An Anomaly of the Law: Insufficient State Laws Fail to Protect Minor Victims of Sex Trafficking

Rebecca Carroll Sager

I. INTRODUCTION
Harriet ran away from home when she was 11 years old and mo ed in with a !"#year#old man who se$%ally and &hysically ab%sed her and con inced her to become a &rostit%te. In the ne$t two years' Harriet became addicted to dr%gs and contracted n%mero%s se$%ally transmitted diseases. The &olice arrested Harriet when she was 1! and charged her with committing &rostit%tion. They made no efforts to find her &im&.1

This is the story of a child se$ traffic(ing ictim in the United States. " If the go ernment ma(es no effort to in estigate &im&s' &im&s cannot be charged.! The go ernment did not charge Harriet)s &im& for se$ traffic(ing a minor* howe er' had her &im& been charged' there wo%ld ha e been two &ossible a en%es for &rosec%tion' state and federal' each re+%iring different elements to establish the e$istence of the crime. , Had Harriet)s &im& been s%b-ect to federal -%risdiction he co%ld ha e been &rosec%ted %nder the anti# traffic(ing stat%te.. Under federal law' the s%ccessf%l &rosec%tion of Harriet)s &im& re+%ires /a commercial se$ act 0to be1 ind%ced by force' fra%d' or coercion' or in which the &erson ind%ced to &erform s%ch act has not attained 0eighteen1 years of age.2 3 Harriet)s testimony does not indicate whether her &im& wo%ld be s%b-ect to federal -%risdiction. 4 Regardless'
1

. U.S. D56)T O7 ST8T5' TR877IC9IN: IN 65RSONS R56ORT "; <1=th ed. "=1=>' available at htt&?@@www.state.go @doc%ments@organiAation@1,";4;.&df 0hereinafter TR877IC9IN: IN 65RSONS R56ORT1. " . See id. at ,' ";. ! . See id. , . See id.* see, e.g.' "" U.S.C. B 41="<C> <"==3>* C8D. 65N8D COD5 B "!3.1 <Eest "=1=>* OHIO R5F. COD5 8NN. B ";=..!" <Eest "=1=>* N.G. 65N8D D8E B "!=.!, <Hc9inney "==4>. . . "" U.S.C. B 41="<C>. /ISe$ traffic(ing) means the recr%itment' harboring' trans&ortation' &ro ision' or obtaining a &erson for the &%r&ose of commercial se$ act.2 Id. B 41="<;>. 3 . Id. B 41="<C><8>. 4 . TR877IC9IN: IN 65RSONS R56ORT' supra note 5rror? Reference so%rce not fo%nd' at ";.

1=!

1=, CRIMINAL AND CIVIL CONFINEMENT 0Fol. !C?!.; each state sho%ld ha e the d%ty to &ro ide &rotection for its citiAens witho%t relying on the federal go ernment to &rosec%te criminals. One of the ma-or &roblem areas for states with se$ traffic(ing laws is the states) fail%re to ma(e an e$ce&tion for the e$istence of a /force' fra%d' or coercion2 element for ictims %nder the age of eighteen. C In Harriet)s case' her traffic(er' by /con incing2 her to wor( as a &rostit%te' did not necessarily %se /force' fra%d' or coercion.2 ; 8n element of /force' fra%d' or coercion2 is re+%ired for the con iction of traffic(ers in many states 1= and witho%t this e$ce&tion states are left witho%t the means to &rosec%te some of the worst instances of se$ traffic(ing in this co%ntry. 11 Harriet)s case demonstrates the states) inability to &rosec%te se$ traffic(ers' and e en worse' their fail%re to recogniAe that Harriet' and other children li(e her' are ictims. 1" 8t ele en years old' Harriet was legally too yo%ng to gi e alid consent to engage in se$%al acti ity' yet she was old eno%gh to be charged with &rostit%tion while her traffic(er' the real criminal' wal(ed free.1! This Note arg%es that state legislat%res m%st ado&t effecti e se$ traffic(ing stat%tes by amending their e$isting se$ traffic(ing stat%tes to incl%de an e$ce&tion for minors from the element of /force' fra%d' or coercion.2 The reasoning behind this &ro&osed amendment is twofold. 7irst' child se$ traffic(ing ictims sho%ld be afforded the same &rotection %nder state law as %nder federal law* they sho%ld be recogniAed as ictims and not deemed criminals' e en if there is no element of /force' fra%d' or coercion2 &resent. States m%st wor( to mirror Congress) constr%ction of the law so as to afford the most &rotection for minors who become ictims of se$ traffic(ing. Second' these laws sho%ld be amended to be consistent with the well#established &rinci&le that minors are legally %nable to consent to se$%al acti ity. The states ha e already clearly e$&ressed their &%blic &olicy regarding s%ch iss%es' e idenced by their stat%tory ra&e laws.
C

. 6OD8RIS 6ROJ5CT' TO6 1. 6ROKD5H 8R58S IN ST8T5 KIDDS ON TR877IC9IN: IN 65RSONS . <"==3>' available at htt&?@@www.&olaris&ro-ect.org@storage@doc%ments@&olicyL docments@To&M"=1.M"=6roblemM"=8reasM"=inM"=StateM"=KillsM"=on M"=Traffic(ing.&df. ; . Id. at 11* "" U.S.C. B 41="<C><8>* see, e.g.' C8D. 65N8D COD5 B "!3.1* N.G. 65N8D D8E B "!=.!,* OHIO R5F. COD5 8NN. B ";=..!". 1= . See, e.g.' C8D. 65N8D COD5 B "!3.1* N.G. 65N8D D8E B "!=.!,* OHIO R5F. COD5 8NN. B ";=..!". 11 . 6OD8RIS 6ROJ5CT' supra note 5rror? Reference so%rce not fo%nd* see, e.g.' N.G. 65N8D D8E B "!=.!, <Hc9inney "==C> <omitting an e$ce&tion for minors>* C8D. 65N8D COD5 B "!3.1 <Eest "==C> <containing a ariation of the /fra%d' deceit' coercion2 lang%age b%t omits an e$ce&tion for minors>. 1" . See TR877IC9IN: IN 65RSONS R56ORT' supra note 5rror? Reference so%rce not fo%nd' at ";. 1! . Id.* see C8RODGN 5. COCC8' J8IDK8IT ? TH5 6ODITICS O7 ST8TUTORG R865 D8ES IN TH5 UNIT5D ST8T5S ; <"==,>.

"=1"1 INSUFFICIENT STATE LA S FAIL TO !ROTECT MINORS 1=. 8mending se$ traffic(ing laws of minors will fit s+%arely into the same &olicy. 6art II of this Note disc%sses the &re alence of minor ictims in ol ed in domestic se$ traffic(ing.1, 6art III e$amines the %ni+%e treatment by society of minors as well as the &%blic &olicy that has de elo&ed to &rotect the needs of this s&ecial class. 6art IF e$&lains the &%r&ose behind the Fictims of Traffic(ing and Fiolence 6rotection 8ct of "=== <TF68> and disc%sses the federal law and re&orts that ha e s%bse+%ently been im&lemented by Congress to add significance to the TF68. 6art F demonstrates the need to reform state stat%tes by analyAing the lac( of consideration of minor ictims in e$isting state stat%tes. 6art FI reem&hasiAes the need for all states to ado&t lang%age similar to the TF68 so that all ty&es of se$ traffic(ing ictims' es&ecially minors' are &rotected. II. HINORS 8R5 58SG T8R:5TS 7OR DOH5STIC S5N TR877IC9IN:

Des&ite the lac( of a com&rehensi e research st%dy doc%menting the n%mber of minor se$ traffic(ing ictims within the United States' 1. minors are re&ortedly the largest gro%& of &ersons traffic(ed. 13 It is estimated that a&&ro$imately ";!'=== minors in the United States are at ris( of becoming ictims of se$ traffic(ing'14 and it is (nown that the United States is a destination co%ntry for foreign nationals to become ictims of se$ traffic(ing.1C 8ccording to the De&artment of J%stice' eighty#three &ercent /of the rep"rted h%man traffic(ing incidents in ol ed allegations of se$ traffic(ing2 and a&&ro$imately two#thirds of the ictims of se$ traffic(ing were %nder the age of twenty#fi e.1; Di(e most minor ictims' those recr%ited domestically tend to be &owerless and %lnerable."= 8 ma-ority of domestic minors who become ictims are r%naways or li e on the streets' %s%ally ha ing been s%b-ected
1,

