monitoring and combating trafficking in persons: how are we doing?
monitoring and combating trafficking in persons: how are we doing?
monitoring and combating trafficking in persons: how are we doing?
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S. HRG. 107–576MONITORING AND COMBATING TRAFFICKING INPERSONS: HOW ARE WE DOING?HEARINGBEFORE THESUBCOMMITTEE ON NEAR EASTERNAND SOUTH ASIAN AFFAIRSOF THECOMMITTEE ON FOREIGN RELATIONSUNITED STATES SENATEONE HUNDRED SEVENTH CONGRESSSECOND SESSIONMARCH 7, 2002Pr<strong>in</strong>ted for the use of the Committee on Foreign Relations(Available via the World Wide Web: http://www.access.gpo.gov/congress/senateU.S. GOVERNMENT PRINTING OFFICE80–844 PDF WASHINGTON : 2002For sale by the Super<strong>in</strong>tendent of Documents, U.S. Government Pr<strong>in</strong>t<strong>in</strong>g OfficeInternet: bookstore.gpo.gov Phone: toll free (866) 512–1800; DC <strong>are</strong>a (202) 512–1800Fax: (202) 512–2250 Mail: Stop SSOP, Wash<strong>in</strong>gton, DC 20402–0001VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00001 Fmt 5011 Sfmt 5011 80844 SFRELA1 PsN: SFRELA1
COMMITTEE ON FOREIGN RELATIONSPAUL S. SARBANES, Maryl<strong>and</strong>CHRISTOPHER J. DODD, ConnecticutJOHN F. KERRY, MassachusettsRUSSELL D. FEINGOLD, Wiscons<strong>in</strong>PAUL D. WELLSTONE, M<strong>in</strong>nesotaBARBARA BOXER, CaliforniaROBERT G. TORRICELLI, New JerseyBILL NELSON, FloridaJOHN D. ROCKEFELLER IV, West Virg<strong>in</strong>iaJOSEPH R. BIDEN, JR., Delaw<strong>are</strong>, ChairmanJESSE HELMS, North Carol<strong>in</strong>aRICHARD G. LUGAR, IndianaCHUCK HAGEL, NebraskaGORDON H. SMITH, OregonBILL FRIST, TennesseeLINCOLN D. CHAFEE, Rhode Isl<strong>and</strong>GEORGE ALLEN, Virg<strong>in</strong>iaSAM BROWNBACK, KansasMICHAEL B. ENZI, Wyom<strong>in</strong>gEDWIN K. HALL, Staff DirectorPATRICIA A. MCNERNEY, Republican Staff DirectorROBERT G. TORRICELLI, New JerseyBARBARA BOXER, CaliforniaPAUL S. SARBANES, Maryl<strong>and</strong>JOHN D. ROCKEFELLER IV, West Virg<strong>in</strong>iaSUBCOMMITTEE ON NEAR EASTERNAND SOUTH ASIAN AFFAIRSPAUL D. WELLSTONE, M<strong>in</strong>nesota, Chairman(II)SAM BROWNBACK, KansasGORDON H. SMITH, OregonBILL FRIST, TennesseeGEORGE ALLEN, Virg<strong>in</strong>iaVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00002 Fmt 5904 Sfmt 5904 80844 SFRELA1 PsN: SFRELA1
CONTENTSPageCho, Hae Jung, project director, Coalition to Abolish Slavery & Traffick<strong>in</strong>g(CAST), Los Angeles, CA ..................................................................................... 46Prep<strong>are</strong>d statement .......................................................................................... 48D<strong>in</strong>h, Viet D., Assistant Attorney General, Office of Legal Policy, Departmentof Justice, Wash<strong>in</strong>gton, DC ................................................................................. 10Prep<strong>are</strong>d statement .......................................................................................... 12Responses to additional questions for the record from Senator Wellstone .. 62Dobriansky, Hon. Paula, Under Secretary of State for Global Affairs, Departmentof State, Wash<strong>in</strong>gton, DC .......................................................................... 5Prep<strong>are</strong>d statement .......................................................................................... 7Responses to additional questions for the record from Senator Wellstone .. 58Ely-Raphel, Amb. Nancy H., Senior Advisor, Office to Monitor <strong>and</strong> CombatTraffick<strong>in</strong>g <strong>in</strong> Persons, Department of State, Wash<strong>in</strong>gton, DC ....................... 23Prep<strong>are</strong>d statement .......................................................................................... 24Responses to additional questions for the record from Senator Wellstone .. 65Equality Now, New York, NY, statement submitted for the record .................... 57Hanh, Nguyen Van, Ph.D., Director, Office of Refugee Resettlement, Departmentof Health <strong>and</strong> Human Services, Wash<strong>in</strong>gton, DC ................................... 26Prep<strong>are</strong>d statement .......................................................................................... 28Responses to additional questions for the record from Senator Wellstone .. 66Jordan, Ann, director, Initiative Aga<strong>in</strong>st Traffick<strong>in</strong>g <strong>in</strong> Persons, InternationalHuman Rights Law Group, Wash<strong>in</strong>gton, DC .................................................... 42Prep<strong>are</strong>d statement .......................................................................................... 44Loar, Theresa, president, Vital Voices Global Partnership, statement submittedfor the record ............................................................................................ 53Scalia, Eugene, Solicitor of Labor, U.S. Department of Labor, Wash<strong>in</strong>gton,DC, statement submitted for the record ............................................................ 54Smolenski, Carol, coord<strong>in</strong>ator, End Child Prostitution <strong>and</strong> Traffick<strong>in</strong>g(ECPAT-USA), New York, NY ............................................................................ 36Prep<strong>are</strong>d statement .......................................................................................... 39Wellstone, Hon. Paul D., U.S. Senator from M<strong>in</strong>nesota, prep<strong>are</strong>d statement ... 3(III)VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00003 Fmt 5904 Sfmt 5904 80844 SFRELA1 PsN: SFRELA1
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MONITORING AND COMBATING TRAFFICKINGIN PERSONS: HOW ARE WE DOING?THURSDAY, MARCH 7, 2002U.S. SENATE,SUBCOMMITTEE ON NEAR EASTERNAND SOUTH ASIAN AFFAIRS,COMMITTEE ON FOREIGN RELATIONS,Wash<strong>in</strong>gton, DC.The subcommittee met at 3 p.m., <strong>in</strong> room SD–419, Dirksen SenateOffice Build<strong>in</strong>g, Hon. Paul Wellstone (chairman of the subcommittee),presid<strong>in</strong>g.Present: Senators Wellstone <strong>and</strong> Brownback.Senator WELLSTONE. The hear<strong>in</strong>g before the Senate Subcommitteeon Near Eastern <strong>and</strong> South Asian Affairs will come toorder.I want to apologize to all of you who <strong>are</strong> here, panelists <strong>and</strong>those who <strong>are</strong> <strong>in</strong>tensely <strong>in</strong>terested <strong>in</strong> the hear<strong>in</strong>g <strong>and</strong> the issue beforeus. We had some votes <strong>and</strong> it was unavoidable, otherwise Iwould not have kept you wait<strong>in</strong>g. I am sure that SenatorBrownback is probably on his way over here as <strong>we</strong>ll, <strong>and</strong> <strong>we</strong> willtry to move th<strong>in</strong>gs forward expeditiously. Senator Brownback ishere right now.Certa<strong>in</strong>ly what I want to try to do is myself be relatively brief<strong>and</strong> then hopefully Senator Brownback as <strong>we</strong>ll, <strong>and</strong> <strong>we</strong> will askeach of you to try to stay with<strong>in</strong> a 5-m<strong>in</strong>ute limit. Then <strong>we</strong> willhave questions. Probably some of the questions <strong>we</strong> will submit <strong>in</strong>writ<strong>in</strong>g as <strong>we</strong>ll because <strong>we</strong> have a number of people who <strong>are</strong> hereto testify.Sam, I was apologiz<strong>in</strong>g for the delay, expla<strong>in</strong><strong>in</strong>g the votes that<strong>we</strong> had.A year ago, the Congress enacted l<strong>and</strong>mark human rights legislationto put an end to <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> human be<strong>in</strong>gs. This was theTraffick<strong>in</strong>g Victims Protection Act, <strong>and</strong> it provided a comprehensiveplan of attack on <strong>traffick<strong>in</strong>g</strong> from various agencies of the FederalGovernment <strong>and</strong> the advocacy community as <strong>we</strong>ll. There <strong>we</strong>reprevention programs. I guess <strong>we</strong> called it the three P’s. There wasthe protection of <strong>traffick<strong>in</strong>g</strong> victims, <strong>and</strong> then there was the prosecutionof the traffickers.I would like to aga<strong>in</strong>, for probably the 100th time, thank SenatorBrownback for his wonderful leadership <strong>in</strong> this <strong>are</strong>a. It has beena joyous journey for me to be work<strong>in</strong>g with him.Today’s hear<strong>in</strong>g is actually to assess our efforts aga<strong>in</strong>st human<strong>traffick<strong>in</strong>g</strong> one year after the passage of the bill.(1)VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00005 Fmt 6633 Sfmt 6633 80844 SFRELA1 PsN: SFRELA1
2We have asked the witnesses to discuss the extent to which variousagencies of the U.S. Government have discharged the responsibilitiesimposed upon them by the act. We need to know whether<strong>we</strong> have effectively used the tools provided by the act, <strong>and</strong> <strong>we</strong> needto know whether new tools might be necessary. A law without vigorous<strong>and</strong> effective implementation <strong>and</strong> oversight, at least <strong>in</strong> myview, is worse than no law at all because it lulls us <strong>in</strong>to the falsesense that <strong>we</strong> have done someth<strong>in</strong>g to solve the problem. We <strong>are</strong>here today to learn whether or not <strong>we</strong> <strong>are</strong> do<strong>in</strong>g all that <strong>we</strong> canto end this <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>, <strong>and</strong> <strong>we</strong> <strong>are</strong> here today to learn<strong>how</strong> committed the adm<strong>in</strong>istration is to truly solv<strong>in</strong>g this grow<strong>in</strong>gproblem of modern day slavery.I th<strong>in</strong>k the adm<strong>in</strong>istration has done some very important work.The State Department released its first Traffick<strong>in</strong>g <strong>in</strong> Persons report<strong>in</strong> July of last year. The Office to Monitor <strong>and</strong> Combat Traffick<strong>in</strong>g<strong>in</strong> Persons was established later that October. We <strong>are</strong> now<strong>in</strong> the adm<strong>in</strong>istrative comment period for the regulations implement<strong>in</strong>gthe <strong>traffick<strong>in</strong>g</strong> T-visa at the Department of Justice, <strong>and</strong>the first meet<strong>in</strong>g of the Interagency Task Force on Traffick<strong>in</strong>g washeld last month. But I th<strong>in</strong>k much more rema<strong>in</strong>s to be done.I will f<strong>in</strong>ish with concerns. I wanted to start with the positivesbecause I th<strong>in</strong>k you should always give credit to people when they<strong>are</strong> do<strong>in</strong>g good work.I am concerned that many victims of <strong>traffick<strong>in</strong>g</strong> <strong>are</strong> not gett<strong>in</strong>gthe assistance they need because the programs may not be designedappropriately or <strong>in</strong>teragency coord<strong>in</strong>ation is lack<strong>in</strong>g. I amconcerned that many victims <strong>are</strong> still not recognized as <strong>traffick<strong>in</strong>g</strong>victims due to lack of effective tra<strong>in</strong><strong>in</strong>g back <strong>in</strong> our states for la<strong>we</strong>nforcement. And I am concerned that our diplomatic message maynot be gett<strong>in</strong>g through. We expect other nations to take vigorousactions to fight <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> <strong>we</strong> will hold them accountable ifthey do not. All of these concerns I hope will be addressed by thepanelists.I am go<strong>in</strong>g to be ask<strong>in</strong>g the Office of Traffick<strong>in</strong>g to tell me—Iknow there was a hear<strong>in</strong>g just a day or two ago, but from my po<strong>in</strong>tof view, the Office of Traffick<strong>in</strong>g is critically important <strong>in</strong> br<strong>in</strong>g<strong>in</strong>gthe agencies together <strong>and</strong> hav<strong>in</strong>g a real clear focus <strong>and</strong> hav<strong>in</strong>gsome benchmarks. And I am not sure that has been done <strong>in</strong> anywherenear as rigorous or vigorous a fashion as I would like to see.I am go<strong>in</strong>g to be ask<strong>in</strong>g questions about the INS because itseems to me, on the basis of reports <strong>we</strong> <strong>are</strong> hear<strong>in</strong>g, that you havegot some of these women <strong>and</strong> children <strong>in</strong> detention centers. Weneed the INS to be go<strong>in</strong>g <strong>in</strong>to those detention centers to be <strong>in</strong>terview<strong>in</strong>gthese women <strong>and</strong> children <strong>and</strong> to be gett<strong>in</strong>g them out.That has not happened to the extent that it should. I underst<strong>and</strong><strong>we</strong> <strong>are</strong> only <strong>in</strong> one year, but I am impatient to see this happen onthe ground.The Health <strong>and</strong> Human Services Adm<strong>in</strong>istration. We receivedsome calls from law enforcement that <strong>are</strong> do<strong>in</strong>g their best, <strong>and</strong>they say, listen, <strong>we</strong> have got these refugees <strong>and</strong> they need specializedservices. These <strong>are</strong> victims of <strong>traffick<strong>in</strong>g</strong>, <strong>and</strong> yet <strong>we</strong> do notreally know where to get the help for them. Obviously, Health <strong>and</strong>Human Services needs to do a better job of gett<strong>in</strong>g these specializedservices to them.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00006 Fmt 6633 Sfmt 6633 80844 SFRELA1 PsN: SFRELA1
3We know that some of these traffickers <strong>are</strong> be<strong>in</strong>g prosecuted, butI do not underst<strong>and</strong>, Senator Brownback, why they <strong>are</strong> not be<strong>in</strong>gprosecuted accord<strong>in</strong>g to the new crim<strong>in</strong>al statutes that came withthis legislation. And I am go<strong>in</strong>g to be ask<strong>in</strong>g questions about that.I do not want to take up any more time. I aga<strong>in</strong> want to thankall of the panelists for be<strong>in</strong>g here. I want to thank all the rest ofyou for be<strong>in</strong>g here, <strong>and</strong> I want to say that I am privileged to bework<strong>in</strong>g with Senator Brownback.[The prep<strong>are</strong>d statement of Senator Wellstone follows:]PREPARED STATEMENT OF SENATOR PAUL D. WELLSTONEThank you all for com<strong>in</strong>g today. Just over a year ago, Congress enacted l<strong>and</strong>markhuman rights legislation to help put an end to <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> human be<strong>in</strong>gs. TheTraffick<strong>in</strong>g Victims Protection Act (TVPA) provided a comprehensive plan of attackon <strong>traffick<strong>in</strong>g</strong> from various agencies of the Federal government <strong>and</strong> the private sector.It provided for prevention programs, the protection of <strong>traffick<strong>in</strong>g</strong> victims, <strong>and</strong>the prosecution of traffickers. The purpose of today’s hear<strong>in</strong>g is to assess our effortsaga<strong>in</strong>st human <strong>traffick<strong>in</strong>g</strong> one year after passage.We have asked our witnesses to discuss the extent to which various agencies ofthe United States government have discharged the responsibilities given them bythe Act. We need to know whether they have effectively used the tools provided bythe Act, as <strong>we</strong>ll as whether new tools might be necessary. A law without vigorous<strong>and</strong> effective implementation <strong>and</strong> oversight can actually be counterproductive if itlulls us <strong>in</strong>to a false sense that <strong>we</strong> have solved a problem. We <strong>are</strong> here today to learnwhether <strong>we</strong> <strong>are</strong> do<strong>in</strong>g all that <strong>we</strong> can to end <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>. We <strong>are</strong> heretoday to learn <strong>how</strong> committed this Adm<strong>in</strong>istration truly is to solv<strong>in</strong>g the grow<strong>in</strong>gproblem of modern day slavery.I applaud the Adm<strong>in</strong>istration for the work it has done so far. The State Departmentreleased the first Traffick<strong>in</strong>g <strong>in</strong> Persons Report <strong>in</strong> July of last year. The Officeto Monitor <strong>and</strong> Combat Traffick<strong>in</strong>g <strong>in</strong> Persons was established later that October.We <strong>are</strong> now <strong>in</strong> the Adm<strong>in</strong>istrative comment period for the regulations implement<strong>in</strong>gthe new <strong>traffick<strong>in</strong>g</strong> T-visa at the Department of Justice, <strong>and</strong> the first meet<strong>in</strong>g ofthe Inter-Agency Task Force on Traffick<strong>in</strong>g was held last month. But much morerema<strong>in</strong>s to be done.I am concerned that some victims of <strong>traffick<strong>in</strong>g</strong> <strong>are</strong> not gett<strong>in</strong>g the assistance theyneed because programs may not be designed appropriately, or <strong>in</strong>ter-agency coord<strong>in</strong>ationis lack<strong>in</strong>g. I am concerned that some victims <strong>are</strong> still not recognized as <strong>traffick<strong>in</strong>g</strong>victims due to the lack of effective tra<strong>in</strong><strong>in</strong>g for law enforcement. And I amconcerned that our diplomatic message may not be gett<strong>in</strong>g through. We expect othernations to make legitimate efforts to fight <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> <strong>we</strong> will hold them accountableif they don’t. I hope all of these concerns will be addressed here today.Traffick<strong>in</strong>g <strong>in</strong> <strong>persons</strong> is one of the fastest grow<strong>in</strong>g <strong>are</strong>as of <strong>in</strong>ternational crim<strong>in</strong>alactivity, now rank<strong>in</strong>g third as the largest source of profits for organized crime beh<strong>in</strong>donly guns <strong>and</strong> drugs. We should be very clear <strong>in</strong> our underst<strong>and</strong><strong>in</strong>g of thisproblem. It is a grow<strong>in</strong>g <strong>in</strong>dustry. It affects virtually every country <strong>in</strong> the world,<strong>and</strong> it must be stopped. The United States has a moral obligation to lead this fight,<strong>and</strong> I know <strong>we</strong> will do the right th<strong>in</strong>g. I am confident there is still broad bi-partisansupport <strong>in</strong> Congress for whatever is necessary—more resources, further legislation,whatever it takes—to w<strong>in</strong> the worldwide struggle aga<strong>in</strong>st <strong>traffick<strong>in</strong>g</strong>.Senator WELLSTONE. Senator Brownback.Senator BROWNBACK. Thank you very much, Mr. Chairman. Ithas been my pleasure to be able to work with you <strong>and</strong> to hold thishear<strong>in</strong>g, that a year later <strong>we</strong> <strong>are</strong> go<strong>in</strong>g to look at the progressbe<strong>in</strong>g made under this particular bill that I th<strong>in</strong>k was one of themost significant pieces of anti-slavery legislation that has passeds<strong>in</strong>ce 1865, when it moved forward <strong>and</strong> was passed last year. We<strong>are</strong> mov<strong>in</strong>g <strong>and</strong> push<strong>in</strong>g for freedom.Our assignment <strong>in</strong> this bill that <strong>we</strong> have given to the adm<strong>in</strong>istration<strong>and</strong> others press<strong>in</strong>g forward with this is to eradicate slavery,start<strong>in</strong>g with forced prostitution. The central objective was <strong>and</strong> re-VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00007 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
4ma<strong>in</strong>s free<strong>in</strong>g victims everywhere <strong>and</strong> empo<strong>we</strong>r<strong>in</strong>g those who dothis noble work.I suppose there <strong>we</strong>re similar tensions regard<strong>in</strong>g objectives <strong>and</strong>gett<strong>in</strong>g it <strong>in</strong>itially implemented back <strong>in</strong> pre-1865 days. I th<strong>in</strong>k ofsome of the legendary figures of that time, of William Wilberforce,a parliamentarian <strong>in</strong> Engl<strong>and</strong>, or Amy Carmichael <strong>in</strong> India whofaced overwhelm<strong>in</strong>g odds at that time, who poured their lives <strong>in</strong>totheir work to end slavery, to end temple prostitution <strong>in</strong> India.I would like to th<strong>in</strong>k, Mr. Chairman, that <strong>we</strong> have <strong>in</strong> the audiencehere today some like-m<strong>in</strong>ded people with those <strong>in</strong>dividuals,heroic people who really worked a long time to try to br<strong>in</strong>g freedomto these people who <strong>are</strong> underserved, not represented <strong>in</strong> some ofthe most difficult, dire situations that today’s modern culture couldf<strong>in</strong>d. And <strong>we</strong> want to empo<strong>we</strong>r you to work <strong>and</strong> to press this onforward.There <strong>are</strong> some technical admonitions I could make, which <strong>we</strong>will hear about today, but I really am more compelled to talk aboutthe larger issues.I want to press the State Department <strong>and</strong> adm<strong>in</strong>istration to encouragethem to engage <strong>in</strong> direct advocacy to end <strong>traffick<strong>in</strong>g</strong>, go<strong>in</strong>gbeyond report<strong>in</strong>g, which is important. And I th<strong>in</strong>k your <strong>in</strong>itial reportshave been fantastic. I have stated that to Secretary Po<strong>we</strong>ll.I want to state that to Under Secretary Dobriansky, but to also say<strong>we</strong> need to move on forward past that <strong>in</strong>to advocacy—<strong>and</strong> I amsure you will talk some about that today—advocat<strong>in</strong>g directly withcountries worldwide to end this obscene practice, coord<strong>in</strong>at<strong>in</strong>gamongst countries regionally because I assure you the traffickersdo. And you know what it takes <strong>and</strong> you <strong>are</strong> work<strong>in</strong>g on that effort,<strong>and</strong> I want to encourage that to move forward on advocacy.Combat<strong>in</strong>g <strong>traffick<strong>in</strong>g</strong> is among the top human rights agendasfor this adm<strong>in</strong>istration. Truly you <strong>are</strong> cursed with a great <strong>and</strong> historictask <strong>and</strong> also blessed with that opportunity. Please fully embracethis assignment to deliberately <strong>and</strong> aggressively advocate forthe eradication of <strong>traffick<strong>in</strong>g</strong> both <strong>in</strong>ternationally <strong>and</strong> domestically.This legislation was written for you to do just that.Separately, Mr. Chairman, there will be a witness also on thethird panel today. Carol Smolenski of ECPAT is go<strong>in</strong>g to testifyabout an <strong>in</strong>sidious practice of tour operators worldwide on <strong>in</strong>ternationalsex tourism. I po<strong>in</strong>t this out because some of the operators<strong>are</strong> deliberately target<strong>in</strong>g <strong>in</strong>ternational pedophiles <strong>and</strong> other adultswho engage <strong>in</strong> this practice offer<strong>in</strong>g children with impunity.What I want us to do <strong>and</strong> look toward is the possibility of legislation<strong>in</strong> this <strong>are</strong>a to be able to prosecute those who would engage<strong>in</strong> such a horrific <strong>in</strong>ternational practice, <strong>and</strong> <strong>we</strong> will be hear<strong>in</strong>g Ms.Smolenski a little bit later on <strong>in</strong> the third panel. And I am hopefulthat <strong>we</strong> can press forward on address<strong>in</strong>g that legislatively. A numberof Senators have expressed <strong>in</strong>terest on work<strong>in</strong>g on that pieceof legislation.Mr. Chairman, I hope <strong>we</strong> can get at the problems here at thishear<strong>in</strong>g, but overall too, I want to make sure that people underst<strong>and</strong>that I am excited about what has taken place to date. I th<strong>in</strong>kthere <strong>are</strong> th<strong>in</strong>gs that <strong>we</strong> need to cont<strong>in</strong>ue to press forward <strong>and</strong>, asthe chairman said, <strong>we</strong> <strong>are</strong> impatient about it. But the steps thathave been taken I th<strong>in</strong>k have been great. We want to keep mov<strong>in</strong>gVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00008 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
5those on forward because the little girls <strong>and</strong> little boys who <strong>are</strong>be<strong>in</strong>g held <strong>in</strong> some of these situations cannot wait, <strong>and</strong> <strong>we</strong> need tobe as aggressive as <strong>we</strong> can. I know the adm<strong>in</strong>istration sh<strong>are</strong>s thatobjective.Mr. Chairman, thanks for work<strong>in</strong>g with this legislation <strong>and</strong>thank you for hold<strong>in</strong>g this hear<strong>in</strong>g.Senator WELLSTONE. Thank you, Senator Brownback.We have some statements here, one from Theresea Loar, president,Vital Voices Global Partnership, that will be <strong>in</strong>cluded <strong>in</strong> therecord, <strong>and</strong> also one from Eugene Scalia, Solicitor of Labor, U.S.Department of Labor. That will also be <strong>in</strong>cluded <strong>in</strong> the record.Senator BROWNBACK. I have a statement, Mr. Chairman, fromEquality Now to submit for the record.Senator WELLSTONE. And another one from Equality now, whichwill also be <strong>in</strong>cluded <strong>in</strong> the record.[The statements can be found beg<strong>in</strong>n<strong>in</strong>g on page **:]Senator WELLSTONE. We can actually hold the record open too foranother 2 <strong>we</strong>eks for additional statements if you want to submitthose.We <strong>are</strong> go<strong>in</strong>g to hear the first panel. Aga<strong>in</strong>, I want to ask everyone,if you can, to try to stay with<strong>in</strong> a 5-m<strong>in</strong>ute limit. Dr. PaulaDobriansky, who is Under Secretary of State for Global Affairs. Wethank you for be<strong>in</strong>g here <strong>and</strong> thank you for your leadership. Mr.Viet D<strong>in</strong>h, who is Assistant Attorney General, Office of Legal Policy,<strong>and</strong> prior to that was at Georgetown University Law Center.I could give you all much more extensive <strong>in</strong>troductions. You havegot real impressive resumes, but I th<strong>in</strong>k <strong>we</strong> want to get right tothe substance of it. Secretary Dobriansky.STATEMENT OF HON. PAULA DOBRIANSKY, UNDER SEC-RETARY OF STATE FOR GLOBAL AFFAIRS, DEPARTMENT OFSTATE, WASHINGTON, DCMs. DOBRIANSKY. Thank you, Mr. Chairman. Thank you for hold<strong>in</strong>gtoday’s hear<strong>in</strong>g. I will submit my full text for the record <strong>and</strong>make some brief comments.Senator WELLSTONE. It will be <strong>in</strong>cluded <strong>in</strong> the record.Ms. DOBRIANSKY. Thank you.It is important to review the progress <strong>we</strong> have made on <strong>monitor<strong>in</strong>g</strong><strong>and</strong> <strong>combat<strong>in</strong>g</strong> <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong> s<strong>in</strong>ce the passage of theanti-<strong>traffick<strong>in</strong>g</strong> law.The United States Government’s efforts to fight <strong>traffick<strong>in</strong>g</strong> <strong>and</strong>protect <strong>traffick<strong>in</strong>g</strong> victims have been greatly enhanced by the Traffick<strong>in</strong>gVictims Protection Act of 2000. I applaud you <strong>and</strong> your colleaguesfor your foresight <strong>in</strong> the creation of this law. It was enacteddue to your leadership, your commitment, your tireless efforts <strong>and</strong>dedication.This law has provided policymakers <strong>and</strong> prosecutors with thetools necessary to fight <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>.S<strong>in</strong>ce the law’s passage, I am pleased to report that <strong>we</strong> have releasedthe first Traffick<strong>in</strong>g <strong>in</strong> Persons report. We <strong>are</strong> work<strong>in</strong>g onthe next. We established the Traffick<strong>in</strong>g Office <strong>and</strong> convened thefirst President’s Interagency Task Force on Traffick<strong>in</strong>g.I might add that the law has also not only been an importanttool <strong>in</strong> fight<strong>in</strong>g <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>, but it has also been an <strong>in</strong>-VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00009 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
6valuable model to sh<strong>are</strong> with other countries that <strong>are</strong> committed toend<strong>in</strong>g this horrendous violation of human rights.Let me just say a few words about the report. Last July, the Secretaryof State released the first annual Traffick<strong>in</strong>g <strong>in</strong> Persons report.It was based on <strong>in</strong>formation gathered from 186 embassies <strong>and</strong>consulates, as <strong>we</strong>ll as report<strong>in</strong>g from NGOs, <strong>in</strong>ternational organizations,<strong>and</strong> the press.The report is an <strong>in</strong>valuable tool <strong>in</strong> our bilateral dialog on <strong>traffick<strong>in</strong>g</strong>.It has prompted many countries at senior levels to engagewith the United States on this issue. Significantly several countries,<strong>in</strong> fact, have asked for our advice <strong>and</strong> assistance <strong>in</strong> develop<strong>in</strong>ga plan of action to combat <strong>traffick<strong>in</strong>g</strong> as a result of the report.In addition, the Department released earlier this <strong>we</strong>ek the annualCountry Reports on Human Rights Practices, which <strong>in</strong>cludedexp<strong>and</strong>ed <strong>in</strong>formation on <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> which was called for <strong>in</strong>the act.We <strong>are</strong> now prepar<strong>in</strong>g the 2002 Traffick<strong>in</strong>g <strong>in</strong> Persons report,<strong>and</strong> <strong>in</strong> produc<strong>in</strong>g this next report, <strong>we</strong> have c<strong>are</strong>fully consideredmany suggestions that <strong>we</strong> have received from the non-governmentalcommunity, from Members of Congress, from congressionalstaff, <strong>and</strong> from others. One key <strong>are</strong>a that <strong>we</strong> have strengthened <strong>in</strong>our solicitation out to our posts is governmental corruption. Basically<strong>we</strong> have asked our posts to come <strong>in</strong> with much more specific,concrete data <strong>in</strong> this <strong>are</strong>a.Let me say a few words about the office. In October 2001, theState Department’s Office to Monitor <strong>and</strong> Combat Traffick<strong>in</strong>g wasestablished. It reports directly to me <strong>and</strong> coord<strong>in</strong>ates policy <strong>and</strong>programmatic efforts with respect to <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>. AmbassadorNancy Ely-Raphel is the Senior Advisor <strong>and</strong> Dr. LauraLederer is the Deputy Senior Advisor of the office.I am also pleased to announce today that the office will soon befully staffed with 14 permanent positions <strong>and</strong> complemented withpersonnel from other agencies, specifically HHS, DOJ, CIA, <strong>and</strong>USAID. In other words, commitments have been made <strong>and</strong> some<strong>are</strong> already <strong>in</strong> place as detailees to the office.The office focuses on three key <strong>are</strong>as: the compilation <strong>and</strong> the releaseof the Traffick<strong>in</strong>g <strong>in</strong> Persons report, the assessment <strong>and</strong> implementationof programs, <strong>and</strong> outreach not only to partner agencies,to Congress, the non-governmental community, but also outreachentails our diplomatic strategy.A few words about the task force. Last month, the Task Forceto Monitor <strong>and</strong> Combat Traffick<strong>in</strong>g <strong>in</strong> Persons was convened <strong>and</strong>chaired by the Secretary of State. I would like to thank SenatorBrownback <strong>and</strong> Mrs. Wellstone, as <strong>we</strong>ll as Representative ChrisSmith, for jo<strong>in</strong><strong>in</strong>g the first meet<strong>in</strong>g of the task force. At the taskforce, Secretary Po<strong>we</strong>ll announced the formation of a senior policyadvisory group.I convened the first meet<strong>in</strong>g of this group which is a subgroupof our Democracy PCC. It will meet regularly, <strong>and</strong> it is to providepolicy oversight <strong>and</strong> coord<strong>in</strong>ate policy <strong>and</strong> programs on an <strong>in</strong>teragencybasis.A few other words, <strong>and</strong> then I will br<strong>in</strong>g my remarks to a close.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00010 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
7The Traffick<strong>in</strong>g Office is design<strong>in</strong>g a State Department-wide<strong>in</strong>ternational program strategy to identify prevention, prosecution<strong>and</strong> protection needs <strong>in</strong> each country, <strong>and</strong> to assist governments<strong>and</strong> non-governmental <strong>and</strong> <strong>in</strong>ternational organizations to address<strong>traffick<strong>in</strong>g</strong>. We will tailor our programmatic <strong>in</strong>itiatives to identifythe opportunities for greatest improvement <strong>and</strong> the greatest needs.We will ensure that our programmatic <strong>and</strong> diplomatic strategy <strong>are</strong>complementary to ensure that <strong>we</strong> <strong>are</strong> hold<strong>in</strong>g governments accountable<strong>and</strong> encourag<strong>in</strong>g strengthened political will, while provid<strong>in</strong>gprogrammatic support where needed.I have just a m<strong>in</strong>ute more.Senator WELLSTONE. Absolutely.Ms. DOBRIANSKY. We <strong>are</strong> committed to also reach<strong>in</strong>g out to thepublic to educate them both domestically <strong>and</strong> <strong>in</strong>ternationally aboutthe issue <strong>and</strong> what the United States is do<strong>in</strong>g. At every opportunity,I have raised <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> my meet<strong>in</strong>gs with foreign governments,<strong>and</strong> I know that also many of my colleagues at the StateDepartment have.A last word about tra<strong>in</strong><strong>in</strong>g. We also have looked for new opportunitiesto educate U.S. officials about the problem so they too cancontribute to the fight aga<strong>in</strong>st <strong>traffick<strong>in</strong>g</strong>. We have spoken to newlydesignated U.S. Ambassadors, to new classes of Foreign Service officers,law enforcement officers, <strong>and</strong> others as <strong>we</strong>ll as to senior ForeignService officers who have been tak<strong>in</strong>g courses at the ForeignService Institute.In sum, <strong>we</strong> have been busy. We have made significant progress,but much rema<strong>in</strong>s to be done.Mr. Chairman <strong>and</strong> colleagues, I want to thank you aga<strong>in</strong> for yourleadership on this issue <strong>and</strong> the act. It has provided a solid frameworkfor our efforts, impetus for <strong>in</strong>creased coord<strong>in</strong>ation, <strong>and</strong> amodel which <strong>we</strong> <strong>are</strong> able to use <strong>in</strong> reach<strong>in</strong>g out to partners <strong>and</strong>partner countries.I look forward to our cont<strong>in</strong>ued partnership on this issue <strong>and</strong> toa day when <strong>we</strong> can truly say that <strong>we</strong> have successfully eradicated<strong>traffick<strong>in</strong>g</strong>.Thank you.[The prep<strong>are</strong>d statement of Under Secretary Dobriansky follows:]PREPARED STATEMENT OF HON. PAULA DOBRIANSKY, UNDER SECRETARY OF STATEFOR GLOBAL AFFAIRS, DEPARTMENT OF STATE‘‘IMPLEMENTATION OF THE TRAFFICKING VICTIMS PROTECTION ACT’’It is a pleasure to be here today to review the progress <strong>we</strong> have made on <strong>monitor<strong>in</strong>g</strong><strong>and</strong> <strong>combat<strong>in</strong>g</strong> <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>, s<strong>in</strong>ce the passage of the anti-<strong>traffick<strong>in</strong>g</strong>law, the Traffick<strong>in</strong>g Victims Protection Act of 2000.Traffick<strong>in</strong>g <strong>in</strong> <strong>persons</strong> is the new slavery of the 21st century. Both its magnitude<strong>and</strong> the <strong>in</strong>humane conditions <strong>in</strong> which its victims f<strong>in</strong>d themselves <strong>are</strong> deeply troubl<strong>in</strong>g.The egregious nature of this crime has clearly been the driv<strong>in</strong>g force for manyof you <strong>and</strong> for those of us who work on this issue.The United States Government’s efforts to fight <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> protect <strong>traffick<strong>in</strong>g</strong>victims have been greatly enhanced by the Traffick<strong>in</strong>g Victims Protection Act of2000. I applaud your foresight <strong>in</strong> the creation of this law. It was enacted due to yourtireless efforts <strong>and</strong> dedication.This law has provided policymakers <strong>and</strong> prosecutors with the tools necessary tofight <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>, a truly grave human rights concern <strong>and</strong> a grow<strong>in</strong>gtransnational crime problem. And it has given us a model to sh<strong>are</strong> with other countriesthat <strong>are</strong> also committed to end<strong>in</strong>g the horrendous violation of human rights.Let me just highlight two mechanisms upfront. The report has been a crucial <strong>in</strong>stru-VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00011 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
8ment <strong>in</strong> foster<strong>in</strong>g dialogue with other countries <strong>and</strong> heighten<strong>in</strong>g global aw<strong>are</strong>ness.Similarly, the <strong>in</strong>teragency coord<strong>in</strong>ation on policy <strong>and</strong> programs—particularly theTask Force—has strengthened the USG’s efforts as a whole.S<strong>in</strong>ce the law’s passage, I am pleased to report that <strong>we</strong> have released the firstTraffick<strong>in</strong>g <strong>in</strong> Persons Report, established the Traffick<strong>in</strong>g Office <strong>and</strong> convened thefirst President’s Interagency Task Force on Traffick<strong>in</strong>g.Annual Report on Traffick<strong>in</strong>g <strong>in</strong> PersonsLast July, the Secretary of State released the first annual Traffick<strong>in</strong>g <strong>in</strong> Personsreport. The report was based upon <strong>in</strong>formation gathered from 186 embassies <strong>and</strong>consulates, as <strong>we</strong>ll as report<strong>in</strong>g from NGOs, <strong>in</strong>ternational organizations, <strong>and</strong> thepress, regard<strong>in</strong>g the extent of <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> the efforts of governments to combatit. In compil<strong>in</strong>g the report, the Department assessed the efforts of governments ofthose countries where it was determ<strong>in</strong>ed that there <strong>we</strong>re a significant number ofvictims of severe forms of <strong>traffick<strong>in</strong>g</strong>—82 countries last year—to determ<strong>in</strong>e whether<strong>and</strong> to what degree such governments meet the m<strong>in</strong>imum st<strong>and</strong>ards for the elim<strong>in</strong>ationof <strong>traffick<strong>in</strong>g</strong> specified <strong>in</strong> the law.As expected, the report has become an <strong>in</strong>valuable tool <strong>in</strong> our bilateral dialogueson <strong>traffick<strong>in</strong>g</strong>. It has prompted many countries—at senior levels—to engage with theU.S. government on the <strong>traffick<strong>in</strong>g</strong> issue. I have met personally with a number ofsenior representatives of countries who said that the report had motivated them toexam<strong>in</strong>e <strong>and</strong> improve their efforts. Significantly, several countries even asked forour advice <strong>and</strong> assistance <strong>in</strong> develop<strong>in</strong>g a plan of action to combat <strong>traffick<strong>in</strong>g</strong>. Manyof our posts <strong>are</strong> report<strong>in</strong>g a higher degree of <strong>in</strong>terest, aw<strong>are</strong>ness, <strong>and</strong>, more importantly,action, s<strong>in</strong>ce the release of the report. This <strong>in</strong>creased <strong>in</strong>terest is <strong>in</strong>dicativeof a larger positive trend as many more countries <strong>are</strong> beg<strong>in</strong>n<strong>in</strong>g to take this issueseriously.In addition to the <strong>traffick<strong>in</strong>g</strong> report released last July, <strong>and</strong> <strong>in</strong> keep<strong>in</strong>g with theprovisions of the Traffick<strong>in</strong>g Victims <strong>and</strong> Violence Protection Act, the Departmentreleased earlier this <strong>we</strong>ek the Annual Country Reports on Human Rights Practices<strong>in</strong>cluded exp<strong>and</strong>ed <strong>in</strong>formation on <strong>traffick<strong>in</strong>g</strong>. The Bureau of Democracy, HumanRights, <strong>and</strong> Labor worked with our embassies overseas <strong>and</strong> with other offices with<strong>in</strong>the Department to <strong>in</strong>clude detailed <strong>in</strong>formation, <strong>in</strong>clud<strong>in</strong>g data on conditions for victims<strong>and</strong> efforts to provide them with protection <strong>and</strong> assistance.We <strong>are</strong> now prepar<strong>in</strong>g the 2002 Traffick<strong>in</strong>g <strong>in</strong> Persons report. In produc<strong>in</strong>g thisnext report, <strong>we</strong> have c<strong>are</strong>fully considered suggestions received <strong>in</strong> our meet<strong>in</strong>gs withNGOs, members of Congress <strong>and</strong> their staff <strong>and</strong> the <strong>in</strong>teragency work<strong>in</strong>g group. Onekey <strong>are</strong>a that <strong>we</strong> <strong>are</strong> look<strong>in</strong>g to strengthen is consideration of governmental corruption.Ambassador Ely-Raphel will provide some specific examples of the changes <strong>we</strong><strong>are</strong> mak<strong>in</strong>g <strong>in</strong> the substance <strong>and</strong> methodology of this year’s Traffick<strong>in</strong>g <strong>in</strong> PersonsReport process <strong>in</strong> the next panel. This report is an important <strong>and</strong> evolv<strong>in</strong>g document.New Traffick<strong>in</strong>g In Persons OfficeIn October 2001, the State Department’s Office to Monitor <strong>and</strong> Combat Traffick<strong>in</strong>gwas established. The office reports directly to me <strong>and</strong> coord<strong>in</strong>ates policy <strong>and</strong>programmatic efforts with respect to <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>, ensur<strong>in</strong>g that both thehuman rights <strong>and</strong> law enforcement components of this problem <strong>are</strong> adequately addressed.Ambassador Nancy Ely-Raphel is the Senior Advisor <strong>and</strong> Dr. LauraLederer is the Deputy Senior Advisor of the Office. I am pleased to announce todaythat the Office will soon be fully staffed with 14 permanent positions <strong>and</strong> complementedwith personnel from other agencies, specifically HHS, DOJ, CIA, <strong>and</strong>USAID. We already have an HHS officer on board, <strong>and</strong> expect officers from CIA,DOJ, <strong>and</strong> AID <strong>in</strong> the next month. The office will focus on three key <strong>are</strong>as: the compilation<strong>and</strong> release of the <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong> report; assessment <strong>and</strong> implementationof programs; <strong>and</strong> outreach to partner agencies, Congress, <strong>and</strong> the non-governmentalcommunity. The office structure reflects these key priorities.President’s Interagency Task Force to Monitor <strong>and</strong> Combat Traffick<strong>in</strong>g <strong>in</strong> PersonsAs envisioned by the law, last month President Bush signed an Executive Orderformally creat<strong>in</strong>g the President’s Interagency Task Force to Monitor <strong>and</strong> CombatTraffick<strong>in</strong>g <strong>in</strong> Persons, which is chaired by the Secretary of State. I would like tothank Senator Brownback <strong>and</strong> Mrs. Wellstone, as <strong>we</strong>ll as Rep. Smith, for jo<strong>in</strong><strong>in</strong>gthe first meet<strong>in</strong>g of the Task Force on February 13. At the meet<strong>in</strong>g, led by SecretaryPo<strong>we</strong>ll, six agencies <strong>we</strong>re represented—Department of Justice, Department ofLabor, Health <strong>and</strong> Human Services, the National Security Council, U.S. Agency forDevelopment, <strong>and</strong> the Central Intelligence Agency—<strong>in</strong> most cases by their pr<strong>in</strong>cipals.Task Force members highlighted current <strong>and</strong> future <strong>in</strong>itiatives <strong>and</strong> discussedthe need to enhance <strong>in</strong>teragency cooperation. In addition, Secretary Po<strong>we</strong>ll an-VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00012 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
