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Measuring Human Trafficking: Lessons from New York City Author: Neil A

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The author(s) shown below used Federal funds provided by the U.S. Department of Justice and prepared the following final report: Document Title: Measuring Human Trafficking: Lessons from New York City Author: Neil A. Weiner ; Nicole Hala Document No.: 224391 Date Received: October 2008 Award Number: 2005-IJ-CX-0053 This report has not been published by the U.S. Department of Justice. To provide better customer service, NCJRS has made this Federally- funded grant final report available electronically in addition to traditional paper copies. Opinions or points of view expressed are those of the author(s) and do not necessarily reflect the official position or policies of the U.S. Department of Justice. This document is a research report submitted to the U.S. Department of Justice. This report has not been published by the Department. Opinions or points of view expressed are those of the author(s) and do not necessarily reflect the official position or policies of the U.S. Department of Justice. MEASURING HUMAN TRAFFICKING Lessons from New York City Neil A. Weiner Nicole Hala Vera Institute of Justice August 2008 This document is a research report submitted to the U.S. Department of Justice. This report has not been published by the Department. Opinions or points of view expressed are those of the author(s) and do not necessarily reflect the official position or policies of the U.S. Department of Justice. This project was supported by Award No. 2005-IJ-CX-0053 awarded by the National Institute of Justice, Office of Justice Programs, U.S. Department of Justice. The opinions, findings, and conclusions or recommendations expressed in this publication are those of the author(s) and do not necessarily reflect the views of the Department of Justice. © 2008 Vera Institute of Justice. Additional copies can be obtained from the communications department of the Vera Institute of Justice, 233 Broadway, 12th floor, New York, New York, 10279, (212) 334-1300. An electronic version of this report is available for download on Vera’s web site, www.vera.org. Requests for additional information about the research described in this report should be directed to Neil Weiner at the above address or to [email protected]. This document is a research report submitted to the U.S. Department of Justice. This report has not been published by the Department. Opinions or points of view expressed are those of the author(s) and do not necessarily reflect the official position or policies of the U.S. Department of Justice. Abstract The groundbreaking Trafficking Victims Protection Act (TVPA) of 2000 made trafficking in persons a federal crime in the U.S. However, reliable data about the scale and character of trafficking in the U.S. is still hard to find nearly a decade later. This is largely because no standardized measurement tools or procedures for systematic data collection, retention, and sharing have been developed. Partnering with a set of diverse local stakeholders, the New York City Trafficking Assessment Project (NYCTAP) developed a screening tool to identify likely victims of trafficking and an accompanying toolkit for service providers to support the administration of the screening tool. In the process, we developed and field-tested protocols for sustainable data collection and retention, which could serve as platforms for the wider sharing and aggregation of data. Employing “action research,” we capitalized on the expertise of our partner agencies to create the screening tool and toolkit and, further, sought to empower them to own and refine these resources to maximum benefit. Our partners included criminal justice agencies, community and faith-based organizations, and social and legal service agencies that have direct experience with obstacles, opportunities, and good practices for identifying likely trafficking victims. Lessons learned in this pilot project are most relevant for service providers likely to encounter trafficking victims; however, they also have relevance for other organizations that work with populations confronting similar or related injustices (e.g., labor exploitation, domestic violence, and sexual assault) or sharing similar characteristics (e.g., people who are recent immigrants, undocumented, or who have limited English proficiency). The screening tool and toolkit should also be useful for law enforcement agencies, the other key set of institutional actors recently charged with identifying victims of trafficking. Lastly, it is hoped that these lessons and resources will give policymakers and practitioners a keener appreciation of the value of standardized, systematic, and sustained data collection in forming policies and programming to aid persons in the grip of human trafficking. The lessons learned have been compiled into a set of recommendations about how to apply and build upon the work of the NYCTAP. Vera Institute of Justice iii This document is a research report submitted to the U.S. Department of Justice. This report has not been published by the Department. Opinions or points of view expressed are those of the author(s) and do not necessarily reflect the official position or policies of the U.S. Department of Justice. Acknowledgments We thank the National Institute of Justice, International Center and the Violence and Victimization Research Division for their support of this project. We are grateful for all the help of our program managers over the lifetime of this project. Jennifer Hanley and Cornelia Sorenson-Sigworth helped us chart a clear course during its formative stages. Our present program manager, Karen Bachar, provided critical guidance and direction during the summative stages. We thank her for her great patience and insights in moving this project to its conclusion. We also express our gratitude to Cheryl Crawford Watson, NIJ’s Human Subjects Protection Compliance Officer, for her help in designing protocols to make certain that all parties to the research were protected. We also wish to thank Pamela Guthrie for her work reviewing literature, assembling relevant statutes, and drafting questions for the early drafts of the NYCTAP screening tool. Thanks also to Zhifen Cheng for her help in designing and conducting the case file review, to Chirag Badlani for his research on the historical antecedents of antitrafficking statutes and for compiling the Human Trafficking Training Guide, and to Daliz Perez-Cabezas for her community outreach and coordinating work. We thank Nina Siulc for her contributions in the early stages of the NYCTAP. We thank the Vera Communications Department for its wise counsel on how best to communicate our findings. Local and federal law enforcement representatives generously provided detailed and insightful feedback on the NYCTAP screening tool. Finally, this project owes a great debt to our 12 Community Advisory Board (CAB) members. Their experience and expertise, and willingness to explore new methods to identify trafficking victims helped make the products of this project much stronger and more useful than imagined. Their imprint is evident throughout these pages. Vera Institute of Justice iv This document is a research report submitted to the U.S. Department of Justice. This report has not been published by the Department. Opinions or points of view expressed are those of the author(s) and do not necessarily reflect the official position or policies of the U.S. Department of Justice. Table of Contents Executive Summary .................................................................................... vii I. Introduction............................................................................................. 1 II. Background ............................................................................................ 2 III. Measuring Human Trafficking.................................................................. 4 Reporting and Underreporting................................................................ 5 Prior Data Collection Projects ................................................................. 6 The “Woozle Effect” in Human Trafficking Research................................. 8 Counting Hard-to-reach Populations ..................................................... 10 Types of Victims ................................................................................. 11 IV. Origins and Development of the NYCTAP and Screening Tool.................... 14 The NYCTAP Community Advisory Board (CAB) .....................................14 The Costs and Benefits of Standardization .............................................15 Methodology, Objectives, and Limitations ..............................................16 V. Designing the Trafficking Victim Screening Tool ........................................ 18 Defining Trafficking Victimization.......................................................... 18 Applying the Definition ........................................................................ 19 Describing Victimization....................................................................... 21 Organizing Sections and Formatting Questions ...................................... 21 Identifying Duplicates.......................................................................... 22 Summary ............................................................................................23 VI. Administering the Trafficking Victim Screening Tool.................................. 24 Mode of Administration ......................................................................
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