COLOMBIA'S SIXTH ANNUAL ANTI-TRAFFICKING IN

UNCLAS SECTION 01 OF 08 BOGOTA 001967

SIPDIS

SENSITIVE
SIPDIS

FOR ADM AID, WHA/AND, WHA/PPC,G/TIP, G, INL, DRL, PRM, IWI,
CA/FPP

E.O. 12958: N/A
TAGS: PHUM KCRM KWMN SMIG KFRD ASEC PREF ELAB CO
SUBJECT: COLOMBIA'S SIXTH ANNUAL ANTI-TRAFFICKING IN
PERSONS (TIP) REPORT

REF: SECSTATE 3836

This report is sensitive but unclassified. Please handle
accordingly.


1. (U) Embassy point of contact on trafficking in persons is
human rights officer Laura Kirkpatrick, phone number (57-1)
383-2168, fax number (57-1) 315-2163. Officer spent 50 hours
preparing report.


2. (U) Responses below are to questions in paragraphs 21-24
of reftel. Please note that answers to questions in
paragraphs 21.A., 23.E., and 23.I. are pending submission of
information from the GOC.

--------------
Overview
--------------

21.A. (SBU) Colombia is a significant source of trafficking
victims, primarily women and children destined for sexual
exploitation. Some Colombian men are trafficked for forced
labor. Post has received some unconfirmed reports that
Colombia is also a transit country for victims from other
Andean countries. Exact numbers for each demographic group
that was trafficked were requested but were not available at
time of transmittal. Colombian victims are recruited
primarily through offers of employment, study, or marriage.
These offers are made through personal contact and
advertisements in the press. Post has received reports that
members of criminal organizations who owe a debt to their
organization will occasionally offer to introduce traffickers
to family members to facilitate recruitment, and receive debt
relief in compensation. Colombian victims are trafficked to
Aruba, China (Hong Kong),Chile, Costa Rica, Curacao,
Ecuador, El Salvador, Italy, Jamaica, Japan, Jordan, Mexico,
The Netherlands, Panama, Spain, the United States, and
Venezuela. Victims are principally trafficked for the
purposes of sexual exploitation, forced labor, and forced
servitude (land or debt peonage, servile marriage).
Trafficking occurs within Colombia's borders, and some NGOs
report that it also occurs in areas of Colombia where there
is not sufficient law enforcement control over illegal armed
groups.

Colombia's Administrative Department of Security (DAS),which
has responsibilities similar to the FBI and ICE, estimates
that, based on immigration and return-via-deportation
statistics, roughly 45,000-50,000 Colombian women work as
prostitutes overseas and some unknown percentage of those
were trafficking victims. According to the DAS, Colombia is
the third most common country of origin of trafficking
victims in the Western Hemisphere, and every day between 2
and 10 Colombian women leaving the country are victims of
trafficking. Information about trafficking in persons can be
obtained from the Prosecutor General's Office (Fiscalia),
DAS, the Ministry of Interior and Justice (MININT),or the
Supreme Council of the Judiciary (Consejo Superior de la
Judicatura, or CSJ). None of these sources are very reliable
because (a) they do not coordinate tracking of cases -- for
example an arrest made by the DAS which is considered to have
been for the crime of trafficking may be later reclassified
by the Fiscalia to have only been for organized crime because
trafficking cannot be proven; and (b) the Government of
Colombia relies heavily on international organizations and
NGOs to initiate contact with victims, who may never report
their case of trafficking as a crime. The GOC
Interinstitutional Committee for the Fight against

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Trafficking in Persons (ICFTP),established informally in
2003 and formally in 2005, has designed a database to track
and monitor statistics on trafficking in persons cases. The
database is expected to be actively used in 2006. Groups
more at risk of being trafficked were displaced people, women
in rural areas who don't have access to mass media, and
people whose relatives were members of criminal
organizations.

