VZCZCXYZ0000
RR RUEHWEB

DE RUEHKG #0330/01 0472054
ZNR UUUUU ZZH
R 162054Z FEB 06
FM AMEMBASSY KINGSTON
TO SECSTATE WASHDC 2255

UNCLAS KINGSTON 000330 
 
SIPDIS 
 
STATE FOR WHA/CAR (BENT) AND INL/LP (BOZZOLO) 
STATE ALSO FOR G/TIP (ETERNO) 
STATE ALSO FOR WHA/PPC (PUCCETTI) 
DOJ FOR OPDAT (LIPMAN) 
 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: KCRM PHUM KWMN SMIG KFRD ASEC PREF ELAB JM
SUBJECT: WHA- TRAFFICKING IN PERSONS SOLICITATION FOR ESF 
AND INCLE PROJECTS FOR FY 2006 
 
Ref: SECSTATE 221183 
 
This cable is in response to Reftel request for anti- 
trafficking in persons project proposals for funding 
consideration from FY2006 INCLE and ESF appropriations. 
Post hereby submits two project proposals one for funding 
consideration for FY2006 INCLE funds and the second for 
funding consideration for FY2006 ESF funds. 
 
---------------------- 
INCLE PROJECT PROPOSAL 
---------------------- 
 
¶A.  Title: 
 
Technical Assistance Proposal to Increase the Capacity of 
Jamaica's Criminal Justice System to Combat Trafficking in 
Persons by Advancing and Strengthening Its Institutional 
Capacity to Investigate, Prosecute, and Adjudicate Such 
Cases 
 
¶B.  Name of Recipient Organization/Government Agency: 
 
U.S. Department of Justice 
Office of Overseas Prosecutorial, Development, 
Assistance and Training (OPDAT) 
Attention: 
 
Robert Lipman, Program Manager 
Phone:  (202) 514-0950 
e-mail:  Robert.Lipman@usdoj.gov 
 
Beth Truebell 
Phone:    202-514-3253 
e-mail:   Beth.Truebell@usdoj.gov 
 
This proposal was prepared in partnership with: 
 
Natasha Henderson, Director 
Narcotics Affairs Section 
U.S. Embassy 
Kingston, Jamaica 
Phone:  876-935-6085 
e-mail:  Hendersonnm@state.gov 
 
 
¶C.  Duration of the Project and whether project is new or 
ongoing: 
 
This is a new project with a proposed duration of two (2) 
years. 
 
¶D.  Description: 
 
The proposal is designed to increase the capacity of 
Jamaica's criminal justice system to combat trafficking in 
persons.  This will be accomplished by advancing and 
strengthening Jamaica's institutional capacity to 
investigate, prosecute, and adjudicate cases involving 
trafficking in persons.  The program has five components: 
 
1) A multi-phase component with an objective of enhancing 
the capacity of law enforcement and civil society 
(prosecutors, investigators, border officials, victim 
service providers, and other relevant stakeholders and NGOs) 
to investigate and prosecute human trafficking and respond 
appropriately to victims.  This component will consist 
primarily of a series of workshops in which U.S. experts 
(for example, a prosecutor, an investigator, and a victim- 
witness expert) help their Jamaican counterparts create an 
Operations and Tactics Handbook to Combat Trafficking in 
Persons.  This handbook, when completed, will describe the 
best practices for Jamaican investigators, prosecutors, 
victim service providers, and other relevant stakeholders 
and NGOs. 
 
The process of developing this handbook will build 
cooperation between and among criminal justice sector 
agencies and relevant stakeholders in civil society so that 
all relevant entities (prosecutors, investigators, border 
officials, victim service providers, and other relevant 
stakeholders and NGOs) collaborate effectively to combat 
human trafficking.  Indeed, the OPDAT trainers/facilitators 
will explain the importance of maintaining a host country 
interagency law enforcement working group to combat human 
trafficking and will provide concrete suggestions for 
incorporating the interagency law enforcement working group 
concept into the Operations and Tactics Handbook.  The 
 
Operations and Tactics Handbook, when completed, can also 
serve as the core document for the training of Jamaican law 
enforcement (prosecutors, investigators, border officials, 
etc.) on human trafficking. 
 
