Cablegate: Panama's Input for Fifth Annual Anti-Trafficking

This record is a partial extract of the original cable. The full text of the original cable is not available.

UNCLAS SECTION 01 OF 17 PANAMA 000555

SIPDIS

SENSITIVE

DEPARTMENT FOR WHA/CEN PIERCE, G/TIP RACHEL OWEN, G, INL,
DRL, PRM, IWI, WHA/PPC/PUCCETTI FALLS
STATE PASS FOR USAID

E.O. 12958: N/A
TAGS: KCRM PHUM KWMN SMIG KFRD ASEC PREF ELAB PM LABOR HUMAN RIGHTSPOLMIL
SUBJECT: PANAMA'S INPUT FOR FIFTH ANNUAL ANTI-TRAFFICKING
IN PERSONS (TIP) REPORT

REF: A. 04 STATE 273089
B. 04 PANAMA 02153
C. PANAMA 00338
D. 04 PANAMA 00548
E. 04 PANAMA 00148
F. 2004 HUMAN RIGHTS REPORT FOR PANAMA
G. PANAMA 00390
H. 04 PANAMA 02589
I. PANAMA 00088
J. 04 PANAMA 02613

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SUMMARY
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1. (SBU) Embassy Panama believes that trafficking in
persons (TIP) is a relatively small and manageable problem,
involving around 200-500 victims. In 2004, Embassy worked
closely with the Government of Panama (GOP) to discover the
true extent of TIP in Panama and to strengthen the anti-TIP
legal framework, investigate and prosecute traffickers;
publicize the crimes associated with TIP; train officers and
staff; reduce the number of TIP victims; and improve the care
they receive. Passage of the March 2004 anti-TIP law was a
positive step that greatly enhanced the GOP's ability to
publicize and prosecute TIP and to protect victims. In
October the Technical Judicial Police (PTJ) created a Sexual
Exploitation Section within its Sex Crimes Unit; in November
the Ministry of Children, Youth, Women and Family (MINJUMFA)
initiated an awareness campaign and began seeking shelter and
counseling services for more TIP victims; and in February
2005 the Attorney General convoked a permanent anti-TIP
commission. As seen with Panama's July 2004 ratification of
the U.N. Protocol to Prevent, Suppress, and Punish
Trafficking in Persons, the National Assembly is increasingly
"on alert" about TIP. The GOP is pushing for tougher
anti-TIP measures. The GOP is open to suggestions from
Embassy-G/TIP and the GOP has reached out to the
international community for help in addressing its TIP
problem. Nonetheless, the Immigration Directorate continues
to favor issuance of "alternadora" visas for female sex
workers, citing public health concerns. End Summary.

2. (U) Per Reftel A Embassy Panama is pleased to submit its
input for the annual Trafficking in Persons (TIP) report.
Classified information regarding corruption will be sent by
septel.

IS THE COUNTRY A COUNTRY OF ORIGIN, TRANSIT OR DESTINATION
FOR INTERNATIONALLY TRAFFICKED MEN, WOMEN OR CHILDREN?
SPECIFY NUMBERS WITHIN EACH GROUP. DOES THE TRAFFICKING
OCCUR WITHIN THE COUNTRY'S BORDERS?

3. (SBU) Panama is a country primarily of destination for
internationally trafficked men, women, and children and a
country of origin primarily for internally trafficked
children. Embassy estimates that approximately 125-375
children (both boys and girls), 75-125 women, and 0 men are
trafficked annually in Panama, 95% of whom are trafficked
internally.

DOES IT OCCUR IN AN AREA OUTSIDE THE GOVERNMENT'S CONTROL?

4. (SBU) Commercial sexual exploitation of children occurs
disproportionately in Darien province, a remote area that has
little infrastructure and has historically received few
government resources. The prosecutor for the Darien region
suspects, but has limited proof, that at least one
traditional leader of one of Panama's semiautonomous
indigenous groups in the Darien area offers indigenous girls
for prostitution.

