Promising Practices in Counter-trafficking Programming in North Africa, Mauritania and the Niger (2025)-HC=1.pdf

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RDPP NA Consortium REGIONAL LEARNING NOTE Promising Practices in Counter-trafficking Programming in North Africa, Mauritania and the NigerThe opinions expressed in the report are those of the authors and do not necessarily reflect the views of the International Organization for Migration (IOM). The designations employed and the presentation of material throughout the report do not imply expression of any opinion whatsoever on the part of IOM concerning legal status of any country, territory, city or area, or of its authorities, or concerning its frontiers or boundaries. IOM is committed to the principle that humane and orderly migration benefits migrants and society. As an intergovernmental organization, IOM acts with its partners in the international community to: assist in meeting the operational challenges of migration; advance understanding of migration issues; encourage social and economic development through migration; and uphold the human dignity and well‑being of migrants. _____________________________ This project has been funded with support from the European Commission. The content of this report represents the views of the author only and is his/her sole responsibility. The European Commission does not accept any responsibility for use that may be made of the information it contains..

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Cover photo: Salma, 34, beneficiary of the reintegration programme: “Only work pays”. Those who have failed their reintegration project are either unaware of how lucky they are, or lazy. You have to get involved with 2000 per cent because it is

This publication was issued without formal editing by IOM.

Cover photo: Salma, 34, beneficiary of the reintegration programme: “Only work pays”. Those who have failed their reintegration project are either unaware of how lucky they are, or lazy. You have to get involved with 2000 per cent because it is your project and the only way to rebuild. © IOM 2018/Sibylle DESJARDINS Required citation: Davy, D. (2005). Promising Practices in Counter-trafficking Programming in North Africa, Mauritania and the Niger.

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RDPP NA Consortium REGIONAL LEARNING NOTE Promising Practices in Counter-trafficking Programming in North Africa, Mauritania and the NigerACKNOWLEDGEMENTS Production team The note was prepared by Deanna Davy (Regional consultant). Editors Rawaa Ahmed, Eva Pons, Laila Ziad and Lobna Nahla. Reviewers The team extends its gratitude to all IOM Headquarters, the Regional Offices for the Middle East and North Africa and the Regional Office for West and Central Africa, the MENA and Dakar Country Offices, along with the relevant government and non‑governmental organizations and

Reviewers The team extends its gratitude to all IOM Headquarters, the Regional Offices for the Middle East and North Africa and the Regional Office for West and Central Africa, the MENA and Dakar Country Offices, along with the relevant government and non‑governmental organizations and individuals who supported the development of this note. Design, layout and review Publications Unitiii

REGIONAL LEARNING NOTE: PROMISING PRACTICES IN COUNTER-TRAFFICKING

PROGRAMMING IN NORTH AFRICA, MAURITANIA AND THE NIGER CONTENTS Acknowledgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ii Glossary of key terms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . v List of acronyms and abbreviations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . viii Executive summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ix Safe and preliminary victim identification .................................... x Safe referral and formal victim identification ................................. x Assistance and protection ............................................... xi Long‑term and sustainable solutions ....................................... xii Section 1: Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 Overview of trafficking in persons in Nor th Africa and along key migration routes ............................................ 1 Focus of the learning note ................................................ 4

Overview of trafficking in persons in Nor th Africa and along key migration routes ............................................ 1 Focus of the learning note ................................................ 4 Structure of the learning note ............................................. 4 Section 2: Approach and method . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 Aim and objectives of the note ............................................ 7 Methodology and data analysis ............................................ 7 Desk review ........................................................ 7 Semi‑structured interviews with counter‑trafficking actors .................. 8 Limitations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 Section 3: Promising practices and lessons learned in safe and preliminary victim identification . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11 Introduction .......................................................... 11 Awareness‑raising with communities for increasing knowledge and awareness regarding trafficking in persons indicators .................................. 12 Hotlines for reporting suspected trafficking in persons cases .................. 15 Capacity‑building of front‑line officials to strengthen preliminary identification procedures ........................................................... 16 Recommendations ..................................................... 18iv CONTENTS Section 4: Promising practices and lessons learned in safe referral and formal identification . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21 Introduction .......................................................... 21 Clear appointment of identification responsibilities and procedures within the

