GUINEA -- 2009 TIP REPORT: PRESS GUIDANCE AND

UNCLAS STATE 060558 SIPDIS E.O. 12958: N/A TAGS: KTIP ELAB KCRM KPAO KWMN PGOV PHUM PREL SMIG GV SUBJECT: GUINEA -- 2009 TIP REPORT: PRESS GUIDANCE AND DEMARCHE REF: A. (A) STATE 59732 ¶B. (B) STATE 005577 ¶1. This is an action cable; see paras 5 through 7 and 10. ¶2. On June 16, 2009, at 10:00 a.m. EDT, the Secretary will release the 2009 Trafficking in Persons (TIP) Report at a press conference in the Department's press briefing room. This release will receive substantial coverage in domestic and foreign news outlets. Until the time of the Secretary's June 16 press conference, any public release of the Report or country narratives contained therein is prohibited. ¶3. The Department is hereby providing Post with advance press guidance to be used on June 16 or thereafter. Also provided is demarche language to be used in informing the Government of Guinea of its tier ranking and the TIP Report's imminent release. The text of the TIP Report country narrative is provided, both for use in informing the Government of Guinea, and in any local media release by Post's public affairs section on June 16 or thereafter. Drawing on information provided below in paras 8 and 9, Post may provide the host government with the text of the TIP Report narrative no earlier than 1200 noon local time Monday June 15 for WHA, AF, EUR, and NEA countries and OOB local time Tuesday June 16 for SCA and EAP posts. Please note, however, that any public release of the Report's information should not/not precede the Secretary's release at 10:00 am EDT on June 16. ¶4. The entire TIP Report will be available on-line at www.state.gov/g/tip shortly after the Secretary's June 16 release. Hard copies of the Report will be pouched to posts in all countries appearing on the Report. The Secretary's statement at the June 16 press event, and the statement of and fielding of media questions by G/TIP,s Director and Senior Advisor to the Secretary, Ambassador-at-Large Luis CdeBaca, will be available on the Department's website shortly after the June 16 event. Ambassador de Baca will also hold a general briefing for officials of foreign embassies in Washington DC on June 17 at 3:30 pm EDT. ¶5. Action Request: No earlier than 12 noon local time on Monday June 15 for WHA, AF, EUR, and NEA posts and OOB local time on Tuesday June 16 for SCA and EAP posts, please inform the appropriate official in the Government of Guinea of the June 16 release of the 2009 TIP Report, drawing on the points in para 9 (at Post's discretion) and including the text of the country narrative provided in para 8. For countries where the State Department has lowered the tier ranking, it is particularly important to advise governments prior to the Report being released in Washington on June 16. ¶6. Action Request continued: Please note that, for those countries which will not receive an "action plan" with specific recommendations for improvement, posts should draw host governments' attention to the areas for improvement identified in the 2009 Report, especially highlighted in the "Recommendations" section of the second paragraph of the narrative text. This engagement is important to establishing the framework in which the government's performance will be judged for the 2010 Report. If posts have questions about which governments will receive an action plan, or how they may follow up on the recommendations in the 2009 Report, please contact G/TIP and the appropriate regional bureau. ¶7. Action Request continued: On June 16, please be prepared to answer media inquiries on the Report's release using the press guidance provided in para 11. If Post wishes, a local press statement may be released on or after 10:30 am EDT June 16, drawing on the press guidance and the text of the TIP Report's country narrative provided in para 8. ¶8. Begin Final Text of Guinea,s country narrative in the 2009 TIP Report: -------------- Guinea (TIER 2 Watch List) -------------- Guinea is a source, transit and, to a lesser extent, a destination country for men, women, and children trafficked for the purposes of forced labor and commercial sexual exploitation. The majority of victims are children, and internal trafficking is more prevalent than transnational trafficking. Within the country, girls are trafficked primarily for domestic servitude and sexual exploitation, while boys are trafficked as forced beggars, street vendors, shoe shiners, and laborers in gold and diamond mines as well as for forced agricultural labor. Some Guinean men are also trafficked for agricultural labor within Guinea. Smaller numbers of girls from Mali, Sierra Leone, Nigeria, Ghana, Liberia, Senegal, Burkina Faso, and Guinea-Bissau are trafficked transnationally to Guinea for domestic servitude and likely also for sexual exploitation. Guinean boys and girls are trafficked to Senegal, Mali, and possibly