ARE THERE ESTIMATES OR RELIABLE NUMBERS AVAILABLE AS TO THE
EXTENT OR MAGNITUDE OF THE PROBLEM? PLEASE INCLUDE ANY
NUMBERS OF VICTIMS. WHAT IS (ARE) THE SOURCE(S) OF AVAILABLE
INFORMATION ON TRAFFICKING IN PERSONS? HOW RELIABLE ARE THE
NUMBERS AND THESE SOURCES?

5. (SBU) GOP tracks arrests, investigations, and victim
complaints, and deportations of illegal foreign sex workers.
The International Labor Organization (ILO)/Program for
Eradication of Child Labor (IPEC), along with academics at
the University of Panama (UP), publish reports on commercial
sexual exploitation of minors. (NOTE: ILO/IPEC is working
regionally to combat commercial sexual exploitation of
minors. End Note.) Panama's press has reported on the trade
involving underage sex workers and arrests and prosecutions
of their traffickers. GOP and NGO officials also provide
verbal reports and updates to Emboffs on numbers of TIP
victims. GOP and ILO reports and commentary are reliable.
Press reports at times are reliable, but are often
sensationalized. Embassy evaluated the sources of the
reports and took a "realistic and solid evidence" approach,
basing total TIP victims numbers on verifiable evidence and
knowledge of Panama's overall social and economic conditions.

6. (SBU) The estimated annual number of Women victims is
75-125. The estimates for the adults does assume that a
small percentage (5-10%) of female sex workers in Panama or
transiting Panama could be considered TIP victims.
Immigration Department statistics indicate that approximately
367 women were deported for working illegally in the sex
trade from January through November 2004, mainly Colombians.
Immigration officials indicate that illegal sex workers also
include women from the Dominican Republic. Immigration
officials reported that none of these women claimed to be TIP
victims. All knowledgeable TIP sources agree that the
overwhelming majority of adult female sex workers in Panama
or transiting Panama have chosen their profession freely.
(Note: There have been unsubstantiated allegations of debt
bondage amongst smuggled Mainland Chinese. (reftel E) A 2002
paper by OAS Chinese migration consultant Dr. Ramon Mon
describes a press account of Chinese debt bondage in Panama
in the early 1990s. No recent evidence has been uncovered to
support such allegations. Embassy continues to search for
more credible evidence and the GOP invited Dr. Mon to
participate in its DOJ-sponsored TIP training March 7-9.
Estimates are not provided for debt bondage TIP victims. End
Note.)

7. (SBU) The estimated annual number of minor TIP victims
is 125-375 (both male and female), primarily victims of
internal trafficking for commercial sexual exploitation.
This estimate is based on ILO/IPEC reports; recent police
busts; meetings with NGOs, prosecutors, and investigators;
and extrapolation. The ILO reports indicate that there are
at least 100 minors who are sexually exploited for commercial
purposes. Since March 2004, an ILO/IPEC pilot program with
local officials in Veraguas province removed approximately
130 girls from child domestic labor, some of whom may have
also been trafficking victims (reftel B).

8. (SBU) (Note: Although the estimate is higher than in
last year's report (reftel D), Embassy does not believe that
the actual number of victims is increasing. Rather, GOP
prevention and awareness campaigns have resulted in more
victims and witnesses coming forward. Similarly, the March
2004 anti-TIP law gave prosecutors and police investigators
greater investigative powers, allowing the GOP to uncover
more victims).

WHERE ARE PERSONS TRAFFICKED FROM? WHERE ARE THE PERSONS
TRAFFICKED TO?

9. (SBU) Women are trafficked from Colombia (primarily) and
the Dominican Republic to Panama, Costa Rica, United States
(through Central America) and Europe. There is some credible
evidence that minors have been trafficked from Colombia to
Panama in previous years. Child domestic laborers who may be
trafficking victims originate primarily from western
provinces and go to Panama City. Children trafficked for
commercial sexual exploitation are trafficked primarily
within Panama City and from Darien province to Panama City.

HAVE THERE BEEN ANY CHANGES IN THE DIRECTION OR EXTENT OF
TRAFFICKING?

