US embassy cable - 04MAPUTO284

UNCLAS SECTION 01 OF 04 MAPUTO 000284 
 
SIPDIS 
SENSITIVE 
STATE FOR G/TIP; G; DRL; PRM; IWI; AF/RSA 
DEPT PASS TO USAID 
E.O. 12958: N/A 
TAGS: ASEC, ELAB, KCRM, KFRD, KWMN, PHUM, PREF, SMIG, MZ, Trafficking in Persons 
SUBJECT: 2003 TRAFFICKING IN PERSONS REPORT FOR MOZAMBIQUE 
 
REF: STATE 007869 
 
1. (SBU) OVERVIEW. 
A- Mozambique is a country of origin for internationally 
trafficked women and children. Trafficking is also believed 
to occur within the country. There are no reliable numbers 
available on the extent of the problem. Poverty, a history of 
child migration, cultural/religious practices, and weak 
border controls are all factors contributing to trafficking. 
Local NGOs and international organizations such as IOM, Terre 
des Hommes, and UNICEF are the principal sources of 
information on trafficking. Children, both boys and girls, 
and women are the principal victims of trafficking. During 
2003, there was increased attention in the local press and 
among government officials to the problem of trafficking in 
persons in Mozambique. Several reports, including a May 2003 
study by the International Organization on Migration (IOM) on 
trafficking in women and children for sexual exploitation in 
Southern Africa and a South African Broadcasting Corporation 
(SABC) program "Special Assignment" provided important 
documentary evidence of specific cases of trafficking in 
Mozambique. Allegations of trafficking appeared regularly in 
the Mozambican press. In early 2004, the Attorney General's 
office undertook an investigation in northern Mozambique 
(Nampula) over allegations of trafficking in human body parts 
and child disappearances. A preliminary report released in 
February found no evidence of organ trafficking. During his 
New Year's address, President Chissano referred to reports of 
alleged cases of trafficking in children. 
B- Research by both IOM and Terre des Hommes indicate that 
South Africa is the principal receiving country for 
trafficked persons from Mozambique. Victims come from all 
regions of the country and internal migration is common. 
C- Until recently, allegations of trafficking were most 
pronounced in the southern region of Mozambique. However, 
during 2003, there were allegations of trafficking in the 
central province of Manica and the northern province of 
Nampula. The case under investigation by the Attorney 
General's office in Nampula focused on allegations against a 
foreign couple by a locally-resident Brazilian nun. The 
initial allegations may have been motivated by a dispute over 
land; no evidence has been found to substantiate the 
allegations against the foreign couple. 
D- Several studies, including the report prepared in May 2003 
by IOM, and various studies by NGOs were conducted during the 
year. These studies have provided important documentary and 
anecdotal evidence of trafficking activities. According to 
the IOM study, approximately 1,000 Mozambican women and 
children are trafficked to South Africa every year. To date, 
there has not been a broad survey of trafficking and official 
statistics on trafficking do not exist. Mozambican NGOs 
working on trafficking in persons are planning a meeting for 
early 2004 to coordinate efforts on this issue. 
E- Not applicable. 
F- Populations targeted include children from the northern 
and central part of Mozambique and women and girls from the 
southern part of the country. Victims may work as both sex 
workers and non-sex workers. Victims are often promised 
better jobs in South Africa. Once there, they are threatened 
with their legal status and forced to work for little or no 
pay. Local NGOs have also reported that children have been 
targeted for the sale of their organs for use in religious or 
traditional practices. According to the IOM report, 
Mozambican women are also sold to brothels in South Africa or 
as concubines or "wives" to mine workers. Recruitment may be 
either passive or aggressive and victims may know their 
traffickers. 
G- Political will appears to exist and trafficking is 
acknowledged as a problem at the highest levels of the 
government. As noted above, President Chissano has expressed 
his concern over reports of alleged cases of trafficking in 
children. Another important indication of the government's 
acknowledgment of the problem was the Attorney General's 
investigation into allegations of trafficking in Nampula 
earlier this year. The government has continued to 
participate in the multi-sectoral Campaign against 
Trafficking in Children. In September, the government in 
conjunction with several NGOs launched a program to enhance 
children protection laws, including the development of 
legislation covering trafficking in children. 
H- There is no evidence that government authorities actively 
facilitate or condone trafficking. However, corruption is a 
problem among police and customs officials and NGOs believe 
that customs officials are likely to be bribed by 
traffickers. No government officials have been accused, 
investigated, etc. of trafficking. 
I - Limited financial and technical resources and weak 
institutions, including the police and judiciary, are 
constraints to the government's ability to address 
trafficking. Corruption among police and immigration 
officials is a problem due to underfunding and lack of 
professionalism. In addition, there is limited research and 
statistical information on trafficking. Mozambique is heavily 
dependent on the international donor community for budget 
support and does not have its own funds to combat trafficking. 
J- There are no publicly released assessments by the 
government of anti-trafficking efforts. However, the GRM is 
part of SARPCO, a forum for cooperation between police forces 
in the region. Trafficking in persons is addressed 
regionally through this forum. NGOs actively monitor and 
report on government efforts. 
K - Prostitution is illegal in Mozambique. However, 
activities of prostitutes, brothel owners, clients, and pimps 
are not criminalized. There are reports that police harass 
and abuse prostitutes, principally to extort money. 
L - Not applicable. 
 
