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Text:                                                                      
                                                                           
      
UNCLASSIFIED

SIPDIS
TELEGRAM                                           March 10, 2004


To:       No Action Addressee                                    

Action:   Unknown                                                

From:     AMEMBASSY ABU DHABI (ABU DHABI 684 - PRIORITY)         

TAGS:     PHUM, ASEC, PREF, ELAB, KCRM, KFRD                     

Captions: None                                                   

Subject:  UAE: 2004 TRAFFICKING IN PERSONS REPORT                

Ref:      None                                                   
_________________________________________________________________
UNCLAS        ABU DHABI 00684

SIPDIS
CXABU:
    ACTION: POL 
    INFO:   AMB DCM P/M ECON RSO 

DISSEMINATION: POL
CHARGE: PROG

APPROVED: AMB:MWAHBA
DRAFTED: POL:SRADDANT
CLEARED: DCM:RALBRIGHT POL:JMAYBURY ECON:OJOHN CG:JDAVIS

VZCZCADI584
PP RUEHC RUEAWJA RUEAHLC RUEHC RUEATRS RUEHZM
RUEHZS RUCNEEC RUEHDI
DE RUEHAD #0684/01 0701522
ZNR UUUUU ZZH
P 101522Z MAR 04
FM AMEMBASSY ABU DHABI
TO RUEHC/SECSTATE WASHDC PRIORITY 3515
INFO RUEAWJA/DEPT OF JUSTICE WASHDC
RUEAHLC/HOMELAND SECURITY CENTER WASHINGTON DC
RUEHC/DEPT OF LABOR WASHDC
RUEATRS/DEPT OF TREASURY WASHINGTON DC
RUEHZM/GCC COLLECTIVE
RUEHZS/ASEAN COLLECTIVE
RUCNEEC/EASTERN EURO COUNTRIES COLLECTIVE
RUEHDI/AMCONSUL DUBAI 3795

UNCLAS SECTION 01 OF 27 ABU DHABI 000684 
 
SIPDIS 
 
SENSITIVE 
 
DEPT FOR G, G/TIP, INL, DRL, PRM, IWI, NEA/RA AND 
NEA/ARP 
 
DEPT - PLEASE PASS TO USAID 
DEPT - PLEASE PASS TO ALNED AND CISC COLLECTIVES 
 
E.O. 12958: N/A 
TAGS: KCRM PHUM KWMN SMIG KFRD ASEC PREF ELAB
PREL, TC 
SUBJECT: UAE: 2004 TRAFFICKING IN PERSONS REPORT 
 
REF: (A) STATE 7869 (B) 03 BAKU 390 (C) 03 ABU DHABI 
2335 
 
THIS MESSAGE IS SENSITIVE BUT UNCLASSIFIED, PLEASE 
PROTECT ACCORDINGLY. 
 
¶1.  Embassy point of contact on Trafficking in Persons 
(TIP) is PolOff Susan Raddant, office: 971-2-414-2621, 
fax: 971-2-414-2639; unclass email: 
raddantsk@state.gov. 
 
¶2.  OMB Reporting Requirements: One FS-04 officer 
spent approximately 70 hours preparing for and writing 
the report.  One FS-03 officer spent approximately 5 
hours reviewing and clearing the report.  Two FS-02 
officers spent approximately two hours reviewing and 
clearing the report.  One FS-01 officer spent 
approximately two hours reviewing and clearing the 
report. 
 
¶3.  Following is Post's submission of the 2004 
Trafficking in Persons Report for the United Arab 
Emirates, covering the reporting period of March 2003 
through March 2004. 
 
    --------------------------------------- 
¶4.  OVERVIEW OF ACTIVITIES TO ELIMINATE TIP 
    --------------------------------------- 
 
-- A.  Is the UAE a country of origin, transit or 
destination for international trafficked men, women, 
or children?  Does trafficking occur within the UAE's 
borders?  Does it occur in territory outside of the 
government's control?  Are any estimates or reliable 
numbers available as to the extent or magnitude of the 
problem?  What are the sources of available 
information on TIP?  How reliable are the numbers and 
these sources?  Are certain groups of persons more at 
risk of being trafficked? 
 
The UAE is a destination country for internationally 
trafficked persons.  Trafficking does not occur 
within the UAE's borders.  There is no UAE territory 
outside of the government's control. 
 
There are no verified numbers available as to the 
extent of the problem over the reporting period. 
There are widely varying reports, primarily by NGOs, 
that estimate the number of people trafficked to the 
UAE from a few hundred up to thousands annually. 
However, these estimates rely primarily on research 
conducted in source countries or by other 
organizations outside the UAE, which rely heavily on 
surveys and interviews and unverifiable anecdotal 
evidence.  These reports also tend to reflect 
estimates of the number of victims trafficked to the 
UAE over a number of years rather than specifically 
over the latest reporting period.  While these 
estimates and anecdotal reports are useful in 
generally defining the problem, they are less useful 
in determining a reliable statistical range 
reflecting the true number of persons trafficked to 
the UAE during the current reporting period. 
 
Groups of persons that have been historically at risk 
of being trafficked to the UAE are boys, primarily 
from South Asia, for use as camel jockeys, and women, 
primarily from CIS countries, for the purposes of 
prostitution.  However, since the September 2002 ban 
on the use of underage foreign boys as camel jockeys, 
there have been numerous reports from NGOs and source 
country representatives stating that this practice is 
diminishing rapidly.  Further, boys already in the 
UAE working as camel jockeys have been returning to 
their homes, with assistance from the UAEG, source 
country embassies and consulates, and NGOs.  The 
Pakistani Mission to the UAE has reported that at 
least 125 boys were located and humanely repatriated, 
at UAEG expense, in 2003.  Similarly, the Bangladeshi 
Mission to the UAE has reported that between 120 - 
150 boys were repatriated in 2003. 
 
The UAEG has reported that the practice of performing 
DNA tests on potential camel jockeys and the 
"parents" bringing them into the country prevented 47 
boys from being trafficked into the UAE in 2003. 
Source country representatives have stated that the 
"word is out" in their countries that it has become 
extremely difficult for boys under the age of 15 to 
enter the UAE and work as camel jockeys.  As a 
result, they, as well as the UAEG, claim that 
attempts to bring the boys to the UAE have 
dramatically diminished or stopped altogether. 
 
Historically, child camel jockeys came to the UAE 
either with their parents because of dire economic 
conditions back home, or were sold by their families 
to unscrupulous middlemen from the source countries 
who arranged for their travel to the UAE.  There are 
no reliable statistics as to how many boys were 
kidnapped and trafficked here without the knowledge 
and consent of their families.  However, unofficial 
reports here estimate that these cases are the 
exception rather than the rule.  There are no reports 
of how many underage camel jockeys remain in the UAE. 
However, new regulations require medical testing and 
clearance from a board that issues identification 
cards for every jockey.  The Camel Racing Federation 
employs inspectors who monitor every race to ensure 
that all jockeys display valid identification cards. 
Jockeys who do not possess valid identification cards 
are not allowed to race.  PolOff witnessed at two 
camel races that the jockeys were displaying their ID 
cards prominently throughout both races.  Therefore, 
all the above steps taken over the reporting year 
appear to have reduced or eliminated the demand for 
importing young foreign boys into the UAE to work as 
camel jockeys. 
 
There are no reliable statistics or estimates of how 
many prostitutes currently work in the UAE (primarily 
in Dubai, with significantly fewer numbers in Abu 
Dhabi and the Northern Emirates), or how many women 
were trafficked into or chose to enter the UAE for 
the purposes of prostitution in 2003.  Casual 
observation and anecdotal information suggests that 
the total number of prostitutes working in the UAE is 
over a thousand, but almost certainly less than two 
or three thousand.  Many women currently or formerly 
engaged in prostitution here admit to voluntarily 
traveling to and from the UAE for temporary stays, 
during which time they engaged in prostitution and 
possibly other activities connected with organized 
crime.  These women are primarily from CIS countries, 
although some women originate from other Arab 
countries, South and Southeast Asia, China, and some 
African countries. 
 
Women have reported that they engaged in prostitution 
in the UAE due to extreme economic hardship in their 
own countries, and they often used smugglers and 
false documents to gain entry into the UAE.  Police 
have reported a number of cases when women have 
returned to the UAE multiple times with false 
documents after having been deported from the UAE for 
prostitution.  There are some reports, primarily 
anecdotal, of women coming to the UAE after being 
promised legitimate jobs, only to find that the work 
never existed;  instead, they were forced to work as 
prostitutes, sometimes under horrific conditions. 
However, many reports from law enforcement and other 
subject matter experts, some NGOs, and statements 
from the women themselves, indicate that many 
prostitutes knowingly came here to work in this 
field, and stayed of their own volition.  There are 
no statistics or estimates that indicate how many 
women engaging in prostitution in the UAE were 
trafficked here. 
-- B.  Where are the persons trafficked from?  Where 
are the persons trafficked to? 
Boys trafficked to the UAE to work as camel jockeys 
originated primarily from South Asia, namely, Pakistan 
and Bangladesh. 
 
NGOs and IGOs report that women who have traveled to 
the UAE for purposes of prostitution originate 
primarily from countries in Central Asia and Eastern 
Europe, namely, Russia, Ukraine, the Kyrgyz Republic, 
Azerbaijan, Kazakhstan, Armenia, Uzbekistan, and 
Moldova.  There are reports that a smaller number of 
women originate from other Arab countries, a few 
African countries, Iran, South and Southeast Asia, 
and, increasingly, from China.  As noted in paragraph 
4A above, there are no verified statistics as to how 
many women traveling to the UAE in 2003 for purposes 
of prostitution are trafficking victims as opposed to 
"irregular economic immigrants," as defined by the 
International Organization for Migration (IOM) (see 
ref. B). 
 
There are no reports of people being trafficked from 
the UAE. 
 
-- C.  Have there been any changes in the direction or 
extent of trafficking? 
 
