Report. from the national coordinating unit for victims of trafficking. July 2011

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1 Report from the national coordinating unit for victims of trafficking 2010 July

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3 Contents 1. Introduction Annual Report Organisation of the KOM project Achievement of goals by the KOM project The goals for the project Consensus-building and cooperation Mapping Rights, responsibilities and routines Measures carried out by KOM Measures carried out by KOM s cooperation partners Competence development and information measures Measures carried out by KOM Measures carried out by KOM s cooperation partners Guidance and assistance Measures carried out by KOM Measures carried out by KOM s cooperation partners The scope of human trafficking Persons identified as potential victims of human trafficking Reports submitted to KOM regarding persons identified as potential victims of human trafficking in Norway Estimated scope of potential victims of trafficking receiving assistance and protection in Norway Who are the potential victims? Nationality Presumed types of exploitation Children Men Women Developments What happens to those identified as potential victims? Residence permit Housing solutions for victims of human trafficking Facilitating repatriation Prosecution of human trafficking Relevant challenges Appendix

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5 1. Introduction KOM is the abbreviation for Koordineringsenheten for Ofre for Menneskehandel (Coordinating Unit for Victims of Trafficking), a project under the provisions of measure 29 in the Norwegian Government s plan of action to combat human trafficking ( ), Stop Human Trafficking 1. The project started in November 2006 and ran until the end of KOM is responsible for nationwide coordination of the work to assist and protect victims of human trafficking. KOM contributes towards information sharing and development of competence, preparation of identification methods and the planning and mobilisation of offers of assistance and protection. In 2010, NTNU Social Research was commissioned by the Ministry of Justice and the Police, hereinafter referred to as the Ministry of Justice, to evaluate KOM. One of the purposes of the evaluation was to consider the establishment of a permanent coordination unit. 2 The main focus of the evaluation report submitted in May 2010 was an assessment of the KOM project and its future, including future mandate, functions, organisational position and affiliation. The evaluation report highlights the KOM project as an important forum and venue for cooperation, information exchange, networking and skills updating for the different parties that work to combat trafficking. The report also describes the value of KOM as a player with an overview of the human trafficking field. A large majority of the persons interviewed were satisfied with the work achieved by the KOM project. The report also reflects an express wish for KOM to continue. However, a challenge brought out in the report is the discrepancy in the perceptions of the KOM project s focus and responsibilities, and what it means to be operative. The framework for the project and its work, including who KOM is primarily targeting, may appear somewhat unclear. Consequently, the report identifies a need for boundary clarification of work and responsibilities at both horizontal and operational level. As part of the process to decide KOM s future model, the report puts forward the following recommendations: Clarification of who KOM is targeting in the future: victims, helpers, bureaucrats or some or all of these Clarification of KOM s consensus-building at horizontal level Clarification of KOM s role as a superior coordinating, network-building and competence body Clarification of what is meant by the term operative Scope for KOM to engage in individual cases (until further notice), but not have instruction authority or direct user contact On the basis of the evaluation s conclusions and recommendations, the Ministry of Justice decided, in consultation with the ministries concerned, that KOM should continue as a permanent unit, still under the administration of the National Police Directorate. In autumn 2010, the Police Directorate and KOM were given the opportunity to provide input to KOM s future mandate. With effect from 1 January 2011, KOM became a permanent unit, with two employees to run the unit. 1 A new plan of action was issued in December 2010: the Government s plan of action ( ), United against Human Trafficking. 2 Elvegård, Kurt, Dyrlid, Linda and Berg, Berit (2010) KOM today KOM in the future? Evaluation of the coordinating unit for victims of trafficking. Trondheim: NTNU Social Research AS 5