9nounced the formation of a Senior Policy Advisory Group to address policy issuesrelated to <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong> <strong>and</strong> to ensure the implementation of the Traffick<strong>in</strong>gVictims Protection Act of 2000.I convened the first meet<strong>in</strong>g of the <strong>in</strong>teragency Senior Policy Advisory Group this<strong>we</strong>ek. This group, a subgroup of the Democracy PCC, will meet regularly to providepolicy oversight <strong>and</strong> coord<strong>in</strong>ate policy <strong>and</strong> programs. The first meet<strong>in</strong>g was very productive<strong>and</strong> provided an excellent opportunity for extensive exchange among theagencies <strong>in</strong> attendance. We identified next steps <strong>in</strong> a number of <strong>are</strong>as <strong>in</strong> which to<strong>in</strong>crease cooperation, such as <strong>in</strong>telligence shar<strong>in</strong>g, coord<strong>in</strong>ation with local <strong>and</strong> stateactors, <strong>and</strong> strengthen<strong>in</strong>g the l<strong>in</strong>k bet<strong>we</strong>en our diplomatic efforts <strong>and</strong> our law enforcementefforts domestically.Other InitiativesLet me say a few words about other <strong>in</strong>itiatives that <strong>we</strong> <strong>are</strong> undertak<strong>in</strong>g tostrengthen our effort <strong>and</strong> broaden our <strong>in</strong>formation database.Programs: In the last year, the State Department has supported approximately100 global anti-<strong>traffick<strong>in</strong>g</strong> programs or <strong>in</strong>itiatives <strong>in</strong> over 40 countries. Of thesecountries, two <strong>we</strong>re <strong>in</strong> Tier 1, 24 countries <strong>we</strong>re <strong>in</strong> Tier 2, <strong>and</strong> seven countries <strong>we</strong>re<strong>in</strong> Tier 3. There <strong>we</strong>re several countries not <strong>in</strong>cluded <strong>in</strong> the 2001 Traffick<strong>in</strong>g <strong>in</strong> Personsreport that received assistance. In these <strong>in</strong>stances these countries <strong>we</strong>re partof a regional <strong>in</strong>itiative, <strong>we</strong>re countries where <strong>we</strong> saw a potential for an <strong>in</strong>crease <strong>in</strong><strong>traffick<strong>in</strong>g</strong>, or saw an opportunity to <strong>in</strong>tegrate <strong>traffick<strong>in</strong>g</strong> concerns <strong>in</strong>to other bilateralengagement on, for example, human rights issues such as protection of womenfrom domestic violence, or alien smuggl<strong>in</strong>g. The Traffick<strong>in</strong>g Office is design<strong>in</strong>g aState-Department-wide <strong>in</strong>ternational programs strategy to identify prevention, prosecution<strong>and</strong> protection needs <strong>in</strong> each country, <strong>and</strong> to assist governments, <strong>and</strong> nongovernmental<strong>and</strong> <strong>in</strong>ternational organizations, where appropriate, to address <strong>traffick<strong>in</strong>g</strong>.We will tailor our programmatic <strong>in</strong>itiatives to identify the opportunities forgreatest improvement <strong>and</strong> the greatest needs. We will ensure that our programmatic<strong>and</strong> diplomatic strategy <strong>are</strong> complementary to ensure that <strong>we</strong> <strong>are</strong> hold<strong>in</strong>ggovernments accountable <strong>and</strong> encourag<strong>in</strong>g strengthened political will, while provid<strong>in</strong>gprogram support where needed. Certa<strong>in</strong>ly, any strategy will <strong>in</strong>clude a reviewof the laws, law enforcement, victim protection, victim shelters/safe spaces, victimservices, <strong>and</strong> repatriation <strong>and</strong> re<strong>in</strong>tegration.The Office requested from our embassies a comprehensive list<strong>in</strong>g of proposals theybelieve would be effective <strong>in</strong> strengthen<strong>in</strong>g local efforts to combat <strong>traffick<strong>in</strong>g</strong>. Theresponse has been great. The Office is now review<strong>in</strong>g anti-<strong>traffick<strong>in</strong>g</strong> proposals fromvarious embassies <strong>and</strong> will spearhead the <strong>in</strong>teragency review <strong>and</strong> coord<strong>in</strong>ation processfor these proposals.Public Outreach: While the Act, our report, <strong>and</strong> other efforts have significantlyraised aw<strong>are</strong>ness of the issue, <strong>we</strong> <strong>are</strong> committed to reach<strong>in</strong>g out to the public toeducate them about the issue <strong>and</strong> what the U.S. is do<strong>in</strong>g. At every opportunity, Ihave raised <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> my meet<strong>in</strong>gs with foreign governments. Recently I havetraveled to India, Ukra<strong>in</strong>e <strong>and</strong> South Korea where I took the opportunity to raise<strong>traffick<strong>in</strong>g</strong> at the highest levels. Amb. Ely-Raphel will outl<strong>in</strong>e the extent of the audiences<strong>we</strong> have been reach<strong>in</strong>g.Tra<strong>in</strong><strong>in</strong>gWe <strong>are</strong> look<strong>in</strong>g for new opportunities to educate U.S. officials about the problemso they too can contribute to the fight aga<strong>in</strong>st <strong>traffick<strong>in</strong>g</strong>. We have spoken to thenewly-designated U.S. Ambassadors, new classes of foreign service officers, seniorforeign service officers tak<strong>in</strong>g courses at the Foreign Service <strong>in</strong>stitute, law enforcementofficers, <strong>and</strong> various other officials to educate them about the problem <strong>and</strong>look at ways that they—through their particular work—can fight this scourge.Clos<strong>in</strong>gIn sum, <strong>we</strong>’ve been busy; <strong>we</strong> have made significant strides. But much rema<strong>in</strong>s tobe done.Mr. Chairman <strong>and</strong> colleagues, I want to thank you for your leadership on thisissue <strong>and</strong> the Act, which has provided a solid framework for our efforts, an impetusfor <strong>in</strong>creased coord<strong>in</strong>ation, <strong>and</strong> a model as <strong>we</strong> reach out to our partner countries.I look forward to cont<strong>in</strong>ued partnership on this issue, <strong>and</strong> to a day when <strong>we</strong> cansay that <strong>we</strong> have successfully eradicated <strong>traffick<strong>in</strong>g</strong>. Until that day, <strong>we</strong> will cont<strong>in</strong>ueto work <strong>in</strong> close partnership with you, our allies, the NGO community, <strong>and</strong> thosecommitted to end<strong>in</strong>g this unacceptable practice.Thank you for this opportunity. I <strong>we</strong>lcome your comments or questions.Senator WELLSTONE. Thank you very much.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00013 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
10Mr. D<strong>in</strong>h.STATEMENT OF VIET D. DINH, ASSISTANT ATTORNEY GEN-ERAL, OFFICE OF LEGAL POLICY, DEPARTMENT OF JUS-TICE, WASHINGTON, DCMr. DINH. Thank you very much, Mr. Chairman, Senator. Withyour permission, I will also only make a brief statement <strong>and</strong> submitmy full statement for the record.I am here to assure you that Attorney General Ashcroft—who, asyou know, supported <strong>and</strong> voted under your leadership—for theTraffick<strong>in</strong>g Victims Protection Act when he was a Senator—is asimpatient as you <strong>are</strong> for its full implementation, <strong>and</strong> he has madeit a high priority for the Department of Justice to implement itsprovisions.I am particularly pleased that you have <strong>in</strong>vited Ms. Hae JungCho of the Coalition to Abolish Slavery & Traffick<strong>in</strong>g. I had the opportunityto meet Ms. Cho, along with the Attorney General, when<strong>we</strong> both traveled to Los Angeles <strong>in</strong> July of last year, when the AttorneyGeneral met with a young boy named Phanupong Khaisir,known as Got, a Thai boy who was used as a prop <strong>in</strong> an <strong>in</strong>ternationalhuman <strong>traffick<strong>in</strong>g</strong> scheme. At that time, after that meet<strong>in</strong>g,the Attorney General personally granted Got humanitarian parole<strong>and</strong> ordered the INS to accept his application for a T-visa nonimmigrantstatus. The Attorney General’s personal attention to thecase reflects the high priority that he <strong>and</strong> the Department place onimplement<strong>in</strong>g the act.I will refer specifically to the Department’s activities <strong>in</strong> these twoma<strong>in</strong> <strong>are</strong>as: first, the prosecution of traffickers, <strong>and</strong> second, theprotection of <strong>traffick<strong>in</strong>g</strong> victims. Our efforts to combat human <strong>traffick<strong>in</strong>g</strong>fall <strong>in</strong>to three ma<strong>in</strong> categories: prosecution of traffickers,outreach, <strong>and</strong> coord<strong>in</strong>ation.First, to improve the Department’s prosecution effort, the AttorneyGeneral issued a guidance to all U.S. attorneys’ offices concern<strong>in</strong>gFederal prosecution under the act. The guidance details theimportant new law enforcement tools that you have given us underthe act that remove past barriers to <strong>in</strong>vestigation <strong>and</strong> prosecutionof <strong>traffick<strong>in</strong>g</strong> or servitude activities. And this is not an emptypromise or an empty guidance. The Crim<strong>in</strong>al Section of the CivilRights Division will add 12 new positions to its exist<strong>in</strong>g staff toprosecute human <strong>traffick<strong>in</strong>g</strong> cases.This early emphasis has already brought some concrete successes,<strong>and</strong> with your permission, I will highlight two cases broughtjust this past year.In August of 2001, a Federal gr<strong>and</strong> jury returned a 22-count <strong>in</strong>dictmentcharg<strong>in</strong>g three defendants with violation of numerousFederal statutes, <strong>in</strong>clud<strong>in</strong>g <strong>in</strong>voluntary servitude. Two others pledguilty to conspiracy <strong>and</strong> <strong>are</strong> await<strong>in</strong>g sentenc<strong>in</strong>g. The defendantshere allegedly held nearly 250 Vietnamese <strong>and</strong> Ch<strong>in</strong>ese workers <strong>in</strong><strong>in</strong>voluntary servitude for over 2 years <strong>in</strong> American Samoa, <strong>and</strong>thanks to the effort of you, thanks to the effort of RepresentativeChris Smith <strong>and</strong> others, the case was brought to our attention, <strong>and</strong>the prosecution is cont<strong>in</strong>u<strong>in</strong>g apace. Approximately 180 of the victimsrema<strong>in</strong> <strong>in</strong> the United States <strong>and</strong> <strong>are</strong> help<strong>in</strong>g law enforcementto prosecute this effort. Trial is scheduled for April of this year.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00014 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
11In March of 2001, a Berkeley, California multi-millionaire pledguilty to us<strong>in</strong>g beat<strong>in</strong>gs <strong>and</strong> threats to hold girls captive whom hehad brought here from India to work <strong>in</strong> his real estate bus<strong>in</strong>ess.The victims <strong>we</strong>re predom<strong>in</strong>antly from families of lo<strong>we</strong>r castes <strong>and</strong><strong>we</strong>re allegedly subjected to sexual servitude while they <strong>we</strong>re here.The defendant was sentenced to 97 months <strong>in</strong>carceration <strong>and</strong> wasordered to pay $2 million <strong>in</strong> restitution to four of his victims.Human <strong>traffick<strong>in</strong>g</strong> cases <strong>are</strong> labor-<strong>in</strong>tensive <strong>and</strong> time-consum<strong>in</strong>g,often <strong>in</strong>volv<strong>in</strong>g many victims <strong>and</strong> requir<strong>in</strong>g the full-time <strong>in</strong>volvementof multiple attorneys <strong>and</strong> <strong>in</strong>vestigators. Nevertheless, the Departmenthas prosecuted 34 defendants <strong>in</strong> fiscal year 2001, fourtimes as many as <strong>in</strong> the year before.In addition, the Civil Rights Division has opened <strong>in</strong>vestigation<strong>in</strong>to 64 allegations of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> 2001. As of today, there <strong>are</strong> 92<strong>in</strong>vestigations pend<strong>in</strong>g, which represents a 20 percent <strong>in</strong>crease overthe previous year.Second, <strong>in</strong> addition to the Department’s prosecutorial efforts, theAttorney General has also enhanced the Department’s outreach efforts.He has created a community outreach program to work withlocal community groups, victims’ rights organizations, immigrantsrights’ organizations, shelters, <strong>and</strong> other <strong>in</strong>terested groups. Thisoutreach effort is staffed full-time <strong>and</strong> has reached out to hundredsof organizations <strong>in</strong> the past year alone.The Department cont<strong>in</strong>ues to hold roundtables with non-governmentalorganizations <strong>and</strong> representatives of state <strong>and</strong> local law enforcementto ensure that <strong>we</strong> all work together to combat <strong>traffick<strong>in</strong>g</strong>.To assist this outreach effort, the Department of Justice <strong>and</strong> theDepartments of Labor, Health <strong>and</strong> Human Services, <strong>and</strong> Statehave jo<strong>in</strong>tly developed two brochures <strong>in</strong> <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>. Thefirst is designed for Federal law enforcement personnel to h<strong>and</strong> outto victims whom they encounter dur<strong>in</strong>g the course of their <strong>in</strong>vestigation<strong>and</strong> their activities. The second, also produced <strong>in</strong> collaborationwith the Departments of Labor, State, <strong>and</strong> Health <strong>and</strong> HumanServices, provides <strong>in</strong>formation to NGOs about the services availableat the governmental level to help them <strong>in</strong> their importantwork. All of these brochures will be distributed widely to ensurethat they reach their <strong>in</strong>tended audiences.We also have coord<strong>in</strong>ated, both on an <strong>in</strong>tra-agency basis <strong>and</strong> onan <strong>in</strong>teragency basis, as Under Secretary Dobriansky has highlighted.All of these efforts require coord<strong>in</strong>ated team work <strong>and</strong> theAttorney General has ordered a number of tra<strong>in</strong><strong>in</strong>g <strong>and</strong> coord<strong>in</strong>ationprograms to ensure that our efforts <strong>are</strong> effective <strong>and</strong> humane.But prosecut<strong>in</strong>g traffickers is only half of the picture. Equallyimportant <strong>are</strong> the Department’s efforts to protect <strong>and</strong> assist thevictims of <strong>traffick<strong>in</strong>g</strong>. Mr. Chairman, as you noted, earlier this yearthe Attorney General issued the f<strong>in</strong>al <strong>in</strong>terim T-visa regulationswhich <strong>we</strong>nt <strong>in</strong>to effect on March 4 of this year. Comments <strong>are</strong> stillcont<strong>in</strong>u<strong>in</strong>g, but because of the significant need for the implementationof this act <strong>and</strong> for this visa, he issued the regulation on an <strong>in</strong>terimbasis so victims can get the T-visa status as of now.Second, <strong>in</strong> July of last year, the Departments of Justice <strong>and</strong>State together issued regulations to implement section 107(c) of theact, which gives victims the ability to have cont<strong>in</strong>ued presence hereVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00015 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
12<strong>in</strong> the United States while <strong>we</strong> prosecute the cases <strong>and</strong> while <strong>we</strong> <strong>in</strong>vestigatetheir compla<strong>in</strong>ts.Third, under section 107(b), victims of severe forms of <strong>traffick<strong>in</strong>g</strong><strong>are</strong> eligible for many federally funded assistance programs, to thesame extent as aliens admitted as refugees under section 207 of theINA, <strong>and</strong> <strong>we</strong> <strong>are</strong> work<strong>in</strong>g very closely on a daily basis, as a matterof fact, with our colleagues <strong>in</strong> the Office of Refugee Resettlementat HHS <strong>in</strong> order to implement this provision.F<strong>in</strong>ally, last but certa<strong>in</strong>ly not least, as you know, the CJS appropriationsact for 2002 provides $10 million to the Department ofJustice for a grant program established under the act. The AttorneyGeneral may use these funds <strong>in</strong> order to develop, exp<strong>and</strong>, <strong>and</strong>strengthen victim service programs for victims of <strong>traffick<strong>in</strong>g</strong>through grant mak<strong>in</strong>g programs. The Office of Victims of Crime,which is charged with manag<strong>in</strong>g this grant program, is currentlywork<strong>in</strong>g with an <strong>in</strong>teragency task force to f<strong>in</strong>alize the f<strong>in</strong>al proposalsfor this development.In conclusion, I would only stress that <strong>we</strong> <strong>are</strong> as impatient asyou <strong>are</strong> to see that the act is fully implemented <strong>and</strong> to takeproactive steps to end this modern day form of slavery, as the Senatornoted. Thank you very much.[The prep<strong>are</strong>d statement of Mr. D<strong>in</strong>h follows:]PREPARED STATEMENT OF VIET D. DINH, ASSISTANT ATTORNEY GENERAL, OFFICE OFLEGAL POLICY, DEPARTMENT OF JUSTICEINTRODUCTIONMr. Chairman <strong>and</strong> members of the Subcommittee, thank you for the opportunityto appear before you today to present testimony concern<strong>in</strong>g the implementation ofthe Victims of Traffick<strong>in</strong>g <strong>and</strong> Violence Protection Act of 2000 (VTVPA). The Departmentof Justice is grateful to Congress for pass<strong>in</strong>g this vital piece of legislation.The VTVPA creates new tools that enhance the Department’s ability to prosecutetraffickers, <strong>and</strong> it allows us to assist <strong>traffick<strong>in</strong>g</strong> victims <strong>in</strong> ways not possible beforepassage of the VTVPA <strong>in</strong> October 2000.I am particularly pleased that Hae Jung Cho of the Coalition to Abolish Slavery& Traffick<strong>in</strong>g (CAST) has been <strong>in</strong>vited to testify as part of the Subcommittee’s thirdpanel of witnesses. As the Subcommittee is aw<strong>are</strong>, CAST, a Los Angeles-based organizationfocus<strong>in</strong>g exclusively on victims of <strong>traffick<strong>in</strong>g</strong>, has received fund<strong>in</strong>g from theDepartment of Justice’s Office for Victims of Crime (OVC) s<strong>in</strong>ce 1999. I was fortunateto meet Ms. Cho when I traveled with Attorney General Ashcroft to Los Angeles<strong>in</strong> July where he met <strong>and</strong> granted humanitarian parole to Phanupong Khaisri,known as Got, a child who had arrived at Los Angeles International Airport as aprop <strong>in</strong> an <strong>in</strong>ternational <strong>traffick<strong>in</strong>g</strong> scheme.The Department of Justice cont<strong>in</strong>ues to fight the battle aga<strong>in</strong>st <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>—aform of modern day slavery—that persistently victimizes helpless women<strong>and</strong> children. Victims <strong>are</strong> often lured with false promises of good jobs <strong>and</strong> betterlives, <strong>and</strong> then forced to work under brutal <strong>and</strong> <strong>in</strong>human conditions. While many<strong>traffick<strong>in</strong>g</strong> victims <strong>are</strong> forced to work <strong>in</strong> the sex <strong>in</strong>dustry, <strong>traffick<strong>in</strong>g</strong> also takes place<strong>in</strong> labor sett<strong>in</strong>gs <strong>in</strong>volv<strong>in</strong>g domestic servitude, prison-like factories, <strong>and</strong> migrant agriculturalwork. Under the VTVPA, <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong> <strong>in</strong>cludes the recruitmentor transportation of <strong>persons</strong> through force, fraud or coercion. The VTVPA facilitatesefforts on three fronts <strong>in</strong> the battle aga<strong>in</strong>st <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>: provid<strong>in</strong>g protection<strong>and</strong> assistance to victims, prosecut<strong>in</strong>g offenders, <strong>and</strong> prevent<strong>in</strong>g human <strong>traffick<strong>in</strong>g</strong>by work<strong>in</strong>g with authorities <strong>in</strong> the victims’ home countries. My remarks willfocus on the <strong>are</strong>as <strong>in</strong> which the Department of Justice is most directly <strong>in</strong>volved—the prosecution of traffickers <strong>and</strong> the protection <strong>and</strong> assistance of victims <strong>in</strong> theUnited States.The fight aga<strong>in</strong>st human <strong>traffick<strong>in</strong>g</strong>—a top priority of the Justice Department—was the focus of one of the Attorney General’s first publicly-announced policy <strong>in</strong>itiativesafter tak<strong>in</strong>g office. In March 2001, the Attorney General set forth new stepsto address <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>, <strong>and</strong> <strong>in</strong> July 2001 <strong>and</strong> January 2002, he announcedVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00016 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
14of the victims rema<strong>in</strong> <strong>in</strong> the United States <strong>and</strong> <strong>are</strong> help<strong>in</strong>g law enforcement.Trial is scheduled for April 2002 (United States v. Kil Soo Lee)• In August 2001, a federal gr<strong>and</strong> jury <strong>in</strong> El Paso, Texas returned a six-count <strong>in</strong>dictmentcharg<strong>in</strong>g two defendants with recruit<strong>in</strong>g women from Uzbekistan <strong>in</strong>tothe United States under false pretenses, then forc<strong>in</strong>g them to work <strong>in</strong> stripclubs <strong>and</strong> bars <strong>in</strong> order to pay back an alleged $300,000 smuggl<strong>in</strong>g fee. We allegethat the victims’ passports <strong>we</strong>re taken away, that they <strong>we</strong>re required towork seven days a <strong>we</strong>ek, <strong>and</strong> that they <strong>we</strong>re told that their families <strong>in</strong>Uzbekistan would be harmed if they did not comply with the defendants’ dem<strong>and</strong>s.(United States v. Gasanov)• In August, May, <strong>and</strong> March 2001, three defendants pleaded guilty to round<strong>in</strong>gup <strong>and</strong> enslav<strong>in</strong>g homeless <strong>and</strong> drug-addicted African-American men <strong>in</strong> FortPierce, Florida, <strong>and</strong> forc<strong>in</strong>g them to pick oranges aga<strong>in</strong>st their will by us<strong>in</strong>gcrack-coca<strong>in</strong>e, threats <strong>and</strong> violence. The two primary defendants <strong>we</strong>re subsequentlysentenced to prison terms of 55 <strong>and</strong> 48 months. (United States v. Lee)• In June 2001, three men pleaded guilty <strong>in</strong> federal district court to br<strong>in</strong>g<strong>in</strong>g twosixteen-year-old Russian giris to Anchorage, Alaska to dance nude <strong>in</strong> a stripclub. The two ma<strong>in</strong> defendants <strong>we</strong>re sentenced <strong>in</strong> August <strong>and</strong> September to 46<strong>and</strong> 30 months <strong>in</strong>carceration. (United States v. Virchenko)• In March 2001, a Berkeley, California multimillionaire pleaded guilty to us<strong>in</strong>gbeat<strong>in</strong>gs <strong>and</strong> threats to hold girls captive whom he had brought <strong>in</strong>to the UnitedStates from India to work <strong>in</strong> his real estate bus<strong>in</strong>ess. The victims <strong>we</strong>re predom<strong>in</strong>antlyfrom families of ‘‘lo<strong>we</strong>r’’ castes <strong>and</strong> <strong>we</strong>re brought here by way of fraudulentemployment offers or sham marriages. The defendant was sentenced to 97months <strong>in</strong>carceration <strong>and</strong> was ordered to pay $2 million <strong>in</strong> restitution to fourof his victims. (United States v. Reddy)As the facts of these cases suggest, human <strong>traffick<strong>in</strong>g</strong> cases <strong>are</strong> labor-<strong>in</strong>tensive<strong>and</strong> time-consum<strong>in</strong>g matters, often <strong>in</strong>volv<strong>in</strong>g many victims <strong>and</strong> requir<strong>in</strong>g the fulltime<strong>in</strong>volvement of multiple attorneys <strong>and</strong> <strong>in</strong>vestigators. Nevertheless, the Departmentof Justice prosecuted 34 defendants <strong>in</strong> FY 2001, four times as many as <strong>in</strong> theyear before. In addition, the Civil Rights Division opened <strong>in</strong>vestigations <strong>in</strong> 64 allegationsof <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> FY 2001. As of today, there <strong>we</strong>re 92 <strong>in</strong>vestigations pend<strong>in</strong>g,which represents a 20 percent <strong>in</strong>crease <strong>in</strong> the number of pend<strong>in</strong>g <strong>in</strong>vestigations <strong>we</strong>had a year earlier <strong>and</strong> a three-fold <strong>in</strong>crease s<strong>in</strong>ce establish<strong>in</strong>g our Traffick<strong>in</strong>g <strong>in</strong>Persons <strong>and</strong> Worker Exploitation Task Force toIl-free hotl<strong>in</strong>e <strong>in</strong> February 2000.S<strong>in</strong>ce the new statute was only recently passed <strong>and</strong> its crim<strong>in</strong>al law provisions donot apply retroactively, only three of the Department’s recent <strong>in</strong>dictments <strong>in</strong>cludedcharges under the new crim<strong>in</strong>al statutes. Many of our 92 <strong>in</strong>vestigations currentlyunderway <strong>in</strong>clude allegations that may lead to <strong>in</strong>dictments under the VTVPA, <strong>how</strong>ever.OutreachTo enhance the Department’s outreach efforts, the Attorney General announced<strong>in</strong> March of 2001 that there would be permanent fund<strong>in</strong>g of our Traffick<strong>in</strong>g <strong>in</strong> Persons<strong>and</strong> Worker Exploitation Task Force toll-free hotl<strong>in</strong>e (1-888-428-7581). He alsoannounced the creation of a community outreach program to work with local communitygroups, victims’ rights organizations, immigrants’ rights organizations, shelters,<strong>and</strong> other <strong>in</strong>terested groups.The Department plans to cont<strong>in</strong>ue or <strong>in</strong>itiate several outreach activities dur<strong>in</strong>g2002.First, various components <strong>in</strong> the Department will release <strong>in</strong>teragency <strong>traffick<strong>in</strong>g</strong><strong>in</strong> <strong>persons</strong> brochures. The Department has developed two brochures on <strong>traffick<strong>in</strong>g</strong><strong>in</strong> <strong>persons</strong>: The first brochure is designed for federal law enforcement personnel toh<strong>and</strong> out to <strong>traffick<strong>in</strong>g</strong> victims they encounter dur<strong>in</strong>g the course of their <strong>in</strong>vestigations<strong>and</strong> prosecutions. The Executive Office for United States Attorneys, the FBI,<strong>and</strong> INS will send the brochure to their agents <strong>and</strong> victim specialists <strong>in</strong> the field.Based on research about <strong>traffick<strong>in</strong>g</strong> victims found <strong>in</strong> this country, this brochure isdesigned to provide <strong>in</strong>formation to victims about their rights <strong>and</strong> available services<strong>and</strong> to give them specific contact <strong>in</strong>formation for the Department of Justice or Departmentof State law enforcement agency work<strong>in</strong>g with them. We anticipate translat<strong>in</strong>gthe brochure <strong>in</strong>to Spanish, Ch<strong>in</strong>ese, Vietnamese, Thai, <strong>and</strong> Russian. Thesefive languages <strong>are</strong> among the most common languages spoken by <strong>traffick<strong>in</strong>g</strong> victims<strong>in</strong> the United States.The second brochure is be<strong>in</strong>g published by the Department of Justice <strong>in</strong> collaborationwith the Departments of Labor, State, <strong>and</strong> Health <strong>and</strong> Human Services (HHS).It is designed to provide <strong>in</strong>formation about federal activities on human <strong>traffick<strong>in</strong>g</strong>for non-governmental organizations (NGOs) that <strong>are</strong> likely to encounter <strong>traffick<strong>in</strong>g</strong>VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00018 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
15victims. The Civil Rights Division plans to send this brochure to the 1,500 organizations<strong>and</strong> service providers <strong>in</strong> its <strong>traffick<strong>in</strong>g</strong> database; post the brochure on the Traffick<strong>in</strong>g<strong>in</strong> Persons <strong>and</strong> Worker Exploitation Task Force <strong>we</strong>bsite (other componentswith<strong>in</strong> Justice will post it on their <strong>we</strong>bsites as <strong>we</strong>ll); provide the brochures to theOffice of Special Counsel for Immigration-Related Unfair Employment Practicesgrantees (<strong>in</strong>clud<strong>in</strong>g faith- <strong>and</strong> community-based organizations), which conduct publiceducation programs for workers, employers, <strong>and</strong> immigration service providersabout immigration-related job discrim<strong>in</strong>ation; <strong>and</strong> use the brochure <strong>in</strong> outreachpresentations before appropriate audiences. The Department’s Violence Aga<strong>in</strong>stWomen Office (VAWO) plans to send the brochure for NGOs to the National DomesticViolence Hotl<strong>in</strong>e, the National Resource Center on Domestic Violence (which collaborateswith 1,800 shelters nationwide), STOP Violence Aga<strong>in</strong>st Women FormulaGrant Program state adm<strong>in</strong>istrators, <strong>and</strong> state <strong>and</strong> tribal domestic violence <strong>and</strong> sexualassault coalitions.Second, the Department will cont<strong>in</strong>ue to hold roundtables with NGOs <strong>and</strong> law enforcementgroups. In January 2002, the Department held a roundtable meet<strong>in</strong>g withapproximately 35 NGOs to discuss the ma<strong>in</strong> features of the T nonimmigrant statusregulation, <strong>and</strong> to <strong>in</strong>form them that the T nonimmigrant visa was available for victimsof severe forms of <strong>traffick<strong>in</strong>g</strong>. The Department <strong>in</strong>tends to hold future meet<strong>in</strong>gswith the NGOs, perhaps <strong>in</strong> smaller groups, to provide an overview of the Department’sefforts to combat <strong>and</strong> monitor <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>. The Department is alsoplann<strong>in</strong>g to meet with national <strong>and</strong> local law enforcement groups to present the<strong>traffick<strong>in</strong>g</strong> brochures, <strong>and</strong> to discuss collaborations bet<strong>we</strong>en the Department of Justice<strong>and</strong> national <strong>and</strong> local law enforcement groups to combat <strong>traffick<strong>in</strong>g</strong>.Third, the Department plans to cont<strong>in</strong>ue <strong>and</strong> exp<strong>and</strong> its public presentations on<strong>traffick<strong>in</strong>g</strong> with a wide range of audiences, <strong>in</strong>clud<strong>in</strong>g the annual meet<strong>in</strong>gs of law enforcementgroups, victim service organizations, immigrant <strong>and</strong> refugee advocacygroups, public health professionals, <strong>and</strong> others. This work frequently <strong>in</strong>volves participat<strong>in</strong>g<strong>in</strong> community-level meet<strong>in</strong>gs <strong>in</strong> places around the country. The Departmentis also provid<strong>in</strong>g <strong>in</strong>formation on the Department’s anti-<strong>traffick<strong>in</strong>g</strong> efforts tosuch groups for dissem<strong>in</strong>ation to their networks through newsletters <strong>and</strong> other publications.Two specific <strong>are</strong>as of Department activity <strong>in</strong> this <strong>are</strong>a <strong>are</strong> as follows:• First, the Department cont<strong>in</strong>ues to provide tra<strong>in</strong><strong>in</strong>g <strong>and</strong> assistance to VAWOgrantees. The technical assistance providers for each of the VAWO grant programsconduct several ‘‘technical assistance <strong>in</strong>stitutes’’ annually; these <strong>in</strong>stitutesprovide VAWO grantees <strong>and</strong> subgrantees with an opportunity to receivetra<strong>in</strong><strong>in</strong>g <strong>and</strong> support. Throughout FY 2002, VAWO plans to use these <strong>in</strong>stitutesas a vehicle to provide <strong>in</strong>formation to its grantees about the new federal <strong>traffick<strong>in</strong>g</strong>law <strong>and</strong> about resources for victims.• Second, through the Child Exploitation <strong>and</strong> Obscenity Section of the Crim<strong>in</strong>alDivision (CEOS), the Department will collaborate with police departments <strong>and</strong>federal law enforcement to provide tra<strong>in</strong><strong>in</strong>g on the <strong>traffick<strong>in</strong>g</strong> of Americanyouth for exploitation. For <strong>in</strong>stance, CEOS will offer programs through the DallasChildren’s Advocacy Center <strong>and</strong> Police Department’s annual program <strong>and</strong>the Children’s National Advocacy Center program <strong>in</strong> Huntsville, Alabama.Coord<strong>in</strong>ationThe Attorney General stated as a third component <strong>in</strong> his March 2001 announcementthat the Department would <strong>in</strong>crease coord<strong>in</strong>ation among its offices <strong>in</strong> orderto <strong>in</strong>vestigate <strong>and</strong> prosecute human <strong>traffick<strong>in</strong>g</strong> cases more effectively. He directedboth the FBI <strong>and</strong> the INS to work with the Civil Rights Division to explore waysto identify victims of <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> to refer these cases to the Division for prosecution.The FBI <strong>and</strong> INS play critical leadership roles <strong>in</strong> identify<strong>in</strong>g victims <strong>and</strong> <strong>in</strong>vestigat<strong>in</strong>gthese crimes.The Department has begun, <strong>and</strong> will cont<strong>in</strong>ue, to implement the Attorney General’sm<strong>and</strong>ate for <strong>in</strong>creased coord<strong>in</strong>ation by tra<strong>in</strong><strong>in</strong>g federal prosecutors <strong>and</strong> la<strong>we</strong>nforcement. The Department’s cont<strong>in</strong>u<strong>in</strong>g tra<strong>in</strong><strong>in</strong>g activities <strong>in</strong>clude: tra<strong>in</strong><strong>in</strong>g federalprosecutors <strong>and</strong> agents at the Justice Department’s National Advocacy Center(NAC) <strong>in</strong> South Carol<strong>in</strong>a; tra<strong>in</strong><strong>in</strong>g FBI agents <strong>and</strong> civil rights supervisors at theFBI facility at Quantico; tra<strong>in</strong><strong>in</strong>g federal victim-witness coord<strong>in</strong>ators at the NAC;<strong>and</strong> tra<strong>in</strong><strong>in</strong>g through the Justice Television Network (JTN), a satellite televisionnetwork broadcast to U.S. Attorney’s offices <strong>and</strong> other components of the Departmentof Justice. The Department is plann<strong>in</strong>g another tra<strong>in</strong><strong>in</strong>g course for federalprosecutors <strong>and</strong> agents <strong>in</strong> October 2002.The Department has also begun, <strong>and</strong> will cont<strong>in</strong>ue, tra<strong>in</strong><strong>in</strong>g INS personnel regard<strong>in</strong>g<strong>traffick<strong>in</strong>g</strong> issues. In January 2002, the INS conducted tra<strong>in</strong><strong>in</strong>g at itsVermont Service Center on the adjudication of T nonimmigrant status applications.The program <strong>in</strong>cluded substantive education about the dynamics of <strong>traffick<strong>in</strong>g</strong>, iden-VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00019 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
16tify<strong>in</strong>g <strong>traffick<strong>in</strong>g</strong>, <strong>and</strong> the statutory <strong>and</strong> regulatory eligibility for T status. INS hasalso produced a tra<strong>in</strong><strong>in</strong>g video entitled ‘‘Stopp<strong>in</strong>g Traffick,’’ which began air<strong>in</strong>g onINS TV this <strong>we</strong>ek, <strong>and</strong> which is be<strong>in</strong>g distributed for view<strong>in</strong>g <strong>in</strong> all INS Districts<strong>and</strong> Sectors. INS will also tra<strong>in</strong> new Border Patrol agents, district counsels, newattomeys <strong>and</strong> advanced attorneys, <strong>and</strong> asylum officers. INS’s Office of InternationalAffairs is also creat<strong>in</strong>g a tra<strong>in</strong><strong>in</strong>g film on ‘‘Traffick<strong>in</strong>g of Women <strong>and</strong> Children’’ <strong>in</strong>coord<strong>in</strong>ation with the INS Tra<strong>in</strong><strong>in</strong>g Academy. INS through its Internet <strong>we</strong>bsite(http://www.<strong>in</strong>s.usdoj.gov/graphics/la<strong>we</strong>nfor/<strong>in</strong>teriorenf/antitraf.htm) provides employees<strong>and</strong> the public with <strong>in</strong>formation, forms, <strong>and</strong> procedural guidance related tothe provisions of the VTVPA.In addition to these <strong>in</strong>tra-agency efforts, the Department is also actively pursu<strong>in</strong>g<strong>in</strong>ter-agency coord<strong>in</strong>ation on two fronts.First, the Department of Justice has worked with the Department of State to f<strong>in</strong>alizethe creation of an <strong>in</strong>telligence-shar<strong>in</strong>g center: the Migrant Smuggl<strong>in</strong>g <strong>and</strong>Traffick<strong>in</strong>g <strong>in</strong> Persons Coord<strong>in</strong>ation Center, which will be <strong>in</strong> the Justice Department’sCivil Rights Division, will work with the State Department, Central IntelligenceAgency, the National Security Agency, the Coast Guard, the INS, the FBI,<strong>and</strong> others to sh<strong>are</strong> <strong>in</strong>telligence <strong>in</strong>formation about <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong> <strong>and</strong> aliensmuggl<strong>in</strong>g activity.Second, the Department of Justice will cont<strong>in</strong>ue its leadership <strong>and</strong> participation<strong>in</strong> the Traffick<strong>in</strong>g <strong>in</strong> Persons <strong>and</strong> Worker Exploitation Task Force. This <strong>in</strong>teragencygroup helps coord<strong>in</strong>ate the <strong>in</strong>vestigation, prosecution, <strong>and</strong> protection of victims of<strong>traffick<strong>in</strong>g</strong> <strong>and</strong> other exploitive work practices. The Task Force is co-chaired by theAssistant Attorney General for Civil Rights <strong>and</strong> the Solicitor of Labor. Other participat<strong>in</strong>gDepartment of Justice components <strong>in</strong>clude the Crim<strong>in</strong>al Division, the FBI,the INS, the Executive Office for U.S. Attorneys, the Office of Legal Policy, the Officefor Victims of Crime, <strong>and</strong> the Violence Aga<strong>in</strong>st Women Office. Participat<strong>in</strong>g Departmentof Labor components <strong>in</strong>clude the Office of the Solicitor, the Wage <strong>and</strong>Hour Division, <strong>and</strong> the Women’s Bureau. Other federal partners <strong>in</strong>clude the U.S.Departments of State, Agriculture, <strong>and</strong> Health <strong>and</strong> Human Services; the Equal EmploymentOpportunity Commission; <strong>and</strong> the National Labor Relations Board. In addition,the Task Force has created fifteen regional task forces, each of which haspo<strong>in</strong>ts of contacts from local offices of federal agencies. In 2002, the Department willdevote particular attention to strengthen<strong>in</strong>g the regional task forces.PROTECTION AND ASSISTANCE TO VICTIMS OF TRAFFICKINGIssuance of the T Nonimmigrant Status RegulationSection 107(e) of the VTVPA created a new nonimmigrant status (so-called ‘‘T’’visas) for eligible victims of severe forms of <strong>traffick<strong>in</strong>g</strong>. The Attorney General hassigned an <strong>in</strong>terim T non-immigrant status regulation, which became effective as ofMarch 4, 2002. The <strong>in</strong>terim f<strong>in</strong>al regulation addresses the essential elements thatmust be demonstrated for classification as a T nonimmigrant alien, the proceduresfor applicants to follow <strong>in</strong> apply<strong>in</strong>g for nonimmigrant status, <strong>and</strong> evidentiary guidanceto assist <strong>in</strong> the application process. Five thous<strong>and</strong> T status classifications willbe available annually to pr<strong>in</strong>cipals. See 67 Fed. Reg. 4783 (January 31, 2002).Issuance of the 107(c) RegulationIn July 2001, the Departments of Justice <strong>and</strong> State issued a regulation implement<strong>in</strong>gsection 107(c) of the VTVPA, which provides authority for the INS to arrangefor ‘‘cont<strong>in</strong>ued presence’’ to allow victims of <strong>traffick<strong>in</strong>g</strong> to rema<strong>in</strong> <strong>in</strong> theUnited States while law enforcement is <strong>in</strong>vestigat<strong>in</strong>g or prosecut<strong>in</strong>g <strong>traffick<strong>in</strong>g</strong>crimes. This regulation also requires Justice <strong>and</strong> State to identify <strong>and</strong> appropriatelyaddress the particular needs of victims of severe forms of <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> to provideaccess to <strong>in</strong>formation about their rights <strong>and</strong> translation services.Specifically, the 107(c) regulation requires federal law enforcement personnel, immigrationofficials, <strong>and</strong> Department of State officials to: (1) identify victims of severeforms of human <strong>traffick<strong>in</strong>g</strong>; (2) protect victims <strong>in</strong> custody; (3) provide victims withaccess to <strong>in</strong>formation <strong>and</strong> translation services; (4) establish legal mechanisms for allow<strong>in</strong>gvictims of severe forms of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>, who <strong>are</strong> potential witnesses,cont<strong>in</strong>ued presence <strong>and</strong> reasonable protection <strong>in</strong> the United States; <strong>and</strong> (5) developappropriate tra<strong>in</strong><strong>in</strong>g for Department of Justice <strong>and</strong> State personnel <strong>in</strong>vestigat<strong>in</strong>g<strong>and</strong> prosecut<strong>in</strong>g these cases.Identify<strong>in</strong>g Victims. Federal officials must identify victims of severe forms of<strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>. The regulation helps clarify the roles <strong>and</strong> responsibilitiesof federal officials <strong>in</strong> identify<strong>in</strong>g victims of severe forms of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>as early as possible <strong>in</strong> the <strong>in</strong>vestigation <strong>and</strong> prosecution process, to ensure efforts<strong>are</strong> made to see that such victims <strong>are</strong> accorded the rights described <strong>in</strong> 42VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00020 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
17U.S.C. § 10606, <strong>and</strong> to provide the protections <strong>and</strong> services required under 42U.S.C. § 10607 <strong>and</strong> under the VTVPA.Protection. Victims of severe forms of <strong>traffick<strong>in</strong>g</strong> who <strong>are</strong> <strong>in</strong> custody must beprotected. The regulation establishes procedures for appropriate federal employeesto ensure, to the extent practicable, that victims of severe forms of <strong>traffick<strong>in</strong>g</strong><strong>in</strong> <strong>persons</strong> <strong>are</strong> housed <strong>in</strong> a manner appropriate to their status as crimevictims, afforded proper medical c<strong>are</strong> <strong>and</strong> other assistance, <strong>and</strong> protected while<strong>in</strong> federal custody.Access to Information. Traffick<strong>in</strong>g victims must be <strong>in</strong>formed of their rights,provided <strong>in</strong>formation about pro bono <strong>and</strong> low-cost legal services, <strong>and</strong> accordedreasonable access to translation services if they <strong>are</strong> unable to communicate <strong>in</strong>English. In order to help meet these obligations, the Department <strong>and</strong> other federalagencies have created, <strong>and</strong> plan to distribute, the brochures that I havepreviously described for NGOs <strong>and</strong> victims.Cont<strong>in</strong>ued Presence. The regulation clarifies the procedures for federal law enforcementofficials to request that certa<strong>in</strong> victims of severe forms of <strong>traffick<strong>in</strong>g</strong><strong>in</strong> <strong>persons</strong>, who <strong>are</strong> aliens <strong>and</strong> potential witnesses to such <strong>traffick<strong>in</strong>g</strong>, be permittedto have cont<strong>in</strong>ued presence <strong>in</strong> the United States <strong>in</strong> order to effectuatethe <strong>in</strong>vestigation <strong>and</strong> prosecution of those responsible. It also establishes proceduresto protect victims’ safety, <strong>in</strong>clud<strong>in</strong>g tak<strong>in</strong>g measures to protect victims ofsevere forms of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong> <strong>and</strong> their family members from <strong>in</strong>timidation,reprisals, <strong>and</strong> threats of reprisals by traffickers <strong>and</strong> their associates. TheINS may use a variety of immigration mechanisms to ensure the alien’s cont<strong>in</strong>uedpresence <strong>in</strong> the United States. The specific mechanism used will depend onthe alien’s current status under the immigration laws <strong>and</strong> other relevant facts.These mechanisms may <strong>in</strong>clude parole, voluntary departure, stay of f<strong>in</strong>al order,section 107(c)(3)-based deferred action, or any other authorized form of cont<strong>in</strong>uedpresence, <strong>in</strong>clud<strong>in</strong>g applicable nonimmigrant visas. In most circumstances,victims granted cont<strong>in</strong>ued presence will be eligible for temporary employmentauthorization. As of February 28, 2002, the INS had received, processed, <strong>and</strong>was track<strong>in</strong>g 216 requests for cont<strong>in</strong>ued presence (of which 184 <strong>are</strong> <strong>in</strong> connectionwith the case <strong>in</strong> American Samoa, mentioned earlier). To date, none of therequests for cont<strong>in</strong>ued presence has been denied.Tra<strong>in</strong><strong>in</strong>g. The regulation provides guidance about tra<strong>in</strong><strong>in</strong>g of appropriate Justice<strong>and</strong> State Department personnel <strong>in</strong> identify<strong>in</strong>g victims of severe forms of<strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>, <strong>in</strong> underst<strong>and</strong><strong>in</strong>g the particular needs common to victimsof severe forms of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>, <strong>and</strong> <strong>in</strong> provid<strong>in</strong>g for the protection ofsuch victims. In addition to general tra<strong>in</strong><strong>in</strong>g of <strong>in</strong>ternal federal prosecutors,agents, <strong>and</strong> INS personnel, which have already been described, the Departmentcont<strong>in</strong>ues to conduct extensive tra<strong>in</strong><strong>in</strong>g activities on various components’ responsibilitiesunder the 107(e) regulation. The Department plans to developtra<strong>in</strong><strong>in</strong>g modules to highlight the relationship bet<strong>we</strong>en <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>cases <strong>and</strong> other types of crim<strong>in</strong>al prosecutions, such as organized crime, moneylaunder<strong>in</strong>g <strong>and</strong> other topics, as appropriate.HHS CertificationVictims of severe <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong> may be eligible for a number of benefits<strong>and</strong> services, regardless of immigration status. Under Section 107(b) of the VTVPA,alien victims of severe forms of <strong>traffick<strong>in</strong>g</strong> <strong>are</strong> eligible for many federally-funded assistanceprograms to the same extent as aliens admitted to the United States asrefugees under § 207 of the Immigration <strong>and</strong> Nationality Act. To be eligible to receivethis assistance, adult victims of severe forms of <strong>traffick<strong>in</strong>g</strong> must have been certifiedby HHS after consultation with the Department of Justice. HHS will testifyabout the implementation of 107(b) at today’s hear<strong>in</strong>g; <strong>how</strong>ever, I can report thatthe Department of Justice <strong>and</strong> HHS have worked very closely together s<strong>in</strong>ce the enactmentof the VTVPA. We rema<strong>in</strong> <strong>in</strong> frequent communication <strong>and</strong> coord<strong>in</strong>ationabout <strong>how</strong> best to implement the VTVPA <strong>and</strong> <strong>how</strong> to assist victims <strong>in</strong> <strong>traffick<strong>in</strong>g</strong>.Federal GrantsThe Commerce-Justice-State Appropriations Act for FY 2002 appropriated $10million to the Department to fund a grant program established by the VTVPA. TheVTVPA provides that the Attorney General may use these funds to make grants tostates, Indian tribes, units of local government, <strong>and</strong> nonprofit, non-governmentalvictims’ service organizations to develop, exp<strong>and</strong>, or strengthen victim service programsfor victims of <strong>traffick<strong>in</strong>g</strong>. The Office for Victims of Crime, which is chargedwith manag<strong>in</strong>g this program, is currently work<strong>in</strong>g with an <strong>in</strong>teragency task forceto f<strong>in</strong>alize its development.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00021 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
