An Overview of U.S. Efforts to Combat Demand For...

Abt Associates | pg 1

An Overview of U.S. Efforts to Combat Demand For Prostitution and Trafficking Sex


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Overview

Prostitution and sex trafficking markets

U.S. domestic law and policy assumption: prohibition

Approaches to combating markets: Supply, demand, distribution

Anti-demand initiatives and legislation in U.S.

Tool for accessing information about demand tactics: Demand Forum website


Definitions & Parameters

Complex legal & political environment– Federal law, state law, and local ordinances




Human trafficking – basic elements





Prostitution vs sex trafficking






Human trafficking as criminal enterprises, markets


What Do We Mean by “Prevention”

Criminal Justice– Deterrence – certainty, swiftness, severity of punishment

– Target hardening; environmental design





Public Health– Primary: Prevent problem from occurring in the first place,

by attacking (and shielding against) causes.

– Secondary: Find and treat problem early.

– Tertiary: Developing treatments, managing symptoms of those afflicted


Model of Prostitution & Sex Trafficking Markets

Consumers ofCommercial Sex

Providers ofCommercial Sex

Source: Lederer, 2006

DemandSupply

Traffickers, pimps

Distribution


Flow Model of Prostitution & Sex Trafficking Markets


Combating Demand = Primary Prevention

Opportunities seized and missed:

– Central PA, Upstate NY – domestic sex trafficking circuit





– Belmont, MA – child sex trafficking case


Current Policy Emphasis

Reactive, rather than preventive

– Victim Rescue & Support

– Trafficker/Pimp investigation, arrest, prosecution, punishment

At local level, more interest in prevention


Challenges & Limitations of Focus on Supply & Distribution Heavy reliance on victims to arrest and prosecute

traffickers

– Limited effectiveness, unfair burden on victims to solve problem



traffickers


With strong demand and huge $$ incentives, arrested traffickers soon replaced

– “A game of whack-a-mole”



traffickers




Virtually endless supply of victims:

– Survivor: “We can never rescue our way out of the problem, or ever build enough shelters.”


Exchange with a Survivor In coverage of the July 2013, FBI-led “Operation Cross Country”

(arresting over 100 pimps/traffickers) CNN spoke with Asia Graves, a trafficking survivor:

CNN:

“Do you think these arrests will do anything to slow down the problem of sexual exploitation and

human trafficking in this country?”


Exchange with a Survivor

Asia Graves:

“Actually, no. It’s maybe making a dent, but you have to go after the

johns.”

http://www.cnn.com/2013/07/29/justice/child-prostitution-arrests/index.html


Abt Research on Commercial Sex & Human Trafficking

1. National Survey of State and Local Police in US: Transnational Crime (for the U.S. Department of Justice - NIJ)

2. Evaluation of San Francisco’s First Offender Prostitution Program FOPP (for the U.S. Department of Justice - NIJ)

3. National Assessment of Demand-Reduction Tactics in the U.S.(NIJ)

4. Feasibility Assessment: Evaluating South Korea’s National John School Program (Office to Monitor and Combat Human Trafficking in Persons, U.S. Department of State)

5. Human Trafficking Organizations and Facilitators: A Detailed Profile and Interviews with Convicted Traffickers in the United States (NIJ)

6. Transnational Organized Crime and Facilitators: A Detailed Profile and Interviews with Convicted Offenders in the United States (NIJ)

7. Creating and exploring a new data platform for research on human trafficking: Preliminary results on prosecution, sentencing, time served, and recidivism (NIJ)

8. Advancing Human Trafficking Prevalence Estimation (NIJ)


Overview of National Assessment of Tactics Targeting Demand

Funded by National Institute of Justice

Designed to provide descriptive overview and specific information about implementation, useful to practitioners.

Develop typology, site contacts

Data collection

– Screening survey: 500+ sites

– More in-depth survey: 150 sites

– Site visit 20 sites

Products

– Website

– Report


U.S. Sites Employing Anti-Demand Tactics

Demand Reduction TacticU.S. Sites Identified

Any Anti-Demand Tactic 1,122

Neighborhood Action 154

Surveillance Cameras & Video Evidence 102

Public Education 73

“Dear John” Letters 56

Arrest and Post-Arrest Tactics Reverse Stings (street-level or web-based) 1,109

Reverse Stings (web-based) 509

Shaming (Arrestee identities publicized) 762

Auto seizure 167

Geographic exclusion zones (“SOAP” orders) 93

Community service 76

John schools 53

Driver’s license suspension 24


Selected Traits of U.S. Cities and Counties Employing Anti-Demand Tactics





Public Education 76





Auto seizure 174



John schools 55



Public Education Campaigns


Reverse Stings

Street-level operations: common, established strategyo Women decoys elicit offers to buy sex