6 Annual Report The KOM project is responsible for the design of this report not individual agencies or organisations represented in the KOM project. The report contains a description of the project s organisation, a review of the goals achieved by the project and the project s evaluation of the trafficking situation in Norway. See Report from the Coordinating Unit for Victims of Trafficking and 2009 for information on results from previous years Organisation of the KOM project The National Police Directorate is responsible for administration of the KOM project, and the project is managed by two employees from the section for organised crime. 4 KOM is an inter-agency project which encompasses a number of agencies. The project reports to a steering committee comprising the National Police Commissioner and the Ministry of Justice s coordinator for the Government s plan of action against human trafficking. KOM is also represented in the police force s national group of experts on human trafficking. KOM is an arena for exchange of experience, cooperation and coordination between competent agencies and NGOs. During the project period, KOM organised two groups a project group and a reference group. Both groups held separate monthly meetings and a six-monthly joint meeting. In 2010, the project group comprised representatives 3 KOM (2009) Report from the Coordinating Unit for Victims of Trafficking Oslo: National Police Directorate and KOM (2010) Report from the Coordinating Unit for Victims of Trafficking 2009, Oslo: National Police Directorate. The reports can be ordered by sending an to KOM.pod@politiet.no 4 Between August and December 2010, the project was managed by just one employee in the section for organised crime. from the Norwegian Directorate of Immigration (UDI), the Directorate of Integration and Diversity (IMDI), the Norwegian Directorate for Children, Youth and Family Affairs (Bufdir), the Norwegian Labour and Welfare Service (NAV), the Norwegian Directorate of Health (Hdir), the National Police Directorate (POD), the Equality and Antidiscrimination Ombud (LDO), the Norwegian Labour Inspection Authority, higher prosecution authorities, Kripos, the National Police Immigration Service and Hordaland and Oslo Police District. The project group was also joined by representatives from the local inter-agency operative teams (IAOTs) in Bergen, Trondheim, Stavanger, Kristiansand and Oslo. The mandate of the members of the project group was to map the framework and routines for inter-agency cooperation for identification, assistance and protection at central, regional and local levels, and to implement measures to improve such coordination. It was also the task of the project group to procure an overview of the victims rights, available means of support and contact persons nationwide. In 2010, the KOM project s reference group comprised representatives from all organisations and projects involved in daily efforts to combat human trafficking. The reference group was open to any entity wishing to make an active contribution, and the following organisations were represented: the Advocacy Organisation for Prostitutes in Norway (PION), the International Organization for Migration Oslo (IOM), the Church City Mission, the Salvation Army Norway, the Pro Centre, the ROSA project for female victims of trafficking, Norwegian Red Cross, Norwegian Red Cross Youth, Grünerløkka social service, the Adora project providing education for women involved in the ROSA project, the Norwegian Confederation of Trade Unions (LO), the Norwegian Association for Outreach Work with Youth (LOSU), Hvalstad reception centre for unaccompanied minor asylum seekers and the Norwegian Bar Association. The idea was that the reference group would function as a professional forum for discussion among those involved in combating human trafficking, an important task being to provide input to the project group in the form of relevant problems and topics. 6

7 2. Achievement of goals by the KOM project The Norwegian Government s original commission for the KOM project is stipulated in measure no. 29 of its Plan of Action to Combat Human Trafficking ( ) Stop Human Trafficking: This unit will be administered by the Directorate of Police and will assist the welfare services by providing methods for identifying victims and for planning and mobilising assistance and protection services for victims of human trafficking. The Coordinating Unit (...) will also contribute to the development of information and human resources in the field of human trafficking. 5 Although this plan of action expired in 2009, the KOM project also worked under the same commission in The goals for the project The project plan, which was written and approved by the steering committee in March 2007, stipulates that the principal goals for the KOM project are to help reduce the occurrence of human trafficking in Norway in the long term, and more specifically to contribute towards reducing: The occurrence of criminal networks involved in human trafficking in Norway. The number of persons recruited for human trafficking in Norway. The number of persons exploited by human trafficking in Norway. Utilisation of Norway as a transit country for human trafficking. 5 The Norwegian Government s Plan of Action to Combat Human Trafficking ( ) Stop Human Trafficking, page 22. The KOM project will contribute towards these goals by working towards the following objectives: Increasing the number of persons who are identified as potential victims of human trafficking in Norway reduce the hidden numbers. Increasing the number of identified victims who are offered, and choose to accept, assistance and protection and to cooperate with the police. Increasing the exchange of information, knowledge and competence among the municipal and regional support groups and relevant organisations with regard to human trafficking and the situation of victims. Improving the efficiency of resource utilisation in the police force in terms of detection and prosecution of the criminal networks responsible for human trafficking. Improving the efficiency of resource utilisation among the agencies working to assist and protect victims of human trafficking. The project will achieve the above objectives by implementing the following measures: Establishing an inter-agency project group and preparing and solidifying the cooperation agreement for the group members. Mapping the framework and routines for inter-agency cooperation on identification, assistance and protection at central, regional and local levels, and implementing measures to improve their coordination. Coordinating existing routines and developing new ones as required. Mapping the nature and scope of persons identified as potential victims of human trafficking in Norway. Preparing a system for identification, reporting and registration of victims and the type of follow-up provided for victims. Compiling an overview of the victims rights in relation to different types of residential status and an overview of available support measures and competent agencies/ contact persons nationwide. Accumulating experience from the work of the agencies on specific cases, and preparing a set of guidelines for interagency cooperation on the identification and follow-up of victims. 7

