VZCZCXRO5970
RR RUEHCD RUEHGD RUEHHO RUEHMC RUEHNG RUEHNL RUEHRD RUEHRS RUEHTM
DE RUEHME #0828/01 0792239
ZNR UUUUU ZZH
R 202239Z MAR 09
FM AMEMBASSY MEXICO
TO RUEHC/SECSTATE WASHDC 5713
INFO RUEHXC/ALL US CONSULATES IN MEXICO COLLECTIVE

UNCLAS SECTION 01 OF 11 MEXICO 000828 
 
SENSITIVE 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: ASEC ELAB KCRM KFRD KTIP KWMN PHUM PREF SMIG
SUBJECT: NINTH ANNUAL TRAFFICKING IN PERSONS (TIP) REPORT - 
ADDITIONAL INFORMATION 
 
REF: MEXICO 0586 
 
¶1. The mission's point of contact on the Trafficking in 
Persons (TIP) Report is Poloff Suzanne Archuleta.  She may be 
reached by telephone at (52) (55) 5080-2000, ext. 4806, or by 
fax at (52) (55) 5080-2247 or ArchuletaMS@state.gov).  Post 
requests that the names of the non-governmental organizations 
(NGOs) working with the Government of Mexico (GOM) providing 
victim protection and assistance not be disclosed in this 
report.  Post also requests that the names and details 
connected to ongoing investigations not be made public. 
 
The following information is being sent as supplementary 
information to reftel. 
 
MEXICO'S TIP SITUATION: 
 
¶3. (SBU) QUESTION A. What is (are) the source(s) of available 
information on trafficking in persons?  What plans are in 
place (if any) to undertake further documentation of human 
trafficking?  How reliable are these sources? 
 
POST RESPONSE:  There are no reliable statistics regarding 
the extent of the trafficking problem.  There are pending 
plans to better document the TIP problem under the terms of 
the 2007 Law to Prevent and Sanction Trafficking in Persons. 
The law mandates creation of an inter-agency commission 
(Article 10), responsible for coordinating all GOM actions to 
counter TIP, including analysis of the scope of the problem 
in Mexico.  On February 27, 2009 regulations for 
implementation of the TIP were published laying the 
foundation for the creation of the proscribed interagency 
commission.  The already existing Public Security National 
System is charged with gathering information to establish a 
statistical database on how often TIP crimes are committed. 
Guidelines will be established in the National Program to 
Prevent and Sanction Trafficking in Person (creation of which 
is required by the 2007 law). 
 
The GOM's Special Office for Violent Crimes against Women and 
Trafficking in Persons (FEVIMTRA) reported providing 
assistance to 50 trafficking victims, 49 women and one man, 
from January 2008 to February 2009.  The GOM's National 
Migration Institute (INM) reported identifying 55 possible 
TIP cases, involving 28 women and 27 men, from April 2008 to 
February 2009.   Of those 55 cases, 6 were sexual 
exploitation, 31 were labor exploitation, and 18 were both. 
 
The International Organization for Migration (IOM) reported 
that of the 51 trafficking victims it had assisted from 
January 2008 to January 2009, 39 were female and 12 were 
male.  The majority came from Central America (72% 
Guatemalan), 76% were minors, 66% were labor exploitation 
victims, 22% sexual exploitation victims, and 10% were both. 
 
INM reported that approximately 55,560 were repatriated in 
¶2008.  However, many NGO's believe this number to 
significantly under-represent migration through Mexico. 
Other information on trafficking patterns that is available 
comes from NGOs or academics.  However, most of these reports 
tend to contain more anecdotal evidence than concrete 
statistics. 
 
In December 2008, the Chamber of Deputies, the National Human 
Rights Commission (CNDH) and the Center for Studies and 
Research in Social Development and Assistance (CEIDAS) began 
collaborating to create Mexico's first national report on 
trafficking in persons.  This collaborative group intends to 
develop an analysis of the problem's scope in each Mexican 
state, and outline existing policies and programs to combat 
TIP.  The report will also recommend preventive actions.  If 
statistics are not received by regional states, data will be 
collected from other sources including the media.  This data 
collecting process may distort the statistics in this report. 
 No date is established for the completion of this report. 
 
The NGO community has identified three problems with the 
recently published TIP legislation regulations that it 
maintains will impede the collection of information and 
documentation of trafficking cases.  First, victims must 
press charges against traffickers; otherwise, they will not 
be considered TIP victims and will not be provided with 
assistance.  Second international victims will be 
automatically repatriated back to their home countries if 
they choose not to press charges.  Lastly, NGOs have been 
excluded from a separate consulting group committee that will 
focus on the documentation of human trafficking cases.  NGOs 
argue that victims often are afraid to press charges against 
their assailant.  Their decision to refrain from pressing 
charges should not automatically imply that cannot be 
identified as TIP victims and consequently ineligible for 
 
MEXICO 00000828  002 OF 011 
 
 
important services.  The NGOs believe that without their 
participation on the consulting group committee, the 
government will not be able to produce accurate trafficking 
statistics. 
 
¶9. (SBU) QUESTION B. Which government agencies are involved 
in anti-trafficking efforts and which agency, if any, has the 
lead? 
 
