MEXICO TIP SHELTER PROJECT QUARTERLY REPORT NO. 1, MAY JUNE 2006

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1 MEXICO TIP SHELTER PROJECT QUARTERLY REPORT NO. 1, MAY JUNE 2006 ASSOCIATE COOPERATIVE AGREEMENT NO. 523-A UNDER LEADER AWARD NO. HFP-A , AED REFERENCE NO SUBMITTED JULY 21, 2006 This report was produced for review by the United States Agency for International Development (USAID) by Management Systems International and is submitted on their behalf by the Academy for Educational Development (AED) under the Capable Partners Program (CAP). The views expressed do not necessarily reflect the views of USAID or the United States Government.

2 CONTENTS INTRODUCTION...1 BACKGROUND...2 A. The President s $50 Million Initiative to Combat Trafficking in Persons... 2 B. Mexico s Efforts to Combat Trafficking in Persons... 2 C. Creation of a National TIP Network... 5 C.1 Strategies Employed... 5 C.2 Activities Conducted... 5 C.3 Results Achieved... 6 C.4 Looking Ahead: Risks, Obstacles and Opportunities... 8 D. Training and Operation Improvement of Selected Shelters... 8 Upcoming Activities... 8 E. Facilitation of State Task Forces... 9 Upcoming Activities... 9 APPENDIX A: PROGRAMS, AGENDAS, AND ACTIVITIES...10 APPENDIX B: ARTICLES AND REPORTS ON TRAFFICKING IN PERSONS IN MEXICO...21 APPENDIX C: DIRECTORIES OF ORGANIZATIONS AND INDIVIDUALS WORKING WITH VICTIMS OF TRAFFICKING IN PERSONS...30 APPENDIX D: ANNUAL WORK PLAN AND PERFORMANCE MONITORING PLAN...82 Quarterly Report No. 1 May-June 2006 i

3 INTRODUCTION This report summarizes the strategies used, activities conducted and results achieved in May and June, 2006, in support of USAID/Mexico s two-year program to combat trafficking in persons in Mexico by increasing the effectiveness of existing shelters in Mexico as well as local state governments to provide complete services to victims of trafficking of persons identified in Mexico. AED and MSI bring together a strong combination of individual and organizational expertise to advance USAID/Mexico s Program to Combat Trafficking in Persons under the President s Initiative. Currently MSI-Proderecho is leading the five year USAID/Mexico Rule of Law (ROL) strengthening program upon which AED and MSI seek to build in order to execute the activities delineated in this report. The program that MSI is developing builds upon existing Mexican legal and institutional efforts to confront trafficking in persons, initiatives of NGOs, and program activities by international organizations. These efforts are expanding under the President s Initiative to articulate with the Mexican government and civil society a more coherent, integral and coordinated response, particularly at the state and local levels. The objectives of the project focus specifically on providing shelter and direct emergency assistance for trafficking victims, as well as on the coordination and implementation of program activities dedicated to strengthening a support package in selected states and expanding that package to other states that demand technical assistance and possess the political will. The geographic areas of concentration will be Chihuahua, Nuevo Leon, Veracruz, Quintana Roo and Jalisco. For purposes of this project, a logical framework that divides the program into distinct but interrelated components has been developed. The components are: Articulation of National Shelters Network of Anti-TIP shelters to provide integral assistance to trafficked victims. Training and operation of selected shelters offering a wider range of victim services; bringing together a shelter staff proficient in identification, protection and assistance of trafficking victims; and preparing and disseminating a directory of shelters and NGOs for victim protection and referral.. Facilitation of State Task Forces in selected states to coordinate efforts in combating this crime and to establish or improve upon the provision of restorative care to trafficking victims, in partnership with civil society organizations. This quarterly report is organized around MSI s objectives under its long-term contract with the Academy for Educational Development. It outlines the strategies employed to advance each objective; the activities conducted in support of those strategies; and the results produced as a result of the activities. It also looks to the future, identifying risks, obstacles and potential benefits to the extent that they can be foreseen. Quarterly Report No. 1 May-June

