THE NATIONAL ACTION PLAN

TO COMBAT HUMAN TRAFFICKING

PRESIDENT DONALD J. TRUMP


THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

2

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

★ ★ ★

TABLE OF CONTENTS

Acronyms...................................................................................3 

Introduction................................................................................5 

Pillar 1: Prevention.....................................................................14 

Pillar 2: Protection......................................................................22 

Pillar 3: Prosecution.....................................................................35 

Pillar 4: Crosscutting Approaches and Institutional Effectiveness............45 

Appendix A: Glossary of Terms......................................................53 

Appendix B: Primary Authorities...................................................57 

 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

3

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

★ ★ ★

ACRONYMS

ACF Administration for Children and Families, a component of HHS 

ACTeam Anti-trafficking Coordination Team, an initiative of DOJ, DHS, and DOL 

ATF Bureau of Alcohol, Tobacco, Firearms, and Explosives, a component of DOJ 

BIA Bureau of Indian Affairs, a component of DOI 

BJA Bureau of Justice Assistance, a component of DOJ 

BOP Federal Bureau of Prisons, a component of DOJ 

CB Children’s Bureau, a component of HHS 

CBP United States Customs and Border Protection, a component of DHS 

DEA Drug Enforcement Administration, a component of DOJ 

DHS United States Department of Homeland Security 

DOC 

DOD 

United States Department of Commerce 

United States Department of Defense 

DOI United States Department of Interior 

DOJ United States Department of Justice 

DOL United States Department of Labor 

DOS United States Department of State 

DOT United States Department of Transportation 

DSS Diplomatic Security Service, a component of DOS 

EEOC Equal Employment Opportunity Commission 

EOIR Executive Office for Immigration Review, a component of DOJ 

ERO Enforcement and Removal Operations, a component of DHS 

FBI Federal Bureau of Investigation, a component of DOJ 

FDA Food and Drug Administration, a component of HHS 

FEMA Federal Emergency Management Agency, a component of DHS 

FinCEN Financial Crimes Enforcement Network, a component of Treasury 

FYSB Family and Youth Services Bureau, a component of HHS 

GSA General Services Administration 

HHS United States Department of Health and Human Services 

HRSA Health Resources and Services Administration, a component of HHS 

HSI Homeland Security Investigations, a component of DHS 

HUD United States Department of Housing and Urban Development 

ICAO International Civil Aviation Organization, an agency of the United Nations 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

4

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

ICE United States Immigration and Customs Enforcement, a component of DHS 

IRS Internal Revenue Service, a component of Treasury 

ITA 

LGBT+ 

International Trade Administration, a component of DOC 

Lesbian, Gay, Bisexual, Transgender, and other gender- or sexuality-related 

identities, such as intersex 

NIJ National Institute of Justice, a component of DOJ 

NCMEC National Center for Missing and Exploited Children, an NGO 

NGO Non-governmental organization 

NOAA National Oceanic and Atmospheric Administration, a component of the 

United States Department of Commerce 

OFAC Office of Foreign Assets Control, a component of Treasury 

OIG Office of Inspector General 

OJJDP Office of Juvenile Justice and Delinquency Prevention, a component of DOJ 

OJP Office of Justice Programs, a component of DOJ 

OMB Office of Management and Budget, a component of the White House 

OSHA Occupational Safety and Health Administration, a component of DOL 

OTIP Office on Trafficking in Persons, a component of HHS 

OVC Office for Victims of Crime, a component of DOJ 

OVW Office on Violence Against Women, a component of DOJ 

PITF President’s Interagency Task Force to Monitor and Combat Trafficking in 

Persons 

SAMHSA Substance Abuse and Mental Health Services Administration, a component 

of HHS 

SPOG Senior Policy Operating Group, PITF-designated representatives 

T visa T nonimmigrant status 

Treasury United States Department of the Treasury 

TSA Transportation Security Administration, a component of DHS 

TVPA Trafficking Victims Protection Act 

U visa U nonimmigrant status 

USAID United States Agency for International Development 

USAOs United States Attorney’s Offices, components of DOJ 

U.S.C.G United States Coast Guard, a component of DHS 

USCIS United States Citizenship and Immigrations Services, a component of DHS 

USDA United States Department of Agriculture 

USMS United States Marshals Service, a component of DOJ 

USPS United States Postal Service 

USTR Office of the United States Trade Representative, a component of the White 

House 

WHD Wage and Hour Division, a component of DOL 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

5

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

★ ★ ★

INTRODUCTION

The United States Government is committed to eradicating human trafficking, commonly referred 

to as a form of modern slavery or trafficking in persons, in all its forms. Human trafficking, a 

crime of exploiting a person for compelled labor or commercial sex, has no place in a society that 

values freedom and the rule of law. Nonetheless, it exists in every region of the United States and 

around the world. Human trafficking poses a grave danger to individual well-being, public health, 

public safety, national security, economic development, and prosperity. 

Our Nation’s understanding of human trafficking, an underreported crime, has grown, and we have 

learned that this crime is far more pervasive than previously understood. In 2019, 11,500 situations 

of human trafficking were identified through the United States National Human Trafficking 

Hotline.1 Globally, an estimated 24.9 million people are subjected to human trafficking,2 which 

generates an estimated $150 billion annually in illicit profits.3 

Human trafficking is defined as sex trafficking and labor trafficking or forced labor as follows 

under United States law: 

 Sex trafficking in which a commercial sex act4 is induced by force, fraud, or coercion, 

or in which the person induced to perform such an act has not attained 18 years of age; or 

 The recruitment, harboring, transportation, provision, or obtaining of a person for labor or 

services through the use of force, fraud, or coercion for the purpose of subjection to 

involuntary servitude, peonage, debt bondage, or slavery.5

                                                            

1 See Polaris, 2019 Statistics from the National Human Trafficking Hotline (2019) available at 

https://polarisproject.org/wp-content/uploads/2019/09/Polaris-2019-US-National-Human-Trafficking-Hotline-DataReport.pdf

2

 International Labour Organization and Walk Free Foundation, Global Estimates of Modern Slavery: Forced 

Labour and Forced Marriage (2017). This report used data from the International Organization for Migration’s 

victim assistance database and surveys of more than 71,000 respondents from 48 countries. Of the 24.9 million 

victims, the report finds that “16 million were in the private economy, another 4.8 million were in forced sexual 

exploitation, and 4.1 million were in forced labour imposed by state authorities.” Available at 

https://www.ilo.org/wcmsp5/groups/public/@dgreports/@dcomm/documents/publication/wcms_575479.pdf.

3

 See International Labour Organization. “Profits and Poverty: The Economics of Forced Labour.” 20 May 2014 

available at https://www.ilo.org/wcmsp5/groups/public/---ed_norm/---

declaration/documents/publication/wcms_243391.pdf. 

4

 The term “commercial sex act” means any sex act on account of which anything of value is given to or received by 

any person. 22 U.S.C. § 7102(4). 

5

 See 22 U.S.C. § 7102(11). For additional legal definitions, see 18 U.S.C. Chapter 77 (criminal definitions) and 19 

U.S.C. § 1307 (includes customs definition of “forced labor”). 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

6

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Even though human trafficking may be considered a single crime with 2 main variants of sex and 

labor trafficking, it takes many forms. Sex traffickers exploit victims through the use of escort 

services, outdoor solicitation, cantinas, and online commercial sex advertising, among other 

means. Also, as the definition above states, when someone under the age of 18 is caused to engage 

in a commercial sex act, even if no force, fraud, or coercion is proven, Federal law considers that 

minor to be a victim of sex trafficking.6 Labor trafficking occurs across many different industries, 

such as domestic work, traveling sales crews, food services, peddling and begging, agriculture, 

health and beauty services, construction, hospitality, and landscaping. In some industries, such as 

illicit massage businesses or bars, strip clubs, and cantinas, there are often victims of both sex and 

labor trafficking.7 The United States Government has found forced labor overseas in industries 

– such as apparel, manufactured goods, electronics, and fishing – which produce goods that are or 

are likely to be imported into the United States.8

  Labor trafficking is often accompanied by the 

presence of force, fraud, or coercion. Examples of types of force, fraud, or coercion that apply to 

either sex or labor trafficking may include: actual force, threats of force, physical restraint, threats 

of serious harm, abuse of the law, threats to the safety of family members, abuse of vulnerability, 

restriction of movement, isolation, retention of identity documents, withholding drugs to induce 

withdrawal sickness, threats of deportation, debt manipulation, sunk-cost schemes (false promises 

to pay wages in the future), or threats to expose embarrassing conduct or imagery. Ultimately, 

many victims of human trafficking do not leave their situation to get help because force, fraud, or 

coercion and the associated fear compels them to remain in the exploitative situation. 

Human trafficking is distinct from the separate crime of human smuggling, which is not covered 

in this Action Plan. It is a misconception that human trafficking requires crossing a border.9 In 

fact, it does not require movement at all. By contrast, human smugglers engage in the crime of 

bringing people across international borders through deliberate evasion of immigration laws.10

While human trafficking and human smuggling are distinct crimes, individuals who are smuggled 

are vulnerable to becoming victims of human trafficking. Understanding these distinct concepts 

will support improved human trafficking prevention and victim identification efforts. 

 

                                                            

6 See Id. It should be noted that several states have adopted similar laws identifying minors to be victims of sex 

trafficking without proving force, fraud, or coercion. 7 See The Typology of Modern Slavery: Defining Sex and Labor Trafficking in the United States (2017), available at 

https://polarisproject.org/sites/default/files/Polaris-Typology-of-Modern-Slavery.pdf; Polaris, Growing Awareness. 

Growing Impact. 2017 Statistics from the National Human Trafficking Hotline and BeFree Textline. (2017), 

available at https://polarisproject.org/sites/default/files/2017NHTHStats%20%281%29.pdf ; and United States 

Department of State Annual Trafficking in Persons Report, 2020, available at https://www.state.gov/wpcontent/uploads/2020/06/2020-TIP-Report-Complete-062420-FINAL.pdf..

8 See List of Goods Produced by Child Labor or Forced Labor, United States Department of Labor, available at 

https://www.dol.gov/agencies/ilab/reports/child-labor/list-of-goods; see also United States Customs and Border 

Protection, Withhold Release Orders and Findings, available at https://www.cbp.gov/trade/programsadministration/forced-labor/withhold-release-orders-and-findings.

9 See https://www.dhs.gov/blue-campaign/myths-and-misconceptions#. 10 See, e.g., 8 U.S.C. § 1324.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

7

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Characteristics of Human Trafficking 

Who is victimized? Human trafficking victims can be of any age, race, ethnicity, sex, gender 

identity, sexual orientation, nationality, immigration status, cultural background, religion, 

socio-economic class, and education attainment level. Individuals particularly vulnerable to 

human trafficking in the United States include children in the child welfare system or who have 

encountered the juvenile justice system; runaway and homeless youth11; unaccompanied alien 

children; foreign nationals who do not have lawful United States immigration status; American 

Indians, Alaska Natives, Native Hawaiians, Pacific Islanders, and other indigenous peoples of 

North America; Lesbian, Gay, Bisexual, Transgender, and other gender or sexuality-related 

identities, such as intersex (LGBT+) individuals; foreign national laborers; persons with 

disabilities; and individuals experiencing problematic drug use. While girls, women, and LGBT+ 

community members are notably more vulnerable, sex and labor traffickers also regularly target 

boys and men. There are other factors that correlate with a higher risk of human trafficking 

victimization, such as recent migration or relocation, substance misuse, unstable housing, abuse, 

childhood trauma, and mental health issues.12 

Human trafficking victims in the United States may be United States citizens or foreign nationals 

who have lawful immigration status or who are unlawfully present; in some cases, a foreign 

national’s unlawful presence is the primary driver of his or her manipulation and victimization by 

traffickers. One of the biggest challenges facing law enforcement and service provider 

professionals, due to multiple factors, is the ability to accurately identify human trafficking 

victims. Nevertheless, information from these sources may still provide some insight into the 

scope of the crime. A 2019 Non-Governmental Organization (NGO) study found that about 

72 percent of calls to the National Human Trafficking Hotline related to sex trafficking, 11 percent 

related to labor trafficking, 4 percent were both, and 13 percent were unspecified.13 According to 

a 2019 Federal Bureau of Investigation (FBI) study based on data derived from its investigations 

in the United States over a 3-year period (2015-2017), 80 percent of human trafficking victims 

were victims of sex trafficking, 19 percent were victims of labor trafficking, and 1 percent involved 

both sex and labor trafficking.14 The FBI study also found that 43 percent of victims recruited for 

labor trafficking were foreign nationals residing outside the United States.15 In FY 2018, the 

                                                            

11 In this Action Plan, the term “youth” refers to older children and young adults. 12 See Polaris, 2019 Data Report: The U.S. National Human Trafficking Hotline (2019), available at 

https://polarisproject.org/wp-content/uploads/2019/09/Polaris-2019-US-National-Human-Trafficking-Hotline-DataReport.pdf. 

13 See Polaris, 2019 Data Report: The U.S. National Human Trafficking Hotline (2019), available at 

https://polarisproject.org/wp-content/uploads/2019/09/Polaris-2019-US-National-Human-Trafficking-Hotline-DataReport.pdf. 

14 “Human Traffickers Almost Certainly Engage in Sex Trafficking as Most Prevalent Form of Human Trafficking, 

Threatening Economic and Social Interests,” 8 February 2019, Federal Bureau of Investigation Intelligence Study. 

The FBI study used data derived from a 3-year analysis of 309 investigations during the 2015-2017 timespan. 

15 These FBI data comport with a recent ILO report finding that traffickers typically exploit 77 percent of victims in 

their countries of residence. See Global Estimates of Modern Slavery, Alliance 8.7, available at 

https://www.ilo.org/wcmsp5/groups/public/---dgreports/---dcomm/documents/publication/wcms_575479.pdf. 

Similarly, according to a 2018 study by the United Nations Office of Drugs and Crime (UNODC), evidence shows 

that for the first time ever, a majority of victims had been identified in their countries of citizenship. See Global 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

8

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

United States Department of Health and Human Services (HHS) certified16 412 foreign national 

adult victims of human trafficking, of which 69 percent experienced labor trafficking, 22 percent 

experienced sex trafficking, 8 percent experienced sex and labor trafficking, and 1 percent were 

unknown. Similarly, HHS certified 466 foreign national child victims of human trafficking, of 

which 67 percent experienced labor trafficking, 27 percent experienced sex trafficking; and 

6 percent experienced sex and labor trafficking.17 Historically, labor trafficking has been more 

difficult to detect than sex trafficking. 

In 2019, victims in the United States originated from almost every region of the world. The top 

three countries of origin of federally identified victims were the United States, Mexico, and 

Honduras. Both United States citizens and foreign nationals in the United States are exploited. 

Also, victims from the United States are trafficked abroad, and foreign victims of child sex 

trafficking are exploited by United States citizens in foreign countries or over the internet.18

Who are the human traffickers? Human traffickers come from a wide variety of backgrounds 

and demographic categories. Human traffickers can be relatives, friends, individuals who are 

politically connected in their country of origin, individuals operating alone, or those in loosely 

affiliated groups or as part of gangs or transnational criminal organizations. Many times, 

prosecutors obtain convictions of human traffickers and their associates for crimes other than 

human trafficking, such as money laundering or fraud. Human trafficking networks may be linked 

to other criminal activities, such as kidnapping, extortion, racketeering, foreign corrupt practices, 

production of counterfeit goods, prostitution, drug trafficking, money laundering, document fraud, 

visa fraud, immigration-related crimes, and public corruption. 

More generally, human traffickers often operate a range of illicit enterprises both in the 

United States and abroad. For example: 

 Transnational criminal organizations engage in human trafficking, frequently in 

conjunction with other criminal activities. 

o The Zhao Wei drug trafficking organization engages in human trafficking to generate 

funds to further its other criminal activities.19 

o MS-13 engages in human trafficking both domestically and transnationally.20 

                                                            

Report on Trafficking in Persons, 2018, United Nations, available at https://www.unodc.org/documents/data-andanalysis/glotip/2018/GLOTiP_2018_BOOK_web_small.pdf. 

16 HHS certification enables foreign nationals who are human trafficking victims to be eligible to apply for Federal 

and state benefits and services under certain circumstances. United States Department of State Annual Trafficking 

in Persons Report, 2019, available at https://www.state.gov/reports/2019-trafficking-in-persons-report/, page 486-

87.

17 United States Department of State Annual Trafficking in Persons Report, 2019, available at 

https://www.state.gov/reports/2019-trafficking-in-persons-report/, page 487. 18 United States Department of State Annual Trafficking in Persons Report, 2020, available at 

https://www.state.gov/wp-content/uploads/2020/06/2020-TIP-Report-Complete-062420-FINAL.pdf. 19 United States Department of the Treasury Press Release, Treasury Sanctions the Zhao Wei Transnational 

Criminal Organization, January 30, 2018, available at https://home.treasury.gov/news/press-releases/sm0272. 20 MS-13 and Sex Trafficking, February 22, 2018, available at https://cis.org/Arthur/ms-13-and-sex-and-trafficking; 

“The Nature and Extent of Gang Involvement in Sex Trafficking in San Diego County,” United States Department 

of Justice Document No.: 249857, Date: April 2016.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

9

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

o Mexican origin transnational criminal organizations engage in sex trafficking to 

facilitate other illicit activity.21

 Terrorist organizations – including Islamic State in Iraq and Syria, Boko Haram and 

Al-Shabaab22 – engage in human trafficking crimes. 