18CONCLUSIONS<strong>in</strong>ce passage of the VTVPA, the urgent need for these measures has only becomemore app<strong>are</strong>nt. The Department of Justice cont<strong>in</strong>ues to encounter many human<strong>traffick<strong>in</strong>g</strong> victims who need assistance <strong>and</strong> protection. We commend Congress forpass<strong>in</strong>g this legislation <strong>and</strong> assure the Subcommittee that <strong>we</strong> <strong>are</strong> work<strong>in</strong>g—<strong>and</strong> willcont<strong>in</strong>ue to work—diligently to implement the VTVPA <strong>and</strong> to help br<strong>in</strong>g a measureof comfort, justice, <strong>and</strong> dignity to <strong>traffick<strong>in</strong>g</strong> victims <strong>in</strong> the United States by <strong>combat<strong>in</strong>g</strong>this modem form of oppression.Mr. Chairman, that completes my prep<strong>are</strong>d statement. I would be pleased to respondto your questions at this time.Senator WELLSTONE. Let me thank both of you for your excellenttestimony. I th<strong>in</strong>k Senator Brownback <strong>and</strong> I will each try to limitourselves to 10 m<strong>in</strong>utes for questions.Let me start with Under Secretary Dobriansky. How high on theagenda is <strong>traffick<strong>in</strong>g</strong> for the Department of State? Let me k<strong>in</strong>d ofoperationalize that. In your diplomatic efforts, with whom <strong>are</strong> yourais<strong>in</strong>g this issue? When President Bush meets with PresidentPut<strong>in</strong> for a summit <strong>in</strong> May, will he raise the issue of <strong>traffick<strong>in</strong>g</strong>?Who have you met with specifically to raise this issue?Ms. DOBRIANSKY. First, I will beg<strong>in</strong> with this important po<strong>in</strong>t—the fact that as an Under Secretary of State for Global Affairs, asI <strong>in</strong>dicated, the office reports directly to me. I have personallyraised this issue. In fact, I was abroad just recently <strong>in</strong> Ukra<strong>in</strong>e, <strong>in</strong>South Korea, <strong>and</strong> <strong>in</strong> India. I had meet<strong>in</strong>gs at, <strong>in</strong> a couple of cases,the head of state level <strong>and</strong> at other levels. This was an issue that,<strong>in</strong> fact, was raised <strong>and</strong> discussed.Our Deputy Secretary has been very vigorous, very engaged <strong>in</strong>these <strong>traffick<strong>in</strong>g</strong>-<strong>in</strong>-person issues, very helpful I th<strong>in</strong>k <strong>in</strong> a numberof diplomatic exchanges <strong>and</strong> also <strong>in</strong> terms of our <strong>in</strong>teragency coord<strong>in</strong>ation.Then f<strong>in</strong>ally, I would say a word about the Presidential level. Recently,the President, as you know, was <strong>in</strong> Asia. I am not aw<strong>are</strong><strong>and</strong> I cannot say that it was addressed <strong>in</strong> all of the countries, butI do know that there was some discussion actually <strong>in</strong> one of thecountries, but actually for positive reasons because of some positivemovement.Senator WELLSTONE. I th<strong>in</strong>k when some of the countries havemade the improvements, that is certa<strong>in</strong>ly part of what <strong>we</strong> <strong>are</strong> ask<strong>in</strong>gfor. It is high profile. That is important. And I would hope thatthe President, when it is not so positive, would also challenge governments<strong>and</strong> make it clear that this is very high on our list of priorities.What has the State Department done <strong>in</strong> domestic worker <strong>traffick<strong>in</strong>g</strong>or abuse cases <strong>in</strong>volv<strong>in</strong>g foreign officials of <strong>in</strong>ternational organizationsor diplomats <strong>in</strong> the United States or, for that matter,American diplomats abroad? As you know, <strong>we</strong> have had somesticky situations, <strong>and</strong> I am wonder<strong>in</strong>g what the StateDepartment——Ms. DOBRIANSKY. You <strong>are</strong> referr<strong>in</strong>g to, you said, domestic situations.Is that correct?Senator WELLSTONE. Yes. You have got a diplomat over here <strong>in</strong>Wash<strong>in</strong>gton who has a young woman work<strong>in</strong>g for a family who isbasically <strong>in</strong> slave labor conditions. What <strong>are</strong> <strong>we</strong> do<strong>in</strong>g about that?Ms. DOBRIANSKY. Well, to my knowledge, first, it goes back to thequestion about diplomatic approaches, when there <strong>are</strong> cases thatVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00022 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
19<strong>are</strong> here <strong>in</strong> the United States, <strong>we</strong> do make representations certa<strong>in</strong>lyto the respective embassies <strong>and</strong> also certa<strong>in</strong>ly <strong>in</strong>form ourposts overseas about the scale or scope of any cases. In addition,I believe there is also collaboration with the Department of Justicebecause it also would have prospective domestic legal implications.Those <strong>are</strong> the k<strong>in</strong>ds of th<strong>in</strong>gs that <strong>we</strong> have been do<strong>in</strong>g.Senator WELLSTONE. But do <strong>we</strong> do anyth<strong>in</strong>g beyond representations?Any k<strong>in</strong>d of action taken that makes it clear it is unacceptable?Ms. DOBRIANSKY. Absolutely. I would say it is also addressed <strong>in</strong>a broader context. If you look at this issue, <strong>we</strong> try to take it onmore strategically. When <strong>we</strong> sit down with other countries—<strong>and</strong>, ifI may say, us<strong>in</strong>g the report as a peg—that does not only mean atthe time the report was issued—but subsequently when <strong>we</strong> havebilateral exchanges with countries—specific cases, specific examples<strong>are</strong> sh<strong>are</strong>d.Senator WELLSTONE. Mr. D<strong>in</strong>h, I was talk<strong>in</strong>g earlier about theconcern I have just based upon what I have heard or what <strong>we</strong> haveheard all together with staff around the country. And I am now focus<strong>in</strong>gon sort of the <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> our own country. By the way,this is a question I will ask later of the Office of Traffick<strong>in</strong>g. Weneed to collect the data. I have heard so many different reports onexactly <strong>how</strong> many women, girls—sometimes I guess men or boys—<strong>we</strong> <strong>are</strong> deal<strong>in</strong>g with. I th<strong>in</strong>k <strong>we</strong> need to have a clear picture of themagnitude of the problem.But one of the concerns I have is just <strong>in</strong> the states law enforcementis not necessarily tra<strong>in</strong>ed, so they do not really recognize thiswhen it is before them. Does the Department of Justice have anyplans to ensure a greater amount of coord<strong>in</strong>ation among the assistantU.S. attorneys around the country <strong>and</strong> here with you all <strong>in</strong>Wash<strong>in</strong>gton?Mr. DINH. Yes, sir, <strong>and</strong> if I may highlight the coord<strong>in</strong>ation <strong>and</strong>tra<strong>in</strong><strong>in</strong>g efforts about which you <strong>are</strong> <strong>in</strong>terested <strong>and</strong> also highlightsome of the th<strong>in</strong>gs that <strong>we</strong> <strong>are</strong> do<strong>in</strong>g <strong>in</strong> order to further that effort.In October 2000, immediately after the passage of the act, theDepartment of Justice hosted a tra<strong>in</strong><strong>in</strong>g program for <strong>in</strong>teragencypersonnel, <strong>in</strong>clud<strong>in</strong>g personnel from the Departments of Labor,State, <strong>and</strong> HHS, on the impact of the act on the <strong>in</strong>vestigation <strong>and</strong>prosecution of these cases <strong>and</strong> also on the assistance of victims. Wefollo<strong>we</strong>d up aga<strong>in</strong> last year with tra<strong>in</strong><strong>in</strong>g of INS <strong>and</strong> FBI personnelon identify<strong>in</strong>g victims <strong>and</strong> process<strong>in</strong>g them <strong>in</strong> a humane <strong>and</strong> cooperativeway through the process to assist the prosecution.In March of last year, almost immediately upon tak<strong>in</strong>g office, theAttorney General announced his <strong>in</strong>itiative to combat <strong>traffick<strong>in</strong>g</strong>. Aspart of that <strong>in</strong>itiative, he directed our Intergovernmental AffairsOffice, our U.S. attorneys, our FBI, <strong>and</strong> INS to work with the CivilRights Division <strong>in</strong> a cooperative manner <strong>and</strong> also to work with ourstate <strong>and</strong> local partners, the 28,000 state <strong>and</strong> local police agencies,who really come <strong>in</strong> contact at a very first level with these activities.We will cont<strong>in</strong>ue these efforts both <strong>in</strong> tra<strong>in</strong><strong>in</strong>g <strong>and</strong> <strong>in</strong> identification.We have worked with the Department of State to f<strong>in</strong>alize an<strong>in</strong>teragency <strong>in</strong>telligence center, which will be supervised by theCivil Rights Division, <strong>in</strong> order to get more <strong>in</strong>telligence, more <strong>in</strong>formationshar<strong>in</strong>g on this matter.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00023 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
20One of the th<strong>in</strong>gs that <strong>we</strong> have encountered is the fact that thesecrimes operate <strong>in</strong> darkness. The perpetrators hide <strong>in</strong> the shadows.The victims suffer <strong>in</strong> silence <strong>and</strong> helplessness, so <strong>we</strong> have to havea very <strong>we</strong>ll-coord<strong>in</strong>ated effort to work together with our state <strong>and</strong>local partners <strong>and</strong> the service agencies <strong>and</strong> NGOs to identify victims,to put them <strong>in</strong>to the loop so that <strong>we</strong> can help them.Senator WELLSTONE. Let me make a quick comment <strong>and</strong> put thef<strong>in</strong>al two questions <strong>in</strong> one question to you. That way <strong>we</strong> can moveit right to Senator Brownback <strong>and</strong> <strong>we</strong> will move th<strong>in</strong>gs along.I aga<strong>in</strong> want to emphasize what I said at the beg<strong>in</strong>n<strong>in</strong>g. I appreciateyour comment. I am under the very dist<strong>in</strong>ct impression—<strong>and</strong>I th<strong>in</strong>k Senator Brownback had the sort of mood piece of this hear<strong>in</strong>g.I th<strong>in</strong>k he hit it the right way, which is to give a lot of credit.It is only a year <strong>and</strong> people <strong>are</strong> mov<strong>in</strong>g forward. But I am impatient<strong>and</strong> I th<strong>in</strong>k <strong>we</strong> can do better, <strong>and</strong> that is f<strong>in</strong>e. I th<strong>in</strong>k <strong>we</strong> allagree. I am under the impression <strong>we</strong> have a f<strong>in</strong>e INS Commissioner,who was our Sergeant at Arms.I do th<strong>in</strong>k there has to be more tra<strong>in</strong><strong>in</strong>g because I do th<strong>in</strong>k thatyou have got some of these women or some of these girls <strong>in</strong> thesedetention centers, <strong>and</strong> I do not th<strong>in</strong>k <strong>we</strong> <strong>are</strong> <strong>in</strong> there <strong>in</strong>terview<strong>in</strong>gthem <strong>and</strong> underst<strong>and</strong><strong>in</strong>g why they <strong>are</strong> there or what they havebeen through. We need to do a better job of that. So, I would justemphasize that <strong>and</strong> push very hard, <strong>and</strong> I th<strong>in</strong>k you all could playa critical role.Let me put two cases together <strong>and</strong> just get your response. If theINS has determ<strong>in</strong>ed a victim will suffer unusual or severe harmupon return to the country of orig<strong>in</strong>, but then determ<strong>in</strong>es that thevictim has not complied with the requests of law enforcement, willthe victim be deported even though it is certa<strong>in</strong> that she—usually<strong>we</strong> <strong>are</strong> talk<strong>in</strong>g about she—will suffer harm? And <strong>are</strong> there effortsmade to protect these women or girls if they <strong>are</strong> deported? That isthe first question. I will have a followup real quickly.Mr. DINH. The requirements of the T-visa <strong>are</strong> specified undersection 107 of the act <strong>and</strong> they <strong>in</strong>clude both extreme hardship <strong>and</strong>reasonable cooperation with law enforcement requests. So, each oneof these is a statutory requirement that <strong>we</strong>, <strong>in</strong> implement<strong>in</strong>g thenon-immigrant status, have to comply with.With respect to your specific question——Senator WELLSTONE. My question is based on that——Mr. DINH. Exactly, exactly. With respect to the specific questionon whether extreme hardship is met—your ask<strong>in</strong>g what else <strong>we</strong>can do to ensure that this person is not returned to a countrywhere they would suffer hardship—first I would note that the cooperationst<strong>and</strong>ard under the T-visa is only one of compliance withreasonable requests of law agencies. This st<strong>and</strong>ard can be met <strong>in</strong>a number of ways: by a copy of the compla<strong>in</strong>t, by an endorsementof the law enforcement agency, by a transcript, by any other evidence.And it is only a preponderance of the evidence st<strong>and</strong>ard, soit is not the very high st<strong>and</strong>ard imposed <strong>in</strong> a normal crim<strong>in</strong>al prosecution.So, I would hope that the INS, <strong>in</strong> issu<strong>in</strong>g the T-visas—<strong>and</strong><strong>in</strong>deed, the personnel have been tra<strong>in</strong>ed <strong>in</strong> this regard—would besympathetic toward the grant<strong>in</strong>g of these visas for these victims.But if there <strong>we</strong>re a case when the extreme hardship requirementis met <strong>and</strong> yet one or the other of the statutory requirements <strong>are</strong>VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00024 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
21not met, then the person would not be eligible for a T-visa. Thatdoes not mean that he or she is not eligible for cont<strong>in</strong>ued presenceunder 107(c) or for humanitarian parole that the Attorney Generalcan grant upon his personal discretion such as he granted toPhanupong Khaisri, or Got.Senator WELLSTONE. I am not a lawyer, but what you <strong>are</strong> say<strong>in</strong>gto me—I mean, <strong>we</strong> worked with you on the def<strong>in</strong>ition of cooperation.I th<strong>in</strong>k <strong>we</strong> reached a good compromise. But what you <strong>are</strong> say<strong>in</strong>gis even given that def<strong>in</strong>ition, you have a situation where shehas not cooperated, that the Attorney General can still provide, ifyou will, amnesty or whatever. Right?Mr. DINH. Yes. Humanitarian parole, yes, sir.Senator WELLSTONE. If <strong>in</strong> fact it is clear that if she now is deportedback to the country of orig<strong>in</strong>, she could be <strong>in</strong> harm’s way.Mr. DINH. Yes. It is a discretionary grant by the Attorney General.But let me stress that noncooperation can always be remedied bycont<strong>in</strong>ued cooperation or future cooperation. That is certa<strong>in</strong>ly ourhope, work<strong>in</strong>g with the victim h<strong>and</strong> <strong>in</strong> glove, because I th<strong>in</strong>k victims<strong>and</strong> <strong>in</strong>vestigators here <strong>are</strong> part of the same team.Senator WELLSTONE. I am go<strong>in</strong>g to h<strong>and</strong> it to SenatorBrownback. I am go<strong>in</strong>g to have a written question on the Samoacase that you talked about. OK?Mr. DINH. That is a case near <strong>and</strong> dear to my heart.Senator WELLSTONE. Yes, I have a number of other written questionstoo.Senator Brownback.Senator BROWNBACK. Thanks, Mr. Chairman.Congratulations on the work that you <strong>are</strong> do<strong>in</strong>g. I am glad tohear about all of this.Dr. Dobriansky, on the advocacy work that you <strong>are</strong> do<strong>in</strong>g—<strong>and</strong>thank you for rais<strong>in</strong>g this <strong>in</strong> so many various places, <strong>and</strong> the countriesyou cited <strong>are</strong> certa<strong>in</strong>ly some key ones to raise these issues.I have been to a couple of those myself <strong>and</strong> raised the issue, <strong>and</strong>each time that is raised, I th<strong>in</strong>k it drives further home, OK, theUnited States is serious about this. My experience on human rightsissues <strong>and</strong> issues like this is unless the U.S. raises it, it just doesnot get raised. So, I really appreciate your do<strong>in</strong>g that.One group that I talked with was <strong>in</strong> Thail<strong>and</strong> <strong>and</strong> some of theregional countries there talk<strong>in</strong>g about a regional conference <strong>and</strong>work<strong>in</strong>g together to combat. Are you work<strong>in</strong>g with them, <strong>and</strong> whatis your sense of that one? Or <strong>are</strong> there other regions that <strong>are</strong> work<strong>in</strong>gtogether to try to combat the issue of sex <strong>traffick<strong>in</strong>g</strong>?Ms. DOBRIANSKY. The regional approach is one which is verymuch <strong>we</strong>lcome because, as you <strong>we</strong>ll know, this is a transborderissue. It does not affect just one country or a group of countries.It is a global problem. Certa<strong>in</strong>ly <strong>in</strong> a number of regions, it is verymuch <strong>in</strong>terwoven <strong>and</strong> <strong>in</strong>terconnected.The regional approach <strong>in</strong> this case, also <strong>in</strong> Africa, has been <strong>in</strong>valuable.In fact, let me sh<strong>are</strong> some developments with you. In Decemberof last year, our Ambassador <strong>in</strong> Nigeria <strong>in</strong>itiated a conference,which <strong>in</strong>cluded a number of the countries surround<strong>in</strong>g Nigeria<strong>and</strong> which have been affected by <strong>traffick<strong>in</strong>g</strong> flows. Theyworked toward the goal of try<strong>in</strong>g to th<strong>in</strong>k about <strong>how</strong> they could col-VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00025 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
22laborate regionally through preventive action <strong>and</strong> prosecutions becauseof <strong>traffick<strong>in</strong>g</strong> flows go<strong>in</strong>g from one location to another. Theshar<strong>in</strong>g of <strong>in</strong>formation <strong>in</strong> that regard, <strong>and</strong> then also the protectionof victims was featured. This, I th<strong>in</strong>k, has significant potential <strong>and</strong>is really a k<strong>in</strong>d of strategy that <strong>we</strong> should be pursu<strong>in</strong>g more vigorously<strong>and</strong> not just <strong>in</strong> only this region mentioned.Senator BROWNBACK. Good, because it seems to me the most likelihoodof us be<strong>in</strong>g able to have a basis of success where you get,as I underst<strong>and</strong>, the <strong>in</strong>formation, both the send<strong>in</strong>g <strong>and</strong> the recipientcountries work<strong>in</strong>g together <strong>and</strong> each do<strong>in</strong>g what they can to tryto stop this flow of people mov<strong>in</strong>g back <strong>and</strong> forth.Mr. D<strong>in</strong>h, <strong>we</strong> will hear a witness on the third panel about <strong>in</strong>ternationalsex tourism. There <strong>are</strong> some laws on the books alreadyabout this, but it <strong>in</strong>volves, as I underst<strong>and</strong>, you have to establishan <strong>in</strong>tention <strong>in</strong> the person’s m<strong>in</strong>d once they buy the ticket beforethey leave the country to do this. And that makes those cases prettydifficult to prosecute. Have you had any review of cases like thisor any deal<strong>in</strong>gs with cases like that?Mr. DINH. Yes, sir. When this problem was brought to our attention,I asked the Child Exploitation <strong>and</strong> Obscenity Section to expla<strong>in</strong>the problem to me <strong>in</strong> light of the prosecution of these cases<strong>and</strong> difficulties they encounter. And the problem is exactly as youstated. That is, a person has to have formed the <strong>in</strong>tent to engage<strong>in</strong> sex with a m<strong>in</strong>or abroad before he leaves the country <strong>in</strong> orderto qualify for prosecution under current law. And, <strong>in</strong>deed, even ifa person has formed such an <strong>in</strong>tent, you can imag<strong>in</strong>e the prosecutorial<strong>and</strong> <strong>in</strong>vestigative problems <strong>we</strong> encounter <strong>in</strong> establish<strong>in</strong>g theformation of such <strong>in</strong>tent prior to gett<strong>in</strong>g on the plane <strong>and</strong> leav<strong>in</strong>gthis country. Hav<strong>in</strong>g sex with a m<strong>in</strong>or while abroad alone is notenough under current law. One has to have formed the <strong>in</strong>tent priorto one leav<strong>in</strong>g the country, <strong>and</strong> that is the evidentiary problem that<strong>we</strong> have under current law.Senator BROWNBACK. Well, <strong>we</strong> want to work with you to makechanges <strong>in</strong> the current law so that those cases can be prosecutedbecause one of the th<strong>in</strong>gs that the Thai officials raised with me wassay<strong>in</strong>g, <strong>we</strong> <strong>are</strong> gett<strong>in</strong>g people travel<strong>in</strong>g <strong>in</strong> here from out of country<strong>and</strong> conduct<strong>in</strong>g <strong>and</strong> do<strong>in</strong>g really awful activities. We want to stopthe <strong>traffick<strong>in</strong>g</strong>, but <strong>we</strong> want to stop this person from com<strong>in</strong>g <strong>in</strong> <strong>and</strong>do<strong>in</strong>g these sorts of activities. And I thought, <strong>we</strong>ll, that is a legitimaterequest on their part toward us.Have you had any conversations like that with other officials? Ormaybe I should ask Dr. Dobriansky as <strong>we</strong>ll if you have.Mr. DINH. I certa<strong>in</strong>ly have asked our folks to suggest ways that<strong>we</strong> can th<strong>in</strong>k about, with your leadership, as you suggested, cur<strong>in</strong>gthis problem. One way to th<strong>in</strong>k about the problem is to make thesimple act of sex with a m<strong>in</strong>or abroad without the prior <strong>in</strong>tent sufficientto prosecute under the Federal law. That would require alegislative fix. Likewise, those who facilitate such actions by the operat<strong>in</strong>gof tours for those purposes should be held liable so that <strong>we</strong>can get at the root cause of these, the operators of these tours. But<strong>we</strong> would <strong>we</strong>lcome your leadership on the issue, <strong>and</strong> I look forwardto work<strong>in</strong>g with you for the legislative fixes <strong>we</strong> need.Senator BROWNBACK. Have you had this raised with you?VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00026 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
23Ms. DOBRIANSKY. I would just say that our discussions have varied.There have been some countries that have been more forthcom<strong>in</strong>gon <strong>in</strong>formation <strong>and</strong> there have been others that have not.It depends upon who you <strong>are</strong> speak<strong>in</strong>g to <strong>and</strong> the context. But Ihave to say that on several occasions this issue has been raised.Senator BROWNBACK. Good. Thank you both. Really, please expressour appreciation to your Departments for really grabb<strong>in</strong>g ahold of this aggressively, early, quickly <strong>and</strong> press<strong>in</strong>g it. We wantto work with you to get more done fast. When you look <strong>in</strong> the eyesof the children that you <strong>are</strong> help<strong>in</strong>g, it is a very gratify<strong>in</strong>g th<strong>in</strong>g,what you <strong>are</strong> do<strong>in</strong>g. It is an awful th<strong>in</strong>g that is happen<strong>in</strong>g to them,<strong>and</strong> for us to get what, I th<strong>in</strong>k the chairman has once referred to,as this part of the dark side of the globaliz<strong>in</strong>g economy, gett<strong>in</strong>g atthat is an important th<strong>in</strong>g for us <strong>and</strong> humanity to be deal<strong>in</strong>g with.So, thanks for what you <strong>are</strong> do<strong>in</strong>g.Senator WELLSTONE. Thank you, both of you. We appreciate yourleadership.Mr. DINH. Thank you.Ms. DOBRIANSKY. Thank you.Senator WELLSTONE. We <strong>are</strong> just go<strong>in</strong>g to try to move rightalong. The second panel will be Ambassador Ely-Raphel. AmbassadorEly-Raphel is the new Senior Advisor to the Secretary on<strong>traffick<strong>in</strong>g</strong> issues <strong>and</strong> the Director of what I will call the Office ofTraffick<strong>in</strong>g. And Dr. Van Hanh is the new Director of the Office ofRefugee Resettlement.Ambassador Ely-Raphel.STATEMENT OF AMB. NANCY H. ELY-RAPHEL, SENIOR ADVI-SOR, OFFICE TO MONITOR AND COMBAT TRAFFICKING INPERSONS, DEPARTMENT OF STATE, WASHINGTON, DCMs. ELY-RAPHEL. Thank you, Mr. Chairman. With your permission,I would like to present my full testimony for the record <strong>and</strong>thus abbreviate my statement.Senator WELLSTONE. It will be <strong>in</strong> the record.Ms. ELY-RAPHEL. Thank you.It is an honor for me to appear before the Senate for the firsttime <strong>in</strong> my capacity as the head of the Office to Monitor <strong>and</strong> CombatTraffick<strong>in</strong>g <strong>in</strong> Persons.Traffick<strong>in</strong>g <strong>in</strong> <strong>persons</strong> is a crim<strong>in</strong>al commerce <strong>in</strong> human lives <strong>in</strong>which <strong>in</strong>dividuals <strong>are</strong> noth<strong>in</strong>g more than commodities to be exploitedfor profit. It is a contemporary form of enslavement throughphysical, economic, or psychological bondage by those who dishonor<strong>and</strong> corrupt every value <strong>and</strong> ideal American society represents. Itis a problem that cries out for redress.The 2001 Traffick<strong>in</strong>g <strong>in</strong> Persons report has proven to be an <strong>in</strong>valuabletool <strong>in</strong> rais<strong>in</strong>g the profile of <strong>traffick<strong>in</strong>g</strong> throughout theworld <strong>and</strong> spurr<strong>in</strong>g governments to take action. The stigma attached<strong>and</strong> the threat of sanctions is a strong motivator.The annual <strong>traffick<strong>in</strong>g</strong> report is a work <strong>in</strong> progress. Over the lastseveral months, <strong>we</strong> have solicited feedback from NGOs, congressionalofficials <strong>and</strong> staff, <strong>and</strong> relevant government agencies. Basedon this response, <strong>we</strong> launched an e-mail address to enable NGOs<strong>and</strong> <strong>in</strong>ternational organizations to send <strong>traffick<strong>in</strong>g</strong> <strong>in</strong>formation di-VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00027 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
24rectly to the office. This change, <strong>we</strong> believe, will allow more directengagement by the NGOs, as <strong>we</strong>ll as enhance transp<strong>are</strong>ncy.In addition, our embassies <strong>and</strong> consulates <strong>are</strong> provid<strong>in</strong>g more detailed<strong>in</strong>formation. We have added data-specific questions on thenumber of arrests, <strong>in</strong>dictments, plea barga<strong>in</strong>s, f<strong>in</strong>es, <strong>and</strong> convictionsof traffickers.Dur<strong>in</strong>g fiscal year 2001, the State Department supported <strong>and</strong> implementedover 100 <strong>traffick<strong>in</strong>g</strong>-related programs <strong>and</strong> <strong>in</strong>itiatives <strong>in</strong>approximately 40 countries. This year <strong>we</strong> will focus on assist<strong>in</strong>g eligiblecountries <strong>in</strong> tiers 2 <strong>and</strong> 3. We will cont<strong>in</strong>ue to exp<strong>and</strong> our assistanceto local NGOs <strong>and</strong> <strong>in</strong>ternational organizations. In addition,<strong>we</strong> will seek to exp<strong>and</strong> our government-to-government programs forthose governments that <strong>are</strong> committed to address <strong>traffick<strong>in</strong>g</strong>. Thesetypes of programs <strong>in</strong>cluded legislative assistance, tra<strong>in</strong><strong>in</strong>g programsfor government officials to <strong>in</strong>vestigate <strong>and</strong> prosecute traffickers,<strong>and</strong> startup equipment for anti-<strong>traffick<strong>in</strong>g</strong> task forces orpolice units. We <strong>are</strong> encourag<strong>in</strong>g our embassies to solicit f<strong>in</strong>ancialor <strong>in</strong>-k<strong>in</strong>d support from the host governments for programs implementedby NGOs. We hope this approach will help to ensure susta<strong>in</strong>abilityof the NGO programs, as <strong>we</strong>ll as facilitate government-NGO cooperation.Next <strong>we</strong>ek my office will meet with relevant State Departmentbureaus, AID, <strong>and</strong> the Department of Labor to beg<strong>in</strong> review<strong>in</strong>g themany good proposals <strong>we</strong> received for possible fund<strong>in</strong>g.As Under Secretary Dobriansky noted, <strong>we</strong> have raised <strong>traffick<strong>in</strong>g</strong>at every opportunity with foreign governments, domestic audiences,<strong>and</strong> with<strong>in</strong> our own government. Last <strong>we</strong>ek I attended the RegionalM<strong>in</strong>isterial Conference on People Smuggl<strong>in</strong>g, Traffick<strong>in</strong>g <strong>in</strong> Persons,<strong>and</strong> Related Transnational Crimes <strong>in</strong> Indonesia. I was struckby the high level of commitment <strong>in</strong> that region to combat <strong>traffick<strong>in</strong>g</strong><strong>in</strong> <strong>persons</strong> <strong>and</strong> organized crime. There was much c<strong>and</strong>iddiscussion about the need to improve their efforts to address <strong>traffick<strong>in</strong>g</strong><strong>in</strong> <strong>persons</strong>.Over the last year, members of our new office have traveled toJapan, West Africa, Belgium, Brazil, Mexico, Germany, <strong>and</strong> Jamaicato speak on <strong>traffick<strong>in</strong>g</strong> panels at <strong>in</strong>ternational conferences<strong>and</strong> to sh<strong>are</strong> <strong>in</strong>formation with various foreign government officials<strong>and</strong> non-governmental representatives. They also traveled to differentstates, rang<strong>in</strong>g from Alaska to Vermont, to enhance domesticpublic aw<strong>are</strong>ness of the <strong>traffick<strong>in</strong>g</strong> issues or participate <strong>in</strong> tra<strong>in</strong><strong>in</strong>gcourses <strong>and</strong> conferences for U.S. Government officials.The U.S. Government <strong>and</strong> Congress’ enactment of the Victims ofTraffick<strong>in</strong>g <strong>and</strong> Violence Protection Act of 2000 put the spotlight onthis violation of fundamental human rights. As a result of our leadership,<strong>in</strong> many cases governments <strong>are</strong> tak<strong>in</strong>g action, <strong>and</strong> <strong>we</strong> willwork very, very hard to ensure success <strong>in</strong> our program.I thank you very much for the opportunity to sh<strong>are</strong> our efforts<strong>and</strong> progress <strong>and</strong> look forward to cont<strong>in</strong>ued collaboration with you.[The prep<strong>are</strong>d statement of Ambassador Ely-Raphel follows:]PREPARED STATEMENT OF AMB. NANCY H. ELY-RAPHEL, SENIOR ADVISOR, OFFICE TOMONITOR AND COMBAT TRAFFICKING IN PERSONS, DEPARTMENT OF STATEIt is an honor for me to appear before the Senate for the first time <strong>in</strong> my capacityas the head of the Office to Monitor <strong>and</strong> Combat Traffick<strong>in</strong>g <strong>in</strong> Persons at the U.S.Department of State. We <strong>are</strong> all here today to talk about <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>,VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00028 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
25which is the modern-day form of slavery that plagues our societies <strong>in</strong> the new millennium.As Under Secretary Dobriansky <strong>in</strong>dicated <strong>in</strong> the previous panel, the Departmentof State is actively implement<strong>in</strong>g the provisions of the Victims of Traffick<strong>in</strong>g <strong>and</strong>Violence Protection Act of 2000. I would like to take this opportunity to provide detailsabout what the Traffick<strong>in</strong>g Office is do<strong>in</strong>g at the work<strong>in</strong>g level with respectto the Traffick<strong>in</strong>g <strong>in</strong> Persons Report, <strong>in</strong>ternational programs <strong>and</strong> outreach.TRAFFICKING IN PERSONS REPORTThe 2001 Traffick<strong>in</strong>g <strong>in</strong> Persons Report has proven to be an <strong>in</strong>valuable tool <strong>in</strong>rais<strong>in</strong>g the profile of <strong>traffick<strong>in</strong>g</strong> throughout the world <strong>and</strong> spurr<strong>in</strong>g countries to takeaction. The stigma attached—<strong>and</strong> the threat of sanctions—is a strong motivator.Government representatives from Tier 3 countries such as South Korea, Israel <strong>and</strong>Romania, met with us on several occasions for guidance on actions they could taketo improve their record.The Annual Traffick<strong>in</strong>g <strong>in</strong> Persons Report is a work <strong>in</strong> progress. Over the lastseveral months, <strong>we</strong> solicited feedback from non-governmental organizations, congressionalofficials <strong>and</strong> their staff, <strong>and</strong> relevant U.S. government agencies on <strong>how</strong><strong>we</strong> can improve this Report.Based on this feedback <strong>we</strong> launched an e-mail address to allow non-governmental<strong>and</strong> <strong>in</strong>ternational organizations to send <strong>traffick<strong>in</strong>g</strong> <strong>in</strong>formation directly to the Office.This change <strong>we</strong> believe will allow more direct engagement by the non-governmentalorganizations as <strong>we</strong>ll as enhance transp<strong>are</strong>ncy. The response has been very positive.Already, <strong>we</strong> <strong>are</strong> gett<strong>in</strong>g <strong>in</strong>formation from various NGOs around the world.In addition, our embassies <strong>and</strong> consulates around the world <strong>are</strong> provid<strong>in</strong>g moredetailed <strong>in</strong>formation for the 2002 Report regard<strong>in</strong>g corruption <strong>and</strong> the political willof governments to combat <strong>traffick<strong>in</strong>g</strong>. We also added data-specific questions on thenumber of arrests, <strong>in</strong>dictments, plea barga<strong>in</strong>s, f<strong>in</strong>es, <strong>and</strong> convictions of traffickers.This is <strong>in</strong> direct response to a concern raised by many of our colleagues <strong>in</strong> the nongovernmental<strong>are</strong>na, who noted that a country’s commitment can certa<strong>in</strong>ly be measuredthrough their commitment to stamp<strong>in</strong>g out corruption. As of this <strong>we</strong>ek, overhalf of our embassies have submitted their <strong>in</strong>formation for the second annual Traffick<strong>in</strong>g<strong>in</strong> Persons Report.I will use this report as a mechanism to exp<strong>and</strong> our bilateral dialogues with othercountries. It is only through this dialogue that <strong>we</strong> can educate countries, identifytheir shortcom<strong>in</strong>gs, <strong>and</strong> assist them <strong>in</strong> strengthen<strong>in</strong>g their efforts.F<strong>in</strong>ally, I would also like to note that the Annual Country Reports on HumanRights Practices, which the Department issued this past Monday, conta<strong>in</strong>ed detailed<strong>in</strong>formation about the problem of <strong>traffick<strong>in</strong>g</strong>, which was compiled by the Bureau ofDemocracy, Human Rights, <strong>and</strong> Labor <strong>and</strong> our many embassies overseas. Membersof my office worked collaboratively with the Bureau of Democracy, Human Rights,<strong>and</strong> Labor on these reports, which conta<strong>in</strong> detailed <strong>in</strong>formation on a variety of subjectsrelated to <strong>traffick<strong>in</strong>g</strong>, <strong>in</strong>clud<strong>in</strong>g conditions for victims <strong>and</strong> efforts by Governments<strong>and</strong> non-governmental organizations to combat <strong>traffick<strong>in</strong>g</strong>.INTERNATIONAL PROGRAMSDur<strong>in</strong>g fiscal year 2001, the State Department supported <strong>and</strong> implemented over100 <strong>traffick<strong>in</strong>g</strong>-related programs <strong>and</strong> <strong>in</strong>itiatives <strong>in</strong> approximately 40 countries. Theestimated value of the State Department programs is $11.5 million. The types ofprograms funded <strong>in</strong>cluded <strong>in</strong>formation campaigns, <strong>in</strong>ternational visitor programs,law enforcement tra<strong>in</strong><strong>in</strong>g programs, equipment for new anti-<strong>traffick<strong>in</strong>g</strong> police units,equipment for forensic <strong>in</strong>terview rooms for child victims, equipment for new crisiscenters, <strong>and</strong> repatriation <strong>and</strong> re<strong>in</strong>tegration programs.This year <strong>we</strong> will focus on assist<strong>in</strong>g eligible countries <strong>in</strong> Tiers 2 <strong>and</strong> 3 to address<strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>. We will cont<strong>in</strong>ue to exp<strong>and</strong> our assistance to local non-governmental<strong>and</strong> <strong>in</strong>ternational organizations for services to victims <strong>and</strong> for <strong>traffick<strong>in</strong>g</strong>prevention. In addition, <strong>we</strong> will seek to exp<strong>and</strong> our government-to-government programsfor those governments that <strong>are</strong> committed to address <strong>traffick<strong>in</strong>g</strong>. These typesof programs <strong>in</strong>clude legislative assistance, tra<strong>in</strong><strong>in</strong>g programs for government officialsto <strong>in</strong>vestigate <strong>and</strong> prosecute traffickers, <strong>and</strong> start-up equipment for anti-<strong>traffick<strong>in</strong>g</strong>taskforces or police units. We <strong>are</strong> encourag<strong>in</strong>g our embassies to solicit f<strong>in</strong>ancialor <strong>in</strong>-k<strong>in</strong>d support from the host governments for programs implemented bynongovernmental organizations. We hope this approach will help to ensure susta<strong>in</strong>abilityof the NGO programs as <strong>we</strong>ll as facilitate government-NGO cooperation, <strong>and</strong>ultimately end our engagement so <strong>we</strong> can <strong>in</strong>vest our funds <strong>in</strong> other countries thatpresent new opportunities for beg<strong>in</strong>n<strong>in</strong>g or strengthen<strong>in</strong>g the battle aga<strong>in</strong>st <strong>traffick<strong>in</strong>g</strong>.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00029 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
26Next <strong>we</strong>ek, my Office will meet with relevant State Department bureaus, USAID,<strong>and</strong> Department of Labor to beg<strong>in</strong> review<strong>in</strong>g the many good proposals <strong>we</strong> receivedfor possible fund<strong>in</strong>g. We will collectively identify the proposals which merit furtherconsideration, then each bureau or agency will proceed with its own <strong>in</strong>ternal approval<strong>and</strong> adm<strong>in</strong>istrative process to get these proposals funded. We have a track<strong>in</strong>gsystem <strong>in</strong> place to beg<strong>in</strong> <strong>monitor<strong>in</strong>g</strong> the amount of funds obligated for <strong>in</strong>ternationalanti-<strong>traffick<strong>in</strong>g</strong> programs. This will help us better allocate our limited resources <strong>and</strong>promote transp<strong>are</strong>ncy <strong>and</strong> coord<strong>in</strong>ation with<strong>in</strong> the U.S. government.OUTREACHA key role of my Office is to promote aw<strong>are</strong>ness about the <strong>traffick<strong>in</strong>g</strong> issue <strong>and</strong>the U.S. government’s anti<strong>traffick<strong>in</strong>g</strong> efforts with foreign governments, our own government,non-governmental organizations <strong>and</strong> the general public.As Under Secretary Dobriansky noted, <strong>we</strong> have raised <strong>traffick<strong>in</strong>g</strong> at every opportunitywith foreign countries, domestic audiences, <strong>and</strong> with<strong>in</strong> our own government.Last <strong>we</strong>ek I attended the ‘‘Regional M<strong>in</strong>isterial Conference on People Smuggl<strong>in</strong>g,Traffick<strong>in</strong>g <strong>in</strong> Persons <strong>and</strong> Related Transnational Crimes’’ <strong>in</strong> Indonesia. I wasstruck by the high-level commitment <strong>in</strong> the region to combat <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong><strong>and</strong> organized crime. There was much c<strong>and</strong>id discussion about the need to improvetheir efforts to address <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>.While the Traffick<strong>in</strong>g <strong>in</strong> Persons Report has helped illum<strong>in</strong>ate the importance ofthe issue, <strong>we</strong> need to cont<strong>in</strong>ue to educate governments on the importance of safeguard<strong>in</strong>gthe rights of victims, provid<strong>in</strong>g them with protection <strong>and</strong> prosecut<strong>in</strong>g thetraffickers. We also need to educate governments on the differences bet<strong>we</strong>en migrantsmuggl<strong>in</strong>g <strong>and</strong> <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>.Over the last year, members of our new office traveled to Japan, West Africa, Belgium,Brazil, Mexico, Germany, <strong>and</strong> Jamaica to speak on <strong>traffick<strong>in</strong>g</strong> panels at <strong>in</strong>ternationalconferences <strong>and</strong> sh<strong>are</strong> <strong>in</strong>formation with various foreign government officials<strong>and</strong> non-governmental representatives. They also traveled to different states,rang<strong>in</strong>g from Alaska to Vermont to South Carol<strong>in</strong>a, to enhance domestic publicaw<strong>are</strong>ness of the <strong>traffick<strong>in</strong>g</strong> issue <strong>and</strong>/or participate <strong>in</strong> tra<strong>in</strong><strong>in</strong>g courses <strong>and</strong> conferencesfor U.S. government officials.We <strong>are</strong> work<strong>in</strong>g to <strong>in</strong>stitutionalize anti-<strong>traffick<strong>in</strong>g</strong> tra<strong>in</strong><strong>in</strong>g for our foreign <strong>and</strong>civil service officers, ambassadors, <strong>and</strong> other U.S. government officials. For example,<strong>we</strong> recently did a presentation on the scope <strong>and</strong> magnitude of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> Vermontas part of a program for INS personnel who will be adjudicat<strong>in</strong>g T Visa applications.CLOSINGThe United States Government, <strong>and</strong> Congress’ enactment of the Victims of Traffick<strong>in</strong>g<strong>and</strong> Violence Protection Act of 2000, put the spotlight on this human rights<strong>and</strong> crim<strong>in</strong>al problem. As a result of our leadership, <strong>in</strong> many cases governments <strong>are</strong>tak<strong>in</strong>g action to eradicate this crime <strong>and</strong> to help its victims. The success of our effortswill be determ<strong>in</strong>ed by the extent to which the fight aga<strong>in</strong>st <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> assistanceto its victims becomes <strong>in</strong>stitutionalized <strong>in</strong> civil society <strong>and</strong> governments allover the world.I thank you for the opportunity to sh<strong>are</strong> our efforts <strong>and</strong> progress, <strong>and</strong> look forwardto our cont<strong>in</strong>ued collaboration.Thank you.Senator WELLSTONE. Thank you very much. You made the yellowlight, broke a record for all of us.Dr. Hanh.STATEMENT OF NGUYEN VAN HANH, PH.D., DIRECTOR, OF-FICE OF REFUGEE RESETTLEMENT, DEPARTMENT OFHEALTH AND HUMAN SERVICES, WASHINGTON, DCDr. HANH. Mr. Chairman <strong>and</strong> dist<strong>in</strong>guished members of the committee,thank you for the opportunity to testify on the progress ofthe Department of Health <strong>and</strong> Human Services [HHS], <strong>in</strong> implement<strong>in</strong>gthe Traffick<strong>in</strong>g Victims Protection Act of 2000. With yourpermission, my full testimony has been submitted for the record.Senator WELLSTONE. It will be <strong>in</strong>cluded <strong>in</strong> the record.Dr. HANH. The follow<strong>in</strong>g is my brief statement.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00030 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