4 BACKGROUND A. THE PRESIDENT S $50 MILLION INITIATIVE TO COMBAT TRAFFICKING IN PERSONS Mexico is one of eight countries to receive funds under the President s $50 million Initiative to Combat Trafficking in Persons, the purpose of which is to increase current funding levels to fight human trafficking and coordinate between multiple USG and host government agencies to render greater impact and significant results. Criteria for country selection are based on the scope and magnitude of the problem as a source, transit, or destination country for TIP and/or sex tourism; political will of the government, non-government organizations (NGO) capacity on the ground, and current level of USG assistance compared to the magnitude of the problem; State Department s 2003 TIP Report country ranking, 1 and the ability to show measurable performance results in the designated country over the life of the activity. 2 For Mexico the Senior Policy Operating Group chose to allocate $8.224 million of the Presidential Initiative s funds to USAID, Department of Justice (DOJ), Department of Homeland Security (DHS), Department of Labor (DOL), Department of State s Office of Population, Refugees and Migration (DOS/PRM), and Department of Health and Human Services (HHS) to coordinate activities in suggested target geographic areas such as Ciudad Juarez, Tijuana, Mexico DF, Cancun, and Monterrey pending approval by the Government of Mexico. More specifically, USAID/Mexico will receive $2.8 million from the Initiative to focus on shelter, direct, and emergency assistance to trafficked victims. Each USG Agency is expected to coordinate the implementation of activities through the U.S. Embassy in Mexico and complement other USG TIP activities. Proposed work for the other USG agencies are: prosecutorial training and the designing of task forces to provide emergency and restorative services to TIP victims by DOJ; information sharing, capacity building, joint operations for TIP victim rescues by DHS; third-country national victim repatriation and reintegration, as well as shelters on the southern Mexican border by DOS/PRM; and public awareness, prevention, rehabilitation, and health care worker training - including forensic identification for prosecutors by HHS. As a result, MSI must provide a point of contact to DOJ, DHS, DOS, HHS and the U.S. Embassy in Mexico as well as be available for any technical coordination and information exchange within the context of this USAID/Mexico activity to combat trafficking and the Presidential Initiative. B. MEXICO S EFFORTS TO COMBAT TRAFFICKING IN PERSONS Mexico s sheer size, extensive poverty, and social inequality concomitant with its lack of effectiveness in prosecuting traffickers and sexual exploitation perpetrators make addressing TIP all the more difficult. Mexico is the second-largest country in Latin America with 97.3 million 3 people (as registered in the 1 Mexico has been ranked as Tier II since The 2004 TIP Report started a new ranking Tier II watch list where countries have made no significant progress from the prior year. Unfortunately, Mexico was placed on the Tier II watch list in 2004 and serves as a warning for a possible Tier III ranking in 2005 if nothing is done. 2 The delivery of FY04 funding for this activity was delayed until 2005 due to congressional debate over the fund source. 3 Current estimates are up to 105 million in population. Quarterly Report No. 1 May-June

5 2000 census) and has a border that totals 4,353 km with Belize (250 km), Guatemala (962 km), and the United States (3,141 km). Almost half of the population is under 23 years of age 4 and only 35 percent of all women take part in economic activities. 5 In 2003 Mexico was reported to have 40 percent of its population below the poverty line and in 2004 its estimated net migration was migrants/1,000 population. 6 Guanajuato, Jalisco, Michoacán, Mexico, Puebla, Veracruz, and Zacatecas are the poorest states that contribute the largest numbers of illegal immigrants. Massive migration exists from rural to urban centers as well as to the U.S. in search of economic opportunity. More than 1.5 million illegal immigrants are arrested at the U.S. Mexico border annually. As a result, the rural population has dropped to 25.6 percent of the total population while informal commerce, violence, and crime have increased in urban areas and the border where Mexico faces challenges of monitoring for illicit migration and trafficking. In 2001, Mexico was a Tier 2 country and continues to be a source country for trafficked persons to the United States, Canada, and Japan, and a transit country for persons from various countries, especially Central America and China. There are an increasing number of persons from Brazil and Eastern Europe transiting through Mexico, and an increased number of Salvadorans and Guatemalans, especially children, being trafficked into Mexico for prostitution, particularly on the southern border. Most are trafficked for sexual exploitation and agricultural labor. Internal trafficking is also a problem, especially for the sexual exploitation of children. In 2004, 2005, and 2006 Mexico was placed on the Tier 2 Watch List in the State Department s Trafficking in Persons Report. The State Department reports, [T]he Government of Mexico has shown progress in combating trafficking in persons (TIP), but more work is needed in victim protection and prosecution of traffickers. The International Organization for Migration (IOM) reports that some 15 major trafficking networks exist in Mexico, as well as more than a hundred smaller groups 7. Because the majority of these crimes go unreported, governmental and non-governmental organizations struggle to keep systematic information. Even when cases are reported, existing laws and policies provide scant access to due process. Because more and more vulnerable migrants (i.e. unaccompanied women and children) are passing through Mexico en route to the United States and Canada, many of these vulnerable migrants fall victim to these trafficking networks. Other conditions that foster an environment of susceptibility to trafficking are the increased numbers of women who are risking dangerous conditions to illegally migrate and reunite with their husbands in the U.S. and/or seek economic opportunities with the accompaniment of their children. Moreover, a rise in the number of unaccompanied minors that are migrating through Mexico to reunite with their families already in the US has been reported. These women and children are forced to rely on illegal migrant smugglers who have the potential to hold them for ransom or in debt-bondage for forced labor and sexual exploitation. 8 Aside from this scenario, many women and children are already driven or coerced into migration and trafficked for sexual exploitation and forced labor. This phenomenon is not solely attributed to Mexico. According to the United Nations Office on Drugs and Crime 2003 Mexico Country Profile, 9 Mexico is a source, transit, and destination country for women and child victims trafficked for 4 National Development Plan , Mexico 5 National Institute of Women, 2001 indicators on women in the workforce 6 The 2005 World Factbook Mexico, 7 Smaller networks include families and gangs such as Mara Salvatrucha that are known to sell members for economic benefits. 8 Growing Global Migration and its Implications for the United States, fas.org/irp/nic/migration.pdf 9 Quarterly Report No. 1 May-June