. The term /domestic se$ traffic(ing2 is intended to mean the internal traffic(ing of indi id%als within the United States' which is to be disting%ished from international se$ traffic(ing. See 8D5NIS 8. 8RONOEITO' HUH8N TR877IC9IN:' HUH8N HIS5RG? TH5 :DOK8D TR8D5 IN HUH8N K5IN:S 4 <"==;>. 1. . U.S. D56)T O7 JUSTIC5' C#ild E$pl"itati"% a%d Obs&e%it' Se&ti"%( D")esti& Se$ Tra**i&+i%g "* Mi%"rs' JUSTIC5.:OF' htt&?@@www.-%stice.go @criminal@ceos@&rostit%tion.html <last isited 7eb. 1"' "=11> 0hereinafter C#ild E$pl"itati"%1. 13 . 8RONOEITO' supra note 5rror? Reference so%rce not fo%nd' at !3. 14 . C#ild E$pl"itati"%' supra note 5rror? Reference so%rce not fo%nd. 1C . TR877IC9IN: IN 65RSONS R56ORT' supra note 5rror? Reference so%rce not fo%nd' at !CC. 1; . U.S. D56)T O7 JUSTIC5' T#e ,u)a% Tra**i&+i%g !r"-e&t' TR877IC9IN:6ROJ5CT. KDO:S6OT.COH <Jan. "C' "==;' !?!C &.m.>' htt&?@@traffic(ing&ro-ect.blogs&ot.com@"==;@=1@ %sdo-#releases#traffic(ing# ictim.html <em&hasis added>. "= . 8RONOEITO' supra note 5rror? Reference so%rce not fo%nd' at !4.

1=3 CRIMINAL AND CIVIL CONFINEMENT 0Fol. !C?!.; to ab%se' im&o erishment' or both."1 8ll of these conditions ma(e them more s%sce&tible to becoming ictims of se$ traffic(ing. "" Some ictims are /recr%ited2 by forced abd%ction' financial &ress%res' or dece&ti e agreements* howe er' most ictims are l%red' rather than abd%cted. "! Once a child has become a ictim of se$ traffic(ing' he or she will become a ictim of m%ch more than -%st forced &rostit%tion. These children are also s%sce&tible to being (idna&&ed' ra&ed' sodomiAed' beaten' threatened' tort%red' ensla ed' e$torted' falsely im&risoned' &im&ed' and forced to %se dr%gs.", The most %nfort%nate children become homicide ictims.". In addition' se$ traffic(ing ictims are &sychologically and emotionally iolated."3 Fictims also face ma-or health ris(s? %nwanted &regnancies* se$%ally transmitted diseases incl%ding HIF#8IDS* dr%g addiction* maln%trition* social ostracism res%lting in de&ression* and &ossible death."4 Se$ traffic(ing of a minor can occ%r thro%gh many forms of e$&loitation. The ma-ority of female minors engaging in formal &rostit%tion are &im&#controlled."C The &re alent b%sinesses %sed for se$ traffic(ing incl%de? escort ser ices' massage &arlors' dance cl%bs' ma-or s&orting e ents' con entions' to%rist destinations' highway welcome centers' and e en tr%c( sto&s."; 5$&loitation also occ%rs when a child is ind%ced to &erform a commercial se$ act for the &%r&ose of &rod%cing child &ornogra&hy.!= Hany minors who cannot legally consent to se$%al acti ity ha e been &rosec%ted for se$ crimes s%ch as &rostit%tion. !1 One of the &rimary reasons
"1 ""

. C#ild E$pl"itati"%' supra note 5rror? Reference so%rce not fo%nd. . Id.* TR877IC9IN: IN 65RSONS R56ORT ' supra note 5rror? Reference so%rce not fo%nd' at !!;. "! . J5R5HG H. EIDSON P 5RIN D8DTON' HUH8N TR877IC9IN: IN OHIO? H8R95TS' R5S6ONS5S' 8ND CONSID5R8TIONS 14 <"==4>* see C#ild E$pl"itati"%' supra note 5rror? Reference so%rce not fo%nd. ", . 8RONOEITO' supra note 5rror? Reference so%rce not fo%nd' at ;* see C#ild E$pl"itati"%' supra note 5rror? Reference so%rce not fo%nd* EIDSON P D8DTON' supra note 5rror? Reference so%rce not fo%nd' at 3;#4!. ". . 8RONOEITO' supra note 5rror? Reference so%rce not fo%nd' at ;. "3 . 5F5DIN8 :IOKK5' .uve%ile !r"stituti"%( !r"*ile "* Re&ruit)e%t ' i% CHIDD TR8UH8 1? ISSU5S P R5S58RCH 114#1C <8nn Eolbert K%rgess ed.' 1;;">. "4 . TR877IC9IN: IN 65RSONS R56ORT' supra note 5rror? Reference so%rce not fo%nd' at 1". "C . C#ild E$pl"itati"%' supra note 5rror? Reference so%rce not fo%nd. "; . Id.* EIDSON P D8DTON' supra note 5rror? Reference so%rce not fo%nd' at 1;. != . TR877IC9IN: IN 65RSONS R56ORT' supra note 5rror? Reference so%rce not fo%nd' at ;. !1 . Da id 7in(elhor P Richard Ormrod' !r"stituti"% "* .uve%iles( !atter%s *r") NI/RS' JUF. JUST. KUDD.' <Office of J% enile J%stice and Delin+%ency 6re ention> <J%ne "==,>' at !#,' available at htt&?@@www.nc-rs.go @&dffiles1@o--d&@"=!;,3.&df* see Dina 7rancesca Haynes' E$pl"itati"% Nati"%( T#e T#i% a%d 0re' Legal Li%es /et1ee% Tra**i&+ed

"=1"1 INSUFFICIENT STATE LA S FAIL TO !ROTECT MINORS 1=4 these children become /criminals2 is the fail%re of law enforcement to recogniAe that a child is act%ally the ictim of e$&loitation' not the &er&etrator of crime.!" This is beca%se -% eniles in ol ed in &rostit%tion can be classified as either ictims or offenders. !! 7or a ariety of reasons' it is not always clear to the arresting &olice officer whether the child in ol ed is a ictim or an offender. !, These reasons may incl%de? the ictim)s de&endency %&on his or her traffic(er* the ictim)s inability to see himself or herself as a ictim* Stoc(holm Syndrome' where the ictim tends to sym&athiAe with or s%&&ort his or her ca&tor' belie ing that the traffic(er has done nothing wrong* a diffic%lty of trac(ing ictims d%e to the highly organiAed nat%re of se$ traffic(ing* concealment of children thro%gh the %se of internet ad ertisements* and the lac( of &olice officer training. !. Ky defa%lt' the child becomes s%b-ect to the arbitrary and s%b-ecti e beliefs of the &olice officer' s%ch as the officer)s &erce&tion of the -% enile)s demeanor' the sym&athy of the indi id%al &olice officer towards the -% enile' and the local &olicies of that -%risdiction.!3 8s a res%lt' state law enforcement officials are more li(ely to categoriAe minors in ol ed in &rostit%tion as offenders rather than as ictims beca%se they often a&&ear initially to be /willing &artici&ants in an illegal trade and ob-ectionable acti ity.2 !4 State and local a%thorities need to im&ro e their efforts to change this im&ro&er classification and begin to recogniAe minors as the ictims that they are. !C The State De&artment recommends that in order to im&ro e the criminaliAation of h%man traffic(ing efforts in the United States' local and state officials sho%ld increase the collection of data' in estigations' and &rosec%tions by following the leadershi& of the federal go ernment. !;

!ers"%s a%d Abused Migra%t Lab"rers' "! NOTR5 D8H5 J.D. 5THICS P 6UK. 6OD)G 1' ," <"==;> <disc%ssing one of the ma-or &%r&oses of the TF68 "===? to recogniAe ictims of traffic(ing as ictims and to &re ent the criminaliAation of ictims>. !" . Haynes' supra note !1' at "C* 7in(elhor P Ormrod' supra note 5rror? Reference so%rce not fo%nd' at !#,. !! . Haynes' supra note !1' at "C. !, . 7in(elhor P Ormrod' supra note 5rror? Reference so%rce not fo%nd' at C. !. . Heather J. Clawson P Nicole D%tch' Ide%ti*'i%g Vi&ti)s "* ,u)a% Tra**i&+i%g( I%#ere%t C#alle%ges a%d !r")isi%g Strateg' *r") t#e Field " <De&)t of Health and H%man Ser . Iss%e Krief' Jan. "==C> at "' available at htt&?@@as&e.hhs.go @hs&@=4@h%mantraffic(ing@ IdentFict@ib.&df. !3 . 7in(elhor P Ormrod' supra note 5rror? Reference so%rce not fo%nd' at ,. !4 . Id. at ". !C . See TR877IC9IN: IN 65RSONS R56ORT' supra note 5rror? Reference so%rce not fo%nd' at !!C. !; . Id. at !!C#!;.

