Developing an Airport Program to Address Human Trafficking: A Guide (2023) / Chapter Skim
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How-to Guide P A R T I I
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29 This How-to Guide contains 20 action steps that airports can take to initiate or enhance a program to address labor and sex trafficking. These action steps are organized into three phases, as shown in Figure 6.
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30 Developing an Airport Program to Address Human Trafficking: A Guide Airports can undertake some or all of the action steps listed depending on the scope of their existing or proposed program as well as on their unique needs, access to resources and funding, aircraft operations and service, governance structures, availability of potential partners, political environments, and other contextual factors. The action steps within each phase are not intended to be sequential; airports can pick and choose which to pursue.
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31 Action Step: Determine Program Staffing Background and Need Airports may be driven to address human trafficking by a number of factors, including a local mandate, state legislation, direction from airport executive leadership or its board, an airport management initiative, media attention, or community input. As with any new program, appropriate staff attention should be dedicated to it to ensure its progress and success.
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32 Developing an Airport Program to Address Human Trafficking: A Guide of stakeholders involved in the program will grow as the program evolves and the coordination becomes more formalized. The program lead should also ensure that their role is known to other staff at the airport, including through conducting meet and greet meetings as feasible.
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Foundational Program 33 they can start to engage local community groups and victim advocates who could support the program build-out. Budget and Resource Implications Table 3 indicates the budget and resource areas affected by assigning staff to a program to combat human trafficking.
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34 Developing an Airport Program to Address Human Trafficking: A Guide Action Step: Identify Partnerships and Victim Resources Background and Need Human trafficking is a multi-faceted issue that concerns various industries and sectors. Given the broad reach of human trafficking, a multi-entity approach is critical to successful efforts to combat it.
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Foundational Program 35 oversee standards of care (where they exist) for supporting victims of human trafficking to determine which organizations to partner with, as not all organizations have the necessary level of expertise.
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36 Developing an Airport Program to Address Human Trafficking: A Guide Budget and Resource Implications Table 6 indicates the budget and resource areas affected by identifying external partner organizations and resources for victims of human trafficking. Example in Practice: DFW pays approximately $5,000 annually for its membership in several local task forces and for attendance at seminars.
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Foundational Program 37 Small airports may also elect to focus their partnership efforts on federal initiatives, such as BLI, which can provide an extensive library of resources and tools available at no cost once an MOU is signed. Toolkit Resources Table 7 includes available resources to assist with identifying external partners and resources for victims of human trafficking.
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38 Developing an Airport Program to Address Human Trafficking: A Guide Indicators cannot be treated as definitive proof of human trafficking, and the totality of a situation should be evaluated when determining whether someone may be a victim. Some individuals may not recognize that they are victims, which can complicate the process of identifying human trafficking.
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Foundational Program 39 Figure 7. Indicators of labor and sex trafficking in an airport setting.
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40 Developing an Airport Program to Address Human Trafficking: A Guide • Contextualize indicators. When providing any list of indicators, it is important for airports to provide appropriate context, so that the list is not used in an unintended way.
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Foundational Program 41 Small Airport Considerations Small airports can use the list of indicators in Figure 7 as a starting point, as many of these are common indicators that will be relevant regardless of airport type. However, they will need to take their type of operations into account to determine which of the indicators they would be able to detect; this will depend on the degree of interaction with travelers.
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Table 10. Toolkit resources for action step: Select Indicators for Victim Identification.
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Foundational Program 43 Actions to Consider • Determine where to direct reports. Airports have several options for where to report a suspected human trafficking incident and can use specific protocols depending on who is reporting.