21.B. (SBU) Colombia is committed to fighting trafficking in
persons, and has established a comprehensive interagency
program to coordinate this fight with international and
nongovernmental organizations. In 2005, Colombia passed Law
985, which criminalized the act of transporting a person with
the goal of exploitation, regardless of whether the victim
had initially given consent to travel for a certain purpose.
The law also adopted measures for prevention, protection and
assistance to victims or potential victims; formally
established the ICFTP; increased sentences for those
convicted to between 13 and 23 years in prison and fines
between 800 to 1,500 times the minimum salary; proposed a
national strategy against trafficking in persons;
strengthened units involved in investigating and prosecuting
trafficking crimes; set up a national system of information
on trafficking; and appropriated funds to combat trafficking.
The ongoing internal armed conflict in Colombia has an
impact on trafficking because it creates displacement of
populations, making them more vulnerable. Also, internal
armed actors and criminal gangs are responsible for
trafficking in arms, drugs, and people. While exact numbers
are not known, it is suspected that people in the country who
were displaced as a result of the conflict are the most
likely victims of trafficking. According to UNHCHR, 74
percent of the displaced are women and children, who
represent the majority of trafficking victims in Colombia.
While the government began to develop and action plan for the
protection of victims, the guide had not been put into
practice as of reporting date. The IOM estimates that
approximately 60 percent of trafficking is within the country.

21.C. (SBU) The Government is hampered in its fight against
trafficking by limited resources. As a result, it relies
heavily on NGOs and international organizations in the fight
against trafficking. Some NGOs reported that corruption of
insubordinate government officials was a problem -- for
example, in some places it is not difficult to fraudulently
obtain authentic documents to conceal a victim's identity for
purpose of travel -- but none saw that corruption related to
trafficking was endemic in government institutions. The
Government gives limited assistance to victims through
shelters, the Ministry of Interior and Justice, the Family
Welfare Institute and the Ministry of Social Protection, but
it does not have enough money to provide protection to
victims that would induce a higher number of them to press
charges against their oppressors.

21.D. (SBU) The Government has six entities that work to
combat trafficking and monitor prosecution, prevention and
victim protection: the Ministry of Interior and Justice
(MININT) which presides over the ICFTP; the Administrative
Department of Security (DAS),which houses the offices that
monitor migration and coordinate with INTERPOL; the Unit to
Combat Trafficking in Persons, Sexual Violence and Child
Victims in the Prosecutor General's Office (Fiscalia); the
Grupo Humanitas inside the Judicial Police section of the
Colombian National Police; the Family Welfare Institute
(ICBF); and the Ministry of Foreign Affairs (MFA). Each
group maintains its own statistics. Some offices (DAS,

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MININT and Humanitas) have produced reports in the past on
their work to combat trafficking. It is expected that the
ICFTP will harmonize GOC policy to combat trafficking and
make its findings on trends in trafficking known to the
public as soon as data collection is regularized and the
results studied.

--------------
PREVENTION
--------------

22.A. (SBU) The GOC acknowledges that trafficking is a
problem in Colombia.

22.B. Fourteen agencies are members of the ICFTP: MININT,
MFA, Ministry of Social Protection (MSP),Ministry of
Education, DAS, CNP, Office of the Prosecutor General, the
Office of the Inspector General (Procuraduria),the Office of
the Human Rights Ombudsman (Defensoria),Interpol, ICBF, the
Presidential Advisor for Equality of Women, The Department of
Defense organization FONDELIBERTAD, and the Special
Administrative Unit for Information and Financial Analysis.
The MININT presides over the ICFTP.

22.C. (SBU) In 2005, the Ministry of Communication ran a
public information campaign through short TV announcements
explaining trafficking, with a toll-free number of an IOM
call center for inquiries. The Ministry of Communication
also developed a campaign to promote the "healthy" use of the
internet by children and to detect and prevent recruitment of
children by traffickers over the internet. The IOM, the UN
Office on Drugs and Crime (UNODC) and several NGOs conducted
informational campaigns to target potential victims and raise
awareness. For example, one campaign put posters in bus
stations and transportation corridors to remind drivers of
the need to avoid giving money to children who are being
exploited to beg on the streets.

22.D. (SBU) The Vice President's Program on Women has a
microenterprise lending program to help women heads of
households maintain a stable income, and the MSP works with
UNICEF and the International Labor Organization to prevent
child labor in the country. It is estimated that 2.5 million
children under 18 are working in Colombia, and that only 20
percent of those are working legally in conditions approved
by the Government.

(NOTE: There is no question 22.E. in reftel. End note.)

22.F. (SBU) The GOC maintains an open dialogue with
non-governmental organizations, relevant organizations and
elements of civil society on trafficking. The IOM and UNODC
are observers on the ICFTP and actively participate in policy
dialogue.

