Uzbekistan: Submission for Ninth Annual Trafficking in

UNCLAS SECTION 01 OF 15 TASHKENT 000196

SIPDIS SIPDIS
DEPT FOR G/TIP MEGAN HALL, SCA/RA JESSICA MAZZONE, INL ANDREW BUHLER,
DRL, PRM, G-ACBLANK

E.O. 12958: N/A
TAGS: PGOV KTIP PHUM KCRM SMIG KFRD ASEC PREF ELAB KWMN ZK
UZ
SUBJECT: Uzbekistan: Submission for Ninth Annual Trafficking in
Persons Report

REF: a) 08 STATE 190339

SENSITIVE BUT UNCLASSIFIED - PLEASE PROTECT ACCORDINGLY


1. (SBU) Post's submission for the ninth annual Trafficking in
Persons (TIP) Report begins in paragraph 4. Per reftel, this
information covers the period from March 2008 to February 2009. The
information provided in the report has been gathered from numerous
sources, including the Government of Uzbekistan (GOU),the
International Organization for Migration (IOM),Organization for
Security and Cooperation in Europe (OSCE) Project Coordination
Office in Tashkent, the United Nations Office on Drugs and Crime
(UNODC),USAID, local TIP-focused NGOs, and local press reports.


2. (SBU) Embassy Tashkent's TIP point of contact is:

Timothy P. Buckley
Political Officer
Tel: (998-71) 120-5450
Fax: (998-71) 120-6335
Email: BuckleyTP@state.gov


3. (SBU) Number of hours spent on report preparation:

P/E officers: 55 hours (FS-03)
USAID: 2 hours
PAS: 5 hours
DCM: 1 hour


4. (SBU) Post's response is keyed to the questions provided in
paragraphs 23-27 of reftel.

--------------
OVERVIEW
--------------


A. The World Bank estimates that up to three million Uzbeks
migrate to find work abroad and that 75 percent of the population
lives on less than USD 2.15 per day. A December 2008 study
published by the United Nations Development Program (UNDP) office
in Tashkent found that 30 percent of Uzbeks have considered seeking
employment abroad at some point and 54 percent of labor migrants
reported supporting three or more dependents. Consequently,
conditions are ripe for trafficking in persons, which is a problem
both in terms of sexual and labor exploitation in Uzbekistan. A
2005 IOM study, which was funded by USAID, cited the absence of
effective mechanisms to regulate labor migration as a key factor in
exacerbating the labor trafficking problem. The IOM study also
noted that 90 percent of the surveyed victims of sexual
exploitation hide the truth of their experience from friends and
relatives. Government officials have also noted in meetings that
many victims do not seek assistance because of a strong sense of
shame. There are no comprehensive statistics available on the
extent or magnitude of the problem. The available sources of
information regarding TIP are: the Ministry of Internal Affairs
(MVD),Ministry of Foreign Affairs (MFA),the National Security
Service (NSS),the Ministry of Justice, the State Customs
Committee, Office of the General Prosecutor, media sources, private
citizens, human rights activists, the OSCE Tashkent Project
Coordination Office, the IOM via its affiliated TIP-focused NGO
Istiqbolli Avlod, and various other NGOs working on TIP. Since the
second half of 2007 Uzbekistan began publicly acknowledging that it
faces a TIP problem and taking proactive steps to address the
situation. As a result, the Government of Uzbekistan has been much
more willing to engage foreign diplomats, organizations, and
domestic NGOs on the subject and provide information. A new
national inter-agency TIP commission was established by the
government in July 2008 as a key element of a newly-adopted
national action plan; the committee is expected to coordinate
information gathering and problem-solving efforts pertaining to
TIP. Data has become more reliable since the government began
seriously tracking and addressing the issue, and improved
definitions under the new 2008 legislation should result in
enhanced reliability in the future.

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B. Uzbekistan is primarily a source country for trafficking in
persons. Men are mainly trafficked to illegal labor markets in
Kazakhstan and Russia, generally in the construction, agricultural
(tobacco and cotton),and service sectors. An IOM report published
in May 2005 highlighted an increase in labor trafficking from
Uzbekistan to southern regions of Kazakhstan. It noted that many
of these migrants work without contracts, receiving only partial or
in some cases no pay for their labor. Victims of labor trafficking
typically cross the border by truck, bus, or even on foot to
Kazakhstan, which does not require visas for Uzbek nationals.
There have also been reports of men being taken by train to Russia
and Ukraine. NGO and GOU sources reported that Shymkent and
Almaty, Kazakhstan; Moscow, Russia; Baku, Azerbaijan; Tbilisi,
Georgia; and Osh and Bishkek, Kyrgyzstan served as transit points,
often for Uzbek citizens traveling with false documents. Under
Uzbek law, the only permitted form of overseas employment is
through contracts arranged through the Ministry of Labor. The
Ministry arranges for thousands of Uzbek citizens to work abroad,
but the limited number of positions does not satisfy the huge
demand for employment opportunities abroad. The majority of legal
contracts are for jobs in South Korea, and Uzbek citizens must
increasingly compete for these opportunities by taking language and
skill tests. The Government of Uzbekistan also recently completed
labor migration agreements with Russia, Poland, and Oman, but for
very limited numbers of workers. All other labor migration is
technically illegal, although Uzbek authorities generally do not
pursue cases and authorities understand the importance of
remittances to the economy. Potential migrant workers generally
must seek middlemen to facilitate employment abroad, thus opening
the door to traffickers. Many individuals traveling for employment
cross the border illegally.

Uzbekistan is a source country for both labor and sexual
trafficking. The typical sexual trafficking victim in Uzbekistan
is a young woman (age 17-30),although there are increasing
accounts of married women over age 30 turning to prostitution
opportunities overseas out of economic desperation. According to
NGOs, the Government, the media, and information gathered by the
Embassy, most female victims of sexual exploitation were trafficked
to the United Arab Emirates, Kazakhstan, Russia, Thailand, Turkey,
India, Israel, Malaysia, South Korea, Japan, and China. Over the
past year India seems to be increasing in prevalence as a sex
trafficking destination. Meanwhile, Israel has become a less
common destination due to tough new legislation, which was
highlighted at a May 2008 anti-TIP workshop held in Tashkent under
the joint sponsorship of UNODC and OSCE. Contrary to initial
expectations, the volume of victims trafficked to Turkey, which
unilaterally eliminated visa requirements for most Central Asian
nationals in 2007, has not increased; however, it does remain a
common destination.

