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It is estimated that as many as three-quarters of a million people are being illegally trafficked across international borders every year. Global awareness of that evil trade is, I am pleased to say, growing, but the level of knowledge remains very low, which increases the vulnerability of potential victims.
All too often it is assumed that human trafficking primarily involves vulnerable women or girls from poor countries being duped into coming to developed countries such as the UK, and then having their passport taken away while they are forced, often by threats or the actual use of physical violence, to work as prostitutes. That assumption is wrong on two counts. First, although the plight of women or girls trafficked for sexual purposes is dreadful, it is not the case that such women constitute a majority of victims. Secondly, it is by no means only in the developed world that vulnerable people are coerced into activities that amount to no less than modern-day slavery. The International Labour Organisation, the UN agency charged with addressing labour standards, employment and social protection issues, estimates that at any time more than 12 million people are in forced labour, bonded labour or sexual servitude—there are many forms of this. As the noble Baroness, Lady Goudie, said, the one thing that these people have in common is that they are human beings, coerced into a situation that they would never voluntarily have entered into.
These crimes are widespread, affecting people across many countries, yet here in the UK there is no shortage of nefarious activity involving lives from which people seemingly have no escape. If a reminder was required of what slavery means in Britain in 2008,
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The Metropolitan Police has its own dedicated team to tackle human trafficking, of course, and the ACPO-led UK Human Trafficking Centre in Sheffield further demonstrates the efforts that are being made to tackle these crimes. The operation that is reported in the paper today involved the Met working closely with its Romanian counterparts, which is a welcome development. For too long this country was not able to work as effectively as it might have done with other European countries because the Government had not signed the Council of Europe convention against trafficking. Last year, they did sign up to it, although as yet it has not been ratified. Many EU member states will ratify it and bring it into force next month. I hope that the Minister will clarify the Government’s position and set out their intentions, which I also hope will include a date for ratification.
As I said, awareness of human trafficking is increasing. Last year, the Church of Scotland, in marking the 200th anniversary of the abolition of the slave trade, introduced a campaign pack on tackling human trafficking and called on the Government to ratify and act on the convention. The church had been urged to campaign on the issue by its missionary partners around the world. When asked what one issue they thought the Church of Scotland should take up in order to improve the lives of people in their countries, the most common response was combating human trafficking.
This is not, of course, an issue that can be fought in any one country, which is why the UN established the Global Initiative to Fight Human Trafficking, or GIFT, in March last year. The Vienna forum next month will be the first opportunity to review GIFT’s aims and to begin to co-ordinate activity to counter the increase in human trafficking. I note from the forum’s programme that over three days there are to be more than 20 sessions on topics as varied as criminal justice responses, the roles of employers’ organisations and trade unions, repatriation and reintegration of victims, supply chain management and the role of the media. I hope that the Government’s representatives in Vienna will return with a list of actions on which to follow up, so that the pernicious activities of human traffickers can be reduced and eventually, I hope, eliminated.
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5.23 pm
Baroness Thomas of Walliswood: The noble Baroness, Lady Cox, has brought an extremely important subject before us today and I join my voice with those of earlier speakers who expressed their concern and horror at the worldwide extent of the abominable practice of human trafficking, particularly the trafficking of women and children. The ending of this appalling trade in people, which the noble Baroness, Lady Cox, rightly described as modern slavery, should be the goal of every democratic country, although it will be achieved only through collaboration with other like-minded states.
One has only to recall the bare statistics. US authorities estimated in 2005 that 800,000 people worldwide were trafficked every year and that the annual revenue from that trafficking amounted to about $9.5 billion. The market in the UK this year is estimated to be worth about £1 billion, rather more than a quarter of which is accounted for by the market in sexual exploitation. Tonight’s news, brought to us by the noble Lord, Lord Watson of Invergowrie, emphasises the importance and size of this trade and the power of the people who run it. No doubt many powerful people will resist the end of this lucrative trade. We will have to fight them as well as fight for the right actions on behalf of our Government.
