MEASUREMENTACTION
FREEDOM

An independent assessmentof government progress towards
achieving UN Sustainable
Development Goal 8.7

Front cover image:
New York, US, September 2015. Projections are seen over the General Assembly buildingand United Nations headquarters. The projections include the 17 Sustainable Development
Goals displayed during the celebration of the 70th anniversary of the UN. Credit: Kena
Betancur/ Getty Images for Global Goals

Published by Minderoo Foundation’s Walk Free initiative (Walk Free), June 2019.
With special thanks to the Rights Lab at University of Nottingham, Commonwealth
Human Rights Initiative (UK), and Regenesys, who were involved in the datacollection for this report.

Rights Lab

Copyright © 2019. The Minderoo Foundation Pty Ltd.
All rights reserved.

Call to action

DEVELOPADOPTERADICATE
MODERN SLAVERY
Walk Free

1

Leaders support

LEADERS SUPPORTING
MEASUREMENT, ACTION, FREEDOM:
Civil society needs an accurate roadmap to effective government action in ending modern slavery.
The SDG 8.7 is a huge opportunity in our engagement with government to inspire strategic actions
that identify and serve the needs of survivors, prosecute offenders and tackle socio-economic
injustices.
Walk Free’s ‘Measurement, Action, Freedom: An independent assessment of government progress
towards achieving UN Sustainable Development Goal 8.7’ report is a useful roadmap and tool tohelp us understand and focus our advocacy efforts at the national and regional levels. This report
also provides a landscape for us on the ground and helps us navigate our strategies in engaging withgovernments to realize and localize SDG targets.
This report’s inclusion of survivor experiences and healing is a powerful example of how we can
optimise survivor voice and their experiences to freedom in our advocacy and policy work to end
modern slavery. Walk Free’s integration of the services of Regenesys, a survivor-employing datacollection service is a strong example of meaningful engagement with survivors at every level ofresearch.
Finally, the report correctly highlights the still limited role of the private sector in tackling labour
exploitation. Civil society needs to engage with local businesses to expand economic opportunities
for families and communities to help address the root causes of trafficking.

Cecilia Flores-Oebanda
CEO, Voice of the Free (formerly Visayan Forum Foundation)

Measuring the response to modern slavery is difficult. The data is hidden and hard to get at. We
know that in order to eradicate a crime that affects over 40 million people worldwide, government
action and collaboration to achieve UN Sustainable Development Goal 8.7 are crucial. Yet, it has
been challenging to pinpoint how and where governments can take targeted, effective measures toeliminate forced labour, human trafficking and child labour.
That’s why the new report by Walk Free, ‘Measurement, Action, Freedom: An independent
assessment of government progress towards achieving UN Sustainable Development Goal 8.7’, issuch an important tool for the anti-slavery movement. This report will galvanize action to achieve
SDG 8.7 and help those in the anti-slavery community better understand the role of government incombatting modern slavery.
From my perspective as the chief executive of an organization that is dedicated to ending modern
slavery – and deeply committed to improving the knowledge base – Walk Free’s new report is a big
step forward. In a field that still remains far too uncoordinated, this report takes an important lookat what governments around the world can and must do to end modern slavery. The Freedom Fundwelcomes this effort, and we are hopeful it will drive real progress against the ambitious goal oferadicating slavery by 2030.

Nick Grono
CEO, Freedom Fund

Walk Free’s ‘Measurement, Action, Freedom: An independent assessment of government progress
towards achieving UN Sustainable Development Goal 8.7’ report highlights governments’performance on addressing the issue of human trafficking. Advocacy can be extremely difficult
without data and information that can guide civil societies on the areas of focus. Our hope is that
this report will help in identification of these areas of focus and begin a conversation on what
government progress looks like and can be improved.

Sophie Otiende
Programme Consultant, Awareness Against Human Trafficking (HAART Kenya)

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Measurement, Action, Freedom

Leaders support

A man holds a photo during a protest
against slavery in Libya in front of
the Libya embassy in Madrid on 26th
November, 2017. Those protesting wereangry at evidence of migrants in Tripoli
being auctioned off, as well as European
policies that have led to the forcible
return to Libya of migrants trying to reach
Europe via the Mediterranean. Refugees
and migrants are particularly vulnerable
to modern slavery and many countries
across the world are increasingly closing
their borders to those seeking to migrate.
Credit: Juan Carlos Lucas/NurPhoto via
Getty Images.

Walk Free3

Dust covers a 55-year-old
migrant worker from India who
has just finished a shift working
at a brick kiln in Nepal, which
provides him with a monthly
wage of US$100. The brickindustry in Nepal employs
over 200,000 people, manyof whom face harsh living andworking conditions. Workers inthe sector experience unsafe
workplaces, unhealthy working
hours, and exploitation suchas working under bonded
and forced labour conditions.
Credit: Narayan Maharjan/
NurPhoto via Getty Images

4

Measurement, Action, Freedom

Foreword

FOREWORDBY ANDREW FORREST

Its victims are bound to toil for little or no pay,
are forced to engage in exploitative sex work,
or are married against their will. Its cost is
individual freedom and economic stagnation.
Its impact is global, and no country is immune.
Modern slavery is a human rights abuse of
our own making. Ending it is a choice the world
can make.
In 2015, government leaders agreed to the
Sustainable Development Goals (SDGs) tohelp achieve fair, inclusive, and sustainable
development by 2030. SDG 8.7 calls on all
governments to take immediate and effective
measures to end forced labour, modern
slavery, and human trafficking, as well as childlabour in all its forms.
But since then, progress made toward
ending these abhorrent practices has beendisgracefully marginal. The world must
accelerate action to end this crime. We mustensure our leaders do more and hold themaccountable to delivering on their commitment.
But how?
I subscribe to the belief that if you can’tmeasure something, you can’t fix it. If wewant to achieve SDG 8.7 by 2030, we needto know more about where, why, and how
people are enslaved, and what progress weare making in freeing them. We need to know
which governments are tackling this crime andwhat measures they are taking. We need tounderstand what responses are working andhow we can have the greatest impact.
Measurement has long been a core focus
of Walk Free’s work. Our Global Slavery
Index is the world’s only country-by-country
estimate of people living in modern slavery. It
is through this work, and our partnership with
the International Labour Organization, that weknow how and where 40.3 million people arebeing exploited.
Only with this visibility can we pursue effective
strategies to end modern slavery and holdgovernments accountable for their actions.
This report is an important contribution
to those efforts. It provides a baseline ofWalk Free

current government action and a roadmap
for progress and, significantly, it calls for
the United Nations and member states todevelop indicators to track progress towards
the eradication of modern slavery under
SDG 8.7. The status quo does not drive theaccountability needed to achieve this crucial
target — without indicators to report on, andmeasure progress against, the visibility andpressure on governments necessary to drivechange doesn’t exist.
It’s like hoping your team scores a goal ...
on a field where there are no goalposts. It will
never happen.
In this report, we find encouraging examplesof governments taking action that has resulted
in an increase in prosecutions, the extensionof victim support services, and the ratificationof ILO instruments.
Overall, however, the measurements in thisreport underscore that global progress intackling modern slavery has been hugely
disappointing. We know that 47 countries
globally have not yet recognised humantrafficking as a crime in line with international
standards. Nearly 100 countries still fail tocriminalise forced labour or, if they do, thepenalty for this form of exploitation amounts
to nothing more than a fine. Less than onethird of countries protect women and girls
from the terrible harm of forced marriage. This
is not a situation that any of us should tolerate.
The findings in this report tell us that the world
will not deliver on SDG 8.7 by the 2030 target
date, forgoing the unique opportunity the
Sustainable Development Agenda provides
the international community to effect change
as part of a global movement.
Accordingly, we must redouble our efforts
and mobilise the full power of businesses,
faiths, and the global community toward a
common purpose: energising and galvanising
governments to do more — much more —to end modern slavery in their countries.
We must all hold ourselves and each other toaccount for ending the misery of our fellow
human beings.

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Contents

CONTENTSCALL TO ACTION ......................................................................................................................................................................1
FOREWORD BY ANDREW FORREST................................................................................................................................. 5
GLOBAL GOVERNMENT RESPONSE HIGHLIGHTS ..................................................................................................... 8
01 EXECUTIVE SUMMARY................................................................................................................................................. 10
Findings at the global level ....................................................................................................................................... 11Country-level action…and inaction.......................................................................................................................12
Taking account of capacity to respond..............................................................................................................13
The way forward............................................................................................................................................................13

02 MEASURING PROGRESS TOWARDS SUSTAINABLE DEVELOPMENT GOAL 8.7 .....................................14
The state of measurement of Sustainable Development Goal 8.7.......................................................16
The process of setting an indicator.....................................................................................................................16
Voluntary national reviews.......................................................................................................................................16
The way forward............................................................................................................................................................ 17

03 COMMENTARY.................................................................................................................................................................18
Intensified efforts are needed to achieve SDG target 8.7 by 2030......................................................19
Measuring government efforts for the SDGs..................................................................................................21
Speaking our truth: Survivors’ voices on government responses to modern slavery.................24

04 ABOUT THE REPORT....................................................................................................................................................26
05 GLOBAL FINDINGS........................................................................................................................................................ 30
Findings across the milestones.............................................................................................................................35
Global Recommendations........................................................................................................................................41

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Measurement, Action, Freedom

Contents

06 REGIONAL ANALYSIS ................................................................................................................................................. 44
AFRICA..................................................................................................................................................................................... 46
Regional recommendations................................................................................................................................... 56

AMERICAS...............................................................................................................................................................................58
Regional recommendations................................................................................................................................... 69

ARAB STATES........................................................................................................................................................................70
Regional recommendations................................................................................................................................... 80

ASIA & THE PACIFIC............................................................................................................................................................82
Regional recommendations................................................................................................................................... 94

EUROPE & CENTRAL ASIA............................................................................................................................................... 96
Regional recommendations..................................................................................................................................108

07 APPENDIX 1: TERMINOLOGY.....................................................................................................................................110
08 APPENDIX 2: METHODOLOGY.................................................................................................................................. 114
09 APPENDIX 3: CONCEPTUAL FRAMEWORK........................................................................................................134
10 APPENDIX 4: ENDNOTES...........................................................................................................................................166

MEASUREMENTACTION
FREEDOM
Walk Free

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Global government response highlights

GLOBAL

GOVERNMENT RESPONSE HIGHLIGHTSAVERAGE GOVERNMENTRESPONSE SCORE% <0-9.9

Not
Rated

1

10-19.9 20-29.9 30-39.9 40-49.9 50-59.9 60-69.9 70-79.9 80-89.9 90-99.9

2

3

4

5

6

7*

8

9

10

* N o country can be awarded above a 7 if there are any negative indicators in their score

LEAST ACTION

MOST ACTIONNORTH KOREAERITREALIBYA
IRAN
EQUATORIAL GUINEABURUNDI
DEM. REP. CONGOCONGORUSSIASOMALIA

UNITED KINGDOMNETHERLANDSUNITED STATESPORTUGALSWEDENARGENTINA
BELGIUM
SPAIN
CROATIA
AUSTRALIA

8

Measurement, Action, FreedomGlobal government response highlights

KEY GAPS IN RESPONSE

Of the 183 countries in this report:

95

133

60

20

146

do not provide support
services for all victims ofmodern slavery

have not criminalised
forced marriage

deport or detain
foreign victims for
immigration violations

have state-imposed
forced labour

do not addressrisks in businesssupply chains

M1

M2

M3

M4

M5

WEAK RESPONSE
RELATIVE TO WEALTH*QATAR
SINGAPOREKUWAIT
BRUNEIHONG KONG, CHINA
RUSSIA*Gross Domestic Product (Purchasing Power Parity) Per Capita

Walk Free

STRONG RESPONSE
RELATIVE TO WEALTH*GEORGIA
NIGERIAUKRAINE
MOLDOVAETHIOPIAMOZAMBIQUE*Gross Domestic Product (Purchasing Power Parity) Per Capita

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01

EXECUTIVE
SUMMARY
No country in the world is exempt from modern slavery.
Regardless of size, population or wealth, this insidiouscrime permeates national borders and global supply chains.
Even in countries with seemingly strong laws and systems,
there are critical gaps, particularly for the most vulnerable.
Serious, collaborative action to respond to modern slavery
is long overdue.
Four years since all UN member states reached agreement on the Sustainable
Development Agenda, progress to achieve Sustainable Development Goal
(SDG) 8.7, which aims to eradicate modern slavery, has been incredibly slow.
Beyond honouring their commitment to the SDGs, there is a moral imperative
for governments to respond to this gross abuse of human rights. If the world isserious about ending the enslavement of 40.3 million people, governments willneed to redouble efforts to identify victims, arrest perpetrators, and address
the drivers.

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Measurement, Action, Freedom

01 Executive summary

Lamia Haji Bashar is
pictured during an AFP
interview in Stuttgart,southwestern Germany,on October 28, 2016.
Nadia Murad and Lamia
Haji Bashar, who survived
a nightmare ordeal of
kidnapping, rape andslavery at the hands of
ISIS jihadists, won theEuropean Parliament’s
prestigious Sakharov
human rights prize in2016. Credit: Thomas
Kienzle/AFP/Getty Images

At the UN level, progress towards the SDGs
is measured by a global indicator framework
and Voluntary National Reviews, where
governments report on their own activities
against these indicators. This approach ishampered, however, by the lack of indicatorson all forms of modern slavery under SDG 8.7,
as well as the voluntary nature of this reporting.
Without clear indicators to measure progress
toward the 2030 goal, governments are notable to report systematically and consistently,
nor can they be held to account.
In the absence of official indicators, this report,
Measurement, Action, Freedom, provides an
independent assessment of 183 governments
and their responses to the challenge of modern
slavery. In it, governments are assessed against
their ability to identify and support survivors,
to establish effective criminal justice systems,
to strengthen coordination mechanisms andbe held to account, to address underlying
risk factors, and to clean up government andWalk Freebusiness supply chains, all in order to eradicate
modern slavery. The findings shine a light on
those taking strong action, identify those thatare lagging, and highlight the activities thatshould be prioritised.

FINDINGS AT THE GLOBAL LEVEL
Governments are not on track to eradicate
modern slavery and achieve SDG 8.7 by 2030.
Although there is a trend toward improvement,with the global average score since 2015
increasing from 4 out of 10 to 5 out of 10, thepace of change falls far short of what the scaleand severity of modern slavery demands.
While the improved responses inapproximately 50 percent of countries are
acknowledged, this means that half of all
countries in this report have not reported
any meaningful change in their response or
have taken a backward step. Governments
are falling short even in the most fundamental
aspects of a strong, committed response.
11

01 Executive summary

Some of the key gaps include:• Of the 183 countries assessed, only 31

have ratified the ILO’s 2014 Forced Labour
Protocol. Forty-seven countries havenot criminalised human trafficking inaccordance with the definitions outlinedin the UN Trafficking Protocol; a further
96 countries have not criminalised forced
labour, and 133 have not criminalised
forced marriage. Ratifying the Forced
Labour Protocol and criminalising all formsof modern slavery are the most basic steps
a country can take, but we find that many
countries have failed to take these actions.

• Victims are not being identified. Despite

the large number of countries that haveprovided training to their police (166) andto immigration officials, border guards, orlabour inspectors (141) on how to identify
victims, the rates of identification remain
extremely low. An estimated 40.3 million
men, women, and children were living inmodern slavery in 2016. In the same year,
the number of victims identified globally
was a fraction of that. Governments
cannot extend protection to victims theycannot reach and, at present, they are
failing at the first step – identification.

• Survivors are being let down by a lack ofservices, with limited options for men,children, and migrant populations in 95
countries. Many victims are also subject
to re-traumatisation due to officials’
limited understanding of their needs. In 71
countries, victims face criminal charges
for crimes committed while exploited, andin 60 countries, victims are deported ordetained for immigration violations. Thesefigures are likely to be underestimated,with limited publicly available informationon these issues. Survivors are also largely
excluded, with few governments taking
concrete action to engage directly withthem to strengthen their policy response.

• Despite there being an estimated 16 million

people in forced labour exploitation in theprivate economy worldwide, engagementwith business is limited. Only 40 countries
have investigated public or business supply
chains to tackle labour exploitation. This
includes mandatory reporting legislationin Australia, the UK, and the US, as well as
the establishment of guidelines for public
procurement specialists across the EU.

12

COUNTRY-LEVELACTION…AND INACTION
Despite the slow progress, the 10 countries
taking the most action to respond to modern
slavery are:

1. United Kingdom
2. Netherlands
3. United States
4. Portugal
5. Sweden
6. Argentina
7. Belgium
8. Spain
9. Croatia
10. Australia
These countries are characterised by strong
political will, high levels of resources, and astrong civil society that holds governments
to account. However, not all of thesecountries have matched good policy witheffective enforcement. There are low
numbers of identified victims, as in Croatia,
or few prosecutions for labour exploitation,
as in the Netherlands. Countries withotherwise strong responses also may haverestrictive and discriminatory migration
policies, which continue to be a key driver ofmodern slavery, as is the case in the EU, UK,
the US, and Australia.
The 10 countries taking the least action to
respond to modern slavery are:1. North Korea
2. Eritrea
3. Libya
4. Iran
5. Equatorial Guinea
6. Burundi
7. Democratic Republic of the Congo
8. Congo
9. Russia
10. Somalia
According to the 2018 Global Slavery Index,
approximately 6.9 million people were in someform of modern slavery in these countries.
This amounts to 17 percent of the total numberof people in modern slavery living where there
is limited, if any, government action. These
countries are characterised by government
complicity (North Korea and Eritrea), low levels

Measurement, Action, Freedom

01 Executive summaryof political will (Iran), high levels of corruption(Equatorial Guinea), or widespread conflict(Libya). Few victims are being identified andthere are even fewer prosecutions. There isalso evidence that governments are actively
enslaving part of their population in some ofthese countries. In North Korea, there arereports that prisoners are forced to labour incamps under threats of violence, and actual
violence, to themselves and their families.

TAKING ACCOUNT OF CAPACITY
TO RESPOND
When correlated against GDP (PPP) per
capita, some countries stand out as taking
relatively robust action when compared withthose that may have stronger economies anda greater capacity to act. Countries such as
Georgia, Nigeria, Ukraine, Moldova, Ethiopia,
and Mozambique are notable for taking steps
to respond to modern slavery despite having
limited resources. Both Mozambique andEthiopia have criminalised human trafficking
in line with the UN Trafficking Protocol; in
Mozambique, victims who participated as
witnesses in criminal proceedings were able toaccess witness protection programs in 2018. In
contrast, there are wealthier countries that havedone little when it comes to combating modern
slavery. Qatar, Singapore, Kuwait, Brunei, Hong
Kong, and Russia stand out as taking relatively
limited action despite the size of the problem
they confront and the national resources attheir disposal. In Hong Kong, evidence suggeststhat victims are increasingly being treated as
criminals for conduct that occurred while under
the control of their exploiters.

THE WAY FORWARD
At the current rate of progress, achieving SDG
8.7 is impossible. Based on best available
estimates, we need to free some 10,000 people
per day in order to eradicate modern slavery
by 2030. Measurement, Action, Freedom
highlights that the rate of change required toachieve this goal must be far more aggressive.
Without renewed commitment from every
country and effective measurement, millions
will continue to be enslaved. We are calling on
all governments to:Work together to develop indicators
and adopt these to track progress toeradicate all forms of modern slavery
under SDG 8.7.

Based on our analysis of current government
responses to SDG 8.7, we urge that all
governments, at a minimum, take thefollowing actions:

1.

Increase identification of, and improveassistance for, modern slavery victims.

2. Ratify the ILO Protocol of 2014 to theForced Labour Convention, 1930.

3. Strengthen existing modern slavery

legislation to ensure that all forms of
exploitation are criminalised and penalties
are severe.

4. Empower women and girls by providing
primary education for all.

5. Strengthen national laws to protect labour

rights for all workers in both the formal andinformal economy.

Beyond these minimum requirements,
we recommend that governments:

6. Ensure survivor voices are included in all

aspects of the response by consulting withvictims and providing avenues for their input.

7. Enforce legislation by providing training
and resources for police, prosecutors,
judges, and defence attorneys.

8. Remove barriers to victim participationin the criminal justice system, such as
ensuring access to visas, compensation,and restitution.

9. Develop evidence-based National Action
Plans or strategies.

10. Engage with business and strengthen

strategic partnerships to tackle modern
slavery.

The SDGs were not meant to be divisible nor
achieved by a single government acting alone.
Therefore, cooperation and coordination are
crucial. Governments should participate inregional and bilateral fora to share resourcesand expertise. International organisations
should provide technical capacity to
implement the above recommendations, while
civil society should work together to holdgovernments to account.
Through the precise measurement of progress
and identification of gaps in current responses
to SDG 8.7, we can galvanise immediate andeffective action towards the eradication of themost extreme forms of exploitation, and bringabout the freedom of 40.3 million people inmodern slavery.
Together, we all have a role to play in ending
modern slavery.

Walk Free

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02

MEASURINGPROGRESSTOWARDSSUSTAINABLE
DEVELOPMENT
GOAL 8.7
14

Measurement, Action, Freedom

02 Measuring progress towards SDG 8.7

Kiev, Ukraine, October
20, 2018. Ukrainian
women silently protest
against exploitation toraise awareness of humantrafficking and slavery.
Credit: STR/NurPhoto
via Getty Images

In 2015, the United Nations General
Assembly adopted a set of 17
Sustainable Development Goals(SDGs). In doing so, member
states signalled their commitment
to collectively address global
challenges in order to achieve peace
and prosperity for all by 2030. There
are no “easy” SDGs and achieving
them requires that, as a global
community, we aggressively pursue
their implementation and monitor
our progress throughout.
“Without evidence of where we stand
now we cannot confidently chart ourpath forward in realizing the Sustainable
Development Goals” 1 — António Guterres,
Secretary-General of the United Nations
Walk FreeAt the UN level, progress towards the SDGs
is measured by Voluntary National Reviews(VNRs), where governments report on theirprogress, against the UN’s global indicator
framework. 2 This framework is comprised of
232 indicators reviewed and developed by
the Inter-agency and Expert Group on SDG
Indicators (IAEG-SDG), which is composedof representatives from member states.
Essentially, governments help shape theframework against which they report on a
voluntary basis.
In his foreword to the 2018 Sustainable
Development Goals Report, UN SecretaryGeneral António Guterres concluded that
despite encouraging progress in someareas, “progress is insufficient to meet the[Sustainable Development] Agenda’s goals
and targets by 2030.” The measurementof progress towards certain SDGs remains
hampered by the lack of reliable, timely,accessible, and disaggregated data.

15

02 Measuring progress towards SDG 8.7

In addition, there remain many challenges
in the collection, processing, and analysis
of comparable data across UN member
states. For some SDGs, such as SDG 8.7,
measurement is hampered by a more
fundamental problem — the absence ofindicators required for assessing progress.

The downgrading means countries are
not required to regularly report against
these measurements, which prevents theestablishment of a baseline and subsequent
benchmarking, and hinders the official
measurement of progress towards SDG 8.7
and related targets.

THE STATE OF MEASUREMENT OFSUSTAINABLE DEVELOPMENT GOAL 8.7

The IAEG-SDG’s 2020 Comprehensive
Review will include consideration of therefinement, adjustment, deletion, or
addition of indicators. The IAEG-SDG has
indicated that additional indicators could
be considered in exceptional cases wherea crucial aspect of a target is not being
monitored by current indicators or when agoal has very few Tier 1 or Tier 2 indicators.

While the measurement issues faced by other
SDGs also apply here, the measurement ofprogress to end modern slavery is prevented
by the lack of clear indicators. As with other
SDGs, 8.7 is ambitious in committing all
nations to:“Take immediate and effective measuresto eradicate forced labour, end modern
slavery and human trafficking and secure
the prohibition and elimination of theworst forms of child labour, including
recruitment and use of child soldiers, andby 2025 end child labour in all its forms.” 3
Currently, there is only one indicator for SDG
8.7 and that is the proportion and numberof children aged 5 to 17 years engaged inchild labour by sex and age. Some forms ofmodern slavery are covered under SDGs
5.3, which is dedicated to eliminating child,early, and forced marriage and 16.2, whichseeks to end abuse, exploitation, trafficking
and all forms of violence against children.
The indicators respectively measure theproportion of women aged 20 to 24 who
were married before age 15 and before age
18, and the number of victims of humantrafficking per 100,000 by sex, age, andform of exploitation.4 However, there are no
indicators relating to forced labour, modern
slavery, the worst forms of child labour, andthe recruitment and use of child soldiers.

THE PROCESS OF SETTINGAN INDICATOR
The IAEG-SDG classifies each indicator
into a three-tier system based on its levelof methodological development and theavailability of data at the global level. While
initially classifying the sole indicator for SDG
8.7 at Tier 1, it was subsequently downgradedto Tier 2, reflecting a conclusion that data
are not regularly produced by countries.
The indicator for SDG 16.2 was similarly
downgraded based on data availability. 5

16

VOLUNTARY NATIONAL REVIEWS
In recent years, the usefulness of Voluntary
National Reviews has been called into
question. Despite noting an improvement instandards from earlier years, an assessmentof the 46 VNRs submitted at the 2018
High-Level Political Forum found that fewer
countries prepared an assessment of theSDGs in terms of policies or data that could
inform the implementation of the 2030
Agenda.6 The assessment by the CanadianCouncil for International Cooperation also
identified a lack of baselines from which tomeasure progress and found that information
on data availability, including disaggregateddata, was often unclear or not articulated.7
Reporting on SDG 8.7 — against the single
indicator on child labour — is particularly
weak. A recent report indicates only 25 of the46 2018 VNRs reported on SDG 8.7 in someform. 8 Two nations that have been active andcommitted to tackling modern slavery haveconsidered themselves unable to report on
the child labour indicator. Australia reported
that it is unable to report on this indicator or
the indicator on early marriage under SDG
5.3, due to there being no existing suitabledata sources. 9 Canada advised that its VNR
did not report on SDG 8.7, noting that thechild labour indicator is “not applicable in the
Canadian context.” 10
In sum, the first two years of the Voluntary
National Reviews have revealed serious
limitations in the national reporting of
progress to achieve SDG 8.7.

Measurement, Action, Freedom

02 Measuring progress towards SDG 8.7

THE WAY FORWARD
In 2016, there were an estimated 40.3 million
people in modern slavery. Without concerted
action to tackle this serious issue, these
individuals are in danger of being left behind.
The action required should begin with thesetting of clear indicators to measure theproblem and our progress tackling it. With thisin place, governments would be able to reportsystematically and consistently on their progress
to eradicate all forms of modern slavery and be
held accountable for their progress.
The 2020 IAEG-SDG Comprehensive Reviewof the SDG Indicators provides a possible
opportunity for reform. However, this will
only come to fruition if member states andnational statistics offices begin to revitalise
their data collection tools, in particular byusing the International Conference of Labour
Statisticians (ICLS) guidelines concerning themeasurement of forced labour.11
International agencies and partnerships
also have a clear role to play. The Addis
Ababa Action Agenda notes that, in order tostrengthen the means of implementation of theSDGs, data from a country’s national statisticalsystem should be supplemented with datafrom civil society.12 The involvement of multiple
stakeholders in the process of data collection
and the mobilisation of support throughpartnerships to strengthen national capacity
are also emphasised by the 2018 Voluntary
Review Synthesis.13

In the interim — while additional indicators
are developed, support is given to national
statistical offices, and partnerships are formed— it falls to civil society to provide the impetus
to ensure countries are held accountable for
their SDG commitments. The International
Labour Organization and MinderooFoundation’s Walk Free initiative (Walk Free), in
partnership with the International Organization
for Migration, have already contributed to SDG
8.7 by publishing the 2016 Global Estimatesof Modern Slavery, which aims to provide
accurate and reliable data to raise awarenessand enable policy makers to take strategic
decisions based on evidence.14
In the absence of an official indicator, thisnew report, produced solely by Walk Free,
provides a comprehensive and independent
assessment of the measures taken by
governments that contribute to eliminating
modern slavery. It provides a platform forcivil society to advocate reform agendas
in individual countries and adds to othercivil society efforts such as the Sustainable
Development Solutions Network, Delta 8.7,
and many other NGOs trying to fill the gaps
in official SDG measurements. Throughthe precise measurement of progress andidentification of gaps in current responses
to SDG 8.7, we can galvanise immediate andeffective action towards the eradication of themost extreme forms of exploitation, and bringabout the freedom of 40.3 million people inmodern slavery.

TOGETHER WE ALL
HAVE A ROLE TO
PLAY IN ENDING
MODERN SLAVERY
Walk Free

17

03

COMMENTARYINTENSIFIED EFFORTS ARE NEEDEDTO ACHIEVE SDG TARGET 8.7 BY 2030
Urmila Bhoola, UN Special Rapporteur on contemporary
forms of slavery

MEASURING GOVERNMENTEFFORTS FOR THE SDGS
Guillaume Lafortune and Guido Schmidt-Traub, United
Nations Sustainable Development Solutions (SDSN)SPEAKING OUR TRUTH: SURVIVORS’ VOICES ON
GOVERNMENT RESPONSES TO MODERN SLAVERY
Utthan, a survivor leaders’ collective in India

18

Measurement, Action, Freedom

03 Commentary

New York, US, September 19,
2016. Former British Prime
Minister Theresa May heads
a round table discussion
on modern slavery withworld leaders, including
President of Nigeria
Muhammadu Buhariat (L)and former Australian Prime
Minister Malcolm Turnbull(R) at the UK’s permanent
representatives residence
during the 71st session of
the UN General Assembly.
Credit: Christopher Furlong/
Getty Images

INTENSIFIED EFFORTS ARE NEEDEDTO ACHIEVE SDG TARGET 8.7 BY 2030
Urmila Bhoola, UN Special Rapporteur oncontemporary forms of slavery
Four years ago, in September 2015, all UN
Member States agreed to the 2030 Sustainable
Development Agenda. They also committed
to achieving SDG target 8.7, which consistsof “taking immediate and effective measuresto eradicate forced labour, end modern
slavery and human trafficking, and secure theprohibition and elimination of the worst formsof child labour, including the recruitment anduse of child soldiers, and by 2025 end childlabour in all its forms.” This time-bound global
commitment is of enormous significance, as it
has the potential to free millions of people frombonded labour, forced labour, forced marriage,
domestic servitude and other contemporary
forms of slavery.

Walk Free

Progress towards SDG 8.7 has started to takeplace, for example with regard to national
legislation that many countries are introducing
to criminalise slavery and related forms of
exploitation. As a result, about half of thecountries (82 of 183) assessed in this reportcurrently criminalise slavery and forced labour(87 countries) or servitude. This indicates thatin spite of the progress achieved, substantial
gaps remain in the translation of international
definitions and obligations into domestic law.
A second encouraging example is that in recent
years, a number of governments have taken
additional steps towards ensuring criminal
justice for cases of forced marriage, mostrecently in Morocco, New Zealand, Estonia andSpain. Alongside criminal justice efforts, somestates have adopted civil and administrative
provisions requiring large companies to reporton slavery risks in their supply chains and,in some cases, financial portfolios. And as
Walk Free estimates, some 40 countries havetaken action globally to investigate supply
chains, including Brazil, the UK, the UnitedStates and Australia. This is a major increase19

03 Commentary

East Java, Indonesia,
September 23,
2013. A migrant
worker group called
Anugerah Abadi
gathers at a carnival
to raise awarenessof the vulnerabilities
of Indonesians
working overseas.
Even thoughmigrant workers
contributed US$9
billion in remittancesin 2016, many
experience abuseand exploitation.
Those in Singapore,
Malaysia, Hong
Kong and GCC
countries havereported violence,
torture, and rape.
Domestic workers
are particularly
vulnerable. Credit:
Arief Priyone/
LightRocket via
Getty Images

compared to 2015 when only four countries
were systematically monitoring supply chain
compliance. Such strengthened engagementwith businesses is essential, given that many
forms of today’s slavery take place in theprivate sector.
In spite of these encouraging developments,
a lot more remains to be done, in particular
as factors such as transformations in theworld of work, climate change and migration
increase the vulnerability of many people
to exploitation. In light of these daunting
challenges, there is an urgent need to stepup action by states, the private sector, civilsociety and the international community ifslavery is to be eradicated from the world by2030. It is also essential that an indicator on
SDG target 8.7 is developed in order to ensurethat progress is measured effectively and in a
unified way across all countries.
As highlighted in my most recent reportpresented to the Human Rights Council in2018 (A/HRC/39/52), a spotlight needs to beshed on certain, largely invisible sectors suchas domestic work. Paid domestic work is ahighly feminised sector, with recent estimatesindicating that there are 70 million domestic
workers employed by households worldwide,of which 49.2 million (70 percent) are womenand 11.5 million are migrant women.

girls’ access to education as an antidote tochild marriage and child labour needs renewed
attention. Survivors of contemporary forms ofslavery themselves need to be at the centreof all action in this regard in order to ensurethat their voices are heard and their needs are
addressed effectively.
Civil society has an equally critical role toplay to hold governments and businesses
to account, for example by monitoring andkeeping track of the implementation of the
Sustainable Development Goals as shown by
the present report. I would like to commend
Walk Free for issuing this study which throughits independent assessment of government
progress towards achieving Sustainable
Development Goal Target 8.7 constitutes a
key resource to the fight against slavery.
Civil society also has an important roleto play in conducting advocacy regarding
the importance of prioritising SDG target
8.7, including as it is interlinked with manyother SDGs. Alliance 8.7 provides a unifying
structure and a framework for collaboration
between the actors working to address
different forms of exploitation. I am hopefulthat this multi-stakeholder partnership willlead to addressing contemporary forms ofslavery in a more coordinated, holistic way if
we all make best use of it.

These figures remind us that fighting genderbased discrimination, increasing equal
opportunities for women and girls and ensuring
20

Measurement, Action, Freedom

03 Commentary

MEASURING GOVERNMENTEFFORTS FOR THE SDGS
Guillaume Lafortune and Guido Schmidt-Traub,
United Nations Sustainable Development
Solutions (SDSN)
With the 2030 Agenda and the Sustainable
Development Goals (SDGs), countries havecommitted themselves to time-bound targets
for Prosperity, People, Planet, Peace, andPartnership — known as the five Ps. Meetingthe 17 SDGs and the underlying 169 targets
will require deep transformations in every
country. Market forces alone will not achieve
the SDGs. Instead, directed transformations areneeded to develop the technologies, promote
public and private investments, and ensure
the development of adequate governancemechanisms that are needed to achieve thetime-bound goals.
As part of the SDGs, 193 countries havecommitted to ending child labour and slavery
under SDG target 8.7. In the run-up to theadoption of the SDGs in 2015, the Sustainable
Development Solutions Network (SDSN)
supported a time-bound, transformative target
on child labour and slavery. According to thelatest figures published by the International
Labour Organization (ILO) and Walk Free, anestimated 40.3 million people are living in someform of modern slavery. Women and children
are particularly vulnerable. As highlighted
by Walk Free in this report, despite some
improvements in recent years, much moreneeds to be done if we are to achieve SDG 8.7.
The Sustainable Development Report 2019,15
co-produced by the SDSN and the Bertelsmann
Stiftung, shows that more efforts are neededto achieve the SDGs by 2030. The report findsthat no country is on track for achieving all
goals and that every country, including highincome countries, face major challenges ona least one of the goals. Achieving the SDGs
will require deep changes to current policies,
investments, and technologies.
Many governments have asked the SDSN
and members of its Leadership Council how
they might organize the implementationof the SDGs. Building on the work of theWorld in 2050 initiative16 — organised by
SDSN, the International Institute for Applied
Systems Analysis (IIASA), and the Stockholm
Resilience Centre (SRC) — we propose that
implementation be organized in six broad“SDG Transformations” that describe major

Walk Free

societal changes to transform resource use,
institutions, technologies, and social relations.
To aid implementation, the SDG
Transformations should align with the way
governments are organised and, together,
they should cover the 17 goals and associatedtargets. They should also support systembased approaches for implementation.
Just as decarbonization of energy systems
requires strategies that cover the entire
energy system — including power generationand transmission, transport, buildings, andindustry — ending child labour and slavery
requires holistic strategies that cover the fulleducation system, school-to-work transition,
labour standards, and other drivers of poverty,
inequalities, and discrimination.
Accordingly, the SDSN is preparing a detailed
report on the six Transformations, including
tools for designing and implementing them.
To ensure that the SDGs can be achieved, thesix Transformations need to be underpinned by
two cross-cutting principles. First, governments
and their partners need to ensure that eachtransformation is designed and implemented
to uphold fairness and social inclusion under
the principle “Leave No One Behind.” Thisapplies particularly to public services, such as
health and education, infrastructure services(transport, water, sanitation, energy), andenvironmental resources use. Second, every
Transformation needs to reduce humanity’senvironmental footprint by promoting
circularity in material flows and the decouplingof environmental resource use and pollution
from human well-being.
Together, the six Transformations cover key
interventions needed to achieve the 17 SDGs.
Implementing them requires clear pathways
towards achieving the long-term goals thatcan, in turn, guide shorter-term policies. Suchpathways should be reviewed by stakeholders
and be improved continuously based on
their feedback. In this way, they become amethod for problem solving that can foster asocietal dialogue on how, for example, energy
systems can be decarbonized in ways that aretechnically feasible, affordable, and sociallyjust. A central challenge for governments will
be to foster such societal problem solving andto align the machinery of government withachieving the long-term transformations.
To see whether countries are on track towards
achieving the SDGs, we need to understandtheir policy frameworks and commitments
to the goals. A country starting from poor
sustainable development outcomes may have21

03 Commentary

adopted the right mix of policies, including
budgets, regulation, incentive for private
investments, and so forth, which puts iton track to achieve the goals by 2030.
The converse is equally possible. Poor
policies, a change of government can takeany country away from meeting the goals.
Therefore, monitoring progress towards the
SDGs requires timely international data, aspresented in the SDR2019, as well as trackingof government policies and commitments toimplement the goals.

Credit: United
Nations Sustainable
Development Goals

We identify three principal layers to track
government policies and commitments forthe goals: (1) high-level public statements
by governments in support of sustainable
development; (2) strategic use of public
practices and procedures for the goals(coordination mechanisms, budget,
procurement, human resource management,
data and audits); (3) content of government
strategies and policy actions. Monitoring all
three layers provides useful information but
layer (3) provides the most actionable andvaluable inputs for achieving the SDGs.
We welcome the ground-breaking work
conducted by Walk Free to track not only
statistics on forced labour and forced
marriage, but also the policy environment andgovernment commitments. Considering timelags in international data reporting, this isnecessary to hold governments accountable

22

on a real-time basis. The Climate Action
Tracker does similar types of assessmentsby tracking government commitments toachieve the targets set in the Paris Climate
Agreement. SDSN is currently exploring thepossibility of launching a programme of work
tracking commitments for sustainable landuse. We need these types of assessments fora broader set of SDG targets.
Yet, it is important to track not only domestic
commitments and implementation but alsotransboundary effects (so-called “spillover”
effects). In a highly interdependent world,countries’ action can have positive or
negative effects on other countries’ ability
to achieve the SDGs. Such international“spillovers” are pervasive and have been
growing fast with growth in trade exceeding
the growth in world gross product.17
Tolerance for poor labour standards ininternational supply chains harms the poor,
children and women in particular, in many
developing countries.18 As the IMF has
recently shown,19 poor countries require
increased international development
assistance if they are to meet the goals.
High-income countries should play a biggerrole, including by monitoring closely theirsocio economic and environmental impacts
embodied into trade, in promoting decent
working conditions and more broadly insupporting the transition to a world where noone is left behind.
The important work by Walk Free, including
through its report Measurement, Action,
Freedom, makes a critical contribution to
implementing the SDGs, particularly, in thiscase, SDG 8.7 and the eradication of modern
slavery. Moving forward, it will be important
to explore ways in which we can expand theseassessments to other sectors and policy
goals. These assessments should coverdomestic commitments, strategies, andlong-term pathways as well as international
actions, including by high-income countries,that support or undermine the achievementof the SDGs.

Measurement, Action, Freedom

03 Commentary

https://www.sdgindex.org/reports/
sustainable-development-report-2019/

Walk Free23

03 Commentary

SPEAKING OUR TRUTH: SURVIVORS’
VOICES ON GOVERNMENT RESPONSESTO MODERN SLAVERY
Utthan, a survivor leaders’ collective in India
Survivors are critical to a government’s
response to modern slavery. Their lived
experience is fundamental to assessing these
responses and providing insights into thedevelopment of laws, policies, and programs.
Survivors know the direct impact of policies,
along with what has and, as importantly, what
hasn’t worked to support victims of exploitation,
punish the perpetrators, address underlying
drivers, and to engage and coordinate across all
stakeholders in a response.
This is not without its challenges. Minh Dang,
Executive Director of Survivor Alliance,
has pointed out that often survivor voice istreated as tokenistic, in that one survivor
is invited to speak on behalf of all survivors
by sharing their personal story. Meaningful
engagement is often perceived as too
difficult by non-survivors, while survivors
face challenges of re-traumatisation withlimited other options for engagement.
For these reasons, the survivor leader’scollective Utthan partnered with Survivor
Alliance and Minderoo Foundation to hold aworkshop with survivors of sex and labour
trafficking from across India. Based in
the Indian state of West Bengal, Utthan iscomprised of 20 survivors of sex trafficking
who are now advocates and fight for rights
and entitlements not only for themselves but
for many other survivors. Survivor Allianceis an organisation that unites and empowers
survivors of human trafficking and slavery
around the world.
This three-day workshop was to review
Minderoo’s conceptualisation of agovernment response and to ask survivor
leaders what is missing from its current
framework, as well as what is important tocombat modern slavery. This workshop washeld in Kolkata in April 2019, building on amodel developed by Survivor Alliance and
Minderoo Foundation, the Lived Experience
Expert Group, that was initially held in the UK
in October 2018.

24

This was the first time that survivors inIndia gathered together to share their lived
experiences and their perspectives on
government progress — or lack of progressas the case may be — to respond to andprevent modern slavery. Survivors were paid
as consultants for their time and expertise.
The Kolkata workshop provided invaluable
information on what was actually importantfrom those who have experienced modern
slavery. For example, the group highlighted
the following:• The importance of criminal justice tocombating modern slavery, both in termsof the need for strict punishments for
traffickers, but also to empower victims.
Survivors highlighted the need for theCounter Trafficking Bill to be passed by the
Indian Parliament. Specific mechanisms
were described to allow victims to accessjustice, including the importance ofcompensation and video testimony.
• The group stated that addressing forced
labour in supply chains was the mostimportant milestone to a government
response. The role of business was
discussed in terms of organisations that
traffic women, particularly brothels.
There is a need for businesses to beregistered, and those that are found to
exploit individuals should be shut down
and criminals prosecuted. This needs toinclude business owners, not just lower
level employees.
• Victim assistance is critical to addressing
modern slavery. There needs to besupport that goes beyond rescue andthat also extends to male victims, not just
women and girls. Some believed there wasa need to prioritise victims, and to provide
them with support, safety, and resilience
over all other interventions.
• The survivor leaders highlighted theimportance of the government response
rating and regular reviews of government
interventions to ensure that no one falls
through the cracks in the system andjustice is served.
• Coordination, monitoring, andaccountability were also seen as importantto the group. This included mechanisms toensure that different agencies are talking
to each other, that their staff have received
training, and that hotlines are monitored.
This would prevent wastage. Survivors
play an important role in this coordinationof a response.

Measurement, Action, Freedom

03 Commentary

Indian migrant workers
in Nepalese brickfactories undertakethe backbreaking workof carrying coal to thekiln. Credit: Narayan
Maharjan/NurPhoto via
Getty Images

Walk Free• Addressing poverty and corruption andproviding safe migration corridors werealso highlighted as important initiatives
by the group.

Beyond this useful feedback, members of thegroup stated that they felt that the workshop
enabled them to meet with other survivors,
as well as learn more about the work of the
Minderoo Foundation, and gather informationthat they could take back to their communities
and groups. They felt empowered to use thereport to hold their government to account,and they were keen to use the findings to push
for legislative change in the coming months.

While the survivors felt that this was animportant workshop, they also expressed that
there needed to be more opportunities for thisengagement to continue, including providing
future pathways to feed their perspectives andexperiences into Minderoo’s data collection.

25

04

ABOUT
THE REPORTTERMINOLOGYCountries use differing terminologies to describe modern
forms of slavery. This includes how they describe slavery
itself, but also other concepts such as human trafficking,forced labour, debt bondage, forced or servile marriage,
and the sale and exploitation of children.
This report reflects the terminology used in Sustainable Development Goal
8.7, which calls on all nations to:“Take immediate and effective measures to end forced labour, modern
slavery, and human trafficking, as well as child labour in all its forms.”
In this report, “modern slavery” is used as an umbrella term that focuses
attention on the commonalities across these concepts. Essentially, it refers
to situations of exploitation that a person cannot refuse or leave because of
threats, violence, coercion, deception, or abuse of power. 20
Refer to Appendix 1 for full terminology.

26

Measurement, Action, Freedom

04 About the report

Non-profit group Caravanof Mothers of Missing
Migrants reunites a motherand son after 15 years of
separation. The group has,since 2005, crossed the
Mexican territory each year
to raise awareness and to
search for lost children andother family members who
have gone missing or lost
touch with their families
since migrating. Credit:
NurPhoto/NurPhoto via
Getty Images

N SL
MODER AVERY
Trafficking for labourand sexual exploitation

FORCEDLABOUR

Forced labour
as a result offorced marriage

HUMAN
TRAFFICKING(cross border and withina country)

SLAVERY &SLAVERY–LIKE PRACTICES

Trafficking for slavery
and slavery-likepractices(including forced
marriage)

Figure 1: Modern slavery
as an umbrella term.

Walk Free27

04 About the report

THE MEASUREMENT, ACTION,
FREEDOM REPORTThe Measurement, Action, Freedom report
is a tool for citizens, non-governmentorganisations (NGOs), businesses, andgovernments to understand existing laws
and policies, as well as gaps in government
responses, to modern slavery.
All supporting data tables, the report andmethodology, as well as a database housing
all the data used to produce this report, areavailable to download from the Minderoo andGlobal Slavery Index websites.
http://www.globalslaveryindex.org/2019/
measurement-action-freedom

METHODOLOGY
Governments play a critical role in developing
and implementing the laws, policies, andprograms that are needed to prevent andrespond to modern slavery. The assessments
presented in this report provide acomparative measure of the legal, policy, andprogrammatic actions that 183 governments
are taking to respond to modern slavery. Thisis based on a conceptual framework –initiallydeveloped for the 2014 Global Slavery Index(GSI) and included in three subsequent
editions – that sets out what constitutes astrong response to modern slavery.
The starting point for our conceptual
framework is situational crime prevention
theory 21 and is based on the understandingthat in order for the crime of modern slavery
to occur, there needs to be a vulnerable
victim, a motivated offender, and the absenceof a capable guardian. It also recognises thatcrime does not happen in a vacuum, andthat addressing broad contextual factors
like state instability, discrimination, anddisregard of human rights are critical to any
government response. The Framework draws
on the UN Trafficking Protocol, 22 the Councilof Europe Convention on Action against
Trafficking in Human Beings, 23 and literatureon effective responses to modern slavery. 24

28

The work has benefited greatly from the input
of experts. The initial conceptual framework
was developed in 2014 in consultation withan independent Expert Working Group andbased upon findings from NGO research andscholars in fields related to modern slavery
such as harmful traditional practices, health,social welfare, and migration. 25 It has gone
through subsequent rounds of revision witha standing Expert Working Group (EWG) andLived Experience Expert Groups (LEEGs)
made up of survivors of modern slavery.
The conceptual framework tracks
government progress towards achieving
Sustainable Development Goal (SDG) 8.7
and eradicating modern slavery across fivemilestones:

1.

Survivors of slavery are identified andsupported to exit and remain out ofslavery.

2. Criminal justice mechanisms function

effectively to prevent modern slavery.

3. Coordination occurs at the national level
and across borders, and governments
are held to account for their response.

4. Risk factors, such as attitudes, social

systems, and institutions, that enable
modern slavery are addressed.

5. Government and business stop sourcing
goods and services produced by forced
labour.

See Appendix 2 for a more detailed
description of the methodology andAppendix 3 for the conceptual framework.

CREATION OF A DATABASE
All data collected for our assessment ofgovernment responses since 2014 arepublicly available online; a total of nearly
100,000 data points. Ratings are available
for 2016, 2018, and 2019.
See www.globalslaveryindex.org

Measurement, Action, Freedom

04 About the report

UNRAVELLING THE NUMBERS

71%

40.3

Femalemillion people inmodern slavery
in 2016

15.4

million in forced marriage

29%
Male

24.9

million in forced labour

PREVALENCE OF
MODERN SLAVERY
low

high

Figure 2: Forms of modern
slavery around the world

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29

05

GLOBAL
FINDINGS
In 2015, governments around the world agreed to the2030 Sustainable Development Agenda which provided aseries of Sustainable Development Goals (SDGs) for peace
and prosperity. These goals are an urgent call for action
by all countries in a global partnership. SDG 8.7 calls on
governments to:“Take immediate and effective measures to eradicate forced labour, end
modern slavery and human trafficking and secure the prohibition andelimination of the worst forms of child labour, including recruitment anduse of child soldiers, and by 2025 end child labour in all its forms.” 26

30

Measurement, Action, Freedom

05 Global findings

Sabang, Indonesia, April 7,
2018. Indonesian militaryguard the crew next toa seized alleged “slaveship” at the naval port ofSabang. Indonesian military
seized the ship following a
dramatic high seas chasesparked by an Interpol alert
after the vessel escaped
capture in China andMozambique. The mostly
Indonesian crew reported
that they had not been paid
and that their passports
and other documents had
been taken away when theyboarded the ship nearly ayear earlier. Credit: AFP/
Getty Images

In 2016, there were an estimated 40.3 million
people in modern slavery. 27 In the same year,
the number of victims identified globally was afraction of that. 28 While more victims are being
identified than before, this still falls far short. In
order to eradicate modern slavery and achieve
SDG 8.7, we would need to free around 10,000
people every day, 29 a rate far higher thancurrently being achieved.
Four years after agreement on the SDGs,
progress towards the eradication of modern
slavery has been slow. Since 2015, total scores
have remained relatively low, with the global
average score increasing from 4 to 5 out of 10.30
Approximately 50 percent of governments
have reported an improved response, bystrengthening their criminal justice systems,
coordination and accountability mechanisms,
and victim support services.

Walk Free

This also means that half of all countries in thisreport have not reported any meaningful change
in their response or have shown a decrease in
their overall activity. Clearly, much more needs
to be done if we are to achieve SDG 8.7 by 2030.
Overall activity remains slow when urgent action
is needed. Looking at average scores across allelements of a government response since 1 July
2017, there have been small improvements insupporting survivors, criminal justice responses,
and coordination measures. There have been
incremental improvements in addressing
risk factors underlying modern slavery andinvestigating supply chains for evidence offorced labour.