During the course of the workshops it is expected that 
weaknesses in Jamaica's legislative regime will be 
identified and that the U.S. trainers will make suggestions 
for legislative changes to enhance Jamaica's capacity to 
combat trafficking in persons, such as criminal code reforms 
and civil forfeiture of property used to commit crimes (or 
acquired with the proceeds of crime).  (Note: Both the U.S. 
and the U.K. have enacted and implemented civil forfeiture 
legislation.).  In addition to facilitating the development 
of the operations handbook, this component of the program 
will include practical exercises, such as exercises on 
conducting searches for evidence, investigative teamwork and 
investigative planning, and interviewing victims.  OPDAT 
will closely coordinate this component of the program with 
AmEmbassy/Kingston's Pol/Econ Office. 
 
2) A multi-phase "judicial exchange" program spanning two 
years to facilitate the use of "best practices" by Jamaican 
judges in the adjudication of cases involving trafficking in 
persons.  This program will consist of a series of workshops 
to sensitize Jamaican judges to the seriousness of the crime 
of trafficking in persons and to help Jamaican judges 
prepare a "benchbook" of best practices for adjudicating 
human trafficking cases.  The workshops would be conducted 
by U.S. judges in collaboration with Jamaican judges.  After 
the initial workshop, Jamaican judges selected by 
AmEmbassy/Kingston would be invited to spend one week 
"shadowing" a U.S. judge to observe how criminal cases are 
fairly and effectively adjudicated in the U.S. under the 
U.S. federal rules of criminal procedure; it is anticipated 
that eight Jamaican judges (approximately one each quarter) 
will be able to shadow U.S. judges over the two-year period. 
OPDAT will closely coordinate this component of the program 
with AmEmbassy/Kingston's Pol/Econ Office. 
 
3) A public affairs event for policymakers, judges, law 
enforcement executives, other important government 
officials, journalists and other members of the news media 
of Jamaica to promote political will to combat trafficking 
in persons.  This public affairs event, which will be co- 
hosted by AmEmbassy/Kingston and the Government of Jamaica, 
will emphasize that human trafficking is both a global and 
regional issue. Among other things, this event is intended 
to enhance political support for intensified efforts by 
Jamaican law enforcement to combat human trafficking.  OPDAT 
will closely coordinate this component of the program with 
AmEmbassy/Kingston's Public Affairs Office. 
 
4) A public awareness program in which college and high 
school students (and, possibly, other students) are 
encouraged to write articles and create posters about 
trafficking in persons.  Efforts will be undertaken to have 
select articles published and select posters duplicated and 
posted.  This component of the program will promote public 
awareness of human trafficking in an effort to enhance 
prevention, protection, and prosecution.  Among other 
things, such increased public awareness is expected to 
increase the flow of actionable information about human 
trafficking to Jamaican law enforcement.  OPDAT will closely 
coordinate this component of the program with 
AmEmbassy/Kingston's Public Affairs Office. 
 
5) Project monitoring and evaluation (see evaluation plan, 
below) 
 
The program is entirely sustainable because the technical 
assistance will, in essence, provide the recipients the 
"know how" to identify, document and implement the "best 
practices" for investigating, prosecuting, and adjudicating 
cases involving human trafficking within the available 
resources and within the present legal regime of Jamaica. 
Suggestions will also be provided on how to expand those 
existing resources (through civil forfeiture) and strengthen 
the existing legal regime (through criminal code reform). 
All these activities are sustainable because, once the 
technical assistance provides the host country officials the 
requisite "know how," the host country officials will be 
able to sustain and expand the program essentially without 
cost. 
 
