 COM(96) 483 final, of 16.10.1996. 
6 COM(96) 567 final, of 20.11.1996. 
coordination. Finally, the Community has the ability to mobilize a greater political and 
financial commitment both within Europe and in its relations with third countries. 
The set of proposals for action should be seen as a reference framework for the 
prevention of child sex tourism, placing it in a medium and long term perspective, with 
the focus on a limited number of targeted objectives responding to the need to: 
deter and punish child sex abusers; 
take action in relation to the demand and the supply of sex tourism involving 
children; 
encourage the Member States to take a common stance against this affliction. 
Deterring and punishing child sex abusers 
The Commission shares the opinion that "There should be no ambivalence in declaring 
the illegality and immorality of commercial sexual exploitation of children. Neither 
should there be any doubt that, on this particular aspect, children are never the 
perpetrators of the offence, but the victims thereof1. 
In reality, in the case of authors of certain acts, the fact that they can be prosecuted, or 
alternatively, that they can profit from a legal void, is an important consideration. 
Consequently, greater attention should be given to the panoply of texts capable of helping 
to combat child sex tourism, and to their implementation. 
All the more so as, under pressure from humanitarian associations and public opinion, 
laws are being enacted8 which provide for example for sanctions against child molesters 
for offences and crimes committed abroad. Several Member States have taken9 or are in 
the course of taking10 this line. The Commission welcomes the measures taken by these 
countries to combat child sex tourism11. 
Obviously, it is a matter for the Member States to determine, if they have not already 
done so, whether or not they wish to enact such provisions in their own countries and, if 
so, to ensure that they are implemented. That being said, it appears opportune to draw 
their attention to two key elements in combating child sex tourism - namely, the 
possibility of giving national courts extra-territorial jurisdiction for offences and crimes 
committed against children abroad, even where the presumed offence or crime is not 
provided for under the laws of the country in which it was committed. 
7 Keynote speech of Ofelia Calcetas-Santos, UN Special Rapporteur on the Sale of Children, Child 
Prostitution and Child Pornography (World Congress against Commercial Exploitation of Children, 
Stockholm, August 1996). 
8 An overall view is given in the document The International Legal Framework and Current National 
Legislative and Enforcement Responses, submitted by ECPAT for the World Congress against 
Commercial Sexual Exploitation of Children (Stockholm, August 1996); see also ECPAT Enforcing 
the Law against the Commercial Sexual Exploitation of Children. Nitiporn Printing Co. Ltd., 1996. 
9 Sweden, Germany (1993), France (1994) and Belgium (1995). 
10 Italy, Ireland and the United Kingdom. 
11 Cf. in particular the reply given by Mrs Gradin to Written Question E-1594/95 by Alexandras 
Alavanos on the Commission initiative to eradicate child prostitution, OJ C 270, 16.10.95, p. 37. 
As far as the Commission is concerned, its action will focus on stimulating and 
promoting both an effective deterrent to the sexual abuse of children and appropriate 
penal sanctions for such acts. 
i) The first task will be to make a regular evaluation of progress in this field, particularly 
the implementation of the legal reforms and legal practices concerned. 
Within the limits of its competence, and in accordance with the wishes expressed by the 
European Parliament, the Commission has already undertaken to study this question in 
more detail. This is why, for instance, the representatives of the Member States, meeting 
as the Advisory Committee in the field of tourism, were invited in 1995 to make a 
detailed report on measures adopted or planned to combat child sex tourism. 
It is clear from the information available that increased judicial cooperation between the 
Member States is essential: Differences in definitions of crimes is sufficient reason for 
this, for example the age up to which a person may be considered as a child as regards 
sexual exploitation, the fact that not all Member States prosecute nationals or residents 
who commit sexual offences against children abroad. At a more general level, experience 
shows that a number of special difficulties are encountered in the treatment of cases with 
an international dimension. This situation calls for concrete multidisciplinary solutions, 
based primarily on increased cooperation between the competent authorities. 
