PhilippineCommissiononWomen Policy Brief No.

AddressingtheSystemofProstitutioninthePhilippines,ImposingPenaltiesforPerpetratorsand ProvidingProtectiveMeasuresandSupportServicesforVictims: ENACTINGTHEANTIPROSTITUTIONLAW(AMENDINGARTICLES202AND341OFTHEREVISEDPENALCODE)

ThispolicybriefprovidestherationaleforamendingArticles202and341oftheRevisedPenalCodeonProstitutionandWhiteSlaveTrade. ItalsopresentsrecommendationsonhowtoaddressthesystemofprostitutioninthePhilippinesbyprovidinglegalprotectionandsupport servicesforitsvictimsandshiftingthecriminalliabilitytothosewhoexploitpeopleinprostitution.

WHAT IS THE ISSUE?

Prostitution,aformofsexualexploitationandviolenceagainst womenandgirlsisahumanrightsviolation.Itisanexploitative systemthatcommodifies,objectifiesanddehumanizeswomen, menandchildrenwhoarebeingsoldwithinthesystem.It reinforcesthesubordinatestatusofthemorevulnerable individualswhoaremoreoften,womenandchildren;asit servestheinstantsexualgratificationofthemoreprivileged clientelewhoaremostlymale.

prostitutionasrevealedinastudyofUNICEF.Prostitutionmay nowbethecountrysfourthlargestsourceofGNPaccordingto thestudybythePsychologicalTraumaProgramofthe UniversityofthePhilippines.2

Prostitutionthrivesbecauseofgenderinequalityandlackof respectforwomenshumanrightsclearlymanifestedonthe falsenotionthatwomenareinferior,sexualobjectsand commoditieswhilemenaresuperior,decisionmakersand ownersofproperties.Thesystemalsothrivesbecauseof complexsocioculturalandeconomicfactorspoverty,under education,unemploymentandeconomicdisparityandpower relations.,makingiteasierforthosewhohavemoremoney andpowertoexploitmorevulnerablepeopleandleadthem intoprostitutionandthesextrade.Womendonotmakea rationalchoiceinenteringprostitution;theysettlewiththe limitedoptionsavailabletothembearingconditionsof inequalitythataresetbythecustomerswhopaywomentodo whattheywantthemtodo.Atsomepoint,Statepolicieswhich aregenderblindontheissueofprostitutionmayevenresultin compromisingFilipinowomensbodilyintegritytosextourists, foreignandlocal,militaryandbigbusiness.Oursocietyhas madeprostitutionhiddeninplainsightalthoughitis everywhere,wetendtodisregardanddonotgivepriorityto addressingit. Article202oftheRPCasamendedbyR.A.101583provides:
Article202.Prostitutes;Penalty.Forthepurposesof thisarticle,womenwho,formoneyorprofit,habitually indulgeinsexualintercourseorlasciviousconduct,are deemedtobeprostitutes. Anypersonfoundguiltyofanyoftheoffenses coveredbythisarticleshallbepunishedbyarresto menororafinenotexceeding200pesos,andincaseof recidivism,byarrestomayorinitsmediumperiod toprisioncorrectionalinitsminimumperiodorafine
Statistics presented in the Privilege Speech of Senator Pia S. Cayetano on theAntiProstitutionBill(SBN2341),September26,2011 3 R.A.10158:AnActDecriminalizingVagrancy,AmendingArticle202ofRPC whichwasenactedonMarch27,2012repealedArticle202provisionsthat pertaintovagrancy,leavingbehindtheprovisionthatpenalizesprostitutes, notwithstandingtheirexploitationwithinthesystemofprostitution.
2

Worldwide,theprostitutionbusinesshasaclearlinktohuman traffickingforsexualexploitationandtointernetpornography. TheUnitedNationsSpecialRapporteuronTraffickingin Personsreportsthatforthemostpart,prostitutionas actuallypracticedintheworldusuallydoessatisfytheelements oftrafficking1.

