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RR RUEHBZ RUEHDU RUEHJO RUEHMR RUEHRN
DE RUEHDR #0136/01 0421131
ZNR UUUUU ZZH
R 111131Z FEB 10
FM AMEMBASSY DAR ES SALAAM
TO RUEHC/SECSTATE WASHDC 9402
INFO RUCNSAD/SOUTHERN AF DEVELOPMENT COMMUNITY COLLECTIVE
RUEHC/DEPT OF LABOR WASHINGTON DC
RUEAHLC/DEPT OF HOMELAND SECURITY WASHINGTON DC
RUEAWJA/DEPT OF JUSTICE WASHINGTON DC
RUEATRS/DEPT OF TREASURY WASHINGTON DC
RUEHJB/AMEMBASSY BUJUMBURA 3180
RUEHKA/AMEMBASSY DHAKA 0028
RUEHKM/AMEMBASSY KAMPALA 0157
RUEHLGB/AMEMBASSY KIGALI 1657
RUEHLG/AMEMBASSY LILONGWE 0001
RUEHLO/AMEMBASSY LONDON 0520
RUEHNR/AMEMBASSY NAIROBI 1629
RUEHNE/AMEMBASSY NEW DELHI 0084
RUEHSA/AMEMBASSY PRETORIA 3753
RUEHRH/AMEMBASSY RIYADH 0080

UNCLAS SECTION 01 OF 07 DAR ES SALAAM 000136 
 
SENSITIVE 
SIPDIS 
DEPARTMENT FOR AF/E JTREADWELL; GTIP RYOUSEY; G LPENA; PRM; 
DRL MDAVIS; INR FEHRENREICH; AF/RSA 
STATE PASS TO AID 
 
E.O. 12958: N/A 
TAGS: KTIP KCRM PHUM KWMN SMIG KFRD ASEC PREF ELAB
KMCA, TZ 
SUBJECT: TANZANIA: 2010 TRAFFICKING IN PERSONS REPORT 
 
REF: STATE 2094 
 
¶1. (U) This cable is in response to guidance in reftel. 
 
TIP SITUATION IN TANZANIA 
------------------------- 
¶2. (SBU) Reliable sources of qualitative information for TIP 
trends include the Government of Tanzania (GOT) Ministry of 
Home Affairs, which is the lead agency on TIP issues; Ministry 
of Foreign Affairs, which hosts the Interagency Working Group 
on TIP; Ministry of Health and Social Welfare; Ministry of 
Community Development, Gender, and Children; the Office of the 
Director of Public Prosecution (DPP) in the Ministry of 
Justice and Constitutional Affairs; international 
organizations such as International Organization for Migration 
(IOM) and International Labor Organization (ILO); and local 
NGOs, including Kiota Women's Health and Development 
Organization (KIWOHEDE), the Conservation, Hotels, Domestic, 
and Allied Workers Union (CHODAWU), Child in the Sun, and Good 
Hope Project. 
 
¶3. (SBU) Since summer 2008, IOM has worked with its partner 
NGOs to gather data on trafficking victims in an effort to 
generate quantitative data.  During the year, eight partner 
NGOs provided IOM with descriptive information (e.g., sex, 
age, gender, nationality) about each trafficking victim 
assisted at their facilities.  IOM stored this information 
into a database called Database on Direct Assistance (DADA), 
which provided the only reliable data on trafficking in 
Tanzania.  According to IOM's data, more than 70 percent of 
victims of trafficking were female, many of whom were engaged 
in domestic work.  Victims, both male and female, ranged in 
age from 12 to 17.  The Office of the Director of Public 
Prosecution is implementing a case management system 
countrywide which will enable it to track TIP cases 
systematically. DPP currently gathers data manually on 
investigations and cases. 
 
¶4. (SBU) Tanzania is a source, transit, and destination 
country for men, women, and children trafficked for the 
purposes of forced labor and sexual exploitation.  Most 
victims were trafficked internally from poor rural areas, 
including from the regions of Kilimanjaro, Iringa, Singida, 
Dodoma, Mbeya, Morogoro, and Bukoba, by family members or 
friends of the family offering assistance with education and 
income in urban areas, such as Dar es Salaam and Arusha. 
Sexual exploitation was generally reported after young girls 
were brought into homes for forced labor.  There were no 
reports of children trafficked specifically with the intent of 
sexual exploitation; however, it is possible that young women 
are trafficked directly into prostitution. 
 