1=C CRIMINAL AND CIVIL CONFINEMENT 0Fol. !C?!.; III. SOCI5TG R5CO:NIO5S HINORS 8S UNIQU5 8ND :5N5R8DDG S559S TO 6ROT5CT TH5H 8S 8 S65CI8D CD8SS O7 INDIFIDU8DS Hinors are generally granted s&ecial &rotection %nder ario%s areas of the law.,= Society has created a s&ecial stat%s for minors beca%se they are iewed as %lnerable and therefore in need of s&ecial &rotection in certain circ%mstances.,1 The law has historically and firmly maintained a child)s s&ecial stat%s? that a child is &res%med inca&able of gi ing legal consent to se$%al acti ity. ," This s&ecial e$ce&tion dates bac( to 1"4. when 5ngland codified a stat%tory ra&e law' which made it a crime for a man to ha e se$%al interco%rse with a female %nder the age of twel e. ,! The conce&t carried o er to the United States d%ring the coloniAation of 8merica and' c%rrently' each indi id%al state has some form of stat%tory ra&e law. ,, Thro%gh the enactment of these laws' society has created and recogniAed differences between forcible ra&e and stat%tory ra&e' and now &%nishes both acts. ,. 7orcible ra&e re+%ires an element of threat or &hysical force' and the age of the ictim is irrele ant.,3 Stat%tory ra&e' on the other hand' does not incl%de an element of &hysical force. ,4 Stat%tory ra&e laws were established to &rotect minors who were %lnerable /in an en ironment in which bright lines were still drawn between se$ and ra&e with no contin%%m of coercion in between 0them1.2,C The (ey element recogniAed in the crime of stat%tory ra&e is the ictim)s age. ,; Therefore' e en if a minor claims to ha e /consented2 to se$%al acti ity' that consent is in alid when the ictim)s age is less than the age of consent' and the &er&etrator is then s%b-ect to criminal &rosec%tion for stat%tory ra&e. This societal recognition of the need to &rotect children sho%ld not be strictly limited to incidents of stat%tory ra&e b%t sho%ld &rotect ictims of child se$ traffic(ing as well. The children in these sit%ations are as %lnerable' if not more' than those who are ictims of stat%tory ra&e. .= The a erage age of a female entering &rostit%tion is between twel e and
,=

. C <,th ed. "=11>. ,1 . ," . ,! . ,, . ,. . ,3 . "=.#=3.

,4 ,C

S8R8H H. R8HS5G P DOU:D8S 5. 8KR8HS' CHIDDR5N 8ND TH5 D8E Id. at 1=. COCC8' supra note 5rror? Reference so%rce not fo%nd' at ;. Id. at 1=. Id. at 11' "!#",. See 3. 8H. JUR. "d Rape B 1 <"=11>. R8HS5G P 8KR8HS' supra note 5rror? Reference so%rce not fo%nd' at

See 3. 8H. JUR.' supra note 5rror? Reference so%rce not fo%nd' at B 11. . COCC8' supra note 5rror? Reference so%rce not fo%nd' at 1";. ,; . See R8HS5G P 8KR8HS' supra note 5rror? Reference so%rce not fo%nd' at "=.#=3. .= . See ge%erall' :IOKK5' supra note 5rror? Reference so%rce not fo%nd' at 114#"; <disc%ssing -% enile &rostit%tion and the ab%se associated with it>.
.

"=1"1 INSUFFICIENT STATE LA S FAIL TO !ROTECT MINORS 1=; fo%rteen years old..1 Hinors ictimiAed by se$ traffic(ing are not entering the world of &rostit%tion on their own olition' b%t are rather sco%ted' sed%ced' befriended' or terroriAed by a &im&. ." The traffic(er will gather information from a child to disco er his or her %lnerabilities so that the traffic(er can tailor recr%itment techni+%es to meet the child)s s&ecific desires..! 8side from ma(ing em&ty &romises of lo e and friendshi&' the traffic(er often tries to boost the child)s self#esteem and &ro ides isions of a l%$%rio%s lifestyle. ., Once the child is ro&ed in' the traffic(er will &ers%ade and may e en force' defra%d' or coerce the child into &rostit%tion... D%e to /their &owerlessness' innocence' and inability to &rotect themsel es'2 children are easier for traffic(ers to mani&%late' con ince' and ictimiAe..3 IF. 75D5R8D D5:ISD8TION 6ROT5CTS HINOR FICTIHS O7 S5N TR877IC9IN: 7ederal legislation recogniAes the need for s&ecial &rotection of minor ictims' and Congress has sha&ed federal laws to reflect that need. .4 Congress enacted the TF68 in res&onse to the ra&idly#increasing ind%stry of modern sla ery. .C It s&ecifically addresses the &roblem of a growing n%mber of women and girls becoming in ol ed in se$%al e$&loitation thro%gh /&rostit%tion' &ornogra&hy' se$ to%rism' and other commercial se$%al ser ices.2.; Originally' the stat%te defined se$ traffic(ing to only incl%de /all the elements of the crime of forcible ra&e when it in ol es the in ol%ntary &artici&ation of another &erson in se$ acts by means of fra%d' force' or coercion.23= S%bse+%ently' Congress amended the definition of traffic(ing to incl%de /se ere forms of traffic(ing.2 31 This amendment did away with the /force' fra%d' or coercion2 element originally re+%ired and allowed for the &rosec%tion of se$ traffic(ing that in ol es /a commercial se$ act . . . in which the &erson ind%ced to &erform s%ch act has not attained
.1 ."

. C#ild E$pl"itati"%' supra note 5rror? Reference so%rce not fo%nd. . :IOKK5' supra note 5rror? Reference so%rce not fo%nd' at 114. .! . Id. at 114#1C. ., . Id. at 1"=. .. . See ge%erall' id. at 1"=#", <disc%ssing the &rocess of recr%itment and &rostit%tion and the corres&onding ab%si e relationshi& between the ictimiAed &rostit%te and her &im&>. .3 . 8RONOEITO' supra note 5rror? Reference so%rce not fo%nd' at !4. .4 . See, e.g.' "" U.S.C. BB 14=1<a>#<b><1> <"==3>. .C . Fictims of Traffic(ing and Fiolence 6rotection 8ct' 6%b. D. No. 1=3# !C3' di . 8' B 1="<a>#<b><1>' 11, Stat. 1,3,' 1,33 <"===> <codified as amended at "" U.S.C. BB 14=1<a>#<b><1> <"==3>>. .; . Id. B 1="<b><">* "" U.S.C. B 41=1<b><"> <"==3>. 3= . "" U.S.C. B 41=1<b><;>. 31 . Id. B 41="<C>.

11= CRIMINAL AND CIVIL CONFINEMENT 0Fol. !C?!.; 1C years of age.23" 8dditionally' the federal stat%te has enhanced the sentencing g%idelines for the se$ traffic(ing of minors by im&osing mandatory sentences which re+%ire a minim%m of ten years and allow for a ma$im%m of life im&risonment.3! The mandatory minim%m for the se$ traffic(ing of a minor %nder the age of fo%rteen is a fifteen year sentence. 3, Congress has demonstrated an increasing concern abo%t inade+%ate efforts to combat child se$ traffic(ing by amending the federal stat%te to afford &ro&er &rotection to minor ictims' ad ocating changes in state stat%tes thro%gh additional f%nding' and &%blishing the federal go ernment)s ann%al Traffic(ing in 6ersons Re&orts. 3. In the "==. rea%thoriAation of the TF68' Congress demanded that the 8ttorney :eneral cond%ct an ann%al Traffic(ing Conference in "==3' "==4' and "==C and charged the 8ttorney :eneral with the d%ty of determining the best methods to enforce laws &rohibiting se ere forms of traffic(ing' s%ch as the se$ traffic(ing of minors.33 Congress s&ecifically re+%ested the 8ttorney :eneral)s determination of the best methods to train state and local law enforcement officials in /the %se of e$isting 7ederal and State criminal laws that do not re+%ire force' fra%d' or coercion as an element of a felony crime to &rosec%te s%ch &ersons.234 Congress e en noted that the /dis&arity between estimated and identified ictims demonstrates that m%ch more needs to be done in ed%cating indi id%als who may be coming into contact with traffic(ed children.23C State and local a%thorities more commonly come into contact with traffic(ed children than federal a%thorities do. 3; In its ann%al re&ort' the De&artment of State recommended that im&ro ements sho%ld be made by /enco%rag0ing1 local' state' and federal in estigations and &rosec%tions thro%gh leadershi& of federal law enforcement that &rioritiAes traffic(ing cases.24=
3" 3!