¶E.   Justification: 
The following summary is derived from the Department of 
State's 2005 "Trafficking in Persons Report" and other 
 
sources.  Jamaica is a source country for children 
trafficked internally for the purpose of sexual 
exploitation. A 2001 ILO report cited that more than 100 
minors, both boys and girls, are involved in Jamaica's sex 
trade. Precise numbers of trafficking victims are difficult 
to establish due to the underground and under-acknowledged 
nature of trafficking in the country. Victims often travel 
from rural areas to urban and tourist centers where they are 
trafficked into prostitution sometimes with the 
encouragement or complicity of their families. Jamaica is a 
transit country for illegal migrants moving to the U.S. and 
Canada; some may be trafficking victims. 
The Government of Jamaica does not fully comply with the 
minimum standards for the elimination of trafficking and is 
not making significant efforts to do so. Jamaican officials 
failed to undertake any significant efforts to arrest and 
prosecute traffickers who target children. The government in 
March 2004 passed the Child Care and Protection Act and has 
conducted an associated nationwide campaign related to some 
aspects of the law. However, some of the Act's provisions 
have not yet been implemented. Additionally, there was no 
discernable action taken against traffickers who sexually 
exploit children. Jamaica needs to increase its efforts to 
create mechanisms to report crimes, ensure the safety of 
victims, and effectively prosecute and convict traffickers. 
Additionally, actions should be taken against corrupt 
officials who are facilitating the unauthorized 
international movement of persons. 
Jamaica's law enforcement efforts during the reporting 
period were weak and did not target traffickers. The 
government's law enforcement strategy against child sex 
trafficking was based upon the 2004 Child Care and 
Protection Act, which does not address the problem in 
sufficient depth. There have been no substantial law 
enforcement steps taken to identify and investigate 
trafficking cases under the Act, although the Act has been 
invoked numerous times to prosecute and convict cases of 
child abuse and other violations of children's rights. 
However, there were no reported trafficking-specific 
investigations, arrests, prosecutions, or convictions over 
the past year. There has been some limited training for 
police on the rights of the child as provided for under the 
Child Care and Protection Act and the IOM provided anti- 
trafficking training to Jamaican officials. The government 
also worked with the IOM to enhance its ability to detect 
transnational trafficking and implemented an island-wide 
passenger entry and exit system. 
 
The proposed technical assistance is designed to help 
Jamaica identify and implement procedures that will mitigate 
in a sustainable way the criminal justice system 
deficiencies noted above. 
 
 
¶F.  Performance indicators: 
 
-    Development by relevant stakeholders (prosecutors, 
investigators, border officials, victim service providers, 
and other relevant stakeholders and NGOs) of an Operations 
and Tactics Handbook to Combat Trafficking in Persons 
describing the best practices for Jamaican investigators, 
prosecutors, victim service providers, and other relevant 
stakeholders and NGOs consistent with the legal regime and 
resources available in Jamaica 
 
-    Implementation by relevant stakeholders (prosecutors, 
investigators, border officials, victim service providers, 
and other relevant stakeholders and NGOs) of some or all the 
best practices identified in the an Operations and Tactics 
Handbook to Combat Trafficking in Persons (described above) 
 
-    Use of relevant portions of the Operations and Tactics 
Handbook to Combat Trafficking in Persons (described above) 
by Jamaica in the training of its law enforcement 
(prosecutors, investigators, border officials, etc.) 
 
-    Development by the Jamaican judiciary of a benchbook 
describing best practices for the fair and efficient 
adjudication of cases involving human trafficking, including 
the appropriate treatment by the court system of victim- 
witnesses 
 
-    Implementation by the Jamaican judiciary of some or all 
the best practices described in the benchbook (described 
above) on the fair and efficient adjudication of cases 
involving human trafficking 
 
-    Development by students of Jamaica of articles and 
 
posters on human trafficking -- specifically, articles and 
posters designed to enhance prevention, protection, and 
prosecution; select articles are published and select 
posters are duplicated and posted 
 
-    Favorable newspaper or other media coverage of the 
public affairs event highlighting that human trafficking is 
a global and regional problem 
 
 
¶G.  Evaluation Plan: 
 
Project monitoring and evaluation will be undertaken on a 
continuous basis by OPDAT and AmEmbassy/Kingston; a 
quarterly report prepared by OPDAT will be submitted to 
AmEmbassy/Kingston and G/TIP.  The project monitoring and 
evaluation will include regular phone calls, e-mails, and 
other forms of communication between OPDAT and 
AmEmbassy/Kingston; to the extent necessary, OPDAT will 
conduct on-site evaluations.  The project monitoring and 
evaluations, including the quarterly report, will address 
the progress of the project and how U.S. tax dollars are 
helping in the fight against trafficking in persons. 
 