¶5. (SBU) Although the majority of trafficking continues to be 
internal, IOM reports that regional trafficking is on the 
rise. During the year, there were reports of individuals being 
trafficked from Burundi, Rwanda, Kenya, and Uganda to 
Tanzania. For example, the African Network for the Prevention 
and Protection against Child Abuse and Neglect discovered 17 
Tanzanian children working in Kenya and returned three to 
Tanzania.  In addition, a man trafficked two Kenyan children 
to Tanzania to work in the mines in the Tarime region.  Small 
numbers of persons were also reportedly trafficked outside of 
East Africa to South Africa, Saudi Arabia, the United Kingdom, 
and possibly other European countries for domestic servitude 
and sexual exploitation. Indian women who entered the country 
legally to work as entertainers in restaurants and nightclubs 
were at times exploited as prostitutes after arrival. Small 
numbers of Somali and Chinese women were also trafficked into 
the country and sexually exploited. In tourist areas, such as 
Zanzibar and Arusha, some girls who were hired for hotel work, 
both locally and from India, were later coerced into 
prostitution.  There were several 2008 reports of Malawian men 
 
DAR ES SAL 00000136  002 OF 007 
 
 
being trafficked to Rukwa for forced labor in the fishing 
industry; it is believed that this remained a problem in 2009. 
 
¶6. (SBU) Young girls, and to a lesser extent boys, from 
impoverished areas of the country were most vulnerable to 
trafficking. Lack of education, the impact of HIV/AIDS on 
traditional family structures, and the high level of poverty 
continued to make Tanzanian children vulnerable to 
exploitation. Girls were generally trafficked for forced 
domestic work and boys, as well as young men, were trafficked 
to work on farms and occasionally in artisanal mines or the 
informal business sector.  In the Arusha region, women also 
were said to be trafficked to work in the textile industry and 
on coffee plantations.  Living conditions for trafficked 
victims were usually grim, with very basic amenities, long 
working hours, inadequate food, little to no pay, 
vulnerability to physical and sexual abuse, and no educational 
opportunities. 
 
¶7. (SBU) Trafficking methods varied. Victims were lured by 
false promises of income, opportunity to attend school, and 
better living conditions, especially by moving from rural to 
urban areas.  Some trafficking victims left their homes with 
assistance from their families; some left on their own to 
escape life in rural areas; and some were transported by 
someone who offered to help them find city work, legitimate or 
otherwise. There is evidence to suggest individuals acted as 
brokers.  For example, men are said to have recruited village 
girls who had completed primary school but were not entering 
secondary school.  The men offered the girls money and 
employment and promised the girls a better life if they 
accompanied them to urban areas; however, many of these girls 
ended up in forced domestic labor and some may have ended up 
in prostitution.  Similarly, a KIWOHEDE representative in 
Arusha reported that women often played a central role in 
trafficking children into child labor, generating income from 
identifying the children and placing them.  Another method of 
trafficking involved low-income parents entrusting children to 
wealthier relatives or respected members of the community to 
care for the child as one of their own.  Some took advantage 
of this traditional practice and placed children in abusive or 
exploitive situations.  Victims of trafficking were usually 
moved by bus or train. There was no information to suggest the 
involvement of crime rings, illegal employment groups, travel 
and tourism agencies or marriage brokers. 
 