27As evidenced by this panel, HHS is only one of the many Federalagencies play<strong>in</strong>g a role <strong>in</strong> efforts to combat human <strong>traffick<strong>in</strong>g</strong>.Given the complexity of participat<strong>in</strong>g <strong>in</strong> such a multi-agency endeavor,I am pleased at the progress that has been made <strong>and</strong> I amcommitted to cont<strong>in</strong>u<strong>in</strong>g our efforts to implement the law <strong>in</strong> conjunctionwith the other key Federal agencies.The Traffick<strong>in</strong>g Victims Protection Act makes adult victims of severeforms of <strong>traffick<strong>in</strong>g</strong>, who have been certified HHS, eligible forcerta<strong>in</strong> benefits <strong>and</strong> services to the same extent as refugees. Victimsof severe forms of <strong>traffick<strong>in</strong>g</strong> who <strong>are</strong> under 18 years of agealso <strong>are</strong> eligible for these benefits to the same extent as refugees,but do not need to be certified. Rather, these young victims receiveletters of eligibility for services.HHS has developed a systematic approach to the certification of<strong>traffick<strong>in</strong>g</strong> victims <strong>and</strong> the facilitation of their access to benefits<strong>and</strong> services. We consult frequently with the U.S. Department ofJustice, the agency that <strong>in</strong>vestigates <strong>and</strong> prosecutes <strong>traffick<strong>in</strong>g</strong>cases <strong>and</strong> refers appropriate cases to my office for certification. Wealso coord<strong>in</strong>ate with the U.S. attorneys’ offices around the countryon <strong>traffick<strong>in</strong>g</strong> cases, as <strong>we</strong>ll as other Federal law enforcement officialsfrom the Department of Labor <strong>and</strong> Immigration <strong>and</strong> NaturalizationService [INS].Once <strong>we</strong> receive a referral, <strong>in</strong> order for us to issue a letter of certification,<strong>we</strong> must ensure that the victim has met all of the criteri<strong>are</strong>quired by the act. Adult victims must either have beengranted cont<strong>in</strong>ued presence or have received a bona fide T-visa applicationdeterm<strong>in</strong>ation by INS. In addition, adult <strong>traffick<strong>in</strong>g</strong> victimsmust be will<strong>in</strong>g to assist <strong>in</strong> every reasonable way <strong>in</strong> the <strong>in</strong>vestigation<strong>and</strong> prosecution of traffickers. F<strong>in</strong>ally, <strong>in</strong>dividuals must bedeterm<strong>in</strong>ed to be victims of a severe form of <strong>traffick<strong>in</strong>g</strong>.If the appropriate criteria <strong>are</strong> met, then <strong>we</strong> will provide a certificationletter to adult victims safely <strong>and</strong> without breaches of confidentiality.In addition, <strong>we</strong> contact local refugee service providers<strong>and</strong> other benefit-grant<strong>in</strong>g agencies to identify the most appropriatelocal programs to help the victims.We also work with the INS to coord<strong>in</strong>ate access to employmentauthorization documents, or EAD’s. If a victim has an EAD, he orshe may be eligible to enroll <strong>in</strong> programs which emphasize employment.One of these programs, the match<strong>in</strong>g grant program, is designedto help refugees <strong>and</strong> now <strong>traffick<strong>in</strong>g</strong> victims to obta<strong>in</strong> selfsufficiencywith<strong>in</strong> 4 months.No group of <strong>in</strong>dividuals is more fragile <strong>and</strong> susceptible than victimswho <strong>are</strong> under the age of 18, especially when the m<strong>in</strong>ors <strong>are</strong>unaccompanied by a p<strong>are</strong>nt or guardian. We <strong>are</strong> develop<strong>in</strong>g proceduresto provide the best options for these victims, who not onlyneed to beg<strong>in</strong> their recovery from their traumatic experiences butalso require resolution of their custody.In fiscal year 2001, <strong>we</strong> issued 194 certification letters to adults<strong>and</strong> 4 eligibility letters to m<strong>in</strong>ors under the age of 18. S<strong>in</strong>ce the beg<strong>in</strong>n<strong>in</strong>gof fiscal year 2002, 17 more certification letters for adultshave been sent <strong>and</strong> 5 additional m<strong>in</strong>ors have received letters of eligibility.If you will allow me a couple of m<strong>in</strong>utes, I would like to clarifya couple po<strong>in</strong>ts here.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00031 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
28In addition to certification <strong>and</strong> assistance activities, the Traffick<strong>in</strong>gVictims Protection Act calls for HHS, <strong>in</strong> collaboration withother designated Federal agencies, to establish <strong>and</strong> carry out programsto <strong>in</strong>crease public aw<strong>are</strong>ness about <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>. Tothat end, <strong>we</strong> have been actively <strong>in</strong>volved with outreach effortsaimed at immigrant <strong>and</strong> refugee communities, non-governmentalorganizations, voluntary agencies, state <strong>and</strong> local social service providers,<strong>and</strong> other Federal <strong>and</strong> state officials.Clearly, the <strong>traffick<strong>in</strong>g</strong> program requires a close work<strong>in</strong>g relationshipamong many departments. HHS Deputy Secretary ClaudeAllen recently participated <strong>in</strong> the <strong>in</strong>augural meet<strong>in</strong>g of the President’sInteragency Task Force on Traffick<strong>in</strong>g, chaired by Secretaryof State Col<strong>in</strong> Po<strong>we</strong>ll, re<strong>in</strong>forc<strong>in</strong>g our commitment to work togetheron this critical effort.In fiscal year 2001, <strong>we</strong> awarded more than $1.25 million <strong>in</strong> discretionarygrants to aid organizations throughout the UnitedStates. The grants provide groups the means to assist certified <strong>and</strong>/or eligible victims of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> order to enhance their transitionfrom victimization to self-sufficiency. In addition, these <strong>traffick<strong>in</strong>g</strong>grant funds may also be used to fund other services needed dur<strong>in</strong>gthe time bet<strong>we</strong>en the date of HHS certification/eligibility letters<strong>and</strong> the receipt of public benefits <strong>and</strong> support services.I want to thank the committee for offer<strong>in</strong>g me the opportunityto outl<strong>in</strong>e HHS’ response to the problem of human <strong>traffick<strong>in</strong>g</strong>.Thank you.[The prep<strong>are</strong>d statement of Dr. Hanh follows:]PREPARED STATEMENT OF NGUYEN VAN HANH, PH.D., DIRECTOR, OFFICE OF REF-UGEE RESETTLEMENT, ADMINISTRATION FOR CHILDREN AND FAMILIES, DEPARTMENTOF HEALTH AND HUMAN SERVICESMr. Chairman <strong>and</strong> dist<strong>in</strong>guished members of the Committee, thank you for theopportunity to testify on the progress of the Department of Health <strong>and</strong> HumanServices (HHS) <strong>in</strong> implement<strong>in</strong>g the Traffick<strong>in</strong>g Victims Protection Act of 2000. Asthe Director of the Office of Refugee Resettlement (ORR), with<strong>in</strong> the Adm<strong>in</strong>istrationfor Children <strong>and</strong> Families, I am responsible for implementation of several provisions<strong>in</strong> the Traffick<strong>in</strong>g program which I will discuss today. I want to assure you that theDepartment of Health <strong>and</strong> Human Services is fully committed to implement<strong>in</strong>g thisimportant legislation to protect <strong>and</strong> assist <strong>traffick<strong>in</strong>g</strong> victims as part of the fightaga<strong>in</strong>st the atrocity of human <strong>traffick<strong>in</strong>g</strong>.S<strong>in</strong>ce enactment of the law, HHS has acted quickly to implement our responsibilitiesunder the Act, keep<strong>in</strong>g <strong>in</strong> m<strong>in</strong>d that beh<strong>in</strong>d our paper processes <strong>are</strong> vulnerablehuman be<strong>in</strong>gs who have been subjected to severe physical <strong>and</strong> emotional cruelty.These <strong>traffick<strong>in</strong>g</strong> victims <strong>are</strong> frequently <strong>in</strong> desperate need of assistance, <strong>and</strong> HHShas worked diligently to see that once someone is determ<strong>in</strong>ed to be a victim, no timeis wasted <strong>in</strong> l<strong>in</strong>k<strong>in</strong>g them up with necessary benefits <strong>and</strong> services.HHS is determ<strong>in</strong>ed to see that victims <strong>are</strong> given the opportunity to rega<strong>in</strong> theirdignity—by emphasiz<strong>in</strong>g benefit programs ge<strong>are</strong>d toward build<strong>in</strong>g self-sufficiency,rather than dependency. It has been our experience to date that this approach iswhat most <strong>traffick<strong>in</strong>g</strong> victims prefer. When victims <strong>are</strong> empo<strong>we</strong>red to ga<strong>in</strong> back controlof their own lives, everyone w<strong>in</strong>s.HHS is only one of many federal agencies play<strong>in</strong>g a role <strong>in</strong> efforts to combathuman <strong>traffick<strong>in</strong>g</strong>. Given the complexity of participat<strong>in</strong>g <strong>in</strong> such a multi-agency endeavor,I am pleased at the progress that has been made <strong>and</strong> will commit to cont<strong>in</strong>u<strong>in</strong>gour efforts to implement the law <strong>in</strong> conjunction with the other key federalagencies. Before speak<strong>in</strong>g to our progress, <strong>how</strong>ever, I would like to provide a briefoverview of the Traffick<strong>in</strong>g Victims Protection Act <strong>and</strong> our Department’s role <strong>in</strong> itsimplementation.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00032 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
29I. BACKGROUNDThe Traffick<strong>in</strong>g Victims Protection Act of 2000 makes adult victims of severeforms of <strong>traffick<strong>in</strong>g</strong>, who have been certified by HHS after consultation with the AttorneyGeneral, eligible for certa<strong>in</strong> benefits <strong>and</strong> services to the same extent as refugees.Victims of severe forms of <strong>traffick<strong>in</strong>g</strong> who <strong>are</strong> under 18 years of age also <strong>are</strong>eligible for these benefits to the same extent as refugees but do not need to be certified.‘‘Severe forms of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>’’ is def<strong>in</strong>ed under the Act to mean: 1) sex<strong>traffick<strong>in</strong>g</strong> <strong>in</strong> which a commercial sex act is <strong>in</strong>duced by force, fraud, or coercion, or<strong>in</strong> which the person <strong>in</strong>duced to perform such act is under 18 years of age; or 2) therecruitment, harbor<strong>in</strong>g, transportation, provision, or obta<strong>in</strong><strong>in</strong>g of a person for laboror services, through the use of force, fraud, or coercion for the purpose of subjectionto <strong>in</strong>voluntary servitude, peonage, debt bondage, or slavery.I would like to turn now to our efforts to implement the certification requirementsunder the <strong>traffick<strong>in</strong>g</strong> program.II. CERTIFICATION AND VICTIM ASSISTANCEHHS has been actively <strong>in</strong>volved <strong>in</strong> develop<strong>in</strong>g policies <strong>and</strong> procedures related tocertify<strong>in</strong>g <strong>in</strong>dividuals who <strong>are</strong> determ<strong>in</strong>ed to be victims of a severe form of <strong>traffick<strong>in</strong>g</strong>,<strong>and</strong> mak<strong>in</strong>g victims eligible to access federal <strong>and</strong> certa<strong>in</strong> state benefits <strong>and</strong>services to the same extent as refugees.HHS has developed a systematic approach to the certification of <strong>traffick<strong>in</strong>g</strong> victims<strong>and</strong> the facilitation of their access to benefits <strong>and</strong> services. We consult on adaily basis with staff at the U.S. Department of Justice, the agency that <strong>in</strong>vestigates<strong>and</strong> prosecutes <strong>traffick<strong>in</strong>g</strong> cases <strong>and</strong> refers appropriate cases to my office forcertification. We also coord<strong>in</strong>ate with U.S. Attorneys’ Offices around the country on<strong>traffick<strong>in</strong>g</strong> cases as <strong>we</strong>ll as other federal law enforcement officials from the Departmentof Labor <strong>and</strong> Immigration <strong>and</strong> Naturalization Service.Once a referral is received, <strong>we</strong> must ensure that the victim has met all the criteri<strong>are</strong>quired by the Act <strong>in</strong> order to be certified. Adult victims must either havebeen granted cont<strong>in</strong>ued presence or have received a bonafide T-visa application determ<strong>in</strong>ationby INS. In addition, adult <strong>traffick<strong>in</strong>g</strong> victims must be will<strong>in</strong>g to assist<strong>in</strong> every reasonable way <strong>in</strong> the <strong>in</strong>vestigation <strong>and</strong> prosecution of severe forms of <strong>traffick<strong>in</strong>g</strong><strong>in</strong> <strong>persons</strong>. F<strong>in</strong>ally, <strong>in</strong>dividuals must be determ<strong>in</strong>ed to be victims of a severeform of <strong>traffick<strong>in</strong>g</strong>. Individuals under the age of 18 only need to be determ<strong>in</strong>ed tobe victims of a severe form of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> order to be eligible to access federal <strong>and</strong>certa<strong>in</strong> state benefits <strong>and</strong> services to the same extent as refugees.If the appropriate criteria <strong>are</strong> met, then a certification letter will be provided tovictims safely <strong>and</strong> without breaches of confidentiality. In addition, <strong>we</strong> contact localrefugee service providers <strong>and</strong> other benefit-grant<strong>in</strong>g agencies to <strong>in</strong>quire about appropriatelocal programs to help the victims. Many victims <strong>are</strong> <strong>in</strong> need of psychologicalcounsel<strong>in</strong>g, medical assistance <strong>and</strong> legal referrals.Further, <strong>we</strong> work with the Immigration <strong>and</strong> Naturalization Service (INS) to coord<strong>in</strong>ateaccess to Employment Authorization Documents (EADs). I am very pleasedthat INS recently decided that EADs for victims whose cont<strong>in</strong>ued presence is necessaryto effectuate the prosecution of traffickers will be processed <strong>and</strong> issued centrally.This decision means that every victim will receive cont<strong>in</strong>ued presence <strong>and</strong>his/her EAD at the same time. The EAD is a critical document because it permitseligible victims to work, which, <strong>in</strong> turn, leads towards self-sufficiency <strong>and</strong> improvedself-esteem. If a victim has an EAD, she/he may be eligible to enroll <strong>in</strong> programs,such as ORR’s Voluntary Agency Match Grant Program, which emphasize employment.The <strong>in</strong>creased stability that employment provides better prep<strong>are</strong>s victims toassist <strong>in</strong> the prosecution of the traffickers.I am also heartened by the recent issuance of the T-visa regulations by the Departmentof Justice. Victims whose application for a T-visa is determ<strong>in</strong>ed by INSto be bonafide, <strong>and</strong> who <strong>are</strong> will<strong>in</strong>g to cooperate with prosecution efforts, <strong>are</strong> eligiblefor HHS certification. Creat<strong>in</strong>g a process by which victims may work towards normaliz<strong>in</strong>gtheir immigration status while simultaneously mak<strong>in</strong>g them eligible forbenefits, encourages victims to develop stability <strong>in</strong> their lives <strong>and</strong> ga<strong>in</strong> trust <strong>in</strong> theAmerican justice system.No group of <strong>in</strong>dividuals is more fragile <strong>and</strong> susceptible than victims who <strong>are</strong>under the age of 18, especially when the m<strong>in</strong>ors <strong>are</strong> unaccompanied by a p<strong>are</strong>nt orguardian. We <strong>are</strong> develop<strong>in</strong>g procedures to provide the best options for these victims,who not only need to beg<strong>in</strong> their recovery from their traumatic experiencesbut also require resolution of their custody. Our goal is to ensure that all m<strong>in</strong>orswho <strong>are</strong> victims of a severe form of <strong>traffick<strong>in</strong>g</strong> come forward <strong>and</strong> receive the protection<strong>and</strong> assistance they need.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00033 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
30Through regular contact with refugee service providers <strong>and</strong> other agencies assist<strong>in</strong>g<strong>traffick<strong>in</strong>g</strong> victims, <strong>we</strong> cont<strong>in</strong>ue to learn a great deal about the certified <strong>traffick<strong>in</strong>g</strong>population <strong>in</strong> the United States today. In FY 2001, ORR issued 194 certificationletters to adults <strong>and</strong> 4 eligibility letters to m<strong>in</strong>ors under the age of 18. S<strong>in</strong>cethe beg<strong>in</strong>n<strong>in</strong>g of fiscal year 2002, 17 more certification letters for adults have beensent, <strong>and</strong> five additional m<strong>in</strong>ors have received letters of eligibility.The majority of victims, 82 percent, <strong>are</strong> female, while 39 victims, 18 percent, <strong>are</strong>men. Although the 220 victims have come from a variety of countries, a disproportionatenumber <strong>are</strong> from Vietnam. The Vietnamese victims <strong>we</strong>re all <strong>in</strong>volved <strong>in</strong> as<strong>in</strong>gle case <strong>in</strong> which garment workers, who believed they <strong>we</strong>re com<strong>in</strong>g to work <strong>in</strong>a U.S. factory, <strong>we</strong>re held <strong>in</strong> slavery-like conditions with their freedom of movementrestricted <strong>and</strong>, <strong>in</strong> some <strong>in</strong>stances, suffered physical abuse.Victims have also come from Bangladesh, Brazil, Cameroon, Ch<strong>in</strong>a, India, Jamaica,Mexico, Micronesia, Russia <strong>and</strong> Sri Lanka. Some of the victims <strong>we</strong>re forced<strong>in</strong>to a form of <strong>in</strong>voluntary domestic servitude, forced to stay <strong>in</strong> the trafficker’shouse, suffer<strong>in</strong>g physical abuse <strong>and</strong> receiv<strong>in</strong>g no compensation for their work. Othervictims <strong>we</strong>re forced to work <strong>in</strong> the sex <strong>in</strong>dustry. In many of these cases, traffickerstook the victims’ immigration documents, restricted victims’ freedom of movement,physically abused them <strong>and</strong> did not provide payment for work.Victims <strong>are</strong> located throughout the United States. In all, certification/eligibilityletters have been sent to benefit-issu<strong>in</strong>g offices <strong>in</strong> 19 states plus the District of Columbia.Despite the hardships that these victims have suffered, many have beenable to successfully participate <strong>in</strong> the refugee assistance program called the VoluntaryAgency Match Grant Program. This program is designed to help refugees,<strong>and</strong> now <strong>traffick<strong>in</strong>g</strong> victims, atta<strong>in</strong> self-sufficiency with<strong>in</strong> four months. The programemphasizes employment, English language tra<strong>in</strong><strong>in</strong>g <strong>and</strong> cultural orientation.Dur<strong>in</strong>g FY2001, 34 percent of the victims applied for food stamps, while 21 percentapplied for Refugee Cash Assistance <strong>and</strong> 35 percent applied for Refugee MedicalAssistance. Less than one percent of victims applied for Temporary Assistancefor Needy Families (TANF) <strong>and</strong> Supplemental Security Income (SSI). The low applicationrates for TANF <strong>and</strong> SSI benefits <strong>are</strong> reflective of the fact that the overwhelm<strong>in</strong>gmajority of certified/eligible victims <strong>are</strong> relatively young, employable s<strong>in</strong>gleadults with no children.III. OUTREACH ACTIVITIESIn addition to certification <strong>and</strong> assistance activities, the Traffick<strong>in</strong>g Victims ProtectionAct calls for HHS, <strong>in</strong> collaboration with other designated federal agencies,to establish <strong>and</strong> carry out programs to <strong>in</strong>crease public aw<strong>are</strong>ness about <strong>traffick<strong>in</strong>g</strong><strong>in</strong> <strong>persons</strong>. To that end, <strong>we</strong> have been actively <strong>in</strong>volved <strong>in</strong> outreach efforts aimedat immigrant <strong>and</strong> refugee communities, non-governmental organizations, voluntaryagencies, state <strong>and</strong> local social service providers, state <strong>and</strong> local law enforcement,the general public, <strong>and</strong> other federal <strong>and</strong> state government officials.HHS is develop<strong>in</strong>g plans to conduct a public aw<strong>are</strong>ness campaign designed toraise aw<strong>are</strong>ness about <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong> <strong>and</strong> to encourage victims to step forward<strong>and</strong> seek help. HHS will cont<strong>in</strong>ue to work with our federal counterparts to ensure<strong>traffick<strong>in</strong>g</strong> victims receive all the benefits they <strong>are</strong> eligible for through the certificationprocess. To further that end, <strong>we</strong> have facilitated tra<strong>in</strong><strong>in</strong>g <strong>and</strong> given presentations<strong>in</strong> a variety of organized forums, reach<strong>in</strong>g out to more than 1,400 <strong>in</strong>dividuals<strong>and</strong> organizations. These sessions focused on the problem of <strong>traffick<strong>in</strong>g</strong>, backgroundof the legislation, the roles <strong>and</strong> responsibilities of HHS with<strong>in</strong> the law, therole of benefit-issu<strong>in</strong>g offices with<strong>in</strong> the HHS certification process, <strong>and</strong> the benefits<strong>and</strong> services available to certified/eligible <strong>traffick<strong>in</strong>g</strong> victims.Clearly, the <strong>traffick<strong>in</strong>g</strong> program requires a close work<strong>in</strong>g relationship amongmany cab<strong>in</strong>et departments. HHS Deputy Secretary Claude Allen recently participated<strong>in</strong> the <strong>in</strong>augural meet<strong>in</strong>g of the President’s Interagency Task Force on Traffick<strong>in</strong>g,chaired by Secretary of State Col<strong>in</strong> Po<strong>we</strong>ll, re<strong>in</strong>forc<strong>in</strong>g our commitment towork together on this critical effort. In addition, <strong>we</strong> have participated <strong>in</strong> an <strong>in</strong>teragencywork<strong>in</strong>g group that drafted a ‘‘<strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>’’ brochure designed forwide dissem<strong>in</strong>ation to nongovernmental organizations. The brochure focuses on theneeds of <strong>traffick<strong>in</strong>g</strong> victims <strong>and</strong> what non-governmental organizations can do to assistthem.IV. DISCRETIONARY GRANTSThe last implementation activity I would like to address is ORR discretionarygrants. In FY 2001, <strong>we</strong> awarded more than $1.25 million <strong>in</strong> 17-month discretionarygrants to eight organizations throughout the United States. The grants providethese non-governmental groups the means to assist certified <strong>and</strong>/or eligible victimsVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00034 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
31of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> order to enhance their transition from victimization to self-sufficiency.Grant funds may be used for a wide range of services, <strong>in</strong>clud<strong>in</strong>g case management,temporary hous<strong>in</strong>g, special mental health needs (such as trauma counsel<strong>in</strong>g),legal assistance referrals, <strong>and</strong> cultural orientation. These grant funds alsomay be used to fund other services needed dur<strong>in</strong>g the time bet<strong>we</strong>en the date of HHScertification/eligibility letters <strong>and</strong> the receipt of public benefits <strong>and</strong> support services.We <strong>are</strong> pleased with the efforts of our grantees to date <strong>in</strong> f<strong>in</strong>d<strong>in</strong>g ways to addressthe needs of <strong>traffick<strong>in</strong>g</strong> victims, reach<strong>in</strong>g out to community groups, <strong>and</strong> develop<strong>in</strong>ga grow<strong>in</strong>g network of service providers <strong>and</strong> law enforcement agencies who <strong>are</strong> committedto provid<strong>in</strong>g assistance to <strong>traffick<strong>in</strong>g</strong> victims. Because of our successful experienceso far work<strong>in</strong>g with these grantees, <strong>we</strong> plan to issue another grant announcement<strong>in</strong> the current fiscal year to provide additional opportunities <strong>and</strong> exp<strong>and</strong> effortsto reach out to <strong>in</strong>creas<strong>in</strong>g numbers of <strong>traffick<strong>in</strong>g</strong> victims.V. CONCLUSIONAs important as <strong>are</strong> the steps <strong>we</strong> have taken so far, <strong>we</strong> know that there <strong>are</strong> stilla large number of victims trafficked annually <strong>in</strong>to the United States. Our experienceso far has made it clear <strong>how</strong> important it is to provide the right type of assistanceto victims. We need to help victims underst<strong>and</strong> that com<strong>in</strong>g forward will result not<strong>in</strong> further victimization, but <strong>in</strong> their be<strong>in</strong>g made safe <strong>and</strong> provided with help.We <strong>are</strong> committed to cont<strong>in</strong>u<strong>in</strong>g our close relationships work<strong>in</strong>g with our fellowfederal agencies <strong>and</strong> ensur<strong>in</strong>g that <strong>we</strong> <strong>in</strong>crease the communication to <strong>traffick<strong>in</strong>g</strong> victimsthat <strong>we</strong> will protect them <strong>and</strong> will provide them with supportive services. Ifsuccessful, our model will be important not only for victims <strong>in</strong> the United Statesbut also for <strong>traffick<strong>in</strong>g</strong> victims throughout the world.I want to thank the committee for offer<strong>in</strong>g me the opportunity to outl<strong>in</strong>e HHS’response to the problem of human <strong>traffick<strong>in</strong>g</strong>. At this time I’d be glad to addressany questions you may have.Senator WELLSTONE. Thank you very much, Dr. Hanh, <strong>and</strong> toyou too, Ambassador Ely-Raphel.Let me start with Ambassador Ely-Raphel because of the remarksthat I made <strong>in</strong> my open<strong>in</strong>g statement. One of the concernsthat I have, as you know, <strong>in</strong> the spirit of ‘‘<strong>we</strong> can do better,’’ is theimportance of your office really br<strong>in</strong>g<strong>in</strong>g the agencies together <strong>and</strong>hav<strong>in</strong>g a clear focus, clear benchmarks. It appears to me that a lotof your effort has been toward <strong>combat<strong>in</strong>g</strong> <strong>traffick<strong>in</strong>g</strong> <strong>in</strong>ternationally,which is, of course, important. I am <strong>in</strong>terested, <strong>in</strong> my question<strong>in</strong>g,<strong>in</strong> what efforts <strong>are</strong> underway to fight the <strong>traffick<strong>in</strong>g</strong> domestically.How many meet<strong>in</strong>gs have you had with staff from DOJ<strong>and</strong> HHS <strong>and</strong> Labor? Do you have a coord<strong>in</strong>ated strategy so theprograms do not duplicate each other? Have you established somebenchmarks whereby <strong>we</strong> can evaluate the programs?Ms. ELY-RAPHEL. Mr. Chairman, I could say I am <strong>in</strong> almost constantcommunication with the Department of Justice, with the Departmentof Labor <strong>and</strong> the Department of HHS. We have had <strong>in</strong>numerablemeet<strong>in</strong>gs, not only the task force meet<strong>in</strong>gs, but any numberof meet<strong>in</strong>gs. The Justice Department co-chairs meet<strong>in</strong>gs withthe Solicitor of Labor on victim exploitation <strong>and</strong> <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>.We have participated <strong>in</strong> all the meet<strong>in</strong>gs that they have held.Senator WELLSTONE. Maybe I am just mis<strong>in</strong>formed. My impressionis that the actual br<strong>in</strong>g<strong>in</strong>g together all of the different agenciesfor an <strong>in</strong>teragency meet<strong>in</strong>g, that you have had just one of thesemeet<strong>in</strong>gs. Am I wrong?Ms. ELY-RAPHEL. We had one large meet<strong>in</strong>g just before——Senator WELLSTONE. When was that?Ms. ELY-RAPHEL. But <strong>we</strong> have had <strong>in</strong>numerable meet<strong>in</strong>gs withall the agencies.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00035 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
32Senator WELLSTONE. No, I underst<strong>and</strong> you talk with differentpeople, but I am talk<strong>in</strong>g about br<strong>in</strong>g<strong>in</strong>g people together, do<strong>in</strong>g thecoord<strong>in</strong>ation, do<strong>in</strong>g the focus. You <strong>are</strong> key to that.When have you brought everybody together from all the agencieswhere you had an <strong>in</strong>teragency meet<strong>in</strong>g, you chair, you coord<strong>in</strong>ate?Was that this past <strong>we</strong>ek?Ms. ELY-RAPHEL. We had one this <strong>we</strong>ek. We had one the <strong>we</strong>ekbefore that that the Secretary chaired, <strong>and</strong> <strong>we</strong> had one about 2<strong>we</strong>eks before that <strong>and</strong> <strong>we</strong> have had a number of meet<strong>in</strong>gs <strong>in</strong> bet<strong>we</strong>en.So, I th<strong>in</strong>k <strong>we</strong> <strong>are</strong> do<strong>in</strong>g a lot of coord<strong>in</strong>at<strong>in</strong>g <strong>and</strong> a lot ofmeet<strong>in</strong>g. You talked with my colleagues from the other departments.I th<strong>in</strong>k they may be gett<strong>in</strong>g tired of see<strong>in</strong>g me <strong>and</strong> hear<strong>in</strong>gmy voice.Senator WELLSTONE. I do not want to say that is good.Have you met regularly with the NGOs <strong>and</strong> some of the <strong>traffick<strong>in</strong>g</strong>victims?Ms. ELY-RAPHEL. We have. We had all the NGOs—I met with allof them when I first began this job <strong>in</strong> acquir<strong>in</strong>g <strong>in</strong>formation as towhat they thought <strong>we</strong> should do to improve the report before <strong>we</strong>send out our cable to all our embassies ask<strong>in</strong>g for <strong>in</strong>formation onthe reports. I met with them subsequently. In fact, yesterday Ispoke to a whole group of NGOs on <strong>traffick<strong>in</strong>g</strong>.Senator WELLSTONE. Ambassador Ely-Raphel, so if I met withthe NGOs—our office is close to them—<strong>and</strong> I say do you feel likethis Office of Traffick<strong>in</strong>g is reach<strong>in</strong>g out, meet<strong>in</strong>g with you <strong>in</strong> regularconsultation, their ans<strong>we</strong>r will be yes?Ms. ELY-RAPHEL. I hope so, <strong>and</strong> if not, <strong>we</strong> will be very happy tomeet with them more often. My door is always open to all theNGOs.Senator WELLSTONE. That is very responsive <strong>and</strong> I thank you.Do you plan to release an <strong>in</strong>terim report on the progress made?I th<strong>in</strong>k you know some of these questions that <strong>are</strong> com<strong>in</strong>g. It is justgood to get your ans<strong>we</strong>r on the record. Tier 1, 2, <strong>and</strong> 3, <strong>and</strong> <strong>in</strong> particularwith the 3 countries, I am <strong>in</strong>terested <strong>in</strong> whether or not anyof those countries have now made some positive steps <strong>and</strong> <strong>are</strong> nowmore cooperative <strong>in</strong> light of the report.Ms. ELY-RAPHEL. Well, I th<strong>in</strong>k the country that drew the mostattention of all probably was South Korea that was on tier 3. Wehave met with the South Korean Government from the highest levels.They presented us with a great deal of <strong>in</strong>formation. They tooktheir place <strong>in</strong> the report very, very seriously <strong>and</strong>, <strong>in</strong>deed, <strong>are</strong> a rolemodel for the way states should react to the situation. As I <strong>in</strong>dicatedto their M<strong>in</strong>ister whom I met with when I was <strong>in</strong> Indonesia,I would give them a tremendous amount of credit as would anyother members of the adm<strong>in</strong>istration, the State Department, forwhat they <strong>we</strong>re do<strong>in</strong>g, but <strong>we</strong> <strong>we</strong>re very close to issu<strong>in</strong>g the nextreport, which will come out <strong>in</strong> June, <strong>and</strong> I have been compliment<strong>in</strong>gthe South Koreans on the role that they have taken <strong>in</strong>do<strong>in</strong>g this.Senator WELLSTONE. The next report will be out <strong>in</strong> June?Ms. ELY-RAPHEL. And the next report will be out <strong>in</strong> June. So, the<strong>in</strong>formation is com<strong>in</strong>g <strong>in</strong> now.Senator WELLSTONE. As to progress made by tier 1, 2, <strong>and</strong> 3?VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00036 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
33Ms. ELY-RAPHEL. And similarly, there have been other countriesas <strong>we</strong>ll that <strong>we</strong>re on tier 3 that have come <strong>in</strong> <strong>and</strong> made major efforts.Senator WELLSTONE. Thank you. I will just keep mov<strong>in</strong>g along.I said this earlier <strong>and</strong> I was wonder<strong>in</strong>g about your response. Iwas say<strong>in</strong>g <strong>we</strong> have got the CIA with an estimate of 50,000 victimsthat <strong>are</strong> trafficked <strong>in</strong> the United States per year. The adm<strong>in</strong>istrationhas identified fe<strong>we</strong>r than 250 victims. Do you have any datathat you can present to us as to what <strong>we</strong> <strong>are</strong> deal<strong>in</strong>g with here,the magnitude of the problem <strong>in</strong> our own country? In other words,I am for the global part, but then when <strong>we</strong> hear a report of womenfrom Ukra<strong>in</strong>e forced <strong>in</strong>to prostitution 2 miles from here <strong>in</strong> Bethesda,I th<strong>in</strong>k <strong>we</strong> better make sure <strong>we</strong> get it right here too. Doyou have any data as to the magnitude of the problem <strong>we</strong> <strong>are</strong> deal<strong>in</strong>gwith here <strong>in</strong> our own country?Ms. ELY-RAPHEL. I know the figures that <strong>we</strong> use for the UnitedStates. I am not confident that <strong>we</strong> have the right figures. In manyrespects, when I go around talk<strong>in</strong>g to people, I feel like it is thetip of the iceberg, that it is much more serious than the figuresthat <strong>we</strong> have. I have been <strong>in</strong> communication with all the <strong>in</strong>telligenceagencies, <strong>and</strong> they have assured us that they <strong>are</strong> work<strong>in</strong>gon this <strong>and</strong> will provide us with better <strong>in</strong>formation.Senator WELLSTONE. Any help I th<strong>in</strong>k you could give us <strong>in</strong> present<strong>in</strong>gyour best estimate. I am not try<strong>in</strong>g to be snide bet<strong>we</strong>en50,000 <strong>and</strong> 250,000. So, any help you can give us, given your keyposition, giv<strong>in</strong>g us some sense of what the magnitude of the problemis would be much appreciated.F<strong>in</strong>ally, Dr. Hanh, because I will run out of time, I th<strong>in</strong>k you referredto the $10 million that you received for <strong>traffick<strong>in</strong>g</strong> victimservices. What <strong>are</strong> your plans for fund<strong>in</strong>g organizations that providethese victim services <strong>and</strong> also to tra<strong>in</strong> those organizations? Ith<strong>in</strong>k you referred to it but I was rush<strong>in</strong>g you along.Dr. HANH. Certa<strong>in</strong>ly out of the $10 million authorized <strong>we</strong> havespent $1.25 million for eight grants nationwide to help with provid<strong>in</strong>gservices, assistance to the victims. We also use the moneyfor staff<strong>in</strong>g <strong>and</strong> other services. We <strong>in</strong>tend to engage <strong>in</strong> grants tothe communities <strong>in</strong> anticipation of the exp<strong>and</strong>ed needs of servicesto the victims. We also, <strong>in</strong> particular, <strong>are</strong> plann<strong>in</strong>g for <strong>in</strong>creas<strong>in</strong>gaw<strong>are</strong>ness or a campaign for public aw<strong>are</strong>ness, if you wish, just tobe sure not only nonprofit organizations <strong>and</strong> community-based organizations<strong>are</strong> aw<strong>are</strong> of the issues, but also to encourage victims<strong>and</strong> others to come forward so that <strong>we</strong> have a better h<strong>and</strong>le on themagnitude of the problems <strong>and</strong> <strong>how</strong> to help the victims.Senator WELLSTONE. Thank you.Senator Brownback.Senator BROWNBACK. Thanks, Mr. Chairman, <strong>and</strong> thank youboth for be<strong>in</strong>g here to testify <strong>in</strong> front of us.Ambassador, you be<strong>in</strong>g the first person to head this office, youk<strong>in</strong>d of set the template for it, <strong>and</strong> so <strong>we</strong> wish you <strong>we</strong>ll <strong>and</strong> Godspeedon really sett<strong>in</strong>g an aggressive agenda.The first report that came out was excellent. It really lit a fireunder a number of places. I thought it was quite valuable.There has been some <strong>in</strong>ternal discussion go<strong>in</strong>g on about is theoffice just about issu<strong>in</strong>g a report or is it about advocacy <strong>and</strong> otherVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00037 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
34issues. My clear preference is for it to be a very aggressive advocacyoffice for elim<strong>in</strong>ation of <strong>in</strong>ternational <strong>traffick<strong>in</strong>g</strong>, this modernform of slavery. As you look at what your role is at the head of thisoffice, <strong>how</strong> would you put it <strong>in</strong> a couple of words?Ms. ELY-RAPHEL. Absolutely. I th<strong>in</strong>k it is advocacy. I th<strong>in</strong>k thereport gives us a wonderful tool to use, but <strong>in</strong> my conversations—<strong>and</strong> I met with many government officials, particularly at themeet<strong>in</strong>g <strong>in</strong> Indonesia. They had 31 M<strong>in</strong>isters there. They <strong>are</strong> all <strong>in</strong>terested<strong>in</strong> <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> they all seemed to be <strong>in</strong>terested <strong>in</strong> do<strong>in</strong>gsometh<strong>in</strong>g about it. So, I th<strong>in</strong>k <strong>we</strong> <strong>are</strong> gett<strong>in</strong>g their attention, butI th<strong>in</strong>k <strong>we</strong> just have to go back <strong>and</strong> work out country action plansthat will address the problems <strong>and</strong> try to go some way to resolvethem.Senator BROWNBACK. I would hope you would be on the road alot, not that I want to hurt your family life or anyth<strong>in</strong>g like that.But it seems like right now would be a very important time to beon the road, particularly with the second <strong>and</strong> third tier countries<strong>and</strong> go<strong>in</strong>g there <strong>and</strong> say<strong>in</strong>g, here is what <strong>we</strong> <strong>are</strong> look<strong>in</strong>g for <strong>and</strong><strong>we</strong> would like to get you off of be<strong>in</strong>g <strong>in</strong> the third tier. We <strong>are</strong> happyto work with you on this. I hope you would be out there a greatdeal.Ms. ELY-RAPHEL. That is exactly what I <strong>in</strong>tend to do <strong>and</strong> thatis exactly what <strong>we</strong> <strong>are</strong> hop<strong>in</strong>g <strong>we</strong> can work out with these countriesto encourage them to work with us, because if they <strong>are</strong> not<strong>in</strong>terested, <strong>we</strong> cannot do anyth<strong>in</strong>g for them. But if they <strong>are</strong> <strong>in</strong>terested<strong>in</strong> deal<strong>in</strong>g with the problem, it is such a great opportunityfor us.Senator BROWNBACK. I want to ask you about an aspect of thisthat I th<strong>in</strong>k is pretty tough to deal with, <strong>and</strong> I wonder <strong>how</strong> you<strong>are</strong> respond<strong>in</strong>g to it. You <strong>are</strong> a former Ambassador <strong>and</strong> haveworked overseas a great deal. You know the sensitivity of whathappens to families <strong>in</strong> that country. For <strong>in</strong>stance, if you <strong>are</strong> a girlwho has been trafficked from the Ukra<strong>in</strong>e, that organized crimemay have been a part of this, <strong>and</strong> that your family that rema<strong>in</strong>s<strong>in</strong> the Ukra<strong>in</strong>e is under a threat. We have heard about these sortof situations. We had some women who have been trafficked <strong>and</strong>reported that their families had been <strong>in</strong>timidated <strong>in</strong> their homecountry <strong>and</strong> that they could not speak out because of that <strong>in</strong>timidationtoward their own families. How do <strong>we</strong> address that issue forthem? How do you th<strong>in</strong>k <strong>we</strong> go about mak<strong>in</strong>g it safe for people tocome forward <strong>and</strong> speak out about what has happened to themback <strong>in</strong> their own countries?Ms. ELY-RAPHEL. Well, if they <strong>are</strong> a victim here <strong>in</strong> the UnitedStates <strong>and</strong> they <strong>are</strong> agree<strong>in</strong>g to cooperate with law enforcement,they would be eligible for a T-visa which would enable a womanto br<strong>in</strong>g her husb<strong>and</strong> <strong>and</strong> family here, or if it is a child, to br<strong>in</strong>gthe p<strong>are</strong>nts here.Senator BROWNBACK. What about the rest of the extended family?Ms. ELY-RAPHEL. It depends on what country <strong>we</strong> <strong>are</strong> deal<strong>in</strong>gwith. You mentioned Ukra<strong>in</strong>e. We do have a regional legal officer,a LEGATT, <strong>in</strong> the Ukra<strong>in</strong>e. And the Justice Department, if they<strong>we</strong>re issu<strong>in</strong>g the visa, would be <strong>in</strong> communication with ourLEGATT <strong>in</strong> the capital.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00038 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
35I know so much of it depends upon <strong>how</strong> good the law enforcementsituation is <strong>in</strong> the country. It would be easy, for example, forme <strong>in</strong> Slovenia because I know that when I would contact the police,they would be responsive immediately, but <strong>in</strong> other countriesof the world, it really depends on the law enforcement situation<strong>and</strong> the relationship that <strong>we</strong> have with them. But I know <strong>in</strong> southeasternEurope <strong>and</strong> central Europe, <strong>we</strong> do have legal attaches <strong>in</strong>many of those posts, so <strong>we</strong> have contacts that <strong>we</strong> can work with.Senator BROWNBACK. I th<strong>in</strong>k this is go<strong>in</strong>g to be a tough aspectof this problem, <strong>and</strong> the ans<strong>we</strong>rs that you develop may have to bebroader-based ans<strong>we</strong>rs than direct to a child or a husb<strong>and</strong>. It couldbe some extended family members that <strong>are</strong> be<strong>in</strong>g threatened agreat deal. And <strong>we</strong> <strong>are</strong> go<strong>in</strong>g to need to work with them. I th<strong>in</strong>k<strong>in</strong>itially, as <strong>we</strong> get <strong>in</strong>to this <strong>are</strong>a, <strong>we</strong> <strong>are</strong> go<strong>in</strong>g to have to makeit safe for people to come out of the dark, to be able to testifyaga<strong>in</strong>st organizations. I th<strong>in</strong>k particularly if it is a significant organizationthat is do<strong>in</strong>g <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> <strong>we</strong> really want to get atthem, <strong>we</strong> <strong>are</strong> probably go<strong>in</strong>g to have to work pretty broadly to getpeople to testify <strong>and</strong> provide some security for several memberswith<strong>in</strong> that family to work with them.Ms. ELY-RAPHEL. We have had tra<strong>in</strong><strong>in</strong>g programs, <strong>and</strong> <strong>in</strong> fact, Ith<strong>in</strong>k they had one <strong>in</strong> the Ukra<strong>in</strong>e on what witness protection isall about. But I do not th<strong>in</strong>k they have the facilities to implementit, but I th<strong>in</strong>k those k<strong>in</strong>ds of tra<strong>in</strong><strong>in</strong>g programs will be useful.We also have the FBI Academy which is <strong>in</strong> Budapest that tra<strong>in</strong>sa lot of the law enforcement people <strong>in</strong> that part of the world. Wehave some elsewhere. So that may be also an avenue because somuch of it is cooperation.Senator BROWNBACK. It is go<strong>in</strong>g to be a lot of cooperation.Thank you very much for your <strong>in</strong>itial efforts <strong>in</strong> this. We wantyou to be very aggressive on this because I th<strong>in</strong>k it is the right moment.Make hay while the sun is out, <strong>and</strong> I th<strong>in</strong>k really <strong>we</strong> havegot the sun sh<strong>in</strong><strong>in</strong>g <strong>in</strong> some of this <strong>are</strong>a <strong>and</strong> it is time for us toreally aggressively move forward. Thanks.Ms. ELY-RAPHEL. Thank you, Senator.Senator WELLSTONE. Before you all leave—<strong>and</strong> I thank both ofyou, <strong>and</strong> <strong>we</strong> will move right on to the next panel—I did want tosay to Ambassador Ely-Raphel—first of all, thanks to both of you.Senator Brownback was ask<strong>in</strong>g about advocacy, <strong>and</strong> I wanted tomention to you that this conference that is be<strong>in</strong>g set up on <strong>traffick<strong>in</strong>g</strong>,I know $1 million is go<strong>in</strong>g to this conference. It is a lot ofmoney <strong>and</strong> I hope that there will be a very strong focus on advocacyat the conference. Frankly, that is my first po<strong>in</strong>t.My second po<strong>in</strong>t is I can see a whole lot <strong>we</strong> need to do other thangett<strong>in</strong>g ready for a conference, <strong>and</strong> I will just express that to makethat part of the record. I th<strong>in</strong>k you hear me.Let me thank both of you very much for com<strong>in</strong>g today. Your workis much appreciated. Thank you.Ms. ELY-RAPHEL. Thank you, Mr. Chairman.Senator WELLSTONE. We will move on to the third panel. We <strong>are</strong>go<strong>in</strong>g to go <strong>in</strong> this order because Senator Brownback is go<strong>in</strong>g tohave to excuse himself a little bit before <strong>we</strong> <strong>are</strong> done. CarolSmolenski, who is coord<strong>in</strong>ator of the U.S. branch of End ChildProstitution <strong>and</strong> Traffick<strong>in</strong>g, follo<strong>we</strong>d by Mrs. Ann Jordan who isVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00039 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