31

05 Global findings

Table 1: Global average scores by milestone

ELEMENT OF
2018 GLOBAL SLAVERY CHANGE MEASUREMENT, ACTION,
GOVERNMENT RESPONSE INDEX (GSI) AVERAGE
IN
FREEDOM (MAF) REPORTSCORE RATINGAVERAGE SCORE
31

Milestone 1: Support survivors

5/10 (40.9%)

Milestone 2: Criminal justice

5/10 (42.2%)

Milestone 3: Coordination

5/10 (40.7%)

Milestone 4: Address risk

6/10 (51.4%)

Milestone 5: Supply chains

1/10 (4.1%)

Overall average

4/10 (39.4%)

Of the 183 countries 33 in this report, 136
have criminalised human trafficking inline with the UN Trafficking Protocol. 34
Fifty countries have criminalised forced
marriage, an increase from the 45 reported
previously. In this report, 164 countries
provide services for victims, although gaps
remain in quality, coverage, and access.
Ninety-five governments report gaps in theprovision of services to either migrants,men, and children, or a combination of these;72 governments reportedly had gaps infunding for these services, which are either
plugged by international organisations or
simply not provided at all. More governments
are coordinating their responses, with 121
countries implementing National Action Plans
covering some, if not all, aspects of a modern
slavery response. Only 15 countries support
an independent rapporteur or commissioner
to monitor and report on the government’s
response. Engagement with business remains
a growing trend with two more governments
working with business to investigate supply
chains or taking action to investigate
their own procurement for signs of forced
labour. Globally, this translates to just 40
governments taking steps to combat forced
labour in supply chains.
This year, we are adding to our reportingthe 53 Commonwealth countries plus
Palau, Iraq, and Liechtenstein, 35 bringing
the total number to 183. 36 While we havereported findings for these countries, it isimportant to note that data for Small Island
Developing States (SIDS) in the Pacific andCaribbean in particular remain limited. Due tothe ongoing conflict and extreme disruption
to government, we have not included ratings
for Afghanistan, South Sudan, Syria, andYemen this year. 37

32

32

—
—
—
—
—

5/10 (45.2%)
5/10 (45.8%)
5/10 (43.3%)
6/10 (51.8%)
1/10 (4.5%)
5/10 (42.2%)

As of February 2019, the governments
taking the most action to respond to modern
slavery are:
• United Kingdom• Netherlands• United States• Portugal• Sweden• Argentina• Belgium• Spain• Croatia• Australia
These countries are characterised bystrong political will, high levels of resources,
and an active civil society that holds thesegovernments to account. We reported
similar results previously, but with Australia
moving slightly upwards and the Netherlands
downwards. The passage of Australia’s
Modern Slavery Act in December 2018 has
increased its score and is to be commended,although important gaps remain. We urge
the government to appoint an Independent
Commissioner to act as an oversight body
focusing on the government’s domestic
response. 38 Conversely, for the first timesince we began reporting in 2014, theNetherlands does not appear in the top spot
for government action to end modern slavery.
This represents the strengthened response in
the UK, as well as limited prosecution efforts
in the Netherlands. In the UK, for example, areview of the 2015 Modern Slavery Act has led
to more training for first responders, such as
healthcare staff, as well as foster caregivers
and support workers for unaccompanied
asylum seeking children. 39 The year 2018 also
saw the first successful conviction for forced
marriage in an English court.40

Measurement, Action, Freedom

05 Global findings

In the Netherlands in recent years, there has
been a decrease in the number of victims
identified due to the reorganisation of the police
force, which has led to high staff turnover,and changing priorities for law enforcement
agencies as a result of increasing numbers of
migrants and asylum seekers and the rise interrorist threats.41 There are also lags in thenumber of prosecutions and lenient sentencing
for cases of labour exploitation, in particular.42
Despite this, the Netherlands still identifies
more victims than every other country in the
top 10 apart from the UK, with 952 presumed
victims identified in 201643 and 144 cases
going before the public prosecutor in 2017,44
compared to Croatia where 30 victims wereidentified in 2016 and 29 cases of trafficking
were recorded in 2017.45
While all of these governments are doing
relatively well, every country in the top 10
still recorded some negative elements of agovernment response, including the detaining
and deportation of foreign victims in theUK,46 the arrest of victims on charges relating
to prostitution or forced criminality in the
US,47 and the application of disproportionate
penalties in the Netherlands.48

It is not just high-ranked governments that are
taking positive action to respond to modern
slavery, with other countries in Africa and theArab States taking notable action. In 2018,
the Zimbabwean government increased its
training efforts by training police officers,
institutionalising trafficking in persons in theimmigration training curriculum, and creating
the Anti-Trafficking in Persons Inter-Ministerial
Committee,49 resulting in an improvementfrom a 350 to a 5 rating. Elements of victim
assistance have improved in Bahrain after theestablishment of a national referral mechanism,with support from the United Nations Office on
Drugs and Crime (UNODC) and International
Organization for Migration (IOM),51 and the
distribution of guidelines to first responders to
implement the referral mechanism.52 Bahrain
has improved to a score of 5 out of 1053 in
2019. Important gaps remain in addressing
specific vulnerabilities of migrant workers;
despite reforms to the kafala system in 2016,54
systematic abuse of migrant workers, anddomestic workers in particular, continues.55
When correlated against GDP (PPP) per
capita, some countries stand out as taking
relatively strong action when comparedwith those that have stronger economies.
Countries such as Georgia, Nigeria, Ukraine,
Moldova, Ethiopia, and Mozambique aretaking positive steps to respond to this issue
relative to their wealth. Ukraine has provided
training to investigators, border guards,
prosecutors, and court Officials. 56 For victimsof trafficking formally identified by the Ministryof Social Policy, the government provides:
translation services; information on theirrights in a language they understand; medical,
psychological, social, and legal assistance;
temporary accommodation; assistance tofind a job; access to education; and a financial
grant. 57 Both Mozambique 58 and Ethiopia59
criminalise human trafficking in line with the UN
Trafficking Protocol; in Mozambique, victims
who participated as witnesses in criminal
proceedings were able to access witness
protection programs.60

A female migrant waiting to betransferred to a support centre in
Malaga, Spain. Since the beginning of
2019, approximately 1,300 rescued
migrants have reached Malaga’s
harbour. The Spanish vessel “El
Caliope” has rescued 183 migrants,
including 50 women and 18 children,from the Mediterranean sea andprovided them with services from Red
Cross volunteers. Credit: Guillaume
Pinon/NurPhoto via Getty Images

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05 Global findings

While there were positive actions taken by
governments around the world in 2018 and2019, those taking the least action to combat
modern slavery are:• North Korea• Eritrea• Libya• Iran• Equatorial Guinea• Burundi• Democratic Republic of the Congo• Congo• Russia• Somalia
Those countries with weaker responses
to modern slavery are characterised bygovernment complicity, as is the case in North
Korea and Eritrea; low levels of political will, as
is the case in Iran; high levels of corruption, as
is the case in Equatorial Guinea; or high levelsof conflict, as is the case in Libya. Few victims
are being identified and there are even fewer
prosecutions. There is also evidence thatgovernments are actively enslaving part oftheir population in some of these countries. In
North Korea, there are reports that prisoners
are forced to labour in camps under threats ofviolence, and actual violence, to themselves
and their families.
Other countries taking limited action to
respond to modern slavery include Nauru,
Vanuatu, Samoa, Tuvalu, and Tonga. These
countries tend to have small populations,limited resources, and a lack of technicalcapacity, relying heavily on the support ofdevelopment partners in order to deliveraction on health and social justice issues.
Thus, much inaction on modern slavery by
Pacific Island governments reflects lack of
capacity rather than lack of will.
These countries broadly match our previous
assessments, with some improvements inCentral African Republic, Sudan, and Guinea
Bissau. The Central African Republic, forexample, has begun to take steps to respondto modern slavery, moving from scoring 161
in 2018 to 3 out of 10 in 2019. This in part isa result of the establishment of a 24-hour
hotline to report cases of human trafficking 62
and the establishment of the Mixed Unit
for Rapid Intervention and Repression of
Sexual Violence to Women and Children toinvestigate cases of sexual violence against
women and children in armed conflict.63

34

Significant challenges remain due to ongoingfighting and limited government control
outside the capital Bangui, but these efforts
are to be commended.
Responses in certain countries haveworsened recently. Sixteen countries havereported a decrease in action, downgrading
their overall score. Russia, for example, hasdecreased from a 3 to a 2 rating. In 2018,
there was evidence of the arrest of victims on
prostitution charges and the incarceration ofchildren alongside their exploiters for forced
criminality.64 Gaps in protection measuresexisted for potential victims in Dominican
Republic, with limited funding for support
services, and the continuing vulnerability ofHaitian migrants, including unaccompanied
children, who were subjected to violence,
assaults, mass deportation, and expulsions.65
Street children have been vulnerable to arrestand detention in Uganda, 66while there wasevidence of victims being detained in shelters
in Indonesia.67 In recent years, the government
in Lebanon has reduced the ability of labour
inspections to function by not covering thecosts of equipment and transportation forinspectors,68 while in Israel, migrants fromAfrica are detained for immigration violations
despite being exploited when traversing theEgyptian Sinai peninsula.69
There are also wealthier countries
that have done little when it comes tocombating modern slavery. When correlated
against GDP (PPP) per capita, Qatar,
Singapore, Kuwait, Brunei, Hong Kong andRussia stand out as taking relatively limited
action despite the size of the problem and theresources at their disposal. In Qatar, despitereforms to the kafala system, migrant workers
remain vulnerable to debt bondage due to the
exorbitant fees they pay recruiters in theirhome countries. A new law, No. 13 of 2018,
allows workers to leave the country without
permission from their employer, however
it does not apply to workers not coveredby Qatar’s labour laws, and employers canapply to exclude other workers. The March2018 Domestic Workers Law extends some
protection to domestic workers,70 but
difficulties remain around enforcement as
many employers have limited knowledge ofthis new legislation.71

Measurement, Action, Freedom

05 Global findings

FINDINGS ACROSS THE MILESTONES
What do survivors think?
Survivors’ experience before, during, and after
their exploitation is fundamental to assessing
government responses and can provide real
insights for the development of laws, policies,
and programs. Survivors, for example, often go
through government-funded victim assistanceprograms and can answer questions as to whatworks, what doesn’t, and what may be harmful.
However, meaningfully engaging with survivors
is often perceived as a challenge. How can
we do this in a way that is not tokenistic?
How can we respect the specificities of anindividual’s experience as well as draw out
common lessons that can be applied across
183 countries?
In 2018 and 2019, in partnership with Survivor
Alliance, we held two workshops, one in the UK
and one in India, to ask survivors to provide
feedback on how we assess government
responses. This was to help strengthen our
understanding as well as provide opportunities
for meaningful engagement. These LivedExperience Expert Group (LEEG) workshops
provided us with valuable insight into what
was actually important for those who haveexperienced various forms of modern slavery.
From these workshops, survivors
recommended that governments provide:• SURVIVOR CENTRIC RESPONSES. Survivors
should be at the forefront of all aspects of agovernment response and be provided with
option to input into government policy.
• THE ABILITY TO WORK while receiving
assistance. Working is critical to anindividual’s recovery as well as for the verypractical reason that these individuals stillneed to be able to support themselves andtheir families.

• ACCESS TO COMPENSATION.

The findings from these workshops, andconvenings with our usual expert working
group, have been incorporated into ourconceptual framework (see Appendix 2). We
will collect data against these new indicators
during the next round of data collection.
Verbatims from these workshops can be foundthroughout the narrative of this report. We
plan to host more of these workshops in othercountries throughout the latter part of 2019and 2020.

THEY [MINDEROO] OBVIOUSLY
HAVEN’T ASKED SURVIVORS.
THERE WILL BE A BIG DIFFERENCE
WHEN WE ASSESS THE
GOVERNMENT’S RESPONSE,ESPECIALLY CRIMINAL JUSTICE,
THAT WOULD RECEIVE ZERO.

Survivor Leader

SUPPORT SURVIVORS
Often missing from a government response
is survivor voice, mostly because few
governments actively engage directly withsurvivors to inform policy. The US is one of
the few countries that regularly seeks input
from survivors, which it does through the US
Advisory Council on Human Trafficking. This
council provides a formal platform for survivors
to advise and make recommendations to the
President’s Interagency Task Force to Monitor
and Combat Trafficking in Persons. Eachcouncil member is a survivor of modern slavery
and is appointed by the President for two
years.72

BETTER IF POLICE STOP TELLINGTHE VICTIMS THAT THEY ARE
LYING BECAUSE THE POLICE
THEMSELVES WERE NOT THERE.

Survivor Leader

Compensation was seen as important toallow survivors to rebuild their lives.

• STRONG CRIMINAL JUSTICE RESPONSES.
An effective criminal justice system has thedual purpose of deterring offenders andempowering survivors.

• SUPPORTIVE VICTIM SUPPORT SERVICES.
Services should be survivor-centric, while
victims should have access to translatorsand options to remain in the country.

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35

05 Global findings

Monsenhor Gil, Piauí
state, Brazil, April
9, 2015. Former
slave Elenilson deConceição posessitting at the samebus stop where heboarded a bus years
ago which took
him to far off Parastate, where he wasenslaved. Conceição
was living in poverty
when he was temptedby an unscrupulous
agent — or gato —who lived locally andpromised work. He
was trafficked to the
Amazon and, amid
death threats andviolence, set to workwithout pay, days off,
decent food, safety
gear or bearable
living conditions.
Credit: Mario Tama/
Getty Images

Globally, there have been some improvementsin the provision of training to identify andrefer victims, but the regularity and qualityof this training is mixed. Training is now given
to a broader group of first responders. One
hundred sixty-six countries have provided
training to identify victims of modern slavery
for their front-line police officers, 141 haveprovided similar training for immigration
officials, border guards, or labour inspectors,
and 121 have trained non-regulatory
responders such as doctors, nurses, teachers,or those working in the tourism sector. This
training is often not systematic or regular —only 45 of governments provide regular trainingor embed this training in existing professional
development programs. Fourteen of the police
forces that received training did not thenidentify any victims between 1 July 2017 and 15
February 2019, suggesting poor execution or
low quality of the training provided.

G IVE PEOPLE THE CHOICE WHETHERTO REMAIN OR GO BACK TO THEIRCOUNTRY OR ELSEWHERE, THERE
NEEDS TO BE SOME SORT OF GLOBALSTANDARD OF AFTERCARE TO AVOID
RE-TRAFFICKING – NEED TO HAVEPOLICY, SUPPORT, ETC AND THATTHIS IS FUNDED AND ORGANISEDBEFORE THEY GO BACK. ONLY GO
BACK IF THEY CHOOSE. THIS SHOULD
HELP PREVENT RE-TRAFFICKING…
	…IF YOU ARE GOING TO DEPORTSOMEONE YOU STILL NEED TO
ENSURE THEY ARE GOING TO
GET THAT SUPPORT.

GIVE VICTIMS INDEFINITELEAVE TO REMAIN SO THEY CANBUILD UP THEIR LIVES.

Survivor Leader

Victim-centric responses as well as longerterm support and rehabilitation for survivors
remain limited in many countries across theworld, but, are also highlighted by survivors
as some of the most important components
of victim assistance programming. Training
on how to engage with survivors, including
the use of support workers and translators
as well sensitive questioning techniques,particularly for children, were recommended
in the LEEG workshops as ways to provide
support to victims and prevent retraumatisation. Longer-term support wasalso seen as critical so that survivors may
begin to recover and to prevent future
exploitation. Ninety governments provide
some form of longer-term support, ranging
from financial support and access to social
safety nets, through to housing or job training
and placement. One hundred eighteen
governments offer measures for foreign
victims to remain within the country after
being identified. However, of those, only 47
governments offered visas on humanitarianor other grounds not tied to participationin the court case, which limits options for
those who may not wish to testify. Evidence
of detaining or deporting foreign victims
rather than providing support was found in
60 countries. Access to visas and the ability
to work was highlighted by the UK LEEG as
critical to survivor rehabilitation.

Survivor Leader

36

Measurement, Action, Freedom

05 Global findings

CRIMINAL JUSTICE
There have been a limited number of legislativechanges since 1 July 2017. In 2018, Pakistanpassed comprehensive trafficking legislationthat criminalises human trafficking and provides
protections for victims and witnesses as well as
the payment of compensation.73 As of February
2019, 22 countries have ratified the 2014 Forced
Labour Protocol, with an additional nine pledges
coming into force by May 2020.74 Eighty-sevencountries have criminalised forced labour,and many more prohibit forced labour in theirconstitution or labour codes. However, even
where forced labour is criminalised, it is often
treated as a labour dispute and is punishable bya fine only. Since 1 July 2017, more governments
have criminalised forced marriage, withlegislative amendments in Estonia,75 Morocco,76
Spain,77 and New Zealand.78 There remain
gaps in some of this legislation; for example, in
Morocco the new violence against women law
criminalises forced marriage but fails to define
it.79 Penalties for modern slavery crimes remain
disproportionate (either too lenient or too
harsh), in 78 countries, whereby perpetrators
can be penalised with a fine or corporalpunishment.

T HE GOVERNMENT CAN MAKE
POLICIES AND LAWS GALORE,
BUT THE ISSUE IS MONITORING.
IS IT BEING ENFORCED?
ARE THERE MONITORINGINITIATIVES? OTHERWISE
THERE’S NO POINT.

Survivor Leader

The existence of legislation is not in itself
enough to deter modern slavery crimes. The
lack of implementation of existing legislation
remains a significant gap in many countries
and was also highlighted by the LEEG as asignificant issue hampering government
responses. Training for judges and prosecutors
needs to be provided more regularly, with
only 73 governments providing systematictraining since 2013. Globally, weak sentencing
for modern slavery crimes, with evidenceof suspended sentences or conviction forlesser crimes that are perceived as easierto prosecute, can undermine a government
response. Disproportionate sentencing (either
too lenient or too harsh) for modern slavery
crimes was reported in at least 64 countries.

Walk Free

IF GOVERNMENTS ARE NOT ABLETO PREVENT TRAFFICKING, IT IS
AT LEAST THEIR RESPONSIBILITY
TO GIVE COMPENSATION TO
VICTIMS. EVERY GOVERNMENTIS RESPONSIBLE TO GIVECOMPENSATION TO VICTIMSOF HUMAN TRAFFICKING.

Survivor Leader

Access to justice and legal protection for
identified victims has improved across theglobe; however, many of these improvements
appear to be “on paper” rather than fully
providing the protection that victims need. In
2018 both Namibia80 and Uruguay81 introduced
stand-alone legislation to combat trafficking
in persons, which include principles of
non-punishment for victims. Despite theseimportant improvements, in 71 countries there
was evidence of arrest of victims for crimes
committed while being exploited.
Compensation was highlighted as afundamental component of a victim’s recovery
by our LEEGs. Globally, 128 governments
have included provisions in their legislation
for accessing compensation for victims ofmodern slavery and other violent crimes. The
recent amendments in Namibia and Uruguay
also included these provisions. In Namibia,
compensation covers damages, loss of income,and rehabilitation support, while in Uruguay, italso includes a financial remedy to the victim
for an amount equivalent to 24 months ofincome of the convicted perpetrator. 82The
reality is that, globally, compensation
provisions are very rarely used, or where
they are used the level of compensation thatis awarded is very low. In Belgium, one of thecountries taking significant action to respondto modern slavery, a victim can institute civil
proceedings before a criminal court, make aseparate civil application, or apply to the Fundfor Financial Aid for Victims of Intentional
Acts of Violence. 83 While there has been
an increase in compensation awarded to
victims in recent years, according to lawyers
representing victims, compensation awards
are almost never enforced because property
is not seized at the early stage, so there are nofunds to enforce a judgment. 84 NGOs in the US
also confirm that although compensation andrestitution mechanisms exist, these are rarely
used in practice. 85

37

05 Global findings

COORDINATIONThe number of coordination andaccountability mechanisms has increased
globally. One hundred one governments
have a national coordination body thatoversees elements of their modern slavery
response. Benin, 86 Djibouti, 87 and Uruguay, 88
among others, established a coordinationbody during our reporting period. In
other countries, notably Tajikistan 89 andTurkmenistan, 90 coordination bodies either
no longer met or there were delays in theirestablishment. Coordination was highlighted
by the LEEG as an important component toa government response in that it can help
government agencies react more quickly andefficiently to instances of exploitation.

labour agreements that explicitly protect
labour rights. Given the specific vulnerabilitiesof labour migrants, it is important that any
labour agreement or trade agreement extend
protections for all migrant workers.

THE COORDINATIONBETWEEN DIFFERENTDEPARTMENTS. FOR EXAMPLE,
A GIRL GOES MISSING IN MY
VILLAGE AND I GO TO THE
NEAREST [GOVERNMENTREPRESENTATIVES WHO WORKOUT OF SMALL STUDY AND
FOOD CENTRES] AND TELL
THEM THAT THERE IS THIS
GIRL WHO HAS BEEN MISSING
FOR THREE DAYS. THE PERSONWHO YOU REPORT TO IS A
GOVERNMENT WORKER SO SHECAN TAKE ME TO THE POLICEBUT EVEN SHE DOESN’T KNOW
WHO TO GO TO. THERE NEEDSTO BE TRAINING BECAUSE
THE AGENCIES DON’T KNOW
THEMSELVES. THESE AGENCIESWORK SEPARATELY AND
THERE’S NOT COORDINATIONBETWEEN AGENCIES.

Survivor Leader

ADDRESS RISK

A woman sits at atable at a job fair for
migrants launchedby the German job
centre in Berlin on
January 28, 2019.
Credit: TOBIASSCHWARZ/AFP/
Getty Images

38

Cross-border coordination remained strong,with almost every country in this report
participating in a regional body that focusedon modern slavery issues. The Bali Process
Government and Business Forum, for example,
aims to bring together ministers and businessleaders from the 45 Bali Process countries todetermine policies to tackle human trafficking,modern slavery, and forced labour. The Forum
held its second meeting in August 2018 in Bali,
Indonesia, where it agreed to the Acknowledge,
Act, and Advance Recommendations it
developed to strengthen and implement policy
and legal frameworks and advance long-term
efforts to improve supply chain transparency,
the treatment of workers, ethical recruitment,
and victim support.91 Despite evidence ofmembership of relevant regional bodies,bilateral cooperation remains limited. Of 183
countries, only 95 have established bilateral

Addressing risk factors is fundamental tocombating and preventing modern slavery.
Drivers such as corruption continue tobe a serious impediment to any effective
response to modern slavery. Almost every
country (176) in this report has criminalised
corruption, including bribery of officials;
however, around 62 countries haveconducted limited, if any, investigations into
alleged cases of government complicity
in modern slavery cases. Complicity ofofficials in trafficking cases was reported in
Albania, Bahrain, Bangladesh, Guatemala,
Kazakhstan, Malaysia, Paraguay, Qatar,
Thailand, and Uzbekistan, among others.
The trafficking of women from Pakistan to
China for forced marriage, for example, hasrevealed a network of criminals, including
public officials, on both sides of the border.
Chinese officials allegedly turn a blind eye
to cross-border matchmaking agencies thattarget vulnerable women in Pakistan andother South and Southeast Asian countries
by issuing visas and documents without
asking too many questions. 92

Measurement, Action, Freedom

05 Global findings

Migrants are particularly vulnerable to modern
slavery. Across the world, many countries are
increasingly closing their borders to thoseseeking to migrate or seek asylum. In the
United States, a number of executive orders
have restricted the rights of migrants, asylum
seekers, and refugees since President Trump’s
inauguration. Three versions of a “travelban,” or “so-called” “Muslim ban,” have beensigned by Trump, with the most recent version
being upheld by the US Supreme Court ona five-to-four vote. The most recent version
bars people from Iran, Libya, North Korea,
Somalia, Syria, and Yemen from entering the
US. Venezuelan government officials werealso included in the most recent ban. 93 In April
2019, Trump ordered the Acting Secretaryof Homeland Security and the Attorney
General to impose a fee to apply for asylum
and to bar asylum seekers who entered thecountry illegally from being able to work. 94
Further afield, the EU continues to work with
Libyan officials to prevent arrivals from acrossthe Mediterranean, despite evidence that
migrants and asylum seekers are facing abuseand detainment in Libya. 95 In the UK, asylum
seekers and migrants, including children, canbe detained indefinitely, with reports of poor
conditions and abuse in detention centres. 96
Restricting access to protection for asylum
seekers increases the vulnerability of thesegroups to exploitation.

T HIS HAPPENS BECAUSEPOLICE DON’T TRY TO FINDOUT THE POWER HOLDERSTHERE IS CORRUPTION.
CORRUPTION GETS IN THE WAY
BECAUSE AT ALL LEVELS OF
IMPLEMENTATION OF EVERYSYSTEM THERE IS CORRUPTION.
NO ONE IS HELD ACCOUNTABLE.
OWNERS ARE NOT CRIMINALISEDAND SETTINGS [BUSINESSES]ARE NOT SHUT DOWN

Survivor Leader

Walk Free

FROM ONE STATE OR REGIONTO ANOTHER, YOU CAN’T STOPMOBILITY, NOR SHOULD YOU.
YOU CANNOT SCARE PEOPLE AND
SAY YOU CANNOT GO. IT’S THE
GOVERNMENT’S RESPONSIBILITY
TO ENSURE PEOPLE ARE SAFE
DOING SO. FOR EXAMPLE,
THROUGH MIGRATION SCHEMES.
THE GOVERNMENT HAS NO RIGHTTO TELL ME NOT TO GO.

Survivor Leader

As with the 2018 GSI, we have used themeasures and typology 97 of state-imposed
forced labour developed by the 2017 Global
Estimates of Modern Slavery to identify
instances of state-imposed forced labour.
By using the ILO Committee of Experts
Comments and Observations in combination
with recent reports of exploitation at thehands of the government, we were able toidentify 20 countries in 2017 and 2018 thatshowed evidence of forcing their populationor sub-populations to work under threatof menace or penalty. As in 2018, we areable to draw attention to forced labour for
economic development in Uzbekistan98 andTurkmenistan, 99 where the forced labourof parts of the population in the annual
cotton harvest is well documented. The useof compulsory prison labour continues inpublic and private prisons in Russia100 and“compulsory educational institutions” areused in Vietnam to fulfil production quotas
in plantations, factories, and workshops.101
In China, there is increasing evidence ofuse of forced labour camps to control andindoctrinate the Muslim Uighur population.102
Abuse of civic duties occurs in Belarus,103
Burundi,104 Myanmar,105 Rwanda,106 andEswatini. In Eswatini, the practice of kuhlehla,
where the community is forced to renderservices work for the King or local chief,
continues.107 In Venezuela, Resolution No.
9855 of 19 July 2016 establishes a systemof transition labour that forcibly requisitions
workers and is compulsory for all work entities,
public and private.108 Abuse of conscription
becomes state-imposed forced labour whereconscripts are forced to perform work of a
non-military nature. We found evidence of
this in Colombia,109 Egypt,110 Madagascar,111
Mongolia,112 and perhaps most significantly
in Eritrea.113 Under the pretext of “defending
the integrity of the State and ensuring its
self-sufficiency,” the Eritrean government
has developed a system of national service
in which conscripts are exploited and forced39

05 Global findings

to labour for indefinite periods of time.
These individuals are required to constructinfrastructure and other projects for
economic development, which indirectly
support the continued existence of theEritrean government.114 In Myanmar, among
other countries, we found evidence of
forcible recruitment of child soldiers by thegovernment.115 In North Korea, forced labour
is used in prison camps where inmates are
subject to violence and the withholding offood, while their families may face threats.116
The practice of sending North Korean
workers on government contracts to work in
China and Russia raises questions about thevoluntariness of those exported from North
Korea to work overseas. Research conductedin Poland and other EU countries by the
Leiden Asia Centre found that North Koreanssent overseas to work for private companies
often received low wages and were subject tostate surveillance.117 Finally, in 2018, reports
continue of “open slave markets” in Libya,
with migrant men, women, and children being
sold off to the highest bidder.118 Alongside
this, there are reports that the Libyan Coast
Guard and the Department for Combating
Irregular Migration have forced those inmigrant detention into forced labour.119

SUPPLY CHAINS
Since 1 July 2017, there has been an
increase in the number of countries that areinvestigating government and business supply
chains for labour violations, including forced
labour. The number of countries remains low,with only 40 countries globally taking any
action in this area. Indonesia has establisheda regulation that requires businesses involvedin the fishing industry to implement a humanrights system, including the avoidance offorced labour.120 Côte d’Ivoire and Ghana
have identified sectors that are at highrisk of exploitation and have taken action
to respond. Both countries are part of theHarkin-Engel Protocol121 and the associatedInternational Cocoa Initiative,122 a voluntary
initiative developed in 2001 that aims toeradicate the worst forms of child labour inthe production of cocoa. Taiwan’s Bureau ofLabour has released lists of companies that
violate the Labour Standards Act in the pastand in 2015 issued fines to 44 companies forthese violations, which included instances
akin to modern slavery.123 It is unclear if thegovernment is continuing to do this.

40

NUMBER 5 [ENGAGING WITH
BUSINESS AND INVESTIGATINGGLOBAL SUPPLY CHAINS]IS THE MOST IMPORTANT
BECAUSE THAT’S WHERE
THE BIGGEST NUMBER OFCHILD LABOUR AND LABOUR
TRAFFICKING OCCURS. NEEDREGISTRATION OF BUSINESSESAND INSPECTIONS, THEN
[MODERN SLAVERY] WILL STOP.

Survivor Leader

Recently, one more government hasenacted mandatory reporting legislationthat requires businesses and governments
to release annual statements on their
response to modern slavery in their supply
chains. In Australia, new legislation enacted
in December 2018 provides for mandatory
reporting for the national government andfor businesses with an annual turnover of
AU$100 million.124 These reports will include
an assessment of the risks of modern slavery
in their supply chain and operations, and theactions being taken to address those risks.
They will be published on a publicly available,
online central registry.
The Australian legislation improves upon the2015 UK Modern Slavery Act, which has been
criticised for not applying to government
procurement and for not providing a central
hub for all statements – without a registry
it is difficult for civil society to analyse
the statements and hold to account thosebusinesses that have not reported. In the UK,
the Second Interim Report on Transparency
in Supply Chains, which was produced
under the Independent Review of the UK
Modern Slavery Act, recommended that the
government clarify the companies in scopeby establishing an internal list of those thatshould be reporting under the legislationand increase transparency by establishinga central government-run repository wherecompanies could upload their statements.125
The report also recommends that mandatory
reporting be extended to the public sector;126
given that about 29 of the UK government’s
100 biggest suppliers have not met therequirements of the Act, it is imperative thatmandatory reporting requirements also apply
to public procurement .127 In response, exPrime Minister Theresa May announced thereporting requirements will be extended tocover the public sector.128

Measurement, Action, Freedom

05 Global findings

GLOBAL RECOMMENDATIONS
Our analysis shows that at the current rateof progress, the achievement of SDG 8.7 isimpossible. Based on best available estimates,
we need to free some 10,000 people per day
in order to eradicate modern slavery by 2030.
This report highlights that the current rateof change falls far short. Without renewed
commitment from every country and effective
measurement, millions will continue to beenslaved. We are calling on all governments to:Work together to develop indicators
and adopt these to track progress toeradicate all forms of modern slavery
under SDG 8.7.

Beyond these minimum requirements,
we recommend that governments:

SUPPORT SURVIVORS
6. Ensure survivor voices are included in all

aspects of the response by consulting withvictims and providing avenues for their
input.

STRENGTHEN CRIMINAL JUSTICE
7. Enforce legislation by providing training
and resources for police, prosecutors,
judges, and defence attorneys to more
effectively investigate and prosecutemodern slavery cases.

Based on our analysis of current government
responses to SDG 8.7, we urge that all
governments, at a minimum, take thefollowing actions:

8. Remove barriers to victim participation

SUPPORT SURVIVORSSTRENGTHEN COORDINATION AND
ACCOUNTABILITY

1.

Increase identification of and improveassistance for modern slavery victims
by providing training to those who comeinto contact with potential victims,
including police, immigration officials,
labour inspectors, and education andhealth officials.

STRENGTHEN CRIMINAL JUSTICE
2. Ratify the 2014 ILO Protocol on Forced

Labour (PO29) and other criticalconventions, including the 2000 UN
Trafficking Protocol, 2011 ILO on Domestic
Workers (No. 189), 1930 ILO Forced Labour(No. 29), 1957 Abolition of Forced Labour
Convention (No. 105), ILO 1999 Worst Formsof Child Labour Convention (No. 182).

in the criminal justice system, such as
ensuring access to visas, compensation,and restitution.

9. Develop evidence-based national actionplans or strategies.

ERADICATE MODERN SLAVERY FROM
SUPPLY CHAINS
10. Engage with national business and regional
fora business and government forum tostrengthen strategic partnerships withbusiness to tackle modern slavery.

3. Strengthen existing human trafficking

and related legislation to ensure that all
forms of exploitation are criminalised andpenalties are appropriately severe.

ADDRESS RISK
4. Empower women and girls by providing

primary education for all and by supporting
community empowerment initiatives.

5. Strengthen national laws to protect labour

rights for all workers in both the formal andinformal economy and in high risk sectors.

Walk Free

41

42

Moldova, Republic of

GreeceSlovenia

Chile

Philippines

NorwayUnited Arab Emirates

Jamaica

Lithuania

Ireland

Estonia

Austria

KosovoUkraineAustralia

CyprusBosnia and Herzegovina

Croatia

Armenia

Slovakia

Spain

Georgia

Albania

Belgium*

New ZealandThailand

Argentina*

Italy

Bulgaria

Sweden*Trinidad and Tobago

BahamasPortugal*

FranceAzerbaijan

United States*

Hungary

CanadaNetherlands*

Montenegro

Brazil50 - 59.9

60 - 69.9

United Kingdom*

6

7

UgandaCambodia

Ghana

Suriname

Morocco

Haiti

Saint Vincent and the
Grenadines

Mongolia

MalawiSingapore

Egypt

JordanMauritius

Malaysia

Algeria

Cameroon

Taiwan, China

China

Mozambique

Brunei Darussalam

PakistanFiji

Madagascar

LebanonMali

20 - 20.99

3

Mauritania

PalauSaint Kitts and Nevis

Dominica

Congo, Democratic
Republic of theCongo

RussiaSomalia

Kiribati

Chad

Sudan

Hong Kong, China

Guinea-Bissau

Solomon Islands

Papua New Guinea

Cape Verde

Samoa

TuvaluVenezuela, Bolivarian
Republic of
Gabon

Tonga

Grenada

Iraq

Cuba

2
10 - 10.99

Central African Republic Burundi

GuineaTimor-Leste

Turkmenistan

Lao People’s Democratic
Liechtenstein
Republic

BelizeJapan

430 - 30.99
Botswana

Qatar

GuyanaTunisia

SenegalIndia

VietnamLesothoBangladesh

Ethiopia

BahrainIndonesia

Paraguay

Belarus

IcelandIsraelDominican RepublicTurkeySouth Africa

Ecuador40 - 49.9

5

Table 2: Government response rating by country (countries listed from highest to lowest per category)

Korea, Democratic
People’s Republic of(North Korea)

Eritrea

Libya

Iran, Islamic Republic of

Nauru

Equatorial Guinea

Vanuatu<0 - 9.9

1

05 Global findings

Measurement, Action, Freedom

Walk Free
Oman

Saint Lucia
Korea, Republic of(South Korea)

GambiaZambiaTanzania, United
Republic of
Sri Lanka

Switzerland

Peru

Czech Republic

Finland

PolandLiberia

Tajikistan* No country can be awarded above 7 if there are any negative indicators in their score

Eswatini

El Salvador

Kenya

Côte d’Ivoire

Honduras

Saudi Arabia

Namibia

Antigua and Barbuda

KuwaitTogo

Myanmar

Niger

Bolivia, Plurinational
State of

Nepal

Seychelles

Sierra Leone

Luxembourg

Germany

Djibouti

Kazakhstan

Romania

Guatemala

Malta

Benin

AngolaRwandaCosta Rica

MexicoNicaragua

Burkina Faso

Denmark

PanamaUruguay

Barbados

Uzbekistan

30 - 30.99

4

Kyrgyzstan

Nigeria

LatviaZimbabwe

40 - 49.9

5

Macedonia, the former
Yugoslav Republic ofColombia

50 - 59.9

60 - 69.9

Serbia6

7
20 - 20.99

3
10 - 10.99

2<0 - 9.9

1

05 Global findings

43

06

REGIONAL
ANALYSIS
Diving into regional findings, we see that some regions are
doing relatively well in comparison with others, with Europe
and Central Asia scoring the highest across all milestones,
followed by the Americas, Arab States, Asia and thePacific, and Africa. Both Africa and Asia and the Pacifichave improved their overall scores to 4 out of 10. Africa andAsia and the Pacific are outperforming the Arab Stateson addressing risk. All regions are weak on engaging withbusiness and investigating supply chains.

44

Measurement, Action, Freedom

06 Regional analysis

A boat from Yemen
carrying over 50
Ethiopian migrants
is intercepted off
the coast of Djibouti.
Migrants leave Ethiopia
via Djibouti andcross Yemen to seek
employment in Saudi
Arabia. In March 2017,
the Saudi government
granted all irregularmigrants an amnesty
period of 90 days
to leave the country
without facing penalties.
An estimated 500,000
migrants were present in
Saudi at the time. After
multiple extensions, theamnesty period endedin November 2017. IOM
estimates that around
230,000 have now
returned to Ethiopia.
Credit: National
Geographic

Table 1: Regional average scores, total and by milestone 129

AFRICA AMERICAS

ARABSTATESASIA& THE
PACIFICTOTALEUROPE MAF 2019

Support survivors

4/10

5/10

6/10

4/10

7/10

5/10

Criminal justice

4/10

6/10

5/10

4/10

7/10

5/10

Coordination

4/10

5/10

4/10

4/10

6/10

5/10

Address risk

5/10

6/10

4/10

5/10

7/10

6/10

Supply chains

1/10

1/10

0/10

1/10

2/10

1/10

TOTAL MAF 2019

4/10

5/10

4/10

4/10

6/10

5/10

Indicates improvement in rating since 2018 government responses assessment

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06 Regional analysis

AFRICA

GOVERNMENT RESPONSE HIGHLIGHTS
SenegalTunisia

Morocco

Libya

Algeria

Egypt

Cape Verde

Mauritania
Mali

Niger
Chad

Sudan

EritreaGambiaDjibouti
Guinea-Bissau

Nigeria

GuineaSierra Leone

Ethiopia

South
Sudan

Central African
Republic

Liberia
Côte d'’ Ivoire

Somalia

Kenya
Burkina Faso

Ghana

Togo

UgandaDemocratic
Republicof the Congo

Benin

Equatorial Guinea

RwandaBurundiTanzania

Cameroon
Gabon

Seychelles
MalawiAngolaZambiaRepublic of the Congo

Mauritius

Namibia

Botswana
Madagascar

Zimbabwe

South Africa

LesothoMozambique

Eswatini

AVERAGE GOVERNMENTRESPONSE SCORE% <0-9.9

Not
Rated

1

10-19.9 20-29.9 30-39.9 40-49.9 50-59.9 60-69.9 70-79.9 80-89.9 90-99.9

2

3 4
2018

5

6

7*

8

9

10

* N o country can be awarded above a 7 if there are any negative indicators in their score

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06 Regional analysis

WEAK RESPONSE
RELATIVE TO WEALTH*STRONG RESPONSE
RELATIVE TO WEALTH*ETHIOPIALESOTHO
MOZAMBIQUE
SENEGALZIMBABWE

LIBYA
EQUATORIAL GUINEAGABONMAURITIUS
SEYCHELLES*Gross Domestic Product (Purchasing Power Parity) Per Capita*Gross Domestic Product (Purchasing Power Parity) Per Capita

AVERAGE MILESTONE SCORE^
M1. 32.8%

Identify and support survivors

M2. 36.6%

Establish effective criminal
justice systems

M3.	
36.4%

Strengthen coordination andhold governments to account

M4.	
45.1%

Address risk factors

M5. 0.3%

Clean up government andbusiness supply chains^Average milestone scores at theregional level. There are 28 activities
that sit behind the milestones which leadto implicit weighting in the overall score.
See Appendix 2 for more details.

KEY GAPS IN RESPONSE

Of the 51 countries assessed in the region:

32

44

12

8

51

do not provide support
services for all victims ofmodern slavery

have not criminalised
forced marriage

deport or detain
foreign victims for
immigration violations

have state-imposed
forced labour

do not requirebusinesses to reporton supply chain risks

M1

M2

M3

M4

M5

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06 Regional analysis

The Africa region encompasses130 58
countries and 16 percent of the world’s
population. Of these, 51 countries in theregion are assessed in this report. According
to the Global Estimates of Modern Slavery,an estimated 9.2 million men, women andchildren were living in modern slavery inAfrica in 2016. Africa has the highest rateof prevalence among all world regions with
7.6 people living in modern slavery for every
1,000 people in the region. When considering
the forms of modern slavery, the rate offorced marriage (4.8 victims per 1,000
people in the region) was higher than the rateof forced labour (2.8 victims per 1,000 people
in the region).131
Migration, ongoing or protracted conflict,and state-imposed forced labour are
critical issues for many African countries;
the connection between these issues andmodern slavery is evident across the region.
Many of the countries with the highest
estimated levels of prevalence are marked
by conflict, including Eritrea, Burundi,
and the Central African Republic. Due toongoing conflict and extreme disruption
to government, we have not included agovernment response assessment for South
Sudan this year. Migration from countries in
Sub-Saharan Africa, either to neighbouring
Sub-Saharan countries or further afield toEurope, the United States, Gulf Cooperation
Countries (GCC), or other countries, has
increased dramatically. Between 2010
and 2017, the total number of emigrants
worldwide from all Sub-Saharan Africancountries grew by 31 percent.132 Stateimposed forced labour is a feature of multiple
countries in the Africa region. This year, wefind that there are eight countries wherestate-imposed forced labour occurs, namely
Rwanda, Egypt, Madagascar, Eswatini, Mali,
Burundi, Libya, and Eritrea.
National responses to modern slavery inAfrica are mixed with some strong responses
by countries in the region as well as evidence
of inadequate victim protection and weakcriminal justice systems, often compoundedby lack of political will and resources. While
24 countries made overall improvements,
other countries continued to face challenges.
Between 1 July 2017 and 15 February 2019,
Eritrea, Libya, and Equatorial Guinea took
the fewest steps to address modern slavery,
all achieving the lowest rating (1), followed by
Burundi, Democratic Republic of the Congo(DRC), Congo, Somalia, Chad, and Mauritania,
which scored the second lowest rating (2).

48

On the other hand, Nigeria has the region’s
strongest response to tackle modern slavery(6), followed by South Africa (5) and Ethiopia(5). Compared to others in the region, thesecountries are generally taking concrete
actions to improve certain aspects of victim
support, strengthen their criminal justicesystems, increase coordination, and address
vulnerability factors. As noted by Maria Grazia
Giammarinaro, the UN Special Rapporteuron Trafficking in Persons, especially Womenand Children, after her visit to Nigeria in 2018,
Nigeria was one of the first African countries
to pass legislation criminalising humantrafficking, which it did in 2003. In addition,
Nigeria has a specialised law enforcement
agency dedicated to trafficking, the National
Agency for the Prohibition of Trafficking in
Persons and other Related Matters (NAPTIP),
which conducts a range of important work,from conducting awareness-raising tooperating shelters and leading on prosecutionof perpetrators.133 Nigeria has previously
taken very strong actions, achieving thestrongest response in the Africa region in the2014 and 2016 editions of the Global Slavery
Index (GSI).

GOVERNMENTS RESPONSES AGAINSTGDP (PPP) PER CAPITA

Globally, when correlating government
responses against GDP (PPP) per capita,
we find that, generally, countries with ahigher level of wealth are taking moreaction to respond to modern slavery. Yet,in the Africa region, this trend only proves
to be true when a few specific outliers
are excluded – namely, the Seychelles,
Equatorial Guinea, Mauritius, and Libya.
All these countries are characterised by ahigher level of resources at their disposal,
yet they are taking comparatively little
action. This is particularly true forEquatorial Guinea and Libya, where
the governments are doing very little
to respond to modern slavery. In Libya,
this effect is further compounded by the
profound level of conflict in the country,
which impacts on government capacity.
In comparison, Ethiopia, Lesotho,
Mozambique, Senegal, and Zimbabwe aretaking very positive steps to respond to
this issue relative to their level of wealth.

Measurement, Action, Freedom

06 Regional analysis

Various countries within the region improved
their responses to modern slavery during ourreporting period. The greatest progress wasmade by Zimbabwe and Ghana (both movingfrom scoring 3 to 5 out of 10 in 2019), andCentral African Republic (moving from scoring
1 to 3 out of 10 in 2019). For example, Ghana
finalised and began implementing standard
guidelines for identifying and screeningof victims.134 In 2018, the Zimbabwean
government worked with internationalorganisations to provide trafficking-specifictraining for judges and prosecutors.135 In
the Central African Republic, the Joint Unit
for Rapid Intervention and Eradication of
Sexual Violence against Women and Children(UMIRR), which focused on armed conflict,
became operational in mid-2017. Although
the unit reportedly faces operational andresourcing challenges, it offers some hopefor child soldier victims and victims of forced
sexual exploitation.136
Conflict and political instability continued
to affect government responses in multiple
countries across Africa. According to the2016 State Fragility Index, there were six
countries in Africa that showed an extremely
high level of state fragility accompanied byarmed conflict,137 including the DRC, theCentral African Republic, South Sudan,138
Sudan, Burundi, and Somalia.139 As a result of
severe political instability, limited government
control, and high rates of displacement in partsof these countries, government capacity tocombat modern slavery is limited. For example,
the DRC’s North Kivu province is one of thecountry’s regions most affected by mass
displacement while also having the highest
number of reports of sexual and gender-based
violence in the country. Increased attacks andmounting insecurity in North Kivu have resulted
in more than 100,000 people fleeing theirhomes in April 2019 alone.140

SUPPORT SURVIVORS
Identification of victims and provision of victim
support services is the first step in breaking
the cycle of exploitation and should be at theforefront of a government response. In Africa,
victim assistance remained limited in somecountries across the region, with strongest
responses in this area in Nigeria, South Africa,
and Tunisia. The Nigerian Trafficking Agency(NAPTIP) continued to work extensively with
the UK’s National Crime Agency, Border Force,
Immigration Enforcement, and the Crown
Prosecution Service to build its capacity
to respond to human trafficking, including
training and mentoring through a Joint Border
Taskforce.141 As part of this project, NAPTIP
conducted joint operations in 2017 at Gatwickand Heathrow airports in London aimed at
profiling and identifying victims of trafficking andsuspected traffickers.142 In January 2018, theTunisian government began operating a hotline
in Arabic, French, and English, through which
modern slavery crimes can be reported.143

Training of first responders

45

29

Front-line police

27

Regulatory first responders

6

Non-regulatory first responders

0

36
32
51

Number of countries in the region

Figure 1: Number of countries in the Africa region
providing training to selected groups of first responders

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06 Regional analysis

form of assistance to victims of modern
slavery. In addition, gaps in victim assistanceand lack of government funding remain anissue across many countries in the region. For
instance, while there are some victim support
services available in Uganda, there is a lackof assistance for male victims and there aresevere gaps in funding for shelters, mostof which are run by NGOs or internationalorganisations.148 In Benin, victim support
services are available only for child victims,
whereas adult victims could receive someassistance only from generic assistanceservices for victims of abuse.149 Only 26
countries of those 44 that provide someform of assistance offer physical and mental
health support services to victims, both ofwhich are critical in ensuring recovery of thevictim. Another concern is that in nine of the
44 countries providing victim assistance,
victims are held in shelters against their will.

Training of first responders is another criticalcomponent in ensuring effective identification
and referral. There is evidence that 45 outof 51 countries in Africa have trained theirfront-line police, which is an increase fromthe 40 countries reported in the 2018 GSI.
Mauritania has not conducted any training
for police since 2013 and there is evidence
that the government actively prevented
training this year,144 while Togo trained police
officers for the first time.145 The governmentof Djibouti has taken positive steps by training
its front-line police, which has resulted for the
first time in victims being identified without
support from an international organisation.146
Systematic and regular training remained
limited. When looking at training for both
regulatory (immigration, border control, or
labour inspectors) and non-regulatory first
responders (doctors, social workers, or
nurses), there are 26 countries in Africa thathave trained both these groups. For example,
in 2018, the Zimbabwean government
increased its training efforts by providing
training to its police officers and rolling out
anti-trafficking training to the immigration
department with support from the IOM.
In addition, the government has conductedtraining workshops for social workers on
identifying and dealing with victims.147

National Referral Mechanisms (NRMs)
are another important tool to ensure thatonce victims have been identified, they
are linked with the services needed to help
them exit the cycle of exploitation. Thereare currently only 11 countries in Africa thathave such referral structures in place. While
Mozambique had drafted but not completely
established its NRM,150 Kenya rolled out
guidelines for the country’s NRM by the endof 2017 151 although civil society have raisedquestions as to its implementation.

Provision of victim support services has
decreased since 1 July 2017, resulting in justover 86 percent of countries providing someVictim support services

44

Any type of victim support services

36

Child-friendly services

26

Physical and mental health services

17

Family reunification services

12Long-term reintegraton support

051

Number of countries in the region

Figure 2: Number of countries in the Africa region
with selected victim support services

50

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06 Regional analysis

CRIMINAL JUSTICEAll 51 countries in the Africa region havecriminalised at least one form of modern
slavery in line with international conventions.152
The most commonly criminalised modern
slavery crime in Africa is human trafficking.
Nearly 70 percent of all countries (35 of51) have legislation outlawing this crime.
Namibia introduced stand-alone legislation tocombat trafficking in persons in 2018, which
includes victim non-punishment principles
and compensation.153 In comparison, only 23
African countries have domestic legislation
outlawing slavery. In May 2017, Chadcriminalised slavery in articles 328 and 331 of
its recently revised criminal code.154
Given Africa has the highest prevalence offorced marriage globally, it is disconcertingthat only seven countries have so far
criminalised forced marriage offences. Childand forced marriage persist in many Africancountries due to longstanding religious andsociocultural traditions that reinforce views on
gender inequality and the role of women andgirls. Niger is estimated to have the highest
prevalence rate of child marriage globally, with
76 percent of women aged 20 to 24 years oldhaving been first married before they were
18 years of age.155 Although forced marriage
is currently not criminalised in Niger, thegovernment finally outlawed the so-called“fifth wife” or “wahaya” slavery practicein a landmark ruling in 2019. This practiceallows men to take an unofficial “fifth wife” inaddition to the four wives legally permitted in
Niger. Often, these “fifth wives” are subjected
to forced domestic labour and sexual
exploitation at the hands of their “master”
while enjoying none of the rights of an official
wife.156 While the abolition of this practiceis an important step toward strengthening
the role of women and their rights, moreremains to be done. An effective approach toeliminating forced and child marriage must
go beyond a legislative response to address
underlying cultural and belief systems
that drive this form of modern slavery.
For example, community empowerment
programs, such as the Tostan program that
operates in Guinea, Guinea-Bissau, Mali,
Mauritania, Senegal, and the Gambia, aims tobring about social transformation based on
respect for human rights. The program has
been found to empower women and girls andreduce rates of child marriage.157

National modern slavery legislation

35

Human trafficking

32

Forced labour

23

Slavery

18

Child commercial sexual exploitation

10

Use of children in armed conflict

7

Forced marriage
051

Number of countries in the region

Figure 3: Number of countries in the Africa region that have passed
domestic legislation criminalising a form of modern slavery

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06 Regional analysis

In 2017, there was a global increase in thenumber of children recruited and usedin armed conflict, resulting in more than
6,000 verified instances of children used bygovernment forces and more than 15,000
such instances by non-state armed groups
in Africa, Asia, Latin America, and the
Middle East. In Africa, there have been cases
recorded in the Central African Republic, DRC,
Libya, Mali, Nigeria, Somalia, South Sudan,and Sudan.158 Despite the clear presence ofchild soldiers in Africa, only 10 of the 51 Africancountries have criminalised the use of children
by state and non-state armed groups.
In most African countries (31 out of 51),
penalties outlined in at least one of theirmodern slavery laws are disproportionate
to the crime, which means they are either
overly lenient or inhumane in their treatment
of offenders. For example, in Djibouti,
forced labour 159 and human trafficking 160
are punishable by fines only. Even where
penalties are proportionate, this has notnecessarily resulted in adequate sentencesin practice. In 17 African countries, judicial
rulings are not proportionate to the severityof the crime, that is, they are either too lenient
or too harsh, highlighting some countries’
difficulties in translating criminal laws into
action. In Cameroon, for instance, judges
issued suspended sentences and allowed forsettlements outside of court.161
There is further evidence of continuing issues
with implementation of legal frameworks.
While there are 30 countries that havefunctioning legal frameworks that support
restitution or compensation for victims,
Nigeria is one example of a country where
restitution or compensation is supported
in anti-trafficking legislation but then is not
implemented in practice. As noted by the UN
Special Rapporteur on Trafficking in Persons,especially Women and Children, after 10
years of the establishment of Nigeria’s TrustFund for victims of trafficking, apparently
no compensation has ever been paid toany victims.162 Similarly, the anti-trafficking
legislation in Mauritius allows the court
to award the victim a defined amount ofcompensation, however there is no recent
evidence of such compensation being
awarded to a victim.163

Access to justice mechanisms

30

Compensation or restitution

20

Child-friendly processes

17Free legal aid

16

Witness protection inside court

13

Witness protection outside court

051

Number of countries in the region

Figure 4: Number of countries in the Africa region
providing selected access to justice mechanisms forvictims of modern slavery

52

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06 Regional analysis

COORDINATION
In a positive step, there has been an overall
increase in countries that have a current
National Action Plan (NAP) addressing
modern slavery issues, from 29 countries to
32 countries since 1 July 2017. For the firsttime, the government of Cape Verde drafted a
NAP on trafficking covering the period 20182021164 and Malawi launched a NAP in 2017 thatincorporates a victim-centred approach.165
However, only Senegal, Ghana, Algeria, Mali,
and Malawi provide sufficient funding fortheir NAPs, which means implementation in
all other countries that have a plan is likely
to be limited. No government in Africa has
implemented a monitoring mechanism, such as
an independent rapporteur or commissioner,
to ensure effective monitoring of government
activities to combat modern slavery.
Regional and bilateral cooperation is key tocombating modern slavery, particularly given
the high levels of migration in the African
region. Every country within Africa is involved
in some regional body acting against modern
slavery and most (39 countries) have signed
bilateral agreements to cooperate on modern

slavery issues. Initiatives providing safelabour migration corridors are also important.
Since the 1980s East African migrants andrefugees have travelled to the Middle East
and Arabian Peninsula for employment as
low-skilled domestic workers, cleaners,
labourers, and construction workers, manyof whom end up experiencing some formof exploitation in the destination country.166
It is critical for governments to implement
labour migration agreements that provide
protection during the migration process
and in the destination country. However,currently only eight African countries have
implemented such agreements. One of thesecountries is Ethiopia, which implemented
new labour agreements with Saudi Arabia
in 2017 167 and the United Arab Emirates in
2018,168 both of which include protections
for migrant workers. Yet, there is limited
information available about the effectivenessand implementation of these agreements.

National coordination mechanisms

32

National Action Plan

28

National coordinating body

5

NAP is fully funded
Independent entity tomonitor the government’s responses

0Annual reporting against the NAP

0
0

51

Number of countries in the region

Figure 5: Number of countries in the Africa region with national
coordination mechanisms to respond to modern slavery

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06 Regional analysis

ADDRESS RISK
Supporting labour rights and protecting
migrant workers, who are particularly at riskof exploitation, remains a global concern.
Thirty-one African countries have labourlaws that cover all workers, including migrant
workers or those working in more informal
sectors such as domestic work or agriculture.
In addition to gaps in labour protections,modern slavery can flourish when there is alack of enforcement of labour standards. In
Africa, only nine countries conducted labour
inspections, including in informal sectors,
to address labour exploitation and forced
labour. While there is evidence of labour
inspections in Sierra Leone, implementationis still patchy. The government of Sierra
Leone has noted severe resource constraints
and an insufficient number of labour
inspectors to ensure the enforcement oflabour laws.169
Systematic abuse and discriminatory visa
regimes continue to affect labour migrants.
There is evidence of institutionalised patternsof abuse in Angola, Cape Verde, DRC,
Egypt, Libya, Madagascar, Mauritius, South
Africa, and Sudan. In Cape Verde, there
are concerns regarding the discriminationand stigmatisation of West African migrant
workers. Additionally, the labour law
there currently allows that under certain
circumstances contracts of migrant workers
do not need to be in written form, increasing

the risk of exploitation among this group.170
Evidence of tied visa policies, which makeit difficult for migrant workers to change
employers and render them vulnerable toabuse, was found only in Mauritius. This is
likely to be an underestimate of the instancesof tied visas due to the complex nature ofmany countries’ visa regimes.
Some African countries are implementing
promising actions to provide vulnerable
migrant workers in destination countries
with avenues through which they can accesshelp in case of exploitation. For example,
Kenya has demonstrated increasing efforts
to protect vulnerable workers abroad
by assigning labour attachés to Kenyan
missions in Qatar, the United Arab Emirates,
and Saudi Arabia to protect citizens
employed in those countries.171
As recently noted by the ILO, there has been
an extensive growth of private recruitment
agencies worldwide that has coincidedwith increasing reports of exploitation andabuse of migrant workers in particular by
unscrupulous recruitment and employment
agencies.172 Research has clearly foundthat payment of recruitment fees increases
the risk of migrant workers ending up insituations of forced labour.173 In Africa, only
nine countries currently have policies thatprescribe the “employer pays” principle
where private recruitment fees are paid by
the employer, not the employee.

Protections for workers

31

Labour laws that cover all workers
Employer pays principle
stipulated in law
Labour inspections toaddress labour exploitation

9
9
0

51

Number of countries in the region

Figure 6: Number of countries in the Africa region withlabour protections for workers

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06 Regional analysis

Globally, there is growing action towards
tackling known risk factors to modern slavery,such as providing access to education andbirth registration and extending health carecoverage. In spite of this, the Africa region isstill lagging behind. For instance, while nearly
70 percent of countries globally have less than
10 percent of primary school aged children
out of school, in Africa just over 30 percent ofcountries meet this standard. Ensuring thatchildren, and particularly girls, attend school
is crucial given the link between access to
education and the reduction of forced marriage
practices, which are particularly prevalent in
the Africa region.