 State actors such as Democratic People’s Republic of Korea, the People’s Republic of 

China, and Cuba engage in state-sponsored forced labor.23

How do the human traffickers operate? To control their victims, human traffickers may use 

tactics and techniques such as physically isolating their victim, emotionally manipulating a victim 

through false promises of love, threatening a victim with various forms of harm, including harm 

from the legal system, such as deportation or arrest, and manipulating a victim’s substance misuse. 

Human traffickers also engage in debt bondage. Prospective victims are often led to take on debt, 

ostensibly to support the costs of accessing a “good” job, via credible, but false, promises of a 

better situation. Then, human traffickers and their co-conspirators ensure that the debts are 

sufficient enough to place the victim in fear that if the debt is not paid, the victim or victim’s family 

will suffer serious consequences threatening their life, health, and welfare. Human traffickers use 

diverse modes of transportation to facilitate their illicit activities. Human traffickers also utilize 

technology to facilitate the crime, such as online social media platforms to recruit and advertise 

human trafficking victims. Law enforcement continues to make strides in interdicting illicit online 

activity including the seizure of online platforms that advertise commercial sex involving human 

trafficking. These seizures severely disrupt traffickers’ operations and those facilitating the illegal 

activity. However, law enforcement must remain vigilant to the adjustments traffickers make to 

avoid detection, including the movement of internet servers overseas. Some emergent 

technologies, like anonymous browsing, also allow human traffickers to evade law enforcement. 

Certain environments are more likely to enable human traffickers to conduct and profit from their 

criminal exploitation. Human traffickers take advantage of breakdowns in the rule of law and 

weakened social support caused by conflict, natural disaster, and other crises to recruit victims. 

Corrupt government officials also enable human traffickers; for example, officials may accept 

bribes from labor brokers engaged in deceptive practices.24 These breakdowns are compounded 

when governments are actively hostile to civil society, precluding partnerships with NGOs that 

otherwise could reinforce counter-trafficking efforts. The weakness of government institutions 

fuels not only impunity, but also the desperation of individuals eager to support their families and, 

in some cases, simply to survive. Human traffickers exploit these needs in order to lure victims 

with false promises of a better situation in the United States or elsewhere. For example, Mexico 

is the top origin country in human trafficking cases involving foreign national victims in which 

                                                            

21 The United States Department of State Office to Monitor and Combat Trafficking in Persons-funded study, 

“Trafficking in Persons Along Mexico’s Eastern Migration Routes: The Role of Transnational Criminal 

Organizations,” Woodrow Wilson International Center for Scholars, March 2017. 

22 See the Financial Action Task Force (FATF) 2018 report, Financial Flows of Human Trafficking, July 2018, 

available at http://www.fatf-gafi.org/media/fatf/content/images/Human-Trafficking-2018.pdf. 

23 United States Department of State Annual Trafficking in Persons Report, 2019, available at 

https://www.state.gov/reports/2019-trafficking-in-persons-report/. United States Department of State Xinjiang 

Supply Chain Business Advisory, 2020, available at https://www.state.gov/xinjiang-supply-chain-business-advisory/ 24 See UNODC. 2011. Issue Paper: The Role of Corruption in Trafficking in Persons, available at 

https://www.unodc.org and United States Department of State Annual Trafficking in Persons Reports, 2020, 

available at https://www.state.gov/wp-content/uploads/2020/06/2020-TIP-Report-Complete-062420-FINAL.pdf. 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

10

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

the United States is the destination.25 Recent cases involved sex trafficking enterprises linked to 

a region in central Mexico, which recruited young victims who were then smuggled into the 

United States and compelled into prostitution in New York, Atlanta, and other cities.26 

In cases where human traffickers have recruited individuals outside the United States with the 

intent of exploiting them in the United States, they may be moved through intermediary or “transit” 

countries, sometimes for extended periods, during which victims may also be forced into labor or 

commercial sex. Transit countries are chosen for the geographical location and are usually 

characterized by weak border controls, proximity to destination countries, corruption of 

immigration officials, or affiliation with organized crime groups that are involved in human 

trafficking and human smuggling. 

Financial activity from human trafficking activities can intersect with the formal financial system 

at any point during the recruitment, transportation, and exploitation stages. The illicit proceeds 

from human trafficking can include income associated with logistics, such as housing and 

transportation of victims, as well as earnings from the exploitation of victims. The movement of 

human trafficking proceeds can constitute money laundering27 or, if designated terrorist 

organizations are involved, terrorist financing.28 Money launderers and human traffickers exploit 

the fact that companies can be found without beneficial ownership information. Human traffickers 

establish front companies to hide the true nature of a business, its illicit activities and its owners 

and associates. There are strong indicators of the use of anonymous companies for money 

laundering and human trafficking. For example, in a recent NGO study, only 21 percent of the 

6,000 business records found for illicit massage businesses name the owner, and even in those 

cases, the information may not be legitimate.29 When insufficient controls are in place, human 

traffickers benefit from ready access to financial systems to maintain their enterprises. 

Complex supply chains impede traceability and make it challenging to verify that goods and 

services are free of forced labor.30 Globally and in the United States, forced labor and associated 

harmful employment practices hide the true cost of labor and subvert the legitimate job market, 

                                                            

25 See HHS, Trafficking Victims Assistance Program, FY 2019, available at 

https://www.acf.hhs.gov/sites/default/files/otip/tvap_infographic_fy_2019_508.pdf. 26 See DOJ, “Eight Members of Mexican Sex Trafficking Enterprise Plead Guilty To Racketeering, Sex Trafficking, 

And Related Crimes” (April 21, 2017), available at https://www.justice.gov/usao-edny/pr/eight-members-mexicansex-trafficking-enterprise-plead-guilty-racketeering-sex. 

27 Money laundering in violation of 18 U.S.C. § 1956(a)(1) is the crime of knowingly conducting, or attempting to 

conduct, a “financial transaction” with proceeds from “specified unlawful activity” (SUA). Sex trafficking, forced 

labor, and other crimes related to trafficking in persons are considered SUAs. Other money laundering statutes 

relevant to human trafficking investigations include international money laundering, 18 U.S.C. § 1956(a)(2); the 

“spending statute,” 18 U.S.C. § 1957; structuring in violation of 31 U.S.C. § 5324; operating unlicensed money 

transmitting businesses in violation of 18 U.S.C. § 1960; and conspiracy to violate either Section 1956 or Section 

1957 (or both) in violation of 18 U.S.C. § 1956(h). 

28 See “25 Keys to Unlock the Financial Chains of Human Trafficking & Modern Slavery.” July 2017 available at 

http://collections.unu.edu/eserv/UNU:6232/BreakingtheFinancialChains_FullBooklet_Web.pdf. 29 See “Human Trafficking in Illicit Massage Businesses,” Polaris Project, April 19, 2018, available at 

https://polarisproject.org/news/press-releases/corporate-secrecy-fuels-human-trafficking-united-states 30See the Financial Action Task Force (FATF) 2018 report, Financial Flows of Human Trafficking, July 2018, 

available at http://www.fatf-gafi.org/media/fatf/content/images/Human-Trafficking-2018.pdf. 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

11

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

such as displacing American workers, driving down wages, and corrupting the domestic and global 

economy. These practices create an uneven playing field for responsible businesses that invest in 

measures to prevent forced labor in their product supply chains. 31 The United States Department 

of Labor (DOL) has identified 155 goods from 77 countries that are produced with child labor 

or forced labor globally, some of which are connected to products imported into the 

United States.32 Meanwhile, human traffickers benefit most from complex and nontransparent 

supply chains as well as permissive regulatory environments abroad. 

Strengthening efforts to combat human trafficking 

Despite the United States’ global leadership in the fight against human trafficking,33 its 

comprehensive legal framework, rule of law, and the resources devoted to combating human 

trafficking, the crime persists. Through this Action Plan, the United States Government seeks to 

enhance the impact of its broad-based, multi-disciplinary, whole-of-government efforts to combat 

human trafficking. This Action Plan sets the priority actions needed to improve capabilities and 

build on existing momentum over the next 3 years. 

Mission Statement 

The United States Government will fully leverage its authorities and resources to eradicate 

human trafficking by preventing it from occurring, supporting and empowering survivors, 

prosecuting traffickers, coordinating the United States Government’s response, and 

strengthening Federal anti-trafficking efforts through external partnerships. 

Guiding Principles 

This Action Plan was informed by: 

 the Trafficking Victims Protection Act (TVPA) of 200034 as amended, 

                                                            

31 See Verité. 2017. Strengthening Protections against Trafficking in Persons in Federal and Corporate Supply 

Chains, available at http://www.verite.org; Responsible Sourcing Tool available at 

https://www.responsiblesourcingtool.org/resources/complianceresources. 32 See List of Goods Produced by Child Labor or Forced Labor, United States Department of Labor, September 

2020, available at https://www.dol.gov/agencies/ilab/reports/child-labor/list-of-goods. 33 In 2000, the Protocol to Prevent, Suppress and Punish Trafficking in Persons, Especially Women and Children 

(the Palermo Protocol), supplementing the United Nations Convention against Transnational Organized Crime 

(UNTOC), marked an important transition into the modern movement against human trafficking. The United States 

was a key drafter of the Protocol and adopted the United States Trafficking Victims Protection Act (TVPA) the 

same year. In part through United States leadership, as of March 31, 2019, 173 parties had ratified the Palermo 

Protocol and 168 countries had passed domestic legislation criminalizing human trafficking according to this 

framework. See https://www.unodc.org/unodc/en/organized-crime/intro/UNTOC.html.

34 See Pub. L. No. 106-386 (2000) and subsequent amendments. Major provisions of the TVPA are codified at 22 

U.S.C. §§ 7101-7114 and 18 U.S.C. Chapter 77. For more information on this legislation see 

https://www.state.gov/international-and-domestic-law/. 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

12

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

 the 2000 Protocol to Prevent, Suppress and Punish Trafficking in Persons, Especially 

Women and Children (the Palermo Protocol), supplementing the United Nations 

Convention against Transnational Organized Crime (UNTOC),35 

 the 2017 National Security Strategy,

36

 Executive Order 13773, Presidential Order on Enforcing Law with Respect to 

Transnational Criminal Organizations and Preventing International Trafficking,

37

 Executive Order 13627, Strengthening Protections Against Trafficking in Persons in 

Federal Contracts,

38

 Executive Order 13126, Prohibition of Acquisition of Products Produced by Forced or 

Indentured Child Labor,

39 

 Executive Order 13898, Establishing the Task Force on Missing and Murdered American 

Indians and Alaska Natives,

40 

 Executive Order 13903, Combating Human Trafficking and Online Child Exploitation in 

the United States,41 and 

 the Executive Office of the President, Office of Management and Budget Memorandum on 

Anti-Trafficking Risk Management Best Practices and Mitigation Considerations.42

Further, as outlined in the President’s Interagency Task Force (PITF) Report on United States 

Government Efforts to Combat Trafficking in Persons in October 2019,43 the following strategic 

objectives from that document inform this Action Plan:

 Investigate and prosecute traffickers and dismantle the criminal networks that perpetrate 

trafficking in persons. 

 Enhance victim identification and the provision of relief and services for all victims of 

trafficking. 

                                                            

35 See https://www.ohchr.org/en/professionalinterest/pages/protocoltraffickinginpersons.aspx. 36 https://www.whitehouse.gov/wp-content/uploads/2017/12/NSS-Final-12-18-2017-0905.pdf. 37 See https://www.Federalregister.gov/documents/2017/02/14/2017-03113/enforcing-Federal-law-with-respect-totransnational-criminal-organizations-and-preventing. 38 See https://obamawhitehouse.archives.gov/the-press-office/2012/09/25/executive-order-strengthening-protectionsagainst-trafficking-persons-fe. 39 See https://www.govinfo.gov/content/pkg/WCPD-1999-06-21/pdf/WCPD-1999-06-21-Pg1105.pdf. 40 See https://www.govinfo.gov/content/pkg/FR-2019-12-02/pdf/2019-26178.pdf. 41 See https://www.govinfo.gov/content/pkg/FR-2020-02-05/pdf/2020-02438.pdf. 42 See https://www.whitehouse.gov/wp-content/uploads/2019/10/M-20-01.pdf. 43 See https://www.state.gov/2019-report-on-u-s-government-efforts-to-combat-trafficking-in-persons.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

13

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

 Enhance training of stakeholders, including civil society, law enforcement entities, and 

government officials, to increase identification of victims. 

 Encourage foreign governments to combat trafficking through international diplomacy and 

engagement. 

 Forge and strengthen partnerships and other forms of collaboration to combat trafficking 

in persons. 

 Fund domestic and international anti-trafficking programs focusing on prosecution, 

protection, and prevention. 

 Integrate anti-trafficking components into relevant government programs. 

 Promote public awareness about modern slavery. 

 Spur innovation and improve capacity to combat modern slavery through data collection 

and research. 

 Gather and synthesize actionable intelligence to increase the number of domestic and 

international trafficking prosecutions. 

In addition to the strategic objectives from the PITF Report, this Action Plan will: 

 Leverage financial authorities to identify human traffickers and their networks. 

 Prevent their access to the United States and international financial system. 

 Disrupt and disable the financial underpinnings of these networks. 

 Prevent illegal immigration and enhance border security to reduce the number of people 

vulnerable to human trafficking in the United States as well as the entrance of human 

traffickers. 

 Support law enforcement investigations that lead to accountability and justice. 

 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

14

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

★ ★ ★

PILLAR 1: PREVENTION

Prevent Human Trafficking 

The United States Government remains committed to strengthening its approach to preventing human 

trafficking. While all anti-trafficking efforts contribute to the vision of eradicating human trafficking, 

prevention is fundamental to achieving this desired end state. Government and external stakeholders 

face key challenges to preventing human trafficking, including a lack of information about highest risk 

populations, environments, and circumstances; the difficulty in connecting to the most vulnerable 

populations; and insufficient understanding and access to scientifically-rigorous data analysis and 

program evaluation that could better inform which strategies are most effective. Strategic intervention 

programs can be developed so that governments offer appropriate support to allow communities and 

individuals to reduce their vulnerability through mitigating identified risk factors. Prevention efforts 

are wide-ranging, from the targeted education of vulnerable populations to demand reduction efforts 

to prohibiting goods produced with forced labor from entering United States markets. The 

dissemination of targeted information helps communities and individuals understand how to reduce 

human trafficking risks. Meaningful engagement with the private sector and civil society expands 

awareness and leads to creative solutions informed by diverse expertise. 

This goal presents 16 priority actions organized under six principles related to enhancing outreach and 

education; strengthening efforts to address demand; addressing human trafficking in product supply 

chains; building capacity to prohibit the importation of goods produced with forced labor; reduce the 

number of people at risk of human trafficking due to unlawful presence through improved border 

security and immigration enforcement; and improving aspects of nonimmigrant visa programs that 

may facilitate exploitation of visa holders. 

Priority Actions 

Principle 1.1: Enhance outreach and education efforts to prevent human 

trafficking

Communities benefit from knowing the threat they could be facing and what actions they could 

take to prevent crime from occurring. Targeted information helps increase the public’s 

understanding of the risks and vulnerabilities to human trafficking, including human traffickers’ 

deceptive and exploitive recruitment strategies. With this information, communities and 

individuals are able to counteract human traffickers’ tactics and techniques, and reduce 

vulnerabilities. In many cases, public outreach campaigns aim for prevention and protection where 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

15

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

protection outreach may seek to identify victims and refer them to help. For priority actions related 

to protection, see the Protection and Crosscutting Pillars of this Action Plan. 

Priority Action 1.1.1: Enhance community-coordinated responses to human 

trafficking 

The United States Department of Justice (DOJ) provides training on preventing and responding to 

human trafficking to schools, law enforcement, courts, court systems, community programs, 

medical providers, LGBT+ programs, foster care, and drop-in/homeless shelters. Additional grant 

projects focus their intervention efforts on mentoring youth who are at risk for or are victims of 

sex trafficking and sharing strategies focused on raising awareness of the crime in local 

communities. DOJ will develop and disseminate training modules and tools to assist communities 

in their efforts to respond to human trafficking. DOJ will fund, subject to the availability of 

appropriations, the development of a toolkit to assist communities in creating 

community-coordinated responses to human trafficking as well as referral networks. 

HHS’s Office on Trafficking in Persons (OTIP), Children’s Bureau (CB), and Family and Youth 

Services Bureau (FYSB) also provide community-coordinated responses to human trafficking of 

youth through grants, programs, training, resources, and partnerships. HHS programs will provide 

training and technical assistance for health and human service professionals working with 

populations at high risk for human trafficking who are intersecting with health care systems, child 

welfare, runaway and homeless, domestic violence, adolescent pregnancy prevention, 

unaccompanied children, and community programs for American Indians, Alaska Natives, Native 

Hawaiians, Pacific Islanders, and other indigenous peoples of North America. 

Priority Action 1.1.2: Examine and recommend culturally appropriate prevention 

efforts for American Indian, Alaska Native, Native Hawaiian, and Pacific Islander 

youth 

In partnership with HHS’s Administration for Native Americans, HHS OTIP convened an 

American Indian, Alaska Native, Native Hawaiian, and Pacific Islander-specific class of the 

Human Trafficking Leadership Academy in which 12 fellows, comprised of survivor leaders and 

allied professionals, attended monthly leadership development seminars over a 6-month period. 

The fellows developed recommendations to inform new research, policies, and programs on how 

culture can be a protective factor for preventing human trafficking among youth who are American 

Indian, Alaska Native, Native Hawaiian, or Pacific Islander in the United States and its territories.