. Id. B 41="<C><8>. . TR877IC9IN: IN 65RSONS R56ORT' supra note 5rror? Reference so%rce not fo%nd' at !!;. 3, . Id. 3. . See Traffic(ing Fictims 6rotection Rea%thoriAation 8ct of "==.' 6%b.D. 1=;#13,' B "=!' 11; Stat. !..C' !.3=#31 <"==3> <establishing a &ilot &rogram to assess the need to &rotect -% eniles and a&&ro&riating f%nding to do so as well as establish -% enile residential treatment facilities>* TR877IC9IN: IN 65RSONS R56ORT' supra note 5rror? Reference so%rce not fo%nd' at !!;. 33 . Eilliam Eilberforce Traffic(ing Fictims 6rotection Rea%thoriAation 8ct of "==4' 6%b. D. No. 11=#,.4' B "=1<a><"><8>. 34 . Id. B "!". 3C . Id. BB "!3<a><1><8>#<K> <estimating %& to 14'.== indi id%als are traffic(ed into the co%ntry* fifty &ercent of them were belie ed to be %nder the age of eighteen' and on a erage' twenty children were located d%ring the fiscal year>. 3; . See EIDSON P D8DTON' supra note 5rror? Reference so%rce not fo%nd' at 3;#4!. 4= . TR877IC9IN: IN 65RSONS R56ORT' supra note 5rror? Reference so%rce

"=1"1 INSUFFICIENT STATE LA S FAIL TO !ROTECT MINORS 111 F. ST8T5S HUST 8CT TO 6ROT5CT HINOR FICTIHS O7 S5N TR877IC9IN: The United States go ernment stated' /0a1 good anti#traffic(ing law sho%ld incl%de . . . 0s1&ecific &rotections for child ictims of traffic(ing ens%ring a res&onsible chain of c%stody and a &riority &laced on the best interests of the child in all decisions made in &ro iding ser ices to them.2 41 In order to ade+%ately &rotect the best interests of children ictimiAed by se$ traffic(ing' state laws m%st incl%de an e$ce&tion to the /force' fra%d' or coercion2 element to allow for the &rosec%tion of the allcriminals. 7irst' by eliminating the element of /force' fra%d' or coercion2 when the ictim of se$ traffic(ing is a minor' the state stat%tes will become more consistent with the federal stat%te. 4" State laws m%st mirror the federal stat%te by &ro iding s&ecific &rotections for child ictims in order to be effecti e.4! This wo%ld also &ro ide %niformity between state and federal go ernment' ma(ing it easier for all law enforcement officials to &ro&erly identify traffic(ed children as ictims' 4, which wo%ld li(ely increase the n%mber of traffic(ing &rosec%tions. Second' indi id%al states already recogniAe the need to &rotect %lnerable children from se$ crimes. 4. 8ccordingly' each state has enacted legislation defining the age of consent ma(ing it a crime to engage in se$%al acti ity with a &erson %nder the age of consent.43 The ne$t nat%ral ste& for states wo%ld be to carry the &%r&ose and &olicy behind the age of consent in stat%tory ra&e stat%tes o er to se$ traffic(ing stat%tes. It is only logical that a &erson %nder the age of consent sho%ld not be able to /consent2 to being traffic(ed for &%r&oses of commercial se$%al acti ity and that the traffic(er sho%ld be held strictly liable for the se$# traffic(ing of a minor %nder the age of consent. 7ederal re&orts ha e statedRand the low statistics of ictim identification ha e indicatedRthat the federal a%thorities do not ha e s%fficient contact with ictims to identify them as ictims' whereas state and local a%thorities ha e closer contact with indi id%al ictims and are therefore better able to identify them. 44 8ltho%gh local a%thorities are more able to identify traffic(ing ictims than federal officials' st%dies ha e
not fo%nd' at !!C. 41 . Id. at 1!. 4" . Id. at !!;. 4! . See ge%erall' id. at 1,. 4, . 7in(elhor P Ormrod' supra note 5rror? Reference so%rce not fo%nd' at C. 4. . See, e.g.' "" U.S.C. B 41="<C> <"==3>* C8D. 65N8D COD5 B "!3.1 <"=1=>* OHIO R5F. COD5 8NN. B ";=..!" <Eest "=1=>* N.G. 65N8D D8E B "!=.!, <Hc9inney "==4>. 43 . See COCC8' supra note 5rror? Reference so%rce not fo%nd' at "!#",. 44 . See TR877IC9IN: IN 65RSONS R56ORT' supra note 5rror? Reference so%rce not fo%nd' at !!;* Eilliam Eilberforce Traffic(ing Fictims 6rotection Rea%thoriAation 8ct of "==C' 6%b. D. No. 11=#,.4' ""' B "!3 <a><1><K>.

11" CRIMINAL AND CIVIL CONFINEMENT 0Fol. !C?!.; shown that in many instances' local officials failed to notice that the ictims were in fact ictims of se$ traffic(ing' not &rostit%tes' and conse+%ently did not ta(e &ro&er action to bring them to safety. 4C Hany states ha e not established laws cond%ci e to s%ccessf%lly &rosec%ting &er&etrators for the se$ traffic(ing of minors. 4; Eitho%t s%ch laws' law enforcement officials remain not only inade+%ately trained' b%t hel&less* law enforcement officials and &rosec%tors remain /handica&&ed by anti+%ated &rostit%tion stat%tes.2 C= The ma-or goal of new and im&ro ed state laws is for /local and state law enforcement to mo e from a &rostit%tion &aradigm to a h%man#traffic(ing &aradigm that will increase the detection of ictims and the &rosec%tion of offenders.2 C1 The following three case st%dies analyAe the se$ traffic(ing laws of New Gor(' California' and Ohio. 8ll three states ha e enacted laws to combat se$ traffic(ing*C" howe er' this analysis will demonstrate that each state)s se$ traffic(ing laws are inade+%ate when com&ared to the TF68 and are not consistent with their own state &olicies regarding a minor)s inability to consent to se$%al acti ity. 8. New Gor( 1. Se$ traffic(ing stat%te

In "==.' New Gor( res&onded to the dramatic increase in se$ traffic(ing of minors by creating the offense of com&elling &rostit%tion. C! The legislat%re ac(nowledged that society)s res&onsibility /to foster and &rotect its most innocent members' &artic%larly its children'2 is heightened in se$ traffic(ing cases beca%se of the detrimental &hysical and emotional effects of se$ traffic(ing.C, 8n indi id%al is g%ilty of com&elling &rostit%tion if he or she /being twenty#one years of age or older . . . (nowingly ad ances &rostit%tion by com&elling a &erson less than si$teen years old' by force or intimidation' to engage in &rostit%tion.2C. One of the ob-ecti es in enacting the law against /com&elling &rostit%tion2 as a Class K felony was /to increase the &enalty for the e$isting Class C felony of I&romoting &rostit%tion) when the &erson ad ancing &rostit%tion is an ad%lt and the
4C

EIDSON P D8DTON' supra note 5rror? Reference so%rce not fo%nd' at

!=#!1.
4; C=

. See id. at ,=#,1. . See id. at !=#!1' ,=. C1 . Id. at ,=. C" . See C8D. 65N8D COD5 B "!3.1 <"=1=>* OHIO R5F. COD5 8NN. B ";=..!" <Eest "=1=>* N.G. 65N8D D8E B "!=.!, <Hc9inney "==4>. C! . 3 N.G. 6R8C. S5RI5S? CRIHIN8D D8E B "C?4 <Richard 8. :reenberg et al. eds. "=1=>* N.G. 65N8D D8E B "!=.!!. C, . EIDDI8H C. DONNINO' 6R8CTIC5 COHH5NT8RG' N.G. 65N8D D8E B "!=.== <Hc9inney "==4>. C. . N.G. 65N8D D8E B "!=.!!.

"=1"1 INSUFFICIENT STATE LA S FAIL TO !ROTECT MINORS 11! ictim of the coerci e cond%ct is a child.2C3 S%bse+%ently' in "==4' New Gor( made se$ traffic(ing a crime. C4 The stat%te was enacted s&ecifically to address the methods traffic(ers %se to e$&loit ictims and /to ens%re that the state)s efforts are effecti e in fighting traffic(ing and &rotecting ictims'2 CC so that &er&etrators /who e$&loit innocent &eo&le and children and ca%se e$treme s%ffering are s%b-ect to strict &%nishment %nder state law.2 C; The legislat%re ac(nowledged the e$istence of federal laws addressing h%man traffic(ing' b%t e$&lained that federal law enforcement concentrates on large traffic(ing rings as o&&osed to smaller' less organiAed traffic(ing o&erations' s%ch as brothels.;= It also recogniAed that law enforcement officials on the local le el are more li(ely to enco%nter ictims of se$ traffic(ing and that' witho%t state laws &enaliAing traffic(ing' local &rosec%tors do not ha e an incenti e to &rosec%te s%ch cases. ;1 Now' %nder the New Gor( h%man traffic(ing legislation' se$ traffic(ing is defined as a Class K 7elony' with a sentence ranging fi e to twenty#fi e years of im&risonment' gi ing state
C3 C4

. .