SUPPLY CHAINS

has been questioned,175 both countries arepart of the Harkin-Engel Protocol176 and theassociated International Cocoa Initiative,177 a
voluntary initiative developed in 2001 that aims
to eradicate the worst forms of child labour inthe production of cocoa.
As governments are large buyers of goods andservices globally, government agencies also
have a key role to play in ensuring public supply
chains are free from modern slavery. At thisstage no African country has adopted public
procurement policies to minimise the riskof governments purchasing products linked
to forced labour. There is also no evidenceof countries in the region that have laws toprevent the import of goods and services madewith forced labour.

There has been increased recognition globallyof the role that the private sector can play ineradicating modern slavery, yet Africa is only atthe beginning of this journey. The importanceof this emerging area of action is highlighted by
the fact that an estimated 16 million of the 24.9
million people in forced labour were exploitedin the private economy in 2016.174 No evidence
exists of African governments taking steps to
implement business supply chain transparency
legislation; however, Côte d’Ivoire and Ghana
have identified sectors that are at high risk of
exploitation and have taken action to respond.
Although the effectiveness of the protocol

AFRICAN NATIONSSHOULD STRENGTHENCRIMINAL PENALTIESFOR MODERNSLAVERY CRIMESWalk Free

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06 Regional analysis

REGIONAL RECOMMENDATIONS
Governments should:

SUPPORT SURVIVORSADDRESS RISK FACTORS

police, regulatory and non-regulatory first
responders on how to identify and respondto victims.
• Ensure support services are available forvictims of modern slavery, and that these
are appropriately funded.
• Close gaps in victim support services byextending available support services toadults and men in particular.

to any modern slavery response by
supporting the empowerment of womenand girls through access to education
for all and community empowerment
programming.
• Ensure that prospective migrants are
informed of their labour rights andprovided with information on how
to access help and seek redress for
exploitation in the destination country.
• Extend labour laws to ensure they covers
all workers, including those in informal
sectors, and ensure labour protections are
enforced through systematic and regularlabour inspection.

• Provide regular and consistent training for

STRENGTHEN CRIMINAL JUSTICE• Strengthen existing national legislation toensure that all forms of modern slavery
are criminalised in line with international
standards.
• The governments of Rwanda, Egypt,
Madagascar, Eswatini, Mali, Burundi,
Libya, and Eritrea should close legal
loopholes that facilitate state-imposed
forced labour and work with the ILO toensure state-imposed forced labour isabolished in practice.
• Ensure judicial punishments areappropriate for the severity of the crimeand provide access to restitution andcompensation for all victims.

STRENGTHEN COORDINATION
AND ACCOUNTABILITY• Recognise the importance of gender

ERADICATE MODERN SLAVERY FROM
SUPPLY CHAINS• Identify sectors at high risk of forced

labour, as Côte d’Ivoire and Ghana havedone, and work with business and civilsociety in those sectors to develop
initiatives to eradicate forced labour andother forms of labour exploitation.
• Begin engaging with business to raiseawareness of the issue of modern slavery
in global supply chains.

• Establish a single coordinated regional

response to combat modern slavery andhuman trafficking by finalising the Draft
African Union Ten Year Action Plan to
Eradicate Child Labour, Forced Labour,
Human Trafficking and Modern Slavery.
• Develop National Action Plans or
strategies, in coordination with relevant
stakeholders, that are based on researchand data and survivor experiences, andfund national strategies appropriately.
• Expand protection for victims exploitedin other countries by establishing bilaterallabour migration agreements that include
protection for migrant workers.

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Malkohi refugee camp,
Adamawa State, Nigeria,
February 19, 2019. A woman
cooks inside her home fourdays ahead of the country’s
general elections. Malkohi is acamp for internally displaced
people who fled their homes
as Boko Haram insurgentsadvanced across north-eastern
Nigeria. Malkohi residents saythey feel forgotten. Credit: Luis
Tato/AFP/Getty Images

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AMERICAS
GOVERNMENT RESPONSE HIGHLIGHTS

Antigua andBarbudaSaint Kitts
and Nevis

Dominica
Saint Lucia
Saint Vincent and
The Grenadines

CanadaBarbados
GrenadaUnited States
Bahamas

Cuba

Haiti

Jamaica

MexicoDominican Republic
BelizeGuatemalaTrinidad and Tobago
Venezuela
GuyanaSuriname

Honduras
El Salvador
Nicaragua
Costa Rica
Peru

PanamaBrazilColombia

Bolivia

EcuadorParaguay

UruguayArgentina

Chile

AVERAGE GOVERNMENTRESPONSE SCORE% <0-9.9

Not
Rated

1

10-19.9 20-29.9 30-39.9 40-49.9 50-59.9 60-69.9 70-79.9 80-89.9 90-99.9

2

3

4

5

6

7*

8

9

10

* N o country can be awarded
above a 7 if there are any
negative indicators in their score

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WEAK RESPONSE
RELATIVE TO WEALTH*STRONG RESPONSE
RELATIVE TO WEALTH*VENEZUELASURINAME

CHILE
URUGUAYMEXICOPERU
JAMAICA*Gross Domestic Product (Purchasing Power Parity) Per Capita*Gross Domestic Product (Purchasing Power Parity) Per Capita

AVERAGE MILESTONE SCORE^
M1.	
47.6%

Identify and support survivors

M2. 52.4%

Establish effective criminal
justice systems

M3. 43.8%

Strengthen coordination andhold governments to account

M4.	
58.2%

Address risk factors

M5. 2.9%

Clean up government andbusiness supply chains^Average milestone scores at theregional level. There are 28 activities
that sit behind the milestones which leadto implicit weighting in the overall score.
See Appendix 2 for more details.

KEY GAPS IN RESPONSE

Of the 35 countries assessed in the region:

24

11

9

12

33

do not provide support
services for all victims
of modern slavery

have treated victims ascriminals for conductthat occurred under thecontrol of criminals

deport or detain
foreign victims for
immigration violations

have not investigatedreports of corruption inmodern slavery cases

do not requirebusinesses to reporton supply chain risks

M1

M2

M3

M4

M5

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The Americas region encompasses 54
countries178 across North America, Central
America, the Caribbean, and South America.
Of these, 35 countries in this region areassessed in this report. According to the mostrecent estimates, 1.9 million men, women,
and children were living in modern slavery
in the Americas in 2016.179 The Americas
has the lowest rate of prevalence among all
world regions, with 1.9 people living in modern
slavery for every 1,000 people in the region.
When considering the forms of modern
slavery, the rate of forced labour (1.3 victims
per 1,000 people) was higher than the rate offorced marriage (0.7 victims per 1,000).
Modern slavery in the Americas ischaracterised by large-scale movementof people from less developed to moredeveloped areas. The motivations
to migrate are many, complex, andinterrelated. Many people move to seek
asylum, to escape violence, economic, andpolitical instability,180 or to find economic
opportunities.181 Economic and politicalinstability in Venezuela has heightened therisk of modern slavery there,182 but it has
also added to the number of people on themove. It is estimated that more than 2.7
million Venezuelans, nine percent of the
population, have fled the country in the last
four years.183 At the same time, increasingly
restrictive immigration policies in the
United States and other countries haveforced migrants to take increasingly risky
migration pathways.184 Specific groups in theregion, such as, unaccompanied minors, areparticularly vulnerable to a range of abuses
during their migration.185 For job seekers andmigrant workers, once they have arrived intheir destination countries, there are risks
in the informal sector or rural areas due tolimited regulation or oversight and few labour
inspections.186 The products produced asa result of exploited labour of victims ofmodern slavery in the Americas permeate
global supply chains, especially in the timberand garments sectors.187 In light of theseissues, it is not surprising that Venezuela has
the highest estimated prevalence of modern
slavery in the region, nor that the UnitedStates, Brazil, and Mexico have the highest
absolute number of victims and collectively
account for over half of all victims of modern
slavery in the region. Other forms of modern
slavery, such as forced sexual exploitationof adults,188 commercial sexual exploitationof children,189 child soldiers,190 and forced
marriage191 are documented in the region.

60

National responses to modern slavery in theAmericas are mixed. Despite some strong
responses in the region, there is evidence
of inadequate victim protection and weakcriminal justice systems, often compoundedby government crises, corruption, andlarge migration flows. While 18 out of 35
countries in the region have made overall
improvements since 1 July 2017, othercountries continued to face challenges.
Between 1 July 2017 and 15 February 2019,
Grenada, Saint Kitts and Nevis, and Dominica
took the fewest steps to address modern
slavery, all achieving the lowest rating (2),followed by Venezuela and Cuba, whichscored the second lowest rating (3). While
we have reported the actions of smaller
countries in the Caribbean and Central
America this year, including Grenada, Saint
Kitts and Nevis, and Dominica, it is worth
noting that these countries are characterisedby small populations and limited publicly
available data. Removing Small Island
Developing States (SIDS), includes Suriname
and Haiti (4) in the list of countries taking
limited action.
Alternatively, the United States, Argentina,
Chile, Uruguay, Mexico and Peru have thestrongest responses to tackle modern
slavery. Compared to others in the region,these countries are generally taking concrete
actions to improve certain aspects ofvictim support, strengthen their criminal
justice systems, and address vulnerability
factors. Argentina has made considerable
progress improving its government response
to modern slavery with recent evidenceof government training for social workers,
doctors, and teachers,192 the opening of five
regional counter-trafficking offices providing
physical and mental health services,193 andthe first successful issuing of restitution for a
trafficking case in 2016.194
Several countries within the region improved
their responses to modern slavery. Notable
progress was made by Guyana, Barbados,
Honduras, Antigua and Barbuda, and Saint
Vincent and the Grenadines (from 4 to 5
rating), and Mexico, Uruguay, and Peru (from
6 to 7 rating). Guyana has improved its victim
assistance programming, coordination andaccountability mechanisms, and efforts toaddress risk since 1 July 2017. The government
has dedicated funding for activities in its
National Action Plan and has assisted in therepatriation of multiple foreign victims for the
first time in our reporting.195 Three countries
decreased their overall government response

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score: the Dominican Republic (from 6 to a 5
rating) and Jamaica and Canada (from 7 to 6
rating). The Dominican Republic, for example,
has not implemented clear national guidelines
for identifying and screening victims for all
first responders, and has reduced efforts toimplement them in the reporting period.196

GOVERNMENTS RESPONSES AGAINSTGDP (PPP) PER CAPITA

Globally, when correlating government
responses against GDP (PPP) per capita,
we find that, generally, countries with ahigher level of wealth are taking moreaction to respond to modern slavery. In
the Americas region, Saint Kitts and Nevis,
Grenada, Dominica, Venezuela, Saint
Lucia, and Suriname are the countries
taking minimal steps to respond tomodern slavery relative to their per capita
wealth. The inclusion of Venezuela likely
reflects its ongoing political and economic
crises. Saint Kitts and Nevis, Grenada,
Dominica, and Saint Lucia are Small
Island Developing States (SIDS) with small
populations and limited publicly available
data. In comparison, Jamaica and Peru
are taking impressive steps to respond to
this issue relative to their level of wealth.
Jamaica now offers its hotline in multiple
languages197 and has ratified the Protocolof 2014 to the Forced Labour Convention of1930, which is in force as of 13 June 2017.198

SUPPORT SURVIVORS
Improving the identification and referral of
victims by training law enforcement and first
responders is an important element of agovernment’s response to modern slavery.
Thirty-two out of 35 countries in the Americas
have trained their front-line police, reflecting a
recent increase, with Suriname now conducting
such training. Suriname provided training
for its incoming police recruits for the firsttime in our reporting period and operated a
specialised 15-person anti-trafficking unit
to investigate cases and provide training
throughout the country. 199 Twenty-nine and 23
countries have trained regulatory (immigration,
border control, or labour inspectors) and nonregulatory (doctors, social workers, or nurses)
first responders, respectively. There are fewer
countries in the region (22) that have trained
both groups. In Mexico, the National Security
System (CNS) hosted law enforcement officials
from throughout the Americas to share
best practices and promote cooperation on
trafficking cases. The Mexican government
also trained federal police, federal prosecutors,
immigration officials, medical professionals,
federal child and family protection workers,
federal tourism officials, and state government
officials on anti-trafficking issues. 200

Training of first responders to identify victims

32

Front-line police

29

Regulatory first responders

23

Non-regulatory first responders

035

Number of countries in the region

Figure 1: Number of countries in the Americas region
providing training to selected groups of first responders

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National Referral Mechanisms (NRMs) allow
victims to connect with law enforcement
and victim services, and they facilitate
the development of networks of available
resources to ensure optimal care for victims.
There are currently nine countries in theAmericas that have such referral structuresin place. Hotlines are also critical tools toreport potential human trafficking cases.
Thirty-one countries in the Americas region
have reporting mechanisms, such as a
hotline, and 12 of these countries have afree reporting mechanism for men, women,
and children that operates 24/7 and in
multiple languages. It is also important thatmembers of the public know how to reachthese reporting mechanisms. Honduras,
for example, launched a campaign with the
911 National Emergency System and the
Coordinating Network of Private Institutions
for the Rights of Children and Youth entitled“Report Trafficking, that is what it is about” topromote the free and 24/7 reporting services
in the country. 201

The number of countries providing victim
support services has increased from 31
countries to 32 countries in the Americas
since 1 July 2017, with Belize now providing
some services for victims of modern slavery.
The Government of Belize provided 200,000
Belizean dollars (US$100,000) to the
Ministry of Human Development to addresshuman trafficking, including funding forvictim services. 202 Twenty-six countries of
the 32 that provide victim services include
physical and mental health support services.
However, victims remain vulnerable tore-traumatisation or are unable to accessservices at all. In five of the 32 countries
providing victim assistance, victims are heldin shelters against their will. Trinidad andTobago housed some victims in domestic
violence shelters and did not allow themto leave unchaperoned or of their own
volition. 203 Additionally, 24 of the 35 countries
in this region do not have specific services
or shelters for all possible victims, including
men, women, non-binary individuals, children,
foreign nationals, and others.

Victim support services

32

Any type of victim support services

26

Physical and mental health services

23Child-friendly services

16

Long-term reintegraton support

11

Family reunification services

035

Number of countries in the region

Figure 2: Number of countries in the Americas region
with selected victim support services

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CRIMINAL JUSTICE

data in the United States from 2000 to 2015,
more than 200,000 minors were marriedin the United States. 207 Simply criminalisingforced marriage, however, will not eliminate
this form of exploitation. An effective approachto eliminating forced and child marriage must
go beyond a legislative response to address
the underlying cultural and belief systems thatdrive this form of modern slavery and continue
to disadvantage and discriminate against
women and girls.

Thirty-three of 35 countries in the Americas
region have criminalised at least one form ofmodern slavery in their national legislation,
consistent with international conventions. 204
Human trafficking is the most commonly
criminalised form of modern slavery in theAmericas, with over 62 percent of all countries(22 of 35) having legislation outlawing thiscrime. However, only 15 countries in theAmericas have domestic legislation outlawing
slavery and only 16 criminalise forced labour.

In 2017, there was a global increase in thenumber of children recruited and usedin armed conflict, resulting in more than
6,000 verified instances of children used bygovernment forces and more than 15,000
such instances by non-state armed groups
in Africa, Asia, Latin America, and the Middle
East. 208 Only three countries in the Americas
region have laws against the use of children
in armed conflict: Colombia, Nicaragua,
and Panama. Unfortunately, despite these
protections, children are at continued
risk of exploitation as child combatants inarmed conflict in Colombia. Although a final
peace agreement was signed between thegovernment of Colombia and Fuerzas Armadas
Revolucionarias de Colombia (FARC) in 2016,
the United Nations verified cases of childrecruitment and use by the National Liberation
Army in the last quarter of 2017. 209 Once

The Americas region had an estimated670,000 victims of forced marriage in 2016,
but only nine countries have so far criminalised
forced marriage offences. A 2017 report by
UNICEF estimates that approximately 25
percent of Latin American girls are married
before age 18. 205 This report also estimatesthat forced or child marriages are most often
reported in the Dominican Republic, Brazil,
Mexico, Nicaragua, Honduras, and Guatemala;of these countries, Mexico is the only one
to have criminalised forced marriage. 206
Forced marriage also occurs in the UnitedStates and Canada. The United States lacks
federal legislation prohibiting forced and childmarriage, with the minimum age for consent
to marry as young as 12 in some US states.
According to research on marriage license

National modern slavery legislation

22

Human trafficking
Forced labour

16Child commercial sexual exploitation

16
15

Slavery

9

Forced marriage3

Use of children in armed conflict

035

Number of countries in the region

Figure 3: Number of countries in the Americas region thathave passed domestic legislation criminalising a form ofmodern slavery

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leaving these armed groups, many of thesechild soldiers feel isolated as they attempt toreintegrate into society. The risk for relapse
among minors is greater than it is for adultformer combatants, with increased risk thatthese former child soldiers will return toviolent lives. 210
In 10 countries in the Americas, penalties
outlined in at least one of their laws
addressing forms of modern slavery aredisproportionate to the crime, meaningthat the listed penalties are too lenient orinhumane in their treatment of offenders. For
example, in El Salvador there are very weak
penalties for forced labour violations, as well
as a labour inspectorate that is overburdened
by undertaking some 25,000 inspections
annually across 140,000 businesses. This
leads to limited enforcement of laws andvery few prosecutions for forced labour
offences. 211 Even where penalties areproportionate in legislation, this has notnecessarily resulted in adequate sentencesin practice. In 11 countries in the Americas,
judicial rulings are not proportionate to
the severity of the crime, are either toolenient or too harsh, reflecting challengesof the judiciary in the implementation of
the prescribed penalties for these crimes.

In Bolivia, due to insufficient resources
and personnel and a significant backlog
in the judiciary, pressure was applied toprosecutors to resolve trafficking cases
through plea deals and reduced crimes. 212
Implementation of legal protections forvictims of modern slavery continues to be achallenge for some countries in this region.
While there are 31 countries that have lawsthat support restitution or compensation forvictims, Cuba is one example of a country
where restitution or compensation is
supported in anti-trafficking legislation, butthere is no evidence of its implementation.
The Special Rapporteur on trafficking inpersons, especially women and children,
discovered on her mission to Cuba thatwhile there is an indemnity fund containing
the earnings of prisoners, fines, and othergovernment contributions, available to all
victims, it is unclear if this fund has been usedfor victims of trafficking. 213 Similarly, while
there are legal provisions for restitution andcompensation in Ecuador, there are reportsthat financial restitution was not available tovictims of trafficking. 214 The ability to accessand receive compensation was highlighted as
one of the most important components of agovernment response by the LEEG in India.

Access to justice mechanisms

31

Compensation or restitution

25

Witness protection outside court

23Child-friendly processes

22Free legal aid

19

Witness protection inside court

035

Number of countries in the region

Figure 4: Number of countries in the Americas region
providing selected access to justice mechanisms forvictims of modern slavery

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COORDINATION
The development of a National Action Plan
(NAP) demonstrates clear commitment ofa government to coordinate and fund antitrafficking efforts. There has been an overall
decrease in countries that have a current NAP
addressing modern slavery issues, from 26
countries to 25 countries since 1 July 2017with Haiti and Canada’s NAPs elapsing, andEcuador enacting its National Action Planfor Human Mobility that includes activities
related to human trafficking. 215 In a positive
development, on 30 July 2018, Uruguay’s Boardon the Prevention and Combating of Human
Trafficking adopted a NAP for 2018 to 2020. 216
This plan was passed in addition to the existing
National Action Plan for the Eradication ofCommercial and Non-Commercial Child andAdolescent Exploitation II, 2016- 2021. 217 Brazil,
Jamaica, and Uruguay are the only countries in
the region with independent entities to monitor
the government response, as well as theimplementation of activities against NAPs.
Combating modern slavery must be undertakenwith regional and bilateral collaboration andcooperation, particularly given the high levelsof migration throughout the Americas region.
Every country within the Americas is involved inregional bodies that take some action against
modern slavery and 23 countries have signed
bilateral agreements to specifically cooperate
on modern slavery issues. However, there isevidence that nine countries have detained ordeported foreign victims, indicating that despite
evidence of collaboration, victims’ rights are
not always protected. Initiatives providing forsafe labour migration are also important given
the large-scale labour migration that occurs
in the region. In 2017, 17 million migrants from
Asia, eight million migrants from Europe, and26 million migrants from Latin America and the
Caribbean moved to Northern America. 218 In thiscontext of large-scale global migration within theAmericas region, many migrants are vulnerable
to exploitation and abuse. Governments
must implement labour migration regimes,
including bilateral labour agreements, thatprovide labour protection for migrants in thedestination country. However, currently there
are only nine countries in the Americas thathave implemented such agreements. The recent
United States-Mexico-Canada agreement muststill be legislated into national US law;219 once
it is law, it will provide more labour protections
for migrant workers from Mexico and Canada
working in the United States.

National coordination mechanisms

25

National Action Plan

20

National coordinating body
Annual reporting against the NAP

7

NAP is fully funded3

Independent entity to monitor
the government's responses

3
0

35

Number of countries in the region

Figure 5: Number of countries in the Americas region withnational coordination mechanisms to respond to modern
slavery

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ADDRESS RISK
Effective government responses onmodern slavery must also include efforts toaddress conditions that create risk among
vulnerable populations. Only two countries
in the Americas region provide healthcare access for their entire population,and concerns about affordability in theremaining 33 counties may limit criticalaccess to lifesaving medical intervention
for vulnerable populations. 220 In 29 of the 35
countries in the region, at least 90 percent
of primary school aged children haveaccessed education, providing a strong
foundation of education and opportunity for
those countries’ youngest citizens.
There are inherent risks in the national
labour migration structures in many
countries in the Americas region. Visasthat are tied to specific employers makeit difficult for migrant workers to leave
exploitative situations, which increases therisk of modern slavery. Four countries in
the Americas region have laws or policies
that prevent or make it difficult for workers
to leave abusive employers without risk ofloss of visa and deportation: Belize, Brazil,
Canada, and Cuba. Canada’s Temporary
Foreign Worker Program has come underinternational scrutiny after reports emergedof migrant workers facing abuse and being
unable to leave their positions due to visa
restrictions. It has also been criticised forprohibitions against the hiring of foreign
workers in high unemployment areas, and forincreases in price and difficulty of obtaining
Labour Market Impact Assessments to prove
employers could not have hired Canadians,
resulting in reduced availability of positions
that migrant workers can be hired for. 221
Although outside of our current reporting
period, as of May 2019 migrant workers
with employer-specific permits can now
apply for open work permits to escape work
situations involving violence, harassment,or other abuse. 222 These improvements will
be captured in the next reporting period for
Canada, but are an important step to provide
more protections for migrant workers in
Canada.
Requiring migrant workers and not employers
to pay recruitment fees increases theirvulnerability to modern slavery. 223 Only
Barbados, Belize, Brazil, the United States,
Guyana, and Honduras have implemented
laws to ensure that only employers pay
recruitment fees. The United States only
recently extended this protection federally, inJanuary 2019. 224 Canada has regulations thatprohibit recruitment fees from being charged

Protections for workers

27

Labour laws that cover all workers
Labour inspections toaddress labour exploitation
Employer pays principle stipulated in law

22
6
0

35

Number of countries in the region

Figure 6: Number of countries in the Americas region
with labour protections for workers

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to the employee, but the provision is notincluded in federal legislation. 225 These limited
protections in even the region’s most powerfulcountries increase vulnerability of migrant
workers to paying exorbitant fees, which canlock them in a cycle of debt bondage and otherforms of modern slavery.
Twenty-seven of the 35 countries in theAmericas region have labour laws that cover all
workers, including migrant workers and thosein the informal economy, such as those whowork in domestic work and in the agricultural
sector. However, only 22 of 35 countries
regularly conduct labour inspections in theinformal economy to identify cases of modern
slavery. Despite having the strongest responsein the region, and one of the strongest
responses globally, the United States has
excluded domestic workers from laws allowing
them to unionise while working in the private
home of a family. These remaining gaps arecovered in some states by a Domestic Worker
Bill of Rights. 226
Many countries in the Americas have laws,
policies, and procedures in place to provide
protection for asylum seekers. In 17 countries,
despite the existence of these policies, wefound evidence of detention of asylum seekers
without access to services, deporting asylum
seekers before their claims can be assessed, or
asylum seekers having to lodge claims outside
the country where they sought asylum. Despite
legal protections available for asylum seekers,
the United States has enacted more restrictive
immigration and border control policies since
January 2017. Presidential Executive Orders
suspended the US refugee program forapproximately 10 months in 2017, only to resume
with greater restrictions for applicants andthe lowest annual cap for refugee admissionsfor 2018 since the inception of the 1980 US
Refugee Act. 227 While there is a migration crisisat the US southern border, with 98,977 arrests
for illegal border crossings made in April 2019
alone, 228 there is evidence that many of theseborder crossings are made by individuals
who wish to apply for asylum. However, theseasylum seekers must contend with “metering”
229
or recent policies limiting entrance to only asmall number of asylum seekers at each portof entry each day. This practice often forces
vulnerable migrants to wait for long periods oftime in dangerous border areas before they canofficially seek asylum. 230
Other countries in the Americas region are
employing different approaches to issues ofmass migration. Following the political andeconomic crises in Venezuela, approximately
400,000 Venezuelans have claimed asylum,
and another one million have gained other formsof residency, often from their Latin Americanneighbours such as Colombia, Peru, Chile, andArgentina, and from the United States. 231 In
particular, Colombia and Peru have instituted
massive immigration policy changes to provide
Venezuelan arrivals temporary legal status as
opposed to closing or restricting their entry.
However, these measures may soon outpace
the capacity of many Latin American hostcountries as Chile and Panama have alreadybegun to restrict the number of Venezuelan
migrants entering their countries, and Ecuador
now requires difficult-to-obtain identificationand criminal record documentation from new
Venezuelan migrants. 232

COUNTRIES IN THE
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Locals use amakeshift raft toillegally transport
fuel across theSuchiate river from
Ciudad Hidalgo
in Chiapas State,
Mexico, to Tecun
Uman in Guatemala,on June 10, 2019. In
the framework of
Mexico’s deal to curb
migration in order
to avert President
Trump’s threat oftariffs, Mexico’s
Foreign Minister
said Mexico will
discuss a “safe third
country” agreementwith the US. The
US has enacted
more restrictive
immigration andborder control
policies since
January 2017
through Trump’s
Executive Orders.
Credit: Pedro Pardo/
AFP/Getty Images

SUPPLY CHAINS
Very little action has been taken across theregion to address instances of forced labourin global supply chains. Only three countries,
the United States, Brazil, and Bolivia, havetaken any action at all. The Bolivian “Triple
Seal” certification is awarded to companies
that have reduced the use of child labour,
discrimination, and forced labour in the
production of goods. Its use appears to belimited. In 2014, the seal had been awarded
only to sugarcane products. 233
The G20 countries, encompassing the world’s
strongest economies, are in a unique position
to combat forced labour in supply chainsby holding businesses and governments toaccount for exploitation that occurs within
their direct supply chains and those of their
suppliers. The five G20 countries in theregion, Argentina, Brazil, Canada, Mexico,and the United States, collectively import
US$172 billion per annum of products at riskof being produced with modern slavery. 234
However, of these G20 countries, only Brazil
and the United States are currently taking
action to respond to forced labour in theprivate or public economy.

Act requires certain businesses to disclose
their efforts combating modern slavery intheir supply chains. 235 Brazil’s “Dirty List”
publicises a list of businesses that tolerate
forced labour in their supply chains. 236 These
governments also recognise that public
procurement is at high risk of modern slavery.
In Brazil, the “Dirty List” is used by public
sector companies to inform contracting
decisions. US Executive Orders 13126(1999) and 13627 (2012) require mandatory
reporting and due diligence from all federal
contractors and subcontractors to ensurethat government agencies do not procure
goods and services tainted by child labour,
forced labour, and human trafficking. 237 The
closure of a loophole in the 1930 Tariff Act(19 U.S.C. § 1307) has meant that goods are
regularly seized and inspected if they are
believed to be produced with forced or childlabour. Despite these steps, the United States
imports the largest proportion among all
G20 countries of products that are at risk ofbeing produced with modern slavery (US$144
billion per annum). The United States, and
the Americas region, must ensure that goods
and services are not produced using forced
labour.

The United States and Brazil lead theway globally in engaging with businesson addressing modern slavery. The 2010
California Transparency in Supply Chains

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REGIONAL RECOMMENDATIONS
Governments should:

SUPPORT SURVIVORS• Provide regular and consistent training forpolice, regulatory and non-regulatory first
responders on how to identify victims andrefer them to services.
• Ensure National Referral Mechanisms
are in place to improve coordination andcooperation between government agencies,
and between government and civil society.
• Ensure support services are available for all
victims of modern slavery, including men,
women, and children, and that these areappropriately funded.

STRENGTHEN CRIMINAL JUSTICE• Strengthen existing national legislation toensure that all forms of modern slavery
are criminalised in line with international
conventions.
• Introduce and implement legislation
criminalising forced marriage and raise theage of marriage to 18 for men and women.
Only 10 countries in the Americas region –Argentina, Bahamas, Belize, Canada, Chile,
Grenada, Mexico, Paraguay, and Saint Lucia– have legislation fully criminalising forced
marriage; equivalent laws should be enacted
in the remaining 25 countries.
• Ensure effective implementation of criminal
justice responses, including judicial
punishments that are appropriate for theseverity of the crime, and provide access torestitution and compensation for those whoare exploited.

STRENGTHEN COORDINATION AND
ACCOUNTABILITY• Develop National Action Plans or strategies, incoordination with relevant stakeholders, thatare based on research and data and survivor
experiences, and fund these appropriately.
• Establish monitoring mechanisms, such as
an independent rapporteur or commissioner,
to ensure effective implementation andevaluation of the government’s response,
following the examples of Brazil, Jamaica,
and Uruguay in the region.
• Expand protection for victims of forced
labour exploited in other countries by
establishing bilateral labour migrationagreements that include protection for
migrant workers.

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ADDRESS RISK FACTORS• Extend labour laws to ensure they cover all

workers, including those in informal sectors,
and ensure labour protections are enforced
through systematic and regular labour
inspection.
• Revoke harmful migration policies
and reform immigration opportunities
for migrant workers to provide moreaccessible legal pathways, including
through implementation of bilateral labour
agreements, free trade agreements, andbilateral social security agreements.
• All countries in the Americas should join
the UN Global Compact acknowledging
the value of an integrated and multilateralapproach to international migration.

ERADICATE MODERN SLAVERY FROM
SUPPLY CHAINS• The region’s five G20 countries, Argentina,

Brazil, Canada, Mexico, and the UnitedStates, should each enact federal legislation
requiring mandatory reporting for all large
businesses with regard to the presence ofmodern slavery in their supply chains.
• Begin engaging with business to raiseawareness of the issue of modern slavery inglobal supply chains throughout the region
by implementing laws to minimise risk ofmodern slavery in public supply chains andto encourage businesses to practice due
diligence.
• All countries in the region should establish
and, in the case of the US, implement
legislation requiring all government
contractors and suppliers to take steps todetect and eliminate modern slavery frompublicly-funded supply chains.

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ARAB STATESGOVERNMENT RESPONSE HIGHLIGHTS

JordanSyria
KuwaitLebanonIraq
West Bank andGaza Strip

Bahrain
Qatar

United Arab Emirates

Saudi Arabia

Oman

Yemen

AVERAGE GOVERNMENTRESPONSE SCORE% <0-9.9

Not
Rated

1

10-19.9 20-29.9 30-39.9 40-49.9 50-59.9 60-69.9 70-79.9 80-89.9 90-99.9

2

3

4

5

6

7*

8

9

10

* N o country can be awarded
above a 7 if there are any
negative indicators in their score

70

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WEAK RESPONSE
RELATIVE TO WEALTH*STRONG RESPONSE
RELATIVE TO WEALTH*QATARKUWAIT

UNITED ARAB EMIRATESBAHRAIN*Gross Domestic Product (Purchasing Power Parity) Per Capita*Gross Domestic Product (Purchasing Power Parity) Per Capita

AVERAGE MILESTONE SCORE^
M1. 50.7%

Identify and support survivors

M2. 40.4%

Establish effective criminal
justice systems

M3.	
34%

Strengthen coordination andhold governments to account

M4.	
35.2%

Address risk factors

M5. 0%Clean up government andbusiness supply chains^Average milestone scores at theregional level. There are 28 activities
that sit behind the milestones which leadto implicit weighting in the overall score.
See Appendix 2 for more details.

KEY GAPS IN RESPONSE

of the 9 countries assessed in the region:

4

9

8

9

9

do not provide support
services for all victims ofmodern slavery

have not criminalised
forced marriage

deport or detain
foreign victims for
immigration violations

with institutionalised
or systematic abuseof labour migrants

do not requirebusinesses to reporton supply chain risks

M1

M2

M3

M4

M5

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The Arab States region accounts for two
percent of the world’s population and iscomprised of 12 countries. Of these, ninecountries in the region are assessed in thisreport: the United Arab Emirates (UAE),
Bahrain, Saudi Arabia, Qatar, Jordan,Iraq, Kuwait, Oman, and Lebanon. 238 With
the exception of Iraq, which continues its
economic recovery following recent years’socio-political instability, 239 these nations
enjoy upper-middle to high incomes. It is alsoa region long affected by modern slavery.
An estimated 520,000 men, women, andchildren were living in modern slavery in
the Arab States in 2016. Approximately 3.3
people were living in modern slavery forevery 1,000 people across the region. Forced
labour was the most common form of slavery
in the Arab States (2.2 victims per 1,000
people), the majority of which occurred in
the context of debt bondage. Debt bondage
affected 51 percent of all forced labour
victims and was particularly common among
male victims. Forced marriage affected 1.1
victims per 1,000 people across the ArabStates. 240 Although these are the mostreliable estimates of modern slavery available
for the region, they should be interpreted
cautiously and considered very conservative,
given the gaps and limitations of data
generally and for this region in particular. 241
Across the Arab States, ongoing conflict,political instability, forced displacement,
and labour migration are key drivers ofmodern slavery. In Yemen, Syria, and Iraq,
the nations with the highest estimatedlevels of modern slavery in 2016, 242 social
upheaval as a result of past and present
conflicts between government and armed
militia groups create chaotic environments
where modern slavery thrives. Migrants
fleeing from the Horn of Africa for jobs in
Saudi Arabia become vulnerable to humantrafficking en route in Yemen due to thebreakdown in law and order that has allowedorganised criminal networks to prosper. 243
In Syria and Iraq, ISIS bought and sold Yazidi
women and girls in slave markets as part ofthe systematic attack on the Yazidi group. 244
This group remains vulnerable due to thepower vacuum created after the defeat of
ISIS, as militias coerce Yazidis into rival
armed groups. 245 Due to ongoing conflictand extreme disruption to government, wehave not included a government response
assessment for Yemen and Syria this year.
Conflict is a driver of migration — unrestin the Arab States resulted in the emigrant
population in the region more than doubling72

from 25 million to 54 million from 2005 and2015. 246 Labour migration is also a significant
feature, particularly in the Gulf Cooperation
Council (GCC) countries. According todata from 2016 to 2018, migrant workers
constituted 51.9 percent of the population of
all GCC countries; non-nationals in the UAE
and Qatar represented approximately 87
percent of each country’s population in 2016
and 2018 respectively. 247
Responses to modern slavery in the ArabStates are mixed with evidence of relatively
strong responses in terms of elementsof victim protection and criminal justice.
Addressing underlying risk factors andengaging with business remains weakacross the region. Between 1 July 2017 and
15 February 2019, Jordan and Lebanon took
the least action to address modern slavery,
resulting in each decreasing their ratings (to4 and 3 out of 10 respectively). Oman, Kuwait,
and Qatar scored the second lowest rating (4).

GOVERNMENTS RESPONSES AGAINSTGDP(PPP) PER CAPITA

Globally, when correlating government
responses against GDP (PPP) per capita,
we find that, generally, countries with ahigher level of wealth are taking moreaction to respond to modern slavery.
In the Arab States region, we find that
Bahrain and United Arab Emirates
are taking strong action relative to its
wealth. For example, the government
has established a national coordinating
body and national action plan to combat
human trafficking. Alternatively, Qatar
and Kuwait are characterised by a higher
level of resources at their disposal, incomparison to their response. Kuwait has
limited support to allow victims to accessjustice in practice.

Although the average rating for the ArabStates remains low (4), there have been
improvements in government efforts against
modern slavery across the region. Bahrain
has increased its score (from 4 to 5), as
have the UAE (from 5 to 6) and Saudi Arabia(from 3 to 5). For example, in April 2018,
Bahrain improved its provision of victim
support services by establishing a state
fund for victims to provide a broad range ofservices from basic shelter to reintegrationfor victims of human trafficking. 248 Similarly,
Saudi Arabia implemented its National Plan
to Combat Crimes of Trafficking in Persons(2017-2020) and provided trafficking-specificMeasurement, Action, Freedom

06 Regional analysis

Since 1 July 2017, the majority of governmentsin the Arab States have improved their efforts
to provide victim assistance programs. 250
Bahrain is taking the most action to support
victims of modern slavery, while Saudi Arabia
has recently increased its activity in this area.
In Saudi Arabia, the government allocated
US$2.7 million to the Ministry of Labor andSocial Development, which is responsible for
operating victim assistance services, including
shelters for child victims of forced begging
and forced labour and welfare centres forfemale and male domestic workers, including
some who were potentially trafficked. 251 The
shelters provided basic services, including
accommodation, social services, counselling,and education. It is unclear how many victims
accessed these services in practice. Likewise,in Iraq, despite the existence of services, novictims accessed these during our reporting
period. 252 In Jordan, the Ministry of Social
Development has provided a holistic shelter
for victims, with specialised staff providing
psycho-social care, medical care, legal
assistance, and vocational training to men,
women, and children. 253 However, reports
indicate that suspected victims are sent toprisons rather than shelters and are held fortraining for judges and prosecutors in 2018. 249
The nation with the strongest response in the
Arab States continues to be the UAE (with ascore of 6), which is taking concrete actions
to improve elements of victim support
services, strengthen their criminal justicesystems, increase coordination, and addresscertain risk factors.

SUPPORT SURVIVORSKey to any government response to modern
slavery is the ability to identify and refervictims to services. While the Arab States
region performs relatively well in terms ofestablishing victim assistance services, theoverall number of victims identified remained
worryingly low. Data on identified victims areavailable only for five countries in the region:
Bahrain, Kuwait, Lebanon, Oman, and theUAE. In 2017, Lebanon had identified the mostvictims, a total of 57, including men, women,
and children. Oman identified the fewest
with only 13 women, and no men or children,
identified in 2017. Given that a conservative
estimate puts the estimated number ofmodern slavery victims at 520,000 acrossthe region, much more needs to be done toidentify and support victims.

Training of first responders to identify victims

9

Front-line police

8

Regulatory first responders

4

Non-regulatory first responders

0

1

2

3

4

5

6

7

8

9

Number of countries in the region

Figure 1: Number of countries in the Arab States region
providing training to selected groups of first responders

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Victim support services

4

National Referral Mechanism in place

4

Clear national guidelines in place
Guidelines make provsion fora category presumed victims
Guidelines clearly set out whichorganisations have the authority
to identify victims

1
0
0

1

2

3

4

5

6

7

8

9

Number of countries in the region

Figure 2: Number of countries in the Arab States
region with selected victim support services

indefinite periods of time in what is termed“protective custody.” 254 Although almost
every country in the Arab States funds victim
support services, in four countries (Iraq,
Kuwait, Oman, and Lebanon) there weresignificant gaps in services for some victims
of modern slavery, particularly men, domestic
workers, or forced labour victims. There
have been reports that migrant women aredetained in shelters, and that many prefer toseek shelter in their embassies rather than in
facilities funded by the host government. For
workers from countries that have no embassyin the destination country, the situation iseven more precarious, 255 particularly as only
three countries in the region (Bahrain, Saudi
Arabia, and the UAE) have visas available sothat foreign victims can remain in-country
and receive support.
Training of front-line responders is anothercritical component of ensuring effective
identification and referral of victims. While
there is evidence that eight out of nine
Arab States have trained both their frontline police and other front-line regulatory
responders (immigration, border control,74

or labour inspectors) during the reporting
period, only three countries (Lebanon, Saudi
Arabia and the UAE) systematically run thistraining at least every two years. Further,
only four countries (Bahrain, Lebanon, Qatar,and Saudi Arabia) train both regulatory andnon-regulatory front-line responders (doctors,social workers, or nurses). Four countries haveadopted and use clear guidelines for screening
and identifying potential victims, which isan increase since 1 July 2017. For example,
Bahrain distributed a 30-page booklet inboth English and Arabic to government andcivil society stakeholders in 2018 in order tofacilitate identification of victims. 256
National Referral Mechanisms (NRMs) arenecessary to ensure that victims are linked
with the services needed to help thembreak the cycle of exploitation. Yet, only four
countries in the region have this structure
in place (UAE, Bahrain, Qatar, and Jordan).
Bahrain’s Labour and Market Regulatory
Authority was established in 2017 andreportedly received referrals of 516 potential
victims in the same year. 257

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06 Regional analysis

CRIMINAL JUSTICE

and child marriage must extend beyond alegislative response to address underlying
cultural and belief systems that drive this formof modern slavery. For example, community
empowerment programs, such as the Ishraq
program in Egypt, aims to change community
perceptions of girls’ rights and gender roles,
and to eventually delay the age at whichchildren marry. 261

Overall, criminal justice responses remain
limited throughout the region. All Arab States,
excluding Iraq, have criminalised humantrafficking in their national legislation, in linewith international conventions. 258 While Iraq has
legislation in place, it applies only to situationsof trafficking where there has been an exchangeof money for the trafficked person. 259 Human
trafficking is the only consistently criminalised
form of modern slavery across the region, with
only four countries (Jordan, Kuwait, Oman,
and Qatar) criminalising slavery as a distinct
crime and only two countries (Iraq and Qatar)
criminalising forced labour. No country in the
Arab States has ratified either the ILO Domestic
Workers Convention No. 189 or the 2014
Protocol to the 1930 Forced Labour Convention.

The prevalence of forced marriage has been
compounded by multiple conflicts in the region. In
Iraq, ethnic minorities such as the Yazidis, Shi’ite
Muslims, and Assyrians, among others, weresystematically abducted, raped, and forced intoslavery situations by ISIS. 262 Pressure to marrychildren early also emanates from within families
fleeing conflict due to poverty, 263 to ensurechildren are provided for, and to protect girls
from sexual abuse. 264 For example, in Lebanon,
41 percent of young displaced Syrian women
were married before 18, 265 while the number ofchild marriages among Syrian refugees in Jordan
more than doubled between 2014 to 2018, from15 percent to 36 percent. 266 Led by the UNICEF
and the UNFPA, the Regional Accountability
Framework of Action to End Child Marriage
in Arab States/Middle East and North Africa(RAF Partnership) is a collaboration of partners
that works as part of the Global Programme to
Accelerate Action to End Child Marriage. 267

Forced marriage is prevalent in the region, withapproximately 1.1 people in forced marriage
for every 1,000, although this is believed to
be an underestimate. 260 Forced marriage
remains an issue due to longstanding religious
and sociocultural traditions that reinforce
views on the role of women and girls in society.
Forced marriage is not currently criminalisedin any country in the Arab States region.
While criminalising the practice is important,an effective approach to eliminating forced

National modern slavery legislation

8

Human trafficking

4

Slavery2

Forced labour

1

Use of children in armed conflict
Child commercial sexual exploitation

0

Forced marriage

0
0

1

2

3

4

5

6

7

8

9

Number of countries in the region

Figure 3: Number of countries in the Arab States region
that have passed domestic legislation criminalising a formof modern slavery

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Although the issue of forced and childmarriage is occurring within the borders of
Arab States, regional efforts continue to be led
by international organisations.

if the victim was killed as a result of humantrafficking. 271 Disproportionate penalties
in legislation can lead to disproportionate
sentencing. In Jordan, perpetrators convictedunder anti-trafficking laws have been either
acquitted or convicted of other crimes orlabour law violations. Sentences range froma fine of 1,000 Jordanian dinars (US$1,410)
to five years imprisonment with temporary
hard labour, highlighting the difficulties intranslating criminal laws into action. 272

In 2017, there was a global increase in thenumber of children recruited and used inarmed conflict, resulting in more than 6,000
verified instances by government forces
and more than 15,000 such instances by
non-state armed groups in Africa, Asia, Latin
America, and the Middle East. Among theArab States, there have been cases recorded
in Syria, Yemen, and Iraq. 268 For example,
armed groups in Iraq recruit Kurdish andYazidi children to fulfil various tasks including
fighting, staffing checkpoints, and preparing
weapons. Children who attempt to leave theseforces have reportedly been abducted orseriously abused as a result. 269 Despite theclear presence of child soldiers in the region,
only Oman has criminalised the use of children
by state and non-state armed groups. 270

Access to justice mechanisms remain
limited. Only four of the Arab States(Bahrain, Oman, Qatar, and Saudi Arabia)
have legal frameworks that support
restitution or compensation for victims.
Despite the existence of provisions oncompensation in anti-trafficking legislation,
in Jordan compensation is rarely awardedin practice. 273 Only Qatar and Lebanon
have laws in place recognising that victims
should not be treated as criminals forcrimes committed while under the controlof criminals; as a result, evidence showsthat at least five countries in the region havetreated victims as criminals. For example, in
Lebanon, rather than offering victim services,
the government arrested, detained, and evendeported unidentified victims for crimes thatwere committed because of being subjected
to modern slavery. 274

In over half the countries of the Arab States
region (five of nine), penalties outlined in atleast one of their modern slavery laws are
disproportionate to the crime, which means
they are either overly lenient or inhumane intheir treatment of offenders. For example,
Kuwait’s anti-trafficking legislation allows
for the perpetrator to be sentenced to death

Access to justice mechanisms

5Free legal aid

4

Compensation or restitution
Witness protection inside court

1

Witness protection outside court

1Child-friendly processes

0
0

1

2

3

4

5

6

7

8

Number of countries in the region

Figure 4: Number of countries in the Arab States region
providing selected access to justice mechanisms forvictims of modern slavery

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COORDINATION
There has been an overall increase in thenumber of coordination and accountability
mechanisms across the region. A third ofcountries in the region (Oman, Saudi Arabia,
and the UAE) have a current National Action
Plan (NAP) addressing modern slavery
issues. Five countries (Bahrain, Jordan,
Lebanon, Qatar and the UAE) have a national
coordinating body that meets regularly to
discuss and implement the government’s
response, and have reported on the progressof the plan. No country in the region has anindependent commissioner or rapporteur tomonitor the government’s response.

some action against modern slavery, however
only four (Bahrain, Qatar, Saudi Arabia, andthe UAE) have signed bilateral agreements tocooperate with other governments on modern
slavery issues. It is notable that the issues
which severed diplomatic ties between Qatar
and Saudi Arabia, Bahrain, Egypt, and the UAE
have still not been resolved, which undercuts
regional collaboration, including on modern
slavery issues. 275 All nations in the region
except Iraq have bilateral labour agreements inplace to protect the rights of labour migrants.
Yet, given the widespread abuse of labour
migrants in the region, 276 it is clear the current
agreements do not go far enough to protectthese vulnerable populations.

Given the large number of migrants in the
Arab States region, bilateral and multilateral
cooperation is important to combat modern
slavery. Every country in the region apart from
Lebanon is part of a regional body that takes

National coordination mechanisms

5

National coordinating body3

National Action Plan

1

Annual reporting against the NAP
NAP is fully funded
Independent entity to monitor
the government's responses

0
0
0

1

2

3

4

5

6

7

8

9

Number of countries in the region

Figure 5: Number of countries in the Arab States region
with national coordination mechanisms to respond tomodern slavery

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ADDRESS RISKor leave the country or seek alternative
employment without their sponsor’s writtenconsent, which leaves them vulnerable toabuse and exploitation. 279 Oman, Qatar,
Bahrain, Kuwait, Saudi Arabia, UAE, Lebanon,and Jordan each have some form of thekafala system. 280

Government programs addressing thedrivers of modern slavery are not evenly
implemented across the Arab States region.
All countries in the region, apart from
Iraq, have conducted awareness raising
campaigns targeting known risks. However,the discrimination of migrant workers
remains pervasive. Only Iraq and Kuwait
have labour laws that cover all workers,
including migrant workers or those working
in informal sectors such as domestic workor construction. In addition to gaps in labour
protections, modern slavery can flourish
when there is a lack of enforcement of labour
standards. Only four countries in the region
conduct labour inspections to address labour
law violations, including in informal sectors. In
2018, approximately 1,000 labour inspections
took place in Saudi Arabia, leading to theclosure and suspension of recruitment
offices and companies found to be violating
national laws. 277 While there is evidence oflabour inspections in Qatar, implementation
remains irregular and reporting on findings
from these inspections is limited. 278

The Qatari government has taken steps
to reform this system since 1 July 2017. In
September 2018, the government passed
legislation removing the requirements for
obtaining exit visas for 95 percent of migrant
workers living in the country. 281 Previously,
migrant workers seeking to leave the country
had to ask their employers’ permission to
obtain an exit visa; many employers used
this to arbitrarily prevent workers fromreturning home. Yet, Qatar’s new law is notas promising as previously envisaged, 282 withthe law not extending to migrants who are
not already covered by Qatar’s Labour Code;notably, this includes domestic workers, 283
a group that is particularly vulnerable toexploitation. Employers also retained theability to seek approval from the government
to exclude other workers from the scopeof the legislation. 284 Rights for domestic
workers were extended by a 2017 law, whichallowed them to limit their services to 10
hours a day, six days a week, and entitledthem to an annual holiday. 285 While animportant development, this law does not

Reforms to the kafala system continued
across the region. Under the kafala system,a migrant’s rights to work and live in the hostcountry are dependent on their sponsor,
meaning that workers are unable to enter

Protections for workers

Employer pays principle stipulated in law

5

Labour inspections to addresslabour exploitation

4
2

Labour laws that cover all workers

0

1

2

3

4

5

6

7

8

Number of countries in the region

Figure 6: Number of countries in the Arab States region
with labour protections for workers

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provide protections that are as extensive as
the nation’s current labour laws. 286 In October
2017, the Qatari government also establisheda temporary monthly minimum wage of
US$200, a measure that is to remain in place
until government can continue reforms andensure a higher minimum wage. 287 Bahrain isalso attempting to move away from the kafalasystem with the introduction in 2017 of the flexipermit, through which workers can sponsor
themselves and work for multiple employers. 288
In May 2018, Bahrain implemented a Wage
Protection System to ensure migrant workers(including domestic workers) are less at riskof having their pay withheld. 289 However, othernations remain committed to the kafala system,
particularly Saudi Arabia, which recently
unveiled an ambitious “Vision 2030” plan
to reform the economy and provide greater
protection for migrants under the labour laws,
but did not plan to abolish the system. 290 Whilemigrant labour law reforms are a positive step,
there is significant room for improvement toensure these reforms are implemented.

employee. The implementation of these policies
remains hindered by corruption with reportsthat government officials in Kuwait have soldwork permits to illegal recruiters and migrant
workers, facilitating the exploitation of thisvulnerable group. 292

SUPPLY CHAINS
No evidence was found that any country in
the Arab States region is currently engaging
with the private sector to tackle forced labourin global supply chains. Likewise, at thisstage, no country in the region has adopted
public procurement policies to minimise therisk of governments purchasing products
linked to forced labour. As governments arelarge buyers of goods and services globally,
government agencies also have a key role toplay in ensuring public supply chains are freefrom modern slavery. There is also no evidence
to suggest that laws to prevent the import ofgoods and services made with forced labourare being implemented in the region.

Debt bondage affected 51 percent of all forced
labour victims in the region and was particularlycommon among male victims. 291 In the ArabStates region, five countries currently havepolicies that prescribe the “employer pays”
principle, under which private recruitment
fees are paid by the employer rather than the

COUNTRIES IN
THE ARAB STATESSHOULD ENSURE
ALL WORKERS HAVEEQUAL PROTECTION
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REGIONAL RECOMMENDATIONS
Governments should:

SUPPORT SURVIVORS• Increase efforts to identify victims ofmodern slavery by providing systematicand regular training for regulatory andnon-regulatory first responders.
• Ensure improvements in, and increased
access to, support services for all victims
of modern slavery. These efforts will befacilitated by ensuring that victims are
given sufficient time to recover whenin shelters and that appropriate visas,
decoupled from participation in legal
proceedings, are available for victims.
• Ensure systems are in place to enabletrained officials to waive overstay fines
for migrant workers who have sufferedexploitation and abuse, and permit themto leave the country. Ensure this process
is fast-tracked so migrant workers do
not languish in holding facilities awaiting
processing of their fine waiver.

STRENGTHEN CRIMINAL JUSTICE• Ratify and implement international

conventions, in particular the ILO
Domestic Workers Convention No. 189 andthe 2014 Protocol to the Forced Labour
Convention, and translate these into
national legislation.
• Ensure national legislation relating
to conditions of modern slavery are
established in line with international
conventions, in particular the criminalisationof forced labour, forced marriage, and theuse of children in armed conflict.
• Allow victims to participate in the judicial
process, offering free legal services andproviding compensation to victims offorced labour and other forms of modern
slavery, including back payment of wages.

STRENGTHEN COORDINATION AND
ACCOUNTABILITY• Establish a national coordinating

committee at a senior level, including
representatives from civil society, todevelop and ensure implementation ofnational policies on this issue.
• Extend and implement protections for
migrant workers under bilateral andmultilateral labour agreements.

80• Amend laws and policies to ensurethat foreign victims are not detained ordeported for immigration violations, butrather are provided with support services.

ADDRESS RISK FACTORS• Ensure all workers are granted equal

protection under national labour laws,
including migrants and those employed in
the informal sector such as domestic andconstruction workers.
• Ensure that migrant workers are able tofreely leave or transfer jobs and to exit
the country without employer consent
and abolish provisions in the law thatmight criminalise victims’ flight from
exploitative situations.
• Ensure labour inspections are conductedin sectors known to be high risk for modern
slavery to address labour violations.
• Focus on protection of women and girls
to mitigate the effects of gender-based
violence, including forced marriage andforced sexual exploitation.

ERADICATE MODERN SLAVERY FROM
SUPPLY CHAINS• Ensure regulation of recruitment agencies

according to the principles and standardsof ethical recruitment set out in the IOM
International Recruitment Integrity System
Code of Conduct.
• Introduce legislation and practices that
ensure all government procurement
providers take steps to detect andeliminate modern slavery from publiclyfunded supply chains.
• Establish legislation or policy that requires
businesses to declare that they areoperating free from conditions of modern
slavery in their supply chains and thatallows government to create a public list of
businesses that have violated this policy.

