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Viewing cable 07NAIROBI1136, KENYA SUBMISSION FOR THE SEVENTH ANNUAL
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| Reference ID | Created | Released | Classification | Origin |
|---|---|---|---|---|
| 07NAIROBI1136 | 2007-03-09 10:57 | 2011-08-25 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Nairobi |
VZCZCXYZ0000
PP RUEHWEB
DE RUEHNR #1136/01 0681057
ZNR UUUUU ZZH
P 091057Z MAR 07
FM AMEMBASSY NAIROBI
TO RUEHC/SECSTATE WASHDC PRIORITY 8140
INFO RUEAWJA/DEPT OF JUSTICE WASHDC
RUEATRS/DEPT OF TREASURY WASHDC
RUEAUSA/DEPT OF HHS WASHDC
UNCLAS NAIROBI 001136
SIPDIS
SIPDIS
SENSITIVE
DEPARTMENT FOR G/TIP, G, INL, DRL, PRM, IWI, AF/RSA
E.O. 12958: N/A
TAGS: PHUM KCRM KWMN ELAB SMIG KFRD ASEC PREF KE
SUBJECT: KENYA SUBMISSION FOR THE SEVENTH ANNUAL
TRAFFICKING IN PERSONS REPORT
REF: 06 STATE 202745
¶1. (U) The following is Embassy Nairobi's submission for the
Department's annual Trafficking in Persons Report (TIP).
Information is keyed to the format provided in reftel.
¶2. (SBU) STATUS AND EXTENT OF HUMAN TRAFFICKING IN KENYA
¶I. Overview
¶A. Origin, Transit, and Destination
Origin
Kenya continues to be a country of origin for victims of
human trafficking destined for the Middle East, other nations
in Africa, and Europe and North America. Kenyan victims
overseas often find themselves forced into domestic
servitude, prostitution, service in massage parlors (where it
is also believed they are forced into prostitution), casino
work, and enslavement in brothels. Kenyans are generally
trafficked to the Middle East as cheap laborers and household
domestics, and as domestic and commercial sex workers to
Europe.
Transit
The extent to which Kenya is utilized as a transit point for
human traffickers continues to remain unclear. Kenya serves
as a transit corridor for travel among Asia, the Middle East,
Europe, and other African nations, which makes it an
attractive location for human smugglers. Kenyan authorities
believe Asians (mainly Chinese, Indian and Pakistani women)
are being smuggled to European destinations via Nairobi,
primarily to enter the commercial sex trade. South Asians are
also believed to transit Kenya through established smuggling
operations.
Destination
Evidence collected by local and international NGOs through
first-person accounts and press reporting indicates that
Kenya remains a destination for human trafficking victims.
Although the issue of sex tourism trends along the Kenyan
coast and in urban centers has been significantly highlighted
by the media, a major UNICEF research report, and increased
Government of Kenya (GOK) awareness, brothels and massage
parlors continue to recruit TIP victims. Additionally,
trafficking within Kenya, especially of child domestic
workers, remains significant, but cultural practices and lack
of awareness have slowed the Kenyan response.
More Research is Needed
Although there have been several studies on TIP in Kenya and
the East African region, only the UNICEF report on child sex
tourism was able to calculate the number of victims. (See
below.) All other research developed only anecdotal
information about trafficking. No study has estimated even
the order of magnitude trafficking has reached in Kenya.
The problem of human trafficking in Kenya has began to
attract attention from the media, the public, and the Kenyan
Government, especially after the release of the joint
UNICEF/Ministry of Home Affairs research report launched on
December 19, 2006. "The Extent and Effect of Sex Tourism and
Sexual Exploitation of Children on the Kenyan Coast" found
that ten to fifteen thousand girls living in four main
coastal resort areas are involved in casual sex work - up to
30 percent of all 12-18 year olds living in these areas. A
further two to three thousand girls and boys, up to 45
percent of whom have migrated from other parts of the
country, are involved in full-time year round commercial sex
activity. 39 percent of the clients were Kenyan, followed by
Italian (18 percent), German (14 percent) and Swiss (12
percent).
A 2006 study by the African Network for the Prevention and
Protection of Child Abuse and Neglect (ANPPCAN) found that
districts in Western Kenya were the main sources of
trafficked children. Most traffickers were relatives,
sometimes working as employment bureaus or prostitutes, who
lured the children from rural homes with promises of a better
life and education in towns. Most of the trafficked children
found their way to Nairobi or coastal towns, where they were
forced to work as household domestics or as commercial sex
workers.