 
¶H.  Budget breakout: 
 
------------------------ 
Proposed two-year budget 
------------------------ 
 
Six (6) workshops for prosecutors and other law enforcement 
Per diem                                          $5,352. 
(four (4) trainers each in country six (6) days) 
Travel (four (4) trainers)                        $4,000. 
Site Expenses per workshop                        $2,500. 
Cost per workshop                                 $11,852. 
--------------------------------------------- ------------- 
Total for six (6) workshops                       $71,112. 
 
Four (4) workshops for Judges 
 
Cost per workshop (see above)                     $11,852. 
--------------------------------------------- ------------- 
Total for four (4) workshops                      $47,408. 
 
Judicial Exchanges (Eight (8) Jamaican judges "shadow" U.S. 
Judges) 
 
Per diem                                          $250. 
Travel                                            $1,000. 
Cost per judge                                    $1,250. 
--------------------------------------------- ------------- 
Total for eight (8) judges                        $10,000. 
 
Public Affairs Event 
 
Per diem                                          $2,676. 
(three (3) trainers each in country four (4) days) 
Travel                                            $3,000. 
Site expenses                                     $3,000. 
--------------------------------------------- ------------ 
Total                                             $8,676. 
 
Workshops for students 
 
Per diem                                          $5,352. 
(four (4) trainers each in country six (6) days) 
Travel                                            $4,000. 
Site expenses for a three (3) day workshop        $1,500. 
Cost of a three (3) day workshop                  $10,852. 
--------------------------------------------- ------------- 
Total for six (6) workshops                       $65,112. 
 
Materials and other expenses                      $20,000. 
 
Total program expenses                            $222,308. 
 
ODAT overhead at 12% of expenses                  $26,677. 
 
Program Cost                                      $248,985. 
 
 
 
¶I.   Type and amount of host government contribution: 
 
The core philosophy of this program is that the components 
of Jamaica's criminal justice system and other relevant 
 
stakeholders - including the courts, investigators, 
prosecutors, victim service providers, NGOs, and other 
relevant stakeholders - are in the best position to know the 
legal regime of Jamaica and the resources available in 
Jamaica and, therefore, they are in the best position to 
determine the best practices for investigating, prosecuting, 
and adjudicating cases involving human trafficking within 
the constraints of that legal regime and the available 
resources.  OPDAT, in coordination with AmEmbassy/Kingston 
will be the catalyst for the identification of best 
practices and the host government will make a significant 
contribution of manpower (by judges, prosecutors, 
investigators, etc.) in the identification, documentation, 
and implementation of those best practices. 
 
¶J.  Proposed funding mechanism: 
 
Letter of Agreement (or Amended Letter of Agreement) / Inter- 
Agency agreement with U.S. Department of Justice (Office of 
Overseas Prosecutorial Development, Assistance and 
Training(OPDAT)). 
 
¶K.  Embassy point of contact: 
 
Natasha Henderson, Director 
Narcotics Affairs Section 
U.S. Embassy 
Kingston, Jamaica 
Phone:  876-935-6085 
e-mail:  Hendersonnm@state.gov 
 
 
¶L.  Other donors:  None. 
 
-------------------- 
ESF PROJECT PROPOSAL 
-------------------- 
 
¶A.    Title: 
 
Technical Assistance Project to Enhance the Capacity of 
Shelters and NGOs to Address the Needs of Trafficking 
Victims 
 
¶B.    Name of Recipient Organization/Government Agency: 
 
USAID/Jamaica - Office of General Development (Health and 
Education) 
 
Margaret Sancho-Morris, Director 
Office of General Development 
USAID/Jamaica-Caribbean 
2 Haining Road 
Kingston, Jamaica 
Tel: (876) 926-3645 
Fax: (876) 929-9944 
E-mail: msancho-morris@usaid.gov 
 
In partnership with: 
 
USAID - Office of Economic Growth Agriculture and Trade 
(EGAT) 
 
Mary Knox 
Women in Development Office 
Office of Economic Growth Agriculture and Trade 
1300 Pennsylvania Ave NW, Rm. 3.08-003 
Tel: (202) 712-0978 
Fax: (202) 216-3173 
E-mail: mknox@usaid.gov 
 