8 Contributing to knowledge and development by developing information material, giving talks and providing continuous assistance on specific cases. Initiating the establishment of inter-agency operative teams (IAOTs) to combat human trafficking in the six major Norwegian cities during the project period. In addition, if agreed by the project group and project owner, the project was also able to encompass other issues and measures relevant to the work. 2.2 Consensus-building and cooperation Five KOM project group meetings and five KOM reference group meetings were held in In addition to the ordinary meetings, one joint meeting for the KOM project was also held. The joint meetings are two-day cooperation meetings for the KOM project and reference group participants, with the opportunity to invite colleagues. The aim of the joint meetings is to make representatives of the agencies and organisations more familiar with each other s responsibilities and tasks. The joint meetings also provide an opportunity to intensify efforts towards the development of tools and indepth discussion of complex subjects. The main topic of the KOM joint meeting in May 2010 was principles for information sharing between agencies and organisations, including duty of confidentiality and duty to disclose information. The two groups also met in November 2010 in connection with the visit of the US activist Aaron Cohen, who gave talks on his activities to combat exploitation and trafficking in women and children. Throughout 2010, the representatives in the project and reference groups collaborated on clarifying issues, informing agencies and organisations, giving guidance in individual cases and participating in various seminars and meetings. Information on problems and challenges discussed by the two groups was forwarded to the project s steering committee and the inter-ministerial group during the year. 2.3 Mapping KOM is responsible for mapping the nature and scope of persons identified as potential victims of human trafficking in Norway. In order to fulfil this role, a national system for identification, reporting and registration of victims must be established. To achieve a centralised overview of the nature and scope of potential victims of human trafficking, all agencies and organisations must provide reports on individuals. This represents challenges in terms of duty of confidentiality, protection of privacy regulations and directives for data records. 6 The KOM project has used the same report template for reporting in 2010 as the one used in The report template allows comparison of anonymised data and forms the basis for analysis of the nature and scope of potential victims of human trafficking in chapter Rights, responsibilities and routines Measures carried out by KOM The aims of the KOM project are to implement measures which contribute towards strengthening and improving the efficiency of inter-agency cooperation, and to ensure that all support offered to potential victims is coordinated, predictable and individually adapted. In order to achieve these aims, the KOM project must map 6 See Report from the Coordinating Unit for Victims of Trafficking for more detailed information on the challenges presented by joint reporting and overview. 8

9 out frameworks and routines for inter-agency cooperation on identification, assistance and protection at central, regional and local levels and initiate measures to improve their coordination. The project must also take the initiative to coordinate existing routines and develop new ones as required. If the legal framework governing the agencies and organisations obstructs the required level of cooperation, this shall be reported to the inter-ministerial group. The majority of challenges have been resolved by the competent agencies establishing or adjusting their own procedures. However, other challenges have required the KOM project to highlight needs and request assistance from the ministries involved. In 2010, several challenges and questions of principle were discussed in the KOM network, the most important of which the KOM project sent to the ministries either for information or with a request to accommodate different measures. In December 2010, the Ministry of Justice completed its Instructions on residence permits for witnesses in cases relating to human trafficking, etc., GI-31/2010. The instructions make it clear that: (i) in some cases there may be exceptions to the general rule that testimony must be submitted to the court if the alien has made a statement to the police; (ii) it is not an absolute condition that a prosecution for trafficking must be made in the particular case; and (iii) it is not an absolute condition that the witness himself is the aggrieved party in the particular case. On several occasions in 2010, the KOM project made a contribution to the Ministry s work on its new witness instructions Measures carried out by KOM s cooperation partners Several agencies and organisations reported to KOM on measures relating to development of routines and regulations in Directorate of Immigration (UDI) The Directorate of Immigration has worked to develop and revise guidelines for processing cases involving human trafficking. Directives regarding the immigration administration s responsibility to facilitate identification and follow-up of potential victims of trafficking and guidelines for interviews with potential victims of trafficking have been put out for external comments. The Asylum Department has developed an internal report on processing questions about human trafficking in asylum cases and a set of interview guidelines. The Department for Regions, Reception and Return has revised the procedure description from and drawn up a directive for operators of government reception centres. The directive contains requirements for the work on combating human trafficking and the follow-up of potential victims in reception centres. The departments representatives in the UDI s human trafficking groups all contributed to the drafting of the guidelines. The directives were completed at the end of June The Directorate of Immigration also works continuously to improve internal procedures in the area of reporting and internal and external cooperation, both in terms of following up individual cases and on a general level. Directorate for Children, Youth and Family Affairs (Bufdir) Bufdir reported to KOM that in 2010 its regions established plans for the further development of housing measures for victims of human trafficking who are minors. These will be further concretised in An inter-agency operative team has also been established in Region East. The inter-agency operative team in Bergen arranged a meeting between the county board chairman and the police EXIT group to clarify the use of certain provisions in the Child Welfare Act. Directorate of Health In 2010, the Directorate of Health revised its guideline IS- 1022, Health services provided to asylum seekers, refugees and persons reunited with their families. The guideline s main 7 Procedure for reporting and follow-up when there are reasons to believe that asylum seekers at an asylum reception centre are victims of human trafficking, 14 March The directives can be downloaded from 9

