Analysis
of the UNODC Global Program on Human Trafficking
A
Bilotserkivska Irina
Maxwell School, Syracuse University
Professor Mathiason
International Public and NGO Management
IRP 632
December 10, 2007
Human
trafficking is one of the fastest growing global problems, defined as the
Òrecruitment, transportation, transfer, harboring or receipt of persons, by
means of threat or use of force or use of other forms of coercion, of abduction,
of fraud, of deception, of the abuse of power or of a position of vulnerability
or of the giving or receiving of payments or benefits to achieve the consent of
a person having control over another person, for the purpose of exploitationÓ
(Trafficking 50). Preliminary estimates of the number of people trafficked
annually ranges from 600,000 to 800,000, involving 137 countries. The growing
size of the problem is easily explained by the financial attractiveness: it
brings a profit of approximately $32 billion. Such a trend caused a necessity
to identify human trafficking as a crime under the UN Protocol Against
Trafficking in Persons. It came into force since December 2003 and was ratified
by more than 110 States (About UNODC).
The
key Office within the United Nations system that deals with human trafficking
is the UN Office on Drugs and Crime, established in 1997. Its task is to fight
against illicit drugs, organized crime and terrorism through research,
analysis, technical and normative assistance of Member States. In 1999 under
Crime Program UNODC launched the Global Program against Trafficking in Human
Beings (GPAT). This paper will analyze the objectives, outcomes, outputs and
performance indicators of the Program as well as the overall design of the
Program, and will draw conclusions if the accomplishments, which the Office
expects to achieve, are in line with the Program it implements.
UNODC
It
should be noted that neither overall objective of the UNODC, nor the objective,
outcomes, outputs and performance indicators of GPAT are clearly stated on the
official website of the Office.
The paper will refer to the Strategy of the UNODC for the period
2008-2011 as well as Proposed programme budget for the biennium 2008-2009 to
identify them.
UNODC recognizes that its budget depends
heavily on the voluntary contributions of Member States, which makes it highly
vulnerable and requires consistent achievement of the results to justify
expenditure. Only Ò12% (US $ 16.1 mil.) of the annual budget of the US $ 135.9 mil. comes from the regular
budget of the UNÓ (Strategy 3). Therefore, it is important to identify
realistic objectives which will be achieved over a specified period of time
(Mathiason).
There
are several weaknesses which should be identified before the paper moves on to
analyze the Global Program against Trafficking in Human Beings. According to
the UNODC Strategy its mission is to Òcontribute to the achievement of security
and justice for all by making the world safer from crime, drugs and terrorismÓ
(3). Such an overall objective of the Office does not describe an end-state of
what the Office wants to accomplish. It refers to ÔallÕ, which is a very broad
statement, it lacks clarity. It should be specified, who is meant by ÔallÕ,
Member States, citizens of all countries including non-Members, etc.? It should
also be defined what is meant by Òmaking the world safer from crime, drugs and
terrorismÓ. Is it ÔsafeÕ if the crime rate is slightly or substantially reduced
or is it safe if it is completely eradicated? The meaning of the words
ÔjusticeÕ and ÔsecurityÕ is also not specified. Besides, ÔcrimeÕ, ÔdrugsÕ, and
ÔterrorismÕ are mentioned separately, but drugs and terrorism are types of
crime. Considering the above mentioned remarks, the overall objective should be
reformulated as follows:
á To have
in place the system, which will work towards reduction of transnational
organized crime, such as terrorism, illicit drugs, human trafficking,
corruption, and money laundering.
The
OfficeÕs Strategy for the period 2008-2011 is called to set general direction
of the Office, but it fails to specify a goal of the Office for this time
period. It identifies the areas which it will concentrate on Òthe rule of law;
policy and trend analysis; and prevention, treatment and reintegration, and
alternative developmentÓ (5), and their specific objectives. Even though, the
Budget for the biennium 2008-2009 is allotting resources in the same areas, the
specific objectives identified there are not always worded the same way as in
the Strategy. Program details, outcomes, outputs and performance indicators
stated in the Budget should be in line with the overall Strategy of the Office.