The Council is currently studying joint action aimed at extending the responsibilities of 
the Europol Drugs Unit, by including combating trafficking in human beings. The Unit 
will also draw up a register of authorities in the Member States that specialize in 
combating international organized crime. The register will include specialists in the field 
of combating trafficking in human beings. Furthermore, a multiannual action programme 
to combat the trafficking in human beings and the sexual exploitation of children is 
currently under discussion in the Council. It provides for research and training activities 
and exchanges of persons involved in this field. 
In addition, a joint action project to increase legal cooperation in combating trafficking in 
human beings and the sexual abuse of children was put before the Justice and Home 
Affairs Council in September 1996. The project, which is currently being discussed by 
the Council, provides specifically for extra-territorial competence allowing acts of 
paedophelia committed outside the Union to be prosecuted in the Member States. 
The Commission welcomes these initiatives, which it considers as initial steps along the 
way towards increased cooperation in penal and police matters. 
ii) At the same time, the collection and exchange of information other than that of a legal 
nature, should improve knowledge both to combat the hidden nature of the sexual 
exploitation or abuse of children and to prevent children remaining vulnerable to such 
treatment. 
Although most countries have high-quality statistics and research instruments for other 
social matters, little data has been collected on the various aspects of child sex tourism. 
An initial step would be to collect and make available existing information on topics of 
common interest and of major importance, such as: 
the links between tourism and prostitution in general and between tourism and 
child prostitution in particular; 
the identity, motivation and behaviour of sex tourists; 
information on sex tourism in tourist guides and prospectuses and in the 
audiovisual media used by the industry for disseminating information; 
the implications of sex tourism for public health. 
The question of supporting the carrying out and the dissemination of supplementary 
studies on these issues is for consideration at a second stage. 
The Advisory Committee in the field of tourism12, which is composed of members 
designated by each Member State and has the task of "facilitating exchanges of 
information, consultation and, where appropriate, cooperation on tourism", provides an 
appropriate framework for carrying out the tasks to be undertaken in that context. 
iii) Independently of their specific purposes, both the assessment of progress achieved 
in the implementation of legal reforms and the judicial practices concerned, and the 
collection and exchange of information other than that of a legal nature, could also open 
the way to a concerted approach in relation to measures taken at national level together 
with a suitable initiative at the international level. 
For instance, these measures could initially facilitate the action of the Member States to 
encourage the national tourist authorities to take preventive measures against child sex 
tourism, particularly as regards information to travellers. 
As has been stated many times, travelling in a foreign country is not a trivial experience. 
This is why travellers going abroad should be made aware of possible differences 
(economic, social, cultural, social, religious, etc.) between that country and their own. 
More specifically, their attention should be drawn to the need to comply not only with 
the values of the country being visited, but also with certain basic rules of behaviour. 
Measures to dissuade could usefully concentrate on giving appropriate information to 
travellers in the context of travel formalities, such as checks by the police, customs or 
health authorities. Each type of check could be used as an opportunity for providing 
specific information13, in each case providing a warning to the traveller against child sex 
tourism. 
Second, such measures could make it easier to obtain a coordinated response at European 
Union level - both from Member States and the tourist industry - to the recent proposal 
by the World Tourism Organization on the constitution of a Task Force against sex 
tourism, "composed of groups from the tourist industry [...J as well as UNICEF, ECPAT 
[...] and several member countries of the WTO", which, inter alia, "would assemble [...] 
12 Council Decision of 22 December 1986 establishing a Consultation and cooperation procedure in the 
field of tour ism, OJ L 384, 31.12.86, pp. 52-53. 
13 Including information of a dissuasive nature on the risks involved (e.g. prosecution and health 
problems). 
7 
information on sex tourism and measures which have succeeded in preventing it, so that 
they can then be disseminated among firms in the tourist industry world-wide". 
The Advisory Committee in the field of tourism and the consultation meetings with the 
tourist industry provide an appropriate framework for carrying out the tasks to be 
undertaken in this area. 
Stemming the flow of sex tourists from the Member States 
The causes of the phenomenon of child sex tourism are as numerous as they are complex, 
and they are closely interconnected. Poverty is often quoted as factor in the sexual 
exploitation of children for commercial purposes. However, while it is true that this is a 
fundamental reason for the exploitation of children, its effects are linked to the supply 
aspect and do not sufficiently explain the phenomenon of the demand at world level. 