6 sexual exploitation from Mexico, as well as Central America, South America, Eastern Europe, and to a lesser extent Asia and the Middle East on their way to the United States and Canada. Meanwhile, not including Americans crossing the northern border, the National Migration Institute (INM) of Mexico reported last year that almost 14 million documented tourists entered Mexico. The percentage entering for sex tourism is unknown. However civil society claims that it is on the rise, attracting its neighbors from the north as the main client and using its neighbors from the south as its supply. In some states, credible reports link corruption of the INM and local police to smuggling and TIP involvement. As a result, in 2004 GOM has responded through Operation Clean House to rid the system of corruption. To date almost 80 INM agents and police engaged in migrant smuggling have been arrested. Visa fraud among lower-level government employees is also widespread. Efforts to address the issue of sexual exploitation appear through Mexico s ratification of the Optional Protocol to the Convention on the Rights of the Child on the Sale of Children, Child Prostitution and Child Pornography, most recently in April Mexico also signed the UN Convention against Transnational Organized Crime, and its Protocol supplements (the Protocol to Prevent, Suppress and Punish Trafficking in Persons, Especially Women and Children and the Protocol against the Smuggling of Migrants by Land, Sea and Air) in December 2000 and for the first time defined trafficking as a problem to be acknowledged. The Convention and Protocols direct countries to approach trafficking as an organized crime, instead of one distinct area of criminal activity, and encourages them to act multilaterally through law enforcement and other agencies, and finally to protect basic human rights of trafficked victims. Mexico recently ratified the UN Protocols and Convention related to trafficking in March Though several draft national anti-tip laws were introduced in the Mexican Congress in 2004, they have yet to translate into the achievement of an anti-trafficking law at the national level. There are a number of other laws that may serve to prosecute traffickers that are frail for handling cases involving the binding of women older than 18 years into slavery and prostitution. Notably, each state in Mexico has a penal code for rape and forcible sexual assault. The penalty in each of the 31 states and Mexico City varies and changes based on the age of the victim. Furthermore, rape and sexual assault cases extracted from trafficking and sex crimes are mostly prosecuted under feeble state laws and sometimes more corrupt justice systems, widening the legal gaps for protection. Until recently, foreign trafficked victims without proper documentation, though protected under the Constitution, were not given actual protections or offered any social assistance. Generally they are still deported and encouraged not to press charges against the perpetrators. This is a strong criticism by both the TIP Report and the UN High Commission for Human Rights Special Rapporteur. In response, INM now has a policy in place to grant temporary resident status and has also granted temporary status to work while a judicial process is underway. The National Human Rights Commission (CNDH) also opened offices on northern and southern borders for migrant protection. The office of the Fifth Directorate, dedicated to migrant and human rights protection, includes TIP victim services and assistance to press charges in cases of abuse. CNDH is also discussing the creation of a database of TIP victims. 10 Initial efforts in 1991 identified municipal, state and federal offices that provide services to support children and programs to reduce child and infant mortality in addition to introducing actions for child survival, protection and development. Mexico s 1995 National Action Commission in Favor of Children defined protection in the context of children in especially difficult circumstances and called for the elimination of the fundamental causes that produce difficult situations for children including sexual exploitation. Quarterly Report No. 1 May-June

