National Anti-Trafficking Co-ordinator: A leading role in State’s anti-trafficking response Issue Brief
N umerous international instruments, including OSCE commitments, emphasize the importance of co-ordi- nation to a country’s ability to effectively combat human A National Anti-Trafficking Co-ordinator is a critical element to ensure the effective development and implementation of a State’s policies and measures to combat human traf- trafficking. The OSCE Declaration on Trafficking in Human ficking. Together with the multi-agency Anti-Trafficking Beings (THB) adopted in Porto (2002)1 underscored “the Commission (task force) and the National Anti-Trafficking need for national strategies in order to unite efforts directed Rapporteur they serve as three main pillars of the anti- towards combatting trafficking in human beings and to trafficking architecture, which are designed to bring comple- enhance co-ordination among national, interna- mentarity and ensure that national anti-trafficking tional and regional organizations in this field. institutional frameworks are comprehen- This need could be met through meas- sive, inclusive, transparent, and efficient4. ures such as appointing inter-ministerial By establishing these three mecha- bodies and national co-ordinators or, nisms and providing the necessary as appropriate, other relevant bod- means to implement their distinct but ies or mechanisms.” Furthermore, related mandates, States can opti- MC Decision No.14/062 urged par- mize and sustain their anti-trafficking ticipating States to appoint National responses. Co-ordinators in order to “promote a comprehensive approach to com- To date, OSCE participating States have bating all forms of trafficking in human developed their national anti-trafficking beings through national, regional and frameworks in a variety of manners. While international arrangements, co-operation many involve a combination of at least some and co-ordination between law enforcement of these mechanisms, uniform understanding personnel, labour inspectorates, social protection and approaches are yet to be developed. Even States units, medical institutions, immigration and border service that do purport to have all three mechanisms have some- officials, civil society organizations, victim support services, times intertwined or merged mandates in a way that can be and the business community and any other relevant ac- confusing and counterproductive. Furthermore, the diver- tors, also including a gender-sensitive approach”. Finally, sity of national approaches makes regional co-operation the 2013 Addendum to the OSCE Action Plan to Combat challenging. In line with its mandate5, and based on the Trafficking in Human Beings3 recommended “[e]nlarging, promising practices from the OSCE region, the Office of where appropriate, multi-disciplinary partnership in the the OSCE Special Representative and Co-ordinator for framework of NRMs, such as national co-ordinator/co-or- Combating Trafficking in Human Beings has developed this dination mechanisms or other national structures, to facili- issue brief to assist participating States in advancing the tate dialogue and co-operation between public authorities, role of a National Anti-Trafficking Co-ordinator and stream- NGOs, trade unions and other relevant institutions”. lining regional approaches.
1. https://www.osce.org/mc/40521 2. https://www.osce.org/mc/23048 3. https://www.osce.org/addendum 4. https://cthb.osce.org/cthb/503920 5. https://www.osce.org/mc/22762 page 1 Key Elements to Consider Effective national co-ordination is vital to combat traf- with a broad spectrum of national and local stakeholders, ficking in human beings. It ensures that the diverse set including civil society, as well as periodic monitoring and of stakeholders working to combat this crime, both in- evaluation of the work to adjust it as needed. Conversely, a side and outside of government, are doing so in a way National Rapporteur should remain independent of the na- that is comprehensive, inclusive, and effective. A unified tional government in order to transparently conduct its man- approach enables the development of coherent nation- date of situation and responses’ analysis and evaluation. al strategies, the formation of strong multi-disciplinary By leveraging the strengths of each of these mechanisms, teams, and the implementation of policies that reflect countries can build a robust and sustainable anti-trafficking the complexity of trafficking. Moreover, such co-ordina- framework, existing within an effective and transparent sys- tion can strengthen necessary dialogue and collabora- tem of checks and balances. tion between entities working on related issues, such as anti-discrimination and human rights, which can in turn Has a Comprehensive Mandate to Address lead to the enhancement of anti-trafficking efforts. A All Forms of Human Trafficking National Co-ordinator serves as the central authority re- A National Co-ordinator should ensure the country’s com- sponsible for directing, aligning, and monitoring a State’s prehensive approach to combating all forms of human efforts to combat human trafficking; and there are certain trafficking. Limiting National Co-ordinator’s mandate to a key features that can improve the efficacy of this role. specific form of trafficking or splitting it between several man- date-holders with each of them addressing explicit form(s) of High-Level Position within the National Government exploitation poses a significant risk of overlooking emerging The incumbent serving in the position of the National Co-or- forms of THB and undermines the efficiency and consisten- dinator should have a high-level position within the national cy of national anti-trafficking responses. While the diversity government structure to ensure authority, cross-sectoral of human trafficking forms and manifestations often requires influence, and sustained political commitment necessary tailored approaches, such approaches should be devel- to fulfil the mandate.6 Such placement will allow the Na- oped and implemented in a co-ordinated manner by lever- tional Co-ordinator to be best suited to convene and lead aging a comprehensive mandate of a National Co-ordinator. a unified response to combat all forms of human trafficking, collaborate with various ministries and agencies responsi- Placed Outside of the Criminal Justice System ble for specific anti-trafficking efforts, engage directly with While States have the authority to determine where the decision-makers, advocate for continued funding and ac- National Co-ordinator position is located within their larger tion, represent the country at bilateral and multi-lateral fora, national government framework, it is preferable that the and keep a high public and political profile of combating position is established outside of the criminal justice sys- THB at the national and international levels. tem. Doing so will help ensure a more balanced, rights- based, and cross-sectoral approach to the State’s national Leads Multi-Agency Anti-Trafficking Commission anti-trafficking