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06 Regional analysis

Deir Ezzor, Syria, February 14, 2019.
Women and children who fled ISIS’s
embattled holdout of Baghouz
wait in the back of a truck. In Iraq
and Syria, ethnic minorities suchas the Yazidis, Shi’ite Muslims, andAssyrians, among others, weresystematically abducted, raped, andforced into slavery by ISIS. Credit:
Fadel Senna/AFP/Getty Images

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ASIA &THE PACIFIC
GOVERNMENT RESPONSE HIGHLIGHTS
Afghanistan Pakistan

Hong Kong

Nepal

North Korea

South Korea

Japan

Mongolia

China
Iran

TaiwanIndia

Philippines
Palau^

Bangladesh

Kiribati^

Nauru^

Myanmar
Sri Lanka

Papua New Guinea

Solomon Islands^

Tuvalu^Samoa^

ThailandLao PDR
Cambodia
Vietnam
Malaysia
Singapore

Vanuatu^Australia

Fiji^

Tonga^

BruneiNew ZealandIndonesia
Timor-Leste

AVERAGE GOVERNMENTRESPONSE SCORE% <0-9.9

Not
Rated

1

10-19.9 20-29.9 30-39.9 40-49.9 50-59.9 60-69.9 70-79.9 80-89.9 90-99.9

2

3

4

5

6

7*

8

9

10

^The Pacific Island countries’ scale has been modified for visibility of response score colour* N o country can be awarded above a 7 if there are any negative indicators in their score

82

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WEAK RESPONSE
RELATIVE TO WEALTH*STRONG RESPONSE
RELATIVE TO WEALTH*SINGAPORE
BRUNEIHONG KONG, CHINATHAILAND
PHILLIPINESINDONESIABANGLADESH
VIETNAM*Gross Domestic Product (Purchasing Power Parity) Per Capita*Gross Domestic Product (Purchasing Power Parity) Per Capita

AVERAGE MILESTONE SCORE*
M1. 34.0%

Identify and support survivors

M2. 33.1%

Establish effective criminal
justice systems

M3.	
31.4%

Strengthen coordination andhold governments to account

M4.	
41.7%

Address risk factors

M5. 1.7%

Clean up government andbusiness supply chains*Average milestone scores at theregional level. There are 28 activities
that sit behind the milestones which leadto implicit weighting in the overall score.
See Appendix 2 for more details.

KEY GAPS IN RESPONSE

of the 36 countries assessed in the region:

16

20

15

15

35

do not provide support
services for all victims ofmodern slavery

have treated victims ascriminals for conductthat occurred under thecontrol of criminals

deport or detain
foreign victims for
immigration violations

have not investigatedreports of corruption inmodern slavery cases

do not requirebusinesses to reporton supply chain risks

M1

M2

M3

M4

M5

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Asia and the Pacific is the world’s largest
region geographically comprising of 49
countries, and home to approximately
56 percent of the world’s population.
Encompassing 36 countries in this report, 293
it is heterogenous in terms of ethnicity,
culture, religion, and development. According
to the Global Estimates of Modern Slavery,an estimated 24.9 million men, women, andchildren were living in modern slavery in the
Asia and the Pacific region in 2016. 294 The
region has the second highest prevalenceof modern slavery globally, second only toAfrica, with an estimated 6.1 per 1,000 people
in modern slavery. When considering formsof modern slavery, an estimated 4 people per
1,000 were in forced labour and an estimated
2 people per 1,000 were in forced marriage. 295
State-imposed forced labour, conflict, andbusiness inaction on mitigating risk of forced
labour affect the state of modern slavery in theregion. In 2016, state-imposed forced labourin the Asia and the Pacific region accounted
for 68 percent of those forced to work by stateauthorities globally. 296 This is driven in largepart by the presence of North Korea in theregion, where one person in 10 experienced
modern slavery on any given day in 2016.

Ly Thi My, a Vietnamese mother posing with aphotograph of her missing daughter Di at her housein Meo Vac, a mountainous border district between
Vietnam’s Ha Giang province and China. Many people
living in this part of Vietnam have a story about bride
trafficking. The victims come from poor communities
and are tricked by boyfriends, kidnapped against
their will, or move across the border by choice formarriage or the promise of work. My never dreamed
her daughter would be kidnapped. Two weeks after Di
participated in this photo shoot with her friend, theywent for a walk near their homes. They never cameback. Credit: Nhac Nguyen/AFP/Getty Images

84

The effects of past and ongoing civil conflictin the region has led to forced migrationand the breakdown in the rule of law,
increasing vulnerability to modern slavery.
The continued conflict between the Afghan
government and Taliban forces has created
one of the largest and longest runningrefugee situations in the world, with the
majority of Afghan refugees hosted by Iranand Pakistan. 297 Myanmar’s ongoing militaryled persecution of ethnic Rohingya people298
has enabled various forms of modern slavery,
including state-imposed forced labour
and arbitrary detention, and resulted in a
staggering 21 percent increase in the region’s
refugee population between 2016 andDecember 2017. 299
Large economies within and outside theregion continue to drive demand for goods
and services tainted by modern slavery.
Weak or non-existent laws to minimise therisk of forced labour in global supply chainsleave those working to produce these goods
and services at risk of exploitation. Of the
US$354 billion worth of at-risk goods that theG20 economies import annually, US$90.9
billion is imported by six located in the Asiaand the Pacific region. 300
Since 1 July 2017, 11 countries in the region
have made progress by taking action against
modern slavery. While Pakistan’s overall
score remains relatively low (3 out of 10), in2018 the government amended its legislative
framework by passing comprehensive
trafficking legislation, which criminalises
human trafficking in line with international
conventions and provides protection forvictims and witnesses. 301 The government
also implemented a national campaign on
how to report and identify victims. 302 In late2017, Sri Lanka signed a Memorandum ofUnderstanding with Australia, strengthening
cooperation on measures taken to counterhuman trafficking. 303 The Hong Kong
government made commendable efforts
to address modern slavery by releasing
an action plan to combat trafficking andenhance protections for foreign domestic
workers in March 2018; 304 however, it should
respond to NGO criticisms and ensure
speedy implementation. Six countries in
the region saw diminishing efforts by theirgovernments to combat modern slavery.
In Malaysia, for example, there is evidence
that victims have been detained, deported,or charged with criminal offenses. 305 In
Indonesia, reports indicate that officials havenot been investigated for their complicity inmodern slavery crimes. 306
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06 Regional analysis

GOVERNMENTS RESPONSES AGAINSTGDP (PPP) PER CAPITA

Globally, when correlating government
responses against GDP (PPP) per capita,
we find that, generally, countries with ahigher level of wealth are taking moreaction to respond to modern slavery. In
the Asia and the Pacific region Brunei
Darussalam, Hong Kong, and Singapore
are all economies characterised by ahigher level of resources at their disposal,
yet they are taking relatively little action.
This is particularly true for Hong Kong,
where the government’s overall ratings intheir response to tackling modern slavery
remains low. In fact, evidence suggeststhat in Hong Kong, victims are increasingly
being treated as criminals for conductthat occurred while under the control ofcriminals. In comparison, Thailand, thePhilippines, Indonesia, Bangladesh, andVietnam are all taking positive steps torespond to this issue relative to their levelof wealth. For example, in 2018, Thailand’s
government held a series of workshops
to review current criminal justice systems
in order to improve the success ofprosecutions. It is such action that has led
Thailand to be ranked second in the regionin its approach to ending modern slavery.

This year, nine Commonwealth countries in theregion, all within the Pacific Islands subregion,
were added to our assessment of government
responses. These countries were Fiji, Kiribati,
Nauru, Palau, Samoa, Solomon Islands, Tonga,
Tuvalu, and Vanuatu. While we have reported
the actions of these governments in the
narrative, it is worth noting that these countries
are characterised by small populations,limited resources, and a lack of technicalcapacity, relying heavily on the support ofdevelopment partners in order to deliver action
on health and social justice issues. Thus, muchinaction on modern slavery by Pacific Island
governments reflects lack of capacity rather
than lack of will.
Australia demonstrated the most action onmodern slavery in the Asia and the Pacificregion, followed by Thailand, the Philippines,
and New Zealand. In December 2018, Australia
adopted a Modern Slavery Act, requiring
businesses with a consolidated revenue of
AU$100 million per annum to report on theiractions to mitigate the risks of modern slavery
in their operations and supply chains. 307
While Australia is to be commended for its
progress, the legislation can and should be

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strengthened to ensure business is held toaccount for non-compliance and to include
an Independent Commissioner to monitor thegovernment’s response. While implementationof existing legislation and policies remainhindered in Thailand by official complicity
and corruption in modern slavery crimes, thegovernment did increase its investigations ofthese crimes. 308 In 2018, Thailand passed anticorruption legislation imposing liability on legal
entities offering bribes to officials (Section
176). 309 Further, as part of its investigation
into national corruption, the Office of the
National Anti-Corruption Commission has
continued to disclose the assets of the highest
ranking public officers in order to improvetransparency in the public sector. 310 Despiteongoing reports of officials’ complicity
in modern slavery cases, the Philippines
implements strong protections for its citizens
working overseas. New Zealand is one of only
two economies in the region (along with Taiwan)that provides visas for victims of modern
slavery which are not tied to their participationin the court process. Additionally, in November
2018, New Zealand amended its 1961 Crimes
Act to recognise “coerced marriage or civil
union” as a crime. 311
North Korea and Iran continued to take theleast action to combat modern slavery. These
countries demonstrate a lack of political willto address issues of modern slavery; this isparticularly apparent in North Korea where its
population is forced to work as prescribed by
the state or risk being penalised with hard labour
in prison camps, often for a minimum periodof six months.312 In Iran, discrimination against
refugees and migrants, the majority fromwar-torn Afghanistan, and women continues
to foster an environment ripe for exploitationand modern slavery. Despite this, Iran has
demonstrated some efforts towards reducing
vulnerabilities faced by its refugee population;for example, expanding access to healthcare
to 125,000 refugees in 2017, giving them thesame level of services as Iranian nationals.313 Of
those governments taking the least action tocombat modern slavery, four are in the Asia andthe Pacific region: Nauru, Samoa, Tuvalu, andVanuatu. These countries, all developing PacificIsland countries, are characterised by small
populations and economies, and a dependence
on international aid. 314

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SUPPORT SURVIVORS
Victim support services are available inalmost all countries in the Asia and thePacific region, however, in many countries
there are gaps in provision for vulnerable
groups, such as children. Additionally, there isevidence that in eight countries in the region,
victims in shelters were held against theirwill. Such instances were documented inIndonesia, Bangladesh, India, Japan, Taiwan,
Malaysia, Brunei Darussalam, and Pakistan.
Only six countries in the region regularly andsystematically run national campaigns toraise awareness of how to identify and reportpossible victims of modern slavery. These
include Pakistan, Japan, China, Myanmar,
the Philippines, and Australia. Australia and
Myanmar are the only countries to have seen
an increase in the number of reported cases ofmodern slavery from the public as a result of
the national campaign. Specifically, referrals
to the Australian Federal Police (AFP) haveincreased every year since 2013/2014, largely
due to the AFP’s human trafficking campaign
and its available hotline service.315
Less than half (13) of the countries within the
Asia and the Pacific region have clear nationalguidelines for identifying and screening
victims for all first responders. Across theregion, only the Philippines and Timor-Leste
have a National Referral Mechanism (NRM)
that has been active since 2016. Although
research indicates that Singapore has an
NRM, a lack of transparency has led to

criticisms about, and lack of evidence of, its
implementation. Both Cambodia and Vietnam
have informal referral mechanisms, rather
than a legally mandated NRM.
Many countries provide training on how
to identify victims of modern slavery. The
majority (29) of countries in the region
provided training for front-line police, 22countries provided training to officials offront-line regulatory bodies likely to be “first
responders” such as labour inspectors,
immigration officials, and border guards,
and 17 countries provided training for nonregulatory first responders such as doctors,social workers, and nurses. Less than half(13) of the countries in the region provided
training to all three groups and only four
countries, the Philippines, Australia, New
Zealand, and India, systematically trained
first responders. In 2017, the governmentof Pakistan took steps to train immigration
officers on victim identification and provided
standard operating procedures for theofficers to follow, 316 while Mongolia also
made progress by collaborating with the IOM
to implement the first segment of its 20182021 training program for border guards andimmigration officials. 317 In Papua New Guinea,
despite training for front-line police, thereis evidence that police made only negligible
efforts to identify sex or labour trafficking
victims at logging and mining sites in more
remote parts of the country. 318

National Campaigns

16

National campaign occurredCampaign distributed
regularly and systematically
Increase in cases reported
by public due to the campaign

6
2
0

36

Number of countries in the region

Figure 1: Number of countries in Asia and the Pacific withnational campaigns to raise awareness of how to identify
victims and report cases modern slavery

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06 Regional analysis

Victim support services

29

Any type of victim support services

20

Physical and mental health services

17Long-term reintegraton support

11

Child-friendly services

8

Family reunification services
036

Number of countries in the region

Figure 2: Number of countries in the Asia and the Pacificregion with selected victim support services

COUNTRIES IN THE
ASIA AND THE PACIFICREGION SHOULD
PROVIDE TRAINING
TO INCREASE VICTIMIDENTIFICATION
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CRIMINAL JUSTICE
Despite strengthening of legislation,
significant gaps in enforcement remain
across the region. Of the 36 countries
in the region, 22 have fully criminalised
human trafficking in line with international
definitions, while 21 countries havecriminalised forced labour as a distinct
offence. 319 The Indian government has draft
legislation intended to address humantrafficking and provide mechanisms for theidentification, protection, and rehabilitation of
victims of human trafficking. The legislation
intends to provide a comprehensive law
on all forms of trafficking and establishes
stricter penalties for aggravated formsof trafficking. In its current form, thelegislation has been heavily criticisedfor its potentially counterproductive andeven harmful consequences, including,for example, punishment for activities notnecessary associated with human trafficking,stemming largely from its vague provisions,and setting the bar too high for immunity
for victims from criminal prosecution. 320
Despite these criticisms, the need for the
Indian government to amend and pass humantrafficking legislation to ensure it adequately
protects vulnerable groups was emphasisedby survivor leaders from the Indian LivedExperience Expert Group (LEEG).

Six of the 14 countries that have notcriminalised human trafficking in line withinternational standards are Pacific Island
countries, including Fiji, Samoa, Tonga,
Kiribati, Tuvalu, and Vanuatu. A common
discrepancy between a nation’s domestic
legislation and international standards isthe recognition that human trafficking may
occur within state borders, as missing in
Tuvalu’s and Fiji’s legislation, 321 and that men
and boys can also be victims, as missing in
China’s legislation. 322 Only 10 countries in theregion have criminalised forced marriage;
these include Australia, China, Kiribati, Nepal,
Malaysia, Pakistan, Singapore, Vanuatu, andVietnam, with New Zealand amending its 1961
Crimes Act in late 2018. 323
Half of all countries in the region have
ratified five or more of the 10 international
conventions related to ending formsof modern slavery, while Tuvalu, Palau,
and Tonga have ratified no international
conventions. The Philippines is the only
country that has ratified the ILO Domestic
Workers Convention No. 189; it has not yet
ratified the 2014 Protocol to the 1930 Forced
Labour Convention.

National modern slavery legislation

22

Human trafficking
Forced labour

21Child commercial sexual exploitation

21
20

Slavery

10

Forced marriage

5

Use of children in armed conflict
036

Number of countries in the region

Figure 3: Number of countries in Asia and thePacific region that have passed domestic legislation
criminalising a form of modern slavery

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Only eight countries across the region havelegislation in place to protect victims frombeing prosecuted for crimes committed while
being a victim of modern slavery (Thailand,
Papua New Guinea, Solomon Islands, China,
Indonesia, Bangladesh, the Philippines, andVanuatu). Despite this, reports indicate thatvictims of modern slavery are often notassessed as victims prior to being prosecutedfor crimes committed while they were
exploited. For example, a lack of training andunderstanding among law enforcement, as well
as fear among victims of coming forward andreporting their situations, has led to convictionsin Thailand for prostitution and immigration
violations. 324 In Indonesia, inadequate efforts
to screen vulnerable groups for victims of
trafficking, particularly those involved in thesex or fishing industries, has resulted in theirpunishment or deportation. 325

penalties for modern slavery crimes have still
handed out disproportionate punishmentson sentencing, including Taiwan, Papua New
Guinea, Australia, Hong Kong, Cambodia, Sri
Lanka and Laos.
Over half of all countries in the region havelaws ensuring victims receive compensation
for damages resulting from exploitation which
are accessible to all victims of modern slavery.
Nearly a third of countries in the region havemechanisms in place for the protection of
victims and witnesses both inside and outside
the court. Those without these protections
pose barriers for victims to participate in
the judicial process. In 2017, the Thailand
government increased the budget for witness
protection services to US$135,436 from anallocated US$92,341 in 2016. 326

Proportionate penalties and sentencing are
critical to deterring perpetrators of modern
slavery. Over half (20) of the countries within
the region have disproportionate penalties
attached to crimes of modern slavery,
whereby an offence can be penalised by a fineor capital punishment. Of the 20 countries
with disproportionate penalties, nine haveadministered disproportionate judicial
punishments. However, there is evidence
that seven countries that have proportionate

Access to justice mechanism

19

Compensation or restitution
Child-friendly processes

17Free legal aid

17
13

Witness protection inside court

12

Witness protection outside court
036

Number of countries in the region

Figure 4: Number of countries in Asia and the Pacificregion providing selected access to justice mechanisms
for victims of modern slavery

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COORDINATION
More than half (21) of the region’s countries
have a National Action Plan (NAP) in place
to tackle modern slavery, or a component
such as human trafficking or forced marriage.
However, only five countries (Nepal, Japan,
Bangladesh, Vietnam, and Australia) regularly
report progress against their NAPs, allowing
them to monitor its efficacy. Four economies,
Hong Kong, Malaysia, Cambodia, and Laoshave a fully-funded budget allocated toactivities within their NAPs. Many countries
without a NAP are in the Pacific Islands
subregion, including Nauru, Samoa, Tonga,
Kiribati, Palau, Fiji, and Vanuatu.
Thirteen countries in the region have anational coordination body responsible
for coordinating national stakeholder
responses to modern slavery; however,
only Nepal has an independent body
responsible for monitoring and reportingon the implementation and effectivenessof the government’s response. The Nepal
National Human Rights Commission has
been in existence since 2000, but it has
been hampered by resource constraints andinsufficient number of staff. 327

It is commendable that all countries in theregion except North Korea participate ina regional response through subregional
bodies that tackle issues relating to modern
slavery. The East Asian Summit (EAS),
comprising 10 ASEAN members anddialogues partners, operates as a regional
leaders’ forum for strategic dialogue andcooperation on key challenges facing theregion, including irregular migration andhuman trafficking; EAS leaders have adopted
various statements supporting action against
modern slavery. 328 Similarly, the PacificIslands Forum is a regional grouping of 18
members working to improve cooperation,
coordination, and collaboration to achievesustainable development in the region. 329 At
the 47th Pacific Islands Forum in 2016, leaders
called for action to end illegal, unregulated
fishing and associated activities, including
human trafficking. 330 The Bali Process brings
together senior ministers from 45 countries
and four UN organisations to develop regional
strategies to combat human trafficking
and forced labour within the Indo-Pacificregion. 331 The Bali Process Government andBusiness Forum, as part of the Bali Process,National coordination mechanism

21

National Action Plan

13

National coordinating body5

Annual reporting against the NAP

4

NAP is fully funded
Independent entity tomonitor the government’s responses

1
0

36

Number of countries in the region

Figure 5: Number of countries in the Asia and the Pacificregion with national coordination mechanisms
to respond to modern slavery

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Le Thi Vu — whosename has beenchanged — knew trying
to escape could mean
being beaten or evenkilled by her exploiter,
who kept her in abrothel for four months
in China’s Guangxi
province. She wasforced to sleep with up
to 12 men a day. Credit:
Manan Vatsyayana/
AFP/Getty Images

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brings together influential business leaderswith government ministers to discuss actions
to strengthen and implement policy and legal
frameworks, most recently endorsing the
Acknowledge, Act, Advance Recommendations
in August 2018. 332
Beyond multilateral institutions, 13 of theregion’s countries cooperate to facilitate
repatriation of victim and 17 countries haveexisting bilateral or multilateral agreementsthat include protection for labour rights. In
July 2018, Australia launched the PacificLabour Mobility scheme, which includes labour
protection provisions for workers from mostPacific Islands. 333 Despite these agreements,
15 countries have either held foreign victims
in detention facilities or deported them for
immigration violations rather than providing
protection. In Brunei, foreign women andchildren have been apprehended, detained,
and deported due to immigration violations
following brothel raids, actions that perpetuate
victims’ fears of cooperating with law
enforcement. 334

ADDRESS RISK
By not addressing risk factors or monitoringhigh-risk environments, governments continue
to facilitate the occurrence of modern slavery
across the region. Despite the informal sector
accounting for over 68 percent of the workforce
in the Asia and the Pacific region,335 and due tothe high prevalence of migrant workers within
the informal sector, governments’ protection oflabour rights, and of informal migrant workers
in particular, is limited. Only 11 countries in theregion have taken steps to ensure labour laws
extend to everyone, particularly vulnerable
groups including domestic workers. Elevencountries in the region conduct labour
inspections in the informal sector to specificallyaddress cases of forced labour, a particularly
important practice to ensure that working
conditions are monitored. For example, in 2017,
the Ministry of Employment and Labor in South
Korea found 7,053 violations in 1,510 workplaces
with foreign workers. 336

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In addition to the pervasive state-imposed
forced labour in North Korea, there have beenreported cases of state-imposed forced
labour in Mongolia, China, Myanmar, andVietnam. Alarmingly, reports continue that
implicate the Myanmar government in theforced recruitment and use of children in thearmed forces. 337 In Mongolia, army conscripts
are required to work in mining, construction,and infrastructure development. 338 In
Vietnam, persons in drug rehabilitation
centres must produce and complete assigned
targets as part of their “rehabilitation.” 339
China has increasingly come under heavy
criticism as evidence mounts of the useof forced labour camps to control andindoctrinate the Muslim Uighur population. 340
The majority of governments in the region
are also failing to protect asylum seekers,
another group vulnerable to modern slavery.
Australia continues to disregard international
conventions and enforce Operation Sovereign
Borders, its military-led border security
operation established in 2013. Operation
Sovereign Borders involves the practice ofturning back boats, often at open sea, andthe offshore processing in detention centresof any asylum seekers who have entered
Australian waters without a visa. 341

Iran and North Korea are the only two
countries in the region that have notcriminalised corruption in the public sector. In
15 countries, there were reports that officials
were complicit in modern slavery cases
and that allegations were not investigated.
For example, reports indicate that despite
numerous reports of corruption at all levelsof the Filipino government, the government
did not convict any officials for complicity inhuman trafficking. 342
In terms of governments efforts to provide
safety nets and social protections for all,less than 20 percent of countries provide
universal healthcare. In contrast, nearly
70 percent of countries have less than 10
percent of primary school age children out
of school. Only the governments of Australia,
South Korea, and Thailand invest in research
into the prevalence of modern slavery,
although non-prevalence-based research
was more common and funded by a third ofgovernments in the region; such research isvital in order to inform government policy.

Protections for workers

Labour laws that cover all workers

11

Labour inspections to address labour exploitation

11

Employer pays principle stipulated in law

9
0

36

Number of countries in the region

Figure 6: Number of countries in Asia and the Pacificregion with labour protections for workers

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Islamabad, Pakistan,
May 9, 2019. Detained
and handcuffed
Chinese nationals
hide their faces as
they arrive at a court
after being arrested
by Pakistani Federal
Investigation Agency(FIA) officials foralleged involvement in
a trafficking ring to lure
women from Pakistan
into fake marriages
then forcing them into
prostitution in China.
Credit: Aamir Qureshi/
AFP/Getty Images

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SUPPLY CHAINS
Although governments and businesses are
increasingly recognising the specific roles
they play in eradicating modern slavery, only
four governments within the region – Australia,
China, Indonesia, and Taiwan — have taken
steps to tackle forced labour in businesssupply chains and public procurement.
Identifying high-risk sectors enables the
public, law enforcement, labour inspectors andother first responders to understand in which
industries people may be most vulnerable
to conditions of forced labour. Both theIndonesian and Australian governments haveidentified high-risk sectors and have worked
towards eradicating modern slavery withinthem. Specifically, the Indonesian government
has introduced regulations for both the fishingand palm oil industry, 343 while Australia, as afounding partner of the Liechtenstein Initiative,
continues to regulate its financial sector. 344
China and Taiwan have implemented measures
to publicise businesses accused of labour
violations, 345 while China’s Ministry of Human
Resources and Social Security publishes
violations of labour laws and may givebusinesses a lower credit rating as a result. 346
Beyond Australia’s Modern Slavery Act, there
is limited engagement on public procurement
to ensure risks of modern slavery withingovernment supply chains are minimised.
Similarly, no countries in the region have
implemented laws to prevent the import ofgoods and services made in conditions offorced labour.

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REGIONAL RECOMMENDATIONS
Governments should:

SUPPORT SURVIVORSADDRESS RISK FACTORS

child-friendly and non-discriminatory
towards men, including services suchas shelters, crisis support centres, andcommunity-based protection.
• Establish clear national guidelines for
identifying and screening victims for all
first responders.
• Provide training for all first responders on
how to identify and refer victims.

social protections - namely education,
healthcare, and government financial
assistance for all populations.
• Extend labour laws to ensure that allgroups across all industries are coveredand ensure that labour inspections are
regularly conducted across all sectors,
including the informal sector.
• Introduce and/or enforce policies guiding
the support and protection for asylum
seekers to ensure they are not detained nor
deported back to their country of origin.

• Ensure all victim support services are

STRENGTHEN CRIMINAL JUSTICE• Strengthen existing national legislation

to ensure that all forms of modern slavery
are criminalised in line with international
definitions.
• Governments should amend legislation
to ensure that victims are treated as
victims, including ensuring that they
are not treated as criminals for conductthat occurred while under the control ofcriminals and that they are able to accesscompensation schemes.
• Disproportionate penalties anddisproportionate judicial punishments
should be eliminated for crimes ofmodern slavery.

STRENGTHEN COORDINATION AND
ACCOUNTABILITY• Identify and ensure access to basic

ERADICATE MODERN SLAVERY FROM
SUPPLY CHAINS• Establish guidelines for public

procurement officials that outline
standards and/or operating procedures toprevent the purchase of goods or services
involving modern slavery.
• Identify sectors at high risk of modern
slavery and work with businesses in those
sectors to eradicate modern slavery.
• Adopt national legislation requiring
businesses to report on the risk of modern
slavery in their supply chains as well as
any actions being taken to address any
existing risks.

• Establish a fully funded National Action

Plan and coordinating mechanism tocoordinate government action to end
modern slavery.
• Create an independent entity to monitor
the implementation and effectiveness ofthe government’s response.
• Ensure bilateral and multilateral labour
agreements provide protection for
migrant workers.

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On January 17, 2018 a
woman cooks in the refugeesettlement of Balukhali in Cox’s
Bazar, Bangladesh, where
over 116 widows and orphans
have found shelter. More than
655,000 Muslim Rohingya
have crossed the border into
Bangladesh since August 2017,
after fleeing the Myanmar
military in Rakhine state.
This brutal crackdown has
been described by the United
Nations as “ethnic cleansing”.
Women and girls reportedly
make about 51 percent of the
distressed and traumatised
Rohingya population in the
refugee camps and face a highrisk of trafficking and sexual
abuse, while adolescent girls
aged between 13 and 20 are
at risk of forced marriage.
Many of the Rohingya womentravelled alone after theirhusbands had been killed or
taken away during the attacks
on their villages. Many continue
to fear returning home. Credit:
Allison Joyce/Getty Images

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EUROPE &CENTRAL ASIA
GOVERNMENT RESPONSE HIGHLIGHTS
Austria

NorwaySwedenCzech Republic

Finland

Slovakia

Estonia

LatviaLithuania

PolandDenmark

Belarus
Hungary
SerbiaMoldova
UkraineSlovenia
Germany
Netherlands
Belgium
Iceland
RussiaUnitedKingdom
Ireland
Luxembourg
Liechtenstein

Kazakhstan
Uzbekistan
Kyrgyzstan
Turkmenistan
TajikstanPortugal
Spain

Georgia
Azerbaijan
Armenia
Romania
Bulgaria

FranceSwitzerland
Italy
Croatia
Bosnia andHerzegovina

TurkeyMaltaMontenegro

Albania

Macedonia

GreeceIsraelKosovoCyprusAVERAGE GOVERNMENTRESPONSE SCORE% <0-9.9

Not
Rated

1

10-19.9 20-29.9 30-39.9 40-49.9 50-59.9 60-69.9 70-79.9 80-89.9 90-99.9

2

3

4

5

6

7*

8

9

10

* N o country can be awarded
above a 7 if there are any
negative indicators in their score

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WEAK RESPONSE
RELATIVE TO WEALTH*STRONG RESPONSE
RELATIVE TO WEALTH*LUXEMBOURG

PORTUGALCROATIA
MONTENEGROSERBIAGEORGIA*Gross Domestic Product (Purchasing Power Parity) Per Capita*Gross Domestic Product (Purchasing Power Parity) Per Capita

AVERAGE MILESTONE SCORE*
M1. 62.7%

I dentify and support survivors

M2. 60.0%

Establish effective criminal
justice systems

M3.	
59.5%

Strengthen coordination andhold governments to account

M4.	
64.1%

Address risk factors

M5. 12.6%

Clean up government andbusiness supply chains*Average milestone scores at theregional level. There are 28 activities
that sit behind the milestones which leadto implicit weighting in the overall score.
See Appendix 2 for more details.

KEY GAPS IN RESPONSE

of the 52 countries assessed in the region:

19

18

16

12

25

do not provide support
services for all victims ofmodern slavery

have treated victims ascriminals for conductthat occurred under thecontrol of criminals

deport or detain
foreign victims for
immigration violations

have laws or policies
that make it difficult
for workers to leave
abusive employers

do not requirebusinesses to reporton supply chain risks

M1

M2

M3

M4

M5

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The Europe and Central Asia region
comprises 59 countries 347 across thesubregions of Central and Western Asia,
Eastern Europe, and Northern, Southern,
and Western Europe, covering 12.4 percentof the world’s population. Of these, 52
countries in the region are assessed in thisreport. An estimated 3.6 million men, women,
and children were living in modern slavery
in 2016, or approximately 3.9 victims ofmodern slavery for every 1,000 people in
the region. 348 When considering the formsof modern slavery, the rate of forced labour(3.6 victims per 1,000 people in the region)
was higher than the rate of forced marriage(0.4 victims per 1,000 people in the region).
Just over a third of victims of forced labour
exploitation (36 percent) were held in debt
bondage, with a higher proportion of men
than women. Europe and Central Asia
accounted for 14 percent of victims of forced
sexual exploitation worldwide and the rate offorced marriage was the second lowest of all
the world’s regions. 349
Migration and state-imposed forced labour
are key issues affecting modern slavery inmany countries in the Europe and Central
Asia region. Intra-regional migration, withflows of people from East to West and fromless developed to more developed countries
in search of economic opportunities and to
escape poverty, continues to be an important
trend. Conflict and displacement in the Middle
East and Sub-Saharan Africa have contributed
to an increase in the migration flows to Europe.
This “so-called” “migrant crisis” has led tomore restrictive immigration policies in Europe,
which in turn, have left migrants vulnerable toexploitation and modern slavery.350 Evidenceof state-imposed forced labour is found in
Belarus, Russia, Turkmenistan, and Uzbekistan.
Belarus and Turkmenistan also have thehighest estimated prevalence of modern
slavery in the region. In Belarus, there are
disconcerting allegations of forced labour inprivately-run administrative detention centres
and through abuse of civic duties.351 The
governments of Uzbekistan and Turkmenistan
continue to exploit citizens in the annual cotton
harvest under a system of production quotas
enforced by the threat of punishment.352

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In the European subregion, states typicallyhave a strong response to modern slavery
and the majority are especially committed
to providing support services for victims andaddressing the underlying risks of slavery.
Since the first time we measured government
responses in 2014, the Netherlands does
not appear in the top spot; instead theUnited Kingdom (UK) provides the strongest
response to modern slavery in the region (andglobally). This represents strengthening ofgovernment action in the UK as well as limitedprosecution efforts in the Netherlands. The
UK is particularly committed to identifying
victims and providing assistance and accessto justice. The UK government has recently
increased capacity of first responders byproviding frequent and systematic training
for foster carers and support workers forunaccompanied asylum-seeking children.
In addition, the UK also ran mandatory faceto-face training for prosecutors in 2018. 353
The year 2018 also saw the first successfulconviction for forced marriage in an English
court. 354
The UK was closely followed by the
Netherlands, Portugal, Sweden, Belgium,and Spain, all of which took significant steps
to respond to modern slavery. Although
the Netherlands has seen a decrease in
the number of victims identified due toreorganisation and changing priorities of law
enforcement agencies, as well as delays inprosecutions, it still identifies more victims
than most other leading countries, with
952 presumed victims identified in 2016 355
and 144 cases going before the publicprosecutor in 2017. 356 Sweden strengthened
its response to victims by opening its firstever shelters that specialise in providing
services to male victims of trafficking.
Previously, all male victims had to bereferred to shelters that provided services
for those with substance addictions. 357
Georgia and Cyprus took the most steps torespond to modern slavery in the Central andWestern Asia subregion, achieving a score of
7 out of 10. Georgia continued strengthening
its law enforcement capacity by providing
systematic and recurrent training to the
judiciary, prosecutors, and police, 358 while
Cyprus ratified the ILO Forced Labour
Protocol P029 in February 2017. 359

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06 Regional analysis

French retired
teacher Catherine Le
Gouic gives a French
lesson to a refugee
on March 27, 2019,
in Le Cloître-SaintThegonnec, near
Morlaix, westernFrance. Credit: Fred
Tanneau/AFP/Getty
Images

GOVERNMENTS RESPONSES AGAINSTGDP (PPP) PER CAPITA‌

Globally, when correlating government
responses against GDP (PPP) per capita,
we find that, generally, countries with ahigher level of wealth are taking moreaction to respond to modern slavery, andthis trend also proves to be true for theEurope and Central Asia region. However,
we do find a few exceptions. Luxembourg,for example, is taking relatively little action
compared to other countries with a similar
amount of wealth largely reflecting its small
population. On the other hand, Georgia,
Croatia, Montenegro, Serbia, and Portugal
are taking very positive steps to respondto modern slavery relative to their levelof wealth. In Portugal, there is evidenceof comprehensive victim assistanceprogramming, including access to freelegal services, and the decoupling of visas
to remain in Portugal from cooperation
with law enforcement. 360

A range of countries within the region
improved their responses to modern
slavery. Ireland, Malta, Germany, Denmark,
Switzerland, Czech Republic, and Poland
witnessed an improvement in ratings, movingfrom scoring 6 out of 10 to scoring 7 out of
10 this year. In a similar fashion, Azerbaijan,
Bosnia and Herzegovina, Ukraine, andLuxembourg moved from a 5 to a 6 rating.
Romania made most progress in the region,
moving from scoring 5 out of 10 to scoring

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7 out of 10 in 2019. This reflects important
improvements in Romania’s response,such as increased use of the government’s
referral mechanism by the police in 2018,
although observers reported that thiswas not done consistently. 361 Additionally,
Romania’s National Agency against Human
Trafficking (ANITP) monitors and evaluates
the implementation on the National Action
Plan (NAP) and makes those reports publicly
available. 362 Romania also conducted its
first prevalence study of modern slavery
using Multiple Systems Estimation (MSE) in
partnership with the UNODC and Walk Free
Foundation. 363
Throughout Europe and Central Asia, Russia
and Turkmenistan have the weakest responses
to modern slavery. While Turkmenistan
maintained its score of 3 out of 10, Russia
dropped from a 3 out of 10 to a 2 out of 10
rating this year. In general, this reflects a
combination of limited political will and a lackof resources, which means these governments
do not prioritise the response to modern
slavery. In 2018, for example, there wasevidence that in Russia victims were arrested
for prostitution charges and children weredetained alongside their exploiters for forced
criminality. 364 Both Russia and Turkmenistan
also show evidence of state-imposed forced
labour. In Russia, compulsory prison labour
continues in public and private prisons 365 whileforced labour for economic development has
been widely documented during the annual
cotton harvest in Turkmenistan. 366

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SUPPORT SURVIVORS
On average, the Europe and Central Asia
region performed strongest of all world
regions on the milestone assessing victim
support services. The UK, Georgia, andCroatia took most action in this area. In
Georgia, for example, victims are able
to access medical aid, psychologicalcounselling, legal assistance, childcare,and one-off compensation payments. 367
One important step to help identification of
victims of modern slavery is the provisionof a reporting mechanism where modern
slavery crimes can be reported. It is therefore
very positive that 51 countries in the Europe
and Central Asia region had a reporting
mechanism, although only 18 countries had afree hotline that was available 24/7 in multiple
languages for men, women, and children. Oneof these is the UK’s national helpline, which
now has the ability to bring in a real-timetranslation services for victims that do not
speak English. 368
Countries in this region generally take strong
action to ensure front-line responders
who come into first contact with victims
are trained. Appropriate training of thisgroup plays an important role in increasing
identification of victims. This year, almost allof the 52 countries in the region had provided
training to front-line police officers thatcovered victim identification procedures. In
addition, nearly 90 percent of countries had
trained immigration officials, border guards
or labour inspectors (46 countries), as well
as non-regulatory workers, such as social
workers, doctors, nurses, and tourism workers(45 countries). Despite provision of training to
key responders and identification mechanisms
being implemented on paper, this has notnecessarily translated into more victims being
identified in practice. Data on registeredvictims of modern slavery in the European
Union (EU) show that over one-third of the
28 EU countries had identified fewer than 50
victims in 2016, including Czech Republic,
Estonia, Croatia, Cyprus, Latvia, Lithuania,
Luxembourg, Malta, and Slovenia.369
Another encouraging development is that
there has been an increase in National
Referral Mechanisms (NRMs) in the region,
from 33 countries to 35 countries this year. A
referral mechanism is critical to connecting
identified victims with the necessary support
to help them exit the cycle of exploitation.
Belarus set up a referral mechanism in2017 involving both governmental and nongovernmental actors, 370 while Kazakhstan
has implemented a standard for the provision

Training of first responders to identify victims

51

Front-line police

46

Regulatory first responders
Non-regulatory first responders

45
0

52

Number of countries in the region

Figure 1: Number of countries in the Europe and Central Asia
region providing training to selected groups of first responders

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06 Regional analysisof services to victims that defines the referral
procedures between law enforcement
agencies, NGOs, and health care and social
welfare agencies. 371
The implementation of victim support
services remained patchy across the region.
For instance, services were not available in
Tajikistan and Turkmenistan. Tajikistan’s victim
identification and support programming has
significantly worsened since 1 July 2017. The
government stopped providing services andlong-term integration assistance to victims ofmodern slavery with the last shelter closing
in April 2016. Due to the lack of a formal
identification system, the police reportedly
made no efforts to proactively identify any
victims. 372 Other responses across Central Asia
remain limited. The government of Uzbekistan
in 2017 increased its budget allocated to its
victim support centre, which provided shelter,
physical and mental health services, and legal
assistance. 373 However, the implementation ofthese improvements is yet to be determined.
There were 31 countries in the European
and Central Asia region that had specialised
services providing support to child victims.
For example, Luxembourg has separate
government-contracted, NGO-run shelters forboy and girl victims of trafficking. 374 However,in 10 countries across Europe and Central

Asia, there is evidence of victims being heldin shelters against their will. For instance, in
Azerbaijan, female victims in particular are
generally not allowed to leave the high-security
state-run shelter unaccompanied as they are
considered to be under the protection of thestate. 375 In Bulgaria, child victims are reportedly
placed in correctional facilities/youth prisons,which they cannot leave due to the closed
nature of these facilities. 376 In addition, there aregaps in victim support services in 19 countries.
For example, modern slavery victims who are
returned to Spain under the Dublin III Regulation
are not referred to specialised services or given
assistance upon arrival in Spain. 377

Victim support services

50

Any type of victim support services

44

Physical and mental health services
Long-term reintegraton support

37

Child-friendly services

31

Family reunification services

22
0

52

Number of countries in the region

Figure 2: Number of countries in Europe andCentral Asia with selected victim support services

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CRIMINAL JUSTICE

slavery in this region, there is evidence
that 12 countries in the region have lawsthat include disproportionate penalties,
that is, penalties that are either overly
lenient or inhumane. Such disproportionate
sentencing can undermine efforts to holdoffenders accountable. For instance, in
the Netherlands, human trafficking can bepunished with a fine under Article 273f of
the Dutch Criminal Code. 381 In Iceland, there
is an option to punish forced labour by a fine
only under Article 225 of the penal code. 382

All countries across the Europe and Central
Asia region, excluding Liechtenstein, have
ratified at least half of the 10 relevantinternational conventions included in
our assessment of government action.
Eleven countries have recently ratified
the 2014 Protocol to the 1930 Forced
Labour Convention (P029), which requires
countries to provide protection, including
compensation, for victims of forced labour,and to sanction the perpetrators of thiscrime. 378 This brings the total number ofcountries having ratified this protocol to 15
out of 52 countries, more than any otherregion in this report.
All countries in the region had criminalised
at least one form of modern slavery in theirnational legislation. As in other world regions,the type of modern slavery most commonly
criminalised is human trafficking, with 49
countries having such legislation. Twenty-fourcountries have criminalised forced marriage.
For example, Estonia recently criminalised
forced marriage through amendments to
Section 133 of its criminal code. 379 The
Spanish government also amended its
penal code in 2019, including provisions tocriminalise forced marriage in Article 172
bis. 380 Despite sound coverage of legislation
criminalising various forms of modern

Countries in the region perform relatively
well in providing access to justice for victims
of modern slavery. The majority of countries
in the region (44) provide free legal services,which is a critical component of a responsethat supports and encourages victims toprosecute their exploiters. In Estonia, theState Legal Aid Act permits that Estonianand EU citizens and residents can receive
free legal aid if they are unable to pay for itthemselves. In addition, legal assistance isavailable for victims in criminal proceedings
if their legal capacity is limited, regardlessof their financial situation. 383 In Bosnia andHerzegovina, an NGO provides free legal
aid to all victims under an agreement withthe government. 384 More than half (27) of
all countries in the region provide witness
protection inside the court to ensure that

National modern slavery legislation

49

Human trafficking

24

Forced marriage

21Child commercial sexual exploitation

20

Slavery

16

Forced labour

13

Use of children in armed conflict
052

Number of countries in the region

Figure 3: Number of countries in the Europe and Central Asia
region that have passed domestic legislation criminalising aform of modern slavery

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06 Regional analysis

Access to justice mechanism

Compensation or restitution

44

Free legal aid

44
38Child-friendly processes

33

Witness protection outside court

27

Witness protection inside court

0

Visas not tied to court processes

21

0

52

Number of countries in the region

Figure 4: Number of countries in the Europe andCentral Asia region providing selected access to justicemechanisms for victims of modern slavery

witnesses and victims are intimidated. This
includes measures such as permitting victims
to provide video testimony and providing forvictims to be protected from perpetrators inand around the courtroom. It is also importantthat governments acknowledge and effectively
implement the “non-punishment principle,”
which acknowledges that victims of modern
slavery are not punished for offences they
have committed as a consequence of or in
the course of their exploitation. In Europe andCentral Asia there are 21 countries that haveinstilled this principle in their legislation, butthere is evidence that countries are struggling
with its implementation. Nine of those 21
countries still arrest victims for offences
committed while they were in modern slavery.
For instance, there is evidence that the UK,
which has the strongest overall response in
the region, still detains and deports foreign
victims for crimes such as cannabis production,
prostitution-related offences, fraud andbegging as well as immigration violations. 385
In addition, less than half of countries (21)offer visas to victims on humanitarian or othergrounds that are not tied to their participation in
the court process. For example, while Germany
provides victims with a reflection period of
three months, if they do not agree to work withthe authorities and testify in court, they need toleave the country at the end of this period. 386

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Civilians protest against the
Italian Government, callingfor freedom of movement, theright of residence, fair wages,
and protection against slavery
and exploitation. Credit:
Simona Granati - Corbis/
Corbis via Getty Images

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COORDINATION
Domestic coordination among government
agencies and civil society, as well as bilateraland multilateral international coordination,
are crucial for an effective government
response. It is therefore encouraging to
see that 39 countries in the region haveestablished a national coordination bodythat includes both government agencies
and NGOs. For example, in Turkey,
the Regulation on Combating Human
Trafficking and the Protection of Victims
established the Coordination Committee
on Combating Human Trafficking, which
includes government officials as well as
various civil society organisations. 387 There isevidence this committee met in March 2017
and February 2018. 388 The 2016 trafficking
law in Turkmenistan introduced a joint
national committee to coordinate and plan
the government’s response; however, it
reportedly still has not been established. 389
In terms of international cooperation, allcountries except Kosovo are involved in aregional body taking some action against
modern slavery and 41 countries in the region
are also cooperating with other governments
to facilitate repatriation of victims. The
Norwegian government has been working
with the IOM since 2013 to facilitate voluntaryand safe repatriation for victims. 390 However,
GRETA noted that there have been cases
where child victims were returned by childwelfare authorities to their families, whoeither directly or indirectly facilitated theirtrafficking in the first place, which is against
a policy agreed upon with the Norwegian
government. 391 Although most countries
in the region have in place repatriationagreements, 16 countries reported instancesof deporting and detaining foreign victims for
immigration violations, including in Norway. 392
Nearly 80 percent of countries (40 out of52) in Europe and Central Asia had some
sort of national strategy that lays out a plan
to tackle modern slavery in the country.
Serbia adopted its draft National Action Planfor the period 2017-2022393 and allocated 8
million dinars (US$76,292) to implement theplan. 394 Yet, there were 39 countries in theregion that failed to dedicate an appropriate
budget for the implementation of the NAP
and their broader government response.
Across the region, government reporting
against the NAP remains limited, with only 21of the 40 countries that have implemented
a NAP publishing annual reports thatdetails the government’s action in line with
the national strategy. In Macedonia, theNational Commission, which is the national
coordination body, published an annual

National coordination mechanism

40

National Action Plan

39

National coordinating body21

Annual reporting against the NAP

13

NAP is fully funded
Independent entity to monitor
the government's responses

11
0

52

Number of countries in the region

Figure 5: Number of countries in Europe
and Central Asia with national coordination
mechanisms to respond to modern slavery

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06 Regional analysis

There has also been evidence that restrictions
on entry into Europe has led to the deaths of
migrants trying to cross the Mediterranean
Sea and, for those intercepted by the Libyan
Coast Guard, a risk of ending up in detention
centres where migrants have been sold in open
markets as slaves.401

report detailing its activities. 395 The AntiHuman Trafficking Unit (AHTU) in Ireland
has been reporting very consistently over
the years, publishing its ninth annual reporton trafficking in human beings in 2017. 396 It is
important that governments also establish
independent monitoring bodies to review
their modern slavery response. So far, only
11 European countries have set up nationalrapporteurs.

The Roma population is also at particular risk
in Europe as it faces particularly high levelsof social exclusion and extreme poverty.402
In many countries, Roma peoples facedifficulties registering births or sending theirchildren to school. Forty-eight countries in
Europe have birth registration systems for theentire population and provide public primaryeducation for all children, regardless of theirethno-cultural or religious background. In
Croatia, recent amendments to the Aliens Act
2013 have allowed for birth registration for theRoma population.403

ADDRESS RISK FACTORS
Though the Europe and Central Asia region isincreasingly taking steps to address risk factorsthat drive modern slavery, there are still issues
regarding protection of migrant populations.
Often depicted in the media as an “exodus of
biblical proportions,” 397 the “so-called” “migrantcrisis” or “refugee crisis” has exacerbatedfears of migrant populations and heightened
perceptions that the European continent willsoon be overrun. This has led to a tighteningof immigration policies and a reduction in theprotections for migrants across the region. 398
European authorities have seized NGO andvolunteer boats and arrested crew members
carrying out search and rescue operations in
the Mediterranean Sea. 399 For example, in 2017,
Italian coast guards seized a migrant rescue
boat run by a German NGO as they claimed it
was facilitating “illegal migration.”400

An ongoing issue in the Europe and Central
Asia region is state-imposed forced labour,with four countries still forcing their citizens towork. Despite the Uzbek Government’s workwith the International Labour Organization (ILO)
to eliminate forced labour in its annual cotton
harvest since 2014, there is still evidence thatcitizens are exploited and forced to work.404

Protective factors

48

Birth registration for all

28

Systematic labour inspections
Labour laws that cover all worker

26

Access to basic protection
for asylum seekers

19
0

52

Number of countries in the region

Figure 6: Number of countries in theEurope and Central Asia region providing
protective factors for modern slavery

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SUPPLY CHAINSThe European subregion, more than any
other region globally, has taken the most
steps to address the issue of slavery insupply chains. EU Directive 2014/95/EU on
disclosure of non-financial and diversity
information, requires large businesses toinclude in management reports a nonfinancial statement containing information
relating to social, environmental, and humanrights matters.405 While modern slavery is not
expressly mentioned, it is captured under
the category of human rights.406 Twentyseven EU countries have fully transposed
the directive into domestic legislation. EU
Directive 2014/24/EU encourages European
governments to take social considerations
into account in their public procurement
processes, although it does not target
supply chains.407 Article 57 of this directive
requires that public authorities exclude abusiness from the procurement or award
procedure if the business was convictedby final judgment for child labour or humantrafficking. It also recommends integratingsocial considerations as part of the contract
performance conditions, including asking
businesses to comply with the ILO core
conventions, such as Convention 29 on
Forced Labour and Convention 182 on the
Worst Forms of Child Labour.408 Portugal
was one of the last countries to transpose
EU Directive 2014/24/EU409 on public

procurement in August 2017, bringing thetotal number of EU countries that have
implemented this directive to 29.410
Despite this promising action, Uzbekistan
is still on the list of EU Generalised Schemeof Preferences, meaning that the Uzbek
Government has access to partial or full
removal of customs duties on two thirdsof tariff lines.411 The EU should recognise
its leverage in terms of trade by removing
Uzbekistan from this list due to evidence ofstate-imposed forced labour in its cotton
industry.
In the UK, Section 54 of the Modern Slavery
Act requires large businesses to publish anannual statement outlining what they do toensure there is no slavery within their own
organisation and, importantly, within their
supply chains. The UK government has
recently conducted a review of its Modern
Slavery Act, including Section 54. The
Second Interim Report on Transparency inSupply Chains produced under this review
recommended that the government establish
an internal list of companies which should
be reporting under the legislation and acentral government-run repository wherecompanies could upload their statements.412
It also recommended extending mandatory
reporting to the public sector,413 which wasrecently confirmed by former-Prime Minister
Theresa May in her speech at the ILO

Policies to eliminate modern slavery from supply chains

Public procurement supply
chains legislation
Business supply chaintransparency legislation
Identify and work with high-risk sectors

29
27
6
0

52

Number of countries in the region

Figure 7: Number of countries in the Europe and Central Asia
region with policies aimed at eliminating modern slavery fromsupply chains

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06 Regional analysis

centenary conference in June 2019.414
In France, the 2017 Corporate Duty of Vigilance
law requires mandatory due diligence forlarge businesses.415 This law obliges all
French companies that have more than
5,000 employees domestically or employ
10,000 employees worldwide 416 to prepare a“vigilance” or due diligence plan that directly
addresses how the company’s activities impact
on the environment, health and security, andhuman rights, including modern slavery. This
plan must include detailed mapping of risks,details of procedures used to assess risks with
suppliers, alert mechanisms to collect risk
information, and a monitoring scheme. The law
will affect about 150 French businesses.417

Liechtenstein and the Netherlands are twoof only six countries in Europe and Central
Asia that have set up an initiative to tackle
modern slavery in a specific high-risk sector.
In 2018, both governments founded, together
with the Australian Government, the Financial
Sector Commission on Modern Slavery and
Human Trafficking (Liechtenstein Initiative),a private-public partnership that aims todiscuss the financial sector’s approach toanti-slavery and anti-trafficking complianceand responsible investment. The commission
is holding consultations in 2018-2019 and willconsider a concrete roadmap to accelerateaction in combating modern slavery in thefinancial sector. 420

In Germany, a bill drafted by the Federal
Ministry for Economic Cooperation andDevelopment introducing a suite of mandatory
human rights due diligence obligations forGerman businesses was leaked in February
2019. The law would apply to businesses withmore than 250 employees and with more than
€40 million annual turnover. It would require
German businesses to carry out an internal
analysis of their supply chain risk, introduce
preventative measures if risks are detected,
and establish an effective complaints
mechanism for foreign workers.418 Several
committees of the German parliament are
currently critiquing the draft law, suggestingthat it may be subject to significant changes.419

In a landmark case in the Netherlands, a worker
from North Korea filed a criminal complaint
in late 2018 against a Dutch shipbuilding
company that he alleges had contracts witha Polish shipyard that used slave labour.421
The worker claims the shipyard severely
exploited their labourers sent by the North
Korean regime. Dutch law contains a uniqueprovision under which companies can be held
accountable for profiting from exploitation,even if they are not direct perpetrators.422
Though this case has not yet been decided,
it focuses attention on the need andresponsibility of companies to investigate their
supply chains for modern slavery.

EUROPEAN AND
CENTRAL ASIANCOUNTRIES SHOULDTACKLE THE DRIVERS
OF MODERN SLAVERY
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REGIONAL RECOMMENDATIONS
Governments should:

SUPPORT SURVIVORSADDRESS RISK FACTORS

regular and systematic training on
identifying and referring victims to those
who may come into contact with victims,
such as police and other first responders,
including those involved in refugee intake.
• Ensure National Referral Mechanisms
are in place to improve coordinationand cooperation between government
agencies, as well as between governmentand civil society.
• Close gaps in victim support services byextending available support services toadults and men in particular.

rights of migrants and refugees, regardlessof whether their entry was legal, byreviewing restrictive immigration policies
and implementing legislation to ensure thatasylum seekers are able to seek access tobasic support and protection.
• Extend labour laws to ensure they
cover all migrant workers, including
those in informal sectors, and ensure
labour protections are enforced throughsystematic and regular labour inspection.
• Ensure better protection of Roma peoples
by allowing them to register births andgiving Roma children access to primaryschool education.

