Professional Documents
Culture Documents
Kai Seidenberg
Introduction
Large international sporting events, like the Olympics and the World Cup, long known as
events highlight the benefits of global unity, national pride, community engagement, and short-
and long-term economic growth. Opponents of such events emphasize the potential harm caused
by increased instances of human trafficking. International concern about world sporting events
and human trafficking emerged in the lead-up to the 2006 World Cup in Germany. 1 The
international community expressed fears that the World Cup would be plagued with sex
trafficking. Though these fears proved unfounded, the situation raised concerns about the
potential relationship between international sporting events and increased human trafficking.
Empirical data on trafficking is scarce, making it difficult to verify whether concerns for
surges in human trafficking at global sporting events are justified. Nevertheless, the rationale for
fear is logical. The large number of people attending these events and the influx of thousands of
migrant workers naturally increase the potential for increased instances of human trafficking,
1
Hennig, Jana, et al. 2006, Trafficking in Human Beings and the 2006 World Cup in Germany.
This report explores the connection between international sporting events and human
trafficking. Part 1 sets forth the international definition of human. Part II outlines our current
understanding of international human trafficking patterns. Part III examines past events’
instances of human trafficking for sexual exploitation and forced labor and analyzes the efficacy
of the correlation between international sporting events and increased instances of human
to prevent and combat trafficking in persons and to protect and assist victims of trafficking with
respect to their human rights.3 The Palermo Protocol defines human trafficking as consisting of
three elements:
2. Means ("by means of the threat or use of force or other forms of coercion, of abduction,
2
Protocol to Prevent, Suppress and Punish Trafficking in Persons, Especially Women and Children Supplementing
the United Nations Convention against Transnational Organized Crime, art 3(a), Nov. 15 2000, S. TREATY Doc.
No. 108-16 (2004), 40 I.L.M. 335
3
Ibid., 42.
4
Ibid.
5
Ibid.
3. Intent ("for the purpose of exploitation;" "exploitation shall include, at a minimum, the
organs."6)
With 190 signatories, including the United States, the international community defines human
After much neglect and indifference, the world is beginning to wake up to the realities of
the modern form of slavery. Human trafficking is an affront to the inherent dignity and the equal
and inalienable rights of all people in the pursuit of freedom and justice. Already the third largest
criminal industry in the world7, human trafficking is the fastest-growing criminal industry, 8 with
an estimated 24.9 million victims worldwide at any given time. 9 The United States is not exempt
from the evils of human trafficking, reporting 16,658 identified victims in 2020.10 Predicated on
the exploitation of vulnerable communities, this form of slavery is a stain on the conscience of
6
Ibid.
7
UNODC. United Nations Publication, 2009, p. 11, Global Report on Trafficking in Persons 2009.
8
Chon, Katherine, and Derek Ellerman. “Soccer With a Side of Slavery.” The Washington Post, 10 June 2006,
https://www.washingtonpost.com/archive/opinions/2006/06/10/soccer-with-a-side-of-slavery/18544daf-0ca4-45e6-
aef4-def857890739/. Accessed Aug. 2022.
9
“About Human Trafficking – United States Department of State.” U.S. Department of State, U.S. Department of
State, 18 Aug. 2022, https://www.state.gov/humantrafficking-about-human-trafficking/#:~:text=With%20an
%20estimated%2024.9%20million,them%20for%20their%20own%20profit.
10
Polaris, https://polarisproject.org/.
humankind, and combatting its corruption would reaffirm everyone's right to life, liberty, and
security.
We still lack a global understanding of human trafficking and how its components
interact, but we are beginning to see progress in tackling the issue. Many questions persist about
the scope of human trafficking and the extent to which preventative measures are sufficient and
effective. So far, the international community has not attained much knowledge on human
trafficking; therefore, initiatives have been inadequate and disjointed. Policy can be effective if it
is evidence-based, but evidence has been scanty. To answer these questions, we must understand
the trends of the problem so we can enact policy that successfully prevents further harm. As
more data emerges on the subject, we are beginning to understand the forces at play in modern
slavery markets.
society's most marginalized and vulnerable communities. Traffickers target victims in difficult
dysfunctional families or deprived of parental care, immigration status, and limited education or
While the profile of victims can change widely in different parts of the world, women and
children continue to be particularly affected by human trafficking. For every ten victims detected
globally, five were adult women, and two were girls. 13 About one-third of detected victims were
11
UNODC. United Nations Publication, 2020, p. 9, Global Report on Trafficking in Persons 2020
12
Ibid., 52.