7 C. CREATION OF A NATIONAL TIP NETWORK C.1 STRATEGIES EMPLOYED This work builds upon prior work by USAID/Mexico to combat TIP. USAID/Mexico initiated a project entitled Legal Reform to Combat TIP in Mexico to promote the passage and enactment of legislation criminalizing TIP. Through this project, USAID/Mexico has been working with local and international NGOs to bring international experts to Mexico to guide and educate Mexican NGOs, congress members and government officials to build the momentum necessary to pass federal (and possibly state) TIP legislation. The draft legislation is currently under debate in the House of Representatives and a group of NGOs acting as a coalition have petitioned the legislature to adopt this anti-tip law during the extraordinary session in September These prior efforts have brought the need to improve the quality of services offered to victims of trafficking in persons both internally and internationally. Furthermore, previous work has revealed the necessity of coordinating efforts between the responsible state agencies, shelters, and NGOs that provide services to victims. USAID/Mexico, AED, and MSI have recently begun their efforts in achieving the tri-partite goals of this project. The strategies employed up to this moment include participation in and the organization of training seminars directed at understanding the needs and services for trafficked victims within the Mexican context. These events serve to bring in key individuals from different states in order to share experiences and best practices. Additionally, these trainings include international experts, whose participation allow for a deeper discussion of working with victims of TIP and providing adequate assistance. These activities are related, and they have a multiplier effect in the sense that, as more people become sensitized to the needs of TIP victims and how services offered to them can be improved, they often champion the movements for change in this area. Another strategy employed has been the organization of meetings with stakeholders and possible partners in Mexico. These meetings include NGOs such as Casa Alianza Mexico, shelter Las Mercedes, the network of shelters for domestic violence cases, Sin Fronteras NGO and other shelters working with likely TIP victims. Also, members of the MSI team have met with officials from the GOM, including representatives of the Policia Federal Preventiva and the Procuradoria General de la Republica de Mexico. Lastly, meetings with international organizations such as the International Organization for Migration (IOM) have also been part of the strategy employed. These stakeholder meetings are of significant strategic importance because they facilitate the identification of likely partners, while concomitantly allowing the MSI team to gauge existing strengths and weaknesses of different shelters and organizations when working with TIP victims. C.2 ACTIVITIES CONDUCTED As this project is still in its initial stages, the majority of the activities conducted are related to the structure and organization of the project itself. The first Team Planning Meeting (TPM) was held in Mexico City on June 9, In this meeting, the team members were able to present and discuss the objectives of the project and to work collectively on both the work plan for the year 2006 and the performance monitoring plan (submitted during this reporting period). This meeting allowed for the distribution of responsibilities and the establishment of protocol for how communication and other matters should be managed. More importantly, the TPM allowed the team to meet with the Contracting Technical Officer for USAID/Mexico and better define the selected states for the first year of this project. Quarterly Report No. 1 May-June

8 In the first year this project will target the following five states in order of importance: 1. Chihuahua 2. Nuevo León 3. Veracruz 4. Jalisco 5. Quintana Roo Other activities relating to this project are directed toward the participation of the team in conferences/seminars that aim to bring together key actors at the governmental and non-governmental level that will likely be included in the National TIP Network. The first of these was held in Xalapa, Veracruz. The TIP Shelter project financed the participation of Miguel Ontiveros, an expert in criminal law responsible for the draft anti-tip law, so that he could present at a seminar organized by the Commission of Gender and Equity of the legislative branch of Veracruz. Laura Langberg, the Technical Director, and Gabriela Saavedra, the Country Director and specialist on TIP victims, participated in a conference organized by the IOM and the National Commission on Human Rights (CNDH) held in Tapachula, Chiapas. The conference brought together experts from Mexico and the United States, and focused on a wide set of issues relating to the legal definition of TIP, bringing traffickers to justice, providing adequate care for victims, and the prevention of this crime. This event was crucial in improving the capacity of local stakeholders of the state of Chiapas in Mexico who are likely to become a part of the National TIP Network. C.3 RESULTS ACHIEVED In order to fully appreciate the achievements of the current strategy it is necessary to examine the context within which such actions have been taking place. Although TIP-related issues have been on the public agenda, in large part because of previous work conducted by USAID/Mexico, the topic of improving services for victims in a holistic fashion that incorporates legal, psychological, and medical services has yet to be undertaken. The activities carried out within this program represent a solid first step in the identification of shelters, NGOs, and government offices that are likely to become part of the National TIP Network. Concomitantly, the meetings and events organized so far have allowed the MSI team to engage interested parties in a way that allows for a working relationship critical to the establishment of the Network. The following chart presents the breadth of activities and meetings that the MSI team has attended. Quarterly Report No. 1 May-June

9 MEETINGS AND CONFERENCES ATTENDED BY MSI TEAM Meetings and Conferences Attended by MSI Team Date Organization Topic Location 8-Jun 12-Jun 12-Jun 12-Jun Congresswoman Cynthiya Lobato International Organization for Migration, IOM Fundacion Casa Alianza, Mexico Fundación Casa de las Mercedes Conference on TIP directed towards state officials and promoting the creation of anti-tip legislation. Discussion on IOM activities in Mexico assisting TIP victims. The possibility of working together was discussed. Discussion on the activities of Casa Alianza and possibilities for collaboration discussed. Discussion on the present work of the shelter and possibilities for working together were discussed. 12-Jun Sin Fronteras In depth discussion of the work of Sin Fronteras and existing challenges in working with victims of trafficking in persons within the Mexican legal structure were outlined. 13-Jun June Jun 22-Jun Shelter Belén, Casa del Migrante International Organization for Migration, IOM Centro "Fray Julián Garcés" Derechos Humanos y Desarrollo Local, A.C. Centro de Justicia Familiar Meeting with directors, exchange of information on issues affecting migrants and services offered to them. Two day conference on how to address the diverse issues concerning working with victims of TIP. Discussion on the activities of the Center and possible avenues for engaging in future work were discussed. Site visit and discussion of present work. The visit was carried out with government representatives from the state of Oaxaca, Zacatecas and municipal authorities from Coatzacoalcos, Veracruz. 23-Jun La Casa, Inc. Discussion on the activities of this NGO and its nascent program catering to TIP victims. Xalapa, Veracruz, Mexico Mexico City, DF Mexico City, DF Mexico City, DF Mexico City, DF Tapachula, Chiapas, Mexico Tapachula, Chiapas, Mexico Mexico City, DF Mexico City, DF Mexico City, DF Quarterly Report No. 1 May-June