Web-basedo False online ad, with police decoy in hotel

Variations/Innovationso Police replace brothel staff, continue illusion of normal operations to catch

buyers

o Police respond to actual online ad, replace prostituted person with decoy, continue making appointments

o Police departments exchange staff – method used by small departments w/limited number of women officers to serve as decoys

o Using non-sworn staff as decoys


Shaming

• Publicizing identities• News outlets – web, print, TV• Police websites• Billboards• Community efforts – online (e.g., “JohnTV”)

• “Dear John” Letters• To arrestee home address• To home of registered owner of autos used to loiter or

solicit sex

• Pros & Cons• Possibly effective• Due process concerns• Negative impact on families of johns


Shaming


John Schools – Basic Structure

Police conduct “reverse stings,” courts process arrestees. Diversion: Case is dismissed if eligible men volunteer and:

• Pay a fee – range from $0 to $1,500; national average is approximately $450• Attend class or classes – Most involve 1 class; others up to 10 sessions• Sometimes other conditions - Avoid rearrest, community service, etc.

Sentence: Men are required to attend as condition of sentence. Single class, versus multiple sessions. Typical Curriculum:

• Health consequences• Impact on communities• Impact on “providers”• Victimization risks and impact on johns• Legal consequences-------------------------------------------• Other topics: Pimping & sex trafficking; sexual addiction; healthy

relationships; anger management; impact on families.


Evidence of Effectiveness: Combating Demand 40% to 80% reductions in prostitution/sex trafficking markets

achieved through demand-focused or comprehensive approaches:

o Wilkes-Barre, PA: 75% reduction in number of women known to engage in street prostitution; city removed from domestic trafficking circuit through arresting johns + shaming.

o Jersey City, NJ: 75% reduction in observed and reported prostitution from comprehensive approach including demand tactics.

o Sweden: Reported 70% reduction in street prostitution through focusing on demand through arrest. Possibly displaced indoors.

o Buffalo, Fresno, Memphis (e.g.): Reduction in police calls for service

Approaches featuring John Schoolso Ipswich, Bolton, and Northampton, England: 40% to 80% reductions in

calls for police service, number of persons involved in prostitution.

o San Francisco: FOPP john school produced at least 40% reduction in recidivism.


Model of FOPP Impact on Rearrests

0.00

0.02

0.04

0.06

0.08

0.10

0.12

0.14

1990 1991 1992 1993 1994 1995 1996 1997 1998 1999

Pred

icte

d Pr

opor

tion

Re-

arre

sted

San FranciscoCalifornia excluding San Francisco

Change in Re-arrest Rate, San Francisco = -0.067

Change in Re-arrest Rate, CA excluding San Francisco = -0.014

Change in Re-arrest Rate attributable to FOPP:

A - B = -0.054A

B


Law Enforcement Interventions with Associated Fees and Fines

Demand Reduction Tactic $Range

Arrest $250 – $5000

Auto seizure $150 - $2,500

Geographic exclusion zones (“SOAP” orders) $250 – 2,500

Community service $25 to $60 per day

John schools $0 to $1,500


Benefits of Adding Demand Tactics

Necessary for truly comprehensive attack on the problem

Demand is primary driver; combating demand = primary prevention

No solid evidence prevention occurs when demand is ignored

Relatively strong evidence demand tactics produce results


Opportunities: Seized & Missed

Johns provide revenue stream for all sex trafficking

– Could starve the system





Using johns as source of intel about trafficking networks, pimps






Using johns to prosecute traffickers

– “flipping” - confidential informants, pimp stings

– Phone evidence

– Advantages – “3rd way;” eases burden on victims

– Revisiting Belmont








– Phone evidence



St. Petersburg (1970s) & West Palm Beach (1990s)


Key Role of Police & Prosecutors: Pursuing Comprehensive Approaches

Most tactics are post-arrest, conducted by police, affected by prosecution.

Arrests affected by prosecution willingness to accept and pursue cases.

Being on the same page is critical.

– Interpreting law

– Establishing what is a “good case”

– Deciding what cases are “worth it” and why

– Keeping score (e.g., valuing misdemeanors vs felonies)

– Politics & resources


Federal Legislation Focusing on Demand 2005 re-authorization of the 2000 Trafficking Victims

Protection Act: Title 2, End Demand Act

– Major provisions

– Appropriations and implementation

2015 Justice for Victims of Trafficking Act (JVTA)


– Opposition to the JVTA

– Speculation about appropriations and implementation


Demandforum.net


DemandForum.net


Demandforum.net


Contact Information & Acknowledgements

Michael Shively, Ph.D.Senior Associate

Center on Crime, Drugs, and JusticeAbt Associates, Inc.