13
Ibid., 9.
children, while 20 percent were adult men.14 Global trends show that children, and particularly
These victims are primarily trafficking for sexual exploitation and forced labor. Broadly,
fifty percent of victims detected were trafficked for sexual exploitation, and thirty-eight percent
were trafficked for forced labor,15 but different victim profiles are trafficked for various
purposes. Most women are trafficked for sexual exploitation (77%), whereas men are mainly
trafficked for forced labor (67%).16 Because it is more frequently reported, sexual exploitation of
In addition to victim trends, the question of 'who' commits the crime often informs its
scope and impact. Human trafficking is perpetrated by actors with different levels of
criminal groups with three or more systemically engaged traffickers (36%), with the rest being
criminal groups can traffic more victims over a longer time and with more violent means. As
such, most victims detected are trafficked by organized criminal groups. Additionally, traffickers
predominantly operate within geographically close areas, with most detected victims being
The crisis we face of fragmented knowledge and disjointed responses intensifies a crime
that shames us all. In order to act against the atrocities of human trafficking, we need to
understand better the factors that facilitate trafficking. Human trafficking is a hidden crime; by
14
Ibid., 31.
15
Ibid., 34.
16
Ibid., 33.
17
These trends may be a result of statistical bias. By and large, the exploitation of women and children tends to be
more visible than other forms of trafficking.
18
Ibid., 42.
19
Ibid., 54.
bringing visibility to the issue, we can help develop solutions capable of addressing root causes,
prosecuting offenders, protecting the vulnerable, and supporting victims. Systemic solutions
must rely on broad, multi-faceted partnerships between governments with the support of
We all have a part to play in preventing human trafficking, and the time has come to
International sporting events have long been controversial among human rights activists.
The pride many feel in seeing their country represented at the pinnacle of sports is often
contradicted by the opportunity for illegal activities. Events like the Olympics and the World
Cup must contend that they may contribute to increased opportunities for human trafficking.
Many people in the anti-trafficking movement are troubled by the possible surges in
forced labor and sexual exploitation that seem to coincide with the preparations for hosting
international sporting events. While there is not widespread consensus on any direct causal
relationship between these events and increased human trafficking, the circumstances for hosting
events like the Olympics and the World Cup certainly have the potential to be hotbeds for human
trafficking enterprises.
Many scandalous accusations have led people to believe that sexual exploitation is
inseparable from international athletic competitions. World sporting events are plagued with
concerns that the influx of people attending the events will cause an increase in human
trafficking for the purpose of sexual exploitation. In the lead-up to the 2006 World Cup in
Germany, people were shocked to hear that an estimated 40,000 women and children would be
imported to Germany to provide commercial sex for the month-long competition. 20 Similar
reports have been circulated by U.S. print media positing a link between the Super Bowl and
increased sex trafficking, with one headline claiming that "the Super Bowl is the largest human
While these stories may reveal a correlation between international sporting events and
increased instances of human trafficking, further analysis finds that the causal relationship has
not yet been proven. Despite the media's allegations of large-scale sex trafficking in relation to
the 2006 Germany World Cup, German officials and trafficking experts quickly dismissed the
claims as unrealistic.22 Once the World Cup was underway, the estimated 40,000 victims of
trafficking did not materialize, and there is little evidence indicating there was any dramatic
increase in sex trafficking.23 Similarly, there was no reported increase in sex trafficking at the
2004 Athens Olympics or the 2008 Beijing Olympics24, and available empirical evidence does
not support a link between the Super Bowl and a substantial increase in sex trafficking.25
sporting events and sex trafficking does not indicate it is not occurring. There are no reports
available about sex trafficking for the 2008 Beijing Olympics, but reports on prostitution suggest
20
Chon, Derek, supra note 8.
21
L Martin and A Hill, ‘Debunking the Myth of “Super Bowl Sex Trafficking”: Media hype or evidenced-based
coverage’, Anti-Trafficking Review, issue 13, 2019, pp. 13-29, https://doi.org/10.14197/atr.201219132.
