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Viewing cable 06SANTIAGO438, CHILE: SUBMISSION FOR SIXTH ANNUAL TIP REPORT
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| Reference ID | Created | Released | Classification | Origin |
|---|---|---|---|---|
| 06SANTIAGO438 | 2006-03-02 22:30 | 2011-08-25 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Santiago |
VZCZCXYZ0000
PP RUEHWEB
DE RUEHSG #0438/01 0612230
ZNR UUUUU ZZH
P 022230Z MAR 06
FM AMEMBASSY SANTIAGO
TO SECSTATE WASHDC PRIORITY 8580
UNCLAS SANTIAGO 000438
SIPDIS
SENSITIVE
SIPDIS
STATE FOR G/TIP LBROWN, WHA/PPC MPUCCETTI, WHA/BSC ISHERIDAN
E.O. 12958: N/A
TAGS: KCRM PHUM KWMN ELAB GTIP CI
SUBJECT: CHILE: SUBMISSION FOR SIXTH ANNUAL TIP REPORT
(PART 1 OF 2)
REF: A. STATE 3836
¶B. 05 SANTIAGO 465
¶C. 05 SANTIAGO 466
¶1. (SBU) Summary: Chile continues to improve in its efforts
to identify, investigate and prosecute trafficking in
persons, and to protect trafficking victims. The number of
known or suspected cases of cross-border trafficking in Chile
is low, although there is a problem with domestic commercial
sexual exploitation of minors (CSEM). The Government of
Chile is increasingly focusing specific efforts on
trafficking in persons (TIP). In 2005, the GOC named a
national anti-TIP coordinator and ratified the UN Protocol to
Prevent, Suppress and Punish Trafficking in Persons,
Especially Women and Children. Legal reforms have improved
mechanisms to prosecute traffickers, provide victim
assistance and preserve victims' rights. The GOC is
cooperating with OAS and MERCOSUR efforts to define the
extent of TIP in the region, and has also begun compiling
information on trafficking investigations and prosecutions
domestically. The GOC could further improve its anti-TIP
efforts by passing national legislation explicitly
criminalizing TIP in all its forms; increasing public TIP
awareness of and sensitivity toward TIP; providing temporary
residency ("T" visa status) to victims; and training labor
inspectors to identify possible trafficking situations. End
Summary.
¶2. (U) In accordance with reftel A request, Post is
submitting data on trafficking in persons in Chile. Embassy
point of contact for trafficking in persons issues is
Political Officer Jeffrey E. Galvin, tel: (56)(2)330-3334;
fax: (56)(2)330-3318; email: GalvinJE@State.gov.
¶3. (SBU) OVERVIEW OF CHILE'S ACTIVITIES TO ELIMINATE
TRAFFICKING IN PERSONS: Information provided below is keyed
to questions from ref A, paragraph 21.
-- A. There are a significant number of juveniles involved in
commercial sexual exploitation in Chile, almost all of whom
are Chilean nationals, as well as some isolated cases of
cross-border trafficking. Chile appears to be a country of
origin, transit and destination for trafficked persons.
-- In the past, there were indications that a very small
number of Chilean women were being tricked into the
commercial sex trade in Argentina, Peru, and Bolivia through
false job advertisements.
-- In February 2006, authorities detained two Chilean
nationals and an Argentine citizen for trafficking nine
Argentine women into prostitution in Antofagasta. The
victims were allegedly promised relatively high-paying
waitress jobs, only to be held at a remote location and
forced into prostitution once in Chile. Two victims escaped
and contacted Chilean authorities, who rescued the other
victims and arrested the traffickers. The victims were
placed with the Antofagasta prosecutor's office victim
assistance program, and an investigation had started at the
time of this report.
-- In January 2006, there were 74 active prosecutions for
juvenile commercial sexual exploitation: 27 for the promotion
and facilitation of prostitution; 20 against clients of
under-age prostitutes; 12 for production of pornographic
material; and 15 for possession and distribution of
pornographic material.