POST RESPONSE:  On November 27, 2007, President Calderon 
signed federal anti-trafficking legislation which makes TIP a 
crime punishable at the federal level.  Under the new law an 
interagency committee was created with all government 
agencies to coordinate on this issue.  Agencies participating 
on the Inter-agency committee to address TIP include: 
Secretary of Government (SEGOB), National Migration Institute 
(INM), Mexican Attorney General's Office (PGR), National 
Institute for Women (INMUJERES), Secretary of Health, 
Mexico's Foreign Relations Secretariat (SRE), , Secretary for 
Public Security (SSP), Secretary for Health, Secretary for 
Communications and transportation (SCT), Secretary of Labor 
STPS), Secretary of Public Education (SEP), along with three 
academic experts, and three representatives from civil 
society.  The law mandates that the executive appoint a 
single federal oversight element to manage operation of the 
inter-agency; the government has designated SEGOB as the 
lead.  On February 27, 2007, the government officially 
published the regulations for implementation of the "Law to 
Prevent and Punish Trafficking in Persons." 
 
¶10. (SBU) QUESTION C. 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? 
 
POST RESPONSE:  Political will to address the problem is 
high, evidenced by actions taken by the federal and state 
governments since the last TIP report.  In addition to the 
passage of federal anti-TIP legislation in 2007, 22 of 
Mexico's 31 states, as well as the Federal District, have 
anti-trafficking laws in place, although implementation and 
use of these laws varies considerably; 
 
--Mexico's Attorney General's office (PGR) created a special 
prosecutor for trafficking crimes, adding responsibility for 
trafficking investigations to an existing unit charged with 
addressing violent crimes against women (FEVIMTRA). This unit 
is responsible for providing legal, psychological, medical 
and social assistance to trafficking victims (children, women 
and men) and their families, with centers located in D.F., 
Chiapas, and Chihuahua.  They also have a TIP hotline. 
--In 2008, the National Migration Institute (INM) issued 3 
humanitarian visas to trafficking victims; another 4 are in 
the process of being issued. 
-- In 2008, Congress approved a $7 million USD budget to 
construct a shelter specifically for trafficking victims. 
FEVIMTRA purchased a property that is currently being 
renovated.  It hopes to finish renovations by the end of 
April.  This specialized shelter, for both men and women, 
will hold up to 33 persons and will include a detoxification 
clinic, therapy rooms and workshop studios.  Victims will be 
able to stay at this shelter for up to three months.  Those 
considered protective witnesses will have permission to stay 
for up to one year.  PGR reports that MexicoQ,s family 
welfare agency, Desarrollo Integral de la Familia (DIF), has 
a working shelter for children that have been sexually 
exploited, but not specifically trafficked.  Additionally, 
the Attorney General's office made available a confiscated 
narco-residence in 2008 for use by a local NGO to exclusively 
shelter TIP victims. 
 
Finally, media have expanded coverage and discussion of TIP 
as both civil society and government work to raise awareness 
of the problem. 
 
Principal obstacles to full GOM engagement on TIP at all 
levels remain a) incomplete attention by law enforcement 
elements to investigating and prosecuting TIP-related 
offenses, b) limited fact-gathering on the full scope of 
problem in Mexico (as well as data on law enforcement actions 
at the state and local levels to curb it) and c) inadequate 
GOM resources devoted to victims assistance and protection. 
In addition, TIP must compete with other law enforcement 
priorities in Mexico.  Over the past year, President Calderon 
has committed his administration and an increasing amount of 
human and financial resources toward the fight against drug 
trafficking and violence associated with the drug trade. 
Although TIP initiatives are given a priority, TIP enforcers 
must also address the broader problem of spiraling violence 
and criminality in Mexico.  The GOM puts scarce TIP resources 
 
MEXICO 00000828  003 OF 011 
 
 
to good use, however, and has welcomed USG assistance and 
training. 
 
Training needs to continue and expand in the areas of 
awareness-raising (the distinction between trafficking and 
smuggling remains unclear, particularly among local law 
enforcement officials); the identification of and interaction 
with victims; and the provision of services to trafficking 
victims.  Finally, a lack of police professionalism, culture 
of impunity and official corruption (especially at the state 
and local level) remain significant impediments to effective 
TIP enforcement in Mexico. 
 
¶16. (SBU) QUESTION E. Law Enforcement Statistics: Did the 
government prosecute any cases against human trafficking 
offenders during the reporting period?  If so, provide 
numbers of investigations, prosecutions, convictions, and 
sentences imposed, including details on plea bargains and 
fines, if relevant and available.  Please note the number of 
convicted traffickers who received suspended sentences and 
the number who received only a fine as punishment.  Please 
indicate which laws were used to investigate, prosecute, 
convict, and sentence traffickers.  Also, if possible, please 
disaggregate numbers of cases by type of TIP (labor vs. 
commercial sexual exploitation) and victims (children under 
18 years of age vs. adults).  If in a labor source country, 
did the government criminally prosecute labor recruiters who 
recruit workers using knowingly fraudulent or deceptive 
offers or by imposing fees or commissions for the purpose of 
subjecting the worker to debt bondage?  Did the government in 
a labor destination country criminally prosecute employers or 
labor agents who confiscate workers' passports/travel 
documents for the purpose of trafficking, switch contracts or 
terms of employment without the worker's consent to keep 
workers in a state of service, use physical or sexual abuse 
or the threat of such abuse to keep workers in a state of 
service, or withhold payment of salaries as a means to keep 
workers in a state of service?  What were the actual 
punishments imposed on persons convicted of these offenses? 
Are the traffickers serving the time sentenced?  If not, why 
not? 
 