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44 Developing an Airport Program to Address Human Trafficking: A Guide Reporting Option Pros Cons Organization local to the airport that works with human trafficking victims • Staffed with personnel focused on and experienced in supporting victims of human trafficking • Human trafficking victims are more likely to reveal information to nonlaw enforcement staff • Reporting to a service provider organization can connect victims to services right away • Not all airports are located in places that have such an organization • Likely only to be used as an option for staff that have a relationship with the organization, so would not be distributed to all staff as the primary reporting option Airline Ambassadors International (AAI) TIP Line app • Tips can include location, photos, video, and text • Connects the person reporting to local airport operations law enforcement center • International reach • Latest version is only available to those who have completed AAI training Anti-Trafficking International (ATI)
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Foundational Program 45 • Develop protocol steps. Reporting protocols should comprehensively detail the steps involved prior to, during, and after a suspected human trafficking incident is reported, including the responsible party for each step.
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46 Developing an Airport Program to Address Human Trafficking: A Guide – Digital displays. Digital displays, such as the ones used to display flight information, can be used to showcase relevant contact information and the protocols for reporting suspicious activity.
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Foundational Program 47 need to leverage the expertise and resources of external partners that are part of the reporting process, such as those listed in Table 11. Some of these partners can provide the airport with best practices from other airports and jurisdictions on the development of reporting protocols.
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48 Developing an Airport Program to Address Human Trafficking: A Guide Actions to Consider • Consult reputable sources. Airports should seek legitimate and trustworthy organizations with which to coordinate to offer support and aftercare to victims.
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Foundational Program 49 following questions are examples that could be discussed with each potential partner: – What types of services does the organization provide? – What bandwidth or level of availability does the organization have to support the airport?
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50 Developing an Airport Program to Address Human Trafficking: A Guide Budget and Resource Implications Table 16 indicates the budget and resource areas affected by developing connections to providers of human trafficking victim support and aftercare. Small Airport Considerations Compared to large airports, small airports may need to adopt a modified approach when developing connections to victim support and victim aftercare organizations.
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Foundational Program 51 stakeholders and the public. As part of these laws, 12 states require that the National Human Trafficking Hotline number be posted in airports.
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52 Developing an Airport Program to Address Human Trafficking: A Guide DHS evaluates the effectiveness of its programs on human trafficking over a two-year time period, so materials are likely to be updated and evolve over time. The International Air Transport Association (IATA)
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Foundational Program 53 or lanyard tags with the most common signs of trafficking and contact information for hotlines to employees can also be useful. For example, flight attendants may use the reference cards during layovers -- either inside or outside the airport.
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54 Developing an Airport Program to Address Human Trafficking: A Guide facilities and bathrooms at some small airports (such as GA airports) may receive more use from flight crews and pilots than from the traveling public, so the impact of any public awareness campaign materials may be more limited.
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Foundational Program 55 Source Resource Name Type Description AAI Wallet card Communication product This wallet card includes descriptive traits of human trafficking victims and some proactive steps that bystanders can take to intervene. Steps include staff being observant of passengers and contacting anti-trafficking professionals about the potential case rather than directly confronting suspected traffickers.
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56 Developing an Airport Program to Address Human Trafficking: A Guide Source Resource Name Type Description DHS Sex trafficking awareness videos Video These videos dramatize scenarios depicting indicators of sex trafficking. The videos include what human trafficking can look like in Native American communities.
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Foundational Program 57 • Working with an outside organization, like AAAE or BEST, to develop customized training for their airport • Developing their own airport-specific training resources in-house Training may be in person, classroom based, and instructor led, or it may be online and either instructor led (in real time) or self-paced.
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58 Developing an Airport Program to Address Human Trafficking: A Guide – State regulations. States may already require human trafficking training for airport workers -- or will in the future.
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Foundational Program 59 knowledge and offering direct support to frontline staff who may witness a human trafficking scenario and need assistance. – Integrate human trafficking training into other training programs.
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60 Developing an Airport Program to Address Human Trafficking: A Guide – In-classroom and instructor-led training. Some airports (such as BWI)
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Foundational Program 61 training; and (2) a more in-depth training course that could be purchased and used to "train the trainer." – International Civil Aviation Organization (ICAO)
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62 Developing an Airport Program to Address Human Trafficking: A Guide How to Leverage External Partners External partners are critical for helping airports to create, prepare, and deliver training on human trafficking. The following avenues for engaging external partners will be particularly useful for airports: • Consult other airports.
