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UNCLAS SECTION 01 OF 04 TASHKENT 001265 
 
SIPDIS 
 
DEPT FOR G/TIP MEGAN HALL AND SCA/RA JESSICA MAZZONE 
 
E.O. 12958: N/A 
TAGS: PGOV PREL PHUM KTIP KCRM KWMN UZ
SUBJECT: UZBEKISTAN: OFFICIALS DESCRIBE EFFORTS TO 
IMPLEMENT TIP LAW 
 
REF: TASHKENT 580 
 
TASHKENT 00001265  001.2 OF 004 
 
 
¶1. (U) Summary: On September 29-30, poloff and a visiting 
officer from the Department's Office to Combat and Monitor 
Trafficking in Persons (G/TIP) met with Uzbek officials from 
the Ministries of Internal and Foreign Affairs, the Office of 
the General Prosecutor, and the National Women's Committee to 
discuss the Government of Uzbekistan's efforts to implement 
its landmark March 2008 law.  We also met with the local 
offices of the International Organization for Migration 
(IOM)-affiliated NGO "Istiqbolli Avlod," the Organization of 
Security and Cooperation in Europe (OSCE), and the United 
Nations Office on Drugs and Crime (UNODC) to discuss the TIP 
situation in Uzbekistan.  A general theme was that government 
officials do seem to be working diligently to implement the 
new law, including productive debates about establishing a 
state-run shelter for victims, stepped up prosecution 
efforts, and cooperation with NGOs and international 
organizations.  End summary. 
 
MVD Gears Up 
------------ 
 
¶2. (U) On September 29 a visiting G/TIP officer and poloff 
met with Nodir Kurbanov, Senior Officer of the Ministry of 
Internal Affairs Department on Counter-TIP, and Shavkat 
Usmanov, Main Inspector of the Ministry of Internal Affairs 
International Relations Department, to discuss working level 
efforts to implement Uzbekistan's 2008 TIP law.  Kurbanov, a 
conscientious cop, knows more about TIP than any other law 
enforcement officer in Uzbekistan and has done a good job 
organizing an effective nationwide counter-TIP police unit. 
Kurbanov reported that there are now 120 operational staff in 
the Ministry of Internal Affairs working solely on TIP 
throughout Uzbekistan.  He said this is projected to increase 
to between 160-180 officers, which he said should be 
sufficient manpower.  Kurbanov said he personally knows about 
100 of these officers and is in regular phone contact with 
them, and there are concerted efforts to pass the latest 
information to remote posts (there have been rapid changes 
this year that have changed the counter-TIP landscape for 
rank-and-file officers).  Nonetheless, Kurbanov stated "the 
issue of training is a crucial one," and acknowledged that 
law enforcement officers need a wider exchange of 
information. 
 
¶3. (U) Kurbanov told us that local versions of the 
inter-agency commission have now convened in all twelve 
provinces of the country.  While it seems like there are a 
lot of working groups and committees forming, Kurbanov 
believes they are necessary in order to raise awareness and 
get as many actors as possible involved in developing 
solutions.  He praised the recently created national 
inter-agency commission, noting that "it is not just on 
paper...it is really working and we have to report to 
President Karimov by the end of the year."  Kurbanov and 
Usmanov conceded that the TIP database at the Ministry of 
Internal Affairs is still relatively small, but they are 
pleased by an ongoing UNODC project to develop and expand it. 
 
 
Rehabilitation Center 
--------------------- 
 
¶4. (U) Kurbanov and Usmanov stated that the establishment of 
a shelter for TIP victims, which Uzbek authorities are 
calling a rehabilitation center, "is the main project for us 
now."  They described the proposed government-created shelter 
as being large enough to accommodate 100 people and will 
include doctors, psychologists, and social workers.  However, 
 
TASHKENT 00001265  002.2 OF 004 
 
 
there are constructive ongoing debates within the Government 
of Uzbekistan about who will be responsible for administering 
such a facility.  Kurbanov added frankly that, after studying 
other countries' experiences the Ministry of Internal Affairs 
concluded it would be best if another entity was responsible. 
 "Rehabilitation is broader than investigation," he added, 
"and we are cops."  In a separate meeting on September 29 at 
the OSCE Project Coordination Office, a staff member said 
OSCE is planning to work with the Uzbeks on developing an 
appropriate identification and referral mechanism, which 
should contribute to the effective operation of a shelter, 
and will also train shelter staff.  (Comment:  It is 
encouraging to see an Uzbekistan government ministry taking 
the time to conduct debates and research case studies before 
plunging in, and even more encouraging that it is willing to 
pass up the prospect of a broader mandate and increased 
territory based on a recognition that is not the best-suited 
to do the job.  This may delay the eventual opening of a 
shelter, but it will be worth the wait if it is done 
properly.  End comment.) 
 
Shame Factor 
------------ 
 
¶5. (U) Poloff and G/TIP officer also met on September 29 with 
two representatives from the quasi-governmental National 
Women's Committee.  They cited tremendous progress in raising 
awareness to TIP issues among average citizens but said they 
still are influenced by "our oriental mindset" that means 
victims -- male and female alike -- still feel a strong sense 
of shame in Uzbek society.  "We need to consider what we can 
do to make sure women can go home to their villages."  The 
Women's Committee, in conjunction with the Office of the 
State Prosecutor, produced a new TIP-themed theater 
performance that debuted on September 26 to help raise 
awareness. 
 
¶6. (U) Representatives of the Office of the State Prosecutor, 
with whom we met on September 30, echoed the concerns about 
the shame factor.  They reported that many Uzbeks still don't 
admit they are victims, citing as an example a recent case in 
Moscow in which 58 Uzbek laborers were freed from slave-like 
conditions.  Only 14 of the victims, who came from four 
different regions of Uzbekistan, would admit they were 
trafficking victims and cooperate with authorities. 
 