10 C.4 LOOKING AHEAD: RISKS, OBSTACLES AND OPPORTUNITIES Although the project was active for less than two months, the team has identified stakeholders and has engaged them effectively with the purpose of soliciting their participation. The following step, which should be completed in September, will be the execution of a systematic and organized baseline survey that will allow for the identification of strengths and weaknesses of shelters and NGOs working with victims of trafficking in persons. This baseline study will serve as a compass for future activities because it will allow the project team to identify what areas need further reinforcement. A possible risk that may challenge the work carried out so far is the current political transition due to the recent presidential election. New political actors and heads of offices will pose challenges for the creation of a National TIP Network that includes the participation of relevant state agencies. D. TRAINING AND OPERATION IMPROVEMENT OF SELECTED SHELTERS The training and improvement of operation of selected shelters is an integral part of this project. For this purpose, the project team is in the process of identifying all shelters working with likely victims of TIP. Presently, the MSI team continues to meet with shelter staff, NGOs, and government representatives in an effort to identify relevant shelters that presently deal or have the capacity to cater to TIP victims. In June the MSI team met with Lic. Rosalba Montelongo, the Interim Director for Red Nacional de Refugios (National Network of Shelters); Lic. Sofia Almazan, Director of Casa Alianza shelter for street children; and Angela Gonzalez the Operative Director of Las Mercedes, shelter for abused and violence victims, all in Mexico DF, for the purpose of identifying shelters that may be selected for training and improvement to their infrastructure. Also in June, the MSI team met with Fernanda Ezeta of the International Organization for Migration for the purpose of further identifying other shelters that may need infrastructural development and training in the five selected states Chihuahua, Nuevo Leon, Veracruz, Jalisco, and Quintana Roo. UPCOMING ACTIVITIES Concomitantly, the team is in the process of initiating a Baseline Survey that will be completed by the end of September. This Baseline Survey will facilitate the execution of this task because it will permit the identification of shelters that are currently receiving TIP victims, as well as an identification of other shelters that may have the capacity to receive victims of trafficking. The baseline survey will be conducted by Lic. Elena Azaola, a well known researcher anthropologist and psychologist, and Lic. Laura Langberg, Project Director. Once it is determined which shelters will be selected to provide services to victims, specific training seminars detailing procedures and protocols that entail a holistic approach combining medical, psychological, legal, and other forms of assistance may be begun. At the same time, the survey will permit an assessment of each shelter s facilities, and identify improvements that may be made to the existing infrastructure. The first training workshop is scheduled to take place in the middle or the end of September Quarterly Report No. 1 May-June

11 E. FACILITATION OF STATE TASK FORCES The facilitation of Anti-TIP State Task Forces, composed of both government agencies and civil society, in the selected states encompassing this project is also an important component of this initiative. The goal of establishing a Task Force in each state is necessary for the sustainability of this project and is expected to continue after the project is terminated. In order to facilitate the development of these Task Forces, the project team and USAID/Mexico will coordinate activities with the Department of Justice (DOJ) and Immigration and Customs Enforcement (ICE). The project team and USAID/Mexico shared activities with both of these US government agencies during the recently held seminar in Tapachula, Chiapas. Also, the project team is in the process of engaging the pertinent federal and state offices that may also be involved in the development of the Task Forces in each state. Dialogue has been initiated with representatives from the Policia Federal Preventiva, shelters, and other government offices. Additionally, a directory of individuals and organizations dedicated to working with victims of TIP has been initiated. UPCOMING ACTIVITIES The next quarter will feature an expansion of current efforts to initiate dialogue and identify members of state Task Forces. The completion of this objective will benefit greatly from the achievement of tasks in the previous two activities. As the National Network of TIP shelters is better defined and specific shelters and service providers are provided training, a clearer picture of which civil society organizations are adequately equipped to be part of the state Task Forces will emerge. This progression will also be useful in the involvement of state agencies that will also be awarded specific training. Shelters and service providers must be involved in the discussion of Task Force objectives both in the short and long term, as well as the role of specific organizations. As this process develops, the project team will work the development of an Action Plan and its implementation for each Task Force. Quarterly Report No. 1 May-June