22.G. (SBU) The IOM has trained Colombian passport officials,
and immigration officials from Colombia and foreign
embassies, in ways to detect patterns of trafficking. Since
Colombia is primarily a source or transit country, officials
are more sensitized in detecting potential victims who are
departing rather than arriving. The NGO The Hope Foundation
(Fundacion Esperanza) in particular has aggressively targeted
airport officials and related travel companies to raise
sensitivity about trafficking victims.

22.H. (SBU) The mechanism for GOC coordination is the ICFTP.
The MININT presides over the ICFTP. The GOC does not have a
public corruption task force, but there are internal affairs

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offices within the Fiscalia and the Police, and the
Defensoria has the authority to conduct disciplinary
investigations in every government entity.

22.J. (SBU) Law 985 established the responsibility of the
ICFTP to create a national action plan to address trafficking
in persons. The fourteen member agencies of the ICFTP (see
para. 22.B) will develop the plan with participation of civil
society and NGOs. The Plan has not yet been finalized.

--------------
INVESTIGATION AND PROSECUTION OF TRAFFICKERS
--------------

23.A. (SBU) Law 985, which was passed on August 26, 2005, is
entitled "For which measures are adopted against trafficking
in persons and norms for the attention and protections of
victims of the same," and prohibits trafficking for any
economic or other benefit, such as sexual exploitation,
prostitution, work or other forced services, slavery or
practices analogous to slavery, forced servitude,
exploitation through mendicancy, servile marriage, the
extraction of organs, sexual tourism or any other form of
exploitation. The law prohibits internal and transnational
trafficking. The law covers the full scope of trafficking
crimes and is being implemented. Other laws that are still
in effect to punish trafficking in persons include:

-- Law 599 of 2000, which made penalties for trafficking for
purposes of prostitution equivalent to those for rape and
sexual assault, carrying penalties of 6 to 8 years in prison
and fines of up to 100 times the monthly minimum wage.

-- Law 747 of July 2002 which broadened the definition of
trafficking in persons and provided for prison sentences
between 10 and 15 years and fines up to 1,000 times the
monthly minimum wage. According to this law, forcing someone
into prostitution is punishable by 5 to 9 years in prison and
a fine of up to 500 times the monthly minimum wage. These
penalties can be increased up to one-half if the victim is
under 14 years of age, if the criminal plans to take the
victim out of the country, or if the criminal is a family
member. Penalties are also increased if the victim is under
18 years of age. Child pornography in any form is also
criminalized with punishments of up to 10 years in prison and
a fine of up to 1,000 times the monthly minimum salary.
These penalties are increased by half if the minor is 12
years or younger.

-- Law 890 of 2004, which entered into force on January 1,
2005, further increased these penalties to 13 to 23 years in
prison and fines of up to 1,500 times the monthly minimum
wage. These penalties can be increased by up to one-third if
there are aggravated circumstances, such as if the crime is
committed against a minor (less than 18 years of age),the
victim is mentally challenged, or the trafficker is a family
member or public servant. If the victim is under 12 years of
age, the penalty is increased by half. Additional charges of
illegal detention, violation of the right to work in
dignified conditions, and violation of personal freedom also
may be brought against traffickers.

-- The Colombian Penal Code of 2000, article 219, which
prohibits organizing or facilitating sexual tourism and
provides penalties of three to eight years' imprisonment.

23.B. (SBU) Penalties against traffickers are described in
paragraph 23.A.

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23.C. (SBU) In 2000, Law 599 (see para. 23.A) made the
punishments for trafficking for purposes of prostitution
equivalent to those for rape and sexual assault.

23.D. (SBU) Prostitution by adults is not considered a crime
in Colombia, although the activities of pimps and other
enforcers are criminalized. The legal minimum age for
prostitution is 18 years. Prostitution is permitted in
so-called "tolerance zones" in various cities. In these
areas, the Institute of Urban Development monitors
establishments of prostitution. The operation of
prostitution establishments is monitored and operating
without a license is severely punished. In 2005, there were
two high-profile busts of establishments operating without
licenses in well-known tolerance zones in Bogota.

23.E. (SBU) Information regarding investigations,
prosecutions, convictions, sentences and time served by
convicted traffickers was requested but was not available at
time of transmittal.