-- In November 2005, responding to a tip from a customer,
authorities rescued three young Chinese women working at a
Santiago spa recently opened by an ethnic Chinese Chilean
citizen. The women were allegedly recruited in China and
promised an opportunity to learn Spanish at a Chilean
university. Once in Chile, they were forced to work at the
spa giving massages to customers, living in a nearby hotel
owned by the spa owner, with their freedom of movement
restricted. The victims claim they were pressured to provide
sex to clients but deny having actually engaged in sexual
acts. Chilean prosecutors plan to finish their investigation
by mid-April and file formal charges against the recruiter
and the spa owner. The victims have been placed in a
victim's assistance program by the Santiago South
prosecutor's office.
-- In November 2005, Post was contacted by the Colorado Legal
Services' Migrant Farmworkers Division, about two Chilean
ranch-hands seeking T-visa protection and claiming to have
suffered labor exploitation in Colorado. These individuals
traveled to the U.S. on valid H2A visas. Post's attempts to
obtain further information from Colorado Legal Services on
the recruitment of these individuals or other specifics of
their case have been unsuccessful to date.
-- In January 2005, authorities in Chile and Peru arrested
two women running a sham employment agency. The agency
offered Peruvian women employment as waitresses in Chile, but
upon arrival the victims were compelled to sign employment
contracts and forced into prostitution. Three victims of
this trafficking incident were repatriated to Peru.
-- Outside of a thwarted attempt by a Spanish couple to
illegally adopt a Chilean infant, there were no reported
cases of cross-border trafficking in 2004, based on
information in the press and from the Investigative Police
(Policia de Investigaciones de Chile - PICH).
Reliable sources, including the national Prosecutors Office
(MP, Ministerio Publico), police, news reports, and NGOs,
indicate that cross border trafficking for sexual or labor
exploitation is limited in scope. However, no comprehensive
or official statistics on TIP in Chile are currently
available. What information is available tends to focus on
sexual exploitation of children. A 2003 study by Chile's
National Department of Children's Affairs (SENAME) examined
the problem of commercial sexual exploitation of children
under the age of 18 (the legal age for commercial sex workers
in Chile). The majority of the juvenile victims lived with
their own families or relatives. According to the study's
conclusions, in 2003 more than 3700 children and adolescents
were victims of commercial sexual exploitation in Chile.
(Note: In January meetings with Poloffs (septel), both the
Director of the National Women's Service and the acting head
of the National TIP Coordinator's office expressed doubts
about the validity of this study, saying its projections were
based on a limited and not-scientific sample. End note.)
The study stated that 78 percent of the victims were female
and 22 percent were male, with the majority having initiated
commercial sexual activity when they were 12-13 years old.
Forty percent of the victims had not completed basic levels
of education. The study concluded that this sexual
exploitation was caused by a number of factors -- including
extreme poverty, lack of education and training in both
schools and families, history of violence or sexual abuse
within the family, and child labor.
-- B. Within Chile, victims of sexual exploitation have
reportedly been trafficked from rural areas to urban areas
(i.e., Santiago, Iquique, Valparaiso), and to towns near
major mining operations in northern Chile. From Chile,
victims have been trafficked to neighboring countries
(Argentina, Peru, Bolivia), the U.S., Europe, and Asia,
according to law enforcement officials. Victims also come
from Peru, Argentina, Colombia and Bolivia to Chile, although
it is difficult for authorities to distinguish trafficked
persons from economic migrants.
Interviews conducted in 2004 by the NGOs La Morada and
Instituto de la Mujer indicated that Chile is becoming a
destination country in the region, due to economic
difficulties in Peru, Bolivia and Argentina. Anecdotal
evidence indicated that up to half of the women working in
clubs and in the commercial sex trade in Santiago were
foreigners. However, a senior Labor Ministry official told
Poloff that the Ministry was aware of these claims, and
stated there was no evidence to indicate the women referred
to were trafficking victims.
Recognition of trafficking in persons (TIP) as a serious
issue is increasing in Chile. In February 2005, Chile
ratified the Protocol to Prevent, Suppress and Punish
Trafficking in Persons, Especially Women and Children (the
Palermo Protocol). This Protocol requires Chile to ensure
its national legislation effectively recognizes and punishes
TIP as a serious crime. The GOC has designated an office in
the Interior Ministry as National Coordinator for anti-TIP
activities. Legal reforms which took effect nationwide in
June 2005 have made the prosecution of TIP-related cases more
rapid and transparent. The MP maintains statistics on
criminal prosecutions, and plans to begin compiling
statistics on TIP.