A late 2006 survey by NGO Behavior Change Plus Care on
Humanity found that 60 percent of households in a the coastal
town/district of Mwembe Tayari employed a domestic, 63
percent of whom were below 18 years of age. 85 percent of
the domestics surveyed said they were driven into domestic
labor by poverty or were induced by a third party.
An Embassy-funded survey conducted in 2006 by the Kenyan
Institute of Policy Analysis and Research (IPAR) interviewed
25 TIP victims randomly selected from Mombasa, Nairobi and
Naivasha. IPAR researchers found that poverty, lack of
employment opportunities, and "better life syndrome",
especially in the coastal tourist resort areas, were the main
push factors for TIP, facilitated by corruption. Eight of
the 11 trafficking victims who met their traffickers at
coastal resorts went back to sex work within six months of
being rescued and deported from European countries for lack
of alternative means of livelihood. The survey also revealed
that eight of the 12 victims of international trafficking
obtained their travel documents and passports after bribing
government officials, either directly or through brokers.
Trafficking for commercial sex workers is being facilitated
by changes in Kenyan sexual trends. Girls are having their
first sexual experiences at an earlier age, and incidents of
child abuse have significantly increased since 2000. A
survey by Infotrak Research and Consulting in early 2007 of
2,400 young women found that 12 percent claim to have had
their first sexual encounter by age 14, and 53 percent by age
¶17. 10 percent of the women polled said they had been
sexually violated. Based on a study completed in early 2007,
Kenyan NGO "The Cradle" reported that 40 percent of sexual
abusers are neighbors, and that teachers, police officers,
and pastors also ranked highly. Cradle reported that 92
percent of child victims knew their abusers.
A comprehensive survey on the human trafficking phenomenon in
Kenya and throughout East Africa undertaken by the
International Organization for Migration (IOM) will be
available later this year. A number of Kenyan NGOs are also
undertaking surveys into the human trafficking situation in
Kenya and the region.
¶B. General Overview Inside Kenya
Despite general acknowledgement that internal trafficking is
prevalent, there are still no statistics from the government
or NGOs to quantify the size of the problem. Victims are
recruited by promises of employment or access to education
and generally trafficked from rural to urban areas, and are
put to work as domestic laborers or in the commercial sex
trade. Victims are lured from their villages by relatives,
friends of friends, or employment agencies. Traffickers
target commercial sex workers, would-be foreign workers,
street children, HIV/AIDS and other orphans, rural-to-urban
migrants, and refugees. Women and children are particularly
vulnerable. Poverty, unemployment, HIV/AIDS, and the low
status of women are among the root causes that render victims
vulnerable to traffickers.
Authorities and NGOs generally accept that Kenyan women play
an active role in recruiting victims for internal
trafficking, while foreigners and Kenyan men are involved in
external trafficking. Black market foreign employment
agencies, brothel owners, or massage parlor operators also
traffic victims directly or benefit from established
trafficking rings. Kenyan victims trafficked to foreign
countries are lured through false marriage offers, fraudulent
adoption, false travel documents, and deceptive employment
schemes.
Examples of the government's growing political will to curb
human trafficking and to better educate itself and the Kenyan
people on the phenomenon are included throughout this report.
¶C. Limitations on GoK's Ability to Address TIP
As demonstrated throughout this report, there is a
significant level of political will to address the problem of
human trafficking. The GOK is making some progress in
combating TIP. Post held meetings with senior government
officials, especially the Criminal Investigations Department,
the Kenya Police Service, the Ministry of Home Affairs, the
Immigration Permanent Secretary, the Coast Province
Provincial Commissioner, and the Ministry of Labour and Human
Resource, all of whom have acknowledged the gravity of the
problem. A GOK National TIP Task Force comprised of the
above agencies has already met and is working with the
International Organization on Migration (IOM) to develop a
National Strategy and Action Plan. The Ministry of Home
Affairs has taken the lead in organizing and coordinating
activities at the District level, through the District Child
Labor Committees. Having attended one such Committee meeting
in Mombasa, POL FSN is optimistic that if the vigor and
participation of civil servants continue, there will be
significant action taken to combat human trafficking.
The lack of employment opportunities continues to pressure
Kenyans to seek employment in vulnerable contexts.
Unemployment is estimated at 50 percent and more than 56
percent of the population survive on less than a dollar per
day. The unique challenges posed by the HIV/AIDS epidemic
and the attendant dramatic social consequences further
undermine the government's ability to address trafficking.
(NOTE: An estimated 6.1 percent of adult Kenyans are
infected with HIV. The trend is expected to continue
downward. END NOTE.)