In this context, and given that most of the tourists that sexually exploit children come 
from industrialized countries, including some from the EU Member States, the 
Commission considers it essential to take measures to stem the flow of sex tourists from 
these countries. 
It shares the concerns of the European Parliament, which has called on the EU 
institutions to denounce the practices of European "consumers" as clear infringements of 
the fundamental rights and individual liberties of under-age victims and, therefore, to 
take all the necessary measures to ban advertizing for sex tourism from the Member 
States14. 
The European Parliament has also called on the Commission to devise an information 
campaign on the consequences of sex tourism, and other measures to prevent this form of 
tourism15. 
i) Information and awareness-raising campaigns against child sex tourism play an 
essential role in this respect. 
The Commission believes that greater coordination of campaigns at European level 
would increase their impact and awareness of the underlying problems. 
To increase effectiveness, attempts to coordinate these campaigns at European level 
should give priority to defining common guidelines, drawing up and implementing the 
resulting operational strategies, and assessing the results of the action taken. 
14 Resolution on the freedoms and fundamental rights of women, 6 May 1994, OJ C 205, 25.7.1994, pp. 
489-492. See also the Resolution on trafficking in human beings, 18 January 1996, OJ C 32, 5.2.96, 
pp. 88-93 in which the Parliament calls "for rules to be introduced on extra-territorial jurisdiction in 
order to allow the prosecution and punishment of individuals who have committed offences involving 
sexual exploitation of children and adolescents outside the Community territory". 
15 Resolutions on tourism in the approach to the year 2000, 18 January 1994, OJ C 44, 14.2.94, pp. 
61-65 and on the Report from the Commission on Community measures affecting tourism, 15 
December 1994, OJ C 18, 23.1.95, pp. 159-165. 
Having regard to the ease with which the tourist can "procure" a child for sexual 
purposes is in itself such a powerful incentive that some are easily tempted by this kind 
of experience, information and awareness-raising campaigns should be aimed not only at 
tourists but also more generally at public opinion in Europe. 
Community funding in this area, within the limits of the available resources, would not 
only enable the Community to act as the driving force behind coordination but would 
also promote raising of essential financial support from other sources. 
Community support would be dependent on the joint involvement of both the tourist 
industry and non-governmental organizations working in this field, in defining, initiating, 
implementing and monitoring information and awareness-raising campaigns. 
This is based on the fact that such joint involvement has proved its worth in combating 
child sex tourism and this partnership approach is in line with the guidelines defined by 
the Commission in its proposal for a Council Decision on a first multiannual programme 
to assist European tourism, "PHILOXENIA". Although the explanatory memorandum to 
the proposal provides for dealing with the question of combating child séx tourism, it 
does so in a specific context, namely that of increasing cooperation between the Member 
States, industry, and the other parties involved. 
In this regard, it is encouraging to see that in several branches of the tourist industry a 
real sense of collective responsibility is now emerging which is likely to increase the 
industry's contribution. 
These campaigns could also provide opportunities for encouraging the media to develop 
strategies to strengthen their role, "in providing information of the highest quality, 
reliability and ethical standards concerning all aspects of the commercial sexual 
exploitation of children" 16, 
Apart from any financial support from the Community for the coordination at European 
level of information and awareness-raising campaigns against child sex tourism, the 
Commission is envisaging the possibility of mobilizing the various Community 
information networks on this subject. 
ii) The Commission also believes that initiatives could be directed at the tourist 
industry, to make available, in particular through training programmes and schemes, 
guiding principles on combating child sex tourism. 
The objective would be to ensure that persons working - or likely to work - in the tourist 
industry have guidelines on the question as soon as possible. 
Training modules could be drawn up17 including both information on the objectives and 
mechanisms for combating child sex tourism and more general considerations on the 
problem of sex tourism. The ultimate aim would be to include in training programmes 
16 Cf. the document entitled Prime Time for Children: Media, Ethics and Reporting of Commercial 
Sexual Exploitation, submitted by the International Federation of Journalists for the World Congress 
against Commercial Sexual Exploitation of Children (Stockholm, August 1996), p.32. 