POST RESPONSE:  FEVIMTRA, within Mexico's Attorney General's 
office, reports that from January 31, 2008 to January 23, 
2009, 11 investigations into suspected cases of trafficking 
for labor exploitation were initiated, and that 13 
investigations were opened into suspected cases of 
trafficking for sexual exploitation.  In October 2008, 
FEVIMTRA in the office of Mexico's Attorney General, made the 
first formal charges under the new federal anti-trafficking 
law in a case of trafficking for forced labor in the state of 
Chiapas.  USG law enforcement reports that the GOM has 
participated in several investigations in coordination during 
the reporting period. 
 
ICE and DOJ report that they are leading a working group with 
various GOM components to combat TIP.  The group has focused 
much of its efforts on Tenancingo, Tlaxcala.  An organization 
there recruits women, including minors, to go to the U.S. 
Once in the states, the organization on the U.S. side forces 
them into prostitution.  ICE/Atlanta has made several arrests 
and has indicted three other individuals believed to be in 
Mexico. 
 
ICE reports that a U.S. citizen, Michael Tork, was arrested 
in Acapulco during the raid of a massage parlor.  Eight 
female trafficking victims were rescued, four of whom were 
minors.  Tork was engaged in sexual relations with a 15 year 
old female at the time of the raid.  Unfortunately, attempts 
to prosecute Tork in Mexico were thwarted when the minor 
refused to provide the necessary statement to prosecute. 
 
From January 2007 through March 2009, at the state level, the 
Chihuahua Attorney General's Office reports that it opened 
nine cases involving  trafficking in persons --  two have 
produced arrests and are awaiting trial; seven remain under 
investigation: 
- In the first case, an adult male coerced two minor females, 
15 and 17 years of age, to take drugs and have sexual 
relations with him.  The indicted adult male is currently out 
on bail. 
 
- In the second case, an adult male and adult female used 
gifts or money to lure six minor boys, between the ages of 8 
and 11, to hotels to perform sexual acts.  The indicted 
adults are awaiting prosecution and in prison; 
 
- Of the seven cases under investigation, one case was 
unidentified, one involved labor exploitation of an adult 
female, and the others involved the sexual exploitation of 
two adult females and two female minors. 
 
MEXICO 00000828  004 OF 011 
 
 
 
According to media reports, four women found captive in a 
brothel in the town of Apizaco in the state of Tlaxcala were 
rescued in March 2009.  These women were being held by pimps 
who physically abused them and forced them to prostitute 
themselves in Tijuana and other cities.  The pimps used 
romantic relationships to lure them initially and then forced 
them into prostitution under the threat of doing harm to them 
and their families if they refused.  This case is under 
investigation. 
 
Also according to media reports, local authorities raided a 
well known location of under-aged prostitution in La Merced, 
Mexico City, arresting 28 people and rescuing 45 women.  A 
local NGO argues that out of the 1,500 women prostituted in 
this area, at least 500 of them are minors, principally from 
Tlaxcala and Puebla. 
 
The Federal Police, in a press release in January 2009, 
reported the arrest of 8 women and 11 men.  These individuals 
were allegedly part of a trafficking group in Puebla that 
forced an undisclosed number of captives to take drugs and 
prostitute themselves. 
In January 2009, various media sources reported that three 
Guatemalan citizens were arrested in Comitan, Chiapas for 
trafficking 16 Guatemalan children, between 18 months and 15 
years of age, including two in wheelchairs, to work for 30 
Mexican pesos (USD $2.16) a day peddling gum and candies on 
the streets of San Cristobal de las Casas, Chiapas. 
 
According to a January 2009 PGR release, a 41 year old adult 
was arrested and is being investigated for the labor 
exploitation of 19 Guatemalans.  Eleven of the alleged 
victims were rescued, 8 of whom were minors. 
 
On January 20, CNDH made an official recommendation to SRE, 
the Secretariat of Labor, INM and the state of Queretaro that 
they investigate the case of 65 Mexicans that were allegedly 
forced to work under slavery-like conditions in the Bahamas. 
This case is pending. 
 
(Note:  Post continues to seek information from FEVIMTRA on 
federal investigations and prosecutions, and will continue to 
update G/TIP on additional cases.) 
 
¶17. (SBU) QUESTION F. Does the government provide any 
specialized training for government officials in how to 
recognize, investigate, and prosecute instances of 
trafficking?  Specify whether NGOs, international 
organizations, and/or the USG provide specialized training 
for host government officials. 
 
POST RESPONSE: National Migration Institute (INM) developed 
(with the support from civil society organizations and 
inter-governmental agencies with experience on trafficking in 
persons) specific procedures and accurate guidelines to 
identify and provide attention to victims in four areas: 
minors detected by INM; minors in custody from other 
authorities; adults who present themselves voluntarily; 
adults detected by migration officials. 
 