The dearth of data on East African human trafficking trends
continues to place constraints on the Kenyan government's
ability to accurately assess the extent to which its
citizenry is vulnerable to victimization by human
traffickers. Further, resource constraints inhibit the
government's ability to adequately track trends or identify
potential TIP networks or smuggling rings. Other worthy
issues, such as combating HIV/AIDS, compete with trafficking
as the Executive considers budget priorities. Budget
constraints and insufficient capacity generally dictate that
the government detain and deport, rather than arrest and
investigate. These same constraints often prevent Kenya from
collaborating with "deportee nations" on follow-up
investigations without significant donor community or
"deportee nation" assistance. The competing demands on the
police service to respond to increasing threats to security,
including violent crime, with the limited resources available
continues to undermine law enforcement's ability to
adequately address human trafficking. Additionally, a lack
of TIP-related training among law enforcement and immigration
officials further affects the government's ability to
investigate cases of human trafficking. Corruption among law
enforcement authorities and other officials also hampers the
government's ability to effectively address human
trafficking.
¶D. Inability to Monitor Anti-Trafficking Efforts
The government is unable to systematically monitor its
anti-trafficking efforts due to lack of resources and
capacity among the relevant agencies. However, the recent
inter-ministerial meetings on TIP (see II.B) and the newly
created Community Policing, Gender, and Children's Unit of
the Kenya police (see III.H), should improve the government's
ability to monitor and track anti-TIP efforts.
II. PREVENTION
¶A. GoK Acknowledges TIP as Problem in Kenya
The GoK widely acknowledges that human trafficking is an
issue affecting Kenya. Numerous national and local-level
government officials have frequently spoken publicly about
the dangers of human trafficking and sex tourism. Vice
President Awori, whose portfolio includes the Ministry of
Home Affairs, has participated in many public events calling
for greater public awareness of child welfare issues,
including trafficking.
¶B. Various Levels of GoK Involved in Anti-Trafficking Efforts
Numerous ministries have been involved in anti-trafficking
efforts. The Government of Kenya is working with IOM to
institutionalize efforts to combat trafficking in persons.
On December 5, 2006, an inter-Ministerial meeting including
the Office of the President, Home Affairs (MHA), Tourism and
Wildlife, Foreign Affairs, Justice and Constitutional
Affairs, Gender, and Education, plus the Police, and Attorney
General agreed that MHA should lead the anti-TIP Steering
Committee and the Task Force to draft a National Plan of
Action.
The Attorney General's Office is doing the legal drafting on
the Trafficking in Persons Bill submitted by NGOs in 2006.
Although a recent TIP NGO Network meeting (attended by the
Attorney General's representative who is responsible for the
draft to parliament) was recently assured that the Bill would
be ready by the end of the current year, this will be an
uphill task, given the other equally crucial bills that are
in queue for discussion by Parliament, and the upcoming
December 2007 General Election.
The Ministry of Tourism and Wildlife and the Ministry of Home
Affairs are actively involved in the implementation of the
ECPAT Tourism Industry Code of Conduct Against Child Sex
Tourism. The ECPAT Code of Conduct against child sex tourism
has been signed by about 30 hotels in the coastal tourist
resort areas. In a recent meeting in Mombasa, the Kenya
Association of Hotel and Caterers (KAHC) and local Government
officials told Ambassador Ranneberger this represented the
majority of Coast hotels, and that they wanted to expand the
exercise to cover the entire country. NGOs and the Tourism
Ministry are working together to present the Code to Nairobi
establishments as well as other hotels in Kenya towns. The
Tourism Ministry is trying to force owners of private beach
cottages and villas that rent to tourists, especially in
Malindi, to register as hotels, pay their license fees, and
be subject to inspection, but owners are challenging this
initiative in court. Tourists staying at these private
establishments a
re widely suspected of engaging in child sex tourism with
impunity. (See also III.M)
The Ministry of Labor helped to implement the USG-funded
ILO-IPEC time bound program targeting four fields of child
labor, all of which are TIP-susceptible. (See II.H) The
Kenyan Police Service (KPS) is involved through its Criminal
Intelligence Unit (CID) and the newly created Community
Policing, Gender, and Children's Unit. The Ministry of
Labor, the Ministry of Foreign Affairs, and the Ministry of
Home Affairs are engaged in the registration of both domestic
and foreign employment agencies and the provision of
foreign-worker counseling. All of those agencies, plus the
Ministry of Education, Science, & Technology and the Ministry
of Provincial Administration & Internal Security, are members
of the inter-agency task force working with the IOM to
develop and implement the GoK's National anti-TIP Strategy
and Action Plan.