Now,
letÕs look at the objectives of the GPAT in the light of three strategic areas
mentioned above.
GPAT
Objectives
The
GPAT operates in Africa (Benin, Nigeria, Togo), Asia (the Philippines), Europe
(the Czech Republic, Poland, the Slovak Republic) and Latin America (Brazil,
Colombia) and has an overall
objective Òto bring to the foreground the involvement of organized criminal
groups in human trafficking and to promote the development of effective criminal
justice-related responsesÓ (UN Global Program). Such an objective does not
reflect changes that can be achieved by a certain period of time. It fails to
specify what is meant by Òbringing to the foregroundÓ, Òeffective criminal
justice-related responsesÓ.
On
the official website of the UNODC it is also mentioned that GPAT has certain
objectives on the national and international level. At the national level it
aims Òto promote awareness-raising of trafficking in human beings and
especially strengthen institutional capacity; train law enforcement officers,
prosecutors, judges; advise on drafting and revising relevant legislation;
provide advice and assistance on establishing and strengthening
anti-trafficking elements; strengthen victim and witness supportÓ (UN Global
Program). At the international level it aims Òto provide assistance to
agencies, institutions and governments as part of an interdisciplinary effort
to design effective measures against trafficking in human beingsÓ (UN Global
Program).
These
are not the objectives rather than activities. Some of them lack clarity and
need to be elaborated more. For example, what is Òanti-trafficking elementsÓ,
Òinterdisciplinary effortÓ, what kind of assistance should be provided and to
which institutions and agencies? Several activities have to be added in order
to lead to the achievement of the objectives identified above.
Outcomes
Outcomes
of the GPAT are not clearly stated.
Although, there is a list of expected accomplishments in the Strategy
and Budget, it needs to be reformulated. For example, according to the Proposed
budget, one of the expected results in the area of research, analysis and
advocacy is Òincreased use of the evidence base by the international community
to counteract drug, crime and terrorism problemsÓ (Proposed programme budget
14). Though the idea behind this outcome may lead to the achievement of
specific objectives, the sentence needs to be reformulated. It is not clear
what is meant by the Òevidence baseÓ, who represents Òinternational communityÓ,
what does the term ÒcounteractÓ include. What types of crime does the word
ÔcrimeÕ encompass?
A similar critique can be applied to a number
of other expected results mentioned both in the Proposed budget and Strategy.
For example, Ò high-quality services provided by treaty-based organs and
governing bodies related to drugs, crime, and terrorismÓ (Strategy 5);
Òenhanced capacity of Member States and the international community to
formulate strategic responses to address emerging trends in drugs and crimeÓ
(7), and so on.
Performance
Indicators
The
Budget for the biennium 2008-2009 provides the list of performance indicators
for the objectives and outcomes of the whole Office. Most of them are precise
and can be used to measure the intended results. However, the Office uses
mostly quantitative performance indicators. Quantity does not always mean
quality, therefore, more qualitative performance indicators should be added.
Some
performance indicators also have to be re-thought, because they donÕt
necessarily reflect the achievement of the outcome. For example, one of the
outcomes in the Research, Analysis and Advocacy section of the Proposed
programme budget 2008-2009 is Òincreased public awareness of issues related to
drugs, crime and terrorism in all of its forms and manifestations as well as
the relevant United Nations standards and norms in crime prevention and
criminal justiceÓ (15). ÒTo increase public awarenessÓ expresses a specific
objective rather than an outcome. Furthermore, Òin all of its formsÓ is not a
realistic task to accomplish until 2009. There are two performance indicators
which are proposed to measure this outcome: Òincreased number of visitors to
the websiteÓ and Òincreased number of stations that broadcast information on
drug, crime and terrorismÓ (Proposed programme budget 15-16). The first
indicator Òincreased number of visitors to the websiteÓ is not a good measure of
the public awareness increase for several reasons. Public awareness should be
raised in first place in the countries which are reported as countries of
origin and transit with very high, high and medium incidence of trafficking. By
having more knowledge on this problem and being aware of the methods, incidents
and consequences of this type of crime, people will become more careful in
their daily activities and will not easily become targets for the offenders.
