FOCUSING PANAMA'S EFFORT TO COMBAT TRAFFICKING IN

UNCLAS SECTION 01 OF 02 PANAMA 000399 SIPDIS SENSITIVE STATE PASS FOR G/TIP/LINDERMAN/HOLLIDAY WHA/PPC/FALLS, WHA/CEN/BRIGHAM E.O. 12958: N/A TAGS: PHUM PREL SMIG PM KTIP LABOR HUMAN RIGHTSPOLMIL SUBJECT: FOCUSING PANAMA'S EFFORT TO COMBAT TRAFFICKING IN PERSONS (TIP) REF: A. 03 PANAMA 3170 ¶B. PANAMA 229 ¶C. 03 STATE 305932 -------------- SUMMARY -------------- ¶1. (SBU) The January 18-21 G/TIP visit to Panama helped refine Embassy and GOP anti-TIP efforts approach to strategies (Ref A). The Embassy will push the GOP to focus its anti-TIP improvements on public awareness campaigns, victims assistance, and increased training. In the short term, legislation to update and strengthen anti-TIP and anti-child pornography statutes and to eliminate sex-worker ("alternadora") visas for Colombians theoretically could be passed in the March legislative session. However, the upcoming May 2 elections could slow Embassy and GOP efforts. The recent bust of a child prostitution ring (Ref B) and attendant publicity provides an opportunity to move Panama "ahead of the curve" combating both TIP and the broader issue of child sexual exploitation. End Summary. -------------- INFORMATIVE G/TIP VISIT -------------- ¶2. (SBU) Embassy used the January 18-21 investigative trip of G/TIP officer Phillip Linderman to develop an abundance of information for G/TIP, Embassy, GOP officials, and others. Linderman shared the Washington perspective on TIP with a diverse audience. Panama likely surpasses G/TIP's informal 100 victims threshold; on the other hand, meetings with various GOP officials demonstrated that the GOP is willing to address the issue. GOP efforts are hampered by a lack of resources. Several NGOs are combating TIP, especially commercial sexual exploitation of minors, within the broader context of stopping forced child labor. -------------- AHEAD OF THE CURVE -------------- ¶3. (SBU) Embassy TIP working group (POL, NAS, INS, Customs, CONS),chaired by DCM, meet on January 29 to discuss findings and to map updated Embassy anti-TIP strategies (Ref A). The working group's agreed that GOP efforts to combat TIP can be improved by: A) improving training, B) strengthening victim assistance C) starting a public education campaign, and D) proposing legislative changes. Training, victims assistance, and educational campaigns, and legislation are viable near-term goals. -------------- WE WANT TO LEARN MORE -------------- ¶4. (SBU) A common refrain heard from the GOP and NGOs is the desire for more training. Currently, two USG-sponsored training sessions are planned. The "Paul and Lisa" training, partially subsidized by G/TIP (REF C),will bring together a diverse group of GOP officials, NGOs, and the press. The training will be held in late March 2004 and will focus on identifying and preventing of TIP. The Department of Justice (DOJ) is planning anti-TIP training in Panama for early summer 2004. The training would focus on the legal issues related to combating TIP. In addition, DHS/ICE are active in training focused on sexual exploitation of minors via the Internet and identifying potential TIP victims in transit to and/or through Panama. -------------- A PLACE TO TURN -------------- ¶5. (SBU) TIP victims and/or those who know them need a place to report this crime. A victims' hot line is just such a place. The Embassy TIP working group believes that the hot line should operated by a NGO or independent GOP agency (i.e. the Ombudsman). A hot line separate from the GOP is less likely to be manipulated for policy or political reasons. Funding for such a hot line would be a joint venture between the GOP and the Embassy, using NAS funds. -------------- MAKING THE PUBLIC AWARE -------------- ¶6. (SBU) A public education/awareness campaign on TIP makes a good link with a victims hot line. PTJ detectives already conduct informal sessions at schools and universities. Embassy support for a GOP TIP public relations campaign will expand to a broader public relations campaign. Print and visual media will be used. State, INS, and Customs brochures and other informational resources will be included in this campaign. Embassy also plans to work with high-level GOP officials on public announcements and speeches that will help Panamanians further understand the importance of stopping TIP. -------------- TOUGHENING LAWS -------------- ¶7. (SBU) Legislative and statutory changes are proposed for anti-TIP, anti-child pornography and immigration laws. Panama's current anti-TIP statues can hamper investigations because of the need for a formal complaint. Current proposals would eliminate that provision, and strengthen other parts of the law. To reinforce the anti-child pornography law, a broad cross-section of the GOP and civil society proposed a new law to update the definitions of child pornography and prostitution. Increased jail sentences and acknowledgment of the pervasive effects of the Internet in child pornography and prostitution are contained in this proposal. Finally, as part of a sweeping change in immigration policy, the director of Immigration is proposing to eliminate the sex worker ("alternadora") visa program. (NOTE: The "alternadora" visa is granted to approximately 400-500 Colombian women annually to work in the sex trade in Panama. End note.). A limiting factor is the current election season, but the upcoming March legislative session could provide an opportunity to turn at least some of these proposals into law. -------------- BROADER CHALLENGE -------------- ¶8. (SBU) Sexual exploitation of minors is not limited to TIP-related circumstances. Poverty, drug abuse, alcoholism, and a "keep quiet" culture all contribute to child sexual exploitation and abuse. Embassy believes a broader perspective is needed to address this issue. Legitimate questions are raised about why the USG focuses so much time and effort in Panama on TIP when it likely affects relatively few (50-100) children. Panama faces a much larger problem of sexual abuse within families and communities that has no commercial context and the effects on young minds and bodies is no less devastating. The importance of combating TIP cannot be understated but applying our full efforts to problems that take deeper root and are more widespread in Panama might prove to be a more effective use of USG funds and time. -------------- COMMENT -------------- ¶9. (SBU) Panama is fighting TIP and already has a good anti-TIP base. GOP and Embassy near-term goals of enhanced training, victims assistance, and educational campaigns will help place Panama ahead of the anti-TIP curve. Strengthening anti-TIP and anti-child pornography statutes, as well as eliminating sex worker ("alternadora") visas are ambitious but realistic goals as legislators broadly support these ideas. Embassy believes that a broader perspective and action plan to combat child sexual exploitation is needed. As the recent dismantling of a child prostitution ring shows (Ref B),the GOP can and will take action against TIP. With USG support, the GOP and Panamanian NGOs can take further action to ensure Panama limits the spread of TIP reduces its scope. WATT