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### Viewing cable 07GUANGZHOU208, Tough to Talk About: TIP in South China

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
07GUANGZHOU208 | 2007-02-14 09:05 | 2011-08-23 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Consulate Guangzhou

`

    VZCZCXRO7105
    OO RUEHCN RUEHGH RUEHVC
    DE RUEHGZ #0208/01 0450905
    ZNR UUUUU ZZH
    O 140905Z FEB 07
    FM AMCONSUL GUANGZHOU
    TO RUEHC/SECSTATE WASHDC IMMEDIATE 5794
    INFO RUEHOO/CHINA POSTS COLLECTIVE
    RUCPDOC/USDOC WASHDC
    RUEHRC/USDA FAS WASHDC 0937
    RUEAIIA/CIA WASHDC
    RUEKJCS/DIA WASHDC
    RHHMUNA/HQ USPACOM HONOLULU HI

` `

    UNCLAS SECTION 01 OF 04 GUANGZHOU 000208

    SIPDIS

    STATE FOR EAP/CM AND DRL
    USPACOM FOR FPA

    SENSITIVE

    SIPDIS

    E.O. 12958: N/A
    TAGS: PHUM PGOV SOCI EAGR EINV CH
    SUBJECT: Tough to Talk About: TIP in South China

    (U) This document is sensitive but unclassified.  Please protect
    accordingly.

    ¶1. (SBU) Summary:  Talking TIP is not a popular topic in South
    China.  Many recent requests by the Consulate have been turned down
    in Guangxi and Guangdong.  However, trafficking in persons,
    particularly of women, continues to occur from within China's inland
    provinces to South China, as well as from other countries, such as
    Vietnam.  While increased economic development has lowered the
    number of women trafficked to be sold as wives to rural areas in
    Guangdong, reports of trafficking for labor or the sex trade
    continue to be published.  According to Vietnamese diplomats in
    Guangzhou, TIP cooperation with local authorities has improved and
    Vietnam signed an MOU with China in 2006 to enhance cross-border
    cooperation and procedures for victim identification, assistance and
    re-integration.  While not involved in the criminal aspects of
    trafficking in persons (TIP), such as prostitution, the Guangdong
    Women's Federation (WF) has shifted its focus from the spouse trade
    to public education to prevent migrant working women from falling
    victim to trafficking schemes.  Improvements have been seen, but it
    is likely that the extent of the problem is underreported by
    authorities.  Trafficking in spouses will continue to grow as the
    gender imbalance in China widens.  End summary.

    Vietnam: Cooperation with China on TIP is Improving
    --------------------------------------------- ------

    ¶2.  (SBU) In a January 31 meeting with the Consul General, Vietnam
    Consul General in Guangzhou Vo Thinh described the Vietnam-China
    border as long, mountainous, and difficult to control.  Traffickers
    frequently use river and forest routes.  In China, the majority of
    trafficked persons from Vietnam are located in South China, i.e.,
    Fujian, Guangdong, and Guangxi, but have been found as far north as
    Chongqing.  Vietnam has expended much effort in public education
    through media and the grassroots efforts of the Women's Union and
    sentenced traffickers to fines and prison.  It does not penalize the
    victims of trafficking, although social stigma remains an issue for
    many victims.  Increased efforts by both sides to promote economic
    development and trade and historically close business relationships
    make it harder to check goods and persons, with a potentially
    negative impact on trafficking enforcement.  While unable to provide
    statistics on numbers of cases, the Consul General thought
    cooperation between Guangdong and Vietnam was positive.  He
    described the Guangdong Public Security Bureau (PSB) as being much
    more responsive in recent years, though the PSB still did not
    provide that much information on the subject.  He termed ministerial
    cooperation with China on TIP "good" but called local-level
    cooperation poor.  Vo also said that Vietnam had discussed TIP
    issues with neighboring countries and at ASEAN, including at
    meetings attending by China, in an effort to combat the problem.

    ¶3. (SBU) In May 2006, the Government of Vietnam (GVN) and China
    signed an MOU to increase cross-border law enforcement cooperation.
    The Vietnam Women's Union (VWU) was tasked with implementing the
    "victim assistance and re-integration and raising public awareness"
    portfolio of the GVN's National Action Plan against TIP.  It also
    began a series of cross-border workshops with provincial women's
    federation counterparts in China. These reportedly have been
    useful.

    ¶4.  (SBU) Vietnam's approach to solving the issue additionally
    involves improving the economic climate and employment situation
    within Vietnam so that people are not lured by the promise of jobs
    outside of the country.  As part of what Vo termed Vietnam's new
    policy on TIP, the Prime Minister's 2004 National Action Plan is
    designed to assist women victims, with the central government
    providing a global fund for use by Vietnam's embassies and
    consulates to help repatriate victims of trafficking.  When
    contacted by a victim, the embassy/consulate verifies the person's
    identity and checks their status with the local PSB.  The office
    provides money and sometimes clothes to the victim and issues a
    certificate so the person can return to Vietnam.  In Guangdong and
    Guangxi, the Vietnam Consulate will provide a consulate vehicle to
    drive the victim to the Vietnam border in Guangxi at Dongxing or
    Pingxiang, so there is no danger of kidnapping.  Vo was unaware of
    the establishment of a repatriation center in Dongxing, Guangxi,
    which was set up in 2005.  Vietnam has also established victim
    assistance and assessment centers on its side of the border.  Note:
    Congen Guangzhou plans to take a trip to the border area in the
    coming months to look into this matter further.  End Note.