identification . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21 Introduction .......................................................... 21 Clear appointment of identification responsibilities and procedures within the national referral mechanism. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22 Designation of lead entities responsible for formal victim identification ......... 24 Standardized victim screening tools for strengthening victim identification processes ............................................................. 25 Recommendations ..................................................... 26 Section 5: Promising practices and lessons learned in assistance and protection . . . . . 29 Introduction .......................................................... 30 National referral mechanisms for streamlining and strengthening service provision and monitoring protection responses ...................... 30 Risk assessments for identifying and mitigating risks to victims ................. 32 Specialized, survivor‑centred case management for ensuring comprehensive and quality care ....................................................... 33 Specialized shelters for victims ........................................... 35 Alternative care arrangements for those who can’t be accommodated in shelters or no shelter is available ....................................... 37 Legal aid for supporting victims’ access to justice ............................ 39 Assistance and protection coordination mechanisms for strengthening cooperation on victim protection ......................................... 39 Recommendations ..................................................... 42 Section 6: Promising practices and lessons learned in long‑term and sustainable solutions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45 Introduction .......................................................... 45 Best interests procedure for child trafficking victims .......................... 46 Livelihood skills training for ensuring sustainable livelihoods ................... 47 Cooperation of counter‑trafficking actors on long‑term and sustainable solutions for survivors ..................................... 49 Recommendations ..................................................... 50

Introduction .......................................................... 45 Best interests procedure for child trafficking victims .......................... 46 Livelihood skills training for ensuring sustainable livelihoods ................... 47 Cooperation of counter‑trafficking actors on long‑term and sustainable solutions for survivors ..................................... 49 Recommendations ..................................................... 50 Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53v

REGIONAL LEARNING NOTE: PROMISING PRACTICES IN COUNTER-TRAFFICKING

PROGRAMMING IN NORTH AFRICA, MAURITANIA AND THE NIGER GLOSSARY OF KEY TERMS Country of destination In the migration context, a country that is the destination for a person or a group of persons, irrespective of whether they migrate regularly or irr egularly.1 Country of origin In the migration context, a country of nationality or of former habitual residence of a person or group of persons who have migrated abroad, irrespective of whether they migrate regularly or irregularly.2 Country of transit In the migration context, the country through which a person or a group of persons pass on any journey to the country of destination or from the country of destination to the country of origin or the country of habitual r esidence.3 Counter‑trafficking actor Counter‑trafficking actors can be understood as government agencies, non‑governmental organizations, or international organizations that play a role in trafficking in persons prevention, victim identification, victim assistance and protection, reintegration, repatriation, investigations or prosecutions. Evaluation The systematic and objective assessment of an ongoing or completed project, programme or policy, its design, implementation and results. The aim is to determine the relevance and fulfilment of objectives, development efficiency, effectiveness, coherence, impact and sustainability. 4 Intervention A single activity or combination of project components or strategies designed to “intervene” to prevent or resolve a problem among individuals or populations. Interventions aim to produce

of objectives, development efficiency, effectiveness, coherence, impact and sustainability. 4 Intervention A single activity or combination of project components or strategies designed to “intervene” to prevent or resolve a problem among individuals or populations. Interventions aim to produce change and may include, for example, education and training programmes to alter individual knowledge and action, the development of policy or legislation to foster more systemic changes, or the provision of funding and resources to facilitate change. While interventions can be implemented in a single setting, they can also be carried out across multiple settings and use multiple strategies (“complex interventions”); this is often the most effective way to deal with complex social problems such as trafficking in persons. 5 1 IOM, 2019. Glossary on Migration. International Migration Law, No. 34, Geneva. 2 Ibid. 3 Ibid. 4 Glossary of Key T erms in Evaluation and Results Based Management. Sida 2007 in cooperation with OECD/DAC. 5 IOM, 2023. The IOM Counter-Trafficking Theory of Change.vi GLOSSARY OF KEY TERMS Migrant in an irregular situation A person who moves or has moved across an international border and is not authorized to enter or to stay in a State pursuant to the law of that State and to international agreements to which that State is a party.6 Migrant An umbrella term, not defined under International Law, reflecting the common lay understanding of a person who moves away from his or her place of usual residence, whether within a country or across an international border, temporarily or permanently, and for a variety of reasons. The term includes a number of well‐defined legal categories of people, such as migrant workers; persons whose particular types of movements are legally defined, such as smuggled migrants; as well as those whose status or means of movement are not specifically defined under international law, such as international students. 7 Migration The movement of persons away from their place of usual residence, either across an international border or within a State.8 Monitoring An established practice of internal oversight that provides management with an early indication of progress, or lack thereof, in the achievement of results, in both operational and financial activities.9