17 Under programmes such as Leonardo and Socrates. 
9 
and schemes the ethical dimension of responsible tourism, which seeks to preserve the 
dignity and physical and moral integrity of the child. 
In this context and more especially in the case of students receiving initial vocational 
training in tourism, the possibility could also be examined of granting, in conjunction 
with trade associations in the tourist industry, support for organizing competitions18, so 
as to make them more motivated, drive the message home to them and make them feel 
involved. 
iii) Finally, the Commission intends to encourage the drawing up and reinforcement of 
codes of conduct and self-regulatory mechanisms in the tourist industry with a view to 
combating the practice of child sex tourism. 
The drawing up and reinforcement of codes of conduct and self-regulatory mechanisms 
in the tourist industry to combat the practice of child sex tourism is both the logical 
extension and the practical implementation at Community level of the declaration of 
principle adopted at international level by various professional associations in the tourist 
industry19. 
All persons working in tourism who are in contact with tourists during the preparation for 
their journey and during the journey itself should be approached, with a view either to 
reviewing their information methods and commercial practices concerning the countries 
visited, or to acting as disseminators of information on the problem of child sex tourism. 
The Commission will strive for a basic minimum of commitment to be met by the 
various branches of the tourist industry, on a voluntary basis. They will be asked: 
to prohibit any explicit or implicit oral, written or graphic encouragement of sex 
tourism; 
to include, as part of their various activities, objective information for customers 
on sex tourism; 
to use, as part of their business practice, all appropriate measures to contribute to 
the practical application by the tourist industry of the prohibition of child sex 
tourism;20 
18 Along the lines of, for instance, the competition organised by ECPAT-France "Say No, to the 
exploitation of children by sex tourism". This is based on the fact that students in tourism schools 
today will be those working in the sector tomorrow. They should react today and offer the world their 
ideas for disassociating the word "sex" from tourism. 
19 For example, the Universal Federation of Travel Agents' Associations (UFTAA) and the International 
Hotel Association (IHA) adopted - in November 1993 and January 1995 respectively - resolutions 
supporting the ECPAT campaign against child prostitution. The UFTAA is also the originator of the 
Charter concerning travel agents and children, under which the members and affiliates of the 
organization, as signatories to the Charter, undertake to combat child prostitution linked to "sex" 
tourism and to protect the children who fall victim to these tourists. The International Air Transport 
Association (I ATA) also adopted a Resolution on this matter in November 1996 
An example of professional se!f-regu!atory measures can be found in the agreements concluded 
between German tour operators and the Terre des Hommes Association, which go so far as to provide 
for cancellation clauses for contracts concluded with hotels which prove to be involved in cases of 
child prostitution. 
10 20 
to specify, to both employers and employees, the extent of the obligation and the 
practical procedures for informing the competent authorities of cases of child sex 
tourism. 
The Commission, in cooperation with the Member States, could also involve itself in 
evaluating the implementation of these codes of conduct, which is the weak point of any 
such provisions. 
The Advisory Committee in the field of tourism and the consultations meetings with the 
tourist industry provide an appropriate framework for carrying out most of the work 
aimed at stemming the flow of sex tourists from the Member States. 
Helping to combat sex tourism in third countries 
The European Union attaches particular importance in its activities to the observance of 
democratic principles and human rights as stated in Article F of the Treaty on European 
Union. 
At a general level, the Council has on many occasions stated that it continues to attach 
great importance to human rights and particularly the rights of children, both within and 
outside the Union21. In this connection, the European Union is pursuing its efforts to 
ensure that all governments implement the Convention on the Rights of the Child and the 
Programme of Action for the Prevention of the Sale of Children, Child Prostitution and 
Child Pornography. It is also active in the UN Commission on Human Rights Working 
Group, which is currently drawing up a draft Additional Protocol to the Convention on 
the Rights of the Child on this subject.22 
Furthermore, the communications from the Commission on The inclusion of respect for 
democratic principles and human rights in agreements between the Community and 
Third Countries and on The European Union and the external dimension of human rights 
policy from Rome to Maastricht and beyond,. open the way to taking more systematic 
account of aspects relating to child sex tourism in relations with third countries.23 
The Community is already supporting countries in which there is a particular problem 
with regard to the economic exploitation, abandonment and/or prostitution of children, 
through special projects aimed at fostering social assistance, protection, well-being, 
reintegration and education. 