10. (SBU) In the past year it is likely that trafficking
slowed because of vigorous investigation and prosecution
under the March 2004 anti-TIP law. During 2004, the GOP
"suspended" issuance of the "alternadora visa" (reftel F).
GOP officials reported that because Colombians can enter
Panama without a visa, Colombians entered Panama as tourists
and began to practice prostitution without regulation and
health controls.
ARE THERE EFFORTS OR SURVEYS PLANNED OR UNDERWAY TO DOCUMENT
THE EXTENT AND NATURE OF TRAFFICKING IN THE COUNTRY? IS ANY
ADDITIONAL INFORMATION AVAILABLE FROM SUCH REPORTS OR SURVEYS
THAT WAS NOT AVAILABLE LAST YEAR?

11. (SBU) NGOs publish reports on the health status of sex
workers in Panama. ILO/IPEC publishes reports and studies on
the extent of commercial sexual exploitation of minors in
Panama. ILO also publishes reports on child domestic labor
in Panama. Most of their reports have been published within
the last three years. Since last year, ILO reports showed
that girls from Veraguas province may be trafficked for child
domestic labor (reftel B) and that commercial sexual
exploitation is linked to concepts of masculinity in Panama.

12. (SBU) TIP prevention and protection proposals by the
Attorney General's Office and MINJUMFA contemplate studies on
TIP (reftel C). The GOP tracks TIP victims' complaints
through the Panamanian Judicial Police (PTJ) Sex Crimes Unit
Sexual Exploitation Section. Under the March 2004 anti-TIP
law, authorities must send TIP case statistics to the
National Commission for Criminal Statistics (CONADEC). The
new anti-TIP commission (CONAPREDES) must study the
mechanisms for preventing and eliminating crimes of
commercial sexual exploitation. (reftel G) Immigration tracks
deportations of illegal sex workers, classified as "non-bona
fide" tourists.

IF THE COUNTRY IS A DESTINATION POINT FOR TRAFFICKED VICTIMS:
WHAT KIND OF CONDITIONS ARE THE VICTIMS TRAFFICKED INTO?
WHAT METHODS ARE USED TO ENSURE THEIR COMPLIANCE? ARE THE
VICTIMS SUBJECT TO VIOLENCE, THREATS, WITHHOLDING OF
DOCUMENTS, DEBT BONDAGE, ETC?

13. (SBU) Women and minors are trafficked into massage
parlors and nude dancing establishments, which also serve as
brothels. Many work on the streets. PTJ Sex Crime Unit
investigators, prosecutors, and judges indicate that
withholding documents (passports) and heavy debts are the
most common means of ensuring compliance. Withholding
documents is most common for those who are working illegally
(without work permits/"alternadora" visas) in prostitution.
Threats of violence have not been reported in the vast
majority of cases. In cases of internal trafficking of
minors for commercial sexual exploitation, victims and their
families have received threats of physical harm after the
victim, the PTJ, or prosecutors initiated investigations. In
cases of child domestic labor, girls may pay a fee to find a
job in the city which is deducted from their meager wages.
(Note: The March 2004 TIP law makes the withholding of
documents a crime punishable by 3-5 years in prison).

IF THE COUNTRY IS COUNTRY OF ORIGIN: WHICH POPULATIONS ARE
TARGETED BY TRAFFICKERS? WHO ARE THE TRAFFICKERS? WHAT
METHODS ARE USED TO APPROACH VICTIMS? WHAT METHODS ARE USED
TO MOVE VICTIMS?

14. (SBU) Panama is a country of origin for internal
trafficking. GOP and ILO reports indicate minors (girls) are
offered cash and clothing by those running sex worker rings.
Traffickers are usually non-family, third parties. According
to recent reports, girls are approached on the streets when
away from their parents by third parties. Victims are
transported within Panama by car and usually within a
relatively limited area. Adult victims are most likely
Colombian, and, to a lesser extent, Dominican female sex
workers who arrive willingly in Panama to work in the sex
trade but could become victims of TIP. In the case of child
domestic labor, recruiters contact rural girls hoping to
continue their education in the city and arrange for their
transportation for a fee to be deducted from wages (reftel
B).