other African countries, for labor in gold mines. Guinean women and girls are trafficked to Nigeria, Cote d,Ivoire, Benin, Senegal, Greece, and Spain for domestic servitude and sexual exploitation. Chinese women are trafficked to Guinea for commercial sexual exploitation by Chinese traffickers. Networks also traffic women from Nigeria, India, and Greece through Guinea to the Maghreb countries to Europe, notably Italy, Ukraine, Switzerland, and France for commercial sexual exploitation and domestic servitude. The Government of Guinea does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so, despite limited resources. Despite these overall efforts, the government did not show evidence of progress in prosecuting trafficking offenders or protecting victims; therefore, Guinea is placed on Tier 2 Watch List. Ensnared by internal instability that culminated in a December 2008 coup, Guinea,s efforts to combat trafficking remained weak. While Guinea has an adequate anti-trafficking legal framework, which it strengthened by enacting the Child Code, the government did not report any trafficking convictions for the fifth year in a row, and protection and prevention efforts remained weak. Recommendations for Guinea: Increase efforts to investigate, prosecute, and convict traffickers; finalize and adopt the implementing text for the new Child Code; increase prescribed penalties for the sex trafficking of adults and children; develop stronger partnerships with NGOs and international organizations to care for victims; and increase efforts to raise awareness about trafficking. Prosecution -------------- The Government of Guinea demonstrated minimal law enforcement efforts to combat trafficking during the last year. Guinea prohibits all forms of trafficking in persons through separate statutes. In August 2008, Guinea enacted the Child Code, which includes provisions prohibiting all forms of child trafficking, specifically criminalizes child domestic servitude, and allows NGOs to bring cases to court on behalf of victims. The government, in collaboration with NGOs and international organizations, is still drafting the implementing text for this law, which will prescribe penalties that allow the law to be enforced. Article 337 of the 1998 Penal Code prohibits individuals from entering into agreements that deprive third parties of their liberty, prescribing penalties of five to 10 years, imprisonment and confiscation of any resulting profits. Forced prostitution and child prostitution are criminalized by Article 329 of Guinea,s Penal Code, which prescribes six months, to two years, imprisonment if the trafficked victim is an adult, and two to five years, imprisonment if the victim is a child. These penalties for sex trafficking of adults are neither sufficiently stringent nor commensurate with penalties prescribed for other grave crimes, such as rape. The government reported that 17 trafficking cases are awaiting prosecution, though it obtained no convictions of trafficking offenders during the year. Guinea,s government created a new Ministry of High Crimes and Anti-Drug Enforcement that will be responsible for anti-trafficking law enforcement efforts. While the Police Mondaine, which is responsible for addressing trafficking cases, did not investigate the problem of the involuntary domestic servitude of children in the past, it has added this form of trafficking to its mandate. On February 3, the head of the military government issued a declaration giving security personnel blanket authority to shoot anyone caught committing child trafficking, raising significant human rights concerns. During the year, Guinean officials participated in joint trainings with Malian authorities at posts on the two countries, borders to review a proposed agreement on protection of trafficking victims, which was later signed by both countries. Protection -------------- The Government of Guinea demonstrated weak efforts to protect trafficking victims over the last year. The government lacks shelters for trafficking victims due to limited resources. While Guinea lacks a formal procedure through which officials refer victims to NGOs and international organizations for care, authorities reported referring victims on an ad hoc basis. The government also reported providing limited assistance to victims in collaboration with NGOs and international organizations, but due to the lack of a database, the government could not provide the number of victims assisted. Through foster care services, the Ministry of Social Affairs provides care to destitute children, some of whom may be trafficking victims. The government did not follow procedures to identify trafficking victims among vulnerable populations, such as abandoned children, child victims of violence, and children in prostitution. Government officials from key ministries responsible for anti-trafficking initiatives