Thecommonunderlyingcauseandwhatprimarilysustains bothprostitution,trafficking,andpornographyisdemand. Pornographyaccessedthroughinternetandmobiletelephony isthetheory;prostitutionandtraffickingforsexualpurposes arethepractice.Prostitutionhasbecomeinstitutionalized, organized,andglobalizedthroughhumantraffickingandthe internet.Differentformsofprostitutionthusexist,likestreet solicitation,bars,brothels,akyatbarko,massageparlors, escortservices,sextourism,cybersex,localandinternational sextrafficking.

Therearetoomanywomenandgirlswhoareluredto prostitution.Menandboysarealsobeingexposedforsexual purposes.Inthe1998studybytheInternationalLabor Organization(ILO),itwasestimatedthattherewereatleast 400,000to500,000prostitutedpersonsinthePhilippineswith anestimated60,000to100,000children.In2004,thenumber ofthoseexploitedinprostitutionalonereached600,000andit balloonedto800,000in2005.Ina2009study,therewere around800,000prostitutedpersonsinthePhilippines;halfof themarechildren.Annually,itisestimatedthat3,266children areforcedintoprostitution.ThePhilippinesranksfourth amongthenationswiththemostnumberofchildrenin
1

SigmaHuda,UnitedNationsCommissiononHumanRights,Integrationof the Human Rights of Women and A Gender Perspective: Report of the Special Rapporteur on the human rights aspects of thevictims of trafficking inpersons,especiallywomenandchildren2006

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rangingfrom200to2,000pesos,orboth,inthe discretionofthecourt.

penalizestheuseoftraffickedpersonsforprostitutionand giveslegalprotectiontoprostitutedpersonswhoarevictimsof trafficking.

Notably,theaboveprovisionfocuseslawenforcementand legalsanctionsexclusivelyonprostitutedwomen.Thisisclearly anaffronttowomenasitcontinuestocriminalizeprostituted women,whilelettingthecustomersandthepimpsgo unscathed.

WHY IS THE ISSUE IMPORTANT?

Ourexistinglegislationonprostitutionisdiscriminatoryagainst womenasitviewsprostitutedwomenascriminalswhoengage inthesexindustryformonetarygain.Womenareviewedas thecauseofillinthesociety,notthosewhocreatethedemand sideofprostitution.Thegenderinequalityinprostitutionisalso manifestedthroughthestigmaattachedtoprostitutedpersons whichperpetuatesmaledominationoverwomenandgirls bodies.Suchdiscriminationhasthepotentialtoimpairthe fundamentaldignityandpersonhoodofwomenandgirls.

QuezonCityOrdinanceNo.SP1516,seriesof20054recognizes personsinprostitutionasvictims.Itimposespenaltiesonlyon theperpetrators,suchasthepimpsandrecipientsofthesexual act.Italsoprovidesservicestopersonsexploitedinprostitution througheducationcampaignsagainstprostitution,crisis interventionservice,educationandsocioeconomicassistance, sustainablelivelihoodskillstraining,financialsupportforscale businesses,integrationandcompleteaftercareprograms, healthservices,counseling,andtemporaryshelter.

WHAT ARE THE EXPERIENCES OF OTHER COUNTRIES IN ADDRESSING THE ISSUE?

