Memorandum submitted by the Home Office
The Committee have indicated that the primary
focus of the inquiry will be on the response by public authorities
in the UK and the effectiveness of international co-operation
in addressing the problem. In particular, the Committee will consider:
— Estimating the scale and type of
activity.
— The difficulty of finding those who
have been trafficked when they are normally too frightened to
complain to the authorities; and the role of NGOs in helping to
identify and assist victims.
— The treatment of those who have been
trafficked but have no legal right to remain in the UK, including
the requirements imposed by the Council of Europe Convention on
Combating Human trafficking.
— Co-operation within the EU (including
Europol); and control of the EU's external frontiers.
— Relations with transit and source
countries, and the role of Interpol and the UN Office on Drugs
and Crime.
— Effectiveness of the co-ordination
between public authorities in the UK (Home Office, FCO, police
forces, Serious Organised Crime Agency, Border and Immigration
Agency, social services).
INTRODUCTION
1. The Government affords a high priority
to combating human trafficking. The UK Action Plan (http://www.homeoffice.gov.uk/documents/human-traffick-action-plan)
published on the 23rd March 2007 sets out the Government's end
to end strategy on tackling human trafficking. It includes a range
of measures in the four key areas of prevention/investigation,
law enforcement and prosecution/protection and assistance to victims/and
child trafficking. The information set out in the Action Plan
is not repeated here but read alongside this memorandum provides
a comprehensive overview of current structures in place and action
targeted at tackling human trafficking.
2. The UK Action Plan is a "living"
document which will be updated regularly to ensure that our response
remains targeted as our knowledge and understanding of this area
grows. The implementation of the Council of Europe Convention
on Action against Trafficking in Human Beings ("the Council
of Europe Convention") signed by the UK on 23 March 2007
impacts on a number of different areas in the UK Action Plan.
Implementing the Council of Europe Convention is action point
1 of the Plan and a dedicated project team was set up within the
Border and Immigration Agency (BIA) at the beginning of May 2007
to lead on implementation. The team report to a Project Board
(made up of senior officials from across government including
representatives from the devolved administrations) and through
that to the Inter-Departmental Ministerial Group on Human Trafficking.
3. The Convention implementation project
has a number of work streams. In spring 2008 a pilot will be undertaken
to test victim identification and support processes for trafficking
for forced labour in a number of areas. Alongside intelligence
gathered under Pentameter 2 this will help to broaden our understanding
and develop our response to a lesser known form of human trafficking.
An evaluation of the National Referral Mechanism being tested
under Pentameter 2 will be conducted in early summer. A provisional
victim support model has been agreed. It is expected that we will
reach compliance with the Convention through a limited number
of changes to primary legislation and wider changes to existing
secondary legislation and procedures. It is intended that as far
as possible proposals for these changes will be introduced before
the summer recess with a view to ratification by the end of the
year.
4. We are conscious that we need to see
the implementation of the Convention as part of our wider anti-trafficking
activity. Ratification is not an end in itself and we are already
compliant with much of the Convention. There has already been
a significant amount of good work under the UK Action plan and
developments in the four key areas are set out briefly below.
PREVENTION
5. Work under the prevention strand of the
Action Plan has been taken forward through a number of different
initiatives. In order to develop a firm evidence basis the UK
Human Trafficking Centre (UKHTC) has been established as the central
repository of all data and intelligence on human trafficking.
Awareness raising initiatives have been undertaken overseas as
well as at home. A Foreign and Commonwealth Office ( FCO) funded
awareness raising campaign amongst potential victims in Bulgaria
and Romania, ahead of EU Accession, about the risks of migration
as they relate to human trafficking was implemented through the
UKHTC and International Organisation for Migration. The UKHTC's
blue blindfold campaign is in the process of being rolled out
across the UK. It is aimed at raising awareness amongst a number
of different groups including the general public about all forms
of human trafficking with the slogan "Don't close your eyes
to human trafficking". The Home Secretary announced at the
end of November 2007 a short term review on what more can be done
to tackle the demand for prostitution and the impact this has
on human trafficking. The review will consider approaches adopted
in other jurisdictions, the development of additional measures
and will involve further consultation with stakeholders.
6. Work to build capacity in source and
transit countries continues and the UK have recently part-funded
the secondment to the UK of two Romanian police officers into
a Metropolitan Police joint unit to exchange experience, skills
and knowledge in the fight against the criminal exploitation and
trafficking of Romanian children to the UK. This was of particular
assistance in relation to the recent operation which took place
in Slough. The Department for International Development continues
to support projects which address the factors that make individuals
vulnerable to trafficking via their support for nationally developed
poverty reduction programmes.
INVESTIGATION/LAW
ENFORCEMENT/PROSECUTION
7. A number of measures have been undertaken
over the last year to reinforce the strong enforcement response
to human trafficking. The current police led, multi-agency operation,
Pentameter 2, provides another opportunity to increase expertise
amongst law enforcement and to encourage the proactive policing
of human trafficking beyond the lifetime of the operation. The
operation is ongoing but has made good progress thus far; over
300 arrests have taken place and more than 600 premises have been
visited. A number of money laundering investigations are underway
and a number of restraint orders have been put in place; with
in excess of £400,000 seized to date. The continued funding
and expansion of the UKHTC will also assist in the development
of the policing response to this crime by upskilling front line
officers through targeted training, awareness raising and the
provision of 24/7 specialist tactical, immigration, victim and
legal advice. We recognised in the UK Action Plan that performance
indicators could have a role in ensuring that human trafficking
is core police business alongside other measures and a performance
measure on organised crime (which includes human trafficking)
will be introduced in the new APACS (Assessments of Policing and
Community Safety) system from 1 April 2008.
8. We have also kept the legislation on
trafficking under review, to ensure it continues to provide an
effective framework for the prosecution of trafficking offences.
The number of successful cases prosecuted is increasing year on
year and there have been 70 convictions for trafficking offences
under the Sexual Offences Act 2003.[180]
In January 2008 amendments made to the trafficking and facilitation
legislation in the UK Borders Act 2007 came into force which will
enable the more effective prosecution of those cases where the
trafficking has been arranged by someone who is outside the UK
and who is not a British citizen. It is important to note that
traffickers may not necessarily be charged with offences under
the trafficking legislation, depending on the facts of the case
and alternative offences such as kidnap, rape and facilitation
under the immigration legislation may also be charged. In preparation
for Pentameter 2 the Crown Prosecution Service (CPS) issued further
guidance to prosecutors to raise awareness about trafficking cases
and a briefing/ training day was held for specialist prosecutors
in each CPS area and Organised Crime Division.
