MA Interagency HT Policy Task Force Findings

Massachusetts Interagency
Human Trafcking Policy

Task Force
Fixiixcs axi Ricoxxixiarioxs
Aucusr 1,, :o1
Massachusetts Interagency Human Trafcking Policy Task Force
Tanii oi Coxrixrs
Message from the Chair .......................................................................................................7
Structure of the Task Force ...................................................................................................9
Executive Summary............................................................................................................ 11
Tramcking in Massachusetts ............................................................................................... 15
Recommendations for Enectively Addressing Human Tramcking in Massachusetts ............ 19
Victim Services ........................................................................................................................ 19
1. Summary of Recommendations ...................................................................................................19
2. Importance of Victim Services ....................................................................................................19
3. Current Practices ........................................................................................................................20
4. Recommendations ......................................................................................................................24
Demand Reduction .................................................................................................................. 32
1. Summary of Recommendations ...................................................................................................32
2. Importance of Demand Reduction ..............................................................................................32
Data Collection and Information Sharing ................................................................................ 37
1. Summary of Recommendations ..................................................................................................37
2. Importance of Data Collection and Information Sharing ..........................................................37
3. Current Data Collection Practices .............................................................................................37
Education and Training ........................................................................................................... 44
1. Summary of Recommendations ..................................................................................................44
2. Importance of Education and Training .......................................................................................44
Table of Contents 3
Public Awareness ....................................................................................................................... 54
1. Summary of Recommendations .................................................................................................54
2. Importance of Public Awareness .................................................................................................54
3. Current Practices .......................................................................................................................54
4. Recommendations: ....................................................................................................................55
Labor Tramcking ............................................................................................................... 57
Implementation Plan ........................................................................................................ 58
District Attorney Omces Multidisciplinary Teams (DAO MDTs) ............................................. 58
Minor Victims of Sex Tramcking .............................................................................................. 58
Safe House ................................................................................................................................ 59
Education and Training ............................................................................................................ 60
Appendices......................................................................................................................... 61
Appendix A: Victim Services - Model Programs ..............................................................................63
Appendix B: Victim Services - Information for Law Enforcement ..................................................65
Appendix C: Victim Services - Legislative Issue Brief .......................................................................67
Appendix D: Draft Screening Instruments for Minors and Adults ...................................................69
Appendix E: Draft Protocol for Screening and Referring Minor Victims .........................................71
Appendix F: Draft Protocol for Screening and Referring Adult Victims ...........................................73
Appendix G: Draft Dennitions of Human Tramcking .....................................................................75
Appendix H: Data Collection and Information Sharing - Items for Consideration ..........................77
Appendix I: Data Collection and Information Sharing System Considerations ................................81
Appendix J: Public Awareness ..........................................................................................................83
Appendix K: Secondary Public Awareness Research Findings Summary...........................................85
Appendix L: Legislative Language ....................................................................................................89
Appendix M: Short, Mid, and Long Term Goals .............................................................................91
Appendix N: Subcommittee Membership .......................................................................................95
4 Table of Contents
5
6
Missaci iiox rui Cuaii
On behalf of the Massachusetts Interagency Human Tramcking Policy Task Force, I am pleased to present this
report for your consideration. Human tramcking is a brutal and dehumanizing crime and, because of its nature, it
is often unreported. Unlike the sale of guns and drugs, which when sold are gone for good, a tramcked person may
be sold over and over for labor, sex or both. Experts estimate that the sale of women, children and men annually
generates $32 billion internationally
1
.
With the passage of Chapter 178 of the Acts of 2011, Massachusetts took a stand to end human tramcking in
our state. A task force was formed as part of that enort to examine the issue and make recommendations to help
identify tramcking victims, strengthen our ability to assist survivors, and end tramcking in our state. Te result is
this report.
Te recommendations included here renect a collaborative enort that harnessed the passion and expertise of
individuals representing victim services, academia, law enforcement, public policy and state government. Over the
past 18 months, we have worked to identify, study, and agree upon the most enective and emcient ways to address
tramcking. Our hope is that this report provides a comprehensive approach for Massachusetts to address human
tramcking. However, we are also keenly aware that this report is a beginning rather than an end.
At the center of this report are our recommendations relative to victim services, demand reduction, data collection
and sharing, training and education, and public awareness. While any of the recommendations can stand alone,
we developed them to be complementary and build on each other in a way that supports the most proncient use
of resources.
It is seldom that all parties to a project agree on and bring such enthusiasm to the same course of action. It is this
agreement and enthusiasm that we hope will motivate all of us to work to implement these recommendations
across the Commonwealth. Tank you for the opportunity to examine this important problem and begin to chart
a course to end human tramcking in the Commonwealth once and for all.
Martha Coakley
Massachusetts Attorney General
1 United Nations Omce on Drugs and Crime, Factsheet on Human Trafcking. available at http://www.unodc.org/documents/
human-tramcking/UNVTF_fs_HT_EN.pdf (last visited Aug. 12, 2013).
Message From the Chair 7
8
Sriucruii oi rui Tasx Foici
On November 21
st
, 2011, Governor Patrick signed into law, House Bill 3808, An Act Relative to the Commercial
Exploitation of People, legislation sponsored by House Judiciary Chairman Eugene OFlaherty and Senator Mark
Montigny.
2
Te law went into enect on February 19
th
, 2012. In brief, the legislation created the new crimes of
tramcking and increased penalties for existing crimes, expanded the reporting obligations of mandated reporters,
authorized the forfeiture of tramcking onender assets be placed into a trust fund for victims and created an
Interagency Human Tramcking Task Force to continue to address tramcking issues.
3

Specinc to the crimes, the legislation established new state crimes of human tramcking for sexual servitude and
forced labor, enticement of a child by means of electronic communication and organ tramcking. Each crime
included penalties, along with heightened prison terms if the victim is under 18 years old. Additionally, the
legislation increased penalties for solicitation of a prostitute and engaging in sex for a fee.
In addition to amending crimes in the General Laws, the legislation also made four other signincant changes.
First, the law now requires mandated reporters to report victims of human tramcking. Additionally, the
Department of Children and Families, through a qualined multidisciplinary team, must assess whether a child has
been sexually exploited and create a plan to protect the child. Second, the law provides a safe harbor provision
for child victims, a presumption that any child charged with common night walking or prostitution is indeed a
victim of tramcking and not a criminal. Tird, the law established a Victims of Human Tramcking Trust Fund to
assure assets forfeited and assessments collected from tramcking related onenses are deposited and then distributed
to victims. Lastly, the law mandated an inter-agency Task Force, chaired by the Attorney General, to address all
aspects of human tramcking.
Tis Human Tramcking Task Force is responsible for examining and developing recommendations for all aspects
of human tramcking, including policy changes. Trough these well examined facets, the Task Force is able to
recommend how to strengthen state and local enorts to combat and prevent human tramcking, as well as assist
human tramcking victims and alert the public of this ongoing problem.
Since its nrst meeting on February 29
th
2012, the Task Force has formally met nine times. Chaired by Attorney
General Martha Coakley, the legislation mandated membership from various state agencies and gubernatorial
appointments in the areas of victim service and academia. Te Task Force is made up of representatives from 19
dinerent organizations. Following are the individuals who represent their organizations on the committee:
2 2011 Mass. Acts of 2011 chapter 178.
3 Te legislation also made changes to the rape shield Mass. Gix. Laws ch. 233, 21B law c. 233 section 21B and created
conndentiality protection with human tramcking caseworkers Mass. Gix. Laws ch. 233, 20M.
Structure of the Task Force 9
Timothy Alben, Colonel and Superintendent, Massachusetts State Police
Andrea Cabral, Secretary, Executive Omce of Public Safety
Chris Carroll, Division of Professional Licensure
Martha Coakley, Attorney General, Omce of the Attorney General
Ronald P. Corbett Jr., Acting Commissioner, Omce of Probation
Julie Dahlstrom, Lutheran Social Services and Boston University School of Law Human Tramcking Clinic
Edward Davis, Commissioner, Boston Police Department
Stephanie DeCandia, Boston Area Rape Crisis Center
Amy Farrell, Northeastern Universitys Institute on Race and Justice
Janet Fine, Executive Director, Massachusetts Omce for Victim Assistance
Lisa Goldblatt Grace, My Life My Choice
Susan Goldfarb, Childrens Advocacy Center of Sunolk County
Sheridan Haines, Executive Omce of Public Safety
Mary Elizabeth Henernan, Secretary, Executive Omce of Public Safety
Pi Heseltine, Sergeant, Massachusetts State Police
Cherie Jimenez, Te E.V.A. Center
Mark Kmetz, Division of Professional Licensure
Ellen Lemire, Massachusetts District Attorneys Association
Liam Lowney, Massachusetts Omce for Victim Assistance
Josiane Martinez, Omce for Refugee and Immigrants
Mary McCauley, Sergeant, Massachusetts State Police
Angelo McClain, Commissioner, Department of Children and Families
Marian J. McGovern, Colonel and Superintendent, Massachusetts State Police
Colin Moore, Department of Children and Families
Audrey Morrissey, My Life My Choice
Dave Murphy, Department of Children and Families
Kelly Nee, Deputy Superintendent, Boston Police Department
Michael O'Keefe, Massachusetts District Attorneys Association
Tom Pasquarello, Chief of Police at Somerville Police Department, Massachusetts Police Chiefs Association
Diane Richard, Omce of Probation
Olga I. Roche, Acting Commissioner, Department of Children and Families
Heather E. Rowe, Director, Department of Labor Standards
Wayne Sampson, Executive Director, Massachusetts Police Chiefs Association
Ellen Slaney, Commissioner, Omce of Probation
Geline Williams, Executive Director, Massachusetts District Attorneys Association
In order to engage members in the most enective way possible, the responsibilities and members of the Task
Force were divided into subcommittees.
4
Each subcommittee was chaired by two members of the Task Force
and subcommittee membership comprised of Task Force Members and additional subject matter experts. Tis
structure provided for a place for members to engage enectively in the work. It also provided a way for the Task
Force to engage as many relevant experts as possible who were not formally named to the Task Force. Finally, it
enabled the Task Force to build enective and long term working relationships between non-governmental and
governmental agencies and service provider that would exist past the life of the Task Force.
4 Please see Appendix N for subcommittee membership.
10 Structure of the Task Force
Exicurivi Suxxai\
Te Massachusetts state legislature, in creating the Interagency Human Tramcking Task Force, created a forum
for the appropriate governmental agencies and human tramcking experts to convene and draft innovative,
comprehensive solutions to prevent human tramcking when possible, address perpetrators when not, and attend to
the needs of survivors in the aftermath of the crime.
5
Tis report the task force hopes provides a clear road map to
address the issue of human tramcking in Massachusetts.
Tese recommendations are neither complex nor resource intensive. Te Task Force is conndent that these
recommendations will save the Commonwealth resources over the long term, and if implemented correctly, can act
as a model for other states, as law enforcement and victim services are coordinated in new ways.
Te Commonwealth is fortunate to have nationally renowned human tramcking service providers and researchers.
Tese experts brought their local, state, national and international expertise to the table. Te recommendations
renect best practices in addressing tramcking across the nation.
Te report makes recommendations in the areas of victim services, demand reduction, data collection and
information sharing, education and training, and public awareness.
Each recommendation section is divided by subcommittee topic area. Within each section, there are: (1)
subcommittee responsibilities, (2) a summary of recommendations, (3) the importance of the particular subject
area to the nght against tramcking, (4) an evaluation of current practices in Massachusetts and nationally, where
applicable, and (5) in-depth recommendations.
In addition to legislatively mandated area of focus, the report supports a set of short, mid and long term goals for
Massachusetts to address human tramcking (see appendix M). Te purpose of these objectives is to provide an
outcome based and achievable road map for the work in the Commonwealth and to ensure a clear understanding
of what steps need to be taken and how they intersect. It is critical that all dimensions of human tramcking are
addressed if solutions are to be enective and sustainable. While portions of the report can be used on their own,
the recommendations are more enective when implemented in conjunction with one another.
Below please nnd a summary of the recommendations by subject area:
Victim Services
Currently, services for victims are the biggest human tramcking related need in Massachusetts. Tere are a very
limited number of organizations that support and lack of nnancial resources to assist survivors of tramcking as
they work to rebuild their lives. Without this critical support, there is no way to enectively address the human
tramcking.
A summary of the recommendations are as follows:
1. Develop capacity to serve survivors using existing survivor-led, comprehensive tramcking programs;
2. Conduct research and create tailored initiatives to better address the needs of men and LGBTQ youth;
3. Increase access to trauma-informed evidence-based therapeutic interventions;
4. Provide additional funding to support existing tramcking-specinc services programs;
5 Troughout this report the terms tramcking and human tramcking are used interchangeably.
Executive Summary 11
5. Evaluate the overall benents to the Commonwealth of providing funding to tramcking programs;
6. Increase the availability of nnancial and other resources to identined tramcking victims; and
7. Establish a Massachusetts safe house/home pilot program.
Demand Reduction
Tramckers operate on basic economic principles; if there were no demand for commercial sex or tramcked labor,
human tramcking would not exist. Targeting demand is a critical element in a comprehensive approach to
combating tramcking. An enective approach addresses each element of the economic model: supporting those
who have been exploited, and holding the perpetrators including the buyers - accountable. If demand is not
addressed, thereby shrinking or destroying the market, tramckers will continue to victimize their prey for pront.
1. Explore the creation of a statewide technical assistance unit;
2. Develop statewide capacity to enable a nrst onender program option for all sex-buying arrestees; and
3. Integrate demand reduction in all anti-tramcking.
Data Collection and Information Sharing
Data collection and information sharing across governmental and victim services agencies is critical to quantifying
the problem, preventing the crime, detecting tramckers, and assisting victims.
1. Establish a human tramcking victim dennition for data collection purposes;
2. Deploy the screening tools and guidelines developed to support victim identincation;
3. Pilot a coordinated data collection response across the state; and
4. Use the information from the data collection pilot to create a state wide data collection tool and protocol.
Education and Training
Often the people most able to identify victims and curb criminal action are unaware of the problem and how to
address it. Te education and training of law enforcement, health care providers, nrst responders, victim services
providers, and educators is crucial if we are to address and prevent the crime.
1. Make a basic level of human tramcking training available to all health care, law enforcement, nrst
responder, and education providers;
2. Support a fundamental shift in understanding, identincation, response to victims, and systemic change
through the trainings;
3. Use consistent language renecting the lives of survivors;
4. Include screening and data collection protocols in the training; and
5. Design trainings to be as enective as possible through the use of a tiered approach, face to face delivery,
multidisciplinary method for at least a portion of the training, and well qualined trainers.
12 Executive Summary
Public Awareness
Te public has an important role to play in identifying victims, reducing demand and catching criminals. Tere
are pervasive and harmful myths perpetuated by mass media. An enective public awareness campaign can help
change the public perception of the issue and support a reduction in the crime.
1. Leverage existing work of other states to tailor a successful campaign for Massachusetts;
2. Identify a state agency to lead the public awareness campaign;
3. Establish a web portal to act as a clearinghouse for information;
4. Provide a Massachusetts call referral map for the national hotline to support victim identincation.
Executive Summary 13
14
Tiaiiicxixc ix Massacuusirrs
It is estimated that across the United States nearly 300,000 children are tramcked for sex every year.
6
Te U.S.
Justice Department has identined the average age of entry into prostitution is 13.
7
Tese cases involve tremendous
violence, are complex and expensive to prosecute. Victims are brutalized in the worst ways imaginable. In
Massachusetts, there is currently no systematic way to quantify the problem much less identify and meet the needs
of victims.
Tramcking victims are individuals lured into this country and Massachusetts with false promises of legitimate
work, only often to be forced into the sex or labor industry upon arrival. Tey are also domestic and
Massachusetts born runaways being taken in by tramckers and forced to trade sex for a place to sleep, or girls being
baited into the life by a presumed boyfriend who later reveals himself as a pimp. Much like a victim of domestic
violence, human tramcking victims are trapped by fear, isolation, and brutality at the hands of their tramckers.
Te Task Force recognizes that frequently one victim is subjected to both sex and labor tramcking. However,
because these two types of tramcking are often addressed dinerently, a separate and in-depth discussion of each is
provided below to best understand their specinc aspects.
SEX TRAFFICKING
Sex tramcking of U.S. citizens and foreign nationals occurs across the Commonwealth of Massachusetts. For
example, in 2011, Te E.V.A. Center, a Boston-based program that works with adult women involved in the sex
trade, reported that the program served 225 adult women since the program began in 2006.
8
Of these women, 20
were identined as foreign nationals and 145 were between the ages of 17 and 25. Te E.V.A. Center reports that
over half of the women were court involved with an over representation of young women aging out of government
systems, such as the custody of the Massachusetts Department of Children and Families (DCF) and the
Department of Youth Services (DYS). Te majority of women were referred at a point of crisis, largely from law
enforcement (LE), community clinics, hospitals, the Massachusetts Department of Transitional Assistance, the
Probation Department, and SafeLink, the Massachusetts domestic violence hotline.
Similarly, the commercial sexual exploitation of youth occurs across the Commonwealth. Although state-wide
statistics are not available, in a 2012 report the Childrens Advocacy Center (CAC) of Sunolk County noted
that, [i]n recent years, hundreds of girls in the Boston area have been drawn into the life of commercial sexual
exploitation; countless others remain at risk.
9 10
Te report documented more than 480 child victims of sexual
6 Richard J. Estes & Neil Alan Weiner, Te Commercial Sexual Exploitation of Children In the U. S., Canada and Mexico,
University of Pennsylvania, Philadelphia, 2001.
7 M.H. Silbert & A.M. Pines, Victimization of Street Prostitutes, Victimology: An International Journal, 7: 122-133 (1982).
8 Te E.V.A. Center provided these statistics as part of the victim services questionnaire completed by members of the Victim
Services Subcommittee.
9 Credible statistics about the nature and extent of child sexual exploitation remain dimcult to gather. See generally Michelle
Stransky & David Finkhor, How many juveniles are involved in prostitution in the U.S.?, Crimes Against Children Research
Center (2008), available at http://www.unh.edu/ccrc/prostitution/Juvenile_Prostitution_factsheet.pdf (last visited Aug. 12,
2013).
10 Suzanne Piening and Teodore Cross, From Te Life to My Life: Sexually Exploited Children Reclaiming Teir Futures:
Sufolk County Massachusetts Response to Commercial Sexual Exploitation of Children, May 2012, at 4, available at http://www.
sunolkcac.org/assets/pdf/From_the_Life_to_My_Life_Sunolk_Countys_Response_to_CSEC_Executive_Summary_2012.pdf
(last visited Aug. 12, 2013).
Tramcking in Massachusetts 15
exploitation received services in Sunolk County between 2005 and 2012.
11
Of these children, 98% were girls,
and 65% of the girls were girls of color. Moreover, the majority were runaways and/or victims of child abuse.
12