Swedenprohibitsthepurchaseofsexualserviceswith punishmentsofstifffinesorimprisonment,thusdeclaringthat prostitutionisntadesirableeconomicandlaborsector.The governmentalsodecriminalizeswomeninprostitutionby helpingthemgetoutofthesystemandrebuildtheirlives5.This iswhatSwedencalledastheNordicModel6whichwas adoptedbyNorwayandIcelandin2009.Insteadofprosecuting prostitutedwomen,theyveofferedthemsocialservices, educationalsupportandgenuinealternatives,while criminalizingpimpsandcustomersorjohns7. InVenezuela,alandmarkrulinggivenbytheMinistryofLabor rejectedtheviewthatprostitutionshouldbeconsideredwork becauseitlacksthebasicelementsofdignityandsocialjustice. TheSocialistRepublicofVietnampunishespimps,traffickers, brothelowners,andbuyerssometimespublishingbuyers namesinthemassmedia.Forwomeninprostitution,the governmentfinancesmedical,educational,andeconomic rehabilitation. InOctober2000,theU.S.CongresspassedtheVictimsof TraffickingandViolenceProtectionActof20008,introducedby NewJerseyrepublicanrepresentativeChrisSmith.Underthis lawpenaltiesfortraffickersareraisedandprotectionsfor
4 AnOrdinanceAddressingtheSystemofProstitution,ImposingPenaltiesonits Perpetrators,ProvidingProtectiveMeasuresandSupportServicesfortheProstituted Persons,andforOtherPurposes 5 Actual text of the law states: A person who obtains casual sexual relations in exchange for payment shall be sentenced unless the act is punishable under the SwedishPenalCodeforthepurchaseofsexualservicestoafineorimprisonmentfor at the most six months. Attempt to purchase sexual services is punishable under Chapter 23 of the Swedish Penal Code (Sweden, Law Prohibiting the Purchase of SexualServices)1998 6 Also known as the Swedish Model, which is a set of laws that penalizes the demandforcommercialsexwhiledecriminalizingindividualsinprostitution.Ithastwo main goals: curb the demand for commercial sex that fuels sex trafficking, and promoteequalitybetweenmenandwomen. 7 Outlined in Shari Graydons column: Liberalizing prostitution laws wont protect women,June14,2013 8 http://www.state.gov/documents/organization/10492.pdf

WHAT ARE THE EXISTING LAWS OR POLICY ISSUANCES RELATED TO THE ISSUE?
ArticleII,Section11ofthe1987PhilippineConstitution providesthattheStatevaluesthedignityofeveryhuman personandguaranteesfullrespectforhumanrights.In addition,ArticleXIII,Section1statesthattheCongressshall givehighestprioritytotheenactmentofmeasuresthatprotect andenhancetherightsofallpeopletohumandignity,reduce social,economic,andpoliticalinequalities,andremovecultural inequitiesbyequitablediffusingwealthandpoliticalpowerfor thecommongood.

RA9710ortheMagnaCartaofWomen(MCW)specifically recognizedthatprostitutionisanactofviolenceagainst women(VAW)fromwhichwomenshouldbeprotected. Section12ofthislawprovidesfortheamendmentorrepealof lawsthatarediscriminatorytowomenwhich,amongothers, includeArticle202oftheRevisedPenalCode(RPC)onthe definitionofprostitution. RPCArticle341onWhiteSlaveTradeimposespenaltyof imprisonmentfrom2years,4monthsandonedayto6years uponanypersonwho,inanymanner,orunderanypretest, shallengageinthebusinessorshallprofitbyprostitutionor shallenlisttheservicesofanyotherforthepurposeof prostitution. RA9208asamendedbyRA10364ortheExpandedAnti TraffickinginPersonsActexplicitlydefinesprostitutionasany act,transaction,schemeordesigninvolvingtheuseofaperson byanother,forsexualintercourseorlasciviousconductin exchangeformoney,profitoranyotherconsideration.Italso

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victimsincreased.Reasoningthatdesperatewomenareunable togivemeaningfulconsenttotheirownsexualexploitation, thelawadoptsabroaddefinitionofsextraffickingsoasnotto excludethesocalledconsensualprostitutionortraffickingthat occurssolelywithintheUnitedStates.

Philippinegovernmenttodiscouragethedemandfor prostitution,facilitatethereintegrationofprostitutedpersons intosocietyandproviderehabilitation,socialintegrationand economicempowermentprogramstowomenandgirlswhoare victimsofexploitationandtrafficking.

OnJune20,2013,theUSSupremeCourtissuedafarreaching 62decisioninthecaseofAgencyforInternational Developmentet.al.v.AllianceforOpenSocietyInternational, Inc.,et.al.9.Itruledthatthegovernmentmaynolongercompel USbasedAIDSfundingrecipientstoopposeprostitutionasa conditionofreceivingfederalfunding.Whilethisrulingonly appliestotheAntiProstitutionLoyaltyOath(APLO) requirementportionoftheGlobalAIDSAct10asviolativeofthe FirstAmendment,theCourtaffirmsthattheUSgovernment deemstheeradicationofprostitutiontobecentraltothefight againstHIV/AIDS11,andupholdstheCongressionalrightto spenditsfundsonselectedprogramsthatagreewiththis mission.Thus,thefederalgovernmentcancontinuenottofund anyspecificprogramsthatmaypromoteprostitution.