PROVIDING PROTECTION
AND ASSISTANCE
TO ADULT
VICTIMS OF
TRAFFICKING
9. The Government has a comprehensive strategy
to protect and support all victims of crime. This includes: a
statutory Code of Practice for Victims of Crime; special measures
to assist with giving evidence; a Criminal Injuries Compensation
Scheme for victims of violent crime; and statutory protection
for witnesses subject to intimidation. Significant progress has
been made on the additional targeted measures in the UK Action
Plan on the protection and support of adult victims of trafficking.
The UK's decision to accelerate the implementation of the Council
of Europe Convention to enable ratification by the end of 2008
will help us to enhance our existing provisions. It will provide
the formal basis for many of our already established or piloted
initiatives including: the development of a formal identification
and referral process; a reflection period; minimum levels of support;
and access to temporary residence permits in certain circumstances.
10. To help with capacity building and extending
expertise on a national level we invested additional resources
into the Poppy project during Operation Pentameter 2. As a result,
service level agreements are now in place with seventeen third-sector
organisations, a number of which are Women's Aid service providers.
The UK Action Plan highlights the importance of developing a consistent
approach in the quality of services for victims of trafficking.
The Government is working with the interpersonal violence specialist
Third Sector to develop national guidance and service standards
for providers working with victims of domestic violence, trafficking
for sexual exploitation, sexual violence and childhood sexual
abuse. It is expected that the standards will be ready by the
middle of the year.
11. As part of the Victims Strategy for
Operation Pentameter 2 the Government wrote to all Local Authorities
to inform them of the campaign and to highlight the complex needs
of trafficking victims. Pentameter 2 provides an opportunity to
help develop local expertise and responses to victims. The Senior
Investigative Officers toolkit for Pentameter 2 includes advice
on: engaging with local stakeholders including specialist services
for victims; appropriate victim sensitive behaviour during operations;
special measures for victims of crime; procedures for referring
victims to support arrangements and contact details for 24 hour
advice.
CHILD VICTIMS
OF TRAFFICKING
12. Some good progress has also been made
on action directed at child trafficking. Together with Comic Relief
and part funded by the Home Office, the NSPCC launched the Child
Trafficking Advice and Information Line (CTAIL) on 7 October 2007.
This is proving an invaluable resource to practitioners who suspect
a child to have been trafficked. The service is also testing an
e-learning package developed by ECPAT( End Child Prostitution
and Trafficking) with Home Office funding which is tailored to
train practitioners to improve their skills in identifying and
taking appropriate action to safeguard trafficked children.
13. In December 2007 the Home Office and
Department of Children, Schools and Families (DCSF) published
multi agency guidance on child trafficking. The guidance is supplementary
to the Statutory Guidance "Working Together to Safeguard
Children" published in April 2006. The Guidance is called
"Working Together to Safeguard Children Who May Have Been
Trafficked" and alerts practitioners to the risk indicators
of trafficking and actively guides them to taking appropriate
safeguarding action.
14. The Border and Immigration Agency announced
on 31 January 2008 a consultation on the Code of Practice for
Keeping Children Safe from Harm. The Code of Practice is a clear
statement of the requirement for BIA staff members, the immigration
service, and contractors who support immigration functions to
be responsive to the needs of all children and ensure they are
kept safe from harm. This includes staff members being vigilant
for signs that children are at risk of harm and acting on those
indicators. This includes awareness of indicators that children
may have been trafficked to safeguard children entering the immigration
system. On the same day BIA also announced its strategy for delivering
improved support to unaccompanied asylum seeking children. The
programme—Better Outcomes : The Way Forward includes
plans for better identifying and supporting unaccompanied asylum
seeking children (UASCs) and includes measures for those who are
potential and identified victims of trafficking. We are working
to establish contractual arrangements with specialist local authorities
to ensure their needs are met.
15. Frontline staff at ports are receiving
up-dated training to ensure they are fully equipped to identify
potential victims of child trafficking. Immigration Officers are
receiving one of 3 tiers of training. Tiers 1 and 2 are being
implemented across the country and tier 3, designed for staff
who will have regular contact with children, will role out in
the spring.
16. Although progress has been made we are
aware of the continuing challenge presented by children who go
missing from care who may have been trafficked. If a looked after
child, who may have been trafficked, goes missing from their care
placement, then the local authority responsible for the child's
care and the provider of the care placement must follow the arrangements
agreed with the police for managing missing from care incidents.
17. The Government takes this issue very
seriously. The practice guidance published in December and outlined
above is intended to help agencies and their staff safeguard and
promote the welfare of children who may have been trafficked.
The BIA UASC Reform plans include safe arrangements for trafficked
children who claim asylum and later go missing from care. In addition,
the draft Code of Practice emphasises the need to identify trafficked
children at risk of going missing and the appropriate action to
safeguard them.
18. We are also looking at additional measures
to address children trafficked into domestic servitude from Africa
and how to continue to develop our strategy for safeguarding children
who are trafficked for criminal exploitation.
Estimating the scale and type of activity
Scale
19. The UK is primarily a destination country
for human trafficking. The majority of our knowledge regarding
the situation in the UK centres on trafficking for the purposes
of sexual exploitation and although the extent of the problem
is unclear evidence suggests that it is not reducing in scale
or reach. Home Office analysis estimates the size of the UK market
for sexual exploitation was up to £275 million in 2003. The
analysis also estimates that in 2003 there were up to 4,000 women
in the UK that had been trafficked for sexual exploitation.
20. The problem of making an accurate assessment
of the scale of human trafficking within national borders is not
one which is unique to the UK. The covert nature of the criminal
activity means that it is difficult to accurately size the problem.
At the recent UN Global Forum on Trafficking which took place
in Vienna from 13-15 February 2008 there was a great deal of discussion
on the need to improve knowledge throughout the world in this
area through the targeted collection of intelligence, data and
research.
21. The UK is using the national Pentameter
operations to develop the strategic intelligence picture on trafficking
across the UK. During the four months of operational activity
under Pentameter 1 in 2006 88 potential victims from 23 different
countries were recovered, predominantly from Eastern Europe (including
EU Member States), the Balkans, China/South-East Asia or Africa.
This largely reflects what are considered to be the most common
nationalities of victims trafficked for sexual exploitation and
also reflects the nationalities of traffickers involved. Operation
Pentameter 2 is still ongoing but one of the promising aspects
to emerge from the current operation has been the increase in
intelligence provided by forces on human trafficking from across
the UK. A bespoke database and business process has been developed
to support the submission of intelligence which has assisted with
the flow of information. This intelligence will assist the UK
Human Trafficking Centre in co-ordinating an assessment of the
number of victims recovered by police and in producing an up to
date strategic picture of the nature and scale of trafficking
for sexual exploitation. Strategic and tactical intelligence has
also been sought on other forms of trafficking such as trafficking
for forced labour.
