UZBEKISTAN: OFFICIALS DESCRIBE EFFORTS TO

UNCLAS SECTION 01 OF 04 TASHKENT 001265

SIPDIS

DEPT FOR G/TIP MEGAN HALL AND SCA/RA JESSICA MAZZONE

E.O. 12958: N/A
TAGS: PGOV PREL PHUM KTIP KCRM KWMN UZ
SUBJECT: UZBEKISTAN: OFFICIALS DESCRIBE EFFORTS TO
IMPLEMENT TIP LAW

REF: TASHKENT 580

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1. (U) Summary: On September 29-30, poloff and a visiting
officer from the Department's Office to Combat and Monitor
Trafficking in Persons (G/TIP) met with Uzbek officials from
the Ministries of Internal and Foreign Affairs, the Office of
the General Prosecutor, and the National Women's Committee to
discuss the Government of Uzbekistan's efforts to implement
its landmark March 2008 law. We also met with the local
offices of the International Organization for Migration
(IOM)-affiliated NGO "Istiqbolli Avlod," the Organization of
Security and Cooperation in Europe (OSCE),and the United
Nations Office on Drugs and Crime (UNODC) to discuss the TIP
situation in Uzbekistan. A general theme was that government
officials do seem to be working diligently to implement the
new law, including productive debates about establishing a
state-run shelter for victims, stepped up prosecution
efforts, and cooperation with NGOs and international
organizations. End summary.

MVD Gears Up
--------------


2. (U) On September 29 a visiting G/TIP officer and poloff
met with Nodir Kurbanov, Senior Officer of the Ministry of
Internal Affairs Department on Counter-TIP, and Shavkat
Usmanov, Main Inspector of the Ministry of Internal Affairs
International Relations Department, to discuss working level
efforts to implement Uzbekistan's 2008 TIP law. Kurbanov, a
conscientious cop, knows more about TIP than any other law
enforcement officer in Uzbekistan and has done a good job
organizing an effective nationwide counter-TIP police unit.
Kurbanov reported that there are now 120 operational staff in
the Ministry of Internal Affairs working solely on TIP
throughout Uzbekistan. He said this is projected to increase
to between 160-180 officers, which he said should be
sufficient manpower. Kurbanov said he personally knows about
100 of these officers and is in regular phone contact with
them, and there are concerted efforts to pass the latest
information to remote posts (there have been rapid changes
this year that have changed the counter-TIP landscape for
rank-and-file officers). Nonetheless, Kurbanov stated "the
issue of training is a crucial one," and acknowledged that
law enforcement officers need a wider exchange of
information.


3. (U) Kurbanov told us that local versions of the
inter-agency commission have now convened in all twelve
provinces of the country. While it seems like there are a
lot of working groups and committees forming, Kurbanov
believes they are necessary in order to raise awareness and
get as many actors as possible involved in developing
solutions. He praised the recently created national
inter-agency commission, noting that "it is not just on
paper...it is really working and we have to report to
President Karimov by the end of the year." Kurbanov and
Usmanov conceded that the TIP database at the Ministry of
Internal Affairs is still relatively small, but they are
pleased by an ongoing UNODC project to develop and expand it.


Rehabilitation Center
--------------


4. (U) Kurbanov and Usmanov stated that the establishment of
a shelter for TIP victims, which Uzbek authorities are
calling a rehabilitation center, "is the main project for us
now." They described the proposed government-created shelter
as being large enough to accommodate 100 people and will
include doctors, psychologists, and social workers. However,

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there are constructive ongoing debates within the Government
of Uzbekistan about who will be responsible for administering
such a facility. Kurbanov added frankly that, after studying
other countries' experiences the Ministry of Internal Affairs
concluded it would be best if another entity was responsible.
"Rehabilitation is broader than investigation," he added,
"and we are cops." In a separate meeting on September 29 at
the OSCE Project Coordination Office, a staff member said
OSCE is planning to work with the Uzbeks on developing an
appropriate identification and referral mechanism, which
should contribute to the effective operation of a shelter,
and will also train shelter staff. (Comment: It is
encouraging to see an Uzbekistan government ministry taking
the time to conduct debates and research case studies before
plunging in, and even more encouraging that it is willing to
pass up the prospect of a broader mandate and increased
territory based on a recognition that is not the best-suited
to do the job. This may delay the eventual opening of a
shelter, but it will be worth the wait if it is done
properly. End comment.)

Shame Factor
--------------


5. (U) Poloff and G/TIP officer also met on September 29 with
two representatives from the quasi-governmental National
Women's Committee. They cited tremendous progress in raising
awareness to TIP issues among average citizens but said they
still are influenced by "our oriental mindset" that means
victims -- male and female alike -- still feel a strong sense
of shame in Uzbek society. "We need to consider what we can
do to make sure women can go home to their villages." The
Women's Committee, in conjunction with the Office of the
State Prosecutor, produced a new TIP-themed theater
performance that debuted on September 26 to help raise
awareness.