Te CAC report also acknowledges that [b]oys and transgendered youth are also involved in commercial sexual
exploitation of children (CSEC), but less visible.
13
Tere is a lack of understanding of the nature and extent of
tramcking of men and boys. Furthermore, there is a dearth of information regarding children being tramcked in
other regions of the Commonwealth, and the identincation of child victims outside of Boston remains a challenge.
Tere is also a connection between homelessness and tramcking in Massachusetts, irrespective of age.
According to a 2005 report from the Massachusetts Department of Education (DOE), approximately 12,000
Massachusetts high school students are homeless with 5,000 unaccompanied or without a guardian.
14
Of these
youth, 47% experienced mental illness, 21% of homeless youth have substance abuse issues (compared to 2% of
housed youth), and 20% of youth are involved in the criminal justice system.
15
According to Steven Procopio,
stan member at Boston GLASS Surviving Our Struggle and subcommittee member, homeless men and boys are
more vulnerable to become commercially exploited. Procopio reports that sexually exploited youth are often
former runaways due to family violence, sexual abuse, and sexual identity issues. Many turn to the sex industry
as a survival mechanism to obtain food or shelter. Survivors report high rates of HIV and sexually transmitted
diseases, and they are often exploited sexually by men and/or women with economic means.
Labor Trafcking
Labor tramcking takes a variety of forms in Massachusetts, including forced labor, domestic servitude, or debt
bondage in workplaces such as restaurants, bars, nail salons, and factories. Troughout Massachusetts, many
individuals work in industries where they are increasingly vulnerable to exploitation, and this is compounded
by fact that many of these industries function in the underground economy. In 2011, Governor Deval Patrick
recognized the hazards of these jobs, noting that the underground economy exploits vulnerable workers and
deprives them of legal benents and protections.
16
While tramcking involves both U.S. citizen and foreign nationals, undocumented workers are often particularly
vulnerable to abuse due to their lack of immigration status and fear of deportation. According to a 2012
study by Te Immigrant Learning Center, large industries in Massachusetts thrive on of immigrant workers,
including accommodations and food services (10.5%), health care and social assistance (15.6%), manufacturing
(13.6%), and retail (9.6%).
17
Furthermore, the report states, immigrants are much more highly concentrated
11 Id.
12 Id.
13 Id. Te report recognizes the lack of information about the commercial sexual exploitation of men and boys, and the need
for further study about its prevalence. In 2012, Boston GLASS at Justice Resource Institute hired a new stan member, Steven
Procopio, to spearhead the initiative to develop greater services for men and boys who are victims of child sexual exploitation.
He is a member of the Victim Services Subcommittee and a contributor to this report.
14 Massachusetts Dept. of Education, A Snapshot of Homelessness in Massachusetts Public High Schools, July 2007, at 12,
available at www.doe.mass.edu/mv/05homelessreport.doc (last visited: Aug. 12, 2013).
15 Id.
16 Governor Deval Patrick in his Executive Order recognized the dangers of the underground economy and established a Joint
Enforcement Task Force on the Underground Economy and Employee Misclassincation to study and address the harms.
Exec. Order No. 499, available at http://www.mass.gov/governor/legislationeexecorder/executiveorder/executive-order-
no-499.html (last visited: Aug. 12, 2013).
17 Alan Clayton-Matthews & Paul Watanabe, Te Immigrant Learning Center, Massachusetts Immigrants by the Numbers, Second
Edition: Demographic Characteristics and Economic Footprint, May 2012, at 32, available at http://www.ilctr.org/wp-content/
uploads/2012/03/ILC-Mass-Immigrants-by-the-Numbers-2nd-ed.pdf (last visited: Aug. 12, 2013).
16 Tramcking in Massachusetts
in occupations that require little education such as building and grounds cleaning and maintenance (3.13%),
production (2.24%), health care support (1.74%), food preparation and serving (1.67%) and farming, nshing,
and forestry (1.43%) - industries where workers are more prone to abuse and exploitation.
18
While labor statistics are not available, Lutheran Social Services of New England, an organization that provides
case management and legal services to labor tramcking survivors, connrmed recent cases of labor tramcking in
Massachusetts. Cases included:
Workers living in restaurants and subject to poor working conditions and nonpayment of wages;
Domestic workers from Brazil, Bolivia, Kenya, Tanzania, and Rwanda, employed to provide housekeeping
or child care services;
Dancers in strip clubs throughout Massachusetts;
Employees of diplomats brought to the United States to work;
Women working in massage parlors or apartments providing sexual and massage services (mixed sex/labor
cases);
Factories employing workers using threats of deportation and poor working conditions;
Agricultural and seasonal workers;
H-2B workers employed by companies providing substandard working conditions and housing to
workers;
19
Women lured by promises to marry or of romance who are then coerced to work; and
Children coerced to beg for money on the street.
20
Workers in certain sectors were more prone to abuse. For example, temporary workers in Massachusetts have
been particularly vulnerable to exploitation. According to a 2011 report by the University of Massachusetts at
Amherst, more than 941 temporary agencies employed 65,720 workers each day, working in industries such as
construction, manufacturing, warehousing, and landscaping.
21
Mirna Montano, Massachusetts Coalition for
Occupational Safety and Health (MassCOSH) Worker Center organizer, reports We had so many frustrated
and upset workers coming to us for help with unpaid wages, injuries, illegal fees, and bad employers [knew]
that they could get away with leaving workers in the dark regarding almost everything: pay rate, who was covering
workers compensation insurance, [and] how much transportation would cost.
22
In July 2012, the Massachusetts
legislature passed a statute aimed at extending greater protection to temporary workers. However, little is yet
known about the legislations impact on exploitation and tramcking.
18 Id.
19 Tis classincation allows foreign workers to enter the U.S. temporarily to perform non-agricultural services or labor on a one-
time, seasonal, peak load, or intermittent basis.
20 Tese case examples were provided by Lutheran Social Services as part of the victim services questionnaire completed by
members of the Victim Services Subcommittee.
21 Harris Freeman & George Gonos, Temporary Work in Twenty-First Century Labor Markets: Flexibility With Fairness For
Te Low-Wage Temporary Workforce, Univ. of Mass. at Amherst, 2011, at 9-10, http://drupal.masscosh.org/nles/Te%20
Challenge%20of%20Temporary%20Work%20in%20Twenty-First%20Century%20Labor%20Markets%206-14-11_1.pdf
(last visited: Aug. 12, 2013).
22 Paul Drake, Massachusetts Legislature Passes Bill to Halt Temp Worker Exploitation, Talking Union, August 3, 2012, at 1,
available at http://talkingunion.wordpress.com/2012/08/03/massachusetts-legislature-passes-bill-to-halt-temp-worker-
exploitation/ (last visited: Aug. 12, 2013).
Tramcking in Massachusetts 17
Consequently, domestic workers often suner conditions rising to the level of human tramcking in Massachusetts.
According to Lydia Edwards, attorney at the Domestic Worker Law and Policy Clinic at the Brazilian Immigrant
Center, domestic workers are prone to exploitation because they are not protected like real workers, deserving of
bargaining rights, anti-discrimination protection, overtime or minimum wage.
23
As a result, both American born
and foreign national domestic workers are exploited. Attorney Edwards describes, as an example, the wide spread
[sic] exploitation of domestic workers in the Brazilian community as a result of older Brazilian women with
English skills, using helpers to clean 8-10 houses a day. Similarly, Natalicia Tracy, Executive Director of the
Brazilian Immigrant Center, described how she was subject to domestic servitude working as a domestic worker in
Brookline, Massachusetts, as a teenager.
24
At the age of 17, she began working as a nanny, working 80-90 hours
per week and making $25/week. Her employers restricted her communication with her family and made her
sleep outside in the cold. Tracy now participates in the Massachusetts Coalition for Domestic Workers, a coalition
dedicated to ensuring domestic workers are protected like all other Massachusetts employees.
23 Lydia Edwards, Te Help is on the Move in Massachusetts, Mass Dissent, March 2012, available at http://www.nlgmass.
org/2012/03/the-help-is-on-the-move-in-massachusetts/ (last visited: Aug. 12, 2013).
24 Sheila Bapat, Te Immigrant Learning Ctr., Refocusing Our Lens: Domestic Workers Rights Are a Neglected Feminist Issue,
January 20, 2013, available at http://www.braziliancenter.org/index.php?page=news&family=Domestic_Workers (last visited:
Aug. 12, 2013).
18 Tramcking in Massachusetts
Ricoxxixiarioxs ioi Eiiicrivii\ Aiiiissixc
Huxax Tiaiiicxixc ix Massacuusirrs
VICTIM SERVICES
Te Victim Services Subcommittee was responsible for the following:
25
(iii) identify and review the existing services and facilities that meet the needs of victims of human
tramcking including, but not limited to, health and mental health services, housing, education and job
training, legal services and victim compensation;
(vi) examine the costs associated with establishing a safe house pilot program for adult and child victims
of human tramcking and identify public and private funding sources that may be used to develop and
implement a safe house pilot program;
1. Suxxai\ oi Ricoxxixiarioxs
After performing an assessment of the current victim services available in Massachusetts and an analysis
of a safe house pilot project, the subcommittee recommends the following:
a. Develop capacity to serve survivors using existing survivor-led, comprehensive tramcking programs;
b. Conduct research and create tailored initiatives to better address the needs of men and LGBTQ youth;
c. Increase access to trauma-informed evidence-based therapeutic interventions;
d. Provide additional funding to support existing tramcking-specinc services programs;
e. Evaluate the overall benents to the Commonwealth of providing funding to tramcking programs;
f. Increase the availability of nnancial and other resources to identined tramcking victims; and
g. Establish a Massachusetts safe house/home pilot program.
:. Ixioiraxci oi Vicrix Siivicis
Victim services are critical to combating human tramcking and ensuring protection for victims. Human
tramcking is a crime that feeds on the poor and vulnerable. Without comprehensive and enective
services, victims are unable enectively exit tramcking and are at an extremely high risk of becoming
re-victimized. Human tramcking prosecutions are also heavily dependent on victim testimony, and
survivors often nnd it dimcult if not impossible to cooperate in investigations without adequate support
and resources. Existing services in the state are currently underfunded and overburdened.
It is expected that the demand for services will only continue to grow as the general public is educated
further. Terefore, it is essential that the Commonwealth act now to ensure that victims receive
protection and much needed services.
25 Troughout the report, the terms victim and survivor are used interchangeably. Under the current law, a human tramcking
victim is denned as a person who is subjected to the conduct prohibited under sections 50 or 51 of chapter 265. Mass.
Gix. Laws ch. 233, 20M (2013).
Recommendations - Victim Services 19
. Cuiiixr Piacricis
Te Task Force, working through the Victim Services subcommittee, identined what services are
currently available to human tramcking victims. Trough presentations by a diverse group of victim
service providers, the subcommittee reviewed the nature and extent of existing social service and
government programs serving human tramcking survivors in the Commonwealth.
Te subcommittee found that programs generally fell into one of three categories: (1) comprehensive
programs targeted to tramcking survivors; (2) social services programs that may be accessible to
tramcking survivors for specinc services, such as housing, mental health, advocacy, and medical services;
and (3) governmental services that provide court advocacy, and/or public benents to tramcking survivors.
In all categories, the subcommittee noted a chronic lack of funding to meet the emergent needs of
tramcking survivors. Existing resources (e.g. rape crisis centers and domestic violence agencies) are not
necessarily appropriate or equipped to respond enectively to victims of tramcking. In addition, they are
serving their identined populations with already limited resources and unable to fully meet the needs of
tramcking victims. Te subcommittee found that the availability of services varied greatly depending on
geographic area, with a majority of programs concentrated in the Greater Boston area.
a. Cuaiacriiisrics oi Eiiicrivi Vicrix Siivicis Piociaxxixc
Te subcommittee noted that successful tramcking programs nationwide exhibit certain hallmark
characteristics.
26
In particular, the subcommittee identined the need for comprehensive, holistic,
survivor-led services with long-term support over a period of years. Additionally, the subcommittee
found that such services must be individualized to take into account the survivors unique
circumstances and particular vulnerabilities. By developing a service plan, shaped by the survivors
goals and talents, services are more likely to be successful. While a number of tramcking-specinc
organizations exist in Massachusetts, the chronic lack of funding prevents agencies from building
enective safety nets for survivors.
Tere are a myriad programs across the Commonwealth that provide one service or a range of
services that may be accessed by a survivor, such as housing, counseling, or medical services. As an
example, rape crisis centers throughout Massachusetts provide advocacy, mental health, and other
services to victims of sexual assault. Similarly, community health centers throughout Massachusetts
provide high quality medical and mental health services to a wide population, including victims of
sex and labor tramcking.
26 Section 20M of chapter 233 dennes a human tramcking victims program as any refuge, shelter, omce, safe house,
institution center established for the purpose of onering assistance to human tramcking victims through crisis intervention,
medical, legal or support counseling. Mass. Gix. Laws ch. 233, 20M (2013). Te statute further delineates appropriate
services for tramcked youth to include: Governmental or non-governmental organizations or entities providing the
assessment, planning and care provided through congregate care facilities, whether publicly or privately funded, emergency
residential assessment services, family/community-based child foster care, including provisions for food, clothing, medical
care, counseling and appropriate crisis intervention services, provided by organizations or entities that have expertise in
providing services to persons who are human tramcking victims; and that services are provided in accordance with such
regulations that the department of children and families may adopt, or the policies of such department. Id.
20 Recommendations - Victim Services
Te subcommittee noted that while these programs provide a lifeline to important services, survivors
may have dimculty accessing them for a variety of reasons, including stigma and shame.
27
Many
advocates note that the lack of understanding among traditional social service providers may
cause survivors to be labeled as problematic, delinquents, or noncompliant with services. Also,
such programs have existing mandates and limited funding, which often limits them from serving
tramcking survivors.
n. Exisrixc Tiaiiicxixc Siiciiic Piociaxs ix Massacuusirrs
Tere are a small number of highly enective programs providing comprehensive, targeted services to
victims of human tramcking. Such programs generally focus on a particular tramcking population
(e.g., minors, adults, sex, or labor) and provide a wide range of services geared towards their target
population. Provided in this Report, is a synopsis of current enective service programs reviewed by
the subcommittee. Te subcommittee acknowledges this is not a complete list of all tramcking-
specinc programs in Massachusetts. Rather, these are examples of enective programs throughout
various locations in the Commonwealth.
1). Sex Trafficking
Specinc to sex tramcking, there are a number of agencies providing peer advocacy, legal, and/
or social services to victims of sex tramcking. Te following existing programs are examples of
enective comprehensive programs serving sex tramcking survivors:
Gaining Independence for Tomorrow (GIFT) is a community-based program at Roxbury
Youthworks that provides intensive case management services to assist DCF-involved youth to exit
out of commercial sexual exploitation.
Te Josephine Butler Education Vision and Activism Center (E.V.A. Center and formerly
Kims Project) is a Boston-based program with the goal of creating a sustainable comprehensive
exit program for adult women wanting out of the sex trade. Te E.V.A. Center is a survivor-led
program that oners long-term support, services, information and resources, understanding that each
woman has her own experiences and needs that vary tremendously.
Lutheran Social Services (LSS) provides legal and social services to noncitizen victims of labor
and sex tramcking throughout Massachusetts. Trough case management, advocacy, and legal
representation, LSS seeks to remove the barriers faced by survivors - adults and minors - when
leaving exploitation
My Life My Choice (MLMC), a program of Justice Resource Institute, is a survivor-led, Boston-
based program onering a continuum of services, including prevention education, training, and
intervention services for commercial sexually exploited girls. Survivor support mentor girls who
have been victims of commercial sexual exploitation or are at high risk of exploitation.
Te Support to End Exploitation Now (SEEN) is a ground-breaking partnership operated by the
Childrens Advocacy Center of Sunolk County that unites more than 35 public and private agencies
who partner to coordinate services to commercially exploited youth in order to apprehend adult
onenders and best connect exploited youth to needed services.
27 As Rachel Lloyd, Executive Director of Girls Educational and Mentoring Services (GEMS), a survivor-led program in New
York, writes, Te opportunity to have a space where [survivors] could relax and be themselves without fear of judgment
or shame was a critical factor for the young womens engagement and participation in programming. Rachel Lloyd, From
Victim to Survivor, From Survivor to Leader: Te Importance of Leadership Programming and Opportunities for Commercially
Sexually Exploited and Trafcked Young Women & Girls, at 8, available at http://www.gems-girls.org/WhitePaper.pdf (last
visited Aug. 12, 2013).
Surviving Our Struggle at Boston GLASS is a survivor mentor program for men, boys, and LGBTQ
youth. Boston GLASS, a Boston-based program of Justice Resource Institute, is one of the few
programs in Massachusetts that have any capacity to serve commercially exploited young men,
trans-identined boys, and LGBTQ youth.
2.) Labor Trafficking
Te following programs provide services targeted to victims of human tramcking and/or labor
exploitation.
Lutheran Social Services - see above
Metrowest Worker Center is a worker-led program that is available throughout the Commonwealth.
Tis initiative identines exploited workers and tramcking survivors to support them to receive a just
wage and support to redress labor exploitation.
Massachusetts Coalition of Occupational Safety and Health (MassCOSH) organizes and trains
workers to protect themselves against abusive work conditions. Such centers also support collective
action by workers and provide a space for workers to express and address their common grievances.
For example, MassCOSH and other worker centers throughout Massachusetts recently provided
extensive support and advocacy for temporary workers, subject to nonpayment of wages and
exploitation throughout the Commonwealth.
Also, some immigrant advocacy organizations have developed programs to support specinc types
of workers who are particularly prone to labor tramcking. For example, the Domestic Worker
Law and Policy Clinic at the Brazilian Immigrant Center provides free legal representation for
domestic workers prone to exploitation and abuse.
3.) Government Programs and Benefits for Trafficking Survivors
Tere are a variety of government benents potentially available to survivors of human tramcking.
For example, eligible survivors may access public benents provided by the Massachusetts Division
of Transitional Assistance, victim compensation from the Massachusetts Omce of the Attorney
General, and housing from the Department of Housing and Community Development and
other local housing authorities.
However, social service providers reported that governmental benents are limited and not
all survivors qualify. Furthermore, under reporting negatively impacts service eligibility. In
addition, other realities inherent to victims of human tramcking, such as a survivors criminal
history, lack of housing history, and/or immigration status, may make it dimcult or impossible
for survivors to qualify for government services.
c. Issuis Facii n\ Exisrixc Siivici Pioviiiis
While performing a review of current programs that provide services to human tramcking victims
and survivors, the subcommittee recognized various challenges involved in providing services to
survivors in Massachusetts. Provided below is a list of these challenges:
Tere are very few agencies that oner targeted services to victims of sex and labor tramcking, which
provide peer advocacy, legal, and/or social services.

Existing programs, while very enective, are limited by funding constraints. Consequently, existing
programs generally only have the capacity to focus on the most immediate needs, such as housing,
food, and basic necessities.
Grant funding is not a stable source of funding, running in yearly increments and often including
match or other programmatic or nscal requirements.
As an example, the SEEN Coalition, which coordinates victim services to minor victims of
sexual exploitation in Sunolk County, is largely dependent on one grant funded full-time case
coordinator. Te position is funded year-to-year, and has no stable source of funding.
28
Existing programs are not enectively staned to meet the needs of survivors. For example:
Te E.V.A. Center, the primary program serving adult female victims of sex tramcking in the
Greater Boston area, is staned by one full- time employee
Surviving Our Struggle at Boston GLASS hired a stan person in 2012 to develop mentorship
services targeted to boys, young men and transgendered identined individuals. But services
remain very limited due to nscal constraints.
Lutheran Social Services has only one attorney for tramcking and one part-time case manager.
Existing services lack the ability to provide a wide array or services necessary for survivors to exit
sexual exploitation.
Location of existing services makes it dimcult to respond enectively to referrals outside of Eastern
Massachusetts.
Tere is a gap in services available to men, boys and LGBTQ individuals.
i. Cuiiixr Piacricis ioi Vicrix Housixc
Tere are few housing services for human tramcking victims in Massachusetts. When responding
to a call or an event that involves the identincation of a tramcking victim, law enforcement is often
left with no choice but to house victims in jail in order to provide shelter for the night either in a cell
or a cot in the police station. Similarly, victim service providers will call a domestic violence shelter
to try and secure a bed. Tere are no dedicated beds in these shelters for tramcking victims. When
providers are unable to nnd a bed at a domestic abuse shelter, they are often forced to dip into their
general fund to put victims up in a hotel. Amirah is a privately funded safe house that hopes to open
in the fall. Bakhita Safe House run by the Catholic Sisters in the Boston area has 3 beds but they are
currently at capacity.
Nonetheless, there are some enective national models for providing safe houses or homes. Te
subcommittee reviewed the following model programs and evaluated them for their applicability
her in Massachusetts: (1) Breaking Free (Minnesota); (2) Children of the Night (California); (3)
GEMS (New York); (4) Te Poppy Project (London); and (5) SAGE Project (California). Many of
these programs have been in existence for over ten years and have built a record of success in service
provision.
28 Suzanne Piening & Teodore Cross, From Te Life to My Life: Sexually Exploited Children Reclaiming Teir Futures: Sufolk
County Massachusetts Response to Commercial Sexual Exploitation of Children, May 2012, at 12, available at http://www.
sunolkcac.org/assets/pdf/From_the_Life_to_My_Life_Sunolk_Countys_Response_to_CSEC_June_2012.pdf (last visited
Aug. 12, 2013).
Common trends emerged from each program:
Onsite services/walk-in centers that provide a comprehensive continuum of care;
Survivor-led programming;
Long-term support over a period of years;
Availability of both transitional and long-term options;
Multiple funding streams; and
Connection to diversion, re-entry and immigration detention programs.
. Ricoxxixiarioxs
In light of the above, the Task Force agrees with the subcommittees nndings that there is an imminent need
to provide access to and funding for survivor-led, comprehensive tramcking programs in Massachusetts while
expanding other available resources to ensure that survivors are able to exit out of exploitation. In order to achieve
these overarching goals, the Task Force recommends the following:
a. Diviioi Caiacir\ ro Siivi Suivivois Usixc Exisrixc Suivivoi-Lii, Coxiiiuixsivi
Tiaiiicxixc Piociaxs
As detailed above, there exists a profound need for more comprehensive programs and for sumcient
funding to ensure success. Te subcommittee suggests that the following are characteristics of an
enective program:
Comprehensive Trauma Informed Evidence Based Programming. Tis approach is necessary
and enective to ensure survivors successfully exit tramcking without re-victimization. Programs
must meet a survivors need for emergency services (e.g., basic needs, emergency shelter, safety
planning), transitional services (e.g., transitional housing, skills building, legal services), and long-
term services (e.g., family reunincation, job placement, leadership building). Services must be
consistent and continuous over the long-term addressing the reality that survivors needs change
over time. Comprehensive services for children must also include child-specinc therapeutic services
that are trauma-informed and evidence-based. Childhood trauma left untreated will have a
tremendous, lifelong impact on health and quality of life. Research shows dramatic links between
childhood trauma and risky behaviors, psychological issues, serious illness and the leading causes of
death.
29
Evidence-based treatments and other practices with strong empirical support can reduce
the impacts of trauma.
30