Official and NGO sources indicate that low-income, young
women are the primary targets for trafficking within Chile
and to other countries. PICH's BRISEX (sexual crimes brigade)
reports alleged traffickers use newspaper advertisements to
lure young women into the sex trade. One trafficking group
used ads for jobs as models and product promoters to lure
girls aged 11-17, and then took them to an apartment to
engage in sex for money. Advertisements for relatively
high-paying jobs as waitresses in neighboring countries or
towns near mining operations are another frequently cited
ploy. Law enforcement agents claim, in general terms, that
traffickers looking for children target economically
disadvantaged families. Traffickers convince the parents
they are giving the child the opportunity for education or
legitimate employment. The parents reportedly do not know
what actually happens to their children and therefore do not
report the situation to the police.
It is relatively easy to obtain a work permit and residency
in Chile. This, combined with recent labor reforms, good
dissemination of information on labor rights, and generally
effective enforcement reduces the likelihood of trafficking
for labor exploitation. However, increasing economic
migration may make it difficult to identify cases of illegal
trafficking. Enforcement efforts were effective when
possible trafficking situations were identified. Border
control officials regularly question young women entering and
leaving Chile about their intentions, and informed them of
the possibility that an offer of work in a bar or club could
be illegitimate.
-- C. There are few practical limitations on the
government's ability to address TIP. Funding for law
enforcement, prosecutors' offices and the courts is generally
adequate. Overall resources dedicated specifically to
anti-trafficking efforts are modest but increasing, as the
GOC focuses on TIP as an important issue. The GOC provides
funding for official travel to TIP conferences or workshops,
and has been receptive to Post offers of training in
anti-trafficking efforts. Many of the services provided or
partially funded by the GOC for victims of sexual violence in
general are also available to trafficking victims. The GOC's
budget for victim assistance was nearly USD 2 million in
¶2006.
-- D. To date, the GOC has not systematically monitored its
anti-trafficking efforts. Poloff and TIP Regional Report
Officer met with the National TIP Coordinator's Office
(NTIPCO) in the Interior Ministry on January 27, 2006.
NTIPCO was established in mid-2005, after Chile's
ratification of the Palermo Protocols. It is in the process
of collecting data from other branches of the GOC on their
anti-TIP activities. Police data is made public, but is not
disaggregated to identify trafficking or possible trafficking
cases. In coordination with Save the Children, the GOC is
developing an integrated system linking police, immigration
and border control officials, social service agencies,
hospitals, and morgues to help identify trafficking cases.
The MP is attempting to compile interim information on
trafficking investigations and prosecutions to release to
Post.
¶4. (SBU) PREVENTION: Information provided below is keyed to
questions from ref A, paragraph 22.
-- A. The GOC recognizes trafficking in persons occurs in
Chile and has the legal framework to prosecute TIP and
TIP-related activities as serious crimes. The GOC is placing
more priority on anti-trafficking efforts, and is cooperating
with regional efforts through the OAS and MERCOSUR to
identify the extent and nature of TIP in the region.
-- B. The newly-formed National TIP Coordinator's Office
(NTIPCO) in the Interior Ministry has the overall lead on
TIP. The Ministerio Publico (MP, national Prosecutor's
Office) is responsible for the investigation and prosecution
of trafficking crimes. The Chilean Investigative Police
(PICH) Brigada de Delitos Sexuales (Sex Crimes Unit) and
Brigada de Cibercrimen (Cybercrime Unit) conduct surveillance
and investigations. The Ministry of Interior is responsible
for border security and immigration control. The National
Childrens' Service (SENAME) and National Womens' Service
(SERNAM) are involved in prevention and protection efforts.
These agencies work in cooperation with the Ministries of
Interior, Justice, Education and Health on prevention, public
awareness and victim's assistance programs. There are also
numerous NGOs and private organizations who have formed
networks to address TIP-related issues.
-- C. On January 25-26, 2006, SERNAM conducted G/TIP-funded
anti-trafficking programs for local officials and women's
groups in the northern cities of Iquique and Arica. The
program brought together presenters from the Interior
Ministry, State Defense Council (roughly the equivalent of
the U.S. Attorney General), and NGOs. The seminars were
designed to inform local activists of national and
international norms regarding trafficking, and to train local
officials to identify trafficking and to use existing
legislation and legal tools to attack the problem. The four
seminars reached a total of 100 local officials and 160
activists in the two cities.