10 target group is health professionals in the municipality, although it is also used in specialist health services, as well as by participants in other sectors with which the health service cooperates. Human trafficking was one of the subjects introduced in the new guideline. 9 Stavanger IAOT Stavanger reports that the City of Stavanger and the police, in cooperation with the Albertine Church City Mission, focused on following up Stavanger s plan Stop Human Trafficking Plan of Action for Stavanger Police Station and the City of Stavanger At the end of the period, it was proposed that a mutually binding agreement be entered into between Stavanger police station/rogaland police district, the City of Stavanger (IAOT coordinator, child welfare services, refugee section, municipal health services and shelter) and the Church City Mission from 2011 onwards. In the area of operative assistance work, the municipality plans to organise two teams, one for persons under 18 and one for persons over 18. Rogaland police district is currently working to determine optimal organisation of the cooperation against organised crime in the form of human trafficking. Hordaland Police District/EXIT Project In 2010, Hordaland police district/exit project continued its productive cooperation with the Church City Mission (project: FREE), the KOM project, the ROSA project and City of Bergen Outreach Service, legal aid lawyers, legal guardians and the Red Cross. In 2010, Hordaland police district once again topped the statistics for the number of convictions under section 224 of the General Civil Penal Code. The EXIT project also had several cases under investigation where children were presumed victims of exploitation in human trafficking in (See chapter 3, section 3.2.) Kripos (National Criminal Investigation Service) Kripos worked to map and draw attention to the sex advertising market in Efforts were also directed towards finding technical solutions that make it possible to analyse the advertising traffic in a practical way. In 2010, Kripos also engaged in dialogue with the Directorate of Immigration on the provision of complete lists of unaccompanied minor asylum seekers who disappear from reception centres, with the aim of mapping potential human trafficking cases. The privacy provisions of the Public Administration Act have made this information sharing from the Directorate a challenge, but the parties are working to find a solution to this problem. Oslo Police District/STOP Project The STOP project had the following principal goals for 2010: reduction of the prostitution volume and incidence of trafficking through further investment in Operation homeless 10, measures to combat economic crime in the West African community in Oslo and a new focus on companies engaged in sex advertising in magazines and online. After the STOP project assumed responsibility for investigating human trafficking and pimping cases in 2009, the number of adjudications increased in Three cases under section 224 of the General Civil Penal Code ended with a conviction in court in The STOP project continued its close and productive cooperation with the Church City Mission Nadheim, the Pro Centre, the ROSA project, the KOM project and the City of Oslo. Norwegian Association for Outreach Work with Youth (LOSU) LOSU was a representative in the KOM reference group in This has contributed to making the outreach field s experience in human trafficking issues (particularly in relation to minors) transparent in relevant forums. During the year, LOSU focused on issues concerning minors who are potential 9 For more information, see: publikasjoner/veiledere/helsetjenestetilbudet_til_asyls_kere flyktninger_og_familiegjenforente_ The purpose of Operation homeless is to prevent trafficking of foreign prostitutes in Oslo by means of a targeted intervention against landlords of apartments/premises used for the sale of sexual services. 10

11 victims of trafficking (sale of drugs, begging, etc.), primarily related to high-crime environments in Oslo city centre. In addition, LOSU submitted proposals for ensuring minors are identified and looked after more than is the case today. LOSU also made written requests to ministries, cabinet ministers, the Ombudsman for Children in Norway, parliamentary politicians, city council politicians and the present Oslo City Government. Red Cross The Red Cross reported that it worked on guidelines for a number of projects in 2010, including the Sophia and Aurora projects Competence development and information measures Measures carried out by KOM One of the objectives of the KOM project is to contribute towards increased knowledge and exchange of information and competence on human trafficking and the situation of victims, their rights and obligations. The KOM project will achieve this objective by developing information material, giving talks and providing advice and guidance in human trafficking cases. During 2010, the KOM project was invited by different public authorities and non-governmental organisations/associations to give talks and addresses in local, national and international forums. At local and national level, these included talks and addresses for Amnesty Bergen, the Nordic Soroptimist Meeting, the Body Shop, the Norwegian Confederation of Trade Unions committee for family and gender equality, the Local Government Conference, Østfold Police District/ Central Investigation and Immigration Service (SEUT) and the National Police Immigration Service. Internationally, they included talks and addresses in Denmark in connection with the EU s Anti-trafficking Day, the Crime Victim Compensation and Support Authority in Stockholm and two talks in Bulgaria in connection with the project Enhancing the Bulgarian-Norwegian Response to Trafficking in Human Beings. KOM also contributed with talks in connection with visits from foreign government authorities and NGOs, including the Nordic-Baltic Network of Policewomen and experts on human trafficking from St. Petersburg in Russia. As in 2009, the KOM project held a national identification seminar in September Seminar participants included employees of the police, the immigration administration, child welfare authorities, healthcare, social services and NGOs across the country. The purpose of the identification seminar was to give participants an introduction to human trafficking as a phenomenon. On the seminar s first day, talks were given by the Ministry of Justice, the KOM project, the National Police Directorate, the Directorate of Immigration, Oslo Police District/STOP project and the Norwegian Labour Inspection Authority. On the second day, talks were given by legal aid lawyers from the Norwegian Bar Association, the ROSA project, the Metropolitan Police, the Child Protection Service in Bergen, Hordaland Police District/EXIT project and the IOM. Both the international and national speakers gave participants an insight into trends and characteristics of different types of exploitation and an overview of victims rights and the actors responsible for performing different services and tasks in connection with assistance and protection for victims of trafficking. Different methods and tools for the identification of victims were also presented to participants. As a result of the high level of interest shown, KOM is also organising a similar seminar in For more information on the projects, see page