In 2003, some 4,000 people were trafficked into the UK for the purposes of prostitution. Whereas 10 years ago some 15 per cent of women prostitutes were from abroad, now only 15 per cent are of domestic origin. Women and children constitute a large proportion of those trafficked, many of them coming from some of the poorest countries in the world—in many cases countries benefiting from more or less generous funding from the United Nations and/or other donor nations, including the UK. The Question of the noble Baroness, Lady Cox, is directed to actions which the UK Government could take to help eliminate this terrible modern form of slavery.
It is a matter of concern that the Government have only just committed themselves to the ratification of the Council of Europe Convention on Action against Trafficking in Human Beings. Clearly, where the better management of border controls is involved, it is of the greatest importance to maximise co-operation, not only between EU member states but also with other states within our continent. Will the Government commit themselves to working effectively with other European states in order to monitor this trade, track the traffickers, intercept their deliveries and bring them to justice? Without that collaboration, we will not get very far at the European level.
Will the Government also improve services for trafficked adults and, particularly, children who have escaped their so-called employers? Adoption of services for these victims is another requirement of the convention. In particular, do the Government now accept the need to appoint guardians of “rescued” trafficked children? After all, the EU reception direction, the EC convention and UNICEF guidelines all propose this as an essential part of the care for trafficked children.
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My second area of inquiry is in relation to the interrelationship, if any, between the fact that many trafficked persons come from the poorest countries and that these are the same countries which receive large subventions from the UK or other states. It may be asking too much to require these countries to close their borders to the “export” of human beings by the traffickers. Furthermore, some of the destination countries are themselves among the poorest countries on the globe. Is there any pressure we can bring to bear, at least on those countries not at war, to persuade or assist their governments to begin to institute effective control against traffickers?
Finally, will the Government be able to put forward proposals at Vienna which might increase determined, world-wide collaboration among the richer nations directed towards the ending of this terrible practice? The countries of the developed world form a major market for the men, women and children who are victims of this terrible trade. Is it not the duty of “consumer” countries to do their best, both inside and outside their own boundaries, to end this modern slavery?
5.28 pm
Lord Hylton: I join in the thanks already expressed to my noble friend Lady Cox, not only for introducing this debate but for all the tremendous work she has been doing over the years. I believe that Her Majesty’s Government should be congratulated on what they have done so far about trafficking into Britain. More is needed, of course, and I do have some questions to put. When will the Government ratify the UN protocol on the trafficking of children, which was signed as long ago as 2000? Will they make any necessary legal changes using the current Children and Young Persons Bill? Further, will they ratify the Council of Europe convention protecting children and adults against sexual exploitation and abuse? Will they remove their reservation on nationality and immigration from the UN Convention on the Rights of the Child?
Will they study the cases of Paul Gadd and Paul Bower, and close the three-day loophole allowing British registered sex offenders to make short visits overseas without notification? Will they seek to make extradition treaties with foreign countries, especially in south-east Asia, wherever these do not now exist? Will they reconvene the expert working group on information and intelligence concerning paedophiles and sex tourism? Will they ensure that they have high-level representation at the UN Global Initiative to Fight Human Trafficking, taking place in Vienna next month?
Turning to domestic matters, can they give preliminary details about Operation Pentameter 2? That is designed to free those forced into prostitution and to arrest traffickers and pimps. I hope that may be possible. Are they satisfied that there are now sufficient safe houses to accommodate trafficked persons once they have been freed? Such houses are necessary in most parts of Britain. Can they report progress in identifying trafficked children at ports of entry and in preventing such children disappearing from the care of social services?
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Finally, like my noble friend Lady Cox, who mentioned this, will they consider appointing a rapporteur on human trafficking, reporting to Parliament, as well as, or instead of, the existing ministerial working group? People who have been trafficked deserve respect and care, and do not deserve to be treated as illegal migrants. I hope that my questions have illustrated how much more there is to be done. It is of paramount importance that all agencies involved work closely together. Surely that is something that only the Government are capable of organising.
5.32 pm
Lord Sheikh: I, too, congratulate the noble Baroness, Lady Cox, on securing this debate. It seeks to highlight the problem of this vile trade. I feel very strongly about the subject but, in view of the constraints of time, I am not able to talk about this abhorrent practice in great detail.