Since research and verifiable statistics on the issue 
of trafficking in persons to the UAE is limited, it is 
difficult to follow the changes in the direction or 
extent of trafficking to the UAE.  Because there is no 
reliable baseline of information on trafficking in 
persons to the UAE, reports published over the past 
several years in source countries and interested third 
countries help to shed light on the overall scope of 
the problem, but are of little value in determining 
whether there have been any significant changes in the 
direction or extent of trafficking to the UAE over the 
reporting year. 
 
The major exception to this lack of reliable 
statistics is in the area of camel jockeys.  There are 
reports from source country missions and NGOs stating 
that, since the 2002 camel jockey ban was implemented, 
trafficking of young boys from South Asia to work as 
camel jockeys has dramatically decreased or stopped, 
since the market for these boys and the corresponding 
incentive to traffic them to the UAE has been 
eliminated.  UAE officials acknowledge that they are 
still working towards achieving 100% compliance with 
the ban in each of the emirates at every camel race. 
However, it is apparent that the UAEG and the Camel 
Racing Federation are working diligently and in good 
faith to completely eliminate the practice, through 
identification card issuance and through inspections 
at all races. 
 
-- D.  Are any efforts or surveys planned or underway 
to document the extent and nature of trafficking in 
the country?  Is any additional information available 
from such reports or surveys that was not available 
last year? 
 
In the first half of 2003, the UAEG conducted a 
general amnesty program in an attempt to address 
illegal migration into the country.  The amnesty 
program allowed people who overstayed their visas, 
worked without proper work visas, or entered the 
country without visas, to leave the country without 
penalty of prosecution for immigration violations. 
The UAEG reported that approximately 100,000 people 
took advantage of the amnesty program. 
 
In order to better monitor immigration patterns in 
the future, the UAEG used the amnesty opportunity to 
update its immigration databases with information 
received from a questionnaire completed by all 
amnesty-seekers.  The survey included questions on 
how the amnesty applicants arrived in the country, 
who assisted them in coming and staying here, what 
they had been doing and whether they had been working 
while here, etc.  Immigration officials stated that 
questionnaires completed by amnesty-seekers 
containing information suggesting criminal activity, 
including trafficking in persons, were referred to 
law enforcement authorities for investigation.  The 
results of that survey were not available at the time 
of this report. 
 
The UAEG has also instituted the use of retinal scans 
at ports of entry to add biometrics identification 
information to its databases.  Biometrics information 
will help authorities to better monitor migration and 
combat document fraud by illegal immigrants who, for 
example, use false names and birthdays in passports 
and other identification papers. 
 
Labor Ministry officials indicated that statistical 
information received from the general amnesty program 
would help it to identify labor law violation 
practices and trends so that it can better manage the 
labor market and protect worker rights. 
 
The amnesty program was not designed specifically to 
determine the extent or the magnitude of trafficking 
in persons to the UAE.  However, UAEG officials 
stated that statistical analyses based on amnesty 
program information will provide them with a 
foundation from which they can monitor trafficking in 
persons and estimate the magnitude of the problem. 
Post will forward the results of any reports from 
this survey it receives from the UAEG. 
 
-- E.  If the country is a destination point for 
trafficked victims:  What kind of conditions are the 
victims trafficked into?  Are they forced to work in 
sweatshops, agriculture, restaurants, construction 
sites, prostitution, nude dancing, domestic servitude, 
begging, or other forms of labor, exploitation, or 
services?  What methods are used to ensure their 
compliance?  Are the victims subject to violence, 
threats, withholding of their documents, debt bondage, 
etc.? 
 
NGO, IGO, source country, and anecdotal reports 
indicate that conditions for trafficking victims are 
varied. 
 
In the past, credible sources reported that almost 
all camel jockeys were boys between the ages of 4 and 
10, some of whom were trafficked to the country by 
small, organized gangs.  The traffickers obtained the 
youths, usually from poor families in Pakistan and 
Bangladesh, by kidnapping, or in some instances by 
buying them from their parents outright or taking 
them under false pretenses, and then smuggling them 
into the country.  There were reports that many of 
the children were subjected to harsh living and 
working conditions, and some claimed to be abused by 
their traffickers and/or trainers.  There were 
reports that some children were beaten for losing 
races, and others were injured seriously during the 
races.  Some of the boys were underfed to make them 
as light as possible.  Often the boys did not receive 
compensation for their services, since many times the 
trafficker posed as the child's parent and received 
the child's salary from the camel farm owner.  Other 
times, the parents were living in the UAE with the 
boys, and claimed their salaries. 
 
Reports and anecdotal evidence indicate that some 
women trafficked to the UAE, as opposed to others who 
come here voluntarily and knowingly to work as 
prostitutes, are brought to the country under the 
false pretenses of legitimate employment, but then are 
forced into prostitution.  In some cases, women sign 
contracts of employment before coming to the UAE, only 
to find that the contracts are worthless on arrival. 
Other times, the women travel here based on promises 
of employment only.  When the women arrive, the 
traffickers do not provide the promised employment. 
Instead, they seize their passports and force them to 
engage in prostitution to repay an imposed, and often 
steep (in the thousands of U.S. dollars), "debt" 
incurred from their travel and other expenses. 
 
Some trafficked women are confined to residences in 
slave-like conditions.  Others work in dance clubs, 
bars, hotels, massage parlors, and other public 
venues, primarily in Dubai, but also in Abu Dhabi and 
the Northern Emirates in smaller numbers.  There are 
anecdotal reports from NGOs stating that, in some 
cases, women are able to pay off their debts and keep 
much of their income afterwards.  In other cases, 
traffickers pay the women such small salaries that 
they find it difficult or impossible to repay their 
debts, resulting in situations of indentured servitude 
until they can find a way to escape their traffickers 
and receive assistance from the police or their 
embassy or consulate representatives.  However, some 
women are reportedly afraid to contact authorities, 
since their traffickers warn them that they will be 
arrested for immigration violations or other criminal 
offenses if they seek help from the police.  Others do 
not attempt to escape due to fear of physical abuse or 
retaliation against their families back in the source 
countries, since, in almost all cases, the traffickers 
also come from these or neighboring countries. 
 
As mentioned above, traffickers frequently seize their 
victims' passports upon entry into the UAE.  This 
practice, common among employers in all professions, 
was outlawed in the UAEG in July 2003.  Employers may 
now only legally hold employees' passports long enough 
to take care of administrative business, not on a 
permanent or long-term basis.  There is no way to 
determine definitively if employers are still 
demanding their employees' passports, although there 
are unverifiable reports that the now-outlawed 
practice of holding employees' passports is still 
commonplace.  The UAEG has engaged in a public 
relations campaign to inform workers and employers 
that the practice is illegal.  There have been a 
number of instances, widely reported by the media, in 
which the police intervened to return the passports to 
their rightful owners. 
 
Further, although it is common worldwide for 
traffickers to use scare tactics to keep their victims 
in submission, UAE police, especially in Dubai, where 
the bulk of the cases occur, have measures in place to 
protect victims of trafficking, once identified as 
such.  Since 1995, the Dubai Police Department has 
operated a Human Rights Care Department.  One of its 
primary functions is to protect trafficking victims, 
assist victims if they agree to stay in the UAE to 
testify against their traffickers, and humanely 
repatriate victims if they choose instead to return 
immediately to their home countries.  While there are 
some anecdotal reports that some victims are not 
identified as such, and are instead prosecuted for 
their crimes, the Dubai police are continuing to train 
its Human Rights Care specialists in order to better 
safeguard victims (see paragraph 7 for additional 
details). 
 
-- F.  If the country is a country of origin:  Which 
populations are targeted by the traffickers?  Who are 
the traffickers?  What methods are used to approach 
victims?  What methods are used to move the victims? 
 
The UAE is not a country of origin for TIP. 
 
-- G.  Is there political will at the highest levels 
of government to combat trafficking in persons?  Is 
the government making a good faith effort to seriously 
address trafficking?  Is there a willingness to take 
action against government officials linked to TIP?  In 
broad terms, what resources is the host government 
devoting to combating trafficking in persons? 
 
Over the reporting period, senior government 
leadership continued to exhibit strong political will 
to combat trafficking in persons, and the UAEG made a 
concerted good faith effort to seriously address 
trafficking in persons.  These efforts were highly 
successful in the case of combating the use of 
trafficked boys as camel jockeys. 
 
In an effort to stop the trafficking of boys to the 
UAE for use as camel jockeys, the UAEG announced in 
July 2002 that it would ban the decades-long practice 
of employing child camel jockeys.  The ban, effective 
1 September 2002, was implemented despite strong 
resistance from some tradition-bound camel farm 
owners, primarily from wealthy and politically- 
connected families.  To further its efforts, the 
Government tightened controls at points of entry into 
the country for boys under the age of 15 years, and 
mandated the repatriation of child camel jockeys in 
the UAE to their home countries, at UAEG expense and 
with the assistance of source country representatives 
and NGOs. 
 
In October 2002, Minister of State for Foreign 
Affairs Shaykh Hamdan Bin Zayed Al Nahyan sent 
letters to various source countries' foreign 
ministers, asking for their cooperation and 
coordination in addressing this transnational crime 
of humanitarian concern.  Since then, source country 
representatives in the UAE have reported that they 
are pleased with the results of the camel jockey ban, 
and with the cooperation they are receiving from the 
UAEG to repatriate underage boys currently in the UAE 
while stopping new cases of trafficking at the 
border. 
 
UAEG political will to combat the camel jockey 
problem was apparent during an official visit of Mark 
Taylor, G/TIP, and Nahide Bayrasli, NEA/RA, to the 
UAE in February 2004.  In addition to their meetings 
with high-ranking ministerial and key police 
officials, the delegation was able to witness a camel 
race first-hand, and speak at length with members of 
the new administration of the Camel Racing 
Federation.  The team on several occasions stated 
that it was impressed with the progress the UAEG made 
on this issue over the course of the reporting year. 
 
The UAEG senior leadership has repeatedly asked the 
USG for training information and opportunities that 
will further their efforts to combat trafficking in 
persons, and help law enforcement officials, 
prosecutors and judges to better identify, 
investigate and prosecute trafficking in persons 
cases. 
 
