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Research Report the Shelters in Israel for Survivors of Human Research Report The Shelters in Israel for Survivors of Human Trafficking Dr. Daphna Hacker and Dr. Orna Cohen Tel Aviv University Submitted to the United States Department of State March 2012 Foreword “If I could say something to the survivors of trafficking for prostitution, I would tell them that sometimes, when you’re inside it all, you feel as though there’s no way out of this life. I found out that this isn’t true. You can have a different life… I feel that my life is slowly moving in the right direction.” (Y., a survivor of trafficking for prostitution who was freed from prison by the Hotline for Migrant Workers). Dear Reader, This report reflects the desire of those who were involved in its preparation to strengthen their commitment to the survivors of trafficking and holding in conditions of slavery, and to consider the best ways in which they can be rehabilitated. The research underlying this report was undertaken by the Hotline for Migrant Workers (HMW), which for years has been active in defending survivors of human trafficking in Israel. The Ministry of Social Services, which finances the shelters for survivors, and the Keshet association, which operates Atlas Shelter for men and Ma’agan Shelter for women, opened the door and enabled the conduction of the research. The study was conducted by researchers from Tel Aviv University who have undertaken to pioneer the study of this issue and to promote rich academic discussion. A crucial partner was the Center for International Migration and Integration (CIMI), which funded part of the research and this publication. For several years, the State of Israel – through the Ministry of Social Services, and in cooperation with the Ministry of Internal Security – has operated two shelters for the survivors of human trafficking and slavery: Ma’agan Shelter for women, and Atlas Shelter for men. This reflects a model of state sponsorship that is not found in other countries. The shelters provide protection, food and accommodation. The staff at the shelters accompany the residents and help them realize their eligibility for state legal aid on matters relating to their status in Israel. Considerable efforts and resources are invested in these proceedings. In addition to the existing activities, the need also arose to discuss methods of rehabilitation and priorities in the rehabilitation process. The purpose of the research was to gain an understanding of what survivors need in order to rehabilitate, and to accumulate knowledge about developments in Israel and around the world. Ultimately, the intention is that this will enable the planning of a rehabilitation process meeting the unique needs of survivors of human trafficking. The present study is important not only in terms of its ramifications for survivors in Israel, but also in its relevance for the rehabilitation of other survivors of trafficking around the world. The findings and recommendations of the research highlight the need to develop a specific theory of rehabilitation for people who have survived trafficking and holding in conditions of slavery. This theory should be adapted to their personal experience, culture of origin and civil status, with the rights this entails, and will enable them to feel that their life is “moving slowly in the right direction.” Attorney Reut Michaeli Vika Goltsman Director Director of Services Hotline for Migrant Workers Keshet Association 2 Hotline for Migrant Workers "You shall not wrong a stranger or oppress him, for you were strangers in the land of Egypt" - Exodus 22:20 Preface Since the 1990s, Israel has become a target country for international human trafficking, which initially focused mainly on the trafficking of women for prostitution. For more than a decade, the Hotline for Migrant Workers (HMW) has monitored this phenomenon, serving as a catalyst for change and promoting policy that protects the rights of the survivors of slavery and human trafficking. The Israeli authorities have made considerable progress since the first decade of trafficking, when their principal response was to ignore the phenomenon. There is now a greater understanding of the rights and services that must be provided for those who have survived trafficking in order to enable them to recuperate and in order to provide them with tools preventing them from re-entering the cycle of poverty, exploitations and trafficking. However, the authorities have still not formalized a specific rehabilitation procedure for the victims of trafficking defining priorities and services to be provided in order to ensure an appropriate and effective process of rehabilitation. As a result, the individual care of those involved raises various issues that demand attention and action on the part of the authorities. In some cases the authorities show an attentive response, but in others, rights are only realized after the courts intervene. An orderly and comprehensive policy relating to rehabilitation processes is therefore required. In order to develop such a policy, the Hotline for Migrant Workers initiated a study designed to