held monthly meetings during the year to discuss multilateral and bilateral cooperation to reintegrate and rehabilitate victims. In collaboration with NGOs, the Guinean government continued to operate its free hotline for public reporting of trafficking cases or victims, but was unable to provide information regarding the number of calls received. The government does not encourage victims to assist in trafficking investigations or prosecutions. Guinea does not provide legal alternatives to the removal of foreign victims to countries where they face hardship or retribution. Prevention -------------- The Government of Guinea demonstrated diminished efforts to raise awareness about trafficking during the reporting period. Guinea did not conduct any anti-trafficking awareness efforts during the year. The National Committee to Combat Trafficking met quarterly throughout the year. The Committee failed to submit required quarterly reports on the implementation of the National Action Plan. At a meeting in February 2009, however, the Committee evaluated the existing action plan and began developing a version for 2009-2010. The government did not take measures to reduce demand for forced labor and child labor in violation of international standards, as well as demand for commercial sex acts. ¶9. Post may wish to deliver the following points, which offer technical and legal l background on the TIP Report process, to the host government as a non-paper with the above TIP Report country narrative: (begin non-paper) -- The U.S. Congress, through its passage of the 2000 Trafficking Victims Protection Act, as amended (TVPA), requires the Secretary of State to submit an annual Report to Congress. The goal of this Report is to stimulate action and create partnerships around the world in the fight against modern-day slavery. The USG approach to combating human trafficking follows the TVPA and the standards set forth in the Protocol to Prevent, Suppress and Punish Trafficking in Persons, Especially Women and Children, supplementing the United Nations Convention against Transnational Organized Crime (commonly known as the "Palermo Protocol"). The TVPA and the Palermo Protocol recognize that this is a crime in which the victims, labor or services (including in the "sex industry") are obtained or maintained through force, fraud, or coercion, whether overt or through psychological manipulation. While much attention has focused on international flows, both the TVPA and the Palermo Protocol focus on the exploitation of the victim, and do not require a showing that the victim was moved. -- Recent amendments to the TVPA removed the requirement that only countries with a "significant number" of trafficking victims be included in the Report. Beginning with the 2009 TIP Report, countries determined to be a country of origin, transit, or destination for victims of severe forms of trafficking are included in the Report and assigned to one of three tiers. Countries assessed as meeting the "minimum standards for the elimination of severe forms of trafficking" set forth in the TVPA are classified as Tier 1. Countries assessed as not fully complying with the minimum standards, but making significant efforts to meet those minimum standards are classified as Tier 2. Countries assessed as neither complying with the minimum standards nor making significant efforts to do so are classified as Tier 3. -- The TVPA also requires the Secretary of State to provide a "Special Watch List" to Congress later in the year. Anti-trafficking efforts of the countries on this list are to be evaluated again in an Interim Assessment that the Secretary of State must provide to Congress by February 1 of each year. Countries are included on the "Special Watch List" if they move up in "tier" rankings in the annual TIP Report -- from 3 to 2 or from 2 to 1 ) or if they have been placed on the Tier 2 Watch List. -- Tier 2 Watch List consists of Tier 2 countries determined: (1) not to have made "increasing efforts" to combat human trafficking over the past year; (2) to be making significant efforts based on commitments of anti-trafficking reforms over the next year, or (3) to have a very significant number of trafficking victims or a significantly increasing victim population. As indicated in reftel B, the TVPRA of 2008 contains a provision requiring that a country that has been included on Tier 2 Watch List for two consecutive years after the date of enactment of the TVPRA of 2008 be ranked as Tier ¶3. Thus, any automatic downgrade to Tier 3 pursuant to this provision would take place, at the earliest, in the 2011 TIP Report (i.e., a country would have to be ranked Tier 2 Watch List in the 2009 and 2010 Reports before being subject to Tier 3 in the 2011 Report). The new law allows for a waiver of this provision for up to two additional years upon a determination by the President that the