IS THERE POLITICAL WILL AT THE HIGHEST LEVELS OF GOVERNMENT
TO COMBAT TRAFFICKING IN PERSONS? IS THE GOVERNMENT MAKING A
GOOD FAITH EFFORT TO SERIOUSLY ADDRESS TRAFFICKING? IS
THERE A WILLINGNESS TO TAKE ACTION AGAINST GOVERNMENT
OFFICIALS LINKED TO TIP? IN BROAD TERMS, WHAT RESOURCES IS
THE HOST GOVERNMENT DEVOTING TO COMBATING TRAFFICKING IN
PERSONS (IN TERMS OF PREVENTION, PROTECTION, AND PROSECUTION)

15. (SBU) Throughout 2004, the GOP has demonstrated will at
the highest levels of government to combat trafficking in
persons and has made a good faith effort to seriously address
trafficking. In March 2004, the National Assembly passed and
former President Moscoso signed a new anti-TIP law that has
led to increased attention to TIP throughout the GOP,
institutionalizing the country's anti-TIP efforts at the
policy and the technical level. As a result of the
legislation, the PTJ's Sex Crimes Unit created a Sexual
Exploitation Section to combat crimes under the new law
(reftel H). Because the new law allowed PTJ investigators
and government prosecutors to initiate their own cases, the
PTJ and Prosecutors have devoted more time, energy, and
resources to combating TIP cases, generally cases of sexual
exploitation of minors. With an increasing number of
investigations and prosecutions, Attorney General Gomez
immediately identified combating TIP as a priority upon
taking office (reftel I). (NOTE: Domestic sexual violence
and non-commercial sexual exploitation. Resources and
manpower within the PTJ and the prosecutors' offices are
dedicated accordingly. End Note.)

16. (SBU) Attorney General Gomez acted quickly to convoke
the anti-TIP Commission CONAPREDES under the new law on
February 15. CONAPREDES includes policy makers from the
Ministry of Government and Justice (MOGJ), MINJUMFA, the
Ministry of Health, and the Ministry of Education. (reftel
G). Under the anti-TIP law, CONAPREDES is charged with
creating a fund from a special tax source for training,
education, and prevention. MINJUMFA Minister Calderon has
devoted additional vehicles, social workers, and shelter
services to TIP protection, particularly for victims from the
Darien region (reftel C). Minister Calderon and the Office
of the First Lady also initiated a TIP prevention program.
17. (SBU) MOGJ's Immigration Directorate conducts raids on
brothels and other establishments where TIP victims may be
present. These operations are carried out every two to three
months and on an ad-hoc basis responding to complaints and
leads. Immigration works in conjunction with the Panama
National Police (PNP). Immigration also increased airport
and border-crossing enforcement, often in conjunction and
with the assistance of USG resources. As discussed with
EmbOffs, Immigration officers are aware that certain visitors
to Panama fit the profile of persons seeking to work
illegally in the sex trade who could subsequently become or
are TIP victims. The National Air Service (SAN) and National
Marine Service SMN also conduct interdictions to apprehend
illegal migrants.

18. (SBU) Despite having no declared TIP victims through
immigration operations, Vice MOGJ Minister Olga Golcher
announced in February 2005 plans to create a special MOGJ
office to receive complaints from and to provide services to
TIP victims. The MOGJ has already initiated a new office of
gender.

19. (SBU) MINJUMFA and the Ministry of Education also have
projects designed to eliminate illegal child labor, forced or
otherwise. MINJUMFA also helps fund NGOs that are involved
in combating child labor, domestic violence, or victims'
assistance. Combating TIP has a natural link with their work
in these areas. For example, MINJUMFA funds the NGOs Casa
Esperanza (involved in fighting child labor) (reftel B) and
Casa Malambo (involved in sheltering victims) (reftel C).
20. (SBU) Embassy has on-going TIP dialogue with all levels
of the GOP. Embassy continues to work closely with the
highest levels of the GOP and believes the GOP will further
strengthen their anti-TIP efforts. However, some GOP
officials continue to support the use of the "alternadora
visa," citing public health reasons. Nonetheless, these GOP
officials have stated they wish to modify the "alternadora"
visa to ensure that it complies with the U.N. Protocol to
Prevent, Suppress, and Punish Trafficking in Persons, which
Panama ratified in July 2004.