According to the Government and NGOs, internal trafficking
generally takes place from rural to urban areas. Internal
trafficking exists in agriculture, construction, domestic
servitude, and other forms of unskilled labor. Methods used
include withholding of pay and/or identity documents, such as
passports. In order to work legally in a particular region or
city, a citizen must register with the local administration and
obtain a permission stamp in his or her passport. Those living and
working in a city without that stamp are doing so illegally and are
subject to fines, jail time, and removal from the city.
Traffickers threaten to inform the police of people who are working
illegally. This is especially true in Tashkent city. According to
IOM, sex trafficking most often originates in Tashkent, Bukhara,
and Samarkand, while labor trafficking originates mainly from
Karakalpakstan, Surkhandarya and the Ferghana Valley.


C. Both labor and sex trafficking victims are generally subjected
to poor living conditions once they arrive in the destination
countries. Typically, victims' passports and other identification
documents are taken away, often under the pretense of obtaining
official registration, and traffickers threaten to turn victims
over to immigration authorities or police for prosecution or
deportation. This is effective since victims are often aware that
they entered a country illegally, either with false documentation,

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by avoiding inspection altogether, or misrepresenting their stated
purpose of travel. Victims are generally entirely dependent on the
traffickers for food and shelter and are usually asked to repay
exorbitant costs to satisfy alleged debts to traffickers.


D. Due to the sustained poor economic conditions in Uzbekistan,
vulnerability to trafficking is widespread and not restricted to
certain groups. Men and women alike are vulnerable to labor
trafficking while young women are targeted for sexual exploitation
with false promises of lucrative employment abroad. The GOU has
stated that labor trafficking constitutes the majority of cases and
that trafficking for sexual exploitation has increased.
Information provided by NGOs and media reporting suggests that both
labor and sexual trafficking are increasing, particularly as
economic conditions remain poor. The MVD reported in February 2009
that it logged 100 more trafficking cases in January 2009 than the
same period last year, and the ministry worries that the global
economic crisis will lead to more aspiring migrant workers falling
victim to traffickers. An official from Samarqand was quoted in
the local press saying that that province alone logged 200 TIP
cases through the first seven months of 2008 compared to 100 during
the same timeframe in 2007. There is anecdotal evidence that in
many villages with high unemployment most of the men have left to
work abroad, leaving only the elderly, women, and children.
However, many workers are seasonal and return home during the
winter months, so it is difficult to discern the true scale of
migration. GOU officials have acknowledged that widespread poverty
is making the fight against trafficking more difficult, as
Uzbekistan cannot compete with well-paying work abroad.
Nonetheless, a high-level official in the Ministry of Internal
Affairs said in February 2008 that "the trafficking-in-persons
issue is now on the national agenda."


E. Many reports of women being trafficked abroad indicate that the
victims traveled by air, although NGO workers report that secondary
airports and transit routes are becoming more prevalent since
authorities are reportedly much tougher at the main international
airport in Tashkent. Many victims have been unwilling to become
involved in legal proceedings that could result in their testimony
becoming public due to both societal pressure to avoid shame and
the fear of retaliation from their traffickers. Victims are also
well aware that under Uzbek law, female smugglers convicted of
first-time criminal offenses are sometimes amnestied, although
there are already indications this is no longer the case since a
set of tougher laws took effect in 2008. Uzbekistan Airways has an
extensive route network that provides direct service from Tashkent
to two destinations in the United Arab Emirates (UAE),Thailand,
Turkey, Israel, Malaysia, India, South Korea, and numerous European
destinations; however, due to strict visa regimes and onerous
registration procedures it is difficult for traffickers to use
Tashkent as a transit point for victims from other countries. The
main anti-TIP NGO and the MVD are aware of only a handful of
trafficking victims from other countries who transited Uzbekistan
over the past several years. Nonetheless, the government plans to
open its new state-sponsored shelter for trafficking victims of all
nationalities in the event that Uzbekistan is used as a transit or
destination country.

Often traffickers make contacts with the victims through family
members. Several victims have said that their friends introduced
them to recruiters. Traffickers are also known to pose as
entrepreneurs and businesspeople, and increasingly numerous
accounts in press articles suggest that trafficking rings are often
small-scale operations involving localized groups of unscrupulous,
opportunistic people linked to one or more contacts abroad. Agents
in nightclubs or prostitution rings solicit women, some of whom are
already engaged in prostitution. Victims are offered jobs and
decent salaries relative to low local salaries, and victims often
believe they will work in restaurants or as cleaners. Some victims
are aware they will work abroad as prostitutes but they may be
deceived by the circumstances or forced to remain in a difficult
situation. Labor trafficking victims are typically moved across
the border to Kazakhstan by bus or truck, or to Russia by train,
whereas sexual trafficking victims are often given plane tickets
and are met by their future trafficker upon arrival in the

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destination country. There were several reports this year of young
women being drugged in nightclubs in Tashkent and taken north into
Kazakhstan for sexual exploitation (the border is only a 20 minute
drive from downtown Tashkent). False documents are being used to
move some victims, and the main anti-TIP NGO Istiqbolli Avlod
reports that Almaty, Kazakhstan and Bishkek, Kyrgyzstan are
becoming more common gateway departure points by air since
officials have increased scrutiny of single, female passengers
flying out of Tashkent Airport. Osh, Kyrgyzstan is also a common
departure point cited by government officials, although NGO staff
said in February 2009 that its use is decreasing.

-------------- --------------
Setting the Scene for the Government's Anti-TIP Efforts
-------------- --------------


A. The Government of Uzbekistan openly acknowledges that TIP is a
problem in the country and considers it an unanticipated byproduct
of increased globalization. The President signed the first
comprehensive anti-TIP legislation into law on April 17, 2008 and
the government took immediate steps to implement it. Supplemental
legislation was adopted in September 2008 -- as promised -- to
strengthen the criminal penalties for trafficking offenders.
Uzbekistan also adopted the UN Protocol on TIP in July 2008, a step
it had avoided for years due to concerns about taking on
international commitments it was not ready to fulfill. Government
officials have also steadily increased cooperation with NGOs in
fighting TIP during this reporting period. This is evidenced by
the extensive participation of government officials in anti-TIP
training sessions in all 12 provinces and abroad, increasingly
prominent nationwide educational and awareness raising efforts, and
the direct cooperation of government officials with TIP-focused
NGOs. The Ministry of Internal Affairs has a special criminal
investigation and criminal prevention unit tasked with preventing
TIP. There is a willingness to take action against government
officials linked to TIP, especially at the lower provincial level
where corruption is common. Uzbekistan also adopted the UN
Convention Against Corruption in July 2008. Recognizing its own
limited resources, the government is willing to make use of others'
resources (NGOs and international organizations) to fight TIP, and
anti-TIP NGOs now enjoy a cooperative, open relationship with the
Government of Uzbekistan.