I am horrified at what is described as modern-day slavery. Human trafficking involves deception, intimidation, coercion and exploitation. Criminality is at the centre of this trade. Estimates suggest that the global trade now exceeds £9.5 billion and around 80 per cent of those involved are women, of whom about half are minors. The Government have estimated that more than 4,000 women are being trafficked into this country for sexual exploitation. The United Nations has estimated that up to 2 million women and children are trafficked across international borders every year. A recent UNICEF report found that, in an 18-month period, 330 children were believed to have been trafficked into the United Kingdom and that, of these, 183 went missing from the care of social services. That is appalling and shameful. Yet, in 2005, only 166 people were sentenced to immediate custody under the variety of offences that constitute people trafficking. We need to ensure that more people are detected and convicted of this disgusting behaviour. Those involved need to be taught that they will not be able to get away with their crimes.
I am pleased to note that the Government have indicated that they will ratify the Council of Europe convention during the coming year. I should be most grateful if the Minister would confirm that this will be included in legislation during the current Session, so that the actual ratification can take place by the end of the year. It would also be helpful if the Minister would confirm that, from the moment the convention is ratified, the Government will abide by all the requirements contained in it.
A simpler approach might include implementing separate interviews for women and children travelling into this country with people who are not family members. That has been suggested by my party but it has not been well received by the Government. I should be grateful if the Minister could explain what action the Government are taking to increase the practical co-operation between national authorities to tackle human trafficking. I support the proposals for the establishment of a border police force, which would be able to focus more consistently, effectively making Operation Pentameter a permanent operation.
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Human trafficking should be regarded as a mainstream police priority. At present, there are areas where nothing effective is done by the police. I want to see more people prosecuted and convicted, thereby sending out a signal that we mean business in tackling human trafficking. We need to be able to help victims. I would like to see an increase in the number of safe houses, maximising the number of places available to victims in safe accommodation and ensuring that capacity is used efficiently. Those under 18 years of age are excluded from accessing the POPPY project’s facilities, which should be changed. Perhaps a helpline for victims would help promulgate information for those who have suffered or are suffering. I hope that we will have another chance to hear from the Minister after the Vienna forum, and that real progress will at last be made.
There is abuse also of workers who enter this country legally or illegally. It is imperative that the activities of rogue gangmasters are controlled. Will the Minister comment on that?
I was brought up in Africa, which has been ravaged by the slave trade, and appreciate all the points made by the noble Baroness, Lady Cox, about that continent.
5.36 pm
Lord Avebury: Although there was a vote at the end of the debate on this subject in another place, it displayed general agreement between the parties and a lot of common ground, as exemplified by what has been said here today. I suggest that the best way of maintaining and improving the co-operation that already exists is for regular progress reports to be made on the implementation of the Government’s action plan, so that questions such as those that we have heard from the noble Lord, Lord Hylton, would not need to be asked in a gathering of this kind, but would automatically be available to all your Lordships and the public.
I join the noble Lord, Lord Watson, in congratulating the police on the success of the operation reported in the Evening Standard, which stated that it was the first in a series of operations in combating trafficking. As my noble friend Lady Nicholson said, we ought to deal with problems in the countries of origin as well as at home. I congratulate her on her work in bringing the standards of new members of the European Union up to the level of all the rest. We should consider, if we do not do so already, appointing airline liaison officers in Bucharest, for example—even though Romania is part of the European Union—because that has proved effective in other places from which illegal activities have stemmed in the past.
The debate has focused on the Vienna forum on the UN Global Initiative. The noble Baroness, Lady Cox, and others mentioned the briefing that we received from Stop the Traffik. The Minister in another place, Mr Vernon Coaker, referred to it in complimentary terms, but did not say what he thought of its proposals in detail. We look forward to learning what the Government think of them today.
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The interdepartmental ministerial group on human trafficking has been referred to several times. I understand that it has not met for several months and therefore is not contributing anything. Stop the Traffik proposes that it be replaced by a national rapporteur on human trafficking, who it suggests would have more time, resources, profile and power to assist in the implementation of the UK’s action plan. I like the idea of an official with this title co-ordinating and prompting government departments and others whose authority is needed and reporting on progress. The rapporteur should not have executive power, as Stop the Traffik suggests, but would have great persuasive influence across the board, as does the Children’s Commissioner, for instance, in a related field. There are other constitutional precedents for the appointment of tsars with cross-departmental responsibilities.