DO GOVERNMENTAL AUTHORITIES OR INDIVIDUAL MEMBERS OF
GOVERNMENT FORCES FACILITATE OR CONDONE TRAFFICKING, OR ARE
THEY OTHERWISE COMPLICIT IN SUCH ACTIVITIES? DO GOVERNMENT
OFFICIALS (SUCH AS CUSTOMS, BORDER GUARDS, IMMIGRATION
OFFICIALS, LABOR INSPECTORS, LOCAL POLICE, OR OTHERS) RECEIVE
BRIBES FROM TRAFFICKERS OR OTHERWISE ASSIST IN THEIR
OPERATIONS? WHAT PUNITIVE MEASURES, IF ANY, HAVE BEEN
TAKEN AGAINST THOSE INDIVIDUALS COMPLICIT OR INVOLVED IN
TRAFFICKING?

21. (U) This issue will be addressed in septel.

WHAT ARE THE LIMITATIONS ON THE GOVERNMENT'S ABILITY TO
ADDRESS THIS PROBLEM IN PRACTICE? FOR EXAMPLE, IS FUNDING
FOR POLICE OR INSTITUTIONS INADEQUATE?

22. (SBU) The new anti-TIP law allows prosecutors and PTJ
investigators to initiate their own cases, eliminating a past
limitation (reftel B, C, F Nonetheless, funding is limited
for TIP-specific investigations within PTJ, PNP, Immigration
and other GOP agencies. Lack of funding also hinders
coordination within the GOP and with civil society, hampering
prevention and protection efforts.

IS OVERALL CORRUPTION A PROBLEM?

23. (SBU) Corruption is a problem in Panama.

TO WHAT EXTENT DOES THE GOVERNMENT SYSTEMATICALLY MONITOR ITS
ANTI-TRAFFICKING EFFORTS (ON ALL FRONTS, PROSECUTION,
PREVENTION, AND VICTIM PROTECTION) AND PERIODICALLY MAKE
AVAILABLE, PUBLICLY AND PRIVATELY AND DIRECTLY OR THROUGH
REGIONAL/INTERNATIONAL ORGANIZATIONS, ITS ASSESSMENTS OF
THESE ANTI-TRAFFICKING EFFORTS?

24. (SBU) The PTJ Sexual Exploitation Section keeps
excellent statistics on the TIP cases it sends for
prosecution, including the age and gender of victims and the
nationalities of the perpetrators. Immigration has
statistics on deportations, including those involving illegal
prostitution. The Judicial Branch compiles and distributes
statistics, but they are current only through 2003, prior to
the passage of the anti-TIP law. The GOP Ministries that
work to eradicate forced child labor and commercial sexual
exploitation of minors all track results of their projects.
The GOP shares its statistics with NGOs ILO/IPEC, and the
Embassy. Embassy officials can call at any time and receive
the latest updates from these GOP ministries.

25. (SBU) ILO/IPEC uses statistics from the PTJ to
supplement their own reporting. The March 2004
anti-trafficking law requires authorities to keep statistics
on sexual TIP and send those statistics to the National
Commission for Criminal Statistics (CONADEC) to serve as a
baseline for authorities in their prevention and protection
efforts. Embassy expects that the new anti-TIP commission
(reftel G) will work to improve statistics at the ministerial
level for transmission to CONADEC. The anti-TIP prevention
and protection proposals from the Office of the Attorney
General and MINJUMFA (reftel C) include programs for
increasing monitoring capabilities.

IS PROSTITUTION LEGALIZED OR DECRIMINALIZED? IF PROSTITUTION
IS LEGAL AND REGULATED, WHAT IS THE LEGAL MINIMUM AGE FOR
THIS ACTIVITY?

26. (U) Prostitution is legalized and regulated. The
minimum age for prostitution is 18.
DOES THE GOVERNMENT ACKNOWLEDGE THAT TRAFFICKING IS A PROBLEM
IN THAT COUNTRY?

27. (SBU) GOP officials acknowledge there are TIP victims
in Panama but most do not believe there are more than 100
victims who are trafficked annually across borders. However,
GOP continues devote considerable time, efforts and resources
to combating TIP. GOP officials are well aware of the
internal trafficking problem of commercial sexual
exploitation of minors and the use of Panamanian minors in
international pornography.