22
Anne Marie Tavella, Sex Trafficking and the 2006 World Cup in Germany: Concerns, Actions and Implications
for Future International Sporting Events, 6 NW. J. HUM. RTS. 196 (2008).
https://scholarlycommons.law.northwestern.edu/njihr/vol6/iss1/8
23
Victoria Hayes, Human Trafficking for Sexual Exploitation at World Sporting Events, 85 Chi.-Kent L. Rev. 1105
(2010), pg 1124.
24
Ibid., 1122-1131.
25
Martin, Dr. Lauren, and Dr. Annie Hall. 2017, “Sex Trafficking and the 2018 Super Bowl in Minneapolis: A
Research Brief,” https://conservancy.umn.edu/bitstream/handle/11299/226835/SuperBowl%20Research
%20Brief%20PUBLIC%20document%206-3-17.pdf?sequence=1. Accessed 27 Aug. 2022.
that prostitution continued to occur during the games.26 The absence of r on trafficking victims
identified during or around sporting events may indicate sex trafficking occurring more covertly
dependent on known cases of trafficking, it is possible that people were trafficked and not
discovered.
The rationale for the fear of increased human trafficking at global sporting events is
logical. The large number of people attending world sporting events naturally increases the
demand for prostitution in a host city. Traffickers could see this as a business opportunity. The
added benefit is that these events also make recruitment easier for traffickers. Unaware of
traffickers' true intentions, people may believe they are being offered legitimate jobs in the host
country. Traffickers can also take advantage of the travel visas issued for these events by
influx of people attending these events, often millions of people at a time, there is a natural
increase in demand for prostitution. Traffickers may see this as an opportunity and traffic people
to the event to meet that demand. There is certainly a potential for increased sex trafficking at
international sporting events, but under the right preventative circumstances, the harms of human
trafficking can be mitigated. Whether or not our fears of trafficking will be realized, even the
On the other hand, there is substantial evidence correlating international sporting events
and increased human trafficking for the purpose of forced labor. Reports on labor conditions in
26
Haye, supra note 23, pg 1130.
27
Ibid., 1123.
28
Ibid., 1106.
preparation for the Russian Olympics in Sochi in 201429 and the Russian World Cup in 2018
found numerous instances of forced labor.30 Amnesty International also discovered abuses and
exploitation of migrant workers building the Khalifa Stadium for the 2022 Qatar World Cup.31
Hosting an event like the World Cup or the Olympics is a great honor, but it comes at a
high cost. Most countries do not meet the minimum infrastructure requirements necessary to host
these events, which include criteria for stadiums, hotels, transit, and communications and
electrical grids, forcing billions of dollars worth of construction projects. In the bid to host the
2022 World Cup, Qatar pledged an estimated $200 billion-plus infrastructure package.32
schedules and an influx of thousands of construction workers. Many migrant workers face
exploitation, poor working conditions, and little recourse for abuse. The Human Rights Watch
found that despite programs instituted by Russian officials, the Fédération Internationale de
Football Association (FIFA),33 and the International Olympic Committee (IOC) 34 to monitor
labor conditions, there were extensive instances of abuse. Investigations identified concerns
regarding non-payment of wages, retaliation against workers who complain, and the failure to
Workers building the infrastructure necessary for hosting the Olympics and the World
Cup in Russia were vulnerable to abuse. Many instances of exploitation stem from workers'
29
Race to the Bottom: Exploitation of Migrant Workers Ahead of Russia's 2014 Winter Olympic Games in Sochi.
Human Rights Watch, 2013.
30
Buchanan, Jane. Red Card: Exploitation of Construction Workers on World Cup Sites in Russia. Human Rights
Watch, 2017.
31
“Qatar World Cup of Shame.” Amnesty International, 29 July 2021,
https://www.amnesty.org/en/latest/campaigns/2016/03/qatar-world-cup-of-shame/.
32
Published by Statista Research Department, and Aug 17. “Qatar 2022 World Cup Operational Expenses by FIFA
2021.” Statista, 17 Aug. 2022, https://www.statista.com/statistics/1298801/world-cup-qatar-fifa-operational-
expenses/.
33
See Race to the Bottom, supra note 30.
34
Buchanan, supra note 30.
employment and residency status being irregular. Often escaping poverty and unemployment,
migrant workers are lured to host cities with the prospect of economic opportunity but are found
in servitude when they are left with high recruitment fees or withheld employment contracts.