    ¶5.  (SBU) Though Vo was unable to comment on prostitution

    GUANGZHOU 00000208  002 OF 004

    trafficking, we would note a number of news reports in 2006 that
    China had cooperated with Vietnam in cracking down on an increasing
    number of cases of women trafficked for the sex trade, labor, and
    spouses into Hainan, Guangxi, Guangdong and other provinces.  We
    have also heard reports of children being trafficked into China for
    sex and labor.  UNICEF-Vietnam is currently working on a project to
    train the Vietnamese Border Command on child trafficking.  In
    Vietnam, trafficking networks are difficult to prosecute because
    they often operate in chains of referrals where few know the
    ultimate destination.  Along many parts of the Vietnam / China
    border, business relationships are historically close and
    traffickers take advantage of this.  Embassy Hanoi points out that
    across the border in Vietnam's northeast Quang Ninh Province, the
    Vietnam Women's Union reported that there has been a definite
    increase in TIP since 2000.  Before 2000, many Vietnamese women went
    voluntarily to China to marry Chinese men; however, since then,
    conditions for women in Quang Ninh have largely improved so
    "voluntary" cross-border marriages have decreased.

    ¶6.  (SBU) Post asked the Guangxi PSB for a meeting and to visit the
    Dongxing border area to discuss TIP issues, its response was that
    the USG had no relation to the TIP issue with Vietnam and refused.
    When we requested the meeting again, the PSB said there was little
    to discuss since the repatriation center concept was just at the
    beginning stage (Note: news reports indicate that the Dongxing
    center was established in 2005 and a second center established in
    Congzuo, also on the Vietnam-Guangxi border.  End note.).  The
    Guangzhou and Guangdong PSB and Guangzhou Women's Federation also
    declined to discuss TIP with Post despite news reports that indicate
    increased enforcement actions by law enforcement and administrative
    agencies.

    Guangdong Women's Federation: Stopping The Sale Of Wives
    ----------------------------- --------------------------

    ¶7. (SBU) The Guangdong Women's Federation was more willing to talk.
    Guo Suisheng, Deputy Director of Women's Rights and Interests
    Department, and Hu Lilng, Deputy Director of the
    Organization-liaison Department of Guangdong Provincial Women's
    Federation, told Congenoff on February 8 that the Guangdong Women
    Federation is the largest "NGO" in China, though all its staff are
    on the payroll of the Government.  Its main mission is to promote
    women's rights and interests, including combating trafficking in
    women.  According to Guo, the Chinese authorities emphasize fighting
    against the trafficking in women.  China has a law called "Women's
    Rights and Interests Protection Law" passed in 1993 and amended in
    ¶2005.  The National Congress also issued a memorandum on severely
    punishing the trafficking of women and children in early 1990s.
    Such laws, as well as regulations and judicial interpretations
    issued by the Government, the Supreme Court and the Procuratorate
    define very clearly each official agency's role and related
    proceedings and remedies in combating the trafficking in women.
    Each layer of Governments' annual work plans also contain the
    element of protection women's interests and rights, which Guo said
    havean anti-trafficking element.  According to Guo, in China's
    criminal code, "the trading of deceived women" and "forced
    prostitution" are two separate charges.  The Women's Federation is
    essentially responsible for the prevention and rescue of the former
    victims, while the PSB takes care of the latter problem as a
    criminal issue.   Inside the provincial PSB there is a special unit
    designated for enforcing anti-trafficking in women and children.

    ¶8. (U) In addition to implementing its legislatively-mandated
    enforcement efforts, Guo said the Chinese Government often launches
    interregional and interagency campaigns to fight against TIP
    problems.  In 2001, Guangdong, as a major "import" market of
    trafficked women, cooperated with governments of the "export" areas,
    poorer areas to Guangdong's west and north, to launch a joint
    campaign to fight against trafficking in women.  The National
    Congress also sent delegations to Guangdong to inspect the effects
    of such campaigns.  Under the Pan Pearl River Delta cooperation
    (Pan-PRD) framework, Guangdong's Women Federation also has signed
    cooperation agreements on women rights issues, including
    anti-trafficking with its counterparts in the eight other provinces
    and two Special Administrative Regions of Macau and Hong Kong of the
    Pan-PRD region.  Cross-border Women's Federation workshops between
    Vietnam and China to combat TIP have also been growing.