Survivor-Led Programs: Sex Trafcking. Peer-led advocacy and leadership is a well-recognized
component of successful programs and is commonplace in servicing other victim populations (e.g,
domestic violence, sexual assault, and homicide). Peer leadership is essential given that survivors
often lack trust with traditional social service providers and law enforcement. Advocates from
survivor-led programs attest to the success of this model, emphasizing that survivor mentors or
advocates are able to develop stronger bonds with program participants and are viewed as more
credible supporters. Given their shared experiences, survivors are more willing to trust survivor
29 V.J. Felitti & R.F. Anda, Te Adverse Childhood Experience (ACE) Study, Ctrs. for Disease Control and Prevention, 1997,
available at http://www.cdc.gov/ace/ (last visited Aug. 12, 2013).
30 Kimberly Shipman, K., & Heather Taussig, H. Mental health treatment of child abuse and neglect: Te promise of evidence-based
practice. Pediatric Clinics of N. America, 2009, at 417-428.
advocates that understand their unique challenges in exiting out of exploitation.
31
Such support is
particularly critical to the success of survivors in exiting out of commercial sexual exploitation.
Worker-Led Programs: Labor Trafcking. Similarly, in the labor context, worker-led programs
are recognized as enective in organizing workers, promoting collective change, and advocating
for workers rights. Workers who are victims of labor exploitation and abuse often fear stepping
forward because of the risk of retaliation, deportation or termination. Worker-led initiatives are
successful in building trust within communities in order to educate workers about their rights and
to encourage workers to speak openly about any abuse.
32
Specifc Programs
Sex Trafcking: Te subcommittee recognized that there needs to be at least one program
with sumcient stan to provide services to sex tramcking survivors and ensure that a coherent,
comprehensive package of services is available. Also, a successful exit program will oner a
continuum of services and support, as well as a skilled stan of survivor peers that are viewed as
credible supporters. Te program needs to include shelter and housing options but should not
include housing alone.
Labor Trafcking: Te subcommittee noted that there needs to be at least one program funded
sumciently to provide comprehensive social and legal services geared towards workers employing
a worker-led or worker-informed model. Advocates would work with survivors to create an
individualized service plan, guided by the worker. Furthermore, workers would have the
opportunity to not only assume roles as advocates but also take leadership roles.
Marginalized or Distinct Populations: Te subcommittee recognized that certain populations of
survivors have unique needs, requiring a tailored approach to service. For example, minor victims
of commercial sexual exploitation are often placed in the custody of DCF, and programs for
children must take into account the unique needs of minors and DCF requirements. Also, in the
context of men and boys, any approach must address the challenges in exiting out of exploitation,
such as lack of shelter options and prejudice or stigma.
Legal Services: Te subcommittee recognized the need for legal services attorneys with developed
expertise in human tramcking to serve the diverse legal needs of survivors of human tramcking,,
including in the areas of immigration, civil restitution, family law, public benents, housing and
criminal law. Many survivors have complex civil and criminal legal needs and cannot anord
private counsel, however currently there are no public legal services that specialize in assisting
survivors. Absent legal representation, they may nnd it dimcult to qualify for important benents
and protections. Accordingly, the development of resources that would provide for targeted legal
services to assist survivors would nll an identined gap, Ideally, attorneys would meet with survivors
on-site at a survivor-led program, and work closely with survivor-advocates to ensure that the
survivors legal needs are met in a non-judgmental, supportive manner.
31 Supra note 27 at 7. Rachel Lloyd notes that, CSEC [commercial sexual exploitation of children] survivors are accustomed
to be being judged and stigmatized by their families, communities, institutions, traditional service providers, and society
at large and for this reason, a truly non-judgmental environment in the nrst critical step in supporting them in their
transitions. In addition, Lloyd emphasized that, [s]eeing their peers in leadership positions creates a healthy form of peer-
pressure and provides support to young women.
32 For example, Colectiva de Mujeres (Womens Collective), was created in 2001 in San Francisco by primarily undocumented
immigrant domestic workers and seeks to achieve economic and social justice for Latina immigrant women. Similarly,
Domestic Workers United (DWU) is a membership-based organization of nannies, housecleaners, and elder caregivers in
New York, who are organized to support workers and promote social change.
Use of Existing Infrastructure and Programs: Massachusetts has a number of cutting-edge anti-
tramcking programs that are currently providing services, and that provide a strong infrastructure to
further develop innovative, enective programming for tramcking survivors. Tese include My Life
My Choice (Boston); Te E.V.A. Center (); Boston GLASS (); Lutheran Social Services (Worcester);
Roxbury Youthworks; and the GIFT Program (). Targeted resources would help to develop
geographic capacity; expand populations served; and proliferate tested models for helping survivors
exit the sex trade and build skills to succeed.
n. Coxiucr Risiaicu axi Ciiari Taiioiii Ixiriarivis ro Birrii Aiiiiss rui Niiis oi
Mix axi LGBTQ Youru
Te subcommittee identined a lack of knowledge/research about particular victim populations, such
as boys, LGBTQ individuals, and undocumented youth. Greater resources should be dedicated
to understanding the unique needs of these populations and to develop appropriate, successful
initiatives to meet their specinc needs. In particular, regarding LGBTQ and non-LGBTQ men,
the subcommittee recommends increased training to law enforcement and non-governmental
agencies about the unique stigma and challenges. Additionally, distinct screening and intake
systems should be developed to help workers identify commercially exploited men and boys and to
elicit information from boys to address shame and stigma. When appropriate, agencies and service
providers that focus on girls should be encouraged to expand their mandate to include boys and to
hire/train male workers. In general, further research should be conducted regarding this population
on advantages and disadvantages of gender specinc or co-ed programs.
c. Ixciiasi Acciss ro Tiauxa-Ixioixii Eviiixci-Basii Tuiiaiiuric Ixriivixrioxs
Te subcommittee recommends enorts to ensure survivors of all ages are able to access trauma
informed evidence supported therapeutic interventions that are client focused and tailored to meet
individual needs. Linkage agreements should be forged between agencies who currently work
with tramcked individuals and agencies onering trauma informed evidence based therapeutic
interventions. Examples of such arrangements can be found with the SEEN Coalition as well within
the current statewide Childrens Advocacy Center service delivery system.
Te Commonwealth should support statewide enorts to increase availability of clinicians who can
provide such therapeutic services. An example of a successful initiative exists at Baystate Medical
Center with its Substance Abuse and Mental Health Services Administrations (SAMHSA) funded
Learning Collaborative as well as the federally funded Massachusetts Child Trauma Project in which
DCF, in partnership with LUK Inc., Justice Resource Institute, Boston Medical Center's Child
Witness to Violence Project, and the University of Massachusetts Medical School, collaborate to
integrate trauma-informed and trauma-focused practice into child protection service delivery.
i. Pioviii Aiiirioxai Fuxiixc ro Suiioir Exisrixc Tiaiiicxixc-Siiciiic Piociaxs
Te Human Tramcking Trust Fund was established as part of the statute to provide funding for
victim services and other human tramcking specinc initiatives.
33
However, the processes associated
with asset seizure and forfeiture can take up to three years. Tere is an immediate need for additional
victim services funding.
33 Mass. Gix. Laws ch. 10 66A (2013).
Te Task Force recommends other ways in which money can be added to that fund.
State Funding: Te subcommittee recommends the expenditure of funds specincally targeted at
supporting programming for human tramcking survivors. Te legislature dedicate additional
resources. Currently, there is no dedicated state funding.
Federal Funding: Te subcommittee also recommends that the Attorney Generals Omce and the
Massachusetts Omce for Victims Assistance (MOVA) support attempts by local social services
agencies to pursue federal funding, including grants through the Omce of Victims of Crime.
34
Private Funding: In addition, the Commonwealth should pursue public-private partnerships as a
means to generate private funding for human tramcking organizations.
Potential Sources of Funding: Te subcommittee noted the potential for additional revenue from the
following sources:
Asset Forfeiture: Te subcommittee recommends that Commonwealth increase training on
asset forfeiture to ensure that law enforcement seize assets pursuant to the mandate in the
human tramcking legislation. Tis will ensure that funding is available in the Victims of
Human Tramcking Fund (HT Fund) for non-governmental agencies working with tramcking
survivors. To date, no funding has been allocated to the HT Fund.
Revenue Trough Other State-Funded Sources: Te subcommittee has identined a number of
potential avenues to generate revenue, including:
Court Fines: Courts should be encouraged to impose nnes on defendants charged with
onenses under G.L. c. 272 8 and 53A. Additionally, 45% of the nnes should be places
in the HT fund to support victim services with another 45% going to law enforcement
and the last 10% going to the courts. Te legislature should amend G.L. c. 10 66A and
G.L. c. 265 54 to direct nnes imposed on buyers of commercial sex to the HT Fund
to support victim services. Tis amendment may also provide incentives to hold buyers
accountable.
i. Evaiuari Bixiiirs ro Srari Goviixxixr oi Pioviiixc Fuxiixc ro Tiaiiicxixc
Piociaxs
Cost/Beneft Analysis: Te subcommittee noted that several states, including Minnesota and Oregon,
have conducted studies on the costs and benents to state government if human tramcking survivors
receive appropriate services.
35
Such studies have found that investments in prevention and support
services to tramcking survivors ultimately saves the government money in a variety of sectors,
including public health, criminal justice, and homeless initiatives. Te subcommittee suggests a
future study be commissioned to evaluate the costs and benents of investing in victim services. Tis
study could then be used to support enorts to secure greater private and public funding. Moreover,
such a study would likely encourage multidisciplinary collaboration.
34 Recently, the Massachusetts Attorney Generals Omce applied for the FY 2013 Enhanced Collaborative Model to Combat
Human Tramcking Grant through the Bureau of Justice Assistance and the Omce for Victims of Crime. Te grant would
provide our omce and victim services providers with $1,000,000 over two years for investigations and victim services.
35 Lauren Martin, et al, Early Intervention to Avoid Sex Trading and Trafcking of Minnesotas Female Youth: A Beneft-Cost Analysis,
2012, available at http://www.miwrc.org/system/uploaded_nles/0000/0147/Benent-Cost-Study_Full_Report_9-4-2012.
pdf; What is Human Tramcking?, Oregonians Against Human Tramcking, available at http://www.mcso.us/public/human_
tramcking/what_is.html (last visited Aug. 12, 2013).
i. Ixciiasi Siivici Avaiianiiir\ ro Iiixriiiii Tiaiiicxixc Vicrixs
Te Task Force makes several recommendations to increase benents available to tramcking survivors,
and therefore decrease the overall nnancial burden on the Commonwealth and non-governmental
organizations.
Provide Access to State Public Benefts for Confrmed Trafcking Survivors: Establish a system of state
certincation for public benents for victims of human tramcking. For example, in New York, a
human tramcking survivor who is connrmed by the state government may be eligible for certain
state public benents. Any model should improve resources available to survivors, especially at
the emergency stage, while allowing the Commonwealth to collect data about the prevalence of
tramcking.
Ensure Certain Access to Existing Federal Protections: Te subcommittee made the following
recommendations related to undocumented survivors:
Recommendations for Undocumented Victims: Pursuant to the Victims of Tramcking and
Violence Protection Act of 2000, certain undocumented victims of human tramcking are
eligible for special immigration statuses known as U nonimmigrant status and T nonimmigrant
status (i.e., U visas and T visas).
36
Te following enorts should be made to ensure that
undocumented survivors receive adequate protection and support:
Training: State and local law enforcement agencies should receive training regarding
immigration benents available to victims of human tramcking, including U nonimmigrant
status, T nonimmigrant status, and Continued Presence. Training should be provided by
reputable legal services agencies with experience working with human tramcking victims.
Such training should also address the unique barriers that immigrant victims face when
reporting crimes and how to conduct outreach to ethnic communities in a culturally
appropriate manner.
Protocol for Certincation: All state and local law enforcement agencies should issue
protocols within their respective omces establishing a policy for issuance of T and U
visa certincation. Te establishment of a protocol will standardize the process of issuing
certincation within agencies and ensure that victims receive well-deserved protection in
an emcient and just manner. Please see Appendix B for more information about the law
enforcement certincation process.
Improving Access to Victim Compensation for Human Trafcking Crimes: Victims of violent crime
are eligible for compensation and assistance pursuant to G.L. c. 258C. In order to ensure that
claims for Victim Compensation and Assistance made by victims of human tramcking are reviewed
emciently, the Commonwealth should encourage the sharing of necessary information by federal,
state, and local law enforcement authorities investigating state and federal human tramcking
crimes with the Omce of the Attorney General Victim Compensation and Assistance Division.
Te development of training and coordination of internal policies to encourage the exchange
of information is critical. Tis will help to ensure that victims of human tramcking receive
36 T nonimmigrant status is designed for victims of human tramcking whose presence in the United States is related to
human tramcking and who are willing to cooperate with law enforcement in the investigation of the crime. Similarly,
U nonimmigrant status is available to victims of a wider variety of violent crimes, including human tramcking,
who have sunered substantial mental or physical abuse as a result of the crime and are helpful in the investigation
or prosecution of the crime. For more information, please see: http://www.uscis.gov/portal/site/uscis/menuitem.
eb1d4c2a3e5b9ac89243c6a7543f6d1a/?vgnextoid=02ed3e4d77d73210VgnVCM100000082ca60aRCRD&vgnextchannel=
02ed3e4d77d73210VgnVCM100000082ca60aRCRD (last visited Aug. 12, 2013).
compensation for injuries related to the crime in an appropriate, timely manner.
Improving Access to Public Housing for Human Trafcking Survivors: Te subcommittee found that
human tramcking survivors are often denied access to subsidized and public housing due to a
criminal history related to their victimization. For example, survivors with arrests for prostitution
or drug-related crimes that occurred during their victimization may be barred from public
housing and unable to obtain long-term anordable housing. Currently, state regulations require
that local housing authorities allow an applicant demonstrate mitigating circumstances prior
to rejecting an application.
37
Mitigating circumstances may include evidence of rehabilitation,
length of time since criminal conduct occurred, and a variety of other factors. Te subcommittee
recommends that such regulations be modined to explicitly take into account human tramcking
victimization. In particular, the subcommittee recommends that Section 5.08(2) of Title 760 of
the Code of Massachusetts Regulations should be amended such that mitigating circumstances
will include human tramcking victimization as denned under sections 50 or 51 of chapter 265 of
the Massachusetts General Laws.
38
In addition, the subcommittee recommends that funding be
allocated to train housing authorities about human tramcking and how to implement this new
mitigating circumstances standard.
Vacating Convictions to Improve Access to Benefts: Te subcommittee recognizes that often human
tramcking victims are unable to obtain employment, housing, and other nnancial supports due
to a criminal history resulting from their victimization. For example, a human tramcking victim
may be denied employment due to a history of arrests for prostitution, preventing the individual
from obtaining gainful employment. As a result, such individuals are often dependent on non-
governmental agencies for nnancial support and vulnerable to re-victimization. In an enort to
address this issue, the Task Force recommends legislation to allow human tramcking victims the
ability to vacate tramcking-related convictions if he or she can demonstrate to the court that he or
she is a victim of human tramcking. By passing such legislation, victims will receive increased access
to benents, thus limiting the nnancial burden on underfunded governmental and non-governmental
agencies. Tis measure would also increase the self-sumciency and the long-term success of victims
to exit exploitation by empowering them to nnd employment.
39

Additional Recommendations to Increase Housing Options for Survivors. Te following actions
would increase housing options for survivors and help to meet the short-term, urgent need for
housing: (1) increase access to existing state housing programs; (2) secure greater supportive
housing vouchers for human tramcking victims through U.S. Department of Housing and Urban
Development (HUD); (3) provide funding from existing domestic violence shelters to earmark a
number of beds for tramcking survivors in multiple shelters; (3) identify appropriate shelter spaces
and programs appropriate for vulnerable populations, such as male or LGBTQ victims; and (4)
secure space, specincally segregated space in traditional homeless shelters for male victims of labor
tramcking.
37 See 760 C.M.R. 5.08(2) (requiring a housing authority to consider certain mitigating circumstances in adjudicating
housing applications).
38 Mass. Gix. Laws ch. 233, 20M (2011). Under Massachusetts law, a human tramcking victim is a person who is
subjected to the conduct prohibited under sections 50 or 51 of chapter 265 of the Massachusetts General Laws.
39 Please see Appendix C for a legislative brief prepared by the Polaris Project that describes the impact of vacating convictions
and examples of relevant legislation in other states; Polaris Project, Human Trafcking Legislative Issue Brief: Vacating
Convictions (2012), available at http://www.polarisproject.org/storage/documents/policy_documents/Issue_Briefs/vacating_
convictions_issue_brief_september_2012.pdf (last visited Aug. 12, 2013).
c. Massacuusirrs Saii Housi/Hoxi Piior Piociax
Te subcommittee denned a safe house as a separate and secure housing space for victims of
commercial sexual exploitation and/or labor tramcking who seek to avoid further victimization.
Te safe house should be staned with survivors and/or specially trained individuals with experience
working with vulnerable populations who can oner survivors individualized exiting services and
access to survivor-led programming.
Te Task Force recommends a safe house pilot program with the following essential guiding
principles:
Te program pilot should be implemented in the Greater Boston area, to build upon established
infrastructures. Te nature of the program pilot will be determined by the needs of the specinc
population being served (such as women, men, boys, girls, LGBTQ and/or labor tramcking
victims);
Te program should include comprehensive exiting services, survivor-led programming and both
short and long-term housing accommodations;
Funding and in-kind services will be sought through the City of Boston, District Attorneys Omces,
Department of Probation, Department of Children and Families, Department of Public Health and
private partners and others; and
A working group should be established to make decisions regarding age, population, and location.
Te goal of comprehensive exiting services is to provide a continuum of care for victims exiting
exploitation and to build self-sumciency by providing support services. Trough providing a
continuum of care, the number of barriers present for victims to exit will decrease dramatically.
Services should include and not be limited to:
Onsite services whenever possible that are easily accessible from housing component;
Walk/in drop-in center with 24 hour access;
Case management and safety planning;
Individual/group therapy;
Education and job/life skills;
Assistance with chemical dependency and relapse prevention;
Health care (with transportation to local clinics);
Assistance with nling for benents (e.g., health care, social security, housing, etc.);
Legal assistance (immigration, court advocacy, domestic relations);
Spiritual work with local faith based community; and
Worker-Led model/worker-led mediation similar to workers center model for victims of labor
tramcking.
40
Survivor-led programming should be an integral part of any housing pilot. Survivor-designed
and survivor-led programming supports trust with participants and a more non-judgmental
setting, allowing for more appropriate safety planning and individualized services. Survivor-led
programming also increases the likelihood that survivors will engage in services in the short and
long-term. In addition to providing unique support, survivors have an increased ability to identity
and assess safety and risk as well as provide a sense of community and model success. Survivor-leaders
may play roles in a variety of contexts, including educational groups, alumni networks, mentoring
40 For examples of model programs, please refer to Appendix A.
groups, relapse prevention groups, youth outreach and development and leadership programs.
41
Te housing component should be provided in conjunction with comprehensive exiting services and
survivor-led programming. Accommodations should include emergency and long-term housing that
is a safe and secure place for victims of human tramcking. Additionally, accommodations should also
include the following elements:
Accessible to walk/drop-in center;
Programming/groups should be held on site;
Transitional housing that is short-term and emergency, staned 24/7; and
Longer term accommodations should also be available.
42
Diverse housing options may speak to the dinerent needs and requirements for specinc populations
including women/men, boys/girls, LGBTQ and labor tramcking. Safety concerns should be
addressed by having various housing locations in order to ensure the location is not easily identined
by the general public.
Te comprehensive exiting services in conjunction with the housing pilot should be positioned in
a location where it would be possible to maximize established infrastructures and existing services.
Te city of Boston would be an ideal location as Boston has shown a commitment through policy
and funding to the issue of human tramcking. Existing services in Boston can also serve as multi-
disciplinary partners. Other general considerations for Boston being the chosen location would
include: (1) close proximity to culturally diverse services and language capabilities; (2) proximity
to public transportation; and (3) existence of a wide range of services including job training and
schools.
Regarding funding, multiple funding streams would be required to increase the sustainability of the
program. Funding streams may be determined by population and would address the various needs
of the program. While the exact cost has not been identined, it would be a recommendation of the
Victim Services subcommittee that a cost-benent analysis be done regarding current practices and
how those practices could be further maximized.
43
In addition to state and local sources, funding can be leveraged through the following programs:
Diversion Programs: Many programs across the county receive funding through the District
Attorneys Omce for Diversion Programs. Te program works in collaboration with the Diversion
Program to ensure that victims are anorded the opportunity to connect with comprehensive services
as well as avoiding the collateral consequences that result from criminal charges. Tis collaboration
increases the amount of referrals coming into the program.
44
Sex Buyer Education Programs: A percentage of fees collected from sex buyer education programs
could be dedicated to direct victim services. It would also assist in decreasing recidivism.
45
Asset Forfeiture: Asset forfeiture is an additional funding stream. While the Task Force recognizes
that these funds may not be sumcient to fully sustain a program, it could supplement existing
programs and services.
41 Id.
42 Id.
43 For a detailed list of public and private funding options and partners, refer to Appendix A.
44 For examples of model programs, please refer to Appendix A.
45 Supra note 40.
DEMAND REDUCTION
Te Demand Reduction Subcommittee was responsible for the following:
(v) examine ways to curtail the demand side of tramcking such as self-sustaining nrst onender diversion
programs;
After performing an assessment of the current demand for sex tramcking in Massachusetts and enective
demand reduction tactics, Task Force recommends the following:
a. Explore the creation of a statewide technical assistance unit;
b. Develop statewide capacity to enable a nrst onender program option for all sex-buying arrestees; and
c. Integrate demand reduction in all anti-tramcking initiatives.
:. Ixioiraxci oi Dixaxi Riiucriox
Demand for commercial sex (prostitution) is the driving force behind sex tramcking. Tramckers and
pimps operate on the basic economic principles of supply and demand. If there are no buyers, there is
no business. Tose who purchase sex (the majority of which are male) drive the illegal sex trade fuel sex
tramcking making it the fastest growing criminal industry by nlling the pockets of pimps and tramckers.
Targeting demand is a critical element to a comprehensive approach to combating sex tramcking and
should target each element of the economic model: supporting those who have been exploited, and
holding the perpetrators including the buyers accountable.
To combat demand, it is essential to understand that sex tramcking and prostitution are inextricably
linked. Te vast majority of individuals tramcked for sex (mostly women and girls) are sold through the
commercial sex industry. Additionally, a minor in the sex trade, whether under a pimps control or not,
nts the federal and the Massachusetts dennition of being tramcked. Pimp-controlled prostitution often
nts the federal and other states dennition of severe forms of tramcking, as pimps often operate through
force, fraud, or coercion. It is impossible to target the demand for tramcked sex exclusively as buyers
do not distinguish between someone who nts the federal dennition of tramcked and someone who
does not. Targeting the demand for sex tramcking is accomplished only by targeting the demand for
commercial sex.
Evidence suggests that combating demand reduces sex tramcking and other forms of prostitution.
Tere is a growing recognition, especially among law enforcement, that tackling demand is a strategic,
preventative approach to sex tramcking. Arresting prostituted women and tramcked girls is inemcient at
best, and leads to re-victimization at worst.
. Cuiiixr Piacricis
A U.S. Department of Justice-funded landscape analysis has identined over 900 U.S. communities
that have or currently are addressing demand. Tere are twelve demand reduction tactics commonly
employed in these arrests. Tese include auto seizure, community service, letters home to families,
license suspension, public shaming, education programs in schools, public awareness campaigns and sex
buyer education programs, commonly referred to as Johns schools and described in detail below. Te
32 Recommendations - Demand Reduction
implementation of most of these tactics depends on buyers nrst being arrested through reverse stings,
stings geared toward the John instead of the prostituted individual. Tough anecdotal evidence suggests
these tactics are enective in reducing demand, only reverse stings and sex buyer education programs have
been formally evaluated; the results of those studies showing a deterrent enect on buyers.
Historically, prostitution arrests have been geared toward the sellers while the buyers often walk
free. For every 10 arrests for prostitution, only 1 involves the buyer.
46
However, there are a signincant
number of jurisdictions throughout the US that are focusing on arresting the buyers instead. While 32
Massachusetts towns have conducted reverse stings, the towns of Boston, Brockton, Lawrence, Lynn,
Haverhill, New Bedford, and Worcester target sex buyers most consistently. Nationally, Polk County
Florida, Cook County IL, Nashville TN, and Los Angeles are the most systematic and committed to
arresting Johns. Recently, there was a large scale, highly publicized set of reverse stings of 104 buyers on
Long Island NY, followed by a high-pronle shaming enort by the District Attorney. Over the past year,
the commercial sex market has exploded in North Dakota as a result of the Bakken oil boom, and several
small towns have newly- adopted reverse stings in their enorts to control the problem.
Under Sherin Tom Darts leadership, the Cook County (IL) Sherins Omce has organized six National
Day of Johns Arrests, an ongoing campaign launched two years ago to hold buyers accountable for the
role they play in perpetuating an exploitative, often violent industry. Te campaign now encompasses
36 law enforcement agencies, including the Federal Bureau of Investigations (FBI), from 17 states, and
including cities such as Boston, Las Vegas, and Los Angeles. Participating jurisdictions simultaneously
conduct sting activities on the streets, in hotels and brothels and via the Internet to arrest potential
Johns. Combined, the six operations have resulted in 1,473 arrests of sex buyers.
Another tactic that is gaining popularity throughout the U.S. is education programs aimed at arrested
Johns. Te programs can be structured as a sentencing option and combined with other criminal
sanctions, or as a diversion program, resulting in dismissed charges. Tese programs are appealing
as a revenue-neutral or even revenue-producing tactic that is evidence-based, and carries few risks or
opportunity costs. Tere are roughly 50 sex buyer education programs around the U.S., including the
Community Approach to Reduce Demand (C.A.R.D) Program in Worcester, Massachusetts.
Tese programs function by receiving referrals through the court process of arrested onenders. However,
onenders are not eligible if they have purchased sex from a minor. Although the programs are onered
typically only to nrst onenders, there is no reason why repeat onenders could not go through the
program multiple times as part of sentencing. Typically, cases are dismissed and the education is used
as a deferment if the men volunteer to attend the program (session range from 1 to 10 classes), pay a fee
(ranges from $0 - $1500), and meet other conditions (community service, etc.).
Te curriculum elements include health consequences, impact on communities, impact on the victims
(e.g., many programs have survivors speak), victimization risks, impact on sex buyers, legal consequences
and the realities of prostitution. Other topics can include sex tramcking, pimping, sexual addiction,
importance of healthy relationships and impact on families.
In Massachusetts, the C.A.R.D. Program is a Worcester based, court-ordered program coordinated by
Spectrum Health, in collaboration with the Worcester Department of Health & Human Services, police
46 Alexander, Priscilla. Prostitution: A Difcult Issue for Feminists. in Six Woix: Writings by Women in the Sex Industry,
(Frederique Delacoste & Priscilla Alexander eds., 1987). Pittsburgh, PA: Cleis Press
Recommendations - Demand Reduction 33
department, district court, and district attorney. Te program is currently onered on a quarterly basis for
four hours on a Saturday morning at the Worcester police department. Tere is a $200 program fee and
in 2012, 18 men completed the program. T he curriculum is based on evidenced-based models adapted
for the Worcester community. Topics include legal consequences, health risks, impact on families and
community, correlation to intimate partner violence, and realities of the sex industry. Additionally,
information and referrals are provided to participants as needed. Upon request, completion certincates
are provided to all participants at the conclusion of the class. Designated court personnel are notined of
all program completions. Participants are surveyed following class completion and the results are used to
improve future programming.
. Ricoxxixiarioxs
a. Exiioii rui Ciiariox oi a Srariwiii Ticuxicai Assisraxci Uxir
In reviewing the subcommittees analysis on demand reduction, the Task Forces nrst
recommendation is to explore the creation of a statewide technical assistance unit to lend support
to municipal police departments targeting demand, particularly through sex buyer-focused reverse
stings, and to consult with Massachusetts State Police or other law enforcement agencies identined
by the Administration for the most enective approach.
Law enforcement cites two main reasons for not engaging in reverse stings: a lack of female decoys
and a lack of technical expertise. To address the lack of female decoys for in person stings, the
subcommittee recommend departments work together to deploy female omcers in other jurisdictions
by exchanging stan. Tis will help ensure that decoys do not become recognizable. Tere are a
number of ways in which these decoys can be used. Tere is the traditional street-level operation
in which the decoy elicits oners to buy sex. Tese decoys can also be used to replace brothel stan
while continuing the illusion of business as usual. Alternatively, the decoy could be deployed in
conjunction with an internet sting.
Regarding technical expertise required to operate a reverse sting operation, a training team of law
enforcement who have experience with the method could provide training to organizations across
the state. Specincally to online stings, the Attorney Generals Omce has a cyber-crime lab that has
provided extensive training to law enforcement across the nation on how to use the internet as an
enective law enforcement and investigative tool. Tese are incredibly enective as the crime of buying
sex is prevalent over the internet.
In order to address funding challenges associated with these tactics, like overtime costs, deployment
decisions and grant funds could be used. Additionally, the limited resources (including technical
equipment) departments have to contend with could be improved through an exchange program.
A technical assistance unit would also help to address the need to share female resources across
departments.
47
Data collection would be facilitated through this unit, as would the identincation of
best practices.
Finally, the Task Force recommends that police departments designate one stan person to identify
female personnel willing to serve as a resource for reverse stings and create a database to be shared
with all MA police jurisdictions.
47 As an example, the Task Force suggests the use of the Pennsylvania State Police model as a guide for this type of collaboration.
n. Diviioi Srariwiii Caiacir\ ro Exanii a Fiisr Oiiixiii Piociax Oiriox ioi Aii
Six-Bu\ixc Aiiisriis
Te Task Force recommends the Commonwealth build upon the existing sex buyer education
program and support the creation of similar, regionally-based programs. Additionally, it may be
possible to refer onenders from other jurisdictions to the Worcester C.A.R.D. program, as they are
not at capacity and have a scalable program. Additional costs in adding participants to the C.A.R.D.
program would be marginal, as the class can currently seat 50 and the number of attendants depends
on arrests and sentencing. Recently, Westborough District Court started sending arrestees to the
Worcester program. Te Task Force recognizes that jurisdictions may have dinerent ideas on how to
implement a sex buyer program, and that jurisdictions do not need to have the same protocols, fees,
etc. for buyers to attend the program.
1. Working Group
In the short term, the Task Force recommends the education of as many Johns as possible.
Education should include information about the links between sex tramcking and prostitution
and the harm their actions innict on those they are buying, the buyers themselves, their families,
and their communities. To facilitate this endeavor, the Subcommittee recommends a working
group be convened to explore establishing sex buyer education programs in other Massachusetts
jurisdictions where law enforcement is already conducting reverse sting operations. Tis
group could also draft program guidelines or standards that would provide a minimum set of
curriculum expectations, including survivor participation, legal consequences, health risks,
impact on families and community, and realities of the sex industry. In order to onset costs,
these guidelines should also denne a nscal model that creates revenue for survivor services, as
well as to partners involved in the education program operations. Although the Subcommittee
does not recommend that the programs be either a sentencing option or a diversion option, the
committee does agree that if a diversion option is onered to buyers, diversion option must also be
onered to the sellers.
48
Recommended guidelines should also provide physical and mental health
resources to be onered to attendees. Moreover, to be enective, the program should be onered in
other languages or translators should be made available.
2. Fines and Fees
Te Task Force recommends that nnes from sex buyer arrest be split between victim services,
law enforcement, and the courts. Te subcommittee recommends 45% of the nnes go to the
HT fund, 45% to the criminal justice entities involved in the reverse stings, and 10% go to the
courts. Tis model has worked with the First Onender Prostitution Program in San Francisco.
Teir program generated about $3.1 million over the course of 10 years and gave about $1
million each to the San Francisco District Attorney, the San Francisco Police Department, and
SAGE.
48 Te Standing Against Global Exploitation (SAGE) project (www.sagesf.org) in San Francisco provides a national model for
nrst time seller diversion programs.
Recommendations - Demand Reduction 35
c. Ixriciari Dixaxi Riiucriox ix Aii Axri-Tiaiiicxixc Ixiriarivis
Tere are a number of ways that demand reduction tactics can be integrated into other anti-
tramcking initiatives. When designing and implementing training for law enforcement, it is
important to ensure that every police omcer, prosecutor, and judge understands the role demand for
commercial sex plays in fueling sex tramcking. Te Task Force recommends training on innovative
practices to stem demand, such as education on the impact of the crime and reverse stings.
Additionally, demand reduction can be addressed in trainings with law enforcement to ensure cases
are investigate, pursued, prosecuted, and not merely dismissed.
In educating students, the goal is to prevent them from becoming buyers in the nrst place. Demand
reduction education should be linked with related school health and sex curricula in age and
language appropriate ways.
In terms of public awareness, the subcommittee recommends communicating the realities and harm
involved in prostitution to try and address the myth of the victimless crime. Te subcommittee
recommends that the role buyers play in sex tramcking and the new, higher nnes are highlighted.
Regarding data collection, the subcommittee recommends establishing baselines by which to measure
success in the future and to be able to identify displacement of purchasing sex. Tis would include
tracking not only buyer arrests, but also how many buyers are charged the minimum $1,000 nne as
well as obtaining accurate numbers year to year about the prevalence of men arrested for buying as
compared to women arrested for selling.
Finally, in terms of the demand for tramcked labor, the new labor group that is also recommended
in this report (see Recommendations - Labor Tramcking) should examine clean supply chain
legislation.
49
Te labor group should also examine government contracting and industry best
practices.