SETTING THE SCENE FOR THE GOVERNMENT'S ANTI TIP EFFORTS 
--------------------------------------------- ---- 
¶9. (SBU) The GOT acknowledged the problem of trafficking in 
persons and actively engaged on the issue.  There is no 
evidence of government involvement in or tolerance of 
trafficking.  While the Ministry of Home Affairs has the lead 
on trafficking issues, a number of other Ministries are 
actively involved in combating trafficking in persons.  The 
Ministry of Health and Social Welfare together with the 
Ministry of Community Development, Gender and Children play a 
key role in raising awareness about trafficking and providing 
protection to victims through their networks of Social Welfare 
Officers and Community Development Officers.  The Department 
of Social Welfare within the Ministry of Health and Social 
Welfare has a TIP focal point, as does the Ministry of Home 
Affairs, though the latter position has been vacant for some 
months.  The Ministry of Labor, Employment, and Youth 
Development has the lead on child labor; because of the 
significant overlap of these issues, Labor Officers play an 
important role in combating trafficking.  In 2006, the GOT 
established an inter-agency committee to coordinate 
trafficking efforts, which brought together representatives 
from the Ministries of Health and Social Welfare, Home 
Affairs, Ministry of Justice and Constitutional Affairs, and 
Foreign Affairs, as well as representatives from NGOs, 
international organizations, and foreign governments.  This 
 
DAR ES SAL 00000136  003 OF 007 
 
 
committee facilitated the exchange of information on TIP 
activities within Tanzania. 
 
¶10. (SBU) The Ministries involved in anti-trafficking efforts 
had no dedicated budgetary resources to combat trafficking in 
persons.  Enforcement efforts in Tanzania were hindered by the 
lack of institutional capacity, lack of awareness, and poor 
pay for civil servants.  Human resource capacity, particularly 
in the Department of Social Welfare within the Ministry of 
Health and Social Welfare, was problematic. While all 
districts had a Community Development Officer to assist 
victims, only 40 percent of districts in Tanzania had a Social 
Welfare Officer.  Within the Department of Social Welfare, 70 
percent of positions were unfilled.  The Institute of Social 
Welfare did not produce a sufficient number of trained persons 
to fill this void.  The Ministry of Labor had only 90 Labor 
Officers to conduct inspections, raise awareness, and enforce 
all labor laws.  Furthermore, material resources, such as 
vehicles, to support investigations, inspections, and provide 
assistance to victims were lacking. 
 
¶11. (SBU) During the year government officials and 
international organizations turned over victims to the NGO 
community for care, but the GOT did not systematically track 
the number of trafficking victims who received assistance. The 
GOT had limited capacity to gather the data required for an 
in-depth assessment of law enforcement efforts to combat 
trafficking.  Although the Office of the Director of Public 
Prosecution plans to implement a case management system, 
neither the police nor judiciary had computerized systems for 
tracking cases during the year.  The 2007 Anti-Trafficking Law 
provided for the establishment of a secretariat as well as a 
committee for trafficking, which would coordinate and guide 
all related efforts.  The Act notes that the Minister of Home 
Affairs can, on the advice of the committee mandate the 
collection of and exchange of information on trafficking. 
Neither the secretariat nor the committee had been formed 
during the reporting period. 
 
¶12. (SBU) The Committee of the UN Convention on the Rights of 
the Child reported in August 2009 that only six out of every 
100 Tanzanian children have birth certificates.  Birth 
registration is higher in Zanzibar.  Although the Tanzanian 
mainland does not have a national identity card, Zanzibar does 
have an identity card.  In an effort to increase birth 
registration, in June 2006, the GOT established the 
Registration, Insolvency, and Trusteeship Agency (RITA), which 
issues birth certificates.  The GOT is encouraging parents to 
register their children by requiring a birth certificate to 
enroll children in preschool. 
 
Investigation and Prosecution of Traffickers 
--------------------------------------- 
¶13. (SBU) Tanzania's Anti-Trafficking in Persons Act came into 
effect February 2009.  The law covers both internal and 
transnational forms of trafficking.  The Anti-Trafficking in 
Persons Act repealed the provisions of the penal code related 
to trafficking.  The law is divided into eight parts, with 
sections covering issues such as Prohibition of Trafficking in 
Persons; Investigations and Judicial Proceedings; Rescue, 
Rehabilitation, Protection and Assistance to Victims; the 
establishment of an Anti-Trafficking Fund; and the 
establishment of an Anti-Trafficking in Persons Committee. 
Prevention, detection, detention, prosecution cnt!aruh-0QMu1JQ0;tQQ:7ISQ!Qsevere trafficking in persons 
offence, such as involvement in child prostitution or child 
 
DAR ES SAL 00000136  004 OF 007 
 
 
pornography, upon conviction shall be liable to a fine of not 
less than five million shillings (approximately USD 3,800) but 
not more than hundred and fifty million shillings (USD 
115,000) or to imprisonment for a term of not less than ten 
years but not more than twenty years or both. 
 