¶C. Public Awareness Campaigns
The GoK and local NGOs have widely disseminated
anti-trafficking brochures, which include contact information
for the 24-hour police hotline, the Police Children's Desks
(present within nationwide police divisions), and several
NGOs which facilitated victims' assistance. The Ministry of
Labor also conducts workers' rights counseling for Kenyan
nationals working abroad.
On the demand reduction side, the GoK supports wide-scale
adoption of the ECPAT Code of Conduct against child sex
tourism by the tourism industry to highlight the scourge of
sex tourism in Kenya. In accepting the UNICEF study on CST,
Vice President and Minister of Home Affairs Moody Awori
squarely accepted the research as a real and factual
description of a growing problem that must be publicly
confronted. While tourism poses risks to children, the high
proportion of Kenyan clients and widespread acceptance of CST
showed the lack of support and protection for children in
Kenyan society. Awori acknowledged the failure of police and
communities to enforce Kenya's laws, and to sometimes treat
exploited children as criminals rather than victims. In a
clear call to end impunity for tourists, the VP urged police
and communities to implement the Children's Act and other
laws consistently, and not to protect child exploiters.
The government-owned Kenya Broadcasting Corporation, along
side with the Kenya print and electronic media, have made
significant inroads in highlighting TIP issues, contributing
to increased public and government awareness of the problem.
(See II.A.)
¶D. The GoK Supports other Programs to Prevent Trafficking
On January 5, 2007, Vice President and Minister of Home
Affairs Moody Awori released new Child Welfare guidelines
that create Area Advisory Councils in the country. The
councils are to ensure that charitable children institutions
are managed in line with stipulated regulations, affording
children additional protections against human trafficking.
The government's provision of free primary education
nationwide and the Ministry of Education's "mobile schools
program" all indirectly contribute to prevent vulnerable
populations from falling victim to human traffickers. Women's
empowerment programs funded though the parliamentary
Constituency Development Fund serve to indirectly bolster the
government's counter-trafficking efforts.
Further, due to concerns about the risk human trafficking
poses to Kenyan nationals destined for work in the Middle
East, the Office of Human Resources, Management, and
Employment (OHRME), under the Minister of Labor, extended the
mandate of its satellite office which seeks to track and
assist Kenyan nationals employed in Saudi Arabia. Back home,
OHRME implements a notable program of education, awareness,
and inspection for all Foreign Employment Agencies. This
program is being expanded to include domestic employment
agencies. The Children's Department in the Ministry of Home
Affairs is supported by UNICEF to implement a cash subsidy
project in select locations throughout Kenya targeting
vulnerable children by improving the capacity of extended
families to absorb and care for orphans, many of whom have
lost parents to HIV/AIDS. The government and ILO-IPEC are
also working to improve a database on abused children,
particularly those who are working. (See II.H)
¶E. GoK Cooperates with Civil Society to Address Trafficking
The GoK increasingly cooperates, and often partners, with
civil society to combat human trafficking. Of particular
note is the collaboration between the Attorney General's
office and civil society in the preparation of new
anti-trafficking legislation. Also noteworthy is the
developing partnership between the government and IOM. The
IOM project aims to assist the GoK and concerned stakeholders
in their efforts to counter trafficking in human beings in
Kenya through prevention, protection, and prosecution
activities. Prevention activities will include a national
public information campaign, an awareness raising campaign
for youth, community level awareness raising and training for
decision makers and community leaders, and training workshops
for journalists. Protection and assistance to victims will
be accomplished through the provision of comprehensive direct
assistance to victims, the establishment of a national
referral system, and capacity building for police, referral
system members, and service providers. The ability of the
GoK to identify and prosecute traffickers will be increased
through targeted trainings for law enforcement and GoK
agencies, and specialized training for prosecutors, members
of the judiciary, and law enforcement agencies on utilizing
existing legislation for countering human trafficking. (See
II.B)
¶F. GoK Monitors Immigration and Emigration Patterns
Immigration officials participated in the American Bar
Association-sponsored training on human trafficking. The GoK
utilizes TIP/PISCES software (provided by the USG) to
scrutinize travelers who have been placed on a
government-wide "stop list". IOM worked with the Ministry of
Immigration to implement a USG-funded Capacity Building in
Migration Management Project to improve the Ministry's
capacity and professionalism. Additional IOM efforts focused
on improving awareness of border security issues among
relevant authorities. These programs also bolstered
immigration officials' capacity to address human trafficking
issues.