36director of the Initiative Aga<strong>in</strong>st Traffick<strong>in</strong>g at the InternationalHuman Rights Law Group, <strong>and</strong> then Ms. Hae Jung Cho, who isproject director of the Coalition to Abolish Slavery & Traffick<strong>in</strong>g.I wanted to po<strong>in</strong>t out for the record that <strong>we</strong> have a wide varietyof perspectives <strong>in</strong> panelists here. I am not sure the panelists allagree with each others’ positions on every issue. I am not sure Iagree with the panelists’ positions on every issue. I know I do notagree with him on hardly any issues.Senator BROWNBACK. You <strong>are</strong> gett<strong>in</strong>g better.Senator WELLSTONE. You <strong>are</strong> gett<strong>in</strong>g better.We thank all of you.Carol.STATEMENT OF CAROL SMOLENSKI, COORDINATOR, ENDCHILD PROSTITUTION AND TRAFFICKING-USA, NEW YORK, NYMs. SMOLENSKI. Thank you Mr. Chairman. My name is CarolSmolenski. I am the coord<strong>in</strong>ator of ECPAT-USA. ECPAT-USA isthe U.S. branch of ECPAT-International based <strong>in</strong> Bangkok. ECPATst<strong>and</strong>s for End Child Prostitution, Child Pornography, <strong>and</strong> Traffick<strong>in</strong>gof Children for Sexual Purposes.I am here to tell you someth<strong>in</strong>g about the problem of child sextourism, <strong>how</strong> it <strong>in</strong>tersects with the larger crime of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong><strong>persons</strong> <strong>and</strong> what can be done to stop it. It is the dem<strong>and</strong> side ofthe <strong>traffick<strong>in</strong>g</strong> problem that still needs to be addressed.ECPAT got its start <strong>in</strong> Asia <strong>in</strong> 1991 when some churches <strong>and</strong>children’s rights activists heard the results of a study about thesale <strong>and</strong> <strong>traffick<strong>in</strong>g</strong> of children with<strong>in</strong> Asia. What they learned wasshock<strong>in</strong>g <strong>and</strong> yet virtually unrecognized by the rest of the world,that uncounted numbers of children <strong>we</strong>re be<strong>in</strong>g forced <strong>in</strong>to the sex<strong>in</strong>dustry <strong>in</strong> Asia partly to meet the dem<strong>and</strong> of foreign sex touristsfrom all over the world.Initially focused on Thail<strong>and</strong>, Taiwan, Sri Lanka, <strong>and</strong> the Philipp<strong>in</strong>es,now ECPAT is a global organization focus<strong>in</strong>g on the commercialsexual exploitation of children <strong>in</strong> all its forms, not just <strong>in</strong>Asia, but around the world, <strong>in</strong>clud<strong>in</strong>g <strong>in</strong> the United States. We def<strong>in</strong>echildren as people under 18 years old, us<strong>in</strong>g the def<strong>in</strong>ition ofthe U.N. Convention on the Rights of the Child. It is generally acceptedthat there <strong>are</strong> at least 2 million sexually exploited children<strong>in</strong> the world, <strong>in</strong>clud<strong>in</strong>g both boys <strong>and</strong> girls.One reason, among the many, that people travel abroad is to experiencesometh<strong>in</strong>g of the local cultures, to experience the exotic,to live, if ever so briefly, outside the conf<strong>in</strong>es of their everyday life.On vacation you can imag<strong>in</strong>e yourself <strong>in</strong> a life unlike life at home,an idea the legitimate tourism <strong>in</strong>dustry promotes <strong>in</strong> its advertisements.Some of the people who have these fantasies <strong>are</strong> called sex tourists.They <strong>are</strong> people who go on vacation <strong>in</strong> order to have repeatedsexual contact with the local population. In the same way thatsome people go on ski<strong>in</strong>g holidays or on vacation to experience thelocal culture through visits to museums or theaters, sex touriststravel to have sex. They go to a place where they <strong>are</strong> unknown <strong>and</strong>can behave <strong>in</strong> a way that friends <strong>and</strong> neighbors back home wouldf<strong>in</strong>d unacceptable. Child sex tourists seek out sex with children.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00040 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
37Child sex tourists <strong>are</strong> not just pedophiles, though pedophiles doabuse a lot of children. Research on pedophiles calls them adultswith a diagnosable disorder that prevents them from be<strong>in</strong>g able toexperience <strong>and</strong> enjoy sexual <strong>in</strong>timacy with other adults. Their sexual<strong>in</strong>terest is exclusively focused on young children. Pedophilessh<strong>are</strong> <strong>in</strong>formation among themselves about where to f<strong>in</strong>d vulnerablechildren around the world. The first sex tourist prosecuted <strong>in</strong>the United States for travel<strong>in</strong>g abroad to Honduras, <strong>in</strong> his case tosexually exploit children, had <strong>in</strong>formation on his computer about<strong>how</strong> to f<strong>in</strong>d children <strong>in</strong> Nepal as <strong>we</strong>ll as other countries.But there <strong>are</strong> other sex tourists who <strong>are</strong> not pedophiles. These<strong>are</strong> people—I should say men, because men <strong>are</strong> by far the majorityof child sex abusers. These <strong>are</strong> men who wish to experiment byhav<strong>in</strong>g children as sexual partners when they <strong>are</strong> <strong>in</strong> a situationwhere they believe this is acceptable behavior, for example, <strong>in</strong> aforeign country with a racial group different from their own. Orthey have sex with children because they simply do not c<strong>are</strong> whethertheir sex partner is 12, 18, or 25 as long as the partner meetscerta<strong>in</strong> physical requirements that the man considers attractive.We call them situational child sex abusers.S<strong>in</strong>ce so many societies <strong>and</strong> cultures consider an attractive‘‘woman’’ to be one who is slender, fit, youthful, <strong>and</strong> young look<strong>in</strong>g,it is very likely that a man will seek out a young girl for a sex partner.Child sex tourists sexually abuse children because they <strong>are</strong>prostitute-users <strong>and</strong>/or strip <strong>and</strong> sex s<strong>how</strong> customers <strong>and</strong>/or consumersof pornography <strong>in</strong> a world which, on the one h<strong>and</strong>, placessexual value on youth <strong>and</strong>, on the other, forces large numbers ofchildren, either through direct coercion or economic necessity, <strong>in</strong>towork<strong>in</strong>g <strong>in</strong> the sex <strong>in</strong>dustry. Many prostitutes enter the sex marketbefore their 18th birthdays, often <strong>we</strong>ll before they turn 18, so anyonehav<strong>in</strong>g sex with a prostituted person may <strong>we</strong>ll be a child sexabuser, whether he acknowledges it or not.Sex tourists have a vast array of sex tours to choose from. A fewyears ago, Bus<strong>in</strong>ess Week magaz<strong>in</strong>e turned up 25 sex tour companies<strong>in</strong> the United States. The Internet is filled with advertisementsfor sex tours to a variety of dest<strong>in</strong>ations. Last <strong>we</strong>ek I typethe words ‘‘sex tours’’ <strong>in</strong>to the Google.com search eng<strong>in</strong>e. I got a listof 14,600 entries. Not every one of those, of course, was a site fora sex tour company. Many <strong>we</strong>re pornography sites, <strong>and</strong> some <strong>we</strong>reanalyses of sex tourism.But a review of sex tour sites <strong>and</strong> sites where men sh<strong>are</strong> <strong>in</strong>formationabout sex tourism s<strong>how</strong>s that people <strong>are</strong> trafficked to sextour dest<strong>in</strong>ations to meet the dem<strong>and</strong>; that mass market<strong>in</strong>g tomoderate <strong>in</strong>come sex tourists is part of the appeal; <strong>and</strong> that men<strong>are</strong> often <strong>in</strong>discrim<strong>in</strong>ate about the age of the prostitutes they seek,although youthfulness <strong>and</strong> will<strong>in</strong>gness to do whatever they <strong>are</strong>asked to do seem to be some of the most attractive attributes aprostituted person can offer.Here <strong>are</strong> some excerpts from the sites I looked at. There is a 7-year-old <strong>in</strong> the room so I will not go too far <strong>in</strong>to detail here.‘‘Costa Rica Sex Sizzles,’’ is the name of one of them. ‘‘Costa Ricasex is the magnet that pulls men to this tropical l<strong>and</strong> where prostitutes<strong>and</strong> prostitution <strong>are</strong> legal at age 18.’’ This is a quote fromthe site. ‘‘Sensuous senoritas <strong>and</strong> escorts from Colombia, Cuba, <strong>and</strong>VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00041 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
38other Lat<strong>in</strong> l<strong>and</strong>s come here too. Why go all the way to Thail<strong>and</strong>on Asian tours when Lat<strong>in</strong> America is so close <strong>and</strong> so hot?’’On Best of Asia.com, there <strong>are</strong> tours advertised but also a numberof pornography l<strong>in</strong>ks <strong>in</strong>clud<strong>in</strong>g some entitled ‘‘B<strong>are</strong>ly LegalAsian,’’ ‘‘Hot Young Teens.’’ This is one of the characteristics of sextour sites. They might put a disclaimer on the site—oh, my timeis up <strong>and</strong> I was go<strong>in</strong>g to go on <strong>and</strong> on.Well, I guess I will leave it at that for now.Senator BROWNBACK. Do you m<strong>in</strong>d, Mr. Chairman?Senator WELLSTONE. Go ahead for a few more m<strong>in</strong>utes.Ms. SMOLENSKI. Thank you.They put a disclaimer on the site stat<strong>in</strong>g that they do not providechild sex tours or provide girls under 18, but sex tourists know <strong>and</strong><strong>are</strong> given to believe on the Websites that young girls <strong>are</strong> availablewhen they get to the dest<strong>in</strong>ation.I will skip the horrific quotes from the sex tourists about whythey go to these dest<strong>in</strong>ations. They do it because they believe thatgirls like it there.The advertised sex tours feed <strong>in</strong>to these stereotypes by advertis<strong>in</strong>gthe passivity <strong>and</strong> youth of the children <strong>and</strong> women who themen will meet on these tours.The sex tour is the nexus bet<strong>we</strong>en the supply of children’s bodies<strong>and</strong> the dem<strong>and</strong> by men—aga<strong>in</strong>, it is mostly men—with enoughdisposable <strong>in</strong>come <strong>and</strong> equipped with the rationale that it is culturallyacceptable <strong>and</strong> even legal to exploit the vulnerable childrenthey come across <strong>in</strong> poor countries. They even conv<strong>in</strong>ce themselvesthat they <strong>are</strong> help<strong>in</strong>g the children because they give them money.Any country with a grow<strong>in</strong>g tourism <strong>in</strong>dustry confronts the growthof the dem<strong>and</strong> for prostituted children <strong>in</strong> that country.For example, as Cambodia looks to tourism for economic development,the potential danger of sex tourism looms for poor children.And then I have a quote here from a sex tourist who is shar<strong>in</strong>g <strong>in</strong>formationabout what he got <strong>and</strong> <strong>how</strong> much it cost <strong>in</strong> Phnom Penh.‘‘The poor (literally),’’ he wrote, ‘‘little girls some of them do try,they get a few cents only from papasan <strong>and</strong> own little more thana dress or two.’’ Cambodia’s Tourism M<strong>in</strong>istry is try<strong>in</strong>g to do someth<strong>in</strong>gabout this, <strong>and</strong> they have a program for that.Senator WELLSTONE. We can have the full statement <strong>in</strong>cluded <strong>in</strong>the record.Ms. SMOLENSKI. I know. It is on the record. I am just go<strong>in</strong>g toread the last few th<strong>in</strong>gs that tell you what you can do about it.Senator WELLSTONE. We would be very <strong>in</strong>terested <strong>in</strong> that.Ms. SMOLENSKI. Deterrence. Advertise the laws aga<strong>in</strong>st child sextourism. This can be done <strong>in</strong> a number of ways. The Europeantravel <strong>in</strong>dustry has been very <strong>in</strong>volved <strong>in</strong> fight<strong>in</strong>g child sex tourism.Unfortunately, the U.S. <strong>in</strong>dustry has decl<strong>in</strong>ed to become <strong>in</strong>volved.For example, n<strong>in</strong>e European airl<strong>in</strong>es s<strong>how</strong> or have s<strong>how</strong>n<strong>in</strong>-flight videos advertis<strong>in</strong>g the laws aga<strong>in</strong>st child sex tourism as adeterrent to the situational child sex abuser. Every s<strong>in</strong>gle U.S. airl<strong>in</strong>e,even though requested by the Federal Department of Transportation,the president of Air France, <strong>and</strong> ECPAT-USA, has refusedto get <strong>in</strong>volved.It should be made easier to prosecute American sex tourists bytra<strong>in</strong><strong>in</strong>g law enforcement <strong>in</strong> other countries about <strong>how</strong> to gatherVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00042 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
39evidence for use <strong>in</strong> U.S. courts <strong>and</strong> putt<strong>in</strong>g more resources <strong>in</strong>tomak<strong>in</strong>g cases aga<strong>in</strong>st American sex tourists <strong>and</strong> also chang<strong>in</strong>g thelaw <strong>in</strong> the way that you had said, Senator Brownback, about do<strong>in</strong>gaway with the <strong>in</strong>tention provision.There <strong>are</strong> some regulatory ways that it can be treated. I can giveyou a much longer list than is actually <strong>in</strong> here.As <strong>we</strong> speak—let me just f<strong>in</strong>ish—children <strong>are</strong> be<strong>in</strong>g forced <strong>in</strong>tothe sex bus<strong>in</strong>ess <strong>and</strong> American men <strong>are</strong> eagerly jo<strong>in</strong><strong>in</strong>g the ranksof those who seek out their bodies. The United States must stopthe contribution that American men make to this abhorrent practice.The U.S. <strong>traffick<strong>in</strong>g</strong> bill successfully focuses on the supplyside. This is a market, though. It is time to stop the dem<strong>and</strong>.[The prep<strong>are</strong>d statement of Ms. Smolenski follows:]PREPARED STATEMENT OF CAROL SMOLENSKI, COORDINATOR, ECPAT-USAMy name is Carol Smolenski. I am the Coord<strong>in</strong>ator of ECPAT-USA. ECPAT-USAis the U.S. branch of ECPAT-International based <strong>in</strong> Bangkok. ECPAT st<strong>and</strong>s forEnd Child Prostitution, Child Pornography, <strong>and</strong> Traffick<strong>in</strong>g of Children for SexualPurposes.I’m here to tell you someth<strong>in</strong>g about the problem of child sex tourism, <strong>how</strong> it<strong>in</strong>tersects with the larger crime of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>, <strong>and</strong> what can be done tostop it. It is the dem<strong>and</strong> side of the <strong>traffick<strong>in</strong>g</strong> problem that stills needs to be addressed.ECPAT got its start <strong>in</strong> Asia <strong>in</strong> 1991, when some churches <strong>and</strong> children’s rightsactivists heard the results of a study about the sale <strong>and</strong> <strong>traffick<strong>in</strong>g</strong> of children with<strong>in</strong>Asia. What they learned was shock<strong>in</strong>g <strong>and</strong> yet virtually unrecognized by the restof the world: that uncounted numbers of children <strong>we</strong>re be<strong>in</strong>g forced <strong>in</strong>to the sex <strong>in</strong>dustry<strong>in</strong> Asia, partly to meet the dem<strong>and</strong> of foreign sex tourists from all over theworld.Initially focused on Thail<strong>and</strong>, Taiwan, Sri Lanka <strong>and</strong> the Philipp<strong>in</strong>es, now ECPATis a global organization focus<strong>in</strong>g on the commercial sexual exploitation of children<strong>in</strong> all its forms, not just <strong>in</strong> Asia, but around the world, <strong>in</strong>clud<strong>in</strong>g <strong>in</strong> the UnitedStates. We def<strong>in</strong>e children as people under 18 years old, us<strong>in</strong>g the def<strong>in</strong>ition of theU.N. Convention on the Rights of the Child. It is generally accepted that there <strong>are</strong>at least two million sexually exploited children <strong>in</strong> the world, <strong>in</strong>clud<strong>in</strong>g both boys <strong>and</strong>girls.One reason among the many that people travel abroad is to experience someth<strong>in</strong>gof the local cultures, to experience the exotic, to live, if ever so briefly, outside theconf<strong>in</strong>es of their every day life. On vacation you can imag<strong>in</strong>e yourself <strong>in</strong> a life unlikelife at home, an idea the legitimate tourism <strong>in</strong>dustry promotes <strong>in</strong> its advertisements.Some of the people who have these fantasies <strong>are</strong> called sex tourists. They <strong>are</strong> peoplewho go on vacation <strong>in</strong> order to have repeated sexual contact with the local population.In the same way that some people go on ski<strong>in</strong>g holidays, or go on vacationto experience the local culture through visits to museums or theaters sex touriststravel to have sex. They go to a place where they <strong>are</strong> unknown <strong>and</strong> can behave <strong>in</strong>a way that friends <strong>and</strong> neighbors back home would f<strong>in</strong>d unacceptable. Child sextourists seek out sex with children.Child sex tourists <strong>are</strong> not just pedophiles, though pedophiles do abuse a lot of children.Research on pedophiles calls them adults with a diagnosable disorder thatprevents them from be<strong>in</strong>g able to experience <strong>and</strong> enjoy sexual <strong>in</strong>timacy with otheradults. Their sexual <strong>in</strong>terest is exclusively focused on young children. Pedophilessh<strong>are</strong> <strong>in</strong>formation among themselves about where to f<strong>in</strong>d vulnerable childrenaround the world. The first sex tourist prosecuted <strong>in</strong> the United States for travel<strong>in</strong>gabroad (to Honduras <strong>in</strong> his case) to sexually exploit children had <strong>in</strong>formation on hiscomputer about <strong>how</strong> to f<strong>in</strong>d children <strong>in</strong> Nepal as <strong>we</strong>ll as other countries.But there <strong>are</strong> other sex tourists who <strong>are</strong> not pedophiles. These <strong>are</strong> people, Ishould say men, because men <strong>are</strong> by far the majority of child sex abusers, these <strong>are</strong>men who wish to experiment by hav<strong>in</strong>g children as sexual partners when they <strong>are</strong><strong>in</strong> a situation where they believe this is acceptable behavior, for example, <strong>in</strong> a foreigncountry, with a racial group different from their own. Or, they have sex withchildren because they simply do not c<strong>are</strong> whether their sex partner is 12, 18 or 25as long as that partner meets certa<strong>in</strong> physical requirements that the man considersattractive. We call them situational child sex abusers.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00043 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
40S<strong>in</strong>ce so many societies <strong>and</strong> cultures consider an attractive ‘‘woman’’ to be onewho is slender, fit, youthful <strong>and</strong> young look<strong>in</strong>g, it is very likely that a man will seekout a young girl for a sex partner. Child sex tourists ‘‘sexually abuse children becausethey <strong>are</strong> prostitute-users (<strong>and</strong>/or strip <strong>and</strong> sex-s<strong>how</strong> customers, <strong>and</strong>/or consumersof pornography) <strong>in</strong> a world which, on the one h<strong>and</strong> places sexual value onyouth, <strong>and</strong> on the other forces large numbers of children (either through direct coercionor economic necessity) <strong>in</strong>to work<strong>in</strong>g <strong>in</strong> the sex <strong>in</strong>dustry.’’ (Julia O’Connell Davidson<strong>and</strong> Julia Sanchez Taylor, 1996, ‘‘The Sex Exploiter’’). Many prostitutes enterthe sex market before their 18th birthdays, often <strong>we</strong>ll before they turn 18, so anyonehav<strong>in</strong>g sex with a prostituted person may <strong>we</strong>ll be a child sex abuser, whether heacknowledges it or not.Sex tourists have a vast array of sex tours to choose from. A few years ago, Bus<strong>in</strong>essWeek magaz<strong>in</strong>e turned up 25 sex tour companies <strong>in</strong> the United States. The<strong>in</strong>ternet is filled with advertisements for sex tours to a variety of dest<strong>in</strong>ations. Last<strong>we</strong>ek I typed the words ‘‘sex tours’’ <strong>in</strong>to the Google.com search eng<strong>in</strong>e. I got a listof 14,600 entries. Not every one of those was a site for a sex tour company. Many<strong>we</strong>re pornography sites. Some <strong>we</strong>re analyses of sex tourism by academics or organizationslike m<strong>in</strong>e.But a review of sex tour sites <strong>and</strong> sites where men sh<strong>are</strong> <strong>in</strong>formation about sextourism s<strong>how</strong>s that people <strong>are</strong> trafficked to sex tour dest<strong>in</strong>ations to meet the dem<strong>and</strong>,that mass market<strong>in</strong>g to moderate <strong>in</strong>come sex tourists is part of the appeal,<strong>and</strong> that men <strong>are</strong> often <strong>in</strong>discrim<strong>in</strong>ate about the age of the prostitutes they seekout, although youthfulness <strong>and</strong> will<strong>in</strong>gness to do whatever they <strong>are</strong> asked to doseem to be some of the most attractive attributes a prostituted person can offer.Here <strong>are</strong> excerpts from some of the sites I looked at:Costa Rica Sex Sizzles. Cost Rica sex is the magnet that pulls men to thistropical l<strong>and</strong> where prostitutes <strong>and</strong> prostitution <strong>are</strong> legal at age 18. Sensuoussenoritas <strong>and</strong> escorts from Colombia, Cuba <strong>and</strong> other Lat<strong>in</strong> l<strong>and</strong>scome here too. Why go all the way to Thail<strong>and</strong> on Asian tours when Lat<strong>in</strong>America is so close <strong>and</strong> so hot?On Best of Asia.com there <strong>are</strong> tours advertised but also a number of pornographyl<strong>in</strong>ks <strong>in</strong>clud<strong>in</strong>g some entitled ‘‘B<strong>are</strong>ly Legal Asian, Hot Young Teens’’. This is oneof the characteristics of sex tour sites. They might put a disclaimer on the site stat<strong>in</strong>gthat they do not provide child sex tours or provide girls under 18, but sex touristsknow, <strong>and</strong> <strong>are</strong> given to believe on the <strong>we</strong>bsites, that young girls <strong>are</strong> availablewhen they get to the dest<strong>in</strong>ation.On Dexterhorn.com where trips to Asia <strong>and</strong> Germany <strong>are</strong> advertised it reads ‘‘<strong>we</strong>know all the places to go to have sex with women, 24 hours a day. . . . Beer barsoverflow<strong>in</strong>g with young girls begg<strong>in</strong>g you to take them back to your hotel. . . . Massageparlors where you can get massaged, ------ <strong>and</strong> ------ by one or more Thaigirls for the price of fill<strong>in</strong>g up your gas tank.’’The <strong>in</strong>famous onl<strong>in</strong>e company Love Tours advertises ‘‘every girl <strong>in</strong> every club isavailable. Every girl <strong>in</strong> every club is affordable’’.Men who travel with sex tours say they believe that it is culturally acceptable <strong>and</strong>legal to have sex with children <strong>in</strong> other countries. Another man, <strong>in</strong>tervie<strong>we</strong>d sitt<strong>in</strong>g<strong>in</strong> a bar with two girls, 12 <strong>and</strong> 13 years old by his side, said ‘‘American girls, <strong>in</strong>America <strong>and</strong> places like that you see, they’re not so free about sex <strong>and</strong> their bodies.. . . They let you do th<strong>in</strong>gs here an American girl’d never dream of do<strong>in</strong>g. I can’teven say to you what they let you do.’’ (Quoted <strong>in</strong> Julia O’Connell Davidson <strong>and</strong> Jacquel<strong>in</strong>eSanchez Taylor, 1996, ‘‘Child Prostitution <strong>and</strong> Sex Tourism: The Dom<strong>in</strong>icanRepublic.’’)The advertised sex tours feed <strong>in</strong>to these stereotypes by advertis<strong>in</strong>g the passivity<strong>and</strong> youth of the children or women who the men will meet on these tours.The sex tour is the nexus bet<strong>we</strong>en the supply of children’s bodies <strong>and</strong> the dem<strong>and</strong>by men, aga<strong>in</strong>, it is mostly men, with enough disposable <strong>in</strong>come <strong>and</strong> equipped withthe rationale that it is culturally acceptable <strong>and</strong> even legal to exploit the vulnerablechildren they come across <strong>in</strong> poor countries. They even conv<strong>in</strong>ce themselves thatthey <strong>are</strong> help<strong>in</strong>g the children because they give them money. Any country with agrow<strong>in</strong>g tourism <strong>in</strong>dustry confronts the growth of the dem<strong>and</strong> for prostituted children<strong>in</strong> that country.For example, as Cambodia looks to tourism for economic development, the potentialdanger of sex tourism looms for poor children <strong>and</strong> women who will come <strong>in</strong> contactwith <strong>we</strong>ll-off foreign tourists for the first time. Here is an excerpt from a<strong>we</strong>bsite used by sex tourists to sh<strong>are</strong> <strong>in</strong>formation about Phnom Penh,: ‘‘Price ofgirls: short time $3-$5; all-nite $15-20 . . . I got two girls for $7 once. Don’t pay<strong>in</strong> advance <strong>and</strong> don’t be bashful about send<strong>in</strong>g her back if she doesn’t do as advertised.. . . Be sure to tip the chick privately for good service. The poor (literally)VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00044 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
41little girls some of them do try, they get a few cents only from papasan <strong>and</strong> ownlittle more than a dress or two.’’ At least <strong>in</strong> Cambodia’s case, officials <strong>are</strong> aw<strong>are</strong> ofthe problem <strong>and</strong> would like to mitigate it. In Autumn 2000 Cambodia’s TourismM<strong>in</strong>istry announced plans to start a campaign aga<strong>in</strong>st child sex tourism by post<strong>in</strong>gsigns <strong>in</strong> hotels, guest houses <strong>and</strong> nightclubs warn<strong>in</strong>g aga<strong>in</strong>st sex with children.As sex tour dest<strong>in</strong>ations <strong>are</strong> opened up <strong>and</strong> advertised, for a variety of <strong>in</strong>comegroups, the <strong>in</strong>crease <strong>in</strong> dem<strong>and</strong> <strong>in</strong>creases the need to traffick more bodies to thebrothel <strong>are</strong>as <strong>in</strong> the sex tour dest<strong>in</strong>ations. Of course it is not just sex tours that leadto <strong>in</strong>creased <strong>traffick<strong>in</strong>g</strong>. For example, <strong>we</strong> know from our colleagues around theworld about <strong>in</strong>creas<strong>in</strong>g numbers of people be<strong>in</strong>g trafficked from Eastern Europe <strong>and</strong>Lat<strong>in</strong> America to meet the dem<strong>and</strong> from U.S. military personnel <strong>in</strong> the brothel<strong>are</strong>as near the U.S. military bases <strong>in</strong> South Korea. The presence of military personnelfrom any country <strong>in</strong> any country is associated with a growth of prostitution.But <strong>we</strong> also know that women <strong>and</strong> children <strong>are</strong> trafficked <strong>in</strong>to the sex tour dest<strong>in</strong>ationsof Bangkok <strong>and</strong> Costa Rica. The sex tour focuses the dem<strong>and</strong> <strong>in</strong> certa<strong>in</strong><strong>are</strong>as facilitat<strong>in</strong>g the transaction by concentrat<strong>in</strong>g the bus<strong>in</strong>ess <strong>in</strong> one place.ECPAT-USA <strong>and</strong> our partners around the world call on you to take a number ofsteps to stop the dem<strong>and</strong> for <strong>traffick<strong>in</strong>g</strong> victims.Deterrence: Advertise the laws aga<strong>in</strong>st child sex tourism. This can be done <strong>in</strong> anumber of ways. The European travel <strong>in</strong>dustry has been very <strong>in</strong>volved <strong>in</strong> fight<strong>in</strong>gchild sex tourism. Unfortunately, the U.S. <strong>in</strong>dustry has decl<strong>in</strong>ed to become <strong>in</strong>volved.For example, n<strong>in</strong>e European airl<strong>in</strong>es s<strong>how</strong> or have s<strong>how</strong>n <strong>in</strong>flight videos advertis<strong>in</strong>gthe laws aga<strong>in</strong>st child sex tourism as a deterrent to the situational child sex abuser.Every s<strong>in</strong>gle U.S. airl<strong>in</strong>e, even though requested by the federal Department ofTransportation, the president of Air France <strong>and</strong> ECPAT-USA, has refused to get <strong>in</strong>volved.Law enforcement: Make it easier to prosecute American sex tourists by tra<strong>in</strong><strong>in</strong>glaw enforcement <strong>in</strong> other countries about gather<strong>in</strong>g evidence for use <strong>in</strong> U.S. courts,or policies to encourage other countries to prosecute <strong>and</strong> <strong>in</strong>carcerate American sextourists. Put more resources toward mak<strong>in</strong>g cases aga<strong>in</strong>st American sex tourists <strong>and</strong>change the U.S. extraterritoriality law to make it easier to prosecute American sextourists.Regulation: Require sex tour companies to keep records of the people go<strong>in</strong>g on sextours such as name, address, social security number <strong>and</strong> passport number <strong>and</strong> similar<strong>in</strong>formation about the names of the children or women to whom they <strong>are</strong> <strong>in</strong>troduced<strong>in</strong> the foreign country.As <strong>we</strong> speak, children <strong>are</strong> be<strong>in</strong>g forced <strong>in</strong>to the sex bus<strong>in</strong>ess <strong>and</strong> American men<strong>are</strong> eagerly jo<strong>in</strong><strong>in</strong>g the ranks of those who seek out their bodies. The U.S. must stopthe contribution that American men make to this abhorrent practice. The U.S. <strong>traffick<strong>in</strong>g</strong>bill successfully focuses on the supply side. This is a market <strong>in</strong> children bodies.It is time to stop the dem<strong>and</strong>.Senator WELLSTONE. Thank you.Senator BROWNBACK. Mr. Chairman, because I am go<strong>in</strong>g to haveto leave, can I make a comment quickly? This is the po<strong>in</strong>t that Iraised <strong>in</strong> my open<strong>in</strong>g statement <strong>and</strong> it is what I have seen as Ihave traveled too. And you put it very <strong>we</strong>ll. We have been focus<strong>in</strong>gon the supply side, <strong>and</strong> <strong>we</strong> need to get at the dem<strong>and</strong> side. WhenI was <strong>in</strong> Thail<strong>and</strong> up on the border, they s<strong>how</strong>ed me a notebookthat was full of pictures, <strong>and</strong> this was at a hotel. Somebody wouldgo <strong>in</strong>to the hotel that was on some sort of sex tour <strong>and</strong> was <strong>in</strong>terested<strong>in</strong> that <strong>and</strong> they could get at this notebook that just s<strong>how</strong>edpictures of young girls for them to po<strong>in</strong>t out <strong>and</strong> say, <strong>we</strong>ll, OK, Ilike this one <strong>and</strong> this one. And then a courier goes <strong>and</strong> gets thisyoung girl who could be very young.This is, unfortunately, a regular organized bus<strong>in</strong>ess. We <strong>are</strong> try<strong>in</strong>gto get at the supply side, but the Thai Government was frustrated.Why <strong>are</strong> these people com<strong>in</strong>g here from Europe, from theUnited States? You need to get at it on that end of it. it is just anawful, sick th<strong>in</strong>g that is go<strong>in</strong>g on.So, I am hopeful that <strong>we</strong> can put forward some legislation <strong>in</strong> abipartisan way to address this <strong>and</strong> that the Congress will act onit to get at this <strong>in</strong>tent issue because that is just so tough to prove,VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00045 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
42that yes, I got on the plane to do this, not that I did it, but I goton the plane mean<strong>in</strong>g to do it, so that <strong>we</strong> could prosecute. If thatperson actually did conduct that activity, base it on that.Senator WELLSTONE. Well, I would just thank you too. I said toSam this has the mak<strong>in</strong>gs of another counter<strong>in</strong>tuitive Brownback-Wellstone alliance. I th<strong>in</strong>k <strong>we</strong> will def<strong>in</strong>itely work together. Thiswill not be the end of this. We <strong>are</strong> really go<strong>in</strong>g to work on it.Senator BROWNBACK. Thank you.Ms. SMOLENSKI. Thank you. I would <strong>we</strong>lcome that so much.Senator WELLSTONE. Ms. Jordan. Thank you for com<strong>in</strong>g, Ms. Jordan.STATEMENT OF ANN JORDAN, DIRECTOR, INITIATIVEAGAINST TRAFFICKING IN PERSONS, INTERNATIONALHUMAN RIGHTS LAW GROUP, WASHINGTON, DCMs. JORDAN. Thank you. I would like to present my full testimonyfor the record <strong>and</strong> provide some comments.Senator WELLSTONE. It will be <strong>in</strong>cluded <strong>in</strong> the record.Ms. JORDAN. I wish to beg<strong>in</strong> by thank<strong>in</strong>g Senators Wellstone <strong>and</strong>Brownback, as <strong>we</strong>ll as Representative Chris Smith <strong>and</strong> former RepresentativeGejdenson, for ensur<strong>in</strong>g that the United States has oneof the strongest pieces of <strong>traffick<strong>in</strong>g</strong> legislation <strong>in</strong> the world. Iwould also like to thank the subcommittee members for provid<strong>in</strong>gme with this opportunity to speak.The International Human Rights Law Group’s <strong>traffick<strong>in</strong>g</strong> <strong>in</strong>itiativehas organized a freedom network for service providers <strong>and</strong> advocates.It has worked with its Cambodia legal aid program to createa Center Aga<strong>in</strong>st Traffick<strong>in</strong>g to provide legal services to trafficked<strong>persons</strong> <strong>and</strong> is work<strong>in</strong>g with its offices <strong>in</strong> Bosnia <strong>and</strong>Herzegov<strong>in</strong>a <strong>and</strong> Nigeria to create a network of service providers<strong>and</strong> lawyers. It was also actively <strong>in</strong>volved <strong>in</strong> the development ofthis wonderful new law <strong>and</strong> the U.N. Traffick<strong>in</strong>g Protocol.It is encourag<strong>in</strong>g to note, as <strong>we</strong> have heard today, <strong>in</strong> a little overa year s<strong>in</strong>ce the <strong>traffick<strong>in</strong>g</strong> law was enacted, tremendous progresshas been made. I am sure that even greater progress can be expectedover the next year, given the adm<strong>in</strong>istration’s commitmentto <strong>combat<strong>in</strong>g</strong> <strong>traffick<strong>in</strong>g</strong>.The next speaker, Hae Jung Cho, will talk about many of thegaps <strong>in</strong> the legislation, <strong>and</strong> I will just address three that have beennoted by members of our network.The first is that it appears that <strong>in</strong>vestigations <strong>and</strong> prosecutions<strong>are</strong> slow<strong>in</strong>g down. It is unclear whether this is due to the shift <strong>in</strong>focus to terrorism or to the threefold <strong>in</strong>crease <strong>in</strong> the number ofcases be<strong>in</strong>g <strong>in</strong>vestigated, or both. We hope that the Justice Departmenthas the resources to be able to <strong>in</strong>vestigate these cases morerapidly.Second, the INS has yet to designate an office or a person responsiblefor coord<strong>in</strong>at<strong>in</strong>g INS activities <strong>and</strong> liais<strong>in</strong>g with serviceproviders. The INS started this <strong>we</strong>ek to process T-visa applications,<strong>and</strong> so the advocacy community’s need for a po<strong>in</strong>t person or an officeis immediate.Third, the Office for Victims of Crime <strong>in</strong> the Department of Justice,which has $10 million to provide services for NGOs, has yetto develop a comprehensive plan for fund<strong>in</strong>g those services. TheVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00046 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
43need for tra<strong>in</strong>ed <strong>and</strong> funded service providers is <strong>in</strong>creas<strong>in</strong>g rapidly,so that <strong>we</strong> hope that the Office for Victims of Crime will be ableto start issu<strong>in</strong>g requests for proposals quickly so that the organizationswill be ready to take on the clients that come to them withall of these <strong>in</strong>creased <strong>in</strong>vestigations.I will now turn to <strong>traffick<strong>in</strong>g</strong> abroad. The U.S. commitment tosupport<strong>in</strong>g <strong>and</strong> contribut<strong>in</strong>g to peacekeep<strong>in</strong>g <strong>and</strong> civilian policeforces is essential to the development of stability <strong>and</strong> democracyaround the world. At the same time, <strong>we</strong>ll-documented reports concern<strong>in</strong>gthe relationship bet<strong>we</strong>en such <strong>in</strong>ternational forces <strong>and</strong> <strong>traffick<strong>in</strong>g</strong><strong>in</strong>to forced prostitution cannot be ignored. For example, <strong>are</strong>cent Wash<strong>in</strong>gton Post article reported on problems <strong>in</strong> <strong>in</strong>vestigat<strong>in</strong>gnumerous allegations of International Police Task Force<strong>in</strong>volvement <strong>in</strong> <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> Bosnia.In my recent trip to Bosnia, I heard heartbreak<strong>in</strong>g stories ofwomen <strong>and</strong> girls who <strong>are</strong> be<strong>in</strong>g brought <strong>in</strong>to the country underfalse pretexts. In Bosnia <strong>and</strong> <strong>in</strong> many other countries around theworld, women <strong>and</strong> girls <strong>are</strong> held by traffickers who sell the rightto have sex with them or, more accurately, to rape them. Whilesome women do sell sex voluntarily <strong>in</strong> Bosnia <strong>in</strong> brothels <strong>and</strong> clubs,local groups have told me that they believe that the overwhelm<strong>in</strong>gmajority, perhaps 70 to 90 percent, of the women <strong>are</strong> be<strong>in</strong>g heldaga<strong>in</strong>st their will or under psychological coercion.Governments contribut<strong>in</strong>g forces should <strong>in</strong>vestigate <strong>and</strong> prosecutepolice <strong>and</strong> military personnel who commit crimes while onpeacekeep<strong>in</strong>g missions <strong>and</strong> should waive diplomatic immunitywhich blocks such prosecutions. While the U.S. MilitaryExtraterroritorial Jurisdiction Act provides that our Governmenthas the authority over U.S. military personnel who commit crimesabroad, no similar law exists for the <strong>in</strong>ternational police personnelwho consequently have immunity from prosecution <strong>in</strong> the UnitedStates. This should be changed.Additionally, arm’s length relationships bet<strong>we</strong>en the U.S. Government<strong>and</strong> private contractors who hire <strong>and</strong> recruit <strong>and</strong> employstaff with<strong>in</strong> peacekeep<strong>in</strong>g missions is a problem. In Bosnia, theU.S. police cont<strong>in</strong>gent is hired by a private company calledDynCorp. This system of contractual relationships is said to limitthe accountability of the United States <strong>and</strong> to make it more difficultto address any unprofessional, corrupt, or crim<strong>in</strong>al behaviorby U.S. International Police Task Force personnel.Immunity is also a problem with respect to <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> abuseby foreign diplomats <strong>and</strong> officials of <strong>in</strong>ternational organizations <strong>in</strong>the United States. Despite grow<strong>in</strong>g evidence of such abuse, I amnot aw<strong>are</strong> of any case <strong>in</strong> which a diplomat or <strong>in</strong>ternational organizationofficial has suffered the consequence of be<strong>in</strong>g sent home ordenied the right to br<strong>in</strong>g <strong>in</strong> additional domestic workers.Additionally, I have been contacted by NGO partners abroad whohave asked for <strong>in</strong>formation about any U.S. law that would permitdomestic workers <strong>in</strong> their countries who <strong>are</strong> employed by U.S. diplomatsto sue their U.S. employers. I am unaw<strong>are</strong> of any such lawor any such case that has ever been allo<strong>we</strong>d to be brought aga<strong>in</strong>sta U.S. diplomat to address this harm.I wish to thank you aga<strong>in</strong> for offer<strong>in</strong>g me this opportunity tospeak, <strong>and</strong> I want to assure you that my organization <strong>and</strong> mem-VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00047 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
44bers of the network <strong>are</strong> look<strong>in</strong>g forward to work<strong>in</strong>g with the relevantdepartments <strong>and</strong> agencies <strong>and</strong> with Members of Congress toensure that traffickers <strong>are</strong> punished <strong>and</strong> that the rights of victims<strong>are</strong> protected. Thank you.[The prep<strong>are</strong>d statement of Ms. Jordan follows:]PREPARED STATEMENT OF ANN JORDAN, DIRECTOR, INITIATIVE AGAINST TRAFFICKINGIN PERSONS AT THE INTERNATIONAL HUMAN RIGHTS LAW GROUPI wish to beg<strong>in</strong> by thank<strong>in</strong>g Senators Wellstone <strong>and</strong> Brownback (as <strong>we</strong>ll as RepresentativeChris Smith <strong>and</strong> former Representative Gejdenson) for ensur<strong>in</strong>g that theUnited States has one of the strongest pieces of anti-<strong>traffick<strong>in</strong>g</strong> legislation <strong>in</strong> theworld. I would also like to thank the Subcommittee members for provid<strong>in</strong>g me withthis opportunity to present some views from the service provider <strong>and</strong> advocacy community.The Initiative Aga<strong>in</strong>st Traffick<strong>in</strong>g <strong>in</strong> Persons at the International Human RightsLaw Group works towards development of a human rights framework <strong>in</strong> state responsesto <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong> worldwide. It has organized U.S. service providers<strong>and</strong> advocates <strong>in</strong>to the Freedom Network (USA), has worked with its Cambodialegal aid program to create a Center Aga<strong>in</strong>st Traffick<strong>in</strong>g to provide legal representationfor trafficked <strong>persons</strong> <strong>and</strong> is work<strong>in</strong>g with its offices <strong>in</strong> Bosnia <strong>and</strong> Herzegov<strong>in</strong>a<strong>and</strong> Nigeria to create a network of service providers <strong>and</strong> lawyers. It was also actively<strong>in</strong>volved <strong>in</strong> the development of the new U.S. <strong>traffick<strong>in</strong>g</strong> law <strong>and</strong> the UN Traffick<strong>in</strong>gProtocol.It is encourag<strong>in</strong>g to note that, <strong>in</strong> the little over a year s<strong>in</strong>ce the Victims of Traffick<strong>in</strong>g<strong>and</strong> Violence Protection Act was enacted, tremendous progress has beenmade. The State Department <strong>and</strong> USAID <strong>are</strong> mov<strong>in</strong>g forward <strong>in</strong> creat<strong>in</strong>g development<strong>and</strong> assistance programs abroad as part of a prevention strategy. The StateDepartment’s Office to Monitor <strong>and</strong> Combat Traffick<strong>in</strong>g has opened. The Departmentof Justice has tripled its number of <strong>in</strong>vestigations <strong>and</strong> the INS has issued regulationsfor the new T visa. This is <strong>in</strong>deed tremendous progress <strong>and</strong> even greaterprogress can be expected by this time next year given the Adm<strong>in</strong>istration’s commitmentto combatt<strong>in</strong>g <strong>traffick<strong>in</strong>g</strong>.I would like to sh<strong>are</strong> with the Committee some thoughts on a range of issues thatcould be, or should be, addressed over the com<strong>in</strong>g year:IMPLEMENTATION OF THE VICTIMS OF TRAFFICKING AND VIOLENCE PROTECTION ACTI will first sh<strong>are</strong> with you some of the concerns of members of the Freedom Network(USA) to Empo<strong>we</strong>r Trafficked <strong>and</strong> Enslaved Persons. The Freedom Network(USA) is composed of direct service <strong>and</strong> advocacy organizations that have been <strong>in</strong>volved<strong>in</strong> some of the most important <strong>traffick<strong>in</strong>g</strong> cases to date <strong>in</strong> this country. More<strong>in</strong>formation is available about the Freedom Network atwww.freedomnetworkusa.org <strong>and</strong> <strong>in</strong> the h<strong>and</strong>out distributed today.The Coalition to Abolish Slavery & Traffick<strong>in</strong>g, a Freedom Network member, hasalready described some of the gaps <strong>in</strong> implementation <strong>and</strong> I will address some additional<strong>are</strong>as of concern:1. Investigations <strong>and</strong> prosecutions appear to have slo<strong>we</strong>d down. It is unclearwhether this is due to the shift of focus to terrorism or to the threefold <strong>in</strong>crease<strong>in</strong> the number of cases be<strong>in</strong>g <strong>in</strong>vestigated, or both. We hope the Justice Departmenthas the resources to be able to <strong>in</strong>vestigate cases more rapidly.2. Process<strong>in</strong>g time for cont<strong>in</strong>ued presence or other status <strong>and</strong> work authorizationsfor <strong>traffick<strong>in</strong>g</strong> victims is often extremely slow. Some requests to the INStake months, which then delays the issuance of work authorizations <strong>and</strong> benefits.We appreciate the difficulties <strong>in</strong> sett<strong>in</strong>g up a new program, but <strong>we</strong> hopethe INS will solve this problem quickly.3. The INS has yet to designate an office or a person responsible for coord<strong>in</strong>at<strong>in</strong>gINS activities <strong>and</strong> liais<strong>in</strong>g with the service providers. The INS startedthis <strong>we</strong>ek to process applications for T visas, <strong>and</strong> so the advocacy community’sneed for a po<strong>in</strong>t person or office is immediate.4. Tra<strong>in</strong><strong>in</strong>g for INS <strong>and</strong> FBI agents <strong>and</strong> Assistant U.S. Attorneys should proceedmore rapidly. Many agents <strong>and</strong> attorneys <strong>are</strong> unaw<strong>are</strong> of the law or thedifference bet<strong>we</strong>en <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> smuggl<strong>in</strong>g. Furthermore, they may not immediatelycontact the Civil Rights Division <strong>traffick<strong>in</strong>g</strong> team for assistance,which can result <strong>in</strong> cases be<strong>in</strong>g labeled <strong>in</strong>correctly as smuggl<strong>in</strong>g or other offenses.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00048 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
