Human Trafficking Back on UNODC's Agenda

UNCLAS UNVIE VIENNA 000146 SENSITIVE SIPDIS STATE FOR G/TIP AND R E.O. 12958: N/A TAGS: PHUM KWMN PREF SMIG KCRM UN KTIP SUBJECT: Human Trafficking Back on UNODC's Agenda Ref: (A) 08 UNVIE VIENNA 00149, (B) 08 UNVIE VIENNA 00150, (C) 08 UNVIE VIENNA 00416 -------------- SUMMARY -------------- ¶1. (SBU) Following a busy and difficult year for anti-human trafficking issues in Vienna in 2008, the UN Office on Drugs and Crme (UNODC) is taking measures to improve and focus its activities. UNODC has formulated a draft thematic program to fight human trafficking and consolidated the UN.GIFT (Global Initiative to Fight Trafficking) program into its broader anti-human trafficking activities. UNODC management now seems dedicated to technical assistance, as opposed to high-profile awareness campaigns (e.g., the February 2008 Vienna Forum, Refs A and B),and has a strong desire to see anti-trafficking initiatives originate in Vienna rather than New York. UNODC also launched the "Blue Heart" campaign in March to raise awareness on human trafficking. UNODC is becoming a more effective and influential player in global efforts against human trafficking. UNODC is enthusiastic about the nomination of Luis de Baca as Ambassador at large since he is known in Vienna from his past visits as a technical expert. Mission recommends Washington consider providing political and financial support to its efforts. End Summary. -------------- Addressing a Fragmented Bureaucracy -------------- ¶2. (SBU) According to various UNODC interlocutors, UNODC is slowly addressing past concerns regarding competing human trafficking offices within the organization. As currently structured, UNODC's Division of Operations (charged with providing donor-funded technical assistance projects) has two related units: the UN Global Initiative to Fight Trafficking (UN.GIFT) Unit, and the Anti-Trafficking and Migrant Smuggling (ATMS) Unit, both of which are under the DO's Section of Governance, Human Security and Rule of Law (GHSRL). However, the two units have not always coordinated their activities. Based on a decision approved by the Executive Committee in late 2008, these two units will soon merge into one. Under a further reorganization, this merged office is likely to move into UNODC's legal division, which is appropriate given the treaty basis of UNODC's trafficking efforts. Various sources have confirmed that Doris Buddenberg, a longtime field officer for UNODC, and most recently head of the UN.GIFT program, as the person likely to head up this new merged unit. (Note: Buddenberg is a D-1, while the head of the GHSRL section is a P-5. She has just returned from a months-long leave without pay. End Note.) While it remains to be seen how well the merger actually unfolds, the fact that UNODC recognizes the need for a more coherent managerial arrangement is promising. -------------- Moving to Technical Assistance -------------- ¶3. (SBU) Under the leadership of Buddenberg, we expect the new consolidated unit to focus more heavily on technical assistance, as opposed to outreach and awareness activities that have caused some concern to us in the past. UN.GIFT (REF C),started in 2007 with a $15 million donation from UAE, was originally devoted primarily to awareness raising and public relations campaigns. The planning and hosting of the multi-million dollar "Vienna Forum" in February 2008 was viewed by many delegations as a symbol of UN.GIFT's disconnect with the desire of Member States to receive more technical assistance and training, as well as with broader UN efforts. This was compounded when UNODC Executive Director Costa unilaterally unveiled his plans to develop UN "brands" for anti-corruption (UN.GRACE) and anti-firearms trafficking (UN.ARMS) activities. ¶4. (SBU) An April 2008 backlash by Member States ultimately led to the abandonment of UN.GRACE and UN.ARMS. Buddenberg tells us that this pressure from Member States, and perhaps the UN.GIFT unit's own evolution of thinking on the issue, led UN.GIFT to shift its emphasis from flashy awareness campaigns to technical assistance. She stated privately and unambiguously that she disagrees with the grandiose public outreach ambitions of Executive Director Costa. ¶5. (SBU) The UN.GIFT unit has since developed "joint programs" for seven pilot countries/regions: Pakistan, Serbia, Haiti, Bolivia/Argentina, East Africa, Egypt and Central Asia. These "joint programs" seek to involve a number of UN.GIFT steering committee partners in preparing needs assessments and following up with needed technical assistance. As evidence of this shift in emphasis, Buddenberg states that while the remaining money (estimated to be around $6 million) in UN.GIFT's coffers should not be seen as "start-up capital" for these joint programs, she is willing to deploy it to promising programs as a short-term financial bridge, while their fundraising efforts are still getting off the ground. Finally, and promisingly from a treaty implementation/technical assistance perspective, UN.GIFT is developing different guidelines for member states, such as those developed with ILO on child trafficking and with IOM on victims. Such collaboration with other UN partners reflects an attempt to be more cost-effective, operational and ultimately effective in the mission to fight human trafficking. ¶6. (SBU) UNODC's ATMS unit has traditionally been much more involved in technical assistance projects, but it has been hampered by a lack of strategic thinking and a coordinated strategy. ATMS is primarily focused on building capacity of member states to implement the Trafficking in Persons (TIP) Protocol of the UN Convention against Transorganized Crime (UNTOC). The unit has contributed to UN.GIFT work, but because most of its earmarked funding comes from Canada and the European Commission, they are more focused on migrant smuggling issues. Buddenberg says she intends to strengthen their focus on TIP issues. -------------- Stressing the Importance of the TIP Protocol -------------- ¶7. (SBU) In