WHICH GOVERNMENT AGENCIES ARE INVOLVED IN ANTI-TRAFFICKING
EFFORTS?

28. (SBU) PTJ (including the Sex Crimes Unit and its Sexual
Exploitation Section), PNP, Immigration, MINJUMFA, MFA,
Ministry of Labor, MOGJ, Ministry of Health, Ministry of
Education, Social Security (CSS), Office of the First Lady,
Ministry of Commerce, SAN, SMN, Family and Child Courts,
District Attorneys, the Office of Tourism (IPAT), the
Ombudsman (Defensoria) and the National Assembly.

ARE THERE OR HAVE THERE BEEN GOVERNMENT-RUN ANTI-TRAFFICKING
INFORMATION OR EDUCATION CAMPAIGNS? IF SO, BRIEFLY DESCRIBE
THE CAMPAIGN(S), INCLUDING THEIR OBJECTIVE
AND EFFECTIVENESS. DO THESE CAMPAIGNS TARGET POTENTIAL
TRAFFICKING VICTIMS AND/OR THE DEMAND FOR TRAFFICKING (E.G.
"CLIENTS" OF PROSTITUTES OR BENEFICIARIES OF FORCED LABOR).

29. (SBU) In November 2004, MINJUMFA and the Office of the
First Lady initiated a formal campaign against the sexual
commercial exploitation of minors and sexual tourism.
(reftel F). The campaign targeted the demand for
trafficking, using the slogans "IF YOU ARE A MAN, WE'RE
DEPENDING ON YOU" and "PANAMA: A COUNTRY THAT REJECTS SEX
TOURISM." The campaign also sought to create awareness of
TIP among the general public. The program included a launch
event at the international airport with the First Lady, the
MINJUMFA Minister, the MOGJ, tourist agencies, and IPAT; the
distribution of thousands of postcards with anti-TIP messages
to tourists in transit at the principal airports, ports,
travel agencies, and hotels in Panama; the distribution of
flyers throughout the country in internet cafes, bars,
pharmacies, restaurants, and health centers; and three
celebrity radio spots calling on men to stop sexual
exploitation of minors. The campaigned increased awareness
of the issue, but MINJUMFA found tourist sector businesses
resistant to informing their patrons of the problem of sex
tourism. MINJUMFA submitted an anti-TIP prevention proposal
to extend its campaign and work more intensively with tourist
sector businesses. (reftel C)

30. (SBU) In November 2004, MINJUMFA initiated an anti-TIP
awareness workshop in the Darien region (reftel F) aimed at
50 Darien judges, "corregidores," prosecutors, mayors,
police, educators, health professionals, and NGOs. The
workshop resulted in a Darien action plan, receipt of
additional complaints, and an agreement between MINJUMFA and
the PNP to train PNP personnel in attention to cases of
commercial sexual exploitation of minors.

31. (SBU) In November 2004, MINJUMFA conducted a National
Forum on Integral Assistance to Child Victims of Sexual
Violence that identified advances, challenges, and strategies
in providing victims' assistance. The forum included 150
participants, including judges, "corregidores," prosecutors,
mayors, health, education and labor officials, and NGOs. At
the forum, MINJUMFA distributed 300 copies of the new
anti-TIP law and anti-TIP publicity materials, a thousand
press packets, and other publicity.
32. (SBU) Throughout 2004 the PTJ Sex Crimes Unit and its
Sexual Exploitation Section conducted informal education
sessions at schools and universities specifically discussing
trafficking and related crimes. The PTJ also publicized the
March 2004 anti-TIP law and the creation of the Sexual
Exploitation Section (reftel H). The PTJ worked with the ILO
to design anti-TIP information for its victim center.

33. (SBU) To address the issue of child domestic labor, an
ILO/IPEC pilot project created a provincial sub-committee
composed of local government and civil society to raise
awareness and address child domestic labor. The program
included radio spots about child domestic labor. The pilot
program succeeded in removing approximately 130 girls from
child domestic labor in less than a year and the First Lady
hopes to extend the program throughout the country. The
regional sub-committe took innovate steps, such as arranging
for a local bus transportation company to verify that girls
traveling to Panama City had work permits (reftel B).