455. The Office for Victims of Crime <strong>in</strong> the Department of Justice has yet todevelop a comprehensive plan for fund<strong>in</strong>g service providers <strong>and</strong> tra<strong>in</strong>ers. TheOVC has received $10 million for these purposes. Very few service providers <strong>are</strong>funded to provide services even though more tra<strong>in</strong>ed <strong>and</strong> funded service providerswill be necessary soon to h<strong>and</strong>le the <strong>in</strong>creased number of cases result<strong>in</strong>gfrom the <strong>in</strong>creased number of <strong>in</strong>vestigations now underway. We hope OVC willbe able to start issu<strong>in</strong>g RFPs quickly.INTERNATIONAL POLICE, MILITARY FORCES AND TRAFFICKINGI will now turn to <strong>traffick<strong>in</strong>g</strong> abroad. The U.S. commitment to support<strong>in</strong>g <strong>and</strong> contribut<strong>in</strong>gto peacekeep<strong>in</strong>g <strong>and</strong> civilian police forces is essential to the developmentof stability <strong>and</strong> democracy around the world. At the same time, <strong>we</strong>ll-documented reportsconcern<strong>in</strong>g the relationship bet<strong>we</strong>en such <strong>in</strong>ternational forces <strong>and</strong> <strong>traffick<strong>in</strong>g</strong><strong>in</strong>to forced prostitution cannot be ignored. For example, a recent Wash<strong>in</strong>gton Postarticle reported on problems <strong>in</strong> <strong>in</strong>vestigat<strong>in</strong>g numerous allegations of <strong>in</strong>ternationalpolice task force <strong>in</strong>volvement <strong>in</strong> <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> Bosnia.In focus<strong>in</strong>g on the relationship bet<strong>we</strong>en <strong>in</strong>ternational forces <strong>and</strong> <strong>traffick<strong>in</strong>g</strong> <strong>in</strong>toforced prostitution, <strong>how</strong>ever, <strong>we</strong> should not forget that the <strong>in</strong>ternational customers<strong>are</strong> not the ma<strong>in</strong> problem. For example, a UN representative <strong>in</strong> Bosnia estimatesthat about 30% of brothel customers <strong>are</strong> <strong>in</strong>ternationals; the majority of the menthen <strong>are</strong> locals. Yet, it is essential that the <strong>in</strong>ternational community set a higherst<strong>and</strong>ard of conduct <strong>and</strong> that the app<strong>are</strong>ntly symbiotic relationship bet<strong>we</strong>en the<strong>in</strong>ternational forces <strong>and</strong> <strong>traffick<strong>in</strong>g</strong> be addressed.In work<strong>in</strong>g with the Law Group’s staff <strong>and</strong> local organizations <strong>in</strong> Bosnia, I haveheard heartbreak<strong>in</strong>g stories of women <strong>and</strong> girls who <strong>are</strong> be<strong>in</strong>g brought <strong>in</strong>to thecountry under false pretexts. In Bosnia, <strong>and</strong> <strong>in</strong> many other countries around theworld, women <strong>and</strong> girls <strong>are</strong> held by traffickers who sell the right to have sex withthem, or more accurately, to rape them. While some women sell sex voluntarily <strong>in</strong>Bosnian brothels <strong>and</strong> clubs, local groups believe that the overwhelm<strong>in</strong>g majority(maybe 70-90%) of the women <strong>are</strong> be<strong>in</strong>g held aga<strong>in</strong>st their will or under psychologicalcoercion.The groups <strong>in</strong> Bosnia <strong>are</strong> also conv<strong>in</strong>ced that the reaction by the <strong>in</strong>ternationalcommunity is <strong>in</strong>adequate. Few traffickers <strong>are</strong> ever prosecuted <strong>and</strong> even fe<strong>we</strong>r everspend any time <strong>in</strong> prison. The <strong>in</strong>ternational community could provide support to thejudiciary <strong>in</strong> Bosnia <strong>and</strong> elsewhere to improve the chances of successful prosecutions.It could also provide more tra<strong>in</strong><strong>in</strong>g for, <strong>and</strong> more accountability by, the <strong>in</strong>ternationalcommunity, particularly the military <strong>and</strong> <strong>in</strong>ternational police <strong>in</strong> order to set a highst<strong>and</strong>ard of conduct <strong>in</strong> their missions.In particular, governments contribut<strong>in</strong>g forces should commit themselves to <strong>in</strong>vestigat<strong>in</strong>g<strong>and</strong> prosecut<strong>in</strong>g police <strong>and</strong> military personnel who commit crimes while onpeacekeep<strong>in</strong>g missions <strong>and</strong> to waiv<strong>in</strong>g diplomatic immunity, which blocks such prosecutions.While the U.S. Military Extraterritorial Jurisdiction Act provides our governmentwith authority over U.S. military personnel who commit crimes abroad, nosimilar law exists for the <strong>in</strong>ternational police personnel who, consequently, have immunityfrom prosecution <strong>in</strong> the U.S. This should be changed.A further problem raised by UN officials <strong>and</strong> organizations <strong>in</strong> my recent trip toBosnia is the arms-length relationship that is created when the U.S. hires privatecompanies to recruit <strong>and</strong> employ staff with<strong>in</strong> peacekeep<strong>in</strong>g missions. In Bosnia, theU.S. IPTF cont<strong>in</strong>gent is hired by a private contractor, DynCorp, <strong>and</strong> not by the U.S.government. This situation is said to limit accountability of the U.S. <strong>and</strong> to makeit more difficult to address any unprofessional, corrupt or crim<strong>in</strong>al behavior by U.S.IPTF personnel.The presence of <strong>in</strong>ternational military <strong>and</strong> police forces is essential for countriesrecover<strong>in</strong>g from <strong>in</strong>ternational conflicts <strong>and</strong> <strong>in</strong>ternal strife. Ho<strong>we</strong>ver, the <strong>in</strong>ternationalcommunity needs to address the problem created by the presence of somany unaccompanied men <strong>in</strong> impoverished countries. It should set an example bytak<strong>in</strong>g strong measures to prosecute all traffickers at home <strong>and</strong> assist<strong>in</strong>g othercountries to strengthen their law enforcement responses. Ideally, the U.S. could playa leadership role <strong>in</strong> rais<strong>in</strong>g this issue <strong>in</strong>ternationally by develop<strong>in</strong>g the necessarylegal <strong>and</strong> policy framework <strong>in</strong> the U.S.DIPLOMATIC IMMUNITYImmunity is also a problem with respect to <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> abuse by foreign diplomats<strong>and</strong> officials of <strong>in</strong>ternational organizations <strong>in</strong> the United States. Despitegrow<strong>in</strong>g evidence of abuse of domestic workers that, <strong>in</strong> many <strong>in</strong>stances, amounts to<strong>traffick<strong>in</strong>g</strong> for forced labor, as far as I am aw<strong>are</strong>, not one abusive or <strong>traffick<strong>in</strong>g</strong> dip-VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00049 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
46lomat or <strong>in</strong>ternational organization official has suffered the consequence of be<strong>in</strong>gsent home or denied the right to br<strong>in</strong>g <strong>in</strong> additional domestic workers.Similarly, I have been contacted by NGO partners abroad who have asked for <strong>in</strong>formationabout any U.S. law that would permit workers to sue their U.S. diplomatemployers. I am unaw<strong>are</strong> of any case <strong>in</strong> which an U.S. diplomat has been prosecuted<strong>in</strong> the U.S. for such abuse.In clos<strong>in</strong>g, I want to ensure you that my organization <strong>and</strong> other members of theFreedom Network (USA) look forward to work<strong>in</strong>g with the relevant departments<strong>and</strong> agencies <strong>and</strong> members of Congress <strong>in</strong> order to ensure that traffickers <strong>are</strong> punished<strong>and</strong> the rights of trafficked <strong>persons</strong> <strong>are</strong> protected.Thank you aga<strong>in</strong> for offer<strong>in</strong>g me this opportunity to speak. I would be glad to addressany questions you might have.Senator WELLSTONE. I tell you, your testimony—the collective‘‘you’’—is rivet<strong>in</strong>g, <strong>and</strong> I want to come back with some questions.Hae Jung Cho is project director of the Coalition to Abolish Slavery& Traffick<strong>in</strong>g, <strong>and</strong> s<strong>in</strong>ce you <strong>are</strong> last, I want to give just a littlebit more of an <strong>in</strong>troduction because CAST is based <strong>in</strong> Los Angeles<strong>and</strong> you have been a real pioneer when it comes to help<strong>in</strong>g <strong>traffick<strong>in</strong>g</strong>victims. The organization that Hae Jung Cho represents isthe first <strong>and</strong> only organization <strong>in</strong> the United States exclusivelydedicated to serv<strong>in</strong>g victims of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> a domestic context,<strong>and</strong> <strong>we</strong> thank you for your work.STATEMENT OF HAE JUNG CHO, PROJECT DIRECTOR, COALI-TION TO ABOLISH SLAVERY & TRAFFICKING, LOS ANGELES,CAMs. CHO. Thank you, Senator. I would like to thank both SenatorsWellstone <strong>and</strong> Brownback, also Representative Chris Smith<strong>and</strong> former Representative Gejdenson, for their leadership <strong>in</strong> champion<strong>in</strong>gthe rights of <strong>traffick<strong>in</strong>g</strong> victims, for seek<strong>in</strong>g the <strong>in</strong>put ofnon-governmental organizations, <strong>and</strong> for underst<strong>and</strong><strong>in</strong>g that this isa global problem that also must be fought here at home.As the first <strong>and</strong> only organization exclusively dedicated to assist<strong>in</strong>gvictims of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> the domestic context, the Coalition toAbolish Slavery & Traffick<strong>in</strong>g, CAST, has served over 100 victimss<strong>in</strong>ce 1998. Through CAST’s program victims receive access to food<strong>and</strong> shelter, health <strong>and</strong> mental health services, ESL, job read<strong>in</strong>ess,legal <strong>and</strong> immigration assistance, life skills tra<strong>in</strong><strong>in</strong>g, <strong>and</strong> humanrights education.Although the Victims of Traffick<strong>in</strong>g <strong>and</strong> Violence Protection Actis a great leap forward, there <strong>are</strong> many victims who rema<strong>in</strong> <strong>in</strong> desperatesituations. I hope that the follow<strong>in</strong>g real stories of victimswill illustrate the challenges ahead.One of our clients is a Bangladeshi woman who f<strong>in</strong>ally managedto escape from her traffickers after more than 5 years of cont<strong>in</strong>uousphysical assaults. Her unwaver<strong>in</strong>g desire for justice made possiblethe conviction of her traffickers. Ho<strong>we</strong>ver, before the trial, the traffickerstried to <strong>in</strong>timidate her by send<strong>in</strong>g thugs to beat her brother,burn down their house, <strong>and</strong> threaten her family. Her family memberscont<strong>in</strong>ue to be harassed today.If a victim is asked to help convict these crim<strong>in</strong>als here <strong>in</strong> theUnited States, is she not o<strong>we</strong>d some assurance that her familyback home will be safe from reprisals? In this case, the other convictedtrafficker will be released from prison soon <strong>and</strong> deported.What will prevent deported traffickers from search<strong>in</strong>g out the victim’sfamily members <strong>and</strong> tak<strong>in</strong>g revenge? How can our govern-VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00050 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
47ment work with other governments to ensure the safety of victims’families? If their safety cannot be ensured, could a provision bemade to reunite them with the victims here <strong>in</strong> the United States?Another one of our victims is an Indonesian woman who hadbeen enslaved as a domestic worker for over half of her life. Witha strong desire for justice, she reported her story to the authorities.She was <strong>in</strong>tervie<strong>we</strong>d several times <strong>and</strong> was even asked to helpgather more evidence. Ho<strong>we</strong>ver, 6 months have passed <strong>and</strong> she isstill wait<strong>in</strong>g for the FBI to call her aga<strong>in</strong>. Opportunities to gathercritical evidence <strong>are</strong> disappear<strong>in</strong>g.The next story is about an Indian woman whose case never <strong>we</strong>ntto trial. Although from the beg<strong>in</strong>n<strong>in</strong>g this woman wanted to returnhome, the agents <strong>and</strong> prosecutors <strong>in</strong>sisted on keep<strong>in</strong>g her here toassist <strong>in</strong> the <strong>in</strong>vestigation. After more than 1 year of liv<strong>in</strong>g <strong>in</strong>homeless shelters where no one spoke her language, the victim wasanguished to f<strong>in</strong>d out that no one was to be <strong>in</strong>dicted. She never receivedany of the wages o<strong>we</strong>d to her, <strong>and</strong> she returned to Indiawith essentially noth<strong>in</strong>g. There was no government provision to assisteven <strong>in</strong> her repatriation.The problems <strong>in</strong> these cases stem from, one, a lack of tra<strong>in</strong><strong>in</strong>gfor agents <strong>and</strong> Assistant U.S. attorneys; two, a lack of sensitivityto victim issues <strong>and</strong> an emphasis on a law enforcement goal ratherthan a prioritization of the victim’s <strong>we</strong>lf<strong>are</strong>; <strong>and</strong> three, a lack of<strong>in</strong>teragency coord<strong>in</strong>ation. For example, why was the Department ofLabor not called <strong>in</strong> to obta<strong>in</strong> back wages for these victims? Whatis needed is more manpo<strong>we</strong>r, tra<strong>in</strong><strong>in</strong>g that emphasizes responsivenessto victims’ needs, <strong>and</strong> a will<strong>in</strong>gness on the part of <strong>in</strong>vestigators,prosecutors <strong>and</strong> their supervisors to conduct cases <strong>in</strong> a timelymanner.Even <strong>in</strong> a successful case where restitution for victims is ordered,it is unclear whether victims will ever receive any money becauserestitution is not paid until after the traffickers get out of prison.As sentences <strong>in</strong>crease under the new law, it becomes even less likelythat they will ever see any of their back wages. This is another<strong>are</strong>a where coord<strong>in</strong>ation bet<strong>we</strong>en the Department of Justice <strong>and</strong>the Department of Labor could ensure mean<strong>in</strong>gful outcomes for victims.Many of the victims CAST has been assist<strong>in</strong>g have had to waitfor months to receive a status or work authorization from the INSeven after they have testified <strong>in</strong> a successful <strong>in</strong>voluntary servitudecase. Victims <strong>are</strong> usually not notified of their status, not given anydocuments, <strong>and</strong> not told where they <strong>are</strong> <strong>in</strong> the process. Even INSagents themselves tell us they do not know why one victim wasable to receive a work permit while another waits <strong>in</strong> limbo. In thenew certification process, victims should be given an explanationabout the entire process <strong>and</strong> what their status is when they receiveit. Communication about their legal situation is an important wayfor victims to feel a sense of participation <strong>and</strong> control over theirlives.This lack of consistency is especially extreme for victims <strong>in</strong> socalledretroactive cases, those cases that came to light before thelaw was passed. Several of CAST’s clients, who had previously beengiven work authorization, <strong>are</strong> now <strong>in</strong> limbo aga<strong>in</strong> because theircase was successfully prosecuted but their work authorization ex-VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00051 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
48pired before the T-visa regulations <strong>we</strong>re released. In one case, avictim lost her job when this happened <strong>and</strong> she is now aga<strong>in</strong> <strong>in</strong> crisis.For a formerly enslaved person, lack of certification <strong>and</strong> workauthorization means a return to the vulnerable state of only be<strong>in</strong>gable to work <strong>in</strong> exploitative <strong>and</strong> underground employment. Victims<strong>are</strong> often just as vulnerable to exploitation after they escape fromslavery as before.Thank you.[The prep<strong>are</strong>d statement of Ms. Cho follows:]PREPARED STATEMENT OF HAE JUNG CHO, COALITION TO ABOLISH SLAVERY &TRAFFICKING (CAST)First I would like to thank Senators Wellstone <strong>and</strong> Brownback (<strong>and</strong> RepresentativeChris Smith <strong>and</strong> former Representative Gejdenson) for their leadership <strong>in</strong>champion<strong>in</strong>g the rights of victims of <strong>traffick<strong>in</strong>g</strong>, for seek<strong>in</strong>g the <strong>in</strong>put of nongovernmentalorganizations <strong>and</strong> for underst<strong>and</strong><strong>in</strong>g that this is a global problem that alsomust be fought here at home. I am also heartened that the new Adm<strong>in</strong>istration, especiallyAttorney General Ashcroft, has also s<strong>how</strong>n an <strong>in</strong>terest <strong>in</strong> mov<strong>in</strong>g forwardon this important human rights issue.As the first <strong>and</strong> only organization exclusively dedicated to serv<strong>in</strong>g victims of <strong>traffick<strong>in</strong>g</strong><strong>in</strong> the domestic context, the Coalition to Abolish Slavery & Traffick<strong>in</strong>g(CAST) has served over 100 victims s<strong>in</strong>ce 1998 through <strong>in</strong>tensive <strong>and</strong> comprehensivecase management, <strong>in</strong>formation <strong>and</strong> assistance <strong>and</strong> <strong>in</strong>formation <strong>and</strong> referral.Through CAST’s program, victims receive access to food <strong>and</strong> shelter, health <strong>and</strong>mental health services, ESL <strong>and</strong> job tra<strong>in</strong><strong>in</strong>g <strong>and</strong> referral, legal <strong>and</strong> immigrationassistance, life skills tra<strong>in</strong><strong>in</strong>g, human rights education <strong>and</strong> <strong>in</strong>dividual advocacy asthey participate as a witness <strong>in</strong> a federal crim<strong>in</strong>al <strong>in</strong>vestigation. It is this direct experience,work<strong>in</strong>g to assist trafficked <strong>persons</strong> on a daily basis with their struggleto ga<strong>in</strong> <strong>in</strong>dependence <strong>and</strong> freedom that <strong>in</strong>forms my testimony today.Although the Victims of Traffick<strong>in</strong>g <strong>and</strong> Violence Protection Act is a great leapforward for victim protections, there <strong>are</strong> many victims who rema<strong>in</strong> <strong>in</strong> desperate situations.I hope that the follow<strong>in</strong>g real stories of victims will illustrate the challengesahead as <strong>we</strong> seek to evaluate our progress <strong>in</strong> implement<strong>in</strong>g the Act.PROTECTION FOR THE FAMILIES OF VICTIMSThe first young woman I will speak of is from Bangladesh, who f<strong>in</strong>ally managedto escape from her employers after more than five years of cont<strong>in</strong>uous physical assaults<strong>and</strong> abuse. Her courageous <strong>and</strong> unwaver<strong>in</strong>g desire for justice made possiblethe conviction of her traffickers, one with an eleven-year sentence. Before the trial,the traffickers tried to <strong>in</strong>timidate her by send<strong>in</strong>g thugs to beat her brother, burndown their house <strong>and</strong> threaten her family. The house was saved, but family memberscont<strong>in</strong>ue to be harassed to this day <strong>and</strong> live <strong>in</strong> fear of the associates of thetraffickers. The victim has been ostracized from the Bangladeshi community here<strong>in</strong> the U.S. <strong>and</strong> has been maligned by the traffickers <strong>in</strong> the press of her home country<strong>and</strong> <strong>in</strong> the ethnic press here.If a victim <strong>in</strong> the United States is asked to help convict crim<strong>in</strong>al traffickers <strong>in</strong>the name of justice, isn’t she o<strong>we</strong>d some assurance that her family back <strong>in</strong> her homecountry will be safe from reprisals? In this case, the other convicted trafficker willbe released from prison soon <strong>and</strong> then deported. What will prevent deported traffickersfrom search<strong>in</strong>g out the victim’s family members <strong>and</strong> exact<strong>in</strong>g revenge, especially<strong>in</strong> places where the traffickers have <strong>in</strong>fluence <strong>and</strong> po<strong>we</strong>r <strong>and</strong> the victims likelynone? How can our government work with other governments to ensure the safetyof victim’s families? And if their safety cannot be ensured <strong>in</strong> their home country,could a provision be made to reunite them with the victims here <strong>in</strong> the UnitedStates?NEED FOR RESOURCES, MANPOWER AND TRAINING FOR INVESTIGATORS ANDPROSECUTORSThe next stories I will tell po<strong>in</strong>t to the lack of resources, manpo<strong>we</strong>r <strong>and</strong> tra<strong>in</strong><strong>in</strong>gto move forward the <strong>in</strong>vestigation <strong>and</strong> prosecution of these cases. One of our clientsis a woman from Indonesia who had been enslaved for over half of her life <strong>and</strong> wasnever paid for her labor. She also came to CAST with a strong desire for justice.We helped her to report her story to the authorities. At first, the FBI <strong>in</strong>tervie<strong>we</strong>dthe victim thoroughly <strong>and</strong> asked her to help them gather more evidence. Ho<strong>we</strong>ver,VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00052 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
49six months have passed, <strong>and</strong> she is still wait<strong>in</strong>g for the FBI to call her to set upthe consensual <strong>monitor<strong>in</strong>g</strong>. Opportunities to gather evidence cont<strong>in</strong>ue to disappear.This victim had also reported that this family had another domestic worker <strong>in</strong> anotherhouse. We do not know whether that woman is still <strong>in</strong> that situation.The next story is about a woman from India whose case never <strong>we</strong>nt to trial. Although,from the beg<strong>in</strong>n<strong>in</strong>g, this woman wanted to return home to her daughter <strong>and</strong>gr<strong>and</strong>children, the agents <strong>and</strong> prosecutors <strong>in</strong>sisted on keep<strong>in</strong>g her here to assist <strong>in</strong>the <strong>in</strong>vestigation. They <strong>we</strong>re even opposed to mov<strong>in</strong>g her to a shelter <strong>in</strong> another citywhere the staff spoke her language <strong>and</strong> sh<strong>are</strong>d her culture because it might have<strong>in</strong>terfered with the <strong>in</strong>vestigation. This victim was <strong>in</strong>itially <strong>in</strong>tervie<strong>we</strong>d severaltimes. Then there <strong>we</strong>re no developments for many months. After more than oneyear, a year of liv<strong>in</strong>g <strong>in</strong> homeless shelters where no one spoke her language, theprosecutors decided that they would not pursue a prosecution. No one was ever <strong>in</strong>dicted,even on harbor<strong>in</strong>g or smuggl<strong>in</strong>g charges. She never received any of thewages o<strong>we</strong>d to her, <strong>and</strong> she returned to India with essentially noth<strong>in</strong>g. There wasno government provision to assist <strong>in</strong> her repatriation.The problems <strong>in</strong> this case stem from (1) a lack of tra<strong>in</strong><strong>in</strong>g for agents <strong>and</strong> assistantU.S. attorneys on <strong>how</strong> to <strong>in</strong>vestigate <strong>and</strong> prosecute <strong>traffick<strong>in</strong>g</strong> cases, (2) a lack ofsensitivity to victim issues <strong>and</strong> an emphasis on the law enforcement goal ratherthan a prioritization of the victim’s <strong>we</strong>lf<strong>are</strong> <strong>and</strong> (3) a lack of <strong>in</strong>teragency coord<strong>in</strong>ation.For example, why wasn’t the Department of Labor called <strong>in</strong> to at least file awage claim for the victim? What is needed is more manpo<strong>we</strong>r, tra<strong>in</strong><strong>in</strong>g that emphasizesresponsiveness to victim’s needs, a will<strong>in</strong>gness on the part of <strong>in</strong>vestigators <strong>and</strong>prosecutors to prioritize these cases so that they will be conducted <strong>in</strong> a timely manner<strong>and</strong>, f<strong>in</strong>ally, <strong>in</strong>stitutionalization of expertise. We have too many times seen goodagents <strong>and</strong> prosecutors promoted or moved just as they <strong>we</strong>re becom<strong>in</strong>g experts <strong>in</strong>this highly specialized <strong>are</strong>a. Their replacements come with no tra<strong>in</strong><strong>in</strong>g, backgroundor experience <strong>and</strong> must learn by do<strong>in</strong>g.LACK OF CONSISTENCY IN IMPLEMENTING VICTIM BENEFITSMany of the victims CAST has been assist<strong>in</strong>g have had to wait for months to receivea status or a work permit from the INS, even after they have testified <strong>in</strong> asuccessful <strong>in</strong>voluntary servitude case. Victims <strong>are</strong> usually not notified of their status,not given documents <strong>and</strong> not told where they <strong>are</strong> <strong>in</strong> the process. There is notransp<strong>are</strong>ncy <strong>and</strong> no accountability. Even INS agents themselves tell us they don’tknow why one victim was able to receive a work permit while another waits <strong>in</strong>limbo. In the new ‘‘certification’’ process created by the Victims of Traffick<strong>in</strong>g <strong>and</strong>Violence Protection Act, there should be a formal notification process so that victimscan underst<strong>and</strong> what the process is, when they move from one stage to another <strong>and</strong>what their exact status is when they receive it. Communication about their legalsituation is an important way for victims to feel a sense of participation <strong>and</strong> controlover their lives.This lack of consistency is especially extreme for victims <strong>in</strong> so-called ‘‘retroactive’’cases—those cases that came to light before the law was passed <strong>in</strong> October 2000.Several of CAST’s clients, who had previously been given work authorization, <strong>are</strong>now <strong>in</strong> limbo aga<strong>in</strong> because their case was successfully prosecuted but their workpermits expired before the T visa regulations <strong>we</strong>re released. In one case, a victimlost her job when this happened, <strong>and</strong> she is now aga<strong>in</strong> <strong>in</strong> crisis. These victims <strong>are</strong>fall<strong>in</strong>g through the cracks because the new ‘‘cont<strong>in</strong>ued presence’’ process does notapply to those whose cases have already been prosecuted, <strong>and</strong> it seems that theymust wait several months while their T visa applications get prep<strong>are</strong>d, filed <strong>and</strong>processed. For a victim of slavery with no sav<strong>in</strong>gs, the lack of valid work authorizationmeans a return to the vulnerable state of only be<strong>in</strong>g able to work <strong>in</strong> exploitative<strong>and</strong> underground employment.One f<strong>in</strong>al note about victim benefits. The Office for Refugee Resettlement mustbe commended for its organizational will to provide services to a completely newpopulation. Ho<strong>we</strong>ver, refugee programs <strong>are</strong> limited <strong>in</strong> the ways that they can help<strong>traffick<strong>in</strong>g</strong> victims because they <strong>we</strong>re created for a different population. Refugeeshave cut ties to their homel<strong>and</strong> <strong>and</strong> arrive <strong>in</strong> the U.S. eager to start new lives. Theyoften jo<strong>in</strong> relatives or a larger community. Traffick<strong>in</strong>g victims, just released fromthe isolation of a slavery-like situation, <strong>are</strong> bewildered <strong>and</strong> face an uncerta<strong>in</strong>present <strong>and</strong> future. Victims need time to adjust to their new situation <strong>and</strong> time toparticipate <strong>in</strong> an ongo<strong>in</strong>g <strong>in</strong>vestigation <strong>and</strong> prosecution. Usually their hous<strong>in</strong>g situationis unstable as they move from Good Samaritan to emergency shelter to transitionalshelter to perhaps other hous<strong>in</strong>g situations. The ORR match<strong>in</strong>g grant programthat aims to place victims <strong>in</strong> a job with<strong>in</strong> four months will not be successfulfor the majority of <strong>traffick<strong>in</strong>g</strong> victims who lack basic English <strong>and</strong> other competitiveVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00053 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
50job skills. Victims will often fall <strong>in</strong>to jobs that <strong>are</strong> aga<strong>in</strong> <strong>in</strong> <strong>in</strong>formal <strong>in</strong>dustries thatdo not pay m<strong>in</strong>imum wage.The most disturb<strong>in</strong>g case <strong>in</strong> po<strong>in</strong>t is the situation of the victims from the AmericanSamoa garment factory or Daewoosa case. Although the roughly 200 victims<strong>we</strong>re certified <strong>and</strong> mostly did receive the refugee cash assistance, food stamps <strong>and</strong>medi-c<strong>are</strong> coverage they <strong>we</strong>re entitled to, there have been reports that many ofthese victims <strong>are</strong> <strong>in</strong> a precarious state. Some victims have been h<strong>and</strong><strong>in</strong>g over theirfood stamps <strong>and</strong> cash assistance as payment for room <strong>and</strong> board. In addition, somehave accepted below m<strong>in</strong>imum wage garment factory jobs <strong>in</strong> order to make moneyto pay back their sponsors for the plane f<strong>are</strong> from American Samoa. This scenariois much too rem<strong>in</strong>iscent of their situation at the Daewoosa factory. This is the unfortunateresult when victims <strong>are</strong> forced to fend for themselves before they havebeen given the resources to be able to build an <strong>in</strong>dependent life.Victims <strong>are</strong> often just as vulnerable to exploitation after they escape from slaveryas before.Senator WELLSTONE. Well, I want to thank all of you.I want to also po<strong>in</strong>t out that Ambassador Ely-Raphel stayed tolisten to your testimony, <strong>and</strong> I want to thank Ambassador Ely-Raphel for do<strong>in</strong>g so. I th<strong>in</strong>k sometimes people come <strong>in</strong>, testify proforma, <strong>and</strong> leave, <strong>and</strong> I would like to thank you for that, AmbassadorEly-Raphel.Let me not do this <strong>in</strong> any particular order. Hae Jung Cho, let meask you this. The examples that you <strong>we</strong>re giv<strong>in</strong>g—you know, I wastalk<strong>in</strong>g about agency coord<strong>in</strong>ation, but I was talk<strong>in</strong>g about like <strong>in</strong>Wash<strong>in</strong>gton br<strong>in</strong>g<strong>in</strong>g everyone together. It sounds like what you<strong>are</strong> say<strong>in</strong>g is that on the ground where this is happen<strong>in</strong>g, that iswhere you <strong>are</strong> not gett<strong>in</strong>g the agency coord<strong>in</strong>ation. At least fromthe examples you gave, clearly INS, Labor, Justice just <strong>are</strong> not <strong>in</strong>sync. Is that correct?Ms. CHO. We would have to say that on the ground, the agentsthat <strong>we</strong> <strong>are</strong> work<strong>in</strong>g with <strong>are</strong> usually very dedicated. Sometimesthey have a lack of tra<strong>in</strong><strong>in</strong>g. At the bottom <strong>and</strong> also, of course, hereat the top, there is an emphasis on coord<strong>in</strong>ation, but somewhere <strong>in</strong>the middle it seems to have gotten lost, the supervisors of theground-level agents, the district directors——Senator WELLSTONE. This is an important dist<strong>in</strong>ction that you<strong>are</strong> mak<strong>in</strong>g. You have got people who <strong>are</strong> so dedicated that you <strong>are</strong>work<strong>in</strong>g with, but then when it comes to actually the agenciesbe<strong>in</strong>g able to follow through with what needs to be done to makesure a woman is not without work, some<strong>how</strong> <strong>in</strong> the middle it doesnot happen. Is that what you <strong>are</strong> say<strong>in</strong>g?Ms. CHO. Yes. We have had cases where INS agents made reauthorizationrequests for <strong>traffick<strong>in</strong>g</strong> victims for work permits <strong>and</strong>those requests <strong>we</strong>re not approved.Senator WELLSTONE. I can also <strong>in</strong> my own way talk to CommissionerZiegler about this.Your testimony just proves aga<strong>in</strong> the importance of the NGOs,<strong>and</strong> the work that you all do is, I th<strong>in</strong>k, so critical to <strong>in</strong>form<strong>in</strong>g allof us.I do not know if you mentioned this or not. Are the <strong>in</strong>cidents of<strong>traffick<strong>in</strong>g</strong> <strong>in</strong> the Los Angeles <strong>are</strong>a <strong>in</strong>creas<strong>in</strong>g or decreas<strong>in</strong>g, or doyou have any sense of that? And why to <strong>how</strong>ever you ans<strong>we</strong>r it.Ms. CHO. We feel that <strong>traffick<strong>in</strong>g</strong> is a huge problem <strong>in</strong> the LosAngeles <strong>are</strong>a. We have no way to know whether the overall <strong>in</strong>cidenceis <strong>in</strong>creas<strong>in</strong>g or decreas<strong>in</strong>g. What I can say that <strong>in</strong> 2001, <strong>we</strong>seemed to, <strong>in</strong> the spr<strong>in</strong>g of the year, see an <strong>in</strong>crease <strong>in</strong> cases thatVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00054 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
51<strong>we</strong>re referred to us <strong>and</strong> then, as Ann Jordan mentioned, there wasa decrease <strong>in</strong> referrals from law enforcement agencies. Recently <strong>we</strong>have started to see an <strong>in</strong>crease of referrals once aga<strong>in</strong>, but actuallythrough the local community. I th<strong>in</strong>k our outreach efforts have resulted<strong>in</strong> Good Samaritans <strong>and</strong> other community organizationsbr<strong>in</strong>g<strong>in</strong>g victims to us after they have escaped.Senator WELLSTONE. And then with the law <strong>and</strong> with justice, itmay be a question of the whole question of homel<strong>and</strong> defense <strong>and</strong>war on terrorism.Ms. CHO. Yes.Senator WELLSTONE. See, that is one of the questions <strong>we</strong> alsowant to get to. I th<strong>in</strong>k ultimately I would want to know, <strong>and</strong> Ith<strong>in</strong>k Senator Brownback would too, from everyone whether ornot—if ultimately <strong>we</strong> need to look at more resources <strong>and</strong> morewomen <strong>and</strong> manpo<strong>we</strong>r to do the job, then <strong>we</strong> ought to step forwardwith that request <strong>and</strong> push it as hard as <strong>we</strong> can. That may be partof what <strong>we</strong> <strong>are</strong> talk<strong>in</strong>g about. Unfortunately, this is no small issue.No small issue at all.Ms. Jordan, can I ask you? On the whole issue of private contractors<strong>and</strong> <strong>in</strong>volved <strong>in</strong> <strong>traffick<strong>in</strong>g</strong> or what you described as rape, Ith<strong>in</strong>k is the way you put it, what is the record of DynCorp?Ms. JORDAN. I know that there has been a lot of criticism ofDynCorp, <strong>and</strong> I will just say as for peacekeep<strong>in</strong>g, I have a b<strong>in</strong>derhere full of cases on problems with peacekeep<strong>in</strong>g. And DynCorp is<strong>in</strong>volved <strong>in</strong> Bosnia with hir<strong>in</strong>g the Americans who serve there onthe International Police Task Force. I met the head of the U.N.mission there, Jacque Kle<strong>in</strong>, <strong>and</strong> I met also with the head of theIPTF, the commissioner, <strong>and</strong> the woman who runs the stop team.This is a team that goes out <strong>and</strong> raids the clubs. They have toldme that DynCorp for them is a real problem, or this whole systemis a real problem for them because they give the example of theFrench. They will send their national gendarmerie over there, <strong>and</strong>they <strong>are</strong> <strong>in</strong> a comm<strong>and</strong> position. They <strong>are</strong> controlled. They <strong>are</strong>under a military structure <strong>and</strong> they suffer consequences if theymisbehave or get <strong>in</strong>volved <strong>in</strong> anyth<strong>in</strong>g crim<strong>in</strong>al.Whereas, DynCorp has no such system. These men <strong>are</strong> hired.Many of them <strong>are</strong> retired. They go over there. They get paid$100,000 a year. Jacque Kle<strong>in</strong> told me they only give them 3 days’tra<strong>in</strong><strong>in</strong>g when they get there. All he tells them is that <strong>we</strong> knowthat you th<strong>in</strong>k you <strong>are</strong> go<strong>in</strong>g to have fun over here, but if you getcaught go<strong>in</strong>g to clubs, you <strong>are</strong> go<strong>in</strong>g to get sent home. But that isthe only consequence that is paid. At that po<strong>in</strong>t, they send a reportback to the U.N. The U.N.—for the United States—then wouldsend it back to the State Department <strong>and</strong> the State Departmentwould decide whether to send it to Justice. So, basically they justget sent home. And I could not f<strong>in</strong>d out from him of anyone whohad ever been prosecuted <strong>in</strong> any country for this k<strong>in</strong>d of problem,but it is much worse when you have a company like DynCorp becausethere is no control.Senator WELLSTONE. I th<strong>in</strong>k <strong>we</strong> have heard some of the reportsfrom Colombia as <strong>we</strong>ll. It might be worth tak<strong>in</strong>g some time for me<strong>and</strong> others to meet directly with DynCorp <strong>and</strong> ask them, <strong>in</strong> lightof this, what they do <strong>in</strong>tend to do.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00055 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
52Ms. Smolenski, <strong>we</strong> really <strong>in</strong> a way already focused <strong>in</strong> on a lot ofwhat you said. We had a hear<strong>in</strong>g this morn<strong>in</strong>g where <strong>we</strong> <strong>we</strong>re talk<strong>in</strong>gabout two protocols, one on child soldiers <strong>and</strong> the other was onthe sale of children, child prostitution, <strong>and</strong> child pornography,which certa<strong>in</strong>ly ties <strong>in</strong>to what this hear<strong>in</strong>g has been about. I th<strong>in</strong>kthat the Senate has not yet ratified the protocols. I th<strong>in</strong>k <strong>we</strong> <strong>are</strong>go<strong>in</strong>g to. It looks very good. I thought it was a good day becauseI th<strong>in</strong>k <strong>we</strong> <strong>are</strong> all <strong>in</strong> agreement <strong>and</strong> I th<strong>in</strong>k it is com<strong>in</strong>g out of theForeign Relations Committee. Do you th<strong>in</strong>k the protocol will be atall helpful?Ms. SMOLENSKI. Yes, it will def<strong>in</strong>itely be helpful, <strong>and</strong> especiallys<strong>in</strong>ce it calls attention to the U.N. Convention on the Rights of theChild <strong>in</strong> general, which is a very po<strong>we</strong>rful human rights convention.But the optional protocol does go much further than the orig<strong>in</strong>alconvention on detail<strong>in</strong>g <strong>how</strong> children can be protected, <strong>and</strong> <strong>we</strong>absolutely support ratification of it.Senator, may I followup on someth<strong>in</strong>g that Ann Jordan saidabout DynCorp?Senator WELLSTONE. If I say no, what would you then do?Ms. SMOLENSKI. I will obediently close my mouth.Senator WELLSTONE. I do not believe that for a moment.I would never say no.Ms. SMOLENSKI. I am not kidd<strong>in</strong>g, but I would come up to youafterwards.Senator WELLSTONE. If I did say no, I would hope you would ignorethat. Yes.Ms. SMOLENSKI. I just wanted to say that ECPAT-USA hasformed a coalition of groups to try to deal with the U.S. militaryproblem of child prostitution because it is known that whereverthere is a U.S. military facility <strong>and</strong> it is not just U.S. military, buts<strong>in</strong>ce <strong>we</strong> <strong>are</strong> at ECPAT-USA, <strong>we</strong> work on U.S. military facilities.There is an <strong>in</strong>crease <strong>in</strong> child prostitution <strong>in</strong> that <strong>are</strong>a. There <strong>are</strong>lots of th<strong>in</strong>gs that the U.S. Defense Department could do, <strong>and</strong> <strong>we</strong>met with them <strong>and</strong> said they could do these th<strong>in</strong>gs. Basically, theysaid, <strong>we</strong>ll, <strong>we</strong> <strong>are</strong> not go<strong>in</strong>g to do those <strong>and</strong> that was that. So, Ijust wanted to call your attention to the problem <strong>and</strong> that <strong>we</strong> havesuggestions for what they could do, <strong>and</strong> I am wonder<strong>in</strong>g if youmight help us move them to another level.Senator WELLSTONE. You <strong>are</strong> just suggest<strong>in</strong>g another easy issuefor us to get <strong>in</strong>volved with.Ms. SMOLENSKI. It should not cost that much money, though.Senator WELLSTONE. I would be very <strong>in</strong>terested <strong>in</strong> your giv<strong>in</strong>g usyour best ideas.I probably should not say this <strong>in</strong> a formal hear<strong>in</strong>g, but especiallysome of what you <strong>we</strong>re say<strong>in</strong>g, Ms. Smolenski, I was th<strong>in</strong>k<strong>in</strong>g—noself-righteousness <strong>in</strong>tended. I was try<strong>in</strong>g to figure out what theproblem is with men. I should not say this as part of the hear<strong>in</strong>g.I am very serious about this. I just cannot quite underst<strong>and</strong> this.I do not th<strong>in</strong>k <strong>we</strong> <strong>are</strong> go<strong>in</strong>g to have a hear<strong>in</strong>g about the state ofmen.Some of you traveled a long way, <strong>and</strong> I th<strong>in</strong>k <strong>we</strong> <strong>are</strong> go<strong>in</strong>g tostay <strong>in</strong> very close touch. I am hop<strong>in</strong>g sometime to come to Los Angeles<strong>and</strong> maybe do some work with you there. I th<strong>in</strong>k <strong>we</strong> madea good start a year ago, <strong>and</strong> I th<strong>in</strong>k everybody who testified today,VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00056 Fmt 6633 Sfmt 6602 80844 SFRELA1 PsN: SFRELA1
53across the board, is committed to really do<strong>in</strong>g our level best. Ith<strong>in</strong>k my job is to be pushy <strong>and</strong> to really keep push<strong>in</strong>g hard, <strong>and</strong>I th<strong>in</strong>k Senator Brownback feels the same way. I th<strong>in</strong>k this wasa very, very important hear<strong>in</strong>g. I would like to thank everyone forcom<strong>in</strong>g. Thank you for your <strong>in</strong>terest. Thank you for your commitment.Thank you for your work.And the subcommittee is adjourned.[Whereupon, at 4:49 p.m., the subcommittee was adjourned.]ADDITIONAL STATEMENTS SUBMITTED FOR THE RECORDPREPARED STATEMENT OF THERESA LOAR, PRESIDENT, VITAL VOICES GLOBALPARTNERSHIPI want to thank the Senators for the opportunity to provide testimony about theimplementation of the legislation to combat <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> protect <strong>traffick<strong>in</strong>g</strong> victimsthat would not have been possible without your strong leadership. I wish toacknowledge Senators Wellstone’s <strong>and</strong> Brownback’s cont<strong>in</strong>ued commitment to ensurethat this issue does not get lost among the many important issues fac<strong>in</strong>g ourcountry at this time.We have moved <strong>in</strong>to a new <strong>and</strong> critical time for the United States anti-<strong>traffick<strong>in</strong>g</strong>work. It is a time of expectations heightened by the promise of the world’s mostcomprehensive <strong>and</strong> potentially po<strong>we</strong>rful law aga<strong>in</strong>st <strong>traffick<strong>in</strong>g</strong>. In the previous period—theone lead<strong>in</strong>g up to the passage of the Traffick<strong>in</strong>g Victims Protection Actof 2000—I had the honor of be<strong>in</strong>g the Director of the President’s Interagency Councilon Women, the office that for many years led the coord<strong>in</strong>ation of the ExecutiveBranch’s efforts to combat <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>. We worked closely with Congress,with the Departments of State, Justice, Labor, <strong>and</strong> Health <strong>and</strong> Human Services,with nongovernmental <strong>and</strong> <strong>in</strong>ternational organizations <strong>in</strong> the U.S. <strong>and</strong> <strong>in</strong> many regionsof the world. I am proud of our sh<strong>are</strong>d accomplishments dur<strong>in</strong>g that periodto get <strong>traffick<strong>in</strong>g</strong> on the U.S. <strong>and</strong> world agenda.Due to the leadership of Senators Brownback <strong>and</strong> Wellstone, <strong>and</strong> RepresentativeChris Smith <strong>in</strong> the House, the United States has a law to protect <strong>traffick<strong>in</strong>g</strong> victims<strong>and</strong> to prosecute <strong>traffick<strong>in</strong>g</strong>. This now presents both opportunity <strong>and</strong> responsibility.Our responsibility will be met by prosecut<strong>in</strong>g traffickers <strong>in</strong> numbers significantenough not only to punish but to deter, f<strong>in</strong>d<strong>in</strong>g <strong>and</strong> assist<strong>in</strong>g enslaved victims <strong>in</strong>numbers that <strong>are</strong> defensible comp<strong>are</strong>d to the estimated thous<strong>and</strong>s of new <strong>traffick<strong>in</strong>g</strong>victims <strong>in</strong> the U.S. each year, <strong>and</strong> prevent<strong>in</strong>g mothers, fathers, sisters, brothers,daughters <strong>and</strong> sons around the world from be<strong>in</strong>g trafficked <strong>in</strong> the first <strong>in</strong>stance.After almost a year <strong>and</strong> a half, some aspects of legislative implementation <strong>are</strong>progress<strong>in</strong>g. Secretary Col<strong>in</strong> Po<strong>we</strong>ll recently convened the first meet<strong>in</strong>g of the Cab<strong>in</strong>et-levelTask Force. We look forward to work<strong>in</strong>g closely with the Secretary <strong>and</strong>Ambassador Nancy Ely-Raphel, the head of the Office to Combat <strong>and</strong> Monitor Traffick<strong>in</strong>g,to make real progress <strong>in</strong> the fight aga<strong>in</strong>st this tragic human rights abuse,grow<strong>in</strong>g health threat, <strong>and</strong> global crim<strong>in</strong>al activity.In several cities, such as Chicago <strong>and</strong> New York, service providers <strong>are</strong> beg<strong>in</strong>n<strong>in</strong>gto assess what local capacity exists to provide services to victims of <strong>traffick<strong>in</strong>g</strong>. Ho<strong>we</strong>ver,<strong>we</strong> <strong>are</strong> aw<strong>are</strong> of no Department of Justice fund<strong>in</strong>g to service providers result<strong>in</strong>gfrom the legislation as contemplated by section 107(B)(2). This does not portend<strong>we</strong>ll for the prospects of <strong>traffick<strong>in</strong>g</strong> victims <strong>in</strong> our country (as <strong>we</strong>ll as the prospectsof identify<strong>in</strong>g witnesses for prosecution). This also is hard to underst<strong>and</strong> given thereal commitment to this issue exhibited so far by the Attorney General.I am hopeful that the T-visa will become a cornerstone permitt<strong>in</strong>g the humanetreatment of <strong>traffick<strong>in</strong>g</strong> victims <strong>and</strong> <strong>in</strong>creas<strong>in</strong>g the likelihood that victims will helpprosecute their traffickers. I am concerned <strong>how</strong>ever that the new regulations maybe unworkable <strong>in</strong> the real world context. Does the process make sense for a teenager,for example, who has endured years of treatment tantamount to torture <strong>and</strong>recently escaped enslavement by her captors. Did the Senators <strong>in</strong>tend that such avictim endure a complex application process <strong>and</strong> be charged application fees (whichpurport to be waivable). Is it possible that the process has been made sufficientlydifficult for these victims of crime that they will not reach out for help?We <strong>are</strong> confident that if provided adequate resources the Traffick<strong>in</strong>g <strong>in</strong> Persons<strong>and</strong> Worker Exploitation Task Force, co-chaired by the Departments of Justice <strong>and</strong>Labor, will cont<strong>in</strong>ue to lead the United States’ commitment to prosecut<strong>in</strong>g caseswhile not further victimiz<strong>in</strong>g those who have escaped the traffickers. There is greatVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00057 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