12 2.5.2 Measures carried out by KOM s cooperation partners In their reports to the KOM project, agencies and organisations described competence development and information activities conducted in Directorate of Immigration (UDI) The Directorate of Immigration (UDI) has arranged several training and information activities targeting UDI staff and operators/reception employees. Representatives in UDI s human trafficking group provided training for case workers in the relevant units and at regional offices with responsibilities in the area of combating trafficking. The unit for unaccompanied minors 12 arranged two network meetings for reception centres in the Oslo area. In addition to reception centre employees and their cooperation partners, both local and central, the meetings were attended by employees from the ROSA project, the Church City Mission, UDI employees and others. The UDI, represented by human trafficking contact persons at the regional offices and the field coordinator for the Department of Regions, Reception and Return, also gave various types of input to the reception centre and operator meetings and different workshops. During the year, UDI staff specialising in combating human trafficking, whose responsibilities also include competence development for other UDI colleagues, participated in various competence development conferences, seminars and meetings, often run by or through participation in KOM. Participation in the UDI human trafficking group is in itself aimed at competence development. Information activities targeting external parties also included input at KOM s joint meeting and identification seminar, a seminar for Bulgarian experts in human trafficking, a seminar for a delegation from the Finnish authorities, a special human trafficking day run by Trondheim reception centres and RVTS (Central Norway Regional Health Authority) 13 and a seminar on human trafficking in Stavanger. Directorate for Children, Youth and Family Affairs (Bufdir) Bufdir reported that in 2010 a meeting was held in the national competence network for child welfare service employees who work with child victims of human trafficking. This meeting represented a forum for experience sharing, discussion of current issues and the acquisition of new knowledge. No other special training programmes were arranged by Bufdir in Directorate of Health The Directorate of Health reported that in 2010, in addition to implementing the previously mentioned healthcare service guidelines, it contributed to competence development in municipalities by arranging activities which included workshops at county governor offices. Participants included reception staff and housing officers. National Police Directorate (POD) The National Police Directorate continued to work with the police force s national group of experts on human trafficking, and the group held regular meetings during Members of the expert group continued to take part in a cooperation project with Bulgarian authorities, and several of the members took part in the training of Bulgarian police, prosecution authorities and judges in In addition, the Police Directorate provided professional and financial support to several training programmes arranged by different police districts and specialised bodies in The Directorate also gave talks and addresses for various actors nationally and internationally, including the KOM project s identification seminar, the Norwegian Confederation of Trade Unions local government conference, seminars organised by UNODC, Frontex, the Metropolitan Police and Council of 12 With effect from June 2011, this unit is part of the Oslo Regional Office. 13 Regional resource centre for violence, traumatic stress and suicide prevention. 12