acquire knowledge about developments in Israel and around the world relating to human trafficking, and to learn what survivors need for the purpose of rehabilitation. The ultimate objective is to develop a specific theory of rehabilitation. Such a theory will improve the rehabilitation processes and, following its adoption by the authorities, will afford the survivors additional protection and enshrinement of their rights. The research partners were chosen in order to obtain a professional and objective outcome with the highest possible chances of being accepted as a document that changes policy. Dr. Daphna Hacker and Dr. Orna Cohen of Tel Aviv University undertook this complex research task. The natural partners in the research are the staff members at the shelters for survivors of trafficking, who are charged with the difficult daily task of rehabilitating survivors and who confront the difficulties they face. A central partner in the research was the Ministry of Social Services, which participated in the research steering committee and made comments on the content, conclusions and recommendations of the report, some of which were accepted and form an integral part of the final report. Regrettably, shortly before the date of publication of this 3 report, the Ministry of Social Services unilaterally announced that, since it did not initiate the research, the ministry does not consider itself a partner in the report. In view of the cooperation that marked the entire process of data collection and the provision of access to the research field, I find this retraction surprising. I hope that the staff of the ministry will nevertheless discuss the findings and recommendations of this report. The Ministry of Social Services, which apparently rejects criticism of the existing rehabilitation processes and its role in this context, is not the only government ministry that requires a reminder of its obligation to rehabilitate the survivors of trafficking. Over the past two years, as the profile of the population involved has changed, the authorities have retreated from ensuring rights that have already been granted. An example of this is the provision of work permits. The report findings highlight the importance of enabling survivors to work as part of the rehabilitation process. Despite this, the Ministry of the Interior does not provide work permits for asylum seekers from Africa who are survivors of trafficking for sex – despite the fact that, in recent years, it has provided such permits for survivors of trafficking in women. It is appropriate, therefore, to remind the authorities that trafficking is the same regardless of the survivors’ culture, ethnicity or skin color. Rehabilitation is part of the obligations incumbent on Israel in accordance with international law. It is our moral imperative, as a society, to help the survivors of human trafficking, and this is also in our own interests. Denying these conditions to victims who now require them constitutes a retreat from the achievements Israel has secured to date in this field. I hope that this report and the recommendations it contains, which were formulated after serious and extensive research, will lead to the development of a theory of rehabilitation and to professional discussion of ways to rehabilitate the survivors of human trafficking. Among other outcomes, such a theory will lead to the formulation of an orderly rehabilitation policy responding to each individual survivor, and including a full basket of services for their use and for use by the devoted staff of the shelters who seek to promote their rehabilitation. Attorney Reut Michaeli Director, Hotline for Migrant Workers 4 Research Report The Shelters in Israel for Survivors of Human Trafficking Dr. Daphna Hacker and Dr. Orna Cohen Tel Aviv University March 2012 5 Research team Chief researchers Dr. Daphna Hacker, Buchmann Law Faculty and NCJW Women and Gender Studies Program, Tel Aviv University. Dr. Orna Cohen, Bob Shapell School of Social Work, Tel Aviv University. Research steering committee (in alphabetical order) Yael Bukay, social worker, District Inspector, Ministry of Social Services Adv. Osnat Cohen Lifschitz, Hotline for Migrant Workers Adv. Rinat Davidovich, social worker, Director, Therapeutic Services for Victims of Human Trafficking, Keshet (until end of 2010) Tzipi Nachshon Glick, Specialist Social Worker, Director of Adolescent and Young Adult Service, Ministry of Social Services (joined at end of research period) Ms. Victoria (Vika) Goltsman, Director, Therapeutic Services for Victims of Human Trafficking, Keshet Ms. Yael Hermel, MSW, Director, Services for the Individual and the Family, Ministry of Social Services Dr. Meir Hovav, Chairperson, Keshet association Ms. Shevy Korzen, Director, Hotline for Migrant Workers (until 2010) Adv. Reut Michaeli, Director, Hotline for Migrant Workers Sa’ed Tali, social worker, National coordinator of Treatment for Domestic Violence, Ministry of Social Services Ada Pliel-Trossman, Specialist Social Worker, Deputy Director, Therapeutic Service for Girls and Young Women, Ministry of Social Services (until January 2011) Adv.
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