22. Knowledge of the scale and nature of
trafficking of minors (aged under 18) for the UK vice trade is
limited, and the extent of serious organised criminal involvement
is also unclear. Traffickers of children appear to vary between
those highly organised and linked to other organised crime, particularly
organised immigration crime and vice, and those that are individually
opportunistic. More informal trafficking lends itself to domestic
servitude, although instances of sexual exploitation have also
been uncovered.
23. The extent to which the UK is a destination
country for adult victims of trafficking for forced labour is
not known. It is assessed that the majority of the illegal migrant
workers in the UK, including those that have been "debt-bonded"
as part of their facilitation costs, accept they will not receive
the same treatment as their legal counterparts. Some legal migrant
workers also suffer exploitation by unscrupulous employers due
to a lack of understanding regarding their rights. However, the
extent to which cases occur where the deception, exploitation
and curtailment of freedom is sufficient to constitute trafficking
is unclear. The following applies mainly to trafficking for sexual
exploitation.
Victims
24. Whilst intelligence may help us develop
common profiles of victims, it is important to recognise that
there is no "typical victim" of trafficking and their
circumstances will differ. Some women come to the UK with the
intention of working in prostitution and may be subsequently trafficked
within the UK. Others are duped or coerced by traffickers from
the outset. There is no evidence to suggest that there is a specific
demand for trafficked victims amongst those who use the off street
sex market in the UK ; the demand appears to come from "pimps"
who can generate a far higher profit from trafficking victims
than from others.
25. The factors that make the UK attractive
to migrants generally make it easier for traffickers to recruit
victims for sexual exploitation; however, it is not clear why
some countries are more significant source countries than others.
There are certain factors that may make individuals more easily
susceptible to becoming a victim of trafficking. For example previous
experience of violence (include sexual violence), poverty and
unemployment can all influence vulnerability. Victims recovered
through operational activity throughout 2006 were between the
ages of 14 and 45, with most aged between 18 and 30. This is thought
to be representative of women trafficked for sexual exploitation
across the board.
Recruitment and Transportation
26. Traffickers use a variety of techniques
to recruit and control victims, most commonly deception or misrepresentation.
To recruit Eastern European victims, traffickers often use advertisements
on the Internet or in newspapers for au pairs, bar-staff, nannies
and models; or direct recruitment by traffickers posing as friends
who present them with job opportunities. Women often act as facilitators,
increasing plausibility, including previously trafficked women
recruiting new victims, either by returning to source countries
or by telephone contact. Additionally, there have been isolated
cases of women being abducted and then forced into prostitution.
27. The methods used to recruit Chinese
and South-East Asian victims are more complex. Commonly, a Chinese
trafficking victim will have borrowed money and sought to be smuggled
into the UK; this trade is organised by Snakehead groups. Once
in the UK, they find work and begin repaying their debt. Some
turn to prostitution to do this, whilst others end up in prostitution
after responding to offers of other work.
Profits and Costs
28. Traffickers make money from their victims
either by selling them or by taking a large share of the money
they earn as prostitutes. It is not known how the price paid by
traffickers for their victims is determined, but it is likely
to be largely based on the victim's earning potential. The buyer
of a trafficked female can expect to recover his costs quickly.
Typically, a trafficker controlling two victims of trafficking
is likely to make in the region of £1,000 to £2,000
per week.
The difficulty of finding those who have been
trafficked when they are normally too frightened to complain to
the authorities; and the role of NGOs in helping to identify and
assist victims
Identification
29. We recognise that victims of trafficking
are often reluctant to come forward to the authorities and that
the self-reporting of these crimes is low. There are possibly
many reasons for this; some do not self-identify as a "victim
of a crime" (this may be particularly pertinent in incidents
of trafficking for forced labour where victims, although exploited,
might consider their situation as still superior than that offered
in their country of origin) whilst others may develop a psychological
and emotional dependency on their exploiter (sometimes referred
to as the Stockholm syndrome). Significantly traffickers will
often use fear, intimidation and deceit as a method of controlling
the behaviour of others and some victims are too afraid of the
possible repercussions from the exploiters or authorities. For
foreign nationals there are additional obstacles like isolation,
communication barriers, cultural differences, lack of knowledge
of the destination countries including the criminal justice and
immigration processes, and possible irregular immigration status.
30. The issues relating to the identification
of child victims of trafficking are complex and different. As
with adults, many victims may come willingly to the UK often with
their parents blessing who have been deceived into believing the
trafficker is a benevolent agent who will smuggle their child
into the UK so that they will enjoy a better life and be able
to send money home. The children are groomed by the trafficker
on what to say at our ports of entry. Many claim asylum on arrival
at the behest of the trafficker and become Unaccompanied Asylum
Seeking Children (UASC). It is particularly difficult to identify
these children at ports of entry as many, if not most, have experienced
no abuse or exploitation at this stage. It is for this reason,
on referral to Local Authorities who are tasked to assess and
provide for their care needs that some go missing willingly back
to the traffickers before a thorough assessment has taken place.
Other children and young people are coerced or intimidated by
traffickers.
31. Emerging intelligence from police operations
suggests that despite the provision of support, information and
protection some victims remain reluctant to come forward. The
Poppy project has recently produced discreet pocket-sized cards
with the organisation's number on a tear-off strip, in a range
of languages. These can be usefully disseminated to victims in
a number of ways, including by the police during operations. This
will hopefully encourage initially reluctant victims to contact
the project at a later date.
32. A comprehensive victim's strategy was
developed in advance of Pentameter 2 which produced detailed guidance
to police on victim identification, treatment and referral. Special
arrangements and instruction for the police were developed for
children including a model protocol for Local Safeguarding Children's
Boards and their equivalents in Scotland and Northern Ireland.
The newly established Child Trafficking Advice and Information
Line (CTAIL) was engaged together with ECPAT UK to provide an
"advocacy service" to support local authorities children's
social care in ensuring appropriate assessment and safeguarding
procedures were employed. As the operation progresses one of the
areas subject to further analysis is the reason why victims drop
out of the criminal justice process or lose contact with the police
or authorities. The results of this analysis will be considered
by the UKHTC Victim Care Sub-Group who will explore what further
measures may be required to help address this issue.
33. There are different stages in the identification
process for victims of trafficking. The first stage requires front-line
responders to be sensitised to the indicators that suggest that
an individual may have been trafficked. This will enable them
to sensitively make further enquires and facilitate an environment
where the individual can feel more confident about disclosure.