Priority Action 1.1.3: Implement the HHS Administration for Children and Families 

National Human Trafficking Prevention Action Plan 

HHS’s Administration for Children and Families (ACF) will release and implement the ACF 

National Human Trafficking Prevention Action Plan, outlining a framework for action and agency 

collaborations to increase the scale and quality of human trafficking prevention efforts across the 

United States. Utilizing a collective impact strategy grounded in HHS’s principles of violence 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

16

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

prevention, ACF will coordinate with government, non-government, and private sector partners to 

reduce human trafficking in the United States. 

Priority Action 1.1.4: Create a training for children in United States Department of 

Defense Education Activity 

The United States Department of Defense’s (DOD) Education Activity is responsible for planning, 

directing, coordinating, and managing pre-kindergarten through 12th grade educational programs 

for 163 schools. There are 996,069 military-connected children of all ages worldwide, of which 

more than 70,000 are enrolled in DOD schools and served by approximately 8,700 educators. The 

Combating Trafficking in Persons Program Management Office, in consultation with experts on 

prevention programming for children, will work with the DOD Education Activity to raise 

awareness of human trafficking and train students about understanding the risks of human 

trafficking. DOD Education Activity will make the training available to parents as well. 

Principle 1.2: Strengthen efforts to address demand reduction 

Certain initiatives to reduce demand may be more effective than others in reducing instances of 

human trafficking, including forced labor. Cultivating a better understanding of demand reduction 

efforts will lead to more informed, evidence-based policymaking.

 

Priority Action 1.2.1: Examine existing initiatives to reduce demand and encourage 

research and evaluation of future initiatives

The Frederick Douglass Trafficking Victims Prevention and Protection Reauthorization Act of 

201844 recognized the need for increased efforts to address demand. However, there is limited 

information on the range of initiatives intended to reduce demand, including law enforcement 

initiatives specifically, and their effectiveness. 

The Senior Policy Operating Group (SPOG) recently formed a Demand Reduction Working Group 

to examine the role of demand reduction in preventing human trafficking or otherwise achieving 

the purposes of the TVPA and the Justice for Victims of Trafficking Act. NJI/DOJ, in coordination 

with the SPOG, will conduct a literature review regarding demand, subject to the availability of 

funding, and provide recommendations to Federal agencies on initiatives that are likely to prevent 

sex trafficking. 

Principle 1.3: Strengthen efforts to identify, prevent, and address human 

trafficking in product supply chains

Governments, the private sector, and individuals can all make a difference when it comes to 

addressing human trafficking in product supply chains. Each occupies a unique position to 

leverage economic power to influence existing markets, and create new ones, where workers can 

enjoy decent work and human dignity, and are free from coercion and the exploitation associated 

                                                            

44 See Pub. L. No. 115-425 (2019).
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

17

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

with human trafficking. The United States has a standing policy prohibiting government 

employees, contractors, subcontractors, grantees, and sub grantees from engaging in trafficking in 

persons. This policy was strengthened in the National Defense Authorization Act for Fiscal 

Year 2013 “Title XVII Ending Trafficking in Government Contracting”45 and implemented in 

2015 when the Federal Acquisition Regulation rule, entitled “Ending Trafficking in Persons,”46

implemented trafficking-related prohibitions for Federal contractors and subcontractors. 

Priority Action 1.3.1: Require select agencies to designate a senior accountable 

official to ensure effective implementation of anti-trafficking acquisition rules and 

best practices 

Agencies with significant spend and/or heightened risk of human trafficking in government 

contracts – including DOD, United States Department of State (DOS), United States Department 

of Homeland Security (DHS), and United States Agency for International Development (USAID), 

or other agencies as identified by Office of Management and Budget (OMB) – will designate the 

Assistant Secretary for Management or equivalent to ensure effective coordination between the 

procurement trafficking in persons point of contact and the agency trafficking in persons expert 

outlined in the Anti-Trafficking Risk Management Best Practices & Mitigation Considerations 

Memorandum.

47 Not less than annually, the Chief Acquisition Officers should support a public 

outreach session hosted by the SPOG Procurement and Supply Chains Committee for contracting 

companies, NGOs, international partners, and associations of state, local, tribal and territorial 

officials, to build understanding and awareness about the anti-trafficking requirements of the 

Federal Acquisition Regulation. 

Priority Action 1.3.2: Develop initiatives for engaging with various industries on 

the issue of forced labor in product supply chains

DOS, DOL, DHS, HHS, Department of Commerce’s International Trade Administration (ITA), 

United States Department of the Treasury (Treasury), DOD, and USAID will work collectively to 

develop initiatives to provide information about forced labor in product supply chains and 

highlight existing Federal resources (e.g., the Comply Chain application, Responsible Sourcing 

Tool, DOS’s Trafficking in Persons Report, and DOL’s List of Goods Produced by Child Labor 

or Forced Labor) to key private sector partners. These initiatives would involve proactive outreach 

to convene industry leaders and include presentations and webinars. Facilitated discussions will 

include both general information sessions and deeper discussions to address specific challenges 

and opportunities in the various industries. 

Priority Action 1.3.3: Identify DOD contractors’ promising hiring practices and 

expand outreach to inform workers of their rights under United States law

DOD’s Combating Trafficking in Persons Program Management Office will engage contracting 

authorities and debarment and suspension officials to identify promising practices on hiring, 

                                                            

45 See Pub. L. No. 112-239 (2013). 46 See Federal Acquisition Regulation Clause 55.222.-18,-19, and -50.   47 See https://www.whitehouse.gov/wp-content/uploads/2019/10/M-20-01.pdf 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

18

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

including the use of recruitment services. DOD will then share promising practices throughout 

the Federal contracting community that aim to decrease the risk of labor trafficking. DOD will 

also assess expanding the number of foreign languages in which its DOD Worker’s Rights cards 

are available, which inform other country nationals working on DOD installations, and recruited 

by contractors, of their rights under United States law. 

Principle 1.4: Build capacity to prohibit goods produced with forced labor 

from entering United States markets 

International trade frequently involves markets with extensive product supply chains. Trade 

enforcement practices require constant modernization to prevent products produced with forced 

labor from entering the United States. DHS enforces the customs law that prohibits the importation 

of goods mined, produced, or manufactured, wholly or in part, with forced labor, including forced 

child labor. 

Priority Action 1.4.1: Publish accessible information on the Withhold Release 

Order and Findings Process

To help companies, foreign governments, and NGOs support or comply with the prohibition on 

the importation of goods produced with forced labor, including any civil enforcement actions taken 

against goods produced with forced labor, DHS’s United States Customs and Border Protection 

(CBP) will publish an accessible explanation of its Withhold Release Order and Findings process, 

such as a pamphlet on its website. CBP will link to other sources of information supporting due 

diligence to remove goods produced with forced labor from its product supply chains, such as 

information provided by DOL and DOS. 

Priority Action 1.4.2: Seek to negotiate a provision in future trade agreements 

whereby the parties commit to prohibit the importation of goods produced with 

forced labor

The Office of the United States Trade Representative (USTR) is responsible for trade policy and 

negotiations with other countries. To prevent human trafficking, USTR coordinates closely with 

other United States Government agencies, including DOS, DHS, ITA, and DOL, to ensure that 

trade policy reflects United States anti-trafficking strategy and priorities. For example, as part of 

the United States-Mexico-Canada Agreement, USTR negotiated ground-breaking commitments 

that prohibit the importation of goods produced in whole or in part with forced or compulsory 

labor. USTR will seek to negotiate similar provisions in future trade agreements with other 

partners. 

Principle 1.5: Reduce the number of people vulnerable to trafficking through 

improved border security and immigration enforcement 

The number of foreign nationals in the United States without lawful immigration status is 

unknown, but most estimates place it in the millions, and more enter the United States unlawfully 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

19

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

every year. Although United States citizens and lawful immigrants are also at risk of victimization 

by traffickers, traffickers can exploit a person's lack of lawful immigration status. Consistent with 

the Administration’s focus on strengthening national security, one long-term strategy for reducing 

the extent of, and harm from, human trafficking in the United States is preventing illegal 

immigration and improving border security and enforcement of all Federal immigration laws. 

Although smuggling and trafficking are distinct threats, reducing illegal entries into the 

United States will decrease the number of foreign nationals who are susceptible to trafficking due 

to their unauthorized status. 

Priority Action 1.5.1: Continue and expand messaging campaigns to deter illegal 

immigration

DOS and DHS will conduct extensive messaging efforts to reach foreign nationals intending to 

come to the United States and through diaspora communities in the United States. By providing 

accurate information to foreign nationals about United States immigration enforcement, including 

testimonials from foreign nationals who were removed from the United States, and from those who 

were victimized once in the United States following their lawful entry, these messaging efforts 

may deter illegal immigration into the United States, reducing the number of unauthorized foreign 

nationals at risk of trafficking within United States borders due to their unlawful status. 

Priority Action 1.5.2: Continue and expand efforts to secure United States borders 

and improve immigration enforcement   

DHS, DOS, DOJ and other Federal agencies will continue their work to secure the United States 

border and improve enforcement of immigration laws as directed in Executive Order 13767 on 

Border Security and Immigration Enforcement Improvements, Executive Order 13768 on 

Enhancing Public Safety in the Interior of the United States, and other relevant Presidential 

directives. Securing the United States borders and taking measures to detect potential signs of 

trafficking not only helps deny access to transnational criminal organizations, which often 

facilitate human trafficking, but it also ensures that Federal law enforcement has full visibility of 

entering populations and potential signs of trafficking. Federal, state and local law enforcement 

collaboration with Federal and state labor inspection authorities will protect the integrity of 

United States labor markets and increase economic opportunity for United States workers and 

lawfully present foreign national workers. This collaboration will also increase opportunities to 

detect and investigate labor trafficking by affording unauthorized foreign workers opportunities to 

report labor trafficking violations and cooperate as witnesses in human trafficking investigations. 

Principle 1.6: Address aspects of nonimmigrant visa programs that may 

facilitate exploitation of visa holders

Each year, hundreds of thousands of people enter the United States on temporary nonimmigrant 

worker visas. Programmatic challenges can potentially increase an individual’s vulnerability to 

being targeted by a trafficker. Ongoing reports from workers and advocates highlight the urgent 

need to examine the ways in which current nonimmigrant visa programs could inadvertently 

facilitate the exploitation of workers and exchange visitors. 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

20

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Priority Action 1.6.1: Monitor and support implementation of bilateral agreements 

with key countries concerning United States temporary worker programs and 

expand to additional countries 

 

The United States has signed bilateral agreements with El Salvador, Honduras, and Guatemala that 

provide safeguards for temporary workers in the H-2 nonimmigrant visa programs. These 

agreements aim to ensure H-2 nonimmigrant workers are less susceptible to criminal or 

unscrupulous actors and are not charged prohibited recruitment and other fees to take part in the 

nonimmigrant visa programs. The agreements will require the foreign governments to establish a 

process for the regular application, bonding, and approval or renewal of registration for foreign 

labor recruiters and prohibit such recruiters from subjecting H-2 visa program workers to any form 

of human trafficking or forced, compulsory, bonded, indentured, or prison labor. 

Separately, the United States Government will encourage United States companies to proactively 

engage with recruiters they employ either directly or indirectly and verify recruiters and any 

downstream agents, facilitators or similar employment services comply with applicable laws and 

regulations, particularly rules surrounding the prohibition on worker-paid fees. In addition to 

increasing engagement with employers and recruiters, agencies will continually emphasize the 

information contained in the “Know Your Rights” pamphlet. 

Agencies will consider pursuing agreements with other countries who use the H-2 nonimmigrant 

visa programs to better protect workers participating in these programs from abuse at home and in 

the United States while working.

Priority Action 1.6.2: Review current protections for workers across 

employment-based nonimmigrant visa programs to identify gaps and inconsistencies 

and propose recommendations 

Visa requirements and worker protections regarding recruitment or conditions of continued 

employment vary by visa category. Many foreign temporary worker visa categories regulate the 

process for recruiting workers, such as by prohibiting worker-paid recruitment fees and fees 

imposed as a condition of employment and providing workers with written contracts in a language 

they understand. Not all employment-based nonimmigrant visa categories include these 

protections or require the employer to provide these protections. The SPOG will establish an 

interagency working group to analyze and compare the rights and protections granted to workers 

of each employment-based nonimmigrant visa category to identify which categories require 

additional protections related to the labor recruitment and treatment of workers. The agencies will 

then discuss ways to address any gaps and inconsistencies, including developing and proposing 

necessary regulatory or legislative changes. 

Priority Action 1.6.3: Identify enhancements to existing procedures through which 

nonimmigrant workers may leave potentially exploitative situations to prevent 

human trafficking
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

21

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Workers sometimes find themselves in abusive work situations, but because their immigration 

status is dependent on continued employment with the employer in whose name the visa has been 

issued, workers may be left with few options to leave that situation. In many cases, workers believe 

they must either endure the abuse or return home, and are not aware of other options. Under certain 

visa programs based on employer petitions, such as the H-2 temporary worker programs, workers 

are able to change employers while remaining in the United States but only if a new prospective 

employer files another petition, a process that contributes to fewer workers changing employers. 

DHS, DOL, and DOS will review existing procedures to identify what improvements can be 

incorporated so that temporary foreign workers may leave potentially exploitative situations while 

retaining their employment flexibility. If no improvements can be identified, agencies will 

recommend statutory changes to Congress. 

Priority Action 1.6.4: Increase general awareness of human trafficking among all 

Exchange Visitor Program stakeholders 

The DOS Exchange Visitor Program includes 15 different exchange categories. The Exchange 

Visitor Program will expand its outreach to enhance awareness of human trafficking indicators 

and potential risk factors among program stakeholders, including exchange visitors, sponsors, third 

parties, and Exchange Visitor Program staff. The Exchange Visitor Program will partner with 

agencies to identify human trafficking awareness materials and resources. 

 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

22

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

★ ★ ★

PILLAR 2: PROTECTION

Identify, Assist, and Protect the Victims of Human Trafficking 

The United States Government remains committed to offering a diversity of interventions, 

services, and support to protect and help victims of human trafficking. Protection starts with robust 

outreach and proactive identification efforts. Identifying victims of human trafficking can be 

challenging, making it difficult to provide necessary protections and assist in rebuilding their lives. 

It is incumbent on everyone encountering and working with possible victims to identify the 

indicators of human trafficking, offer a protective response, and seek appropriate help. All actors 

must work to build trust with victims. Protection of victims continues through providing 

comprehensive services, including crisis intervention, medical and mental health care, substance 

use disorder treatment, housing, basic needs, employment services, job training, education, legal 

services, financial services support, English language learning and translation services, cultural 

and religious support, and transportation assistance. 

For foreign national victims, temporary immigration protections also exist, including Continued 

Presence,48 T nonimmigrant status (“T visa”),49 and U nonimmigrant status (“U visa”).50 Victims 

who receive comprehensive services are more likely to achieve safety, autonomy, healing, and 

economic security. Consistent application of victim-centered, trauma-informed strategies enables 

victims to safely come forward, report to law enforcement, and participate as witnesses in law 

enforcement investigations and prosecutions. While human trafficking victim protections have 

been in place for nearly 20 years, the effort to improve identification of more victims, increase 

access to services to support more survivors, and refine the victim-centered approach is continually 

underway and reflected in this Action Plan. 

This goal presents 18 priority actions organized under six principles related to applying a victimcentered approach to engaging with victims; safeguarding victims from inappropriate penalization; 

improving access to immigration benefits and options; expanding and improving victim assistance 

associated with Federal law enforcement; seeking financial remedies for victims; and offering or 

connecting victims to social services. 

 

                                                            

48 See 22 U.S.C. § 7105(c)(3)(A)(i). 49 See 8 U.S.C. § 1101(a)(15)(T); 8 U.S.C. § 1184; 8 U.S.C. § 1255; 8 CFR § 214.11. 50 See 8 U.S.C. § 1101(a)(15)(U); 8 U.S.C. § 1184; 8 U.S.C. § 1255; 8 CFR § 214.14.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

23

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Priority Actions 

Principle 2.1: Identify and engage with victims in a victim-centered, 

trauma-informed, and culturally competent manner 

The wide variety of professionals likely to encounter human trafficking victims should be familiar 

with indicators of human trafficking, so these professionals can identify victims and refer them for 

appropriate services. Professionals conducting such screening should determine if there is a 

reasonable suspicion that human trafficking has occurred and should only request further details 

when necessary. Professionals should immediately refer cases to service providers or investigative 

agencies or both, as appropriate. The principles of a victim-centered, trauma-informed, and 

culturally competent approach51 apply to professionals conducting screening as well as service 

providers and investigators engaging with a potential human trafficking victim. As part of the 

victim-centered approach, law enforcement’s drive for criminal justice should be appropriately 

balanced with identifying victims, protecting them from harm, and supporting them through 

comprehensive services. 

Priority Action 2.1.1: Develop or update, validate, and implement screening forms 

and protocols 

The SPOG will convene an interagency52 working group to develop or update screening forms and 

protocols as relevant for all Federal officials who have the potential to encounter a human 

trafficking victim in the course of their regular duties that do not otherwise pertain to human 

trafficking. Within a year, and subject to the availability of appropriations, each Federal agency 

will have updated all forms and protocols unless these forms and protocols were recently updated 

or the funding or validation required to complete this action would unduly impact the agency’s 

operations. Recently enacted provisions of law direct DHS53 and DOJ54 to issue a victim screening 

protocol for use in all Federal operations targeting human trafficking. Subject to the availability 

of funding, this working group will also develop timelines and plans to validate the screening tools 

in an effort to accurately identify all forms of human trafficking. 