54motivation <strong>and</strong> commitment among the prosecutors <strong>in</strong> the Civil Rights Division toexp<strong>and</strong> their skilled prosecution of traffickers. But more prosecutors dedicated to<strong>traffick<strong>in</strong>g</strong> cases <strong>are</strong> needed.On their face, these may appear to be domestic elements of the global fightaga<strong>in</strong>st <strong>traffick<strong>in</strong>g</strong>. Ho<strong>we</strong>ver with <strong>traffick<strong>in</strong>g</strong> the domestic <strong>and</strong> <strong>in</strong>ternational <strong>are</strong><strong>in</strong>tertw<strong>in</strong>ed. For example, when U.S. officials go to a country of orig<strong>in</strong> to participate<strong>in</strong> anti-<strong>traffick<strong>in</strong>g</strong> tra<strong>in</strong><strong>in</strong>g or to speak at a conference, one of the first questionsthat arise concerns whether <strong>we</strong> have prosecuted any traffickers <strong>in</strong> the U.S. fromthat country. As long as this is ans<strong>we</strong>red <strong>in</strong> the negative, <strong>we</strong> have less chance ofconv<strong>in</strong>c<strong>in</strong>g other countries of our seriousness <strong>in</strong> confront<strong>in</strong>g this problem.Let me propose a straightforward, but I believe critical, way to gauge mean<strong>in</strong>gfulprogress of implementation of the legislation. Congressional hear<strong>in</strong>gs <strong>in</strong> the futureon this subject should ask for the status of the follow<strong>in</strong>g: 1) <strong>how</strong> many traffickershave been prosecuted <strong>and</strong> jailed for terms commensurate with the he<strong>in</strong>ousness ofthe crime; 2) <strong>how</strong> many victims have been identified, rescued <strong>and</strong> assisted; <strong>and</strong> 3)what <strong>are</strong> the measurable results of prevention projects <strong>in</strong> countries of orig<strong>in</strong>. These<strong>are</strong> the core questions that must frame the discussion <strong>in</strong> the future.We have rough basel<strong>in</strong>es to start from today. The Department of Justice, for example,knows the number of <strong>in</strong>vestigations underway <strong>and</strong> prosecutions of traffickersundertaken. It knows <strong>how</strong> many victims it is work<strong>in</strong>g with <strong>and</strong> the Department ofHealth <strong>and</strong> Human Services knows <strong>how</strong> many victims have been certified. NGOsaround the country should be encouraged to tabulate the victims <strong>and</strong> documenttheir stories that they assist (even if those victims for whatever reasons choose notto seek help from the justice system).The effectiveness of the <strong>in</strong>ternational programs sponsored by the U.S. governmentshould be measured <strong>in</strong> much the same way. Tak<strong>in</strong>g account of the specific circumstances<strong>we</strong> f<strong>in</strong>d <strong>in</strong> each country <strong>we</strong> engage, <strong>we</strong> should ask <strong>how</strong> specifically doour tra<strong>in</strong><strong>in</strong>gs, cooperative arrangements, conferences, <strong>and</strong> meet<strong>in</strong>gs result <strong>in</strong> advanc<strong>in</strong>gthese objectives <strong>in</strong> measurable ways. Nearly every country of the world has<strong>in</strong> one way or another, by sign<strong>in</strong>g the U.N. Protocol or through other means, expressedan official position that <strong>traffick<strong>in</strong>g</strong> is an <strong>in</strong>tolerable human rights violation<strong>and</strong> crime. The projects that our government undertakes must now assist thesecountries achieve the practical results that reflect that view.We have a long way to go. We know this because there is another basel<strong>in</strong>e thatthese numbers should be comp<strong>are</strong>d aga<strong>in</strong>st: Up to 50,000 new victims <strong>are</strong> enslaved<strong>in</strong> the United States by <strong>traffick<strong>in</strong>g</strong> every year; more than one million around theworld. We must not lose the momentum <strong>in</strong> the fight aga<strong>in</strong>st this he<strong>in</strong>ous crime. We<strong>are</strong> mak<strong>in</strong>g progress, but it is too early to tell whether our commitment to practicalresults that prosecute traffickers <strong>and</strong> assist victims will match the promise of thepo<strong>we</strong>rful tools conta<strong>in</strong>ed <strong>in</strong> this legislation.Vital Voices is work<strong>in</strong>g to fulfill the promise of this new law <strong>in</strong> two importantways, by rais<strong>in</strong>g aw<strong>are</strong>ness of the issue <strong>in</strong> the United States <strong>and</strong> around the world<strong>and</strong> by tra<strong>in</strong><strong>in</strong>g <strong>and</strong> empo<strong>we</strong>r<strong>in</strong>g women <strong>in</strong> countries stricken by <strong>traffick<strong>in</strong>g</strong> to fightthis human rights abuse <strong>in</strong> their own country.To raise aw<strong>are</strong>ness, <strong>we</strong> <strong>are</strong> launch<strong>in</strong>g public service announcements developed bythe Office of United Nations Drug Control <strong>and</strong> Crime Prevention for use <strong>in</strong> the U.S.Vital Voices is currently work<strong>in</strong>g to tag these award-w<strong>in</strong>n<strong>in</strong>g public service announcementswith a call to action to abolish this modern-day slavery here <strong>in</strong> theU.S. <strong>and</strong> globally. Additionally, <strong>we</strong> <strong>are</strong> publish<strong>in</strong>g a regular newsletter via e-mail<strong>and</strong> on l<strong>in</strong>e to over 2000 representatives of governments, nongovernmental organizations<strong>and</strong> <strong>in</strong>ternational <strong>in</strong>stitutions. Our goal is to promote effective partnershipsbet<strong>we</strong>en government officials <strong>and</strong> NGOs across the nation <strong>and</strong> around the world tofight <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>.In collaboration with Georgetown University, the Vital Voices Global LeadershipInstitute is tra<strong>in</strong><strong>in</strong>g emerg<strong>in</strong>g women leaders to fight <strong>traffick<strong>in</strong>g</strong> on the ground <strong>in</strong>source, dest<strong>in</strong>ation <strong>and</strong> transit countries <strong>in</strong> the <strong>are</strong>as of prevention, protection <strong>and</strong>prosecution.PREPARED STATMENT OF EUGENE SCALIA, SOLICITOR OF LABOR, U.S. DEPARTMENT OFLABORI am submitt<strong>in</strong>g this statement on behalf of the Department of Labor <strong>in</strong> connectionwith the Subcommittee’s March 7 hear<strong>in</strong>g on the Traffick<strong>in</strong>g Victims ProtectionAct of 2000 (TVPA).The Department of Labor has a strong commitment to the objectives of the Act,<strong>and</strong> I am pleased to describe the measures <strong>we</strong> have taken, <strong>and</strong> plan to take, to com-VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00058 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
55bat <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>. Secretary Chao considers effective implementation of theTVPA to be an important departmental objective.It should be stated at the outset that Congress is to be applauded for pass<strong>in</strong>g thisgroundbreak<strong>in</strong>g legislation with overwhelm<strong>in</strong>g bipartisan support <strong>in</strong> 2000. This isthe first comprehensive law <strong>in</strong> the United States designed to stop <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>.Congress adopted a three-prong approach—prevention; protection <strong>and</strong> assistance;<strong>and</strong> prosecution—because it recognized that <strong>traffick<strong>in</strong>g</strong> is a multi-dimensionalproblem. We will not be fully effective if <strong>we</strong> <strong>in</strong>crease our prosecution effort here <strong>in</strong>the United States without attempt<strong>in</strong>g to stop <strong>traffick<strong>in</strong>g</strong> where it orig<strong>in</strong>ates—oftenoverseas—<strong>and</strong> without endeavor<strong>in</strong>g to protect <strong>and</strong> assist the victims.As Congress recognized <strong>in</strong> its f<strong>in</strong>d<strong>in</strong>gs, <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong> is not limited toprostitution. Rather, ‘‘[t]his grow<strong>in</strong>g transnational crime also <strong>in</strong>cludes forced labor<strong>and</strong> <strong>in</strong>volves significant violations of labor, public health, <strong>and</strong> human rights st<strong>and</strong>ardsworldwide.’’ Thus, from the Department of Labor’s perspective, <strong>traffick<strong>in</strong>g</strong> isnot only a moral <strong>and</strong> human rights problem, it is also a serious workplace issue.Far too many <strong>traffick<strong>in</strong>g</strong> victims <strong>are</strong> work<strong>in</strong>g <strong>in</strong> the fields <strong>and</strong> factories of this country,suffer<strong>in</strong>g under exploitative labor practices. Too often, these victims <strong>are</strong> forcedto work aga<strong>in</strong>st their will through violence, threats of violence, <strong>and</strong> other forms ofcoercion. Typically, they work very long hours without receiv<strong>in</strong>g lawful pay, <strong>and</strong>often work, live <strong>and</strong> <strong>are</strong> transported <strong>in</strong> unsafe conditions. These practices not onlyharm the victimized workers, but also permit the abusive employers to ga<strong>in</strong> an unfaircompetitive advantage over the vast majority of law-abid<strong>in</strong>g employers. Regardless<strong>how</strong> simple or <strong>how</strong> sophisticated <strong>traffick<strong>in</strong>g</strong> enterprises may be, they all denythe essential humanity of their victims.Department of Labor agencies have important roles to play <strong>in</strong> implement<strong>in</strong>g eachof the three prongs of the TVPA’s anti-<strong>traffick<strong>in</strong>g</strong> strategy. The agencies receive direction,<strong>and</strong> support, from the highest levels of the Department. Just three <strong>we</strong>eksago Secretary Chao met with the Secretary of State, Attorney General, National SecurityAdvisor, <strong>and</strong> other senior adm<strong>in</strong>istrators to discuss implementation of theAct. Two days ago, I attended a meet<strong>in</strong>g of a senior <strong>in</strong>teragency policy group thathas been charged with develop<strong>in</strong>g a comprehensive plan to address <strong>traffick<strong>in</strong>g</strong> <strong>in</strong><strong>persons</strong>. We <strong>in</strong>tend to use the authority <strong>and</strong> resources that <strong>we</strong> have at the LaborDepartment to deter domestic <strong>and</strong> <strong>in</strong>ternational <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> br<strong>in</strong>g its perpetratorsto justice, while also provid<strong>in</strong>g available departmental services to the victimsso that they may work productively, <strong>and</strong> with dignity, <strong>in</strong> the future.With regard to the prevention prong of the Act, the Department’s Bureau of InternationalLabor Affairs (ILAB) has <strong>in</strong>itiated a number of projects to combat <strong>traffick<strong>in</strong>g</strong><strong>in</strong> <strong>persons</strong> <strong>in</strong> the countries of orig<strong>in</strong>, <strong>and</strong> <strong>in</strong> transit. These projects enhance<strong>in</strong>ternational compliance, help countries avoid sanctions under the TWA, <strong>and</strong> <strong>are</strong> <strong>in</strong>tendednot only to help <strong>traffick<strong>in</strong>g</strong> victims, but more importantly, to prevent women<strong>and</strong> children from be<strong>in</strong>g trafficked <strong>in</strong> the first place. In short, through ILAB’s effortsoverseas, <strong>we</strong> aim to help stop this problem at its source.ILAB has negotiated a $1.2 million cooperative agreement with the InternationalResearch <strong>and</strong> Exchanges Board (IREX), a non-governmental organization, to conducta two-year anti-<strong>traffick<strong>in</strong>g</strong> project <strong>in</strong> Eastern Europe. Started <strong>in</strong> November2001, this program aims to prevent the <strong>traffick<strong>in</strong>g</strong> of women by creat<strong>in</strong>g viable economicalternatives for at-risk women <strong>in</strong> seven major cities. IREX will develop tra<strong>in</strong><strong>in</strong>g<strong>and</strong> empo<strong>we</strong>rment centers with exist<strong>in</strong>g women’s organizations to tra<strong>in</strong> 13,500women <strong>and</strong> provide support services to 5,800 women annually. Specifically, this program’sactivities will <strong>in</strong>clude provid<strong>in</strong>g marketable job skills to at-risk women <strong>and</strong>girls, provid<strong>in</strong>g job placement services to those who have been tra<strong>in</strong>ed, conduct<strong>in</strong>goutreach activities to raise aw<strong>are</strong>ness among women <strong>and</strong> girls, identify<strong>in</strong>g legal aid<strong>and</strong> psychological support services, <strong>and</strong> promot<strong>in</strong>g entrepreneurship.ILAB also supports projects to combat <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> children for exploitative laborthrough the International Labor Organization’s International Program on the Elim<strong>in</strong>ationof Child Labor (ILO-IPEC). ILAB has supported projects to address child<strong>traffick<strong>in</strong>g</strong> <strong>in</strong> 17 countries <strong>in</strong> West <strong>and</strong> Central Africa, Southeast Asia, South Asia<strong>and</strong> South America. These projects rescue children from <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> exploitativework situations, <strong>and</strong> provide them with rehabilitation services <strong>and</strong> educational opportunities,as <strong>we</strong>ll as undertak<strong>in</strong>g efforts to prevent children from be<strong>in</strong>g trafficked<strong>in</strong> the first place. ILAB currently is support<strong>in</strong>g programs through IPEC to combat<strong>traffick<strong>in</strong>g</strong> of children <strong>in</strong> South Asia (Bangladesh, Nepal <strong>and</strong> Sri Lanka), <strong>and</strong> <strong>in</strong>West <strong>and</strong> Central Africa (Ben<strong>in</strong>, Burk<strong>in</strong>a Faso, Cameroon, Gabon, Ghana, Coted’Ivoire, Mali, Nigeria <strong>and</strong> Togo). In addition, ILAB is support<strong>in</strong>g comprehensive,national ‘‘Timebound Programs,’’ through IPEC, to elim<strong>in</strong>ate the worst forms ofchild labor <strong>in</strong> Nepal, Tanzania <strong>and</strong> El Salvador. ILO Convention 182 identifies <strong>traffick<strong>in</strong>g</strong>of children as one of the worst forms of child labor, <strong>and</strong> as such, childrenVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00059 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
56who <strong>are</strong> victims of <strong>traffick<strong>in</strong>g</strong> will receive priority attention <strong>in</strong> each of these threecountries.While the Department is extensively <strong>in</strong>volved <strong>in</strong> prevent<strong>in</strong>g <strong>traffick<strong>in</strong>g</strong> overseas,<strong>we</strong> recognize that <strong>we</strong> have a special obligation to help <strong>traffick<strong>in</strong>g</strong> victims with<strong>in</strong> ourown borders. Thus, with regard to the protection <strong>and</strong> assistance prong of the TVPA,the Department’s Employment <strong>and</strong> Tra<strong>in</strong><strong>in</strong>g Adm<strong>in</strong>istration (ETA) takes very seriouslyits obligation when provid<strong>in</strong>g services to treat victims of severe forms of <strong>traffick<strong>in</strong>g</strong>as refugees, without regard to their immigration status. We expect the servicesprovided at One-Stop C<strong>are</strong>er Centers, such as job search assistance, c<strong>are</strong>ercounsel<strong>in</strong>g <strong>and</strong> occupational skills tra<strong>in</strong><strong>in</strong>g, to benefit trafficked <strong>in</strong>dividuals. The JobCorps program also may provide useful job tra<strong>in</strong><strong>in</strong>g opportunities for victims.We also <strong>in</strong>tend to work alongside other federal agencies to make victims aw<strong>are</strong>of the services available to them. To this end, the Department’s Women’s Bureauprep<strong>are</strong>d a publication entitled ‘‘Traffick<strong>in</strong>g <strong>in</strong> Persons: A Guide for NongovernmentalOrganizations,’’ <strong>in</strong> collaboration with the Department’s Wage <strong>and</strong> Hour Division,the Employment <strong>and</strong> Tra<strong>in</strong><strong>in</strong>g Adm<strong>in</strong>istration, <strong>and</strong> components of the Departmentsof Justice, Health <strong>and</strong> Human Services, <strong>and</strong> State. The publication is <strong>in</strong>tendedto provide NGOs with <strong>in</strong>formation about federal laws that prohibit <strong>traffick<strong>in</strong>g</strong><strong>in</strong> <strong>persons</strong> <strong>and</strong> the services <strong>and</strong> benefits that victims may receive.F<strong>in</strong>ally, to carry out the prosecution prong of the TVPA, <strong>we</strong> have redoubled ourefforts to root out abusive labor practices <strong>in</strong> this country. The Department’s Wage<strong>and</strong> Hour Division, supported by the Solicitor’s Office, has <strong>in</strong>creased its emphasison compliance with labor st<strong>and</strong>ards laws, such as the Fair Labor St<strong>and</strong>ards Act(FLSA) <strong>and</strong> the Migrant <strong>and</strong> Seasonal Agricultural Worker Protection Act (MSPA),<strong>in</strong> low-wage <strong>in</strong>dustries such as garment manufactur<strong>in</strong>g <strong>and</strong> agriculture. These <strong>in</strong>dustriesoften <strong>in</strong>clude a substantial concentration of undocumented, <strong>and</strong> sometimestrafficked, workers.Wage <strong>and</strong> Hour <strong>in</strong>vestigators <strong>are</strong> <strong>in</strong> workplaces everyday, <strong>and</strong> often <strong>are</strong> the firstgovernment authorities to witness exploitative conditions <strong>and</strong> talk to victims.Through the Traffick<strong>in</strong>g <strong>in</strong> Persons <strong>and</strong> Worker Exploitation Task Force, which Ico-chair with Assistant Attorney General Boyd, <strong>and</strong> under the TVPA, Wage <strong>and</strong>Hour closely coord<strong>in</strong>ates <strong>in</strong>vestigations of egregious workplace conditions with theDepartment of Justice. Most relevant for today’s hear<strong>in</strong>g, Wage <strong>and</strong> Hour <strong>and</strong> theSolicitor’s Office have assisted the Department of Justice’s ongo<strong>in</strong>g prosecution ofthe owner of a garment s<strong>we</strong>atshop <strong>in</strong> American Samoa, the first crim<strong>in</strong>al prosecutionunder the TVPA. At the Department, our Office of the Inspector General hasparticipated <strong>in</strong> several <strong>in</strong>vestigations with the Task Force, <strong>and</strong> <strong>we</strong> also have takenrecent steps to enlist OSHA <strong>in</strong>spectors <strong>in</strong> identify<strong>in</strong>g workplace exploitation of <strong>traffick<strong>in</strong>g</strong>victims.As the Solicitor of Labor, I <strong>in</strong>tend to build on our notable successes <strong>in</strong> prosecut<strong>in</strong>g<strong>traffick<strong>in</strong>g</strong> <strong>and</strong> worker abuse cases. The follow<strong>in</strong>g <strong>are</strong> examples of recent cases <strong>in</strong>which the Labor Department played a significant role, balanc<strong>in</strong>g the special needsof <strong>traffick<strong>in</strong>g</strong> victims with swift punishment for traffickers:• In 1999, three defendants <strong>we</strong>re convicted of slavery <strong>and</strong> immigration violationsaris<strong>in</strong>g from their use of threats of force to enslave Mexican farm workers <strong>in</strong>the agricultural fields of southern Florida. The lead defendant received a threeyearprison term. The victims received legal status <strong>and</strong> <strong>are</strong> work<strong>in</strong>g <strong>in</strong> Florida,where they participate <strong>in</strong> a farm worker advocacy group.• In 2000, the federal government obta<strong>in</strong>ed convictions aga<strong>in</strong>st four garment shopowners <strong>in</strong> Manhattan’s Ch<strong>in</strong>atown for ly<strong>in</strong>g to Wage <strong>and</strong> Hour <strong>in</strong>vestigators.The Department’s Inspector General’s Office also played an important role <strong>in</strong>this matter. The garment manufacturers, who engaged <strong>in</strong> widespread wage violations<strong>and</strong> kept several sets of records to deceive <strong>in</strong>vestigators, <strong>we</strong>re assessedcrim<strong>in</strong>al f<strong>in</strong>es, ordered to pay back wages as restitution, <strong>and</strong> given probation.• In 2000, two garment companies based <strong>in</strong> the Common<strong>we</strong>alth of the NorthernMariana Isl<strong>and</strong>s <strong>we</strong>re ordered to each pay a f<strong>in</strong>e of $100,000 <strong>and</strong> to serve fiveyears probation after plead<strong>in</strong>g guilty to crim<strong>in</strong>al contempt charges for violat<strong>in</strong>ga consent judgment that ordered them to pay legally-required wages to theiremployees. A Wage <strong>and</strong> Hour <strong>in</strong>vestigation had discovered that the companieshad underpaid 336 workers by almost $1 million, after previously underpay<strong>in</strong>gtheir workers by $560,000.• In the last several years, four notorious farm labor contractors <strong>in</strong> the SoutheasternUnited States who exploited farm workers <strong>we</strong>re convicted under variouscrim<strong>in</strong>al provisions. Most recently, <strong>in</strong> 2001, a Florida farm labor contractor wassentenced to four years <strong>in</strong> prison after plead<strong>in</strong>g guilty to charges that he used<strong>in</strong>surmountable debts for coca<strong>in</strong>e, beer <strong>and</strong> cig<strong>are</strong>ttes, as <strong>we</strong>ll as threats <strong>and</strong>violence, to enslave field workers.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00060 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
57In conclusion, <strong>we</strong> at the Department of Labor thank the Members of Congress forprovid<strong>in</strong>g us the tools <strong>we</strong> need to combat the scourge of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>, <strong>and</strong>commit the Labor Department to work<strong>in</strong>g with our sister agencies to eradicate thisproblem.PREPARED STATEMENT OF EQUALITY NOW, NEW YORK, NYEquality Now is an <strong>in</strong>ternational human rights organization based <strong>in</strong> New Yorkdedicated to the protection of the rights of girls <strong>and</strong> women. It currently has over20,000 members <strong>in</strong> its Women’s Action Network from more than 100 countries.Equality Now would like to express its thanks to the Senate Foreign Relations Committeefor the opportunity to present a statement on sex tourism to this hear<strong>in</strong>g.Among issues of concern to Equality Now <strong>are</strong> the <strong>traffick<strong>in</strong>g</strong> of girls <strong>and</strong> women<strong>and</strong> the practice of sex tourism. Of particular <strong>in</strong>terest to us is the connection bet<strong>we</strong>enthese two activities, which <strong>are</strong> responsible for the death, disease <strong>and</strong> deprivationof tens of thous<strong>and</strong>s of girls <strong>and</strong> women every year. Sex tourism from theUnited States is a thriv<strong>in</strong>g bus<strong>in</strong>ess. Big Apple Oriental Tours of Bellerose, NewYork, for example transports men to the Philipp<strong>in</strong>es <strong>and</strong> Thail<strong>and</strong> <strong>and</strong> once thereguides them to bars <strong>and</strong> brothels where sex can be purchased from local girls <strong>and</strong>women. Although Big Apple <strong>and</strong> other sex tour operators officially deny that theyarrange for sex bet<strong>we</strong>en their customers <strong>and</strong> underage girls, <strong>in</strong>terviews by theiroperatives with various journalists have revealed a different story. In a 1993 broadcastreport, the television news program Inside Edition recorded Big Apple tourguide Louis Schonberger promis<strong>in</strong>g an undercover reporter that sex with 15 <strong>and</strong> 16year-old girls could be arranged for Big Apple customers. In a March 1998 <strong>in</strong>terviewwith the Associated Press, Norman Barabash, an owner of Big Apple Oriental Tours,responded to a question concern<strong>in</strong>g the age of the girls that his company arrangedfor his customers by stat<strong>in</strong>g ‘‘There is no way of know<strong>in</strong>g for certa<strong>in</strong>. Short of giv<strong>in</strong>gthem lie detector tests who can tell?’’Despite more than five years of campaign<strong>in</strong>g for the prosecution of Big Apple OrientalTours by Equality Now <strong>and</strong> other human rights organizations <strong>in</strong> the UnitedStates <strong>and</strong> abroad, that company still brazenly conducts its tours without fear ofcrim<strong>in</strong>al sanction. Equality Now’s efforts <strong>in</strong> seek<strong>in</strong>g the prosecution of Big AppleOriental Tours <strong>and</strong> other sex tour companies have met with the same response fromnumerous federal, state <strong>and</strong> local prosecutors. While agree<strong>in</strong>g that sex tourism isabhorrent, the prosecutors felt generally that current legislation is <strong>in</strong>adequate topursue a successful prosecution. Although Equality Now believes that certa<strong>in</strong> statelegislation could be used to prosecute sex tourism, strong unequivocal federal legislationcrim<strong>in</strong>aliz<strong>in</strong>g sex tourism would both send a hard-hitt<strong>in</strong>g message to sex touroperators that sex tourism from the United States is unacceptable, <strong>and</strong> would alsoprovide an <strong>in</strong>valuable tool aga<strong>in</strong>st those who persist <strong>in</strong> promot<strong>in</strong>g the practice. Weurge you therefore to amend the current statutes to provide prosecutors with thelaws that they need to stop the activities of sex tour operators.Comprehensive legislation will need to consider the follow<strong>in</strong>g facts about sex tourism:A large number of the women who work <strong>in</strong> the bars <strong>and</strong> brothels <strong>in</strong> sex tourdest<strong>in</strong>ations <strong>are</strong> actually 14, 15 or 16 years of age. Ho<strong>we</strong>ver these girls <strong>are</strong> able toobta<strong>in</strong> necessary identifications <strong>in</strong>dicat<strong>in</strong>g that they <strong>are</strong> of legal age through theconnivance of corrupt local officials, politicians, pimps, police officers <strong>and</strong> traffickers.These false identifications enable Big Apple Oriental Tours <strong>and</strong> other sex tour operatorsto plausibly deny that their customers have sex with underage girls. Tackl<strong>in</strong>gcorruption <strong>in</strong> the hugely profitable <strong>traffick<strong>in</strong>g</strong> <strong>in</strong>dustry overnight is a mammothtask. One simple way of protect<strong>in</strong>g underage girls from abuse <strong>and</strong> exploitation irrespectiveof any identity cards they might hold would be to amend the laws <strong>in</strong> theUnited States, to make liable to prosecution any <strong>in</strong>dividual who commits an act thatwould constitute a sex crime <strong>in</strong> the United States. Only <strong>in</strong> this manner can those<strong>in</strong>dividuals hav<strong>in</strong>g sex with underage girls with false identifications be sure of fall<strong>in</strong>gwith<strong>in</strong> the prohibition of the legislation.It must also be taken <strong>in</strong>to account that sex tour operators attempt to hide theirillicit activities beh<strong>in</strong>d otherwise legitimate activities. The brochure <strong>and</strong> <strong>we</strong>b site ofBig Apple Oriental Tours promises its customers access to a range of activities <strong>in</strong>clud<strong>in</strong>gmilitary history tours, golf, barbecues <strong>and</strong> even museums. Sex tour operatorsalso hide beh<strong>in</strong>d the same excuse offered by escort services <strong>and</strong> pimps everywhere:that they only make <strong>in</strong>troductions <strong>and</strong> that anyth<strong>in</strong>g that follows is not theirresponsibility. Thus, they <strong>are</strong> able to deny actual ‘‘knowledge’’ of precisely whattheir customers do. To avoid the difficulty <strong>in</strong> prov<strong>in</strong>g actual knowledge by sex touroperators of what their customers do, statutes should be amended to provide a morereasonable st<strong>and</strong>ard. We recommend <strong>and</strong> urge that any statutory amendment di-VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00061 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
58rected to the practice of sex tourism only require that sex tour operators ‘‘knew orshould have known’’ of the conduct of their customers. For example, Big Apple OrientalTours engages <strong>in</strong> a range of activities that could be used to establish that theyshould have known what their customers <strong>we</strong>re do<strong>in</strong>g. These activities <strong>in</strong>clude reportsmade to them by previous customers of use of prostitutes, <strong>in</strong>troduction by BigApple tour guides to bars that permit the purchase of sex from the girls work<strong>in</strong>gthere, <strong>and</strong> actual negotiation of the price <strong>and</strong> nature of the sex act by Big Apple’stour guide with the girl’s mamasan (the woman who acts as a pimp for the girls).We strongly encourage you to make any new or amended legislation very broad<strong>in</strong> scope. Practices that would be untenable <strong>in</strong> this country <strong>are</strong> woefully unregulatedby the United States when perpetrated by its citizens abroad. Done mostly via the<strong>in</strong>ternet, hundreds of companies offer to take men to a variety of countries for thepurpose of <strong>in</strong>troduc<strong>in</strong>g them to prospective wives. These companies <strong>are</strong> not requiredto compile or ma<strong>in</strong>ta<strong>in</strong> any <strong>in</strong>formation about their customers or the prospectivebrides. Therefore, <strong>in</strong>troductions can be made to <strong>in</strong>dividuals with crim<strong>in</strong>al records,histories of violence or any type of sexually transmittable disease <strong>and</strong> such <strong>in</strong>formationwould be unavailable to the other party to the <strong>in</strong>troduction. A 1999 <strong>in</strong>vestigationby Equality Now contacted more than 70 companies offer<strong>in</strong>g <strong>in</strong>troductions forthe purpose of marriage on the <strong>in</strong>ternet. Our <strong>in</strong>vestigator, pos<strong>in</strong>g as a potential customer,claimed to have a history of domestic violence <strong>and</strong> large child support <strong>and</strong>alimony payments <strong>and</strong> asked if these facts would disqualify him from us<strong>in</strong>g thecompanies’ services. Only three of the respond<strong>in</strong>g companies said that it would. Onerespondent described the lack of regulation of this <strong>in</strong>dustry by stat<strong>in</strong>g ‘‘The (UnitedStates) government doesn’t c<strong>are</strong> if you’re Jack the Ripper.’’Sex tour operators officially deny that they <strong>are</strong> such. By requir<strong>in</strong>g all bus<strong>in</strong>ess entities(whether <strong>in</strong>corporated or not) or other associations that enable the <strong>in</strong>troductionof United States citizens or residents to foreign nationals, <strong>in</strong> the foreign national’shome country, to keep adequate records of the people us<strong>in</strong>g the services offered(which would be open to legitimate <strong>in</strong>spection by the appropriate regulat<strong>in</strong>g authorities),properly targeted United States legislation would discourage all but genu<strong>in</strong>e<strong>in</strong>troduction agencies as <strong>we</strong>ll as go<strong>in</strong>g some way to afford protection to those us<strong>in</strong>gthe service. An added benefit to such a record-keep<strong>in</strong>g requirement would be to providea degree of needed regulation to the quickly grow<strong>in</strong>g ‘‘mail order bride’’ bus<strong>in</strong>ess.We urge your immediate attention to these <strong>in</strong>adequacies <strong>in</strong> current U.S. law. Theconduct of sex tourists serves to dim<strong>in</strong>ish the respect <strong>and</strong> affection of foreigners forthe United States. Sex tourism presents the worst of the United States. The conductof relatively <strong>we</strong>althy Americans engag<strong>in</strong>g <strong>in</strong> conduct they would not d<strong>are</strong> do athome creates an image of Americans as predatory <strong>and</strong> parasitic. In Costa Rica alonefor example, accord<strong>in</strong>g to ECPAT, Americans account for 80% of arrests <strong>in</strong>volv<strong>in</strong>gchild sex tourism. The passage of effective laws to address such conduct would notonly serve to protect thous<strong>and</strong>s of girls <strong>and</strong> women who <strong>are</strong> victimized by sex touroperators <strong>and</strong> their customers, it would also demonstrate the best of the UnitedStates: the protection of the <strong>we</strong>ak <strong>and</strong> vulnerable <strong>and</strong> ensur<strong>in</strong>g that they will receivethe protection <strong>and</strong> justice that they deserve. Thank you.RESPONSES TO ADDITIONAL QUESTIONS FOR THE RECORDRESPONSES OF HON. PAULA DOBRIANSKY, UNDER SECRETARY OF STATE FOR GLOBALAFFAIRS, TO ADDITIONAL QUESTIONS FOR THE RECORD SUBMITTED BY SENATORWELLSTONEQuestion 1. When do you plan to submit to the Senate for ratification the Traffick<strong>in</strong>gProtocol to the UN Crime Convention aga<strong>in</strong>st Transnational OrganizedCrime that the U.S. signed <strong>in</strong> December 2000?Ans<strong>we</strong>r. The Adm<strong>in</strong>istration is <strong>in</strong> the f<strong>in</strong>al stage of prepar<strong>in</strong>g the transmittalpackage to request the Senate’s advice <strong>and</strong> consent to ratification of theTransnational Organized Crime Convention <strong>and</strong> its supplementary protocols on <strong>traffick<strong>in</strong>g</strong><strong>in</strong> <strong>persons</strong> <strong>and</strong> smuggl<strong>in</strong>g of migrants.We will update you as the process moves forward.Question 2. What role do you play <strong>in</strong> facilitat<strong>in</strong>g with other governments the repatriationof <strong>traffick<strong>in</strong>g</strong> victims to their countries of orig<strong>in</strong> <strong>and</strong> <strong>in</strong> provid<strong>in</strong>g fund<strong>in</strong>gto send victims home? How do you ensure victims who <strong>are</strong> repatriated receive adequateattention?Ans<strong>we</strong>r. Encourag<strong>in</strong>g other countries to strengthen their capacity to receive <strong>and</strong>re<strong>in</strong>tegrate victims is a cornerstone of our bilateral engagement. We <strong>are</strong> work<strong>in</strong>gVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00062 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
59closely with the Departments of Justice <strong>and</strong> HHS to strengthen our ties bet<strong>we</strong>enour efforts to identify <strong>and</strong> assist victims <strong>in</strong> the U.S. <strong>and</strong> our <strong>in</strong>ternational engagementto ensure safe return. We recently provided to the Department of Justice alist of NGO service providers <strong>in</strong> various countries that have received U.S. Governmentanti<strong>traffick<strong>in</strong>g</strong> assistance <strong>and</strong> that may be able to assist these victims who <strong>are</strong>returned from the United States. We provide assistance to a number of groups thatassist with repatriation <strong>in</strong> various countries, so that they can provide victims withassistance <strong>in</strong> return<strong>in</strong>g home, as <strong>we</strong>ll as any medical or psychological c<strong>are</strong> that theymay need.Question 3. What have you done to address HIV/AIDS <strong>and</strong> other sexually transmitteddiseases <strong>in</strong> relation to <strong>traffick<strong>in</strong>g</strong>? Does the Department of State plan to requestmore fund<strong>in</strong>g than the current 2003 budget proposal of $200 million for theGlobal Fund?Ans<strong>we</strong>r. The Office to Monitor <strong>and</strong> Combat Traffick<strong>in</strong>g <strong>in</strong> Persons recently cochairedan <strong>in</strong>tra-Departmental meet<strong>in</strong>g with the State Department’s Office of InternationalHealth Affairs. Representatives of the Office of the Under Secretary ofGlobal Affairs, the Bureaus of Democracy, Human Rights <strong>and</strong> Labor, <strong>and</strong> Population,Refugees <strong>and</strong> Migration also participated. The group is work<strong>in</strong>g to identifypossible <strong>are</strong>as of collaboration to address the l<strong>in</strong>kage bet<strong>we</strong>en HIV/AIDS <strong>and</strong> other<strong>in</strong>fectious diseases <strong>and</strong> <strong>traffick<strong>in</strong>g</strong>. In addition to provid<strong>in</strong>g greater emphasis on<strong>traffick<strong>in</strong>g</strong> <strong>and</strong> HIV/AIDS issues <strong>in</strong> programm<strong>in</strong>g, the Department also <strong>in</strong>tends toexp<strong>and</strong> successful efforts with other USG agencies, NGOs, <strong>and</strong> <strong>in</strong>ternational organizationsto promote action on HIV/AIDS <strong>and</strong> <strong>traffick<strong>in</strong>g</strong>.The President’s budget proposal of $200 million <strong>in</strong> FY 2003 for the Global Fundto Fight AIDS, Tuberculosis <strong>and</strong> Malaria br<strong>in</strong>gs the total U.S. pledge to the Fundto $500 million. In his March 14, 2002, remarks on global development at the Inter-American Development Bank, the President stated that as the Global Fund f<strong>in</strong>alizesits organization, develops a strategy, <strong>and</strong> s<strong>how</strong>s success, he would work with Congressto <strong>in</strong>crease the U.S. commitment to the Fund. The United States rema<strong>in</strong>s theglobal leader <strong>in</strong> the fight aga<strong>in</strong>stQuestion 4. In regard to the list of countries not reach<strong>in</strong>g the m<strong>in</strong>imum st<strong>and</strong>ardsfor the elim<strong>in</strong>ation of <strong>traffick<strong>in</strong>g</strong>—the 3rd Tier countries—<strong>in</strong> the Traffick<strong>in</strong>g <strong>in</strong> PersonsReport, which countries have contacted you s<strong>in</strong>ce the release of the report <strong>in</strong>July 2001? How many have asked for assistance to help fight <strong>traffick<strong>in</strong>g</strong>?Ans<strong>we</strong>r. The Traffick<strong>in</strong>g <strong>in</strong> Persons Report has prompted <strong>in</strong>creased aw<strong>are</strong>ness—<strong>and</strong>, <strong>in</strong> some cases, action—by a large number of foreign governments on the issueof <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>. Several countries on the Tier 3 list of the 2001 Traffick<strong>in</strong>g<strong>in</strong> Persons Report have taken steps towards recogniz<strong>in</strong>g or address<strong>in</strong>g this problems<strong>in</strong>ce the report was issued. These countries <strong>in</strong>clude Albania, Bosnia <strong>and</strong>Herzegov<strong>in</strong>a, Gabon, Greece, Indonesia, Israel, Malaysia, Romania, Russia, SouthKorea, Turkey, <strong>and</strong> Yugoslavia.South Korea, for example, has undertaken an <strong>in</strong>tensive effort to remedy the concernscited <strong>in</strong> the TIP report. The South Korean government submitted an extensivereport (‘‘Current Status of Efforts to Elim<strong>in</strong>ate Traffick<strong>in</strong>g <strong>in</strong> Persons’’) <strong>in</strong> early Octoberdetail<strong>in</strong>g various anti-<strong>traffick<strong>in</strong>g</strong> <strong>in</strong>itiatives <strong>in</strong> the <strong>are</strong>as of prosecution, protection,<strong>and</strong> prevention <strong>in</strong>itiatives. S<strong>in</strong>ce October, key Republic of Korea Foreign M<strong>in</strong>istryofficials have met several times with high-level Department pr<strong>in</strong>cipals to seekUSG views <strong>and</strong> to convey their government’s determ<strong>in</strong>ation to improve its recordon this issue.The Romanian Foreign M<strong>in</strong>ister met with U.S. officials <strong>in</strong> April 2002 to reviewthe Romanian anti-<strong>traffick<strong>in</strong>g</strong> progress report submitted earlier to the Departmentof State. Romania has been active <strong>in</strong> try<strong>in</strong>g to overcome shortcom<strong>in</strong>gs noted <strong>in</strong> the2001 TIP Report, adopt<strong>in</strong>g a law to prevent <strong>and</strong> combat <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>, <strong>and</strong>establish<strong>in</strong>g a National Action Plan aga<strong>in</strong>st Traffick<strong>in</strong>g. The Romanians also reportedthat the U.S. <strong>traffick<strong>in</strong>g</strong> statute served as a source of <strong>in</strong>spiration for theirnew law. They also have taken a number of additional steps, <strong>in</strong>clud<strong>in</strong>g contact<strong>in</strong>gthe Romanian Orthodox Church to ask for its help <strong>in</strong> destigmatiz<strong>in</strong>g victims.Several countries <strong>in</strong> southeastern Europe have <strong>in</strong>creased or started to take measuresaimed at the problem, despite significant resource constra<strong>in</strong>ts <strong>in</strong> some cases.• The Government of Albania, for example, <strong>in</strong> close coord<strong>in</strong>ation with our embassy,created <strong>and</strong> passed on December 7, a comprehensive National ActionPlan, which charts their course for <strong>combat<strong>in</strong>g</strong> <strong>traffick<strong>in</strong>g</strong>.• Bosnia <strong>and</strong> Herzegov<strong>in</strong>a is form<strong>in</strong>g a strike force to improve coord<strong>in</strong>ation <strong>and</strong>successful prosecution of those who organize <strong>and</strong> direct human <strong>traffick<strong>in</strong>g</strong>.HIV/AIDS, dedicat<strong>in</strong>g approximately one-third of all <strong>in</strong>ternational spend<strong>in</strong>g aga<strong>in</strong>stthe disease. The President’s FY 2003 budget request of $1.1 billion for the fightaga<strong>in</strong>st HIV/AIDS is a 53.9% <strong>in</strong>crease over FY 2001.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00063 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
60• In Yugoslavia, the government staffs work<strong>in</strong>g groups that specifically addressprevention, protection, <strong>and</strong> prosecution.• Greece established an Inter-M<strong>in</strong>isterial Committee to address <strong>traffick<strong>in</strong>g</strong> <strong>in</strong>women. In May <strong>and</strong> June 2001 the Government passed new immigration <strong>and</strong>organized crime laws that <strong>in</strong>creased protection for women who press chargesaga<strong>in</strong>st their traffickers by allow<strong>in</strong>g them to rema<strong>in</strong> <strong>in</strong> the country legally <strong>and</strong>sett<strong>in</strong>g aside any previous convictions. Specific anti-<strong>traffick<strong>in</strong>g</strong> legislation hasbeen drafted. Meanwhile, police <strong>and</strong> border guards <strong>are</strong> be<strong>in</strong>g tra<strong>in</strong>ed on detectionof trafficked women.Russia has also cooperated with the U.S. on an Alaska <strong>traffick<strong>in</strong>g</strong> case <strong>in</strong>volv<strong>in</strong>gRussian women. Additionally, the MVD has formed an <strong>in</strong>ternal taskforce to determ<strong>in</strong>e<strong>how</strong> best to <strong>in</strong>tegrate the <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> migration issues <strong>in</strong>to its portfolio.Indonesia co-sponsored, with Australia, the Regional M<strong>in</strong>isterial Conference onPeople Smuggl<strong>in</strong>g, Traffick<strong>in</strong>g <strong>in</strong> Persons <strong>and</strong> Related Transnational Crime <strong>in</strong> Bali<strong>in</strong> February, at which the United States participated as an observer.Israel has significantly <strong>in</strong>creased <strong>in</strong>vestigations of traffickers <strong>and</strong> also has improvedprotection for victims. Israel recently signed the UN Protocol to Prevent,Suppress, <strong>and</strong> Punish Traffick<strong>in</strong>g <strong>in</strong> Persons, Especially Women <strong>and</strong> Children. Seniorrepresentatives from the Israeli embassy <strong>and</strong> the government met with State Departmentofficials on several occasions to discuss their anti-<strong>traffick<strong>in</strong>g</strong> efforts <strong>and</strong>ways to improve their record.In August 2001, the Turkish National Police sent a circular to prov<strong>in</strong>cial policechiefs strongly urg<strong>in</strong>g them to use a tough 1999 organized crime law to <strong>in</strong>vestigatecases of <strong>traffick<strong>in</strong>g</strong>. Last month, the M<strong>in</strong>ister of Justice presented a bill to the Councilof M<strong>in</strong>isters mak<strong>in</strong>g <strong>traffick<strong>in</strong>g</strong> a crime, with heavier penalties for organizedcrim<strong>in</strong>al <strong>in</strong>volvement. Previous laws had targeted prostitutes.In August 2001, the Gabonese Council of M<strong>in</strong>isters proposed legislation to establishpenalties for the <strong>traffick<strong>in</strong>g</strong> of <strong>persons</strong>.Malaysia has <strong>in</strong>creased efforts to stop the flow of mala fide travelers <strong>in</strong>clud<strong>in</strong>g<strong>traffick<strong>in</strong>g</strong> victims across its borders s<strong>in</strong>ce the TIP report was issued. Three <strong>in</strong>teragencygroups have been formed to address organized crime, illegal migration <strong>and</strong>border control, all of which address <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>. The Malaysian governmenthas consulted with U.S. officials <strong>in</strong> Wash<strong>in</strong>gton <strong>and</strong> Kuala Lumpur about effortsto improve its performance <strong>in</strong> this <strong>are</strong>a.Question 5. How often will the President’s Inter-Agency Task Force on Traffick<strong>in</strong>gmeet? Have you developed a comprehensive strategy for fight<strong>in</strong>g <strong>traffick<strong>in</strong>g</strong>? Haveyou set benchmarks?Ans<strong>we</strong>r. We expect that the President’s Inter-Agency Task Force on Traffick<strong>in</strong>g<strong>in</strong> Persons will meet approximately twice a year. The Senior Policy Advisory Group,which I chair, will meet on a regular basis to provide policy oversight of the USGefforts on <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>, <strong>in</strong>clud<strong>in</strong>g the implementation of the Act. We <strong>are</strong><strong>in</strong> the process of develop<strong>in</strong>g a three-year plan with goals <strong>and</strong> objectives for the TIPoffice, as <strong>we</strong>ll as an operational plan, timel<strong>in</strong>e, <strong>and</strong> benchmarks for progress. Interms of a comprehensive strategy at the diplomatic level, <strong>we</strong> <strong>are</strong> rais<strong>in</strong>g the <strong>traffick<strong>in</strong>g</strong>issue at senior levels with foreign governments, especially those <strong>in</strong> Tier 3of the 2001 Traffick<strong>in</strong>g <strong>in</strong> Persons Report. At the programmatic level, <strong>we</strong> <strong>are</strong> <strong>in</strong> theprocess of develop<strong>in</strong>g a strategy for targeted countries that have a significant problemof <strong>traffick<strong>in</strong>g</strong>, have the political will <strong>and</strong> <strong>are</strong> eligible for U.S. foreign assistance.Question 6. What is the State Department do<strong>in</strong>g to <strong>in</strong>vestigate allegations thatsome <strong>in</strong>ternational military <strong>and</strong> police force personnel have been <strong>in</strong>volved <strong>in</strong> <strong>traffick<strong>in</strong>g</strong><strong>and</strong> forced prostitution, either as customers, facilitators or pr<strong>in</strong>cipals? Hasthe State Department ever recommended the prosecution of any military or InternationalPolice Task Force members for such <strong>in</strong>volvement? If so, has the Departmentof Justice prosecuted any of the cases?Ans<strong>we</strong>r. We cooperate <strong>and</strong> work closely with the Department of Defense on alleged<strong>in</strong>cidences of crim<strong>in</strong>al wrongdo<strong>in</strong>g. We refer you to the Department of Defensefor specific <strong>in</strong>formation on their policies. The Department of State has referred thealleged wrongdo<strong>in</strong>g by U.S. civilian police force personnel to the Department of JusticeCrim<strong>in</strong>al Division for review. The Department of Justice should be contactedfor <strong>in</strong>formation on the status of these cases.Question 7. What is be<strong>in</strong>g done to provide tra<strong>in</strong><strong>in</strong>g <strong>and</strong> establish accountabilityfor any U.S. military or police who <strong>are</strong> implicated <strong>in</strong> <strong>traffick<strong>in</strong>g</strong> or forced prostitution?Ans<strong>we</strong>r. The State Department gives all U.S. civilian police (CIVPOL) officers adetailed pre-deployment brief<strong>in</strong>g on <strong>traffick<strong>in</strong>g</strong>. The brief<strong>in</strong>g stresses that the StateDepartment has a ‘‘no tolerance policy’’ with respect to <strong>in</strong>volvement <strong>in</strong> <strong>traffick<strong>in</strong>g</strong>VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00064 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
