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Viewing cable 06DHAKA775, SOLICITATION FOR INCLE FUNDS
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| Reference ID | Created | Released | Classification | Origin |
|---|---|---|---|---|
| 06DHAKA775 | 2006-02-14 00:59 | 2011-08-25 00:00 | UNCLASSIFIED | Embassy Dhaka |
This record is a partial extract of the original cable. The full text of the original cable is not available.
140059Z Feb 06
UNCLAS SECTION 01 OF 05 DHAKA 000775
SIPDIS
E.O. 12958:N/A
TAGS: PGOV PHUM PREL BG
SUBJECT: SOLICITATION FOR INCLE FUNDS
REF: 2005 STATE 221416
¶1. Per reftel, post is forwarding the following TIP proposal
submitted by the Office of Overseas Prosecutorial Training and
Development (OPDAT) at the US Department of Justice. It is our
understanding that this same proposal has already been submitted
directly to the G/TIP office.
¶2. Post strongly supports this proposal. The training proposed
squarely addresses the lack of knowledge and skills among
Bangladeshi public prosecutors to effectively prosecute human
traffickers, and focuses on a select group of attorneys and
judges. This proposal also complements on-going initiatives
being carried out by USAID and other Agencies at post. We
anticipate the outcome will be improved quality of cases
presented and eventually higher conviction rates.
¶3. OPDAT's proposal follows.
BEGIN TEXT
¶A. Title: Strengthening Bangladeshi Capacity to Prosecute and
Adjudicate Trafficking in Persons Crimes
¶B. Name of Recipient Government Agency:
U.S. Department of Justice
Office of Overseas Prosecutorial Development, Assistance and
Training (DOJ/OPDAT)
Attention:
Christopher Lehmann
Regional Director
Phone: 202-307-0421
e-mail: Christopher.lehmann@usdoj.gov
Beth Truebell
Phone: 202-514-3253
e-mail: beth.truebell2@usdoj.gov
This proposal was prepared in partnership with:
Nancy Langston
Resident Legal Advisor (DOJ/OPDAT)
LangstonNX@state.gov
US Embassy
Dhaka, Bangladesh
Work tel: 880-2-885-5500, ext. 2516
(RLA coordinated Country Team review of proposal for the Mission)
¶C. Duration of Project: This is proposed as a one-year project.
It will be implemented as a follow-on project to an OPDAT program
now underway in Bangladesh to develop and improve the abilities
of Bangladeshi prosecutors to pursue trafficking in persons (TIP)
crimes.
¶D. Description of Project:
¶1. Background/Justification
Bangladesh is a country of origin and transit for women and
children trafficked for the purposes of sexual exploitation,
involuntary domestic servitude, and debt bondage. An estimated 10-
20,000 women and girls are trafficked annually to India,
Pakistan, Bahrain, Kuwait, and the United Arab Emirates (U.A.E.).
A small number of women and girls are trafficked through
Bangladesh from Burma to India. Bangladeshi boys have also
trafficked into the U.A.E. and Qatar and forced to work as camel
jockeys and beggars. Women and children from rural areas in
Bangladesh are trafficked to urban centers for commercial sexual
exploitation and domestic work.
Bangladesh has made important strides in dealing with trafficking
problems. Laws designed to specifically criminalize anti-
trafficking were added to the Penal Code in 2000, and law
enforcement resources have been specifically dedicated to
handling such cases. Twenty-five District Judges were assigned
to deal with trafficking cases arising under the Penal Code, and
an additional 41 Special District Tribunals were set up to handle
cases under the Women's and Children's Code. In 2004, the
government designated a Deputy Attorney General to ensure quick
disposal of trafficking cases, and approximately 60 Special
Public Prosecutors have been assigned to handle such cases.
While Bangladesh reports obtaining convictions in TIP
prosecutions (17 last year), as well as initiation of TIP related
corruption prosecutions (11 cases reported initiated last year),
the DOJ Resident Legal Advisor posted to Embassy Dhaka, and other
DOJ lawyers who have assessed Bangladeshi prosecution capacity
remain skeptical of the accuracy and veracity of these figures.