Most of the countries of origin and transit with high and very high number of
incidents are developing or poor (for example, Albania, Belarus, Nigeria,
Thailand etc.) (Trafficking 18-19). Internet access in such countries is often
either very limited or not available at all. Moreover, in many cases the
victims are often the poorest population of the country Òuneducated young
women, women working as sex professionalsÓ (Trafficking 60), who therefore are
not likely to have Internet access even in the countries where it is available.
Therefore, more emphasis should be put on the second performance indicator
Òincreased number of stations that broadcast information on drug, crime and
terrorismÓ. A couple of other performance indicator can be added, for example,
number of programs on human trafficking broadcasted on national channels,
number of visual billboards posted
in states which are reported as countries of origin and transit with
very high, high and medium incidence of trafficking.
Taking into consideration critique
mentioned above, objectives, outcomes, activities and performance indicators of
the GPAT can be revised as follows:
|
Overall
Objective: to establish a system which will
enable Member States to control human trafficking crimes and provide victimsÕ
support |
|||
|
Specific
Objectives |
Outcomes |
Activities |
Performance
Indicators |
|
To reduce number of human trafficking crimes in Member States |
States parties to the UN Convention against
Transnational Organized Crime and its Protocols analyze human trafficking
patterns in accordance to the UNODC standards |
UNODC establishes standards for analyzing
human trafficking patterns |
Extent to which States parties to the UN
Convention against Transnational Organized Crime and its Protocols analyze
human trafficking patterns in accordance to the UNODC standards |
|
|
States and relevant organizations use the
database on human trafficking |
To update database on human trafficking |
Extent to which database is used |
|
|
Use of the manual which illustrates best
practices undertaken by governments, NGOs, and relevant international organizations
(e.g., ILO, IOM) against human trafficking |
To assemble manual which illustrates best
practices undertaken by governments, NGOs, and relevant international
organizations (e.g., ILO, IOM) against human trafficking |
Extent to which manual is used |
|
|
Progress of StatesÕ actions in the sphere of
human trafficking is constantly monitored |
To collect reports from Member States on
progress in the area |
Proportion of Member States that have
submitted reports on the progress in human trafficking area (e.g., on
adoption of legislation, statistical information on number of cases tracked,
etc.) |
|
To have in place relevant legislation and
judicial procedures in Member States |
Relevant legislation is drafted or revised in
States that are parties to the UN Convention against Transnational Organized
Crime and its Protocols |
UNODC advises national governments on drafting
and revising relevant legislation |
á Proportion of States
that drafted or revised relevant legislation; á Extent to which
recommended changes were adopted |
|
|
Investigation and prosecution methods in
States are modified in such a way that they punish offenders and support the
victims |
UNODC advises national governments on best
practices of investigation and prosecution methods |
á Extent to which
investigation and prosecution methods are modified; á Proportion of States
that modified investigation and prosecution methods |
|
|
Policy makers, law enforcement officers,
prosecutors, judges use skills and knowledge that they have got from
trainings |
To conduct trainings for policy makers, law
enforcement officers, prosecutors, judges on fighting with human trafficking |
Extent to which policy makers, law enforcement
officers, prosecutors, judges use this knowledge |
|
To increase StateÕs compliance with the
provisions of international conventions |
Increased number of States that ratified the
UN Convention against Transnational Organized Crime and its Protocols |
To reach agreement with the States who are not
parties to the UN Convention against Transnational Organized Crime and its
Protocols about joining the Convention |
Change in the number of States that ratified
the UN Convention against Transnational Organized Crime and its Protocols |
|
|
States that donÕt comply with the provisions
of relevant international Conventions are publicly shamed by the UNODC |