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Foundational Program 63 Example in Practice: AAI offers in-person, survivor-informed training to airline and airport personnel. They charge $3,000 per training, which covers travel costs and a stipend for the survivor involved in training delivery.
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64 Developing an Airport Program to Address Human Trafficking: A Guide Source Resource Name Type Description AAAE Human Trafficking Prevention at Airports training course Video This 12-minute online video facilitated by Bill Woolf of NHTIC explains what human trafficking is and teaches airport staff about the key indicators to look for prior to reporting a potential trafficking incident to authorities. The video shows various locations within an airport (including curbside drop off, restaurants, bathrooms, and the boarding gate)
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Foundational Program 65 CAST JetBlue Security Champion Summit: Human Trafficking -- It Ends with Us Presentation This 36-slide PowerPoint presentation (originally created for JetBlue employees) discusses common myths, traumainformed care, labor trafficking, sex trafficking, and trafficking indicators.
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66 Developing an Airport Program to Address Human Trafficking: A Guide Action Step: Identify Funding and Resources Background and Need Most airports fund initiatives to combat human trafficking out of their own operating budgets, but many airports face constraints such as limited funding, staff time, resources, or skill sets. These constraints may hamper their ability to develop and implement comprehensive and effective programs against human trafficking.
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Foundational Program 67 anti-trafficking efforts at airports, including the National Human Trafficking Hotline and funding for DHS. – The Office for Victims of Crime (OVC)
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68 Developing an Airport Program to Address Human Trafficking: A Guide How to Leverage External Partners External partners are critical for helping airports to secure the funds needed to execute effective programs to combat human trafficking. The following external partners and avenues will be particularly useful for airports to engage: • Agencies that offer funding opportunities.
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Foundational Program 69 Small Airport Considerations Small airports may have fewer funding opportunities than larger airports. Small airports that are part of a larger airport system may be able to leverage resources available through their partner commercial service airports to reduce their internal level of effort.
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70 Action Step: Undertake Needs Assessment Background and Need A needs assessment is a systematic way to identify gaps between the current state of an organization, program, or other system and the future desired state. When applied to an airport program to address human trafficking, a needs assessment is a concerted effort to gather information and conduct evaluations to determine program weaknesses or opportunities for enhancement.
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Expanded Program 71 Table 27. Airport stakeholders involved for action step: Undertake Needs Assessment.
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72 Developing an Airport Program to Address Human Trafficking: A Guide Toolkit Resources Table 29 includes resources available to assist with undertaking a needs assessment for a program to address human trafficking. More detail is included in Appendix C as well as the Toolkit associated with this guide.
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Expanded Program 73 communications, customer experience, law enforcement and security, or other departments to assist with writing. The organizational plan or strategy should be reviewed by relevant departments and airport leadership.
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74 Developing an Airport Program to Address Human Trafficking: A Guide – Partner engagement. Specify which partners to engage and describe how and why they will be engaged.
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Expanded Program 75 an external evaluator, while the other guide can help airports design and conduct a program evaluation and use the results for program improvement. Plans should be reviewed routinely (perhaps annually)
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76 Developing an Airport Program to Address Human Trafficking: A Guide Budget and Resource Implications Table 31 indicates the budget and resource areas affected by efforts to develop an organizational plan or strategy to combat human trafficking. Small Airport Considerations As larger commercial service airports begin to institute training and protocols to fight against human trafficking, human traffickers may begin specifically routing their victims through smaller airports to avoid possible detection.
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Expanded Program 77 Source Resource Name Type Description ACRP Airport Program to Address Human Trafficking: Program Status Worksheet Decisionsupport tool This worksheet (Appendix C associated with this guide) helps airports to document and track progress on the evolution of their programs to address human trafficking.
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78 Developing an Airport Program to Address Human Trafficking: A Guide Action Step: Issue Airport Policy Background and Need Establishing a clear, practical, and comprehensive human trafficking policy is an important way for airports to communicate their stance on the issue, raise awareness, and direct action. A comprehensive policy ensures that effective protocols and procedures are in place for responding to, reporting, and preventing cases of labor and sex trafficking.