Migration The movement of persons away from their place of usual residence, either across an international border or within a State.8 Monitoring An established practice of internal oversight that provides management with an early indication of progress, or lack thereof, in the achievement of results, in both operational and financial activities.9 Outcome An intended change in institutional performance, individual or group behaviour or attitudes, or in the political, economic, or social position of the beneficiaries. The project does not have full control over outcomes – it cannot guarantee their achievement – but it can influence them. Outcomes are reasonably expected to occur in the medium term after implementation. They typically refer to the application of newly acquired skills, products, or services. 10 Separated children Children, as defined in Article 1 of the Convention on the Rights of the Child, who have been separated from both parents, or from their previous legal or customary primary caregiver, but not necessarily from other relatives. These may, therefore, include children accompanied by other adult family members.11 6 IOM, 2019. Glossary on Migration. International Migration Law, No. 34, Geneva. 7 Ibid. 8 Ibid. 9 IOM, 2023. The IOM Counter-Trafficking Theory of Change. 10 Ibid. 11 Adapted from Committee on the Rights of the Child, General Comment No. 6: Treatment of Unaccompanied and Separated Children outside Their Country of Origin (1 September 2005). UN Doc CRC/GC/2005/6, para. 8.vii

REGIONAL LEARNING NOTE: PROMISING PRACTICES IN COUNTER-TRAFFICKING PROGRAMMING IN NORTH AFRICA, MAURITANIA AND THE NIGER Smuggling of migrants The procurement, in order to obtain, directly or indirectly, a financial or other material benefit, of the irregular entry of a person into a State Party of which the person is not a national or a permanent resident.12

Trafficking in persons The recruitment, transportation, transfer, harbouring or receipt of persons, by means of the threat or use of force or other forms of coercion, of abduction, of fraud, of deception, of the

permanent resident.12 Trafficking in persons The recruitment, transportation, transfer, harbouring or receipt of persons, by means of the threat or use of force or other forms of coercion, of abduction, of fraud, of deception, of the abuse of power or of a position of vulnerability or of the giving or receiving of payments or benefits to achieve the consent of a person having control over another person, for the purpose of exploitation. Exploitation shall include, at a minimum, the exploitation of the prostitution of others or other forms of sexual exploitation, forced labour or services, slavery or practices similar to slavery, servitude or the removal of organs. 13 Transnational referral mechanism A transnational referral mechanism (TRM) is “a co‑operative agreement for the cross‑border comprehensive assistance and/or transfer of identified or potential trafficked persons, through which State actors of different countries fulfil their obligations to promote and protect the human rights of trafficked persons”. 14 A TRM should be an operational framework linking the different stakeholders from two or more countries involved in identification, referral, assistance, repatriation and monitoring by defining clear roles for each stakeholder, along with procedures to follow, to ensure the protection of the victims’ human’s rights all along their reintegration path. Unaccompanied child Children, as defined in Article 1 of the Convention on the Right of the Child, who have been separated from both parents and other relatives and are not being cared for by an adult who, by law or custom, is responsible for doing so. 15 Vulnerability Within a migration context, vulnerability is the limited capacity to avoid, resist, cope with, or recover from harm. This limited capacity is the result of the unique interaction of individual, household, community and structural characteristics and conditions. 16 12 Adapted from Protocol against the Smuggling of Migrants by Land, Sea and Air, supplementing the United Nations Convention against Transnational Organized Crime ((adopted 15 November 2000, entered into force 28 January 2004) 2241 UNTS 507) Art. 3(a).