Mr Dismore mentioned in another place a letter that he had received from the Minister announcing the review of our reservation on the Convention on the Rights of the Child, which has also been referred to today. We particularly welcome this concession, recalling that we argued during the passage the UK Borders Bill that the convention should apply to the BIA except where removal is being implemented. It might well be argued that sending a child back to, say, Iraq or the DRC was not in that child’s best interests, but the main problem we have always had is the treatment of children in detention, where the Government say they already comply with the CRC. If that is true, I cannot imagine what possible objection there could be to applying the convention to all the activities of the BIA except those immediately concerned with removal.
In the debate in another place, my right honourable friend the Member for Eastleigh particularly highlighted the problem of trafficked children being used as domestic slaves, and the disappearance of children from local authority care has been mentioned today. That is one of the areas in which it is important to identify migrants as victims of crime and as potential witnesses. We ask how the inherent difference of approach between the police, who are anxious to obtain evidence against traffickers, and the BIA, whose remit is to enforce immigration control, can be best resolved.
5.41 pm
Baroness Hanham: The noble Baroness, Lady Cox, is a doughty fighter for those who are trafficked, and I am glad that she has been able to generate this debate again today. It gives us an opportunity to acknowledge her experience, authority and conviction on this matter. I also wish to thank Stop the Traffik because it has generated two debates—one in the House of Commons and one today in the House of Lords—which are designed to draw attention to the Vienna conference.
First, much has been said about the Vienna conference—the questions that I would have asked have probably been put—but it is important that the Minister should let us know who is attending on behalf of the Government so that we can see the level
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Secondly, the debate today has reminded us that this country is a signatory to the Council of Europe Convention on Action against Trafficking in Human Beings, but we still have not ratified it. I know that the Home Office decided earlier this month to “accelerate” doing so, but it is hardly the foot down in the fast lane to say that it will not be done until the end of the year. Every other European country appears to have managed to get on with it, apparently without trouble, and we are still pussyfooting around waiting for “necessary legislative and procedural changes” to bring it about. Can the Minister confirm what has already been asked about the legislative programme? Can he confirm that legislation will be passed in this Session?
Thirdly—and this is by far the most important aspect—the debate has underlined once again the sickening nature of this terrible affront to humanity. It would be easier perhaps, but still not let us off the hook, if we were able to say with hand on heart, “This awful thing did not happen here”. But as other noble Lords have pointed out today, we cannot do that. We are a receiving country of countless men, women and children who are abducted from their homes or persuaded to leave on the grounds that there are good jobs on offer. They arrive illegally through our porous borders and then find themselves bound to the traffickers, often being forced into debt bondage or into the sex trade, kept in appalling conditions and, because of their illegal status, unable or too frightened to turn to anyone in authority.
As others have said, we are not alone; this is a world-wide problem. It is a tragedy for the millions of people caught up in the trade which, as the Guardian recently reported, is estimated to be worth—figures have been bandied around today and this is another one—in the region of $44 billion globally. The United Nations estimates that up to 27 million people are currently held in slavery, the majority of whom are Asian women. It is an appalling situation.
Let me concentrate for a minute on the situation in this country. It is not as if nothing is being done to address the problem—it is—but can the Minister tell us whether the Government would consider introducing separate interviews for women and children travelling into this country? They have not done so, but this would identify the children who are being brought in illegally and against their will. Furthermore, why did the conviction rate for trafficking offences under the Sexual Offences Act actually fall by 40 per cent between 2006 and 2007? However, we know about the police operations taking place in the form of Pentameter 1 and 2, and it is good news that the London police have today made further moves in this respect.
In closing, I want briefly to touch on the POPPY project, which is a fantastic but underused resource. It is almost incomprehensible that the most vulnerable victims of trafficking, children, are excluded from access to it. I would like to ask the Minister whether
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