B. The Ministry of Internal Affairs (MVD),Ministry of Foreign
Affairs (MFA),National Security Service (NSS),the State Customs
Committee, Ministry of Labor, Office of the General Prosecutor,
Ministry of Justice, Ministry of Social Welfare, parliament, and
the National Women's Affairs Committee are all involved in
anti-trafficking efforts. The new national action plan adopted in
July 2008 established a Republican Inter-agency Commission on
Counteraction against TIP, which convened its first meeting in July

2008. The commission, which must meet quarterly, provides
high-level, high-visibility coordination of anti-TIP efforts. The
17 members of the commission include the following: Prosecutor
General (who is the Chairman); the Ministers of Internal Affairs,
Justice, Economy, Health Care Labor and Social Protection;
Chairwoman of the Women's Committee; Deputy Ministers of Foreign
Affairs, Internal Affairs, and Finance; Commander of the Border
Guards, Chairman of the State Customs Committee; Director of the
National Center for Human Rights; Ombudsman for Human Rights of the
Parliament, Chairman of the Fund "Mahalla;" Chairman of the Central
Council of the Youth Public Movement "Kamolot;" and the Director of
the Public Center "Social Opinion." The national action plan,
which guides efforts from 2008-2010, also requires the twelve
provinces to establish local inter-agency committees; each had
convened their initial meeting by September 2008. Mahallas
(traditional neighborhood associations) and government-sponsored
youth organizations also take part in prevention efforts. The MVD
plays the most prominent role as the preeminent investigative body
and is also responsible for issuing exit permits. A November 2008
resolution issued by the President tasked the Ministry of Labor
with establishing and administering a new state-run shelter for
trafficking victims, which will open in the first quarter of 2009.

The government inter-agency working group on TIP, formerly

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supported by the OSCE with INL funding, concluded its work upon the
completion of its main task to draft comprehensive legislation, was
adopted by parliament in March 2008 and signed into law by
President Karimov shortly thereafter. The MVD's specialized
Anti-Trafficking Unit has taken consistent measures to fight
trafficking and is playing an active role in developing training
materials for the police academy and practicing lawyers. The MVD
also established a new Department for Human Rights Protection in
2008 which, along with monitoring its officers' actions, is
involved in developing anti-TIP policies. Officials from the MVD,
Prosecutor's Office, Ministry of Education, Ministry of Health, and
Ministry of Labor are also cooperating with NGOs in an ongoing
public information campaign to raise awareness. The government
continues to direct border guards at airports to give more scrutiny
to unaccompanied young women traveling to the UAE, Turkey, South
Korea, Malaysia, and Indonesia; it authorizes them to deny such
women permission to leave the country. Likewise, the Office of
Passports and Exit Visas under the MVD has ordered its officers to
scrutinize applications of young men and women traveling abroad for
work.


C. Government officials addressing the issue of trafficking must
cope with cultural taboos, corruption, lack of resources, and
poorly developed criminal investigative techniques. However,
progress has been made in overcoming cultural taboos in discussing
sexual trafficking, and officials at both the local and national
level now regularly address the topic publicly. In a recent
example of community outreach, MVD officers addressed university
students in Tashkent in December 2008. Despite concerns that mass
labor migration could reflect poorly on Uzbekistan's economic
conditions, officials now also admit labor trafficking is a
problem. Lack of funds greatly limits the government's ability to
address TIP, although Ministry of Interior officials have noted an
increase in manpower resources specifically devoted to countering
TIP. Even though officials have addressed the problem publicly,
they lack experience and expertise on combating TIP. However, this
is changing as a result of an ongoing project funded by the State
Department's Bureau of International Narcotics and Law Enforcement
Affairs (INL) and implemented by the key anti-TIP NGO in
Uzbekistan. More than 200 Uzbek law enforcement officials in all
12 provinces received training in 2007 and 2008, and NGOs have
already noticed increased knowledge about the issue among
rank-and-file officers and greater sensitivity towards victims.
The MVD reports that, nationwide, it has 120 officers working
specifically on TIP. This is projected to increase to between
160-180 officers in the near future, which police officials believe
should be sufficient. Localized corruption is believed to be a
problem but, in a positive development, state-run television has
aired two recent accounts of police officers being convicted for
TIP offenses and sentenced to seven year prison terms. Both held
considerable rank (one was a major and the other a lieutenant
colonel),which sends a powerful signal that the government will
crack down on law enforcement officers who commit TIP offenses.


D. (SBU) The national inter-agency commission established per the
new national action plan in 2008 will result in more systematic,
effective monitoring of government anti-TIP efforts. Increasingly,
government officials are publicly quoted in the state-run mass
media describing efforts to combat TIP. The government also
readily works with international organizations and NGOs on
monitoring its efforts; presently, OSCE is providing assistance in
developing identification and referral mechanisms for the planned
state-run shelter for victims, UNODC is working with the MVD to set
up a database, and IOM is administering a training program for law
enforcement officers throughout the country.

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


A. The Uzbekistan parliament adopted its first comprehensive TIP
legislation in March 2008 (signed into law in April 2008) and
subsequently enacted long-promised criminal code amendments in
September 2008. The law prohibits all crimes associated with
trafficking, including trafficking of minors, and provides for

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penalties ranging from a minimum of three to a maximum of 12 years
imprisonment. The new criminal code amendments established an
overhauled version of Article 135, which is now entitled
Trafficking in Persons and includes provisions addressing both
sexual and labor exploitation in both internal and transnational
contexts. Edits were also made to Chapter 8 of the criminal code,
which is now entitled "Exploitation of People." Related statutes
may still continue to play a role in TIP prosecutions as well,
including: Article 137 (Kidnapping); Article 138 (Forced Illegal
Imprisonment); Article 209 (Official Forgery); Article 210
(Reception of Bribe) and Article 211 (Giving of a Bribe). However,
the revised Article 135 provides a clear and direct tool for the
prosecution of TIP offenses. Soon after its adoption in September
2008 articles appeared in the state-controlled media demonstrating
that the new provisions were being immediately utilized. Press
accounts published almost daily also now routinely report
convictions and information about restitution that must be paid to
victims by traffickers, which was established this year according
to Article 13 of the new law. Previously, trafficking crimes
carried penalties of between five to eight years in prison.
However, under the recently adopted amendments to the criminal
code, maximum sentences increased to 12 years in the most serious
circumstances. MVD officials emphasized that these amendments are
critical to ensuring that flagrant traffickers are not amnestied
since amnesties are only possible for those convicted of crimes
carrying prison terms of less than ten years.