Coordination of Control and Migration Verification at INM 
developed the procedures for the annual program of 
supervision for all the regional delegations for the purpose 
of verifying businesses who hire foreigners in order to 
better identify at risk populations. 
During 2008, INM provided training for its own personnel, 
regional TIP inter-agency committees, Federal Police and 
various District Attorney offices.  TIP inter-agency 
committees are being created throughout the country.  Each 
committee is made up of personnel from PGR, CISEN, INM, DIF, 
INMUJERES and depending on the state, various other 
government offices and NGOs.  The committee planning process 
is underway in 24 of Mexico's 31 states and Mexico City.  The 
two largest committees are in Guerrero and Chiapas.  INM 
plans to continue training in 2009. 
 
Training: 
From March 2008 to June 2008, 783 persons participated in TIP 
courses sponsored by INM, in coordination with PROTEJA, for 
INM personnel and the inter-agency TIP committees in the 
State of Mexico, Puebla, Campeche, Guadalajara, Queretaro, 
Michoac n, Guanajuato, Acapulco, Veracruz, Tlaxcala, Durango, 
Aguascalientes, San Luis Potosi, Chihuahua, Tabasco, and 
Coahuila. 
 
In April 2008, September 2008, and November 2008 198 persons 
participated in TIP courses sponsored by INM, in coordination 
with PROTEJA, open to the general public, in Guadalajara, 
Hidalgo and Mexico D.F. 
 
 
MEXICO 00000828  005 OF 011 
 
 
On May 20 and May 29, 2008, 56 persons participated in a TIP 
Task Force training course sponsored by FEVIMTRA, in 
coordination with PROTEJA, in Mexico, D.F. and Taxco. 
 
From May 2008 to December 2008, INM, in coordination with 
PROTEJA, sponsored courses on TIP materials for migration 
agents and law enforcement officials from Mexico D.F., 
Yucatan, Colima, Guerrero, Sinaloa, Sonora, Tamaulipas, 
Nayarit, Guanajuato, and Quintana Roo. 
 
From August 2008 to November, 175 persons from PGR and 80 INM 
public servants participated in a four day training course 
sponsored by INM, in coordination with PROTEJA, on detection 
and identification of TIP cases in Mexico D.F., Tijuana, and 
Cuernavaca. 
 
On December 1, 2008- INM's Migratory Inspection Office 
provided TIP training and awareness to call center personnel 
in how to use the 1-800-TRATA hotline in Mexico, D.F. 
 
On December 15-17, 2008, 42 PGR public servants participated 
in the First Latin American Forum on TIP in Mexico, D.F. 
 
During this reporting period, ICE and DOJ trained in excess 
of 200 GOM personnel (including, but not limited to PGR, SSP 
and INM) and NGOs. 
 
¶19. (SBU) QUESTION H. Does the government extradite persons 
who are charged with trafficking in other countries?  If so, 
please provide the number of traffickers extradited during 
the reporting period, and the number of trafficking 
extraditions pending. In particular, please report on any 
pending or concluded extraditions of 
trafficking offenders to the United States. 
 
POST RESPONSE:  0n January 19, 2007, Mexican national Carreto 
Valencia was extradited to the United States to stand trial 
in the Eastern District of New York for the smuggling of 
young Mexican women into the United States and forcing them 
into prostitution.  In July 2008, she pled guilty to a 
federal sex trafficking charge in that case.  Prior to her 
extradition, Carreto Valencia was serving a Mexican sentence 
for trafficking offenses in Mexico.  In addition to Carreto, 
Mexico extradited Juan Luis Cadena Sosa to the US in November 
2007 to face sex trafficking charges in the Southern District 
of Florida.  In September 2008, he was sentenced to 15 years 
in prison in that case.  Previously, in July 2006, the United 
States extradited Jean Succar Kuri to Mexico to face Mexican 
charges for running a child sex ring in Cancun.  There have 
been no trafficking-related extraditions between the US and 
Mexico during the current reporting period (March 08-February 
09). 
 
¶21. (SBU) QUESTION J. If government officials are involved in 
trafficking, what steps has the government taken to end such 
participation?  Please indicate the number of government 
officials investigated and prosecuted for involvement in 
trafficking or trafficking-related corruption during the 
reporting period.  Have any been convicted?  What sentence(s) 
was imposed?  Please specify if officials received suspended 
sentences, or were given a fine, fired, or reassigned to 
another position within the government as punishment.  Please 
indicate the number of convicted officials that received 
suspended sentences or received only a fine as punishment. 
 
POST RESPONSE:  If government officials are involved in 
trafficking, the GOM added penalties in the new federal law 
to address officials involved in trafficking.  Article 6 (a) 
states: "The penalties set forth in paragraphs 1 and 2 of 
this Article shall be increased by up to one-half when:  (a) 
The perpetrator avails himself of a public office that he may 
hold or may have pretended to hold without actually being a 
public servant.  When the perpetrator is a public servant, he 
shall be stripped of his public position, office, or 
commission and be prohibited from performing any other for up 
to a period of time equal to the term of imprisonment 
imposed; the same penalty shall apply when the victim is a 
person over 60 years of age or is an indigenous person." 
 
Two INM officials, Oscar Manuel Navarete Orozco and Maria 
America Maldonado Alfaro, arrested in 2007 remain in custody 
accused by PGR of leading an organized criminal group that 
trafficked persons, including undocumented workers.  Post is 
hoping to receive updated information on these cases from 
INM. 
 