High recruitment fees leave workers in debt, and the lack of employment contracts leaves
workers with little legal recourse because of the risk of deportation, often making migrants
reluctant to seek assistance from the authorities in case of abuse. This leaves them vulnerable to
abuses like non-payment and severe delays in wages, working in extreme conditions like
excessive working hours, and inadequate employer-provided housing and food. And even when
workers reported labor concerns, they were often met with threats and retaliation.35
There were similar concerns about human rights abuses of migrant workers in Qatar for
the upcoming 2022 World Cup. An investigation by Amnesty International found that migrant
workers were subject to appalling living conditions, lies about salary, and withholding of
residence permits allowing workers to leave the camps or the country. Workers who refused to
work were threatened with having their pay deducted or handed over to the police for deportation
Hosting an international sporting event comes with the cost of large infrastructural
projects. These projects lead to an influx of tens of thousands of migrant construction workers.
These workers suffer abuse and exploitation owing to their irregular resident status. Under an
atmosphere of intimidation, suspicion, and secrecy, workers are forced to endure poor working
35
Ibid., and see supra note 30.
36
See “Qatar Cup of Shame,” supra note 31.
37
It is important to note that countries like Russia and Qatar have long-standing and well-documented issues with
human rights violations. The types of exploitation and abuse of workers described in this report are pervasive in
Russia's and Qatar's construction industries. Other host nations like London have noted concerns about instances of
forced labor in relation to international sporting events, but none have reported substantial increases. Russia and
Qatar's poor record with human rights may indicate how an absence of preventative regulation can lead to an
increase in human trafficking and should lend credence to the argument that preventative measures are necessary for
The hosting of international sporting events could potentially increase instances of human
trafficking. The large influx of fans for the events could increase demand, which traffickers may
see as a business opportunity. The large infrastructure projects required for hosting these events
lead to an influx of tens of thousands of migrant workers who are vulnerable to exploitation and
abuse. Because international sporting events risk increasing instances of human trafficking, host
The United Nations' passage of the Palermo Protocol in November 2000 provided the
first legally binding instrument to prevent, suppress, and punish human trafficking. In the last
trafficking through increased awareness and the passage of anti-trafficking legislation. Most
countries that have adopted the Palermo Protocol have passed some form of anti-trafficking
legislation to combat the major forms of human trafficking. 38 This political response coincides
with increased international awareness of human trafficking, providing a platform for many non-
governmental organizations.
concern about world sporting events and human trafficking emerged during the 2006 German
World Cup. Predictions that 40,000 women and children would be brought to serve the needs of
take several proactive measures to reduce the risk of increased sex trafficking during the event.
German authorities made extensive efforts to combat sex trafficking at the World Cup. Their
coordination between national and regional enforcement agencies and enforcement and NGOs,
and awareness-raising and informational campaigns. Preceding and during the event, there were
four major information campaigns on sex trafficking that included victim support. These
materials to garner support to increase prevention and prosecution efforts. The government
established three national hotlines—two for victims and a third that allowed prostitution
customers to report suspicious situations. A year before the event, German law enforcement
coordinated anti-sex trafficking measures between national and international law enforcement
agencies and between law enforcement and NGOs. The enforcement measures included large-
scale raids on brothels looking for trafficked victims while gathering intelligence from red light
districts and other sources like hotels and internet and newspaper advertisements.39
The Canadian government also took a hard-lined approach toward preventing sex
trafficking for the 2010 Winter Olympics in Vancouver. The event was used to reinforce existing
anti-trafficking strategic approaches and operational procedures. The critical measures developed
and implemented before the games were designed to ensure that a solid, proactive, and multi-
faceted strategy was in place to anticipate, plan, and prepare for a possible increase in sex
trafficking. Canadian officials identified four main priorities, which include developing tools,
organized human trafficking awareness workshops. Mass information and awareness campaigns
provided information on domestic and transnational sex trafficking, relevant legislation and
elements of the offenses, sex trafficking indicators, and referral mechanisms and protocols for
responding to the needs of trafficking should cases arise, including local support services.40
While it is unclear what the effectiveness of these awareness and prevention efforts, what
is known is there was no reported increase in trafficking for the purposes of sexual exploitation
during the events. The question is whether the increased attention prevented the increase or if no
increase would have occurred without the efforts. Germany and Canada's increased anti-
trafficking efforts, education campaigns, and increased police presence looking for forced
trafficking victims may have dissuaded customers from visiting prostitutes. Still, the nature of
human trafficking is such that it is impossible to know if the efforts were successful.