B. According to the criminal code amendments enacted in September
2008, sex trafficking offenses carry a minimum of three and a
maximum of 12 years in prison. Numerous press reports confirm that
offenders are indeed being punished with jail time and restitution
payments.


C. Labor trafficking is also specifically criminalized based on
the new legislation passed in 2008. As with sexual exploitation,
sentences range from three to 12 years imprisonment and courts were
quick to implement the new law and make examples of serious
offenders. Uzbekistan is a major source country, and stories of
deceptive labor recruiters promising poor Uzbeks lucrative jobs
overseas appear frequently in press articles. Fradulent
recruitment is specifically addressed in the revised Article 135
and specifies jail time.


D. According to Ministry of Justice officials, penalties for sexual
assault in Uzbekistan range from three to seven years imprisonment,
which is consistent with or less than the sentences typically meted
out for trafficking offenders under the strengthened criminal code.
Sexual assault of a person under 14 years of age is punishable by
15 to 20 years in prison. Sexual assault by multiple persons
carries up to 15 years.


E. As in 2007, the government again made significant efforts to
publicize trafficking prosecution statistics for 2008.
Significantly, articles announcing the prosecution of cases are now
regularly published in the state-controlled press. In October 2008
the Prosecutor General, speaking on behalf of the newly-created
national inter-agency TIP commission, conducted a press conference
and issued a public report on TIP statistics. Through the first
nine months of 2008, Uzbek law enforcement agencies opened 436
criminal cases. A total of 339 people were charged based on the
investigations, including 203 men and 136 women. This amounts to a
substantial increase from the 273 trafficking cases (involving 303
suspects) the government reported for the entire year in 2007. The
new legislation in March coupled with the strengthened criminal
code amendments in September 2008 makes it difficult to compare
statistics with previous years, yet government prosecution efforts
have certainly increased. In Uzbekistan, any case that proceeds
from the investigation phase to trial almost certainly results in a
guilty verdict. On February 13, 2009, the government provided data
indicating that during 2008 more than 600 persons were investigated
for TIP crimes, of which nearly 400 were prosecuted. Of those
prosecuted, nearly 300 were sentenced to prison terms, according to
the government. The October 2008 report from the Prosecutor
General also noted that 1,449 victims were affected by the 436
cases the government investigated, which included 1,283 men, 166

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women, and 28 minors. Official year-end statistics provided by the
government on February 13, 2009 indicate there were 2,941 victims,
including 2,617 men and 324 women (the total also includes 65
minors). MVD officials reported to the embassy in February 2009
that a total of 670 investigations were conducted during 2008.
Press articles, television stories, and radio ads frequently focus
on prosecution of individuals who recruit victims with fraudulent
offers of lucrative employment abroad. The World Bank estimates
that up to three million Uzbek citizens are working abroad; hence,
fraudulent recruitment hits home and offenders are vilified in the
press and duly prosecuted.

Many convicted traffickers have not served complete sentences but
have been amnestied. Amnesties are common in the Uzbek criminal
justice system for those with prison terms of less than ten years,
especially for women in accordance with strong Uzbek cultural
beliefs. However, during 2008 the maximum prison sentence for TIP
offenses was increased from eight to 12 years imprisonment, which
means the most egregious offenders will no longer even be eligible
to receive amnesty. Ministry of Justice officials also stress that
amnesty is not automatic and is only possible for first-time
offenders. Officials claim that, in the past five years since they
tracked the data, there have been no known recidivists. There is
also anecdotal evidence from former inmates who spoke with embassy
officers during the reporting period that traffickers are no longer
receiving amnesties due to the strong international attention to
the issue. On February 13, 2009 the government reported that in
2008 a total of 164 persons convicted of TIP offenses were given
amnesty and 13 were released from correction camps. Sometimes
amnesties are granted immediately upon expressing remorse to the
court and others are granted on a large-scale in conjunction with
important national holidays or milestones, so it is difficult to
determine how much of the sentence is served before an amnesty is
applied.


F. The government typically lacks resources and skills to provide
extensive training; however in February 2008 the Deputy Minister of
Internal Affairs emphasized that more training has recently been
added to the curriculum for young officers at the training academy
and additional courses are being developed in response to this
recent challenge. As of February 2009 the MVD also noted it was
developing textbooks for use not only by its officers but also by
practicing attorneys and universities throughout the country. The
MVD expressed its appreciation for ongoing training programs
provided by the United States (through the State Department's INL
Bureau and the Embassy's Democracy Commission Grants) and NGOs
(especially the IOM-affiliated group Istiqbolli Avlod, which is
implementing a multi-year INL program). In 2008, Istiqbolli Avlod
conducted 14 training events for law enforcement officials
throughout Uzbekistan involving more than 500 officers from MVD
Units for Fighting Crimes Related to Recruitment of Persons for the
Purpose of Exploitation, Units for Entry-Exit and Citizenship,
Crime Prevention Units, and civilian stakeholders. The General
Prosecutor's Office publicly cited these training sessions as
contributing to a marked increase in the government's ability to
detect trafficking crimes from complaints. The network of
trafficking NGOs consistently reported increased awareness among
law enforcement personnel to the problem and greater sensitivity
towards victims as a result of these training sessions. In
September 2008 the main anti-TIP NGO reported that MVD officers are
now unilaterally calling up the shelter looking for leads on cases
and encouraging victims to file complaints.

In addition, various international organizations are also providing
training on counter-TIP to Uzbek law enforcement officials. UNODC
launched a new anti-TIP program in March 2008 that includes
training for law enforcement officers as well as the procurement
and installation of sophisticated computer equipment to establish a
real-time TIP database for the MVD. The OSCE is helping the
government to develop an appropriate identification and referral
mechanism to facilitate the effective administration of the planned
new state-run shelter for TIP victims. The national action plan
adopted in 2008 specifically called on the government to learn from
the experience of the international community, which indicates the
GOU will remain receptive to outside assistance on this issue.