12 APPENDIX A: PROGRAMS, AGENDAS, AND ACTIVITIES Quarterly Report No. 1 May-June

13 A-1 Trata de Personas: Protección, Procuración de Justicia y Prevención Seminario/Taller Tapachula, Chiapas, México 14 y 15 de junio de 2006 Sede: Centro Internacional de Convenciones, Hotel Travelodge Loma Real Miércoles 14 de Junio (primer día) 08:30:09:00 hrs Registro de participantes 09:00-09:30 hrs Acto Inaugural Ponencias (duración 30 minutos) Mensaje del Dr. José Luis Soberanes Fernández, Presidente de la Comisión Nacional de los Derechos Humanos. Mensaje de la Lic. Yesmín Lima Adam, Presidenta de la Comisión de Derechos Humanos de Chiapas. Mensaje y Declaratoria Inaugural a cargo del Lic. Pablo Salazar Mendiguchía, Gobernador del Estado de Chiapas. 09:30-11:00 hrs El Fenómeno de la Trata de Personas.- Definición de la trata de personas. Diferencia entre la trata y el tráfico de personas. Laura Langberg, Directora del Proyecto de Apoyo a Refugios para Víctimas de Trata en México.- Introducción y definición de trata. (uso de spots de trata). Miguel Ontiveros, Consultor de UNICEF.- Marco Jurídico en el combate a la trata de personas en México, tipificación actual. La iniciativa del proyecto de ley para sancionar. Rodolfo Casillas, Investigador de la Facultad Latinoamericana de Ciencias Sociales (FLACSO).- La frontera sur de México. La situación en Chiapas. Sesión de preguntas y respuestas. Moderador: Héctor Pérez (CNDH-Tapachula) 11:00-11:15 hrs Receso 11:15-13:45 hrs Procuración de Justicia.- El papel del fiscal/ministerio público y los obstáculos que enfrenta para trabajar en casos relacionados con la trata de personas. Atención a víctimas durante el proceso jurídico. Quarterly Report No. 1 May-June

14 14:00-16:00 hrs Comida Lou de Baca/Rubén Pérez, Unidad de Trata del Departamento de Justicia de los Estados Unidos.- Anne Pickett, Coordinadora de la Sección de Trata del Departamento de Seguridad Interna.- Ángela Villeda, Programa sobre Asuntos de la Mujer, la Niñez y la Familia, de la CNDH.- El papel del Fiscal desde la perspectiva de los derechos humanos. Ardelio Vargas, Jefe del Estado Mayor de la Policía Federal Preventiva.- Visión Federal del Combate a la Trata. Desafíos. Sesión de Preguntas y Respuestas Moderador: Mario Ruiz Coutiño (CDH-Chiapas) 16:00-17:30 hrs Atención a Víctimas.- Asistencia legal, médica y psicológica a víctimas. Los albergues. 17:30-17:45 hrs Receso Juan Artola, OIM-México.- Identificación y atención de probables víctimas de Trata. Padre Flor María Rigone, Albergue Belén (Tapachula).- La experiencia del Albergue Belén. Gabriela Saavedra, Asesora de Víctimas del Proyecto de Apoyo a Refugios con Víctimas de Trata en México, Estado de Nuevo Leon.- Casos específicos y acciones realizadas. Sesión de Preguntas y Respuestas Moderador: Jorge Antonio Utrilla Moñoa (Fiscalía General de Chiapas) 17:45-19:00 hrs Prevención.- Medidas preventivas y correctivas: Campañas de Difusión y Concientización para la Ciudadanía. Justicia para resarcir el daño. Mesas simultáneas de Trabajo Rafaela Herrera, Asesora del Programa de Apoyo al Estado de Derecho de US-AID/México.- Salvador Beltrán (CNDH).- Hacia el establecimiento de una Política para prevenir la Trata de Personas. Sesión de Preguntas y Respuestas Moderador: Luis Flores (OIM-Tapachula) Jueves 15 de junio (segundo día) 09:00-10:00 hrs Testimonio de Víctima de Trata 10:00-10:15 hrs Distribución de participantes en mesas de trabajo 10:15-14:00 hrs Desarrollo de mesas de trabajo Quarterly Report No. 1 May-June