2. (SBU) PREVENTION. 
A- The government acknowledges that trafficking is a problem. 
See above (parts A and C). 
B- Principal ministries/agencies involved in anti-trafficking 
efforts are the Ministry of the Interior, Ministry of 
Justice, Ministry of Women and Social Action Coordination and 
the Attorney General's Office. All participate in the 
Campaign against Trafficking in Children. 
C- The Campaign against Trafficking in Children consists of 
NGOs, international organizations, and government 
representatives. Since the kickoff in 2001, it has conducted 
activities such as public awareness, training of journalists, 
workshops for children, and training of police officers. The 
press actively reports on trafficking issues, both in general 
and related to trafficking in organs. The government has 
actively responded to allegations in the press through 
investigations and public statements. One recent example was 
the investigation by the Attorney General's office in 
Nampula. 
D- The government has a number of programs aimed at 
supporting the position of women and children in Mozambican 
society that are coordinated through the Ministry of Women 
and Social Action Coordination, though these programs 
generally do not focus on anti-trafficking. Programs 
implemented through the Campaign are often focused on 
vulnerable groups such as women and children. 
E - The government's ability to support prevention programs 
is limited due to a lack of financial and technical resources. 
F - Coordination and information sharing among government, 
NGOs and international organizations could be improved. A 
representative from the local NGO FECIV is currently seconded 
to the Ministry of the Interior to work on trafficking 
issues. 
G- Border controls remain weak and inadequate. There is no 
formal monitoring of borders for evidence of trafficking and 
illegal migration from Mozambique to South Africa has 
historically been a problem. 
H- There is a mechanism for coordination and communications 
between various government agencies on drug trafficking. The 
government does not have a formal task force on trafficking 
in persons, though there is an ad hoc inter-ministerial 
committee. 
I- The government works with INTERPOL on criminal matters, 
though there have been no specific cases on trafficking from 
Mozambique addressed through this mechanism to date. 
J - The government does not have a national plan of action on 
trafficking, though inter-ministerial groups do exist and 
they are involved in the Campaign against Trafficking in 
Children. 
K- Several ministries are involved in anti-trafficking 
programs, including the Ministry of Interior, Ministry of 
Justice, and the Ministry of Women and Social Action 
Coordination. 
 