¶24. (SBU) QUESTION M. If the country has an identified 
problem of child sex tourists coming to the country, what are 
the countries of origin for sex tourists?  How many foreign 
pedophiles did the government prosecute or deport/extradite 
to their country of origin?  If your host country's nationals 
 
MEXICO 00000828  006 OF 011 
 
 
are perpetrators of child sex tourism, do the country's child 
sexual abuse laws have extraterritorial coverage (similar to 
the U.S. PROTECT Act) to allow the prosecution of suspected 
sex tourists for crimes committed abroad?  If so, how many of 
the country's nationals were prosecuted and/or convicted 
during the reporting period under the extraterritorial 
provision(s) for traveling to other countries to engage in 
child sex tourism? 
 
POST RESPONSE:  Mexico is a country with an identified child 
sex tourism problem.  Mexico is a destination for sexual 
tourists and pedophiles, particularly from the United States. 
 There are no specific laws against sex tourism, although 
federal law criminalizes corruption of minors, which is 
punishable by five to 10 years' imprisonment.  Mexico's 
Attorney General's office reports that in 2008 10 individuals 
were prosecuted, deported or extradited to third countries 
for their participation in sex-tourism related activities 
which involved the corruption of minors.  According to the 
U.S. Marshals Service, Mexico sent eleven fugitives (seven 
were deported and four extradited to the U.S. for sex 
offenses involving minors during the reporting period. Thomas 
White, who officially renounced his U.S. citizenship in 
October 2008, remains in custody in the state of Jalisco 
pending federal charges of child corruption and completion of 
a U.S. extradition request. 
 
The names and details of these cases, and of the individuals 
subject to ongoing investigations, are not/not available for 
public disclosure. 
 
¶26. (SBU) QUESTION B.  Does the country have victim care 
facilities (shelters or drop-in centers) which are accessible 
to trafficking victims?  Do foreign victims have the same 
access to care as domestic trafficking victims?  Where are 
child victims placed (e.g., in shelters, foster care, or 
juvenile justice detention centers)?  Does the country have 
specialized care for adults in addition to children?  Does 
the country have specialized care for male victims as well as 
female?   Does the country have specialized facilities 
dedicated to helping victims of trafficking?  Are these 
facilities operated by the government or by NGOs?  What is 
the funding source of these facilities?  Please estimate the 
amount the government spent (in U.S. dollar equivalent) on 
these specialized facilities dedicated to helping trafficking 
victims during the reporting period. 
 
POST RESPONSE:  Both the Mexican federal government and some 
states have crime victim assistance programs.  The programs 
cover legal assistance and medical services and psychological 
counseling.  The DIF, for example, provides temporary shelter 
and medical services to unaccompanied minors, with programs 
on the northern border.  These shelters may serve victims of 
trafficking, but do not provide tailored services to 
trafficking victims and have not established a referral 
system.  The DIF tries to locate parents or family members in 
order to repatriate the children.  The quality of the 
programs varies. 
 
In 2008, the INM authorized the issuance of 3 humanitarian 
visas to victims who agreed to assist in prosecution cases; 4 
additional visas are in the process of being issued.  The 
visas are issued with a validity of one year and are 
renewable up to four times.  Individuals are eligible to 
apply for naturalization after their fifth year in Mexico. 
The INM has a migration station in Tapachula, Chiapas and in 
46 other places throughout the country in order to process 
migrants.  This facility provides separate accommodations for 
men, women, children and families.  Several trafficking 
victims have been identified in migration stations and are 
then passed on to NGOs or DIF-run shelters. 
 
As discussed in 10.c., the GOM is currently working to open a 
specialized shelter for TIP victims, in Mexico City, to 
accommodate up to 33 individuals.  This shelter is being 
renovated and GOM officials to open its door as soon as 
possible. 
 
¶28. (SBU) QUESTION D. Does the government assist foreign 
trafficking victims, for example, by providing temporary to 
permanent residency status, or other relief from deportation? 
 If so, please explain. 
 
POST RESPONSE: The GOM does provide assistance through 
humanitarian visas; FEVIMTRA provides victims' support 
resources to foreign trafficking victims.  Humanitarian visas 
are valid for one year, renewable, and granted to victims who 
agree to cooperate in the prosecution of their case.  Law 
enforcement and migration officials do encourage victims to 
cooperate with investigations; however, victims rarely 
identify themselves as victims of trafficking and often times 
 
MEXICO 00000828  007 OF 011 
 
 
migrants who are exploited through their employers are afraid 
to tell authorities for fear deportation. 
 
Since the beginning of 2008, INM reports that they identified 
only one trafficking victim from Ecuador.  However, through 
NGOs and media reports Post received information in February 
2009 about 11 Guatemalans, 8 adults and 3 minors, February 
2009, who may possibly be TIP victims.  This case is under 
investigation and the presumed trafficker is in jail.  The 3 
minors were returned to Guatemala, but the 8 adults allegedly 
stayed in Mexico with humanitarian visas.  There is also 
another TIP labor case, November 2008, involving 4 Chinese 
individuals, 3 women and one man.  These individuals were 
working 20  hour days, 7 days a week, for less than meager 
wages in Tijuana.  The 3 women decided to return to China for 
fear of repercussions here in Mexico.  The man decided to 
stay in Mexico and was brought to Mexico City by FEVIMTRA and 
provided with a translator and temporary housing and 
accommodations.  FEVIMTRA provided this individual with a 
humanitarian visa and he decided to stay and work in Mexico. 
 