A multi-agency human trafficking toolkit has been produced to
help in the identification of victims. It can be viewed at www.crimereduction.co.uk/toolkits.
This will be updated following Operation Pentameter 2 to reflect
the latest intelligence picture and cover a wider range of agencies.
34. The recently published Working together
to safeguard children who may have been trafficked guidance
has been widely welcomed by NGOs and statutory agencies. It provides
comprehensive advice and methodology as to how to identify trafficked
children and what action each agency should take. The guidance
includes the contact details of the NSPCC Child Trafficking Advice
and Information Line (CTAIL) which provides to those professionals
with little experience of working with trafficking cases, expert
advice from qualified and experienced child protection social
workers.
35. The UKHTC, in consultation with stakeholders
has developed an aide memoir for police on indicators for trafficking
for sexual exploitation and forced labour. This forms part of
the comprehensive Senior Investigative Officers (SIO) toolkit
developed for Pentameter 2 and has been circulated to all forces.
The UKHTC has also developed a comprehensive four-day SIO training
programme which covers the issues around trafficking indicators,
victim identification and victim care. This has been rolled out
in all but three police forces.
36. There are a number of opportunities
within the Border and Immigration Agency's business where staff
could encounter victims prior to leaving their country of origin,
on entry to the UK, within the UK, and on leaving the UK. Beyond
the UK's borders all new Risk Assessment Officers and Managers
based within UKvisas have received training on trafficking from
the UKHTC. BIA Airline Liaison Officers in over 30 countries have
been working with airlines to raise their awareness of vulnerable
children travelling to the UK. On entry to the UK there are 600
border control officers, located at 22 ports of entry into the
UK who are trained in identifying children who may be at risk.
Teams of social workers have been set up at three of the UK's
busiest ports and at two asylum screening units to help strengthen
arrangements for keeping children safe and forging closer partnerships
with the police.
37. Additionally, within the UK all asylum
Case Owners receive training in conducting interviews which cover
gender sensitive issues and interviewing victims of trauma. We
have commissioned Poppy to provide some innovative awareness raising
and training on trafficking to some London asylum case owners.
Claims from asylum seeking children are only considered by Case
Owners who have received special training. Furthermore to help
combat child trafficking, an E-Learning training package "Keeping
Children Safe" has been developed and is available online
for all immigration staff to complete. Within our enforcement
offices the UKHTC has provided awareness-raising sessions for
850 enforcement staff.
38. NGOs can play an important role in helping
to identify and engage with potential victims. In 2006 the Government
agreed to fund the extension of the Poppy project to include an
outreach service, which went live in January 2007. Some of the
outreach clients were initially reluctant to come forward but
with the help of an independent outreach worker felt able to disclose.
The outreach service is continuing to raise awareness amongst
other agencies, including NGOs working with vulnerable women to
help with early identification. In relation to child victims and
in addition to the role fulfilled by NSPCC in managing CTAIL,
ECPAT is supporting the service by providing training and development
opportunities for organisations and teams at a local level.
39. We recognise that the general public
have a role to play in identifying victims; encouraging them to
seek support and protection or to report suspicious incidents
to the police. Between March 2003 and December 2007 the Poppy
project received 50 referrals from third-party individuals and
16 from "punters". The various awareness campaigns,
including the Government funded Poppy project poster campaign
with Transport for London and the UKHTC Blue Blindfold campaign
are aimed at sensitising the wider public to trafficking.
40. The second stage in the victim identification
procedure involves a more formal process. This is necessary to
ensure the protection of real victims by having appropriate safeguards
in place to try and prevent against abuse and possible infiltration
by organised criminal networks. The Council of Europe Convention
describes this process as the "competent authority"
assessing whether there are "reasonable grounds" to
believe that an individual has been trafficked. Pentameter 2 is
being used to pilot this formal process.
The treatment of those who have been trafficked
but have no legal right to remain in the UK, including the requirements
imposed by the Council of Europe Convention on Combating Human
trafficking
41. Some victims of trafficking are subject
to immigration control and may enter the UK on genuine documents
in the belief that legitimate work or study opportunities await
them. Others enter the country illegally. The Council of Europe
Convention obligates signatories to provide a minimum 30 day reflection
period to those who are illegally present and who the competent
authority identify as having reasonable grounds to believe are
victims. This period is to ensure the individual can recover and
escape the influence of traffickers and can take an informed decision
on cooperating with the law-enforcement authorities in an investigation.
During this period the individual will not be removed from the
UK.
42. It is accepted that immediate return
of a victim to their country of origin is sometimes unsatisfactory
both for the victim and for efforts in investigating and securing
convictions against the traffickers. The Convention requires signatories
to consider two options for granting residence permits: on the
basis either that the victim's stay is necessary owing to their
personal situation and/or that it is necessary for the purpose
of their cooperation with the competent authorities in an investigation
or with criminal proceedings. The Convention recommends a minimum
period of 6 months.
43. Work on setting up provisions for both
reflection periods and residence permits is on-going under plans
to implement the Convention. A minimum 30 day reflection period
has been provided for all illegally present identified victims
under Pentameter 2 and has been in place for those accepted on
the Poppy scheme for some time. A reflection period will also
be provided under the trafficking for forced labour pilot undertaken
this spring. A decision on the length of the reflection period
will be taken after Pentameter 2. It is expected that necessary
changes to immigration rules and procedures on both reflection
periods and residence permits will be introduced before the summer
recess.
44. It is accepted that these measures are
necessary to provide some foundation of security and support to
victims. We are clear that the response to trafficking should
be primarily about protecting victims of crime and bringing those
who exploit them to justice. But many victims of trafficking are
foreign nationals. For those that are, giving some security to
their immigration status is central to our aim but our policy
on protecting trafficking victims must be consistent with wider
immigration policies too.
45. We acknowledge that there may be situations
when it is more appropriate for victims to remain in the United
Kingdom. In the longer term, under implementation plans for the
Convention we will introduce temporary residence permits for victims
eligible on certain grounds. In the interim the Poppy project
includes a resettlement service to help individuals in their long-term
recovery. It is also open to victims to apply for protection through
normal immigration routes and asylum case owners in the New Asylum
model have received specific awareness raising training which
will be rolled out across the country. There is also now greater
engagement between asylum caseworkers and Non-Governmental Organisations
(NGOs) like the Poppy project to ensure that the applicant is
supported throughout the claim.