3. (SBU) INVESTIGATIONS/PROSECUTION OF TRAFFICKERS. 
A- Specific anti-trafficking legislation does not currently 
exist. The Ministry of Justice, in conjunction with the 
Ministry of Women and Social Action Coordination and civil 
society are in the process of developing new legislation on 
child protection, including anti-trafficking legislation for 
children. Depending on the case, traffickers can be 
prosecuted using laws on sexual assault, rape, abduction, and 
child abuse. 
B- Not applicable. 
C- Penalties for rape or sexual assault range from 8-12 
years. 
D- The government has not prosecuted any cases against 
traffickers due to the lack of a trafficking law. As noted 
above, traffickers can be prosecuted under other laws. In 
2003, two individuals were detained in Manica province 
following evidence of trafficking for the purported sale of 
human organs. These individuals were charged with mutilation 
of a minor and are currently awaiting trial. 
E - NGOs and anecdotal evidence suggest that traffickers 
represent diverse groups ranging from child trafficking 
syndicates to individuals who may also be involved in migrant 
smuggling. Traffickers include Chinese, Russian, Mozambican 
and South African citizens. It is reported that employment 
agencies are fronting for traffickers in the south of the 
country. 
F - The government is increasingly investigating cases of 
trafficking. Recently, the Attorney General's office 
investigated a case of alleged trafficking in organs and 
child disappearances in Nampula. As noted above, this case 
initially targeted a foreign couple; no evidence was found 
that linked the couple to trafficking activities. The 
government has had difficulty investigating trafficking cases 
due to lack of knowledge about trafficking, as well as a lack 
of investigative capacity, including trained police officers 
and adequate investigatory equipment. 
G - Training for police officers has been conducted by NGOs. 
Pilot police stations have been established in 3 provincial 
capitals with special officers who have been trained on 
dealing with victims of trafficking. 
H - The Government cooperates through SARPCO on various types 
of crime, but details on specific investigations are 
unavailable. 
I- The government can extradite persons who are charged with 
trafficking in other countries. No extradition requests 
related to trafficking have been requested to date. The law 
does not specifically refer to the extradition of its own 
nationals. 
K - There has been no evidence of government officials being 
involved in trafficking. 
L - The government ratified ILO Conventions 182 and 29 in 
July 2003. Mozambique has not signed nor ratified the 
Optional Protocol to the Convention on the Rights of the 
Child on the Sale of Children, Child Prostitution, and Child 
Pornography, nor the Protocol to Prevent, Suppress, and 
Punish Trafficking in Persons. 
? 
4. (SBU) PROTECTION/ASSISTANCE TO VICTIMS: 
A - The Ministry of Women and Social Action Coordination 
staffs hospitals in all provinces to deal with victims of 
trafficking. Personnel provide short-term assistance to the 
victims, but many in the provinces do not have adequate 
funding to provide more long-term assistance, such as 
housing. 3 pilot police stations in Pemba, Nampula, and 
Lichinga recently were established to train police to deal 
specifically with child victims of trafficking. There are no 
statistics on victims served at such facilities. 
B - The government does not provide funding to NGOs. Most 
NGOs received funding from international donors. 
C - There is no such process in Mozambique yet. 
D - There has been no evidence that victims of trafficking in 
Mozambique have been mistreated by authorities. 
E - Victims may file civil suits and seek legal action 
against traffickers. However, victims generally lack adequate 
funds and/or are intimated about taking legal action. 
F - Government is limited in its ability to provide 
protection to victims and witnesses in any criminal case. 
G - Most training for police officers has come from NGOs, not 
the government. Personnel working for the Ministry of Women 
and Social Action Coordination have limited training on 
dealing with victims of trafficking. The government does not 
provide training to its embassies/consulates on trafficking. 
H - The government, through the Ministry of Women and Social 
Action Coordination, provides short-term support for 
trafficking victims, but is unable to provide much due to 
lack of funding. As noted above, several police stations have 
developed special units to deal with child victims of 
trafficking. Severely limited resources is the principal 
constraint in providing expanded assistance. 
I - The Campaign against Trafficking in Children is in the 
process of establishing a victim assistance center at the 
border post of Ressano Garcia for repatriated child victims 
of trafficking. 
 
5. (U) Post point of contact for G/TIP is Elizabeth Jaffee, 
Economic/Political Officer. 
Telephone: (258) 1 492797 
Fax: (258) 1 490114 
Email: jaffeeee@state.gov 
 
6. (U) Econ/Poloff spent approximately 14 hours preparing 
this report. 
LA LIME