Id. Id. B "!=.!,.

8 &erson is g%ilty of se$ traffic(ing if he or she intentionally ad ances or &rofits from &rostit%tion by? 1. %nlawf%lly &ro iding to a &erson who is &atroniAed' with intent to im&air said &ersonSs -%dgment? <a> a narcotic dr%g or a narcotic &re&aration* <b> concentrated cannabis . . . <c> methadone* or <d> gamma# hydro$yb%tyrate <:HK> or fl%nitraAe&an' . . . * ". ma(ing material false statements' misstatements' or omissions to ind%ce or maintain the &erson being &atroniAed to engage in or contin%e to engage in &rostit%tion acti ity* !. withholding' destroying' or confiscating any act%al or &%r&orted &ass&ort' immigration doc%ment' or any other act%al or &%r&orted go ernment identification doc%ment of another &erson with intent to im&air said &erson)s freedom of mo ement* &ro ided' howe er' that this s%bdi ision shall not a&&ly to an attem&t to correct a social sec%rity administration record or immigration agency record in accordance with any local' state' or federal agency re+%irement' where s%ch attem&t is not made for the &%r&ose of any e$&ress or im&lied threat* ,. re+%iring that &rostit%tion be &erformed to retire' re&ay' or ser ice a real or &%r&orted debt* .. %sing force or engaging in any scheme' &lan or &attern to com&el or ind%ce the &erson being &atroniAed to engage in or contin%e to engage in &rostit%tion acti ity by means of instilling a fear in the &erson being &atroniAed . . . . Id.
CC

. DONNINO' supra note 5RROR? R575R5NC5 SOURC5 NOT 7OUND' B "!=.!, <+%oting Hemorand%m in S%&&ort of Senate Kill .;=">. C; . Danny Ha(im P Nicholas Confessor' Alba%' Agrees "% La1 Agai%st Se$ual a%d Lab"r Tra**i&+i%g' N.G. TIH5S <Hay 14' "==4>' htt&?@@www.nytimes.com@"==4 @=.@14@nyregion@14albany.html <+%oting :o . 5lliot S&itAer>. ;= . DONNINO' supra note 5RROR? R575R5NC5 SOURC5 NOT 7OUND' B "!=.!, <citing Danny Ha(im P Nicholas Confessor' Alba%' Agrees "% La1 Agai%st Se$ual a%d Lab"r Tra**i&+i%g' N.G. TIH5S <Hay 14' "==4>' htt&?@@www.nytimes.com@"==4@=.@14@nyregion@14albany.html. ;1 . Id.

11, CRIMINAL AND CIVIL CONFINEMENT 0Fol. !C?!.; &rosec%tors the incenti e to &%rs%e criminal charges against se$ traffic(ers.;" The stat%te defines fi e alternati e methods by which a &erson can be g%ilty of se$ traffic(ing /if he or she intentionally ad ances or &rofits from &rostit%tion.2;! Howe er' each of the fi e alternati e methods re+%ires' in lang%age different from the TF68' some form of /force' fra%d' or coercion2 by the &er&etrator.;, Th%s' the /se$ traffic(ing2 law does not afford greater &rotection than the /com&elling &rostit%tion2 law. New Gor( ac(nowledged' thro%gh commentary and increased &enalty' in both the enactment of /com&elling &rostit%tion2 and /h%man traffic(ing'2 that there is a heightened need to &rotect child ictims' es&ecially the se$ traffic(ing ictims. ;. This ac(nowledgment is ins%fficient to &rotect child ictims of se$ traffic(ing %nder New Gor( law. The New Gor( legislat%re m%st ta(e the ne$t ste& to f%lly &rotect these child ictims of se$ traffic(ing by ado&ting an e$ce&tion to the /h%man traffic(ing2 law' s%ch that the stat%te wo%ld incl%de the ind%cement element and read' /8 &erson is g%ilty of se$ traffic(ing if he or she intentionally ad ances or &rofits from &rostit%tion by? . . . 0ind%cing a &erson who has not attained eighteen years of age to engage in a commercial se$ act1.2;3 ". Se$ offense against a minor stat%te

Under New Gor( law' /0a1 &erson is g%ilty of ra&e in the third degree when? . . . <"> 0b1eing twenty#one years old or more' he or she engages in se$%al interco%rse with another &erson less than se enteen years old.2 ;4 The legislat%re has deemed a &erson %nder the age of se enteen as legally inca&able of consenting to a se$%al act. ;C The defendant)s (nowledge of the minor)s age is not an element of the crime' nor can it be %sed as a defense.;; Ra&e in the third degree is a Class 5 felony' with a sentencing range of one and one#half to fo%r years. 1==
;"

. Id. </The "==4 legislation created the class K felony of Ise$ traffic(ing) 06enal Daw B "!=.!,1.2>* EIDDI8H C. DONNINO' N.G. S5NT5NC5 8ND R5D8T5D D8E CH8RTS' CH8RT IF 0hereinafter CH8RT IF1 <defining sentences of im&risonment for categories of iolent felony offenders>. ;! . N.G. 65N8D D8E B "!=.!,. ;, . See id. ;. . See DONNINO' supra note 5RROR? R575R5NC5 SOURC5 NOT 7OUND' BB "!=.==' "!=.!,. ;3 . N.G. 65N8D D8E B "!=.!,* see "" U.S.C. B 41="<C><8>. ;4 . N.G. 65N8D D8E B 1!=.".. ;C . Id. B 1!=.=.. ;; . DONNINO' supra note 5RROR? R575R5NC5 SOURC5 NOT 7OUND' B 1!=.==. 1== . N.G. 65N8D D8E B 1!=.".* CH8RT IF' supra note 5rror? Reference so%rce not fo%nd.

"=1"1 INSUFFICIENT STATE LA S FAIL TO !ROTECT MINORS 11. The ga& between the laws of ra&e in the third degree and se$ traffic(ing is stri(ingly irreconcilable. The se$ traffic(ing of a minor in the state of New Gor( incl%des' with the e$ce&tion of minors between the age of se enteen and eighteen' se$%al acts with a &erson deemed by the legislat%re to be inca&able of consenting to se$%al acts. 1=1 Get' %nli(e ra&e in the third degree' the se$ traffic(ing law does not &ro ide a strict liability charge for traffic(ing a minor %nder the age of se enteen for &%r&oses of commercial se$ acts.1=" D%e to the nat%re of se$ traffic(ing and the fact that ictims of se$ traffic(ing are s%b-ect to similar' if not more' harm than ictims of ra&e in the third degree' harsher &%nishment for se$ traffic(ers is a&&ro&riate. 1=! Howe er' &%nishment cannot be assigned %nless the crime has been &ro en and not all minor ictims of se$ traffic(ing become ictimiAed thro%gh forcef%l or coerced means. 1=, Hinors are es&ecially %lnerable and by enacting laws s%ch as ra&e in the third degree' the New Gor( legislat%re has recogniAed a need to &rotect them as a class. 1=. New Gor( has a d%ty to align its se$ traffic(ing law with the legislati e &%r&ose and intent ado&ted in its ra&e in the third degree law. K. California 1. Se$ traffic(ing stat%te

California enacted legislation in "=1= ma(ing h%man traffic(ing a criminal offense against &ersons %nder the %mbrella crime of false im&risonment.1=3 The Degislat%re mista(enly fo%nd its definition of h%man
1=1 1=" 1=! 1=,

. . . . . .

N.G. 65N8D D8E BB 1!=.=.' "!=.!,. See id. B "!=.!,. C"%tra id. at B 1!=.".. See 8RONOEITO' supra note 5rror? Reference so%rce not fo%nd' at ;. EIDSON P D8DTON' supra note 5rror? Reference so%rce not fo%nd' at See N.G. 65N8D D8E B 1!=.".. C8D. 65N8D COD5 B "!3.1 <Eest "=1=>.