addition to the imminent merger of the UN.GIFT and ATMS sections into one coherent office, UNODC's draft thematic program on TIP is also cause for optimism. In the first instance, it is oriented around implementation of the TIP protocol. In order to do so, the program lays out seven areas for the provision of technical assistance by the Office to member states, with a particular focus on criminal justice responses: legislative assistance; strategic planning and policy development; data collection and research; criminal justice system responses; victim protection and support; international cooperation; and, prevention and awareness raising. By refocusing its efforts on the protocol-and by extension, those of the Member States-UNODC is correctly identifying where its value added lies. (Note: Missionoff acquired a copy of the draft thematic debate, which has not yet been distributed to Member States and is awaiting final approval by ED Costa. Mission will email a copy to IO/T, INL/PC and G/TIP. End Note.) ¶8. (SBU) Both Buddenberg and Rikka Puttonen, an experienced criminal justice official and current head of the ATMS unit, have expressed their view that promoting implementation of the TIP Protocol should be the major focus of UNODC's - and even UN's - TIP activities. To this end, Buddenberg has pledged to increase cooperation between the new TIP unit and the Organized Crime and Criminal Justice Section of UNODC's Division of Treaty Affairs (DTA),which oversees treaty-based-activities and has been focused heavily on developing model laws and policies to promote implementation of the TIP Protocol. -------------- Vienna as the Center -------------- ¶9. (SBU) Buddenberg is also concerned about UN TIP policies coming out of New York, at the expense of UNODC's work. Buddenberg, Puttonen and others believe that Vienna is where UN TIP projects and statements should originate. However, Buddenberg states, Costa and others at the "highest level" have determined that TIP initiatives are more effectively advanced in New York. Nevertheless, Buddenberg believes UNODC can take the lead again, and that Costa may be supportive, but it needs political will and financial assistance. Specifically, Buddenberg is concerned about the possibility of a Global Plan of Action coming out of New York. If it calls for action plans and strategies, she is concerned that UNODC would be sucked into servicing those mandates at the expense of what she sees the real value added of UNODC-servicing UNTOC and the TIP Protocol, and carrying out technical assistance projects. -------------- Blue Heart Campaign -------------- ¶10. (SBU) In a separate conversation with Alun Jones, UNODC's Chief of Communication and Advocacy, Missionoffs learned about the Blue Heart campaign launched by UNODC Executive Director Antonio Costa at the Women's World Awards in Vienna in March 2009. Jones said the international campaign aims to raise awareness and bring people together to fight human trafficking. The campaign uses the Blue Heart to symbolize the sadness of those who are trafficked, while reminding us of the cold-heartedness of those who buy and sell fellow human beings. The use of the blue UN color also demonstrates the commitment of the United Nations to combating this crime against human dignity. UNODC intends to treat this as grassroots campaign that gains momentum using the web and new media outlets like facebook and other social networking sites. According to Jones, UNODC seeks co-operation with other entities, organizations, and governments through the campaign. UNODC's ultimate goal is to make the Blue Heart a common and shared symbol like the red ribbon for AIDS. Jones said a high-level U.S. endorsement of the campaign and display on the U.S. Mission website would be "very much appreciated." -------------- Comment -------------- ¶11. (SBU) Like many governance and finance issues surrounding the UNODC, human trafficking-related activities have suffered from a lack of administrative coherence and strategic vision, and from a top leadership that views public visibility as a primary indicator of success. UN.GIFT was only the latest example. However, we are encouraged by UNODC's latest direction on this issue. The thematic program against human-trafficking, along with the merger of DO's two units, reveal at least the desire to become more efficient and to better deliver technical assistance. Buddenberg, as evident in the proposals for the thematic programs, identifies the TIP Protocol as the central organizing principle of any UNODC anti-trafficking initiative, but at the same time identifies the need for victim protection and support and prevention. The thematic program is well-balanced in its goals, and responsive to U.S. hopes that UNODC be focused in its efforts, outcome oriented, financially and administratively efficient, and comprehensive in its understanding of the challenge. Finally, Buddenberg's and her colleagues' concerns about events in New York have spurred them to reclaim their TIP mandate. It will be important that Buddenberg and her colleagues convince Costa that coordination across the UN system is also critical to successfully countering human trafficking, and Mission will continue to make that case to the Executive Director. Assuming Buddenberg and others are effective in implementing their stated intentions, and in line with the Secretary's high priority on anti-human trafficking initiatives, Mission recommends Washington consider political and financial support for UNODC's efforts in this regard. Mission will continue to closely monitor developments in this area. In the short term, the Blue Heart campaign is a good idea that merits USG endorsement. We would welcome guidance from G/TIP and R about how this might be accomplished. Adding the blue heart to the UNVIE and G/TIP website would be a good place to start. Future Blue Heart campaign work should take into account similar campaigns such as the UK's "Blue Blindfold Campaign" and look for opportunities to dovetail messages. END COMMENT. SCHULTE