--A person acting as an intermediary for the purposes of 
trafficking in persons upon conviction shall be liable to a 
fine of not less than four million shillings (USD 3,000) but 
not more than one hundred and fifty million shillings (USD 
115,000) or to imprisonment for a term of not less than seven 
years but not more than fifteen years or both. 
 
--A person who buys or engages the services of trafficked 
person for prostitution commits an offence and shall on 
conviction be liable to a fine of not less than one million 
shillings (USD 800) but not more than thirty million shillings 
(USD 23,000) or to imprisonment for a term of not less than 
twelve months but not more that seven years or both. 
 
--Other penalties, which vary depending on the circumstances, 
include payment of compensation to the victims and 
confiscation and forfeiture of the property and instruments 
derived from trafficking in persons. 
 
The complete law can be viewed from the GOT website as a pdf 
file at the following link: 
http://www.parliament.go.tz/Polis/PAMS/Docs/6 -2008.pdf 
 
¶15. (SBU) In November 2009, Parliament passed the Child Act, 
which prohibits the employment of a child in any form of 
exploitative labor.  The Act defines exploitative labor as 
that which threatens the health and development of children, 
exceeds six hours per day, fails to provide adequate 
compensation, or is inappropriate given the child's age.  The 
Act also prohibits forced child labor, the participation of 
children in hazardous work, and the sexual exploitation of 
children.  Further, it specifies that these provisions relate 
both to the formal and the informal sectors.  The Act 
authorizes Labor Officers to make inquiries into suspected 
violations, requiring them to report violations to the police 
as well as the Department of Social Welfare.  The role of 
Social Welfare Officers in protecting children is also 
outlined in the Act.  The Act does not specify fines for 
violations related to exploitative labor, hazardous work, or 
forced labor; however, persons who force children into 
prostitution or to engage in pornography are subject to a fine 
between one and five million shillings (between USD 750 and 
3,750) and/or one to 20 years in prison.  Further the Act 
specifies that children who are victims of trafficking as 
defined by the Anti-Trafficking Act are in need of care and 
protection. 
 
¶16. (SBU) The penalty for rape is thirty years to life in 
prison and a fine of unspecified amount, as well as payment of 
compensation to the victim as determined by the court. 
 
¶17. (SBU) During the year, the GOT investigated cases of 
trafficking; however, there were no prosecutions under the 
Anti-Trafficking Act.  The Director of Public Prosecution 
reports that there were several cases under investigation, 
including that of two Kenyan children trafficked to Tarime 
District.  On December 13, police in the Tarime District (near 
Lake Victoria) arrested a man for abducting two children, ages 
four and eight, from Isebania, Kenya and attempting to sell 
them at a mining site in the Nyamongo area. In March 2009, a 
Rwandan woman who had attempted to traffic a Tanzanian child 
to France was convicted under the penal code by authorities in 
Mlandizi and paid a fine of Tanzanian shillings 300, 000 (USD 
220).  Although the woman was sentenced after the Anti- 
Trafficking Act came into effect, she was tried under the 
penal code due to the timing of the offense and hearing.  No 
 
DAR ES SAL 00000136  005 OF 007 
 
 
information is available regarding suspended sentences or plea 
bargains. 
 
¶18. (SBU) During the year, new law enforcement and immigration 
officials were trained on trafficking in persons as part of 
their introductory coursework.  In addition, copies of the 
Anti-Trafficking Act were provided to police officials around 
the country. 
 
¶19. (SBU) The GOT cooperated with other governments in the 
investigation and prosecution of crimes.  However, there were 
no specific instances involving trafficking.  The DPP was 
aware of one trafficking case involving Tanzanians in the 
United Kingdom, but Tanzania had not received a request for 
assistance.  There were no extradition cases related to 
trafficking. 
 