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G. The government has cooperative relationships and agreements
with several countries and is party to the Minsk Convention. The
government works closely with Interpol Tashkent on combating TIP.
The GOU readily acknowledges that it needs more cooperative
relationships and agreements with countries of destination in order
to more effectively prosecute trafficking. MVD officers have
expressed strong interest in strengthening their relations with
counterparts in Russia, Kazakhstan, and the UAE. In the next phase
of an ongoing INL-funded program, IOM plans to organize meetings to
help build these connections in 2009. UNODC's project will also
have a regional component. Police officers from several
destination countries participated in an UNODC/OSCE anti-TIP
workshop held in Tashkent in May 2008, and MVD officers
subsequently reported in September 2008 that they had stayed in
touch with their counterparts abroad and were informally exchanging
information about cases involving Uzbek nationals.


H. There are no known requests for extradition of accused
traffickers from Uzbekistan. The Government has extradition
agreements with several countries. The Government may extradite
its citizens to another country if there is a bilateral extradition
treaty in place. In December 2008 the Russian news agency
ITAR-TASS reported that an Uzbek national arrested in Irkutsk was
wanted for TIP offenses by Uzbekistan and will be extradited.


I. The government is not tolerant of trafficking and, on the
contrary, Uzbekistan seems to be highlighting anti-TIP efforts as
one of its marquee human rights achievements. With up to three
million of its citizens working abroad to make ends meet, TIP is an
issue which resonates with the populace. NGOs have obtained
anecdotal information regarding low level, local corruption usually
involving forged or fake travel documents or marriage certificates.
Following Senate action on June 27, 2008 to pass a law adopting the
UN Convention Against Corruption, President Karimov signed it into
law on July 8, 2008.


J. There is no evidence of direct government involvement in
trafficking. However, some government employees may have accepted
bribes from traffickers to facilitate their operations. State-run
television aired a story on December 20, 2008 reporting that a
police Major was convicted and sentenced to seven years in jail for
trafficking 28 fellow Uzbeks to Russia. On January 27, as part of
a five-part television series entitled "The Fate of the Deceived
People," it was reported that a police Lieutenant Colonel was also
convicted and sentenced to seven years in prison for trafficking 10
Uzbek nationals to Russia. This is significant in a country which
is reluctant to acknowledge corruption, and the seniority of the
accused demonstrate that the government is willing to go after
those in its own ranks. In April 2007, the local press also
reported that a Lieutenant Colonel working as an investigator at
the Ministry of Internal Affairs branch at Tashkent Airport was
sentenced to ten years in prison for demanding a $500 bribe from a
repatriated victim of trafficking. According to unconfirmed
information from NGOs, local officials have also falsified or sold
travel documents in the past. These allegations usually involve
the issuance of exit visas. In February 2008 a full-page article
appeared in a prominent state-controlled newspaper describing a
trafficking-in-persons case. In a frank admission of local-level
corruption, the article noted that a trafficking conspirator
quickly obtained travel documents and permits for a female victim
that could only have been possible with the help of "connections."
The Deputy Minister of Internal Affairs said that local level
passport officials have been given specific instructions to
carefully analyze suspicious travel plans, especially among
first-time applicants.


K. According to the Uzbek Criminal Code, prostitution per se is not
criminalized. It is illegal according to the Code of Administrative
Responsibility and carries fines from one to five times the
official minimum wage of approximately USD 20. However, owning and
operating brothels, as well as pimping, are criminalized. Illegal
brothels do operate in Uzbekistan, but not openly.


L. Uzbekistan does not contribute troops to international

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peace-keeping efforts.


M. Uzbekistan does not have an identified child sex tourism
problem. It is difficult for individual tourist visitors to obtain
tourist visas and, if they do and visit Uzbekistan, there are
onerous registration requirements once in the country. Flights to
Uzbekistan are also expensive and sporadic, and a strong cultural
emphasis on family honor make it an unlikely child sex tourism
destination. In January 2009, Uzbekistan cooperated with the
United States in the extradition of a wanted pedophile via
Interpol.

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


A. New legislation in March 2008 greatly expanded the range of
protection that the government can provide for victims, including
legal assistance, medical and psychologic care, professional
development programs, employment assistance, and the provision of
temporary housing. The law mandated that such assistance be
provided by the government from the state budget, but it is still
unclear how effectively this will be implemented. On November 5,
2008, President Karimov issued a resolution tasking the Ministry of
Labor with the creation and administration of a new 30-bed shelter
for TIP victims that will also offer social services with a staff
of 20. The Ministry of Justice reported in February 2009 that the
shelter will be officially launched in the first quarter of 2009.
An NGO worker who was invited to tour the building confirmed that a
lot of resources had obviously been invested in remodeling the
building; however, there are concerns that there will be growing
pains since the government is new to the business of directly
rehabilitating TIP victims. The government reported on February
13, 2009 that it has already invested USD 176,000 in capital
renovations to the shelter facility. The shelter will serve men,
women, and children in separate spaces within the same building.
The Ministry of Justice also confirmed that there are long-term
plans to open additional shelters outside of Tashkent as part of
efforts to implement the national action plan.


B. There are two existing shelters in Uzbekistan that support
trafficking victims, one in the capital Tashkent and one in
Bukhara. Both are currently funded by USAID and operated by IOM
through the local NGO Istiqbolli Avlod. USAID is funding a
two-year, USD 600,000 TIP project that includes support for the
shelters, hotlines, and other outreach activities. The shelters
cater to women and there is no specialized care available for male
victims. The shelters do sometimes assist minors who have been
repatriated to Uzbekistan. According to the 2008 law, children
will be accommodated in shelter space separately from adults and
provided access to educational institutions. The Foreign Ministry
assists victims in returning to Uzbekistan from abroad by providing
passports or travel documents at no cost to stranded victims.
Foreign victims are extremely rare in Uzbekistan and there is no
special program to assist them; however, President Karimov noted in
his November 2008 resolution that the planned new state-run shelter
will be open to all nationalities. Airport police contact a
women's NGO in Tashkent when they identify suspected trafficking
victims or in cases of the return of known female deportees from
abroad. The Tashkent shelter has housed 344 victims since it
opened in 2004, including 58 in 2008. It also offers legal,
psychological, medical, and career development assistance to
victims. The Bukhara shelter has served 93 victims since opening
during 2006, including 34 in 2008. NGOs describe an urgent need
for additional victim shelters in the remote northwest Autonomous
Republic of Karakalpakstan, as well as in the Ferghana Valley.