12 Adapted from Protocol against the Smuggling of Migrants by Land, Sea and Air, supplementing the United Nations Convention against Transnational Organized Crime ((adopted 15 November 2000, entered into force 28 January 2004) 2241 UNTS 507) Art. 3(a). 13 Protocol to Prevent, Suppress and Punish Trafficking in Persons, Especially Women and Children, Supplementing the United Nations Convention against Transnational Organized Crime (adopted 15 November 2000, entered into force 25 December 2003) 2237 UNTS 319, Art. 3(a). 14 OSCE, 2014. Guiding principles on human rights in the return of trafficked persons. 15 IOM, 2019. Glossary on Migration. International Migration Law, No. 34, Geneva. 16 Ibid.viii

GLOSSARY OF KEY TERMS

LIST OF ACRONYMS AND

ABBREVIATIONS

ILO | International Labour Organization IOM | International Organization for Migration KAP | knowledge, attitudes, and practices MoU | Memorandum of Understanding NAP | National Action Plan NGO | non‑governmental organization NRM | national referral mechanism RDPP | Regional Development and Protection Programme RSD | Refugee Status Determination SOP | Standard Operating Procedure SSI | semi structured interview T oT | Training of the trainer TRM | Transnational Referral Mechanism UNHCR | United Nations High Commissioner for Refugees UNICEF | United Nations Children’s Fund UNODC | United Nations Office on Drugs and CrimeEXECUTIVE SUMMARY This learning note explores just some of the promising practices in counter‑trafficking interventions currently occurring in North Africa and along key migration routes. The note explores promising practices across four key areas of counter‑trafficking programming: (1) safe and preliminary victim17 identification; (2) safe referral and formal identification; (3) assistance and protection; and (4) long‑term and sustainable solutions. Alongside the discussion of promising practices in each of these four sections, the note explores associated lessons learned, and provides recommendations to counter‑trafficking actors for strengthening the response to trafficking in persons.

(4) long‑term and sustainable solutions. Alongside the discussion of promising practices in each of these four sections, the note explores associated lessons learned, and provides recommendations to counter‑trafficking actors for strengthening the response to trafficking in persons. The note explores promising practices and lessons learned in the following countries in North Africa and along key migration routes: Algeria, Egypt, Libya, Mauritania, Morocco, the Niger, and Tunisia. Mauritania and the Niger are included in the note as they are two important countries in regional migration and trafficking in persons dynamics. The note explores promising practices and lessons learned at regional level, but also drills down to provide country‑level examples of promising practices. The practices and lessons learned discussed in the note were collected through 20 semi‑structured interviews (SSIs) with counter‑trafficking actors within government agencies, non‑governmental organizations (NGOs) and international organizations in North  Africa, Mauritania and the Niger in 2024. A limitation of the note is that few interventions that are explored in the document have been rigorously monitored and evaluated, thus it is difficult to provide evidence that the practices are leading to positive outcomes for victims. The practices that are discussed in the note are those that interviewees’ believe constitute promising practices because they are, for example, showing early signs of effectiveness, positive outcomes for victims, have potential for being sustainable, and so on. 17 The terms “victims” and “survivors” are used interchangeably in this note. When discussing victim identification, the term “victim” is used to reflect that victims have not yet been formally identified as such. In the section on long‑term and sustainable solutions the term “survivor” is mostly used to reflect that many victims have undergone a formal identification process.x ExECUTIvE SUMMARY It is anticipated that the learning note will be of interest to all counter‑trafficking actors in North  Africa and along key migration routes, including government agencies, international organizations, and NGOs, as well as private sector organizations and the donor community. By exploring promising practices in counter‑trafficking interventions, it is anticipated that