• Improve victim identification by providing

STRENGTHEN CRIMINAL JUSTICE• Strengthen existing national legislation toensure that all forms of modern slavery
are criminalised in line with international
definitions, in particular, forced marriage
and forced labour.
• Provide visas for modern slavery victims
on humanitarian or other grounds that
do not require participation in criminal
investigations or prosecutions.
• Ensure that the “non-punishment
principle,” which acknowledges thatvictims of modern slavery are not punished
for offences they have committed as aconsequence or in the course of their
exploitation, is part of government policy
and is effectively implemented.

• All destination countries should protect the

ERADICATE MODERN SLAVERY FROM
SUPPLY CHAINS• Implement legislation requiring reporting

for all large businesses and the public
sector on human rights issues and include
specific provisions on modern slavery andhuman trafficking.
• Identify sectors at high risk of modern
slavery and work with businesses in those
sectors to eradicate modern slavery.
• Exclude Uzbekistan from trade preference
programs, including the EU’s Generalized
Scheme of Preferences, until thegovernment ends its forced labour systemof cotton production.

STRENGTHEN COORDINATION
AND ACCOUNTABILITY• All countries should develop their own

National Action Plans in coordination with
relevant stakeholders and ensure that they
regularly evaluate their actions against
their national strategy.
• Establish mechanisms such as anindependent rapporteur or commissioner
to monitor the government’s response andto ensure effective implementation of the
NAPs and the incorporation of lessons
learned into national strategies.
• Screen potential foreign victims
of modern slavery for evidence of
exploitation rather than detaining victims
on the grounds of immigration violations
and deporting them without providing
access to victim assistance.

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A migrant disembarks from theDutch-flagged Sea Watch 3 NGO
rescue vessel after it docked on
January 31, 2019 in the Sicilian
port of Catania. The crew feared
legal action as Italy’s far-rightinterior minister, Matteo Salvini,
tried to stop new arrivals. The
ship, which had been waiting off
the coast of Sicily with people
it rescued in the Mediterranean
on January 19, was finally given
permission to dock after six
other countries agreed to takethem in. Salvini has subsequently
tried to stop boats from docking
in Italy, but his decisions were
eventually overturned by theEuropean Court of Human
Rights, which said Salvini’s
actions violated internationallaw. Credit: Federico Scoppa/
AFP/Getty Images

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APPENDIX 1:TERMINOLOGY
In the context of this report, modern slavery covers a setof specific legal concepts including forced labour, debt
bondage, forced marriage, slavery and slavery-like practices,and human trafficking.
Although modern slavery is not defined in law, it is used as an umbrellaterm that focuses attention on commonalities across these legal concepts.
Essentially, it refers to situations of exploitation that a person cannot refuseor leave because of threats, violence, coercion, deception, and/or abuse of
power. For example, their passport might be taken away if they are in a foreigncountry, they might experience or be threatened with violence, or their family
might be threatened.
Different countries use different terminologies to describe modern slavery,
including the term slavery itself but also other concepts such as humantrafficking, forced labour, debt bondage, forced or servile marriage, andthe sale or exploitation of children. These terms are defined in various
international agreements (treaties), which many countries have voluntarily
signed on and agreed to. The following are the key definitions to which most
governments have agreed, thereby committing to prohibit these crimes
through their national laws and policies.

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07 Appendix 1: Terminology

In Vietnam’s Quan Ba district,
Hmong woman weave
traditional textiles at theLung Tam Linen cooperative
which employs marginalised
women, many who havebeen affected by trafficking.
Human trafficking is common
in the remote hills near the
China border. Credit: Nhac
Nguyen/AFP/Getty Images

HUMAN TRAFFICKING
Human trafficking is defined in the UN
Trafficking in Persons Protocol as involving
three steps.

1.

Recruitment, transportation, transfer,harbouring or receipt of persons;

2. By means of threat or use of force or otherforms of coercion, of abduction, of fraud,of deception, of the abuse of power or ofa position of vulnerability, or of the giving
or receiving of payments or benefits toachieve the consent of a person having
control over another person;

3. With the intent of exploiting that person

through: prostitution of others, sexual
exploitation, forced labour, slavery (orsimilar practices), servitude, and removalof organs.

Walk FreeThe recruitment, transportation, transfer,harbouring, or receipt of a child for the purposeof exploitation shall be considered “trafficking
in persons” even if this does not involve threat,
use of force, or coercion.

FORCED LABOUR
Forced labour is defined in the International
Labour Organization (ILO) Convention on
Forced Labour 1930 as “all work or service
which is exacted from any person under the
menace of any penalty and for which the said
person has not offered himself voluntarily.”This excludes compulsory military service,
normal civil obligations, penalties imposed by acourt action taken in an emergency, and minor
communal services.

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07 Appendix 1: Terminology

SLAVERY AND SLAVERY-LIKE
PRACTICES
Slavery is defined in the 1926 Slavery
Convention as the status or condition of aperson over whom any or all of the powers
attaching to the right of ownership are
exercised. In a later treaty, States agreed that
there are also certain “slavery-like practices”:
debt bondage, forced or servile marriage,
sale or exploitation of children (including inarmed conflict), and descent-based slavery.

DEBT BONDAGE
Debt bondage is a status or condition, where
one person has pledged his or her labouror service (or that of someone under his or
her control), in circumstances where thefair value of that labour or service is notreasonably applied to reducing the debt or
length of debt, or the length and nature of theservice is not limited or defined.

FORCED OR SERVILE MARRIAGE
The following are defined as practices“similar to slavery” in the 1956 Slavery
Convention. Any institution or practicewhereby:• A woman, without the right to refuse, ispromised or given in marriage on paymentof a consideration in money or in kind to
her parents, guardian, family or any otherperson or group; or• The husband of a woman, his family, or
his clan, has the right to transfer her toanother person for value received orotherwise; or• A woman on the death of her husband isliable to be inherited by another person.
More recent interpretations of forced marriage
are broader than the practices defined in the1956 Slavery Convention. In 2006, the United
Nations Secretary-General noted that “a forced
marriage is one lacking the free and valid
consent of at least one of the parties.” Forced
marriage therefore refers to any situations inwhich persons, regardless of their age, havebeen forced to marry without their consent.

112

Child, early, and forced marriages are terms
that are sometimes used interchangeably.
Some child marriages, particularly those
involving children under the age of 16 years,
are considered a form of forced marriage,
given that one and or/both parties have notexpressed full, free, and informed consent (asnoted in the joint general recommendation
No. 31 of the Committee on the Elimination ofDiscrimination against Women). It is important
to note that in many countries 16 and 17-yearolds who wish to marry are legally able to do so
following a judicial ruling or parental consent.

WORST FORMS OF CHILD LABOUR
Drawing on the 1999 International Labour
Conference Convention No.182, concerning
the Prohibition and Immediate Action for
the Elimination of the Worst Forms of Child
Labour, the term “worst forms of child labour”
comprises:a. All forms of slavery or practices similar toslavery, such as the sale and trafficking ofchildren, debt bondage and serfdom andforced or compulsory labour, including
forced or compulsory recruitment ofchildren for use in armed conflict;b. The use, procuring or offering of a childfor prostitution, for the productionof pornography, or for pornographic
performances;c. The use, procuring or offering of a childfor illicit activities, in particular for the
production and trafficking of drugs as
defined in the relevant international
treaties;
d. Work which, by its nature or thecircumstances in which it is carried out, islikely to harm the health, safety or moralsof children

Measurement, Action, Freedom

07 Appendix 1: Terminology

London, UK, July 4, 2018. Sex workers and activists stage
a protest outside Parliament in London as MPs debate a
proposal to outlaw online prostitution platforms. The membersof a cross-party group on prostitution argue that UK should
follow the recent FOSTA-SESTA legislation in the US, whichmakes sex work advertising websites directly accountable forencouraging exploitation and trafficking. The protesters saythat such legislation will make sex work more dangerous by
forcing it out on the streets and removing access to databasesof violent clients. Credit: Wiktor Szymanowicz / Barcroft Media
via Getty Images

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113

08

APPENDIX 2:METHODOLOGY
Governments play a critical role in developing andimplementing the laws, policies, and programs that areneeded to prevent and respond to modern slavery. To
coincide with the High-Level Political Forum in July 2019, we
have released the Measurement, Action, Freedom reportto assess the actions governments are taking to achieve
Sustainable Development Goal (SDG) 8.7 and the eradicationof modern slavery.

114

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08 Appendix 2: Methodology

Migrant workers in Kuala
Lumpur are at particularrisk of exploitative labour
conditions in Malaysia’s
slowing constructionindustry. Credit: Faris
Hadziq/SOPA Images/
LightRocket via Getty Images

This assessment is based on our conceptual
framework, initially developed for the 2014
Global Slavery Index (GSI) and included inthree subsequent editions of the GSI, which
tracks government progress towards theachievement of five milestones:

1.

Survivors of slavery are identified andsupported to exit and remain out of slavery.

2. Criminal justice mechanisms function

effectively to prevent modern slavery.

3. Coordination occurs at the national level

and across borders, and governments areheld to account for their response.

4. Risk factors, such as attitudes, social

systems, and institutions, that enable
modern slavery are addressed.

5. Government and business stop sourcing
goods and services produced by forced
labour.

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THEORETICAL FRAMEWORK: CRIMEPREVENTION THEORY
Our starting point for the assessment ofgovernment responses is situational crime
prevention theory.423 This is based on theunderstanding that in order for the crime ofmodern slavery to occur, there needs to be avulnerable victim, a motivated offender, andthe absence of a capable guardian. It also
recognises that crime does not happen in a
vacuum and that addressing broad contextual
factors like state instability, discrimination,and disregard of human rights is critical to any
government response.
Therefore, to reduce the prevalence of crime,
the government needs to do all of the following:• Reduce the opportunity for offenders tocommit the crime.
• Increase the risks of offending.
• Decrease the vulnerability of potential
victims.

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08 Appendix 2: Methodology• Ensure the effective rehabilitation andreintegration of survivors• Increase the capacity of law enforcement
and other guardians.
• Target efforts directly at the people andfactors that stimulate or facilitate slavery.

DEVELOPMENT OF THE CONCEPTUALFRAMEWORK
Using this theoretical framework as astarting point, and drawing on the UN
Trafficking Protocol,424 the Council of Europe
Convention on Action against Trafficking in
Human Beings,425 and literature on effective
responses to modern slavery,426 we devised aconceptual framework for what constitutes astrong response to modern slavery.
This conceptual framework is organised
around the five milestones outlined above,
which, if achieved, would ensure thatgovernments are taking steps to address
modern slavery. The initial conceptual
framework was developed in 2014 in
consultation with an independent Expert
Working Group and based upon findings
from NGO research and scholars in fields
related to modern slavery, such as harmful
traditional practices, health, social welfare,and migration.427

REVIEW OF THE CONCEPTUALFRAMEWORKIn 2018 and 2019, we conducted a thoroughreview of the conceptual framework toensure it is still capturing all relevant
elements of a government response in linewith SDG 8.7. To do this, we held a series ofworkshops with our Expert Working Groupand survivor leaders in the UK and India.
Our engagement with survivors was also toensure that the conceptual framework andthis report reflects survivor voices.
A summary of the main findings from each
workshop is outlined below.

Expert Working Group (EWG)
In October 2018, we held a workshop with ourExpert Working Group to step back from theframework. The discussion focused on threeobjectives:

1.

Review the framework’s contents against
developments in the field and theestablishment of the SDGs.

2. Discuss alternative ways of assessing

government responses, including datacollection.

3. Begin to discuss weighting of themilestones.

Motivated
offenderContextual factors:
state instability,
discrimation,
disregard forhuman rights, etc.

Vulnerable
victim

MODERNSLAVERY
Absence ofa capable
guardianFigure 1: Situational crime
prevention theory

116

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08 Appendix 2: Methodology

One of the key points arising from thediscussion was the need to shift the emphasisof the framework away from evaluatingprocesses and more toward outputs andimplementation. Participants envisioned thatthe framework would eventually do more tocapture effectiveness by focusing exclusively
on policies that have a proven impact onslavery. The group suggested looking at
data-driven approaches to streamline datacollection, while artificial intelligence andmachine learning could have the potential
to lower the cost of updating data collection
processes. The group also provided feedback
at the milestone level to better reflect outputs
rather than process indicators, ensure
measures from the Convention on the Rightsof the Child are included, strengthen theunderstanding of prevention under Milestone
4 of the framework, as well as shift the focus
away from shelters under Milestone 1 and awayfrom National Action Plans under Milestone 3.

Lived Experience Expert Group(LEEG) - UK
Also in October 2018, we held out firstworkshop with a Lived Experience Expert
Group (LEEG) in the UK. This was organisedwith the Survivor Alliance and represented
the first consultation with survivors ofmodern slavery on our assessment ofgovernment responses. We asked the groupof 10 individuals for their feedback on threequestions:

1.

What do you think is currently missing fromthe framework?

2. What would you change about theframework?

3. Which are the most important milestonesin the framework?
Key points from the discussion included
the importance of survivor voice in the
production of the government response work.
Survivors should be involved in the reviewof the conceptual framework as well as datacollection and verification processes. Overall,the LEEG recommended that government
responses to modern slavery need to be
survivor-centric by actually putting survivors
at front and centre of all elements of a
response. When looking at the indicators,
the survivors discussed the importance ofensuring that basic needs and longer-term
support are included for individuals who havebeen identified as victims. The ability to work
while receiving support was flagged as animportant way to become self-sufficient, tosupport their families, and to help to rebuild
Walk Free

their lives. Bolstering access to justicemechanisms, including access to free legal
services, translation, witness protection,and child-friendly services, were highlighted
as critical. The limited use of interpretation
services throughout the criminal justice system
was discussed as a particularly important
issue, given that some survivors had felt that
authorities had not believed them when theydescribed their experiences. When looking
at coordination under Milestone 3, the groupemphasised the importance of joint police
investigations and sharing of information
across borders, while for Milestone 4,
education, safety nets, social protections, andaddressing corruption were recommended
as critical actions for the government totake. When reviewing the milestones interms of importance, the group began byhighlighting the importance of Milestone 1,
victim assistance, but during the discussion
increasingly emphasised the role of Milestone
4 to prevent modern slavery from occurringin the first place. However, overall, the group
did not want to weight some milestones to thedetriment of other milestones.

Lived Experience Expert Group(LEEG) - India
In April 2019, we hosted another LEEG group in
Kolkata, India, in partnership with Sanjog andSurvivor Alliance. We asked the 15 survivor
leaders their feedback on the same threequestions we asked of the UK group.
The LEEG in India highlighted the importanceof criminal justice to combating modern
slavery, both in terms of the need for strict
punishments for traffickers and to empower
victims. Participants highlighted the needfor the Trafficking of Persons (Prevention,
Protection and Rehabilitation) Bill, 2018 tobe passed by the Indian Parliament. Specificmechanisms were described as importantto allow victims to access justice, including
the awarding of compensation and the use ofvideo testimony during court cases. Overall,
the group stated that Milestone 5 was themost important milestone to a government
response. Businesses should be registered,and those businesses that are found to exploit
individuals should be shut down and theperpetrators prosecuted. Investigations should
include business owners, not just lower level
employees. The LEEG emphasised that victim
assistance is critical to addressing modern
slavery and that there needs to be support
that goes beyond rescue and also extends tomale victims, not just women and girls. Some
members of the group believed there was a117

08 Appendix 2: Methodology

need to prioritise victims in any government
response in order to provide support, safety,
and freedom for those directly affected. The
survivor leaders highlighted the importanceof the government response rating andregular reviews of government interventions
to ensure that no one falls through the cracks
in the system and justice is served.
Coordination, monitoring, and accountability
were also seen as important to the Indian
LEEG to prevent wastage. Governments
should have mechanisms to ensure thatdifferent agencies are talking to each otherand that these staff at these agencies should
receive training. Finally, addressing poverty
and corruption and providing safe migration
corridors were recommended as important
initiatives by the group.
Response to EWG and LEEGs
The feedback from each of these groups wasincorporated into the conceptual framework(see Appendix 2). The conceptual framework
now includes a series of “aspirational”
indicators, which thus far are not operationalin the absence of robust data sources. These
indicators are “greyed out” in the conceptual
framework in Appendix 2. We expect these
indicators will be incorporated into ourassessment as more data become available.
We also asked the LEEG groups in the UK
and India to rank the milestones in orderof importance. This will be part of an effort
to look at the implicit weighting in our

118

conceptual framework and will be the basisof a paper exploring options which will be
released over the next 12 months.
In the interim, we have begun testing theaspirational indicators to see if we canidentify suitable data sources. For example, in
response to the suggestion that we should befocusing more on outputs, we extracted datafrom UNODC Global Report on Trafficking
and the US Department of State Trafficking
in Persons report regarding the numberof victims identified, the number of cases
investigated, and the number of prosecutions
and convictions. However, we found that thisdata varied greatly according to source andthat there were also contradictions among thereporting periods. While this precluded using
the data in this report, we have used the data
to inform the global findings section of thisreport to draw attention to those governments
that, despite having a suitable responseon paper, have not identified any victims inrecent years. The focus on outputs will also
be part of the ongoing work to strengthen
the conceptual framework. Similar indicator
tests were carried out for recommendations
regarding better reflection in the frameworkof the Convention on the Rights of the Child,survivors, and labour rights.
The findings from these tests were presented
to our Expert Working Group in early June
2019. How we incorporated these findings orplan to incorporate the recommendations issummarised in Table 1.

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08 Appendix 2: Methodology

Table 1: Recommendations for the government response conceptual framework and next steps

RECOMMENDATIONTEST CARRIED OUT

FINDINGSCOURSE OF ACTION

Data extracted from
UNODC and US
Trafficking in Persons
reports regarding
number of victims,
investigations,prosecutions, andconvictions.

Data are inconsistent.

Focus on data collected
by IOM’s Counter
Trafficking Data
Collaborative 428 and
UNODC data used in
the Global Trafficking in
Persons Report 429 andnumber of identified
victims to highlight those
governments where
there is limited action
despite existence of a
response.

Expert Working Group
Shift focus to outputs
rather than process
indicators.

Reporting periods
overlap.

Ongoing discussion
regarding how to assessother outputs. For
example, how many
victims need to be
identified in order forindicator to be met?
Ensure that each activity
has implementation
indicators and works
towards effectivenessindicators.

Reviewed each indicatorin the conceptual
framework to ensurethat it was either
showing existence ofpolicy, implementationof policy, or
effectiveness of policy.

Most activities have
implementation
indicators.

Ensure that protection
for children is betterreflected in theframework.

Mapped the UNICEF
guidelines on protectionof child victims of
trafficking430 and
UNODC tool 8.3 onprotection, assistanceand human rights 431
to our conceptual
framework

Information for special
shelters for children isreadily available andoften used for existing
indicators for children.

Added any missing
indicators.

Effectiveness is not
sufficiently captured.

Data for other indicators
requires multiple
sources and is difficult
to access beyond
GRETA reports in
Europe.

Updated framework
to incorporate
implementation
indicators
Ongoing discussion
with EWG aboutmeasurement of
impact, particularly thepossibility of applying
Delphi method to
identify most impactfulindicators. Also, startwith looking at impact
at a lower level than
reduction of prevalence;for example, impact ofpolicies on identificationof survivors.
Review potential data
sources for next roundof data collection.
Develop protocols forthese indicators to
inform data collection
and rating.

Tested availabilityof data for the new
indicators for 10
countries.

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08 Appendix 2: Methodology

RECOMMENDATIONTEST CARRIED OUT

FINDINGSCOURSE OF ACTION

Develop a conceptual
framework for action toprevent modern slavery.

Mapped the vulnerability
literature review
created for the Alliance
8.7 Migration Action
Group. 432

Most findings werecovered under thegovernment response
framework, however
not necessarily under
Milestone 4.

Discuss data sources formeasuring government
legislation andpolicies on addressing
discrimination andsocial norms or harmful
traditional practices

Reformulate indicators
so they focus on accessto social safety nets
rather than availability,
and test availability ofdata.

Gaps in termsof responding todiscrimination, social
norms / harmful
traditional practices.
Overlap between
government responseand vulnerability.
Data are available forthe updated indicators
on social safety nets.
For example, the WorldBank and World HealthOrganization dataset
on Universal HealthCare. 433

Ensure that labour rights
are better reflected in
the framework.

Created new indicators
relating to number oflabour inspectors, theirability to enter premises
unannounced, the ability
to enforce fines, andlegislation on freedomof association andcollective bargaining.
Tested data availability
using ILO Natlex434 andILO Normlex. 435
Extracted data from
Normlex regarding
quantity and quality ofinspections.

Indicators werestraightforward todevelop and to identify
data sources for.
However, for labour
inspections, these data
are available only for
those countries thathave ratified ILO Labour
Inspection Convention,
1947 (No. 81) – 146
countries.

Make clearer delineation
between government
response and WalkFree’s vulnerability
model
Review other migration
vulnerabilities beyond
labour migration

Identify different data
sources for labour
inspectors to plug
gaps in ratification of
the Labour Inspection
Convention.
Review with EWG
and ILO the standard
for number of labour
inspectors, ability toenter unannounced andissue fines.

For number ofinspections, it was foundthat no country in theworld had a sufficientnumber of inspectors.

Continue conversations
on labour rights
indicators beyond
measuring labour
inspections.

Data on ability to enterunannounced andenforce fines were morenuanced, but available
for only 25 and 42
countries respectively.

Include indicator oncollective bargaining andfreedom of associationin next data collection
round.

Data on collective
bargaining and freedomof association werereadily available formost countries.

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08 Appendix 2: Methodology

RECOMMENDATIONTEST CARRIED OUT

FINDINGSCOURSE OF ACTION

Shift focus from shelters
under Milestone 1 andNational Action Plans
under Milestone 3.

Reviewed languageof milestones andindicators.

Language of existing
milestones andindicators was easy to
update.

Update text forexisting milestones
and indicators for the
Measurement, Action,
Freedom report

Added additional
indicators and tested fordata sources.

Additional indicators
met with varied success.
Some were easy tofind information for –for example, on joint
investigation teams.
Others were moredifficult – for example,
the government is chairof sub- committees
on human trafficking
as part of a regional
response.

Include indicators
where data were easily
available in the next
round of data collection.
Review other indicators
to create clearer
protocols.

LEEG UK feedback
Need to reflect survivor
voice throughout theprocess.

Reviewed our datacollection processes
for opportunities forsurvivors to respond.
Tested LEEG model in
India.

Survivors could feed
into the process alongwith civil society
through surveys,
email exchanges, andinterviews.
LEEG worked in India,
with some promisingfindings.

Ensure that government
responses are survivor
centric.

Reviewed existing
indicators regarding
access to justice,
victim support, andcoordination in line withfeedback.
Added indicators
regarding survivor
centric responses.
Tested data sources for
new indicators.

Update data collection
protocols to include
survivors and the data
they provide.
Roll out LEEG model inother contexts – next
opportunity in Ghana
later in 2019.

Many of the suggested
indicators werealready reflected in ourframework.

Include indicators
on survivor centric
responses in next roundof data collection.

Data for indicators suchas joint goal setting werelimited. Others, suchas on the existenceof a survivor council,
were more available,
but limited to only one
country (in this case the
US).

Review longer term
support indicators
suggested by LEEG
India and LEEG UK anddevelop protocols fordata collection.

Indicators for longer
term support, including
the ability to work, were
missing.
There were multiple data
sources for longer term
support, while evidence
was patchy.

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08 Appendix 2: Methodology

RECOMMENDATIONTEST CARRIED OUT

FINDINGSCOURSE OF ACTION

Reviewed existing
indicators regarding
access to justice,
victim assistance, andcoordination in line withfeedback.

Indicators regarding
compensation and video
testimony as well as
monitoring mechanisms
were already included.

Reflect that passage of
Human Trafficking Billin India is included in
the regional write up, assuggested by the group.

Indicators regarding
moving beyond
emergency response
and including men
in victim assistanceprogramming werealready included.

Include indicators
on survivor centric
responses in next roundof data collection.

LEEG India feedback
Strengthen
understanding of
criminal justice,
victim assistanceand coordination,
monitoring, andaccountability arereflected in theframework.

Added indicators
regarding longer term
support.
Tested data sources for
new indicators.

Indicators for longer
term support, including
community resilience, ismissing.
Ensure poverty
reduction and providing
safe migration corridors
are included in theframework.

Reviewed existing
indicators.

These were touched
upon by some indicators– namely avenues forrefugees to accessprotection – but
not specific to safe
migration corridors.
Nothing specific in theframework on poverty
reduction.

PROCESS
From December 2018 to March 2019, data
were updated for 183 countries for this report.
Data collected referred to actions that took
place during the reporting period of 1 July
2017 through to 15 February 2019, building
on data collected in previous GSI rounds. For
certain indicators that have a longer reporting
period, such as those that refer to trainings,
we extend the reporting period to the previous
five years, or in the case of this year’s report,
since 30 June 2013. All negative indicators(see below) are tied to the shorter time period
so that we do not penalise a government for
negative actions that occurred during previous
reporting periods.
For GSI 2018, we included data on 53
Commonwealth nations436 in order to coincidewith the Commonwealth Summit in London,

122

Review longer term
support indicators
suggested by LEEG
India and LEEG UK anddevelop protocols fordata collection.

Combine withsuggestions from the
EWG to develop a
prevention conceptual
framework.
Review thesesuggestions against
Walk Free vulnerability
model.
Discuss overlap between
government responseand vulnerability withthe wider EWG.

but we did not report this data publicly as it
was the first year of data collection. This year,
we’ve included these countries, as well as
Liechtenstein, Iraq, and Palau in the report,
however data remain limited. Commonwealth
Pacific Island nations are the subject ofa current Minderoo research project toplug data gaps. Due to the ongoing conflictand extreme disruption to government, wehave not included ratings for Afghanistan,South Sudan, Syria, and Yemen this year.437
The conceptual framework underpinning
our assessment is arranged around the fivemilestones, which are then broken down into
activities, which are further disaggregatedinto indicators. There is a total of 102438
indicators and 28 activities in the conceptual
framework. The breakdown by milestone is
described in Table 2.

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08 Appendix 2: Methodology

A migrant from the Sea
Watch 3 NGO vessel
sleeps on a bunk bed in
the recovery room late
on January 30, 2019
off Syracuse, Sicily.
The migrants were
expected to disembark
in Catania after Italy andFrance, Germany, Malta,
Portugal, Romania andLuxembourg agreed totake them in following
the political standoff
between Italy’s far-right
Deputy Prime Minister
Matteo Salvini and
the German NGO Sea
Watch. Credit: Federico
Scoppa/AFP/Getty
ImagesWalk Free

Table 2: Breakdown of milestones into activities and indicators

MILESTONE

NO. OF
NO. OF
ACTIVITIES INDICATORS

Survivors of slavery are identified and supported to exit and remain out
of slavery.

930

Criminal justice mechanisms function effectively to prevent modern
slavery.

6

32

Coordination occurs at the national and regional level, while
governments are held to account for for their response.

4

10

Risk factors, such as attitudes, social systems, and institutions, thatenable modern slavery are addressed.

7

19

Government and business stop sourcing goods and services producedby forced labour.
Total:

211

28 439102

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08 Appendix 2: Methodology

DATA COLLECTION

Creation of a database

Data are collected at the indicator level,
where each indicator describes an elementof an activity. Take activity 2.1 under
Milestone 1, “A reporting mechanism exists
where modern slavery crimes can bereported” as an example:

All data collected for our assessment ofgovernment responses since 2014 arepublicly available online; a total of nearly
100,000 data points. Ratings are available
for 2016, 2018, and 2019.
See www.globalslaveryindex.org.

Table 3: Activity 2.1, Milestone 1

MILESTONE 1:
SURVIVORS OF SLAVERY ARE IDENTIFIED AND SUPPORTED TO EXIT
AND REMAIN OUT OF SLAVERY.
Activity: A reporting mechanism
exists where modern slavery
crimes can be reported.

2.1.1 A reporting mechanism exists.
2.1.2 Reporting mechanism is available for men, women, andchildren.
2.1.3 Reporting mechanism is free to access.
2.1.4 Reporting mechanism operates 24/7.
2.1.5 The reporting mechanism operates in multiple languages or
has capacity to provide immediate accessto bring in translators.

There are five indicators under this activity,
each of which determines the existence ofthe reporting mechanism and how well it isoperating. Desk research was conducted forthese indicators and others in the conceptual
framework by a team of 38 researchers
and research assistants following a strict
protocol. The protocol described both thetypes of reports and sources to be reviewed
and what constitutes “relevant” information.
The multilingual team 440 conducted researcheither by country or by indicator andsaved these references in the government
response database.441
These data points were then verified, to theextent possible, by NGO contacts within eachcountry. NGOs were given the opportunity torespond by email, through Skype interviews,
or by completing a survey. Twenty-four
full survey responses were received, anda further 19 NGOs responded to individual
requests for information by email or Skype.
This year, we were pleased to partner with
the University of Nottingham’s Rights Lab,
the Commonwealth Human Rights Initiative
UK (CHRI UK), and Regenesys, an offshore
ethical souring business process company,
which includes trafficking survivors, basedin the Philippines, in order to complete
data collection. This is the third time
we’ve partnered with DataMotivate tocomplete aspects of our data collection forgovernment responses.
124

RATING
Eighty-eight of the 102 indicators in theconceptual framework are what we havecalled “positive indicators.” Put simply, thesecover the actions the government is taking
to achieve each activity and milestone. The
indicators described under Table 3 above are
all positive indicators.
These indicators are supplemented by 14
standardised “negative indicators,” whichattempt to measure implementation of aparticular activity. For example, if shelters
exist for modern slavery victims, thenegative indicator “victims are detained
and unable to leave the shelter” would
capture whether victims are detained andexperience secondary victimisation despite
the existence of these shelters. The negative
indicators also cover broader factors, which
if conducted by governments would increase
the risk of human trafficking and child
exploitation. These include state-sanctioned
forced labour, high levels of government
complicity, criminalisation of victims,
deportation of potential victims, and policies
that tie migrant workers to their employers.

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08 Appendix 2: Methodology

Table 4: Example of negative implementation indicators, Activity 3.1, Milestone 1

MILESTONE 1:
SURVIVORS OF SLAVERY ARE IDENTIFIED AND SUPPORTED TO EXIT
AND REMAIN OUT OF SLAVERY.
Activity 3.1: Victim
determined support isavailable for all identified
victims.

Indicators:
3.1.1 Victim support services are available for suspected victims of modern
slavery (men, women, and children where relevant).
3.1.2 NEGATIVE Suspected victims are held in shelters against their will anddo not have a choice about whether or not to remain in a shelter.
3.1.3 Government contributes to the operational costs of the shelters andthere are no significant resource gaps.
3.1.4 Physical and mental health services are provided to victims of modern
slavery.
3.1.5 NEGATIVE Victim support services are not available for all victims ofmodern slavery.
3.1.7 NEGATIVE No victims have accessed the services or shelters.

All 14 negative indicators can be roughly divided into two categories; those that hinder agovernment’s responsibility to protect its citizens and migrants who have been victimised, andthose that facilitate modern slavery to occur.

Table 5: 14 negative indicators, grouped by type of indicator.

NEGATIVE IMPACT ON EXISTING VICTIMSOF MODERN SLAVERYPOLICIES OR LAWS THAT FACILITATETHE OCCURRENCE OF MODERN SLAVERY

M1 2.2.4 There is evidence that police officers havenot identified victims of modern slavery in the last
12 months.

M2 1.2.7 Criminal laws have disproportionate
penalties.

M1 3.1.2 Suspected victims do not have a choice
about whether or not to remain in a shelter.

M2 3.1.3 Units do not have necessary operational
resources.

M1 3.1.5 Victim support services are not available
for all victims of modern slavery.

M2 3.2.5 Judicial punishments are NOT
proportionate to severity of the crime andcomplicity of the offender.

M1 3.1.7 No victims have accessed the services or
shelters since 1 July 2017.

M4 1.4.3 Complicity in modern slavery cases iswidespread and not investigated.

M2 1.4.5 There is evidence that victims of modern
slavery have been treated as criminals for conductthat occurred while under control of criminals.

M4 1.6.7 Patterns of abuse of labour migrants arewidespread and unchecked.

M3 3.2.4 Foreign victims are not identified AND/OR
are detained and deported.

M4 1.6.9 There are laws or policies that preventor make it difficult for workers to leave abusive
employers without punishment.
M4 1.7.5 Diplomatic staff are not investigated orprosecuted for alleged complicity or abuse inmodern slavery cases.
M4 1.8.1 State-sanctioned forced labour exits.

Once data had been collected and verified, each indicator was scored on a 0 to 1 scale. On thisscale, 0 meant no information was identified or available, or information explicitly demonstrated
that the government did not meet the indicator; 1 meant that the indicator had been met. Negative
indicators were scored on a 0 to -1 scale. On this scale, 0 meant no information was identified oravailable, or information explicitly demonstrated that the government did not meet any indicators;
1 meant that the indicator had been met.

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08 Appendix 2: Methodology

We reviewed all instances of “no information
found” to identify if there were any countries
or indicators that should be removed due
to limited information. As this is the fourth
time that the dataset has been updated, thenumber of indicators for which more than
20 percent of countries were rated as “noinformation found” was limited. In fact, only
Milestone 5 met this requirement, with as
many as 71 percent of countries rated as “noinformation found.” When reviewed country
by country, North Korea and Iran were theonly countries with more than 20 percent ofdata points missing. As primarily an advocacy
tool, we have retained the rating rule where“no information found” is rated as “0” andthe indicator score is included in our overallrating. Given the limited engagement of Iranand North Korea with business globally, as
well as their limited government action tocombat modern slavery, we remain confident
that this is the correct approach.
The data and ratings then went throughseveral iterations of quality assurance (QA)
– first by country, where each country wasreviewed against the rating descriptions
to determine if ratings were sound. Then,
post data collection, each indicator was
reviewed across all countries to check forconsistency in the applied logic. Any errors
were then reviewed, and final edits made in
the database.
During this QA process, we removed two
indicators from the overall score where we
failed to identify any information or where
there were inconsistencies in application of
rating logic, bringing our total of indicators
down from 104 to 102. These indicators are:• Milestone 1, 3.3.3: Evaluations of services
have been provided to the National
Referral Mechanism or coordinatingreferral body.
• Milestone 2, 3.1.4: Units have Standard
Operating Procedures for modern
slavery cases.

126

Only three countries scored positively
on M1 3.3.3, and often these data arecaptured under M1 3.3.2: “Direct victim
assistance services have been evaluated.”
For M2 3.1.4, the data were inconsistently
captured this year, with many researchers
including standard operating proceduresfor identifying victims, rather than on how
to conduct investigations. Both of these
indicators were also highlighted by our Expert
Working Group in October 2018 as potential
indicators to remove or to be reformulated.
For M2 3.1.4, for example, with EWG feedback
we will look at the inclusion of evidence of useof specialist investigative techniques in futurerounds of data collection.
The data were then exported into Excel
and the final scoring applied. Each activity
is weighted equally so that a country canobtain a total of 28 points. This does leadto an implicit weighting of milestones,
where the more activities in a milestone, themore weight it is given. Table 6 describes
the milestone weightings. The implicit
weighting has been discussed at Expert
Working Groups since 2016, in particular,
to explore whether we should weight all
milestones equally. Members of our Expert
Working Group have maintained that in
the absence of a rationale for weighting
the milestones differently, it makes sense
for the implicit weighting to be retained as
it currently stands, as this is how we havecurrently conceptualised a government
response to modern slavery. Two negative
indicators (widespread, un-investigatedofficial complicity in modern slavery casesand state-imposed forced labour) werethen subtracted from the total. The finalscore was presented as a percentage, which
was then converted into a score out of 10,
based on equal increments of 10. Finally,
any government that was found to have any
negative indicators was capped at a 7/10 442
rating. This year, no country was able toachieve above a score of 7/10 due to inclusionof negative indicators in their score.

Measurement, Action, Freedom

08 Appendix 2: Methodology

Table 6: Implicit weighting of each milestone

NO. OF
ACTIVITIESPERCENTAGE
WEIGHT

Survivors of slavery are identified and supported to exit andremain out of slavery.

932%

Criminal justice mechanisms function effectively to prevent
modern slavery.

6

21%

Coordination occurs at the national and regional level, andgovernments are held accountable for their response.

4

14%

Risk factors, such as attitudes, social systems, andinstitutions, that enable modern slavery are addressed.

7

25%

Government and business stop sourcing goods and services
produced by forced labour.

27%

28 443100%

MILESTONE

Total:

LIMITATIONS
Collecting data for 102 indicators across
183 countries is a complicated undertaking.
Access to data is limited for all indicators
where information is not publicly available oravailable in languages spoken by the researchteam. The absence of Portuguese speakers,
among other languages, prevented verification
with NGOs in countries where Portugueseis the primary language spoken. Limits also
remain in measuring the implementation ofa response – while the negative indicators
and NGO verification are the first steps inmeasuring this, more remains to be done ingetting at the reality of what is occurring on the
ground as opposed to what is reported publicly.

Comparability
The Measurement, Action, Freedom report
is comparable with previous iterations of thisdata used in the GSI. However, between 2016
and 2018 we made two important changes tothe framework. First, we updated Milestone
5 so that it better reflects the UN Guiding
Principles, the UK Modern Slavery Act, andfeedback from a series of experts in thebusiness and human rights field.

Walk Free

Second, we altered our overall scoring to apply
more weight to state-imposed forced labourand official complicity. This gives both these
indicators the same weight as “activities”
rather than indicators. This is based on thepremise that if a country is not taking action to
tackle official complicity, or is itself complicit
in forced labour, these were serious offencesthat should be reflected in the rating. The
differences between 2016 and 2018 can befound in the appendix of the 2018 GSI.
Between 2018 and 2019, we have removed two
indicators due to patchy data or inconsistent
application of rating rules. We will also bereflecting on feedback from our Expert
Working Groups to continually strengthen
the conceptual framework underpinning ourassessment. Finally, indicators M3 3.2.6.
“Bilateral labour agreements exist which
provide protection for labour migrants,” M4
1.3.3. “All of the population are able to accesshealth care,” and M4 1.5.2. “Systems are inplace to allow asylum seekers to accessprotection” are not directly comparable
to previous rounds due to the inclusion of
updated data sources and standardisation ofdata collection.

127

08 Appendix 2: Methodology

Table 7: Global ratings by country

128

RATING COUNTRY

M1 %

M2 %

M3 %

M4 %

M5 % TOTAL %7*

United Kingdom

88.0

79.4

75.0

85.7

36.7

80.1

7*

Netherlands

77.8

76.7

75.0

85.7

45.0

76.8

7*

United States

92.6

75.6

43.8

85.7

65.0

74.7

7*

Portugal

79.3

78.3

68.8

83.3

18.3

74.2

7*

Sweden

82.4

74.4

87.5

69.1

10.0

72.9

7*

Argentina

75.6

90.0

62.5

78.6

0.0

72.1

7*

Belgium

79.6

65.0

75.0

73.8

36.7

71.3

7*

Spain

81.1

72.8

62.5

76.2

10.0

70.4

7

Croatia

82.6

78.3

56.3

66.7

18.3

69.4

7

Australia

79.6

63.9

56.3

78.6

26.7

68.9

7

Austria

78.7

72.2

68.8

61.9

28.3

68.1

7

Lithuania

67.8

65.6

75.0

78.6

18.3

67.5

7

Norway

71.9

77.2

56.3

73.8

10.0

66.9

7

Slovenia

77.4

66.1

62.5

69.1

18.3

66.6

7

Montenegro

82.0

78.3

62.5

57.1

0.0

66.4

7

France

50.7

82.8

87.5

73.8

18.3

66.3

7

Georgia

85.2

61.1

50.0

73.8

0.0

66.1

7

Italy

65.7

78.9

50.0

76.2

26.7

66.1

7

Cyprus

73.7

72.8

56.3

69.1

18.3

65.9

7

Ireland

73.3

61.7

68.8

69.1

18.3

65.2

7

Chile

83.0

70.6

37.5

71.4

0.0

65.0

7

Serbia

68.5

69.4

68.8

69.1

0.0

64.0

7

Latvia

52.6

63.3

100.0

71.4

18.3

63.9

7

Uruguay

59.4

66.7

62.5

83.3

0.0

63.2

7

Mexico

70.4

77.2

56.3

76.2

0.0

62.7

7

Malta

76.5

66.7

43.8

57.1

28.3

61.4

7

Germany

65.4

71.7

50.0

59.5

36.7

61.0

7

Macedonia, the former
Yugoslav Republic of

72.2

50.0

81.3

61.9

0.0

61.0

7

Denmark

65.0

71.7

50.0

61.9

28.3

60.9

7

Romania

73.7

66.1

68.8

47.6

18.3

60.9

7

Switzerland

58.3

76.1

50.0

73.8

0.0

60.7

7

Czech Republic

57.6

46.1

93.8

66.7

28.3

60.5

7

Finland

54.6

56.7

81.3

71.4

18.3

60.5

7

Peru

84.3

33.9

62.5

83.3

0.0

60.5

7

Poland

56.1

63.3

68.8

69.1

18.3

60.0

6

Brazil

50.0

38.3

100.0

76.2

26.7

59.5

6

Canada

57.4

81.1

43.8

69.1

0.0

59.4

6

Azerbaijan

60.2

80.0

62.5

54.8

0.0

59.1

6

Bahamas

72.4

86.7

25.0

54.8

0.0

59.1

6

Bulgaria

64.4

41.1

68.8

73.8

18.3

59.1

6

Thailand

59.8

72.2

50.0

69.1

0.0

59.1

6

Albania

73.7

55.0

62.5

71.4

0.0

58.7

Measurement, Action, Freedom

08 Appendix 2: Methodology

Walk Free

RATING COUNTRY

M1 %

M2 %

M3 %

M4 %

M5 % TOTAL %6

Slovakia

60.7

51.7

75.0

64.3

18.3

58.7

6

Bosnia and Herzegovina

64.8

53.3

50.0

76.2

0.0

58.5

6

Ukraine

76.9

46.7

56.3

61.9

0.0

58.2

6

Estonia

42.2

58.3

56.3

90.5

18.3

58.0

6

Jamaica

52.8

74.4

87.5

64.3

0.0

57.9

6

Philippines

77.4

58.3

50.0

64.3

0.0

57.0

6

Greece

74.1

66.1

43.8

45.2

18.3

56.9

6

Hungary

59.3

49.4

56.3

71.4

18.3

56.9

6

Trinidad and Tobago

70.0

61.1

56.3

66.7

0.0

56.7

6

New Zealand

53.7

42.2

43.8

95.2

0.0

56.4

6

Armenia

50.9

68.3

68.8

61.9

0.0

56.3

6

Kosovo

73.7

66.7

37.5

52.4

0.0

56.1

6

United Arab Emirates

70.4

49.4

68.8

50.0

0.0

55.5

6

Moldova, Republic of

65.9

45.6

62.5

59.5

0.0

54.8

6

Colombia

48.7

56.1

62.5

78.6

0.0

52.7

6

Nigeria

72.2

51.7

50.0

54.8

0.0

51.6

6

Panama

33.5

83.9

31.3

71.4

0.0

51.1

6

Costa Rica

52.8

55.6

50.0

59.5

0.0

50.9

6

Guatemala

52.4

61.7

50.0

69.1

0.0

50.9

6

Luxembourg

55.7

39.4

81.3

45.2

18.3

50.6

5

Ecuador

64.8

52.8

43.8

59.5

0.0

49.7

5

South Africa

66.7

47.8

31.3

52.4

0.0

49.2

5

Turkey

63.9

57.2

43.8

40.5

0.0

49.2

5

Dominican Republic

39.4

78.3

37.5

57.1

0.0

49.1

5

Israel

53.9

45.0

43.8

61.9

0.0

48.7

5

Belarus

73.7

37.8

43.8

54.8

0.0

48.2

5

Iceland

50.6

56.1

43.8

52.4

8.3

48.2

5

Indonesia

49.6

51.7

62.5

59.5

8.3

47.9

5

Paraguay

40.9

70.6

37.5

71.4

0.0

47.9

5

Ethiopia

26.9

67.8

56.3

61.9

0.0

47.6

5

Bahrain

78.3

54.4

43.8

28.6

0.0

46.7

5

Bangladesh

50.0

65.6

56.3

47.6

0.0

46.5

5

Lesotho

44.1

57.2

43.8

54.8

0.0

46.4

5

Vietnam

56.7

53.3

62.5

59.5

0.0

46.3

5

India

43.5

62.8

50.0

45.2

0.0

45.9

5

Senegal

43.7

47.2

68.8

61.9

0.0

45.9

5

Tunisia

57.0

40.0

31.3

57.1

0.0

45.7

5

Guyana

50.6

38.9

43.8

57.1

0.0

45.1

5

Saint Vincent and the
Grenadines

46.5

51.7

62.5

40.5

0.0

45.1

5

Mozambique

53.9

64.4

43.8

42.9

0.0

44.5

5

Ghana

47.4

52.8

50.0

40.5

8.3

44.4

5

Zimbabwe

47.8

33.9

43.8

61.9

0.0

44.4

129

08 Appendix 2: Methodology

130

RATING COUNTRY

M1 %

M2 %

M3 %

M4 %

M5 % TOTAL %5

Barbados

54.3

40.0

31.3

54.8

0.0

44.2

5

Nicaragua

33.0

58.9

37.5

61.9

0.0

44.1

5

Benin

38.0

45.6

50.0

59.5

0.0

44.0

5

Djibouti

45.2

53.9

50.0

42.9

0.0

43.9

5

Nepal

33.9

52.8

81.3

54.8

0.0

43.9

5

Kyrgyzstan

36.7

45.6

56.3

69.1

0.0

43.3

5

Rwanda

44.6

58.3

43.8

54.8

0.0

43.2

5

Sierra Leone

43.3

37.8

50.0

54.8

0.0

42.9

5

Bolivia, Plurinational
State of

21.3

41.7

62.5

69.1

8.3

42.6

5

Gambia

36.7

59.4

37.5

50.0

0.0

42.4

5

Zambia

50.0

53.9

37.5

35.7

0.0

41.9

5

Tanzania, United
Republic of

38.5

72.8

37.5

47.6

0.0

41.7

5

Sri Lanka

30.4

57.2

43.8

66.7

0.0

41.4

5

Antigua and Barbuda

49.6

33.9

62.5

50.0

0.0

41.1

5

Namibia

40.4

40.6

18.8

66.7

0.0

41.0

5

Saudi Arabia

56.5

40.6

43.8

31.0

0.0

40.8

5

Honduras

43.2

22.2

37.5

66.7

0.0

40.7

5

Côte d’Ivoire

34.4

25.6

43.8

66.7

8.3

40.1

5

Kenya

54.3

33.3

50.0

47.6

0.0

40.1

5

El Salvador

46.3

36.7

37.5

61.9

0.0

40.0

5

Eswatini

41.9

43.3

50.0

54.8

0.0

40.0

4

Qatar

57.6

42.8

43.8

38.1

0.0

39.9

4

Botswana

34.4

59.4

43.8

38.1

0.0

39.6

4

Cambodia

44.1

43.9

43.8

52.4

0.0

39.4

4

Uganda

42.8

46.7

37.5

54.8

0.0

39.2

4

Japan

47.2

41.7

37.5

38.1

0.0

39.0

4

Belize

50.9

58.9

6.3

47.6

0.0

38.2

4

Lao People’s Democratic
Republic

56.1

26.1

43.8

45.2

0.0

37.6

4

Taiwan, China

41.3

35.3

37.5

42.9

8.3

37.6

4

Cameroon

43.9

32.8

50.0

50.0

0.0

37.2

4

Algeria

31.7

55.6

25.0

45.2

0.0

37.0

4

Malaysia

45.9

43.9

43.8

38.1

0.0

36.4

4

Mauritius

42.6

35.6

12.5

52.4

0.0

36.2

4

Jordan

51.5

25.6

31.3

38.1

0.0

36.0

4

Egypt

41.3

52.8

25.0

45.2

0.0

35.9

4

Singapore

50.2

36.7

6.3

42.9

0.0

35.6

4

Malawi

34.4

29.4

56.3

40.5

0.0

35.5

4

Mongolia

38.2

38.3

37.5

66.7

0.0

35.4

4

China

47.8

43.3

31.3

47.6

18.3

35.2

4

Haiti

54.6

42.8

12.5

40.5

0.0

35.1

4

Morocco

10.2

61.7

25.0

59.5

0.0

34.9

4

Suriname

35.0

22.2

25.0

59.5

0.0

34.5

Measurement, Action, Freedom

08 Appendix 2: Methodology

Walk Free

RATING COUNTRY

M1 %

M2 %

M3 %

M4 %

M5 % TOTAL %4

Uzbekistan

37.6

45.6

25.0

64.3

0.0

34.4

4

Burkina Faso

40.9

27.8

31.3

57.1

0.0

34.3

4

Angola

30.4

33.3

43.8

42.9

0.0

33.9

4

Kazakhstan

50.2

35.0

37.5

33.3

0.0

33.8

4

Seychelles

23.9

33.3

18.8

59.5

0.0

32.4

4

Niger

30.6

32.2

37.5

54.8

0.0

32.2

4

Myanmar

54.8

12.2

56.3

42.9

0.0

31.9

4

Togo

42.6

29.4

31.3

28.6

0.0

31.6

4

Kuwait

36.1

45.6

25.0

40.5

0.0

31.5

4

Oman

36.1

31.1

31.3

33.3

0.0

31.1

4

Saint Lucia

37.0

50.0

50.0

4.8

0.0

31.0

4

Tajikistan

16.9

61.1

25.0

50.0

0.0

31.0

4

Korea, Republic of(South Korea)

35.9

27.8

25.0

38.1

0.0

30.6

4

Liberia

27.0

12.8

43.8

50.0

0.0

30.2

3

Mali

29.1

30.0

43.8

42.9

0.0

29.2

3

Lebanon

33.9

40.6

18.8

26.2

0.0

28.8

3

Madagascar

42.8

41.1

18.8

42.9

0.0

28.8

3

Fiji

32.4

31.7

0.0

42.9

0.0

27.9

3

Pakistan

38.2

28.3

18.8

40.5

0.0

27.6

3

Brunei Darussalam

25.7

28.9

0.0

50.0

0.0

27.0

3

Liechtenstein

15.7

24.4

25.0

47.6

8.3

26.4

3

Turkmenistan

20.0

34.4

37.5

54.8

0.0

25.7

3

Timor-Leste

28.7

16.7

12.5

42.9

0.0

25.3

3

Guinea

21.1

17.8

37.5

50.0

0.0

24.9

3

Central African Republic

33.0

28.3

12.5

35.7

0.0

23.8

3

Cuba

21.1

18.3

37.5

45.2

0.0

23.8

3

Iraq

35.9

33.9

0.0

31.0

0.0

23.0

3

Venezuela, Bolivarian
Republic of

13.9

43.9

12.5

40.5

0.0

22.2

3

Gabon

32.4

11.7

43.8

26.2

0.0

22.1

3

Cape Verde

22.6

16.1

31.3

26.2

0.0

21.7

3

Papua New Guinea

15.4

30.6

25.0

26.2

0.0

21.6

3

Solomon Islands

25.0

18.3

37.5

14.3

0.0

20.9

3

Guinea-Bissau

11.9

28.9

37.5

35.7

0.0

20.7

3

Hong Kong, China

34.8

3.3

12.5

26.2

0.0

20.2

3

Sudan

17.6

40.6

18.8

26.2

0.0

20.0

2

Mauritania

10.2

32.8

25.0

35.7

0.0

19.2

2

Chad

9.3

16.7

31.3

40.5

0.0

17.6

2

Kiribati

4.4

16.7

25.0

35.7

0.0

17.5

2

Somalia

3.7

23.3

25.0

42.9

0.0

16.9

2

Russia

19.3

26.7

37.5

26.2

0.0

16.7

2

Congo

0.0

9.4

56.3

40.5

0.0

16.6

2

Congo, Democratic
Republic of the

2.8

18.3

50.0

28.6

0.0

15.5

131

08 Appendix 2: Methodology

RATING COUNTRY

M1 %

M2 %

M3 %

M4 %

M5 % TOTAL %2

Dominica

0.0

23.9

25.0

19.1

0.0

13.5

2

Saint Kitts and Nevis

4.4

20.6

25.0

14.3

0.0

13.0

2

Palau

13.9

16.7

12.5

11.9

0.0

12.8

2

Burundi

22.2

11.1

25.0

26.2

0.0

12.5

2

Grenada

2.8

14.4

12.5

26.2

0.0

12.3

2

Tonga

2.8

13.9

12.5

26.2

0.0

12.2

2

Tuvalu

0.0

6.1

18.8

26.2

0.0

10.5

2

Samoa

0.0

23.3

12.5

14.3

0.0

10.4

1

Vanuatu

0.0

20.6

12.5

14.3

0.0

9.8

1

Equatorial Guinea

7.4

3.9

18.8

28.6

0.0

9.5

1

Nauru

0.0

10.0

12.5

19.1

0.0

8.7

1

Iran, Islamic Republic of

7.4

9.4

0.0

11.9

0.0

3.8

1

Libya

0.0

10.6

12.5

7.1

0.0

-1.3

1

Eritrea

0.0

-4.4

0.0

14.3

0.0

-4.5

1

Korea, Democratic
People’s Republic of(North Korea)

0.0

-6.7

0.0

4.8

0.0

-7.4

* No country can be awarded above a 7 if there are any negative indicators in their score

132

Measurement, Action, Freedom

08 Appendix 2: Methodology

Children, some as young as
seven, found working insidealuminium pot making factoryin Dhaka, Bangladesh on May
23, 2017. Children are forced towork in terrible conditions. Many
children do not have access to
education, which increases theirvulnerability to exploitation.
Credit: Zakir Chowdhury/
Barcroft Images / Barcroft
Media via Getty Images

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133

09

APPENDIX 3:
CONCEPTUALFRAMEWORK
Dohuk, Iraq, January 23, 2016.
A Yazidi woman, Jilan, poses
for a portrait in her tent in acamp occupied primarily byfemale Yazidi survivors who
had been enslaved by ISISand managed to escape.
Jilan had been sold to thewali, or governor, of Tal Afar,a city in northern Iraq, whoenslaved her for five months.
He was later executed. Credit:
Lynsey Addario/ Getty Images
Reportage

134

Measurement, Action, Freedom

Walk Free

Activity

Increase (and eventual 1.1 The public knows whatdecrease) in reported modern slavery is and how
cases of modern
to report it.
slavery.

OutcomeIf yes to 1.1.1, information has been distributed annually since 30 June 2013
OR information is promoted regularly through social media
AND there is evidence this online promotion has been regularly updated (at least once since 1 July
2017 - please refer to date of Facebook posts, or date of tweets, etc.).
If no to 1.1.1, indicator not met.
If yes to 1.1.1, there has been an increase in public reports of modern slavery cases in recent years
AND this increase in reports is related to the campaign
OR has occurred since campaign information has been distributed to the public
AND this must have occurred since 30 June 2013.
If no to 1.1.1, indicator not met.