15 12:00-12:15 hrs Receso Mesa I: Atención a Víctimas (máximo 30 minutos) Alejandro Hernández (CNDH).- Los Derechos Humanos y la Trata de Personas. Fernanda Ezeta (OIM-México).- Identificación y Atención a Víctimas. Leonel Dubon (Casa Alianza, Guatemala).- La experiencia de Casa Alianza. Ariel Riva (ACNUR-Chiapas).- Alternativa de Protección Internacional para la víctima. Moderador: Fermina Rodríguez.- Centro de Derechos Humanos Fray Matías de Córdova. 12:15-14:00 hrs Reanudación de mesas de trabajo (máximo 30 Minutos) Mesa II: Procuración de Justicia Noemí Maymi Machuca, Experta.- Identificación de Victimas. Anne Pickett, Metodología sobre la Entrevista de Víctimas e Investigación de Tratantes. Lou de Baca/Rubén Pérez (Procurador Federal).- Marco Jurídico Nacional e Internacional de la Trata de Personas. Mario Alberto Trujillo Cortez, (Fiscal General Adjunto de Derechos Humanos y Atención a Víctimas y Servicios a la Comunidad, Chiapas) / Daniel Castillo Arriaga (Fiscal Regional).- Una Visión Jurídica desde la Frontera Sur. René Cortés León, Subsecretario de Seguridad Pública de Chiapas.- La trata, puesta a disposición y preservación del lugar de los hechos, por la Policía Estatal. Luis Coutiño Ruiz, Instituto de Formación Policial de Chiapas.- Mejoras en la Capacitación Policial de Chiapas. Moderador: Lic. Augusto del Pino (Fiscalía Chiapas) 14:00-15:00 hrs Análisis de caso. Sesión interactiva. Preguntas respuestas 15:00-17:00 hrs Comida 17:00-17:30 hrs Ponencia: Lic. José Luis Santiago Vasconcelos Subprocurador de Investigación Especializada en Delincuencia Organizada (PGR).- La Procuración de Justicia Federal ante el reto de la Trata de Personas. 17:30-17:45 hrs Sesión de preguntas y respuestas Quarterly Report No. 1 May-June

16 18:00-18:30 hrs Presentación de Conclusiones 18:30-19:00 hrs Sesión de clausura Para cualquier aclaración favor de llamar a: Lic. Jackeline Curto: (55) ext Lic. Salvador Beltrán: (55) ext 1710 Mensaje de Lic. Mariano Herrán Salvatti, Fiscal General del Estado de Chiapas. Mensaje de la Lic. Yesmín Lima Adam, Presidenta de la Comisión de los Derechos Humanos del Estado de Chiapas. Mensaje del Lic. Mauricio Farah Gebara, Quinto Visitador de la Comisión Nacional de los Derechos Humanos. Declaratoria de clausura Quarterly Report No. 1 May-June

17 A-2 Seminario Taller La Trata de Personas: Protección, Procuración de justicia y Prevención Tapachula, Chiapas, 14 y 15 de Junio del 2006 Conclusiones En el Seminario Taller La Trata de Personas: Protección, Procuración de justicia y Prevención, organizado por la Comisión Nacional de Derechos Humanos (CNDH) y la Organización Internacional para las Migraciones (OIM). participaron más de 150 representantes de instituciones gubernamentales federales, estatales y municipales, miembros de diferentes asociaciones civiles y ONGs del Estado de Chiapas, representantes de Comisiones Estatales de Derechos Humanos de Chiapas, Veracruz y Yucatan, así como representantes diplomáticos y consulares de Brasil, Guatemala, Honduras, El Salvador y Estados Unidos. Participaron también funcionarios y representantes de la sociedad civil de Guatemala. Los participantes expresaron su satisfacción por el alto nivel de las presentaciones y muy especialmente el activo intercambio y discusión de ideas, experiencias y situaciones prácticas que se dio durante las mesas de trabajo. Los participantes coincidieron en destacar que la trata de personas es un delito serio contra el orden interno y la seguridad pública, muchas veces con ramificaciones transfronterizas y transnacionales, en el que están implicados individuos, pequeños grupos delictivos y hasta grupos criminales de mayor envergadura, que actúan en diversas zonas del país. Pero además, la trata de personas es un grave atentado contra los derechos humanos y la dignidad de las personas, que amenaza especialmente a mujeres y niños. En ese sentido, la lucha contra la trata de personas requiere de un enfoque multidimensional y una respuesta coordinada entre muy diversas instancias de gobierno, federal, estatal y municipal, incluyendo activamente a la sociedad civil. Los fuertes y crecientes flujos migratorios en la frontera sur, hacen de esta zona un área fértil para la proliferación de la trata de personas, a través de distintas formas de engaño, reclutamiento forzoso, actuación de coyotes y traficantes, explotación laboral de migrantes y diversas formas de explotación sexual de menores y mujeres. Las conclusiones se agrupan en cuatro grandes áreas temáticas: 1. Marco Jurídico y Procuración de Justicia 2. Aspectos Políticos e Institucionales 3. Prevención e Información Pública 4. Atención a Víctimas Quarterly Report No. 1 May-June