Immigration enforcement authorities will continue to improve their screening of all adults and 

minors who pass through immigration custody or detention for indicators of human trafficking, 

while implementing special screening protocols for minors. Minors suspected of having 

experienced human trafficking will be referred to HHS within 24 hours, as required by law, for 

                                                            

51 See Appendix A: Glossary of Terms for further explanation of these approaches. 

52 Participating agencies should include FBI, Homeland Security Investigations (HSI), CBP, United States 

Immigration and Customs Enforcement (ICE), Enforcement and Removal Operations (ERO), United States Coast 

Guard (U.S.C.G.), Bureau of Alcohol, Tobacco, Firearms, and Explosives (ATF), United States Postal Service 

(USPS), DOJ, Offices of the United States Attorneys (USAOs), Transportation Security Administration (TSA), 

Federal Emergency Management Agency (FEMA), Federal Bureau of Prisons (BOP), Drug Enforcement 

Administration (DEA), HHS, DOS, USAID, USCIS, Wage and Hour Division (WHD), Occupational Safety and 

Health Administration (OSHA), Equal Employment Opportunity Commission (EEOC), United States Marshals 

Service (USMS), United States Department of Agriculture (USDA), Food and Drug Administration (FDA), Bureau 

of Indian Affairs (BIA), and National Oceanic and Atmospheric Administration (NOAA).

53 Pub. Law No. 115-392, Section 5. 54 Pub. Law No. 115-393, Section 502.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

24

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

further assessment, referral to social services, and determination of eligibility for benefits and 

services.55

Children and youth in the child welfare and juvenile justice systems, or who are receiving services 

as runaway and homeless youth, at-risk youth, youth in households experiencing domestic 

violence, and child abuse victims are particularly vulnerable to human trafficking. The Federal 

Government will aim to enhance the capacity of state child welfare agencies, court and legal 

professionals, and systems for runaway and homeless youth to perform better assessments and 

improve use of screening forms and protocols to screen minors and young adults for indicators of 

human trafficking. All unaccompanied alien children will periodically be screened for human 

trafficking, and HHS will ensure that they are not placed in situations where they are vulnerable 

to trafficking. The intake assessment for sponsors of unaccompanied alien children will be updated 

appropriately within 1 year. HHS will enhance training on identification and prevention of human 

trafficking for grantees and staff that serve unaccompanied alien children and ensure that regular 

welfare checks are conducted with unaccompanied alien children in Federal long-term foster care 

placement. 

Priority Action 2.1.2: Establish protocols and incorporate promising practices 

regarding victim interviews for law enforcement 

Evidence-based policymaking is more likely to lead to desired outcomes such as improved 

identification of victims. When engaging with potential victims of human trafficking, Federal 

officials should adopt a victim-centered, trauma-informed approach, which includes cultural 

competence. Extra care is required when encountering minor victims. 

DOJ’s National Institute of Justice (NIJ) will conduct a literature review within 3 years to collect 

promising practices of law enforcement conducting victim interviews, including known victimcentered practices around selecting the interview location, working with interpreters, putting 

victims at ease, crafting interview questions, and recognizing trauma cues. Within a year of 

completion of the literature review, Federal law enforcement agencies will convene to share and 

standardize draft guidance that all participating investigatory agencies will implement. 

The experience of human trafficking victims varies from person to person. Some victims of human 

trafficking may initially be willing participants in a human smuggling scheme. DHS will provide 

internal guidance regarding the distinction between human trafficking and human smuggling, the 

possible circumstances where human smuggling may evolve into human trafficking, and, in such 

cases, the recognition of smuggled individuals as victims of human trafficking. 

                                                            

55 See 22 U.S.C. § 7105b.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

25

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Priority Action 2.1.3: Regularly train Federal law enforcement and service provider 

agencies on identifying human trafficking 

The Federal Government conducts a significant amount of human trafficking training. Each 

Federal department or agency represented on the SPOG will notify the National Security Council 

staff within 3 months of the promulgation of this Action Plan: 

 Which categories of personnel are likely to encounter victims of human trafficking in the 

course of their duties; 

 Of these categories of personnel, which should receive annual training. This training should 

begin occurring within one year of the promulgation of this Action Plan; and 

 What, if any, existing training could be enhanced to fulfill this priority action. 

Federal prison personnel will be trained on identifying human trafficking and traffickers’ 

recruitment efforts. All immigration officers will be trained on identifying human trafficking in 

connection with visa applications and interviews. DOD will update its training for new civilian 

and military hires as well as investigative and acquisition personnel on protocols for reporting 

incidents of suspected human trafficking. All security personnel at military bases will be trained 

in identifying indicators of human trafficking. DOS consular officers will be trained biennially on 

identifying human trafficking and response protocols. HHS will develop training on indicators of 

human trafficking available to relevant Federal, state, tribal, and territorial human service 

professionals, such as social security, unemployment, and Medicaid program professionals. HHS 

will update its training on identifying indicators of human trafficking and responding for Federal 

child welfare officials working with the unaccompanied alien children program. Additionally, 

HHS programs serving runaway and homeless youth, youth at-risk, and domestic violence 

programs will receive an updated training on human trafficking indicators and screening processes. 

Each Federal department or agency represented on the SPOG will ensure training and awareness 

materials are tailored to context where possible and culturally relevant. For example, training and 

awareness materials intended for tribal communities will be tailored to the type of human 

trafficking present on tribal lands. The subjects in this training and awareness materials should 

include American Indians, Alaska Natives, Native Hawaiians, and Pacific Islanders; and the 

development of these training and materials will involve significant consultation with American 

Indian, Alaska Native, Native Hawaiian, and Pacific Islander communities and survivors. This 

consultation should be done in coordination with relevant interagency efforts, such as the 

Operation Lady Justice Task Force56. Training must include information on how to respond 

appropriately. All human trafficking training will be reviewed regularly to provide updated 

information (such as news stories, social science research, and case studies) to ensure the training 

remains relevant. 

                                                            

56 See Executive Order 13898, Establishing the Task Force on Missing and Murdered American Indians and Alaska 

Natives, November 26, 2019, available at https://www.govinfo.gov/content/pkg/FR-2019-12-02/pdf/2019-

26178.pdf.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

26

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Accessible, quality training incorporating a victim-centered approach is greatly needed. Relevant 

training for Federal law enforcement will be recorded, transcribed, and available online to law 

enforcement across the country within one year. HSI Academy Advanced Human Trafficking 

Training and the Federal Law Enforcement Training Centers’ Human Trafficking Awareness 

Training will continue to be expanded. FBI and Drug Enforcement Administration (DEA) 

Training Academies will introduce human trafficking awareness training into their basic training 

within 2 years. DOJ’s Office for Victims of Crime (OVC) will promote a 4-hour self-paced online 

training for service providers and others on identifying and responding appropriately to human 

trafficking. DOJ and HHS will provide Federal law enforcement agencies, such as those in DHS 

and DOJ, with already existing training on vicarious trauma for dealing with the experience of 

working on emotionally challenging human trafficking cases. HHS FYSB will make its training 

on the trauma-informed approach available to any United States law enforcement agency. The 

BOP will add training on a trauma-informed approach. DOJ, in coordination with the working 

group referenced above, will consider ways to offer human trafficking training curricula to state, 

local, territorial, and tribal police academies and build their capacity to offer the training. The 

SPOG will conduct outreach to leading accreditation organizations within 6 months of the 

publication of the Action Plan to discuss developing standards for human trafficking awareness 

training. 

Priority Action 2.1.4: Increase access to public awareness materials focused on 

victim identification, including by displaying those materials in priority locations 

within 1 year 

Information about indicators of human trafficking in awareness materials will be context 

appropriate and specific to types of human trafficking. To the extent this or other direction in this 

Priority Action requires the development of new material, such development will be subject to the 

availability of appropriations. DHS will display notices describing the indicators of human 

trafficking in Federally-controlled transportation areas, such as airport screening areas, land port 

crossings, and train stations. The United States Department of Transportation (DOT) will expand 

its awareness materials tailored to more modes of transportation and share them with public and 

private transportation stakeholders across the country. Prisons and immigration detention centers 

will provide inmates and detainees with information on human trafficking and hotlines for victims 

of crime to receive assistance. DOL will include information on labor trafficking in its outreach 

materials and targeted initiatives. EEOC will update its Youth@Work program materials to 

include information on labor trafficking. The Department of Education will make guidance 

available to schools on identifying and responding to human trafficking and child exploitation. 

HHS will distribute information and sample resources on legislatively mandated57 posting 

requirements of the National Human Trafficking Hotline in all Federal buildings. HHS will also 

distribute information about human trafficking identification and services through its network of 

stakeholders including early childhood education programs, runaway and homeless youth, family 

                                                            

57 See Abolish Human Trafficking Act of 2017, Pub. L. No. 115-392 (2018) § 18. 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

27

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

violence, adolescent pregnancy prevention, child welfare, and other relevant health and human 

service programs. Additionally, the Department of Education will hold listening sessions for 

education service providers and parents on the issue and its impact on vulnerable populations. In 

coordinating with existing efforts led by National Indian Gaming Commission in conjunction with 

the United States Department of Interior’s (DOI) Bureau of Indian Affairs, Treasury with support 

of DHS and the departments and agencies will conduct outreach to tribal casinos to raise awareness 

on the risks of human trafficking in the industry. Social media awareness campaigns will target 

key demographics and be assessed on their effectiveness. Private sector, faith-based organizations, 

and other partners that can display human trafficking awareness materials will be engaged and 

prioritized based on where human trafficking victims are most likely to be encountered, such as in 

emergency rooms or urgent care facilities, human service centers that administer public benefits, 

mental health services, substance use treatment services, religious bulidings, and jails, prisons or 

juvenile detention facilities. The SPOG Public Awareness and Outreach Committee will help 

coordinate and track these efforts. 

Principle 2.2: Safeguard victims of human trafficking from being 

inappropriately incarcerated, fined, or otherwise penalized for unlawful acts 

committed as a direct result of being trafficked 

The Federal Government has been addressing this particular priority action in United States law 

for almost 20 years. The initial criminalization of human trafficking in 2000 was in part a response 

to the inappropriate treatment and penalization of human trafficking victims. The United States 

Government will more effectively implement this principle and also encourage state, local, tribal, 

and territorial governments to adopt and more effectively implement it, such as through training 

and consultation with survivor experts.58 

Priority Action 2.2.1: Review and update training, policies, and guidance for 

Federal law enforcement to protect human trafficking victims

Federal training and policies must state that, once properly identified as a human trafficking victim, 

an individual should not be inappropriately penalized for having engaged in unlawful activity as a 

direct result of being a victim of human trafficking. Unlawful activity includes, but is not limited 

to, engaging in prostitution, entering the country unlawfully, or working without documentation 

or with false documents. All human smuggling cases being prosecuted will be screened by Federal 

law enforcement officials for indications of human trafficking and, if there are indications present, 

those human smuggling cases will be removed from early disposition (also known as “fast track”) 

prosecutorial programs to allow prosecutors and criminal investigators the time to determine if 

human trafficking was present. Federal law enforcement agencies will issue guidance to field 

offices and task forces outlining best practices for victim-centered, trauma-informed law 

enforcement operations, the use of appropriate shelter rather than jail or detention for individuals 

properly identified as human trafficking victims, and screening for human trafficking during other 

                                                            

58 The term “survivor expert” is used in this report to refer to a human trafficking survivor who has expertise on 

human trafficking issues. 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

28

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

operations, including worksite, drug, and gang-related enforcement operations, before arrest or 

detention. 

Priority Action 2.2.2: Provide human trafficking victims protection from removal 

to assist law enforcement efforts

No category of individuals with an immigration violation is exempt from removal. However, 

Federal law enforcement officials have discretion and the responsibility to assess the impact of a 

potential removal on criminal enforcement efforts. The TVPA gives Federal law enforcement 

officials the flexibility to allow human trafficking victims to remain in the United States 

temporarily, because detaining and removing human trafficking victims can harm law 

enforcement’s ability to effectively identify, investigate, and prosecute human trafficking crimes. 

All relevant Federal law enforcement agencies will implement this as policy. ICE and the 

Executive Office for Immigration Review (EOIR) will receive regular training on immigration 

options for victims of human trafficking to assist officials when they encounter such victims during 

removal proceedings. 

Priority Action 2.2.3: Provide remedies for victims with inappropriate arrests and 

criminal records 

A Federal law enforcement working group will be convened by the DOJ to issue recommendations 

for updating the notation on disposition of arrest records for human trafficking victims who were 

not recognized as such at the time of arrest. The group will consider drafting, if needed, proposed 

Federal legislation and model state legislation, in collaboration with relevant stakeholders. Human 

trafficking victims with criminal records as a result of their victimization are sometimes unable to 

access affordable housing, employment, higher education, and more and may be impacted in 

immigration proceedings. Enabling human trafficking victims to shield or clear their criminal 

records of crimes committed as a direct result of being trafficked through vacatur and expungement 

may encourage victims to work with law enforcement that are investigating and prosecuting 

traffickers. Federal agencies will review availability of current training on the issue of vacatur and 

expungement and encourage states to adopt programs appropriate for their state to address 

assistance with vacatur and expungement motions. 

Priority Action 2.2.4: Encourage state, local, territorial, and tribal governments to 

protect victims from inappropriate punishment for conduct committed as a direct 

result of being trafficked

Federal law enforcement agencies will provide information to state, local, tribal and territorial 

governments on policies that would prevent the inappropriate arrest of human trafficking victims 

for unlawful conduct resulting directly from victimization and offer victim services instead. The 

Federal Government will encourage state, local, tribal, and territorial partners to issue updated 

recommendations, including the development of a model law to establish state vacatur and 

expungement provisions for crimes committed as a direct result of an individual being trafficked 

and a model safe harbor law for minors engaged in commercial sex acts. The Federal Government 

will also offer training and technical assistance to state, local, territorial, and tribal law enforcement 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

29

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

on the benefits of appropriately identifying child sex trafficking and protocols that mandate that 

law enforcement refer minors engaged in commercial sex acts to child welfare or communitybased services rather than arrest them. 

Principle 2.3: Improve access to immigration benefits and options programs to 

efficiently and effectively provide assistance 

Expeditiously providing immigration benefits and options to eligible victims of a crime contributes 

to their ability to recover from trauma and participate in an investigation and prosecution of their 

traffickers. Potential recipients of these benefits and options should be treated with respect for 

their rights as crime victims. Delays in providing immigration benefits to foreign national human 

trafficking victims affect a victim’s ability to stabilize, find employment, and access Federal 

benefits and services. At the same time, these programs are subject to abuse by those simply 

seeking legal immigration status in the United States. Efforts to improve access to and the integrity 

of these programs will ensure that the United States Government fulfills its mandate to assist 

foreign national victims of human trafficking in the United States. 

Priority Action 2.3.1: Modernize immigration program systems connected to human 

trafficking victims 

Immigration program systems will be modernized, subject to the availability of appropriations. In 

doing so, ICE, in coordination with United States Citizenship and Immigrations Services (USCIS), 

will migrate the submission and approval process for Continued Presence from a paper-based 

system to a digital process. This will reduce overall processing time and lower barriers for law 

enforcement to make the requests. Shortcomings in the U visa electronic records system that 

currently do not sufficiently support data analytics will be addressed by upgrading the system over 

the long term. Law enforcement certifications of T visa applications and U visa petitions will be 

submitted and processed electronically to improve usability and data integrity. All systems 

changes will be in accordance with relevant privacy and confidentiality laws. 

Priority Action 2.3.2: Provide immigration protections to ensure eligible victims 

are not removed

Protecting victims of crime is critical to law enforcement. As with confidential informants, victims 

of human trafficking may lack legal immigration status, yet can be necessary for the prosecution 

of law enforcement’s criminal targets. Removing them from the country could keep an 

investigation or prosecution from moving forward. Temporary immigration options and benefits 

make it possible for victims to rebuild their lives, ultimately enabling them to cooperate with law 

enforcement. On average, law enforcement officials have made fewer than 200 requests annually 

for Continued Presence for foreign national human trafficking victims since the TVPA created the 

program in 2000. The T visa program, which has an annual cap of 5,000 visas per year, has 

averaged 570 T visa principals approved annually since 2008. In response, DHS and DOJ will 

convene an departments and agencies working group to draft a legislative proposal to modernize 

the Continued Presence statute if necessary and devise strategies, including targeted training, to 

further encourage Federal, state, local, tribal, and territorial law enforcement to request Continued 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

30

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Presence, as appropriate, when they encounter a foreign national who is likely to be a victim of 

human trafficking. 

USCIS, ICE, and EOIR will coordinate to consider the most efficient means of exchanging 

information about identified victims throughout removal proceedings. USCIS retains discretion, 

on a case-by-case basis, to refer cases to the Prosecutorial Review Panels in order to not issue a 

Notice to Appear – after considering USCIS and DHS guidance, DHS enforcement priorities, the 

individual facts presented, and DHS interests implicated (e.g., litigation, deconfliction, etc.) 

USCIS may also consider the nature of a technical denial (i.e., failure to provide a passport in time) 

when exercising discretion in the initiation of removal proceedings. When conducting outreach 

on immigration benefits and options for victims of crime, DHS will clarify immigration policies 

impacting victims of human trafficking, including any applicable exclusions from the “public 

charge” ground of inadmissibility. 

Priority Action 2.3.3: Ensure program integrity in immigration benefits designed to 

assist trafficking victims

Immigration benefits and options are truly beneficial to victims, to help them rebuild their lives, 

and to law enforcement, to enable victims to cooperate as witnesses in trafficking investigations 

and prosecutions. Fraudulent and non-meritorious claims for immigration benefits divert limited 

resources and delay the grant of benefits to legitimate victims of trafficking. DHS and DOJ will 

coordinate to consider anti-fraud and other program integrity measures, to ensure these benefits 

are preserved for victims and that eligible victims receive timely access to benefits and protections 

in accordance with the TVPA. 