1.1.2 These campaigns are
distributed systematicallyand at regular intervals(as distinct from one-off,isolated).
1.1.3 There has been an
increase in reported casesof modern slavery from thepublic.

Description
Campaigns on how to identify OR report potential victims, such as promotion of a hotline, website, ortext messaging details, or distributing indicators of modern slavery
AND must be distributed to the public at the NATIONAL level.
NOT training for government officials, NGOs, embassy staff, health, and social workers AND occurred
once since 30 June 2013.
NOT general awareness campaigns that do not mention hotline or indicators of trafficking.
NOT information is distributed to at-risk or specific populations or geographic locations, such as
migrant workers or at-risk communities - this is covered under Milestone 4, 1.2.1.

1.1.1 National campaigns
provide information tomembers of the public on
how to report and identify
victims.

Indicator

MILESTONE 1: SURVIVORS OF SLAVERY ARE IDENTIFIED AND SUPPORTED TO EXIT AND REMAIN OUT OF MODERN SLAVERY

Throughout 2018 and 2019, we engaged with our Expert Working Group and Lived Experience Expert Groups in the UK and India to review our conceptual framework. Thisis part of our ongoing commitment to ensure that our framework remains relevant as forms of modern slavery and policy responses to it continually evolve. These groups
made a series of recommendations of indicators to include, which we have included in the below table, marked in italics. Many of these additional indicators are aspirational— we know that data for these are either patchy or non-existent. All of these indicators also require testing to develop robust protocols to ensure consistency across 183
countries. For these reasons, we have not collected data for these indicators in this current report, but will continue to test and refine these ready for possible inclusion in
future rounds of data collection.

Data were collected for 183 countries, amounting to nearly 19,000 indicators that were updated in the production of this report. All data are available via the Global Slavery
Index website- www.globalslaveryindex.org.

1. Survivors are identified and supported to exit and remain out of modern slavery
2. Criminal justice mechanisms function effectively to prevent modern slavery
3. Coordination occurs at the national level and across borders, and governments are held to account for their response
4. Risk factors, such as attitude, social systems, and institutions that enable modern slavery, are addressed
5. Government and business stop sourcing goods and services produced by forced labour

The table below outlines the conceptual framework we use to collect data for our assessment of government responses. This framework includes 102 indicators, organised
into 28 activities and five milestones:

09 Appendix 3: Conceputal framework1352.1 Comprehensive
reporting mechanisms
operate effectively.

136
Reporting mechanism exists whereby modern slavery crimes can be reported (either in isolation or as
part of a larger phone service).
This includes text messaging, an online form, or phone hotline
AND this reporting mechanism must be operational between 1 July 2017 and 15 February 2019.
If there are multiple hotlines covering different populations, please rate as indicator met.

If yes to 2.1.1, this reporting mechanism is free to access.
If no to 2.1.1, indicator not met.
Please refer to the most relevant reporting mechanism identified in 2.1.1 for indicators 2.1.2 through to
2.1.5.
Modern slavery/trafficking hotline would be most relevant, followed by those which cover trafficked
sub-populations (e.g. for women and/or children).
If multiple hotlines exist covering different populations and all are free of charge, please rate as
indicator met. If some of the available and relevant hotlines are not free of charge, please rate as
indicator not met.
If yes to 2.1.1, this reporting mechanism operates 24/7.
If no to 2.1.1, indicator not met.
Please refer to the most relevant reporting mechanism identified in 2.1.1 for indicators 2.1.2 through to
2.1.5.
Modern slavery/trafficking hotline would be most relevant, followed by those that cover trafficked subpopulations (e.g. for women and/or children).
If multiple hotlines exist covering different populations and all are available 24/7, please rate as
indicator met. If some hotlines are not available 24/7, please rate as indicator not met.
If yes to 2.1.1, this reporting mechanism operates in multiple languages, or brings in translators asnecessary.
If no to 2.1.1, indicator not met.
Please refer to the most relevant reporting mechanism identified in 2.1.1 for indicators 2.1.2 through to
2.1.5.
Modern slavery/trafficking hotline would be most relevant, followed by those which cover trafficked
sub-populations (e.g. for women and/or children).
If multiple hotlines exist covering different populations and all are available in multiple languages,
please rate as indicator met. If some hotlines are not available in multiple languages, please rate as
indicator not met.
Multiple languages means national language + at least one other language.

2.1.3 Reporting mechanism
is free of charge to access.

2.1.4 Reporting mechanism
operates 24/7.

2.1.5 The reporting
mechanism operates in
multiple languages or
has capacity to provide
immediate access totranslators.

2.1.2 Reporting mechanism If yes to 2.1.1, this reporting mechanism is available for men, women, and children to report cases ofis available for men, women, modern slavery
and children.
OR there are separate hotlines that cover men, women, and children. NOT a single hotline exists where
women or children can report while there is nowhere for men to report exploitation.
Please refer to the most relevant reporting mechanism identified in 2.1.1 for indicators 2.1.2 through to
2.1.5.
A single modern slavery/trafficking hotline that covers everyone would be most relevant, followed bymultiple hotlines that cover all sub-populations individually (e.g. for women and/or children).
If multiple hotlines exist covering all sub-populations, please rate as indicator met. If some populations
are not covered, please rate as indicator not met.

2.1.1 There is a reporting
mechanism, such as a
hotline.

09 Appendix 3: Conceputal framework

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Walk Free

2.3 First responders knowwhat modern slavery is andhow to identify victims.

2.2 Front-line police knowwhat modern slavery is andhow to identify victims.

Training covers indicators of modern slavery and how to refer individuals
AND training is formal face-to-face or online modules
AND training is provided to one or more of the following: teachers, doctors, nurses, social workers,
tourism sector workers (including private tourism operators)
AND training has been provided once since 30 June 2013.
Training can be provided by INGOs with government support (support defined as permission,development of the training, or monetary or in-kind support).
NOT leaflets on how to identify/report victims have been distributed to tour guides or posters put up in
doctors surgeries.

2.3.2 Training on how to
identify victims of modern
slavery is provided to nonregulatory workers likely tobe “first responders.”

If yes to 2.2.1, but police officers have not identified any victims of modern slavery between 1 July 2017
and 15 February 2019.
If no to 2.2.1, indicator not met.
This indicator is specifically asking if police who have received training have identified victims. Markas “indicator met” where there has been a failure to identify victims post-training for police. If evidence
suggests that victims have not been identified, but no training has occurred, please mark as “indicator
not met.”2.2.4 NEGATIVE Thereis evidence that police
officers have not identified
victims of modern slavery.

Training covers indicators of modern slavery and how to refer individuals
AND training is formal face-to-face or online modules
AND training is provided to one or more of the following: border guards, immigration officials, labour
inspectors
AND training has been provided once since 30 June 2013.
Training can be provided by INGOs with government support (support defined as permission,development of the training, or monetary or in-kind support).
NOT leaflets have been distributed to labour inspectors or posters have been put up in airports on how
to identify/report victims.

Training takes place as part of the academy training for all police officers
AND there is evidence this has occurred since 30 June 2013.

2.2.2 Training on victim
identification is provided
as part of basic training for
new recruits.

2.3.1 Training on how to
identify victims of modern
slavery is provided to
officials with front-line
regulatory bodies likely tobe “first responders.”

Training for front-line police has taken place on basic legal frameworks surrounding modern slavery
AND victim identification
AND training for police has occurred once since 30 June 2013.
Definition of training includes formal in-person training as part of broader curriculum on human rights
or other training programs, or as part of an online training program.
Training can be provided by INGOs with government support (support defined as permission,development of the training, or monetary or in-kind support).
NOT training manuals have been developed by INGOs, NGOs.
NOT booklets with indicators of trafficking have been handed out to police.
NOT training for immigration, border guards, or labour inspectors.

If yes to 2.1.1, there has been an increase in public calls to the modern slavery reporting mechanism inrecent years
AND this must have occurred since 30 June 2013.
If no to 2.1.1, indicator not met.

2.2.1 Training on basic legal
frameworks and victim
identification has been
carried out for front-line“general duties” police.

2.1.6 There is has been
an increase in number ofvictims being identified
through the hotline.

09 Appendix 3: Conceputal framework137Victims are provided
with support to help
break the cycle ofvulnerability.

138

3.1 Victim-determined
emergency support isavailable for all identified
victims.

2.4 Identification
mechanisms are operating
effectively.

Any kind of victim support service is available for men, women, non-binary individuals or children
AND services must be government run, or funded by government, or provided with in-kind support
from the government
AND services must be operational between 1 July 2017 and 15 February 2019.
NOT INGOs run a shelter without any government support. (Support defined as permission,development of the training, or monetary or in-kind support.)
If yes to 3.1.1, adult victims are unable to leave a shelter or safe house when they wish (or are unable
to leave without a chaperone). Children must also be able to leave when they wish but should beaccompanied by a chaperone. If evidence that victims (adults and children) are detained against
their will or are unable to leave unaccompanied (adults) or with a chaperone (children), this meets thecriteria of the indicator. If no to 3.1.1, then indicator not met.
If yes to 3.1.1, government provides support to the shelters. Support defined as in-kind or monetary
support (not just permission).
NOT INGO funds and runs a shelter or safe house.
If no to 3.1.1, then indicator not met.
If government provides some resources, but there are significant gaps not covered by INGOs orgovernment, then please rate as indicator not met.
If yes to 3.1.1, there is evidence of some physical AND mental health support for victims of modern
slavery.
If no to 3.1.1., then indicator not met.
If government provides some physical and mental health support, but there are significant gaps notcovered by INGOs or government, then please rate as indicator not met.

3.1.2 NEGATIVE Suspectedvictims are held in shelters
against their will and do
not have a choice about
whether or not to remain ina shelter.
3.1.3 Government
contributes to theoperational costs of the
shelters and there are no
significant resource gaps.
3.1.4 Physical and mental
health services areprovided to victims ofmodern slavery.

How this will be incorporated into our assessment is part of ongoing discussion with our expert
working groups.

2.4.2 Proportion ofidentified victims arechildren.
3.1.1 Victim support
services are available forsome suspected victims
of modern slavery (men,women, non-binary, andchildren where relevant).

How this will be incorporated into our assessment is part of ongoing discussion with our expert
working groups.

If yes to 2.3.1, but labour inspectors, border guards, or immigration officials have not identified any
victims of modern slavery between 1 July 2017 and 15 February 2019.
If no to 2.3.1, indicator not met.
This indicator is specifically asking if labour inspectors, border guards, or immigration officials who
have received training have identified victims. Mark as “indicator met” where there has been a failure
to identify victims post-training for these groups. If evidence suggests that victims have not been
identified, but no training has occurred, please mark as “indicator not met.”

2.3.4 NEGATIVE There isevidence that regulatory
responders have not
identified victims of modern
slavery.

2.4.1 Number of victims
identified.

If yes to 2.3.1 OR 2.3.2, training is delivered at least every two years to at least one of the members of
the above groups (labour inspectors, border guards, immigration officials, doctors, nurses, teachers,social workers, tourism sector workers) since 30 June 2013
AND training has been delivered to a significant proportion of these groups.
OR yes to 2.3.1 AND 2.3.2 and training is delivered at least every two years to BOTH of these groups.
NOT training has been delivered to each of these groups once since 2013.
If no to 2.3.1 AND 2.3.2, then indicator not met.

2.3.3 Training for first
responders is delivered
systematically and atregular intervals (as distinct
from one-off, isolated).

09 Appendix 3: Conceputal framework

Measurement, Action, Freedom

3.2 Victim-determined
longer-term support isavailable for all identified
victims.

Walk Free
3.2.4 Victims are assisted
to make contact with theirfamily or contact person of
choice.

3.2.3 Services are childfriendly.

If yes to 3.1.1, victims are assisted to make contact with families by the government
OR there is a family reunification program
AND this is operating between between 1 July 2017 and 15 February 2019.
NOT family reunification program exists but is not currently funded.
NOT INGOs operate a family reunification program without government support.
If no to 3.1.1, then this indicator not met.

Note: this indicator will eventually be replaced with suggested indicators under Milestone 1, 3.4 below.

If yes to 3.1.1, children have specialised services, separate shelters, or are given some kind of special
support (NOT including support in the criminal justice system)
AND these are available between 1 July 2017 and 15 February 2019.
If no to 3.1.1, indicator not met.
NOT children are placed in correctional facilities, boarding schools, or other non-specialised
institutions.

Note: this will be divided into reflection periods (3.1.8) and longer-term visas (3.2.2)

Visas are available so that foreign victims can receive support in the country where they are identified
AND these are available between 1 July 2017 and 15 February 2019.
Note: not dependent on 3.1.1.
These visas include any type of longer-term visas or reflection period.

3.2.2 Visas are in place
to address the migration
situation of victims whowant to remain.

A reflection period of a minimum 30 days is available for victims of modern slavery so that they mightaccess support while they decide if they want to remain in the country or participate in a court case.
This reflection period can be available in legislation as of 15 February 2019, or there is evidence
that reflection periods have been given to survivors during the reporting period of 1 July 2017 to 15
February 2019.

3.1.8 Reflection periods areavailable for victims.

If yes to 3.1.1, long-term reintegration is defined as evidence of financial support, provision of housing,job training and/or placement, or receipt of social welfare, or provision of education for victims ofmodern slavery
AND there is evidence that these are available between 1 July 2017 and 15 February 2019.
If no to 3.1.1, indicator not met. NOT visas are available for victims – this is covered under M1 3.2.2.

If yes to 3.1.1, despite availability of services, victims have not accessed them
AND this has occurred between 1 July 2017 and 15 February 2019. Examples include cases where
facilities exist, but victims are not being transferred to these facilities.

3.1.7 NEGATIVE No victims
have accessed the services
or shelters.

3.2.1 Services provide longterm reintegration support.

If yes to 3.1.1 AND there have been identified modern slavery cases of men, women, non-binary
individuals, children, or relevant groups such as foreign victims, forced labour victims, victims ofcommercial sexual exploitation, etc. AND there are NO specific shelters or services for them OR thereis evidence that certain groups of victims have been turned away from shelters or services.
This has also occurred between 1 July 2017 and 15 February 2019.
NOT services are not available for a particular group, but no cases within that group were identified.
This indicator is measuring gaps in existing services.

3.1.5 NEGATIVE Victim
support services are notavailable for all victims ofmodern slavery.

09 Appendix 3: Conceputal framework1393.3. Services have been
evaluated and findings
inform provision ofservices.

140

Measurement, Action, Freedom

If yes to 3.3.2, a report of these evaluations has been made to the National Referral Mechanism orcoordinating referral body to inform future assistance programming
AND this has occurred once since 30 June 2013.

3.3.3 Evaluations ofservices have been
provided to the National
Referral Mechanism orcoordinating referral body.

Note: This indicator was removed in this report.

If yes to 3.1.1, evidence of formal reporting or evaluation of direct victim support services has been
undertaken
AND this has occurred at least once since 30 June 2013.
Evaluation (internal or external) is defined as an assessment of the current services against theservice objectives and incorporating client feedback.
NOT a description of the program or services provided.
NOT ad hoc inspections without a clear sense of follow-up activities.
NOT evaluations of the National Action Plan – this is covered under Milestone 3, 2.1.1.

3.3.2 Direct victim
assistance services havebeen evaluated.

Legislation includes provisions that victims have the right to confidentiality, including that the name,address, and all other information that could lead to the identification of a victim shall not be revealed
to the media.
Evidence that this is respected without evidence in legislation is sufficient to meet the indicator.
Evidence that this is available between 1 July 2017 and 15 February 2019.

3.2.7 Victims have the rightto confidentiality.

If yes to 3.1.1, evidence of any training for those who provide direct victim support services.
This training includes how to assist victims of modern slavery and can include do no harm principles,
individualised treatment and care, comprehensive care, self-determination and participation, nondiscrimination, confidentiality, and right to privacy
OR direct assistance is provided by fully qualified social workers, psychologists, or doctors
AND this has occurred since 30 June 2013.
Training can be provided by INGOs with government support (support defined as permission,development of the training, or monetary or in-kind support).
NOT training is provided by unskilled volunteers.
If no to 3.1.1, not met this indicator.
NOT general modern slavery training is provided to social workers.
Direct victim assistance services means those services provided to workers who have regularcontact with victims post-identification. It can include shelter workers, case managers, doctors, andpsychologists.

Legislation includes provisions that victims have the right to information regarding their situation andrights, including protection mechanisms such as seeking asylum, other available services, and theprocesses of family reunification and repatriation.
Evidence that this information is provided without evidence in legislation is sufficient to meet theindicator. Evidence that this is available between 1 July 2017 and 15 February 2019.

3.2.6 Victims have the rightto information regarding
their situations and theirrights, including protection
mechanisms.

3.3.1 Training has been
carried out for all staff
providing direct victim
assistance services.

If yes to 3.1.1, adult victims are provided with long-term rehabilitation support beyond financial
support. This is defined as access to employment, job training, employability support (jobs, skills, orconfidence-building), or education support.
Please rate as indicator met if there is any evidence of these programmes
AND these are available between 1 July 2017 and 15 February 2019.
For children see M1 3.4.

3.2.5 Victims are able
to access education or
employment.

09 Appendix 3: Conceputal framework

Walk Free

There is evidence that when the age of a child is uncertain, authorities presume the victim to be a child.
Evidence can include the use of child-friendly age determination, including use of birth registration or
official documents, child’s physical appearance, psychological maturity, own statements, and checks
with embassies.
Child victims are appointed a guardian as soon as the child is identified as a victim of modern slavery.
These guardians should accompany the child throughout the entire process until a durable solutionthat is in his or her best interest has been identified and implemented.
Evidence that child victims of modern slavery are able to access local education, regardless of whether
or not they are nationals or residents of the country in which they are currently located.
If yes to 3.4.1, evidence of any training for those who provide direct victim support services on how tointeract with children.
This training includes how to assist child victims of modern slavery and can include best interestof the child, do no harm principles, individualised treatment and care, comprehensive care, selfdetermination and participation, non-discrimination, confidentiality, and right to privacy
OR direct assistance is provided by fully qualified social workers, psychologists, or doctors
AND this has occurred since 30 June 2013.
Training can be provided by INGOs with government support (support defined as permission,development of the training, or monetary or in-kind support).
NOT training is provided by unskilled volunteers.
If no to 3.1.1, then this indicator not met.
NOT general modern slavery training is provided to social workers.
Direct victim assistance services means those services provided to workers who have regularcontact with victims post-identification. It can include shelter workers, case managers, doctors, andpsychologists.

3.4.2 Presumption of age.

3.4.3 Child victims areappointed a guardian.
3.4.4 Child victims are able
to access education.
3.4.5 Those who provide
victim assistance services
for children have specifictraining.

How this will be incorporated into our assessment is part of ongoing discussion with our expert
working groups.

If yes to 3.1.1, children have specialised services, separate shelters, or are given some kind of special
support (NOT including support in the criminal justice system)
AND these are available between 1 July 2017 and 15 February 201.9
If no to 3.1.1, indicator not met.
NOT children are placed in correctional facilities, boarding schools, or other non-specialised
institutions.

3.4.1 Specialised support
services exist for children,
including dedicatedshelters.

Services take a victim centric approach by allowing survivors to provide feedback on services
received
AND this is available between 1 July 2017 and 15 February 2019.
Evidence of feedback forms issued by governments or NGOs would be sufficient to meet this indicator.

3.3.5 Victims are provided
with the opportunity to give
anonymous feedback on
the services they receive.

3.5 Services are functioning 3.5.1 Number of victims
effectively.
accessing services.

3.4 Special protections forchild victims are available.

Services take a victim centric approach by working with survivors to identify personal goals andmethods with which to achieve these
AND this is available between 1 July 2017 and 15 February 2019.
Evidence of goal-setting documents issued by governments or INGOs/ NGOs would be sufficient tomeet this indicator.

3.3.4 Goal-setting forrecovery and reintegration
is done jointly with victims.

09 Appendix 3: Conceputal framework141Government
coordinates theidentification andreferral of victims.

142
How this will be incorporated into our assessment is part of ongoing discussion with our expert
working groups.

There is evidence that victims are referred through the National Referral Mechanism
AND this has happened at least once between 1 July 2017 and 15 February 2019.

4.2.2 There is evidence
that victims are beingreferred to services using
the National Referral
Mechanism.

If yes to 4.1.1, guidelines outline which organisations can or cannot formally identify victims of modern
slavery.
If no to 4.1.1, indicator not met.
Examples include a list of approved agencies and NGOs that can identify and certify victims ofmodern slavery.

4.1.3 The guidelines clearly
set out which organisations
have the authority toidentify victims of modern
slavery.

There is a National Referral Mechanism for victims of modern slavery
AND it includes government and non-governmental organisations
AND it operated during the period between 1 July 2017 and 15 February 2019.
A National Referral Mechanism is a group of approved NGOs and government agencies that refervictims to services.
NOT evidence that victims have been referred without a national system in place.

If yes to 4.1.1, guidelines include provisions so victims who have not yet been assessed to be victims ofmodern slavery can still receive services.
If no to 4.1.1, indicator not met.
Examples include “presumed” categories within guidelines or “informal” assistance given to victims
while determination is made.

4.1.2 The guidelines makeprovision for a categoryof “presumed victims”
who can be provided withservices until a formal
determination is made.

4.2.1 A “National Referral
Mechanism” brings
together government andcivil society to ensure
victims are being referred
to services.

National general guidelines exist for identification AND screening of victims
AND have been distributed to all first responders
AND this has occurred since 30 June 2013.
First responders are defined as: immigration, border patrol, labour inspectors, NGOs, teachers, social
workers, doctors, nurses, and the tourism industry.
General guidelines should exist at the national level for all responders, NOT police have their own
guidelines.

4.1.1 The government has
clear national guidelines on
identifying and screening
victims for all first
responders.

4.3 Government
4.3.1 All victims are being
effectively coordinates the identified and referred
identification and referral of through the NRM.
victims.

4.2 National Referral
Mechanism (NRM) is
operating effectively.

4.1 Identification guidelines
are used by all first
responders.

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Activity

1.1 Relevant international
conventions are ratified.

OutcomeComprehensive
legislation exists todeter perpetrators.

Ratification, or succession (d) or accession (a) of the Supplementary Convention on the Abolition of
Slavery, the Slave Trade, and Institutions and Practices Similar to Slavery, 1956.
NOT signed the Supplementary Convention on the Abolition of Slavery, the Slave Trade, andInstitutions and Practices Similar to Slavery, 1956 WITHOUT accession, succession, or ratification.

Ratification, acceptance (A), accession (a), or succession (d) of the Protocol to Prevent, Suppress
and Punish Trafficking in Persons, Especially Women and Children, supplementing the United Nations
Convention against Transnational Organized Crime, 2000.
NOT signed the Protocol to Prevent, Suppress and Punish Trafficking in Persons, Especially Womenand Children, supplementing the United Nations Convention against Transnational Organized Crime
2000, WITHOUT ratification, acceptance, accession, or succession.

Status must be “In Force” for the Abolition of Forced Labour Convention, 1957 (No. 105)
AND “In Force” as of 15 February 2019.
NOT “In Force” for the ILO Forced Labour Convention, 1930 (No. 29).
Status must be “In Force” for the Domestic Workers Convention, No, 189
AND “In Force”.
Status must be “In Force” for the ILO Worst Forms of Child Labour Convention, 1999, (No. 182)
AND “In Force” as of 15 February 2019.
Ratification, succession (d), or accession (a) of the Optional Protocol to the Convention on the Rightsof the Child on the involvement of children in armed conflict, 2000.
NOT signed the Optional Protocol to the Convention on the Rights of the Child on the involvement ofchildren in armed conflict, 2000 WITHOUT accession, ratification, or succession.
Ratification, succession (d), or accession (a) of the Optional Protocol to the Convention on the Rightsof the Child on the sale of children, child prostitution and child pornography 2000.
NOT signed the Optional Protocol to the Convention on the Rights of the Child on the sale of children,
child prostitution and child pornography, 2000 WITHOUT accession, ratification, or succession

1.1.2 Supplementary
Convention on the Abolitionof Slavery, the Slave
Trade, and Institutions andPractices Similar to Slavery,
1956.
1.1.3 Protocol to Prevent,
Suppress and Punish
Trafficking in Persons,
Especially Women andChildren, supplementing
the United Nations
Convention against
Transnational Organized
Crime, 2000.
1.1.4 ILO Abolition of Forced
Labour Convention, 1957
(No. 105).
1.1.5 ILO Domestic Workers
Convention, 2011 (No. 189).
1.1.6 ILO Worst Forms ofChild Labour Convention,
1999 (No. 182).
1.1.7 Optional Protocol to
the Convention on the
Rights of the Child on the
involvement of children inarmed conflict, 2000.
1.1.8 Optional Protocol to
the Convention on the
Rights of the Child on
the sale of children, childprostitution and childpornography, 2000.

Description
Ratification or succession (denoted by a (d) in brackets) or accession (denoted by an (a) in brackets) of
the 1926 Slavery Convention.
NOT signed the 1926 Slavery Convention WITHOUT accession, succession, or ratification.

1.1.1 Slavery Convention,
1926.

Indicator

MILESTONE 2: CRIMINAL JUSTICE MECHANISMS FUNCTION EFFECTIVELY TO PREVENT MODERN SLAVERY

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1.2 Domestic legislation isin line with international
conventions.

144
Forced labour is criminalised as a distinct crime.
Forced or compulsory labour means all work or service which is exacted from any person under the
menace of any penalty and for which the said person has not offered himself or herself voluntarily.
Does not include compulsory military service, work which forms part of the normal civic obligations of
the citizen, or work performed in cases of emergency (such as war, fire, famine, or flood).
The offence of forced labour must include(1) work performed under the menace of any penalty AND(2) work for which the said person has not offered himself voluntarily.
These two components must be present in order for the indicator to have been met.
Forced labour may be listed as a standalone crime in the penal or criminal code or in traffickingspecific legislation or in another act.
Criminal code or standalone legislation specifically criminalises use of children in armed conflict.
NOT where the age of recruitment is 18 but there is no criminalisation of the use of children in armed
forces.
Must cover use of children in state (national army) and non-state armed groups.

1.2.3 Forced labour iscriminalised.

1.2.4 Use of children
in armed conflict iscriminalised.

1.2.2 Slavery is criminalised. Slavery is criminalised as a distinct crime.
The offence of slavery must include a situation in which the status or condition of a person over whom
any or all of the powers attaching to the right of ownership are exercised. Slavery may be listed as astandalone crime in the penal or criminal code or in trafficking-specific legislation or in another act.
NOT slavery is prohibited in the Constitution.

Human trafficking is listed as a standalone article in the penal code or criminal code
OR human trafficking is criminalised under a distinct piece of legislation
AND within either the penal code or distinct legislation human trafficking does not require movementof individuals across international borders
AND the legislation covers men, women, and children.
Movement may include cross-border/transnational movement or internal movement such as
movement from a rural to urban location.
Definition of trafficking includes action, means, and purpose.
Trafficking in persons shall require action (e.g. recruitment, transportation, transfer, or harbouring),means (e.g. by means of the threat or use of force or other forms of coercion, of abduction, of fraud),
and purpose (e.g. exploitation).
For children, trafficking shall not require the “means” component and this is reflected in legislation.

Status must be “In Force” for the Protocol of 2014 to the Forced Labour Convention, 1930 AND “In
Force” as of 15 February 2019.

1.1.10 P029 - Protocol of2014 to the Forced Labour
Convention, 1930.
1.2.1 Human trafficking is
criminalised.

Ratification, succession (d) or accession (a) of the International Convention on the Protection of theRights of All Migrant Workers and Members of their Families, 1990.
NOT signed the International Convention on the Protection of the Rights of All Migrant Workers andMembers of their Families, 1990 WITHOUT accession, ratification, or succession.

1.1.9 International
Convention on theProtection of the Rights of
All Migrant Workers andMembers of their Families,
1990.

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Victims are able toaccess justice.

1.4 National laws recognisethat victims are able toparticipate in court process
to receive justice.

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National laws recognise victims are not criminals for conduct during enslavement
AND this must refer to modern slavery crimes, not general provisions in legislation.
Modern slavery crimes are defined as human trafficking, forced labour, slavery, forced marriage, andchildren in armed conflict.
NOT there is no evidence that victims have been criminalised.
Visas to remain are not tied to a victim’s participation in the court process. For example, visas areawarded to trafficking victims on the basis of humanitarian or personal reasons, not because they
have agreed to participate in the court process.

Victims have been arrested for crimes committed while under the control of the person exploitingthem
AND this has occurred between 1 July 2017 and 15 February 2019.
NOT foreign nationals have been deported OR detained for immigration offences (no visa, overstaying
visa, etc.) – this is covered under Milestone 3, 3.2.2.
Examples would be victims who have been arrested on prostitution charges or arrested for drug
production. If victims are arrested and released as soon as it is realised that they are victims, please
rate as indicator not met.

1.4.2 Law recognizes thatvictims should not betreated as criminals for
conduct that occurred
while under control ofcriminals.
1.4.3 Visas to stay in the
country are not dependent
on victim participation in
the court process.
1.4.5 NEGATIVE There isevidence that victims ofmodern slavery have beentreated as criminals for
conduct that occurred
while under control ofcriminals.

Penalties as laid out in legislation are cruel or inhumane
OR are not sufficient enough to deter future offenders.
This does NOT refer to judicial sentences, rather to the punishments outlined in legislation.
Cruel and inhumane punishments include torture, deliberately degrading punishment, or punishmentthat is too severe – capital punishment, whipping, or other forms of physical violence. Insufficientpunishments would include fines for modern slavery related crimes.

1.2.7 NEGATIVE Criminal
laws have disproportionate
penalties.

National laws allow victims to participate in the legal system regardless of their role as a witness.
This includes: allowing victims to give evidence (without being called as a witness)
OR providing information on the court processes in languages victims understandOR allowing victims to inspect and add documents to the fileOR the admission of victim impact statements.
NOT there is evidence or a general statement that victims participate in the criminal justice process as
witnesses.
Relevant national laws include criminal procedure code or criminal law (sentencing) acts.

Forced marriage is criminalised as a distinct crime, in the penal or criminal code, trafficking-specificlegislation, or other act.
NOT the legal age of marriage is set at 18.
If kidnapping is required to be present for the crime of forced marriage to occur, this is indicator notmet.

1.2.6 Forced marriage iscriminalised.

1.4.1 National laws allow
victims to participate in thelegal system regardless of
their role as a witness.

The penal or criminal code or trafficking legislation includes provisions that it is an offence:
to sell/force a child into prostitution
AND to purchase sexual acts with a child.
NOT met when selling a child is criminalised AND child sex abuse is criminalised (second component
must criminalise purchase of sex with a child).

1.2.5 Child prostitution iscriminalised.

09 Appendix 3: Conceputal framework1452.1 Services exist inlegislation to allow victims
to access justice.
Any type of free legal services or advice exists in legislation, including free legal advice and free legal
representation
AND these are either specific to victims of modern slavery
OR victims of modern slavery can access broader legal advice, which is available for all victims ofcrime.
NOT legal services are available, but not free.
NOT free legal services are available only for citizens, not foreign victims.
NOT free legal services are available for certain types of crime (such as violent crime) and modern
slavery is not specified.
NOT free legal services are offered by NGOs, but not made explicit in legislation.
If free legal services exist in legislation AND there is no evidence they are not being used, please rate
as indicator met.
If free legal services exist in practice, but there is no evidence of their existence in legislation, please
rate as indicator met.
If free legal services are NOT in legislation and no evidence of these being used, please rate as
indicator not met.
This is current as of 15 February 2019.
If free legal services exist in legislation and there is evidence they are not used or are poorly
implemented, please rate as indicator not met.
Note: This indicator will be divided into two indicators – the existence of this policy in legislation (2.1.1)
and implementation in practice (2.2.1)
Any type of free translation or interpretation services exists in legislation
AND these are either specific to victims of modern slavery
OR victims of modern slavery can access translation services, which are available for all victims ofcrime.
NOT translation services are available, but not free.
NOT free translation services are available only for citizens, not foreign victims.
NOT free translation services are available for certain types of crime (such as violent crime) andmodern slavery is not specified.
NOT free translation services are offered by NGOs, but not made explicit in legislation.
If free translation services exist in legislation please rate as indicator met.
If free translation services are NOT in legislation, please rate as indicator not met.
Note: This indicator, when added, will be divided into two indicators – the existence of this policy inlegislation (2.1.2) and implementation in practice (2.2.2).

2.1.1 Free legal services
for victims of modern
slavery are made explicit inlegislation.

2.1.2 Free translation
services for victims are
made explicit in legislation.

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2.1.4 Witness and victim
protection mechanisms
are explicit in legislation
to ensure that neither
witnesses nor victims are
intimidated nor interferedwith OUTSIDE the court.

2.1.3 Witness and victim
protection mechanisms
are explicit in legislation
to ensure that neither
witnesses nor victims are
intimidated nor interferedwith INSIDE the court.

Note: This indicator will be divided into two indicators – the existence of this policy in legislation (2.1.4)
and implementation in practice (2.2.4).

Government operated or supported witness and victim protection mechanisms exist in legislation sothat victims are not intimidated or interfered with OUTSIDE the court.
Government operated or supported is defined as government run or funded by government orprovided with in-kind support from the government.
NOT applicable inside the court room (see Milestone 2, indicator 2.1.3).
Witness and victim protection mechanisms include an official witness protection program whereindividuals are provided with security, new identities, and relocation support, or protection whereby
the victim’s identity is not revealed to the public.
If witness protection mechanisms exist in legislation AND there is no evidence they are not being used,
please rate as indicator met.
If witness protection mechanisms exist in practice but there is no evidence of their existence inlegislation, please rate as indicator met.
If witness protection mechanisms are NOT in legislation and no evidence of these being used, please
rate as indicator not met.
This is current as of 15 February 2019.
If witness protection mechanisms exist in legislation and there is evidence they are not used or are
poorly implemented, please rate as indicator not met.

Note: This indicator will be divided into two indicators – the existence of this policy in legislation (2.1.3)
and implementation in practice (2.2.3).

Government operated or supported witness and victim protection mechanisms exist in legislation sothat victims are not intimidated or interfered with INSIDE the court.
Government operated or supported is defined as government run or funded by government orprovided with in-kind support from the government.
NOT applicable outside the courtroom (see Milestone 2, indicator 2.1.4).
Victim protection mechanisms inside the courtroom refers to provision of video testimony, victims are
not cross-examined, and victims are protected from perpetrators.
If witness protection mechanisms exist in legislation AND there is no evidence they are not being used,
please rate as indicator met.
If witness protection mechanisms exist in practice, but there is no evidence of their existence inlegislation, please rate as indicator met.
If witness protection mechanisms are NOT in legislation and there is no evidence of these being used,
please rate as indicator not met.
This is current as of 15 February 2019.
If witness protection mechanisms exist in legislation and there is evidence they are not used or are
poorly implemented, please rate as indicator not met.

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148
2.1.7 Compensation isavailable in legislation fromthe state.

2.1.6 Child-friendly
services are provided for inlegislation.

2.1.5 The legal framework
supports compensation
or restitution for victims
of modern slavery fromperpetrators.

Measurement, Action, Freedom

Note: This indicator will be divided into two indicators – the existence of this policy in legislation (2.1.7)
and implementation in practice (2.2.7).

The legal framework allows victims are able to access compensation through the state, either througha State Compensation Fund or through a criminal injuries compensation authority or equivalent
AND This is available as of 15 February 2019.

Note: This will be replaced with indicators under 2.3 below.

Legislation specifies that children require special services during the court case andNOT there is any evidence of child-friendly services being used in court.
Child-friendly services include the use of screens or video testimonies, training of judges in childfriendly questioning, and the use of one support person or guardian during the court process.
If child-friendly services exist in legislation AND there is no evidence they are not being used, please
rate as indicator met.
If child-friendly services exist in practice but there is no evidence of their existence in legislation,please rate as indicator met.
If child-friendly services are NOT in legislation and there is no evidence of these being used, please
rate as indicator not met.
This is current as of 15 February 2019.
If child-friendly services exist in legislation and there is evidence they are not used or are poorly
implemented, please rate as indicator not met.

Note: This indicator will be divided into two indicators – the existence of this policy in legislation (2.1.5)
and implementation in practice (2.2.5).

The legal framework allows victims of modern slavery to receive compensation for damages incurred
as a result of exploitation
OR the legal framework allows victims of modern slavery to receive restitution for damages incurred
as a result of exploitation.
Compensation is when a court orders the defendant (perpetrator) to pay the claimant (victim) for his/her loss.
Restitution is when a court orders the defendant (perpetrator) to give up his/her gains to the claimant(victim).
When the compensation and/or restitution is available only for victims of violent crimes, please markas indicator not met, as this may exclude some victims of modern slavery who are not subject toviolent crimes.
If compensation and/or restitution exists in legislation AND there is no evidence they are not being
used, please rate as indicator met.
If compensation and/or restitution exists in practice, but there is no evidence of their existence inlegislation, please rate as indicator met.
If compensation and/or restitution is NOT in legislation and no evidence of these being used, please
rate as indicator not met.
This is current as of 15 February 2019.
If compensation and/or restitution exists in legislation and there is evidence they are not used or are
poorly implemented, please rate as indicator not met.

09 Appendix 3: Conceputal framework2.2 Services exist inpractice to allow victims toaccess justice.
Any type of free legal services or advice exists in practice, including free legal advice and free legal
representation
AND these are either specific to victims of modern slavery
OR victims of modern slavery can access broader legal advice, which is available for all victims ofcrime.
NOT legal services are available, but not free.
NOT free legal services are available only for citizens, not foreign victims.
NOT free legal services are available for certain types of crime (such as violent crime) and modern
slavery is not specified.
Free legal services can be offered by governments or IOs/NGOs.
If there is any evidence that free legal services exist in practice, please rate as indicator met.
If there is no evidence they are or are not being used, please rate as no information found.
If there is evidence that free legal services are not used or are poorly implemented, please rate as
indicator not met.
This has occurred between 1 July 2017 and 15 February 2019.
Any type of free translation or interpretation services are used in practice
AND these are either specific to victims of modern slavery
OR victims of modern slavery can access translation services, which are available for all victims ofcrime.
NOT translation services are available, but not free.
NOT free translation services are available only for citizens, not foreign victims.
NOT free translation services are available for certain types of crime (such as violent crime) andmodern slavery is not specified.
Free translation services can be offered by governments or IOs/NGOs.
If there is any evidence that free translation services are used in practice, please rate as indicator met.
If there is no evidence they are or are not being used, please rate as no information found.
If there is evidence that free translation services are NOT used or poorly implemented, please rate as
indicator not met.
This has occurred between 1 July 2017 and 15 February 2019.
Government operated or supported witness and victim protection mechanisms are used in practice sothat victims are not intimidated or interfered with INSIDE the court.
Government operated or supported is defined as government run or funded by government orprovided with in-kind support from the government.
NOT applicable outside the courtroom (see Milestone 2, indicator 2.1.4).
Victim protection mechanisms inside the courtroom refers to provision of video testimony, victims are
not cross-examined, and victims are protected from perpetrators.
If there is any evidence that witness protection mechanisms are used in practice, please rate as
indicator met.
If there is no evidence of these being used or not being used, please rate as information not found.
If there is evidence that these are not used or are poorly implemented, please rate as indicator not met.
This has occurred between 1 July 2017 and 15 February 2019.

2.2.1 Free legal services forvictims of modern slavery
are available in practice.

2.2.2 Free translation
services for victims areavailable in practice.

2.2.3 Witness and victim
protection mechanisms areused in practice to ensurethat neither witnesses nor
victims are intimidated, norinterfered with INSIDE thecourt.

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2.3 Special procedures forchildren are available inlegislation and in practice inthe criminal justice system.

150
There is evidence that judges and magistrates have been trained in child-friendly questioning
AND this is current as of 15 February 2019.

2.3.2 Judicial authorities
are trained in child-friendly
questioning.

There is evidence that victims have been able to access compensation through the state, either
through a State Compensation Fund or through a criminal injuries compensation authority orequivalent.
Record the number of victims who have been awarded compensation between 1 July 2017 and 15
February 2019.

2.2.7 Modern slavery
victims have been awarded
compensation or restitution
from the state.

The legal framework allows child victims to be questioned in a child-friendly manner. Child-friendly
should be defined as questioning that respects their dignity and capacity, and special safeguards
shall be developed to avoid any thoroughly abusive interrogation process for children. For example,
only specially trained members of the law enforcement authorities shall question child victims. Child
victims shall be questioned by officers of the same sex, except when there is cultural evidence that
this would not be in the best interests of the child. Guardians shall be present when children areinterviewed about their experiences, while law enforcement shall be trained in interviewing children
AND this is current as of 15 February 2019.

There is evidence of victims of modern slavery being able to receive compensation for damages
incurred as a result of exploitation
OR there is evidence of victims of modern slavery receiving restitution for damages incurred as aresult of exploitation.
Compensation is when a court orders the defendant (perpetrator) to pay the claimant (victim) for his/her loss.
Restitution is when a court orders the defendant (perpetrator) to give up his/her gains to the claimant(victim).
If there is evidence of compensation and/or restitution being awarded to victims of modern slavery
please rate as indicator met. Please also include details of the award.
If there is no evidence of compensation being awarded or not awarded, please rate as information notfound.
This has occurred between 1 July 2017 and 15 February 2019.

2.2.5 Modern slavery
victims have been awarded
compensation or restitution
from perpetrators.

2.3.1 Legislation exists
detailing that children shallbe interviewed in a childfriendly manner.

Government operated or supported witness and victim protection mechanisms are used in practice sothat victims are not intimidated or interfered with OUTSIDE the court.
Government operated or supported is defined as government run or funded by government orprovided with in-kind support from the government.
NOT applicable inside the courtroom (see Milestone 2, indicator 2.1.3).
Witness and victim protection mechanisms include an official witness protection program whereindividuals are provided with security, new identities, and relocation support, or protection whereby
the victim’s identity is not revealed to the public.
If witness protection mechanisms are used in practice, please rate as indicator met.
If there is no evidence of these being used or not being used, please rate as information not found.
If there is evidence they are not used or are poorly implemented, please rate as indicator not met.
This has occurred between 1 July 2017 and 15 February 2019.

2.2.4 Witness and victim
protection mechanisms areused in practice to ensurethat neither witnesses nor
victims are intimidated norinterfered with OUTSIDE
the court.

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The criminal justicesystem acts as adeterrent in modern
slavery crimes.

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3.1 Specialised police units
are able to investigate
modern slavery crimes.

2.4 Modern slavery victims
are accessing justice.

Evidence that court environments are modified to take child testimony into account. This can include
evidence of use of video testimony, use of interview rooms designed for children, use of recesses
during a child’s testimony, hearings scheduled at times of day appropriate to age and maturity of thechild, and on-call systems so a child goes to court only when necessary.

2.3.5 Court environments
are modified to take childtestimony into account.

Has to be a specialised law enforcement unit or a sub-unit or team within the law enforcement
structure that has specialised mandate to conduct investigations into modern slavery
OR provide specialist support for colleagues
AND this unit is operating since 30 June 2013.
NOT local level anti-trafficking coordination bodies.
If yes to 3.1.1, these units, sub-units, or teams have received training on basic legal frameworks
surrounding modern slavery AND victim identification
AND training for specialised police has occurred once since 30 June 2013.
Definition of training includes formal in-person training as part of broader curriculum on human rights
or other training programs, or as part of an online training program.
Training can be provided by INGOs with government support (support defined as permission,development of the training, or monetary or in-kind support).
NOT training manuals have been developed by INGOs, NGOs.
NOT booklets with indicators of trafficking have been handed out to police.
NOT training for immigration, border guards, or labour inspectors.
If yes to 3.1.1, these units, sub-units, or teams do not have sufficient budget or operational equipment,or are understaffed, and this has been an impact on their ability to function. This lack of resourcesmust have occurred between 1 July 2017 and 15 February 2019.

3.1.1 Specialised law
enforcement units exist.

3.1.2 Specialised law
enforcement units havereceived training.

3.1.3 NEGATIVE Units
do not have necessary
resources to be able tooperate effectively.

How this will be incorporated into our assessment is part of ongoing discussion with our expert
working groups.

The legal framework allows for child testimony to be videotaped and presented in the courtroom as an
official piece of evidence
AND this is current as of 15 February 2019.

2.3.4 Legislation exists thatallows child testimony to bevideotaped.

2.4.1 Number of victims
actively participating in the
court case per number ofidentified victims.

There is evidence that child victims are questioned in a child-friendly manner. Child-friendly should
be defined as questioning that respects their dignity and capacity, and special safeguards shall be
developed to avoid any thoroughly abusive interrogation process for children. For example, only
specially trained members of the law enforcement authorities shall question child victims. Child
victims shall be questioned by officers of the same sex, except when there is cultural evidence that
this would not be in the best interests of the child. Guardians shall be present when children areinterviewed about their experiences, while law enforcement shall be trained in interviewing children
AND this has occurred between 1 July 2017 and 15 February 2019.

2.3.3 Evidence that childfriendly questioning isbeing used in the criminal
justice system.

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3.2 Increased number ofquality prosecutions.

Note: This indicator was removed in this report.

If yes to 3.1.1, the unit or team has standard operating procedures (SOPs) for modern slavery cases
AND must be specific to specialist units.
NOT SOPs/guidelines have been produced by an INGO in the last five years (since 30 June 2013) withno evidence of use by specialist unit.
SOPs include for example: clear standardised procedures for use across the unit, including how toliaise with front-line officers, on how to conduct risk assessments, interview techniques (covering
witnesses, child victims, and use of interpreters), definitions and indicators of modern slavery, victimcentred approaches (understanding of psychological stress and its impact on investigations), casereferrals, etc.
SOPs are NOT an internal memo recommending that police focus on modern slavery cases.
SOPs are NOT a booklet handed out to police with indicators of modern slavery.

3.2.1 Training is provided tothe judiciary.

3.1.6 Collaborationagreements exist between
labour inspectors andpolice.

Training for the judiciary has taken place on human trafficking and related legislation, victim needs inthe courtroom, basic international legal standards in modern slavery cases, trends in modern slavery
in the country, and victim profiles
AND training for judiciary has occurred once since 30 June 2013.
Definition of training includes formal in-person training or an online training program as part of broader
curriculum on human rights or other training programs.
Training can be provided by INGOs with government support (support defined as permission,development of the training, or monetary or in-kind support).
NOT training manuals have been developed by INGOs, NGOs.
NOT booklets with description of modern slavery laws have been handed out to judiciary.

Note: A protocol for this indicator is part of ongoing discussion with our Expert Working Groups.

3.1.5 Units used specialist
If yes to 3.1.1, there is evidence that the specialist unit or team has used special techniques fortechniques for investigating investigating modern slavery crimes. These special techniques include the use of forensics,
modern slavery crimes.
documentary evidence, management of a large number of exhibits, and taking into account thecomplexity of modern slavery crimes, such as the number of crime scenes, or the length of time overwhich the trafficking crime occurs
AND this has occurred since 30 June 2013.

3.1.4 Units have standard
operating procedures formodern slavery cases.

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3.3 Criminal justicesystem deters would-be
perpetrators.

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Record number of convictions between 1 July 2017 and 15 February 2019. Remaining protocol is part ofongoing discussions with our expert working groups.

3.3.3 Number ofconvictions.

Record number of specialised judges as of 15 February 2019. Remaining protocol is part of ongoing
discussions with our expert working groups.

3.2.7 There is a sufficientnumber of specialised
judges to preside overmodern slavery crimes.

Record number of prosecutions between 1 July 2017 and 15 February 2019. Remaining protocol is partof ongoing discussions with our expert working groups.

Record number of specialised prosecutors as of 15 February 2019. Remaining protocol is part ofongoing discussions with our expert working groups.

3.2.6 There is a sufficientnumber of specialised
prosecutors to prosecutemodern slavery crimes.

3.3.2 Number ofprosecutions.

Judicial punishments are either too lenient or too harsh for offenders
AND this has occurred during the period 1 July 2017 to 15 February 2019. Examples of too lenient
include giving of fines, suspended sentences, and sentences that are less than the prescribedminimum. Examples of too harsh are corporal punishment and capital punishment.

3.2.5 NEGATIVE Judicial
punishments are NOT
proportionate to severity of
the crime and culpability ofthe offender.

Record number of active investigations between 1 July 2017 and 15 February 2019. Remaining protocol
is part of ongoing discussions with our expert working groups.

If yes to 3.2.1, 3.2.2, OR 3.2.3, training is has occurred at least once to at least one of the above groups(judiciary or prosecutors) since 30 June 2013
AND training has been delivered to a significant proportion of one or both of these groups
OR yes to 3.2.1, 3.2.2, OR 3.2.3 and training has been delivered at least once to BOTH groups (judiciaryand prosecutors) since 30 June 2013.
NOT training has been delivered to each of these groups once since 2013.
If no to 3.2.1 AND 3.2.2, then indicator not met.

3.2.4 Training is systematicand recurrent (as distinct
from one-off, isolated).

3.3.1 Number ofinvestigations.

Training for prosecutors has taken place on human trafficking and related legislation, victim needs inthe court room, basic international legal standards in modern slavery cases, trends in modern slavery
in the country, and victim profiles
AND training for prosecutors has occurred once since 30 June 2013.
Definition of training includes formal in-person training or an online training program as part of broader
curriculum on human rights or other training programs.
Training can be provided by INGOs with government support (support defined as permission,development of the training, or monetary or in-kind support).
NOT training manuals have been developed by INGOs, NGOs.
NOT booklets with description of modern slavery laws have been handed out to prosecutors.

3.2.2 Training is provided toprosecutors.

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Activity

1.1 National mechanisms
exist to coordinate theresponse.

OutcomeResponses tomodern slavery arecoordinated and heldto account at thenational level.

National coordination body on modern slavery (trafficking, slavery, forced labour, children in armed
conflict) exists that includes both NGOs and government representatives
AND this group met at least once between 1 July 2017 and 15 February 2019.
This body coordinates the whole of the government response to modern slavery.
NOT a National Action Plan.
NOT a group or body that refers victims – this is covered under Milestone 1, 4.2.1.
A budget exists to support the implementation of the national government’s response. This does notinclude Overseas Development Aid (ODA). This budget covers some or part of the period 1 July 2017
and 15 February 2019.
Survivors are included in the government response. This can be achieved through provision of advice
from a survivor council or group, or membership of survivors on a national task force or coordination
body.
Evidence of meeting of a survivor council or group, or of meeting of national task force or coordinationbody where survivors are represented is sufficient to meet this indicator.
This group or meeting has occurred between 1 July 2017 and 15 February 2019.
The number of staff that the government has at its disposal for coordinating a national response.
This is as of 15 February 2019.

National coordination body identified in 1.1.1, record number of meetings held between 1 July 2017 and
15 February 2019.

Any National Action Plan (NAP) on modern slavery, or that covers any component of modern slavery,such as trafficking, forced marriage, forced marriage, children in armed conflict
AND this NAP covers part or all of the period 1 July 2017 and 15 February 2019.
NOT child labour NAPs, or broader human rights NAPs, women empowerment NAPs, unless they
include a specific modern slavery section.
NOT regional action plans, such as the Regional Action Plan to End Child Marriage in South Asia
(developed with SAARC countries).
If yes to 1.2.1, the government releases annual reports against the National Action Plan, including
process reviews of major anti-slavery initiatives, budgets/expenditures, and implementation plans forthe following year/s.
If no to 1.2.1, then this indicator cannot be met.
These reports have been released at least once since June 2013.

1.1.2 There is a budget fordomestic modern slavery
initiatives.
1.1.3 Survivors are includedin the government
response.

1.1.4 There is asufficient number ofstaff to coordinate thegovernment’s response.
1.1.5 The national
coordination body meetsregularly to coordinate thegovernment’s response.
1.2.1 A National Action
Plan exists with clear
indicators and allocation of
responsibilities.

1.3.2 Government routinely
releases reports on its
actions to combat modern
slavery and uses the
National Action Plan as aframework for reporting its
actions.

Description

1.1.1 National coordinationbody exists involving bothgovernment and NGOs.

Indicators

MILESTONE 3: COORDINATION OCCURS AT THE NATIONAL LEVEL AND ACROSS BORDERS, AND GOVERNMENTS ARE HELD TO ACCOUNT FOR THEIR RESPONSE

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Responses tomodern slavery
are coordinated at
the regional andinternational level.

3.1 Cross-bordercollaboration exists.

The government is part of a regional response.
A relevant regional body includes:-          A body with more than two country representatives as members of the group, and-          A focus on some form of modern slavery.
The government must have signed onto, or have agreed to abide by, the shared values and objectives
developed by the group (i.e. a code of conduct or an MoU on proposed outcomes)
Regional body must exist as of 15 February 2019.
Within these regional bodies, governments chair committees or subcommittees on modern slavery
related issues, and this occurred between 1 July 2017 and 15 February 2019.
Agreements exist between governments of countries of origin and/or destination on modern slavery
issues to collaborate on modern slavery issues.
NOT labour migration agreements (covered under M3 3.2.6).
NOT evidence of repatriation (covered under M3 3.2.1).
These agreements must be current as of 15 February 2019.
There is evidence of joint investigations between two or more nations. Joint investigations includes
the conducting of joint investigations into trafficking or other modern slavery crimes (e.g. a legal
framework allows police in Thailand to conduct a joint investigation with Malaysia, including
information sharing about employers).
These joint investigations must have occurred at least once since 30 June 2013.
There is evidence of mutual legal assistance between two or more nations. Mutual legal assistance isdefined as gathering and exchanging information between nations in an effort to enforce criminal laws
or a means of requesting and obtaining evidence of criminal investigations and prosecutions
These agreements must be current as of 15 February 2019.

3.1.2 Government chairs
subcommittees as part of aregional response.
3.1.3 Agreements exist
between the governmentand countries of origin
and/or destination tocollaborate on modern
slavery issues.
3.1.4 Joint investigations
occur between nations.

3.1.5 Mutual legal
assistance occurs between
nations.

There is evidence that the government is actively reviewing its own response. This can be throughpublic inquiries, the release of annual reports, or other monitoring mechanisms.

An independent entity is established to monitor the activities of the government in relation to its antimodern slavery efforts.
This body can be outside the NAP and does not have to focus solely on modern slavery.
Independent entity can be an independent statutory body or individual or other third party that DOESNOT implement the government response to modern slavery. Examples would include a Human Rights
Commission or National Rapporteur.
NOT regional entities that inspect government responses, such as Group of Experts on Action against
Trafficking in Human Beings (GRETA) in Europe.
Entity must exist as of 15 February 2019.