¶20. (SBU) The Tanzanian People's Defense Forces is rigorous in 
its scrutiny of soldiers who commit any type of crime.  There 
were no known cases of trafficking involving Tanzanian 
soldiers. 
 
¶21. (SBU) The concept of sex tourism is new to Tanzania and it 
is not perceived as a major problem.  An NGO is currently 
researching the issue to determine the nature and extent of 
child sex tourism in Tanzania.  Post will forward this report 
when it becomes available. 
 
Protection and Assistance to Victims 
------------------------------------ 
¶22. (SBU) Community Development and Social Welfare Officers 
actively worked to identify victims of trafficking.  They 
provided material support (e.g., food and books), counseling, 
and assistance with family reunification or placement with an 
NGO.  It is difficult to place a monetary value on the GOT's 
contribution, because help from the government was sporadic 
and there was no national tracking mechanism for trafficked 
victims.  The relevant ministries have no dedicated budgets 
for trafficking efforts.  Although the new Anti-Trafficking 
Act provides for the creation of a fund to support victims' 
assistance, this fund had yet to be established. 
 
¶23. (SBU) The government continued to rely on the NGO 
community to provide both long- and short-term shelter and 
care for victims of trafficking.  Most facilities were geared 
toward children and typically provided free education, medical 
treatment, psychological care, and legal services.  When 
possible, NGOs tried to assist with family reunification. 
Many NGOs also offered technical training to give victims a 
skill as a preventative measure against repeated exploitation. 
In some instances, the NGOs conducted home visits once a child 
was reunited with the family. 
 
¶24. (SBU) The primary groups working with victims of 
trafficking were IOM; ILO; KIWOHEDE, a girls shelter with 
facilities throughout the country; Child in the Sun, a boys 
shelter in Dar es Salaam; Winrock, which worked in farming 
communities in several regions of the country; and Good Hope 
Project, a program focused in the tanzanite mining areas. 
DogoDogo, a new organization, worked with street children, 
while Faraja Vocational Training Center in Arusha provided 
emergency and mid- to long-term assistance to female 
trafficking victims.  Sisters of the Immaculate Heart of Mary 
offered medical services to young trafficking victims. 
Mkombozi assisted victims in Arusha and Moshi and the 
Daughters of Mary Immaculate worked with girls in Dar es 
Salaam.  All NGOs coordinated closely with the GOT and 
international organizations. 
 
¶25. (SBU) Foreign trafficking victims have access to NGO 
facilities, but are usually treated by the government as 
illegal immigrants and housed in prisons until arrangements 
 
DAR ES SAL 00000136  006 OF 007 
 
 
can be made for their deportation.  The new anti-TIP law calls 
for the GOT to assist trans-border trafficked victims with 
care and repatriation, but there were no funds available for 
such assistance.  The law also provides for the provision of 
assistance to Tanzanians who are victims of trafficking abroad 
and are repatriated, but limited financial resources affected 
the GOT's ability to provide such help. 
 
¶26. (SBU) There was no institutionalized referral system for 
trafficking victims.  However, in 2009, IOM helped establish a 
referral mechanism and trained authorities on its use during 
the year.  In addition, IOM printed calendars which provided a 
definition of trafficking and a list of organizations and 
ministries providing support to trafficking victims.  This 
resource was distributed to police and immigration officials 
throughout the country as a reference. 
 
¶27. (SBU) There is no comprehensive data detailing the number 
of trafficking victims assisted in the reporting period. 
During the year, IOM worked with eight NGOs to collect data on 
trafficking victims.  Between September 2005 and October 2009, 
IOM and its NGO partners assisted 314 victims; during 2009, 96 
victims were provided with counseling, medical screenings, and 
educational opportunities at IOM partner organizations. 
 
¶28. (SBU) Immigration and law enforcement officials as well as 
Social Welfare Officers have in the past received TIP training 
and have been provided copies of both the law and a protocol 
for identifying and assisting victims.  However, there is no 
formal system in place for identifying and assisting victims. 
Social Welfare and Community Development Officers actively 
worked to identify trafficking victims.  Both Community 
Development Officers and Social Welfare Officers played an 
important role in raising awareness about trafficking and 
offering support to victims. 
 