13 the Baltic Sea States, and delegations from Albania, Bulgaria and Russia. Stavanger IAOT In 2010, Stavanger inter-agency operative team arranged a seminar on different types of human trafficking entitled Identification, verification, protection and assistance division of responsibility between the different bodies and agencies involved. Seminar participants included representatives from Rogaland police district, the municipality of Stavanger, including reception and child welfare services and the refugee section, the Norwegian Board of Health in Rogaland and legal aid lawyers. In 2010, Stavanger IAOT held four meetings focusing on division of labour, with group participants taking responsibility for the tasks they do best and following up the rules under which they work in other areas. Rogaland police district was also represented in the police force s national group of experts on human trafficking led by the National Police Directorate. With respect to information measures, Stavanger IAOT reported that the Albertine Church City Mission in 2010 continued the awareness campaign it launched in 2009 by visiting 3rd year pupils at upper secondary schools. The message was that purchasing sexual services can contribute to human trafficking and organised crime. Hordaland Police District/EXIT Project In 2010, representatives from the Hordaland police district and the EXIT project gave talks to employees in their own and other police districts. In addition, they gave talks at seminars arranged by the KOM project and the National Police Directorate, at the ROSA project s gathering for all the women s shelters and for the Women s Front of Norway, the Red Cross and the Socialist Left Party of Norway s women s group. The Hordaland police district was also represented in the police force s national group of experts on human trafficking led by the National Police Directorate. Kripos (National Criminal Investigation Service) Kripos participated in several local, national and international seminars on human trafficking in It also assisted different police districts in cases where there was suspicion of human trafficking in the form of exploitation for forced labour. All the cases involved foreign workers who were potential victims of human trafficking and had come to Norway under different various permits. The cases included workers in agriculture, the restaurant industry and au pairs. Oslo Police District/STOP Project In 2010, the STOP project gave talks and arranged information activities in a number of contexts. These included talks for the Nordic-Baltic Network of Policewomen, the Nordic Council, the Police Council in Oslo, the ROSA project, contributions to competence development under the direction of the KOM Project and the National Police Directorate, as well as provision of instruction at the Police Academy. The STOP project was also represented in the police force s national group of experts on human trafficking led by the National Police Directorate. ROSA Project According to the ROSA project s 2010 annual report, the project gave over 30 talks and addresses for public authorities and NGOs/associations at national and international level and also gave talks to students at upper secondary schools and colleges. Talks were given for the Directorate of Immigration, both centrally and in the regions, reception centres, the KOM project s identification seminar, several municipal cooperation forums, different agencies and local police. In addition, ROSA had several visitors from home and abroad in 2010, both from state institutions and NGOs working in the field For more detailed information, see: sekretariatet/aarsmelding/rosa_aarsrapport-2010.pdf 13

14 Norwegian Association for Outreach Work with Youth LOSU and Oslo Outreach Service 15 LOSU reports that in 2010 it was co-organiser of the Gatenær 2010 (Street Social Outreach) Nordic conference together with the Oslo Competence Centre for Drug and Alcohol Issues (City of Oslo Alcohol and Drug Addiction Service) and the Directorate of Health. The main theme of the conference was social outreach work in a multicultural society. The LOSU representative in the KOM reference group also gave talks to employees of the Oslo Outreach Service and the Resource centre for ethnic minorities and substance abuse (Oslo Competence Centre for Drug and Alcohol Issues), and participated in the KOM project s identification seminar in Dissemination of news stories and specialist/research reports on human trafficking and related topics on LOSU s website and Facebook page help to enhance knowledge in the outreach field. With respect to other information measures and tools in 2010, LOSU and the Oslo Outreach Service reported on the guideline Outreach social work in an internationalised street environment Outreach social work with young asylum seekers, irregular migrants and potential victims of human trafficking, issued by the Oslo Competence Centre for Drug and Alcohol Issues. 16 The guide is written on the basis of the Oslo Outreach Service s experience with this work, and is particularly aimed at field workers and other social workers. 15 Initially, LOSU and the Oslo Outreach Service reported separately, but as the reporting overlaps to some extent and the representative in KOM s reference group is both head of LOSU and on the staff of the Oslo Outreach Service, we have chosen to deal with both reports together. 16 Vollebæk, Line Ruud (2010) Outreach social work in an international street environment. Working with young asylum seekers, irregular migrants and potential victims of human trafficking. Oslo: Competence Centre for Drug and Alcohol Issues, City of Oslo Hvalstad Asylum Reception Centre for Unaccompanied Minors In 2010, the centre s human trafficking team arranged two internal training courses for reception centre staff and a course for persons appointed as temporary guardians for the residents of the centre. The team also gave talks at the KOM project s identification seminar, a special human trafficking day organised by the Regional Violence, Traumatic Stress and Suicide Prevention Centre and Trondheim Reception Centre, and in connection with PRESS Save the Children Youth Norway and the Body Shop s signature campaign against child trafficking. In the winter of 2010, the reception centre had visits from both the Minister of Justice, representatives from the Norwegian Labour Party s parliamentary organisation and Anti-Slavery Norway. All the visitors were given an account of the challenges in the field of trafficking in children and adolescents. The team also participated through ENARO s Regional Expert Teams 17 initiative, in which organisations work together on shared methodology descriptions for different areas. Red Cross In 2010, the Red Cross representatives in the KOM reference group participated in the network meeting in the European Red Cross network that works to combat human trafficking in Serbia, and held seminars for American students in the Divided States of Europe programme together with the Adora project manager. Volunteers in the Sophia project held a human trafficking seminar for Salvation Army Youth during their North/South seminar in October The Norwegian Red Cross implements information measures through the national Red Cross societies in Croatia and Serbia, with information campaigns for children, adolescents and young adults and peer education in schools and vulnerable local communities. An information campaign on human trafficking is also run in local communities in Nepal through the Nepal Red Cross. 17 ENARO is a European network which allows organisations that are responsible for accepting asylum seekers and refugees in Europe to meet to exchange information and experience. 14