46. There is no reason in principle why
a victim of trafficking should not qualify for asylum. However
it should be noted that the fact that a person has been trafficked
is not in itself a ground for refugee status. Some individuals
who are at risk of being trafficked may be able to establish a
reason (such as membership of a particular social group) under
the 1951 UN Refugee Convention and have valid claims to refugee
status. Alternatively, trafficking may well constitute inhuman
or degrading treatment, in which case a person at risk will be
granted Humanitarian Protection (HP) (for 5 years with the possibility
of settlement at the end of the period).
47. For children or young people whose asylum
and/or humanitarian protection claim is unsuccessful, Discretionary
Leave (DL) is granted until they are 17 and a half years of age
or for three years whichever is the shorter period.
48. The Convention does not place an obligation
on signature states to allow all those who are identified as victims
of trafficking to remain permanently in the particular member
state and this is consistent with UK immigration policy. We are
aware that most victims of trafficking want to return to their
home countries. We recognise the importance of supporting victims
of trafficking who wish to return home. The Government currently
works in partnership with the International Organisation for Migration
(IOM) to support irregular migrants in their voluntary return.
The IOM Assisted Voluntary Returns Programme for Irregular Migrants
(AVRIM) is in many ways targeted at vulnerable groups such as
victims of trafficking. We are utilising opportunities like Operation
Pentameter and awareness raising sessions for front-line staff
to promote the use of the programme, so that victims can utilise
the opportunities that are available to them.
Co-operation within the EU (including Europol);
and control of the EU's external frontiers
49. The policy framework for action at an
EU level to combat human trafficking is set out in the EU Plan
on best practices, standards and mechanisms to prevent and combat
trafficking in persons which was adopted in December 2005 during
the UK presidency of the EU. Responsibility is placed on EU institutions,
the Commission, member states and rotating presidencies of the
EU to take forward action. Successive EU presidencies have prioritised
different aspects of the Plan. The EU Anti-Trafficking Day held
in Brussels on the 18 October 2007 focused on two recent initiatives
by the Commission—the production of "recommendations"
for member states on national mechanisms for victim identification
and assistance and on indicators to monitor and evaluate national
anti-trafficking policies.
50. The G6 has also been a driver for the
development of more dynamic and concrete operational co-ordination
on human trafficking. The UK is currently leading (with Poland)
an initiative on human trafficking which came out of an agreement
amongst G6 interior ministers to undertake more practical co-operation.
The project is running from July 2007—July 2008 and participants
include the UK, Poland, Italy, the Netherlands and Ireland along
with the support of Europol, Interpol and Eurojust.
51. The project has a number of strategic
aims (including enhancing international co-operation in human
trafficking as well as the knowledge and specialist capability
of participating states). One of the work-strands included in
the project is consideration of how tax and revenue powers can
be used more effectively to disrupt and target organised criminal
gangs engaged in trafficking. The Irish are also leading a work-strand
looking at the merits of joint awareness raising initiatives whilst
the Netherlands are leading on how tools for front line responders
can assist in identifying trafficking for forced labour situations
more effectively. Collaboration across borders with partners in
this project is also yielding operational results. SOCA responded
to a request for mutual legal assistance from the Netherlands
in the joint investigation of an individual engaged in trafficking
Nigerian females to the EU and the UK for exploitation in the
sex industry. This was enforced in late October 2007 under the
auspices of this project and led by the Dutch. The main subject
was arrested and extradited to the Netherlands, where he is now
in custody awaiting trial. The Irish were also involved in assisting
with the case.
52. The early indications from the G6 initative
suggest that multilateral projects on a sub-regional level such
as this are an effective mechanism for achieving practical operational
co-ordination.
Council of Europe and the Organisation for Security
and Co-operation in Europe (OSCE)
53. Organisations like the Council of Europe
and the Organisation for Security and Co-operation in Europe (OSCE)
also work at a political level with their member states to develop
the EU response to human trafficking. The UK has worked closely
with the Council of Europe following UK signature of the Convention.
On the 10-11 December 2007 we jointly hosted with them a successful
regional seminar on trafficking in human beings in London. The
UK invited eight member states to share expertise and best practice
on issues such as victim identification, reflection and residence
permits and support for victims of forced labour. A great deal
of useful comparative material was obtained which we can draw
upon as we move forward with ratification this year.
54. The OSCE also assists member states,
including the UK in implementing the Ministerial commitments and
recommendations contained in the OSCE Action Plan to Combat Trafficking
in Human Beings, including the establishment of an effective National
Referral Mechanism. In practical terms, the OSCE concentrates
on enhancing awareness and understanding of human trafficking
across the OSCE region; policy, planning and advocacy especially
in the area of emerging trends and effective approaches to combating
human trafficking; and direct assistance to member states in practical
and technical areas, at their request.
55. The OSCE are currently conducting an
assessment of the UK's National Referral Mechanism. This forms
part of a wider study into how a number of destination countries
in Western Europe approach identification and referral of trafficked
persons, protect their rights and ensure their access to justice.
The original timetable for publication of the assessment has been
delayed to take account of the recent pace of developments in
the UK and the OSCE are due to visit the UK this summer to continue
their analysis.
56. At an operational level, co-operation
on human trafficking within the EU is facilitated by a number
of EU institutions such as Europol, Eurojust and Frontex.
Europol
57. Europol provides an intelligence structure
for EU-wide analysis, as well as analytical support and coordination
for joint operations between EU Member States. The UK Liaison
Bureau at Europol is the largest of any member state and consists
of seven liaison officers and two support staff drawn from SOCA
as well as other agencies. These liaison officers link both to
Europol to its analytical and support activities but mainly with
their bi-lateral colleagues from the other countries represented
at Europol.
58. Europol has a number of tools which
are of assistance in developing cross border investigations into
human trafficking. The Europol Information System is the main
area of growth at present. It is a relatively new system which
allows member states to insert current intelligence "objects"
eg names, addresses, vehicles, firearms etc into the system to
allow cross checking/cross matching against other law enforcement
activities /interest.
59. In addition, Europol's Analytical Work
Files (AWFs) provide another assistance mechanism. Member states
contribute intelligence to Europol who analyse the whole and provide
added value in terms of intelligence products or operational opportunities.
Europol currently has two AWFs that deal specifically with people
smuggling and human trafficking. AWF Checkpoint deals with organised
people smuggling and AWF Phoenix on human trafficking for both
labour and sexual exploitation. The UK is a member of both work
files and is working with member states on specific operations
and projects.
60. One example of support given to the
UK was around Operation Greensea, an investigation into Chinese
and Turkish smuggling networks that culminated in the arrest of
23 people in France and the UK in January 2008. Intelligence from
this operation was fed into AWF Checkpoint with Europol providing
analytical support and co-ordination with three other Member States.