In actual fact the "Special Public Prosecutors" are lawyers in
private practice who are paid a pittance for handling their TIP
cases. While they are reported to be generally well intentioned,
and attempt to do their best in the face of tremendous obstacles,
they are poorly trained and susceptible to corruption.
Predictably, there is also a serious disconnect between
investigators and prosecutors (among other things, the
investigators file the charges before the prosecutor is even
involved). Prosecutors do little in the way of case preparation
and often meet the victims and witnesses for the first time at
the court proceedings.
As noted, DOJ/ODPAT is currently engaged in a G/TIP funded
program to develop prosecution skills and competence to handle
trafficking cases, and to put in place indigenous training
capacity. DOJ has two initial goals: train all 60 of the
prosecutors (with the additional inclusion at that training of
the 10 investigators who are members of the Anti-TIP police
monitoring cell), and gradually build indigenous training
capacity. A four day train-the trainer program is scheduled for
Dhaka for the week of March 20, 2006, with follow on training and
mentoring
¶2. Objective:
To expand and strengthen enforcement of Bangladesh's anti-TIP
laws against persons engaged in human trafficking, by improving
the capacity of Bangladesh's prosecutors and judges to develop,
handle and justly resolve such cases.
¶3. Activities:
The Project will consist of two main components: (1) follow-on
training for prosecutors, with emphasis on developing indigenous,
self-sustaining training capacity, and (2) TIP training for
judges on both the District Court and Special Tribunals, again
with the ultimate goal of developing self-sustaining training
capacity. The two components will be separately implemented, as
the judges have expressed a strong insistence to DOJ to be
trained alone (there are a variety of persuasive institutional
and cultural reasons for this, reflecting the different
professional standing of prosecutors and judges in Bangladesh).
¶A. Prosecutor Training
DOJ/OPDAT will continue its ongoing efforts to develop the skills
of prosecutors to handle TIP cases, while at the same time build
and expand a team of Bangladeshi prosecutor-trainers, who can
increasingly take responsibility for implementing such training.
The substantive training will address the Bangladeshi TIP
statutes, TIP modalities seen in Bangladesh (with case studies),
advocacy skills, the need for prosecutors and law enforcement to
be aware of and sensitive too the special nature and needs of
trafficking victims, resources available for TIP victims, the
roles of NGOS in helping to develop effective prosecutions, the
need for greater cooperation between both prosecutors and between
investigators and prosecutors and NGOs, witness protection, and
international legal assistance mechanisms.
Development of a cadre of Bangladeshi trainers is a longer term
goal. TIP training for prosecutors needs to be put in a larger
context: Bangladeshi prosecutors do not currently receive any
kind of specialized or continuing legal training. There is no
prosecutor training academy. Accordingly, it is unreasonable to
expect that one or two "train the trainers" sessions will build
the level of capacity that is sought. Instead, we propose a
gradual incorporation of Bangladeshis into the program faculty,
with US trainers mentoring promising instructors at each step of
the way, so that they can take increasing larger roles in the
training program.
DOJ/OPDAT proposes a minimum of three prosecutor training
programs at four to five month intervals, for approximately 15
prosecutors per session (these are follow-on training programs
that will build on the three training programs for prosecutors
planned under the currently funded program). The RLA at Embassy
Dhaka recommends all training be done in Dhaka, rather than the
regions for reasons of facilities, safety and logistics.
¶B. Judicial Training
Judicial training would be similar in content to prosecutor
training, but for institutional and cultural reasons, would be
run separately (ideally, in tandem with prosecutor training).
Emphasis would be placed both on providing judges with the
substantive capacity to better handle TIP cases, and on mentoring
a cadre of judicial trainers who, over time would assume a larger
role in implementing the training. Special emphasis would also
be put on issues of particular relevance to judges, including the
need for judges to treat TIP crimes as serious crimes warranting
real sentences.