However, further efforts are necessary in order to provide greater protection for the 
victims of sex tourism in third countries through preventive measures among families 
and communities, penal measures against abuse at local level or the treatment and 
rehabilitation of sexually abused children. 
21 In particular the Council Reply to Written Question E-3528/95 by Roberto Mezzaroma on 
Safeguarding children in South-East Asia who are victims of sexual violence, OJ C 183 of 24.6.96, p. 4 
22 Reply by the Council to Written Question E-8/95 by Clive Needle on Child Prostitution, OJ C 139 
5.6.95, pp. 47-48. 
23 Cf. European Commission, The European Union and Human Rights in the World, European Union 
Bulletin, Supplement 3/95. 
i) Accordingly, particular attention will be given to rationalizing methods for action 
and coordinating the Community resources available for the protection of children who 
are victims of sex tourism. 
Several financial instruments can be used to pursue the objective of making the 
observance of democratic principles and human rights a cornerstone of the Union's 
policy on cooperation with third countries (see Annex 3). 
Since some of these instruments already enable support to be given to promoting and 
protecting the rights of the child, the Commission is considering also using them 
specifically to support measures to help children who are victims of sex tourism. 
It appears particularly appropriate, therefore, to engage in political dialogue with the 
developing countries most affected. As regards the ACP countries in particular, such a 
dialogue could encourage them to use existing EDF resources for measures aimed at 
combating child sex tourism. 
In any event, a more detailed analysis must first be made of the nature and extent of child 
sex tourism in third countries and of the measures taken by these countries to combat 
such practices. This should make it possible to specify the kind of support which can be 
given outside the Community on this matter, and how it can be provided. 
This kind of analysis, in cooperation with the third countries concerned, is all the more 
important since victim protection programmes are often expensive and difficult to 
implement, and do not always produce the results expected. This is particularly the case 
with rehabilitation, mainly because of the serious trauma the children have undergone, 
the great difficulties they encounter in reintegrating into communities ready to receive 
them, the considerable health risks to which they have been - and often remain - exposed, 
and the situation of dependence that has been imposed on them. 
As regards programmes for the rehabilitation of sexually abused children, efforts have 
been made to ensure, on the one hand, that the beneficiaries are involved in the 
definition, management and assessment of such programmes, and on the other, that there 
is cooperation with the families and communities, which must be made aware of the 
particularly devastating effects of the sexual exploitation of children. In addition, 
particular attention should be given to the experience acquired by non-governmental 
organizations which are particularly active in protecting children in third countries who 
have fallen victim to sex tourism24. 
However, the Commission feels that the existence of child sex tourism should not call 
into question the important contribution of tourism to the economic and social 
development of the countries concerned, particularly as a growing number of tourist 
destinations which are particularly affected by this affliction are introducing strategies to 
counter it, since they are aware of the potential negative effects of tourism linked to the 
sexual exploitation of children for commercial purposes, and the long-term costs which it 
might entail. 
24 A number of significant articles on this matter will be found in a publication by the NGO Group for 
the Convention on the Rights of the Child, A Right to Happiness - Approaches to the Prevention and 
Psycho-social Recovery of Child Victims of Commercial Sexual Exploitation, 1996. 
12 
In these circumstances and given the growing importance of tourism development 
projects in developing countries, the Commission feels that measures to assist the 
development of tourism in the destinations concerned should aim to offer a genuine 
alternative in terms of balanced, sustainable development, largely on the basis of 
measures to improve the quality of the tourist services offered in these countries, together 
with measures for diversification, where appropriate. The transfer of know-how and the 
exchange of good practice could play a useful role in this context. 