Eurojust
61. Eurojust is the EU's judicial co-operation
unit, created in 2002, tasked with promoting and facilitating
co-operation in the investigation of serious cross-border crime,
particularly organised crime. It is made up of senior prosecutors
and judges from all 27 member states. Each of these representatives
(known as National Members) is appointed by his/her own country.
Eurojust exists to stimulate and improve judicial cooperation
between the member states (and third countries) in cases of serious,
transnational crime, particularly when it is organised. In the
UK context "judicial cooperation" means cooperation
by the investigating and prosecuting authorities. In continental
Europe, it often means cooperation by the investigating authorities
and the investigating magistrates or judges who direct them.
62. Eurojust's function is to plan and oversee
coordinated actions across the member states and to ensure cooperation
in supporting transnational enforcement and prosecution actions.
In the context of trafficking in human beings this provides the
means by which entire pan-European trafficking networks can be
taken out rather than the partial disruption of these networks
as a domestic response in those countries for whom human trafficking
is a priority. In general, though not exclusively, Eurojust aims
to be involved in cases requiring multilateral cooperation rather
than those requiring purely bilateral cooperation.
63. Following on from these multilateral
investigations Eurojust assists in ensuring that the best possible
evidence is available to support ensuing prosecutions. Also based
in The Hague, Europol is a key partner for Eurojust. Europol's
receipt, analysis and dissemination of intelligence allows the
prosecuting and investigating authorities to build a clear picture
of criminal activity in operational cases and in real time. This
can be invaluable when planning the coordinated actions at a judicial
level. Eurojust were also involved in the successful Operation
Greensea, mentioned above, working alongside Europol.
64. The Government is a firm believer in
the important role that Eurojust plays in the increasingly complex,
cross-border nature of serious and organised crime, which can
be fought more effectively through improved judicial co-operation
and coordination of cases across the EU. Eurojust is helping to
break down the barriers to effective judicial co-operation by
promoting greater understanding and trust between the different
legal systems across Member States and facilitating co-operation
between jurisdictions on specific cases. One example is "Operation
Pachtou", where Eurojust co-ordination between UK, Greek,
French, Italian and Turkish authorities helped dismantle a criminal
network involved in human trafficking, resulting in 82 arrests
across Europe on 14 December 2006.
Frontex
65. Frontex's remit focuses on improving
operational cooperation between EU member states and facilitating
integrated border management at the EU's external borders, aimed
at identifying and preventing threats including illegal migration
flows to the EU.
66. The UK participated in a number of Frontex
joint operations/ activities in the course of 2007, which included
operations in the Mediterranean as well as on the Eastern land
borders. The practical co-operation co-ordinated by Frontex brings
additional security in terms of stronger borders, combating illegal
immigration, and immigration crime such as human trafficking.
67. In addition, e-Borders is a key component
of the Government's border transformation programme which aims
to deliver a modernised border control that is fundamentally more
effective, efficient and secure to meet the future operating needs
of the border agencies. The main purpose of the e-Borders programme
is to collect and analyse passenger, service and crew data provided
by carriers (air, sea and rail), in respect of all journeys to
and from the United Kingdom in advance of their travel, supporting
an intelligence-led approach to operating border controls. These
data will be checked against watch-lists, analysed, risk assessed
and shared between UK border agencies.
68. Whilst improving border security more
generally, the provision of a modern border control will assist
in the fight against organised crime. Such a flow of information
which informs on an individual's movement to the UK and any claim
to immigration status whilst within the UK will assist in identifying
deception which is a key tool used by traffickers. This information
will allow us to pick up on suspicious movement of both victim
and trafficker and contribute to combating and preventing this
crime.
69. To help meet the increased challenge
from organised crime and terrorism the Prime Minister announced
in November 2007 the creation of the United Kingdom Border Agency
which will bring together into a single organisation the work
of UKvisas, the Border and Immigration Agency and the border work
of HM Revenue & Customs. The UK Border Agency will give officers
the power to detain people not just on suspicion of immigration
offences or for customs crime but also for other criminal activity.
Powers are also being given to airline liaison officers to cancel
visas where justified.
Relations with transit and source countries, and
the role of Interpol and the UN Office on Drugs and Crime
70. The UK works with transit and source
countries in a number of different ways. At a diplomatic level
work is undertaken through the overseas network of the Foreign
and Commonwealth Office (FCO). Investment in trafficking related
projects is made via the development programme of the Department
for International Development. Law enforcement co-operation is
facilitated by the network of SOCA overseas liaison officers and
co-ordinated through the programmes of activity that form the
UK Serious Organised Crime Control Strategy. Border and related
issues are also addressed through BIA's airline liaison officers
and projects. The UK also works through membership of international
organisations such as the UN Office of Drugs and Crime and Interpol
as well as through partner organisations such as the International
Labour Organisation. Chapter 2 of the UK Action Plan on tackling
human trafficking sets out in detail the range of work that is
currently undertaken.
71. The FCO's main role in tackling organised
immigration crime networks is focussed on co-ordination and liaison
with law enforcement and implementation agencies, as well as with
overseas missions on awareness raising and lobbying issues. The
FCO also allocates money from the Global Opportunities Fund (GOF)
through the Drugs and Crime Programme (DCP) to build capacity
of law enforcement agencies within countries globally. This contribution
has been welcomed by those governments involved, and has helped
with broader crosscutting cooperation at operational level. The
FCO also uses its overseas network to raise awareness of the dangers
of trafficking and to lobby host governments in order to help
partners across government at all levels. Recently, the FCO has
encouraged its overseas Missions to publicise UK prosecutions
and convictions of traffickers' via media outlets in source and
transit countries.
Serious Organised Crime Agency (SOCA)
72. Internationally, SOCA manages a global
network of approximately 140 liaison officers based in some 40
different countries, who work against all SOCA priorities including
organised immigration crime. SOCA is also engaged in projects
managed by other government departments or with EU partners.
73. SOCA co-ordinates multi agency programmes
of activity directed at organised immigration crime, as part of
the UK Serious Organised Crime Control Strategy. One of which
is Organized Immigration Crime: Source and Transit Countries (Nexus
Points). The objectives of the programme include the development
of knowledge and understanding of organised immigration crime
in the key source and transit countries which impact on the UK
as well as the development of bilateral and multilateral operational
strategies and plans with agencies in source and transit countries
and with EU partners. The ultimate goal is to reduce the harm
caused by organised immigration crime into the UK and deter and
prevent organised immigration crime in major source and transit
countries.
74. One example of work in this area is
the SOCA coordinated response to maritime organised immigration
crime and the movement of illegal immigrants from source countries
into Western Europe. Since the project inception in October 2006,
SOCA—together with its UK based and international partners,
have made 9 maritime interdictions resulting in the detention
of 765 illegal immigrants and 17 arrests.