-- On May 25-27, the MP in cooperation with GTZ (the German
development corporation) and PICH conducted a seminar on
"Fighting Child Pornography and the Trafficking of Persons
for the Sex Trade." The seminar was attended by nearly 1000
law enforcement personnel from Chile and the region, with
presentations by experts from Germany, the Netherlands and
Chile. This seminar content will be the basis for an
anti-TIP module to be taught at the Chilean Police Academy
starting in 2006.
-- In 2004, the Ministry of Labor and SERNAM conducted labor
rights seminars for domestic and service (bar and restaurant)
workers and women's NGOs in Antofagasta and Iquique. While
not specifically targeting trafficking, these seminars were
targeted to educate these high-risk populations of their
legal rights and protections, and how to report abusive
situations.
-- SENAME and the Ministry of Justice were involved in
creating the national action plan against commercial sexual
exploitation of minors (CSEM), and has conducted national
campaigns to raise awareness of this issue. The multi-agency
"Framework for Action Against the Commercial Sexual
Exploitation of Children and Adolescents" created an annual
review mechanism for GOC agencies and NGOs to meet and
evaluate efforts to reduce sexual exploitation of children in
Chile.
-- D. In an effort to keep children in school, the government
passed legislation in 2003 that raised mandatory education
from 8 to 12 years. The Ministry of Labor, in conjunction
with the Ministry of Education and UNICEF, has a program to
keep adolescents from leaving school in order to go to work,
particularly for temporary agricultural jobs during the
harvest season. The GOC funds Integra, a program that
provides day-care for low-income families. The GOC also
provides some funding to NGOs working on women's and
children's issues.
-- E. Note: Ref A, paragraph 22, did not include a sub E.
End note.
-- F. The GOC has generally positive relations with NGOs
working on trafficking-related issues. Chilean civil society
organizations are somewhat weaker than those in developed
countries. The GOC encourages NGO activity in women's and
children's issues and provides some funding. Nearly 80
percent of SENAME's budget supports NGO programs,
particularly those that work with street children. However,
most funding is project-based and on a year-to-year basis.
While a variety of NGOs address the issue of trafficking in
persons as part of their other activities, no single group
has emerged as a driving force and effective partner on TIP
for the GOC or international organizations.
-- G. Immigration controls are well developed, particularly
in the airports, seaports and along the borders with Peru and
Bolivia. The GOC monitors migration for unusual patterns
that could indicate trafficking. However, due to the length
of Chile's borders, GOC officials argue it is nearly
impossible to monitor all movement of persons. The Policia
Internacional (International Police), who are responsible for
immigration matters and border security, are concerned about
illegal migration, alien smuggling and human trafficking,
mostly illegal adoptions. Post has a good working
relationship with the police, and we have cooperated on many
cases. Anecdotal evidence suggests that persons allegedly
involved in human trafficking, illegal migration, and alien
smuggling enter and exit Chile in those areas that are not
well patrolled and may employ false documentation.
-- H. NTIPCO, housed in the Interior Ministry, is the GOC's
designated point of contact on trafficking. It has created a
formal multi-agency working group on trafficking, and is
creating a mechanism for inter-agency coordination and
communication. That said, this process is in its early
stages. For example, a mid-level official at the MP told
Poloff that Post should continue to solicit the MP directly
for information on prosecutions.
There has been increasing cooperation between government
agencies since 2002. PICH and Carabineros work with the
Ministry of Interior to track missing persons in a combined
database, and PICH created a dedicated missing persons unit
in 2004. SENAME and the Ministries of Justice and Labor
track child labor cases. SENAME, SERNAM, the Ministries of
Government and Health, PRODEMU (the Foundation for the
Development and Promotion of Women) and the National Board of
Chilean Child Care Centers (JUNJI; Junta Nacional de Jardines
Infantiles) have formed the Protect Network (Red Protege),
which offers public awareness and education campaigns aimed
at preventing juvenile sexual violence and abuse.
--J. The GOC has no national plan of action to address
trafficking in persons.
SUBMISSION FOR SIXTH ANNUAL TIP REPORT CONTINUED SEPTEL
KELLY