If yes to 1.2.1, there is evidence that there is a budget attached to the NAP and this is fully funded.
Indicator still met if the NAP is part funded by government and part funded by IOs or NGOs, but that all
activities are funded.
NOT the activities are costed but it is unclear where this money is coming from OR there are reports ofsignificant gaps in funding that are not plugged by IOs, NGOs or other agencies.
If no to 1.2.1, then this indicator cannot be met.

3.1.1 The government isinvolved in a regional
response.

2.1.2 The government
releases its own review ofgovernment policy.

2.1 Government monitors its 2.1.1 Independent entity toresponse.
monitor the implementationand effectiveness of
National Action Plan exists.

1.3.5 Activities in the
National Action Plan are
fully funded.

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specific to foreign victims
of modern slavery.

156
3.2.6 Agreements exist
between countries onlabour migration, which
provide protection for
labour migrants.

3.2.5 NEGATIVE Foreign
victims are deported for
immigration violations.

Foreign victims are detained in detention facilities or deported for immigration violations. Can include
instances where victims are detained for a breach of visa conditions OR instances where foreign
victims are deported to countries of origin without access to assistance.
This occurred between 1 July 2017 and 15 February 2019.
Note: if victims are arrested for crimes committed while enslaved, please refer to Milestone 2, 1.4.2.

3.2.4 NEGATIVE Foreign
victims are detained and/or deported for immigration
violations.

These agreements provide protection for labour migrants, NOT agreements regarding number oflabour migrants sent/received. For countries that are part of the EU, membership is not sufficient
to offer protection. Instead, please see whether national legislation has been harmonised with EU
requirements under EU law. See Group of Experts on Action against Trafficking in Human Beings(GRETA) reports for countries in Europe.
These agreements must be current as of 15 February 2019.

Note: if victims are arrested for crimes committed while enslaved, please refer to Milestone 2, 1.4.2.

Foreign victims are deported for immigration violations. Can include instances where foreign victims
are deported to countries of origin without access to assistance.
This occurred between 1 July 2017 and 15 February 2019.

Note: This will be divided into two indicators – one on detaining victims (3.2.4) and one on deporting
victims (3.2.5).

The government cooperates with home country for voluntary repatriation of foreign nationals.
This could include repatriation mediated by IOM (MUST have evidence that police or government
authorities refer victims to IOM)
AND this has occurred since 30 June 2013.
NOT evidence of deportation.
Repatriation refers to the voluntary return of individuals to their home country with their consent.
Deportation refers to the removal of individuals from a country without their consent.

3.2.1 The government
cooperates with thegovernment of the homecountry to facilitate
repatriation.

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There is evidence that government interventions or programs are based on strategies or theories ofchange identified by research
AND this has occurred since 30 June 2013.
Evidence can include a broader government strategy that incorporates modern slavery research,
the National Action Plan incorporates modern slavery research, or that the National Action Plan or
strategy is reviewed in line with recent modern slavery research.

Government collects data on number of victims assisted, number of prosecutions, etc. AND this data ispublicly available
AND this has occurred since 30 June 2013.

1.1.3 Government
interventions that aim toaddress modern slavery areevidence-based.

1.1.4 Government collects
data on modern slavery
trends.

Any awareness campaign implemented by the government that provides detailed information on how
to avoid the risks of modern slavery
AND has run at least once since 30 June 2013.
Campaign can be implemented by the government with a partner NGO
OR funded by the government and implemented by an NGO.
These campaigns can include domestic violence, forced marriage, child marriage, the worst forms ofchild labour, child soldiers, and risky migration practices.
NOT an awareness-raising, counter-trafficking campaign run by an international organisation.
NOT promotion of the hotline - this is covered under Milestone 1, 1.1.1.

The government funds or has been actively involved in prevalence or estimation studies of modern
slavery
AND this has occurred at least once since 30 June 2013.
Active involvement is defined as development of the research, participation in the research, ormonetary or in-kind support.
Modern slavery includes trafficking, forced labour, slavery, worst forms of child labour, forced
marriage, and use of child soldiers.
The research must provide estimations of the number of people in modern slavery.
NOT civil society conducts research without government involvement.

1.1.2 Government facilitates
or funds research onprevalence or estimation
studies of modern slavery.

Rating description
Government funds or has been actively involved in research on any type of modern slavery, including
responses to modern slavery, and the attitudes, social systems, and institutions that place people atrisk of modern slavery
AND this has occurred at least once since 30 June 2013.
Active involvement is defined as development of the research, participation in the research, ormonetary or in-kind support.
Modern slavery includes trafficking, forced labour, slavery, worst forms of child labour, forced
marriage, and use of child soldiers.
NOT civil society conducts research without government involvement.
NOT government conducts research on child labour.
NOT government conducts prevalence research.

Indicators 2018
1.1.1 Government facilitates
or funds non-prevalence
research on modern
slavery.

1.2 Government
1.2.1 Awareness campaigns
interventions are tailored to target specific known risks
known risks.
of modern slavery.

Activity

1.1. Risk factors, drivers,
and patterns of exploitation
are understood and informgovernment action.

OutcomeGovernment
programming reflects
and responds toknown risk factors
and drivers of modern
slavery and patternsof exploitation.

MILESTONE 4: RISK FACTORS, SUCH AS ATTITUDES, SOCIAL SYSTEMS, AND INSTITUTIONS, THAT ENABLE MODERN SLAVERY ARE ADDRESSED

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Vulnerable
populations do not
become enslaved.

1.3 Safety nets exist forvulnerable populations.

158
1.3.6 Labour inspectors
are able to enter premises
unannounced.

1.3.5 There is a sufficientnumber of labour
inspectors to cover the
population.

1.3.4 All children are able
to access public primaryeducation regardless of
ethno-cultural or religious
background.

All are able to access affordable health care within in a given country.
Affordable health care includes the presence of state health care schemes, community healthschemes, or financial assistance focused on providing access to health care for vulnerable groups.
Health care is available for all and does not discriminate based on gender, ethnicity, religious
background, or geographic region.
NOT health care is available for victims of modern slavery – this is covered under Milestone 1, 3.1.4.
For example, if health care is too costly, thereby excluding certain groups, or health care is too
centralised, thereby excluding certain geographical regions, please rate as indicator not met.
This health care system is available as of 15 February 2019.

1.3.3 All are able to accessto health care.

Measurement, Action, Freedom

Note: Remaining protocol is part of ongoing discussions with our expert working groups.

Labour law details that labour inspectors are able to enter premises unannounced.

Note: Remaining protocol is part of ongoing discussions with our expert working groups.

There a sufficient number of labour inspectors to cover the population.

Specific rating rules:
1) https://data.unicef.org/topic/education/primary-education/2) https://www.dol.gov/agencies/ilab/resources/reports/child-labor/findings
Using these two sources, if there is evidence that free public education exists and that less than 10
percent of the population are out of school, then this indicator is met.

Public primary education system exists and children are able to access public primary education.
All children are able to access education, regardless of gender, ethnicity, religious background, or
geographic region.
For example, if primary education is too costly, thereby excluding attendance by certain groups ofchildren, or education is not available to certain groups (such as Roma), please rate as indicator not
met.
This primary education system is available as of 15 February 2019.

Specific rating rules:
1) https://www.who.int/country-cooperation/what-who-does/strategies-and-briefs/en/2) https://www.ilo.org/wcmsp5/groups/public/---dgreports/---dcomm/---publ/documents/publication/
wcms_604882.pdf
Using these two sources, if there is no evidence of exclusion of certain groups (WHO country
cooperation) and at least 90 percent of the population can access health care (ILO) then this indicatoris met.

The government conducts labour inspections in order to address exploitative practice.
Government funding is defined as monetary or in-kind support.
Informal sector includes workers in unregulated industries such as sex work, brick kilns, agriculture,
fishing, and domestic work
AND these inspections have occurred since 30 June 2013.
NOT private companies conduct their own inspections.
NOT labour inspectors are trained to identify modern slavery – this is covered under Milestone 1, 2.3.1.

1.3.2 The government
conducts labour
inspections in the informal
and formal sectors andacts to address exploitative
practice.

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1.4.3 NEGATIVE Reports
of individual officials’
complicity in modern
slavery cases have notbeen investigated.

1.5.1 All are able to accessbirth registration (rates).

1.4 NEGATIVE Official
complicity is notinvestigated.

1.5 Social protections exist.

Specific rating rules:
https://data.unicef.org/topic/child-protection/birth-registration/
Using UNICEF data, rate as indicator met if over 95 percent of the population has their birth registered.

All are able to access the government run or supported birth registration system.
Can include systems that are implemented or funded by INGOs, but with government support.
Government support is defined as development of the birth registration system, participation in thesystem, or monetary or in-kind support.
Covering the entire population refers to the percentage of people who are registered. Indicator is not
met if less than 95 percent of the population is registered, OR specific groups are missing.
See UNICEF statistics and supplement with additional research on missing vulnerable populations.
Vulnerable populations can include ethnic, cultural, or religious groups whose members do not haveequal access to birth registration.

Any reports of individual officials’ complicity or corruption in modern slavery cases between 1 July
2017 and 15 February 2019.
Individual officials include: government officials, police, immigration officials, border guards, andlabour inspectors.
Excludes consular staff (covered by Milestone 4, indicator 1.7.5).
MUST be related to modern slavery crimes (trafficking, forced labour, slavery, forced marriage, use ofchild soldiers, and worst forms of child labour).
NOT evidence of general corruption of law enforcement.
MUST refer to more than one report of complicity within the reporting period AND no steps have beentaken to investigate these reports.[1]1.4.1 National laws
Public corruption is criminalised in legislation.
criminalise corruption in the Public sector includes government officials including police, immigration, and border guards.
public sector.
Corruption includes, at a minimum, bribery of officials. Please refer to legislation, not to instances ofcombating corruption.
This is current as of 15 February 2019.

Note: Protocol is part of ongoing discussions with our expert working groups.

Note: Remaining protocol is part of ongoing discussions with our expert working groups.

Labour law provides for freedom of association and collective bargaining.

Note: Remaining protocol is part of ongoing discussions with our expert working groups.

Labour law details that labour inspectors are able to enter premises and enforce fines.

1.4 Official complicity isillegal.

1.3.9 Community
monitoring systems forlabour inspections exist.

1.3.8 Labour laws provide
for freedom of associationand collective bargaining.

1.3.7 Labour inspectors areable to enter premises andenforce fines.

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160

1.6 Protections exist for
migrants.

Note: Remaining protocol is part of ongoing discussions with our expert working groups.

Government legislation or policies state that recruitment fees payable to recruitment agencies are notcharged to the employee (i.e. are paid by the employer, not employee). Please check Labour Code or
Employment Act for this information.
This is available as of 15 February 2019.

1.6.3 Laws or policies
state that private
recruitment fees are paidby the employer, not theemployee.

Note: Remaining protocol is part of ongoing discussions with our expert working groups.

Review UN DESA to identify relevant data.

1.6.2 Recruitment agencies
are registered by thegovernment.

1.6.1 Safe migration
pathways exist for thoseseeking employment.

Note: Remaining protocol is part of ongoing discussions with our expert working groups.

Note: Remaining protocol is part of ongoing discussions with our expert working groups.

See ILO social protections report.

1.5.5 Unemployment
insurance for vulnerable
populations exists.
1.5.8 Poverty alleviation
schemes exist.

The legal age of marriage is defined as 18 and above for males and females.

Specific rating rules:
Data collected from:1) https://www.state.gov/j/drl/rls/hrrpt/humanrightsreport/index.htm#wrapper2) https://www.amnesty.org/en/countries/3) https://freedomhouse.org/report/freedom-world/freedom-world-20184) https://www.hrw.org/world-report/2018
The key elements that help us to decide if an indicator has or hasn’t been met are:
There are legal protections available – so legislation or laws or systems exist where asylum seekers
and refugees are able to seek protection.
That in practice, asylum seekers or refugees are NOT criminalised, discriminated against by thegovernment, or deported, or detained.

There are policies and procedures in place that enable asylum seekers to access basic support andprotection within a country’s borders.
Services may be provided by IOs/NGOs with government support.
Government support is defined as development of the asylum seeker system, participation in thesystem, or monetary or in-kind support.
NOT asylum seekers are detained without access to services.
NOT asylum seekers are deported without their claims being assessed.
NOT asylum seekers claims are assessed outside of the country where they sought asylum.
This system is available as of 15 February 2019.

1.5.4 Legal age of marriage
is 18 and above.

1.5.2 Systems are in place
to allow asylum seekers toseek protection.

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support for citizens
overseas.

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Laws prohibit the withholding of passports by employers AND this is current as of 15 February 2019.

Abuse of migrant workers is institutionalised, or systematic and not addressed.
Institutionalised means that these practices are part of government policy, or that these patterns ofabuse are systematic and the government is taking little if any action to address this.
Patterns of abuse includes multiple instances of the following: high recruitment fees, or high interest
rates on fees making it impossible to pay them back, or withheld passports, is a common occurrenceby the majority of employers, or most workers have restrictions placed on their movement by theiremployers
AND this occurred between 1 July 2017 and 15 February 2019.
NOT instances of these abuses are reported, but the government is taking action against these.
Any current specific government policy or law that leads to loss of visa or deportation of migrant
workers (or specific groups of migrant workers, such as domestic workers) for leaving abusive
employers
AND defined as operating between 1 July 2017 and 15 February 2019.
NOT there is evidence of victims being deported for breach of visa conditions, but this does not occur
as a direct result of government policy – this is covered under Milestone 3, indicator 3.2.4.

1.6.6 There are laws thatprohibit the withholding ofpassports.
1.6.7 NEGATIVE Patterns ofabuse of labour migrants
are institutionalised, or
systematic and unchecked.

1.6.9 NEGATIVE There
are laws or policies thatprevent or make it difficult
for workers to leave abusive
employers without risk ofloss of visa and deportation
and/or security deposits.

Government provides training for its embassy or consular staff before departure for a posting or
during a posting
AND this has occurred once since 30 June 2013.
Definition of training includes formal in-person training or an online training program as part of broader
curriculum on human rights or other training programs.
Training can be provided by INGOs with government support (support defined as permission,development of the training, or monetary or in-kind support).
NOT training manuals have been developed by INGOs, NGOs.
NOT booklets with indicators of trafficking have been handed out to embassy staff.

The legal definition of an employee includes all vulnerable workers, such as domestic workers, migrant
workers, construction workers, maritime workers, etc. If the jurisdiction does not have a genericdefinition of an employee or a labour code, the information can come from NGOs, related legislation, or
reports.
NOT domestic workers are not explicitly mentioned in legislation.
NOT labour protections do not cover fishermen in territorial waters.
This indicator does not extend to army, judiciary, and civil service – if these are NOT included, and allother groups are included, this is still indicator met.
This is available as of 15 February 2019.

1.6.5 Labour laws extend to
everyone, including migrant
workers, domestic workers,
and those in the fishing andconstruction sectors.

1.7.1 Government provides
training on modern slavery
for its consular staff.

Information is available to those seeking to migrate for employment in a language that the migrant
understands. This information can be provided by recruitment agents or through pre-departureorientation programming. Information has been provided to migrants between 1 July 2017 and 15
February 2019.

1.6.4 Job seekers canaccess low cost or free
information about job
prospects.

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1.8.1 NEGATIVE Statesanctioned forced labour
exists.

Any form of state-sanctioned labour, where the government forced the whole population, or segmentsof it, to work under threat of penalty, and for which working people have not offered themselves
voluntarily. Excludes compulsory military service, work which forms part of normal civil obligations of
the citizen, or work performed in cases of emergency (such as war, fire, famine, or flood).
This has occurred between 1 July 2017 and 15 February 2019. [1]Follows ILO typology using Committee of Experts’ Direct Requests and Observations. See Global
Estimates of Modern Slavery for typology.

Diplomatic/embassy staff are complicit in the exploitation of nationals or abuse those who seek
assistance at the embassy and no investigations have taken place
AND this has occurred between 1 July 2017 and 15 February 2019.

1.7.5 NEGATIVE Diplomatic
staff are not investigatedfor alleged complicity inmodern slavery cases orabuse of victims.

[1] Indicators 1.4.3 and 1.8.1 are treated differently. Any score for this indicator is subtracted from the total number of points, not included in the activity score.

1.8 NEGATIVE Government
places its population, orpart of its population, in
forced labour.

Any citizen found to be exploited overseas can obtain documents from their own country or be
facilitated with travel back to their country by their own government. These documents are normallygiven by a citizen’s embassies or consulates
AND this has occurred at least once since 30 June 2013.
This information can be found in modern slavery legislation, or on Ministry/Department of Foreign
Affairs websites.

1.7.2 Government provides
identification documents
and support travel
arrangements for citizen
return.

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Description

The government has provided training to procurement officials on what is modern slavery, how it isrelevant to their role, and on existing government policies and their implementation.
This training is provided face-to-face, or through online training modules, and has occurred at least
once since 30 June 2013.
There is evidence that the government has worked with contractors that have been identified ashaving issues with use of forced labour to implement corrective action plans
OR where the use of forced labour is prevalent and the contractor is unwilling to work with thegovernment, there is evidence that the government has cancelled the contract
AND this has occurred since 30 June 2013.

1.1.4 The government has
provided training to public
procurement officials on
modern slavery.
1.1.5 There is evidence thatthe government has taken
remedial action whereforced labour has been
discovered.

2.1.2 Governments haveidentified high-risk sectors
and have taken action towork with these sectors toeradicate modern slavery.

The government has collaborated with businesses to identify high-risk sectors and set up national
sector-specific initiatives that support businesses to tackle modern slavery. These initiatives can bebroader initiatives that cover sustainability, health and safety, etc., but must include some elements oftackling modern slavery.
For example, the sustainable textile partnership in Germany.
This has occurred since 30 June 2013.

Legislation or policies require business to report on their actions to minimise risk of forced labour intheir supply chain (e.g. the UK Modern Slavery Act requires businesses earning more than GBP36
million annually to report on their actions to combat modern slavery).
This is current as of 15 February 2019.

The government releases reports on activities taken to prevent use of forced labour in public
procurement
AND this has to have occurred since 30 June 2013
OR if the policy has been adopted since 1 July 2017, it is enough that reporting is stipulated as part ofregulating compliance.
The report can be on human rights but include a sub-section on modern slavery.

1.1.3 Annual reports
on government action
to prevent use offorced labour in public
procurement are produced
and publicly available.

2.1 Government encourages 2.1.1 Laws or policies requirebusiness to practice due
businesses to report on
diligence.
their actions to implement
risk minimisation policies.

The government drafts and implements public procurement policies and standards that explicitly
prohibit engaging businesses suspected of using forced labour or purchasing products that weremade using forced labour.
These policies can include inserting clauses in public contracts prohibiting the use of forced labour,
directing that purchasing decisions not be made on price alone, outlining steps to be taken should acontractor be found to use forced labour, or requiring government contractors over a certain value tomaintain compliance plans.
This has occurred since 30 June 2013.

The government has drafted guidelines or an internal memo for public procurement officials thatoutline standards and/or operating procedures to prevent the purchase of public goods or services
that involve modern slavery. These can be general guidelines on human rights that include subsections on modern slavery.
This has occurred since 30 June 2013.

1.1.2 Public procurement
policies and systems exist
to minimise the risk ofgovernments purchasing
products tainted by forced
labour.

Indicator

Activity

1.1 Government regulates
1.1.1 Guidelines exist forand investigates public
public procurement
procurement to prevent use officials.
of forced labour.

OutcomeGovernment sources
goods and services
that are slavery freeand encourages
businesses to practicedue diligence.

MILESTONE 5: GOVERNMENT AND BUSINESS STOP SOURCING GOODS AND SERVICES PRODUCED BY FORCED LABOUR

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Investment funds and banks headquartered in the country MUST report on modern slavery risk ininvestments
AND reporting must occur at least every two years.
If policy is in place, there MUST be evidence that this has occurred since 30 June 2013 OR, if the policy
has just been adopted, it is enough that reporting is stipulated as part of regulating compliance.
NOTE: there must be explicit mention of modern slavery NOT investment funds or banks have
corporate social responsibility policies that require them to report on human rights UNLESS modern
slavery forms part of this reporting.

2.1.4 Governments
implement a responsible
investment reporting
requirement forinvestment funds andbanks headquartered intheir country to ensurethat investment does notsupport modern slavery.

2.1.6 Laws are in place that Directors can be charged and prosecuted for slavery in first tier supply chains where it can be
make it a criminal offence
shown that due diligence has not occurred. This indicator measures the existence of this provision infor company directors orlegislation.
companies to fail to prevent
modern slavery and fail toundertake reasonable due
diligence in first tier supply
chain.

2.1.5 Laws or policies
The government has prohibited the import of goods and services made with forced labour. For
prevent the import of goods example, the US Tariff Act.
and services made withforced labour.

The government has worked with businesses and NGOs to create a public list of businesses that havebeen found to tolerate forced labour in their supply chains AND/OR these businesses are prevented
from accessing public funds. For example, the “Dirty List” in Brazil.

2.1.3 Laws or policies allow
governments to create apublic list of businesses
that have been found totolerate slavery in their
supply chains.

09 Appendix 3: Conceputal framework

Measurement, Action, Freedom

09 Appendix 3: Conceputal framework

Amazon jungle, southeast
Peru, February 19, 2019.
Peruvian military andpolice take over an illegal
mercury mining village.
Authorities noted that themine caused significant
ecological destructionin the Amazon as well as
increasing the instancesof human trafficking,violent crimes, and illegal
sex work in the region.
Credit: Cris Bouroncle/
AFP/Getty Images

Walk Free

165

10

APPENDIX 4:ENDNOTES

Tannery workers in Dhaka,Bangladesh work in unsafe
and unhygienic conditions,which can lead to healthissues. Credit: Syed
Mahamudur Rahman/
NurPhoto via Getty Images

166

Measurement, Action, Freedom

10 Appendix 4: Endnotes

1

United Nations 2018, The Sustainable Development
Goals Report 2018. Available from: https://unstats.
un.org/sdgs/files/report/2018/TheSustainableDevelo
pmentGoalsReport2018-EN.pdf. [14 June 2019].

2

Sustainable Development Knowledge Platform 2019,
Voluntary National Reviews Database. Available from:https://sustainabledevelopment.un.org/vnrs/.
[14 June 2019].

3

Sustainable Development Goals Knowledge
Platform 2018, Sustainable Development Goal
8, United Nations. Available from: https://sustainabledevelopment.un.org/sdg8. [13 June 2019].

4

United Nations Statistics Division 2019, SDG
Indicators: Metadata repository. Available from:https://unstats.un.org/sdgs/metadata/. [14 June 2019].

5

Indicator 5.3.1 on proportion of women aged 20-24
years who were married or in a union before age 15
and before age 18 was reclassified as Tier 1 in May
2019. See UN Stats 2019, Tier Classification for Global
SDG Indicators 22 May 2019. Available from: https://
unstats.un.org/sdgs/files/Tier_Classification_of_
SDG_Indicators_22_May_2019_web.pdf.
[25 June 2019].

6

7

As above.

8

White & Case 2018, Voluntary National Review (VNR)
Analysis 2018 Aggregated Chart, Global Alliance for
Reporting Progress on Peaceful, Just and Inclusive
Societies. Available from: https://docs.wixstatic.com/
ugd/51bba1_0ceaf969541f4fcc89295a6c4b9fa64e.
docx?dn=Doc%203%20-%202018%20VNR%20
Chart.DOCX. [16 May 2019].

9

Australian Government 2019, Sustainable
Development Goals: Goal 8 Decent work andeconomic growth. Available from: https://www.
sdgdata.gov.au/goals/decent-work-and-economicgrowth. [16 May 2019].

10

Government of Canada 2018, Sustainable
Development Goals Data Hub: Goal 8 – Decent
work and economic growth. Available from: https://
www144.statcan.gc.ca/sdg-odd/goal-objectif08-eng.
htm. [16 May 2019].

11

12

Walk Free

Kindornay, S 2019, Progressing National SDG
Implementation: An independent assessment of
the voluntary national review reports submitted
to the United Nations High-level Political Forumin 2018, Canadian Council for International Cooperation. Available from: https://ccic.ca/wpcontent/uploads/2019/01/EN-Executive-SummaryProgressing-National-SDGs-Implementation-2019.
pdf. [14 June 2019].

International Labour Office 2018, Guidelines
concerning the measurement of forced labour, 20th
International Conference of Labour Statisticians,
Geneva, 10-19 October 2018. Available from: https://www.ilo.org/wcmsp5/groups/public/---dgreports/--stat/documents/meetingdocument/wcms_648619.
pdf. [14 June 2019].
United Nations General Assembly 2015, Resolution
adopted by the General Assembly on 27 July 2015:
Addis Ababa Action Agenda of the Third International
Conference on Financing for Development(Addis Ababa Action Agenda), United Nations.
Available from: https://unctad.org/meetings/en/
SessionalDocuments/ares69d313_en.pdf.
[16 May 2019].

13

Division for Sustainable Development Goals
DESA United Nations 2018. High-Level Political
Forum on Sustainable Development Voluntary
National Reviews: Synthesis Report. Available
from: https://sustainabledevelopment.un.org/
content/documents/210732018_VNRs_Synthesis_
compilation_11118_FS_BB_Format_FINAL_cover.pdf.
[28 May 2019].

14

Alliance 8.7 2017, Frequently Asked Questions: Global
Estimates of Modern Slavery. Available from: https://www.ilo.org/wcmsp5/groups/public/---ed_norm/--declaration/documents/publication/wcms_575605.
pdf. [14 June 2019].

15

Sustainable Development Solutions Network andBertelsmann Stiftung 2019, Sustainable Development
Report 2019. Available from: https://sdgindex.org/.
[25 June 2019].

16

The World in 2050 Initiative 2018, TWI2050 – The
World in 2050, International Institute for Applied
Systems Analysis (IIASA). Available from: http://www.
iiasa.ac.at/web/home/research/twi/Report2018.html.
[25 June 2019].

17

Fischer-Kowalski M. et al 2015, ‘International Tradein Resources: A Biophysical Assessment,’ in Reportof the International Resource Panel. United Nations
Environment Programme.

18International Labour Organization 2014, Rules of the
Game: A brief introduction to International Labour
Standards.

19

Gaspar V. 2018, Fiscal Policy and Development.
Spending Needs for Meeting Selected SDGs.

20

International Labour Organization & Walk Free
Foundation 2017, Global estimates of modern slavery:
Forced labour and forced marriage. Available
from: https://cdn.minderoo.com.au/content/
uploads/2019/02/06104338/global_estimates_of_modern_slavery-forced_labour_and_forced_marriage.
pdf. [15 May 2019].

21

Clarke, R & Homel, R 1997, ‘A Revised Classificationof Situational Crime Prevention Techniques’ in SP
Lab, Crime Prevention at a Crossroads, ACJS/
Anderson monograph series, Academy of Criminal
Justice Sciences, Greenbelt, MD. Ekblom, P & Tilley,
N 2000, ‘Going equipped: criminology, situational
crime prevention and the resourceful offender’, British
Journal of Criminology, vol. 40. Lampe, KV 2011, ‘The
application of the framework of Situational Crime
Prevention to ‘organized crime’,’ Criminology andCriminal Justice, vol. 11, pp. 145-163.

22

United Nations 2000, Protocol to Prevent, Suppress
and Punish Trafficking in Persons, Especially Womenand Children, supplementing the United Nations
Convention against Transnational Organized Crime,
Doc. A/55/383, New York.

23

Council of Europe 2005, Council of Europe
Convention on Action against Trafficking in Human
Beings, 16.V.2005, Warsaw.

24

Bales, K 2007, Ending Slavery: How we Free Today’s
Slaves, University of California Press, Oakland.
Gallagher, A & Holmes, P 2008, ‘Developing an
Effective Criminal Justice Response to Human
Trafficking: Lessons from the Frontline’, International
Criminal Justice Review, vol. 18, pp. 318-348. Office
to Monitor and Combat Trafficking in Persons 2011,
The 3 Ps: Prevention, Protection, Prosecution, UnitedStates Department of State. Available from: https://www.state.gov/j/tip/3p/. [19 September 2014].

167

10 Appendix 4: Endnotes

25

After three iterations of this assessment, we
re-mapped our framework against the Councilof Europe Convention Action against Trafficking
Beings and have found there to be approximately 90
percent crossover with the European Convention. A
paper on this research is forthcoming at the time of
publication.

39

Home Office 2018, 2018 UK Annual Report onModern Slavery, Government of the United
Kingdom. Available from: https://assets.publishing.
service.gov.uk/government/uploads/system/
uploads/attachment_data/file/749346/2018_UK_
Annual_Report_on_Modern_Slavery.pdf.
[13 June 2019].

26

Sustainable Development Goals Knowledge
Platform 2018, Sustainable Development Goal
8, United Nations. Available from: https://sustainabledevelopment.un.org/sdg8.
[13 June 2019].

40‘Forced marriage: Mum guilty of making daughter
wed older man’ 2018, BBC News, 22 May. Available
from: https://www.bbc.co.uk/news/uk-englandbirmingham-44211541. [13 June 2019].

41

27

International Labour Organization 2017, Global
Estimates of Modern Slavery. Available from:https://www.ilo.org/global/publications/books/
WCMS_575479/lang--en/index.htm [13 June 2019].

28

United Nations Office on Drugs and Crime 2018,
Global Report on Trafficking in Persons 2018.
Available from: https://www.unodc.org/documents/
data-and-analysis/glotip/2018/GLOTiP_2018_
BOOK_web_small.pdf [13 June 2019].

Secretariat of the Council of Europe Convention
on Action against Trafficking in Human Beings(GRETA and Committee of the Parties) 2018, Reportconcerning the implementation of the Council ofEurope Convention on Action against Trafficking
in Human Beings by the Netherlands, Council ofEurope. Available from: https://rm.coe.int/greta2018-19-fgr-nld-en/16808e70ca. [13 June 2019].

42

Field sources.

43

Most recent data available. Secretariat of theCouncil of Europe Convention on Action against
Trafficking in Human Beings (GRETA andCommittee of the Parties) 2018, Report concerning
the implementation of the Council of Europe
Convention on Action against Trafficking in Human
Beings by the Netherlands, Council of Europe.
Available from: https://rm.coe.int/greta-2018-19-fgrnld-en/16808e70ca. [13 June 2019].

44

Nationaal Rapporteur Mensenhandel en Seksueel
Geweld tegen Kinderen 2019, Dadermonitor
mensenhandel 2013-2017, Den Haag: Nationaal
Rapporteur. Available from: https://www.
nationaalrapporteur.nl/Publicaties/Dadermonitormensenhandel-2013-2017/dadermonitormensenhandel-2013-2017.aspx. [13 June 2019].

45

It is unclear if case refers to number of victims
or number of investigations. See: United Nations
Office on Drugs and Crime 2018, Global Report on
Trafficking in Persons: Country Profiles: Central andSouth-Eastern Europe, United Nations. Available
from: https://www.unodc.org/documents/data-andanalysis/glotip/2018/GLOTIP_2018_CENTRAL_
AND_SOUTH_EASTERN_EUROPE.pdf.
[13 June 2019].

46

Detention Action 2017, Trafficked into Detention.
Available from: https://detentionaction.org.uk/
publications/trafficked-into-detention/.
[13 June 2019].

47

Field sources.

48

Trafficking can be punished with a fine under
Article 273f of the Dutch Criminal Code. See:
Criminal Code 1981 Available from: http://www.ejtn.
eu/PageFiles/6533/2014%20seminars/Omsenie/
WetboekvanStrafrecht_ENG_PV.pdf. [13 June 2019].

49

Committee on the Elimination of Discrimination
against Women 2019, Sixth periodic reportsubmitted by Zimbabwe under article
18 of the Convention, United Nations.
Available from: https://tbinternet.ohchr.
org/_layouts/15/treatybodyexternal/Download.
aspx?symbolno=CEDAW%2fC%2fZWE%2f6&Lang=en. [13 June 2019].

50

Rated as CC in 2018.

51

The National Committee for Combating Trafficking
in Persons 2017, The National Referral Mechanism
for Victims of Trafficking in Persons, Kingdomof Bahrain Labour Market Regulatory Authority.
Available from: http://lmra.bh/portal/files/cms/
downloads/english_attachment/tnrmfvotip_en.pdf.
[13 June 2019].

29‘New UN data tool shows ‘mismatch’ between
government aid and places modern slavery exists’2019, UN News, 2 April. Available from: https://news.
un.org/en/story/2019/04/1035751 [13 June 2019].

30

Described as a ‘B’ grade in the 2018 Global Slavery
Index.

31

Out of 181 countries. Liechtenstein and Iraq were notincluded in the 2018 Global Slavery Index.
The reporting period for the 2018 GSI was from
1 February 2016 to 30th June 201732

Out of 183 countries, including Liechtenstein and
Iraq. This year’s report covers the period 1 July 2017
to 15 February 2019.

33

This year we have included smaller Commonwealthnation states, Palau, Iraq, and Liechtenstein,bringing the total to 183. These were excluded in2018 due to limited data. In 2019, we have been able
to plug some of the gaps in our dataset and can now
include these countries in this report.

34

35

36

168

134 countries had criminalised trafficking in linewith the UN Trafficking Protocol in 2018. This
increase is due to the inclusion of Liechtensteinin this year’s report and the passing of trafficking
legislation in Pakistan
This data and all data can be accessed at: The
Global Slavery Index 2018, Data. Available from:https://www.globalslaveryindex.org/2018/data/
maps/#response. [13 June 2019].
Commonwealth countries included are Antigua andBarbuda, Bahamas, Belize, Dominica, Fiji, Grenada,
Kiribati, Malta, Nauru, Saint Lucia, Saint Kitts andNevis, Saint Vincent and the Grenadines, Samoa,
Seychelles, Solomon Islands, Tonga, Tuvalu, andVanuatu. Palau, Iraq, and Liechtenstein are also
included for the first time.

37

Identified using the 2017 Fragile States Index, where
those countries that scored 9.9 and above on the
Security Apparatus indicator were excluded. See:
Fragile States Index 2019, Global Data. Available
from: https://fragilestatesindex.org/data/.
[13 June 2019].

38

Joint Standing Committee on Foreign Affairs,
Defence and Trade 2017, Hidden in Plain Sight:
An inquiry into establishing a Modern Slavery Act
in Australia, Parliament of the Commonwealth ofAustralia, pp. 73-91. Available from: https://www.
aph.gov.au/Parliamentary_Business/Committees/
Joint/Foreign_Affairs_Defence_and_Trade/
ModernSlavery/Final_report. [13 June 2019].

Measurement, Action, Freedom

10 Appendix 4: Endnotes

52

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State. Available
from: https://www.state.gov/wp-content/
uploads/2019/02/282804.pdf. [13 June 2019].

66

Field sources. See also Office to Monitor and Combat
Trafficking in Persons 2018, Trafficking in Persons
Report 2018, United States Department of State.
Available from: https://www.state.gov/wp-content/
uploads/2019/01/282798.pdf. [13 June 2019].

53

Previously rated CCC in 2018, or 4 out of 10 using thisyear’s scale.

67

Field sources.

68

Bureau of International Labor Affairs 2017, Lebanon,
United States Department of Labor. Available from:https://www.dol.gov/sites/default/files/documents/
ilab/Lebanon.pdf. [13 June 2019].

69

Office to Monitor and Combat Trafficking in Persons
2018, Trafficking in Persons Report 2018, UnitedStates Department of State. Available from: https://www.state.gov/wp-content/uploads/2019/01/282798.
pdf. [13 June 2019].

70‘Qatar: End All Migrant Worker Exit Visas’ 2018,
Human Rights Watch, 6 September. Available from:https://www.hrw.org/news/2018/09/06/qatar-end-allmigrant-worker-exit-visas. [13 June 2019].

71

Office to Monitor and Combat Trafficking in Persons
2018, Trafficking in Persons Report 2019 – Qatar
Country Narrative, United States Department ofState, pp. 358. Available from: https://www.state.gov/
documents/organization/282803.pdf. [14 February2019].

72

Office to Monitor and Combat Trafficking in Persons
2018, U.S. Advisory Council on Human Trafficking,United States Department of State. Available from:https://www.state.gov/u-s-advisory-council-onhuman-trafficking/. [13 June 2019].

73

National Assembly Secretariat, An Act to preventand combat trafficking in persons, especiallywomen and children, The Gazette of Pakistan.
Available from: http://www.senate.gov.pk/uploads/
documents/1533270017_228.pdf. [14 June 2019].

74

International Labour Organization 2017, Ratificationsof P029 - Protocol of 2014 to the Forced Labour
Convention, 1930. Available from: http://www.ilo.
org/dyn/normlex/en/f?p=1000:11300:0::NO:11300:P11300_INSTRUMENT_ID:3174672. [31 May 2019].

75

Legislation Online n.d., Estonia. Available from: https://www.legislationline.org/download/action/download/
id/7574/file/Estonia_CC_amDec2017_en.pdf. [13June 2019]. Vahtla, A 2017, ‘Female genital mutilation,
forced marriages criminalized in Estonia’, ERR News,
16 July. Available from: https://news.err.ee/607729/
female-genital-mutilation-forced-marriagescriminalized-in-estonia. [13 June 2019].

76‘Unofficial English Translation of Morocco’s Law 10313 on Elimination of Violence Against Women’ 2018,
Morocco World News, 17 April. Available from: https://www.moroccoworldnews.com/2018/04/244641/
unenglish-translation-of-moroccos-law-103-13-onelimination-of-violence-against-women/.
[13 June 2019].

77

Ministerio de Justicia 2019, Código Penal y legislación
complementaria, Boletín Oficial del Estado. Available
from: https://www.boe.es/legislacion/codigos/
codigo.php?id=038_Codigo_Penal_y_legislacion_
complementaria&modo=1. [13 June 2019].

78

Parliamentary Counsel Office n.d., Crimes Act 1961,
Government of New Zealand. Available from: http://
www.legislation.govt.nz/act/public/1961/0043/latest/
whole.html#DLM329768. [13 June 2019].

79

Kanso, H 2018, ‘New Moroccan law fails to protect
women from forced marriage: activists’, Reuters, 13
September. Available from: https://www.reuters.com/
article/us-morocco-law-women/new-moroccanlaw-fails-to-protect-women-from-forced-marriageactivists-idUSKCN1LS2SW.
[13 June 2019].

54

55

56

Human Rights Committee 2018, Concluding
observations on the initial report of Bahrain, United
Nations. Available from: https://tbinternet.ohchr.
org/_layouts/15/treatybodyexternal/Download.
aspx?symbolno=CCPR/C/BHR/CO/1&Lang=En. [13June 2019].
Group of Experts on Action against Trafficking
in Human Beings 2018, Report concerning theimplementation of the Council of Europe Convention
on Action against Trafficking in Human Beings by
Ukraine, Council of Europe. Available from: https://rm.coe.int/greta-2018-20-fgr-ukr-en/16808f0b82.
[7 March 2019].

57

As above.

58

Governo de Moçambique 2008, Moçambique: Lei
No. 6/2008, Lei do Tráfico de Pessoas, International
Labour Organization. Available from: http://www.ilo.
ch/dyn/natlex/docs/ELECTRONIC/86030/96743/
F88437680/MOZ86030.pdf. [13 June 2019].

59

60

Walk Free

Human Rights Council 2017, National Reportsubmitted in accordance with paragraph 15(a) for theannex to Human Rights Council resolution 5/1 Bahrain,
United Nations. Available from: http://ap.ohchr.org/
documents/alldocs.aspx?doc_id=28040.
[16 June 2019].

Government of Ethiopia 2015, Proclamation
No. 909/2015 Prevention and Suppression of
Trafficking in Persons and Smuggling of Migrants
Proclamation, International Labour Organization.
Available from: https://www.ilo.org/dyn/natlex/
docs/ELECTRONIC/101059/126622/F-402220324/
ETH101059.pdf. [13 June 2019].
Office to Monitor and Combat Trafficking in Persons
2018, Trafficking in Persons Report 2018, UnitedStates Department of State. Available from: https://www.state.gov/wp-content/uploads/2019/01/282798.
pdf. [13 June 2019].

61

1 corresponded to a D in 2018.

62

Office to Monitor and Combat Trafficking in Persons
2018, Trafficking in Persons Report 2018, UnitedStates Department of State. Available from: https://www.state.gov/wp-content/uploads/2019/01/282798.
pdf [13 June 2019].

63‘RCA: Le bilan de UMMIR jugé positif après un and’activités’ 2018, Radio Ndeke Luka, 15 September.
Available from: https://www.radiondekeluka.org/
actualites/justice/32350-rca-le-bilan-de-ummir-jugepositif-apres-un-an-d-activites.html. [13 June 2019].

64

Office to Monitor and Combat Trafficking in Persons
2018, Trafficking in Persons Report 2018, UnitedStates Department of State. Available from: https://www.state.gov/wp-content/uploads/2019/01/282798.
pdf. [13 June 2019].

65

Human Rights Council, Report of the Special
Rapporteur on the sale and sexual exploitationof children, including child prostitution, childpornography and other child sexual abuse material,on her visit to the Dominican Republic, United Nations.
Available from: https://documents-dds-ny.un.org/
doc/UNDOC/GEN/G18/003/00/PDF/G1800300.
pdf?OpenElement. [13 June 2019].

169

10 Appendix 4: Endnotes

80

81

82

83

Centro de Información Oficial n.d., Ley N° 19643:
Ley de Prevencion y Combate de la Trata dePersonas: Modificaciones al Codigo Penal,
Gobierno de Uruguay. Available from: http://www.
impo.com.uy/bases/leyes/19643-2018.
[13 June 2019].
Centro de Información Oficial n.d., Ley N° 19643:
Ley de Prevencion y Combate de la Trata dePersonas: Modificaciones al Codigo Penal,
Gobierno de Uruguay. Available from: http://www.
impo.com.uy/bases/leyes/19643-2018.
[13 June 2019].

93‘Trump travel ban: What does this ruling mean?’2018, BBC News, 26 June. Available from: https://www.bbc.com/news/world-us-canada-39044403.
[13 June 2019].

94

Frelick, B 2019, ‘Trump Administration Slaps a
Price Tag on Protection’, Human Rights Watch,
30 April. Available from: https://www.hrw.org/
news/2019/04/30/trump-administration-slapsprice-tag-protection. [13 June 2019].

95

Human Rights Watch n.d., Europe: Refugees &Migrants’ Rights. Available from: https://www.hrw.
org/tag/europe-refugees-migrants-rights.
[13 June 2019].

96

Freedom House 2018, Freedom in the World
2018: United Kingdom. Available from: https://
freedomhouse.org/report/freedom-world/2018/
united-kingdom. [13 June 2019].

97

For the purpose of the Global Estimates of Modern
Slavery, forced labour imposed by state authorities
has been classified in six main categories:

Secretariat of the Council of Europe Convention
on Action against Trafficking in Human Beings(GRETA and Committee of the Parties) 2017, Reportconcerning the implementation of the Council ofEurope Convention on Action against Trafficking
in Human Beings by Belgium, Council of Europe.
Available from: https://rm.coe.int/greta-2017-26frg-bel-en/1680782ae0. [13 June 2019].

1.

Abuse of conscription, when conscripts areforced to work for tasks which are not of purely
military character.
2.
Obligation to perform work beyond normal civic
obligations.
3.
Abuse of the obligation to participate in minor
communal services, when these services are
not in the direct interest of the community andhave not benefited from prior consultation of themembers of the said community.
4.
Prison labour•
Compulsory prison labour of prisoners inremand or in administrative detention.
•
Compulsory prison labour exacted for the
benefit of private individuals, companies, orassociations outside the exceptions allowed by
the ILO supervisory bodies.
•
Compulsory prison labour exacted frompersons under certain circumstances, suchas punishment for expressing political views,
labour discipline, or peaceful participation in
strikes.
5.
Compulsory labour for the purpose of economic
development.
6.
Forced recruitment of children by governments.
Taken from: International Labour Organization
2017, Global Estimates of Modern Slavery: Forced
Labour and Forced Marriage. Available from:http://www.ilo.org/wcmsp5/groups/public/@
dgreports/@dcomm/documents/publication/
wcms_575479.pdf.
[9 February 2018].

84

Secretariat of the Council of Europe Convention
on Action against Trafficking in Human Beings(GRETA and Committee of the Parties) 2017, Reportconcerning the implementation of the Council ofEurope Convention on Action against Trafficking
in Human Beings by Belgium, Council of Europe.
Available from: https://rm.coe.int/greta-2017-26frg-bel-en/1680782ae0. [13 June 2019].

85

Field sources.

86

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State. Available
from: https://www.state.gov/wp-content/
uploads/2019/01/282798.pdf. [13 June 2019].

87

Expertise France 2017, Djibouti Country Statement:
Addressing Migrant Smuggling and Human
Trafficking in East Africa. Available from: https://www.expertisefrance.fr/documents/20182/234347/
AMMi+-+Country+Report+-+Djibouti.
pdf/5a8a7d16-1fb1-44a3-a680-e18ffb7bcc44.
[13 June 2019].

88

Human Rights Council Working Group of the
Universal Periodic Review 2019, National Report
Submitted in accordance with paragraph 5 of theannex to Human Rights Council resolution 16/21,
United Nations. Available from: https://documentsdds-ny.un.org/doc/UNDOC/GEN/G18/332/79/PDF/
G1833279.pdf?OpenElement. [13 June 2019].

98

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State. Available
from: https://www.state.gov/wp-content/
uploads/2019/01/282798.pdf. [13 June 2019].

Uzbek-German Forum for Human Rights 2018, We
pick cotton out of fear: systematic forced laborand the accountability gap in Uzbekistan. Available
from: http://uzbekgermanforum.org/wp-content/
uploads/2018/05/We_pick_cotton_out_of_fear.pdf.
[13 June 2019].

99‘Turkmenistan Forces State Employees to Harvest
Cotton’ 2018, Freedom United, 1 September.
Available from: https://www.freedomunited.org/
news/turkmenistan-forces-state-employees-toharvest-cotton/. [13 June 2019].

100

International Labour Organization 2017, Direct
Request (CEACR) - adopted 2016, published 106th
ILC session (2017). Available from: http://www.ilo.
org/dyn/normlex/en/f?p=NORMLEXPUB:13100:0::::P13100_COMMENT_ID:3299906. [6 November
2017].

89

170

Government Gazette of the Republic of Namibia
2018, Government Notice: Promulgation ofCombating of Trafficking in Persons Act, 2018 (ActNo. 1 of 2018), of the Parliament, Government of
Namibia. Available from: https://laws.parliament.na/
cms_documents/6562-6e2f613897.pdf.
[13 June 2019].

90

As above.

91

The Bali Process n.d., Bali Process Government
and Business Forum. Available from: https://www.
baliprocess.net/bali-process-government-andbusiness-forum/. [13 June 2019].

92‘Pakistani girls trafficked to China in new ‘bridemarket’ 2019, TRT World, 7 May. Available from:https://www.trtworld.com/asia/pakistani-girlstrafficked-to-china-in-new-bride-market-26457.
[13 June 2019].

Measurement, Action, Freedom

10 Appendix 4: Endnotes

101

102

Buckley, C & Ramzy A 2018, ‘China’s Detention Camps
for Muslims Turn to Forced Labor’, The New YorkTimes, 16 December. Available from: https://www.
nytimes.com/2018/12/16/world/asia/xinjiang-chinaforced-labor-camps-uighurs.html. [13 June 2019].

103

International Labour Organization 2018, Observations(CEACR) – adopted 2017, published 107th ILC session(2018) Forced Labour Convention, 1930 (No. 29) –Belarus (Ratification: 1956). Available from: https://www.ilo.org/dyn/normlex/en/f?p=NORMLEXPUB:131
00:0::NO::P13100_COMMENT_ID,P11110_COUNTRY_
ID,P11110_COUNTRY_NAME,P11110_COMMENT_YEAR:3334237,103154,Belarus,2017. [13 June 2019].

104

International Labour Organization 2017, Direct
Request (CEACR)– adopted 2018, published 107th ILC
session (2018) Abolition of Forced Labour Convention,
1957 (No. 105) – Burundi (Ratification: 1963). Available
from: https://www.ilo.org/dyn/normlex/en/f?p=100
0:13100:0::NO:13100:P13100_COMMENT_ID,P11110_
COUNTRY_ID,P11110_COUNTRY_NAME,P11110_
COMMENT_YEAR:3328858,103466,Burundi,2017.
[13 June 2019].

109

International Labour Organization 2015, Observation(CEACR) – adopted 2014, published 104th ILC session(2015) Forced Labour Convention, 1930 (No. 29) –Colombia (Ratification: 1969). Available from: https://www.ilo.org/dyn/normlex/en/f?p=1000:13100:0::N
O:13100:P13100_COMMENT_ID,P11110_COUNTRY_
ID,P11110_COUNTRY_NAME,P11110_COMMENT_YEAR:3188569,102595,Colombia,2014.
[13 June 2019].

110

International Labour Organization 2018, Observation(CEACR) – adopted 2017, published 107th ILC session(2018) Forced Labour Convention, 1930 (No. 29) –Egypt (Ratification: 1955). Available from: https://www.ilo.org/dyn/normlex/en/f?p=1000:13100:0::N
O:13100:P13100_COMMENT_ID,P11110_COUNTRY_
ID,P11110_COUNTRY_NAME,P11110_COMMENT_YEAR:3342100,102915,Egypt,2017. [13 June 2019].

111

International Labour Organization 2018,
Observation (CEACR) – adopted 2016, published
106th ILC session (2017) Abolition of Forced
Labour Convention, 1957 (No. 105) – Madagascar(Ratification: 2007). Available from: https://www.
ilo.org/dyn/normlex/en/f?p=1000:13100:0::NO:1
3100:P13100_COMMENT_ID,P11110_COUNTRY_
ID,P11110_COUNTRY_NAME,P11110_COMMENT_YEAR:3300490,102955,Madagascar,2016.
[13 June 2019].

112

International Labour Organization 2017, Observation(CEACR) – adopted 2016, published 106th ILC session(2017) Forced Labour Convention, 1930 (No. 29) –Mongolia (Ratification: 2005). Available from: https://www.ilo.org/dyn/normlex/en/f?p=1000:13100:0::N
O:13100:P13100_COMMENT_ID,P11110_COUNTRY_
ID,P11110_COUNTRY_NAME,P11110_COMMENT_YEAR:3279446,103142,Mongolia,2016. [13 June 2019].

105

International Labour Organization 2016, Observation(CEACR) – adopted 2015, published 105th ILC session(2016) Forced Labour Convention, 1930 (No. 29) –Myanmar (Ratification: 1955). Available from: https://www.ilo.org/dyn/normlex/en/f?p=1000:13100:0::N
O:13100:P13100_COMMENT_ID,P11110_COUNTRY_
ID,P11110_COUNTRY_NAME,P11110_COMMENT_YEAR:3250775,103159,Myanmar,2015. [13 June 2019].

113

International Labour Organization 2016, Observation(CEACR) - adopted 2015, published 105th ILC session(2016) Forced Labour Convention, 1930 (No. 29) –Eritrea (Ratification: 2000). Available from: http://
www.ilo.org/dyn/normlex/en/f?p=1000:13100:0::N
O:13100:P13100_COMMENT_ID,P11110_COUNTRY_
ID,P11110_COUNTRY_NAME,P11110_COMMENT_YEAR:3256806,103282,Eritrea,2015. [13 June 2019].

106

International Labour Organization 2018, Direct
Request (CEACR) – adopted 2017, published 107th
ILC session (2018) Forced Labour Convention, 1930
(No. 29) – Rwanda (Ratification: 2001). Available
from: https://www.ilo.org/dyn/normlex/en/f?p=100
0:13100:0::NO:13100:P13100_COMMENT_ID,P11110_
COUNTRY_ID,P11110_COUNTRY_NAME,P11110_
COMMENT_YEAR:3331410,103460,Rwanda,2017.
[13 June 2019].

114

International Labour Organization 2016, Observation(CEACR) - adopted 2015, published 105th ILC session(2016) Forced Labour Convention, 1930 (No. 29) –Eritrea (Ratification: 2000). Available from: http://
www.ilo.org/dyn/normlex/en/f?p=1000:13100:0::N
O:13100:P13100_COMMENT_ID,P11110_COUNTRY_
ID,P11110_COUNTRY_NAME,P11110_COMMENT_YEAR:3256806,103282,Eritrea,2015. [13 June 2019].

115

107

International Labour Organization 2017, Observation(CEACR) – adopted 2016, published 106th ILC session(2017) Forced Labour Convention, 1930 (No. 29) –Eswatini (Ratification: 1978). Available from: https://www.ilo.org/dyn/normlex/en/f?p=1000:13100:0::N
O:13100:P13100_COMMENT_ID,P11110_COUNTRY_
ID,P11110_COUNTRY_NAME,P11110_COMMENT_YEAR:3297022,103336,Eswatini,2016. [13 June 2019].

Lhalae, M 2019, ‘Top 10 Facts About Myanmar Child
Soldiers’, The Borgen Project, 4 January. Available
from: https://borgenproject.org/top-10-facts-aboutmyanmar-child-soldiers/. [13 June 2019].

116

Human Rights Watch n.d., North Korea. Available
from: https://www.hrw.org/asia/north-korea.
[13 June 2019].

117

Breuker, RE & van Gardingen, I 2018, Pervasive,
Punitive, and Predetermined: Understanding Modern
Slavery in North Korea, Walk Free Foundation &Leiden Asia Centre. Available from: https://www.
universiteitleiden.nl/en/research/research-projects/
humanities/slaves-to-the-system-researching-northkorean-forced-labor-in-the-eu. [13 June 2019].

118

Nebehay, S 2018, ‘Executions, torture and slavemarkets persist in Libya: U.N.’, Reuters, 21 March.
Available from: https://www.reuters.com/article/uslibya-security-rights/executions-torture-and-slavemarkets-persist-in-libya-u-n-idUSKBN1GX1JY.
[13 June 2019].

108

Walk Free

Action des chrétiens pour l’abolition de la torture(ACAT-France), Boat People SOS (BPSOS), The
Campaign to Abolish Torture in Vietnam (CAT-VN),
Christian Solidarity Worldwide (CSW), Legal Initiates
for Vietnam (LIV) & Vietnam-Coalition Against
Torture (VN-CAT) 2018, Report to the United Nations
Committee Against Torture for the Examination of
the First State Report of the Socialist Republic ofVietnam, United Nations Office of the United Nations
High Commissioner for Human Rights (OHCHR).
Available from: https://tbinternet.ohchr.org/Treaties/
CAT/Shared%20Documents/VNM/INT_CAT_CSS_
VNM_32824_E.pdf. [13 June 2019].

