COLOMBIA'S SEVENTH ANNUAL ANTI-TRAFFICKING IN

UNCLAS BOGOTA 001457

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 SEVENTH ANNUAL ANTI-TRAFFICKING IN
PERSONS (TIP) REPORT

REF: SECSTATE 202745

This report is sensitive but unclassified. Please handle
accordingly.


1. (U) Embassy point of contact on trafficking in persons is
human rights officer Scott Fagan, phone number (57-1)
383-2122, fax number (57-1) 315-2163. Officer spent 52 hours
preparing report.


2. (U) Responses below are to questions in paragraphs 27-30
of reftel.

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SUMMARY
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3. (SBU) During the reporting period, the Government of
Colombia (GOC) increased its prosecutions for trafficking in
persons to 63, up from 25 last year, and increased the number
of convictions from 2 to 10. The GOC also has 49 additional
investigations underway. The GOC will open an
Anti-Trafficking Operations Center (COAT) in summer 2007 to
serve victims. The GOC supported public campaigns on
trafficking prevention, and helped develop a comprehensive
"Guide to Assistance for Victims of Trafficking in Persons in
Colombia." The National Strategy on Trafficking in Persons is
complete and awaiting implementation.

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Overview
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27.A. (SBU) Colombia is a significant source of trafficking
victims, primarily women and children destined for sexual
exploitation, according to both government and NGO reports.
Some Colombian men are trafficked for forced labor. Post has
received some unconfirmed reports that Colombia is also a
transit country for victims from Ecuador and China, and
possibly other Andean countries, but no specific cases were
reported during the reporting period. The vast majority of
trafficking cases never see prosecution or investigation due
to victims failing to report the crime once they have escaped
the trafficking situation. 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
Japan, Spain, Ecuador, Panama, Hong Kong, Singapore,

Malaysia, Germany, Peru, Chile, Sweden, Switzerland, Brazil,
Thailand, the United Kingdom, Argentina, Italy, Portugal, the
Netherlands, the Dominican Republic, Venezuela, the United
States, China, El Salvador, Costa Rica, the Philippines,
Mexico, Israel, and Jamaica. 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.

The GOC Inter-institutional Committee for the Fight against
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 was stalled due to hardware and software problems,
but the ICFTP has contracted a new firm to overcome the
problems, and plan to have the system operational by August

2007. In the past, the Department of Administrative Security
(DAS),which has responsibilities similar to the FBI, has
estimated that there were between 45,000-50,000 Colombian
women working as prostitutes overseas, some victims of
trafficking, with an average of 2-10 victims departing the
country per day. These numbers however, according to both
the DAS and NGOs, are impossible to verify. 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 have complete data 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. Groups most 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.

27.B. (SBU) Colombia is committed to fighting trafficking in
persons, and has established a comprehensive interagency
program to coordinate this fight with international and
non-governmental 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, it is currently in draft form awaiting
formal approval. The IOM estimates that approximately 60
percent of trafficking is within the country.

27.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 have reported in the past
that corruption of 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 considered corruption related
to trafficking to be endemic in government institutions.
There were no specific corruption cases raised during the
reporting period. 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 through the Fiscalia's
protection program to induce a higher number of them to press
charges against their oppressors.

27.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,

MININT and Humanitas) have produced reports in the past of
their work to combat trafficking. The ICFTP continues to
work to consolidate 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, but steps remain before the database system
is fully operational and the data is available.

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

28.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.

28.C. (SBU) In 2006, the Government supported IOM public
campaigns on trafficking prevention. The campaign advertised
an IOM national hot line to prevent trafficking and report
violators. The GOC also worked with IOM, as well as other
NGOs and civil society organizations, to develop and publicly
release a comprehensive "Guide to Assistance for Victims of
Trafficking in Persons in Colombia." 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, the IOM continued to place large
posters in airports, bus stations, foreign consulates, and
travel agencies as well as professionally producing public
service announcements on radio and television.

28.D. (SBU) The Vice President's Program on Women has a
micro-enterprise 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.

28.E. (SBU) The GOC maintains an open dialogue with
non-governmental organizations, relevant organizations and
elements of civil society on trafficking. The IOM and UNODC
actively participate in policy dialogue.


28.F. (SBU) The IOM continued to train Colombian passport
officials, and immigration officials from Colombia and
foreign embassies, to detect patterns of trafficking, with
special emphasis on border areas in Brazil, Ecuador,
Venezuela and Panama. 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.

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

28.H. (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. 28.B) developed the plan with participation of civil
society and NGOs. The National Strategy plan was completed
in August 2006.

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INVESTIGATION AND PROSECUTION OF TRAFFICKERS
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29.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.

29.B. (SBU) Penalties against traffickers are described in
paragraph 29.A.

29.C. (SBU) Penalties against traffickers of labor
exploitation are included in penalties in paragraph 29.A

29.D. (SBU) In 2000, Law 599 (see para. 29.A) made the
punishments for trafficking for purposes of prostitution
equivalent to those for rape and sexual assault.

29.E. (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.

29.F. (SBU) During the reporting period, the ICFTP and the

Fiscalia stated that there were 49 investigations underway
(34 under the old system, and 15 under the new accusatory
system). There were 63 prosecutions, up from 25 last year.
The Fiscalia reported 10 convictions during the reporting
period for trafficking in persons crimes, up from 2
convictions in 2005. (Post is awaiting information on
sentences.)

29.G. (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. Human Rights
NGOs estimate 11 thousand children have been forcibly
recruited into illegal armed groups, while the Inspector
General's Office has estimated approximately 25 thousand
children were working as sex workers, 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 GOC arrested
2 people who were internally trafficking displaced persons to
the northern coast for sexual exploitation in June 2006 and
seized their assets. 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.

29.H. (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.

29.I. (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 UNODC 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 officials will continue to receive
the training.

29.J. (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. The Fiscalia and DAS worked with Venezuela,
Ecuador, Panama, Italy and Spain on investigation of
trafficking during the reporting period.

29.K. (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
2006-February 2007, and no requests for such extraditions,
according to the Ministry of Foreign Affairs.

29.L. (SBU) See paragraph 27.C.

29.M. (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.

29.N. (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 investigated one American for child
pornography (investigation is ongoing),but did not prosecute
or deport/extradite any foreign pedophiles.

29.O. (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.

-- The Optional Protocol to the Convention on the Elimination
of all Forms of Discrimination against Women, in 2006.

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

30.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.

30.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.

30.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.

30.D. (SBU) Colombia is not a destination country. There
have been no reported cases the rights of internal
trafficking victims being denied, though NGOs were concerned
about a lack of protection for those internally trafficked
persons that wished to pursue legal remedies.

30.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 NGOs have
programs to help victims reintegrate into society.

30.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. The GOC does not provide shelter to trafficking
victims, though it does help victims find housing. Other
services are described in paragraph 30.H. and 30.I, below.

30.G. (SBU) Please see paragraphs 29.I. and 30.C.

30.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
Foundation because victims often prefer to approach a private
organization rather than a government office. MININT has
developed and approved plans to open a Anti-Trafficking
Operations Center (COAT) by summer 2007, that will serve as a
central repository of assistance information,
anti-trafficking programming, and a call-center for
trafficking assistance and prevention.

30.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.
DRUCKER