It is anticipated that the learning note will be of interest to all counter‑trafficking actors in North  Africa and along key migration routes, including government agencies, international organizations, and NGOs, as well as private sector organizations and the donor community. By exploring promising practices in counter‑trafficking interventions, it is anticipated that counter‑trafficking actors will be better positioned to adopt or scale such practices in their own countries, as well as identify areas for strengthening regional‑level cooperation on the trafficking in persons response, particularly victim assistance and protection, and long‑term solutions for victims. The note also aims to build on IOM’s counter‑trafficking theory of change by further exploring the implementation of promising practices in counter‑trafficking programming across the areas of victim identification; assistance and protection; and long‑term and sustainable solutions. Key promising practices and lessons learned identified in the note include: Safe and preliminary victim identification Promising practices: • Counter‑trafficking actors are conducting wide awareness‑raising and capacity‑building of communities and relevant agencies, in order to enhance knowledge and awareness of trafficking in persons, and strengthen preliminary victim identification. • Concurrently, dedicated hotlines for reporting suspected trafficking in persons cases have been developed, facilitating reporting from the public about possible trafficking cases. Lessons learned and recommendations: • There needs to be more involvement of community leaders and the lead national counter‑trafficking entity/ies in awareness‑raising sessions. • Counter‑trafficking actors should ensure that capacity‑building is regular and institutionalized; capacity‑building plans should be developed and regularly reviewed. • Counter‑trafficking actors in the target countries should increase efforts to conduct training of the trainer (T oT) sessions, to ensure sustainability in capacity‑building efforts. • Counter‑trafficking actors should ensure that awareness‑raising and capacity‑building activities are monitored and evaluated to measure desired changes in knowledge, attitudes and practices. Safe referral and formal victim identification Promising practices: • The development of national referral mechanisms (NRMs) and centralization of victim identification have greatly improved formal victim identification practices in North Africa

activities are monitored and evaluated to measure desired changes in knowledge, attitudes and practices. Safe referral and formal victim identification Promising practices: • The development of national referral mechanisms (NRMs) and centralization of victim identification have greatly improved formal victim identification practices in North Africa and along key migration routes. • Similarly, the development of national trafficking in persons indicators and standardized victim screening tools have improved processes for formal victim identification. Lessons learned and recommendations: • Counter‑trafficking actors should ensure that NRM documents are succinct and easy to understand, with visual aids included.xi

REGIONAL LEARNING NOTE: PROMISING PRACTICES IN COUNTER-TRAFFICKING PROGRAMMING IN NORTH AFRICA, MAURITANIA AND THE NIGER • Counter‑trafficking actors should ensure that capacity‑building is regular and institutionalized; specific modules should be developed and delivered on the NRM. • victim screening tools should be standardized in countries and just the one central tool used by all relevant counter‑trafficking actors; the tool should be regularly updated to take into account new forms of exploitation. • Counter‑trafficking actors should develop Memoranda of Understanding (MoUs) with other countries in the region to combat trafficking in persons, and strengthen cross‑border cooperation on victim assistance and protection. • Counter‑trafficking actors should increase regional‑level efforts to share experiences and good practices in formal victim identification through, for example, the development and/or expansion of victim identification working groups.

Assistance and protection Promising practices: • Through the implementation of NRMs, victims’ referral to assistance and protection mechanisms is now more streamlined, and gaps and bottlenecks in service provision more apparent. • Robust risk assessments and case management plans allow counter‑trafficking actors to identify any risks to victims requiring mitigation, and facilitate the monitoring of victims’ access to assistance and protection, and their recovery. • Shelters for victims are accessible in several countries in the region, with most key services provided to victims within the facilities. • Concurrently, alternative care options, such as temporary accommodation in private

identify any risks to victims requiring mitigation, and facilitate the monitoring of victims’ access to assistance and protection, and their recovery. • Shelters for victims are accessible in several countries in the region, with most key services provided to victims within the facilities. • Concurrently, alternative care options, such as temporary accommodation in private residences, host families, and foster care families for trafficked children, are being expanded and strengthened. Host and foster families are vetted and the situation of victims in the families monitored. • Assistance and protection working groups are meeting regularly to discuss protection policies and projects in the region, and share good practices. Lessons learned and recommendations: • NRMs need to be well implemented, in even the most remote parts of countries, as well as regularly monitored. There needs to be regular capacity‑building with counter‑trafficking actors on how the NRM functions, and agencies’ roles and responsibilities as members of the NRM. • As service provision remains ad hoc in some target countries, with victims having to wait weeks or months to access some services due to a lack of trained personnel, funding shortages, bureaucratic bottlenecks, inadequate infrastructure, and high numbers of vulnerable individuals requiring the same support, counter‑trafficking actors should identify where the service provision gaps and bottlenecks lie, and cooperate to address these through, for example, inviting additional agencies to join the NRM or building the capacity of NGOs to provide specific services. • Some victims need accommodation for longer periods, thus, counter‑trafficking actors should ensure that long‑term shelter f