¶G. GoK Mechanisms for Coordination with International and
Multi-National Bodies
The Ministry of Home Affairs is taking the lead role among
GoK agencies on TIP-related issues, including in the
IOM-supported project to develop a national strategy and
action plan to address TIP. (See II.B)
¶H. GoK is Developing a National Plan of Action
The government does not yet have a formal national action
plan on TIP, but is actively working with IOM to develop one.
This lack results from diverse priorities competing for
government attention and limited resources. (See II.B)
Additionally, the GoK, with assistance from ILO/IPEC,
formulated a national strategy to combat child labor, (which
also renders children vulnerable to human trafficking.) The
program aims to overhaul existing labor-related policies and
legislation by domesticating numerous international
conventions, harmonizing existing domestic legislation, and
enacting safeguards in sectors susceptible to child labor
(and trafficking).
III. Investigation and Prosecution of Traffickers
¶A. Kenyan Anti-Trafficking Laws
While a comprehensive law which specifically addresses
trafficking in persons is still in the drafting stages, the
Sexual Offences Act, which came into effect on July 21, 2006
criminalizes any form of child trafficking and, for adults,
trafficking for the purposes of sexual exploitation. In
other cases of TIP, traffickers can theoretically be
prosecuted under existing legal provisions.
One such case is currently being handled by the Kenya Police
through the Criminal Investigations Department. The Kenya
Police is prosecuting two suspects who trafficked two
Ethiopian minors to Kenya. Note: A Deputy Commissioner of the
Kenya Police Service and Director of the Community Policing,
Gender and Child Protection Unit, (which is now the mandated
Unit handling human trafficking issues) took a very active
interest in this case. The Commissioner of Police gave firm
instructions for swift action on the case albeit with some
prodding from Post's TIP officer. End Note. The victims'
ordeal was discovered by Global Child Hope, an NGO that had
been given a TIP grant by Post. The two alleged traffickers
arraigned and charged in court on February 22, 2007 under the
Children's Act. Because of lack of a specific TIP law, they
were charged under section 13 and 14 of the Children's Act,
which protect a child from falling subject to trafficking and
forcible early marriage. Penalties for both include maximum
sentences of twelve months imprisonment and/or a fine of
50,000 KSh (USD equivalent 750).
Additionally, the Constitution of Kenya prohibits the
practice of slavery. Further, the Penal Code prohibits the
forced detention of women for the purposes of prostitution,
and some trafficking offenses could be prosecuted under laws
addressing child labor, abduction, attempted abduction, and
the commercial and sexual exploitation of children. However,
the GoK's limited investigative and prosecutorial capacity
impedes use of these legal provisions to prosecute suspected
traffickers to the fullest extent. While Post believes the
GoK is now more willing to prosecute and act on cases of
human trafficking, a specific legal framework is needed to
provide the necessary tools for the justice system to
successfully investigate, prosecute, and track all cases of
human trafficking.
¶B. Penalties for Trafficking
The Sexual Offences Act imposes a minimum 15 years
imprisonment and/or a fine of 2 million Ksh (USD equivalent
28,571) for trafficking for the proposes of sexual
exploitation. The Act also imposes a minimum prison sentence
of ten yeas and/or a fine of 2 million Ksh (USD equivalent
28,571) for child trafficking. Additionally, the Children's
Act and the Penal code provide penalties for TIP related
offences. (See III.A)
¶C. Punishment of Labor Trafficking Offenses
It is anticipated that the draft comprehensive TIP
legislation would provide for the criminalization of labor
trafficking and impose penalties.
¶D. Penalties for Rape
The Sexual Offences Act contains provisions about sexual
offences, their definition, prevention, and the protection of
all persons from harm from unlawful sexual acts and connected
offences. It enhances protection of potential victims. The
Act provides for a minimum 10-year sentence for rape and
sexual assault. The Act also significantly increased the
maximum penalties for defilement: if the victim is 11 years
old or younger, the perpetrator is subject to life
imprisonment; if the victim is between the ages of 12 and 15,
there is a minimum sentence of 20 years; and if the victim is
between the ages of 16 and 18, a minimum sentence of 15 years
is imposed.
Historically, the prosecution of rape cases remains low due
to cultural inhibitions, fear of retribution, and
disinclination of police to intervene in domestic disputes.
It is too son to tell if the new law will encourage more
women to come forward to report abuses.