49 See e.g. Cai. Civ. Coii 1714.43 (2013); Cai Riv. x Tax Coii 19547.5 (2013).
DATA COLLECTION AND INFORMATION SHARING
Te Data Collection and Information Sharing Subcommittee was responsible for the following:
(i) coordinate the collection and sharing of human tramcking data among government agencies;
provided, however, that such data collection shall respect the privacy of victims of human tramcking;
coordinate strategies and make recommendations for law enforcement to share information for the
purposes of detecting individuals and groups engaged in human tramcking;
(ii) review and recommend policies and procedures to enable state government to work with non-
governmental organizations and other elements of civil society to prevent human tramcking and to
protect and provide assistance to victims of tramcking;
After performing an assessment of the current data collection practices in Massachusetts and nationally,
the subcommittee recommends the following:
a. Establish a human tramcking victim dennition for data collection purposes;
b. Deploy the screening tools and guidelines developed to support victim identincation;
c. Pilot a coordinated data collection response across the state; and
d. Use the information from the data collection pilot to create a state wide data collection tool and
protocol.
:. Ixioiraxci oi Dara Coiiicriox axi Ixioixariox Suaiixc
Te importance of collecting, analyzing, and sharing data is two-fold: it aids in identifying and serving
victims of human tramcking, and provides law enforcement with a tool to further identify and prosecute
tramckers. Unless victims of human tramcking are accurately identined, they cannot receive appropriate
services. Consequently, the identincation of victims directly and indirectly leads to the identincation
of tramcking perpetrators or enterprises and human tramcking situations. Without making this
correlation, it is dimcult to hold tramckers accountable and prevent further victimization.
At the outset, tools used to collect data assist in the identincation of victims. Tis is the initial and
often the most critical step in pulling victims out of the life. Additionally, data collection provides law
enforcement and service providers with the ability to better understand who is being tramcked, how
they are engaged and kept as victims, and how they received help. Quantifying the problem is critical
if service providers are to secure funds to help victims. Understanding how victims move through
the system allows for the evaluation of how to emciently use resources. Data analysis also enables law
enforcement to more enectively identify, investigate, arrest, and prosecute perpetrators. For example,
it provides critical support in identifying best practices as they relate to preventing and addressing
tramcking.
. Cuiiixr Dara Coiiicriox Piacricis
Human tramcking identincation and response is largely uncoordinated throughout the state. Law
enforcement, social service and victim service providers traditionally rely on victims to self-identify and
there is not a current process to screen for human tramcking victims. Practitioners and agencies, such as
Recommendations - Data Collection 37
educators, public health omcials, medical practitioners, and community and faith-based organizations
that presently come into contact with victims of human tramcking, do not have the training or screening
tools to help identify human tramcking victims. As a result, human tramcking is likely under-identined
in Massachusetts.
Currently in Massachusetts, the Boston Police Department, Massachusetts State Police and Sunolk
District Attorneys Omce (through the Childrens Advocacy Center) all have systems to collect
information on human tramcking victims and minor victims of commercial sexual exploitation,
including at risk individuals. Te data collection systems are not integrated, and information about
potential victims or suspects is shared informally and generally on a case-by-case basis. Te Boston
Police Department, Massachusetts State police and other local law enforcement agencies in the state
capture information about human tramcking incidents, suspects and victims in traditional records
management systems. However, there are generally no specinc nags or designations within these systems
to identify human tramcking incidents or arrests.
Information gathering in the state is less routine. For example, regulatory agencies such as the Division
of Professional Licensure do not regularly track human tramcking activity, but do collect the information
in other nelds such as unprofessional conduct. State government agencies like DCF and the
Department of Probation may collect information on human tramcking in individual client records, but
there are no specinc designations for this information within their regular client information systems.
In the service provider arena, data collection faces similar challenges. While some providers collect
information on both current human tramcking victims and potential victims, others that service victims
with sensitive legal issues (e.g., immigration) or are connected with government entities, face restrictions
on collecting information that will be shared outside the particular provider.
Federally in Massachusetts, data on human tramcking is collected by the Federal Bureau of Investigation,
Department of Homeland Security and the U.S. Attorneys Omce. Tere is one major caveat, the
data collected is not routinely shared across federal agencies and is not shared with state and local law
enforcement except in specinc situations.
50

Indeed, even when government agencies or service providers report basic information about the number
of human tramcking victims identined or served, these statistics are generally collected using agency-
specinc dennitions of human tramcking. Disagreement about the dennition of human tramcking has
undermined enorts to collect, share and aggregate data on human tramcking for either operational or
statistical purposes in agencies throughout the commonwealth. Additionally, identifying information
about victims typically cannot be shared, making it impossible to determine if victims are counted in
multiple data collection systems.
Oruii Moiiis oi Huxax Tiaiiicxixc Dara coiiicriox axi ixioixariox suaiixc
Nationally, there are few good models for statewide information sharing and data collection. Te
federal government supports three human tramcking data collection enorts:
50 Te U.S. Attorney Generals Omce in Massachusetts leads a quarterly intelligence sharing meeting where federal partners
including FBI, U.S. Immigration and Customs Enforcement (ICE) and U.S. Dept. of Labor (DOL), along with the
Massachusetts State Police, the Boston Police Department and District Attorneys may share information about ongoing
investigations. However, this information is not recorded in any centralized database or shared through any digital medium.
38 Recommendations - Data Collection
Human Tramcking Reporting System (HTRS) a web-based data entry system that collects
investigation level information, including detailed information about suspects and victims for all
investigations opened by law enforcement partners working in federally funded human tramcking
Task Forces. HTRS is funded by the Bureau of Justice Assistance and managed by Northeastern
University and Urban Institute.
Tramcking Information Management System (TIMS) the Omce of Victims of Crime (OVC)
counterpart to HTRS. Access-based data collection system that collects information about victims
that are served under the OVC grants for the victim service provider partners in the federally
funded human tramcking Task Forces. Funded by OVC and managed by Caliber ICF.
National Human Tramcking Resource Center (HTRC) Database that collects information
about the characteristics of cases that are reported to the national hotline. Funded by the U.S.
Department of Health and Human Services and managed by the Polaris Project.
On the state level, data collection varies greatly.
51
Arguably no state has a centralized data collection
system or registry that tracks human tramcking across multiple state agencies according to a common
dennition. Te systems that do exist largely rely on data from law enforcement, which tends to be
incomplete because not all human tramcking victims are recognized by law enforcement. Moreover, the
lack of unity in one human tramcking dennition poses challenges to sharing and aggregating data for
those state law enforcement, government and non-government entities that to collect data.
. Ricoxxixiarioxs
a. Esraniisu a Huxax Tiaiiicxixc Vicrix Diiixiriox ioi Dara Coiiicriox Puiiosis
Te subcommittee recognized the need for a uniform and simple dennition of human tramcking
victim to guide identincation and collaboration. Te dennition is not to replace the legal dennition,
rather it is to guide the entry and sharing of information about human tramcking across government
and non-government agencies (see discussion of dennition in Appendix G).
n. Diiio\ a Sciiixixc Tooi axi Guiiiiixis Diviioiii ro Suiioir Vicrix
Iiixriiicariox
Te second recommendation focuses on employee screening tools and protocols to guide the victim
identincation process (Appendix D-F). Te Task Force recommends practitioners throughout the
Commonwealth be trained to use a set of screening questions in making referrals about potential
victimization. Tese screening questions should be used as a guide, rather than a tool, to assist the
practitioner in a conversation with potential victims about their experiences to identify indicators
of human tramcking. Moreover, the Task Force recommends a process to regularly screen all
individuals arrested for prostitution onenses for potential human tramcking victimization. In
addition to the detailed screening questions, the subcommittee recommends a few questions be
51 For example: Te Texas Attorney Generals Omce uses HTRS for its federally funded task force cases and voluntarily for non-
funded cases; New York collects information on tramcking victims through the New York State Division of Criminal Justice;
the California Attorney General collects statistics on human tramcking cases identined across the nine regional task forces
that report information quarterly through the California Emergency Management Agency, and the California Department
of Justice collects information on human tramcking arrests and case dispositions through their criminal justice information
system; and Florida Department of Law Enforcement began a process to develop a statewide human tramcking information
sharing and centralized database in 2009, but the enort was halted due to state funding cuts.
added to a broad range of regular intake forms to help alert dinerent types of practitioners that they
should be screening for human tramcking victimization.
52