23.F. (SBU) The IOM and Colombian NGOs estimate that
international organized crime networks are responsible for
the bulk of transnational trafficking. Other cases, such as
for servile marriage, have been traced to internet dating
services and family exploitation. Domestically, organized
crime networks -- some related to foreign terrorist
organizations (FTOs) -- are also responsible for trafficking
for sexual exploitation or organized begging. UNICEF and the
Defensoria estimate between 6 and 11 thousand children have
been forcibly recruited into illegal armed groups, while
UNICEF and NGOs have estimated between 20 and 35 thousand
children are victims of sexual exploitation by family members
or pimps, some percentage of which are victims of
trafficking. Many displaced people are trafficked for labor
exploitation by local criminal gangs when they arrive in
their new destinations. The Hope Foundation estimates
agencies for employment, travel, and tourism are often either
knowingly or innocently facilitating trafficking in persons.
Insubordinate government officials are suspected to be
involved in trafficking, especially in providing fraudulent
travel documents. It is suspected that the profits from
trafficking either go to private individuals or to criminal
networks, some of which are run by FTOs. On January 18,
2006, the police used asset forfeiture laws to seize assets
valued at $1,300 (CPS 3 million) from a trafficker who had
been arrested in 2004.

23.G. (SBU) The government actively investigates trafficking
cases. When information is passed regarding a possible case
of trafficking in persons, it is analyzed according to
protocols of investigation under the direction and
coordination of the Prosecutor General's Office. The
National Police and DAS/Interpol, which has an eight-person
unit dedicated to investigating trafficking in persons
crimes, take the lead in such investigations.

23.H. (SBU) The MFA and ICBF provide specialized training to
MFA officials working overseas to help them recognize
potential victims of trafficking and prepare a criminal
report for authorities in Colombia. The training does not
include special sensitivity for child victims. The GOC
worked with the U.K. Embassy and the Fiscalia to set up a
series of mock trials to train judges and prosecutors on how
to prosecute trafficking crimes. By the end of the series,
judges and prosecutors believed they were well prepared to
prosecute the cases, but more officials need to receive the

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training.

23.I. (SBU) The GOC cooperates with other governments in the
investigation and prosecution of trafficking in persons. The
GOC cooperates with host country governments where it has
embassies and when victims of trafficking are identified and
request repatriation. Fiscalia and DAS/INTERPOL offices work
with counterparts in other countries to conduct
investigations. Information regarding which countries the
Fiscalia and DAS worked with was requested but not available
at time of transmittal.

23.J. (SBU) The GOC can extradite persons charged with
trafficking in other countries. The GOC can extradite its
own nationals. However, there were no such extraditions for
persons charged with trafficking in the period March
2005-February 2006, and no requests for such extraditions,
according to the Ministry of Foreign Affairs.

23.K. (SBU) See paragraph 21.C.

23.L. (SBU) Government officials neither facilitate nor
condone trafficking in any official capacity. The GOC
investigates all cases of corruption that are brought to its
attention. Neither the DAS nor the Prosecutor General's
Office has received any information about the involvement, or
possible involvement, of government officials in trafficking
in persons. No government officials have been prosecuted for
involvement in trafficking or trafficking-related corruption.


23.M. (SBU) The Colombian Penal Code of 2000 prohibits
organizing or facilitating sexual tourism and provides
penalties of three to eight years' imprisonment. The Penal
Code does not have extraterritorial coverage. The Penal Code
does not differentiate between sexual tourism for the purpose
of relations with children or adults. During the reporting
period, the Government did not prosecute or deport/extradite
any foreign pedophiles.

23.N. (SBU) Colombia has ratified the following international
instruments:

-- The ILO Convention 182 on the Worst Forms of Child Labor,
on January 15, 2005;

-- ILO Convention Number 29, in 1969;

-- ILO Convention 105, in 1963;

-- The Optional Protocol to the Convention on the Rights of
the Child on the Sale of Children, Child Prostitution, and
Child Pornography, in November 2003; and

-- The Protocol to Prevent, Suppress, and Punish Trafficking
in Persons, Especially Women and Children, supplementing the
UN Convention against Transnational Organized Crime, in
August 2004.