Judicial training will be facilitated by the existence of a
judicial training academy in Dhaka (set up and run with support
from Danida, the Danish aid agency) under the authority of the
Law Ministry. DOJ/OPDAT proposes two training sessions; one for
District Court judges and one for Special District Tribunal
Judges.
¶C. "Refresher" Training for Prosecutors and Judges
DOJ/OPDAT proposes that graduates of both sets of training
programs return for shorter one or two day courses that will
focus on hypothetical case studies and applying law to specific
fact patterns. Refresher courses would be coordinated through
the DOJ RLA's office at the embassy and would not rely on US or
foreign faculty traveling to Bangladesh, but would instead use
Bangladeshi trainers who had been mentored during the first
rounds of training. Because the courses are shorter and simpler
in nature, refresher courses could be offered in the regions as
well as in Dhaka.
¶D. Creation of Second DOJ FSN position to support TIP programs
The success of this program will depend on the ability to have
regular follow-up with participants. As noted, in-service
training of legal professionals is, in and of itself, largely non-
existent in Bangladesh. Realistically, indigenous trainers are
not going to be produced in one-four day session, but will need
gradual and repeated mentoring to develop confidence in their
role. OPDAT experience across the globe demonstrates that local
trainers can eventually take over and handle most training
responsibilities, but that the process of building an indigenous
training corps is gradual.
Accordingly, OPDAT proposes adding a qualified Bangladeshi
attorney to its office at Embassy Dhaka, to be supervised by the
RLA and OPDAT/HQ, with primary responsibility for substantive and
logistical implementation of the program. At present, DOJ's
existing office Embassy Dhaka is staffed by only one Bangladeshi
FSN, who is exclusively funded by counter-terrorism funds, and
who already has a full portfolio of activities.
Addition of a locally employed staff (LES) person, dedicated to
this project, will also allow for better program evaluation and
better curricula development. In addition to coordinating the
training events themselves, a properly supervised LES will
provide the ability to follow actual cases through the courts,
and identify patterns and modalities as well as weaknesses in
enforcement and adjudication process. This information can be
fed back into the training programs, particularly at the follow-
on roundtable and "refresher" stages of training.
¶4. Sustainability
The program is designed to slowly develop skills and build a
sense of professionalism on the part of Bangladesh's prosecutors
and judges who handle TIP cases. Participants will be mentored
as a follow up to their initial training, to reinforce what they
have learned and encourage application of their training in daily
work lives. Once those skills are absorbed into the work habits
of the participants, they will be able to independently function
as more effective judges and prosecutors, and will be better
equipped to deal, on their own, with trafficking cases. Because
the program is focused on development of skills, it is not
dependent on additional material resources or institutional
reforms. The Judicial Training Academy will be encouraged to
incorporate these training courses into their evolving judicial
training curriculum under the auspices of the Law Ministry.
¶E. Justification: See discussion above at
Background/Justification
¶F. Performance Measures:
-- A cadre of Bangladeshi trainers is developed with
specialized competencies to deliver TIP training to prosecutors
and judges.
-- Bangladeshi Prosecutors acquire a better understanding of
the successful techniques and strategies used in anti-TIP cases
and thus are better prepared to bring such prosecutions.
-- Bangladeshi judges develop a better understanding of the
legal and societal issues presented by TIP cases, and of the
necessity of applying appropriate sanctions in such cases.
-- Number of TIP prosecutions and convictions increases.
¶G. Evaluation Plan
Participant evaluations will be solicited as part of each
training program, and recommendations and feedback will be
considered and incorporated into planning of subsequent training
sessions. DOJ/OPDAT personnel in Bangladesh will follow-up at
regular intervals with training participants to obtain further
feedback both on follow-on training needs, and to ascertain how
training is being put to use in practice.