In the process of screening for victimization, it is the Task Forces recommendation that the screener
only refer an adult victim to government agency if the victim or potential victim consents that
information about them be shared. Both adult and minor victims should be advised of their rights
as victims during the screening process. Te protocol should guide users to be as honest as possible
about the possible consequences of a victims participation in the screening process. For example,
if they are referred to law enforcement what are the potential outcomes? It may be important
to notify a person that DCF may need to be notined if there are concerns about the safety of a
persons children. Screeners should identify but not overstate possible risks. As a result of the law,
exploitation of minors must be reported to DCF. A minors consent in this report is not required.
Terefore, screeners should be encouraged to be honest with victims about this required reporting.
Importantly, ensuring the safety of the adult victim or potential victim should be at the forefront of
the screening process. Te screener will not be able to guarantee the safety of adults once they leave
the situation where they are screened. Terefore, it is important for the screener to make a safety
plan with people before they leave regardless of referral. Tus, the screening process should include
the development of a one page if you need help handout with information about where to get
various types of assistance and support.
Additionally, there are immigration and cultural issues that need to be addressed in order to best
screen for and serve victims from other countries. Te subcommittee expressed concern that the
protocol oner guidance about how to assess the language and literacy issues of a person before
starting the screening. If interpreters are needed it is critical to ensure that the potential victim feels
comfortable with the interpreter and that the interpreter is not connected to the tramcker or the
tramcking situation. Tese issues become even more important when we consider the duality of
interrogation and screening. Te subcommittee recommends that these concerns be addressed in the
labor group proposed in this report
Moving forward, the Task Force recommends that over the next year, the screening tool and protocol
be disseminated through the training plan. Te subcommittee also recommends that a clear protocol
be drafted that identines when the tool is to be used to screen for tramcking and when police
interrogation should be used.
A broad range of service providers and government omcials need to be trained in screening
potential victims and use of protocols to guide response to victims and incidents. Case coordinators
and multi-disciplinary team members need more extensive training on adult and minor human
tramcking identincation and response.
Because the tool and the protocols are already created, the cost associated with the dissemination of
the tool would be absorbed into training and the website recommendation in this report.
52 For example, these questions may include: Is anyone making you do something you do not want to do? Has there been a
time when you felt you could not leave your job/pressured to work Have you ever exchanged sex for money or something
of value or Is anyone threatening you?) If the answer to these basic screening questions was yes the practitioner screen
further using the recommended screening questions.
c. Piior a Cooiiixarii Dara Coiiicriox Risioxsi Acioss rui Srari
Enective data collection serves many purposes. Achieving each purpose may require dinerent
types of data be collected. Some of the goals of data collection include: (1) statistics on number of
human tramcking victims and incidents to measure the scope and characteristics of the problem in
Massachusetts; (2) information for intelligence sharing and case development to improving police
operations; and (3) information for coordinated case management to enectuate improving victim
services.
Te foundation of the data collection and information sharing database is that it engages the right
people and tracks the right information. Consequently, the nrst critical step in any enective data
collection process is to fully understand the roles of the stakeholders and ensure that each is involved
in the process. Terefore, the Task Force recommends a piloted, county based multi-disciplinary
human tramcking response approach process by which information about potential human
tramcking victims could be coordinated. Tis would ensure that the state has a clear understanding
about what data should be collected and how it should be done before an investment is made in
an expensive data collection software program. Te pilot would be revisited at 12 months, and an
action plan for the creation of a state wide data collection system should then be created.
Absent a centralized system to collect and share information about human tramcking incidents, data
that is collected about human tramcking or potential human tramcking situations by governmental
and non-governmental agencies is not collected according to a uniform dennition and generally
cannot be shared across agencies. Te subcommittee recommends the development of human
tramcking data and information sharing system in the Commonwealth.
Next Steps
Over the next year, we recommend that Multidisciplinary Teams (MDT) in each county be
brought together to draft their own model protocols for collecting data and addressing tramcking.
Tere are a number of organizations in those counties who could be included in the process:
Attorney General Omce
District Attorney
Massachusetts Chiefs of Police and Major City Chiefs Associations
Department of Children and Families
Professionals trained to assess and serve sexually exploited children
Social service providers who serve adult and child human tramcking victims
Legal advocates who serve foreign national human tramcking victims
Victim service provider agencies including Information Technology (IT) personnel from victim
service provider agencies
Other agencies such as the Committee for Public Counsel Services, Child Advocacy Centers, and
the Department of Youth Services
Every county has dinerent strengths and challenges in addressing tramcking. Because of this, we
recommend that counties work together to draft specinc protocols that renect these dinerences.
Tese protocols should address work now and privacy issues. Protocols should include information
on how to share data across jurisdictions, when to interrogate and when to screen for tramcking, how
to work with outside partners, and what data should be screened for and how it should be shared.
In some parts of the state (e.g. Sunolk County) there are partnerships between law enforcement and
victim service that could serve as models for information sharing and coordination. For example,
the Support to End Exploitation Now (SEEN) Coalition in Sunolk County has a protocol for
identifying and responding to minor sex tramcking and commercial sexual exploitation of children
(CSEC) built around the child abuse/neglect reporting system.
53
Partners in the county could build
upon the model of the SEEN protocol and response strategy to better identify, respond and share
information about adult sex tramcking victims and labor tramcking victims. Unfortunately, these
types of partnerships do not exist statewide. As a result, in most parts of the state it is necessary to
build the capacity of law enforcement, victim service providers and other relevant agencies to work
collaboratively in order to facilitate information sharing and coordinated response processes to
improve the identincation and assistance of human tramcking victims.
In order to support this initiative, the subcommittee recommends that a state wide group convene
made up of representatives from each of the agencies above and chaired by the Massachusetts District
Attorneys Association or another organization identined by the Administration to help guide the
work of these groups and provide additional technical support when needed. A neutral facilitator for
this group would be extremely helpful to the process in ensuring that all voices around the table are
heard and understood.
Additionally, the Task Force recommends that each District Attorneys Omce (DAO) identify a
case coordinator for these victims and that each case coordinator is connected to both state and
federal partners, victim service providers, and has positive working relationships with all partners.
Te subcommittee recognized that it may be necessary for the case coordinator to vet referrals
before being sent to the multidisciplinary team, but recognized that vetting comes with challenges
that necessitate a high level of skill for each case coordinator. For both adults and minors a MDT
approach requires multiple law enforcement and victim service providers to work together as a
team. Te multidisciplinary team would need to agree on what the goals are for cases generally
and for individual cases. While some models for the case coordinator and multi-disciplinary team
exist in Massachusetts, most agencies do not have experience working collaboratively on human
tramcking. As a result, the subcommittee recommends a model with associated referral systems and
data collection and information sharing be piloted across counties, with evaluation and reassessment
before being established statewide.
Te data collected from the counties can be used across the state to address crime trends.
Additionally, the data can be collected state wide to get a better understanding of tramcking in
Massachusetts. Tese county based MDTs will be able to identify how to best work together. Tis
learning will then be used to draft a statewide system and protocol.
53 Mass Gix. Laws. c. 119, 51A (2013).
i. Usi rui Ixioixariox iiox rui Dara Coiiicriox Pio;icr ro Ciiari a Srari Wiii
Dara Coiiicriox Tooi axi Piorocoi
In the longer term, the Task Force recommends the development of a centralized information
sharing system and database. Such system would collect data about potential victims, suspects and
incidents in an operationally useful manner to both law enforcement and victim service providers,
while protecting privacy and maintaining conndentiality where appropriate. Tere are models for
data collection and information sharing in Massachusetts and elsewhere for other crimes/events
that should be consulted. For example, the subcommittee examined the data system developed for
the City of Boston Partnership Advancing Communities Together program (PACT) this project
includes a centralized data system where service providers would have access to see some of the
information on at risk kids and their families from law enforcement, though the service providers
do not currently report their case management information or client information into the PACT
system. Te subcommittee identined a series of principles to help guide the development of such a
system. Te data system could collect information similar to that specined in Appendix I, which lists
data neld identined in other human tramcking data collection systems.
EDUCATION AND TRAINING
Te Education and Training Subcommittee was responsible for the following:
(iv) and oner recommendations for programs and educational and training opportunities for
law enforcement and social service providers including, but not limited to, methods used to identify
human tramcking victims including preliminary interviewing and questioning techniques, methods of
protecting the special needs of women and child human tramcking victims, developments in state and
federal laws regarding human tramcking and methods to increase enective collaboration between state
and local agencies, law enforcement, social service providers and non-governmental organizations;
(viii) recommend strategy and relevant methodologies for training providers in health and human
services in the recognition of signs and circumstances indicating that an individual is the victim of
human tramcking and the appropriate steps to report the individual to the appropriate law enforcement
personnel or agencies;
(ix) recommend ways to develop and promulgate educational materials and health curricula that may be
used by school administrators and educators to identify human tramcking victims and the appropriate
actions to be undertaken when such victims are identined and to educate school omcials as to the scope
and magnitude of human tramcking in the nation and the commonwealth including, but not limited
to, how to prevent it and developing a parent guide and teacher training material on internet safety and
methods of preventing the exploitation of minors over the internet;
After evaluating human tramcking training and strategies nationwide, the Task Force recommends the
following:
a. Make a basic level of human tramcking training available to all health care, law enforcement, nrst
responder, and education providers;
b. Support a fundamental shift in understanding, identincation, response to victims, and systemic
change through the trainings;
b. Use consistent language renecting the lives of survivors;
d. Include screening and data collection protocols in the training; and
e. Design trainings to be as enective as possible through the use of a tiered approach, face to face
delivery, multidisciplinary method for at least a portion of the training, and well qualined trainers.
:. Ixioiraxci oi Eiucariox axi Tiaixixc
Currently, schools, parents, students, law enforcement, nrst responders, and social services providers are
not consistently aware of what tramcking is, how to identify a victim, and what to do when the victim
is identined. It is critical to the successful implementation of the current law, that these parties have the
knowledge and the skills to prevent tramcking when they can, and to address the situation and help the
victim when they cannot.
Additionally, consistent messaging across the state is necessary. All providers need to understand best
practices regarding addressing the crime and its victims.
44 Recommendations - Education and Training
. Cuiiixr Piacricis
Signincant strides have been made in the last decade regarding training in exploitation and sex
tramcking. However, there are no human tramcking requirements for schools, law enforcement, nrst
responders, or medical providers, and there is no systematic training plan for these entities. Rather,
trainings are onered as a result of grant funding or specinc requests. Often, these trainings are aimed at
awareness raising rather than technical support.
Many school personnel remain unaware of commercial sexual exploitation and domestic tramcking
amongst students. Tere is a commonly held misconception that this doesnt happen in my school,
especially in smaller communities. Additionally, many school personnel do not realize they are
mandated reporters for human tramcking under the current law.
Some state law enforcement agencies are very well informed about tramcking and how to best address
the issues. On the other hand, other law enforcement personnel do not know tramcking is a problem,
what tramcking looks like, or how to address its attendant issues. It is necessary to address this gap in
expertise in order to be consistent across the state in tramcking law enforcement and victim services.
For nrst responders and social services providers, trainings are mostly provided on an as needed basis.
Here, too, there is inconsistent messaging about how to address tramcking victims. Te greatest
volume of training is focused on domestic minor sex tramcking, with a greater emphasis on girls than
on boys and transgender youth. However, some signincant training on adult sex tramcking and labor is
available.
54
. Ricoxxixiarioxs
For schools, parents, students, law enforcement, nrst responders, and social services providers, the Task
Force recommends the following:
All schools, parents, teachers, law enforcement, social service providers, and nrst responders receive some
form of tramcking education. Not everyone will need the same amount of training. For some, the
training should raise awareness and address common misconceptions. For others, technical assistance
on how to address the issue is required. In order to use resources most enectively, the Task Force
54 According to a 2008 study done by the Massachusetts General Hospital (MGH) regarding human tramcking awareness
amongst health care providers, research found that general awareness is low except when there is an organic in-house
champion.
Currently in Massachusetts there are various collaborations, publications and presentations being done regarding human
tramcking and health services. A special collaboration between Northeastern university School Health Institute and the
Massachusetts Dept. of Public Health Human tramcking and Training Subcommittee under the guidance of the Director
of School Health Services, produced 6 modules that address a variety of issues concerning human tramcking for school
personnel, especially school nurses. Te site has had over 300 hits this school year.
Modules (45 minutes to an hour) include: Overview of Human Tramcking; Law Enforcement; Mandated Reporter
Requirements and Resources for Victims of HT; Health Care for Victims of HT; Exploitation of Male Children and
Adolescents; Guidelines for School Nurses.
MGHs Division of Global Health & Human Rights, Department of Emergency Medicine, is collaborating with the
Massachusetts Medical Society to produce a training manual for physicians on human tramcking. MGHs Division has a
Human Tramcking Initiative that has designed and deployed a training program on human tramcking for health care workers.
To date, the MGH group has provided more than 40 trainings/grand rounds/invited lectures on human tramcking in the US
and in the Caribbean.
Recommendations - Education and Training 45
recommends a tiered approach to the trainings. Due to the complex nature of the crimes and the pre-
existing misconceptions, face-to face training is recommended.
55
Language must be consistent statewide across all trainings and renect the realities of the survivors lives.
For example, recent awareness trainings sought to paint a picture of a badly beaten and shackled woman
to create an image of a sex tramcking survivor. While this may be an accurate representation of some
experiences, it does not encompass the full breadth and complexity sex industry survivor experiences.
While phrases such as modern day slavery are useful for painting a national picture for communities, it
is not useful in the training context. Trainings and screenings should use phrases and words such as:
inherent harm of the commercial sexual industry
commercially sexually exploited
complicated lives
power/control
Trainings and screenings should avoid phrases and words that may sensationalize or minimize, such as:
slavery
sex work
any derogatory term for a person in the sex industry
forced prostitution
All trainings should be nuanced and reference an understanding of the societal factors that drive
tramcking such as greed, money and power, and that allow or cosign tramcking such as economic in-
equality, racism and sexism. Te Task Force recommends that trainings onered that are both single
discipline and multidisciplinary for they are both necessary and powerful to the trainees.
56
In all
trainings, it is useful to cultivate an in house champion. In addition, it is ideal to develop ongoing
mechanisms for cross collaboration post-training. Lastly, all trainings should incorporate screening and
data collection protocol and victim services recommendations.
For all trainings, it is recommended that trainers have experience as tramcking victim service providers.
Training should be survivor-led or survivor-informed, and integrate voices and expertise of survivors in
the service delivery model. Trainers should be in the neld more than three years and have the ability to
make connections and synthesize best practices in the neld nationally. Finally, trainers should be able to
integrate clinical framework, practical knowledge, and understanding of MDT response.
A. SCHOOLS
In order to implement trainings within schools and among school personnel, individual superintendent
and school board buy-in is critical. School nurses are particularly important individuals to target when
training stan on human tramcking.
55 Te Health Belief Model posits that in order for behavior change to occur, one must shift attitudes, knowledge, and skills
(rather than only knowledge which is targeted through awareness training). Te importance of behavior change has been
proven through HIV prevention and other public health campaigns. N.K. Janz & M.H. Becker. Te Health Belief Model:
A Decade Later. Health Education & Behavior. (1 January 1984). 11 (1): 147; I.M. Rosenstock ET AL. Social Learning
Teory and the Health Belief Model. Health Education & Behavior. (1 January 1988). 15 (2): 175183.
56 Multidisciplinary trainings are trainings that have a multidisciplinary team as trainers and as attendees. Tis form of training
is useful in that it providers all members of the team a common language, knowledge, and skill set to work from. An example
of multidisciplinary tramcking training in Massachusetts is the SEEN 2 day MDT training. Day one provides attendees with
an introduction to CSEC and how to address their needs. Day two teams participants in multidisciplinary groups and asks
them to discuss cases, dispel myths about various roles and mandates, and build relationships.
marginalized people
recovery
exit
resilience
promiscuous
throwaway youth
resistant
rescue
Teir open-door policies, opportunities to observe students across grade levels, and experience in child-
abuse reporting, place school nurses in a unique position to identify potential victims.
Based on the research the subcommittee conducted, the Task Force recommends:
1. A tiered training program for all school personnel;
2. Information sharing amongst students, parents and young people in General Educational
Development (GED) and alternative education programs; and
3. A computer lab policy that incorporates internet safety.
Scuooi Ricoxxixiariox 1: Tiiiii Tiaixixc Piociax
An in-person training conducted by members of an MDT is the most enective approach in ensuring
stan understand the issue and how to react appropriately. It is recommended that members of law
enforcement, DCF, and medical and mental health professionals lead trainings.
Tier One Personnel and Curriculum
Personnel includes:
Teachers/Teachers Aids;
Coaches/athletic department personnel;
Janitors;
Cafeteria workers;
Basic curriculum would be provided during stan meetings or as part of back-to-school trainings.
At the end of the training, participants will be able to describe:
Human tramcking in terms of the Massachusetts law;
Te fundamentals of human tramcking including the types of tactics tramckers use to lure and
keep victims;
An overview of the crimes surrounding tramcking;
Teir responsibility if they suspect someone is being tramcked; and
Te dynamics of tramcking and signs of potential victimization.
Training should be mandated for all existing and new stan, and materials regarding tramcking
should be included in new-hire packets distributed to personnel.
Tier Two Personnel and Curriculum
Personnel include:
School nurses;
Guidance counselors;
Health Ed teachers;
School Administrators; and
School police/resource omcers/attendance omcers.
Advanced curriculum would use outside training and have a goal of cultivating an in-house
champion. In addition to the abilities above, at the end of the advanced curriculum, stan will be
able to explain:
Parent volunteers;
Bus drivers;
Substitute teachers; and
Afterschool program workers
Additional aspects of the tramcking law include the Safe Harbor provision and privileged
communications;
Te steps schools can take to prevent human tramcking;
Victims need in the short, medium, and long term for recovery;
Details about their obligations are as mandated reporters;
Teir role in the school as it relates to tramcking; and
Resources available to stan in onering support to victims.
Scuooi Ricoxxixiariox :: Tiaixixc ioi Sruiixrs axi Paiixrs
To enectively educate students and parents on human tramcking and exploitation, the Task Force
recommends that elementary, high school, and college age students be educated on tramcking in
an age appropriate manner. Teachers should incorporate curriculum into lessons that address anti-
bullying, online safety, domestic violence and healthy relationships.
In addition, information about human tramcking should be provided to adolescents who are not in
schools, but instead are engaged in GED programs or other alternative educational programs.
Schools can send home brochures and packets to parents at the beginning of the school year to
increase their awareness of human tramcking. Tese brochures and packets should be provided in
multiple languages. After school programs should also provide information to parents. Te provided
information should include a dennition of human tramcking, signs and ways to identify tramcking,
what parents can do if they suspect that their child or someone they know is involved in tramcking,
and ways to report concerns to the proper authorities.
Te Task Force recommends the NetSmartz program from the National Center for Missing and
Exploited Children (NCMEC) and My Life My Choice (MLMC) as two organizations to assist
schools in this training.
57
Scuooi Ricoxxixiariox : Ixcoiioiari ixriixir saiir\
Te subcommittee recommends internet safety is incorporated into the technology use policy that
all students must sign. Currently, there are several programs available on internet safety throughout
Massachusetts. In addition to the afore mentioned web-based NCMECs NetSmartz program, there
is an online safety program onered through the Sunolk County District Attorneys Omce which
is targeted at children and parents of children from nfth grade through high school. Te program
addresses issues of human tramcking and bullying. Tis program is also being employed by private
and parochial schools, DCF to train their foster parents, and at after school programs and Boys and
Girls Clubs. Boston Public Schools also oners online safety workshops through its Parent University
program, which occurs three times a year.
57 My Life My Choice works to address commercial sexual exploitation of adolescent girls in the United States. Trough victim-
centered mentoring, prevention education, and advocacy, MLMC is educating and empowering girls to nnd a positive life
path and working to eliminate the violence of sexual exploitation. MLMC oners a unique continuum of services spanning
provider training, prevention groups for vulnerable adolescent girls, case consultation, and survivor mentoring to young
victims of commercial sexual exploitation. MLMC has successfully trained over 5,500 youth providers in Massachusetts and
nationally, has provided prevention groups to 1,200 girls and mentored over 200 girls in the metro-Boston area. MLMC is
able to have a signincant impact on a hard-to-reach population by employing survivors as group leaders, trainers and mentors.
Teir nrst-hand accounts of victimization have informed group and training curricula and are the voice of authenticity to girls
entrapped in a life of abuse. Furthermore, two employees from MLMC, Lisa Goldblatt-Grace the Executive Director and
Audrey Morrissey, Program Director, are both governor appointees to the Task Force.
B. LAW ENFORCEMENT
Currently there are several gaps in the education and training of law enforcement:
Omcers remain unaware of the new tramcking statute and how to best approach these cases/
investigations;
Omcers do not realize that they are mandated reporters when it comes to tramcking;
Omcers are unaware of the benents and procedures of the Human Tramcking Victim Trust Fund, and
often do not take full advantage of seizing property; and
Often omcers still see minor victims of human tramcking as delinquents; and all sex tramcking victims as
prostitutes who have a made what the omcer believes to be a choice.
Law Exioicixixr Ricoxxixiariox 1: Ixcoiioiari ixioixariox ixro ixisrixc
iiociaxs
Currently, an existing training structure is in place for all sworn omcers across the Commonwealth.
Tat structure includes basic recruit, in-service and advanced trainings. Te Task Force recommends
building upon this existing structure and the relationship between the Municipal Police Training
Committee (MPTC) and any other law enforcement training organizations identined by the
Administration and the Massachusetts State Police to facilitate any added curriculum specinc to
human tramcking training for law enforcement.
58
Additionally, Massachusetts has a very qualined
group of local experts, whose trainings can be leveraged for all state law enforcement.
Te Boston Police Human Tramcking Unit and the Massachusetts State Police have performed the
vast majority of law enforcement training in Massachusetts. Tey, or other law enforcement agencies
identined by the Administration, should be consulted in the development of the training. Tese
two units have a great deal of experience investigating human tramcking cases and collaborating
with social service agencies, such as My Life My Choice, on the development and deployment of the
trainings. Tese entities have frequently worked together to provide training. More recently, the
Attorney General Omces Enterprise and Major Crimes Division and U. S. Attorneys Omce, in
conjunction with local District Attorneys Omces, FBI, Homeland Security, MSP, the Boston Police
Department, and the Department of Labor, have organized trainings for law enforcement state-
wide.
59
Law Exioicixixr Ricoxxixiariox :: Tiiiii Tiaixixc ioi Law Exioiciis axi
Ciixixai Jusrici Piisoxxii
A model training using the train-the-trainer format where law enforcement leads trainings is
recommended. Historically, the Executive Omce of Public Safety and Security facilitated the
development of a standardized training curriculum specinc to Sexual Assault and Domestic Violence
trainings. Identined trainers throughout the state participated in a train-the-trainer sessions to
develop curriculum and certify new trainers, and these certined trainers went on to teach for the
Massachusetts Police Training Committee and the State Police using the identined curriculum. Tis
train-the-trainer format has been very enective at reaching the entire state, while simultaneously
standardizing the information being taught. Te subcommittee recommends consulting with these
and any other Administration identined law enforcement agencies in the development of training.
58 Assistant District Attorneys (ADAs), clerks, Dept. of Corrections (DOC) omcers, campus police, Dept. of Youth Services
(DYS), and probation can be trained using some iteration of the curriculum developed for sworn omcers.
59 ADAs, clerks, DOC omcers, campus police, DYS, and probation have recently requested and participated in these trainings.
Te Task Force recommends face-to-face training modules that incorporate e-learning. E-learning
can be an enective method of reaching high numbers of omcers and criminal justice personnel;
however, it is best used to provide legal update-type information. All departments have access to
e-learning systems, making these updates easily disseminated.
Starting in 2013, the Federal Bureau of Investigations began collecting data on sex and labor
tramcking as part of the Uniform Crime Report program. Nationally, law enforcement will need
training on the change, and incident and arrest forms throughout the Commonwealth will need
to be changed to include human tramcking onense categories. Te need for training on this issue
provides an opportunity for the state to make several updates to training, data collection and law
enforcement records as they relate to human tramcking.
60
Tier One Personnel and Curriculum
Personnel include:
New recruits; and
Probation omcers
Additionally, the task force recommends that training be provided to prosecutors in separate
sessions.
Te nrst tier of training can be built into the new recruit sexual assault curriculum.
At the end of the training, tier one participants will be able to describe:
Victim dynamics associated with human tramcking;
Te need to treat victims as victims, not as onenders;
Basics of the new human tramcking statute;
Who to contact to refer potential human tramcking cases;
Preliminary interviewing and questioning techniques;
Appropriate referral options; and
Te processes involved in U and T visas (prosecutors only, see the victim services section of the
report and Appendix B).
60 Most law enforcement agencies in Massachusetts have a strong working relationship with each other. However, the multi-
jurisdictional nature of crimes involving human tramcking sometimes makes the balance of boundaries and collaboration
challenging. Clarined policies on when and how to share information between jurisdictions disseminated through trainings
would be extremely enective in addressing this issues.
Personnel include:
Veteran omcers
Te second tier can be incorporated into the mandated annual 40-hour in-service training.
In addition to everything in tier one, at the end of the second tier training, participants will be
able to describe:
Information on up to date case law;
Best practices for responding enectively to victims;
Te importance of reverse stings and how to conduct them; and
How to work within the multidisciplinary team framework.
Tier Three Personnel and Curriculum
Personnel include:
Omcers and other members of the criminal justice system who specialize in human tramcking
Tis training would be self-selected by interested individuals and would be focused on advanced
topics in conducting human tramcking investigations.
In addition to tier one and two, at the end of the third tier training, participants will be able to:
Understand and use multi-jurisdictional investigative techniques to successfully investigate, arrest,
and prosecute onenders.
C. MEDICAL AND SOCIAL SERVICES
Here, too, an interactive model using the train-the-trainer format would be most enective in
reaching medical and social services providers. Ideally, the training would occur in multi and single
disciplinary teams. Updates and ongoing training could be provided through e-learning.
Te task force recommends training a wide spectrum of social service and medical providers. Social
service providers could include:
61
;
Department of Mental Health;
Department of Youth Services;
Independent therapists;
61 Because a disproportionately large percentage of commercially sexually exploited children are at some point in DCF custody,
and because the legislature asks that DCF provide services to these victims, we have provided specinc recommendations to
DCF on the type of trainings that could support this initiative. DCF workers are not required to get annual continuing
education units like other social workers. However, new DCF workers are required to attend a 30 day new worker training
and there are additional non-mandatory training options for current DCF workers. Te new worker training occurs 3 days a
week, 2 of which are in omce, for the nrst 10 weeks of employment. Within this new worker training, 45 minutes are devoted
to human tramcking with a focus on domestic minor sex tramcking and commercially sexually exploited children.
We recommend DCF provide training that would give all case managers the skills listed above in tier two of the social services
training and that they mandate tramcking training to area managers and provide on-going tramcking training to existing
employees. Bostons DCF is the most knowledgeable with regards to human tramcking and we recommend they help support
the development of training for the other DCF regions.
Community-based programs;
Substance abuse treatment programs; and
Shelter and housing treatment providers.
Te Task Force also recommends reaching out to a large variety of medical providers such as doctors,
nurses, nurse practitioners, social workers, and medical students practicing in the following health
centers and clinics:
Hospitals (impatient, outpatient and emergency);
Community health centers;
Family planning centers;
Womans health clinics;
Health care providers indigenous to racial and ethnic communities; and
Allied health professionals (psychologists, dentists, massage therapists).
In addition to reaching these traditional social service and medical providers, the Task Force
recommends educating stan at other organizations that are in a position to identify victims and
encourage them to come forward. Often these nontraditional service providers have earned the trust
of people who would be less likely to self-identify in a more traditional setting. Tis is especially
true in the case of labor tramcking where victims sometimes face additional language and cultural
barriers. Tese providers include:
Hairstylists;
Manicurists;
Massage therapists;
Miiicai axi Sociai Siivicis Ricoxxixiariox: A riiiii riaixixc aiiioacu ioi aii
uiairu caii iioviiiis
As with other trainings, a tiered approach is recommended. Te nrst tier training would use medical
rounds, webinars, and annual conferences to deliver the training.
Tier One Personnel and Curricula
Personnel includes:
All social services and medical providers
Tis training would occur through a grand rounds format, webinars, and annual conferences.
At the end of the nrst tier of training, participants will be able to describe:
What human tramcking entails;
Te health consequences and clinical presentation of tramcking;
How to screen for tramcking in medical setting (when/how/what); and
Te responsibility of medical personnel if tramcking is suspected or victim is identined (i.e.
protocol for mandated reporters).
Second tier training would have additional goals of cultivating an in-house champion and creating
additional provider-specinc protocols.
Fire Inspectors;
Board of Health Agents; and
Building Inspectors.
Personnel include:
Potential in-house champions including professionals with experience in domestic violence, child
protection, OB/GYN, adolescent medicine, pediatrics, emergency medicine
In addition to tier one, at the end of the second tier training the participants will be able to
describe:
How to responding to victims enectively;
What victims need in the short and long term;
How to maximize hospital/clinic resources (i.e child protection team, etc.);
How to create protocols in the hospital for addressing victim needs (i.e. including mandated
reporting, adults vs. minors, involvement of LE, etc.); and
Local resources.
PUBLIC AWARENESS
Te Public Awareness Subcommittee was responsible for addressing the following:
(iv) evaluate approaches to increase public awareness of human tramcking;
(vii) examine cost-enective notices, announcements or advertisements that may be displayed in public
places, such as airports, train stations, bus stations, hotels, massage parlors, spas, strip clubs and other
sexually-oriented businesses providing information relating to services for human tramcking victims;
After evaluating public awareness campaigns and strategies nationwide, the Task Force recommends the
following:
a. Leverage existing work of other states to tailor a successful campaign for Massachusetts;
b. Identify a state agency to lead the public awareness campaign;
c. Establish a web portal to act as a clearinghouse for information;
d. Provide a Massachusetts call referral map for the national hotline to support victim identincation.
:. Ixioiraxci oi Puniic Awaiixiss
A comprehensive approach to combat tramcking includes informing the general public and spreading
awareness around commercial sexual exploitation, exploited tramcked labor, and victim identincation.
Even after passage of the law, there persists a prevalent myth that tramcking does not happen in
Massachusetts or that prostitution is a victimless crime. Tese beliefs are often held by people who
could help address the issue. For example, people who work in the hospitality, transportation, restaurant
and agriculture industries are in a position to see tramcking victims exploited. Even more troubling
is that Johns often do not see their seller as anything more than a willing participant. Similarly,
exploited workers are laboring in the marketplace with little consumer awareness about their plight and
vulnerabilities. By changing these views we can reduce demand for tramcked labor and sex and increase
the number of victims identined.
. Cuiiixr Piacricis
Department of Homeland Security and the Omce for Refugee Resettlement are responsible for public
awareness and public information on the federal level.
62
Currently in Massachusetts, there is no state
agency responsible for human tramcking public awareness campaigns or public information resources.
Te Polaris Project, a non-pront, non-governmental organization, based in Washington D.C. provides
the National Human Tramcking Resource Center hotline, which is a widely published toll free number
that individuals can call to report a tip, receive general information or specinc anti-tramcking resources,
and connect with local anti-tramcking services or request training and technical assistance.
63
When a
Massachusetts call is received, the information from the call is forwarded to a number of local, state, and
62 U.S. Dept. of Homeland Sec., End Human Trafcking. https://www.dhs.gov/blue-campaign/blue-campaign, (last visited Aug.
12, 2013).;
Omce of Refugee Resettlement, Rescue & Restore Victims of Human Tramcking. available at http://www.acf.hhs.gov/
programs/orr/resource/about-rescue-restore (last visited: Aug. 12, 2013).
63 Polaris Project, Combating Human Trafcking and Modern-day Slavery. http://www.polarisproject.org/resources/resources-by-
topic (last visited Aug. 12, 2013).
54 Recommendations - Public Awareness
federal law enforcement resources. Presently in Massachusetts, there is no consistent way of addressing
these referrals.
Additionally, there are numerous enective, multilingual anti-tramcking campaigns being deployed across
the country. A list of these campaigns and their relevance for Massachusetts can be found in Appendix
K. Recognizing the need for an enhanced approach in Massachusetts, some established campaigns have
generously onered technical assistance and free creative work, should the state decide to replicate their
campaign in our state.
. Ricoxxixiarioxs:
a. Liviiaci Exisrixc Woix oi Oruii Sraris ro Taiioi a Succissiui Caxiaicx ioi
Massacuusirrs
Te Task Force recommends using a statewide campaign modeled on other campaigns and tailoring
the message for Massachusetts specinc needs. Te campaign would inform the general public about
the nature of the problem, the punishment and consequences under state and federal statutes, and
target potential victims of sex and labor tramcking. Te subcommittee has done extensive research
on what exists with regards to public awareness and human tramcking in other states.
Te statewide campaign should: (1) establish a cohesive brand and centralized facilitation that allows
sustainability and leadership by a state-wide entity; (2) ensure strategies and deliverables are sensitive
and culturally-appropriate for potential victims, empowering victims to self-identify and for the
general public to take action; (3) leverage and align with existing anti-tramcking activities and cross-
sector partnerships on multiple levels; and (4) employ cost-enective and creative methods.
In developing a statewide campaign, or tailoring an existing campaign to nt Massachusetts specinc
needs, the Task Force recommends the following be taken into careful consideration:
Messaging: Campaign materials should include the Polaris Projects National Human Tramcking
Resource Center Hotline (1-888-373-7888), their text number (BeFree or 233733), and a state
wide tramcking website. Tis will allow for tracking, which campaigns are most enective, and to
route inquiries consistently to the appropriate resource. Additionally, it is important to keep the
message content consistent across mediums. It is also imperative that this consistent message reach
a diverse body of individuals in a variety of languages, as tramcking is an international issue. Te
message must be culturally competent, use enective and appropriate language and be survivor-
informed and audience tested.
64
Platforms: When considering a public awareness campaign, various platforms, (or delivery
mediums) should be explored, as they help determine who will be reached. Where one platform
might specincally target survivors to step forward, others might be better suited to educate the
64 Cultural Competency: Ensure all materials are translated into at least the top nve non-English languages and are culturally
appropriate, especially materials targeting victims such as info cards, brochures and other notices in order that the terms,
images, and tone have maximum potential to reach the intended populations. Enective and Appropriate Language: While
terms like modern day slavery may catch the eye of the general public, it perpetuates the myths of what tramcking
is and is not. Tis type of language can be counter-productive when trying to encourage self-identincation of victims.
Survivor-informed and Audience-tested: Ensure all outreach materials produced are informed through a process with input,
contribution and evidence from the survivors and service providers, by conducting focus groups, interviews and surveys with
survivors and sample pool of intended audience
Recommendations - Public Awareness 55
general public on the facts and recognizing the signs of human tramcking. Budget can also play an
important role in this piece of the campaign strategy as platforms vary in price. After reviewing the
subcommittees detailed nndings, the Task Force recommends specincs on the following platforms:
Out of the Box Vehicles, Website URLs, Commonwealth Blogosphere, Public Notices (Print),
Public Notices (Audio & Video), Ethnic Media Outlets and Events (See Appendix J for detailed
recommendations).
n. Iiixrii\ a Srari Acixc\ ro Liai rui Puniic Awaiixiss Caxiaicx
Te Task Force recommends that a state governmental agency manage human tramcking public
awareness initiatives for the state of Massachusetts. Te agency must have experience in addressing
public awareness campaigns across the state and be in a position to provide communications across
a number of dinerent mediums. As part of the campaign, the Task Force recommends the agency
identify an appropriate mechanism for fundraising and facilitation of public-private partnerships
to coordinate, meet public awareness objectives, and increase the funds to support survivors of
tramcking.
c. Esraniisu a Win Poirai ro acr as a Ciiaiixcuousi ioi Ixioixariox
Similarly, the Task Force recommends the establishment of a web portal to support public awareness.
In the short term, the agency responsible for the public awareness campaign could immediately
establish a web portal under the state domain as a clearinghouse for information, including but not
limited to links to state and national resources and trainings. Over the longer term, the site could be
developed to become more dynamic to engage the public and our target audiences. In this scenario,
a partnership could be established with a creative nrm to develop the site into a consumer-facing
website. Te consumer site will include national data, local stories, a toolkit for news media, activists
and opinion-leaders, dynamic and sharable video, graphics and educational content; optimized
search result matched and social media integration.
i. Pioviii a Massacuusirrs Caii Riiiiiai Mai ioi rui Narioxai Horiixi ro Suiioir
Vicrix Iiixriiicariox
Te state needs an enective way to harness the tips from the public and from providers that public
awareness campaigns will be designed to generate. Te Task Force recommends that the Attorney
Generals Omce work with local and state law enforcement, in consultation with our federal partners
to provide Polaris Project, to develop how Massachusetts calls should be referred to law enforcement.
Te Task Force recommends a concise road map system be developed and provided to Polaris Project
so moving forward, calls are referred in a consistent and enective manner. Tis will provide for more
enective coordination across law enforcement and a better communication between all involved
parties. Polaris Project is willing to adopt any recommendations regarding referral mechanism. Te
Polaris Hotline number can then be used in trainings and victim services material as well.
56 Recommendations - Public Awareness
Lanoi Tiaiiicxixc
Chapter 178 of the Acts of 2011 directs the task force to:
(x) submit a report of its nndings and recommendations to the clerks of the senate and the house of
representatives who shall forward the report to the chairs of the joint committee on the judiciary not later than
18 months after the enective date of this act. Te Task Force shall determine if subsequent reports are necessary
in order to properly address human tramcking.
Labor tramcking is a complex issue and, as with human tramcking generally, an often unreported or under-
reported occurrence. Given the complexities of the issue, the Task Force recommends convening a separate group
to understand more about labor tramcking.
Labor tramcking victims often face cultural, language, and legal barriers that make their identincation that much
more dimcult. While it is true that often these victims are reluctant to come forward because of the additional
issues they face, it is also true that as a society they are often invisible to us. Our traditional service models are
not currently equipped to identify or address English-speaking, native born victims much less understand the
signincance that culture and language play in indoctrination and captivity.
To look more closely at the issue of labor tramcking, the Task Force suggests a collaboration among individuals
representing public and private entities, including but not limited to the following groups:
Te Secretary of Labor and Workforce Development or the Secretarys designee;
Te Director of Massachusetts Coalition for Occupational Safety and Health (MassCOSH) or her
designee;
A representative of a nonpront that addresses labor tramcking from the perspective of the business
community appointed by the chair of the Task Force;
A survivor of labor tramcking appointed by the chair of the Task Force;
A labor tramcking case worker appointed by the chair of the Task Force;
Te Executive Director of the Massachusetts Omce for Victim Assistance or his designee;
Te Director of the Department of Professional Licensure or the his designee;
A representative of a group dedicated to immigrant and refugee issues appointed by the chair of the Task
Force;
A university researcher with experience in labor tramcking appointed by the chair of the Task Force; and
Te director of the Massachusetts Department of Public Health or his designee.
Tis group should submit any recommendations to the Director of the Task Force within 18 months of the nling
of this report. Any addenda to this report based on the recommendations will be prepared and submitted to the
Task Force for consideration as necessary.
Recommendations - Labor Tramcking 57
Ixiiixixrariox Piax
Te task force recognizes that in order to enectively implement the recommendations in this report, further work
needs to be accomplished. We therefore recommend the formation of implementation groups, the purpose of
which are to advance the recommendations included in this report and determine the next steps to implement
the recommendations. Te implementation groups may consider, but are not limited to considering, what
resources are necessary; what public and private funding sources are available; and what collaborations between
and among public and private entities may be desirable. Recommendations of the implementation groups should
be submitted within one year of the nling of this report to the Director of the Task Force. Addenda to this report
based on the recommendations will be prepared and submitted to the Task Force for consideration as necessary.
DISTRICT ATTORNEY OFFICES MULTIDISCIPLINARY TEAMS (DAO MDTS)
Te District Attorneys Omce Multidisciplinary Teams (DAO MDTs) will create a consistent statewide
infrastructure for multidisciplinary teams to work together to address victims needs and create a data
tracking, sharing, and analysis protocol. In order to implement the recommendations around the
DAO MDTs, the Task Force suggests a collaboration that includes, but is not limited to, the following
individuals:
Te Director of a tramcking victim services/law enforcement anti-human tramcking coalition appointed
by the chair of the task force
Te Executive Director of Massachusetts District Attorneys Association or their designee;
Te Executive Director of Massachusetts Chiefs of Police Association or their designee;
An academic researcher with experience in human tramcking appointed by the chair of the task force;
Te Director of a law enforcement intelligence agency appointed by the chair of the task force;
Te Colonel of the State Police or their designee; and
Te Commissioner of the Department of Children and Families or their designee.
Recommendations may include, but should not be limited to, the following:
Developing a dennition of human tramcking victim for data collection purposes alone
Identifying a budget and funding sources for the project
Creating and disseminating guidelines to DAOs to create their own protocols
Determine if a state wide MDT is necessary and how it will interact with the DAO MDTs
Clarify jurisdictional protocols between counties
Determining the appropriateness of incorporating elements from the Washington State Model Protocol
for Commercially Sexually Exploited Children into a Massachusetts protocol
Drafting a plan to train MDTs on tramcking and data collection
Denning overarching data collection protocols including data storage protocols
MINOR VICTIMS OF SEX TRAFFICKING
Te safe harbor provisions included in Chapter 119 of the General Laws as amended by Chapter 178
of the Acts of 2011 have had the enect of shifting from a probation model to a child welfare model for
the treatment of minor victims of sex tramcking. Pursuant to the law, the Department of Children and
Families is responsible for providing appropriate services to these victims. In order to support this enort,
the Task Force suggests a collaboration that includes, but is not limited to, the following individuals:
58 Recommendations - Implementation Plan
Te Commissioner of the Department of Children and Families or their designee;
Te Commissioner of the Department of Youth Services or their designee;
Te Executive Director of the Massachusetts Omce for Victim Assistance or their designee;
Te director of an organization that provides legal representation to children and parents in child welfare
matters or their appointee;
A representative of an entity dedicated to prevention of and intervention in the tramcking of children
appointed by the chair of the task force; and
A representative from a police department with experience in tramcking appointed by the chair of the
task force.
Determining whether or not DCF should accept reports of suspected human tramcking as child
protection cases without the identincation of a guardian or caretaker listed as the alleged perpetrator
Make recommendations around the implementation around the safe harbor provision
Identifying appropriate best practice models from other states that should be implemented in
Massachusetts
Identifying appropriate federal and state legislation to support minor victims
Drafting protocols and regulations around the treatment of child victims of sex tramcking
Providing detailed recommendations for training for the DCF stan
SAFE HOUSE
Safe homes and exit strategy planning requires a comprehensive approach to the issue. In order to
enectively implement the safe house recommendations, the Task Force suggests a collaboration that
includes, but is not limited to, the following individuals:
Te Executive Director of the Massachusetts Omce for Victim Assistance or their designee;
A victim of human tramcking appointed by the chair of the task force;
A provider of human tramcking victim services appointed by the chair of the task force;
A representative from the City of Boston Mayors Omce;
A representative from a police department with experience in tramcking investigations;
Te Undersecretary of Massachusetts Department of Housing and Community Development or their
designee;
Te Director of Massachusetts Housing and Urban Development or their designee;
Te Executive Director of MassHousing or their designee; and
Te Commissioner of the Department of Probation or their designee.
Identifying emergency, short, mid, and long term solutions for victims including recommending specinc
regulation changes
Determining appropriate services and service partners to be included as part of the safe homes project
Drafting a budget for the pilot safe house and potential funding sources
Identify pilot population served
Identify location(s) of structure(s)
Recommendations - Implementation Plan 59
EDUCATION AND TRAINING
In order to enectively implement the Education and Training recommendations in this report, the task
force recommends convening a group to craft an execution plan. Te Task Force suggests a collaboration
that includes, but is not limited to, the following individuals:
A human tramcking social services provider appointed by the chair of the Task Force;
A trainer with experience in human tramcking appointed by the chair of the Task Force;
Te Commissioner of the Boston Police Department, or their designee;
Te Secretary of the Executive Omce of Public Safety, or their designee;
Te Executive Director of the Massachusetts District Attorneys Association, or their designee;
Te chair of a hospital association appointed by the chair of the task force;
Te Commissioner of the Department of Elementary and Secondary Education, or their designee; and
Te Secretary of the Executive Omce of Health and Human Services.
Identifying a budget for the trainings and potential funding sources
Denning recommended roles and responsibilities of state agencies and private agencies to craft and deploy
the training
Creating a plan to measure the enectiveness of the training
60 Recommendations - Implementation Plan
Aiiixiicis
Appendices 61
62 Appendices
APPENDIX A: VICTIM SERVICES - MODEL PROGRAMS
Examples from Model Safe House Programs:
Breaking Free: Provides a dependency counselor from a local treatment center that works with a group
once a week.
Children of the Night: Assists youth with job placement and nnancial assistance with paying for books/
school supplies and college placement.
GEMS: Provides legal advocacy for girls in family court and cases that involved the Administration of
Childrens Services.
Te Poppy Project: Provides micro-enterprise loans and business training/mentorship in conjunction with
a local college to give women life skills and the conndence that they need to set up their own businesses,
nnd work, or get back into education.
Te SAFE Project: Provides individualized treatment plans to overcome the enects of trauma through a full
continuum of care.
Examples from Model Survivor Led Programs:
Breaking Free:
All stan are survivors.
Survivors run Sisters of Survival, a 14-week intensive education group.
Survivors run Journey to Success/Alumni Group, an ongoing group that supports the diverse needs of
survivors.
Paid internships opportunities are onered to survivors with the highest recidivism rates.
GEMS:
Te Youth Outreach Team consists of members who have transitioned to permanent stan members.
Te Youth Leadership Program is survivor-led with curriculum created by survivors to help transition
members from victims to survivors.
Example from Model Housing Accommodation Programs:
Breaking Free:
Availability of both short and long-term housing accommodations:
House of Hope 3 separate homes for the short-term.
Te Village Place apartment buildings for single women and children.
Short-Term housing is staned 24/7 while longer term accommodations being monitored.
Between both types of housing programs, women can live within the program indennitely until
permanent housing is an option (per Breaking Free it takes a woman nve years to secure an income
level that would support a family).
GEMS: Transitional Living Program
Program is staned 24/7 and is similar to a domestic violence shelter or runaway youth model.
Accommodates 9 girls for up to 18 months.
Children of the Night:
Children are able to live in a school/campus environment.
Bedrooms with 2 single beds and bathrooms.
Children stay until they graduate.
Appendix A 63
Detailed list of Possible Funding Streams
Violence Against Women Act (VAWA)
Victims of Crime Act (VOCA)
Housing and Urban Development (HUD)
Department of Justice
Omce of Juvenile Justice and Delinquency
Programs
District Attorneys Omces
Funding for Youth and Runaways
Private Funding:
Philanthropic groups
Faith based organizations
Private donations
Grants from national and local companies
Womens foundations
Consistently Identined Partners from Model Programs:
District Attorneys Omces
Probation Departments
Department of Health
Funds established for homeless and runaway youth
Examples of Model Funding Programs
Te SAGE Project: Early Intervention Prostitution Program
Provides comprehensive services to women referred to the program through the District Attorneys
Omce and community courts.
Victims/survivors referred to the program will receive a wide range of comprehensive services
Te Poppy Project: First Onender Prostitution Program
Assists women and girls who have been detained for tramcking related crimes or who have been
identined as victims/survivors to provide support.
Breaking Free: Pre-Court Diversion Program
Enables law enforcement to intervene on the victims behalf by diverting them to a community based
agency.
GEMS: Alternative to Incarceration (ATI)
Provide defender cased alternative sentencing services and support for young women who are survivors
of commercial sexual exploitation.
Breaking Frees John School: Te Johns can elect through community courts to serve their sentences
through community service. Johns can also be sentenced to attend John School. John Schools also
assists in reducing recidivism as the Johns learn the harm of their actions. Te fees from the John
School are directed to Breaking Free for direct victim services.
Department of Public Health
Department of Youth and Community
Development
Substance Abuse and Mental Health
Counseling
Executive Omce of Public Safety and Security
Police Departments
Probation Departments
64 Appendix A
APPENDIX B: VICTIM SERVICES - INFORMATION FOR LAW ENFORCEMENT
Appendix B 65