To identify States that donÕt comply with the
provisions of relevant international Conventions |
Extent of the StateÕs compliance to the UN
Convention against Transnational Organized Crime and its Protocols |
|
To increase citizenÕs awareness of the organized
criminal groups in human trafficking |
Mass media uses information provided by the
UNODC |
UNODC provides information relevant to human
trafficking, which it wants to make public |
á Extent to which media
uses this information; á Change in the number
of TV programs, articles about human trafficking |
|
|
Public (esp. potential targets of human
trafficking) in countries, where
human trafficking incidents are reported Òvery highÓ and ÒhighÓ has knowledge
on trafficking definition, methods, procedures, and consequences |
UNODC gets the governments of States where
human trafficking incidents are reported Òvery highÓ and ÒhighÓ to organize
prevention campaigns |
Extent to which population in states is
informed about definition, methods, procedures, and consequences of human
trafficking |
|
|
Information on human trafficking patterns is
used |
To collect data on human trafficking patterns
(smuggling routes, methods, etc.) annually |
Extent to which information on human
trafficking patterns is used |
|
People who suffered from human trafficking are
reintegrated back into society |
People who have been trafficked are returned
to their home countries |
To identify people who have been trafficked |
Proportion of people returned to home
countries |
|
|
Increased number of human trafficking victims
who received help in care, reintegration, and shelter centers |
To establish care, reintegration, and shelter
centers in the countries where trafficking incidents are reported Òvery highÓ
and ÒhighÓ |
Change in the number of rehabilitated victims
per state |
RECOMMENDATIONS
AND CONCLUSIONS
The
Global Program Against Trafficking in Human Beings has to operate at least in
all of the origin and transit countries reported to have very high incidence of
human trafficking. According to the UNODC ÒTrafficking in Persons: Global
PatternsÓ report, origin countries with very high incidence of reporting
include Albania, Belarus, Bulgaria, China, Lithuania, Nigeria, Republic of
Moldova, Romania, Russian Federation, Thailand and Ukraine. Transit countries
with very high incidence of reporting include Albania, Bulgaria, Hungary,
Italy, Poland, Thailand (18-19). Even though GPAT functions all over the world,
the countries which it targets, are not always the ones which need help the
most. Neither of origin countries reported to have very high incidence, except
of Nigeria, is involved in the Program.
Objectives,
outcomes, outputs, activities, and performance indicators have to be separately
drafted for the Global Program Against Trafficking in Human Beings. It is
important that they are in line with the Strategy of the UNODC and touch all
three themes identified in the Strategy.
Activities carried out in each of the countries where the Program
operates should be similar and lead to the achievement of the overall and specific
objectives identified by the UNODC.
Works
Cited
"About UNODC."
United Nations Office on Drugs and Crime. 9 Nov 2007 <http://www.unodc.org/unodc/en/about.html>
Mathiason, John.
"Case: The International Atomic Energy Agency." Lecture. Syracuse. 6
Nov 2007.
"Proposed Programme
Budget for the Biennium 2008-2009 (Section 16)." Administrative and
Budgetary - Fifth Committee. General Assembly of the United Nations. 1 Nov
2007 <http://www.un.org/ga/search/view_doc.asp?symbol=A/62/6(Sect.16)>
"Strategy for the
period 2008-2011 for the United Nations Office on Drugs and Crime." United
Nations Office on Drugs and Crime. 10 Nov 2007
<http://www.unodc.org/pdf/brazil/V0781674%20CND%20Res%20Strategy.pdf>
"Technical
Cooperation by Geographical Region." Terrorism, Corruption, Human
Trafficking and Criminal Justice. United Nations Office on Drugs and Crime.
1 Nov 2007 <http://www.unodc.org/unodc/en/crime_cicp.html>
"Trafficking in
Persons: Global Patterns." Publications, Tools and Research. April
2006. United Nations Office on Drugs and Crime. 5 Nov 2007
<http://www.unodc.org/documents/human-trafficking/HT-globalpatterns-en.pdf>
"UN Global Program
Against Trafficking in Human Beings." Terrorism, Corruption, Human
Trafficking and Criminal Justice. United Nations Office on Drugs and Crime.
30 Oct 2007 <http://www.unodc.org/unodc/en/trafficking_human_beings.html>