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Cablegate: Monitoring Report On Ethiopia G/Tip Program

VZCZCXYZ0000
PP RUEHWEB

DE RUEHDS #2314/01 2710521
ZNR UUUUU ZZH
P 280521Z SEP 09
FM AMEMBASSY ADDIS ABABA
TO RUEHC/SECSTATE WASHDC PRIORITY 6302
INFO RUEAWJA/DEPT OF JUSTICE WASHINGTON DC PRIORITY
RUEHC/DEPT OF LABOR WASHINGTON DC PRIORITY

UNCLAS ADDIS ABABA 002314

SIPDIS
SENSITIVE

STATE FOR G/TIP RACHEL YOUSEY AND MARK FORSTROM
PASS TO USAID

E.O. 12958: N/A
TAGS: KTIP SMIG PHUM ASEC ELAB KWMN PREL EAID ET
SUBJECT: MONITORING REPORT ON ETHIOPIA G/TIP PROGRAM

REF: A. 08 STATE 104394
B. ADDIS ABABA 47

1. (U) This cable provides monitoring information, requested
ref A, to the Office to Monitor and Combat Trafficking in
Persons (G/TIP) to evaluate the effectiveness of G/TIP's USD
324,000 grant to Project Concern International (PCI). PCI's
used the funds to support the Government of Ethiopia (GoE) to
identify and assist TIP victims and to prevent and prosecute
TIP. The project began July 17, 2008 and will conclude July
17, 2010. As of August 31, 2009, PCI's expenditures for this
project totaled USD 103,274, or 32 percent of the total
grant. (Note: This represents a significant increase in
initially slow spending of only 1 percent of the total grant
at the 5.5 month mark, per Ref B. End note.) PCI
anticipates that by September 30, 2009, it will have spent 50
percent of the total grant, and notes that based on the
project agreement, 7 percent of the grant is reserved for
final evaluation.

2. (U) PCI Country Director Walleligne Alemaw and PCI TIP
Project Manager Aytenew Meheret briefed PolOff on PCI's
activities under the G/TIP grant during a September 9, 2009
site visit and subsequent correspondence.

3. (U) Grantee's general activities to meet the goals and
objectives of the grant proposal: Under the terms of the
G/TIP grant, PCI committed to improving the delivery of
victim protection and assistance services for both children
and adults and to increasing prosecutions in Ethiopia of
human trafficking perpetrators. By the end of the two-year
funding cycle, PCI also seeks to have improved cooperation
and coordination among key anti-TIP stakeholders, such as
civil society organizations (CSOs), non-governmental
organizations (NGOs), and the GoE.

4. (U) Between January 16 and September 9, 2009, PCI scaled
up its activities and overcame a number of the challenges
reported in Ref B. In late January, after months of lobbying
the Ministry of Justice to approve its sub-grantee
agreements, PCI signed a sub-grant agreement with the
Multi-Purpose Community Development Project (MCDP), an
Ethiopian NGO working in the Southern Nations, Nationalities,
and Peoples (SNNP) Region of Ethiopia. With technical advice
from, and in cooperation with PCI, MCDP established numerous
"Child Protection Committees" and "Child Clubs" in SNNP, and
provided TIP awareness and prevention training to 879 club
members. In addition, MCDP provided basic business skills
training to 89 members identified as at-risk for TIP, and
established two savings and credit cooperatives, both with
the aim of reducing members' vulnerability to TIP by
increasing their economic well-being in their own
communities. MCDP also operates a temporary shelter for TIP
victims in SNNP, and intercepted 23 trafficking victims
during the reporting period (mainly children being trafficked
within SNNP).

5. (U) PCI also signed a consultancy service agreement with
Empire Consult, an Addis-based consulting firm with TIP
experience from South Africa, to draft a handbook on the
protection of trafficking victims and management of
traffickers, and to jointly conduct a series of Anti-TIP
workshops with PCI throughout the country. An English
version of the 201-page handbook has now been drafted and
will be published in the coming month. Based on feedback
from workshop participants, PCI is considering translating
the handbook into Amharic. (Note: PolOff strongly
encouraged PCI to publish an Amharic version of the handbook,
as the majority of TIP victims in Ethiopia come from rural
areas where English is not widely spoken. End note.) The
handbook provides background on the nature and causes of TIP,
detailed information on international and Ethiopian laws
pertinent to TIP, strategies for preventing TIP,
recommendations for the treatment of TIP victims, and
government and NGO TIP case management. PCI has utilized the
handbook to conduct three workshops with a total of 77
participants (36 government and prosecutors, 17 police, 11
Child Protection Committee members, and 13 NGO), in Addis
Ababa, SNNP, and Amhara. Recognizing the critical role that
judges, prosecutors, and police play in prosecuting and
preventing TIP, and the relative unfamiliarity with TIP of
many of these professionals in Ethiopia, PCI plans to host
workshops for 1,000 legal professionals in the next 10
months, utilizing the training materials it has developed.