In March 2003, the Dubai Police Human Rights Care 
Department held an inter-department five-day training 
seminar that covered many aspects of crime victim 
assistance, including victims of trafficking. 
Eighteen officials from the criminal investigation 
department, immigration, social assistance, the moral 
directive department, and representatives from 
several different police stations, trained together 
in order to better coordinate their efforts in 
assisting trafficking victims. 
 
In December 2003, the Dubai Police offered anti-TIP 
training for legal specialists in a one-day seminar. 
In Summer 2003, the Dubai Public Prosecution 
Department created an office of 16 members who 
specialize in trafficking in persons, and are trained 
to identify and address the needs of trafficking 
victims.  Since its creation, this anti-TIP office 
has assisted with 14 cases involving trafficking. 
 
Throughout 2003, the Immigration Department in Dubai 
offered training for 249 arrival inspectors and 177 
departure inspectors in identifying fraudulent 
documents, often used by trafficking victims.  The 
UAEG also supplied ports of entry and source country 
embassies and consulates with brochures to try to 
warn off potential trafficking victims, as well as to 
inform victims where they can go to receive 
assistance. 
 
In May 2004, the Abu Dhabi Police College, with 
guidance from the IOM, Post, and G/TIP, will conduct 
an anti-TIP training seminar.  Also in May and with 
the support of the IOM, Post and G/TIP, the MFA will 
host an anti-TIP workshop for ministries, law 
enforcement officials, and source country 
representatives.  From May 20 - June 10, 2004, a 
representative from the Ministry of Interior's Legal 
Affairs Department will participate in an anti- 
trafficking in persons IV program in Washington, D.C. 
 
 
In the past, the UAEG has investigated and prosecuted 
government officials suspected of committing criminal 
offenses, e.g., embezzlement and fraud.  This 
willingness to take action against government 
officials suspected of illegal activity indicates 
that the UAEG would likely take action against 
government officials linked to trafficking in 
persons, if identified. 
 
-- H.  Do governmental authorities or individual 
members of government forces facilitate trafficking, 
condone trafficking, or are otherwise complicit in 
such activities?  If so, at what levels?  Do 
government authorities receive bribes from traffickers 
or otherwise assist in their operations?  What 
punitive measures, if any, have been taken against 
those individuals complicit or involved in 
trafficking?  Please provide numbers, as applicable, 
of government officials involved, accused, 
investigated, prosecuted, convicted and sentenced. 
 
Government policy does not facilitate or condone 
trafficking, and there is not a deep-seated culture of 
official corruption in the UAE.  There have been a few 
unverifiable, anecdotal reports in 2003 that lower- 
level officials, primarily at smaller ports of entry, 
may turn a blind eye to the problem of trafficking. 
There have been a few additional unverifiable reports 
that individual members of the police may "tip off" 
certain facilities, primarily clubs, before a sting 
operation occurs (although in 2003, 4,924 prostitutes 
were arrested by Dubai police, and 12 Dubai 
institutions were closed due to prostitution activity 
on its premises).  There are no verified reports that 
governmental authorities or individual members of 
government forces facilitate trafficking, condone 
trafficking, or are otherwise complicit in such 
activities.  There are also no verified reports that 
government authorities receive bribes from traffickers 
or otherwise assist in their operations. 
 
In the past, the UAEG has investigated and prosecuted 
government officials suspected of committing criminal 
offenses, e.g., embezzlement and fraud.  Because of 
this willingness to take action against government 
officials suspected of illegal activity, it is 
expected that the UAEG would take action against 
government authorities who facilitate trafficking, 
condone trafficking, or are otherwise complicit in 
such activities, or that receive bribes from 
traffickers or otherwise assist in their operations. 
-- I.  What are the limitations on the government's 
ability to address this problem in practice?  For 
example, is funding for police or other institutions 
inadequate?  Is overall corruption a problem?  Does 
the government lack the resources to aid victims? 
 
The UAE is a wealthy country, but due to the weak 
federal structure of the country and different budget 
levels in the seven emirates, the ability of the 
federal government and individual emirates to fund 
police programs and aid victims varies significantly. 
In addition, like many countries, federal ministry and 
local department budgets are determined on an annual 
basis.  Consequently, new programs may be required to 
wait until the next budget grant when new monies can 
be allocated.  There is also a limitation on the UAE's 
human resources available to address problems.  The 
national population of the UAE is 15% or less of the 
total population of the UAE. 
 
In honor of International Human Rights Day December 
10, 2003, the Al Maktoum Charity Institution (funded 
by the Dubai ruling family) donated 150,000 dirhams 
(USD 40,984)to the Dubai Police Human Rights Care 
Department, which assists trafficking victims. 
 
Overall corruption is generally not a problem in the 
UAE.  The Government has taken many concrete steps to 
fight trafficking in persons to the UAE over the past 
reporting year, and it is expected that the UAEG will 
put a number of additional measures into place in 2004 
to more effectively monitor and combat all aspects of 
trafficking in persons.  However, certain factors 
limit the UAEG's ability to take action on all facets 
of its trafficking problem within a shorter period of 
time. 
 
The UAE gained its independence from the UK in 1971. 
Although a young country, it has transcended rapidly 
from an undeveloped country to a dynamic regional 
economic power with an advanced infrastructure and a 
diverse urbanized population with residents 
originating from over 200 countries.  The UAE is an 
open country with a vibrant tourism industry, and is a 
busy transit hub for international travel and trade. 
This open atmosphere is especially important in Dubai, 
where major efforts have been underway for a number of 
years to diversify its economy and reduce its reliance 
on oil reserves, which are rapidly dwindling and 
expected to be depleted in approximately a decade. 
 
As a result of the country's rapid modernization and 
growth, the federal government and the governments of 
the individual emirates are increasingly tasked with 
responding to complex issues of international concern, 
many of which involve foreign organized criminal 
groups, including terrorism and money laundering, as 
well as trafficking in persons, drugs, illegal arms, 
and weapons of mass destruction.  These complex issues 
stretch the human resources of UAEG law enforcement, 
which lacks overall institutional knowledge and 
experience due to the country's young age.  Ministry 
and law enforcement officials in all but the very top 
levels are often young and lack appropriate levels of 
formal training and/or on-the-job experience to assist 
them in the performance of their jobs.  Therefore, it 
is not realistic to expect the majority of UAEG 
officials to tackle all facets of a difficult, multi- 
dimensional issue such as trafficking in persons 
simultaneously and in a short amount of time. 
 
Last year, the UAE outlined a two-year plan to combat 
its overall trafficking problem (see ref. C).  One 
year into this plan, the UAE has made remarkable 
progress on the camel jockeys issue.  Now that this 
dimension of the trafficking problem is under 
governmental control, the UAEG has stated its 
intention to focus its efforts on the issue of sex 
trafficking with the same level of commitment it 
devoted to the camel jockey issue. 
 
A loose federation comprised of seven individual 
emirates, the UAE is governed by consensus of the 
seven emirates' rulers.  The federal Government 
asserts primacy in matters of foreign and defense 
policy, some aspects of internal security, and 
increasingly in matters of law and the supply of some 
government services.  However, the loose federal 
structure and requirement for consensus prohibits 
quick action on matters with any level of controversy. 
 
The bureaucratic process to pass legislation, accede 
to international treaties or create national 
strategies can often be lengthy.  The Justice Ministry 
oversees the passage of new legislation and accession 
to bilateral or multilateral treaties.  An inter- 
ministerial technical committee works to draft agreed 
language, which is then submitted for approval to a 
second inter-ministerial Political Committee that 
includes representatives from each emirate.  The 
Political Committee is charged with achieving 
consensus on the draft language from the seven 
emirates.  Once consensus is achieved, the draft 
language is presented to the Federal National Council 
(FNC) for debate and consideration.  After the FNC 
concludes its consideration, it recommends draft 
language to the federal Cabinet, which then conducts 
its own review and considers the draft language for 
passage into law after ratification by the Supreme 
Council (comprised of the rulers of all seven 
emirates). 
 
Despite the normally lengthy process involved with 
passing new legislation, the Minister of State for 
Foreign Affairs, Shaykh Hamdan Bin Zayed Al Nahyan, 
led the effort to criminalize the use of child camel 
jockeys in record time.  Incredibly, the announcement 
of the child camel jockey ban in July 2002 was made 
only months after he decided to lead the effort to 
criminalize the use of child camel jockeys.  Our 
interlocutors report that he pushed the ban through 
the bureaucracy because of his desire to terminate 
this practice before the beginning of the next camel 
racing season in October 2002.  Now, in the 2003/2004 
racing season, it is clear that the ban, while still 
not an official, ratified UAE law, is being enforced 
in practice due to the political will of the most 
senior UAEG officials.  The proposed legislation is 
currently under review by the UAE's highest 
legislative body, the Supreme Council. 
 
Consistent enforcement of laws throughout the country 
is sometimes affected by the relative independence of 
security and police forces in each emirate.  While all 
emirate internal security organs theoretically are 
branches of one federal organization, in practice they 
operate with considerable independence.  Each emirate 
maintains its own independent police force. 
 
Some cultural characteristics also hamper the 
Government's ability to immediately address some 
trafficking in persons issues.  For example, camel 
racing is a traditional sport.  In the past, camel 
owners or their sons raced camels.  Over the past few 
decades, young foreign boys had been increasingly used 
as camel jockeys, many of whom were offered for 
employment to camel owners by their parents.  In spite 
of the deeply-held opinions of prominent families 
initially opposed to the camel jockey ban, the UAEG 
leadership worked to change those attitudes over the 
course of the past year, and as a result achieved 
remarkable progress on this issue over the 2003/2004 
reporting cycle.  Several senior UAEG officials stated 
during the February 2004 G/TIP visit and follow-up 
meetings afterward that the UAE can achieve similar 
results now that it has turned its full attention to 
the issue of sex trafficking in 2004. 
 