Principle 2.4: Expand and improve assistance to victims encountered by 

Federal enforcement agencies

Federal victim assistance is not only required by law,59 but also provides critical support to the 

victim in the aftermath of a crime and thus is an integral part of any law enforcement agency’s 

human trafficking mission. 

Priority Action 2.4.1: Increase victim assistance personnel 

Federal criminal investigative agencies will ensure that there are victim assistance personnel in 

locations where their agency participates in human trafficking task forces and available to cover 

the entire United States to provide mandatory services under the law.60 HSI and Diplomatic 

Security Service (DSS) will discuss funding options with OMB to enhance Federal victim 

assistance staffing to the extent funds are available. Other Federal law enforcement agencies, such 

as ICE ERO, BOP, and Internal Revenue Service (IRS), shall designate a victim coordinator 

                                                            

59 See, e.g. the Trafficking Victims Protection Act as amended (22 U.S.C. §§ 7101-7114); the Crime Victims’ Rights 

Act (18 U.S.C. § 3771 and 34 U.S.C. § 20141), the Victim Rights and Restitution Act (34 U.S.C. § 20141), and the 

Mandatory Victim Restitution Act (18 U.S.C. § 3663A). 

60 See 18 U.S.C. § 3771 and 34 U.S.C. § 20141.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

31

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

responsible for ensuring the agency implements training, policy, and identification efforts. HSI 

will pursue additional staffing to support victim assistance programs. Increasing personnel would 

provide the protections as intended under the TVPA and as mandated by the Crime Victim Rights 

Act and the Victim Rights and Restitution Act and serve to inform victims of their rights, to advise 

them on the process for restitution, and to provide information on emergency medical and social 

services. DOJ will also consider ways to increase victim-witness assistance expertise and support 

in human trafficking prosecutions. 

Principle 2.5: Seek financial remedies for victims 

For some victims, financial remedies are the most important aspect of justice. Victims may find 

themselves penniless and in need of medical and mental health care, housing, job training, and 

resources to care for family members, among other needs. Federal law mandates victims receive 

restitution in human trafficking cases and victims are prioritized to receive the value of forfeited 

assets.61 Courts have awarded victims restitution in only a small portion of cases, and even in 

cases where courts ordered restitution, the full amounts were not recovered from the defendant for 

transfer to the victim. Actions taken at each stage of a criminal case from investigation, to 

charging, plea negotiations, and sentencing all affect whether victims will receive full and timely 

restitution. Yet, in some cases restitution is not considered until the sentencing phase of a criminal 

prosecution. Identifying and freezing the assets of traffickers as soon as possible during the 

investigation makes more funds available to victims for restitution down the road. Further, 

prosecutors and judges may lack awareness of who is entitled to restitution, what is recoverable, 

and what information is required in determining which property and assets can be forfeited and 

used toward restitution. While significant efforts have been made to ensure that prosecutors 

vigorously pursue restitution and forfeiture on behalf of human trafficking victims, more effort is 

needed to maximize the likelihood of recovering perpetrators’ assets and to ensure that courts are 

well-informed about mandatory restitution under Federal law. 

Priority Action 2.5.1: Create comprehensive training on restitution

To ensure that courts can assess and the government can maximize the funds they collect for use 

as restitution for victims of human trafficking, DOJ and Federal investigative agencies should 

conduct comprehensive training covering the investigation, imposition (charging through 

sentencing), transfer of forfeiture to victims under the Justice for Victims of Trafficking Act,62 and 

collection of restitution. A training plan should also include outreach to judicial branch via the 

Administrative Office of the United States Courts and for probation officers at the United States 

Probation and Pretrial Services National Training Academy. Training will explain the importance 

of focusing on restitution at the early stages of investigation and the role of DOL in assisting with 

calculating restitution. DOJ will develop public materials on advocating for restitution in a case 

and the availability of other financial remedies, such as private civil causes of action and crime 

victims compensation programs. 

                                                            

61 See 18 U.S.C. §§ 1593 – 1594. 

62 See Pub. L. No. 114-22, § 105 (a)(4) (2015)(18 U.S.C. § 1594(f)). 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

32

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Principle 2.6: Offer or connect victims to social services to increase short and 

long-term stability 

Human trafficking survivors who have experienced severe trauma or who have been deprived of 

opportunities require social services and health care to rebuild their lives. The United States 

Government funds a range of services and grant programs, some of which are already available to 

human trafficking survivors in recognition of their need for comprehensive services. Some 

programs require expansion while others require refinement in order to meet the needs of diverse 

survivors and their equally diverse needs on the road to stability. 

Priority Action 2.6.1: Increase access to mental health and other healthcare 

services

The United States Government will support greater incorporation of funding for mental healthcare 

into grant opportunities. Outreach and public awareness campaigns related to human trafficking 

will stress the importance of mental health and well-being. HHS will ensure that the National 

Human Trafficking Hotline is able to make referrals to mental health organizations and health care 

providers with the appropriate expertise to work with human trafficking victims, to include those 

who have cultural competency for working with indigenous peoples of North America and the 

Pacific, foreign nationals, individuals with limited English proficiency, LGBT+ individuals, men 

and boys, and formerly incarcerated individuals. HHS’s Substance Abuse and Mental Health 

Services Administration (SAMHSA) acknowledges the importance of training of mental health 

professionals to provide evidence-based treatment to address the short and long term trauma 

experienced by trafficking survivors and their families. HHS’s FYSB will incorporate resources 

on trauma into their training on human trafficking for service providers working with runaway 

youth, high-risk youth, and domestic violence victims. HHS’s Health Resources and Services 

Administration (HRSA) will provide programmatic and technical assistance on trauma-informed 

models to support survivors of human trafficking in settings of care, including the Community 

Health Center Program and the Ryan White HIV/AIDS Program. HRSA, in partnership with other 

Federal agencies, will advance innovative health care delivery models at the state, local, tribal and 

territorial levels that support survivors of human trafficking.

Priority Action 2.6.2: Increase access to shelters and safe housing

A shortage of emergency shelter space and homelessness are serious problems for survivors of 

human trafficking. Federal agencies will commit to developing policies that facilitate safe and 

secure emergency, short-term, transitional, and long-term housing options and address barriers that 

human trafficking victims, particularly those with a criminal record directly resulting from their 

victimization, may face in accessing public housing. The United States Department of Housing 

and Urban Development (HUD) Office of Public and Indian Housing will conduct an awareness 

campaign with public housing authorities working with human trafficking victims. The campaign 

will address victims’ criminal records resulting from their victimization in order to remove any 

barriers to entering public housing. OVC will continue to prioritize the human trafficking housing 

program to support safe, stable housing options for human trafficking victims. 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

33

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

The SPOG Victim Services Committee will continue to share best practices in housing for human 

trafficking survivors by leveraging meetings and listening sessions initiated in Fiscal Year 2020 

focused on identifying challenges and promising solutions. This will include disseminating 

recommendations to address the great need for housing for male victims of both sex trafficking 

and labor trafficking; placement for minor victims outside of their state of residence when it is in 

their best interests; and strategies and technology related to locating available shelter beds and 

other forms of emergency housing. HUD, HHS, General Services Administration (GSA), and 

DOJ will convene periodically to discuss viable options for providing temporary shelter to human 

trafficking victims – including through the McKinney-Vento Homeless Assistance Act of 198763

when local resources are overwhelmed. HHS and DOJ will strengthen safe housing options for 

survivors of human trafficking. This directive operationalizes Executive Order 13903 on 

Combating Human Trafficking and Online Child Exploitation.

64 

Priority Action 2.6.3: Increase access to employment

The United States Government will connect relevant grantees to facilitate referrals from human 

trafficking victim assistance providers to DOL-funded employment and training programs for 

which they are eligible in their communities (such as American Job Centers, Reentry Employment 

Opportunities, Job Corps, and YouthBuild). DOJ will ensure that victims of human trafficking 

leaving incarceration are connected to the appropriate reentry services. HHS will adapt resources 

on 2-generation/whole family approaches to strengthen economic self-sufficiency through early 

childhood development, postsecondary and employment pathways, social capital, and economic 

assets. 

Priority Action 2.6.4: Increase access to education

DHS will issue a Request for Information on the availability of academic scholarships for victims 

of human trafficking and incorporate the feedback into advising victims on available services. 

The United States Government will also look at leveraging existing resources or funding financial 

literacy programs that support victims and teach skills related to budgeting, opening bank accounts, 

and overcoming poor credit scores and identity fraud. 

Priority Action 2.6.5: Increase access to assistance broadly

Strengthening coordination on existing Federal housing, employment, and social service programs 

at the regional level may result in initiatives that better meet the needs of human trafficking 

survivors. HUD, HHS, and DOL regional offices, in consultation with OVC, will explore 

developing a pilot collaboration, in partnership with Federally funded service providers, to 

overcome current challenges in connecting survivors of all forms of human trafficking to 

sustainable housing and meaningful employment, including consideration of self-employment or 

social enterprise opportunities. 

                                                            

63 See Pub. L. 100-77 (1987), title V, § 501 (as amended) (42 U.S.C. § 11411). 64 See https://www.govinfo.gov/content/pkg/FR-2020-02-05/pdf/2020-02438.pdf. 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

34

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

HHS OTIP will offer technical assistance to bolster peer-to-peer support models for human 

trafficking survivors. 

 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

35

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

★ ★ ★

PILLAR 3: PROSECUTION

Dismantle Human Trafficking Networks 

and Hold Traffickers Accountable 

The United States Government remains committed to holding accountable individuals and entities 

engaged in human trafficking and to dismantling human trafficking networks. The investigation 

and prosecution of human trafficking present a distinct set of challenges. Many human trafficking 

violations span years, involve dozens or hundreds of victims, and cross jurisdictions. The target 

of an investigation may lead to an extensive network of potentially culpable co-conspirators, 

including facilitators who benefit financially and buyers of goods, labor, or services who turn a 

blind eye to victims. Enforcement of immigration laws, asset forfeiture, and restitution are 

valuable and effective tools available in such cases. Multiple investigative agencies must deploy 

experts to dismantle large criminal enterprises, to address offenses related to narcotics, 

immigration, racketeering, money laundering, fraud, extortion, and sexual exploitation, and to 

disgorge profits. Many human trafficking cases rely on victim testimony, yet there are challenges 

in securing human trafficking victims’ participation as witnesses. Some may not identify as crime 

victims, may fear retaliation from their trafficker, and may suffer from complex trauma, requiring 

intensive support to victims (see additional discussion above under Pillar 2: Protection). 

Accordingly, the commitment of significant resources over multiple years must be prioritized to 

bring a human trafficking enterprise to justice. To confront these complexities, Federal human 

trafficking investigators and prosecutors must improve coordination among themselves and their 

partners; deploy a broad range of Federal enforcement tools; build strategies to combat labor 

trafficking, which is prosecuted less frequently; and ensure advanced training on an ongoing basis. 

This goal presents 13 priority actions organized under 4 principles related to increasing criminal 

enforcement through improved coordination among enforcement partners; employing a broader 

range of non-criminal enforcement tools; increasing accountability for labor trafficking; and 

building capacity of law enforcement. 

Priority Actions 

Principle 3.1: Increase criminal enforcement through improved coordination 

among law enforcement agencies and their partners 

To target and dismantle complex human trafficking networks and hold human traffickers 

accountable, Federal prosecutors and law enforcement agencies must leverage the diverse 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

36

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

perspectives, skills, and capacities of many partnerships. These partners include survivor experts 

and NGOs. Coordination will occur through creating Federally-led initiatives, partnering with 

private entities that can disrupt trafficking, strengthening referral mechanisms, and expanding task 

forces to a broad range of partners. Federal investigative agencies with significant human 

trafficking responsibility include HSI, FBI, DSS, and DOL Office of Inspector General (OIG). 

Numerous other investigative agencies have specialized jurisdiction or expertise that contributes 

importantly to the mission of combating human trafficking. Federal prosecuting authorities 

include 94 USAOs and 2 components at DOJ headquarters - the Human Trafficking Prosecution 

Unit and the Child Exploitation and Obscenity Section - in coordination with specialized 

prosecuting units as appropriate, including the Money Laundering and Asset Recovery Section, 

the Human Rights and Special Prosecutions Section, the Organized Crime and Gang Section, the 

Fraud Section, and the Computer Crime and Intellectual Property Section.

Priority Action 3.1.1: Develop a timeline and seek to secure necessary resources 

for launching the third phase of the Anti-trafficking Coordination Team Initiative in 

select districts

The Attorney General, Secretary of Homeland Security, and Secretary of Labor launched this 

initiative in 2011 to convene and train departments and agencies teams in select judicial districts 

to develop high-impact human trafficking cases with the support of headquarters anti-trafficking 

experts. Anti-trafficking Coordination Team (ACTeam) districts significantly increased the 

overall number of human trafficking prosecutions as compared to previous years in the same 

districts. ACTeam districts also prosecuted more cases on average than non-ACTeam districts 

during the same period.65 During the pilot phase, ACTeam districts more than doubled the number 

of cases filed and defendants prosecuted, and during the second phase, ACTeam districts again 

saw increases in cases filed and defendants prosecuted. Notably, ACTeam districts investigated 

and prosecuted a higher proportion of labor trafficking cases relative to overall human trafficking 

cases, as compared to non-ACTeam districts, due in part to partnership with Federal agencies with 

labor expertise. The combination of vertical accountability from cabinet-level involvement in the 

initiative’s launch to regular engagement with agencies’ headquarters experts throughout the 

initiative and horizontal partnership, involving intensive coordination among multiple Federal 

agencies within each ACTeam district, resulted in a higher capacity to dismantle human trafficking 

networks and bring traffickers to justice. Federal partners will seek to secure sufficient resources 

in order to launch the third phase of this intensive effort including through their budget proposals 

to OMB. During the preparation for the third phase, Federal partners, including DSS, will further 

elevate labor trafficking as a priority for investigations and prosecutions, including through 

updated guidance on proactive detection, and will continue to incorporate financial investigations.

Priority Action 3.1.2: Expand the United States-Mexico Bilateral Human 

Trafficking Enforcement Initiative through intelligence-driven targeting

The United States-Mexico Bilateral Human Trafficking Enforcement Initiative connects 

United States and Mexican law enforcement counterparts on human trafficking operations to 

                                                            

65 See United States Department of Justice, Anti-trafficking Coordination Team (ACTeam) Initiative Fact Sheet, 

available at https://www.justice.gov/opa/file/623176/download.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

37

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

expedite the sharing of leads, evidence, information, and expertise that can result in dismantling 

cross-border human trafficking networks. The initiative has proven highly effective at advancing 

high-impact bilateral investigations and prosecutions to dismantle transnational human trafficking 

enterprises. This impact has been effected through a series of United States Federal prosecutions 

and related Mexican state and Federal prosecutions of associated traffickers. These networks have 

trafficked highly vulnerable Mexican and Central American women and girls throughout the 

United States. The networks have lured victims on false promises of love, marriage, and a better 

life, then compelled them into prostitution by using deception, psychological manipulation, 

beatings, rapes, isolation, intimidation, threats against victims’ families, and control over the 

victims’ children. The traffickers have retained virtually all of the proceeds derived from 

compelling the victims to perform dozens of commercial sex acts each day, then laundered these 

criminal proceeds back to Mexico, while the victims retain next to nothing. Under the leadership 

of DOJ’s Human Trafficking Prosecution Unit and DHS’s HSI, the initiative leverages the 

expertise of multiple Federal agencies and incorporates case-mentoring exchanges. This initiative 

also uses advanced analytics to conduct intelligence-driven targeting and incorporates financial 

investigations and prosecutions. 

DOJ and DHS will work to expand the impact of the United States-Mexico Bilateral Human 

Trafficking Enforcement Initiative by leveraging DOJ, DHS, and partners’ intelligence analysis 

assets to expedite simultaneous investigations and prosecutions in multiple United States and 

Mexican jurisdictions. Treasury’s enforcement agencies will continue to augment human 

trafficking investigations in coordination with DOJ to leverage anti-money laundering expertise. 

Federal agencies will need to identify sufficient resources to most effectively expand impact. DOJ 

and DHS will engage directly with additional USAOs and Federal law enforcement agency offices 

to expand the scale and impact of the Initiative. 

Priority Action 3.1.3: Evaluate the Enhanced Collaborative Model Task Forces to 

Combat Human Trafficking and recommend implementation options 

DOJ’s Enhanced Collaborative Model Task Forces to Combat Human Trafficking66 are 

multidisciplinary human trafficking task forces bringing together professionals from a variety of 

disciplines. These professionals collaborate to identify victims of all forms of human trafficking; 

engage in victim-centered investigations; prosecute or refer sex and labor trafficking cases to state, 

local, tribal, and territorial agencies; and address the needs of human trafficking victims through a 

comprehensive array of services. Each task force may receive 2 separate grant awards – one to a 

law enforcement entity and one to a service provider. 

DOJ will complete an evaluation of the structure and impact of the Enhanced Collaborative Model 

Task Force Program. The results of the evaluation will inform the evolution of the task force 

model. DOJ will continue to consider enhancements to the program including increased 

collaboration between law enforcement, victim services, and community stakeholders. Any 

program modification will continue to be informed by survivor experts. 