For the Commission, the use of the financial resources available to combat child sex 
tourism will also be seen as an opportunity to promote an integrated response to the more 
general problem of the sexual exploitation of children for commercial purposes in 
countries affected by this affliction, and to increase coordination between the European 
Union and third countries on the question of cooperation in general. 
ii) In addition, the respect of democratic principles and human rights constitutes an 
essential element in the contractual relations between the Community and third countries. 
The Council of Ministers adopted in May 1995 "a uniform clause" allowing the Union to 
suspend agreements concluded with third countries if these countries are seen to be 
violating human rights. The Commission has stated in this respect that the "essential 
element" clause should be invoked to suspend agreements only in cases of very serious 
violations of human rights by governments. 
More specifically, the consolidation of democracy and the rule of law, along with the 
observance of human rights and fundamental freedoms, are essential elements of the 
policy of development cooperation. Moreover, the Lomé Convention provides for a 
consultation procedure, through which discussions could be held on human rights. Good 
coordination between Community initiatives and the measures taken by the Member 
States is necessary, at both political and operational levels. 
The sexual exploitation of children for commercial purposes is not a priori perpetrated 
by governments but by individuals and various groups at all levels of society. However, 
this does not mean that there are not wide differences in the degree to which the host 
countries are involved in organizing sex tourism. A number of these countries are under 
economic and political pressure to promote tourism as a source of foreign currency. In 
certain cases, this policy goes so far as to accept officially that "tourism" is practically 
synonymous with "sex tourism", with child sex tourism being seen as an unfortunate but 
inevitable part of tourism development. 
The Commission does not share this opinion and does not therefore rule out the 
possibility of applying the necessary pressure - through dialogue conducted in the context 
of external relations - on countries which appear to be over-complacent regarding the 
sexual exploitation of children through sex tourism. 
13 
Encouraging the EU Member States to take a united stand against child 
sex tourism 
The Member States of the European Union are concerned by the tragic growth in child 
prostitution in several respects. 
• The Member States are concerned because most of the tourists who exploit children 
sexually come from the industrialized countries, of which a certain number come from 
Europe. 
• The Member States are concerned because child prostitution exists in Europe and, 
while it is not yet primarily linked to sex tourism, this phenomenon could soon 
develop. 
• The Member States are concerned as they have ratified the Convention on the rights of 
the child and are bound by Article 34 of that text to protect children against all forms 
of sexual exploitation and violence. 
It can be argued therefore that the Member States need to take steps to combat child sex 
tourism, which go beyond simply denouncing this affliction. 
The Commission, aware of this evidently serious situation, and also of the growing wish 
for action demonstrated by several Member States, can only encourage all of them to go 
further along this road. 
Having regard especially to the resolutions of the European Parliament on this topic and 
to this communication on combating child sex tourism, the Commission considers it 
highly desirable to that the Council should define its position, and calls upon the Member 
States to dispel any doubt as to their willingness and ability to combat this affliction. 
The Commission intends to produce, within two years of the adoption of this 
communication, a report to the European Parliament, the Council, the Economic and 
Social Committee and the Committee of the Regions, on the implementation of the 
measures planned and the progress made in combating child sex tourism. 
ANNEX 1 
When the tourist is away from home there is an element of anonymity which releases him 
or her from the usual social restraints which determine behaviour in the home country. 
Thus, a man who would have never contemplated visiting a brothel in his home town will 
often do so in a foreign country where there is little likelihood of being recognized. Many 
countries have noted this phenomenon. 
In "exotic" tourist destinations visitors usually cannot understand the language or the 
cultural nuances in the society. This leads them to make assumptions which are probably 
incorrect but which enable them to rationalize the change in their behaviour. It is 
common for tourists who sexually exploit children to explain their behaviour by saying 
that sex with children "is more acceptable in this culture, and the people here do not have 
the same sexual hang-ups as we have in our country". 