Also see 16.E. for other media reports involving foreign 
trafficking victims.  Specific information about the 
assistance these individuals received was not available. 
 
¶29. (SBU) QUESTION E. Does the government provide longer-term 
shelter or housing benefits to victims or other resources to 
aid the victims in rebuilding their lives? 
 
POST RESPONSE: No long term shelter or housing is available; 
however FEVIMTRA provides victims' assistance for up to three 
months in the form of individualized emotional therapy, legal 
advice, and group therapy.  Longer term assistance is 
provided through unofficial referrals to NGOs. 
 
¶30. (SBU) QUESTION F. Does the government have a referral 
process to transfer victims detained, arrested or placed in 
protective custody by law enforcement authorities to 
institutions that provide short- or long-term care (either 
government or NGO-run)? 
 
POST RESPONSE: Once a victim has been identified, by either 
INM or FEVIMTRA, government personnel work to place the 
victim at a local shelter.  There is no official referral 
process, government workers refer victims to local shelters 
based upon availability, 
 
¶31. (SBU) QUESTION G. What is the total number of trafficking 
victims identified during the reporting period?  Of these, 
how many victims were referred to care facilities for 
assistance by law enforcement authorities during the 
reporting period?  By social services officials?  What is the 
number of victims assisted by government-funded assistance 
programs and those not funded by the government during the 
reporting period? 
 
POST RESPONSE: FEVIMTRA reported providing assistance to 50 
trafficking victims, 49 women and 1 man, from January 2008 to 
February 2009.  INM reported identifying 55 possible TIP 
cases, 28 women and 27 men, from April 2008 to February 2009. 
  Of those 55 cases, 6 involved sexual exploitation, 31 were 
labor exploitation, and 18 were both. 
 
From January 2008 to January 2009, IOM reported that 51 
trafficking victim cases (39 women and 12 men) were 
identified and assisted through their organization.  The 
majority of these cases were referred to them by INM. 
 
¶32. (SBU) QUESTION H. Do the government's law enforcement, 
immigration, and social services personnel have a formal 
system of proactively identifying victims of trafficking 
among high-risk persons with whom they come in contact (e.g., 
foreign persons arrested for prostitution or immigration 
violations)?  For countries with legalized prostitution, does 
the government have a mechanism for screening for trafficking 
victims among persons involved in the legal/regulated 
commercial sex trade? 
 
POST RESPONSE:  Mexico's family welfare agency, Desarrollo 
Integral de la Familia (DIF) continues to operate shelters 
for unaccompanied migrant children who are intercepted at the 
northern border.  Third Country Nationals (TCNs) intercepted 
at the border are generally placed in a migration detention 
station until they can be repatriated.  NGOs such as Casa 
Alianza offer shelter to street children, mainly adolescents, 
who are often victims of sexual exploitation; and Casa de las 
Mercedes offers shelter and training to former prostitutes 
and their children.  FEVIMTRA and INM have also referred 
several trafficking victims to NGOs or state-run shelters for 
assistance. 
 
 
MEXICO 00000828  008 OF 011 
 
 
INM refers trafficking victims to IOM.  During the reporting 
period, IOM reported rescued and provided assistance to 51 
trafficking victims. 
 
¶33. (SBU) QUESTION I. Are the rights of victims respected? 
Are trafficking victims detained or jailed?   If so, for how 
long?  Are victims fined?  Are victims prosecuted for 
violations of other laws, such as those governing immigration 
or prostitution? 
 
POST RESPONSE:  Migrants from Central American and other 
countries who travel to Mexico illegally and violate Mexican 
immigration laws are usually deported within 90 days.  Once 
migration officials identify an illegal migrant, INM takes 
them to their detention center where they conduct interviews 
to see if any crime has been committed during their travel 
to/through Mexico.  If the migrant is identified as a victim 
of trafficking, INM officials say they then turn them over to 
DIF, if they are under the age of 12 or to the appropriate 
Embassy or Consulate or to shelters that can support victims 
of trafficking (i.e. Casa del Migrante or IOM). 
 
¶34. (SBU) QUESTION J. Does the government encourage victims 
to assist in the investigation and prosecution of 
trafficking?  How many victims assisted in the investigation 
and prosecution of traffickers during the reporting period? 
May victims file civil suits or seek legal action against 
traffickers?  Does anyone impede victim access to such legal 
redress?  If a victim is a material witness in a court case 
against a former employer, is the victim permitted to obtain 
other employment or to leave the country pending trial 
proceedings?  Are there means by which a victim may obtain 
restitution? 
 
POST RESPONSE:  Law enforcement and migration officials 
encourage victims to cooperate with investigations; however, 
victims rarely identify themselves as victims of trafficking 
and often times migrants who are exploited through their 
employers are afraid to tell authorities for fear 
deportation.  Before the passage of the new federal law, 
trafficking in persons was not designated as a specific 
federal crime, and suspects were charged with other crimes 
not trafficking.  As stated above, Mexico's Attorney 
General's office has initiated 24 investigations under the 
new law, and leveled formal charges under the new law in one 
instance.  (Note:  Post is working to obtain information on 
the Chiapas case and to confirm the number of investigations 
from SRE.) 
 