¶E. Prostitution is Criminalized
Under Kenyan law, prostitution in and of itself is considered
a misdemeanor. The Penal Code defines the "living on the
earnings of prostitution, for both men and woman, as a
misdemeanor. However, fines are limited and jail time is
rarely imposed. The activities of brothel owners or
operators are also criminalized as a misdemeanor; however,
the activities of clients are not criminalized under Kenyan
law. The draft TIP legislation seeks to correct this.
¶F. GoK's Limited Ability to Investigate and Prosecute
Trafficking
The current legal and law enforcement structure makes
compiling broad-spectrum statistics virtually impossible.
Senior Police officials admit that many cases of trafficking
go unprosecuted because police and police prosecutors need
awareness and sensitization training to assist them in
identifying cases of trafficking as such. Some NGOs allege
that traffickers have bribed police to ignore or even protect
their operations.
Immigration authorities are generally more involved in
suspected trafficking cases. Immigration officials reported
several cases of suspected trafficking during the course of
the year covered in this report. Immigration officers
arrested and charged 484 foreigners from 37 countries for
being in the country illegally over the last two years. Some
of these undocumented workers were likely trafficking
victims, but the absence of a comprehensive TIP law makes it
difficult to distinguish between human smuggling and
trafficking.
¶G. Those Behind the Trafficking
Research, anecdotal evidence, and first-person accounts
indicate that freelancers, members of organized crime
syndicates, employment agencies, and marriage brokers are
involved in trafficking. A 2006 study by the African Network
for the Prevention and Protection of Child Abuse and Neglect
(ANPPCAN) found that most traffickers of children were
relatives, sometimes working as employment bureaus or
prostitutes, who lured the children from rural homes with
promises of better life and education in towns. Most
domestic traffickers were female, and most international
traffickers were male. The Institute of Policy Analysis and
Research (IPAR) study found that most adult TIP victims are
lured with offers of marriage, education, or job
opportunities by the traffickers. All 25 victims interviewed
were trafficked or introduced to traffickers by either
friends or relatives. Ministry of Tourism officials believe
that some tour operators may cater to sex tourists. (See II.B)
Foreign employment agencies have facilitated the trafficking
of Kenyan nationals to Middle Eastern nations, notably Saudi
Arabia, the United Arab Emirates, and Lebanon, as well as
Germany, and collect profits from such trafficking. In May
2006, a group of Kenyan women were repatriated from Saudi
Arabia, where they claimed the jobs they received were not as
promised and/or they were mistreated and confined by their
employers. There are no reports of government collusion in
human trafficking. Kenyan Ministry of Foreign Affairs
officials subsequently indicated they would advise Kenyan
Embassies in the Middle East to take more interest in
complaints from Kenyan guest workers.
¶H. Active Investigation of Trafficking
As of October 2006, the Human Trafficking Unit (HTU) of the
Kenyan Police Service did not report any investigations into
trafficking cases. However, in November 2006, Kenya shifted
the HTU into a new Community Policing, Gender and Children's
Protection Unit led by a Deputy Commissioner of Police. This
new unit has been very engaged on the issue of human
trafficking and in early 2007, filed its first charges
against suspected traffickers. The alleged traffickers were
arrested for child trafficking on February 11, 2007 and
charged with forced marriage and forced labor. This may well
be the first known trafficking in persons case that the
Police have enthusiastically followed. IOM took charge of
care and support for the two young victims, and the children
were subsequently transported back to their family in
Ethiopia. (See III.A)
In August 2006, two police officers based at the Endebess
Police Station in Western Kenyan Tranz-Nzoia District were
suspended from duty for allegedly helping a suspected member
of a child trafficking syndicate escape from custody. The
accused trafficker was arrested for attempting to traffic an
allegedly abducted child from Kenyan to Uganda. However, the
officers were subsequently reinstated to active duty pending
disciplinary action from police headquarters and are believed
to have been reassigned.
In November 2006, Kenya police arrested a Sri Lankan national
for overstaying in the country. The press later reported he
was the businessman behind the transportation into Kenya of
six Sri Lankan youth who were discovered by the press living
in Nairobi. The young men reportedly said they were lured by
the man with promises of jobs in Cyprus, but were dumped in
Nairobi while en route. The Kenya Police have not yet filed
formal charges against the businessman.
The use of electronic surveillance, under-cover operations,
and the use of informants are not prohibited under Kenyan
law. Covert operations are permissible. In some instances,
Kenyan law allows suspects to benefit from mitigated
punishment or immunity in exchange for continued
cooperation during ongoing investigations.