TheDeclarationontheEliminationofViolenceAgainstWomen adoptedbytheUNGeneralAssemblyin1993recognized prostitutionasanactofviolenceagainstwomenandurged StatesPartiestopursuewithoutdelayapolicytoeliminateit.

TheConventionfortheSuppressionoftheTrafficinPersons andoftheExploitationoftheProstitutionofOtherswhichwas approvedbytheUNGeneralAssemblystatesthat prostitutionandtheaccompanyingevilofthetrafficin personsforthepurposeofprostitutionareincompatiblewith thedignityandworthofthehumanpersonandendangerthe welfareoftheindividual,thefamilyandthecommunity".

Alignment with National Priorities

Theproposedmeasureisconsistentwithitem13ofthe governments16PointagendaonGenderEqualitywhich states;fromalackofconcernforgenderdisparitiesand shortfalls,tothepromotionofequalgenderopportunityinall spheresofpublicpoliciesandprograms.

WHAT ARE THE CONSIDERATIONS IN ADDRESSING THIS ISSUE IN THE COUNTRY? Promoting womens rights and gender equality
Genderequalitywillremainunattainableaslongasmenbuy, sellandexploitwomenandchildrenbyprostitutingthem12. Addressingthesystemofprostitutionbypenalizingthereal culpritsinthesexindustry,meaningthetraffickers,pimps, customersorbuyersofsexandtheexploiters,and decriminalizingthosewhoareexploitedinthesystemof prostitution,willeventuallyleadtoeradicatetheproblemof prostitution.

Thisisalsoincludedasoneofthelegislativeagendaofthe socialdevelopmentsectorinthePhilippineDevelopmentPlan for20112016.AccordingtothePDP,thelegislationonanti prostitutionseekstoaddressthesystemofprostitution throughtheapprehensionandprosecutionofagents,recruiters, traffickers,pimps,procurers,establishmentowners,customers andotherswhoderivesexualgratification,financialgainorany otherbenefitfromtheprostitutionofanotherperson.Itshall alsocomplementthecurrentlawsonantitraffickingand violenceagainstwomen,inprotectingandpromotingtherights ofthevulnerablegroups,especiallywomenandchildren.

Responding to International Commitments

Article6oftheUNConventionontheEliminationofAllForms ofDiscriminationAgainstWomen(CEDAW)requirestheState totakeallappropriatemeasures,includinglegislation,to suppressallformsoftrafficinwomenandexploitationof prostitutionofwomen.

ItisalsoinlinewiththePhilippinePlanforGenderResponsive Development(19952025),whichcomprehensivelytackles violenceagainstwomen(VAW)withinthecontextofanational developmentframework,andviewsprostitutionasahuman rightsviolationandidentifyingthedecriminalizationofwomen inprostitutionasastartingpointinaddressingtheproblem. AccordingtothePPGD,thedesiredeffectofsuchlegislationis thatwomenandchildrenshouldnolongerbearrestedor finedlikecriminals.

The2006CEDAWCommitteeConcludingCommentsonthe5th and6thPhilippineCountryReportraiseditsconcernsonthe exploitationofprostitutionthatcontinuestothriveinthe Philippinesandthelowratesofprosecutionandconvictionof thosewhoexploittheprostitutionofwomen.Itcalledonthe

9

http://www.supremecourt.gov/opinions/12pdf/1210_21p3.pdf OtherwiseknownastheUSGlobalLeadershipAgainstHIV/AIDS, Tuberculosis,andMalariaReauthorizationActof2008underthe President'sEmergencyPlanForAIDSRelief(PEPFAR) 11 OutlinedintheUSGlobalLeadershipAgainstHIV/AIDS,Tuberculosis,and MalariaReauthorizationActof2008 12 SwedishMinistryofIndustry,EmploymentandCommunications ProstitutionandTraffickinginWomen,FactSheetOctober2004