Nonetheless, the increased efforts should be encouraged as world sporting events provide a
unique opportunity to raise awareness due to the mass appeal of the events.
sporting events is a concern for the possibility of forced labor. Anti-trafficking discussions and
public awareness campaigns tend to have a singular preoccupation with human trafficking for the
purpose of sexual exploitation at the expense of serious consideration of the trafficking of labor
as an issue of concern. National governments and private companies are responsible for ensuring
labor protections under national and international law. Still, there is an unwillingness or inability
40
2010 Winter Games Analysis on Human Trafficking. Public Safety Canada, 2013,
https://www.publicsafety.gc.ca/cnt/rsrcs/pblctns/wntr-gms-2010/index-en.aspx#s7f
on the part of host nations and private companies to guarantee the fundamental rights of migrant
workers. There has been no significant effort to address the correlation between instances of
Success in preventing trafficking from occurring during the German World Cup and the
Vancouver Olympics is likely attributable, at least partly, to the preventative measures taken by
law enforcement and NGOs in the host nations. Dismissing a possible connection between
trafficking and international sporting events would be irresponsible. Events like the World Cup
and the Olympics bring the global community together but also risk providing a venue for
exploiting the world's most vulnerable people. These events should be used to combat both forms
international sporting events and a drastic increase in human trafficking, concerns about human
trafficking are warranted. Host nations should take the issue of human trafficking seriously, and
effective preventative measures require comprehensive planning. But even where the harms of
human trafficking may be particularly negligible regarding world sporting, these events provide
an opportunity to increase global awareness about the evils of human trafficking, allow the host
country to review their anti-trafficking legislation and national action plans for combating it and
FIFA has an existing labor monitoring system, but investigations have found that it is limited and ineffective.
41
Moreover, neither FIFA nor the IOC incorporates human rights criteria for evaluating bids to host events.
cooperation and global support. Such events should be used to combat human trafficking, both at
The United States should use the 2026 World Cup as an opportunity to showcase its
commitment to addressing the issue of human trafficking. The U.S. government has
demonstrated a serious and sustained effort in eliminating trafficking, maintaining a Tier 1 status
of full compliance with the standards outlined in the Trafficking Victims Protection Act
(TVPA).42 They should use their position as a global leader to set a benchmark for anti-
cooperation between government law enforcement and NGOs to adopt effective and proactive
national and international anti-trafficking measures before and during the event.
Recommendations:
Examine the histories of and the lessons learned from previous international sporting
events as well as the policies and practices implemented by other host nations.
defined human trafficking prevention plan with milestones and benchmarks, the fostering
the ground and to respond to the support needs of trafficked persons. Key partnerships
and consultations on strategic planning should also involve Indigenous, youth, sex
42
Department of State. 2021, p. 585, Trafficking in Persons Report.
workers, and migrant worker organizations/advocates as well as grassroots community-
in persons information, data, and measurements, and conduct data collection prior,
appropriate and funded service strategies are in place to serve the needs of trafficked
persons.
(police officers, immigration, and border officials), criminal justice officials, labor
inspectors, first responders, NGO partners, and private sector employers and employees
Devise and initiate national or regional trafficking in persons public awareness campaign,
with input from all relevant community stakeholders. Such a campaign should be
Ensure labor trafficking receives equal attention to trafficking for the purpose of sexual
trafficking.46
43
2010 Winter Games Analysis, supra note 40.
44
Department of State, supra note 42, pg 585.
45
2010 Winter Games Analysis, supra note 40.
46
Department of State, supra note 42, pg 585.
Human trafficking has received growing attention in the last decade at the global,
regional, and national levels. International agencies, national governments, and NGOs have
stepped up to combat this heinous crime, yet the problem persists. Large international sporting
events may contribute to the perpetuation of human trafficking, but this does not have to be the
case. Such events should utilize the upsurge in global unity, national pride, and community
We must call on the global community to hold ourselves to a higher standard of human
dignity and strive to eliminate crimes against the right to life, liberty, and security.