15 2.6 Guidance and assistance Measures carried out by KOM One of KOM s goals is to provide advice and guidance in the field of human trafficking, including mobilisation of adequate assistance and protection to victims, by supporting current assistance measures and agencies that assist and protect potential victims of human trafficking. As in 2009, the KOM project received a large influx of telephone inquiries in 2010, both on KOM s ordinary service phones and on the SOS human trafficking telephone service which is a helpline run by the KOM project. Requests to the project came from a large number of organisations. In 2007, the police was the group that made most use of the KOM project s guidance services. The police were also the most frequent users in 2008, followed by municipal child welfare services and legal aid lawyers. In 2009, service providers 18 were the most frequent users of the KOM project, followed by the police. In 2010, service providers were by far the largest group making requests to the KOM project, with approx. 30% of all requests. This group included the ROSA project, Nadheim, the Church City Mission Meeting Place, the Pro Centre, IOM, Save the Children, the Outreach Service, Albertine, Norwegian People s Aid, the Salvation Army and other NGOs and projects that work actively to assist and protect victims of trafficking. The police was again the second largest group of users, accounting for approx. 15% of the total number of requests in Other frequent users were municipal services such as child welfare and social services, the Directorate of Immigration, asylum reception centres, legal aid lawyers, government departments, legal guardians and individuals. They approached KOM on behalf of a presumed victim, with the exception of the cases where private individuals called on 18 In 2009, this group included the ROSA project, Nadheim, the Pro Centre, IOM and Save the Children. their own behalf via the SOS line. 19 The KOM project also had requests from the media in 2010, many of them resulting in newspaper and online newspaper coverage about human trafficking and the situation of the victims. Use of the media as an information channel presents different challenges, including protection of victims identity and integrity. However, information via the media is an important tool for making Norwegian consumers aware of our goals to eliminate demand for goods and services provided by victims of human trafficking Measures carried out by KOM s cooperation partners In their reports to the KOM project, agencies and organisations have described their guidance and support activities, including measures directly targeting victims of human trafficking in Directorate of Immigration (UDI) The Directorate of Immigration reports that all persons identified as potential victims of trafficking during the asylum interview are given KOM s information material and details about KOM s SOS trafficking helpline and the ROSA project. This also applies in principle to identification in the reception centres. The Directorate also reports that during follow-up of presumed victims in the reception system, there is great variation in the housing offered and measures implemented. Housing offers and measures are implemented on the basis of thorough individual assessments. On average, just over 20 female asylum seekers stayed in shelters under the direction of the ROSA project in The majority of 19 In view of the special challenges associated with operating a hotline and the fact that the departments responsible require clarification of the function and role of the different measures, it was decided that the SOS phone would be discontinued in However, KOM wishes to emphasise that there may be a need for a hotline/helpline, but this will then have to be operated on a 24/7 basis. 20 The ROSA project has the status of operator of alternative reception sites. In addition to women who are in the asylum system, the ROSA project also assists women with residence applications or residence grounds other than asylum. 15