Maria Barron 
Democracy & Human Rights Officer 
Bureau for Latin America and the Caribbean 
1300 Pennsylvania Ave NW, Rm. 5.09-75 
Washington, DC 20523 
Tel: (202) 712 0399 
Fax: (202) 216 3262 
Email: mbarron@usaid.gov 
 
¶C.    Duration of Project: 
 
This is a two year, new project which will coordinate with 
anti-trafficking activities implemented through 
USAID/Jamaica's Education portfolio (educational skills 
training). 
 
¶D.    Description: 
 
Over the past year, the Government of Jamaica has made some 
efforts to address the problem of trafficking in persons, 
including the establishment of a National Taskforce against 
trafficking in persons, and passing legislation to protect 
the rights of children and prosecute those guilty of this 
crime. However, there is a need for better sheltering and 
protection for trafficked victims, and to increase 
sensitization of the public and grassroots organizations to 
recognize and give higher priority to combating trafficking 
and the conditions that give rise to, and arise as a result 
of this issue. 
 
Objectives 
This project will enhance the capacity of targeted local, 
grassroots organizations to deliver critical services to 
trafficked victims, to implement preventative activities for 
high-risk groups, and to develop and deliver effective 
messages to high risk communities regarding trafficking. An 
effort will be made to link private sector entities with 
these organizations in support of the critical services they 
seek to deliver in a way that can help foster long-term 
sustainability. 
 
Activities 
Trafficking victims require temporary, yet immediate safe 
and secure accommodation in order to benefit from the 
necessary support services including medical, psychosocial, 
and legal counseling. Victims who have been effectively 
counseled and supported make better witnesses during the 
prosecutorial process and improve the probability that they 
will not fall back into the human trafficking trap. In 
addition to the initial emergency services, victims may need 
ongoing counseling and basic life skills, including 
vocational and social reintegration skills. At present, the 
only available shelter in the Kingston metropolitan area is 
that of a local NGO, Women's Inc. However, this shelter is 
limited in space with only eight beds, and actually serves 
as a crisis center for family abuse, including domestic 
violence cases. As it currently operates, this center is not 
suited to meet the short or long terms needs of trafficked 
victims. Similarly, numerous NGOs provide assistance to 
women and children who are victims of domestic abuse. With 
some additional training and resources these NGOs providing 
similar services could easily address the needs of 
trafficking victims. A formal assessment can be conducted of 
Women's Inc. and other NGOs to determine their immediate 
capabilities and the best candidates for capacity building. 
In conjunction with local partners (e.g. the National 
Taskforce, Bureau of Women's Affairs, and local NGOs) 
existing models for shelters, safe houses, and transit 
centers (such as the ones in Southeastern Europe) will be 
reviewed to determine which components should be replicated 
in Jamaica. Factors for review include staff personal 
security, geographical location, ability to maintain a safe 
and secret location, urban versus rural, apartment versus 
house, type of security system, closed style or open regime, 
fundraising and sustainability of the shelter, as well as 
cooperation with police, immigration and other relevant 
agencies. 
 
Operational hotlines for reporting alleged trafficking cases 
exist through the Ministry of National Security and the 
Bureau of Women's Affairs' helpline. Callers can currently 
anonymously report alleged cases of gender-based violence; 
however, closer linkages with other support services - like 
the shelters - can and should be made. These hotlines can be 
supported by shelters and other NGOs, and promoted by the 
media as part of a targeted public awareness campaign. 
Information provided through these hotlines would include 
information involving contingency emigration procedures, 
travel safety, case counseling and referrals to service 
providers for survivors or victim family members, list of 
contacts for NGOs and Jamaican embassies in the region, and 
an exit strategy for callers who are current victims. The 
data provided through hotlines will be instrumental to the 
anti-trafficking partners, especially to the Taskforce's 
policy-formulation and program development. 
 