response. Placement within the govern- (Task Force) and Established Separately from ment structures with broad policy mandates is ideal. the National Rapporteur As noted above, delineation between the mechanisms of Engagement with Civil Society and Survivor Leaders National Co-ordinator, National Rapporteur, and a multi- National Co-ordinators’ primary responsibility is to co-or- agency Anti-Trafficking Commission (task force) is critical. dinate the government’s national anti-trafficking response. Each role has its own functions and mandates, and States However, doing so effectively is only possible if the Nation- should ensure that they remain distinct to maximize effective- al Co-ordinator ensures close co-ordination between the ness. The National Co-ordinator should provide leadership government and civil society7, including survivor leaders8. for the co-ordination of a country’s anti-trafficking efforts and Civil society organizations and lived experience experts activities, and to foster positive collaboration in the pursuing play a critical role in enhancing stakeholders’ understand- and achieving of a participating State’s anti-trafficking objec- ing of human trafficking and its emerging trends, fostering tives domestically and internationally. One of the most effi- identification of victims and improving assistance to them, cient ways to safeguard such co-ordination and collabora- and in holding governments accountable. Their insights are tion at the national level is to appoint a National Co-ordinator critical to the development of sound national policy and ac- to lead the multi-agency Anti-Trafficking Commission (task tion. While the co-operation of States with civil society and force). This set-up will enhance the national strategic and survivor leaders can take multiple forms and display var- operational framework, enabling joint development of the ious degrees of formalization, fostering their participation anti-trafficking policies (for example, National Action Plans in policy-making processes led by the National Co-ordina- and Standard Operating Procedures), design and imple- tor, for example devising National Action Plans, will make mentation of coherent and result-oriented prevention, pro- anti-trafficking policies and measures more responsive to tection, and prosecution measures, systematic engagement the realities of trafficking.
6. OSCE Summary Report: Meeting of National Anti-Trafficking Co-ordinators and Rapporteurs or Equivalent Mechanisms (12-13 September 2024): “… participants stressed the importance of elevating the position of a National Anti-Trafficking Co-ordinator to ensure its unifying and decision-making authority…”. See also: National leadership structures are critical parts of an effective anti-trafficking strategy, say participants at annual anti-trafficking meeting (Press Release, 6 June 2023): “NACs and NARs are critical parts of an effective national anti-trafficking strategy, preferably placed in a high-level position in government and in independent human rights bodies, to better leverage, direct, and harmonize the different instruments of the anti-trafficking efforts and maximize their impact”. 7. https://cthb.osce.org/secretariat/405197 8. https://odihr.osce.org/odihr/573983
page 2 Three Anti-Trafficking Mechanisms The following chart highlights the differences between each integral mechanisms of National Co-ordinator, National Rapporteur, and multi-agency Anti-Trafficking Commission (task force):
National Multi-Agency Anti-Trafficking Commission National Co-ordinator (Task Force) Rapporteur
Primary Provide strategic leadership and Facilitate collaboration across the government and between Provide independent oversight, Function ensure coherent and compre- the government, civil society, and survivor leaders. evaluation, and accountability. hensive national response.
Core Co-ordinate the anti-trafficking Convene relevant government ministries on a regular Produce, analyze, utilize, and Mandate activities of State institutions, basis to co-ordinate anti-trafficking efforts, plan future action, report on data needed to im- and Scope in partnership with civil society and exchange information. proved anti-trafficking efforts. of Work and survivor leaders. Develop and oversee the implementation of national strategies, Improve understanding about Facilitate and lead the develop- policies (including National Action Plans), and measures. the nature of the problem within ment, implementation, monitor- States, evaluate the effective- ing, and evaluation of national Engage civil society and survivor leaders/lived experience ness and impact of government strategies, policies (including experts in the formulation and implementation of policies and actions against National Action Plans), and anti-trafficking responses. trafficking and in support measures. of its victims, and present Serve as a platform for co-ordinating activities with the actionable recommendations Ensure a comprehensive ap- private sector and other actors. for improving policies and proach to combating all forms practices addressing all forms of human trafficking. Provide guidance and support to and oversee the work by of trafficking.9 thematic working groups (for example, on prevention of Facilitate public reporting trafficking in supply chains); mechanisms (for example, on results of anti-trafficking National Referral Mechanism); and local commissions actions. (task forces).
Ensure anti-trafficking efforts continue to receive adequate resources and funding.
Placement Executive role, placed at a Collaborative body, chaired by the National Co-ordinator, Independent role, placed in Relation high-level of government. involving representatives from all relevant government min- outside executive structures to Existing istries, with opportunity to collaborate with civil society and (government). Government survivor leaders/lived experience experts. Structures
9. https://cthb.osce.org/cthb/503920
page 3 Recommendations for States on the implementation of a National Co-ordinator Mandate
National Co-ordinator 1 … be placed in a high-level position within 2 … be established separate from a National should … the national government in Rapporteur and lead order to maintain authority, a multi-agency Anti- cross-sectoral influence, Trafficking Commission and sustained political (task force) to maintain a commitment necessary to robust and sustainable fulfil their mandate. national anti-trafficking framework.
3 … ensure country’s comprehensive approach 4 … be placed outside of the criminal justice sys- 5 … be empowered to co-ordinate closely with to combating all forms tem to ensure a balanced, civil society and survivor of human trafficking. rights-based and cross- leaders, whose insights are sectoral approach to critical to the development the State’s national of sound anti-trafficking anti-trafficking response. policy and action.
Office of the Special OSCE Secretariat Representative and Wallnerstrasse 6 Co-ordinator for A-1010 Vienna, Austria Combating Trafficking in Human Beings @osce_cthb info-cthb@osce.org osce.org/cthb
page 4