18 1. Marco Jurídico y Procuración de Justicia El Protocolo contra la Trata, firmado en Palermo y ratificado por México en el 2003, implica el compromiso de sancionar una ley específica contra la trata de personas, instrumento imprescindible para una efectiva procuración de justicia. En la medida en que el Instrumento Internacional contra la trata, forma parte del ordenamiento interno de México en virtud de haber sido ratificado, podría ser aplicado para perseguir y procesar a los implicados, en tanto no se cuente con una legislación específica en la materia. La legislación interna a ser sancionada no debe limitarse a la tipificación y penalización del delito, sino que debe incluir también mecanismos específicos para la asistencia y protección a las victimas. La mencionada legislación, debe garantizar la estancia legal en el país, de aquellas víctimas extranjeras que no estén en condiciones de retornar a su país de origen, o no sea conveniente su retorno. De igual manera, se deberá garantizar la permanencia en el país, de aquellas víctimas que estén asistiendo en el curso de un procedimiento legal. De todas formas, es imperioso actuar en materia de procuración de justicia y para ello, los Ministerios Públicos y las instancias de seguridad pública deben utilizar por lo menos los instrumentos jurídicos ya existentes en los códigos penales y de procedimientos, a los efectos de Iniciar investigaciones, sustanciar acusaciones y procesar a los implicados. Es conveniente homologar los códigos penales de los diferentes Estados entre sí conforme al espíritu de los instrumentos internacionales y homogeneizar las figuras delictivas y las sanciones penales. Las asociaciones civiles pueden ser un elemento coadyuvante valioso para la procuración de justicia y, en ese sentido, es necesario superar falsos enfrentamientos y promover la coordinación entre gobierno y sociedad civil. Es imprescindible una mayor capacitación en materia de investigación de casos y situaciones de trata y específicamente en cómo Iniciar una querella. Es necesario promover la participación de la sociedad a través de la denuncia de posibles casos de trata. 2. Aspectos Políticos e Institucionales Para lograr mayor efectividad en la lucha contra la trata de personas, es necesario definir una política y un programa nacional, que incluya la procuración de justicia, la protección a las víctimas y la prevención. Este programa, requeriría del establecimiento de una estructura interinstitucional en la que participen las instancias de los tres órdenes de gobierno y la sociedad civil. Es necesario establecer redes locales de cooperación, a nivel estatal y, en lo posible municipal, en zonas de mayor incidencia, para coordinar acciones practicas. Se recomienda establecer fiscalías especializadas contra la trata de personas que contemplen la persecución de oficio del delito. 3. Prevención e Información Pública Se debe considerar la conveniencia de instrumentar una campaña de información pública para sensibilizar a la sociedad sobre la existencia de la trata de personas en el país y los mecanismos que utilizan los tratantes para reclutar y engañar a sus victimas. Se debe dar especial atención a informar a los padres de familia sobre los riesgos que amenazan a adolescentes, niñas y niños. La capacitación de funcionarios públicos, tiene un rol esencial en la prevención del delito. Quarterly Report No. 1 May-June

19 La promoción de una cultura de la denuncia es otra herramienta imprescindible para que sea la propia sociedad la que ponga en alerta a las autoridades sobre posibles situaciones de trata. A tal efecto, debe considerarse la conveniencia de contar con una línea telefónica gratuita para la recepción de denuncias, lo cual también contribuiría a la recopilación de información. 4. Atención a Víctimas La protección y asistencia a victimas debe ser asumida a través de un esquema institucional adecuado que asigne mandatos y responsabilidades específicas a las Instituciones gubernamentales involucradas. La correcta identificación de una victima de trata es un primer paso fundamental para su asistencia. Para ello, es necesario desarrollar mayor capacitación específica. Por su parte, el Ministerio Publico debería preparar un manual con criterios para identificación de víctimas. Las autoridades deberían realizar inspecciones periódicas en lugares donde es posible detectar a víctimas de trata, como por ejemplo maquilas, centros de producción agrícolas, zonas de tolerancia, lugares nocturnos, etc. Las asociaciones civiles y las iglesias tienen un papel relevante que jugar, tanto en la identificación de víctimas, como en la asistencia posterior. En ese sentido, es imprescindible la estrecha cooperación y coordinación entre esas instancias y las entidades gubernamentales. El acompañamiento y la atención psicológica a las víctimas, en cuanto son identificadas, es esencial para su recuperación del impacto de la trata y su reinserción social. La constitución de redes locales de asistencia a victimas, como la que se esta iniciando en Tapachula, es una herramienta que debería considerarse en los diversos Estados del país. Se hace imperativo el establecimiento de una línea telefónica gratuita de auxilio a victimas, que cuente con operadores especialmente capacitados para dar una respuesta inmediata y adecuada, y referir a las victimas a las redes de apoyo. Tapachula, Chiapas, 15 de Junio del Quarterly Report No. 1 May-June

20 A-3 Quarterly Report No. 1 May-June

21 Quarterly Report No. 1 May-June

22 Quarterly Report No. 1 May-June

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