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POLICY RECOMMENDATION
Itisworthwhiletonotethataddressingtheissueof prostitutionnecessarilystartswithstrengtheningthelegal frameworkwithinwhichlawenforcementagencieswork.There mustbesignificanteffortstoreducetheincidenceof

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prostitutionfocusingonitsdemandsideandbroadenthe baseofillegalityofthesaidact.Thismeansthatcriminal liabilityshouldbeshiftedtoclients(customersorrecipientsof sexualservices)andtheexploiters(pimps,traffickers,brothel owners).Detainingwomeninprostitutionisnottheanswer.It istimetoremovethepenaltyimposedontheminorderto upholdtheirrights.ItisrecommendedthatRevisedPenalCode provisiononProstitutionandWhiteSlaveTradebeamendedas follows:

5.

1. Redefineprostitutionasanyact,transaction, schemeordesigninvolvingtheuseofapersonby another,forsexualintercourseorlascivious conductinexchangeformoney,profitoranyother consideration. Definepersonexploitedinprostitutionora prostitutedpersontoreferto"awoman,manor childused,employed,orexploitedforanother person'ssexualgratificationorpleasure,andfor themonetarygainorprofitofothers. Targetthedemandside;criminalizethosewho exploitpeopleinprostitutiontheproblemof prostitutionwillbeeffectivelyaddressedifthose whofuelitsdemandarepenalized.Puttinginplace anationallawwhichexplicitlyidentifiesthosewho buypersonsinprostitutionandotherpeopleand businessesinvolvedinsuchactivitieswill eventuallyreduceitsdemand. Decriminalizewomeninprostitution;regardthem asvictimsNOTcriminalsthisconsistsonlyofthe removalofpenalsanctionstowomenin prostitution,withouttakinganyfurthermeasures toregulateorlegalizeprostitution.Thisshould recognizethatprostitutedpersonsarenot criminalsbutvictimsofthesystemofprostitution thatdeserveprotection,notpunishment.This, however,doesnotautomaticallyexempt prostitutedpersonswhothemselvescommitany

oftheprohibitedactsofprostitution(suchas pimpingotherpeople)fromcriminalliability. Establishsupportmechanismsforprostituted personstogetoutofthesystemofprostitution recognizethattheroadto recoveryforsurvivorsofprostitutionislongand arduous.Thegovernmentshallfacilitatethe provisionofsupportservicestovictimssuchas psychosocialcounselingtohelpthemintheir healingprocess;legalassistanceinordertoseek redressagainsttheperpetrators;andreferralto appropriatetrainingandothergovernment programsthatwillopenforthemdoorsto economicopportunities.

Therationaleforcriminalizationofthedemandsideisthat restrictivelawswilldeterindividualsfromtakingpartinthe activity,orfailingthat,theywillatleastbepunishedfortheact oftakingadvantageofanotherpersonsvulnerability.Itis aimedatensuringthatthosewhoinducepersonsinto prostitutionandthereafterexploitthemaredealtwith appropriately.Ontheotherhand,decriminalizationofthe prostitutedpersonsseemstobetheonlywaytoeliminating discriminatoryenforcementand,atthesametime,requiring thelawenforcementofficerstoprosecutecrimesperpetrated onthem.

2.

3.

CONCLUSION
LegislativemeasurestoamendArticle202oftheRevisedPenal CodewerefiledinthepreviousCongressesbutwerenot approved.Tothisend,itiswithhopethatourlegislators, consistentwiththeirmandatesundertheConstitutionandthe MagnaCartaofWomen,shallgivehighestprioritytothe enactmentofmeasuresthatprotectandenhancetherightof allthepeopletohumandignityandfavortheimmediate enactmentofanantiprostitutionlaw.#

4.

PCWPolicyBriefsaimtostimulateinformeddiscourseandguidepolicyactionsonissuesconcerningthe empowermentofwomenandpromotionofgenderequality.
OFFICEOFTHEPRESIDENT

PhilippineCommissiononWomen 1145J.P.LaurelStreet,SanMiguel,1005Manila http://www.pcw.gov.ph|pdad@pcw.gov.ph|+6327358918

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