61<strong>and</strong>/or prostitution. Specifically, an officer will be removed from his/her position ifany allegations of such activity <strong>are</strong> substantiated, as will any U.S. officers whoknew of the <strong>in</strong>volvement of others <strong>and</strong> failed to report it. They also will be <strong>in</strong>eligiblefor employment <strong>in</strong> future missions, must pay their own airf<strong>are</strong> home, forfeit theirmission completion bonus, <strong>and</strong> may be subject to prosecution, either <strong>in</strong> the mission<strong>are</strong>a or <strong>in</strong> the United States. All officers sign a letter of agreement before deploymentacknowledg<strong>in</strong>g that they have been briefed on the issue of <strong>traffick<strong>in</strong>g</strong> of <strong>persons</strong>,underst<strong>and</strong> our policy, <strong>and</strong> <strong>are</strong> aw<strong>are</strong> of the ramifications for fail<strong>in</strong>g to adhereby it.The State Department has, <strong>in</strong> a small number of cases <strong>in</strong> which such problemshave arisen, taken action consistent with our policy, <strong>in</strong>clud<strong>in</strong>g mak<strong>in</strong>g a referral tothe Department of Justice Crim<strong>in</strong>al Division for possible prosecution. We have alsorepeatedly stressed to the UN <strong>in</strong> New York <strong>and</strong> to <strong>in</strong>dividual CIVPOL field missionsour expectation that the UN will <strong>in</strong>vestigate fully even the most m<strong>in</strong>or <strong>in</strong>fractionsby any CIVPOL officer <strong>and</strong> take appropriate discipl<strong>in</strong>ary action.Question 8. Has the State Department conducted any <strong>in</strong>vestigations <strong>in</strong>to the alleged<strong>in</strong>volvement <strong>in</strong> <strong>traffick<strong>in</strong>g</strong> of the U.S. cont<strong>in</strong>gent of <strong>in</strong>ternational police forceswhich have been recruited <strong>and</strong> hired by private contractors rather than the U.S.government directly? If so, what <strong>are</strong> the results of the <strong>in</strong>vestigation?Ans<strong>we</strong>r. The State Department has <strong>in</strong>formed the United Nations—both headquarters<strong>and</strong> field missions—that <strong>we</strong> want full <strong>and</strong> complete <strong>in</strong>vestigations done onany <strong>and</strong> all U.S. CIVPOL personnel alleged to have been <strong>in</strong>volved <strong>in</strong> <strong>traffick<strong>in</strong>g</strong> <strong>and</strong>/or prostitution. We obta<strong>in</strong> a copy of the UN <strong>in</strong>ternal affairs <strong>in</strong>vestigative report onthese activities <strong>and</strong> provide this report, any <strong>in</strong>dependent f<strong>in</strong>d<strong>in</strong>gs <strong>we</strong> have, <strong>and</strong> adescription of the discipl<strong>in</strong>ary action <strong>we</strong> have taken to the Department of State Officeof the Inspector General Office (OIG) for review, <strong>and</strong> to the Department of JusticeCrim<strong>in</strong>al Division for possible prosecution.The OIG has revie<strong>we</strong>d several cases <strong>in</strong> which U.S. officers <strong>we</strong>re dismissed fromduty, but only to determ<strong>in</strong>e whether the U.S. response was appropriate <strong>and</strong> to assesswhether additional action was called for.The OIG also conducted an audit related to U.S. support to the UN InternationalPolice Task Force (IPTF) <strong>in</strong> Bosnia. The audit was conducted at the request of theChairman of the House Subcommittee on National Security, Veterans Affairs <strong>and</strong>International Relations, Committee on Government reform, based on a May 2001Wash<strong>in</strong>gton Post article on reported misconduct <strong>and</strong> corruption by U.S. police <strong>in</strong> theprogram. The audit deals with the adequacy of suitability st<strong>and</strong>ards used to screen<strong>and</strong> select task force officers sent to Bosnia, the number of task force officers senthome for cause or misconduct, <strong>and</strong> the procurement process used to select a contractor(DynCorp) to provide the police officers. The f<strong>in</strong>al report has not been released.The Office to Monitor <strong>and</strong> Combat Traffick<strong>in</strong>g leads an <strong>in</strong>teragency work<strong>in</strong>g groupon this issue to develop <strong>and</strong> implement our policy on <strong>in</strong>ternational mult<strong>in</strong>ationalforces <strong>and</strong> <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>.Question 9. Are there presently any plans for the U.S. government to assume responsibilityfor hir<strong>in</strong>g, tra<strong>in</strong><strong>in</strong>g <strong>and</strong> supervis<strong>in</strong>g the U.S. <strong>in</strong>ternational police cont<strong>in</strong>gents?Ans<strong>we</strong>r. The <strong>are</strong> no plans at this time for such functions to be carried out directlyby the U.S. government. For practical reasons, the Department of State reta<strong>in</strong>s acontractor to provide these services <strong>and</strong> functions, which <strong>are</strong> carried out with guidancefrom, <strong>and</strong> direct oversight of, the State Department (Bureau for InternationalNarcotics <strong>and</strong> Law Enforcement Affairs). The Department is consider<strong>in</strong>g the possibilityof hir<strong>in</strong>g an <strong>in</strong>ternal affairs expert to conduct <strong>in</strong>dependent <strong>in</strong>vestigations ofU.S. CIVPOL misconduct.The State Department determ<strong>in</strong>es U.S. CIVPOL hir<strong>in</strong>g st<strong>and</strong>ards <strong>and</strong> requirementsfor pre-mission tra<strong>in</strong><strong>in</strong>g/preparation, as <strong>we</strong>ll as st<strong>and</strong>ards for conduct. EachU.S. CIVPOL cont<strong>in</strong>gent has a State Department-approved comm<strong>and</strong> structure,which along with State Department personnel <strong>in</strong> the field, monitors the activitiesof U.S. CIVPOL while deployed <strong>in</strong> missions. U.S. cont<strong>in</strong>gent discipl<strong>in</strong>ary decisions<strong>are</strong> made based on guidance from the State Department. As personnel <strong>are</strong> secondedto the UN, the UN also reta<strong>in</strong>s operational supervisory authority over all CIVPOLofficers deployed <strong>in</strong> a mission, <strong>and</strong> may <strong>in</strong>dependently discipl<strong>in</strong>e officers with<strong>in</strong> themission for breach of its codes of conduct.The Office to Monitor <strong>and</strong> Combat Traffick<strong>in</strong>g has designated a key officer totrack <strong>and</strong> oversee this issue.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00065 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
62RESPONSES OF VIET D. DINH, ASSISTANT ATTORNEY GENERAL, OFFICE OF LEGAL POL-ICY, DEPARTMENT OF JUSTICE, TO ADDITIONAL QUESTIONS FOR THE RECORD SUB-MITTED BY SENATOR WELLSTONEQuestion 1. Which office <strong>in</strong> the Department of Justice (DOJ), the Office of Victimsof Crime (OVC) or the Violence Aga<strong>in</strong>st Women Office (VAWO), is responsible formov<strong>in</strong>g the money to help <strong>traffick<strong>in</strong>g</strong> victims <strong>in</strong> 2002?Ans<strong>we</strong>r. OVC is responsible for adm<strong>in</strong>ister<strong>in</strong>g the $10 million grant program forvictims of <strong>traffick<strong>in</strong>g</strong> established by the Victims of Traffick<strong>in</strong>g <strong>and</strong> Violence ProtectionAct of 2000 (VTVPA). OVC has convened an <strong>in</strong>teragency <strong>traffick<strong>in</strong>g</strong> task forceto develop the program, <strong>and</strong> VAWO has dedicated three staff members to serve onthe three subcommittees that make up this task force. The subcommittees addressvictim needs, tra<strong>in</strong><strong>in</strong>g needs, <strong>and</strong> the coord<strong>in</strong>ation of tra<strong>in</strong><strong>in</strong>g, resources <strong>and</strong> research/evaluation.Question 2. What is the time frame for non-governmental organizations seek<strong>in</strong>gbids on projects to fund direct services to <strong>traffick<strong>in</strong>g</strong> victims?Ans<strong>we</strong>r. OVC anticipates publication of its solicitation for grant applications to assistvictims of <strong>traffick<strong>in</strong>g</strong> with<strong>in</strong> 90 days.Question 3. Do you have any plans to coord<strong>in</strong>ate a fund<strong>in</strong>g strategy with the Officeof Refugee Resettlement (ORR), which has also received an appropriation tofund direct services, so that programs <strong>are</strong> not duplicative?Ans<strong>we</strong>r. OVC is actively coord<strong>in</strong>at<strong>in</strong>g with the key federal agencies <strong>in</strong>volved <strong>in</strong>human <strong>traffick<strong>in</strong>g</strong> issues. The most tangible, but by no means the sole, manifestationof such coord<strong>in</strong>ation is the establishment of the Interagency Traffick<strong>in</strong>g TaskForce on Program Development. The Department of Health <strong>and</strong> Human Services(HHS) <strong>and</strong> the Office of Refugee Resettlement (ORR) <strong>are</strong> <strong>in</strong>cluded <strong>in</strong> the TaskForce. Additionally, specific subcommittees have been created that focus on (1) VictimNeeds; (2) Tra<strong>in</strong><strong>in</strong>g Needs; <strong>and</strong> (3) Coord<strong>in</strong>ation of Resources <strong>and</strong> Research <strong>and</strong>Evaluation. From these discussions, OVC hears first-h<strong>and</strong> of the other proposed oractual efforts <strong>and</strong> programs directed at victims of <strong>traffick<strong>in</strong>g</strong>.Question 4. What plans does the Immigration <strong>and</strong> Naturalization Service (INS)have for meet<strong>in</strong>g the statutory requirement to provide facilities that <strong>are</strong> appropriate<strong>and</strong> safe for trafficked <strong>persons</strong> <strong>in</strong> cases <strong>in</strong> wbich no private shelter is available sothat victims <strong>are</strong> not held <strong>in</strong> INS detention centers or other <strong>in</strong>appropriate facilities?Ans<strong>we</strong>r. As a matter of general policy, INS does not deta<strong>in</strong> <strong>traffick<strong>in</strong>g</strong> victims unless<strong>in</strong>dividual circumstances or the law require detention. The need to cont<strong>in</strong>uecustody <strong>in</strong> order to protect the victim <strong>and</strong> the victim’s desire to rema<strong>in</strong> <strong>in</strong> custodyfor protection purposes <strong>are</strong> taken <strong>in</strong>to consideration when mak<strong>in</strong>g custody determ<strong>in</strong>ations.Ho<strong>we</strong>ver, <strong>in</strong> general, victims of severe forms of <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong> <strong>are</strong>not required to rema<strong>in</strong> <strong>in</strong> custody for the sole purpose of protection.Meet<strong>in</strong>g the hous<strong>in</strong>g needs of <strong>traffick<strong>in</strong>g</strong> victims is one of the greatest challengesfaced by the government agencies <strong>in</strong>volved <strong>in</strong> <strong>in</strong>vestigat<strong>in</strong>g <strong>traffick<strong>in</strong>g</strong> cases <strong>and</strong>provid<strong>in</strong>g services to <strong>traffick<strong>in</strong>g</strong> victims. INS is partner<strong>in</strong>g with other governmentagencies, such as HHS, <strong>and</strong> with non-governmental organizations (NGOs) <strong>in</strong> an effortto meet this need. INS uses a comb<strong>in</strong>ation of mechanisms to ensure that victimsof a severe form of <strong>traffick<strong>in</strong>g</strong> <strong>are</strong> not deta<strong>in</strong>ed <strong>in</strong> facilities <strong>in</strong>appropriate to theirstatus as crime victims. Those mechanisms <strong>in</strong>clude placement with an NGO, placementthrough the HHS ORR, <strong>and</strong> hous<strong>in</strong>g victims <strong>in</strong> private hotels for a short periodof time. The decision as to which mechanism is appropiate <strong>in</strong> any given casedepends on the circumstances of the case <strong>and</strong> the resources available.In work<strong>in</strong>g with other government agencies <strong>and</strong> NGOs to make hous<strong>in</strong>g arrangementsfor <strong>traffick<strong>in</strong>g</strong> victims, it has become app<strong>are</strong>nt that there is a critical needfor develop<strong>in</strong>g resources for immediate non-custodial emergency hous<strong>in</strong>g. As a caseis develop<strong>in</strong>g, it is often unclear whether <strong>traffick<strong>in</strong>g</strong> is <strong>in</strong>volved, <strong>and</strong> even after an<strong>in</strong>dividual has been identified as a <strong>traffick<strong>in</strong>g</strong> victim there is a short period of timebet<strong>we</strong>en identification <strong>and</strong> HHS certification. It is dur<strong>in</strong>g that time that INS resourcesface the greatest challenges. INS would <strong>we</strong>lcome the opportunity to workwith Congress to identify emergency hous<strong>in</strong>g resources.Question 5. Are there plans to exp<strong>and</strong> the Worker Exploitation <strong>and</strong> Traffick<strong>in</strong>ghotl<strong>in</strong>e to 24-hours, 7-days a <strong>we</strong>ek <strong>in</strong>stead of just dur<strong>in</strong>g bus<strong>in</strong>ess hours? Whatplans does DOJ have to <strong>in</strong>vestigate <strong>and</strong> prosecute <strong>in</strong> a timely matter the enormous<strong>in</strong>crease <strong>in</strong> cases that have come as a result of the hotl<strong>in</strong>e?Ans<strong>we</strong>r. The Department believes that the Traffick<strong>in</strong>g <strong>in</strong> Persons <strong>and</strong> Worker ExploitationTask Force compla<strong>in</strong>t l<strong>in</strong>e is an important tool <strong>in</strong> our efforts to combatthis problem. The Department notes <strong>how</strong>ever, that while compla<strong>in</strong>t l<strong>in</strong>e activity has<strong>in</strong>creased <strong>in</strong> recent months, <strong>we</strong> believe current coverage is adequate. We will con-VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00066 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
63t<strong>in</strong>ue to monitor the use of the compla<strong>in</strong>t l<strong>in</strong>e <strong>and</strong> review the hours if there is <strong>and</strong>emonstrated need to do so. In the meantime, the Department is direct<strong>in</strong>g its currentresources to ensure adequate attorney staff<strong>in</strong>g <strong>in</strong> the Civil Rights Division’sCrim<strong>in</strong>al Section to h<strong>and</strong>le the <strong>in</strong>creas<strong>in</strong>g caseload.The Department has seen a significant <strong>in</strong>crease <strong>in</strong> cases aris<strong>in</strong>g not only fromcalls received through the compla<strong>in</strong>t l<strong>in</strong>e but also from other outreach <strong>and</strong> tra<strong>in</strong><strong>in</strong>gefforts. All available resources <strong>are</strong> be<strong>in</strong>g used to <strong>in</strong>vestigate <strong>and</strong> prosecute the newmatters expeditiously. The Civil Rights Division is <strong>in</strong> the process of hir<strong>in</strong>g new attorneyswith the FY02 appropriation <strong>in</strong> order to help h<strong>and</strong>le the grow<strong>in</strong>g numberof <strong>traffick<strong>in</strong>g</strong> cases. We will pursue these cases as vigorously as our resources permit.Question 6. What is the INS do<strong>in</strong>g to ensure uniform <strong>and</strong> consistent implementationof the new T-visa regulations around the country?INS has centralized process<strong>in</strong>g of all T-visa applications by send<strong>in</strong>g them to theVermont Service Center (VSC) for adjudication. INS conducted tra<strong>in</strong><strong>in</strong>g on theVTVPA, with a special focus on the T nonimmigrant visa, at the VSC <strong>in</strong> January2002. This tra<strong>in</strong><strong>in</strong>g <strong>in</strong>cluded presenters from various offices with<strong>in</strong> INS <strong>and</strong> otherkey agencies such as the Justice Department’s Civil Rights Division <strong>and</strong> the StateDepartment. This tra<strong>in</strong><strong>in</strong>g was provided to all INS adjudicators, who will be process<strong>in</strong>gthose applications received by INS, as <strong>we</strong>ll as to key management at the VSC<strong>and</strong> essential contract employees.As part of the tra<strong>in</strong><strong>in</strong>g, <strong>in</strong>dividuals from the government agencies presented avery comprehensive overview of human <strong>traffick<strong>in</strong>g</strong>. The tra<strong>in</strong><strong>in</strong>g covered all elementsthat comprise the legislation <strong>in</strong>volv<strong>in</strong>g human <strong>traffick<strong>in</strong>g</strong>, most notably INA107(c) <strong>and</strong> 8 C.F.R. §214.11. The tra<strong>in</strong><strong>in</strong>g also <strong>in</strong>cluded non-governmental <strong>in</strong>volvementwith presenters from the Coalition to Abolish Slavery <strong>and</strong> Traffick<strong>in</strong>g (CAST),the Florida Immigrant Advocacy Center, a noted psychologist with experience <strong>in</strong>treat<strong>in</strong>g symptoms <strong>and</strong> disorders associated with human <strong>traffick<strong>in</strong>g</strong>, <strong>and</strong> a noted sociologyprofessor with expertise <strong>in</strong> expla<strong>in</strong><strong>in</strong>g culthral dynamics.The INS has also produced a tra<strong>in</strong><strong>in</strong>g video for all INS officer corps employees.The video expla<strong>in</strong>s the VTVPA, <strong>in</strong>structs employees <strong>how</strong> to identify potential victims,<strong>and</strong> outl<strong>in</strong>es benefits available to victims. This video aired on INS TV dur<strong>in</strong>gMarch 2002, <strong>and</strong> copies have also been provided to all INS offices. Additionally, an<strong>in</strong>teractive computer-based tra<strong>in</strong><strong>in</strong>g program is be<strong>in</strong>g developed by INS, with anoverview course for all INS employees <strong>and</strong> specific modules tailored for <strong>in</strong>dividualofficers <strong>and</strong> activities. This tra<strong>in</strong><strong>in</strong>g is also be<strong>in</strong>g <strong>in</strong>corporated <strong>in</strong>to the basic <strong>and</strong> advancedcourses conducted at INS officer tra<strong>in</strong><strong>in</strong>g academies. All of these tra<strong>in</strong><strong>in</strong>g<strong>in</strong>itiatives will eventually be available for INS employees <strong>in</strong> a variety of media formats<strong>and</strong> delivery methods, <strong>and</strong> all will allow for track<strong>in</strong>g <strong>and</strong> verification that employeeshave attended the tra<strong>in</strong><strong>in</strong>g.Question 7. What is the DOJ strategy to improve resources to <strong>in</strong>vestigate <strong>traffick<strong>in</strong>g</strong>cases at the local level? Do you plan to fund INS victims coord<strong>in</strong>ators at thelocal level so that agents do not have to coord<strong>in</strong>ate victims services as a collateralduty on top of their <strong>in</strong>vestigative work?Ans<strong>we</strong>r. The Department is focus<strong>in</strong>g exist<strong>in</strong>g resources to improve coord<strong>in</strong>ationamong federal, state, <strong>and</strong> local law enforcement as <strong>we</strong>ll as among victim service <strong>and</strong>advocacy groups. Tra<strong>in</strong><strong>in</strong>g <strong>and</strong> outreach <strong>are</strong> important aspects of this effort <strong>and</strong>complement our work with our federal partners <strong>in</strong> the field. This work is modeledon the national Traffick<strong>in</strong>g <strong>in</strong> Persons <strong>and</strong> Worker Exploitation Task Force, chairedby the Justice Department’s Civil Rights Division <strong>and</strong> the Labor Department’s Solicitor’sOffice. This coord<strong>in</strong>ated approach has provided a forum for <strong>in</strong>teragency <strong>in</strong>formationshar<strong>in</strong>g <strong>in</strong> potential cases <strong>and</strong> coord<strong>in</strong>ation of efforts <strong>in</strong> outreach, tra<strong>in</strong><strong>in</strong>g,<strong>and</strong> public aw<strong>are</strong>ness rais<strong>in</strong>g. Nascent efforts to promote similar <strong>in</strong>teragencycollaboration <strong>and</strong> <strong>in</strong>formation shar<strong>in</strong>g at the local level <strong>are</strong> already tak<strong>in</strong>g rootthrough regional task forces.The Department is dedicated to provid<strong>in</strong>g <strong>in</strong>creased tra<strong>in</strong><strong>in</strong>g for prosecutors <strong>and</strong>agents on <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>. The Crim<strong>in</strong>al Section of the Civil Rights Divisionhas made presentations at several tra<strong>in</strong><strong>in</strong>g sessions held at Quantico for FBIagents, <strong>and</strong> at a tra<strong>in</strong><strong>in</strong>g of INS staff at the VSC, where T visa applications willbe adjudicated. Division personnel have planned, coord<strong>in</strong>ated, <strong>and</strong> presented tra<strong>in</strong><strong>in</strong>gsessions for federal prosecutors, agents, <strong>and</strong> victim-witness coord<strong>in</strong>ators fromaround the country at the Department’s National Advocacy Center <strong>in</strong> Columbia S.C.Another such tra<strong>in</strong><strong>in</strong>g is planned for October, 2002 <strong>and</strong> will consist of two two-daysessions primarily for federal prosecutors, but also for FBI <strong>and</strong> INS agents. We haveprovided tra<strong>in</strong><strong>in</strong>g to local law enforcement at the FBI’s National Academy, <strong>and</strong> <strong>are</strong>writ<strong>in</strong>g an article to be placed <strong>in</strong> the magaz<strong>in</strong>e of the International Association ofChiefs of Police (IACP), which reaches local police chiefs across the country. WeVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00067 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
64hope to participate <strong>in</strong> the annual IACP conference this fall <strong>in</strong> order to focus moreattention on the problem of <strong>traffick<strong>in</strong>g</strong>, the new law, the Department’s work <strong>in</strong> <strong>in</strong>vestigat<strong>in</strong>g<strong>and</strong> prosecut<strong>in</strong>g cases, <strong>and</strong> the resources available to victims.With respect to INS victim-witness coord<strong>in</strong>ators, INS employs such coord<strong>in</strong>ators<strong>in</strong> all districts <strong>and</strong> sectors; <strong>how</strong>ever, their victim-witness duties <strong>are</strong> collateral totheir primary responsibilities as <strong>in</strong>vestigators <strong>and</strong> deportation officers. These coord<strong>in</strong>ators<strong>are</strong> also responsible for victim notification <strong>and</strong> sex offender registrations <strong>in</strong>their districts <strong>and</strong> sectors, <strong>and</strong> they have only recently seen an <strong>in</strong>crease <strong>in</strong> <strong>traffick<strong>in</strong>g</strong>cases requir<strong>in</strong>g the provision of direct services to victims. With an <strong>in</strong>creas<strong>in</strong>gnumber of <strong>traffick<strong>in</strong>g</strong> cases, the victim-witness coord<strong>in</strong>ators <strong>are</strong> be<strong>in</strong>g called uponwith more frequency to provide direct services, which <strong>are</strong> very time <strong>and</strong> resource<strong>in</strong>tensive. While fund<strong>in</strong>g full-time victim coord<strong>in</strong>ators <strong>in</strong> some of the larger INS officesmakes sense, the workload does not yet justify full-time coord<strong>in</strong>ators <strong>in</strong> all INSfield offices. In addition, there <strong>are</strong> good reasons for hav<strong>in</strong>g agents <strong>in</strong>volved <strong>in</strong> provid<strong>in</strong>gvictim services to victims of <strong>traffick<strong>in</strong>g</strong>.Question 8. What role do you play <strong>in</strong> facilitat<strong>in</strong>g with other U.S. agencies <strong>and</strong> foreigngovernments the repatriation of trafficked victims to their countries of orig<strong>in</strong><strong>and</strong> for provid<strong>in</strong>g fund<strong>in</strong>g to send victims bome? Are you work<strong>in</strong>g with the StateDepartment to ensure these victims get adequate protection once they get home?Ans<strong>we</strong>r. Some <strong>traffick<strong>in</strong>g</strong> victims prefer to return home rather than seek the protectionsof Section 107 of the VTVPA. F<strong>in</strong>ancial assistance to pay the transportationcosts of victim repatriation has been an obstacle. We <strong>are</strong> not aw<strong>are</strong> of any federalfunds currently available to assist victims to return to their home countries. In one<strong>in</strong>stance <strong>in</strong> which the victim wished to be repatriated, the home country providedthe airf<strong>are</strong>; <strong>in</strong> another, the International Organization for Migration (IOM) paid thetravel expenses. In addition to fund<strong>in</strong>g, the Department has encountered delays <strong>in</strong>facilitat<strong>in</strong>g a victim’s repatriation because the home country government needed toreissue identity <strong>and</strong> travel documents to replace those confiscated by the traffickers.In one such case, the Civil Rights Division’s Crim<strong>in</strong>al Section worked both with thecommunity-based organization provid<strong>in</strong>g services to the victim <strong>and</strong> with officialsfrom the embassy of the victim’s home country to facilitate the issuance of traveldocuments. In these cases, the victims felt that their safety <strong>and</strong> <strong>we</strong>ll-be<strong>in</strong>g wouldbe best assured by return<strong>in</strong>g home. While the Department has not yet worked withthe State Department on repatriation issues <strong>in</strong> specific cases, the State Departmenthas provided us with a list of NGOs <strong>in</strong> various countries that have received fund<strong>in</strong>gfrom the State Department <strong>and</strong> the Agency for International Development to assist<strong>traffick<strong>in</strong>g</strong> victims, thus enabl<strong>in</strong>g us to <strong>in</strong>form victims about programs that may beable to offer them assistance upon their return.Question 9. Are you do<strong>in</strong>g follow-up on the American Samoa case <strong>in</strong> which DOJuncovered a large-scale slavery operation <strong>in</strong>volv<strong>in</strong>g more than 200 Vietnamese victims?What <strong>are</strong> you do<strong>in</strong>g to remedy the situation where victims, hav<strong>in</strong>g been freedfrom slavery <strong>and</strong> debt bondage, <strong>are</strong> <strong>in</strong> a position of <strong>in</strong>debtedness <strong>and</strong> of hav<strong>in</strong>g totake terrible s<strong>we</strong>atshop-like jobs <strong>in</strong> order to pay off this debt <strong>and</strong> become <strong>in</strong>dependent?Ans<strong>we</strong>r. The Civil Rights Division’s Crim<strong>in</strong>al Section is currently prosecut<strong>in</strong>g thiscase, United States v. Kil Soo Lee. Two defendants have already pled guilty to felonycharges, <strong>and</strong> trial is set for the rema<strong>in</strong><strong>in</strong>g defendants for October 22, 2002. Experiencedslavery prosecutors <strong>are</strong> lead<strong>in</strong>g the prosecution team. They recently successfullydefended the VTVPA’s victim protection provisions from a constitutional challenge<strong>in</strong> which the defendant alleged that Section 107 of the Act created a due processviolation by mak<strong>in</strong>g the victims too dependent on government services.Victim-witness coord<strong>in</strong>ators from the Civil Rights Division, the U.S. Attorney’s Officefor the District of Hawaii, the FBI, <strong>and</strong> the INS have worked with the victimsconsistent with the VTVPA <strong>and</strong> the relevant Department policy guidance on victims<strong>and</strong> witnesses. The United States does not have jurisdiction over debts that the victimsmay have <strong>in</strong>curred <strong>in</strong> Vietnam or Ch<strong>in</strong>a, or <strong>in</strong> the United States. The victims’cont<strong>in</strong>ued presence is be<strong>in</strong>g ensured under Section 107(c) of the Act so that theywill be available for trial if subpoenaed by the government or the defense. The Actprovides them with employment authorization, which allows them to work whilethey <strong>are</strong> <strong>in</strong> the United States. HHS has certified the victims pursuant to Section107(b) of the Act, which allows them to apply for assistance programs, <strong>in</strong>clud<strong>in</strong>g jobtra<strong>in</strong><strong>in</strong>g. The sponsors <strong>and</strong> hosts who <strong>are</strong> hous<strong>in</strong>g or employ<strong>in</strong>g the formerDaewoosa workers <strong>we</strong>re not provided by the Government, but <strong>we</strong>re obta<strong>in</strong>edthrough relatives, church groups, <strong>and</strong> other volunteer organizations. Daewoosaworkers <strong>are</strong> represented by private counsel who can provide legal advice on a varietyof matters beyond the jurisdiction of the Department of Justice. A number ofsocial service providers have been work<strong>in</strong>g with the attorneys <strong>in</strong> this case. S<strong>in</strong>ceVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00068 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
65rais<strong>in</strong>g concerns about re-victimization, the service provider CAST has aga<strong>in</strong> been<strong>in</strong> contact with those attorneys so that they can assist <strong>in</strong> the ongo<strong>in</strong>g efforts to ensurethat the workers <strong>are</strong> safe <strong>and</strong> ga<strong>in</strong>fully employed.Question 10. Is there a problem prosecut<strong>in</strong>g under the new crim<strong>in</strong>al statutes establishedby the Traffick<strong>in</strong>g Victims Protection Act given that of the 89 <strong>in</strong>vestigationspend<strong>in</strong>g related to <strong>traffick<strong>in</strong>g</strong>, only one of the current prosecutions <strong>in</strong>volvesone of the crim<strong>in</strong>al statutes? Can you expla<strong>in</strong> <strong>in</strong> detail why a prosecutor wouldchoose to prosecute under the old <strong>in</strong>voluntary servitude statute as opposed to thenew forced labor one? Do <strong>we</strong> need to amend the bill to deal with this issue?Ans<strong>we</strong>r. The 103 open matters <strong>are</strong> ongo<strong>in</strong>g <strong>in</strong>vestigations. It is premature to knowwith certa<strong>in</strong>ty <strong>how</strong> many will ripen <strong>in</strong>to prosecutions <strong>and</strong> what specific chargeswould be brought.As for cases <strong>in</strong>dicted s<strong>in</strong>ce the passage of the new statute, VTVPA crimes havebeen charged <strong>in</strong> several cases, often <strong>in</strong> conjunction with the pre-exist<strong>in</strong>g servitude<strong>and</strong> Mann Act statutes: United States v. Kil Soo Lee (Samoa, Vietnamese s<strong>we</strong>atshop:18 U.S.C §§241, 1584 <strong>and</strong> 1594); United States v. Virchenko (Alaska, Russian nudedanc<strong>in</strong>g: 18 U.S.C. §§2421 <strong>and</strong> 1589); United States v. Ng (New York, Indonesianprostitution: 18 U.S.C. §§371/1584, 1589, 1584, 1591, <strong>and</strong> 2422); United States v. Jimenez(New Jersey, Mexican child prostitution: 18 U.S.C. §1591); <strong>and</strong> the first convictionwas recently obta<strong>in</strong>ed under the VTVPA <strong>in</strong> United States v. Gasanov (ElPaso, Uzbek nude danc<strong>in</strong>g: 18 U.S.C. §§371, 1592, 1546).The majority of our current active cases predate the enactment of the VTVPA <strong>and</strong>therefore <strong>we</strong> cannot constitutionally br<strong>in</strong>g charges under the new Act <strong>in</strong> those cases;<strong>how</strong>ever, victims <strong>in</strong> those cases can <strong>and</strong> <strong>are</strong> be<strong>in</strong>g helped through the victim protectionprovisions of the Act. The number of post-VTVPA <strong>in</strong>vestigations, <strong>how</strong>ever, is<strong>in</strong>creas<strong>in</strong>g, particularly <strong>in</strong> response to focused outreach efforts by the Civil RightsDivision’s Crim<strong>in</strong>al Section. While <strong>we</strong> cannot comment on the details of cases under<strong>in</strong>vestigation, <strong>we</strong> <strong>are</strong>, as always, consider<strong>in</strong>g the full range of charges available tous as <strong>we</strong> proceed <strong>in</strong> these matters. It is typical practice <strong>in</strong> the federal system tocharge several federal crim<strong>in</strong>al statutes as appropriate to capture the various facetsof the defendant’s scheme. The exact scope of the new forced labor statute <strong>and</strong> theother crim<strong>in</strong>al provisions of Section 112 of the Act will be def<strong>in</strong>ed <strong>in</strong> case law ascases <strong>are</strong> litigated. The <strong>we</strong>ll-established <strong>in</strong>voluntary servitude statutes, which haveconsistently been held to be constitutional <strong>and</strong> have <strong>we</strong>ll-developed bodies of <strong>in</strong>terpretivecase law, can be effective <strong>in</strong> prosecut<strong>in</strong>g <strong>traffick<strong>in</strong>g</strong> situations <strong>in</strong>volv<strong>in</strong>g force<strong>and</strong> threats of force, especially when augmented with the victim protection provisionsof the VTVPA. Their cont<strong>in</strong>ued use <strong>in</strong> appropriate situations should not be <strong>in</strong>terpreted<strong>in</strong> any way as a comment on the efficacy of the new statutory tools providedby the Act.RESPONSES OF AMB. NANCY H. ELY-RAPHEL, SENIOR ADVISOR, OFFICE TO MONITORAND COMBAT TRAFFICKING IN PERSONS, DEPARTMENT OF STATE, TO ADDITIONALQUESTIONS FOR THE RECORD SUBMITTED BY SENATOR WELLSTONEQuestion 1. What <strong>are</strong> you do<strong>in</strong>g to assist the President’s Inter-Agency Task Forceon Traffick<strong>in</strong>g <strong>in</strong> regard to facilitat<strong>in</strong>g cooperation among countries of orig<strong>in</strong>, transit<strong>and</strong> dest<strong>in</strong>ation (<strong>and</strong> not just bet<strong>we</strong>en the United States <strong>and</strong> those countries), <strong>and</strong>to strengthen their local <strong>and</strong> regional capacities to fight <strong>traffick<strong>in</strong>g</strong>?Ans<strong>we</strong>r. Regional cooperation <strong>and</strong> transnational cooperation is imperative to <strong>combat<strong>in</strong>g</strong><strong>traffick<strong>in</strong>g</strong>.Dur<strong>in</strong>g meet<strong>in</strong>gs with foreign government officials <strong>we</strong> encourage dest<strong>in</strong>ation countriesto work more collaboratively with source <strong>and</strong> transit countries. As <strong>we</strong> beg<strong>in</strong>preparations for a world summit on <strong>traffick<strong>in</strong>g</strong>, <strong>we</strong> will be look<strong>in</strong>g at models of bilateral,regional <strong>and</strong> <strong>in</strong>ternational collaboration.The West Africa Traffick<strong>in</strong>g <strong>in</strong> Persons Regional Conference <strong>in</strong> Nigeria last Decemberdeveloped an action plan, still <strong>in</strong> draft, for our posts to aid West Africanstates build regional <strong>and</strong> bilateral cooperation. We <strong>are</strong> support<strong>in</strong>g regional cooperation<strong>in</strong> East Asia <strong>and</strong> the Pacific with the development of a <strong>we</strong>bsite for governments<strong>and</strong> NGQs to use as a reference for cooperation on human anti-<strong>traffick<strong>in</strong>g</strong> issues,<strong>in</strong>clud<strong>in</strong>g the shar<strong>in</strong>g of best practices. We <strong>are</strong> <strong>in</strong> the process of issu<strong>in</strong>g a requestfor proposals for a <strong>traffick<strong>in</strong>g</strong> conference for Asia-Pacific nations to prep<strong>are</strong> for theWorld Summit on Traffick<strong>in</strong>g <strong>in</strong> Persons. In addition, <strong>we</strong> <strong>in</strong>tend to raise with regionalorganizations the importance of develop<strong>in</strong>g their capacity to track <strong>and</strong> fightthis issue with<strong>in</strong> their respective regions <strong>in</strong> order to strengthen regional efforts.We <strong>are</strong> pleased that the OSCE has decided to make <strong>traffick<strong>in</strong>g</strong> <strong>in</strong> <strong>persons</strong>, <strong>we</strong>apons<strong>and</strong> drugs the focus of the 2003 Economic Forum. This will present an idealVerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00069 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
66opportunity to raise with many Western European dest<strong>in</strong>ation states the importanceof coord<strong>in</strong>ation <strong>and</strong> cooperation with partners <strong>in</strong> Eastern Europe <strong>and</strong> beyond. We<strong>are</strong> look<strong>in</strong>g at ways to encourage <strong>and</strong> strengthen other regional organizations’ effortsaga<strong>in</strong>st <strong>traffick<strong>in</strong>g</strong>.No national anti-<strong>traffick<strong>in</strong>g</strong> effort will be effective without transnational cooperation.Question 2. What <strong>are</strong> you do<strong>in</strong>g to assist the Task Force <strong>in</strong> exam<strong>in</strong><strong>in</strong>g the roleof the ‘‘sex tourism’’ <strong>in</strong>dustry <strong>in</strong> <strong>traffick<strong>in</strong>g</strong>?Ans<strong>we</strong>r. A senior official from the Office to Monitor <strong>and</strong> Combat Traffick<strong>in</strong>g <strong>in</strong>Persons (TIP Office) was part of the official U.S. delegation to the recent SecondWorld Congress Aga<strong>in</strong>st Commercial Sexual Exploitation of Children, which had asa primary goal the elim<strong>in</strong>ation of sex tourism. The World Congress works with thetourism <strong>and</strong> travel <strong>in</strong>dustry, NGOs, <strong>in</strong>ternational organizations, <strong>and</strong> government officials<strong>in</strong> a variety of capacities to address sex tourism. We will cont<strong>in</strong>ue to workclosely with other governments <strong>and</strong> with<strong>in</strong> the USG to follow-up on the <strong>in</strong>itiativesof the World Congress.The TIP Office also co-hosted, with the Child Exploitation <strong>and</strong> Obscenity divisionof the U.S. Department of Justice, a follow-up brief<strong>in</strong>g on <strong>traffick<strong>in</strong>g</strong>, commercialsexual exploitation of children, <strong>and</strong> sex tourism. Over 35 U.S. Government agencies<strong>and</strong> bureaus attended. Further activities <strong>and</strong> programs <strong>are</strong> planned, <strong>in</strong>clud<strong>in</strong>g an<strong>in</strong>ternal State Department brief<strong>in</strong>g on sex tourism <strong>and</strong> <strong>traffick<strong>in</strong>g</strong> later this month.The goal of the meet<strong>in</strong>gs <strong>and</strong> brief<strong>in</strong>gs is to <strong>in</strong>corporate a plan of action for sex tourism<strong>in</strong>to our comprehensive strategy on <strong>traffick<strong>in</strong>g</strong>. We will also <strong>in</strong>clude this issue<strong>in</strong> our bilateral discussions with countries l<strong>in</strong>ked to this phenomenon.RESPONSES OF NGUYEN VAN HANH, PH.D., DIRECTOR, OFFICE OF REFUGEE RESET-TLEMENT, DEPARTMENT OF HEALTH AND HUMAN SERVICES, TO ADDITIONAL QUES-TIONS FOR THE RECORD SUBMITTED BY SENATOR WELLSTONEQuestion 1. How much money will Health <strong>and</strong> Human Services (HHS) grant tonon-governmental organizations (NGOs) for victim servies <strong>and</strong> <strong>how</strong> much of thismoney will come out of the $10 million appropriated for this year? If HHS does notplan to use any of the $10 million appropriation for fund<strong>in</strong>g victim services, pleaseexpla<strong>in</strong> the rationale for this decision.Ans<strong>we</strong>r. HHS’ Office of Refugee Resettlement (ORR) is currently develop<strong>in</strong>g anexpansion of our grant program to <strong>in</strong>crease outreach <strong>and</strong> services to victims <strong>and</strong> solicitexpertise for a national outreach campaign designed to educate people aboutthe existence of <strong>traffick<strong>in</strong>g</strong> <strong>and</strong> the protections <strong>and</strong> benefits available for victims.We <strong>in</strong>tend to issue a significant number of grants <strong>and</strong> contracts for a total of approximately$6 million. ORR plans to fund all of the awarded <strong>traffick<strong>in</strong>g</strong> grants <strong>and</strong>contracts out of the HHS authorization.Question 2. Does HHS plan to tailor its programs to fit the special needs of <strong>traffick<strong>in</strong>g</strong>victims, s<strong>in</strong>ce although <strong>traffick<strong>in</strong>g</strong> victims have similar needs of refugees,their needs <strong>are</strong> not identical?Ans<strong>we</strong>r. Our experience to date confirms that the needs of <strong>traffick<strong>in</strong>g</strong> victims <strong>and</strong>refugees may differ significantly. Where appropriate, <strong>we</strong> <strong>are</strong> encourag<strong>in</strong>g benefit<strong>and</strong> service providers to address the needs of <strong>traffick<strong>in</strong>g</strong> victims through programmaticadjustments <strong>and</strong> to <strong>in</strong>crease their capacity to provide culturally <strong>and</strong> l<strong>in</strong>guisticallyappropriate assistance to <strong>traffick<strong>in</strong>g</strong> victims with<strong>in</strong> both exist<strong>in</strong>g programs<strong>and</strong> newly evolv<strong>in</strong>g programs. We <strong>are</strong> work<strong>in</strong>g to educate refugee service organizations,non-profit groups, law enforcement agencies, <strong>and</strong> others as to <strong>traffick<strong>in</strong>g</strong>victims’ needs, <strong>how</strong> they <strong>are</strong> manifested among victim populations, <strong>and</strong> <strong>how</strong>cooperation among service providers will ensure that the benefits <strong>and</strong> services <strong>are</strong>effectively provided to victims.Question 3. Does HHS plan to use fund<strong>in</strong>g to establish shelters for trafficked <strong>persons</strong><strong>in</strong> the future? What can HHS do to help <strong>traffick<strong>in</strong>g</strong> victims access exist<strong>in</strong>gshelter services until there is more fund<strong>in</strong>g or new types of shelter available?Ans<strong>we</strong>r. Provid<strong>in</strong>g appropriate shelter for <strong>traffick<strong>in</strong>g</strong> victims is an <strong>are</strong>a of high<strong>in</strong>terest for HHS, <strong>how</strong>ever <strong>we</strong> <strong>are</strong> statutorily prohibited from establish<strong>in</strong>g or construct<strong>in</strong>gshelters vis-a-vis bricks-<strong>and</strong>-mortar build<strong>in</strong>gs. There is a severe lack ofshelter services, <strong>in</strong> great part due to a lack of fund<strong>in</strong>g <strong>in</strong> both the private <strong>and</strong> publicsectors, specifically designed to meet the unique needs of <strong>traffick<strong>in</strong>g</strong> victims. Withour state <strong>and</strong> local partners, non-governmental organizations, <strong>and</strong> other federalagencies <strong>we</strong> <strong>are</strong> cont<strong>in</strong>u<strong>in</strong>g to search for ways to provide resources <strong>and</strong> encourageshelter programs to <strong>in</strong>crease their capacity to accommodate <strong>traffick<strong>in</strong>g</strong> victims withoutsacrific<strong>in</strong>g services to other populations be<strong>in</strong>g currently served.VerDate 11-MAY-2000 16:35 Jul 26, 2002 Jkt 000000 PO 00000 Frm 00070 Fmt 6633 Sfmt 6621 80844 SFRELA1 PsN: SFRELA1
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