34. (U) The Sex Crimes Prosecutors in the Attorney
General's Office promoted the new anti-TIP law throughout the
year on TV and radio programs and during anti-TIP launch
events. The Attorney General's Office conducted a public
awareness campaign in January and February 2005 in the weeks
prior to the carnival holidays to make citizens and the media
aware of the new anti-TIP law. The campaign aimed to prevent
the commercial sexual exploitation of minors and child
pornography at Carnival festivities, particularly
photographing undressed minors. The Attorney General's
office included anti-TIP information (such as Carnival
awareness information and the Attorney General's remarks at
anti-TIP events) on it's excellent website.

DOES THE GOVERNMENT SUPPORT OTHER PROGRAMS TO PREVENT
TRAFFICKING? (E.G. TO PROMOTE WOMEN'S PARTICIPATION IN
ECONOMIC DECISION-MAKING OR EFFORTS TO KEEP CHILDREN IN
SCHOOL). PLEASE EXPLAIN.

35. GOP sponsors a number of programs through MINJUMFA, and
the Ministries of Health, Labor, and Education (reftel B).
These programs range from increasing access to education for
child workers; anti-drug, HIV and Safe Sex awareness; income
generating projects for families; and combating violence
against women. NGOs and other international organizations
sponsor similar campaigns.

IS THE GOVERNMENT ABLE TO SUPPORT A PREVENTION PROGRAM?

36. The GOP has been able to support a limited campaign due
to lack of funding. The Attorney General's Office and
MINJUMFA have submitted anti-TIP prevention proposals (reftel
C). CONAPREDES, the new anti-TIP commission, is charged with
creating a fund from a special tax to support prevention
efforts, which Embassy estimates will be fully functional by
the end of 2005 (reftel C).

WHAT IS THE RELATIONSHIP BETWEEN GOVERNMENT OFFICIALS, NGOS,
OTHER RELEVANT ORGANIZATIONS AND OTHER ELEMENTS OF CIVIL
SOCIETY ON TRAFFICKING ISSUE?

37. (SBU) The GOP (particularly MINJUMFA, prosecutors, and
investigators) relation with the ILO/IPEC is good. The
Immigration Directorate has been extremely active with the
International Organization for Migration (OIM) in 2004-2005,
presiding over the IOM until November 2004 and receiving two
anti-TIP training seminars. The Ombudsman's Office has a
special network which helped design and pass the March 2004
anti-TIP law. This network includes civil society and
representatives from the executive, legislative, and judicial
branches. With the installation of the anti-TIP commission
in February 2005, the GOP further institutionalized this
relationship at a policy and technical level because the
commission includes government and civil society members
(reftel I). USG-GOP relations continue to be outstanding.
DOES THE GOVERNMENT ADEQUATELY MONITOR ITS BORDERS? DOES IT
MONITOR IMMIGRATION AND EMIGRATION PATTERNS FOR EVIDENCE OF
TRAFFICKING? DO LAW ENFORCEMENT AGENCIES RESPOND
APPROPRIATELY TO SUCH EVIDENCE?

38. (SBU) The Immigration Directorate continued to increase
its efforts to stem the flow of illegal migrants to and
through Panama. While illegal foreign sex workers have not
identified themselves as TIP victims, Immigration does track
the number of sex workers they deport. DHS/ICE works closely
with Panamanian Immigration on detection and investigation of
alien smuggling and TIP. The SAN and SMN also conduct
interdictions based on intelligence received. The
overwhelming majority of those persons arrested are being
voluntarily smuggled and not trafficked.

IS THERE A MECHANISM FOR COORDINATION AND COMMUNICATION
BETWEEN VARIOUS AGENCIES, SUCH AS MULTI-AGENCY WORKING GROUP
OR TASK FORCE? DOES THE GOVERNMENT HAVE A TRAFFICKING IN
PERSONS TASK FORCE?