C. The Government lacks funding for widespread support for victims,
although the 2008 national action plan tasked provincial governors
with providing treatment, employment, and other reintegration
opportunities for returned traffickers. It is unlikely that such
efforts are extensive thus far, but each of the twelve provinces
plus Tashkent City have convened their local inter-agency
commissions. There was no funding support provided to
international NGOs, although the government has supported awareness

TASHKENT 00000196 010 OF 015



campaigns conducted by local NGOs and neighborhood-level groups
with free air time on television and radio for advertisements. On
February 13, 2009 the government for the first time provided
statistics about the number of victims it assisted during 2008,
including psychological help for 123 victims; medical care for 164
victims; legal assistance for 149 victims; vocational training
courses for 32 victims; employment assistance for 47 victims; and
social assistance for 92 victims. These statistics may reflect
joint efforts with NGOs and may not represent a purely governmental
effort, but it is significant that the government - in accordance
with the national action plan - is now thinking about and tracking
assistance rendered to victims.


D. Uzbekistan is mainly a source country for trafficking and NGOs
have reported no foreign trafficking victims who ended up in
Uzbekistan in 2008. A strict visa regime - even for transit
passengers - and inconvenient, expensive flight networks also make
Uzbekistan an impractical transit point. Nonetheless, per
President Karimov's November resolution, the new state-run shelter
for trafficking victims will be open to all nationalities for a
typical projected stay of 30 days, including access to medical and
rehabilitation services. It is unlikely that any permanent
residency status would be granted to foreign trafficking victims.


E. The national action plan adopted in 2008 commits the government
to providing shelter support from the state budget. President
Karimov issued a resolution in November 2008 tasking the Ministry
of Labor with establishing a shelter that will typically assist
victims for 30 days; however, extensions of up to 90 days may be
authorized. The shelter is expected to open in the first quarter
of 2009 in Tashkent, with additional shelters in provincial cities
planned for the future. Local governors (hokims) are tasked by the
new legislation and national action plan with providing local
support, including housing and employment assistance, for returned
victims.


F. There is no operational referral process in place yet, although
OSCE is currently implementing a project to train government
officials in effective identification and referral techniques.


G. IOM via its affiliated local NGO Istiqbolli Avlod registered
529 cases of trafficking during 2008, including 343 female victims
and 186 males. Of these 529 cases, 46 involved minors (11 minor
boys trafficked for labor exploitation and 35 minor girls for
sexual exploitation). One of the 46 minor victims was trafficked
internally from Surkhandaryo Province to Tashkent for sexual
exploitation. IOM through Istiqbolli Avlod provided repatriation
and other assistance to 308 victims (255 female and 53 male),who
were trafficked for sexual and/or labor exploitation. The
Prosecutor General, as chair of the government's national
inter-agency TIP commission, publicly reported that the government
identified 1,449 victims through the first nine months of 2008
(1,283 men, 166 women, and 28 minors). In February 2009 official
government data for 2008 reported 2,941 victims, including 2,617
men and 324 women (65 victims were minors). Istiqbolli Avlod
reported that law enforcement officers increasingly refer
individual cases to them, although there is not a developed system
for referring victims to care facilities. The 2008 legislation and
subsequent national action plan committed the government to provide
more assistance to victims, but government ministries under the
direction of the national inter-agency TIP commission are still
developing implementation plans. The NGO Istiqbolli Avlod ("Future
Generation"),as well as IOM, are in regular contact with Consular
and airport officials regarding returning TIP victims. As a result
of improved government cooperation and sensitivity, their staffs
are regularly allowed into restricted areas to greet and assist
returning victims. IOM officials are also in regular contact with
Uzbek consular officials in the UAE, Thailand, Turkey, Malaysia and
China. NGOs have reported improved cooperation from the Uzbek
Ministry of Foreign Affairs through its consular missions abroad in
providing timely documents, although the response varies by post.
A network of nine USAID-funded hotlines received 16,696 calls in
fiscal year 2008.


H. Law enforcement officers have been exposed to training in

TASHKENT 00000196 011 OF 015



recent years to proactively identify victims of trafficking among
high-risk persons with whom they come into contact; however, the
government has regularly cited a need for additional training.
Airport authorities at the main international airport in Tashkent
have had specific instructions to be on the lookout for potential
TIP victims. We have repeatedly heard from NGOs that airport
authorities have become tougher on Uzbek citizen travelers and as a
result alternate airports in Kazakhstan and Kyrgyzstan were used as
alternative gateways. There are no known foreign sex workers in
the country due to strict visa regimes, onerous registration
procedures, and a poor economy. Prostitution is illegal under the
Code on Administrative Responsibility and entails fines from one to
five times the official minimum wage of approximately USD 20.
Uzbek law also prohibits brothels and pimping, and illegal brothel
operations are small and localized.


I. Uzbekistan has increasingly respected the rights of TIP
victims. NGOs reported that, as a result of training programs,
investigating officers are more sensitive to victims compared to
previous years, when the prevailing attitude was that they "got
what they deserved." Furthermore, authorities have started to
permit attorneys who work with the NGOs to sit in on depositions,
which substantially increases victims' comfort level in
participating in investigations and reminds officers to be
considerate. Nonetheless, during a visit to the trafficking
shelter in Tashkent, an NGO official noted that a majority of the
victims present were too ashamed, emotional, or frightened to
cooperate with police requests to assist in investigations.
Trafficking victims are not jailed or prosecuted upon their return
to Uzbekistan, and the 2008 law states that TIP victims shall be
free from civil, administrative, and criminal responsibility for
actions committed under duress or threat. Upon arrival,
repatriated victims are typically allowed a few days to rest before
filing police reports. The Prosecutor's Office and the MVD have
reported that they recognize the importance of not treating victims
as criminals, and one high-level official noted that "it would just
make a bad situation worse." Provincial governments were tasked in
the 2008 national action plan to form local inter-agency committees
to develop and implement measures to support victims upon their
return to Uzbekistan.


J. The government now encourages victims to give statements and
assist with investigations. MVD officials have made clear that
voluntary cooperation of victims is critical to building
trafficking cases. Victims may seek civil redress, file civil
suits, and/or seek legal action against traffickers. Per the 2008
law there are new provisions for victim restitution, which we have
regularly seen described in frequent press reports highlighting
convictions. There are no formal programs in place to effectively
protect victims who might be material witnesses.