55 Wheeler St.Cambridge, MA 02138

(617)[email protected]

Support for Abt Associates research presented was provided by:

• Grant #2005‐DD‐BX‐0037 from the Office of Juvenile Justice and Delinquency Prevention and the National Institute of Justice.

• Grant #2008‐IJ‐CX‐0010 from the National Institute of Justice.• Grant #2011‐IL‐CX‐0017 from the National Institute of Justice.

Findings, interpretations, and conclusions are those of the presentation author and do not represent those of any sponsoring agency or Abt Associates Inc.

________________________________________________________

Website:

http://www.demandforum.net/


Overview

Prostitution and sex trafficking markets

U.S. domestic law and policy assumption: prohibition

Approaches to combating markets: Supply, demand, distribution

Anti-demand initiatives and legislation in U.S.

Tool for accessing information about demand tactics: Demand Forum website






Human trafficking as criminal enterprises, markets





Public Health– Primary: Prevent problem from occurring in the first place,

by attacking (and shielding against) causes.

– Secondary: Find and treat problem early.

– Tertiary: Developing treatments, managing symptoms of those afflicted


Model of Prostitution & Sex Trafficking Markets

Consumers ofCommercial Sex

Providers ofCommercial Sex

Source: Lederer, 2006

DemandSupply

Traffickers, pimps

Distribution


Flow Model of Prostitution & Sex Trafficking Markets





– Belmont, MA – child sex trafficking case


Current Policy Emphasis

Reactive, rather than preventive

– Victim Rescue & Support

– Trafficker/Pimp investigation, arrest, prosecution, punishment

At local level, more interest in prevention



traffickers




traffickers




Virtually endless supply of victims:

– Survivor: “We can never rescue our way out of the problem, or ever build enough shelters.”


Exchange with a Survivor In coverage of the July 2013, FBI-led “Operation Cross Country”

(arresting over 100 pimps/traffickers) CNN spoke with Asia Graves, a trafficking survivor:

CNN:

“Do you think these arrests will do anything to slow down the problem of sexual exploitation and

human trafficking in this country?”


Exchange with a Survivor

Asia Graves:

“Actually, no. It’s maybe making a dent, but you have to go after the

johns.”

http://www.cnn.com/2013/07/29/justice/child-prostitution-arrests/index.html


Abt Research on Commercial Sex & Human Trafficking

1. National Survey of State and Local Police in US: Transnational Crime (for the U.S. Department of Justice - NIJ)

2. Evaluation of San Francisco’s First Offender Prostitution Program FOPP (for the U.S. Department of Justice - NIJ)

3. National Assessment of Demand-Reduction Tactics in the U.S.(NIJ)

4. Feasibility Assessment: Evaluating South Korea’s National John School Program (Office to Monitor and Combat Human Trafficking in Persons, U.S. Department of State)

5. Human Trafficking Organizations and Facilitators: A Detailed Profile and Interviews with Convicted Traffickers in the United States (NIJ)

6. Transnational Organized Crime and Facilitators: A Detailed Profile and Interviews with Convicted Offenders in the United States (NIJ)

7. Creating and exploring a new data platform for research on human trafficking: Preliminary results on prosecution, sentencing, time served, and recidivism (NIJ)

8. Advancing Human Trafficking Prevalence Estimation (NIJ)


Overview of National Assessment of Tactics Targeting Demand

Funded by National Institute of Justice

Designed to provide descriptive overview and specific information about implementation, useful to practitioners.

Develop typology, site contacts

Data collection

– Screening survey: 500+ sites

– More in-depth survey: 150 sites

– Site visit 20 sites

Products

– Website

– Report


U.S. Sites Employing Anti-Demand Tactics





Public Education 73





Auto seizure 167



John schools 53



Selected Traits of U.S. Cities and Counties Employing Anti-Demand Tactics





Public Education 76





Auto seizure 174



John schools 55



Public Education Campaigns


Reverse Stings

Street-level operations: common, established strategyo Women decoys elicit offers to buy sex

Web-basedo False online ad, with police decoy in hotel

Variations/Innovationso Police replace brothel staff, continue illusion of normal operations to catch

buyers

o Police respond to actual online ad, replace prostituted person with decoy, continue making appointments

o Police departments exchange staff – method used by small departments w/limited number of women officers to serve as decoys

o Using non-sworn staff as decoys


Shaming

• Publicizing identities• News outlets – web, print, TV• Police websites• Billboards• Community efforts – online (e.g., “JohnTV”)

• “Dear John” Letters• To arrestee home address• To home of registered owner of autos used to loiter or

solicit sex

• Pros & Cons• Possibly effective• Due process concerns• Negative impact on families of johns


Shaming


John Schools – Basic Structure

Police conduct “reverse stings,” courts process arrestees. Diversion: Case is dismissed if eligible men volunteer and:

• Pay a fee – range from $0 to $1,500; national average is approximately $450• Attend class or classes – Most involve 1 class; others up to 10 sessions• Sometimes other conditions - Avoid rearrest, community service, etc.