Border and Immigration Agency
75. The UK has a network of 34 Airline Liaison
Officers (ALOs) in 32 locations overseas which have been identified
as major source or transit locations for inadequately documented
passengers arriving in the UK. Their role is to offer advice and
expertise to airlines with a view to preventing or disrupting
the carriage of such passengers. In the normal course of their
liaison activities with airlines ALOs seek to raise awareness
of trafficking. They deliver a comprehensive programme of formal
training for carriers in UK passport and visa requirements and
forgery awareness, and incorporate within this a session which
includes the drivers behind the trafficking of children and adults,
and means of identifying vulnerable passengers and their traffickers
by their demeanour and the travel documents they may present.
In Southern Africa ALOs are working with the IOM on a regional
project aimed at developing the capacity of both border authorities
and the carrier community to recognise trafficking and to take
action to address it.
76. In 2007-2008, the Risk Assessment Unit
(RAU) network of UKvisas expanded from 27 to 35 units. All new
Risk Assessment Officers and Risk Assessment Managers have received
training in trafficking from the UKHTC. Training material on trafficking
issues has been developed by the Risk Assessment Operations Centre
(RAOC) in London. The RAOC will ensure this material is shared
across the network and used to educate staff in visa sections
globally. The first presentations took place in Moscow and St
Petersburg in October 2007, Nairobi in November and Hong Kong
in January 2008. RAUs overseas are developing post specific awareness
material to complement the overarching presentation. The RAOC
and the network continue to work closely with stakeholders such
as UKHTC, SOC A and the Child Exploitation and Online Protection
Centre (CEOP) in an effort to tackle human trafficking and feed
in to their intelligence requirements as appropriate.
International Organisations—Interpol
77. Interpol's I-24/7 global police communications
system connects law enforcement officials in all of its 186 member
countries, providing them with the means to share crucial information
on criminals and criminal activities 24 hours a day, seven days
a week. Using I-24/7, National Central Bureaus (NCBs) can search
and cross-check data in a matter of seconds, with direct access
to databases of information on suspects, wanted persons, fingerprints,
DNA profiles, lost or stolen travel documents and other data which
can be useful for trafficking in human beings investigations.
One of Interpol's most important functions is to help police in
member countries share critical crime-related information using
the organization's system of international notices.
78. A specialist working group addressing
the issue of trafficking in women for sexual exploitation was
established by Interpol in 2001. This has now been extended to
include all forms of trafficking. Member countries include the
UK and the UKHTC sit on the Steering Committee which meets annually
and focuses on a variety of issues including: the practicalities
of investigation, sharing of new techniques and best practices
and the promotion of the Human Trafficking Message for information
reporting and sharing. Interpol has also developed a best practice
guide for investigators which is currently being revised.
79. Interpol also does analytical work on
the information received from member countries on trends in human
trafficking. Red Routes is an analytical project that has been
running since 2004 focusing on Eastern European women being trafficked
for sexual exploitation. A team specialising in crimes against
children also operates within Interpol's human trafficking unit.
The team focuses on the sexual exploitation of children, often
linked with trafficking, and serves as a hub for cooperation with
and among member states. The team works in cooperation with the
UK's CEOP on matters of victim identification.
United Nations Office of Drugs and Crime
80. The UK is active in co-operation with
the UN Office of Drugs and Crime (UNODC), with nearly US$ 5 million
dispersed in 2006-07. Our contribution, in addition to our standard
UN share of the regular budget (5.3%), was about 9% of the UNODC's
support and programme budget. The UK has lead responsibility internationally
for counter-narcotics efforts in Afghanistan; therefore, much
of the work we currently do with the UNODC is focussed on co-operation
in this area. The UNODC's work on human trafficking is mostly
focused on ensuring implementation and ratification of the UN
Palermo Protocol to prevent, suppress and punish trafficking in
persons which the UK has fully implemented.
81. The UK has supported the UN's recent
Global Initiative to Fight Human Trafficking from the outset with
the official launch taking place in London on 26 March 2007. A
high level UK delegation also attended the Forum in Vienna from
the 13-15 February 2008 designed to bring together representatives
from member states, the United Nations, international organisations,
the business community, academia and non-governmental organisations
with the objective of raising awareness and facilitating the co-operation
between stakeholders.
Effectiveness of the co-ordination between public
authorities in the UK (Home Office, FCO, police forces, Serious
Organised Crime Agency, Border and Immigration Agency, social
services)
82. The Inter-Departmental Ministerial Group
on Human Trafficking was established in 2005 to co-ordinate and
direct government policy on human trafficking. It has recently
been expanded to include representation from the devolved administrations.
This Group, which is currently chaired by Vernon Coaker, includes
the Solicitor General, the Deputy Minister for Women, alongside
ministers from the Foreign and Commonwealth Office, the Department
for International Development, Department of Health, Department
for Children, Schools and Families, the Ministry of Justice, the
Department for Work and Pensions, Department for Business, Enterprise
and Regulatory Reform, Department of Communities and Local Government,
Scottish Executive and the Northern Ireland Office.
83. This Group has responsibility for monitoring
both the implementation of the UK Action Plan on tackling human
trafficking and the Council of Europe Convention on Action against
Trafficking in Human Beings. It is supported by the Non-Governmental
Organisations (NGO) Ministerial Advisory Group which meets regularly
and brings together a range of UK stakeholders with expertise
in human trafficking.
84. Combating human trafficking requires
a complex multi-faceted response. The UK has a number of multi-agency
forums which attempt to bring together different organisations
to work effectively towards common goals whilst minimising unnecessary
duplication of effort.
85. Activity on human trafficking by UK
law enforcement has been characterised in recent years by partnership
working and multi-agency collaboration and co-operation. The establishment
of the UK Human Trafficking Centre in October 2006 has been central
to this strategy as it embodies a multi-agency approach. It brings
together a number of organisations under police leadership and
demonstrates through the auspices of its sub-groups that civil
society and voluntary organisations have a role to play.
86. The UKHTC provides a central point for
the development of expertise and the strategic and operational
coordination in respect of all forms of trafficking of human beings.
The centre has embedded staff and officers from BIA, CPS, Police
Service, SOCA and Social Services. The UKHTC offers law enforcement
a 24/7 support line for tactical, immigration, victim and legal
advice and has sought to raise awareness amongst police forces
about human trafficking in a number of ways, including through
the production of an awareness raising DVD to be distributed to
front line officers. It has also developed good working relationships
with forces and designed and delivered specialist training courses.