    ---------- 
¶5.  PREVENTION 
    ---------- 
 
-- A.  Does the government acknowledge that 
trafficking is a problem in that country?  If no, why 
not? 
 
The UAEG acknowledges that trafficking in persons is a 
problem.  The senior leadership has noted a number of 
times that this transnational crime must be addressed 
for humanitarian as well as national security reasons. 
Emirati officials have described trafficking in 
persons as a disease that must be eradicated before 
more people are victimized.  UAEG officials also 
recognize that a failure to attack organized crime in 
this area opens the country to organized crime in 
other areas, such as drugs or weapons. 
 
The UAEG repeatedly acknowledged its trafficking 
problem during the February 2004 U.S. State Department 
official visit of Mark Taylor, G/TIP, and Nahide 
Bayrasli, NEA/RA.  The USG officials met with high- 
ranking officials from the Ministries of Foreign 
Affairs, Interior, Justice, and Labor.  They also met 
with officers from the Dubai Police Department, the 
Camel Racing Federation, and source country embassies 
and consulates.  Emirati officials acknowledged that 
trafficking in persons to the UAE is a problem, sought 
engagement on the issue, and requested assistance in 
training and other areas in order to combat the 
problem. 
 
-- B.  Which government agencies are involved in anti- 
trafficking efforts? 
 
Both federal ministries and local emirate departments 
are involved in anti-trafficking efforts.  Some 
efforts are specifically designed to combat 
trafficking in persons.  Other efforts are not 
specifically designed to combat trafficking in 
persons, but ultimately have that effect because such 
efforts on related issues assist in the prevention of 
trafficking, prosecution of traffickers, and 
protection of trafficking victims. 
 
On the federal level, the Ministries of Foreign 
Affairs, Interior, Justice, Health, Labor and Social 
Affairs, and Information are involved actively in 
anti-trafficking efforts.  On the local level, police 
departments, immigration departments, public 
prosecution, and social services departments are also 
involved.  This reporting year in Dubai, police and 
other government representatives have joined forces 
with concerned members of the media, academia and 
business worlds, to take a new approach toward 
combating trafficking. 
 
The Ministry of Foreign Affairs is fronting the UAE's 
anti-trafficking efforts.  In July 2002, the Minister 
of State for Foreign Affairs led the campaign to 
eradicate the trafficking of boys for use as camel 
jockeys by announcing a ban on child camel jockeys 
with criminal penalties for violators, mandating the 
repatriation of boys currently in the country working 
as child camel jockeys at UAEG expense, and ordering 
increased security measures by immigration officials 
at ports of entry. 
 
The child camel jockey ban prohibits the use of camel 
jockeys younger than 15 years of age and who weigh 
less than 45 kilograms (99 pounds).  The Government 
established the following penalties for violators of 
the child camel jockey ban: first offense, fine of 
approximately $5,500 (20,000 dirhams); second offense, 
ban from participation in camel races for one year; 
third and subsequent offenses, imprisonment.  The 
UAE's highest legislative body, the Supreme Council, 
is currently considering a draft of the ban to be 
ratified as federal law. 
The UAEG implemented the requirements by mandating 
that all camel jockeys apply for and receive 
government-issued identification (ID) cards.  To 
verify the ID card applicant's age and guard against 
document fraud, e.g., a passport that indicates the 
child is 15 years when he is actually only 12 years, 
the UAEG issues ID cards only after a positive 
physical examination by a medical committee, through 
the use of x-rays and other tests, confirms that the 
child is at least 15 years of age. The Government is 
enforcing the child camel jockey ban through 
inspections by the Camel Racing Federation at all 
races, checking the ID cards of all jockeys prior to 
each race. 
 
In January 2003, the UAEG instituted an additional 
requirement of DNA tests to further guard against 
document fraud and to apprehend traffickers by 
ensuring that the person presenting the boy for entry 
into the country or for ID application is, in fact, 
the biological parent of the child.  UAEG officials 
have stated that if the person presenting the boy for 
the ID application or entry into the country is proven 
to not be the biological parent of the child, then the 
application is referred to law enforcement authorities 
for investigation for trafficking.  No statistics have 
been provided regarding how many traffickers have been 
arrested, prosecuted, convicted and sentenced under 
this procedure.  However, UAEG officials have stated 
that DNA testing has weeded out 47 cases of 
traffickers posing as parents of camel jockeys.  The 
boys were subsequently repatriated to their home 
countries, and the traffickers were referred to law 
enforcement authorities. 
 
The MFA worked with source country embassies, 
consulates and NGOs to humanely repatriate trafficking 
victims, and to prevent new cases of trafficking. 
 
In May 2004, with the support of the IOM, Post and 
G/TIP, the MFA will host an anti-TIP workshop for 
ministries, law enforcement officials, and source 
country representatives. 
 
The Ministry of Interior's Department of 
Naturalization and Residency established a central 
operations room to track the arrival and departure of 
individuals in the country, some of whom may be 
trafficking victims.  It also oversaw the 2003 amnesty 
program, working closely with the Ministry of Labor in 
designing the program and creating the information- 
gathering questionnaire to better monitor migration 
patterns, including trafficking in persons.  This 
department also participates in the Dubai Police Human 
Rights Care Department's anti-trafficking in persons 
working group.  The Dubai Tourist Security Department 
operates a 24-hour hotline to assist visitors with 
problems.  Information about the hotline is 
distributed at ports of entry. 
 
In May 2004, the Abu Dhabi Police College, with 
guidance from the IOM, Post, and G/TIP, will conduct 
an anti-TIP training seminar. From May 20 - June 10, 
2004, a representative from the Ministry of Interior's 
Legal Affairs Department will participate in an anti- 
trafficking in persons IV program in Washington, D.C. 
 
UAE labor laws do not cover domestic workers and 
agricultural workers.  Consequently, the Ministry of 
Interior's Department of Naturalization and Residency 
reviews the contracts of foreign domestic employees as 
part of residency permit processing to ensure that the 
negotiated salaries and terms are adequate. 
 
To guard against involuntary servitude, in January 
2003, the UAEG announced new regulations requiring a 
mandatory unified contract for domestic workers and 
agricultural workers.  The contract regulates the 
employer-employee relationship and specifies rights 
granted to the employee.  The regulations provide that 
the UAEG review the employer's ability to pay the 
worker before the work permit is granted.  The 
regulations also provide that the worker may complain 
of unified contract violations to the Ministry of 
Labor's Labor Dispute Department. 
 
Prostitution is illegal in the UAE, punishable by up 
to three years imprisonment followed by deportation. 
In an effort to combat this crime, the Dubai police 
regularly conduct special patrols in areas frequented 
by prostitutes, and immigration and police forces use 
special units to conduct raids and sting operations in 
areas where prostitutes are known to frequent.  Law 
enforcement authorities state that women arrested for 
prostitution are interviewed to determine whether they 
are victims of trafficking.  During the interview, the 
officials, led by a female interviewing officer, 
reportedly ask the women about their overall 
circumstances, including how they came to the UAE, who 
assisted them in traveling here, where they have been 
staying, how they have been treated, etc. 
 
In 2002, the Dubai Police Human Rights Department 
Director developed a Crime Victims' Assistance 
Program, which includes the creation of Victim 
Assistance Coordinators and police training in victim 
protection and assistance.  In March 2003, Victim 
Assistance Coordinators were assigned to police 
stations.  Victim Assistance Coordinators' 
responsibilities include advising victims about the 
criminal justice system and criminal procedure; 
encouraging witness testimony, especially in cases 
involving sexual abuse and trafficking in persons 
where victims are reluctant to speak out; advising 
victims of their rights; providing counseling and 
medical care; placing victims in safehouses or 
shelters; and following-up with victims as the case 
proceeds to trial.  In March 2003, the Dubai Police 
Human Rights Department began conducting Victim 
Protection and Assistance training courses for Dubai 
police officers. 
 
In Dubai, 4,924 prostitutes were arrested in 2003. 
There are no statistics showing how many of them were 
charged with crimes, convicted, and sentenced, but 
Dubai Police stated that, since they only have prison 
space to accommodate 100 women, prostitutes are 
normally deported immediately.  There were 104 
closures of firms, primarily travel agencies, by 
authorities due to their practice of luring women into 
the UAE with promises of legitimate jobs, only to 
force them to work as prostitutes upon arrival.  There 
were 12 additional Dubai institutions, primarily 
hotels and apartment buildings, closed in 2003 for 
facilitating prostitution.  The UAEG reported that 166 
non-citizen traffickers were arrested and prosecuted 
for running prostitution rings in 2003, and five 
citizens were arrested and prosecuted for the same 
offense.  There was no information provided on the 
number of convictions and length of sentences handed 
out to these individuals. 
 
The Ministry of Justice took the lead in the UAEG's 
accession in December 2002 to the UN Convention 
Against Transnational Organized Crime.  The Institute 
for Judicial Training and Studies includes mandatory 
courses for prosecutors and judges on subjects that 
generally impact trafficking in persons, including 
human rights, sex offenses, immigration violations and 
labor violations.  The MOJ has agreed to review a 
model anti-trafficking in persons law provided to the 
MFA by Post and G/TIP. 
 
The Ministry of Health organized the medical 
committees that conduct tests to estimate the age and 
state of health of camel jockey identification card 
applicants.  The Ministry of Health also conducts the 
applicant/parent DNA testing.  MOH officials 
acknowledge the health problems potentially affecting 
sex trafficking victims, especially HIV/AIDS and other 
sexually transmitted diseases, and the possible 
resulting public health issues.  The MOH maintains 
social workers in all public hospitals, to which 
medical personnel refer patients when sexual or other 
abuse is suspected.  These counselors are also 
available for consultation by patients even without a 
referral by medical personnel.  Local police 
departments also maintain officers in public hospitals 
that are immediately accessible in the event a patient 
is suspected to be a victim of a criminal offense. 
These officers are trained in victim protection and 
assistance, and do not jail victims or recommend them 
for prosecution for violation of UAE laws. 
 