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PROTECTION AND ASSISTANCE TO VICTIMS
--------------

24.A. (SBU) Since Colombia is primarily a source and transit
country, there is no demand for provision of temporary or
permanent residency status or relief from deportation.
Colombia does not have specially-designated victim care or
victim health care facilities.

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24.B. (SBU) The GOC provides limited funds to NGOs to provide
food, shelter and clothing to victims under 18, in a few
cities. The GOC also maintains a close relationship with the
IOM and NGOs like The Hope Foundation and provides them
information on cases related to victims or potential victims
of trafficking in persons domestically and abroad.

24.C. (SBU) Colombia is not a destination country. There
have been no reported cases of referral of the transfer of
victims who have been detained, arrested or placed in
protective custody by law enforcement authorities to NGOs
that provide short- or long-term care. Overseas, Colombian
consulates worldwide are supposed to provide legal and social
assistance to Colombian citizens in need, including victims
of trafficking. The GOC has contracted legal advisors and
social workers to help support Colombians abroad. However,
this type of assistance can only be provided in consular
districts with at least 10,000 resident Colombians. The
assistance of the Ministry of Foreign Affairs and/or the
Embassy begins the moment information is provided by a family
member or friend in Colombia or the victim gets in touch with
the Embassy. The Embassy then coordinates with host
government authorities to provide immediate protection.

24.D. (SBU) Colombia is not a destination country. There
have been no reported cases the rights of internal
trafficking victims being denied.

24.E. (SBU) The GOC encourages victims to assist in the
investigation and prosecution of trafficking. The DAS, for
example, set up a special interview room in Bogota's El
Dorado Airport for returning victims so that they could be
fully debriefed and counseled on their rights, and on how to
press charges. The right of victims to seek civil action
against their traffickers is not impeded. However, many
victims, fearing for their own safety or that of their
families, are often reluctant to come forward. Colombia does
not have a victim restitution program, though the MININT and
NGOs have programs to help victims reintegrate into society.

24.F. (SBU) The government provides protection to victims and
witnesses through the Fiscalia. The program is activated
when (a) a victim or witness files charges (i.e., they submit
a "denuncia" to a competent legal authority) against an
alleged trafficker, and/and (b) after an investigation, the
denuncia is found to have enough merit to warrant the
Fiscalia bringing penal charges against the alleged
trafficker. The program includes provision of secure housing
and an economic stipend for the victim or witness. As
agreement for participation in the program, the victim or
witness must agree not to leave the housing where they have
been placed. No victims or witnesses have participated in
the program. The GOC does not provide shelter to trafficking
victims, though it does help victims find housing. Other
services are described in paragraph 24.H. and 24.I, below.

24.G. (SBU) Please see paragraphs 23.H. and 24.C.

24.H. (SBU) In both domestic and international cases, MININT
is responsible for providing safe passage for victims to
return to their homes, lodging if it is needed, medical and
psychological attention, access to financial and employment
assistance, and information and legal support for the entire
judicial process. The ICBF provides legal, medical and
psychological services for child victims in Colombia, the
majority of whom are trafficked internally. MININT maintains
a close relationship with The Hope Foundation and The Rebirth

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Foundation because victims often prefer to approach a private
organization rather than a government office. MININT is
currently working on an agreement with the Hotel Association
CotelCo and DAS to allow recently found victims to receive
initial shelter in participating hotels. MININT is also
working with Colombia's Office of Drug Control Police, the
DNE (the National Drug Control Administration, or Direccion
Nacional de Estupefacientes) to set up secure, anonymous
shelters for trafficked victims.

24.I. (SBU) The principal organizations that work with
victims of trafficking are the IOM, The Hope Foundation, and
The Rebirth Foundation. The level of cooperation received by
the organizations from the GOC is very good. The IOM and the
Hope Foundation have provided short-term assistance to
trafficking victims, including educational information,
social support, and counseling. The IOM also provided
victims with job training and employment opportunities
through programs in 13 departments, and helped victims obtain
medical and psychological care. The Rebirth Foundation
continues its work to contribute to the eradication of the
sexual exploitation of children and adolescents. Its current
activities include outreach work through the targeting of
areas where children in prostitution are known to be found,
funding a day center which offers education, health care and
activity-based workshops in a variety of areas, and 3
long-term shelters which help to adapt children from street
life to the routines of living in a house with others and
encourages social integration and friendship. Vocational
skills, educational training, and therapy are also provided.
WOOD