INFORMATION FOR LAW ENFORCEMENT OFFICIALS
Immigration Relief for Victims of Human Trafficking and Other Crimes

In addition to upholding U.S. immigration law, the Department of Homeland Security (DHS) administers immigration
benefits to victims of human trafficking and other serious crimes. U.S. Citizenship and Immigration Services (USCIS)
adjudicates T and U visas, which help protect immigrant victims of human trafficking and other crimes.

1. What is a T visa?
The T nonimmigrant status visa (also known as the T visa) provides immigration protection to victims of severe forms
of human trafficking who assist law enforcement in the investigation or prosecution of human trafficking cases.
A law enforcement declaration is evidence of a victims cooperation; it may be submitted in support of a T-visa
application.

2. What is a U visa?
The U nonimmigrant status visa (also known as the U visa) provides immigration protection for victims of qualifying
crimes who are helpful to law enforcement in the detection, investigation or prosecution of the criminal activity.
A law enforcement certification is required evidence of a victims cooperation; it must be submitted in support of a U-
visa application. Without a law enforcement certification, the U-visa application will be denied.

3. Why would a victim ask me for a law enforcement declaration or certification?
An applicant for a T visa or a U visa must demonstrate assistance to law enforcement. The applicant will submit a law
enforcement declaration or certification along with the T- or U-visa application. This document serves to inform USCIS
about assistance the applicant provided toward an investigation or prosecution of the crime. The law enforcement
declaration or certification must be signed by a certifying official, as described below in Questions 8-11.

4. How do T and U visas help law enforcement with criminal investigations?
T and U visas can greatly benefit law enforcement, as they encourage immigrant victims to work with law
enforcement, prosecutors and courts to investigate and prosecute human trafficking and other serious crimes.
A victim applying for a T visa or a U visa can help law enforcement by providing information about a crime and
assisting in an investigation or prosecution of serious criminals, making the entire community safer.

5. Does a signed declaration or certification automatically grant an immigration benefit?
No. A signed law enforcement declaration or certification is just one piece of evidence submitted as part of a T- or U-
visa application. Only USCIS has the authority to approve T- and U-visa applications and grant immigration benefits.
USCIS also requires additional evidence from the applicant, and will conduct a full background investigation that
includes an FBI fingerprint and name/date-of-birth check and a full review of the applicants immigration history.

6. May I certify the victims helpfulness if no prosecution, arrest or conviction has been made, or if the case has
been closed?
Yes. A certifying official may sign a declaration or certification if the case is closed, or if a prosecution, arrest or
conviction was not made. Neither formal charges nor the launch of a formal investigation are required.
There is no requirement that the victims assistance lead to a prosecution, arrest or conviction, as criminals/victimizers
may flee the jurisdiction once a crime is reported or may have already been deported from the U.S.
There is no statute of limitations on a victims helpfulness to law enforcement. A declaration or certification may be
provided for cases that are closed or for investigations for crimes that occurred months or years ago, as long as the
victim was helpful to law enforcement.

7. If I sign a declaration or certification form, will I be liable for the applicants future actions?
No. A law enforcement agency will not be liable for any future criminal activity a victim engages in.
A declaration or certification only provides USCIS with information available about the victim, the crime and the
victims assistance to law enforcement in an investigation or prosecution at the time it is signed.

66 Appendix B
8. What is the law enforcement certification process for a U visa?
If certifying, the law enforcement agency must use USCIS Form I-918, Supplement B (part of Form I-918, Petition for
U Nonimmigrant Status) and provide it to the victim upon completion.
The victim will submit the certification to USCIS with the application for a U visa.
The signed law enforcement certification states that the victim has been a victim of a qualifying crime; possesses
information about the crime; and has been, is being, or is likely to be helpful to an investigation or prosecution of the
qualifying crime.
A U-visa application that is not submitted with a law enforcement certification will not be considered complete. Without
a certification, the U visa will be denied.

9. Who may sign a law enforcement certification for a U visa?
Certifying agencies include:
o Federal, state or local law enforcement agencies, including prosecutors and judges, and;
o Other agencies that have criminal investigative jurisdiction in their respective areas of expertise, such as child
protective services, the Equal Employment Opportunity Commission and the Department of Labor.
Certifying officials include any person in a supervisory role in a certifying agency who is designated by the head of
that agency to issue U nonimmigrant certifications. They also include federal, state and local judges.

10. What is the law enforcement declaration process for a T visa?
If signing a declaration, the law enforcement agency must use USCIS Form I-914, Supplement B (part of Form I-914,
Application for T Nonimmigrant Status) and return it to the victim upon completion.
The victim will submit the declaration to USCIS with the application for a T visa.
The signed law enforcement declaration states that the victim was or is a victim of a severe form of human trafficking,
and has complied with any reasonable requests for assistance in a trafficking investigation or prosecution.
A law enforcement declaration is optional evidence that an applicant may submit in support of a T-visa application.

11. Who may sign a law enforcement declaration for a T visa?
Agencies that may sign a declaration include any federal, state, or local law enforcement agency that has the
authority for the investigation or prosecution of human trafficking, including but not limited to the Department of
Justice, the FBI, DHS, the U.S. Marshals Service, and the Department of States Diplomatic Security Service.
The declaration must be signed by a supervising official responsible for the investigation or prosecution of the
trafficking offense.

12. Am I legally required to sign this declaration or certification?
No. A law enforcement agency is under no legal obligation to complete a declaration or certification. Signing is at the
discretion of each law enforcement agency, in accordance with that agencys policy.
Note:
o Without a certification, a U-visa application will be denied.
o The declaration is not required for a T visa, but it is an important piece of evidence submitted by the applicant.

13. Is the victim required to offer continued support in the investigation and prosecution of the criminal who
committed the crime against him or her? What if the victim stops cooperating with law enforcement?
Yes, the victim is required to offer continued support in the investigation and prosecution.
A law enforcement agency may withdraw its declaration or certification after the document is submitted to USCIS.
If at any time the petitioner unreasonably refuses to assist law enforcement, or if the agency wishes to withdraw its
declaration or certification for any other reason, the law enforcement agency should notify USCIS in writing.
The law enforcement agency should send the petitioners name, date of birth, and A-file number if available, along
with the reason for the certifications withdrawal, to:
U.S. Citizenship and Immigration Services/Vermont Service Center
ATTN: T/U-Visa Unit
75 Lower Welden St.
St. Albans, VT 05479-0001

Resources for More Information:

Law enforcement should email their inquiries to LawEnforcement_UTVAWA.vsc@uscis.dhs.gov.
Additional information is available at www.uscis.gov/humantrafficking and www.dhs.gov/humantrafficking.
APPENDIX C: VICTIM SERVICES - LEGISLATIVE ISSUE BRIEF
Ior additional information or assistance please contact Polaris Project at policypolarisproject.org

HUMAN TRAFFICKING
LEGISLATIVE ISSUE BRIEF:
VACATING CONVICTIONS

Human trafficking is a crime that exploits individuals through force, fraud, or coercion for the financial gain of
traffickers. Sex trafficking victims are compelled to engage in acts of prostitution by their trafficker, which
oftentimes results in the victim being arrested, prosecuted, and convicted of prostitution or prostitution-related
offenses. As a result, these victims are hindered from getting jobs, safe housing, immigration visas, loans, and
continuing education because of the prostitution offenses on their records. A vacating convictions law for sex
traIIicking victims will provide a mechanism to have convictions removed Irom the victim`s criminal record so he or
she can pursue a future uninhibited by the past.

Impact of Vacating Convictions

A vacating convictions law helps ensure that the victims of human trafficking are treated as victims, rather than
criminals. On many job, loan, and educational applications, a person is required to disclose any prior convictions.
Having these convictions removed from a victim`s record would ensure that the victim does not miss out on
opportunities as a result of having been victimized. A clean record will give a victim confidence to move ahead and
seek opportunities without having to worry about a criminal conviction for prostitution. It thus provides increased
protection and a second chance for survivors of human trafficking to begin living normal lives and become fully
functioning members of society.

Current and Pending Policy for Vacating Convictions

In 2010, New York became the first state to enact legislation that would provide victims of human trafficking with
an appeals process to vacate convictions for prostitution related offenses that took place while the person was a
victim of trafficking. The law has already been used by victims and considered by courts.

In 2011 the Criminal Court of Queens County in New York, in Matter of People v. GM, vacated the convictions of a
sex trafficking victim who had been arrested and convicted of prostitution as a result of being trafficked. The
court reasoned that 'the Defendant had provided a compelling narrative....her arrests.were the product of years of
brutal physical, psychological and sexual violence by her husband, which resulted in having been trafficked by him.
The Court went on to say, 'Victims of sex trafficking who are forced into prostitution are frequently arrested for
prostitution-related offenses and saddled with the criminal record. They are blocked from decent jobs and other
prospects of rebuilding their lives. Even after they escape from sex trafficking, the criminal record victimizes
them for life.

Other states have Iollowed New York`s lead. Hawaii, Illinois, Maryland, Nevada, Vermont and Washington have all
passed vacating convictions statutes.

Vacating convictions legislation offers victims a clean slate and allows them to live their lives free of the
repercussions of crimes they were forced to commit. This type of legislation makes a tangible difference in the life of
victims.

Suggested Language for Vacating Convictions Legislation

While no state law is perfect and there is no uniform model that fits every state, the language below is a good example
of what to consider when working on this issue in your state. Please contact Polaris Project
(policy@polarisproject.org) if you would like assistance implementing these statutory provisions in your state.

New York Statute 440.10 Motion to vacate judgment.

1. At any time after the entry of a judgment, the court in which it was entered may, upon motion of the defendant,
Appendix C 67
Ior additional information or assistance please contact Polaris Project at policypolarisproject.org

vacate such judgment upon the ground that:
i. The judgment is a conviction where the arresting charge was under section 240.37 (loitering for the
purpose of engaging in a prostitution offense, provided that the defendant was no alleged to be loitering
for the purpose of patronizing a prostitute or promoting prostitution) or 230.00 (prostitution) of the penal
law, and the deIendant`s participation in the oIIense was a result of having been a victim of sex
trafficking under section 230.34 of the penal law or trafficking in persons under the Trafficking Victims
Protection Act (United States Code, title 22, chapter 78); provided that:
(i). a motion under this paragraph shall be made with due diligence, after the defendant ceased to
be a victim of such trafficking or has sought services for victims of such trafficking, subject to
reasonable concerns for the safety of the defendant, family members of the defendant, or other
victims of such trafficking that me be jeopardized by the bringing of such motion, or for other
reasons consistent with the purpose of this paragraph; and
(ii). oIIicial documentation oI the deIendant`s status as a victim oI sex traIIicking or traIIicking in
persons at the time of the offense from a federal, state, or local government agency shall create
a presumption that the deIendant`s participation in the oIIense was a result oI having been a
victim of sex trafficking or trafficking in persons, but shall not be required for granting a
motion under this paragraph.

Illinois Statute (725 ILCS 5/116-2.1) Sec. 116-2.1. Motion to vacate prostitution convictions for sex trafficking
victims
(a) A motion under this Section may be filed at any time following the entry of a verdict or finding of guilty where
the conviction was under Section 11-14 (prostitution) or Section 11-14.2 (first offender; felony prostitution) of
the Criminal Code oI 1961 or similar local ordinance and the deIendant`s participation in the oIIense was a
result of having been a trafficking victim under Section 10-9 (involuntary servitude, involuntary sexual
servitude of a minor, or trafficking in persons for forced labor or services) of the Criminal Code of 1961; or a
victim of a severe form of trafficking under the federal Trafficking Victims Protection Act (22 U.S.C. Section
7103(13)); provided that:
1. A motion under this Section shall state why the facts giving rise to this motion were not presented to
the trial court, and shall be made with due diligence, after the defendant has ceased to be a victim of
such trafficking or has sought services for victims of trafficking, subject to reasonable concerns for the
safety of the defendant, family members of the defendant, or other victims of such trafficking that may
be jeopardized by the bringing of such a motion, or for other reasons consistent with the purpose of
this Section; and
(b) The court may grant the motion if, in the discretion of the court, the violation was a result of the defendant
having been a victim of human trafficking. Evidence may include, but is not limited to:
1. Certified records of federal or state court proceedings which demonstrate that the defendant was a
victim of a trafficker charged with a trafficking offense under Section 10-9 of the Criminal Code of
1961 or under 22 U.S.C. Chapter 78;
2. CertiIied records oI 'approval notices or 'law enIorcement certiIications generated Irom Iederal
immigration proceedings available to such victims; or
3. A sworn statement from a trained professional staff of a victim services organization, an attorney, a
member of the clergy, or a medical or other professional from whom the defendant has sought
assistance in addressing the trauma associated with being trafficked. Alternatively, the court may
consider such other evidence as it deems of sufficient credibility and probative value in determining
whether the defendant is a trafficking victim or a victim of a severe form of trafficking
(c) If the court grants a motion under this Section, it must vacate the conviction and may take such additional
action as is appropriate in the circumstances.

Protect victims of sex-trafficking in your state and support vacating convictions legislation!