K. According to the Deputy Minister of Internal Affairs, the
Government has tried to improve training to recognize trafficking
victims, especially to young officers studying in the training
academy. The chief of the MVD's anti-TIP unit added that they are
still responding to the recent challenges posed by this "young
crime." The Government regularly provided in-kind contributions
for training, such as venues and transportation for NGO
representatives. IOM officials speak with Uzbek Consuls abroad at
least once a week.


L. The Government provides little financial assistance to
repatriated nationals who are victims of trafficking. The
government does, however, assist victims in returning to
Uzbekistan. According to Uzbek law, girls under the age of 18
qualify for assistance during repatriation, but the sums are small.
The 2008 law and subsequent national action plan requires that the
government provide shelter and other reintegration support from the
state budget.


M. NGOs working with trafficking victims include IOM, which
operates through its local affiliated NGO Istiqbolli Avlod. This
NGO in turn has a network of 10 regional NGOs around the country.
According to 2008 data, IOM provided airfare and other assistance
to return 308 victims to Uzbekistan from various countries and had

TASHKENT 00000196 012 OF 015



registered 529 trafficking cases involving Uzbek victims. This is
a reduction from 659 cases in 2007, which the NGO believes is a
positive sign and the result of greater government involvement in
facilitating assistance for its citizens. The NGO also welcomed
that the government tracked considerably more cases (1,449 cases
through the first nine months of 2008) than IOM, which demonstrates
that it is paying greater attention to the issue and earning the
confidence of its citizens. With USAID support, IOM provides two
shelters for victims staffed by a full-time doctor and psychologist
and part-time trainers to assist them in their repatriation. The
Tashkent shelter has assisted 344 victims since opening in 2004,
and the Bukhara shelter has assisted 93 victims since its 2006
opening. The Embassy Democracy Commission also supported
counter-TIP projects through local media outlets and NGOs.
Cooperation between local NGOs and the local authorities remains
strong; IOM and other TIP-focused NGOs are in close, regular
contact with GOU officials, meeting returning victims at the
airport and assisting them with their readjustment.

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


A. Building on an upward trend in 2007, in 2008 the embassy
tracked a significant increase in newspaper articles, television
programs, and radio shows discussing trafficking in persons. In
previous years, the embassy regarded the appearance of even a
single story in the mass media on TIP as noteworthy and reported it
via front channel telegram. In the last half of 2008 stories in
the state-controlled press now appear on a daily basis. During the
first part of this reporting period until the passage of the
criminal code amendments in September, a study by poloff revealed
65 TIP-related articles in various Uzbek newspapers and
publications that the embassy receives. Between September 2008 and
the February 2009 reporting deadline, poloff tracked an additional
118 TIP-related articles in the Uzbek state-controlled mass media,
for a total of 183 known articles during the reporting period.
Furthermore, the embassy Public Affairs Section tracked 32
television stories focusing on TIP, and all channels are subject to
state control. Many of these television segments were of 20-30
minutes in duration, including in-depth case studies meant as
cautionary tales to potential victims and prosecution information
meant as a warning to would-be offenders. Some television
broadcasts were linked, including a five-part series entitled "The
Fate of Deceived People," which aired its most recent segment on
February 10. Significantly, after the adoption of stronger
criminal penalties on September 16, 2008, press stories about TIP
increasingly mentioned convictions. According to embassy research,
only three in the reporting period prior to this date mentioned
convictions, wheras there have been 25 media stories about TIP
cases since then that describe convictions and jail terms. This
reflects an important effort by the government to get the word out
that the laws now have teeth. On February 16, 2009 a prominent
article ran in a government-issued newspaper about poloff's meeting
with MVD officials to collect information for this submission.

The government also reported that MVD officers participated in 184
radio programs to raise awareness about TIP in 2007 and that 793
television segments were aired throughout the country that year.
Ministry of Foreign Affairs representatives attended an
embassy-sponsored screening of an American TIP-themed film in the
summer of 2007 and expressed interest in broadcasting it on Uzbek
national television (however, the Department reported that the U.S.
producer would not grant broadcast rights). However, the Embassy
received permission to distribute copies of the film to NGOs
throughout the country, which are using it in local in-house
awareness-raising efforts. The MVD reported on February 10, 2009
that it is working in conjunction with the state-run film agency on
developing a major motion picture in the Uzbek language focusing on
TIP. On September 27, 2008, a theater production debuted at the
National Academic Drama Theater entitled "Bitter Repentance," which
the theater produced in conjunction with the Tashkent City
Prosecutor's Office and Tashkent City Court. Religious leaders in
Jizzak Province have also been trained to speak out against
trafficking in persons. Imams have mentioned the dangers of

TASHKENT 00000196 013 OF 015



trafficking during Friday prayers, which are subject to state
approval in Uzbekistan.

In addition to press efforts, the government has sponsored large
banners highlighting TIP which span busy roadways as well as
prominent billboards in major urban areas. The Government likewise
cooperated with NGOs and allowed them to place posters warning
about the dangers of TIP on public buses, passport offices, in
subway cars, and Uzbek consular sections abroad. USAID also
provided funding support for these public informational campaigns.
The Government has likewise paid to translate these posters into
the Karakalpak language and distribute them for those living in the
westernmost region of Uzbekistan. The Government permitted NGOs to
advertise nine USAID-supported regional TIP hotlines operated by
IOM on local television stations. As a result of these awareness
campaigns, the hotlines received a total of 16,696 calls during
2008, which is a decrease from 2007 statistics. The IOM-affiliated
anti-TIP NGO noted, however, that greater public awareness has
reduced the number of basic and unrelated calls, thereby allowing
the NGO to concentrate more on helping those with pressing TIP
needs and complaints. The GOU also jointly runs awareness programs
in schools and colleges. Many schools have cooperated with a local
NGO to hold summer camps on raising awareness of trafficking.

The embassy Democracy Commission Small Grants supported projects
with local NGOs and media outlets to combat human trafficking. A
Tashkent-based independent weekly newspaper published a series of
articles on human trafficking and domestic violence. A prominent
radio journalist developed a radio soap opera called "The Trapped"
about the dangers of human trafficking, which received over 2,400
minutes of air time in multiple segments. A leading Uzbek radio
station, which reaches 87 percent of Uzbekistan's territory, aired
12 weekly radio programs on gender issues, women's role in civil
society, women's entrepreneurship, and leadership which featured
success stories of women business leaders. The station has
received over 1,500 phone calls from interested listeners. The
program enhanced economic independence of women to help them be
less susceptible to human traffickers and better able to escape
abusive situations. A human rights NGO also established a legal
assistance center to provide free legal consultations for the
general public, to raise awareness of human rights issues through
monitoring and reporting, conducting advocacy on individual human
rights cases, and in creating a safer and stronger human rights
defenders' community in Uzbekistan.