Sentence: Men are required to attend as condition of sentence. Single class, versus multiple sessions. Typical Curriculum:

• Health consequences• Impact on communities• Impact on “providers”• Victimization risks and impact on johns• Legal consequences-------------------------------------------• Other topics: Pimping & sex trafficking; sexual addiction; healthy

relationships; anger management; impact on families.


Evidence of Effectiveness: Combating Demand 40% to 80% reductions in prostitution/sex trafficking markets

achieved through demand-focused or comprehensive approaches:

o Wilkes-Barre, PA: 75% reduction in number of women known to engage in street prostitution; city removed from domestic trafficking circuit through arresting johns + shaming.

o Jersey City, NJ: 75% reduction in observed and reported prostitution from comprehensive approach including demand tactics.

o Sweden: Reported 70% reduction in street prostitution through focusing on demand through arrest. Possibly displaced indoors.

o Buffalo, Fresno, Memphis (e.g.): Reduction in police calls for service

Approaches featuring John Schoolso Ipswich, Bolton, and Northampton, England: 40% to 80% reductions in

calls for police service, number of persons involved in prostitution.

o San Francisco: FOPP john school produced at least 40% reduction in recidivism.


Model of FOPP Impact on Rearrests

0.00

0.02

0.04

0.06

0.08

0.10

0.12

0.14

1990 1991 1992 1993 1994 1995 1996 1997 1998 1999

Pred

icte

d Pr

opor

tion

Re-

arre

sted

San FranciscoCalifornia excluding San Francisco

Change in Re-arrest Rate, San Francisco = -0.067

Change in Re-arrest Rate, CA excluding San Francisco = -0.014

Change in Re-arrest Rate attributable to FOPP:

A - B = -0.054A

B


Law Enforcement Interventions with Associated Fees and Fines

Demand Reduction Tactic $Range

Arrest $250 – $5000

Auto seizure $150 - $2,500

Geographic exclusion zones (“SOAP” orders) $250 – 2,500

Community service $25 to $60 per day

John schools $0 to $1,500


Benefits of Adding Demand Tactics

Necessary for truly comprehensive attack on the problem

Demand is primary driver; combating demand = primary prevention

No solid evidence prevention occurs when demand is ignored

Relatively strong evidence demand tactics produce results








– Phone evidence










– Phone evidence



St. Petersburg (1970s) & West Palm Beach (1990s)


Key Role of Police & Prosecutors: Pursuing Comprehensive Approaches

Most tactics are post-arrest, conducted by police, affected by prosecution.

Arrests affected by prosecution willingness to accept and pursue cases.

Being on the same page is critical.

– Interpreting law

– Establishing what is a “good case”

– Deciding what cases are “worth it” and why

– Keeping score (e.g., valuing misdemeanors vs felonies)

– Politics & resources


Federal Legislation Focusing on Demand 2005 re-authorization of the 2000 Trafficking Victims

Protection Act: Title 2, End Demand Act


– Appropriations and implementation

2015 Justice for Victims of Trafficking Act (JVTA)


– Opposition to the JVTA

– Speculation about appropriations and implementation


Demandforum.net


DemandForum.net


Demandforum.net


Contact Information & Acknowledgements

Michael Shively, Ph.D.Senior Associate

Center on Crime, Drugs, and JusticeAbt Associates, Inc.

55 Wheeler St.Cambridge, MA 02138

(617)[email protected]

Support for Abt Associates research presented was provided by:

• Grant #2005‐DD‐BX‐0037 from the Office of Juvenile Justice and Delinquency Prevention and the National Institute of Justice.

• Grant #2008‐IJ‐CX‐0010 from the National Institute of Justice.• Grant #2011‐IL‐CX‐0017 from the National Institute of Justice.

Findings, interpretations, and conclusions are those of the presentation author and do not represent those of any sponsoring agency or Abt Associates Inc.

________________________________________________________

Website:

http://www.demandforum.net/

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