    Past Efforts Focused on Preventing Spouse Sales
    --------------------------------------------- --

    ¶9. (SBU) Guo, who has over 20 years of working experience in

    GUANGZHOU 00000208  003 OF 004

    protecting women's rights in the Federation, said that in the past
    there are trafficking in women problems in less developed and
    isolated areas, particularly in the remote mountains, in order to
    obtain spouses.  Lufeng County and Xinyi County, which are located
    in eastern and western areas of Guangdong respectively, are the two
    most notorious areas known for this problem.  Farmers in those areas
    are so poor that local women try to leave poverty behind by marrying
    outside people.  At the same time, few women from outside were
    willing come in.  A "tradition" developed for local men to buy women
    from outside as their wives in these counties.  The victim women
    were usually from inland provinces, such as Hunan and Sichuan.  The
    Federation also previously provided match making services in those
    traditional "women import" areas.  Such service is not necessary now
    as the TIP problem is decreasing, according to Guo.  News reports
    continue to indicate that trafficking in women to be spouses remains
    a problem in less developed rural areas in China.

    ¶10. (SBU) When the Women Federation receives a report of trafficked
    women or a request for its assistance, it works with local police to
    organize enforcement actions.  In the late 1990s, the Federation
    helped local police crack a criminal trafficking group that had sold
    about 30 women.  Guo participated in several rescues, usually
    conducted at night, to spirit the women away by surprise.  Due to
    the isolated, mountainous locations, these operations were often
    difficult and time-consuming.

    Shifting Focus Toward Prevention Of Labor Trafficking
    --------------------------------------------- --------

    ¶11. (U) Guo said the trafficking in women for spouses has been rare
    in recent years because the reform and opening program has improved
    local people's living conditions and has given them more
    opportunities to be exposed to the outside.  In the 1980's, the
    Federation handled 30-to-40 cases of trafficking in women cases each
    year, while in 2006, the number was only nine.  The priority of the
    Federation's anti-trafficking efforts has shifted to preventive
    measures, especially to educate migrant women workers from falling
    victims as traded wives and sweatshop laborers.

    ¶12. (U) The Federation utilizes various means to educate the public.
     It now tries to promote migrant women workers' awareness of their
    legitimate rights and how to protect themselves better.  They print
    and distribute informational materials, sponsor a hotline which
    number "12338" is directly accessible in the whole province, conduct
    training classes in factories, produce TV programs, and hold
    artistic performances to teach women workers the typical tricks or
    deceptions of traffickers.  They also demonstrate skills for seeking
    outside assistance, such as getting attention from the police in
    case they are being trafficked.  The Federation works with its
    counterparts in the labor exporting regions of inland China to
    introduce reliable job opportunities to migrant women workers to
    reduce their risks of being deceived by traffickers.

    ¶13. (U) After the Chinese Spring Festival, when a lot of migrant
    workers come to Guangdong for jobs, the Federation works with other
    agencies to organize anti-trafficking promotions in local railway
    and bus stations.  In 2006, such a promotion campaign was headed by
    Guangdong's Vice Governor Madame Lei Yulan and covered the major
    migrant labor-importing cities, including Guangzhou, Foshan,
    Dongguan, Shenzhen, and Huizhou.  In Guangzhou's railway station,
    the Women's Federation used a large outdoor display screen to
    broadcast its anti-TIP message 6,000 times within three months.

    ¶14. (U) In addition to educating the potential targets of
    trafficking, the Federation also promotes anti-trafficking awareness
    among factories and spouse seekers by explaining to them the likely
    penalty they will face if they use trafficking to obtain women.
    Interlocutors said rescuing victims of trafficking from prostitution
    is not their responsibility as the Federation does not have
    enforcement authority and cannot conduct raids on its own.  However,
    the Federation always passes the request for helping victims to the
    police, and provides psychological counseling and material support
    after they are rescued.  Such services are also provided to children
    rescued from trafficking.  In 2002, the Police cracked a child
    trafficking group in Lufeng County in Guangdong Province that had
    sold eight children to Lufeng County and Hainan Province.  The
    Federation provided psychological and communication counseling to
    the affected families, and later managed to obtain Amway's
    sponsorhip of the children's tuitions.

    Comment: Not Talking About It Will Not Make The Problem Go Away
    -------- --------------------------------------------- ---------

    GUANGZHOU 00000208  004 OF 004

    ¶15. (SBU) The Chinese Government may well have an efficient and
    organized way of combating trafficking in persons, but provincial
    and local enforcement agencies are reluctant to discuss progress in
    this sensitive area.  As the current leadership in Beijing stresses
    the building of a harmonious society in which weaker social groups
    get more attention and public services, TIP issues will likely get
    more attention in prosperous Guangdong Province.  The increased
    gender imbalance in China due to traditional preferences for boys
    over girls, accentuated by the one-child policy, could cause a
    return to the purchase of spouses down the road as millions of
    unmarried men seek wives from among a diminishing number of women.
    End comment.

    ¶16. (U) Embassy Hanoi contributed to this cable.

    Goldberg

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