The MOH issues annual health cards to non-citizen 
workers, which they initially receive after passing a 
physical examination upon arrival to the UAE.  The 300 
dirhams (about $82) health cards are provided by 
employers to employees and their family members for 
free medical treatment and medication at public 
hospitals.  Annual physical exams for employees are 
required to renew the health cards.  Domestic servants 
are subject to these annual exams even though they are 
not covered by the Labor Law.  During this exam, 
medical personnel with specialized abuse-detection 
training make inquiries and look for signs of sexual 
or physical abuse.  The MOH also makes available at 
public hospitals brochures about domestic violence and 
sexual and physical abuse, with information on who to 
contact for help or assistance.  MOH officials also 
report that they actively conduct health education 
outreach to community associations (many of the more 
than 200 nationalities who reside in the UAE have 
community associations) and foreign embassies and 
consulates. 
 
The Ministry of Labor and Social Affairs manages the 
work force and labor market and enforces compliance 
with the labor law through inspections.  In 2003, the 
MOL added 53 new inspectors to its roster, increasing 
the total number of inspectors to 185.  In 2003, these 
inspectors conducted 24,225 inspections in Dubai and 
7,714 inspections in Abu Dhabi.  Statistics were not 
available regarding the remaining five emirates. 
These inspections ferret out any problems with 
adherence to the labor law, including salaries, safety 
issues, working hours, changes to contracts, and any 
other worker complaints.  In Abu Dhabi, 21 cases were 
filed with the MOL reasons such as delayed payment of 
salary.  Seven of those cases were transferred to 
court.  The remainder were mediated by the MOL.  In 
Dubai, nine cases were filed with the MOL, and one was 
transferred to court.  In Sharjah, two cases were 
filed, and one went to court.  The MOL also reviews 
employment contracts for workers in the industrial and 
service sectors to ensure compliance with the labor 
laws. 
 
In 2002, the MOL began distributing an information 
booklet to foreign workers outlining their rights 
under the labor law and how to pursue labor disputes, 
whether individual or collective.  The booklet 
includes information on work permits, employment 
contracts and labor cards, private recruitment 
agencies, work hours and leave, compensation for work 
injuries and occupational diseases, labor disputes, 
employment contract termination, end of service 
benefits, transfer of sponsorship and repatriation. 
The booklet also contains contact information for the 
MOL and addresses and telephone numbers for all 
foreign missions in the UAE.  MOL officials stated 
that they distributed the information booklets to 
embassies and consulates in the UAE, focusing on those 
with large numbers of citizens working here, and 
requested the foreign diplomats to assist in the 
distribution of the information booklets to their 
citizens already present and working in the UAE.  The 
MOL also requested the foreign missions to assist in 
providing the information booklets to prospective 
employees in their countries prior to their departure 
for the UAE. 
 
Despite social sensitivities to the trafficking issue, 
the Ministry of Information and Culture continues to 
increase public awareness by placing articles in the 
English and Arabic press about trafficking in boys for 
use as camel jockeys and women for the sex industry. 
 
The Women's Da'waa Administration in the Dubai 
Department of Awqaf and Islamic Affairs operates a 
hotline geared for women and children.  Operating 
since July 2002, the hotline is open to all 
nationalities living in all emirates.  The hotline is 
open from 8:00 a.m. to 9:00 p.m., Saturday to 
Wednesday, but will take emergency calls on Thursday 
and Friday (the UAE weekend). 
 
-- C.  Are there or have there been anti-trafficking 
information or education campaigns?  If so, briefly 
describe the campaign(s), including their objectives 
and effectiveness.  Do these campaigns target 
potential trafficking victims and/or the demand for 
trafficking (e.g. "clients" of prostitutes or 
beneficiaries of forced labor)? 
 
The Ministry of Information and Culture has helped 
increase public awareness with information campaigns 
about trafficking in boys for use as camel jockeys 
ever since the announcement of the child camel jockey 
ban in July 2002. 
 
The local press highlights cases of child jockeys 
rescued and repatriated by local authorities, source 
country embassies and consulates, and non-governmental 
organizations.  The local press also increased its 
reporting over the past year on cases of sex 
trafficking, in spite of the taboo nature if the 
subject.  Some local newspapers include regular 
columns with advice on worker rights.  Newspapers 
reported widely last summer on the new law prohibiting 
employers from holding their employees' passports. 
The media has highlighted several incidents of police 
assistance with retrieving passports from employers. 
 
-- D.  Does the government support other programs to 
prevent trafficking? 
 
In addition to government ministries and departments, 
charitable and other organizations funded by the 
Government and individual ruling family members are 
also involved in programs that help to prevent 
trafficking.  The Government maintained its efforts to 
address humanitarian needs and concerns in the UAE and 
worldwide through government-funded charitable 
organizations. 
 
Within the UAE's borders, the primarily government- 
funded UAE Red Crescent Authority, an affiliate of 
the International Federation of the Red Cross and 
Red Crescent Societies, provided assistance to 
widows, divorced women, prisoners' wives, orphans, 
prisoners and students from poor families. 
Projects funded by the Red Crescent Authority 
include maintaining schools and mosques, digging 
wells, building health units, and training people 
with special needs. 
Outside the UAE, the UAE Red Crescent Authority and 
other charitable organizations funded by individual 
ruling family members, such as the Zayed Foundation 
and the Mohammed Bin Rashid Al-Maktoum Humanitarian 
and Charity Establishment, conducted humanitarian 
relief projects and provided reconstruction and other 
types of assistance to a number of countries 
worldwide, including countries in the Middle East, 
Eastern Europe, CIS, Russia, and Africa. 
 
Many of the countries that receive aid from UAE 
charitable organizations are source countries or are 
at risk of becoming source countries for trafficking 
in persons because of poor socio-economic conditions. 
These charitable projects are anti-trafficking in 
nature because they help to support people and 
communities vulnerable to trafficking.  These 
organizations fund a multitude of projects, including 
providing food, clothing, construction equipment, 
telecommunications equipment, heavy machinery, 
electrical generators, transportation equipment, 
vehicles, ambulances, medical supplies, and medicines; 
paying government employees' and teachers' salaries; 
providing financial aid to support orphans; conducting 
demining projects; building roads, refugee camps, 
homes, hospitals, schools and orphanages; operating 
refugee camps and orphanages; and digging wells. 
 
The UAEG cooperates with the office of the UN High 
Commissioners for Refugees (UNHCR) and other 
humanitarian organizations in assisting refugees.  In 
2000, UAE First Lady Shaykha Fatima bint Mubarak 
established a Fund for Refugee Women to help refugee 
women worldwide, which is managed by the UAE Red 
Crescent Society in cooperation with UNHCR.  The UAEG 
also cooperates with Medecins Sans Frontieres (Doctors 
Without Borders), which maintains offices in the UAE. 
 
-- E.  Is the government able to support prevention 
programs? 
 
The government is able to and does support prevention 
programs both in the UAE and in other countries.  See 
answers to 4.C and 4.D above. 
 
-- F.  What is the relationship between government 
officials, NGOs, other relevant organizations and 
other elements of civil society on the trafficking 
issue? 
 
The UAEG works with foreign embassies, consulates and 
ministries, and source country NGOs, to provide 
shelter and assistance to victims and facilitate their 
repatriation, as well as to stop the flow of 
trafficking victims at the source.  The UAEG reports 
good ties with the local branch of the UNDP and the 
International Center for Women's Rights. 
Additionally, the Dubai Human Rights Care Department 
has worked with the Polaris Project, the IOM, and a 
number of smaller source country NGOs. 
 
The Ministry of Labor works with the ILO on various 
labor issues.  The Ministry of Foreign Affairs is 
currently considering UAE membership in the inter- 
governmental International Organization for Migration 
(IOM), and is working with the IOM to conduct two 
anti-TIP seminars in 2004 - an MFA-sponsored inter- 
agency conference, and a training seminar at the Abu 
Dhabi Police College.  Both events are scheduled for 
May 2004. 
 
-- G.  Does the government adequately monitor its 
borders?  Does it monitor immigration and emigration 
patterns for evidence of trafficking?  Do law 
enforcement agencies respond appropriately to such 
evidence? 
 
The UAEG adequately monitors its borders against 
illegal migration and smuggling.  The Armed Forces 
are responsible for guarding and monitoring the UAE's 
coast and land borders.  Border guards have the legal 
authority to stop and inspect individuals at the 
border or point of entry, especially if there is 
suspicion of illegal activity.  In 2002, the UAE 
erected a fence barrier that runs for several 
kilometers along its land border with Oman, in an 
effort to curb smugglers and illegal immigration. 
 
The federal and emirate-level immigration authorities 
are responsible for controlling the influx of people 
at the country's international airports.  In August 
2002, the U.S. Immigration and Naturalization Service 
conducted fraud intercept training at Dubai 
International Airport to help immigration authorities 
better combat document fraud at that point of entry 
into the UAE.  In 2003, Dubai immigration conducted 
training to detect fraudulent documents, often used 
by trafficked persons, for 249 arrival inspectors and 
177 departure inspectors.  Immigration officials also 
regularly meet with the Dubai Human Rights Care 
Department and the inter-agency Human Rights Care 
Committee to discuss TIP issues. 
 
The authorities have recognized that illegal 
immigration and the violation of residency laws is a 
problem in the UAE.  To that end, the Ministry of 
Interior's Department of Naturalization and Residency 
created a central operations room in 2000, including 
an integrated federal data center to track the 
arrival and departure of individuals in the 
Federation's seven emirates.  In 2003, the UAEG 
instituted the use of retinal scans to add biometrics 
identification information to its databases. 
Biometrics information will help UAEG authorities to 
better monitor migration and combat document fraud by 
visitors and illegal immigrants. 
 
In an effort to crack down on border infiltrators and 
immigration violators, the UAEG conducted a six-month 
amnesty program in 2003.  This program allowed 
persons who overstayed their visas, worked illegally 
on visit visas, or who entered the country without 
visas, to leave the country without penalty of 
prosecution for immigration violations. 
 
