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In the mid-1990s, the police extended this registration ex-officio to other indoor workers in some areas of the country.The police had approached media outlets letting them know that they may be "aiding and abetting" sex workers commit crimes (such as brothel keeping, etc.), and told the media that they should require such registration before accepting advertisements.In 1997, a number of groups came together to hold a Women's Forum in Wellington, out of which a working group developed to draft a bill, including the NZPC, academics, women's groups (New Zealand Federation of Business and Professional Women, National Council of Women, YWCA), and the AIDS Foundation.Other individuals included legal volunteers and MPs, in particular Maurice Williamson (National, Pakuranga 1987–present), Associate Minister of Health (1990–1996), and Katherine O'Regan (National, Waipa 1984–1996, List 1996–1999), who championed the bill in parliament.The bill was introduced on 21 September 2000, and placed in the ballot box, being drawn as number 3 and debated on 8 November as Bill 66-1 (), passing first reading .Party support came from the Greens, notably Sue Bradford (List, 1999–2009).However, the three members of the 1999–2002 coalition (Labour, Greens, Alliance) all had decriminalisation in their manifestos.

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This was a Private Member's Bill, and theoretically, members were allowed a conscience vote.Prostitutes advertised their services as "escorts", and brothels advertised themselves as "massage parlours".Workers in "massage parlours" were required to be registered with the police from the time the Massage Parlours Act 1978 came into force.Although prior to 2003, New Zealand had several laws meant to suppress prostitution, during the last decades of the 20th century, there had been a high degree of toleration of sex work in practice.Nevertheless, police continued to raid brothels, streets, and private residences of sex workers right up to the day before the Prostitution Reform Bill was passed by Parliament.

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