Tourism not only changes behaviour, it can also reinforce prejudice. Visitors who, 
consciously or unconsciously, are firmly convinced of the inferiority of other ethcic 
groups usually have their racist attitudes reinforced in foreign countries. They see what 
they want to see. Such people have no scruples about exploiting others because they 
consider them to be inferior 
The experience of economic superiority in a poorer country tempts some visitors to 
sexually exploit and abuse local people. Modern tourists from industrialized nations may 
hold quite menial positions in their own country but the disparity in earnings can mean 
they are comparatively wealthy when they travel in a poor country. 
Tourists are sometimes fleeing from an unhappy sexual relationship at home and are 
open to new sexual experiences. Aspects of this have been noted among men from 
western industrialized societies. As the traditional privileges of patriarchal society 
disappeal slowly in many western countries, some men feel inadequate in coping with the 
change. 
Finally, one of the most important reasons why child sex exploitation is taking place 
among tourists is because the children are readily available. The ease with which tourists 
in some countries can obtain a child as a sexual partner is, in itself, a powerful incentive 
for some to try the novelty of a child sex partner. 
Source: document entitled Tourism and Children in Prostitution, submitted by ECPAT for the World 
Congress against Commercial Sexual Exploitation of Children (Stockholm, August 1996). 
15 
ANNEX 2 
There are individual men and groups of men who appear to view the sexual exploitation 
of people in 'third world' countries as a harmless pastime, and are glad to provide 
information for like-minded individuals for free. This can simply involve the exchange of 
information between sex tourists visiting the same hotels, or in bars and pubs back home. 
It can also be via the Internet, where some men give pornographic accounts of their 
sexual exploits, and supply details of brothels etc. in various tourist destinations, 
sometimes with descriptions of children and/or information about how to obtain child 
prostitutes. 
There are individuals and companies that write and publish travel guides which promote 
sex tourism at least by implication. Some guides cater simply and solely for the sex 
tourist market and provide a wealth of information for the child abuser. 
Although there are very few tour operators that explicitly arrange child sex tours, there 
are still various small companies in Europe, Australia, North America and Japan which 
promote and facilitate sex tourism by identifying resorts where prostitution is 
widespread; negotiating deals with local hotels to ensure that their clients will not be 
charged for "inviting" companions back to their room for the night; arranging 24-hour 
female "guides" for clients and providing on-the-spot 'holiday reps' with an intimate 
knowledge of the prostitution scene. 
Source: document entitled Tourism and Children in Prostitution, submitted by ECPAT for the World 
Congress against Commercial Sexual Exploitation of Children (Stockholm, August 1996). 
ANNEX 3 
The following are some of the financial instruments which could be used to pursue the 
objective of making the observance of the principles of democracy and human rights a 
cornerstone of the Union's policy on cooperation with third countries: 
- Budget Item B7-6000: Community contribution towards schemes concerning 
developing countries carried out by non-governmental organizations 
- Budget Item B7-7000: Programme for democracy in the countries of central and 
eastern Europe 
- Budget Item B7-7001: Community measures to help democracy and support the 
peace process for the Republics formerly part of Yugoslavia 
- Budget Item B7-701: Support for democracy in the Independent States of the former 
Soviet Union 
Budget Item B7-702: Human rights and democracy in the developing countries 
- Budget Item B7-703: Democratization process in Latin America 
Budget Item B7-7040: Subsidies for certain activities of organizations pursuing 
human rights objectives 
Budget Item B7-705: MED A programme for democracy 
Budget Item B7-707: Support for rehabilitation centres for torture victims and for 
organizations offering concrete help to victims of human rights abuses 
European Development Fund resources (subject to a specific request from and the 
agreement of the ACP partner) 
Funding from the resources allocated for financial and technical assistance to, and 
economic cooperation with, the countries of Asia and Latin America 
Counterparts funds generated by various Community instruments within the 
framework of development financing cooperation with the ACP countries 
(*) The Commission will check whether it is possible and opportune to use these 
financial instruments specifically to support the fight against sex tourism involving 
children. 
17 

ISSN 0254-1475 
COM(96) 547 final 
DOCUMENTS 
EN 06 11 05 
Catalogue number : CB-C0-96-625-EN-C 
ISBN 92-78-12833-3 
Office for Official Publications of the European Communities 
L-2985 Luxembourg 
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