So that the UAEG can better monitor immigration 
patterns, the UAEG is updating its immigration 
databases with information received from a 
questionnaire completed by all amnesty-seekers.  The 
questionnaire included questions on how the amnesty 
applicants arrived in the country, who assisted them 
in coming and staying here, what they have been 
doing, and whether they have been working while here. 
Immigration officials indicated that questionnaires 
containing information that suggests criminal 
activity, including trafficking in persons, are 
referred to law enforcement authorities for 
investigation. 
 
Labor Ministry officials indicated that they will use 
statistical information received from the general 
amnesty program to identify practices and trends that 
violate the labor law or abuse workers so that they 
can better manage the labor market and protect worker 
rights. 
 
Although the amnesty program was not designed 
specifically to determine the extent or magnitude of 
the trafficking in persons to the UAE, UAEG officials 
have stated that statistical analysis based on 
amnesty program information will provide them with a 
foundation to actively and effectively monitor 
trafficking in persons and estimate the magnitude of 
the problem. 
 
-- H.  Is there a mechanism for coordination and 
communication among various agencies, such as multi- 
agency working group(s) or task force(s)?  Does the 
government have a trafficking in persons task force? 
Does the government have a public corruption task 
force? 
 
The UAEG does not have a public corruption task 
force.  Since 2002, the Ministry of Foreign Affairs 
has led and directed inter-ministry coordination and 
communication on trafficking in persons issues. 
Representatives from the Ministries of Foreign 
Affairs, Interior, Justice, Labor, and the Dubai 
Police meet when required.  The MFA has stated that 
this group plans to meet more regularly in 2004, and 
will discuss the formulation of a national action 
plan. 
 
Anti-TIP specialists working in the Dubai 
immigration, police, and public prosecutors offices 
coordinate regularly to handle TIP cases.  Since its 
creation six months ago, the 16-person anti-TIP 
office at the Dubai Public Prosecutors Department has 
worked closely with these offices to handle 14 
trafficking cases. 
 
-- I.  Does the government coordinate with or 
participate in multinational or international working 
groups or efforts to prevent, monitor, or control 
trafficking? 
 
Throughout 2003, police and Ministry of Interior 
officials developed channels with source country 
governments to exchange information on organized 
crime, including trafficking in persons. 
 
UAEG authorities worked closely with authorities and 
NGOs in Pakistan and Bangladesh to prevent and 
control trafficking in boys to the UAE by stemming 
the seizure and recruitment of these children at the 
source.  Law enforcement officials coordinated with 
foreign NGOs and source country governments on 
trafficking in women cases. 
 
Immigration authorities also worked with source 
country embassies and consulates to repatriate 
trafficking victims, including 125 former camel 
jockeys to Pakistan and 120 - 150 camel jockeys to 
Bangladesh, in 2003. 
 
-- J.  Does the government have a national plan of 
action to address trafficking in persons?  If so, 
which agencies were involved in developing it?  Were 
NGOs consulted in the process?  What steps has the 
government taken to disseminate the action plan? 
 
An MFA-led inter-ministry group, including 
representatives from Interior, Justice, Labor, and 
the Dubai Police, coordinate and communicate on 
trafficking in persons issues when needed.  This 
group created the plan of action for formulating and 
implementing the child camel jockey ban.  MFA 
officials have reported that the same group will soon 
discuss the creation of a national anti-TIP action 
plan to expand their efforts to combating sex 
trafficking. 
 
-- K.  Is there some entity or person responsible for 
developing anti-trafficking programs within the 
government? 
 
The MFA primarily leads the way in coordinating anti- 
TIP programs.  However, in 2003 and 2004, the Dubai 
Police Human Rights Care Department created several 
inter-departmental programs to fight trafficking in 
persons. 
 
    -------------------------------------------- 
¶6.  INVESTIGATION AND PROSECUTION OF TRAFFICKERS 
    -------------------------------------------- 
 
-- A.  Does the UAE have a law specifically 
prohibiting trafficking in persons - both trafficking 
for sexual exploitation and trafficking for non-sexual 
purposes?  If so, what is the law?  If not, under what 
other laws can traffickers be prosecuted?  For 
example, are there laws against slavery or the 
exploitation of prostitution by means of coercion or 
fraud?  Are these other laws being used in trafficking 
cases?  Are these laws, taken together, adequate to 
cover the full scope of trafficking in persons? 
 
The UAE does not have one law specifically 
criminalizing trafficking in persons, as defined by 
the USG.  However, traffickers can and are prosecuted 
under a number of laws that, taken together, may be 
adequate to cover the full scope of trafficking in 
persons.  Those laws criminalize child smuggling, 
prostitution, and forced and compulsory labor. 
 
UAE Penal Law Article 346 states: "Whoever brings into 
or out of the country any person intending to possess 
or dispose of and whoever possesses or purchases or 
sells or offers for sale or transacts in any manner of 
any person as a slave shall be punished with 
provisional imprisonment."  Provisional imprisonment 
is a sentence of 3 years minimum and 15 years maximum. 
 
Justice Ministry officials indicate that traffickers 
can also be prosecuted under other penal laws, 
including:  kidnapping;  rape;  sodomy;  sexual abuse; 
sexual exploitation;  immoral acts;  exploitation of 
someone for immoral acts;  physical abuse;  false 
imprisonment;  juvenile endangerment;  forced labor; 
child labor;  forced prostitution;  indecency; 
enticement, inducement or deceiving someone to commit 
immoral acts or prostitution;  aiding or facilitating 
the commission of immoral acts or prostitution; 
keeping or operating a place for immoral acts or 
prostitution;  and money laundering. 
 
Ministry of Labor officials also report that the UAE 
Labor Law contains penalties for labor law violations. 
UAE Labor Law Art. 181 provides for a fine from 3,000 
dirhams (about $820) to 10,000 dirhams (about $2700) 
and/or imprisonment up to six months per labor law 
violation or for obstructing, preventing or 
threatening labor inspectors. 
 
In 2003, Dubai police reported 166 cases of non- 
citizen traffickers charged with a number of the above 
criminal offenses.  Police reported five UAE citizens 
were charged with similar crimes in 2003.  There were 
104 cases of firms (primarily travel agencies) closed 
in 2003 due to visa trading (firms offered non- 
existent jobs to women, and expected them to work as 
prostitutes on arrival).  Twelve additional Dubai 
institutions (primarily hotels and apartment 
complexes) were closed in 2003 due to fostering 
prostitution.  In 2003, 4,924 women were arrested in 
Dubai for prostitution.  There are no statistics 
available to determine how many of these women were 
ultimately charged with crimes, and how many were 
treated as trafficking victims. 
 
UAE law appears to adequately cover the full scope of 
trafficking in persons in a piecemeal fashion. 
Ministry of Justice officials are currently reviewing 
U.S. trafficking in persons model legislation and 
evaluating current UAE laws to determine whether 
there are gaps in existing legislation.  If so, 
Justice Ministry officials will determine whether 
supplemental legislation will be adequate or if 
comprehensive trafficking in persons legislation will 
be necessary. 
 
-- B.  What are the penalties for traffickers of 
people for sexual exploitation?  For traffickers of 
people for labor exploitation? 
 
There is no single law specifically criminalizing 
trafficking.  The punishment for child smuggling is 
imprisonment plus a 1,000 dirham (USD 365) fine.  For 
child smuggling that results in child abuse, the fine 
is increased to 10,000 dirhams (USD 3,650).  UAE Penal 
Law Art. 346 (see 6.A above), which comes closest to 
the USG definition of trafficking in persons, provides 
for imprisonment from 3 years minimum to 15 years 
maximum. 
 
-- C.  What are the penalties for rape or forcible 
sexual assault?  How do they compare to the penalty 
for sex trafficking? 
 
Sentencing for rape ranges from 15 years plus 
lashings to capital punishment.  The penalty for rape 
that leads to the death of the victim or for rape 
with extenuating circumstances is capital punishment. 
 
-- D.  Has the UAEG prosecuted any cases against 
traffickers?  If so, provide numbers of arrests, 
indictments, convictions, and sentences, including 
details on plea bargains and fines, if relevant and 
available.  What were the penalties actually imposed 
in each case?  Are the traffickers serving the time 
sentenced?  If no, why not?  Please indicate whether 
the government can provide this information, and if 
not, why not? 
 
Although the UAE does not have a specific trafficking 
law, in 2003, Dubai police reported 166 cases of non- 
citizen traffickers charged with a number of criminal 
offenses.  Police reported five UAE citizens were 
charged with similar crimes in 2003.  There were 104 
cases of firms (primarily travel agencies) closed in 
2003 due to visa trading (firms offered non-existent 
jobs to women, and expected them to work as 
prostitutes on arrival).  Twelve additional Dubai 
institutions (primarily hotels and apartment 
complexes) were closed in 2003 due to fostering 
prostitution. 
 
UAEG officials are attempting to compile additional 
statistics on arrests, prosecutions, and convictions. 
We will forward this information immediately when it 
is received. 
 
-- E.  Is there any information or reports of who is 
behind the trafficking?  For example, are the 
traffickers freelance operators, small crime groups, 
and/or large international organized crime syndicates? 
Are employment, travel, and tourism agencies or 
marriage brokers fronting for traffickers or crime 
groups to traffic individuals?  Are government 
officials involved?  Are there any reports of where 
profits from trafficking in persons are being 
channeled? 
 
IOM and NGO reports indicate that organized crime 
groups, almost all of them originating from the source 
countries, are behind most, if not all, trafficking 
cases to the UAE, with the typical size of the 
organized crime group varying according to the source 
country.  Employment and travel agencies have been 
used as fronts for traffickers, although in many cases 
these organizations handle legitimate business as well 
as participate in trafficking.  Many of these 
businesses were closed by police in 2003 (see 6.A and 
D).  There are no verified reports that government 
officials are involved, although there have been 
anecdotal, unverified reports that some lower-level 
officials may turn a blind eye to the problem.  There 
are no reports of where the profits are being 
channeled. 
-- F.  Does the government actively investigate cases 
of trafficking?  Does the government use active 
investigative techniques in trafficking in persons 
investigations?  To the extent possible under domestic 
law, are techniques such as electronic surveillance, 
undercover operations, and mitigated punishment or 
immunity for cooperating suspects used by the 
government?  Does the criminal procedure code or other 
laws prohibit the police from engaging in covert 
operations? 
 