!=#!1.
1=. 1=3

<a> 8ny &erson who de&ri es or iolates the &ersonal liberty of another with the intent to effect or maintain a felony iolation of Section "33' "33h' "33i' "34' !11.,' or .1C' or to obtain forced labor or ser ices' is g%ilty of h%man traffic(ing. <b> 5$ce&t as &ro ided in s%bdi ision <c>' a iolation of this section is &%nishable by im&risonment in the state &rison for three' fo%r' or fi e years. <c> 8 iolation of this section where the ictim of the traffic(ing was %nder 1C years of age at the time of the commission of the offense is &%nishable by im&risonment in the state &rison for fo%r' si$' or eight years. <d><1> 7or &%r&oses of this section' %nlawf%l de&ri ation or iolation of the &ersonal liberty of another incl%des s%bstantial and s%stained restriction of another)s liberty accom&lished thro%gh fra%d' deceit' coercion' iolence' d%ress' menace' or threat of %nlawf%l in-%ry to the ictim or to another &erson' %nder circ%mstances where the &erson recei ing or a&&rehending the threat reasonably belie es that it is li(ely that the &erson ma(ing the threat wo%ld carry it o%t. <"> D%ress incl%des (nowingly destroying' concealing'

113 CRIMINAL AND CIVIL CONFINEMENT 0Fol. !C?!.; traffic(ing to be /e+%i alent to the federal definition of a se ere form of traffic(ing fo%nd in 0s1ection 41="<C> of Title "" of the United States Code.21=4 The California stat%te lac(s an e$ce&tion to an element of /fra%d' deceit' coercion' iolence' d%ress' menace' or threat of in-%ry'2 1=C when the ictim of traffic(ing is a minor? an e$ce&tion that the TF68 &ro ides' ma(ing the two stat%tes different. The California legislat%re has recogniAed this fail%re and is in the &rocess of amending section "!3.1 to incl%de an e$ce&tion for the abo e listed elements when the ictim of traffic(ing is a minor. 1=; The new law will read /any &erson who ca%ses' ind%ces' enco%rages' or &ers%ades a &erson %nder 1C years of age to engage in a commercial se$ act with the intent to effect or maintain a felony iolation of 0s1ection "33' "33h' "33i' "33-' "34' !11.!' !11.,' or .1C . . . is g%ilty of h%man traffic(ing.2 11= In ado&ting this legislation' California highlighted the significant im&act of se$ traffic(ing on children and' in t%rn' society. 111 7irst' the California legislat%re ado&ted a greater &%nishment for the traffic(ing of minors relati e to ad%lts by increasing the &rison sentence from one to three years.11" Second' the legislat%re ac(nowledged the money#ma(ing as&ect associated with the se$ traffic(ing of minors and ado&ted a fine' to accom&any incarceration' for traffic(ers who traffic minors for &%r&oses of
remo ing' confiscating' or &ossessing any act%al or &%r&orted &ass&ort or immigration doc%ment of the ictim . . . . <f> The Degislat%re finds that the definition of h%man traffic(ing in this section is e+%i alent to the federal definition of a se ere form of traffic(ing fo%nd in Section 41="<C> of Title "" of the United States Code . . . . <g><1> In addition to the &enalty s&ecified in s%bdi ision <c>' any &erson who commits h%man traffic(ing in ol ing a commercial se$ act where the ictim of the h%man traffic(ing was %nder 1C years of age at the time of the commission of the offense shall be &%nished by a fine of not more than one h%ndred tho%sand dollars <T1=='===> . . . . <"> 8s %sed in this s%bdi ision' /commercial se$ act2 means any se$%al cond%ct on acco%nt of which anything of al%e is gi en or recei ed by any &erson. Id.
1=4 1=C

. Id. B "!3.1<f>. . Id. B "!3.1<d><1>. 1=; . Id. B "!3.1. 11= . :eneral 8ssemb.' 8ssemb. K. No. ;=' Reg. Sess. <Cal. "=11>' available at htt&?@@www.leginfo.ca.go @&%b@11#1"@bill@asm@abL==.1#=1==@abL;=LbillL"=11=1=3L introd%ced.&df. 111 . See i%*ra notes Err"r( Re*ere%&e s"ur&e %"t *"u%d#5rror? Reference so%rce not fo%nd and accom&anying te$t. 11" . :eneral 8ssemb.' 8ssemb. K. No. ;=' Reg. Sess. <Cal. "=11>' available at htt&?@@www.leginfo.ca.go @&%b@11#1"@bill@asm@abL==.1#=1==@abL;=LbillL"=11=1=3L introd%ced.&df <&ro iding that %nder B "!3.1<1><b> traffic(ers of ictims age eighteen or older are s%b-ect to im&risonment for three' fo%r' or fi e years' while %nder B "!3.1<1><c> traffic(ers of ictims %nder the age of eighteen are s%b-ect to im&risonment for fo%r' si$' or eight years>.

"=1"1 INSUFFICIENT STATE LA S FAIL TO !ROTECT MINORS 114 commercial se$ acts.11! Ehile this amended ersion of the stat%te does not &ro ide blan(et co erage for children by ma(ing a traffic(er liable solely beca%se the traffic(ed &erson is %nder the age of eighteen' it lessens the elements re+%ired to con ict a traffic(er of a minor ictim and is more aligned with the lang%age of the TF68. In order to ma(e the California stat%te the e+%i alent of the TF68' California wo%ld still need to eliminate the &ortion re+%iring the &er&etrator to &ossess /the intent to effect or maintain a felony iolation211, of one of the abo e#listed &redicate offenses.11. ". Se$ offense against a minor stat%te

California defines /%nlawf%l se$%al interco%rse2 as /an act of se$%al interco%rse accom&lished with a &erson who is not the s&o%se of the &er&etrator' if the &erson is a minor'2 and it defines minor as a &erson %nder the age of eighteen.113 The law is silent as to the criminal defendant)s (nowledge of the child)s age at the time of the %nlawf%l se$%al interco%rse.114 Howe er' the California co%rts ha e acted and &laced the b%rden of &roof on the defendant to &ro e /to the satisfaction of the co%rt that he entered into a good faith belief' based %&on reasonable gro%nds' that the &rosec%tri$ was of a legal age to consent.2 11C The e$istence of this ga& in California)s %nlawf%l se$%al interco%rse stat%te did not sway the legislat%re to add a &ro ision to its h%man traffic(ing stat%te &ro iding for a similar standard of (nowledge' or e en to str%ct%re the h%man traffic(ing stat%te as a strict liability offense.11; 8s &re io%sly disc%ssed' se$ traffic(ing of a minor incl%des se$%al interco%rse with a child %nder the age of eighteen and ario%s other harms. 1"= California)s se$ traffic(ing stat%te is not aligned with the TF68' nor is it aligned with its own %nlawf%l se$%al interco%rse laws beca%se it is not a strict liability offense. C. Ohio 1. State se$ traffic(ing stat%te

In recent years' Ohio has gained a significant amo%nt of attention regarding the &re alence of se$ traffic(ing of minors within the state and

11! 11,

. Id. . See C8D. 65N8D COD5 B "!3.1. 11. . See id. <listing the &redicate offenses of felonies %nder BB "33' "33h' "33i' "33-' "34' !11.!' !11.,' or .1C of the California 6enal Code>. 113 . Id. B "31..<a>. 114 . See id. 11C . 6eo&le . Kattles' ,; Cal. R&tr. !34' !34 <Ct. 8&&. 1;33>. 11; . See C8D. 65N8D COD5 B "!3.1. 1"= . See 8RONOEITO' supra note 5rror? Reference so%rce not fo%nd' at ;.

11C CRIMINAL AND CIVIL CONFINEMENT 0Fol. !C?!.; the lac( of any action by the state legislat%re to handle the &roblem. 1"1 Toledo' one of Ohio)s ma-or cities' ran(s as one of the to& fo%r cities in the co%ntry in terms of arrests' in estigations' and resc%es of domestic minor se$ traffic(ing ictims. 1"" Until "=1=' traffic(ing a &erson in the state of Ohio was not a crime.1"! In res&onse to the &%blic o%tcry' the 8ttorney :eneral assigned the Traffic(ing in 6ersons Research and 8nalysis S%b#Committee <the Committee> to research and ma(e recommendations to address the h%man traffic(ing &roblem in Ohio.1", The Committee ado&ted the TF68)s definition of h%man traffic(ing and identified ma-or reasons that increased the ris( of traffic(ing for minors in Ohio. 1". It incl%ded the? state)s /wea( res&onse2 to addressing traffic(ing* first res&onder)s inability to &ro&erly identify the ictims as ictims* minimal conse+%ences for traffic(ers* and lac( of &rosec%tion for traffic(ers' as well as indi id%als &%rchasing se$. 1"3 Ohio)s res&onse to traffic(ing was largely foc%sed on the &ersons traffic(ed' as o&&osed to the traffic(er. 1"4 Rather than recogniAing the yo%ths as ictims' Ohio labeled yo%ths in ol ed in &rostit%tion as delin+%ents. 8s a res%lt' minor ictims of se$ traffic(ing became &art of the -% enile -%stice system rather than recei ing the care and &rotection they
1"1