68 Appendix C
APPENDIX D: DRAFT SCREENING INSTRUMENTS FOR MINORS AND ADULTS
Guiding principles
i. Te subcommittee recognized the need for a uniform and simple dennition of human tramcking to
guide identincation and collaboration. However, the subcommittee agreed that dennitions of human
tramcking are often complex and ambiguous. Instead, we recommend that practitioners throughout the
Commonwealth be trained to use a set of screening questions or questions should guide the development
of indicators or red nags that would guide practitioners in making referrals about potential victimization.
ii. Te screening questions should not be asked as a checklist. Rather they should help guide conversations
with potential victims about their experiences to identify indicators of human tramcking.
iii. Te subcommittee recommends a process to regularly screen all individuals arrested for prostitution
onenses for potential human tramcking victimization.
iv. In addition to the detailed screening questions, the subcommittee recommends a few questions be added
to a broad range of regular intake forms to help alert dinerent types of practitioners that they should
be on the lookout for human tramcking victimization. (Tese questions might include Is anyone
making you do something you do not want to do? Has there been a time when you felt you could
not leave your job/pressured to work Have you ever exchanged sex for money or something of value
or Is anyone threatening you?) If the answer to these basic screening questions was yes we would
recommend the practitioner screen further using the recommended screening questions.
Screening Tool for Minors:
1. How old are you?
2. Are you in school?
a. If yes, where do you go to school?
3. Where do you live?
a. Who else lives there?
b. Can you come and go as you please?
c. Have you ever been threatened if you tried to leave?
4. Who would you contact in an emergency?
5. Do you work or how do you get money?
6. Have you ever exchanged sex for food, clothing, shelter or money?
7. Has anyone forced you to do something that you dont want to do?
8. Did someone ever touch you in a way you did not like?
9. Has anyone hurt or tried to hurt you?
10. How are you feeling?
a. Do you need any medical assistance?
b. Do you feel safe?
c. Are you lonely? Do you get to see your friends?
Appendix D 69
Screening for Adults:
1. How old are you? (Question used to screen whether or not the victim is a minor.)
2. Where do you live (where do you sleep and eat)?
a. Who else lives there?
b. Do you feel that you can leave if you want? Do you have to ask permission to leave?
c. Have you ever been threatened if you tried to leave?
3. Does anyone stop you from getting food, water, sleep or medical care?
4. Do you work? (Alternative: Do you get paid for what you do?)
a. How do you get to and from work?
b. Do you get paid for your work?
c. How did you nnd your job?
d. Do you owe anyone money because they helped you nnd your job?
e. Have you ever felt like you could not leave your job or felt pressured to work?
5. Have you ever exchanged sex for anything of value such as shelter, food, clothing or money?
6. Have your identincation or travel documents been taken from you?
7. Have you ever been physically harmed in any way or seen anyone else harmed?
8. Has anyone every threatened you or your family?
9. Has anyone every threatened you with calling immigration authorities or the police?
10. Is anyone making your do anything that you do not want to do?
11. How are you feeling?
a. Do you need any medical assistance?
b. Do you feel safe?
70 Appendix D
APPENDIX E: DRAFT PROTOCOL FOR SCREENING AND REFERRING MINOR
VICTIMS
Step 1: Screening
Screening should be conducted for any youth who raise concern about being victim of tramcking or
who provider/agent thinks may be potential victim of sex or labor tramcking based on red nags or basic
questions outlined in this protocol. Youth should be asked the full list of screening questions from the
proposed child tramcking screening tool.
Attention to screening for human tramcking should be part of the regular processes of police, victim
service providers, health care workers, and school omcials.
Screening questions should be asked in a conversational style and not read as part of a checklist.
Screener should identify any language or cognitive barriers to screening. Trained third party translators
should be used where appropriate for screening.
Explanation should be provided to child in advance of asking questions that the screening is being
conducted because the interviewer is worried that the child may not be safe. Te child should be warned
that the interviewee cannot promise that the child wont get in trouble or that all information can be
kept conndential but the intent of the screening is to help keep them safe. Explain that questions are not
intended to identify immigration status issues. Law enforcement should be provided specinc guidance that
the screening is not an interview.
Need to address issue of conndential communication of human tramcking caseworker as denned in the
statute. Not clear that this caseworker is exempt from mandatory reporting requirements.
Screener should ensure the safety of victims before he/she leaves. Screener should determine if any
immediate safety planning, medical or mental health needs exist.
Step 2: Reporting potential victimization
If the provider or agent suspects a child may be a victim of labor or sex tramcking he or she should nle a
suspected child abuse report (51A)
65
with DCF.
At a minimum any child involved in commercial sexual exploitation or tramcking or who has exchanged
sex for money, shelter, food or drugs should be reported to DCF.
A human tramcking case coordinator in the county should be notined about the 51A
66
report.
(note: this requires the group recommending the development of such a coordinator in each county, maybe
associated with the DAs ofce, might be a child abuse specialist or separate person designated to all human
trafcking)
Step 3: DCF review and referral
DCF will review each 51A
67
report and make an immediate referral to the DA when human tramcking is
suspected.
Step 4: DA referral and reporting
Te DA will receive referral from DCF electronically, or by other means, and conduct a review.
Te DA referral will also be sent electronically to the human tramcking case coordinator in the county.
65 Mass. Gen. Laws ch. 119 51A.
66 Id.
67 Id.
Appendix E 71
Step 5: Notifcation to and action of multi-disciplinary team
Legislation specines the multi-disciplinary team to respond to sexually exploited children should include
professionals trained or otherwise experienced and qualifed to assess the needs of sexually exploited children or
children who are otherwise human trafcking victims including, but not limited to, a police ofcer, as defned by
section 1 of chapter 90C, or other person designated by a police chief, as defned in said section 1 of said chapter
90C, an employee of the department of children and families, a representative of the appropriate district attorney,
a social service provider, a medical professional or a mental health professional.
Te human tramcking case coordinator (or DAs omce) will contact key members of a multi-disciplinary
team established in each county to respond to human tramcking of minors.
Te multi-disciplinary team will conference to share information that they have about the victims
involvement in or risk for human tramcking and establish if any other agencies have contact with the
minor victim.
Te team will develop a plan of action for the victim based on their immediate and long term needs
including a formal assessment, possible investigation, and where, needed assistance with housing, mental
health services, medical services, legal advocacy, safety planning and education.