                                                            

66 This task force program is funded under the TVPA, which authorizes OVC to make grants for direct services to 

victims of human trafficking. OVC and the Bureau of Justice Assistance (BJA) developed the Enhanced 

Collaborative Model Task Forces to support the development and enhancement of multidisciplinary task forces.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

38

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Priority Action 3.1.4: Seek to establish Federally-funded human trafficking task 

forces that are sustainable and state, tribal, territorial, or locally-led 

DOJ will enhance efforts to establish state, tribal, territorial, or locally-led human trafficking task 

forces that fulfill the principles of sustained state law enforcement leadership and comprehensive 

victim assistance. These efforts will draw on lessons from evaluations of other collaborative 

multidisciplinary efforts. Survivor experts will inform program development. DOJ will not 

propose to diminish resources provided from current DOJ funding sources for victim assistance 

grants. 

Federally funded, state or locally led human trafficking task forces should include funding to state, 

local, tribal and territorial law enforcement and victim assistance programs. Task forces should 

be distributed broadly across the country building toward at least one task force, whether funded 

through Federal or other sources, in each state. These task forces should build on lessons learned, 

including the importance of sustaining law enforcement leadership to build, retain, and exchange 

institutional knowledge. It is also important for task forces to sustain collaborations among grant 

recipients and Federal law enforcement and promote actionable intelligence sharing, investigative 

capacity, and a strategic approach to prosecution at all levels of government. A human trafficking 

victim’s access to protection and resources regardless of whether and when victims collaborate 

with law enforcement is equally important to successful enforcement. Providing assistance to 

human trafficking victims also meets urgent United States Government protection goals (see Pillar 

2). In the context of task forces, providing critical assistance to victims allows them to stabilize 

and rebuild their lives and, in some cases, become ready to collaborate with law enforcement 

investigations and prosecutions against human traffickers. 

Priority Action 3.1.5: Develop a protocol to refer human trafficking cases that will 

not be federally criminally prosecuted so that other criminal, civil, and 

administrative authorities can be exercised

Some human trafficking cases cannot be federally prosecuted or addressed through civil actions 

by the Attorney General67 due to insufficient available evidence to meet the high burden of proof 

or for other reasons. In such cases and in any other situations in which a Federal criminal human 

trafficking case concludes without prosecution, Federal criminal investigative agencies should 

adopt a protocol to consistently refer appropriate case information to state, local, tribal, and 

territorial law enforcement agencies for criminal investigation and prosecution. When appropriate, 

referrals will also be made to other Federal agencies or NGOs that may be able to pursue other 

avenues to justice. Referrals could be made to other Federal agencies such as DOL, EEOC, and 

Treasury; state, local, tribal, and territorial enforcement agencies; and legal services organizations 

that may be able to assist victims with private civil claims. Federal investigative agencies, 

including FBI, ICE, DSS, and DOL OIG, will collaborate to develop referral practices that can be 

integrated into their respective policy or guidance documents. 

                                                            

67 E.g. DOJ-initiated civil injunctions under 18 U.S.C. § 1595A; or Federal civil forfeiture actions.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

39

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Principle 3.2: Build capacity of law enforcement to investigate and prosecute 

human trafficking

Law enforcement investigators require advanced training to address the complex crime of human 

trafficking. Training programs should be survivor-informed. Topics should include: strategies to 

implement a victim-centered, trauma-informed approach; developing evidence of victims’ state of 

mind to use in prosecutions for coercion-based crimes; engaging in proactive investigations relying 

on financial and other intelligence; and investigating financial crimes and identifying assets. The 

United States Government can build its investigative capacity by expanding partnerships, such as 

with technology companies and child welfare systems in order to locate exploited children. 

Priority Action 3.2.1: Engage relevant stakeholders, including state, local, tribal 

and territorial law enforcement, to increase prosecutions related to child sex 

trafficking

DOJ will create a strategic operational working group that brings together investigative and 

prosecutorial stakeholders from the Federal, state, local, tribal and territorial levels to describe the 

child sex trafficking threat landscape, develop plans for investigation and prosecution, and identify 

subject matter experts available to provide training and outreach. Since passage of the TVPA of 

200068, Federal child sex trafficking investigations and prosecutions have steadily increased. 

However, given that most crimes are not prosecuted federally, there are limitations on Federal 

resources, and there are strong state, local, tribal and territorial equities, the Federal Government 

must continue to invest in building capacity of these law enforcement partners. Partners should 

be encouraged to enact laws with appropriate sentences for child sex trafficking and should be 

trained on child sex trafficking investigations and prosecutions, including protecting trafficked 

children (as compared to buyer stings that do not identify children). At the same time, Federal 

prosecutors must prosecute child sex trafficking when states, tribes or territories lack jurisdiction 

or appropriate penalties, including for buyers of commercial sex with children. This DOJ-led 

working group’s engagement will occur through various forums and could include the National 

Association of Attorneys General, the National District Attorneys’ Association, the International 

Association of Chiefs of Police, the National Congress of American Indians, the National Native 

American Law Enforcement Association, and the National Advisory Committee on the Sex 

Trafficking of Children and Youth in the United States, which includes members of the judiciary, 

prosecutors, law enforcement, survivors and other important stakeholders. 

Priority Action 3.2.2: Enhance capabilities to locate children who are missing, 

including those who have run away from foster care, and are vulnerable to human 

trafficking 

Enhanced efforts and abilities are needed to locate missing children, including youth who have run 

away from foster care and are highly vulnerable to human trafficking. 

                                                            

68 Supra note 35.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

40

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

DOJ, DHS, and HHS will pursue increasing the capacity of social media companies and internet 

service providers to identify and locate potential victims of child trafficking and will pursue 

facilitating the sharing of information on potential child trafficking victims between the technology 

industry, state, local, tribal and territorial child welfare agencies, the National Center for Missing 

and Exploited Children (NCMEC), and law enforcement at all levels. The aim will be to take an 

old idea - putting photos of missing children on ubiquitous items like milk cartons to increase the 

number of people looking for those children and modernize it to create a “virtual milk carton” to 

help locate potential child trafficking victims, particularly those missing from foster care. When 

a child goes missing from foster care, the state would notify NCMEC and provide a photograph of 

the child. NCMEC would then provide that information and photo to law enforcement, social 

media and internet service provider companies, and NGOs that scrape online sex trafficking 

advertising and other internet data, all of which would look for any information on the identity and 

location of the child. Any information that technology companies or NGOs found would be fed 

back to law enforcement via NCMEC. DOJ and DHS, in consultation with HHS, will pursue 

legislation needed to support this initiative. 

DOJ and HHS, in consultation with the USMS, will also collaborate to expand Operation HOPE 

nationally to identify children missing from foster care, screen recovered children for potential 

trafficking, connect victims to appropriate care, and prosecute offenders as appropriate. The first 

significant challenge in protecting children who are missing from care is in locating the missing 

child. Operation HOPE has brought together Federal, state, and local authorities for joint regional 

efforts led by HHS OIG Office of Investigations. Its aim is to locate and recover children missing 

from foster care programs. Early iterations of this program have led to the recovery of 42 children 

missing from care. HHS, DOJ, and USMS, will work to expand this operation to other regions, to 

include incorporating it into other investigative efforts, and develop human trafficking 

prosecutions as appropriate.

Priority Action 3.2.3: Develop improved technology for human trafficking 

interdiction and identify technical barriers impeding investigations

Because traffickers frequently use electronic platforms and devices to conduct their illicit 

activities, including recruiting and maintaining victims, DOJ, DHS, and HHS will work with the 

social media and technology industry to identify potential barriers to their voluntary reporting of 

suspected human trafficking on their platforms, as well as possible solutions. DOJ, DHS, and 

HHS will also work with the social media and technology industry, NGOs, and academia on the 

development of innovative technical tools to interdict human trafficking, including demand, and 

how to promote adoption of those tools by relevant stakeholders. The National Advisory 

Committee on the Sex Trafficking of Children and Youth in the United States is a potential forum, 

among others, for engaging with industry partners on these issues. 

In many cases law enforcement officials are unable to access data due to general privacy and 

security measures (e.g., encryption). These measures make it harder to identify current and 

historical victims, prevent traffickers from recruiting new victims, collect evidence to assist in 

bringing traffickers to justice, and may prevent the removal of harmful online data or images of 

the victims, which causes re-victimization of trafficked persons by allowing harmful data or 

images to remain online. DOJ and DHS, working with their international and domestic partners, 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

41

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

will engage with the social media and technology industry to deny human trafficking and child 

exploitation networks access to social media networks, and find creative solutions to these 

networks’ use of emerging technologies. 

Priority Action 3.2.4: Enhance focus on investigating and prosecuting the demand 

and other facilitators of human trafficking

Enhanced efforts are needed to target entities and individuals that knowingly contribute to or 

facilitate human trafficking. Buyers in sex trafficking cases and businesses that knowingly procure 

goods or services from entities or employers using forced labor must be considered as potential 

enforcement targets. Likewise, facilitators such as hotel owners who knowingly profit from sex 

trafficking or companies that recklessly disregard their labor recruiters’ involvement in labor 

trafficking should also be considered as targets. These individuals may be important participants 

in the criminal network and are sometimes overlooked by investigators and prosecutors. 

Focusing on the demand and facilitators serves two main purposes. First, these are persons or 

entities directly involved in the crime of human trafficking and contributing to its profitability. 

Second, these offenders may have assets that could be forfeited and used for restitution. 

Restitution is one resource to assist the victims on a road to recovery. In sum, addressing all 

participants in the crime will disrupt traffickers’ ability to victimize people and will hold all 

responsible persons accountable.

DOJ will train Federal, state, local, tribal and territorial investigators and prosecutors on 

identifying and prosecuting the demand and facilitation aspects of human trafficking under 

relevant statutes using a victim-centered, trauma-informed approach that is designed to build trust 

with law enforcement among victims and potential victims. Federal prosecutors will identify 

strong cases with Federal equities for Federal prosecution. DOJ will explore increased 

collaboration with its state, local, tribal and territorial partners who may be able to pursue cases 

that are not brought to Federal court for prosecution. 

Principle 3.3: Enhance efforts to bring traffickers to justice by deploying a 

broader range of Federal non-criminal tools 

The United States Government can deploy a range of Federal enforcement tools including noncriminal civil forfeiture actions, financial tools including sanctions and anti-corruption measures, 

travel restrictions, and enforcement of reporting requirements in conjunction with or as an 

alternative to criminal prosecution of human trafficking crimes, in order to disrupt human 

trafficking networks and enhance accountability. While human trafficking criminal prosecutions 

are critical, they cannot be undertaken in all cases and are highly resource intensive; the availability 

of additional forms of accountability increases the effectiveness of United States Government 

efforts. 

 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

42

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Priority Action 3.3.1: Deploy a wide range of administrative and regulatory tools 

to disrupt human trafficking

Federal agencies, including Treasury, DOS, and DOT, will seek to further leverage a broad range 

of tools designed to target and deter malign actors. Those tools may be used in coordination with 

criminal prosecutions of human trafficking and related financial crimes as well as alongside other 

civil enforcement actions. 

These tools include financial sanctions and other special measures. Within Treasury, components 

of the Office of Terrorism and Financial Intelligence69 collect and analyze financial intelligence 

and data to identify human traffickers and their networks; disrupt and disable the financial 

underpinnings of these networks; and support law enforcement investigations that lead to 

accountability and justice. Treasury’s Office of Foreign Assets Control (OFAC) applies financial 

sanctions to combat human trafficking. OFAC oversees a range of sanctions programs that can 

target human trafficking conduct. These programs include global and country programs focused 

on human rights abuse and corruption as well as programs with the authorities to target activities 

that overlap with human trafficking, including narcotics trafficking, malign cyber-enabled 

activities, terrorism, and transnational organized crime. As a result of United States financial 

sanctions, United States persons are generally prohibited from engaging in dealings with the 

designated (sanctioned) person; and the designated person’s property is blocked. Treasury will 

examine ways to further combat human trafficking using a range of tools, including financial 

sanctions, as appropriate. 

In coordination with DOJ and human trafficking investigative agencies, Treasury’s Financial 

Crimes Enforcement Network (FinCEN) may be able to deploy special recordkeeping and related 

measures against entities involved in human trafficking networks in order to assist investigations 

and address money laundering concerns. FinCEN can require United States financial entities to 

take certain “special measures” under Section 311 of the USA PATRIOT Act70 if a foreign 

jurisdiction, foreign financial institution, class of transaction, or type of account is of “primary 

money laundering concern.” Special measures include increased recordkeeping and reporting, 

collection of account and transaction information, and limits on opening or maintaining accounts. 

When appropriate, FinCEN will issue geographic targeting orders, which impose additional 

recordkeeping or reporting requirements on domestic financial institutions or other businesses 

relating to a specific geographic area for 180 days. 

DOT will implement the No Human Trafficking on Our Roads Act71 and its final rule,72 which 

requires every state to permanently ban drivers convicted of a severe form of human trafficking 

from operating a commercial motor vehicle for which a commercial driver’s license or a 

commercial learner’s permit is required. Under the final rule, states must come into compliance 

with the Act and regulation no later than September 23, 2022. 

                                                            

69 Components of this office include the Office of Terrorist Financing and Financial Crimes (OFAC), the Financial 

Crimes Enforcement Network (FinCEN), and Office of Intelligence and Analysis (OIA). 70 See Pub. L. No. 107-56 (2001) (31 U.S.C. § 5318A). 

71 See Pub. L. No. 115-106 (2018). 

72 See 84 FR 35335.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

43

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Priority Action 3.3.2: Propose legislation to facilitate revocation of passports and 

other administrative actions against individuals convicted of certain travel-related 

human trafficking and child sexual exploitation crimes 

The TVPA requires the Attorney General to notify the Secretaries of State and Homeland Security 

whenever a defendant is convicted of violating certain child sex offenses involving travel and 

transportation.73 For foreign defendants, the law authorizes DHS to take any action appropriate 

under the Immigration and Nationality Act. The law further requires DOS to revoke or refrain 

from issuing passports to United States citizen convicts who traveled internationally to commit the 

offense. However, other laws74 constrain the Attorney General’s ability to effectively collect and 

transmit the necessary information on convicted individuals to DOS and DHS. As a consequence, 

the law has not been effectively implemented. The relevant agencies will work with the Congress 

to propose legislation to resolve this issue. In addition, the statute could be broadened to cover 

individuals convicted of similar crimes, such as human trafficking and the production of child 

sexual abuse material, when those crimes involve international travel by the defendant. 

Principle 3.4: Increase efforts to investigate and prosecute labor trafficking

Labor trafficking is prevalent across certain sectors in the United States. Governmental and 

external stakeholders regularly recommend prosecuting more cases of labor trafficking, in the 

United States and connected to global product supply chains. Labor trafficking often occurs 

alongside otherwise legitimate business activity connected to companies widely perceived by the 

public as reputable. As a result, successful prosecutions of labor trafficking, while resource 

intensive, are likely to have a significant deterrent effect. Because many forced labor cases involve 

foreign national victims, investigative agencies should convey that strong criminal law 

enforcement need not be perceived as undermining immigration enforcement but instead can exist 

alongside immigration enforcement, particularly when both are focused on accountability for 

human traffickers. 

Priority Action 3.4.1: Increase coordination and strategic engagement in 

investigating and prosecuting labor trafficking

Federal enforcement agencies have consistently prosecuted a few dozen labor trafficking 

defendants per year in recent years, while service providers funded with Federal grants have 

reported serving significantly more identified victims of labor trafficking.75 These cases are 

resource intensive, which is a challenge for Federal prosecuting offices, because they currently 

have no dedicated funding for human trafficking (or labor trafficking) prosecutors. 

DOJ’s Human Trafficking Prosecution Unit, FBI’s Crimes against Children and Human 

Trafficking Unit, and HSI’s Human Trafficking Unit will work to increase labor trafficking 

investigations and prosecutions in select districts. These three agencies will identify districts that 

commit to designating at least one Federal investigator and one Federal prosecutor to coordinate 

                                                            

73 See 18 U.S.C. § 2423 and 22 U.S.C. § 212a. 74 See 5 U.S.C. § 552a. 75 See Attorney General’s Trafficking in Person’s Reports for FY18 and preceding years, available at 

https://www.justice.gov/humantrafficking/attorney-generals-trafficking-persons-report.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

44

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

these efforts, drawing on the ACTeam Initiative’s lesson of strengthening coordination through 

horizontal partnerships between investigators and prosecutors. The headquarters offices will 

provide guidance on intelligence-driven targeting and proactive methods of investigation and will 

facilitate coordination with other DOJ components and departments and agencies that can offer 

special expertise in support of labor trafficking investigations and prosecutions, including DOL, 

Treasury, DOS and others. The initiative will strengthen engagement with worksite enforcement 

agencies that may encounter labor trafficking and promote the use of victim-centered, traumainformed approaches by all Federal enforcement partners.

Priority Action 3.4.2: Develop a memorandum of understanding to support the 

initiation and development of criminal investigations and prosecutions of forced 

labor occurring in United States business entities’ product supply chains

Prosecuting novel cases against companies that knowingly benefit financially from forced labor 

within their value chains holds significant potential to suppress global criminal conduct that poses 

a threat to its victims and to United States markets. DOJ’s Human Trafficking Prosecution Unit, 

HSI and other partner agencies have been meeting since February 2017 to coordinate criminal 

investigations arising from allegations of forced labor in the production of goods imported into the 

United States in violation of Federal criminal law. The law prohibits knowingly benefitting from 

participation in a venture engaged in forced labor in cases where the potential violator knows of 

or recklessly disregards the use of force or coercion to secure labor or services.76 These cases pose 

special challenges because important evidence, including victims and witnesses, may be located 

overseas, and because sometimes complex product supply chains or opaque ownership structures 

must be traced in order to identify culpable actors. At the same time, successful prosecutions can 

have a dramatic impact by bringing justice to numerous victims and by promoting sector-wide 

changes in norms of responsible business conduct thereby preventing future human trafficking. 