16 these women have lived in shelters for more than one year. Two women have spent two and four years, respectively, in shelters. During the year, the ROSA project moved some women from shelters to Laura s House. 21 At the end of 2010, there were four women in the asylum system living at Laura s House. The women were also under follow-up from the ROSA project. Directorate for Children, Youth and Family Affairs (Bufdir) In 2010, Bufdir set up a website with advice about how child welfare services should proceed in cases involving victims of human trafficking who are minors. The website also contains information about who to contact for advice, guidance and experience sharing. 22 Directorate of Health The Directorate of Health provided assistance through grants for the operation of safe housing with customised follow-up, including Laura s House. This was done in cooperation with the Ministry of Children, Equality and Social Inclusion, the Ministry of Justice and the Operations and Development unit (Norwegian Labour and Welfare Service). The Directorate of Health also contributed with grants for the operation of several different low-threshold offers of assistance, as well as outreach, follow-up and advisory measures in areas that included housing, sexual health, substance abuse, magazines, prostitution and prevention in Bergen, Kristiansand, Oslo, Stavanger, Trondheim and other locations. Trondheim IAOT The Trondheim inter-agency operative team reported that it received several inquiries in 2010 for which the project coordinator provided advice and guidance, and that it placed parties in contact and contributed to cooperative relationships between parties such as the police and child welfare services. 21 Project under the direction of the Church City Mission, with the aim of providing safe housing with social, health and other follow-up for victims of trafficking. The project started in April 2009 and lasts for three years. 22 See: Stavanger IAOT Members of the Stavanger inter-agency operative team ensured that assistance and protection for victims of human trafficking was provided in accordance with regulations and KOM s guidelines in Rogaland police district s work on human trafficking cases resulted in the district s first conviction for exploitation in prostitution under section 224 of the General Civil Penal Code in June Rogaland police district focused on human trafficking in the form of forced labour, and prevention of social dumping and trafficking. This was done in collaboration with the Norwegian Labour Inspection Authority and Tax West and other bodies. There were also several campaigns against places of work where use of illegal labour had been discovered. Pro Centre The Pro Centre s 2010 annual report shows that the centre worked with fewer trafficking victims than in The Pro Centre worked with 96 persons (29 new) in 2009, while in 2010, it worked with 77 persons (20 new). According to the Pro Centre, this is largely due to a considerable decline in the number of Nigerian prostitutes in Oslo since 2008 and the fact that fewer people are inclined to report human trafficking as it has become known in the community that the help given is often only temporary until the person concerned has to return to their home country. The Pro Centre gives assistance and protection to potential victims of trafficking before, during and after any break with the traffickers and the prostitution environment. At the end of 2010, four of the centre s users had been granted a reflection period. 36 of the persons being given assistance and protection as potential human trafficking victims had the status of asylum seekers. In 2010, the Pro Centre gave assistance and protection to six persons who testified in cases brought to court under section 224 or 202 of the General Civil Penal Code. Two of the witnesses applied for protection after their temporary residence permit expired More detailed information can be found in the Pro Centre s 2010 annual report: Rapport%202010%20innmatogomslag.pdf 16

17 ROSA Project In 2010, 42 persons received assistance from the ROSA project. According to the ROSA Project s 2010 annual report, 41 were women and one was a man. ROSA received a total of 131 inquiries about and from potential victims of human trafficking. Nine of these were men. 17 of the 131 inquiries related to women registered with one or more accompanying children. Looking at the nationalities of the persons who approached ROSA in 2010, women from Nigeria still represent the largest group. Expenses for women with a major need for acute health services, such as abortion, psychologists and dentists, continued to be covered by ROSA s project funding. ROSA also paid for various social activities for the women, with fitness training and Norwegian lessons being particularly popular. 24 The Adora project provides nail design and make-up courses, organised by ROSA, for female victims of trafficking. The project is a collaboration with TL Design. Oslo Outreach Service In 2010, the City of Oslo s Outreach Service reported that their daily patrols bring them in contact with young people and adults who may be potential victims of human trafficking. The Oslo Outreach Service makes KOM s brochures available during its outreach work and at its offices. The Outreach Service staff carry out follow-up work with the target group on a daily basis. A project with a cultural interpreter was used in outreach initiatives and follow-up work with clients. 25 Church City Mission Nadheim In 2010, Nadheim continued to provide victims with direct assistance in the form of individual follow-up, Laura s House, stabilisation training 26 and employment and qualification 24 For more detailed information, see: sekretariatet/aarsmelding/rosa_aarsrapport-2010.pdf 25 Although the project ended in 2010, the Outreach Service has retained the cultural interpreter on an on-call hourly basis. 26 Stabilisation courses were focused on techniques in relation to coping with the symptoms of trauma. services. Nadheim also ran the Psychosocial follow-up project in cooperation with the trauma department at Modum Bad and arranged three stabilisation courses, with many victims of trafficking among the participants. However, participation is not conditional on being followed up by Nadheim. Course participants were also under follow-up with other cooperation partners, such as the ROSA project and the Pro Centre. Nadheim ran the Employment and Qualifications project in Many who used this service were victims of human trafficking. The project offers individual guidance in the area of employment and qualifications, external courses in Norwegian, English and computer skills and work referrals in cooperation with an external cleaning company. Hvalstad Asylum Reception Centre for Unaccompanied Minors Hvalstad s human trafficking team contributed to a preventive information campaign on human trafficking, aimed directly at the unaccompanied minors risk group, in connection with the Body Shop s campaign against trafficking of children in The group has decided to create a DVD with verbal information about trafficking and how people can get help. The DVD will be completed during Red Cross Direct assistance is provided for victims of trafficking under the following projects: 1) Sophia assistance with homework for victims of trafficking, run by the Oslo Red Cross in cooperation with the Adora project and providing assistance with homework for women in the Adora project and women at Nadheim. The aim is to help the women complete their education under the Adora project and contribute to strengthening their sense of achievement and networking; 2) Aurora network project for victims of trafficking, run by the Oslo Red Cross in collaboration with Laura s House. The aim is to connect each of the participants to a volunteer who will act as a conversation partner, companion and link to activities that are appropriate for the woman; 3) Project EVA, run by the Bergen Red Cross. Project EVA offers a voluntary contact person for women from a foreign background who 17