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Expanded Program 79 combat human trafficking for advice. Airports may also consult outside organizations such as ACI, BEST, and IATA, each of which provides suggestions for airport policies.
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80 Developing an Airport Program to Address Human Trafficking: A Guide Action Step: Formalize Roles and Responsibilities Background and Need Formalizing the roles and responsibilities of stakeholders involved in an airport program to address human trafficking helps to bring structure, organization, and clarity to the program. Because staff involved in the program are likely to hold numerous other responsibilities that are unrelated to human trafficking, it is particularly important to clarify who leads and who supports which activities, so that the program maintains momentum.
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Expanded Program 81 can have law enforcement, communications, or public affairs staff coordinate with each other in order to agree on their respective roles as well as on the types of information they are willing to disclose to media and at which points in an investigation. • Create a contact list or organizational chart.
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82 Developing an Airport Program to Address Human Trafficking: A Guide Small Airport Considerations Compared to larger airports, small airports may take similar steps to formalize the roles and responsibilities of stakeholders involved, but they may opt to carve out a more prominent role for tenants such as FBOs. Toolkit Resources Table 38 provides an available resource to assist with formalizing the roles and responsibilities of those involved in an airport's program to combat human trafficking.
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Expanded Program 83 • Form partnerships to strengthen awareness programs. Airports can work with airlines, airport industry associations, and others to use their existing awareness programs as a model or to collaborate on joint efforts.
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84 Developing an Airport Program to Address Human Trafficking: A Guide Signage for Human Trafficking Victims at San Antonio International Airport Action Step: Implement Advanced Awareness Program In the spring of 2021, SAT installed approximately 150 signs in bathroom stalls with information targeting victims of human trafficking (see Figure 12)
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Expanded Program 85 other events in January, which is the United States' official National Slavery and Human Trafficking Prevention Month. Stakeholder forums could involve the press and feature community leaders such as federal or state officials, international dignitaries, airport leaders, survivors, local elected officials, human rights advocacy groups, law enforcement and border patrol personnel, and airport commissioners.
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86 Developing an Airport Program to Address Human Trafficking: A Guide and suggestions for program improvements. These groups can contribute insights on what has or hasn't worked in other contexts and provide information on trafficking trends and patterns in the local area that can inform awareness campaign materials.
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Expanded Program 87 Source Resource Name Type Description A21 Can You See Me? Campaign: posters and brochure information on sex trafficking Communication product These one-page documents and detailed information brochures feature two different scenarios: (1)
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88 Developing an Airport Program to Address Human Trafficking: A Guide Source Resource Name Type Description City of Houston Mayor's Office Emergency Disaster Response Toolkit Communication product This toolkit is publicly available for download by any organization working on a human trafficking campaign or initiative. Airports could directly adopt some of the materials in the toolkit for their own campaigns.
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Expanded Program 89 New Jersey Coalition Against Human Trafficking Community Awareness Toolkit Decisionsupport tool This toolkit provides customizable action items for several groups, including mayors and municipalities, schools and students, communities of faith, professionals, and all community members. Using this toolkit as a model, airports can develop their own toolkit of action items for staff members and airlines.
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90 Developing an Airport Program to Address Human Trafficking: A Guide There is variability in how airports approach training. Approaches include: • Using existing OTS materials from organizations such as DHS and AAAE; • Working with an outside organization (like AAAE or BEST)
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Expanded Program 91 and for the staff member. For example, victims may be fearful of engaging with uniformed law enforcement officers because of prior trauma, fear of prosecution, or fear of possible harm being done to their family members.
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92 Developing an Airport Program to Address Human Trafficking: A Guide responsibilities, and more. Airports should determine their desired outcomes for the trainings and select trainings on the basis of those priorities.
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Expanded Program 93 at Airports Training Course (which explains what human trafficking is and teaches airport staff about key indicators) and the Human Trafficking Awareness (Interviews)
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94 Developing an Airport Program to Address Human Trafficking: A Guide • Evaluate training. It is important for airports to track the success of their training programs in order to make continuous improvements and strengthen overall airport preparedness for human trafficking.