Engaging Federal partners including other DOJ components, DOL, DOS, Treasury and others, will 

enhance the success of these investigations and prosecutions. Formalizing Federal partner 

agencies’ efforts to conduct criminal investigations and prosecutions of forced labor occurring in 

United States business entities’ product supply chains through a memorandum of understanding 

signed by each agency’s leadership will elevate the mission; enhance further collaboration to 

detect, investigate and prosecute these cases; and ensure continuity of the departments and 

agencies commitment to addressing these complex violations. 

 

                                                            

76 See 18 U.S.C. §§ 1589, 1593A. 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

45

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

★ ★ ★

PILLAR 4: CROSSCUTTING APPROACHES 

AND INSTITUTIONAL EFFECTIVENESS

Enable Prevention, Protection, and Prosecution through Collaboration 

Effectively combating human trafficking requires lines of effort that complement and support 

achievement of the other three aims of prevention, protection, and prosecution, in addition to 

enhancing collaboration. Aiming to improve the United States Government’s institutional 

capacity to combat this crime will lead to improved outcomes across multiple goals. In the 20 

years since human trafficking became a Federal crime, the United States Government has made 

significant progress in adapting its institutions to combat this threat effectively. This whole-ofgovernment approach will enhance opportunities to better partner together in this effort. In 

particular, information gaps persist that hinder progress toward human trafficking prevention, 

survivor protection, and enhanced prosecution. As a result, government agencies are seeking to 

strengthen research, data collection, and integration. In order to enhance human trafficking 

enforcement efforts, government agencies are also seeking ways to deliver strategic analysis, 

generate actionable leads, and uncover evolving human trafficking trends. 

This goal presents 18 priority actions organized under five principles related to strengthening 

understanding of human trafficking; enhancing information sharing; incorporating survivor input; 

conducting outreach to external partners; and evaluating authorities and resources to combat 

human trafficking. 

Priority Actions 

Principle 4.1: Strengthen understanding of human trafficking impacting the 

United States 

The United States Government cannot effectively prosecute traffickers, assist victims, and prevent 

trafficking, without first improving its understanding of the nature of the threat and its association 

with transnational organized crime and illicit financial activity. Specifically, the United States 

Government must better combine sources of information to map the threat: who is involved, what 

illicit activity are they engaged in, and what are the associated financial flows. Using the most 

current information to ensure that methodology to combat human trafficking keeps pace with 

current illicit practices is imperative to successful actions. Access to strategic analysis of 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

46

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

meaningful information about human trafficking is critical to leveraging all United States 

Government tools to prevent and disrupt human trafficking and recover illicit proceeds. 

Priority Action 4.1.1: Conduct an intelligence assessment on human trafficking  

Within 120 days of the publication of the Action Plan, Federal law enforcement agencies with 

support of the Intelligence Community will develop an intelligence assessment of human 

trafficking with a nexus to the United States. The intelligence assessment will address both sex 

trafficking and labor trafficking of adults and children with a nexus to the United States, as well 

as the different typologies77 of human trafficking and methods of operation. The intelligence 

assessment will integrate information from NGOs, and state, tribal and local Government entities 

as appropriate and may be strategically focused on specific aspects of human trafficking. The 

intelligence assessment will delineate the difference between human smuggling and human 

trafficking while also depicting the means by which smuggled foreign nationals may become 

victims of human trafficking. 

Priority Action 4.1.2: Identify research gaps to better serve vulnerable populations 

and underserved victims

The SPOG Research and Data Committee will convene Federal agencies to determine what 

additional research is needed to understand the impact of human trafficking on underserved or 

vulnerable groups of victims, such as men and boys, LGBT+ individuals, American Indians, 

Alaska Natives, Native Hawaiians, Pacific Islanders, racial and ethnic minorities, individuals with 

disabilities, and youth in the child welfare system. From agency-funded research and analysis, 

recommendations will be provided on how human trafficking programs can better support and 

collaborate with these specific groups and how to bolster effective prevention and intervention 

efforts. Such research would be beneficial for enhancing training and outreach, developing 

policies, programs, and partnerships, and allocating resources. In addition, relevant Federal 

agencies will continue to take steps to address the factors that increase vulnerabilities to human 

trafficking. 

Priority Action 4.1.3: Solicit research to identify effective interventions to combat 

labor trafficking 

More research is needed to understand labor trafficking and how best to address it. Enhanced 

partnerships with DOL, DHS, HHS and other agencies may provide new avenues for increased 

identification, refined measurement practices, and better understanding of recruitment patterns. 

Additional research is needed to better understand the most at-risk industries, needs, and specific 

vulnerabilities of victims. This research should include an analysis of gaps in agency authorities 

to address at-risk industries and in programs to assist victims of forced labor. The analysis will be 

disseminated to law enforcement and other first responders for integration into training. 

                                                            

77 See The Typology of Modern Slavery: Defining Sex and Labor Trafficking in the United States (2017) available at 

https://polarisproject.org/sites/default/files/Polaris-Typology-of-Modern-Slavery.pdf. 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

47

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Principle 4.2: Enhance information sharing to achieve a strategic outcome

Efforts are underway to streamline departments and agencies access to relevant, actionable data 

and intelligence on human trafficking crimes. This includes surveying existing data-sharing efforts 

and technologies to identify gaps, challenges, and opportunities, both domestically and 

internationally. 

Enhanced information sharing is needed to support national-level planning and policy, leveraging 

whole-of-government information and data holdings, to include law enforcement and Intelligence 

Community information. Encouraging multidisciplinary approaches and department and agency 

coordination on enforcement actions is imperative to successfully preventing human trafficking, 

protecting victims, and prosecuting human traffickers to maximize the use of all United States 

Government tools against significant threats. 

Priority Action 4.2.1: Formalize routine law enforcement and Intelligence 

Community engagement to ensure consistent knowledge sharing 

The Intelligence Community will regularly meet with Federal law enforcement to exchange 

information about current initiatives and information gaps and disseminate expertise from the field 

including external partners. This group will share financial intelligence from financial institutions, 

as appropriate and in accordance with applicable law and policy. This effort will facilitate 

leveraging all source intelligence, identifying common aims, and harmonizing missions to support 

departments and agencies coordination. 

Priority Action 4.2.2: Ensure existing departments and agencies mechanisms – to 

include international forums – are employed to counter specific transnational 

human trafficking threats with a significant impact on the United States

Collaboration, information sharing, and coordinated efforts with international counterparts for all 

United States Government components in this process are necessary to fully understand and 

disrupt illicit transnational activities. Anti-trafficking activities need to be synchronized at the 

national level to unify a whole-of-government approach. Activities in this space will take into 

account complementary efforts within the Intelligence Community and law enforcement agencies. 

Dismantling of human trafficking entities would prevent future harm to the United States. The 

National Security Council will convene Federal agencies within 30 days of publication of the 

Action Plan to discuss and select options to leverage existing mechanisms to target and apply 

existing authorities to significant human trafficking threats. 

Priority Action 4.2.3: Integrate financial intelligence into anti-trafficking efforts 

across the United States Government

Leveraging financial intelligence is critical to identify, disrupt, and dismantle human trafficking 

related threats. Financial intelligence provided by financial institutions includes currency 

transaction reports, data about financial transactions indicative of money laundering and predicate 

offenses including human trafficking, reports on the physical transportation of currency or certain 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

48

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

other monetary instruments, and reports on foreign financial accounts. United States Government 

agencies should further incorporate financial intelligence in existing efforts and proactively 

implement actions to disrupt the financial flows of human traffickers and deny revenue sourcesto 

human traffickers and corrupt facilitators. DOJ, DHS, DOL, and Treasury should coordinate and 

leverage financial intelligence to target, investigate, and apply the full range of enforcement 

actions to disrupt the illicit use of the financial system by targeting priority human traffickers and 

facilitators. The Intelligence Community will support this effort with information, as available. 

Additionally, appropriate law enforcement agencies and appropriate Federal agencies will work to 

improve human trafficking-related information sharing between such agencies and financial 

institutions, as well as information sharing among financial institutions.78 

Priority Action 4.2.4: Ensure human trafficking data collection, fusion, analysis, 

and dissemination efforts are included in the proposal of the National Security 

Presidential Memorandum-7 transnational organized crime process

The National Security Council staff will convene a working group involving intelligence and law 

enforcement agencies and PITF agencies with significant relevant data sets in order to develop a 

proposal for data collection, fusion, analysis and dissemination. The proposal will contribute to 

the National Security Presidential Memorandum–7 process79 for the transnational organized crime 

executive agent, which is charged with developing a data fusion solution. The proposal will also 

address intelligence analysis and dissemination efforts. Dissemination can support enforcement 

operations, awareness or influence campaigns conducted by other agencies, and other important 

government purposes. The proposal will identify relevant data sets, study existing fusion 

mechanisms that can be leveraged, and identify dissemination needs. 

Principle 4.3: Strengthen Federal anti-trafficking efforts by incorporating 

survivor input 

Survivor input into anti-trafficking efforts is critical, as reflected in law and Federal policy 

priorities. Survivor voices are a vital part of establishing effective and comprehensive antitrafficking strategies that advance prosecution, protection, and prevention efforts. 

                                                            

78 See Section 7154(a) of the National Defense Authorization Act for Fiscal Year 2020 (Pub. L. No. 116-92), which 

provides an analysis of anti-money laundering efforts of the United States Government, United States financial 

institutions, and international financial institutions related to human trafficking and recommendations to strengthen 

the efforts of those institutions. 

79 National Security Presidential Memorandum–7 is the Presidential Memorandum that outlines the policy in which 

the United States Government analyzes, evaluates, integrates, correlates, and shares classified national security 

information and other information concerning threat actors and their networks, and then uses that information to 

support a broad array of national security missions and activities, which is an essential component of our national 

security strategy. See: https://www.whitehouse.gov/presidential-actions/national-security-presidentialmemorandum-7/. 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

49

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Priority Action 4.3.1: Prioritize implementation of the United States Advisory 

Council on Human Trafficking’s recommendations

Each member of the United States Advisory Council on Human Trafficking is a survivor of 

trafficking; as part of its mandate,80 the Council advises the Federal Government on how to 

strengthen its anti-trafficking policies and programs. The Council provides specific 

recommendations through an annual report, regular engagement with Federal agencies, and via its 

participation in PITF meetings. United States agencies should continue to strengthen engagement 

with the Council and consider implementation of its recommendations. 

Priority Action 4.3.2: Leverage Federal survivor-consultant networks and Federal 

training and technical assistance centers to ensure survivor input is consistently 

incorporated into Federal policies and programs

The United States Government has engaged with survivor experts in various ways throughout the 

years. For example, DOJ, HHS, DHS, and DOS have mechanisms to integrate survivor consultant 

expertise into policies and programs. All PITF agencies will examine their efforts to incorporate 

survivor input into their work. In developing and implementing Federal anti-trafficking policies 

and programs, each Federal agency will receive and consider incorporating survivor input. Some 

Federal entities’ programs are informed by survivors through training and technical assistance 

centers, robust consultant pools or recommendations from formal advisory bodies. Other agencies 

should develop a plan to begin working with survivors who have subject-matter expertise and 

relevant skills. Such plans should be trauma-informed, and build on survivors’ knowledge and 

skills while also making a positive contribution toward further empowerment. Through the Human 

Trafficking Expert Consultant Network, DOS will lead an effort to assess successes and challenges 

of Federal efforts to engage survivors. 

Principle 4.4: Strengthen Federal anti-trafficking efforts through external 

partnerships

Engagement, information sharing, and consistent messaging from the United States Government 

with external partners is essential. Partners and the public need information on human trafficking 

to take action. 

Priority Action 4.4.1: Conduct future outreach initiatives based on a review of prior 

Federal outreach efforts

Targeted outreach is needed to stakeholders and communities that typically underreport human 

trafficking and to high-risk industries, especially those that do not have corporate responsibility 

efforts to combat human trafficking in global supply chains. The SPOG Public Awareness and 

Outreach Committee will convene Federal agencies to create a comprehensive inventory and 

description of Federal human trafficking prevention and protection outreach efforts, awareness 

campaigns, and toolkits and any evaluations of their effectiveness. This will lead to 

                                                            

80 See Pub. L. No. 114-22, § 115 (2015). 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

50

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

recommendations on adapting these efforts and materials going forward to be more inclusive, 

victim-centered, and survivor-informed. This review will be updated annually after completion. 

Priority Action 4.4.2: Provide information to the private sector on the threat of 

human trafficking to better identify human trafficking facilitators and victims

DHS and FBI will offer targeted information and messaging on the nature of human trafficking 

impacting the United States. Treasury, in collaboration with law enforcement, will provide 

outreach to financial sector partners on illicit finance associated with human trafficking. Targeted 

information and assessments will include precise typologies, indicators, regionally specific 

information, and methodologies of traffickers. In addition to information on traffickers, 

information related to human trafficking indicators is necessary for prevention efforts. Critical 

partners to receive this information and provide their insight include industries that intersect with 

human trafficking such as agriculture, transportation, hospitality, health, education, technology, 

social media, and the financial sector, including cryptocurrency exchangers. The DHS Blue 

Campaign will develop targeted human trafficking indicator cards in partnership with survivors 

and agencies to raise awareness among these various sectors, as well as faith-based organizations. 

HHS will provide a series of information briefs on how human trafficking impacts health and 

human service systems, including impact on health sector procurement. Agencies can leverage 

the Sector Coordinating Councils81 to provide information to the private sector. DOT will expand 

Transportation Leaders Against Human Trafficking outreach efforts to private sector partners 

through leadership engagement, employee training, public awareness, and development of a 

multimodal training, expanded public awareness materials, and an anti-trafficking toolkit. 

Priority Action 4.4.3: Regularly provide information on threats, vulnerabilities, 

trends, and investigations to state, local, tribal, and territorial governments

Each FBI and HSI field office will provide periodic briefings to senior state government officials 

and select local, tribal, and territorial government officials within their area of responsibility. The 

Attorney General through the Enforcement Working Group, composed of state and local 

prosecuting authorities, will provide information including on United States Government activities 

to combat human trafficking. 

 

                                                            

81 The Sector Coordinating Councils (SCCs) are self-organized and self-governed councils that enable critical 

infrastructure owners and operators, their trade associations, and other industry representatives to interact on a wide 

range of sector-specific strategies, policies, and activities. The SCCs coordinate and collaborate with sector-specific 

agencies (SSAs) and related Government Coordinating Councils (GCCs) to address the entire range of critical 

infrastructure security and resilience policies and efforts for the sector.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

51

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Priority Action 4.4.4: Develop a recommendation for Secretary-level, 5 country 

multilateral meeting on human trafficking 

Partnering with foreign governments is critical to combating transnational human trafficking and 

its facilitators. For the next Five Country Ministerial82 meeting, Federal agencies will develop a 

recommendation on how to better collaborate on human trafficking. Potential recommendations 

for areas of collaboration include intelligence and information sharing, emerging technologies, 

joint investigations and assessments, victim protection, and policy initiatives.

Priority Action 4.4.5: Strengthen international frameworks to combat human 

trafficking in the maritime domain 

The United States Government has limited ability to enforce provisions under 18 United States 

Code Chapter 77 on non-United States flagged vessels outside of the United States’ territorial sea. 

As such, the United States Government’s responses to suspected human trafficking on such vessels 

rely heavily on intergovernmental cooperation. Accordingly, the United States Coast Guard, DOS, 

USAID, DOJ, and other Federal agencies will work to create frameworks to coordinate and 

cooperate with international partners to promote the identification and protection of victims of 

human trafficking as well as the investigation and prosecution of perpetrators. 

Priority Action 4.4.6: Engage with international multilateral fora to develop 

transportation-specific anti-trafficking educational resources 

DOT will review and assess transportation-related anti-trafficking efforts within Asia Pacific 

Economic Cooperation countries to develop a set of training and awareness best practices and 

educational resources to be shared through a series of webinars and a workshop. These resources 

may be used by Asia Pacific Economic Cooperation’s 21 member countries to educate 

transportation employees and the traveling public to recognize and report potential instances of 

human trafficking to the proper authorities. DOT will also engage with the International Civil 

Aviation Organization (ICAO) to develop guidance for ICAO’s 193 member countries to combat 

human trafficking. This guidance could include a comprehensive strategy to combat human 

trafficking in aviation with key components such as policies and protocols, employee training, 

public awareness, data and information sharing, and partnerships. 

Priority Action 4.4.7: Improve and consolidate human trafficking tip line operations 

The United States Government will conduct a review of all available Federal agencies’ tip lines 

on human trafficking in the United States. Following this review, HHS will follow up with DHS, 

DOJ, and other agencies to assist these agencies in consolidating outreach efforts and directing 

callers to the National Human Trafficking Hotline. These consolidation efforts will include 

                                                            

82 The Five Country Ministerial is a forum whereby Australia, Canada, New Zealand, the United States and the 

United Kingdom meet to discuss shared emerging threats. See: https://www.gov.uk/government/publications/fivecountry-ministerial-communique.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

52

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

recommendations for streamlining United States Government tip line intake channels specific to 

the importation of goods produced with forced labor and making intake information available in a 

timely manner within the United States Government to relevant enforcement agencies. 

Principle 4.5: Continuously evaluate the authorities and resources of the 

United States Government to combat human trafficking

Through the development of the Action Plan, Federal agencies identified gaps and challenges that 

require new administrative and statutory authorities or funding allocations to combat human 

trafficking. Identifying gaps and challenges should not be a one-time exercise, but rather be 

continuously evaluated to ensure the government is adapting to new challenges, threats, and needs. 