72 Appendix E
APPENDIX F: DRAFT PROTOCOL FOR SCREENING AND REFERRING ADULT VICTIMS
Guiding principles
i. Te subcommittee recommends that it be clear for adult victims that the screener will only make referrals
to government agency if the victim or potential victim consents that information about them be shared.
ii. Both adult and minor victims should be advised of their rights during the screening process.
iii. Te protocol should guide users to provide both negative and positive information about options. For
example, if they are referred to law enforcement what are the potential outcomes? It may be important
to notify a person that DCF may have to be notined if there are concerns about the safety of a persons
children. Screeners should identify but not overstate possible risks.
iv. It is important to be clear in the protocol that the screener may not be able to ensure the safety of adults
once they leave the situation where they are screened. It is important for the screener to make a safety
plan with people before they leave regardless of referral. Te subcommittee recommends developing a
one page if you need help handout with information about where to get various types of assistance and
support.
v. Te subcommittee expressed concern that the protocol oner guidance about how to assess the language
and literacy issues of a person before starting the screening. If interpreters are needed it is critical to
ensure that the potential victim feels comfortable with the interpreter and that the interpreter is not
connected to the tramcker or the tramcking situation.
Step 1: Screening
A broad range of service providers, medical professionals, legal advocates and law enforcement should be
trained to screen clients for signs of potential human tramcking. Te screening tool should be used to
develop questions or red nag indicators that could be discussed with clients to determine if a referral is
warranted.
Screening questions or discussion of potential red nag indicators should be asked in a conversational style
and not read as part of a checklist.
Screeners should identify any language or cognitive barriers to screening. Trained third party translators
should be used where appropriate for screening.
Adults should be informed that the questions are being asked because of concerns about their safety. In
many cases screeners will need to obtain consent of the person being screened before referring information
about their situation to law enforcement or members of the multi-disciplinary team. Depending on the
practices of the screening agency and relevant law, in certain circumstances the screener may not be able
to promise that the person being screened will not get in trouble or that all information can always be
kept conndential. Te screener should clarify these situations depending on their practices and governing
law. Te intent of the screening should be to help keep people safe. People should be informed that the
screening questions are not intended to identify immigration status issues. Law enforcement should be
provided specinc guidance that the screening is not an interview.
Need to address issue of conndential communication of human tramcking caseworker as denned in
the statute. Not clear that this caseworker is exempt from mandatory reporting requirements.
Screeners should ensure the safety of potential victims before he/she leaves. Screeners should determine if
any immediate safety planning, medical or mental health needs exist.
Appendix F 73
Step 2: Reporting potential victimization
If the provider or agent suspects a person may be a victim of labor or sex tramcking he or she should refer
information about the situation to the human tramcking case coordinator in the county responsible for
coordinating the multi-disciplinary team.
Depending on the practices of the referring agency this may require consent of the person being screened.
Step 3: Notifcation to and action of multi-disciplinary team
Te multi-disciplinary team specined in the human tramcking legislation to respond to referrals of sexually
exploited children should have the additional responsibility of responding to all human tramcking referrals
including adults sex tramcking and labor tramcking victims. In addition to the members specined in the
legislation, the team may also include legal advocates, immigration service providers and victim service
provider experienced working with adult victims.
Te human tramcking case coordinator (or DAs omce) will contact key members of a multi-disciplinary
team established in each county to respond to each human tramcking referral.
Te multi-disciplinary team will conference to share information that they have about the victims
involvement in or risk for human tramcking and establish if any other agencies have contact with the
potential victim.
Te team will develop a plan of action for the victim based on their immediate and long term needs
including a formal assessment and where needed assistance with housing, mental health services, medical
services, legal advocacy, safety planning and education.
74 Appendix F
APPENDIX G: DRAFT DEFINITIONS OF HUMAN TRAFFICKING
Te Data collection and information sharing subcommittee believes that a simple dennition of human tramcking
according to the Massachusetts statute is needed for data collection purposes. Tere is some concern that without
a simple dennition, law enforcement and service providers will default to the federal dennition which has a higher
burden. Te dennition of human tramcking should guide the identincation of minor and adult, U.S. citizen and
foreign national and sex tramcking and labor tramcking victims. Te dennition should also be used in making
decisions about what people or incidents to report into a human tramcking information sharing/data collection
systems.
Te subcommittee has not developed a dennition but did identify some considerations in drafting such a
dennition. Tese include the fact that:
agencies have dinerent needs and worldviews about tramcking,
tramcking is at the intersection of other criminal elements and as a result tramcking crimes or victims may
be classined under other crime types,
some elements of tramcking may be subjective,
the scope and characterization of human tramcking victimization varies,
the Massachusetts law dennes aspects of human tramcking in multiple dinerent sections (e.g. sexual
exploitation of children, tramcking for sexual servitude, tramcking for forced labor).
Te group agreed that a simple and uniform dennition of human tramcking may not be necessary for screening.
Practitioners should use screening questions to make an initial decision that someone is a potential victim of
human tramcking. A dennition of human tramcking would be critical to guide entry and use of information about
human tramcking incidents, victims and/or suspects in any human tramcking data collection and information
sharing system.
Te following elements from the defnitions specifed in H3808 may be useful in the development of a simple
and uniform defnition of human trafcking.
Sexually exploited child or a child who is otherwise a human trafcking victim is any person under the
age of 18 who has been subjected to sexual exploitation because such person:
(1) is the victim of the crime of sexual servitude pursuant to section 50 of chapter 265 or is the victim of the
crime of sex tramcking as denned in 22 United States Code 7105;
(2) engages, agrees to engage or oners to engage in sexual conduct with another person in return for a fee,
in violation of subsection (a) of section 53A of chapter 272, or in exchange for food, shelter, clothing,
education or care;
(3) is a victim of the crime, whether or not prosecuted, of inducing a minor into prostitution under by
section 4A of chapter 272; or
(4) engages in common night walking or common streetwalking under section 53 of chapter 272.
Trafcking of persons for sexual servitude (Section 50a): Whoever knowingly: (i) subjects, or attempts to
subject, or recruits, entices, harbors, transports, provides or obtains by any means, or attempts to recruit, entice,
harbor, transport, provide or obtain by any means, another person to engage in commercial sexual activity, a
sexually-explicit performance or the production of unlawful pornography in violation of chapter 272, or causes
a person to engage in commercial sexual activity, a sexually-explicit performance or the production of unlawful
Appendix G 75
pornography in violation of said chapter 272; or (ii) benents, nnancially or by receiving anything of value, as a
result of a violation of clause
Sex trafcking of a minor (50b): Whoever knowingly entices a child under the age of 18 years, to engage in
prostitution Te term "entice'' shall mean to lure, induce, persuade, tempt, incite, solicit, coax or invite.
Enticement can be in-person or by electronic communication.
Trafcking for forced services (section 51a): Whoever knowingly: (i) subjects, or attempts to subject, another
person to forced services, or recruits, entices, harbors, transports, provides or obtains by any means, or attempts to
recruit, entice, harbor, transport, provide or obtain by any means, another person, intending or knowing that such
person will be subjected to forced services; or (ii) benents, nnancially or by receiving anything of value, as a result
of a violation of clause.
Organ trafcking: Whoever: (i) recruits, entices, harbors, transports, delivers or obtains by any means, another
person, intending or knowing that an organ, tissue or other body part of such person will be removed for sale,
against such persons will; or (ii) knowingly receives anything of value, directly or indirectly as a result of a
violation of clause.
Other relevant terms:
Commercial sexual activity, any sexual act on account of which anything of value is given, promised to or
received by any person.
Financial harm, a detrimental position in relation to wealth, property or other monetary benents that occurs as
a result of another persons illegal act including, but not limited to, extortion under by section 25, a violation of
section 49 of chapter 271 or illegal employment contracts.
"Forced services", services performed or provided by a person that are obtained or maintained by another person
who: (i) causes or threatens to cause serious harm to any person; (ii) physically restrains or threatens to physically
restrain another person; (iii) abuses or threatens to abuse the law or legal process; (iv) knowingly destroys, conceals,
removes, connscates or possesses any actual or purported passport or other immigration document, or any other
actual or purported government identincation document, of another person; (v) engages in extortion under section
25; or (vi) causes or threatens to cause nnancial harm to any person.
"Services", acts performed by a person under the supervision of or for the benent of another including, but not
limited to, commercial sexual activity and sexually-explicit performances.
Sexually-explicit performance, an unlawful live or public act or show intended to arouse or satisfy the sexual
desires or appeal to the prurient interests of patrons.
76 Appendix G
APPENDIX H: DATA COLLECTION AND INFORMATION SHARING - ITEMS FOR
CONSIDERATION
Te Data Collection and Information Sharing subcommittee recommends the following guiding principles for the
District Attorneys Omces Multidisciplinary Teams.
Guiding principles
i. Te subcommittee agreed that the basic principles of a case coordinator and multidisciplinary team
approach should be recommended for both adults and minors.
ii. Case coordinators and multi-disciplinary teams could be located within each county or within regions
across the state. Te subcommittee agreed that a statewide coordinator and multi-disciplinary team would
be too onerous.
Note: Tere are examples of multidisciplinary information sharing/review processes in the state that
could guide this model. Te child fatality review team utilizes multidisciplinary model Legislature
gives authority to DAs to compile information from medical examiner, medical nles, service provider
records and case/government agency records for review by the review team. Te legislature also grants
team members access to review this information covered under the Health Insurance Portability &
Accountability Act of 1996, also known as HIPAA.
68
iii. Tere was some disagreement about where the case coordinator should be located. Tere were positive
and negative aspects to locating the case coordinator with in the county District Attorneys omce. It might
also be possible to house human tramcking case coordinators out of the Massachusetts Omce for Victim
Assistance.
iv. Te subcommittee discussed whether a single coordinator could handle both adult and minor cases. Tere
are benents to someone who understands all types of tramcking and is holistic in their approach. But the
volume of cases could become overwhelming in some counties or regions and the law is dinerent between
adults and minors so dinerent areas of specialization might be needed.
v. It is essential that each case coordinator is connected to both state and federal partners and victim service
providers and has positive working relationships with all partners.
vi. Te subcommittee recognized that it may be necessary for the case coordinator to vet referrals before being
sent to the multidisciplinary team, but recognized that vetting comes with challenges that necessitate a
high level of skill for each case coordinator.
vii. For both adults and minors a multi-disciplinary team approach requires multiple law enforcement and
victim service providers to work together as a team. Te multidisciplinary team would need to agree on
what the goals are for cases generally and for individual cases.
viii. While some models for the case coordinator and multi-disciplinary team exist in Massachusetts,
most agencies do not have experience working collaboratively on human tramcking. As a result,
the subcommittee recommends that model with associated referral systems and data collection and
information sharing be piloted in one county, with evaluation and reassessment before being established
statewide.
68 Health Insurance Portability & Accountability Act of 1996, Pub. L. No. 104191, 110 Stat 1936
Appendix H 77
In addition to identifying who should be involved in the process and what information should be collected, the
subcommittee also identined some potential challenges to the data collection processes:
a. We must strike a balance between having enough information in the system to make it useful and
protecting the conndentiality of victim information and information about ongoing investigations. More
clarity is needed about how information in the system will be used. All users and those who may have
data on their experiences entered into the system must understand how that data will be used by various
agencies/organizations and how that data will not be used.
b. Information on human tramcking will likely have to be entered twice. Most agencies and service
provider have their own internal records management or case management systems. A new system would
require them to enter this information a second time. Tere would have to be a benent of entering this
information into a shared system. Te group was interested in the possibility that some information could
be automatically populated from existing data systems. For example, DCF currently allows for limited
access to their system that is conditional around service provision.
c. It is easier to share data on children. Te 51A process mandates nling information with the understanding
of the fact that this information will be reviewed and shared where appropriate. Adults generally must
consent to have their data shared or entered into a system used by multiple agencies or organizations.
d. Tere are connicting needs regarding victim/suspect identincation the need to keep victim identincation
and information about ongoing investigations conndential and the need to include names in an
information sharing system to make it operationally useful. Members of the subcommittee raised concern
about information in the data collection system or information sharing process being discoverable in legal
proceedings. Law enforcement generally tries not to know what specinc services victims are receiving to
prevent information about victim mental or physical health or history unnecessarily entering the court
process.
e. Tere are challenges recording information about exploited immigrant populations. For example, it would
be potentially helpful to have information on immigration status (this may determine types of services
available and protections needed from law enforcement) but this information puts victims at risk and they
may be less likely to come forward if they know that information would be entered in a shared database.
Law enforcement agencies throughout the state operate with dinerent rules about recording immigration
status of victims or onenders. Te subcommittee raised concerns about ICE/HSI having access to
immigration status information about potential victims.
f. It is extremely unlikely that federal law enforcement partners would agree (or get permission) to enter
information about ongoing investigations (or closed investigations) in a state information sharing database.
Federal agencies did express interest in having the ability to access information about human tramcking
that is collected by state and local agencies and organizations.
g. Trust and strong working relationship among those who will potentially have access to information in the
data sharing system is critical.
h. Some agencies may not be willing to participate. Getting agreement to share information across multiple
partners including victim service providers, local law enforcement and federal law enforcement will be very
challenging. Law enforcement will have particular concerns about sharing any information that involves
an ongoing investigation or intelligence on a criminal enterprise.
i. Information technology departments within participating agencies would have to participate in
conversation about the development of the system but they would not likely be able to develop or manage
the system themselves.
j. Need expertise of organizations with experience working with government agencies to develop a request
78 Appendix H
for proposals that document what the state would want a vendor to do in creating an information sharing
system. Experts would need to be well versed in the issues related to federal and state laws governing
information in an intelligence sharing system (e.g. 28 CFR part 23). Possible that the system will need
to meet National Crime Information Service Standards (e.g. every terminal that has access to the data
has to meet security standards to access the information, standards about records schedule for pursing and
accessing information). It might be possible to work with the state Fusion center to help coordinate the
development of a human tramcking data system.
k. Building a system with the appropriate security controls to convince people to enter data will be expensive.
l. A data collection system or database program can only be successful when those who enter information
into the system agree to a process for routinely and systematically entering and updating the data. Data
collection systems fail despite sophisticated designs because those who utilize the system do not regularly
enter and update data. Te data collection and information sharing process should support and enhance
existing agency operations and activities.
m. Te subcommittee did not identify any existing platforms for data collection that could be modined to
collect data on human tramcking from government and non-government agencies statewide. As a result,
the development of a data collection and information sharing system will likely be costly.
Appendix H 79
80
APPENDIX I: DATA COLLECTION AND INFORMATION SHARING SYSTEM
CONSIDERATIONS
Guiding principles
Te subcommittee identined a series of principles to help guide the development of a data collection and
information sharing system. Te system should:
a. Collect information for victims and suspects into a single system though access to victim or suspect
information might be restricted by user or user groups. Previous data collection enorts in the
Commonwealth have been plagued by the problem of victims being recorded in multiple systems with no
way to determine the extent of double counting.
b. Have a look up system so you could see if a person was already in the system.
c. Have access controls over specinc data nelds so that information can remain protected or conndential
when needed. Who enters data and who has access to view data are two separate questions.
d. Include the ability to enter information about persons who are at risk for tramcking that could be kept
separate and information de-identined. Service providers may want to collect and track some basic
information about this population but may not want this information shared with law enforcement. Law
enforcement may have similar interest in ongoing investigations where victims or suspects have not been
identined or tramcking connrmed.
e. Limit system access to a single individual within an agency or organization that has been properly trained
on the system requirements. Te subcommittee was concerned that too many users threaten the security
of the system, raises concerns about breeches of conndentiality, and may result in poor data quality. Te
person entering information should have sumcient knowledge of cases, clients or investigations to ensure
data entry is accurate and complete. Additionally, the responsibility of data entry should not distract a
professional from their regular duties. Tere was a recommendation from the group that the Victim-
Witness Advocate, mental health clinician or crime analyst within law enforcement may be the most
appropriate roles for human tramcking data entry.
f. Designate a person or agency (maybe within the AGs omce) to have access to oversee access and use of the
system. Tis person would likely need to have the capacity to view all the information in the system.
g. Restrict access within each agency/organization that reports information into the system to a single person
who has been trained to enter information and follow appropriate security controls.
h. Allow information to be shared even in situations where federal law enforcement are involved. Tis is will
require agreements from federal agency leadership.
i. Be accompanied by protocols that are informed by appropriate statute and legislation concerning
information sharing to guide data collection and information sharing. Protocols should comprehensively
outline the conndentiality controls and regulations for the data entry and information sharing.
j. In most municipal law enforcement agencies in the Commonwealth, IT omcers can make changes to
internal records management systems to add nelds to capture information about human tramcking.
Appendix I 81
Potential Data Fields
Person information
First and last name of victim or suspect (protected information, names could be replaced with unique
identiners in the system)
Home address/city
Basic information about victim or suspect
Age range (classincation as juvenile or adult)
Gender
Race
Citizenship (collected in federal systems but may not be needed in state system)
Custody status for children
Abuse/trauma history
Criminal history
Gang amliation
School/work amliation
Indicators of substance abuse
Involvement with DYS, DCF, other government agencies
Indication of how person was identined
Arrest been made
Date
Arresting agency
Bail status
Arrest charge
Prosecution status, charges, adjudication, sentence
Narrative about victim or suspect information such as risk factors, history of running away,
aliases, known associates
Indication of types of services provided or needed
Incident or characteristics of the victimization information
Date, time and location of incident or victim identincation
Location of incident or victim identincation
Type of tramcking involved
Sex
Labor
Characteristics of the tramcking/exploitation
Recruitment
Movement
Type of exploitation
Narrative
Agencies involved
82 Appendix I
APPENDIX J: PUBLIC AWARENESS
Below are additional details on campaign platforms:
Out of the Box Vehicles: Develop inexpensive message delivery, such as a coaster or napkin to be used
in restaurants, bars, and other establishments that feature a vignette of a tramcking victim, criminal
consequences and the hotline.
Website URLs: As we know, tramcking has gone online. In order to reach tramckers and victims, our
campaigns need to as well.
Commonwealth Blogosphere: Write blog posts or newsletter entries from state agencies, legislative omces,
and executive omces to highlight the connection between anti-tramcking enorts and each omces work,
especially around awareness days, news coverage of the issue, and legislative milestones.
Public Notices (Print): Collaborate with the MA Department of Labor Standards to encourage employers
to post the U.S. Department of Homeland Securitys Blue Campaign and/or the U.S. Administration for
Children and Families Rescue & Restore Campaign notices. Collaborate with appropriate government
agencies to encourage public spaces such as hotels, restaurants, bars, hospitals, massage parlors, nail salons,
and other to post and distribute said materials. Partner with Truckers Against Tramcking to display
materials at roadway check points, truck stops, and rest stops.
Cost Estimate: In order to provide the legislature with insight into the cost of certain platforms, the
subcommittee has provided estimates for print notices on public transportation
MBTA Backlit Bus Shelters: $1,300 per space 4 weeks
MBTA Train cars: 60 cards: $4,600 per month
MBTA Station posters: $3,200
Public Notices (Audio & video): Collaborate with the Department of Transportation (MassDOT)
and other regional transit hubs and routes to identify required public service display times on highway
electronic billboards, Logan Airport displays, RMV waiting area displays, MBTA billboards, screens,
turnstiles, and audio announcements to broadcast Public Service Announcements (PSAs), digital, and
print ads. Partner with privately-owned and local public access TV stations to broadcast PSAs.
Cost Estimate: In order to provide the legislature with insight into the cost of certain platforms, the
subcommittee has provided estimates for public notices broadcast in the following ways:
Estimated Costs: Movie Teater (:30 spot, 20 screens in one cinema) $6,900
Zoned Cable TV (100 :30 spots per week, Boston coastal zone) $5,250 weekly
ClearChannel Billboards: $6,900 - $16,500 per month
Ethnic Media Outlets: Working with ethnic media outlets including print media, TV and radio to deliver
campaign message would allow us to reach a broader market.
Cost Estimate: In order to provide the legislature with insight into the cost of using ethnic media,
subcommittee has provided estimates for notices broadcast in the following ways:
Digital:
Tuboston.com (400k impressions) $5,000
Print
El Planeta (1/2 page), $853.00
El Mundo (Full Page), $750.00
Appendix J 83
Brazilian Times (Full Page) $ 500.00
Sampan News (Full Page), $550.00
Radio
Independent producers (30 sec spots), $ 50
La Mega (30 sec spot), $80
TV
Univision (On average 30 sec. spot), $150
Telemundo (On average 30 sec. spot), $150
Events: Creating or participating in events to promote the states enorts to combat human tramcking is
also another platform to consider. We recommend coordinating activities under the National Human
Tramcking Awareness Day in January or at strategic legislative milestones such as the Tramcking Victims
Protection Reauthorization Act (TVPRA).
Collaborations and Partnerships - We believe that to produce the most enective human tramcking
campaign, the state must create collaborations and partnerships with other organizations in an enort
to leverage resources. Te collaborations and partnerships the subcommittee examined and the
Task Force recommends include: sports and cultural institutions, spokespeople, corporations with
social representation, technology companies, colleges and universities, and grassroots & faith based
community outreach.
Sports and Cultural Institutions: Identify innovative fundraising and public awareness opportunities
such as proceeds from ticket sales at major and minor league, as well as amateur sports events; Identify
opportunities for material distribution and proceeds of ticket sales from concert halls, theaters, nlm
festivals, museums that have themes and performances that are relevant to human rights, migrant rights,
womens rights and workers rights.
Spokespeople: Identify local celebrities, elected omcials, faith and community leaders and media
personalities as ambassadors for the campaign, through appearances in PSAs, posters and events.
Corporate Social Responsibility: Promote responsible business through exploring a responsible business
guide with restaurant reviews or labor rights organizations similar to San Franciscos Dining With
Justice guide, and promote tools such as the Slavery Footprint and Made in a Free World and mobile apps
such as Free2Work and U.S. Department of Labors Eat Shop Sleep. Identify brand and values alignment
among companies and corporations to co-sponsor projects, public awareness events, and PSAs. Explore
ways to prevent tramcking through the Massachusetts Gaming Commission.
Technology Companies: Collaborate with technology nrms and initiatives such as the Microsoft Digital
Crimes Unit to research and disrupt how Johns search for victims online, and partner with search engines,
social media and other nrms meta-data analysis capability to display (pro-bono) advertisements of John
schools, and enforcement messages through search results and web advertising.
Colleges and Universities: Explore opportunities to partner with the tens of thousands of students
throughout the 110 colleges and universities in Massachusetts on research, awareness campaigns and the
schools communications channels. A curriculum exists which is already neld-tested and developed by
the UNICEF End Tramcking Campaign for middle- and high-school teachers to educate students about
modern-day slavery at home and across the globe. Explore collaboration with the Education & Training
Subcommittees enorts and training for social studies and health teachers via public school meetings or
professional development opportunities.
Grassroots Outreach & Faith-Based Community: Equip and mobilize grassroots organizations and
engage faith-based constituencies to spread the message and educate the public, especially in harder-to-
reach communities, foreign language audiences, and those for which mainstream media and broadband
internet access have limited reach.
84 Appendix J
APPENDIX K: SECONDARY PUBLIC AWARENESS RESEARCH FINDINGS SUMMARY
Campaign / Initiative Highlights Outcomes Takeaway for MA
Gay Men Domestic
Violence Prevention
(Massachusetts, 1999-
2001)
Statewide public awareness
plan (funded by the state
Dept. of Public Health at
$450,000 for three years);
extensive surveys for two
years prior to launch;
outreach package of videos
posters, t-shirts, press kits,
etc.
Tripled hotline calls,
considerable local and
national media coverage
Pro-bono consulting/
design, free ad-space on
MBTA $150,000 per year,
market research and strong
input throughout process
from key constituencies
Can you See It
LBGT DV Campaign
(Massachusetts, 2003)
Statewide outreach
informed by community-
based forums from
previous campaigns; face-
to-face outreach; MBTA
and print media ads
High pronle media
coverage; website received
20,000 hits per month;
activities spawned out
of campaign included
literature, community
forums, and professional
trainings; reached
measurable goals (number
of gay men who prioritized
DV as a top issue, self-
identincations of victims,
and volunteers/activists)
Sponsorships from
sports teams, pro-bono
consulting/design, well-
designed and used website
is key; activated and
partnered with on-the-
ground activists/volunteers
Sexual Assault Awareness
Campaign SAAM
(Massachusetts and
national, annual)
Prevention-focused,
resources for adults and
parents, strong branding
and materials (resource
CDs, media, social media,
PSAs, fact sheets, press
conferences)
Individual states track
success of campaign based
on collaborate events,
reach fund-raising goals,
hotline calls, and hits on
website
Coordinated with national
campaign, full time stan
+ benents and funding for
materials totaled $68,000
per year
Dear John Campaign
(Atlanta, 2006)
Strong presence and
leadership by Mayor
Shirley Franklin; built-in
study commissioned in
2005; very high pronle
launch
Emmy award-winning
PSA; Fund-raised
$100,000 2 years after
launch to extend the
campaign; free network
time for PSAs, local non-
pront nooded with phone
calls from volunteers, Dear
John campaign spread to
other states
Leadership + personal
story from omcial; strong
partnerships with providers
and media; fundraising
component; timing was
ripe in the aftermath of the
Boy Scouts sexual abuse
scandal
Appendix K 85
Polaris Project (nation-
wide, ongoing)
Emphasis on helping
victims, enhance anti-
tramcking laws and
building partnerships; 10
year report concludes that
work still needs to be done
in unmasking the realities
of tramcking and correct
misconceptions
Provided resources
for many activists and
campaigns, organized
public marches and lobby
days; increased usage of
website and hotline;
Onered technical
assistance and consulting
to review public awareness
campaigns; data-gathering
mechanism of hotline to
track campaign emcacy;
the importance of knowing
and targeting audience;
innovations - coasters at
Texas bars and restaurants
with vignette and hotline
#; strong social media
usage; two-way links for
website
NYC End Human
Trafcking (Five
Boroughs, ongoing)
Lead by Mayors omce,
with funding for NGOs
and service providers
Strong local media
engagement; Polaris
hotline results pending
Stand-alone website that
also has strong branding
with the Mayors Omce
and easily sharable
resources
End Demand Voices
and Faces Project
(Illinois, ongoing)
Emphasis on targeting
buyers and consumers;
challenge public attitudes
about sexual exploitation
(Te Ugly Truth, Te
Prostitution Myth);
focused on major metro
areas; posters on all transit
modes and hubs
Report on results pending Very balanced messaging
and tone; $950,000 cost,
including in-kind media;
onered assistance with
designing campaign
Maria Talks
(Massachusetts, 2008-
2010)
Partnership between AIDS
Action Committee and
Dept. of Public Health to
create website containing
medically accurate info
about sexuality for teens;
Funding for 2008-2011
averaged $140,000/year
High usage of website,
although some might not
be youth but opponents of
public sexual education
Strong marketing and
social media presence
and collateral marketing
materials; training for
stakeholders to use the
materials
San Jose / CA Taskforce
(ongoing)
Targeted potential nrst
responder/report; created
info-cards for potential
victims (especially in the
agricultural/fruit sales
industry); translated
materials in key languages;
in-person trainings/human
billboards; nlm screenings
Active partnerships with
Stanford University
Hospital, trainings
conducted for ER stan;
ongoing and engaged
grassroots groups
Translated materials and
info-cards for potential
victims; enective use
of materials and nlm
screenings; received
funding from CA and
federal grants; local
partners (faith, NGOs)
linked to website
86 Appendix K
DC Taskforce /
Washington Nationals
(ongoing)
Strong partnerships
between law enforcement
and NGOs; emphasis
on identifying domestic
and foreign-born victims
for both sex and labor
tramcking to increase
services and prosecution
Integration with MLB
games as public outreach
opportunities (i.e. nrst
pitch, 7th inning stretch);
collaboration with DC
Taxi Commissioner to
display stickers in cabs;
ads displayed in public
transit; started partnership
with selected hotel chains;
coverage by NPR
Funded from ticket
sales (via taskforce) and
benefactor; private-public
partnerships; timed
activities around legislative
milestones
DHS Blue Campaign
(nation-wide, ongoing)
Strong message and
branding with messages
catered for dinerence
audiences/partners;
separate hotline for law
enforcement, Polaris # for
general public
Ongoing engagement
with stakeholders to track
enectiveness and seek
feedback; partnership with
Dept. of Transportation
and Amtrak
Free toolkits and notices
for workplaces
USA Fund for UNICEF
Emphasis on child
tramcking; new enort
to raise awareness about
domestic issues; strong
branding and media kit;
wide reach and recognition
National results and local
observations pending
Develop similar
infographic and fact-sheet,
utilize nlm screenings as
way to engage activists
and the general public;
middle and high school
curriculum
ACF Rescue & Restore
Emphasis on public
education: look beneath
the surface; focus on
victim identincation
Usage of materials from a
variety of partners
Free translated materials
available that targets
general public and victims;
strong connection to
victims identincation and
services;
California Taskforce
(2012)
Supply chain monitoring
embedded in CA law;
eliminating force labor
from state contractors;
strong public-private
partnerships
Collaboration with
Microsoft to disrupt online
activities of tramckers;
foundation and academic
support
Consumer awareness
websites and mobile apps
(i.e. Slavery Footprint,
Eat Shop Sleep App;
alignment with state labor
laws and procurements;
utilize partnerships and
internet technology
Truckers Against
Trafcking (nation-wide,
ongoing)
Decal on many trucks
directing victims and
drivers to hotline; specinc
reach into hard-to-reach
areas; training videos for
truckers and general public
Strong partnership
with local networks
and recognition by the
U.S. Department of
Transportation.
Relatively low cost for
well-used print materials
(i.e. $2,000 for 100,000
wallet cards); training
video cost $50,000
Appendix K 87
San Francisco End
Wage Teft (ongoing)
Strengthen enforcement
among agencies; support
and promote responsible
business practices
Published revised Dining
with Justice guide after
strong demand for 1st
edition; City-ordinances
Incentivize responsible
labor practices; labor-
focused prevention and
empowerment or workers
My Life My Choice
(2011)
Victim- and community-
informed and well-
designed posters; pro-
bono design from Corey;
designed to attract youth;
displayed on specinc
MBTA routes
A large response from
concerned parents and
from girls who were
victims themselves;
increased referrals from
nrst responders and
educators; spawned
partnership with Mass.
Housing
Survivor-informed,
audience-tested and
community-driven
approach; social-
services and government
partnerships
Not for Sale MA / MA
Freedom Network
(ongoing)
Grassroots campaigns
and public awareness
events (Freeze, Boston
Marathon, forums) to
discuss the usage of
language, empowering
individuals and groups to
create counter-tramcking
networks
Committed network of
activists from all walks
of life; strong showing at
events (freedom walks,
nash mobs); growing
newsletter and social
media engagement
Activate boots on the
ground; enective and
timely public events;
engaging network of
activists and stakeholders
that builds leadership
and citizen-led activities
to equip the public to
understand signs of
tramcking and spread the
word
ARGUS Projects (Drunk
Driving, anti-tobacco,
seatbelts, DV
Range from strong
enforcement and
behavioral change (drive
drunk, get busted;
click it or ticket) to
very culturally-sensitive
materials (Punch &
Scratch campaign in 13
languages), to innovative
approaches to counter
norms (Big Tobacco
Carnival of Tricks)
600 individuals signed to
oppose tobacco industry
in one day; driving
behavior results pending;
partnership with law
enforcement re: DV
by passing out cards to
providers and victims
Innovative approaches,
strong buy-in from law
enforcement, culturally-
sensitive
Existing Massachusetts
workplace notices and
public spaces
Under law, only a certain
set of notices of required;
MBTA and Highways have
available space and PSA
requirements/protocols
High-exposure via key
transportation hubs and
routes
Utilize PSA requirements
in E-billboards (20
seconds), RMV
screen-time, MBTA
and regional transit
hub ad space; identify
private-partnership in
development/delivery of
PSAs; partner with local
TV/Radio stations
88 Appendix K
APPENDIX L: LEGISLATIVE LANGUAGE
SECTION 31. (a) Tere shall be an interagency Task Force to address all aspects of human tramcking, including
sex tramcking and labor tramcking. Te Task Force shall consist of the attorney general or the attorney generals
designee, who shall serve as the chair, the colonel of state police or the colonels designee, a representative of the
Massachusetts police chiefs association, a representative of the Massachusetts district attorneys association, the
commissioner of the Boston police department or the commissioners designee, the director of the division of
professional licensure or the directors designee, a representative of the Massachusetts omce for victim assistance,
the director of the department of labor standards or the directors designee, the commissioner of the department
of children and families or the commissioners designee, the secretary of the executive omce of public safety or the
secretarys designee, the commissioner of the omce of probation or the commissioners designee; a representative
of a group dedicated to immigrant and refugee issues appointed by the governor; a representative of a group
dedicated to the prevention of violence against women appointed by the governor; a representative of an entity
dedicated to prevention of and intervention in the tramcking of children appointed by the governor; a survivor of
human tramcking appointed by the governor; a human tramcking attorney appointed by the governor; a human
tramcking caseworker appointed by the governor; a mental health professional appointed by the governor and a
university researcher with a background in human tramcking appointed by the governor.
(b) Subject to appropriation, the Task Force shall:
(i) coordinate the collection and sharing of human tramcking data among government agencies; provided,
however, that such data collection shall respect the privacy of victims of human tramcking; coordinate
strategies and make recommendations for law enforcement to share information for the purposes of detecting
individuals and groups engaged in human tramcking;
(ii) review and recommend policies and procedures to enable state government to work with non-
governmental organizations and other elements of civil society to prevent human tramcking and to protect and
provide assistance to victims of tramcking;
(iii) identify and review the existing services and facilities that meet the needs of victims of human tramcking
including, but not limited to, health and mental health services, housing, education and job training, legal
services and victim compensation;
(iv) evaluate approaches to increase public awareness of human tramcking and oner recommendations
for programs and educational and training opportunities for law enforcement and social service providers
including, but not limited to, methods used to identify human tramcking victims including preliminary
interviewing and questioning techniques, methods of protecting the special needs of women and child human
tramcking victims, developments in state and federal laws regarding human tramcking and methods to
increase enective collaboration between state and local agencies, law enforcement, social service providers and
non-governmental organizations;
(v) examine ways to curtail the demand side of tramcking such as self-sustaining nrst onender diversion
programs;
(vi) examine the costs associated with establishing a safe house pilot program for adult and child victims of
human tramcking and identify public and private funding sources that may be used to develop and implement
a safe house pilot program;
Appendix L 89
(vii) examine cost-enective notices, announcements or advertisements that may be displayed in public places,
such as airports, train stations, bus stations, hotels, massage parlors, spas, strip clubs and other sexually-
oriented businesses providing information relating to services for human tramcking victims;
(viii) recommend strategy and relevant methodologies for training providers in health and human services in
the recognition of signs and circumstances indicating that an individual is the victim of human tramcking and
the appropriate steps to report the individual to the appropriate law enforcement personnel or agencies;
(ix) recommend ways to develop and promulgate educational materials and health curricula that may be used
by school administrators and educators to identify human tramcking victims and the appropriate actions to
be undertaken when such victims are identined and to educate school omcials as to the scope and magnitude
of human tramcking in the nation and the commonwealth including, but not limited to, how to prevent it
and developing a parent guide and teacher training material on internet safety and methods of preventing the
exploitation of minors over the internet; and
(x) submit a report of its nndings and recommendations to the clerks of the senate and the house of
representatives who shall forward the report to the chairs of the joint committee on the judiciary not later
than 18 months after the enective date of this act. Te Task Force shall determine if subsequent reports are
necessary in order to properly address human tramcking.
90 Appendix L
APPENDIX M: SHORT, MID, AND LONG TERM GOALS
Te following are a list of short, mid, and long term goals for Massachusetts with regards to addressing human
tramcking.
Victim Services
Short Term
1. A plan to increase funding for victim services moving forward both in the private and public sector
2. A group convened to implement pilot safe houses or homes in Massachusetts
3. Safe house capacity for nve tramcking victims
Mid Term
1. Appropriate regulations to allow for victims to be eligible for services
2. A public-private partnership to support safe houses
3. A clear understanding by victim service providers about what services are most enective in meeting the
needs of victims
Long Term
1. A funded comprehensive set of services for victims of human tramcking
Demand Reduction
Short Term
1. A state wide technical assistance team identined to assist municipal police departments in in-person and
technical reverse stings and a plan to make police departments aware of their existence
2. A state agency identined to manage the roll out of a statewide nrst onender program
Mid Term
1. A clear understanding by municipal police departments about the resources available to them through
the technical assistance program, the role demand plays in human tramcking, and the importance of
asset forfeiture and arresting onenders for the appropriate crime
2. Statewide nrst onender program availability
3. An equal number of arrests between sex buyers and sellers
4. Demand reduction enorts integrated into all anti-tramcking strategies
Long Term
1. A pervasive public understanding of how the buying of sex supports human tramcking and the damage
tramcking does to its victims and society
2. A model technical assistance program for reverse stings
3. A model nrst onender program
Appendix M 91
Short Term
1. A standard dennition of human tramcking to be used to support data collection and victim services
2. Necessary members of the District Attorneys Omces (DAO) multidisciplinary team (MDT) pilots
identined and developed working protocols for each
3. A plan for the dissemination of the victim screen tool and protocol
4. A process for the DAO MDTs to share information with each other about their protocols
Mid Term
1. A process for collecting, storing, and analyzing state-wide tramcking data
2. Clear protocols on interrogation versus screening and how to share data across jurisdictions
3. A budget for the data collection software and storage program
4. An RFP plan for the data collection software
5. Identined and dedicated funding for the software project
6. A plan to train all relevant parties in the data collection process
Long Term
1. A pervasive understanding of what a human tramcking victim is, how to screen for it, and who to
contact when there is suspicion of a problem, and where to send the data
2. A model set of data collection and information sharing protocols and the software to support them
Schools
Short Term
1. Identined providers for internet safety training/who is responsible for developing parent guide
2. Identined trainers for teachers
3. A clear understanding of which stan needs to know what about tramcking
4. A dedicated and stable budget for the program
Mid Term
1. A comprehensive and enective training plan for school stan and students
2. Parent guide material onered to all parents in the public school system
Long Term
1. School personnel who understand how to keep students safe from tramckers and who to refer to when
tramcking is suspected
2. Students who understand the impact of the sex industry and how to keep themselves safe
92 Appendix M
Law Enforcement
Short Term
1. A law enforcement training plan
2. Identined stan that needs to be trained and what that training will entail
3. A training budget
4. An established protocol for interrogations versus screenings
Mid Term
1. A comprehensive training program for all new and existing members of law enforcement
2. A dedicated and stable budget for trainings
Long Term
By the end of nve years, Massachusetts should have:
1. A law enforcement well educated in the signs of tramcking, how to investigate for tramcking, and how to
conduct reverse stings.
Medical and Social Services Providers
Short Term
1. A nnal list of all personnel (hospitals /services) that would attend trainings
2. Identined trainers
3. Training budget
4. Established protocol for tending to victims in hospitals and social services organizations
5. A plan in place to educate medical and social services providers
Mid Term
1. An implemented training plan
2. Human tramcking information incorporated into all appropriate existing trainings
3. Cultivated in house champions for at least half of Massachusetts hospitals
Long Term
1. A hospital and social service workforce who understands what tramcking is and how to address the issue
2. A dedicated and stable source of funding for continuing training
Appendix M 93
Public Awareness
Short Term
1. An agency responsible for the website portal and public awareness campaign
2. A work now plan for call referrals for the national toll-free telephone number
3. An immediate and short term human tramcking information website
4. A plan for what data should be on the site and the scope of its abilities
5. An RFP process for the designer/host of the website
6. A budget for the site and dedicating funding to support it over nve years
7. A nve year plan to increase the publics understanding of what tramcking is and to increase the number
of victims identined
8. A list of potential partners for the campaign
Mid Term
1. A dedicated human tramcking website (like the one NY has) with high tramc that is incorporated into
trainings and public awareness campaigns
2. A process in place whereby the public and donate money to the victims trust fund via the site
3. Dedicated funding for a pilot plug and play campaign
4. A plug and play campaign disseminated on a pilot basis with measurement for the call to action
5. An RFP pro bono process drafted and deployed that engages an advertising company to create, manage,
and measure the success of the campaign
Long Term
1. A model tramcking website and public awareness campaign
2. A strong public knowledge base about what tramcking is and how they can help address the problem
94 Appendix M
APPENDIX N: SUBCOMMITTEE MEMBERSHIP
Victim Services
Co-Chairs:
Julie Dahlstom, Lutheran Social Services and Boston University School of Law Human Tramcking Clinic
Liam Lowney, Massachusetts Omce for Victim Assistance
Audrey Morrissey, My Life My Choice
Members:
Stephanie Decandia, Boston Area Rape Crisis Center
Cherie Jimenez, Te E.V.A. Center
Tom King, Massachusetts Childrens Alliance
Joe McKown, National Center on Time and Learning
Steven Procopio, JRI Health and Boston GLASS
Demand Reduction
Co-Chairs:
Sheridan Haines, Executive Omce of Public Safety
Lina Nealon, Demand Abolition
Members:
Maureen Casey, Spectrum Health Systems
Ellen Slaney and Diane Richard, Department of Probation
Michael Shively, Abt Associates
Co-Chairs:
Lisa Goldblatt Grace, My Life My Choice
Ellen Lemire, Sunolk County District Attorneys Omce and Geline Williams, Massachusetts District
Attorneys Association
Members:
Lieutenants Pi Heseltine and Mary McCauley, Mass State Police
Deputy Superintendent Kelly Nee, Boston Police
Anne Sheetz, Department of Public Health School Nursing
Appendix N 95
Co-Chairs:
Amy Farrell, Northeastern University
Chief Tom Pasquarello, Somerville Police Department
Members:
Lori Ann Bertram, Department of Children and Family Services
David Carabin, Boston Regional Information Center
Chris Carroll, Division of Professional Licensure
Mike Coelho, Executive Omce of Public Safety and Security
Susan Goldfarb, Childrens Advocacy Center
Public Awareness
Co-Chairs:
Brian Henron, Conover Tuttle Pace
Josiane Martinez, Omce for Refugees & Immigrants
Members
Linda Brown, Department of Public Health
Lucas Guerra, ARGUS
Javier Marin, El Planeta / MasTV
Heather Rowe, Department of Labor Standards
Franklin Soults, Massachusetts Immigration and Refugee Advocacy Coalition
Te Task Force thanks Corinn Nelson, Catherine Choi, Maeve Dawley, Sarah Margolis, Brittney Rizo, and Sam
Tsoi for their work on this report.
96 Appendix N
97
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