87. The operational activity of the UKHTC
is focused around five core work groups in the areas of victim
care, prevention, research, learning and development and operations
and intelligence. It has already played a key role in delivering
many of the commitments in the UK Action Plan. The model of working
presented by the UKHTC is already being presented in international
forums as an example of best practice. Although only in existence
a short time it has established a good reputation both nationally
and internationally.
88. The work of the UKHTC has been complemented
by that undertaken by SOCA which co-ordinates the overall assessment
of the threats posed to the UK by serious organised criminals,
producing the UK Threat Assessment (UKTA). In response to the
UKTA, the UK Serious Organised Crime Control Strategy is developed
which sets out how UK agencies, working with overseas partners,
plan to tackle serious organised crime affecting the UK.
89. The Control Strategy consists of a series
of linked inter-agency programmes of activity, which are aligned
to the threats set out in the UKTA. The Organised Immigration
Crime programmes are "Organised Immigration Crime Source
and Transit Countries (Nexus Points)" and "Organised
Immigration Crime into and in the UK, including exploitation of
migrants in the UK". Together, the UKTA and Control Strategy
deliver a shared understanding of the problem—in this case
human trafficking—and a framework for co-ordinated and concerted
action by the relevant UK and overseas agencies. SOCA works closely
with the UKHTC and domestic partners such as ACPO, ACPOS, HMRC,
BIA, CEOP, Identify and Passport Service, UK Visas, Gangmasters
Licensing Authority, as well as international partners within
the EU and beyond.
90. Like the other agencies involved in
the UK Control Strategy, SOCA takes a lead or supporting role
in particular pieces of activity within the programmes that underpin
the Control Strategy. Since its inception on 1 April 2006, SOCA
has undertaken 121 pieces of activity against Organised Immigration
Crime, of which 42 have focused primarily on human trafficking.[181]
An example includes a response by the Metropolitan Police Service,
supported by SOCA, against the activities of a Turkish immigration
network based throughout Europe. The operation resulted in the
arrest of thirteen people on suspicion of facilitating illegal
immigration into the UK in January 2008. This operation dismantled
two organised criminal networks, believed to be two of the largest
human trafficking rings in London, and demonstrated interesting
linkage between both EU and Chinese nationality traffickers and
the convergence of upstream and near continent networks. SOCA
also seeks to use non-traditional interventions against serious
and organised criminals to disrupt their criminal activity. For
example, SOCA worked closely with BIA to impose Exclusion orders
on a key trafficker and two associates, who are all now formally
excluded from the UK. Exclusion orders against four further associates
are being pursued.
91. In addition to ongoing co-ordination
under the SOCA work programmes and UKHTC sub-groups the model
of partnership working has also been further developed by nationwide
operations on human trafficking such as Operation Pentameter 1
and 2. The inclusion in the ACPO led steering and planning group
for the operations of non governmental organisations alongside
law enforcement, the CPS, BIA as well as other partners underlines
the innovative and comprehensive approach which is being adopted
for operations such as these. One example of partnership working
under Pentameter 2 has been the tasking of CEOP by the UKHTC Victim
Care Group to develop the victim care strategy for children for
the operation. The strategy is particularly innovative, providing
Local Safeguarding Children's Boards with a model protocol for
and guidance on interviewing child victims. It also has an advocacy
service to assist the police and children's services unfamiliar
with safeguarding child trafficking victims linked to the 24/7
new NSPCC advice and information line. The advocacy service also
ensures that the cases are tracked and the children's individual
situations are recorded.
92. The Border and Immigration Agency's
approach to combating trafficking provides a clear example of
collaborative working and the establishment of strategic partnerships.
In addition to the staff seconded to the UKHTC, BIA has also seconded
staff to CEOP. Social workers have been set up at three of the
busiest ports and at two asylum screening units (ASU) to help
strengthen arrangements for keeping children safe. The Paladin
Team is part of the Metropolitan Police Child Abuse Command. It
is a joint BIA and police team working together to identify victims/and
or potential victims of trafficking. The Paladin Team has a permanent
presence at the Asylum Screening Unit in Croydon and also at Heathrow
Airport. At these locations Paladin works closely with Croydon
and Hillingdon Social Services. It also participates in the Local
Safeguarding Children's Board Trafficking Sub Group chaired by
Hillingdon Social Services. In cases where children/young people
present themselves either as unaccompanied or accompanied but
with unsuitable guardians, the Paladin team work with the dedicated
social worker teams at Heathrow and Croydon to ensure suitable
care and accommodation arrangements are put in place.
93. The preparation of the Government's
practice guidance—Working Together to safeguard children
who may have been Trafficked—involved close collaboration
between DCSF and the Home Office. We consulted widely with practitioners
from across public bodies and children's charities to improve
the practical usefulness of the guidance. The guidance stresses
the key role of Local Safeguarding Children Boards (Child Protection
Committees in Scotland) to address and record the needs of child
victims of trafficking. This will ensure greater collaboration
between local authority Children's Services, Police, BIA, Health
Services, schools and children's charities in ensuring that known
trafficked children are safeguarded.
94. We know that young UK-born girls are
being groomed and trafficked within the UK for sexual exploitation
by men who are British Citizens. We are working to tackle this
criminal activity in a number of ways. The UKHTC's Operation Glover
has secured the conviction of a trafficking gang, rescuing 33
female victims aged between 12-15 years who are believed to have
been trafficked internally. This operation demonstrated the effectiveness
of multi agency work and the effective use of intelligence to
secure convictions. The UKHTC multi agency internal trafficking
working group aims to raise awareness amongst police, professional,
statutory agencies and NGOs of this problem. Police forces are
working collaboratively with voluntary and community groups and
adding to their intelligence on internal trafficking, to improve
case building and evidence gathering in such cases.
95. Inter-agency working is integral to
the UK's strategy to combat trafficking and providing victims
with a coherent high quality service. A Memorandum of Understanding
(MOU) that sets out clearly the various agencies roles and responsibilities
in respect of victims has been agreed between ACPO, the UKHTC,
CPS and Eaves Housing for Women. Similar MoU's have now been developed
with other NGOs. This partnership approach is also evident on
the ground, for example Poppy project outreach workers have been
seconded to the UKHTC to help with identification and support
issues during Pentameter 2.
96. The UK has developed a strong institutional
and strategic framework on human trafficking in recent years.
Implementation of that strategy on the ground will be a key objective
going forward. The challenge will be how to harness all the goodwill,
passion and endeavour to work with partners in the public, private
and voluntary sector to maximum effectiveness.
26 February 2008
180 as at 8 February 2008. Back
181
Activity focused primarily on other sectoral threats may also
have had elements relevant to human trafficking. Back
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