MVD: "Come talk to us" 
---------------------- 
 
¶7. (U) The premier anti-TIP NGO in Uzbekistan, the 
IOM-affiliated Istiqbolli Avlod, told us in a September 30 
visit to its USAID-funded shelter for TIP victims that police 
officials are now unilaterally reaching out for investigation 
leads.  Nodira Karimova, the Director of Istiqbolli Avlod, 
was recently involved in the repatriation of two young Uzbek 
women who were trafficked to India for sex exploitation. 
Kurbanov of the Ministry of Internal Affairs heard about the 
case and called up Istiqbolli Avlod seeking information so 
his staff could launch an investigation.  Karimova was 
pleased by the overture, noting it sets a good example and 
also demonstrates to victims that authorities take their 
ordeals seriously. 
 
¶8. (U) Such initiative was not limited to this case, as the 
Office of the General Prosecutor confirmed that 91 criminal 
cases were initiated just since the national action plan was 
adopted in July.  The accused are presently detained while 
investigations are underway, according to the prosecutors. 
The Ministry of Internal Affairs said it was the lead agency 
on 61 of these cases, with other agencies such as the 
 
TASHKENT 00001265  003.2 OF 004 
 
 
National Security Service responsible for the others.  In 
another positive example of proactive law enforcement, 
Kurbanov said he networked with a visiting delegation of 
officers from the United Arab Emirates (UAE) who attended a 
joint UNODC-OSCE workshop in May (reftel); as a result of 
informal chats during and since the event criminal cases were 
initiated.  The prosecutors hope the increased focus on 
punishing offenders will entice more victims to cooperate, 
which has been a limiting factor in bringing traffickers to 
justice.  They feel a lot of solid legal measures are now in 
place, and they said "we just need to enforce the measures we 
have." 
 
NGO: 41 Uzbek Women in Emirati Jails 
------------------------------------ 
 
¶9. (U) Karimova updated us on her continued efforts to assist 
Uzbek sex trafficking victims and reaffirmed that the UAE is 
still the number one destination.  She has built up good 
contacts in the UAE as a result of repeated visits there, and 
she said she is currently aware of 41 Uzbek women (most are 
likely trafficking victims) languishing in Emirati jails. 
While she says policies vary in each emirate, Karimova said 
the authorities generally open criminal cases against foreign 
trafficking victims for unlawful presence and/or 
prostitution.  Dubai is the most lenient, she said; Sharjah 
is "so-so"; Abu Dhabi and Ras-al-Khaima "are severe." 
According to Karimova, in Ras-al-Khaima some Uzbek women have 
been incarcerated for 3-4 months without charges even being 
filed against them.  They can expect to sit in jail for 
extended periods as the courts slowly process their cases. 
 
MFA Limitations 
--------------- 
 
¶10. (U) On September 30 we met with Farkhad Khamraev, Head of 
the Ministry of Foreign Affairs UN and International 
Department, which oversees TIP issues.  One topic of 
discussion was the responsiveness of Uzbek consular officers 
in assisting identified Uzbek trafficking victims abroad, 
which the NGO reported varies widely among Uzbek embassies. 
Karimova had informed us that the Uzbek diplomats in the UAE 
are generally efficient and helpful in issuing repatriation 
documents to Uzbek citizens, whereas in the above-mentioned 
India case the NGO had difficulty arranging the prompt return 
of the young Uzbek victims with the Uzbek Embassy.  Khamraev 
said he was aware of the India case and was personally 
involved in eventually working out the repatriation details 
from Tashkent.  He added that, due to the limited size of 
Uzbek diplomatic missions, the MFA often lacks the personnel 
at posts to immediately complete repatriation of TIP issues. 
(Note: Istiqbolli Avlod planned to train MFA consular 
officers as part of an ongoing INL-funded TIP project, but 
IOM regional official Mahmoud Naderi told poloff on October 
23 that it was not feasible since MFA could not 
simultaneously pull essential Embassy staff from posts to 
participate in the training.  We will try to identify 
alternative methods for providing training opportunities for 
Uzbek consular staff, perhaps including participation in 
study tours or workshops that take place in or near TIP 
hotspot posts.  End note.) 
 
UNODC Project 
------------- 
 
¶11. (U) On September 30 we met with the UNODC Regional Office 
in Central Asia, which updated us about the TIP-related pilot 
project it is working on at the request of the Government of 
Uzbekistan.  UNODC will procure equipment in November to 
install a modern database for the Ministry of Internal 
 
TASHKENT 00001265  004.2 OF 004 
 
 
Affairs, which will have real-time connections to branch 
offices in all provinces up and running by March 2009.  In 
addition, two assessment missions have already been completed 
focusing on bringing legislation into compliance with 
international standards.  A study tour is also in the works 
for Uzbek officials, along with two additional roundtables to 
be held next year. 
 
Comment: 
-------- 
 
¶12. (U) An overarching theme of our two full days of TIP 
meetings in the capital with government officials, the main 
NGO, and international organizations is that there is a lot 
happening on the ground in Uzbekistan to support the 
implementation of the 2008 comprehensive TIP law.  Six months 
after its adoption -- and since buttressed by criminal code 
amendments -- the law appears to have legs as well as teeth. 
The biggest long-term challenges will come from the cotton 
fields, as Uzbekistan struggles to shake its dependence on 
forced labor to harvest its most important cash crop, as well 
as in rendering quality assistance to legions of trafficked 
Uzbek victims as they make their way home from abroad. 
 
NORLAND