Priority Action 4.5.1: Explore opportunities for legislative proposals 

Executive agencies will identify gaps in their ability to prevent human trafficking, protect victims 

of trafficking, and prosecute human traffickers that require legislation to address. As appropriate, 

executive agencies will consult with departments and agencies, survivor experts, and external 

stakeholders to develop these proposals. Agencies will have the opportunity to submit these 

proposals for consideration as part of the President’s Budget.

Priority Action 4.5.2: Conduct an assessment of United States Government 

allocation of existing resources to combat human trafficking 

Currently, the United States Government lacks a comprehensive assessment of how personnel and 

resources are allocated in Federal efforts to combat human trafficking. This gap hinders the 

government’s ability to prioritize efforts. Agencies will assess the delineation of human trafficking 

specific resources, should departments and agencies conduct a similar assessment on transnational 

organized crime.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

53

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

★ ★ ★

APPENDIX A: GLOSSARY OF TERMS

Forms of Human Trafficking83

Forced Labor84: The term forced labor is defined in two separate sections of the United States 

Code. In the criminal statutes of Title 18, it encompasses the range of activities involved when a 

person uses force or physical threats; psychological coercion; abuse of the legal process; a scheme, 

plan, or pattern intended to hold a person in fear of serious harm; or other coercive means to obtain 

the labor or services of a person. Once a person’s labor is obtained by such means, the person’s 

previous consent or effort to obtain employment with the trafficker does not preclude the person 

from being considered a victim, or the government from prosecuting the offender. In the customsrelated statute of Title 19, it is also defined in connection with the prohibition on the importation 

of goods produced wholly or in part by forced labor, including forced child labor; convict labor; 

and indentured labor under penal sanctions. 

 Debt Bondage: United States law prohibits the use of a debt as a form of coercion to 

compel a person’s labor. Some workers fall victim to traffickers or recruiters who 

unlawfully exploit an initial debt assumed as a condition of employment, while in certain 

countries some workers “inherit” the debt. Although contract violations and hazardous 

working conditions for foreign national laborers do not in themselves constitute human 

trafficking, the imposition of costs and debts on these laborers can contribute to a situation 

of debt bondage. In other cases, employment-based temporary work programs in which 

the workers’ legal status in the country is tied to a particular employer present challenges 

to workers who would like to flee from such an employer. 

 Domestic Servitude: Working in a private residence can create unique vulnerabilities, 

particularly because what happens in a private residence often is hidden from the world, 

and it is easy to isolate a worker in a private residence. Domestic workplaces are often 

informal, connected to off-duty living quarters, and not shared with other workers. Such 

an environment is conducive to exploitation because authorities cannot inspect private 

homes as easily as formal workplaces. The use of informal, or even verbal, employment 

                                                            

83 See President’s Interagency Task Force Report on United States Government Efforts to Combat Trafficking in 

Persons (December 2017), available at https://www.state.gov/wpcontent/uploads/2018/12/report_usg_tip_efforts.pdf.

84 While the term “labor trafficking” does not appear in the United States Code, it is another term that the United 

States Government uses to refer to human trafficking involving compelled labor, as distinct from sex trafficking. 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

54

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

contracts compounds vulnerability. Foreign domestic workers are particularly vulnerable 

to abuse due to factors such as language and cultural barriers and lack of community ties. 

 Forced Child Labor: Although children may legally engage in certain forms of work, 

forms of slavery or slave-like practices – including the sale of children for exploitation, 

forced or compulsory child labor, and debt bondage and serfdom of children – continue to 

exist, despite legal prohibitions and widespread condemnation.

Sex Trafficking: When a person is required to engage in a commercial sex act as the result of 

force, threats of force, fraud, coercion or any combination of such means, that person is a victim 

of human trafficking. Under such circumstances, perpetrators involved in recruiting, enticing, 

harboring, transporting, providing, obtaining, advertising, maintaining, patronizing, or soliciting a 

person for that purpose are guilty of the Federal crime of sex trafficking. This is true even if the 

victim previously consented to engage in commercial sex.

 Child Sex Trafficking: Any child (under the age of 18) who has been recruited, enticed, 

harbored, transported, provided, obtained, advertised, maintained, patronized, or solicited 

to engage in a commercial sex act is a victim of human trafficking regardless of whether 

or not force, fraud, or coercion is used. The use of children in the commercial sex trade is 

prohibited both under United States law and by legislation in most countries around the 

world. 

Transnational or extraterritorial child sexual abuse 

Transnational or extraterritorial child sexual abuse (formerly referred to as child sex 

tourism): Though not every instance of transnational or extraterritorial child sexual abuse is child 

sex trafficking, this offence can involve child sex trafficking when the offender engages in a 

commercial sex act with a child. Transnational or extraterritorial child sexual abuse is a crime that 

occurs when an American citizen or legal permanent resident travels to a foreign country or resides 

abroad (whether permanently or temporarily) and engages in illicit sexual conduct with a child. It 

is also a crime to arrange or facilitate such travel for the purpose of commercial or private profit. 

This conduct is a crime whether or not the offender had the intent to engage in sexual activity with 

a child before the travel took place. 18 U.S.C. § 2423(b)-(d). 

Additional Terms 

Victim: This term means a person that has suffered direct physical, emotional, or pecuniary harm 

as a result of the commission of a crime. 34 U.S.C. § 20141(e)(2). 

Survivor: A term used for an individual who suffered harm as a result of criminal conduct and 

that recognizes the strength it takes to continue on a journey toward healing in the aftermath of a 

traumatic experience.85

                                                            

85 This definition was adapted slightly from the Federal Strategic Action Plan on Victim Services for Victims of 

Human Trafficking in the United States 2013-2017 available at 

https://ovc.ojp.gov/sites/g/files/xyckuh226/files/media/document/FederalHumanTraffickingStrategicPlan.pdf. 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

55

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Victim-centered approach: Placing the crime victim’s priorities, needs, and interests at the 

center of the work with the victim; providing nonjudgmental assistance, with an emphasis on selfdetermination, and assisting victims in making informed choices; ensuring that restoring victims’ 

feelings of safety and security are a priority and safeguarding against policies and practices that 

may inadvertently re-traumatize victims. A victim-centered approach should also incorporate a 

trauma-informed, survivor-informed, and culturally competent approach.86

Trauma-informed approach: A trauma-informed approach recognizes signs of trauma in 

individuals and the professionals who help them and responds by integrating knowledge about 

trauma into policies, procedures, practices, and settings. This approach includes an understanding 

of the vulnerabilities and experiences of trauma survivors, including the prevalence and physical, 

social, and emotional impact of trauma. A trauma-informed approach places priority on restoring 

the survivor’s feelings of safety, choice, and control. Programs, services, agencies, and 

communities can be trauma-informed.87

Survivor-informed: A program, policy, intervention, or product that is designed, implemented, 

and evaluated with intentional leadership, expertise and input from a diverse community of 

survivors to ensure that the program, policy, intervention, or product accurately represents their 

needs, interests, and perceptions.88

Cultural competence: The ability of an individual or organization to interact effectively with 

people of different cultures. This includes drawing on knowledge of culturally based values, 

traditions, customs, language, and behavior to plan, implement, and evaluate service activities. 

Some organizations use the terms “cultural accountability” or “cultural responsiveness.” 89

Immigration Options 

Continued Presence: A temporary immigration designation provided to individuals identified by 

law enforcement as victims of “severe forms of trafficking in persons” who may be potential 

witnesses. This status allows human trafficking victims to lawfully remain in the United States 

temporarily and work during the investigation into the human trafficking-related crimes committed 

against them and during any civil action under 18 U.S.C. § 1595 filed by the victims against their 

traffickers. Continued Presence is initially granted for 2 years and may be renewed in up to 

                                                            

86 This definition was adapted slightly the Department of Justice, Office for Victims of Crime Model Standards for 

Serving Victims and Survivors of Crime, available at https://ovc.ojp.gov/sites/g/files/xyckuh226/files/modelstandards/5/glossary.html. 87 This definition was adapted slightly the Department of Justice, Office for Victims of Crime Model Standards for 

Serving Victims and Survivors of Crime, available at https://ovc.ojp.gov/sites/g/files/xyckuh226/files/modelstandards/5/glossary.html. 88 This definition was adapted slightly from the Department of Justice, Office for Victims of Crime Model Standards 

for Servicing Victims and Survivors of Crime, available at https://ovc.ojp.gov/sites/g/files/xyckuh226/files/modelstandards/5/glossary.html. 89 This definition provided is from the Department of Justice, Office for Victims of Crime Model Standards for 

Serving Victims and Survivors of Crime, available at https://ovc.ojp.gov/sites/g/files/xyckuh226/files/modelstandards/5/glossary.html.
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

56

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

2-year increments. Continued Presence recipients also receive Federal benefits and services. 

22 U.S.C. § 7105(c)(3)(A)(i)

T nonimmigrant status (“T visa”): An immigration benefit that is available to eligible victims 

of “severe forms of human trafficking.”90 To be eligible, the victim must have complied with any 

reasonable request for assistance in a Federal, state, local, tribal, or territorial investigation or 

prosecution of human trafficking cases, and meet other requirements. Victims under the age of 

18 and victims unable to cooperate because of physical or psychological trauma are not required 

to comply with any reasonable law enforcement requests for assistance. T nonimmigrant status is 

valid for 4 years; T nonimmigrants may be able to adjust their status and become lawful permanent 

residents if they qualify. 8 U.S.C. § 1101(a)(15)(T); 8 U.S.C. § 1184; 8 U.S.C. § 1255; 8 CFR § 

214.11

U nonimmigrant status (“U visa”): An immigration benefit that is available to victims of certain 

qualifying crimes in the United States – including human trafficking – who have been helpful, are 

being helpful, or are likely to be helpful to law enforcement in the investigation or prosecution of 

the qualifying criminal activity, and meet other requirements. The U visa is a tool intended to 

strengthen the ability of law enforcement agencies to investigate and prosecute certain types of 

crimes, while also protecting crime victims and encouraging them to come forward and assist law 

enforcement. U nonimmigrant status is valid for 4 years and can be extended in limited 

circumstances; U nonimmigrants may be able to adjust their status and become lawful permanent 

residents if they qualify. 8 U.S.C.. § 1101(a)(15)(U); 8 U.S.C. § 1184; 8 U.S.C. § 1255; 8 CFR § 

214.14

 _____________ 

 

                                                            

90 The term “severe forms of trafficking in persons” is defined in 22 § U.S.C. 7102(11).
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

57

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

★ ★ ★

APPENDIX B: PRIMARY AUTHORITIES 

Trafficking Victims Protection Act (TVPA) 

 Victims of Trafficking and Violence Protection Act of 2000, Pub. L. No. 106-386 (2000) 

 Trafficking Victims Protection Reauthorization Act of 2003, Pub. L. No. 108-193 (2003) 

 Trafficking Victims Protection Reauthorization Act of 2005, Pub. L. No. 109-164 (2005) 

 William Wilberforce Trafficking Victims Protection Reauthorization Act of 2008, Pub. L. 

No. 110-457 (2008) 

 Violence Against Women Reauthorization Act of 2013, Pub. L. No. 113-4 (2013) 

 Trafficking Victims Protection Act of 2017, Pub. L. No. 115-393 (2018) 

 Abolish Human Trafficking Act of 2017, Pub. L. No. 115-392 (2018) 

 Trafficking Victims Protection Reauthorization Act of 2017, Pub. L. No. 115-427 (2019) 

 Frederick Douglass Trafficking Victims Prevention and Protection Reauthorization Act of 

2018, Pub. L. No. 115-425 (2019) 

Criminal Statutes 

 18 U.S.C. § 1589 – Forced Labor 

 18 U.S.C. § 1590 – Trafficking with respect to peonage, slavery, involuntary servitude, or 

forced labor 

 18 U.S.C. § 1591 – Sex trafficking of children or by force, fraud or coercion 

 18 U.S.C. § 1956 – Laundering of monetary instruments 

 18 U.S.C. § 1963 – Racketeer Influenced and Corrupt Organizations (RICO) Criminal 

penalties 

 18 U.S.C. § 2422 – Coercion and enticement of minor 

 18 U.S.C. § 2423 – Transportation of minors 

 18 U.S.C. § 2251 – Sexual exploitation of children 

 18 U.S.C. § 2252 – Certain activities relating to material involving the sexual exploitation 

of minors 

 18 U.S.C. § 2252A – Certain activities relating to material involving the sexual exploitation 

of minors 

 18 U.S.C. § 2260 – Production of sexually explicit depictions of a minor for importation 

into the United States 

 18 U.S.C. § 1351 – Fraud in foreign labor contracting 

 18 U.S.C. § 1597 – Unlawful conduct with respect to immigration documents 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

58

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Trade and Goods Produced with Forced Labor Statutes and Regulations 

 18 U.S.C. §§ 1761, 1762 – Importation and Transportation in Interstate Commerce of 

Prison-Made Goods 

 19 CFR §§ 12.42 – 12.45 – Merchandise Produced by Convict, Forced, or Indentured Labor 

 United States – Mexico – Canada Agreement Implementation Act of 2020, Sec. 741 – 744 

on forced Labor (Pub. L. 116 – 113) 

 Section 307 of the Smoot-Hawley Tariff Act of 1930 (19 U.S.C. § 1307) 

 Countering America’s Adversaries Through Sanctions Act (CAATSA), Pub. L. No. 115-

44(2017) 

 Executive Order 13627 of Sept. 25, 2012 (Strengthening Protections Against Trafficking 

in Persons in Federal Contracts) 

 Executive Order 13126 of June 12, 1999 (Prohibition of Acquisition of Products Produced 

by Forced or Indentured Child Labor) 

 Executive Order 13923 of May 15, 2020 (Establishment of the Forced Labor Enforcement 

Task Force Under Section 741 of the United States – Mexico – Canada Agreement 

Implementation Act of 2020) 

Other Key Mandates and Regulations 

 Justice for Victims of Trafficking Act of 2015, Pub. L. No. 114-22 (2015) 

 The PROTECT Act (Pub. L. No. 108-21) created 18 U.S.C. § 2423(c), which targets those 

United States citizens or aliens admitted for permanent residence in the United States that 

travel abroad for purpose of engaging in sex with a minor. 

 National Defense Authorization Act of 2013 (Pub. L. No. 112-239), which provides 

authorities to end human trafficking in government contracting in Title XVII. 

 Preventing Sex Trafficking and Strengthening Families Act of 2014 (Pub. L. No. 113-183) 

which prevents and addresses sex trafficking of children in foster care and establishes the 

national advisory committee on the sex trafficking of children and youth in the United 

States. 

 Every Student Succeeds Act of 2015 (Pub. L. No. 114-95) authorizes support for safe and 

healthy students, including providing high quality training for school personnel on violence 

prevention topics including human trafficking. 

 SOAR to Health and Wellness Act of 2018 (Pub. L. No. 115-398), which amended the 

Public Health Service Act to strengthen training and response to human trafficking in the 

health care system. 

 FAA Reauthorization Act of 2018 (Pub. L. No. 115-254) expands the 2016 requirement 

for air carriers to train flight attendants to recognize and report human trafficking to 

customer-facing employees. Combating Human Trafficking in Commercial Vehicles Act 

(Pub. L. No. 115-99) authorizes DOT to establish the DOT Advisory Committee on Human 

Trafficking, appoint a human trafficking prevention coordinator, and expand motor carrier 

funding and educational outreach programs to encompass prevention activities. No Human 

Trafficking on Our Roads Act of 2018 (Pub. L. No. 115-106) includes a lifetime 
THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

59

THE NATIONAL ACTION PLAN TO COMBAT HUMAN TRAFFICKING

Commercial Drivers License disqualification for an individual who uses a commercial 

motor vehicle in committing a felony involving a severe form of human trafficking. 

 Department of Homeland Security Blue Campaign Authorization Act of 2018 (Pub. L. No. 

115-125) 

 Missing Children’s Assistance Act of 2018 (Pub. L. No. 115-267) improves support for 

missing and exploited children in the juvenile justice system including the identification, 

location, and recovery of victims of and children at risk for child sex trafficking. 

 Juvenile Justice Reform Act of 2018 (Pub. L. No. 115-385) strengthens protections for 

victims of human trafficking, including screening, identification, and documentation of 

victims and those at risk for human trafficking upon intake. 

 International Megan’s Law (Pub. L. No. 114-119) – Signed into law on February 8, 2016, 

to Prevent Child Exploitation and Other Sexual Crimes through Advanced Notification of 

Traveling Sex Offenders. 

 31 U.S.C. §§ 5311 – 5330 – Bank Secrecy Act of 1970 

 22 U.S.C. § 7108 – Actions Against Significant Traffickers in Persons (2019) 

 Allow States and Victims to Fight Online Sex Trafficking Act of 2017, Pub. L. No. 115-

164. 

 8 CFR § 214.11 – Alien victims of severe forms of trafficking in persons 

 8 CFR § 214.14 – Alien victims of certain qualifying criminal activity 

 48 CFR § 52.222-50 – Combating Trafficking in Persons 

 Executive Order 13773 of Feb. 9, 2017 (Enforcing Federal Law with Respect to 

Transnational Criminal Organizations and Preventing International Trafficking) 

 Executive Order 13581 of July 25, 2011 (Blocking Property of Transnational Criminal 

Organizations) 

 Executive Order 13818 of Dec. 21, 2017 (Blocking the Property of Persons Involved in 

Serious Human Rights Abuse or Corruption) 

 Federal Acquisition Regulation 55.222-18,-19, and -50 

 The Crime Victims’ Rights Act – 18 U.S.C. § 3771 and 34 U.S.C. § 20141 

 Victim Rights and Restitution Act – 34 U.S.C. § 20141 

 Mandatory Victim Restitution Act – 18 U.S.C. § 3663A