Identifier
Created
Classification
Origin
09UNVIEVIENNA146
2009-04-06 15:42:00
UNCLASSIFIED//FOR OFFICIAL USE ONLY
UNVIE
Cable title:  

Human Trafficking Back on UNODC's Agenda

Tags:  PHUM KWMN PREF SMIG KCRM UN KTIP 
pdf how-to read a cable
VZCZCXYZ0001
RR RUEHWEB

DE RUEHUNV #0146/01 0961542
ZNR UUUUU ZZH
R 061542Z APR 09
FM USMISSION UNVIE VIENNA
TO RUEHC/SECSTATE WASHDC 9251
INFO RUCNDT/USMISSION USUN NEW YORK 1569
RUEHBS/USEU BRUSSELS
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

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SUMMARY
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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

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SUMMARY
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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.

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Addressing a Fragmented Bureaucracy
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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.

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Moving to Technical Assistance
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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.

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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.

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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.

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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."

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Comment
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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