39. (SBU) There are several mechanisms for communication
among various agencies and between the GOP and civil society.
The March 2004 anti-TIP law created an anti-TIP commission
(CONAPREDES). The Attorney General convoked CONAPREDES in
February 2005 (reftel G), institutionalizing TIP policy and
technical coordination regarding TIP for most relevant GOP
ministries and agencies. Although the Ministry of Foreign
Affairs (MFA) is not a CONAPREDES member, the Attorney
General's Office coordinates with the MFA. For example, at
the MFA's request, the Attorney General's office invited MFA
representatives to the DOJ-sponsored TIP training for
CONAPREDES on March 7-9. Training participants created a
draft operations manual as a point of departure for
increasing coordination.

40. (SBU) In March 2004 under the Moscoso Administration,
the MOGJ created an ad-hoc Inter-Institutional Commission to
Fight Trafficking in Persons (reftel B). As a result of an
inquiry from the IOM at its February 2005 training seminar
for MOGJ's Immigration Directorate, the Torrijos
Administration's MOGJ is studying whether the ad-hoc
Inter-Institutional Commission fulfilled its mandate or
should be reconvened. The Ombudsman's Office also has a
special network that includes civil society and executive,
legislative, and judicial branch officials (para 37). The
GOP Ministries also work together on prevention, protection,
and prosecution on an ad-hoc basis.

DOES THE GOVERNMENT HAVE A PUBLIC CORRUPTION TASK FORCE?

41. (U) In October, the GOP created the National Council
for Transparency, headed by an Anti-Corruption Secretary with
the rank of Vice-Minister (reftel F, J). The Attorney
General's Office has an anti-corruption prosecutor. The
Ministry of Economics and Finance has an office that conducts
special audits at the Minister's request.

DOES THE GOVERNMENT COORDINATE OR PARTICIPATE IN
MULTINATIONAL OR INTERNATIONAL WORKING GROUPS OR EFFORTS TO
PREVENT, MONITOR, OR CONTROL TRAFFICKING?

42. (U) GOP was very active with the IOM on alien smuggling
and anti-TIP programs in 2004-2005 (para 37). In December
2004, Panama hosted the International Law Enforcement Academy
Key Leaders Conference in which regional law enforcement
heads discussed TIP extensively. Panama also worked
multilaterally on TIP at the Security Commission of Central
American Integration and the Meeting of the Joint Task Forces
in El Salvador. GOP coordinates border control with
neighboring countries through Immigration and PNP. The GOP
has bilateral exchange information agreements with Ecuador,
Colombia, and Mexico. The MOGJ's Office of Mutual Legal
Assistance handled international requests for judicial
assistance in TIP cases. GOP and the Government of Colombia
(GOC) have a border security working group for Darien
Province. In March 2004, PNP Secretary General Luis Benitez
Aponte presented a paper on TIP at the Ordinary Meeting of
the Commission of Heads of Police of Central America and the
Caribbean. PTJ and PNP receive intelligence from Interpol on
TIP cases. (NOTE: Embassy believes GOP would support and
participate actively in any additional bi-lateral and/or
regional working groups.
End Note.)

DOES THE GOVERNMENT HAVE A NATIONAL PLAN OF ACTION TO ADDRESS
TRAFFICKING IN PERSONS? IF SO, WHICH AGENCIES WERE INVOLVED
IN DEVELOPING IT? WERE NGOS CONSULTED IN THE PROCESS? WHAT
STEPS HAS THE GOVERNMENT TAKEN TO DISSEMINATE THE ACTION
PLAN?

43. (SBU) The GOP's national action plan to address
trafficking in persons was institutionalized in March 2004
with the new anti-TIP law, which contains prosecution,
prevention, and enforcement provisions. The Attorney
General's office introduced the bill which received input
from the Ombudsman's intergovernmental/civil society network
on this issue. The law called for the creation of a Sexual
Exploitation Section within the PTJ. The law also created
CONAPREDES, which includes civil society members (para 12,
16, 36, 39, 44) The PTJ, the Attorney General's office, and
MINJUMFA, have conducted prevention activities to distribute
the new law (reftels B, C, H; para 29-34). The GOP conducted
a training seminar in Panama City and Veraguas Province to
train the PTJ in the new law (reftel B).

IS THERE SOME ENTITY OR PERSON RESPONSIBLE FOR DEVELOPING
ANTI-TRAFFICKING PROGRAMS WITH THE GOVERNMENT?

44. (SBU) CONAPREDES is responsible for studying the
prevention and eradicat

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