. See EIDSON P D8DTON' supra note 5rror? Reference so%rce not fo%nd' at 1"* 6atty Inglish' T"led", O#i"( T#ird Largest Cit' *"r C#ild Se$ Tra**i&+i%g Slaver' ' HUK 68:5S' htt&?@@&attyinglishms.h%b&ages. com@h%b@Toledo#Ohio#Third#Dargest#City#for#Child#Se$#Traffic(ing#and#Sla ery <last isited Se&t. 1"' "=11>* Caitlin O)Neil' Se$ Tra**i&+i%g ,its Cl"se t" ,")e( 23453 ")e% A**e&ted i% Fra%+li% C"u%t'' TH5 D8NT5RN <No . C' "==;>' htt&?@@www.thelantern.com@ cam&%s@se$#traffic(ing#hits#close#to#home#3=#;=#women#affected#in#fran(lin#co%nty# 1.C;=!;.* 6endra Dee Snyder' O#i" Ide%ti*ied as ,ub *"r ,u)a% Tra**i&+i%g ' CITIO5N US8 <8%g. !=' "==4>' htt&?@@www.ccn#%sa.net@news.&h&UidV,;"* Handie Trimble' Adv"&ates( Se$ Tra**i&+i%g !r")i%e%t i% Ce%tral O#i"' EOSU 6UKDIC H5DI8 <7eb. "C' "=11>' htt&?@@www.&%blicbroadcasting.net@wos%@news.newsmain@article@=@1@143C1!4@EOSU. News@8d ocates.Se$.Traffic(ing.6rominent.in.Central.Ohio* Stud'( O#i" at Ce%ter "* C#ild Se$ Trade' CKS N5ES <7eb. 11' "=1=>' htt&?@@www.cbsnews.com@stories@ "=1=@="@11@ national@main31;3,.,.shtml. 1"" . TR877IC9IN: IN 65RSONS R5S58RCH 8ND 8N8DGSIS SUK#COHHISSION' OHIO TR877IC9IN: IN 65RSONS STUDG COHHISSION? R5S58RCH 8N8DGSIS SUK# COHHITT55 R56ORT ON TH5 6R5F8D5NC5 O7 HUH8N TR877IC9IN: IN OHIO 1! <"=1=> 0hereinafter OHIO TR877IC9IN: IN 65RSONS STUDG COHHISSION1. 1"! . See Da%ra Kischoff' Stri&+la%d Ssig%s ,u)a% Tra**i&+i%g /ill ' D8GTON D8IDG N5ES <Dec. "!' "=1=>' htt&?@@www.daytondailynews.com@blogs@content@shared# gen@blogs@ dayton@ohio&olitics@entries@"=1=@1"@"!@stric(landLsignsLh%manLtraffic.html* OHIO R5F. COD5 8NN. B ";=..!" <Eest "=11>. 1", . OHIO TR877IC9IN: IN 65RSONS STUDG COHHISSION ' supra note 5rror? Reference so%rce not fo%nd' at ,. 1". . Id. at 1=#11. 1"3 . Id. at .. 1"4 . Id. at ,3.

"=1"1 INSUFFICIENT STATE LA S FAIL TO !ROTECT MINORS 11; needed and f%lly deser ed.1"C The Committee noted that the state)s res&onse to the traffic(ers and c%stomers was /wea( and inconsistent . . . des&ite the fact that the c%stomers logically o%tn%mber sellers.2 1"; D%e to the fre+%ency of domestic se$ traffic(ing of minors in Ohio' the Ohio legislat%re too( action in "=1=' criminaliAing the traffic(ing of &ersons' effecti e in "=11.1!= 8ltho%gh the Ohio stat%te criminaliAed the act of se$ traffic(ing' 1!1 the stat%te is not effecti e in addressing the &re alence of se$ traffic(ing of minors in Ohio. 6rior to the ado&tion of this stat%te' the Committee)s re&ort defined h%man traffic(ing %sing the TF68)s definition and incl%ded erbatim the TF68)s e$cl%sion to the /force' fra%d' or coercion2 element where /the &erson ind%ced to &erform se$ acts is %nder 1C years of age.2 1!" Get' the stat%te failed to mirror the TF68)s lang%age. 1!! H%ch li(e the federal stat%te and other state stat%tes) inter&retations of the word /com&elled'2 Ohio)s stat%te clearly states that it /does not re+%ire that the com&%lsion be o&enly dis&layed or &hysically e$erted.2 1!, The element of com&%lsion is established if the state &ro es /that the ictim)s will was o ercome by force' fear' d%ress' or intimidation.2 1!. 8s &re io%sly disc%ssed' the elements of force' fear' and d%ress are not always &resent when the ictim of se$ traffic(ing is a minor. 1!3 Therefore' Ohio)s stat%te will not &rotect all of the minors ictimiAed by se$ traffic(ing* the addition of /intimidation2 is an ins%fficient re&lacement for the com&%lsion
1"C 1";

. Id. . Id. <e$&laining that beca%se one ictim has more than one c%stomer' the n%mber of c%stomers is greater than the n%mber of ictims>. 1!= . OHIO R5F. COD5 8NN. B ";=..!" <Eest "=11>. <8> No &erson shall (nowingly recr%it' l%re' entice' isolate' harbor' trans&ort' &ro ide' obtain' or maintain' or (nowingly attem&t to recr%it' l%re' entice' isolate' harbor' trans&ort' &ro ide' obtain' or maintain' another &erson (nowing that the &erson will be s%b-ected to in ol%ntary ser it%de or be com&elled to engage in se$%al acti ity for hire' engage in a &erformance that is obscene' se$%ally oriented' or n%dity oriented' or be a model or &artici&ant in the &rod%ction of material that is obscene' se$%ally oriented' or n%dity oriented. <K> 7or a &rosec%tion %nder this section' the element /com&elled2 does not re+%ire that the com&%lsion be o&enly dis&layed or &hysically e$erted. The element /com&elled2 has been established if the state &ro es that the ictim)s will was o ercome by force' fear' d%ress' or intimidation . . . . Id.
1!1 1!"

. Id. . OHIO TR877IC9IN: IN 65RSONS STUDG COHHISSION ' supra note 5rror? Reference so%rce not fo%nd' at 1=. 1!! . See id. 1!, . OHIO R5F. COD5 8NN. B ";=..!"<K> <Eest "=11>* see, e.g.' B 41="<C> <8>* C8D. 65N8D COD5 B "!3.1 <Eest "=1=>* N.G. 65N8D D8E B "!=.!, <Hc9inney "==4>. 1!. . OHIO R5F. COD5 8NN. B ";=..!"<K>. 1!3 . See supra 6art II.

1"= CRIMINAL AND CIVIL CONFINEMENT 0Fol. !C?!.; e$em&tion for minors fo%nd in the TF68. In fact' the stat%te is %nli(ely to &ro ide greater &rotection or res%lt in more con ictions than other state stat%tes limiting the elements to force' fra%d' or coercion beca%se /intimidation2 is defined as /%nlawf%l coercion 0and@or1 e$tortion.2 1!4 Ohio followed one of its own recommendations when it ado&ted an enhanced &%nishment scheme for traffic(ers of minor ictims. 1!C :enerally' a con iction for com&elling &rostit%tion %nder this stat%te is a felony in the third degree'1!; b%t the legislat%re enhanced it to a second degree felony if the ictim is between the ages of si$teen and eighteen' and to a first degree felony if the ictim is %nder the age of si$teen. 1,= Ky ado&ting this heightened &%nishment scheme' as recommended by the Committee' law enforcement officials and &rosec%tors are &ro ided with an incenti e to &rosec%te the traffic(ers and to bring -%stice to minor ictims. 1,1 Ohio sho%ld re isit its legislation and amend the stat%te for the con iction of se$ traffic(ing to e$em&t the &resence of /force' fra%d' d%ress' 0or1 intimidation2 when the ictim of se$ traffic(ing is %nder the age of eighteen. This wo%ld gi e f%ll &rotection to some of the most %lnerable ictims and ho&ef%lly remo e Toledo from the list of cities where domestic se$ traffic(ing of minors is most &re alent. ". Ra&e stat%te