¶35. (SBU) QUESTION K. Does the government provide any 
specialized training for government officials in identifying 
trafficking victims 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? 
 What is the number of trafficking victims assisted by the 
host country's embassies or consulates abroad during the 
reporting period?  Please explain the type of assistance 
provided (travel documents, referrals to assistance, payment 
for transportation home). 
 
POST RESPONSE:  The GOM continues to work with DOJ, USAID and 
ICE on training government officials in identifying 
trafficking victims.  SRE officials are implementing programs 
to assist Mexican trafficking victims in the U.S. 
 
¶36. (SBU) QUESTION L. Does the government provide assistance, 
such as medical aid, shelter, or financial help, to its 
nationals who are repatriated as victims of trafficking? 
 
POST RESPONSE: Through the DIF, the government continues to 
administer assistance programs and provide shelters for 
migrants through DIF on the northern border.  NGOs also 
continue to provide assistance to victims of trafficking and 
street children and migrants: 
 
Alternativas Pacificas, based in Monterrey continues to 
provide support for victims of trafficking.  Alternativas 
Pacificas is a holistic shelter model for domestic violence 
victims and created a national network of shelters.  Within 
the past few years, the shelters have provided services to 
victims of trafficking. 
 
Casa Alianza Mexico runs a network of shelters dedicated to 
street children.  Most of the children are victims of 
domestic violence as well as trafficking.  Casa Alianza 
provides comprehensive service such as food, education, 
health care, religion, legal counseling, and psychological 
assistance.  Casa Alianza works with DIF and also receives 
the cooperation of INM when assistance is needed to 
 
MEXICO 00000828  009 OF 011 
 
 
repatriate undocumented migrants. 
 
Bilateral Safety Corridor Coalition (BSCC) works on the US 
and Mexican sides of the border, with offices in San Diego 
and Cancun.  BSCC has launched awareness campaigns, developed 
a coalition of civil society organizations to combat 
trafficking, and trained Mexican law enforcement and other 
officials.  BSCC works closely with state-level DIF offices, 
the State Commission for Human Rights and federal law 
enforcement. 
 
Casa de las Mercedes provides assistance and support to women 
of all ages who live on the streets and are victims of 
mistreatment, sexual abuse, and sexual exploitation.  The NGO 
runs a shelter in which these women and their children can 
live (as long as necessary) and receive medical and 
psychological attention, food, legal counseling and education. 
 
The Casa del Migrante runs shelters in Tapachula, Ciudad 
Juarez and Tijuana where they primarily attend to migrants 
but also encounter TIP victims.  In its Tapachula shelter, 
the organization recently added a separate area dedicated for 
trafficking victims.  Casa del Migrante has a good 
relationship with INM. 
 
Centro de Estudios e Investigacion en Desarollo y Asistencia 
Social (CEIDAS) is promoting awareness of trafficking through 
the media, academic conferences, studies and other outreach 
strategies. 
 
The Coalition Against Trafficking in Women (CATW) actively 
works to raise awareness about TIP, such as on programs 
designed to prevent the sexual exploitation of minors, 
particularly by trying to lower the demand.  CATW has trained 
law enforcement officials on trafficking.  CATW reports 
having received funding from INMUJERES and Mexico City 
Government. 
 
Centro Integral de Atencion a la Mujer (CIAM), located in 
Cancun, provides short and long term services to women 
victims of domestic and sexual violence-including crisis 
prevention, legal assistance, medical and psychological and 
vocational counseling, and also protection.  CIAM provides 
services to trafficking victims, conducts anti-TIP public 
awareness campaigns and works with the hotel industry and the 
local government in efforts to combat trafficking. 
 
Fundacion Infantia works with the tourism industry on 
prevention of child sexual exploitation.  Fundacion Infantia 
works with the BSCC and the International Labor Organization 
(ILO) in providing training to government entities and 
schools and has worked with local DIF offices. 
 
International Organization for Migration works extensively 
with the GOM, mostly with the INM to provide training to 
immigration officials on both the northern and southern 
borders.  The IOM works closely with Casa del Migrante in 
Tapachula, Chiapas, as well as Casa de las Mercedes in Mexico 
City, among many other NGOs and shelters.  The INM regularly 
contacts the IOM for assistance with suspected trafficking 
victims. 
 
The Fundacion Camino a Casa, a faith-based organization, 
operates a shelter exclusively for TIP victims in a 
confiscated narco-residence made available to them by the 
Attorney General's office in 2008.  They work closely with 
PROTEJA and provide educational and vocational to trafficking 
victims, mostly young women. 
 
Additionally, the Attorney General's office made available a 
confiscated narco-residence in 2008 for use by a local NGO to 
exclusively shelter TIP victims. 
 
INMUJERES is also involved in anti-TIP efforts, mostly 
through funding programs and it its programs to counter 
violence against women and educate women on their rights. 
 