6. (U) Representatives of the Office of the State Prosecutor,
with whom we met on September 30, echoed the concerns about
the shame factor. They reported that many Uzbeks still don't
admit they are victims, citing as an example a recent case in
Moscow in which 58 Uzbek laborers were freed from slave-like
conditions. Only 14 of the victims, who came from four
different regions of Uzbekistan, would admit they were
trafficking victims and cooperate with authorities.

MVD: "Come talk to us"
--------------


7. (U) The premier anti-TIP NGO in Uzbekistan, the
IOM-affiliated Istiqbolli Avlod, told us in a September 30
visit to its USAID-funded shelter for TIP victims that police
officials are now unilaterally reaching out for investigation
leads. Nodira Karimova, the Director of Istiqbolli Avlod,
was recently involved in the repatriation of two young Uzbek
women who were trafficked to India for sex exploitation.
Kurbanov of the Ministry of Internal Affairs heard about the
case and called up Istiqbolli Avlod seeking information so
his staff could launch an investigation. Karimova was
pleased by the overture, noting it sets a good example and
also demonstrates to victims that authorities take their
ordeals seriously.


8. (U) Such initiative was not limited to this case, as the
Office of the General Prosecutor confirmed that 91 criminal
cases were initiated just since the national action plan was
adopted in July. The accused are presently detained while
investigations are underway, according to the prosecutors.
The Ministry of Internal Affairs said it was the lead agency
on 61 of these cases, with other agencies such as the

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National Security Service responsible for the others. In
another positive example of proactive law enforcement,
Kurbanov said he networked with a visiting delegation of
officers from the United Arab Emirates (UAE) who attended a
joint UNODC-OSCE workshop in May (reftel); as a result of
informal chats during and since the event criminal cases were
initiated. The prosecutors hope the increased focus on
punishing offenders will entice more victims to cooperate,
which has been a limiting factor in bringing traffickers to
justice. They feel a lot of solid legal measures are now in
place, and they said "we just need to enforce the measures we
have."

NGO: 41 Uzbek Women in Emirati Jails
--------------


9. (U) Karimova updated us on her continued efforts to assist
Uzbek sex trafficking victims and reaffirmed that the UAE is
still the number one destination. She has built up good
contacts in the UAE as a result of repeated visits there, and
she said she is currently aware of 41 Uzbek women (most are
likely trafficking victims) languishing in Emirati jails.
While she says policies vary in each emirate, Karimova said
the authorities generally open criminal cases against foreign
trafficking victims for unlawful presence and/or
prostitution. Dubai is the most lenient, she said; Sharjah
is "so-so"; Abu Dhabi and Ras-al-Khaima "are severe."
According to Karimova, in Ras-al-Khaima some Uzbek women have
been incarcerated for 3-4 months without charges even being
filed against them. They can expect to sit in jail for
extended periods as the courts slowly process their cases.

MFA Limitations
--------------


10. (U) On September 30 we met with Farkhad Khamraev, Head of
the Ministry of Foreign Affairs UN and International
Department, which oversees TIP issues. One topic of
discussion was the responsiveness of Uzbek consular officers
in assisting identified Uzbek trafficking victims abroad,
which the NGO reported varies widely among Uzbek embassies.
Karimova had informed us that the Uzbek diplomats in the UAE
are generally efficient and helpful in issuing repatriation
documents to Uzbek citizens, whereas in the above-mentioned
India case the NGO had difficulty arranging the prompt return
of the young Uzbek victims with the Uzbek Embassy. Khamraev
said he was aware of the India case and was personally
involved in eventually working out the repatriation details
from Tashkent. He added that, due to the limited size of
Uzbek diplomatic missions, the MFA often lacks the personnel
at posts to immediately complete repatriation of TIP issues.
(Note: Istiqbolli Avlod planned to train MFA consular
officers as part of an ongoing INL-funded TIP project, but
IOM regional official Mahmoud Naderi told poloff on October
23 that it was not feasible since MFA could not
simultaneously pull essential Embassy staff from posts to
participate in the training. We will try to identify
alternative methods for providing training opportunities for
Uzbek consular staff, perhaps including participation in
study tours or workshops that take place in or near TIP
hotspot posts. End note.)

UNODC Project
--------------


11. (U) On September 30 we met with the UNODC Regional Office
in Central Asia, which updated us about the TIP-related pilot
project it is working on at the request of the Government of
Uzbekistan. UNODC will procure equipment in November to
install a modern database for the Ministry of Internal

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Affairs, which will have real-time connections to branch
offices in all provinces up and running by March 2009. In
addition, two assessment missions have already been completed
focusing on bringing legislation into compliance with
international standards. A study tour is also in the works
for Uzbek officials, along with two additional roundtables to
be held next year.

Comment:
--------------


12. (U) An overarching theme of our two full days of TIP
meetings in the capital with government officials, the main
NGO, and international organizations is that there is a lot
happening on the ground in Uzbekistan to support the
implementation of the 2008 comprehensive TIP law. Six months
after its adoption -- and since buttressed by criminal code
amendments -- the law appears to have legs as well as teeth.
The biggest long-term challenges will come from the cotton
fields, as Uzbekistan struggles to shake its dependence on
forced labor to harvest its most important cash crop, as well
as in rendering quality assistance to legions of trafficked
Uzbek victims as they make their way home from abroad.

NORLAND