B. Uzbekistan carefully monitors the whereabouts of its citizens
within the country, but it does not have extensive records of
actual outmigration. However, all citizens wishing to depart the
country (with the exception of some CIS countries, including
Kazakhstan) must obtain an exit permit stamp in their passports.
MVD officials note that next-generation passport technology will
improve its capacity to track migration data. Uzbekistan will
start rolling out new biometric passports in 2008 and intends to
complete the project by 2011, when a majority of old passports are
scheduled to expire. There are resources budgeted to provide the
necessary data collection equipment to all border posts as part of
a multi-year project. Border guards have been instructed to screen
for trafficking victims at key exit points. The State Customs
Committee, whose officers are in a position to identify outbound
trafficking victims, has requested training for its officers from
IOM. Authorities have reportedly been very successful at Tashkent
Airport, but the large number of northbound migrants crossing the
land borders with Kazakhstan make it difficult for authorities to
identify potential trafficking victims.


C. Pursuant to new 2008 anti-TIP legislation a national action
plan was adopted on July 25 covering the period of 2008-2010. The
national action plan called for the creation of an inter-agency
anti-TIP commission, which immediately convened its first meeting
under the chairmanship of the Prime Minister. Other cabinet-level
representatives from key ministries are part of the inter-agency
commission, which should make it easy to promptly implement key
recommendations. The national action plan also called for the
establishment of local inter-agency anti-TIP commissions to be
chaired by the hokims (governors) of each of the 12 provinces. By

TASHKENT 00000196 014 OF 015



the end of September 2008 each province had convened its initial
meeting and began to discuss how it would fulfill tasks to prevent
TIP and assist victims. The Ministry of Internal Affairs is mainly
responsible for day-to-day anti-TIP activities within the country,
and it does have a special unit which coordinates the ministry's
activities throughout the country. On a multilateral basis a
Central Asia Regional Information Center (CARICC) was established
in late 2007 which, despite its counter-narcotics focus, is
expected to facilitate anti-TIP cooperation between law enforcement
agencies in the region. UNODC also launched a TIP project in 2008
that will include regional coordination elements in Central Asia.


D. The Government adopted its first ever national action plan on
TIP on July 25, 2008, which covers the period from 2008-2010. The
MVD, NSS, MFA, Ministry of Labor, Ministry of Health, Supreme
Court, Ministry of Education, General Prosecutor's Office, and NGOs
were involved in its development. The first key step in
implementing the national action plan was the establishment of the
national inter-agency anti-TIP commission, which has conducted
high-profile meetings and released statistics. It also helped lay
the groundwork for a new state-run shelter for TIP victims, which
will be administered by the Ministry of Labor. The government did
consult with the main IOM-affiliated anti-TIP NGO in the process of
developing the draft version of the national action plan.


E. Uzbekistan is overwhelmingly a source country for TIP and is
focused on preventing its citizens from becoming victims abroad.
Therefore, it has not directed efforts to reducing the demand for
commercial sex acts. Intensive efforts to raise general awareness
of the problem do, however, serve the dual-purpose of informing
commercial sex clients in the country of the terrible circumstances
TIP victims may face.


F. As a primarily source country, Uzbekistan is focusing its
efforts on reducing the number of Uzbek nationals trafficked abroad
rather than on its nationals who may be engaging in international
child sex tourism. A robust public awareness campaign in the
state-controlled mass media has drawn substantial attention to the
issue during the past year. Uzbekistan also controls the departure
of its citizens by requiring exit visas from the Ministry of
Internal Affairs and would be in a position to stop known or wanted
offenders from traveling overseas.


G. Not applicable - Uzbekistan does not currently have any forces
deployed as part of international peacekeeping efforts.

--------------
TIP Heroes
--------------

A. Post is pleased to nominate Ms. Liliya Khamzaeva as an
anti-trafficking hero for inclusion in the 2008 report. Ms.
Khamzaeva has worked as the Program Assistant at the Uzbek NGO
Istiqbolli Avlod for more than five years and has been instrumental
in raising the profile of the trafficking in persons issue in
Uzbekistan and providing direct assistance to victims. Ms.
Khamzaeva, who speaks fluent English, has worked tirelessly to
liaise with international organizations and prepare documentation
for Uzbek trafficking victims to return from abroad. Istiqbolli
Avlod, in parternship with IOM, helps victims to return from
abroad, provides shelter and support services, and conducts
awareness campaigns for the general public and government
officials. Ms. Khamzaeva contributed to a successful INL-funded
project that provided trained for more than 500 law enforcement
officers and other stakeholders in 14 sessions around the country
in 2008, which high-ranking government officials already
acknowledged had an immediate impact on field-level law enforcement
effectiveness in the struggle against trafficking. She traveled to
the United States in 2007 as part of an International Visitors
Program which focused on anti-trafficking, and she has applied her
experience abroad to develop new strategies and proposals which
will diversify the NGO's activities. Ms. Khamzaeva is highly
dedicated to her work and is a valuable resource in a country that
has only recently begun to grasp the seriousness of the human
trafficking problem.

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--------------
Best Practices
--------------

The Uzbek NGO Istiqbolli Avlod has been at the forefront of efforts
to address the trafficking in persons problem in Uzbekistan. The
number one destination for female victims of sexual exploitation is
the United Arab Emirates (UAE); many victims violate visa and
immigration requirements and end up incarcerated and too afraid to
even acknowledge their nationality. Officials from Istiqbolli
Avlod began making multiple trips to the UAE each year to build
connections with local authorities and directly identify Uzbek
victims in detention facilities. NGO staff reach out to victims in
their native languages (Uzbek or Russian) and provide assurances
that they will help them expeditiously return home without serious
legal consequences. This has in turn placed more burden on the
only two shelters in the country but has resulted in more victims
obtaining assistance. The NGO staff has also worked hard to
establish relationships with Uzbek consular staff in the UAE and
officials at the airport in Tashkent to help get victims home as
efficiently as possible. In September 2008, the Director informed
us that her outreach had confirmed 41 women were presently
incarcerated in Emerati jails. By February 10, 2009, she reported
that a majority of these women had now been repatriated. This
innovative approach to use source country cultural and language
expertise to identify and reach out to victims in the destination
country could be a useful model for anti-trafficking organizations
in other parts of the world.
NORLAND

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