¶29. (SBU) The rights of victims are generally respected. 
However, as previously noted, foreign victims are usually 
treated by the government as illegal immigrants and housed in 
prisons until arrangements can be made for their deportation. 
 
¶30. (SBU) No information is available about the involvement of 
victims in the investigation and prosecution of cases. 
 
¶31. (SBU) During 2009, IOM trained authorities, including 
police and Social Welfare Officers, as well as NGOs in Arusha 
on victims' assistance and referral processes.  In addition, 
IOM held four on-the-job training sessions for Social Welfare 
Officers to improve project planning, monitoring and 
evaluation, leadership, and management skills.  In December 
2009, IOM signed an MOU with the Ministry of Health and Social 
Welfare to build the capacity of the Department of Social 
Welfare to assist victims of trafficking. 
 
Prevention 
---------- 
¶32. (SBU) Social Welfare and Community Development Officers 
throughout the country worked to raise awareness about 
trafficking during the year.  In addition, IOM funded a 
participatory theatre show called "Pambazuko" ("Awakening") 
that spotlighted the issue of trafficking.  From July to 
October, more than 40,000 people attended the over one hundred 
shows held in the eight regions and 25 districts with the 
highest incidence of trafficking. 
 
¶33. (SBU) In coordination with IOM, in 2006 the government 
established a coordinating committee on trafficking in 
persons, chaired by the Ministry of Foreign Affairs (see 
paragraph 9).  In December 2009, responsibility for this 
committee was transferred to the Ministry of Health and Social 
Welfare.  Although the Anti-Trafficking Act called for a 
national plan of action on trafficking in persons, the plan 
 
DAR ES SAL 00000136  007 OF 007 
 
 
had not been drafted. 
 
¶34. (SBU) Commercial sex work is illegal in Tanzania.  Other 
than law enforcement efforts, the GOT is not implementing 
programs to reduce commercial sex work.  NGOs offer counseling 
as well as alternative vocational training to commercial sex 
workers.  However, NGOs assisting commercial sex workers were 
at times concerned about being accused of facilitating 
prostitution. 
 
¶35. (SBU) The concept of child sex tourism is new to Tanzania 
and it is not well understood.  An NGO is currently conducting 
a study which will help define the problem.  The results of 
this study will likely inform the government's response. 
During the year, any activities to assist victims or prevent 
sex tourism fell under other initiatives such as child labor 
or trafficking. 
 
¶36. (SBU) The laws of Tanzania state that no child under 18 
may crew on a ship or be employed in a mine, factory, or any 
other worksite where working conditions may be hazardous, to 
include military service. All soldiers are required to 
complete a module on the respect of human rights and anti- 
trafficking activities as a part of their basic curriculum. 
Troops received additional human rights training, including 
sessions on gender and womenQs rights, the protection of 
civilians, and international humanitarian law, before their 
deployment to international peacekeeping missions. 
 
Partnerships 
------------ 
¶37. (SBU) The GOT actively engages with other governments and 
multilateral organizations on TIP issues.  It includes donor 
representatives and international organizations in its 
coordinating committee and enjoys a very strong relationship 
with IOM.  Both IOM and UNICEF are working to strengthen the 
capacity of the Department of Social Welfare, which will help 
GOT improve its ability to provide assistance to trafficking 
victims. 
 
¶38. (SBU) The GOT does not provide assistance to other 
countries to address TIP. 
 
¶39. (U) Embassy personnel spent 28 hours in the preparation of 
this cable, as follows:  Political Assistant, 10 hours; 
Political Officer, 15 hours; Political Chief, 2 hours; Deputy 
Chief of Mission, 1 hour. 
 
¶39. (U) The point of contact for Trafficking in Persons at 
post is Stephanie Hutchison (email: hutchisonsj@state.gov; 
tel: 255-22-2668001; fax: 255-22-2668296). 
 
LENHARDT