After Action reports will be prepared for all events, and
reporting on both programs and their impact will be included in
the regular DOJ/OPDAT reporting from Post. DOJ will attempt to
monitor the handling of selected, representative TIP
prosecutions. Follow on reporting will include qualitative and
(to the extent possible) quantitative information on TIP
prosecutions and convictions in Bangladesh.
OPDAT/HQ will periodically review the program in Washington,
using after action reports, RLA reporting, and other sources.
¶H. Budget Breakout: See Appendix
¶I. Host Government Contribution: Bangladesh is one of the
world's poorest countries, and the government has few resources
to support training programs. The government is willing to make
facilities available for programs, but with the exception of the
new Judicial Training Academy, these are often in such poor
condition that they are not viable training sites. Bangladeshi
partners at the prosecutors' offices and on the judiciary
continue to give freely or their time and energy to make training
programs a success, and have exhibited important political will
towards improving anti-TIP efforts.
¶J. Proposed Funding Mechanism: INCLE Funds through DOJ/OPDAT
¶K. Embassy Point of Contact
Nancy Langston
Resident Legal Advisor (DOJ/OPDAT)
LangstonNX@state.gov
US Embassy
Madani Avenue, Baridhara
Dhaka 1212, Bangladesh
Work tel: 880-2-885-5500, ext. 2516
Work fax: (880) (2) 882-3744 (Main Embassy fax)
APPENDIX
Budget Breakout
a. Three (3) prosecutor training workshops:
(cost per workshop)
US trainers (2 per program)
Airfare (rt--$8,500 each) $17,000
Lodging (6 nights each @ $116) $1,392
Per diem (8.5 days @ $75 per day) $1,275
Subtotal $19,667
Site Expenses:
(venue and equipment rental for
4 day program) $1,000
Interpretation ($500 per day x 4) $2,000
Participant expenses (for prosecutors from
outside Dhaka):
Lodging and MI%E for 4 days
($175 per participant x 10) $1,750
Transportation ($50 x 10) $500
Materials $1,500
Subtotal (per training) $26, 417
Translation of materials
(one time expense) $1,000
Total for three programs: $80,251
b. Two (2) Judicial Training Workshops
(cost per workshop)
US trainers (2 per program)
Program 1:
Airfare (same trainers as at
Prosecutor training) 0
Lodging (5 additional nights
each @ $116) $1,160
Per diem (5 additional days
@ $75 per day) $750
Subtotal $1,910
Program 2:
Airfare (rt--$8,500 each) $17,000
Lodging (6 nights each @ $116) $1,392
Per diem (8.5 days @ $75 per day) $1,275
Subtotal $19,667
Site Expenses (each program):
(venue and equipment rental for
4 day program) $1,000
Interpretation ($500 per day x 4) $2,000
Participant expenses, each program
(for prosecutors from outside Dhaka):
Lodging and MI%E for 4 days
($175 per participant x 10) $1,750
Transportation ($50 x 10) $500
Materials $1,500
Subtotal for Judicial Program I: $8660
Subtotal for Judicial Program II: $26,417
Translation of materials
(one time expense) $1000
Total for Two Programs: $36,077
c. "Refresher" Training for Prosecutors and Judges
Five (5) one day programs in Dhaka
Site Expenses:
(venue and equipment rental for
1 day program) $250
Interpretation $500
Participant expenses (for prosecutors from
outside Dhaka):
Lodging and MI%E for 2 days
($100 per participant x 10) $1000
Transportation ($50 x 10) $500
Materials $500
Subtotal per program: $2,750
Translation of materials
(one time expense) $500
Total for five programs $14,250
d. DOJ Locally Employed Staff Attorney (FSN)
Salary and benefits $10,000
In-country travel expenses $2,500
Computer/office furnishings $12,000
Increase to ICASS Assessment $15,000
Total for LES position $39,500
Total Program Expenses $170,078
OPDAT Overhead at 12% of expenses $20,409
Program Cost: $190,487
END TEXT OF PROPOSAL
CHAMMAS