¶I. Specialized Trainings Provided
A human trafficking manual was developed by the regional East
African chapter of the American Bar Association which will be
used to institutionalize trafficking-related issues into
training continuums for police, immigration, and registration
officers. Government officials, prosecutors, and police also
attended training workshops on human trafficking conducted by
the American Bar Association.
The Ministry of Labor conducted workshops to sensitize
domestic and foreign employment agencies on human trafficking
issues. Chief Justice Evan Gicheru acknowledged the need for
more training on human trafficking for legal and law
enforcement authorities.
¶J. Cooperative Investigations
The GoK has expressed interest and willingness to cooperate
with other nations in trafficking investigations.
¶K. GoK Extradition/Deportation of Traffickers
The GoK did not extradite nor deport persons charged with
trafficking during the year covered by this report, though no
provisions in Kenyan law prohibit such action. Nor is there
any legal obstacle to the extradition of Kenyan nationals
under Kenyan law.
¶L. GoK Does Not Tolerate Trafficking
There is not evidence to suggest that the GoK is in any way
involved in or tolerates human trafficking.
¶M. Government Involvement
See III.L and III.H
¶N. Child Sex Tourism
There were no pedophiles prosecuted or deported this year.
Kenya's child sexual abuse laws do not have extraterritorial
coverage. UNICEF and the NGO End Child Prostitution, Child
Pornography and Trafficking of Children for Sexual Purposes
(ECPAT) have been working with the GoK and civil society to
promote the adoption and implementation of the Code of
Conduct for the Protection of Children from Sexual
Exploitation for the tourism industry. The Ministry of
Tourism and Wildlife's Hotel and Restaurant Authority (HRA),
is supposed to inspect and annually license all hotels,
lodges and restaurants, which are sites where child sex
tourism is rampant at Coastal resorts. By August 2006, about
1,200 lodges, guest houses and villas that rent to tourists
were registered. In February 2006, 30 hotels on the Coast,
which is the destination of many of the tourists visiting
Kenya, signed the ECPAT Code of Conduct. The Ministry of
Tourism and Wildlife and the Kenya Association of Hoteliers
and Caterers intend to see all hotel operators and other
tourism and hospitality firms sign and implement the Code,
but there were no further signups in 2006. The Ministry of
Tourism and Wildlife plans to make implementation of the Code
a condition for annual licensing of hotels, lodges and
restaurants by the Hotel and Restaurant Authority.
Vice President and Minister of Home Affairs Awori publicly
accepted the UNICEF report on child sex tourism in December
2006, urged wider hospitality industry participation in the
ECPAT Code, and pledged the government would work with UNICEF
to develop long-term strategies for child protection and
social/behavioral changes. The 2006-2007 budget authorized
the Ministry of Home Affairs Child Protection Department to
hire an additional 160 children's officers, most of whom will
be posted to the field.
¶O. International Treaties
Kenya ratified the ILO Convention 182 on May 7, 2001. On
September 8, 2000, Kenya signed the Optional Protocol to the
Convention on the Rights of the Child on the sale of
children, child prostitution, and child pornography. Kenya
acceded to the Protocol to Prevent, Suppress and Punish
Trafficking in Persons, especially Women and Children,
supplementing the UN Convention Against Transnational
Organized Crime on January 5, 2005. On December 11, 2006,
the Cabinet ratified the Hague Convention on international
adoptions. The Cabinet also approved rules that protect
children from being trafficked through adoption practices in
the same period. Assistant Minister for Home Affairs Maalim
Mohammed also announced that GOK had formed an Adoption
Committee, which would vet and license all adoption
societies.
IV. GOK Protection and Assistance to Victims
¶A. Victim Assistance Programs
The GoK's ability to develop assistance programs and provide
services for victims of trafficking is severely limited due
to insufficient capacity among government service providers,
a dearth of resources, and insufficient training.
At a national level, the GoK does not specifically provide
victims of human trafficking shelter, access to medical or
social services, or afford temporary or permanent residence
status. However, the government established shelters in
Nairobi, Mombasa, and Kisumu to rehabilitate street children
who have been vulnerable to forced labor and sexual abuse,
but these centers are not exclusively for trafficked victims.
The Government will work with IOM to establish a trafficking
victims' shelter.
The government has also established District Advisory
Children's Centers throughout the nation that are supposed to
administer psycho-social services, medial and educational
assistance, and foster programs for at-risk, orphaned, or
abandoned children. Child victims are placed under the care
of local level children officers and placed in child homes or
rehabilitation schools, where they receive basic counseling
services.