Sustainability 
Both the shelter capacity building and the hotline activity 
would be enhanced by other related activities already being 
implemented through USAID/Jamaica's current 2005-2009 
mission strategy, including educational skills training for 
those at-risk for being trafficked through local NGOs and 
enhancing linkages with the national police force and 
justice system to increase the number of successfully 
 
prosecuted trafficking cases. Through collaboration with the 
National Taskforce and local partners, this project will 
seek to utilize and enhance established systems and services 
to address the needs of trafficking victims, and assist in 
building up the national capacity to prevent and address 
trafficking. Activities will be strategically placed to 
continue over the long term. In addition to creating 
linkages with the programs of other international donors 
(e.g. DFID, UNICEF, IOM, ILO), the Jamaican private sector 
would also be approached to support components of this 
project to ensure sustainability. 
 
¶E.    Justification: 
 
Justification for this activity hinges on a number of 
critical factors at both the national and grassroots-level. 
The U.S. Mission to Jamaica has formulated an integrated 
plan to address the weak link in effective national response 
to trafficking, by developing complementarities in Mission 
programming. For example, it seeks to strengthen linkages 
with the justice system to address the prosecution 
component, and to capitalize on education and health 
activities which support prevention and protection. 
Furthermore, activities outlined in this proposal will 
assist trafficking victims at critical times and contribute 
to preventive efforts for other vulnerable populations by 
enhancing overall capabilities at the grassroots-level. It 
also reinforces the need for sensitizing NGOs on how to 
incorporate trafficking into their existing mandates and 
foster sustainability by expanding their services. 
Quantitative data on trafficking in Jamaica is very limited, 
and these activities will also impart evidence at the onset 
of the trafficking cycle. 
 
¶F.    Performance Indicators: 
 
Illustrative indicators include: 
-     Increase in the number of partnerships created with 
the private sector to address trafficking, 
-     Percent increase in number of trafficking related 
interventions undertaken (e.g. training, publications, 
counseling), 
-     Number of individuals assisted through NGO/shelter- 
based care and support services. 
 
¶G.    Evaluation plan: 
 
At the start-up of project implementation, an initial survey 
will be conducted to establish a baseline for trafficking- 
related services provided by targeted service organizations, 
the types and levels of case management services available 
through local shelters and NGOs, as well as levels of 
security and ability to refer clients to other related 
organizations (health centers, training, practical job 
opportunities). Focus groups with shelter/NGO staff and 
administrators will determine the level of knowledge 
regarding trafficking in persons and the related case 
management needs (counseling, life skills, repatriation, and 
social reintegration). Quarterly reports on the status of 
program implementation will be required. At the end of the 
intervention follow-up local surveys will be conducted with 
participating organizations to assess improvements in 
facility management and available support services. 
 
¶H.    Budget breakout: 
 
------------------------ 
Proposed two-year budget 
------------------------ 
 
Staff and Administration 
 
Organizational Management Specialist              $40,000. 
Financial Manager                                 $30,000. 
Administrative Support                            $14,000. 
--------------------------------------------- -------------- 
Total                                             $84,000. 
 
Supplies/Support Services 
 
Equipment and materials                           $35,000. 
--------------------------------------------- -------------- 
Total                                             $35,000. 
 
Technical Activities and Research 
 
Model review and assessment                       $5,000. 
Referral systems development                      $20,000. 
 
Management systems development                    $15,000. 
Staff training and sensitization                  $25,000. 
Enhance local help lines                          $10,000. 
Public/private alliance building                  $15,000. 
Monitoring and evaluation 
$35,000. 
--------------------------------------------- -------------- 
Total                                             $125,000. 
 
Program Cost 
$244,000. 
 
¶I.    Type and amount of host government contribution: 
 
Technical assistance and support will be provided by members 
of the National Taskforce, including the Child Development 
Agency, Bureau of Women's Affairs and Ministries of Health 
and Education. 
 
¶J.    Proposed funding mechanism: 
 
Funding will be channeled either through one of 
USAID/Jamaica's existing contracts awarded to a U.S.-based 
organization through full and open competition, or through a 
Public International Organization with a presence in 
Jamaica. 
 
¶K.    Embassy point of contact: 
 
Margaret Sancho-Morris, USAID/Jamaica General Development 
Officer. 
 
¶L.    Other donors: 
 
Partnerships with the private sector will be sought.