The Ohio ra&e stat%te &rohibits a &erson from /engag0ing1 in se$%al cond%ct with another . . . when . . . 0t1he other &erson is less than thirteen years of age' whether or not the offender (nows the age of the other &erson.21," Ra&e' %nder the stat%te' is classified as a felony in the first degree and a &erson in iolation of section ";=4.="<8><1><b> may recei e %& to life im&risonment.1,! Ky enacting this stat%te' Ohio)s Degislati e Ser ice Commission designated this act as ra&e' se&arate and a&art from the crime of /%nlawf%l se$ with a minor'2 beca%se it is defined as?
0S1e$%al cond%ct with a &re#&%berty ictim' regardless of whether force or dr%gs are %sed' and regardless of whether the offender has act%al (nowledge of the ictim)s age . . . the &hysical immat%rity of a &re# &%berty ictim is not easily mista(en' and engaging in se$%al cond%ct

1!4 1!C

KD8C9)S D8E DICTION8RG C;C <;th ed. "==;>. See OHIO R5F. COD5 8NN. B ";=4."1* OHIO TR877IC9IN: IN 65RSONS STUDG COHHISSION' supra note 5rror? Reference so%rce not fo%nd' at 11 <noting that one of the benefits to state law is the ability of the state to increase the &%nishment assigned to the offense of se$ traffic(ing>. 1!; . OHIO R5F. COD5 8NN. B ";=4."1<C>. 1,= . Id. 1,1 . See OHIO TR877IC9IN: IN 65RSONS STUDG COHHISSION' supra note 5rror? Reference so%rce not fo%nd' at 11. 1," . OHIO R5F. COD5 8NN. B ";=4.="<8><1>. 1,! . Id. at B ";=4.="<K>.

. .

"=1"1 INSUFFICIENT STATE LA S FAIL TO !ROTECT MINORS

with a &erson indicates icio%s beha ior on the &art of the offender.1,,

1"1

Ohio has also made it a crime to /engage in se$%al cond%ct with another . . . when the offender (nows the other &erson is thirteen years of age or older b%t less than si$teen years of age' or the offender is rec(less in that regard.21,. In these sit%ations' the offender will be fo%nd g%ilty of a felony in the fo%rth degree. 1,3 The Degislati e Ser ice Commission rationaliAed a decrease in &%nishment when the ictim is o er thirteen beca%se /the ris( of &hysical harm from se$%al cond%ct is less for the early adolescent than for the &re#&%berty ictim' tho%gh the ris( of &sychic harm remains great.21,4 It also described the societal disa&&ro al by stating /se$%al cond%ct with an early adolescent is often iewed as more serio%s when the offender is s%bstantially older than the ictim beca%se' %nder s%ch circ%mstances' the offender)s cond%ct s%ggests highly amoral beha ior.2 1,C Ohio sho%ld ha e followed the &rinci&les it highlighted when it ado&ted the se$ traffic(ing stat%tes. Ohio sho%ld ha e clarified the offense and decreased the b%rden on the &rosec%tion by ma(ing se$ traffic(ing of a minor a strict liability offense. Regardless of whether the child ictim is being traffic(ed for &%r&oses of commercial se$%al acts or a &er&etrator is targeting the child ictim %nder the age of thirteen directly' the fact remains the same that the child)s age and /&hysical immat%rity'2 as noted by the Degislati e Ser ice Commission' /is not easily mista(en.2 1,; The ris( of &hysical harm to the minor e$ists as a res%lt of se$%al cond%ct regardless of whether the se$%al cond%ct occ%rs in the conte$t of se$ traffic(ing or %nlawf%l se$ with a minor. 1.= The traffic(er' li(e the &er&etrator' sho%ld be &%nished for his or her amoral beha ior' witho%t regard to his or her act%al (nowledge or belief that the ictim was older. Similarly' the se$ traffic(ing stat%te sho%ld ado&t the legislati e reasoning and criminaliAe traffic(ing beha ior' /regardless of whether force or dr%gs are %sed'2 1.1 creating a strict liability crime. 8s the Degislati e Ser ice Commission also recogniAed' the &sychological harm is still &resent regardless of the age of the ictim' and it is the state)s d%ty to &rotect child ictims against this ty&e of harm.1." It is ital that Ohio ado&t legislation that &rotects all minors' not -%st those %nder the age of thirteen.
1,,

. OHIO D5:IS. S5RF. COHH)N' SUHH8RG O7 8H. SUK. H.K. .11' B ";=4.="' 1=;th :en. 8ssemb.' Reg. Sess.' at 1! <1;4!>. 1,. . OHIO R5F. COD5 8NN. B ";=4.=,<8>. 1,3 . Id. B ";=4.=,<K> <creating e$ce&tions for s&ecific age ranges between the ictim and the &er&etrator and for &er&etrators &re io%sly con icted of a se$%al offense>. 1,4 . OHIO D5:IS. S5RF. COHH)N' SUHH8RG O7 8H. SUK. H.K. .11' B 1,C . Id. 1,; . Id. B ";=4.=". 1.= . See id. 1.1 . See id. 1." . See ge%erall' id.

1""

CRIMINAL AND CIVIL CONFINEMENT FI. CONCDUSION

0Fol. !C?!.;

Crimes committed against child ictims of traffic(ing /incl%de threats' e$tortion' theft of doc%ments or &ro&erty' false im&risonment' aggra ated or se$%al assa%lt' &im&ing' ra&e and e en death2 1.! and res%lt in an immeas%rable amo%nt of &hysical' mental' and emotional harm. Hinors are targeted more fre+%ently beca%se they are &owerless' innocent' easy to mani&%late' and %nable to &rotect themsel es. 1., It is the d%ty of the state to &ro ide these innocent children with the &rotection they need and f%lly deser e. The im&lementation of federal laws has res%lted in the &rosec%tion of larger traffic(ing rings' b%t many smaller rings are left to flo%rish within the states' as the federal go ernment acts as the sole a%thority to in estigate and &rosec%te the se$ traffic(ing of minors. 1.. Smaller traffic(ing rings' by their nat%re' are more li(ely to be disco ered by local officials beca%se they are more li(ely to st%mble %&on' or otherwise come into contact with' traffic(ing ictims d%ring the co%rse of their ordinary d%ties. 1.3 8t a minim%m' the enactment of additional legislation at the state le el will &ro ide local officials with the tools necessary to combat the se$ traffic(ing of minors' which sho%ld lead to an increase in the n%mber of in estigations cond%cted and &er&etrators &rosec%ted. 1.4 States need to ado&t or amend their e$isting laws to mirror their legislation with the lang%age and significance of the TF68 in order to &rotect the child ictims of domestic se$ traffic(ing. States sho%ld ado&t a blan(et stat%te that ma(es traffic(ers criminally liable for traffic(ing minors for the &%r&ose of commercial se$%al acts' incl%ding enhanced sentences a&&ro&riately res&onsi e to the criminal acts committed. In ado&ting or amending s%ch legislation' states sho%ld also ta(e into consideration their own stat%tory ra&e laws and the %nderlying &olicy of stat%tory ra&e laws' which ma(e a &er&etrator strictly liable for engaging in se$%al cond%ct with a ictim %nder the age of consent beca%se the ictim is &res%med to be inca&able of alidly consenting. 1.C There is an %rgent need to str%ct%re state se$ traffic(ing stat%tes in the same fashion as the federal stat%te so that the element of /force' fra%d' or coercion'2 may be eliminated.1.; Eitho%t strong state action' the federal go ernment will remain the
1.! 1.,

. 8RONOEITO' supra note 5rror? Reference so%rce not fo%nd' at ;. . Id. 1.. . DONNINO' supra note 5rror? Reference so%rce not fo%nd' B "!=.!,' at ,,1#," <citing Danny Ha(im P Nicholas Confessor' Alba%' Agrees "% La1 Agai%st Se$ual a%d Lab"r Tra**i&+i%g' N.G. TIH5S <Hay 14' "==4>' htt&?@@www.nytimes.com@"==4@=.@14@nyregion@14albany.html>. 1.3 . See EIDSON P D8DTON' supra note 5rror? Reference so%rce not fo%nd' at .4. 1.4 . Id. 1.C . COCC8' supra note 5rror? Reference so%rce not fo%nd' at ; and13, n.1. 1.; . See 6OD8RIS 6ROJ5CT' supra note 5rror? Reference so%rce not fo%nd.

"=1"1 INSUFFICIENT STATE LA S FAIL TO !ROTECT MINORS 1"! &rimary a%thority combating se$ traffic(ing of minors in the United States. The res%lt? smaller se$ traffic(ing rings will remain %ndetected* the ma-ority of traffic(ers will remain %n&rosec%ted and at large' &ros&ering at the e$&ense of society)s children* the few traffic(ers &rosec%ted %nder state law will recei e minimal sentences for minor offenses related to traffic(ing minor children for &%r&oses of commercial se$ acts* and the children will remain ictims of a legal system that has failed to &rotect them.