Sin Fronteras has a good working relationship with the GOM, 
particularly with the INM and the SRE's Secretariat for 
Global Affairs.  Sin Fronteras provides legal and social 
services for migrants in Mexico, and it has been called upon 
to assist the INM with providing assistance to trafficking 
victims. 
 
NOTE: The names of NGOs working with the GOM on victim 
protection and assistance are not/not for public disclosure. 
End note. 
 
PREVENTION: 
¶38. (SBU) QUESTION A. Did the government conduct 
anti-trafficking information or education campaigns during 
 
MEXICO 00000828  010 OF 011 
 
 
the reporting period?  If so, briefly describe the 
campaign(s), including their objectives and effectiveness. 
Please provide the number of people reached by such awareness 
efforts, if available.  Do these campaigns target potential 
trafficking victims and/or the demand for trafficking (e.g. 
"clients" of prostitutes or beneficiaries of forced labor)? 
 
POST RESPONSE:  In January 2009, FEVIMTRA started a national 
anti-TIP awareness campaign to disperse 19 types of posters, 
flyers, pamphlets, 3-part leaflets, brochures and flip-charts 
across the country.  In all, 7,800,000 pieces of material 
were printed.  Information distribution to 70 cities should 
be completed by the end of March.  Target distribution areas 
include: city, state and federal DIF offices; INM offices and 
migration stations; free milk distribution centers; city and 
state public assistance offices; elementary, middle and high 
schools; NGOs; FEVIMTRA offices and events; hotels, bars, 
nightclubs, discotecas, dancehalls; airports and bus 
terminals; PGR offices; hospitals and public health clinics; 
attorneys general offices; public libraries; and Federal 
Government institutions in all states. Close attention is 
being made to ensure that specialized materials are sent to 
the correct locations to target potential trafficking victims 
and to hamper the demand for trafficking.  For example, a 
3-part leaflet titled, "Trafficking in persons is a crime and 
punishable by law," is being dispersed in nightclubs, hotels, 
airports and bus terminals. 
 
¶39. (SBU) QUESTION B. Does the government monitor immigration 
and emigration patterns for evidence of trafficking?  Do law 
enforcement agencies screen for potential trafficking victims 
along borders? 
 
POST RESPONSE:  The GOM, Migration officials, Grupos Beta, 
PGR all recognize the large influx of trafficked person and 
other illegal migrants entering through the southern border 
with the intention of transiting Mexico en route to the U.S., 
but scare resources continue to prevent them from training 
personnel to effectively screen for potential trafficking 
victims.  INM report that they deported approximately 33,400 
aliens from January through December 2008.  Human rights 
organizations and international organizations say that there 
was an increase of children crossing the southern border 
alone often times falling prey to traffickers. 
 
In 2008, INM authorized the issuance of 3 humanitarian visas 
(4 are in the process of being issued), which are valid for 
one year, renewable, and granted to victims who agree to 
cooperate in the prosecution of case.  In operations to 
secure its borders, INM nonetheless misses significant 
opportunities to identify victims.  The lack of standardized 
training on victim identification and a paucity of public 
resources to screen Central Americans traveling through 
Mexico prevent officials from accurately screening and 
interviewing individuals to see if they are victims of 
trafficking. 
 
INM has 47 migration stations throughout Mexico.  CNDH 
reportedly has two offices in these stations, one in D.F., 
one in Tapachula, and visits the others.  INM officials say 
that when they find migrants who are within Mexico illegally, 
they send them to the migration stations where they are asked 
several questions to determine if the person is a victim of 
trafficking.  If not, INM contacts the appropriate Embassy or 
Consulate in order to provide services to the illegal 
migrants.  Within 90 days the migrants are usually deported 
back to their home countries. 
 
INM has developed a specific migration permit for Central 
Americans seeking to work in Mexico.  The Migratory Form for 
Border Workers (FMTF) was created to assist in ensuring 
respect for human rights and protection of Central American 
migrants who want to work legally in Mexico.  The FMTFs 
contain personal information on the individual, including 
information on the employer in order to track workers and 
employers.  This enables migration officials to conduct 
periodic checks on employers to ensure that they are abiding 
by proper labor standards. 
 
¶41. (SBU) QUESTION D. Does the government have a national 
plan of action to address trafficking in persons?  If the 
plan was developed during the reporting period, which 
agencies were involved in developing it?  Were NGOs consulted 
in the process?  What steps has the government taken to 
implement the action plan? 
 
POST RESPONSE:  Under the new federal law, the GOM is 
required to create such a plan.  Article 12 of the new 
federal law states: "The Inter-Agency Commission shall 
develop the National Program to Prevent and Punish 
Trafficking in Persons."  Section 2 states: "Establish 
 
MEXICO 00000828  011 OF 011 
 
 
prevention, protection and care campaigns for trafficking in 
persons based on the principle of safeguarding human dignity 
and human rights with special attention to children, 
adolescents and women."  With the completion of the "Law to 
Prevent and Sanction Trafficking in Persons" regulations on 
February 27,2009, by law, the inter-agency trafficking 
commission has 60 days to complete their own internal 
regulations, and is required to frame a national plan within 
one year. 
 
 
 
 
Visit Mexico City's Classified Web Site at 
http://www.state.sgov.gov/p/wha/mexicocity and the North American 
Partnership Blog at http://www.intelink.gov/communities/state/nap / 
BASSETT