Law enforcement officials report that they actively 
investigate cases of trafficking in persons, primarily 
through regular sting operations to ferret out sex 
trafficking cases, as well as by using the ID card 
system at racetracks to rescue boys trafficked as 
camel jockeys.  Investigation is accomplished more 
regularly in cases brought to police attention through 
complaints from victim or other interested parties. 
Police officials state that trafficking in persons 
investigations are challenging when trafficking is 
suspected but the victim refuses to provide 
information, likely out of fear or distress. 
 
Police officials also report that active investigative 
techniques are used in criminal investigations, 
including trafficking in persons cases, and that 
electronic surveillance and undercover operations are 
permitted and used.  Police officials recommend 
sentence mitigation for cooperating suspects and are 
not prohibited from engaging in covert operations. 
However, due to restraints on properly trained and 
experienced law enforcement staff, it is likely that 
police take more of a reactive vice proactive role in 
investigating trafficking case. 
 
-- G.  Does the government provide any specialized 
training for government officials in how to recognize, 
investigate, and prosecute instances of trafficking? 
 
On several occasions over the past year, senior UAEG 
leadership requested information on training 
opportunities that specifically address combating 
trafficking in persons, to help law enforcement, 
prosecutors and judges better identify, investigate 
and prosecute cases of trafficking in persons. 
 
In March 2003, the Dubai Human Rights Care Department 
held a five-day training seminar, including lectures 
on anti-trafficking, for 18 representatives from 
police investigations, immigration, social 
assistance, the moral directive department, and 
several smaller Dubai police stations. 
 
In December 2003, Dubai police held a lecture for 
legal personnel on human rights and anti-TIP issues. 
 
In May 2004, the MFA, in cooperation with Post and 
the IOM, plans to hold an inter-ministerial Anti- 
Trafficking in Persons Workshop in Abu Dhabi.  The 
same month, the Abu Dhabi Police College, also with 
the assistance of the Department of State and the 
IOM, plans to hold an in-depth anti-trafficking in 
persons training seminar. 
 
Post is looking forward to the arrival of a proposed 
DOJ Resident Legal Advisor in Spring 2004, who will 
provide further training opportunities to UAEG 
ministries and departments. 
 
Ministry of Justice officials report that its 
Institute of Judicial Training and Studies conducts 
mandatory classes for prosecutors and judges on proper 
victim care and assistance.  The Institute also 
conducts mandatory specialized classes (with course 
duration in parentheses) on the following topics: 
human rights (14 hours); sexual offenses (20 hours); 
offenses against life (20 hours); immigration offenses 
(20 hours); juvenile protection and delinquency (30 
hours); labor violations and offenses (12 hours). 
 
In April 2003, the Dubai Police Department will host 
an FBI Organized Crime Undercover Operations training 
program at the Middle East Law Enforcement Training 
Center.  Law enforcement officers representing all 
local police departments are expected to attend. 
This specialized training will help to combat 
trafficking in persons to the UAE since organized 
crime groups reportedly commit most, if not all, 
trafficking offenses. 
 
-- H.  Does the government cooperate with other 
governments in the investigation and prosecution of 
trafficking cases?  If possible, can post provide the 
number of cooperative international investigations on 
trafficking? 
 
UAEG officials state, and local embassies and 
consulates confirm, that they cooperate with 
authorities in Pakistan and Bangladesh to prevent and 
control trafficking in boys to the UAE by stemming 
the seizure and/or recruitment of these children at 
the source.  Law enforcement officials report that 
they also cooperate and work in coordination with 
foreign NGOs and foreign governments on trafficking 
in women issues when cases are brought to their 
attention. 
 
Immigration authorities work with foreign embassies 
and consulates and foreign NGOs in repatriation 
cases.  In 2003, 125 Pakistani camel jockeys were 
repatriated, with cooperation among the UAEG, source 
country missions, and source country NGOs.  The 
Embassy of Bangladesh reported that between 120 - 150 
boys were repatriated in 2003 with similar 
cooperation from the UAEG. 
 
Ministry of Interior officials have indicated that 
they continue to work on developing channels with 
foreign governments, primarily source country 
governments, to exchange information on organized 
crime, including trafficking in persons. 
 
-- I.  Does the government extradite persons who are 
charged with trafficking in other countries?  If so, 
can post provide the number of traffickers extradited? 
Does the government extradite its own nationals 
charged with such offenses?  If not, is the government 
prohibited by law from extraditing its own nationals? 
If so, what is the government doing to modify its laws 
to permit the extradition of nationals? 
 
The UAEG currently has extradition treaties with a 
number of countries, including India, Sri Lanka, 
Armenia, Canada (for drugs and money-laundering 
charges), China, Saudi Arabia, Tunisia, Algeria, 
Morocco, Syria, Somalia, Jordan and Egypt.  Between 
1997-2001, 253 suspected criminals were extradited 
from the UAE and 96 suspected criminals were 
extradited to the UAE.  Post does not have statistics 
covering post-2001 extraditions.  In some cases, 
extradition was performed to and from countries with 
which the UAEG does not currently have an extradition 
treaty. 
 
Over the past few years, UAEG authorities have 
discussed extradition treaties with Azerbaijan, 
Pakistan, Russia, France, Germany, Australia, South 
Africa, the US, and Yemen. 
 
The UAEG also has mutual legal assistance treaties in 
criminal matters with a number of countries.  In some 
cases, mutual legal assistance was exchanged with 
countries with which the UAEG does not currently have 
a mutual legal assistance treaty.  The USG and UAEG 
have exchanged mutual legal assistance treaty 
documents in 2003 and will likely continue treaty 
negotiations this year. 
 
To our knowledge, the UAEG has not requested 
extradition or granted extradition in a case of 
trafficking in persons.  Based on the UAEG's record on 
extradition and mutual legal assistance in criminal 
matters, it is expected that the UAEG would request or 
grant extradition and mutual legal assistance in 
trafficking in persons cases. 
 
UAEG extradition of a UAE citizen to another country 
is unlikely absent extreme extenuating circumstances. 
For example, there is reportedly a clause in the UAE- 
India extradition treaty, included at the UAEG's 
request, wherein both nations agreed not to extradite 
their own nationals to the other. 
 
-- J.  Is there evidence of government involvement in, 
or tolerance of, trafficking, on a local or 
institutional level?  If so, please explain in detail. 
 
There is no firm evidence of government involvement in 
or tolerance of trafficking, whether on a local or 
institutional level.  There have been some unverified 
anecdotal reports that some lower-level officials may 
look the other way as traffickers bring their victims 
into the country.  There are other, similar unverified 
reports that some police may "tip off" certain clubs, 
bars or hotels before a sting.  There is no evidence 
to confirm any of these reports, and there is no deep- 
seated culture of corruption in the UAE Government. 
 
-- K.  If government officials are involved in 
trafficking, what steps has the government taken to 
end such participation?  Have any government officials 
been prosecuted for involvement in trafficking or 
trafficking-related corruption?  Have any been 
convicted?  What actual sentence was imposed?  Please 
provide specific numbers, if available. 
 
There have been no credible cases reported of 
government officials involved in trafficking.  Based 
on previous cases of investigation and prosecution of 
government officials for criminal offenses, it is 
expected that the UAEG would investigate and prosecute 
government officials suspected of trafficking or 
trafficking-related corruption. 
 
-- L.  Has the government signed, ratified, and/or 
taken steps to implement the following international 
instruments?  Please provide the date of 
signature/ratification if appropriate. 
 
¶A.  ILO Convention 182 Concerning the Prohibition and 
Immediate Action for the Elimination of the Worst 
Forms of Child Labor: 
 
The UAEG ratified ILO Convention 182 Concerning Worst 
Forms of Child Labor on 28 June 2001. 
 
¶B.  ILO Conventions 29 and 105 on Forced or Compulsory 
Labor: 
 
The UAEG ratified ILO Convention 29 Concerning Forced 
Labor on 27 May 1982. 
 
The UAEG ratified ILO Convention 105 Concerning 
Abolition of Forced Labor on 24 February 1997. 
 
¶C.  Optional Protocol to the Convention on the Rights 
of the Child on the Sale of Children, Child 
Prostitution, and Child Pornography: 
 
The UAEG ratified the UN Convention on the Rights of 
the Child on 3 January 1997, but has not ratified its 
supplemental Option Protocol on the Sale of Children, 
Child Prostitution, and Child Pornography. 
 
¶D.  The Protocol to Prevent, Suppress and Punish 
Trafficking in Persons, especially Women and Children, 
Supplementing the UN Convention against Transnational 
Organized Crime: 
 
The UAE acceded to the UN Convention Against 
Transnational Organized Crime in December 2002. 
Justice Ministry officials report that the UAE is 
reviewing and will likely sign the following 
supplemental protocols soon:  (1) the Supplemental 
Protocol to Prevent, Suppress and Punish Trafficking 
in Persons, Especially Women and Children; and (2) 
the Supplemental Protocol Against the Smuggling of 
Migrants by Land, Sea and Air. 
 
¶E.  Other Instruments: 
 
The UAEG has also ratified or acceded to the following 
international instruments that help directly or 
indirectly guard against trafficking in persons. 
(Note: Date of ratification or accession in 
parentheses. End note.) 
 
--UN International Convention on the Elimination of 
All Forms of Racial Discrimination (acceded 20 June 
1974). 
 
--Convention Against Slavery (ratification date 
unknown). 
 
--ILO Convention 1 Concerning Hours of Work for 
Industry (ratified 27 May 1982). 
 
--ILO Convention 81 Concerning Labor Inspection 
(ratified 27 May 1982). 
 
--ILO Revised Convention 89 Concerning Night Work for 
Women (ratified 27 May 1982). 
 