International Labour Organization 2017, Observation(CEACR) – adopted 2016, published 106th ILC
session (2017) Forced Labour Convention, 1930
(No. 29) – Venezuela, Bolivarian Republic of(Ratification: 1944). Available from: https://www.
ilo.org/dyn/normlex/en/f?p=1000:13100:0::NO:1
3100:P13100_COMMENT_ID,P11110_COUNTRY_
ID,P11110_COUNTRY_NAME,P11110_COMMENT_YEAR:3297478,102880,Venezuela,%20Bolivarian%20
Republic%20of,2016. [13 June 2019].

171

10 Appendix 4: Endnotes

119

United Nations Support Mission in Libya 2016,‘Detained and Dehumanised’ Report On Human
Rights Abuses Against Migrants In Libya, Officeof the United Nations High Commissioner
for Human Rights. Available from: http://
www.ohchr.org/Documents/Countries/LY/
DetainedAndDehumanised_en.pdf. [25 July 2017].

120

Regulation No. 35/PERMEN-KP/2015.

121

Chocolate Manufacturers Association 2001,
Protocol for the growing and processing of cocoa
beans and their derivative products in a manner thatcomplies with ILO Convention 182 concerning theprohibition and immediate action for the eliminationof the worst forms of child labour. Available from:http://www.cocoainitiative.org/wp-content/
uploads/2016/10/Harkin_Engel_Protocol.pdf.
[19 April 2018].

122

For more information, please see: International
Cocoa Initiative. Available from: http://www.
cocoainitiative.org/. [19 April 2018].

123

Business & Human Rights Resource Centre 2015,
Taiwan: 44 companies fined for violating labour
laws. Available from: https://www.businesshumanrights.org/en/taiwan-44-companies-finedfor-violating-labour-laws. [13 June 2019].

124

Australian Government 2018, Modern Slavery Act
2018 No. 153, 2018. Available from: https://www.
legislation.gov.au/Details/C2018A00153.
[13 June 2019].

125

Government of the United Kingdom 2019,
Independent Review of the Modern Slavery Act:
Second interim report: Transparency in supply
chains. Available from: https://assets.publishing.
service.gov.uk/government/uploads/system/
uploads/attachment_data/file/796500/FINAL_
Independent_MSA_Review_Interim_Report_2_-_
TISC.pdf. [13 June 2019].

126

Government of the United Kingdom 2019,
Independent Review of the Modern Slavery Act:
Second interim report: Transparency in supply
chains. Available from: https://assets.publishing.
service.gov.uk/government/uploads/system/
uploads/attachment_data/file/796500/FINAL_
Independent_MSA_Review_Interim_Report_2_-_
TISC.pdf. [13 June 2019].

127

Guilbert, K 2019, ‘UK urged to ‘lead by example’ onslavery as top state suppliers flout law’, Reuters,
20 May. Available from: https://www.reuters.com/
article/us-britain-slavery-government/uk-urgedto-lead-by-example-on-slavery-as-top-statesuppliers-flout-law-idUSKCN1SQ10E.
[13 June 2019].

128

Government of the United Kingdom 2019, PM
speech at ILO centenary conference: 11 June 2019.
Available from: https://www.gov.uk/government/
speeches/pm-speech-at-ilo-centenaryconference-11-june-2019. [13 June 2019].

129

Out of 183 countries for 2019 and 181 countries in2018. Iraq and Liechtenstein are included this year
and excluded in 2018.

130

This year, we included information on the Seychelles
in our assessment of government responses for the
first time.

131

172

International Labour Organization & Walk Free
Foundation 2017, Global estimates of modern
slavery: Forced labour and forced marriage.
Available from: https://cdn.minderoo.com.au/
content/uploads/2019/02/06104338/global_
estimates_of_modern_slavery-forced_labour_and_forced_marriage.pdf. [15 May 2019].

132

Pew Research Center 2018, International migrationfrom sub-Saharan Africa has grown dramaticallysince 2010, 28 February. Available from: http://
www.pewresearch.org/facttank/2018/02/28/
internationalmigration-from-sub-saharan-africahas-grown-dramatically-since-2010/. [20 May 2019].

133

UN Special Rapporteur on Trafficking in Persons,especially Women and Children, Maria Grazia 2018,
End of visit statement, Nigeria (3-10 September),United Nations Human Rights Office of the HighCommissioner. Available from: https://www.
ohchr.org/en/NewsEvents/Pages/DisplayNews.
aspx?NewsID=23526&LangID=E. [15 May 2019].

134

Government of Ghana 2017, National reportsubmitted in accordance with paragraph 5 of theannex to Human Rights Council resolution 16/21 –Ghana, Human Rights Council Working Group on the
Universal Periodic Review Twenty-eighth session.
Available from: https://documents-dds-ny.un.org/
doc/UNDOC/GEN/G17/248/91/PDF/G1724891.
pdf?OpenElement. [23 May 2019]. IOM Ghana 2017,
Standard Operating Procedures to Combat Human
Trafficking in Ghana with an Emphasis on Child
Trafficking. Available from: https://reliefweb.int/
sites/reliefweb.int/files/resources/sop_ghana_1.pdf.
[23 May 2019].

135

UNODC 2018, Strengthening regional and transregional cooperation in the fight against humantrafficking, United Nations. Available from: https://www.unodc.org/unodc/en/human-trafficking/glo-act/strengthening-regional-and-trans-regionalcooperation-in-the-fight-against-human-trafficking.
html. [24 May 2019].

136

All Survivors project Foundation, 2018, Submission
to the United Nations Committee on Economic,
Social And Cultural Rights 63rd Session, 12 - 29
March 2018. Available from: https://tbinternet.
ohchr.org/Treaties/CESCR/Shared%20Documents/
CAF/INT_CESCR_CSS_CAF_30535_E.pdf. [24 May
2019]. Committee on the Rights of the Child 2017,Concluding observations on the second periodic
report of the Central African Republic, United
Nations. Available from: https://tbinternet.ohchr.
org/_layouts/15/treatybodyexternal/Download.
aspx?symbolno=CRC/C/CAF/CO/2&Lang=En.
[24 May 2019].

137

This refers to those countries with a State Fragility
Index score of 20 or higher (out of a score of 25).
For more information, please see: Marshall, MG& Elzinga-Marshall, G 2017, Global Report 2017:
Conflict, Governance, and State Fragility, Center
for Systemic Peace. Available from: http://www.
systemicpeace.org/vlibrary/GlobalReport2017.pdf.
[16 May 2019].

138

Due to the ongoing conflict and extreme disruption
to government functioning, South Sudan was
excluded from the government responses
assessment this year.

139

Marshall, MG & Elzinga-Marshall, G 2017, Global
Report 2017: Conflict, Governance, and State
Fragility, Center for Systemic Peace. Available
from: http://www.systemicpeace.org/vlibrary/
GlobalReport2017.pdf. [16 May 2019].

140

UNHCR 2019, ‘Attacks in Congo’s North Kivu
province push tens of thousands to flee – UNHCR,’UNHCR, 3 May. Available from: https://www.unhcr.
org/news/briefing/2019/5/5ccbf72f4/attackscongos-north-kivu-province-push-tens-thousandsflee-unhcr.html. [15 May 2019].

Measurement, Action, Freedom

10 Appendix 4: Endnotes

141

UK Home Office 2017, 2018 UK Annual Report onModern Slavery, Government of the United Kingdom.
Available from: https://assets.publishing.service.
gov.uk/government/uploads/system/uploads/
attachment_data/file/749346/2018_UK_Annual_
Report_on_Modern_Slavery.pdf. [22 May 2018].

142

National Agency for the Prohibition of Trafficking
in Person (NAPTIP) 2017, NAPTIP Operatives To
Work At Heathrow, Gatwick Airports, Government of
Nigeria, 8 August. Available from: https://www.naptip.
gov.ng/?p=1263. [22 May 2019]. National Agency
for the Prohibition of Trafficking in Person (NAPTIP)
2017, British Government Pledges More Support
To NAPTIP, Government of Nigeria. Available from:https://www.naptip.gov.ng/?p=1275. [11 May 2018].

143

144

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State, pp. 296-299.
Available from: https://www.state.gov/wp-content/
uploads/2019/02/282802.pdf. [21 May 2019].

145

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State, pp. 420-422.
Available from: https://www.state.gov/wp-content/
uploads/2019/02/282804.pdf. [21 May 2019].

146

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State, pp. 166-168.
Available from: https://www.state.gov/wp-content/
uploads/2019/02/282801.pdf. [21 May 2019].

147

Committee on the Elimination of Discrimination
against Women 2019, Sixth periodic reportsubmitted by Zimbabwe under article 18 of
the Convention, due in 2016, United Nations.
Available from: https://tbinternet.ohchr.
org/_layouts/15/treatybodyexternal/Download.
aspx?symbolno=CEDAW%2fC%2fZWE%2f6&Lang=en. [16 May 2019].

148

Kagumire, R 2018, Stranded in the Middle East:
Uganda Must Do More to Prevent Trafficking,Heinrich Böll Stiftung. Available from: https://za.boell.org/2018/10/10/stranded-middle-eastuganda-must-do-more-prevent-trafficking. [21 May
2019]. Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State, pp. 431-434.
Available from: https://www.state.gov/wp-content/
uploads/2019/02/282804.pdf. [15 May 2019]. Field
source.

149

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State, pp. 98-100.
Available from: https://www.state.gov/wp-content/
uploads/2019/02/282800.pdf. [15 May 2019].

150

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State, pp. 314-315.
Available from: https://www.state.gov/wp-content/
uploads/2019/02/282802.pdf. [21 May 2019].

151

Walk Free

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State, pp. 420-422.
Available from: https://www.state.gov/wp-content/
uploads/2019/02/282804.pdf. [21 May 2019].

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State, pp. 252-255.
Available from: https://www.state.gov/wp-content/
uploads/2019/02/282802.pdf. [15 May 2019].

152

These forms of modern slavery are defined as humantrafficking, slavery, forced labour, forced marriage,
buying and selling of children for commercial sexual
exploitation or use of children in armed conflict, in linewith international conventions.

153

Office of the prime Minister of Namibia 2018,
Combating of Trafficking in Persons Act, Government
Gazette of the Republic of Namibia. Available from:https://laws.parliament.na/cms_documents/65626e2f613897.pdf. [11 June 2019].

154

Government of Chad 2017, Tchad Code Pénal 2017,
Droit Afrique. Available from: https://www.droitafrique.com/uploads/Tchad-Code-penal-2017.pdf.
[22 May 2019].

155

Girls not Brides n.d., Child Marriage Atlas - Top 20
countries with the highest prevalence rates of childmarriage. Available from: https://www.girlsnotbrides.
org/where-does-it-happen/atlas/#/. [15 May 2019].

156

Anti-Slavery International 2019, Niger: “fifth wife”
slavery practice outlawed, 15 March. Available
from: https://www.antislavery.org/niger-fifth-wifeoutlawed/. [16 May 2019].

157

Tostan 2018, Empowerment of women and girls.
Available from: https://www.tostan.org/areasof-impact/cross-cutting-gender-social-norms/
empowerment-women-girls/. [21 May 2019].
See also: https://www.tostan.org/resources/
evaluations-research/ for details of evaluations
conducted of the Tostan program. More details oneach of these programs can be found in: Bryant,
K & Joudo, B 2017, Promising Practices: What
Works? A review of interventions to combat modern
day slavery, Walk Free Foundation. Available
from: https://cdn.minderoo.com.au/content/
uploads/2019/02/05180522/Promising-Practices180213-p.pdf. [22 May 2019].

158

United Nations Secretary-General 2018, Children
and armed conflict: Report of the SecretaryGeneral, United Nations, General Assembly
Security Council, 16 May, p. 2. Available from:https://www.un.org/ga/search/view_doc.
asp?symbol=S/2018/465&Lang=E&Area=UNDOC.
[15 May 2019].

159

Government of Djibouti 2006, Loi no. 133, Code dutravail, Droit Afrique. Available from: http://droitafrique.com/upload/doc/djibouti/Djibouti-Code2006-du-travail.pdf. [22 May 2019].

160

Republic of Djibouti 2007, Loi no. 210, International
Labour Organization. Available from: https://www.
ilo.org/dyn/natlex/docs/ELECTRONIC/78011/83115/
F1796762662/DJI-78011.pdf. [22 May 2019].

161

Institute for Human Rights and Development in Africa(IHRDA) 2018, Statement by IHRDA on the increasingrate of child trafficking in Cameroon and many other
African countries at the 31st Ordinary Session of
the ACERWC, Bamako, Mali. Available from: https://www.ihrda.org/2018/04/statement-by-ihrda-on-theincreasing-rate-of-child-trafficking-in-cameroonand-many-other-african-countries-at-the-31stordinary-session-of-the-acerwc-bamako-mali/.
[22 May 2019].

162

United Nations Special Rapporteur on Trafficking
in Persons, especially Women and Children, Maria
Grazia Giammarinaro, 2018, End of visit statement,
Nigeria (3-10 September), United Nations Human
Rights Office of the High Commissioner. Available
from: https://www.ohchr.org/en/NewsEvents/Pages/
DisplayNews.aspx?NewsID=23526&LangID=E.
[16 May 2019].

173

10 Appendix 4: Endnotes

163

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State, pp. 299-301.
Available from: https://www.state.gov/wp-content/
uploads/2019/02/282802.pdf. [15 May 2019].

164

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State, pp. 123-124.
Available from: https://www.state.gov/wp-content/
uploads/2019/02/282800.pdf. 15 May 2019].

165

166

167

168

169

170

171

174

UNODC 2017, Malawi launches National Plan of
Action against Trafficking in Persons. Available
from: https://www.unodc.org/documents/
southernafrica//Stories/Webstory_on_the_
National_Plan_of_Action_against_Trafficking_in_
Persons_ZA.pdf. [22 May 2019].
See for example: Demissie, F 2018, ‘Ethiopian
female domestic workers in the Middle East andGulf States: an introduction’, African and Black
Diaspora: An International Journal, vol. 11, no. 2, pp
1-5. Available from: https://www.tandfonline.com/
doi/full/10.1080/17528631.2017.1405518. [22 May
2019]. Amnesty International 2019, ‘Their house
is my prison’: Exploitation of migrant domestic
workers in Lebanon. Available from: https://www.
amnesty.org/en/documents/mde18/0022/2019/
en/. [22 May 2019]. McCormack, S, Joudo Larsen,
J & Abdl Husn, H 2015, The Other Migrant Crisis:
Protecting Migrant Workers against Exploitationin the Middle East and North Africa, International
Organization for Migration and Walk Free
Foundation. Available from: https://publications.
iom.int/system/files/pdf/other_migrant_crisis.pdf.
[22 May 2019].
Webster, N & Zacharias, A 2018, UAE agreementwith Ethiopia will further protect rights of domestic
workers, The National UAE. Available from: https://www.thenational.ae/uae/uae-agreement-withethiopia-will-further-protect-rights-of-domesticworkers-1.759812. [16 May 2019].
Ministry of Labor and Social Development 2017,
Saudi minister of labor and social development, his
Ethiopian counterpart sign a bilateral agreement
to recruit well-trained and medically fit domestic
workers, Government of Kingdom of Saudi Arabia.
Available from: https://sd.mlsd.gov.sa/en/news/saudi-minister-labor-and-social-development-hisethiopian-counterpart-sign-bilateral-agreement.
[16 May 2019].
International Labour Organization Committee ofExperts 2019, Direct Request (CEACR) - adopted
2018, published 108th ILC session (2019): Labour
Inspection Convention, 1947 (No. 81) - Sierra
Leone (Ratification: 1961), International Labour
Organization. Available from: https://www.ilo.org/
dyn/normlex/en/f?p=NORMLEXPUB:13100:0::
NO::P13100_COMMENT_ID,P11110_COUNTRY_
ID,P11110_COUNTRY_NAME,P11110_COMMENT_YEAR:3960852,103269,Sierra%20Leone,2018.
[21 May 2019].
United Nations High Commissioner for Human
Rights 2018, Compilation on Cabo Verde - Report of
the Office of the United Nations High Commissioner
for Human Rights, Human Rights Council Working
Group on the Universal Periodic Review, Thirtiethsession, pp. 7-8. Available from: https://documentsdds-ny.un.org/doc/UNDOC/GEN/G18/055/37/PDF/
G1805537.pdf?OpenElement. [21 May 2019].
Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State, pp. 299-301.
Available from: https://www.state.gov/wp-content/
uploads/2019/02/282802.pdf. [15 May 2019].

172

International Labour Organization 2018, Ending
forced labour by 2030: A review of policies andprogrammes. Available from: https://www.ilo.
org/wcmsp5/groups/public/---ed_norm/---ipec/
documents/publication/wcms_653986.pdf.
[13 May 2019].

173

International Labour Organization 2014, Profitsand poverty; The economics of forced labour,
International Labour Office, p. 44. Available from:https://www.ilo.org/wcmsp5/groups/public/--ed_norm/---declaration/documents/publication/
wcms_243391.pdf. [14 May 2019].

174

International Labour Organization & Walk Free
Foundation 2017, Global estimates of modern
slavery: Forced labour and forced marriage.
Available from: https://cdn.minderoo.com.au/
content/uploads/2019/02/06104338/global_
estimates_of_modern_slavery-forced_labour_and_forced_marriage.pdf. [15 May 2019].

175

Hawksley, H 2011, ‘Ivory Coast cocoa farms childlabour: Little change’, BBC News, 10 November.
Available from: http://www.bbc.com/news/worldafrica-15681986. [23 March 2018].

176

Chocolate Manufacturers Association 2001,
Protocol for the growing and processing of cocoa
beans and their derivative products in a manner thatcomplies with ILO Convention 182 concerning theprohibition and immediate action for the eliminationof the worst forms of child labour. Available from:http://www.cocoainitiative.org/wp-content/
uploads/2016/10/Harkin_Engel_Protocol.pdf.
[19 April 2018].

177

For more information, please see: International
Cocoa Initiative. Available from: http://www.
cocoainitiative.org/. [19 April 2018].

178

This year, Antigua and Barbuda, Bahamas, Belize,
Dominica, Grenada, Saint Lucia, Saint Kitts andNevis, and Saint Vincent and the Grenadines areincluded in our government response assessment
for the first time.

179

International Labour Organization & Walk Free
Foundation 2017, Global estimates of modern
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181

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182

Moloney, A 2017, ‘Venezuela crisis forces women
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183

Cara Labrador, R & Merrow, W 2019, The
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189

As above.

190

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193

As above.

194

As above.

195

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204

These forms of modern slavery are defined as humantrafficking, slavery, forced labour, forced marriage,
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205

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209

As above.

210

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211

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United Nations Special Rapporteur on trafficking
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215

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216

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217

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218

As above.

219

Office of the United States Trade Representative
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220

221

222

176

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224

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226

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227

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228

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229

As above.

230

As above.

231

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232

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233

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234

Walk Free Foundation 2018, Global Slavery Index
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235

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236

Walk Free Foundation 2013, Response to 6 Month
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Measurement, Action, Freedom

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237

Federal Register 1999, Executive Order 13126 ofJune 12, 1999 – Prohibition of Acquisition of Products
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238

This year, Iraq was added to our assessment ofgovernment responses.

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248

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239

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240

International Labour Organization & Walk Free
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249

Human Rights Council 2018, National reportsubmitted in accordance with paragraph 15 (a) of
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241

The current Global Estimates of Modern Slavery do
not cover all forms of modern slavery; forms such as
trafficking for the purposes of organ removal, childsoldiers, or child marriage cannot be adequately
measured at this stage. In the Arab States region,
efforts to produce accurate estimates of modern
slavery were hampered by substantial gaps in theavailable data, which include lack of data fromcountries in conflict, on forced marriage, and on
forced labour experiences of migrant workers in theregion. It is typically not possible to survey in countries
that are experiencing profound and current conflict,such as Syria, Iraq, and Yemen, and data from thesestates are likely to understate the problem. Of the twonational surveys conducted in the region, none was ina GCC country, they were conducted only in Arabic(which most migrants in the region do not speak), andthey did not capture people in work or refugee camps.
Taken together, these gaps point to a significant
underestimate of the extent of modern slavery inthis region. See International Labour Organization& Walk Free Foundation 2017, Global estimates ofmodern slavery: Forced labour and forced marriage.
Available from: https://cdn.minderoo.com.au/content/
uploads/2019/02/06104338/global_estimates_of_modern_slavery-forced_labour_and_forced_marriage.
pdf. [15 May 2019] for more details.

250

Based on a year on year comparison of responses withregard to Milestone 1: Laws, policies and programs
address attitudes, social systems, and institutions
that create vulnerability and enable slavery, Bahrain,
Kuwait, Oman, Qatar, Saudi Arabia, and the United
Arab Emirates have increased their score.

251

United Nations 2018, List of issues in relation to
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252

Office to Monitor and Combat Trafficking in
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253

Office to Monitor and Combat Trafficking in
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254

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255

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256

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257

As above.

258

These forms of modern slavery are defined as humantrafficking, slavery, forced labour, forced marriage,
buying and selling of children for commercial sexual
exploitation, or use of children in armed conflict, inline with relevant international conventions.

242

243

International Labour Organization & Walk Free
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244

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245

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246

Walk Free

247

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177

10 Appendix 4: Endnotes

259

269

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270

Ministry of Social Development 2014, Royal DecreeNo, 22/2014 Promulgating the Child Law, Official
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271

The State of Kuwait 2013, Law No. 91 of 2013 on
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272

Office to Monitor and Combat Trafficking in
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273

Office to Monitor and Combat Trafficking in
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274

Office to Monitor and Combat Trafficking in
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275

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276

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277

As noted in the Kurdistan region of Iraq, in https://iraq.unfpa.org/sites/default/files/pub-pdf/Child%20
Marriage%20Broucher%20English%20Final%20
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Office to Monitor and Combat Trafficking in
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278

265

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Office to Monitor and Combat Trafficking in
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279

266

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267

UNICEF, UNFPA, Women’s Refugee Commission,
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McCormack, S, Joudo Larsen, J & Abul Husn, H
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280

Fair Work 2018, The Kafala System Explained.
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281

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282‘Qatar abolishes controversial ‘kafala’ labour
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260

261

262

263

264

268

178

Government of Iraq 2012, Law No. 28 of 2012
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[16 June 2019]. .
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evaluations-research/ for details of evaluations
conducted of the Tostan program. More details oneach of these programs can be found in: Bryant,
K & Joudo, B 2017, Promising Practices: What
Works? A review of interventions to combat modern
day slavery, Walk Free Foundation. Available
from: https://cdn.minderoo.com.au/content/
uploads/2019/02/05180522/Promising-Practices180213-p.pdf. [22 May 2019].
Otten, C 2017, ‘Slaves of Isis: the long walk of the
Yazidi women’, the Guardian, 25 July. Available from:https://www.theguardian.com/world/2017/jul/25/
slaves-of-isis-the-long-walk-of-the-yazidi-women.
[17 June 2019].
UNICEF, UNFPA, Women’s Refugee Commission,
Terre des Hommes, University of Bedfordshire& CARE International 2018, Child marriage inhumanitarian settings: Spotlight on the situationin the Arab region, UNICEF, p. 4. Available
from: https://www.unicef.org/mena/sites/
unicef.org.mena/files/2018-08/CM%20in%20
humanitarian%20settings%20MENA.pdf.
[14 June 2019].

United Nations Secretary-General 2018, Children
and armed conflict: Report of the SecretaryGeneral, United Nations, General Assembly
Security Council, 16 May, p. 2. Available from:https://www.un.org/ga/search/view_doc.
asp?symbol=S/2018/465&Lang=E&Area=UNDOC.
[15 May 2019].

Measurement, Action, Freedom

10 Appendix 4: Endnotes

283

Ghani, F 2018, ‘Qatar lifts exit permit system for
migrant workers’, Al Jazeera. Available from: https://www.aljazeera.com/news/2018/09/qatar-lifts-exitpermit-systemmigrants-workers-180905092910224.
html. [6 September 2018].

284

Human Rights Watch 2018, ‘Qatar: End All MigrantWorker Exit Visas’, Human Rights Watch. Available
from: https://www.hrw.org/news/2018/09/06/qatarend-all-migrant-worker-exit-visas. [7 June 2019].

285

Younes, A 2017, ‘Qatar approves new law to protect
domestic staff’, Al Jazeera.

286

Human Rights Watch 2018, ‘Domestic Workers’ Rights
in Qatar’, June 26, Human Rights Watch. Available
from: https://www.hrw.org/news/2018/06/26/
domestic-workers-rights-qatar. [12 June 2019].

Asylum Insight 2017, Source Countries in the AsiaPacific Region, Asylum Insight. Available from: https://www.asyluminsight.com/countries-of-origin-asiapacific#.XPm7CIgzY2w. [07 June 2019].

299

Kolstad, K 2018, ‘Cox’s Bazar: The world’s largest
refugee settlement,’ Norwegian Refugee Council,
24 August. Available from: https://www.nrc.no/news/2018/august/coxs-bazar-the-worlds-largestrefugee-settlement/. [31 May 2019]. UNHCR 2018,
Global Trends: Forced Displacement in 2017, Geneva.
Available from: https://www.unhcr.org/en-au/
statistics/unhcrstats/5b27be547/unhcr-globaltrends-2017.html. [31 May 2019].

300

Walk Free Foundation 2018, The Global Slavery Index
2018. Available from: https://www.globalslaveryindex.
org/resources/downloads/#gsi-2018 [11 June 2019].

287‘Qatar sets $200 minimum wage for migrant workers’
2017, New Arab, 16 November. Available from: https://www.alaraby.co.uk/english/News/2017/11/16/Qatarsets-200-minimum-wage-for-migrant-workers. [15June 2019].

301

National Assembly Secretariat 2018, An Act toprevent and combat trafficking in persons especiallywomen and children, The Gazette of Pakistan.
Available from: http://www.senate.gov.pk/uploads/
documents/1533270017_228.pdf. [14 June 2019].

288

Migrant-Rights Organisation 2018, One year sincelaunch: Has Bahrain’s Flexi-Permit lived up to its
hype? Available from: https://www.migrant-rights.
org/2018/08/one-year-since-launch-has-bahrainsflexi-permit-lived-up-to-its-hype/. [7 June 2019].

302

289

What’s in Blue 2016, Council visiting mission: Meetingwith the League of Arab States in Cairo, What’sin Blue. Available from: http://www. whatsinblue.
org/2016/05/council-visiting-mission-meeting-withtheleague-of-arab-states-in-cairo.php#.
[15 February 2018].

UNODC 2018, Rolling out nation-wide Public
Awareness Campaign against Trafficking in Persons
and Smuggling of Migrants (TIP and SOM). Available
from: https://www.unodc.org/pakistan/en/rolling-outnation-wide-public-awareness-campaign-againsttrafficking-in-persons-and-smuggling-of-migrantstip-and-som.html. [11 June 2019].

303

Xinhua Net 2017, Sri Lanka, Australia sign agreement
to counter human trafficking, Xinhua Net. Available
from: http://www.xinhuanet.com/english/201709/08/c_136593161.htm. [11 June 2019].

304

Steering Committee to Tackle Trafficking in Persons
and to Enhance Protection of FDHs 2018, Action
Plan to Tackle Trafficking in Persons and to EnhanceProtection of Foreign Domestic Helpers in Hong Kong.
Available from: https://www.sb.gov.hk/eng/special/
pdfs/Action%20Plan%20to%20Tackle%20TIP%20
and%20to%20Protection%20FDHs.pdf.
[11 June 2019].

305

Office to Monitor and Combat Trafficking in Persons
2018, Trafficking in Persons Report 2018, UnitedStates Department of State. Available from: https://www.state.gov/reports/2018-trafficking-in-personsreport/malaysia/. [11 June 2019].

306

Office to Monitor and Combat Trafficking in Persons
2018, Trafficking in Persons Report 2018, UnitedStates Department of State. Available from: https://www.state.gov/reports/2018-trafficking-in-personsreport/indonesia/. [11 June 2019].

307

Australian Government 2018, Modern Slavery Act
2018. Available from: https://www.legislation.gov.au/
Details/C2018A00153. [31 May 2019].

308

Office to Monitor and Combat Trafficking in Persons
2018, Trafficking in Persons Report 2018, UnitedStates Department of State. Available from: https://www.state.gov/wp-content/uploads/2019/01/282798.
pdf. [June 2019].

309

The National Anti-Corruption Commission (ONACC)
2018, Organic Act on Anti-Corruption B.E. 2561 (2018),
The National Anti-Corruption Commission. Available
from: https://www.nacc.go.th/download/article/
article_20190401140617.pdf. [07 June 2019].

310‘NACC ready to investigate the tea money forschool admissions’ 2019, The National AntiCorruption Commission, 11 April. Available
from: https://www.nacc.go.th/ewt_news.
php?nid=23665&filename=index. [07 June 2019].

290

UNICEF 2014, A study on early marriage in Jordan
2014, UNICEF, p. 8. Available from: https://www.unicef.
org/mena/UNICEFJordan_EarlyMarriageStudy2014.
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291

International Labour Organization & Walk Free
Foundation 2017, Global estimates of modern
slavery: Forced labour and forced marriage, p. 37.
Available from: https://cdn.minderoo.com.au/content/
uploads/2019/02/06104338/global_estimates_of_modern_slavery-forced_labour_and_forced_marriage.
pdf. [15 May 2019].

292

293

294

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State, p. 260-263.
Available from: https://www.state.gov/documents/organization/282802.pdf. [23 February 2019].
This year, we have included information on Fiji,
Kiribati, Nauru, Palau, Samoa, Solomon Islands, Tonga,
Tuvalu, and Vanuatu in our assessment of government
responses for the first time.
International Labour Organization & Walk Free
Foundation 2017, Global estimates of modern slavery:
Forced labour and forced marriage. Available
from: https://cdn.minderoo.com.au/content/
uploads/2019/02/06104338/global_estimates_of_modern_slavery-forced_labour_and_forced_marriage.
pdf. [15 May 2019].

295

As above.

296International Labour Organization & Walk Free
Foundation 2017, Methodology: Global Estimates ofModern Slavery: Forced Labour and Forced Marriage,
ILO, p.78. Available from: http://www.ilo.org/wcmsp5/
groups/public/---ed_norm/---ipec/documents/
publication/wcms_586127. pdf. [31 January 2018].

297

Walk Free

298

UNHCR 2017, Global Report 2017. Regional
Summaries: Asia Pacific. Available from: http://
reporting.unhcr.org/sites/default/files/gr2017/pdf/05_
Asia.pdf. [10 June 2019].

179

10 Appendix 4: Endnotes

311

New Zealand Legislation 2018, Family Violence(Amendments) Act 2018, Parliamentary Counsel
Office. Available from: http://www.legislation.
govt.nz/act/public/2018/0047/latest/whole.
html#LMS113486. [07 June 2019].

312

Breuker, R & van Gardingen, I 2018, Pervasive,
Punitive and Predetermined. Understanding
modern slavery inside North Korea. Available from:https://www.globalslaveryindex.org/resources/
downloads/#north-korea-report. [11 June 2019].

313

UNHCR 2017, Global Report. Regional Summaries:
Asia and the Pacific. Available from: http://
reporting.unhcr.org/sites/default/files/gr2017/
pdf/05_Asia.pdf. [11 June 2019].

314

Dornan, M & Pryke, J 2017, ‘Foreign Aid to the
Pacific: Trends and Developments in the TwentyFirst Century’, Asia and the Pacific Policy Studies,
4(3): 386 – 404. Available from: https://onlinelibrary.
wiley.com/doi/pdf/10.1002/app5.185. [11 June 2019].

315

Commonwealth of Australia 2016, Trafficking in
Persons. The Australian Government Response. 1
July 2015 – 30 June 2016. Available from: https://www.homeaffairs.gov.au/criminal-justice/files/
report-anti-people-trafficking-interdepartmentalcommittee-july-2015-june-2016.pdf. [10 June 2019].

316

317

180

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State. Available
from: https://www.state.gov/j/tip/rls/tiprpt/countries/2018/282725.htm. [30 January 2019].
Special Representation and Co-ordinator for
Combating Trafficking in Human Beings 2018,
Report by OSCE Special Representative andCo-ordinator for Combating Trafficking in Human
Beings, Madina Jarbussynova, following her official
visit to Mongolia, Organization for Security and Cooperation in Europe. Available from: https://www.
osce.org/secretariat/385437?download=true.
[23 January 2019].

321

Tuvalu Legislation 2009, Counter Terrorism
and Transnational Organised Crime Act
2009, Tuvalu Legislation. Available from:http://tuvalu-legislation.tv/cms/images/
LEGISLATION/PRINCIPAL/2009/2009-0006/
CounterTerrorismandTransnationalOrganised
CrimeAct2009_1.pdf. [20 February 2019]. Crimes
Decree 2009 (No. 44 of 2009), Republic of Fiji
Islands Government Gazette, 2009-11-05, Vol. 10,
No. 95, pp. 1021-1147. Available from: https://www.
ilo.org/dyn/natlex/Natlex4.detail?p_lang=en&p_
isn=86223&p_country=FJI&p_count=296.
[12 June 2019].

322

National People’s Congress 2012, Criminal
Procedure Law of the People’s Republic of China,
National People’s Congress. Available from: https://www.cecc.gov/resources/legal-provisions/criminalprocedure-law-of-the-peoples-republic-of-china.
[08 March 2019].

323

New Zealand Legislation 2018, Family Violence(Amendments) Act 2018, Parliamentary Counsel
Office. Available from: http://www.legislation.
govt.nz/act/public/2018/0047/latest/whole.
html#LMS113486. [07 June 2019].

324

Office to Combat and Monitor Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State. Available
from: https://www.state.gov/j/tip/rls/tiprpt/countries/2018/282764.htm. [12 March 2019].

325

Office to Combat and Monitor Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State. Available
from: https://www.state.gov/documents/organization/282798.pdf. [22 February 2019].

326

Ministry of Social Development and Human Security
2018, Thailand’s Country Report on Anti-Human
Trafficking Response (1 January-31 December2017). Available from: https://www.jica.go.jp/project/
thailand/016/materials/ku57pq00001yw2db-att/
thailands_country_report_2017.pdf. (11 June 2019).

318

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State. Available from:https://www.state.gov/reports/2018-trafficking-inpersons-report/papua-new-guinea/. [12 June 2019].

327

Office to Combat and Monitor Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State. Available
from: https://www.state.gov/j/tip/rls/tiprpt/countries/2018/282717.htm. [31 January 2019].

319

These forms of modern slavery are definedas human trafficking, slavery, forced labour,
forced marriage, buying and selling of children
for commercial sexual exploitation, or use ofchildren in armed conflict, in line with international
conventions.

328

320

Pabreja, H & Sharama, A 2019, ‘The Indian AntiTrafficking Bill, 2018: A Misguided Attempt to
Resolve the Human Trafficking Crisis in India’,Oxford Human Rights Hub, 15 January. Available
from: https://ohrh.law.ox.ac.uk/the-indian-antitrafficking-bill-2018-a-misguided-attempt-toresolve-the-human-trafficking-crisis-in-india/.
Kotiswaran, P & Quirk, J 2018, ‘The devil in thedetails: India’s anti-trafficking bill’, Thomson Reuters
Foundation News, 18 December 2018. Available
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EAS Statement on Cooperation in Poverty
Alleviation, 2017, proposed by China, and theStatement on Migrants in Crisis and Trafficking in
Persons, 2016, proposed by the United States andco-sponsored by Myanmar and the Philippines.
Australian Government Department of Foreign
Affairs and Trade n.d., East Asia Summit (EAS),
Australian Government. Available from: http://
dfat.gov.au/international-relations/regionalarchitecture/eas/pages/east-asia-summit-eas.aspx.
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329

Pacific Islands Forum Secretariat n.d., About Us,
Available from: http://www.forumsec.org/pages.
cfm/about-us/. [7 February 2018].

330

Pacific Islands Forum Secretariat 2016, FortySeventh Pacific Island Forum Communique.
Available from: http://www.forumsec.org/
resources/uploads/embeds/file/2016_Forum_
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331

ILO, IOM, UNHCR & UNODC.

332

Bali Process Government and Business
Forum 2018, The Acknowledge, Act, Advance
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Measurement, Action, Freedom

10 Appendix 4: Endnotes

333

Australian Government 2018, Pacific Labour Mobility,
Department of Foreign Affairs and Trade. Available
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pacific-labour-mobility/Pages/default.aspx. [04 June2019].

346

Hoffman, R 2017, New Grading System for LabourProtection in China, Ecovis Beijing. Available
from: http://www.ecovis-beijing.com/en/blog-en/
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334

Office to Combat and Monitor Trafficking in
Persons 2016, Trafficking in Persons Report 2016,
United States Department of State, pp. 110-112.
Available from: https://www.state.gov/j/tip/rls/tiprpt/countries/2018/282620.htm. [29 January 2018].

347

This year, for the first time, we included Malta and
Liechtenstein in our assessment of government
responses.

348International Labour Organization & Walk Free
Foundation 2017, Global estimates of modern slavery:
Forced labour and forced marriage. Available
from: https://cdn.minderoo.com.au/content/
uploads/2019/02/06104338/global_estimates_of_modern_slavery-forced_labour_and_forced_marriage.
pdf. [15 May 2019].

349

International Labour Organization & Walk Free
Foundation 2017, Global estimates of modern slavery:
Forced labour and forced marriage. Available
from: https://cdn.minderoo.com.au/content/
uploads/2019/02/06104338/global_estimates_of_modern_slavery-forced_labour_and_forced_marriage.
pdf. [15 May 2019].

350

IOM 2017, Flow Monitoring Surveys: The Human
Trafficking and Other Exploitative Practices Indication
Survey Analysis on Adult and Children on the
Mediterranean Routes Compared September 2017.
Available from: https://www.iom.int/sites/default/
files/dtm/Analysis_Flow_Monitoring_and_Human_
Trafficking_Surveys_in_the_Mediterranean_and_
Beyond_adults_children.pdf. [14 June 2019].

351

International Labour Organization 2018, Observation(CEACR) - adopted 2017, published 107th ILC
session (2018). Available from: https://www.ilo.
org/dyn/normlex/en/f?p=1000:13100:0::NO:13
100:P13100_COMMENT_ID,P11110_COUNTRY_
ID,P11110_COUNTRY_NAME,P11110_COMMENT_YEAR:3333039,103154,Belarus,2017. [11 June 2019].

352

Uzbek-German Forum 2018, We pick cotton
out of fear: systematic forced labor and theaccountability gap in Uzbekistan. Available from:http://uzbekgermanforum.org/wp-content/
uploads/2018/05/We_pick_cotton_out_of_fear.pdf.
[14 June 2019].

353

Government of the United Kingdom 2018, 2018 UK
Annual Report on Modern Slavery. Available from:https://assets.publishing.service.gov.uk/government/
uploads/system/uploads/attachment_data/
file/749346/2018_UK_Annual_Report_on_Modern_
Slavery.pdf. [14 June 2019].

354‘Forced marriage: Mum guilty of making daughter
wed older man’ 2018, BBC News, 22 May. Available
from: https://www.bbc.com/news/uk-englandbirmingham-44211541. [14 June 2019]. Morris, J &Anderson, L 2018, First Forced Marriage Conviction,
Charter Chambers. Available from: https://www.
charterchambers.com/opinion/first-forced-marriageconviction/. [14 June 2019].

355

Most recent data available. Available from: https://rm.coe.int/greta-2018-19-fgr-nld-en/16808e70ca.

356

https://www.nationaalrapporteur.nl/Publicaties/
Dadermonitor-mensenhandel-2013-2017/
dadermonitor-mensenhandel-2013-2017.aspx

357

Group of Experts on Action Against Trafficking in
Human Beings (GRETA) 2018, Report Concerning the
Implementation of the Council of Europe Convention
on Action against Trafficking in Human Beings in
Sweden, Council of Europe. Available from: https://rm.coe.int/greta-2018-8-fgr-swe-en/16808b1cd7. [12June 2019].

335

International Labour Organization 2018, More than 60
per cent of the world’s employed population are in theinformal economy, International Labour Organization.
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336

Office to Combat and Monitor Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State, pp. 257-258.
Available from: https://www.state.gov/documents/organization/282802.pdf. [06 March 2019].

337

Office to Combat and Monitor Trafficking in
Persons 2016, Trafficking in Persons Report 2018,
United States Department of State, pp. 110-112.
Available from: https://www.state.gov/j/tip/rls/tiprpt/countries/2018/282620.htm. [29 January 2018].

338

339

340

International Labour Organization Committee ofExperts 2017, Observation (CEACR) - adopted
2016, published 106th ILC session (2017), Forced
Labour Convention, 1930 (No. 29) - Viet Nam(Ratification: 2007). Available from: https://www.
ilo.org/dyn/normlex/en/f?p=1000:13100:0::NO:1
3100:P13100_COMMENT_ID,P11110_COUNTRY_
ID,P11110_COUNTRY_NAME,P11110_COMMENT_YEAR:3296204,103004,Viet%20Nam,2016. [11 June2019].
Buckley, C and Ramzy, A 2018, ‘China’s Detention
Camps for Muslims Turn to Forced Labor’, The New
York Times, 16 December. Available from: https://www.nytimes.com/2018/12/16/world/asia/xinjiangchina-forced-labor-camps-uighurs.html.
[10 June 2019].

341

Department of Home Affairs, Operation Sovereign
Borders, Australian Government. Available from:https://osb.homeaffairs.gov.au/home. [07 June 2019].

342

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
United States Department of State, pp. 350-351.
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343

Field source.

344

Liechtenstein Initiative 2019, About the Commission,
Liechtenstein Initiative. Available from: https://www.
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345

Walk Free

International Labour Organization Committee ofExperts 2017, Direct Request (CEACR) - adopted
2016, published 106th ILC session (2017), Abolition ofForced Labour Convention, 1957 (No. 105) - Mongolia(Ratification: 2005). Available from: https://www.
ilo.org/dyn/normlex/en/f?p=NORMLEXPUB:13100:0::NO::P13100_COMMENT_ID,P11110_COUNTRY_
ID,P11110_COUNTRY_NAME,P11110_COMMENT_YEAR:3279436,103142,Mongolia,2016. [11 June 2019].

2013, ‘Employer’s violation of Labor Law is the biggest
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181

10 Appendix 4: Endnotes

358

359

360

NORMLEX n.d., Ratifications of P029 - Protocolof 2014 to the Forced Labour Convention, 1930,
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MLEXPUB:11300:0::NO::P11300_INSTRUMENT_
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Group of Experts on Action Against Trafficking in
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361

Office to Monitor and Combat Trafficking in
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362

All reports can be accessed at: http://anitp.mai.gov.
ro/category/cercetare/rapoarte-anuale/.

363

United Nations Office on Drugs and Crime (UNODC)
and Walk Free Foundation 2016, Monitoring Target
16.2 of the United Nations Sustainable Development
Goals: multiple systems estimation of the numbersof presumed victims of trafficking in persons –Romania, UNODC. Available from: https://www.
unodc.org/documents/data-and-analysis/glotip/
MSE_Research_Brief_Romania.pdf. [14 June 2019].

364

365

366

367

182

Group of Experts on Action Against Trafficking in
Human Beings (GRETA) 2016, Report concerning
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Office to Monitor and Combat Trafficking in
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International Labour Organization 2017, Direct
Request (CEACR) - adopted 2016, published 106th
ILC session (2017): Forced Labour Convention, 1930
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368

Unseen 2017, Modern Slavery Helpline: Annual
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369

European Commission 2018, Data collection on
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Union. Available from: https://ec.europa.eu/homeaffairs/sites/homeaffairs/files/what-we-do/policies/
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370

Group of Experts on Action against Trafficking
in Human Beings 2017, Report concerning
the implementation of the Council of Europe
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371

Committee on the Elimination of Discrimination
against Women 2018, Fifth periodic reportsubmitted by Kazakhstan under article 18 of theConvention, due in 2018, United Nations. Available
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372

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
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373

Office to Monitor and Combat Trafficking in
Persons 2018, Trafficking in Persons Report 2018,
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374

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375

Marika McAdam 2016, Needs Assessment: Countertrafficking Response in the Republic of Azerbaijan,
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376

Group of Experts on Action against Trafficking
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377

Group of Experts on Action against Trafficking in
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Measurement, Action, Freedom

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378

379

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380

Kingdom of Spain 2019, Código Penal y legislación
complementaria, Boletín Oficial del Estado. Available
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381

European Judicial Training Network (EJTN) n.d.,Dutch Criminal Code. Available from: http://www.ejtn.
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382

383

384

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International Labour Organization 2016, P029 Protocol of 2014 to the Forced Labour Convention,
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Legislation Online n.d., The General Penal Code1940 No.19,(12 February). Available from: https://www.legislationline.org/download/action/download/
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Group of Experts Against Trafficking in Human
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385

Guilbert, K 2018, ‘Female trafficking victims wrongly
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386

Committee on the Elimination of Discrimination
against Women 2017, Concluding observations on
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387

Group of Experts Against Trafficking in Human Beings
2018, Report concerning the implementation of theCouncil of Europe Convention on Action against
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388

Office to Monitor and Combat Trafficking in Persons
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389

Office to Monitor and Combat Trafficking in Persons
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390

Group of Experts Against Trafficking in Human Beings
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391

Group of Experts Against Trafficking in Human Beings
2017, Report concerning the implementation of theCouncil of Europe Convention on Action against
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392

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393

Group of Experts Against Trafficking in Human Beings
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394

Office to Monitor and Combat Trafficking in Persons
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395

Office to Monitor and Combat Trafficking in Persons
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396

Irish Department of Justice and Equality 2017,
Trafficking in Human Beings in Ireland Annual Report,
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397

Kern, S 2017, ‘Europe’s Migrant Crisis: Millions Still
to Come’, Gatestone Institute: International Policy
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2017, ‘Europe is ‘underestimating’ scale of migrantcrisis and could be flooded by millions of Africans in‘biblical exodus’ unless urgent action is taken says
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[24 June 2019].

398

van Setten, M 2017, ‘Support for restrictive
immigration policies in the European Union 20022013: the impact of economic strain and ethnic threat
for vulnerable economic groups’, European Societies,
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[14 June 2019].

399

European Union Agency For Fundamental Rights
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involved in search and rescue in the Mediterraneanand criminal investigations, European Union. Available
from: https://fra.europa.eu/en/theme/asylummigration-borders/ngos-sar-activities.
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183

10 Appendix 4: Endnotes

400

401

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402

European Union Agency For Fundamental Rights
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403

Human Rights Council 2015, National reportsubmitted in accordance with paragraph 5 of theannex to Human Rights Council resolution 16/21*
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404

405

406

184

Pantaleone, W 2017, ‘Italy seizes NGO rescue boat
for allegedly aiding illegal migration’, Thomson
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International Labour Organization Committee ofExperts 2017, Observation (CEACR) - adopted
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ilo.org/dyn/normlex/en/f?p=1000:13100:0::NO:1
3100:P13100_COMMENT_ID,P11110_COUNTRY_
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[14 June 2019].
European Union 2016, Directive 2014/95/EU of
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EU as regards disclosure of non-financial
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[17 December 2017].
This includes EU listed companies and unlistedcompanies such as banks, insurance companies,
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407

European Commission 2016, Green and Sustainable
Public Procurement, European Union. Available
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408

European Union 2014, Directive 2014/24/EU of
the European Parliament and of the Council of
26 February 2014 on public procurement andrepealing Directive 2004/18/EC, EUR-Lex. Available
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409

European Commission n.d, Directive 2014/24/
EU of the European Parliament and of the Councilof 26 February 2014 on public procurement andrepealing Directive 2004/18/EC Text with EEA
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410

European Commission n.d., National transposition
measures communicated by the Member Statesconcerning: Directive 2014/24/EU of the European
Parliament and of the Council of 26 February 2014
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411

European Commission 2019, Generalised Schemeof Preferences (GSP). Available from: http://
ec.europa.eu/trade/policy/countries-and-regions/development/generalised-scheme-of-preferences/index_en.htm. [16 June 2019].

412

Field, F Rt Hon, Miller, M Rt Hon, & Butler-Sloss,
Baroness Rt Hon 2019, Independent Reviewof the Modern Slavery Act, Second interim
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Review_Interim_Report_2_-_TISC.pdf.
[16 June 2019].

413

As above.

414

May, T 2019, PM Speech at ILO centenary
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[16 June 2019].

415

Aseemblée Nationale Entreprises : devoir devigilance des entreprises donneuses d’ordre.
Available from: http://www.assemblee-nationale.
fr/14/dossiers/devoir_vigilance_entreprises_
donneuses_ordre.asp. [17 December 2017].

416

Fasterling, B 2017, Vigilance or Compliance? On
the New French ‘Vigilance’ Law’, NYU Stern Centre
for Business and Human Rights, 19 June. Available
from: https://bhr.stern.nyu.edu/blogs/frenchvigiliance-law. [28 November 2017].

417

European Coalition of Corporate Justice 2017,
French Corporate Duty Of Vigilance Law, 23
February. Available from: https://businesshumanrights.org/sites/default/files/documents/
French%20Corporate%20Duty%20of%20
Vigilance%20Law%20FAQ.pdf. [17 December 2017].

418

Business & Human Rights Resource Centre 2019,
German Development Ministry drafts law on
mandatory human rights due diligence for German
companies. Available from: https://www.businesshumanrights.org/en/german-development-ministrydrafts-law-on-mandatory-human-rights-duediligence-for-german-companies. [13 June 2019].

419

Littler Mendelson PC 2019, Germany Seeks
to Mandate Human Rights Due Diligence forCompanies and Their Global Partners, Lexology.
Available from: https://www.lexology.com/library/detail.aspx?g=d7707ee0-38fd-4c64-8859ebc3f7f63d9c. [17 June 2019].

420

Liechtenstein Initiative for a Financial Sector
Commission on Modern Slavery and Human
Trafficking 2019, About the Commission. Available
from: https://www.financialsectorcommission.org/.
[13 June 2019].

421

Smith, N 2019, ‘North Korean worker sues Dutch
shipbuilder over slave labour claims,’ The Telegraph,
15 February. Available from: https://www.telegraph.
co.uk/news/2019/02/15/north-korean-worker-suesdutch-shipbuilder-slave-labour-claims/.
[14 Jun 2019].

422

Guilbert, K & Mis, M 2018, ‘Exclusive: North Korean
worker seeks Dutch shipbuilder’s prosecution
over labor abuses’, Thomson Reuters Foundation,
8 November. Available from: https://www.reuters.
com/article/us-netherlands-lawsuit-traffickingexclu/exclusive-north-korean-worker-seeks-dutchshipbuilders-prosecution-over-labor-abusesidUSKCN1ND1BR. [14 June 2019].

Measurement, Action, Freedom

10 Appendix 4: Endnotes

423

424

Clarke, R & Homel, R 1997, ‘A Revised Classificationof Situational Crime Prevention Techniques’ in SP
Lab, Crime Prevention at a Crossroads, ACJS/
Anderson monograph series, Academy of Criminal
Justice Sciences, Greenbelt, MD. Ekblom, P & Tilley,
N 2000, ‘Going equipped: criminology, situational
crime prevention and the resourceful offender’, British
Journal of Criminology, vol. 40. Lampe, KV 2011, ‘The
application of the framework of Situational Crime
Prevention to ‘organized crime’,’ Criminology andCriminal Justice, vol. 11, pp. 145-163.

431

UNODC 2008, Tool 8.3 Protection, assistanceand human rights. Available from: https://www.
unodc.org/documents/human-trafficking/Toolkitfiles/08-58296_tool_8-3.pdf. [16 June 2019].

432

Forthcoming.

433

World Bank and World Health Organization 2017,
Tracking Universal Health Coverage: 2017 Global
Monitoring Report. Available from: http://documents.
worldbank.org/curated/en/640121513095868125/
pdf/122029-WP-REVISED-PUBLIC.pdf. [4 June 2019].

United Nations 2000, Protocol to Prevent, Suppress
and Punish Trafficking in Persons, Especially Womenand Children, supplementing the United Nations
Convention against Transnational Organized Crime,
Doc. A/55/383, New York.

434

https://www.ilo.org/dyn/natlex/natlex4.home435

https://www.ilo.org/dyn/normlex/en/
f?p=NORMLEXPUB:1:0::NO:::

436

Commonwealth countries included are Antigua andBarbuda, Bahamas, Belize, Dominica, Fiji, Grenada,
Kiribati, Malta, Nauru, Saint Lucia, Saint Kitts andNevis, Saint Vincent and the Grenadines, Samoa,
Seychelles, Solomon Islands, Tonga, Tuvalu, andVanuatu. Palau is also included for the first time.

437

Identified using the 2017 Fragile States Index, where
those countries that scored 9.9 and above on the
Security Apparatus indicator were excluded. See
https://fragilestatesindex.org/data/.

438

In previous rounds, we reported 104 indicators, but in
2019, we removed two indicators due to patchy dataand inconsistent application of rating rules.

439

Taiwan and Kosovo have 27 activities, not 28, as they
are unable to ratify international conventions.

440

French, German, Spanish, Italian, Arabic, Urdu,
Russian, Finnish, Dutch, Romanian, Hindu, and two
local Zimbabwean languages. The team’s backgroundincluded Economics, Law, Sociology and Geography.

425

Council of Europe 2005, Council of Europe
Convention on Action against Trafficking in Human
Beings, 16.V.2005, Warsaw.

426

Bales, K 2007, Ending Slavery: How we Free Today’s
Slaves, University of California Press, Oakland.
Gallagher, A & Holmes, P 2008, ‘Developing an
Effective Criminal Justice Response to Human
Trafficking: Lessons from the Frontline’, International
Criminal Justice Review, vol. 18, pp. 318-348. Office
to Monitor and Combat Trafficking in Persons 2011,
The 3 Ps: Prevention, Protection, Prosecution, UnitedStates Department of State. Available from: https://www.state.gov/j/tip/3p/ [19 September 2014].

427

After three iterations of this assessment, we remapped our framework against the Council of Europe
Convention Action against Trafficking in Human
Beings and have found there to be approximately 90
percent complementary. A paper on this research isforthcoming.

428

https://www.ctdatacollaborative.org/

441

Available from www.globalslaveryindex.org.

429

UNODC 2018, Global Report on Trafficking in Persons.
Available from: https://www.unodc.org/documents/
data-and-analysis/glotip/2018/GLOTiP_2018_BOOK_
web_small.pdf. [16 June 2019].

442

Rated as BBB in previous rounds.

443

Taiwan and Kosovo have 27 activities, not 28, as they
are un-able to ratify international conventions.

430

Walk Free

UNICEF 2006, Guidelines on the Protection of Child
Victims of Trafficking. Available from: https://www.
unicef.org/protection/Unicef_Victims_Guidelines_
en.pdf. [16 June 2019].

185

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