country has developed and devoted sufficient resources to a written plan to make significant efforts to bring itself into compliance with the minimum standards. -- Countries classified as Tier 3 may be subject to statutory restrictions for the subsequent fiscal year on non-humanitarian and non-trade-related foreign assistance and, in some circumstances, withholding of funding for participation by government officials or employees in educational and cultural exchange programs. In addition, the President could instruct the U.S. executive directors to international financial institutions to oppose loans or other utilization of funds (other than for humanitarian, trade-related or certain types of development assistance) with respect to countries on Tier 3. Countries classified as Tier 3 that take strong action within 90 days of the Report's release to show significant efforts against trafficking in persons, and thereby warrant a reassessment of their Tier classification, would avoid such sanctions. Guidelines for such actions are in the DOS-crafted action plans to be shared by Posts with host governments. -- The 2009 TIP Report, issuing as it does in the midst of the global financial crisis, highlights high levels of trafficking for forced labor in many parts of the world and systemic contributing factors to this phenomenon: fraudulent recruitment practices and excessive recruiting fees in workers, home countries; the lack of adequate labor protections in both sending and receiving countries; and the flawed design of some destination countries, "sponsorship systems" that do not give foreign workers adequate legal recourse when faced with conditions of forced labor. As the May 2009 ILO Global Report on Forced Labor concluded, forced labor victims suffer approximately $20 billion in losses, and traffickers, profits are estimated at $31 billion. The current global financial crisis threatens to increase the number of victims of forced labor and increase the associated "cost of coercion." -- The text of the TVPA and amendments can be found on website www.state.gov/g/tip. -- On June 16, 2009, the Secretary of State will release the ninth annual TIP Report in a public event at the State Department. We are providing you an advance copy of your country's narrative in that report. Please keep this information embargoed until 10:00 am Washington DC time June ¶16. The State Department will also hold a general briefing for officials of foreign embassies in Washington DC on June 17 at 3:30 pm EDT. (end non-paper) ¶10. Posts should make sure that the relevant country narrative is readily available on or though the Mission's web page in English and appropriate local language(s) as soon as possible after the TIP Report is released. Funding for translation costs will be handled as it was for the Human Rights Report. Posts needing financial assistance for translation costs should contact their regional bureau,s EX office. ¶11. The following is press guidance provided for Post to use with local media. Q1: Why is Guinea on Tier 2 Watch List? A: The Government of Guinea does not fully comply with the minimum standards for the elimination of trafficking; however, it is making significant efforts to do so, despite limited resources. Despite these overall efforts, the government did not show evidence of progress in prosecuting trafficking offenders or protecting victims; therefore, Guinea is placed on Tier 2 Watch List. Q2: What progress has Guinea made in the last year? A: In August 2008, Guinea enacted the Child Code, which includes provisions prohibiting all forms of child trafficking, specifically criminalizes child domestic servitude, and allows NGOs to bring cases to court on behalf of victims. Q3: What can Guinea do to further the fight against trafficking in persons? A: Increase efforts to investigate, prosecute, and convict traffickers; finalize and adopt the implementing text for the new Child Code; increase prescribed penalties for the sex trafficking of adults and children; develop stronger partnerships with NGOs and international organizations to care for victims; and increase efforts to raise awareness about trafficking. The government reported that 17 trafficking cases are awaiting prosecution. Guinea,s government created a new Ministry of High Crimes and Anti-Drug Enforcement that will be responsible for law enforcement anti-trafficking efforts. During the year, Guinean officials participated in joint trainings with Malian authorities at posts on the two countries, borders to review a proposed agreement on protection of trafficking victims, which was later signed by both countries. At a meeting in February 2009, National Committee to Combat Trafficking evaluated the existing National Action Plan and began developing a version for 2009-2010. ¶12. The Department appreciates posts, assistance with the preceding action requests. CLINTON