--ILO Convention 100 Concerning Equal Remuneration 
(ratified 24 February 1997). 
 
--ILO Convention 111 Concerning Discrimination in 
Employment and Occupation (ratified 28 June 2001). 
 
--ILO Convention 138 Concerning Minimum Age for 
Employment (ratified 2 October 1998). 
 
    ------------------------------------ 
¶7.  PROTECTION AND ASSISTANCE TO VICTIMS 
    ------------------------------------ 
 
-- A.  Does the government assist victims, for 
example, by providing temporary to permanent residency 
status, relief from deportation, shelter and access to 
legal, medical and psychological services?  If so, 
please explain.  Does the country have victim care and 
victim health care facilities?  If so, can post 
provide the number of victims placed in these care 
facilities?  Are trafficking victims offered HIV/AIDS 
screening or otherwise tested for HIV/AIDS?  If so, 
what are the results? 
 
The Government provides assistance and protection to 
victims, including victims of trafficking in persons. 
Counseling services are available in public hospitals. 
While the UAE has no "safehouses," authorities have 
worked with embassies and NGOs to provide shelter 
facilities, either in hotels or in embassies and 
consulates.  Police Departments also provide shelter 
facilities for victims separate from the general 
prison population.  Those sheltered in police 
facilities receive free medical care. 
UAE Code of Criminal Procedures Arts. 14 and 22 
provide for legal assistance for victims. 
The following victim protection and assistance 
services in Dubai Emirate are particularly notable 
because almost all women traveling to the UAE for 
purposes of prostitution, whether forced or otherwise, 
reportedly travel to Dubai. 
 
Each Dubai police station is staffed with a human 
rights officer and a social worker/counselor from 
Dubai Police's Human Rights Department.  These 
officers and social workers/counselors are available 
to assist complainants and victims. 
 
In 2002, the Dubai Police Human Rights Care Department 
developed a Crime Victims' Assistance Program, which 
includes the creation of Victim Assistance 
Coordinators and police training in victim protection 
and assistance.  In March 2003, Victim Assistance 
Coordinators were assigned to police stations.  Victim 
Assistance Coordinators' responsibilities include 
advising victims about the criminal justice system and 
criminal procedure; encouraging witness testimony, 
especially in cases like sexual abuse and trafficking 
in persons where victims are reluctant to speak out; 
advising victims of their rights; providing counseling 
and medical care; placement in a hotel or shelter; and 
follow-up with victims as the case proceeds to trial. 
 
The Dubai Tourist Security Department operates a 24- 
hour toll-free hotline telephone number to assist 
visitors with inquiries or problems.  The Department 
publishes information on the hotline and precautionary 
measures for visitors in a brochure that is 
distributed at all ports of entry and other locations, 
including source country missions. 
 
The Women's Da'waa Administration in the Dubai 
Department of Awqaf and Islamic Affairs also operates 
a hotline especially geared toward women and children. 
Operating since July 2002, the hotline is open to all 
nationalities living in all emirates.  The hotline is 
open from 8:00 a.m. to 9:00 p.m., Saturday to 
Wednesday, but will take emergency calls on Thursday 
and Friday (the UAE weekend). 
 
-- B.  Does the government provide funding or other 
forms of support to foreign or domestic NGOs for 
services to victims? 
 
The Government provides funding for most or all local 
NGOs, and works with foreign NGOs to provide 
assistance to trafficking victims. 
 
-- C.  Is there a screening and referral process in 
place, when appropriate, to transfer victims 
detained, arrested, or placed in protective custody 
by law enforcement authorities to NGOs that provide 
short- or long-term care? 
 
Authorities regularly work with source country NGOs 
to assist in the humane repatriation of victims to 
their home countries.  Screening and referral 
processes are in place at police stations to 
determine, through interviewing, which individuals in 
custody are victims of trafficking and require 
protection and assistance.  Police departments work 
with embassies and consulates to provide further 
assistance.  While law enforcement has regularly 
transferred trafficking victims to the protective 
care of NGOs outside the UAE, there are no reports in 
2003 of police officials transferring custody to 
local NGOs. 
 
-- D.  Are the rights of victims respected, or are 
victims also treated as criminals?  Are victims 
detained, jailed, or deported?  If detained or jailed, 
for how long?  Are victims fined?  Are victims 
prosecuted for violations of other laws, such as those 
governing immigration or prostitution? 
 
Rights of victims are generally respected, once 
identified as victims.  There have been some reports, 
however, of cases where victims were never identified 
as such, and instead were treated as criminals. 
Individuals identified as victims are not detained, 
jailed or deported.  Individuals identified as 
victims are also not prosecuted for violations of 
other laws, such as those governing immigration or 
prostitution, if commission of such offenses is 
determined to have occurred beyond their control, 
which would be the case for most trafficking victims. 
For example, law enforcement officials stated that 
they would not prosecute a victim of forced 
prostitution for prostitution.  And, immigration 
officials indicated that victims would not be 
prosecuted for immigration violations if, for 
example, they overstayed in the country illegally 
because a trafficker had seized their passports. 
Police encourage victims to testify against their 
traffickers, and they are provided assistance in 
housing and employment during the proceedings. 
However, police have reported that in most cases, 
victims choose to be immediately repatriated to their 
home countries. 
 
-- E.  Does the government encourage victims to assist 
in the investigation and prosecution of trafficking? 
May victims file civil suits or seek legal action 
against the traffickers?  Does anyone impede the 
victims' access to such legal redress?  If a victim is 
a material witness in a court case against the former 
employer, is the victim permitted to obtain other 
employment or to leave the country?  Is there a victim 
restitution program? 
 
Law enforcement officials report that they advise 
victims of their rights and encourage witness 
testimony, especially in cases like sexual abuse and 
trafficking in persons where victims are reluctant to 
speak out.  Police will assist victims who choose to 
stay in the UAE with locating appropriate housing and 
temporary employment opportunities. 
 
Before or during a criminal trial, a victim may claim 
financial compensation or "diya", which is granted as 
part of defendant's sentence.  Victims may also file 
civil suits for damages. 
 
Foreign diplomats indicate that victims have been 
permitted to give sworn testimony and leave the 
country before judgment was rendered. 
 
-- F.  What kind of protections is the government able 
to provide for victims and witnesses?  Does it provide 
these protections in practice? 
 
The government is able to provide protections for 
victims and witnesses, and does provide these 
protections in practice. 
 
UAE Code of Criminal Procedures Arts. 14 and 22 
provide for legal assistance for victims. 
 
Authorities have worked with NGOs to provide shelter 
facilities for victims.  Victims may also seek 
shelter from their embassies and consulates.  Police 
Departments also provide shelter facilities for 
victims separate and apart from jail facilities, and 
have also arranged for shelter in hotels. 
 
-- G.  Does the government provide any specialized 
training for government officials in recognizing 
trafficking and in the provision of assistance to 
trafficked victims, including the special needs of 
trafficked children?  Does the government provide 
training on protections and assistance to its 
embassies and consulates in foreign countries that are 
destination or transit countries?  Does it urge those 
embassies and consulates to develop ongoing 
relationships with NGOs that serve trafficked victims? 
 
The UAEG senior leadership has repeatedly requested 
information on training opportunities that 
specifically address combating trafficking in 
persons, to help law enforcement officials, 
prosecutors and judges better identify, investigate 
and prosecute trafficking in persons cases. 
 
In March 2003, the Dubai Human Rights Care Department 
ran a five-day victim assistance training course for 
18 individuals from police investigations, 
immigration, social assistance, the moral directive 
department, and police stations around Dubai. 
Lecture topics included:  How to protect juvenile 
victims;  Criminal investigation procedures to 
determine if someone in custody is a TIP victim; 
Study of the Labor Law;  Psychology of victims of 
crime;  and Rights of victims. 
 
In May 2004, the Abu Dhabi Police College, with 
guidance from the IOM, Post, and G/TIP, will conduct 
an anti-TIP training seminar.  Also in May and with 
the support of the IOM, Post and G/TIP, the MFA will 
host an anti-TIP workshop for ministries, law 
enforcement officials, and source country 
representatives.  From May 20 - June 10, 2004, a 
representative from the Ministry of Interior's Legal 
Affairs Department will participate in an anti- 
trafficking in persons IV program in Washington, D.C. 
 
Ministry of Justice officials reported that the 
Ministry's Institute of Judicial Training and Studies 
conducts mandatory classes for prosecutors and judges 
on proper victim care and assistance.  The Institute 
also conducts mandatory specialized classes (with 
course duration in parentheses) on the following 
topics:  human rights (14 hours); sexual offenses (20 
hours); offenses against life (20 hours); immigration 
offenses (20 hours); juvenile protection and 
delinquency (30 hours); labor violations and offenses 
(12 hours). 
 
-- H.  Does the government provide assistance, such as 
medical aid, shelter, or financial help, to its 
repatriated nationals who are victims of trafficking? 
 
There are no reports of UAE nationals being 
trafficked outside of or within the UAE.  Considering 
the UAEG's record of numerous services provided to 
citizens at little to no cost, it is expected that 
the UAEG would provide generous assistance to 
repatriated UAE nationals who are victims of 
trafficking, if such a situation were to occur. 
 
-- I.  Which NGOs, if any, work with trafficking 
victims?  What type of services do they provide?  What 
sort of cooperation do they receive from local 
authorities? 
 
The Government cooperates and coordinates with NGOs 
in providing assistance to trafficking victims.  For 
example, Abu Dhabi police officials have worked with 
the Pakistan-based Ansar Burney Foundation, a non- 
governmental organization dedicated to improving 
human rights in South Asia, in providing shelter to 
and assisting in the repatriation of rescued children 
brought to the UAE to work as camel jockeys.  The 
UAEG also works with several other South Asian NGOs 
that address the camel jockey issue, in order to 
humanely repatriate the boys.  The UAEG also works 
with the International Center for Women's Rights and 
the United Nations regularly, as well as other NGOs 
as cases arise. 
 
WAHBA