6. (U) In July, PCI signed a sub-grant agreement with the
Justice Professionals Training Center (JPTC), which is
operated by the Supreme Court to train judges and
prosecutors, to train 120 legal professionals on TIP. PCI
has granted the JPTC full rights to use and modify the TIP
handbook it produced, and is encouraging the center to adopt
all the training materials it has provided into its standard
curriculum.

7. (SBU) Special issues or problems the grantee has
encountered: The GoE's interministerial task force on TIP
has not met since June 2007, and PCI has not been able to
convene the task force or assist in coordinating its
functions. PCI has had limited success working with the
Federal Police, Ministry of Labor and Social Affairs, and
Ministry of Women and Children's Affairs, and has therefore
been unable to meet many of its project objectives related to
building the government's capacity to combat TIP and
improving intra-government and government-civil society
cooperation. Participants in each of the three training
sessions conducted to date noted the importance of involving
these senior government officials who are capable of
implementing the recommendations made in the training on a
larger scale. Interaction with the Federal Police may
improve through PCI's recent agreement with the JPTC, but PCI
has not developed plans for lobbying other ministries.

8. (SBU) PCI's operating context, sustainability of grantee
activity: Despite resource constraints, the GoE is committed
to combating the international trafficking of Ethiopian
nationals. In contrast, it has done very little to combat
internal trafficking, and many Ethiopians (including police
and government officials) do not consider internal
trafficking a major problem. Interagency coordination has
not been strong, as evidenced by the failure of the
interministerial task force to meet in over two years. Most
NGOs with anti-TIP programming are under-funded, and there is
still a lack of awareness regarding TIP amongst working-level
public and private actors. PCI has not identified funding to
continue its TIP programming once G/TIP funding has been
exhausted. However, many of its activities, including
production of Ethiopia-specific training materials (which
will hopefully be made available in Amharic), awareness and
capacity building amongst government, non-governmental, and
community organizations, and training of legal professionals,
will enable PCI's partners to continue anti-TIP programming
in the future.

9. (U) Grantee's capacity and qualifications for its current
activities and location: PCI has more than 30 years of
experience managing grants, contracts, and cooperative
agreements from USAID in a variety of countries, and has the
requisite familiarity with U.S. Government reporting
procedures. In Ethiopia, PCI has firmly established itself
as a leading voice in the network of anti-TIP NGOs, and
enjoys positive working associations with nationally and
internationally recognized NGO stakeholders. Via its
relationship with MCDP, PCI has established a significant
presence in the SNNP region, and is successfully conducting
training in other regions of the country as well. PCI has not
directly hired staff for its TIP project beyond the Project
Manager; its sub-grantees develop and provide training with
his assistance and supervision. PCI's Country Director,
Regional Director, and Senior Technical Officer provide
managerial support, oversight, and technical assistance.

10. (U) Recommendations for G/TIP grantee assistance:

-- Encourage PCI to further develop its relationship with the
JPTC, as well as with the Federal Prosecutor's Office (which
prosecutes the vast majority of TIP cases) and Federal
Police, and to meet its goal of training 1,000 legal
professionals in the next 10 months.

-- Support PCI's efforts to convene the interministerial task
force, and to lobby senior GoE officials to enact policies
and allocate resources to support the anti-TIP work being
done by working level government offices and civil society.

-- Encourage PCI to translate its handbook and all training
materials into Amharic, and to offer workshops solely in
Amharic, particularly outside of Addis Ababa.

11. (SBU) How the activities address key deficiencies in
Ethiopia's anti-TIP work: To improve victim protection and
assistance, PCI must work with government and NGO actors to
allocate further resources to and promote awareness of
anti-TIP measures. PCI has demonstrated its ability to work
with judges, prosecutors, and police to improve the
prosecution and prevention of trafficking in Ethiopia, and
has a solid goal of training 1,000 additional legal
professionals and working with the JPTC to train even more.
As prosecution of TIP has been a weakness for the GoE, this
attention addresses a key deficiency.

12. (SBU) Summary of the grantee's overall performance: PCI
has both the national and international reputation to carry
out its anti-TIP work in Ethiopia. The PCI and sub-grantee
staff in place are knowledgeable of the issues presented by
their working environment, and are building strong
relationships with both government and civil society actors.
PCI has significantly scaled up its anti-TIP programming,
accomplished a great deal during the reporting period, and is
primed to accomplish more in the coming year. It is unclear
if PCI will be able to sustain its anti-TIP work, based on
its inability to identify future funding for the project.
MEECE

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