The government provides consular services to Kenyan nationals
who have been victims of human trafficking seeking
repatriation. Several civil
society organizations provide repatriation assistance to
trafficking victims in close collaboration with
national-level governmental authorities. NGOs also provide
trafficking victims with legal assistance, shelter, and
medical and psychological services. In many instances, these
NGOs work in consultation with local government authorities.
The GoK is quick to recognize the need for greater victim
assistance programs; however, resource constraints inhibit
greater development in this field.
¶B. GoK Assistance to NGOs
The GoK pays dues to IOM and ILO-IPEC.
¶C. GoK Screening and Referrals
While no formal screening or referral processes exist, NGOs
providing victim assistance report good relations with local
authorities who refer victims to their care. Local-level
working relationships between government and civil society
are generally quite strong. The Kenyan Government needs to
assist its nationals overseas.
¶D. Respect for Victim's Rights
Trafficking victims are reportedly not often treated as
criminals. However, foreign victims discovered in Kenya are
frequently detained for short periods of time and deported.
They may also face immigration charges, such as unlawful
presence or failure to produce a passport, each carrying a
fine equivalent to USD 270 and/or a one-year jail sentence.
The GoK facilitates consular assistance for foreign victims.
Trafficking victims involved in prostitution can face both
fines and prosecution, though in practice, they are
frequently only fined. The fine for engaging in prostitution
is KSH 1,300, approximately USD 17.50.
¶E. Victim Involvement in Prosecutions
Victims are able to assist the government in related
investigations and prosecutions. Trafficked persons are able
to file civil suits against pimps, but such action is rare in
practice. Foreign victims are usually deported before
conclusion of investigations due to a lack of resources,
limited capacity, and an absence of trafficking related
offenses for which victims could assist in the investigation
and prosecution. General dysfunction and delays within the
judiciary present a significant hurdle to accessing legal
redress for victims. The draft anti-trafficking legislation
would allow for victim restitution, which is not provided for
under existing laws.
¶F. Witness Protection
With the passing of the Witness protection Bill in December
2006, formal witness protection programs are expected to be
put in place by the government as soon as the Bill becomes
Law, i.e., receives Presidential Assent. Protection will be
arranged by the Attorney General on behalf of the Kenya
Police and other law enforcement agencies. Some of the
measures proposed include establishing a new identity for the
witness and relocating the person and his family. If passed
into law, the High Court would have authority to order the
appropriate officer to make new entries in the register of
births, deaths or marriages.
¶G. GoK Training
(See III.D and III.I)
¶H. GoK Assistance to Repatriated Kenyans
The GoK does not provide direct financial assistance to
repatriated victims. Shelter is not currently provided
specifically for trafficking victims, however the government
plans to do so in the future. (See IV.A) The GoK collaborates
with civil society, as funds and resources allow, and based
on the extent to which civil society or victims inform the
government of a need for assistance or collaboration.
¶I. IOs and NGOs Assist Victims
There are a variety of NGOs active, to varying degrees, in
human trafficking and trafficking-related issues. Most of
these NGOs are engaged in the area of sensitization and
concentrate their efforts on public awareness campaigns,
gender equity issues, the economic advancement of women, and
women's and children's advocacy and outreach. In November
2006, at the initiative of the U.S. Embassy, UNICEF and
International Organization for Migration (IOM) agreed to
establish and co-chair a donor working group (WG) to
coordinate our efforts to address TIP and child protection
issues in Kenya. The WG meets on a monthly basis and is
expanding to include source and destination countries for
trafficking.
Federation of Women Lawyers (FIDA-Kenya), Solidarity with
Women in Distress (SOLWADI), CRADLE, and Solidarity with
Daughters in Distress (SOLDIDI) work directly with
trafficking victims and are active in the repatriation (both
internationally and within Kenya) of trafficking victims and
providing social and legal assistance. In addition, CRADLE
and FIDA-Kenya are actively engaged in promoting legal reform
that would introduce a comprehensive trafficking-specific
statute NGOs report positive working relations with the
government. (See III.E)
¶3. (U) A. PolFSN Michael Kamau (rank FSN 10/11) spent
approximately 127 hours in the preparation of this report.
He can be reached at (254) 20-363-6276 (office) or (254)
722-515-293, fax: (254) 20-363-6281. The following
individuals also contributed to preparation of this report:
Pol Off Melissa Sweeney (rank: 03) spent 12 hours; Econoff
(rank:01) spent 8 hours; PolCons (rank:02) spent .5 hours;
USAID/Kenya Director and Democracy and Governance Officer
spent .5 hours respectively.
RANNEBERGER