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Expanded Program 95 Budget/Resource Type Applicability Frequency Explanation Staff time Ongoing Training staff takes time; airports may consider requiring training as part of an onboarding or annual process for its employees Contractors/vendors Occasional Training materials and services are typically provided by outside organizations, agencies, or contractors at a cost Equipment/materials/IT Occasional Airports may need to invest in additional materials, equipment, or IT depending on the training requirements Other: N/A Table 43. Budget and resource implications for action step: Expand Training to Secondary Staff.
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96 Developing an Airport Program to Address Human Trafficking: A Guide Source Resource Name Type Description AAAE Human Trafficking Prevention at Airports training course Video This 12-minute online video facilitated by Bill Woolf of NHTIC explains what human trafficking is and teaches airport staff about the key indicators to look for prior to reporting a potential trafficking incident to authorities. The video shows various locations within an airport (including curbside drop off, restaurants, bathrooms, and the boarding gate)
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Expanded Program 97 Source Resource Name Type Description DHS Law Enforcement Awareness Training Video This web-based training course teaches law enforcement officers to recognize the indicators of human trafficking. It contains training videos (each about one hour long)
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98 Developing an Airport Program to Address Human Trafficking: A Guide and clear responsibilities and procedures in the protocol, airports can ensure that incidents are addressed in a way that protects the victim and that the necessary information is collected to build a legal case against the trafficker. Separately or as part of the same protocol, airports can develop steps for identifying human trafficking patterns so that they can play a role in disrupting those patterns and be better prepared to respond should a suspected trafficker or victim pass through the airport.
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Expanded Program 99 • Establish cooperative agreements among jurisdictions. Specifying the responsibilities of jurisdictions through a formal cooperative agreement can clarify which aspects of human trafficking cases each jurisdiction handles and whether and how handoffs between jurisdictions can happen.
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100 Developing an Airport Program to Address Human Trafficking: A Guide Small Airport Considerations Small airports' interdiction protocols need to account for the unique challenges these airports face. For example, timely responses from law enforcement officers may be difficult if the officers are located at a separate facility (such as at the local commercial service airport or at a local jurisdiction office)
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Expanded Program 101 Toolkit Resources Table 47 provides a list of available resources to assist with developing an interdiction protocol and formalizing jurisdictional coordination. More detail is included in the Toolkit associated with this guide.
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102 Developing an Airport Program to Address Human Trafficking: A Guide Stakeholder Function Responsible and/or Accountable Consulted and/or Informed Role Airport management Establish data collection processes and coordinate with partners that can provide useful data Airport law enforcement, security, and operations Support airport data collection efforts by sharing relevant data, such as reports made of suspected trafficking incidents Airline and airline support Support airport data collection efforts by sharing relevant data, such as training provided Tenants, concessionaires, and contractors Support airport data collection efforts by sharing relevant data, such as training provided Other: N/A Table 48. Airport stakeholders involved for action step: Begin Data Collection Efforts.
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Expanded Program 103 Table 49. Budget and resource implications for action step: Begin Data Collection Efforts.
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104 Action Step: Provide Enhanced Victim Support and Aftercare Background and Need As discussed in previous action steps, developing relationships and partnerships with external organizations is important for connecting victims with the support and aftercare they need (and that the airport cannot provide)
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Comprehensive Program 105 victim support provider staff can help to build rapport and could increase the likelihood that they will reach out when encountering a suspected victim. • Provide a translator.
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106 Developing an Airport Program to Address Human Trafficking: A Guide Seattle–Tacoma International Airport Soft Interview Rooms Action Step: Provide Enhanced Victim Support and Aftercare SEA engaged its police department to select appropriate spaces to use as "soft" interview rooms. These rooms were existing employee wellness rooms that the airport determined could be used as soft interview rooms when needed.
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Comprehensive Program 107 Budget and Resource Implications Table 52 indicates the budget and resource areas affected by providing enhanced human trafficking victim support and aftercare. Small Airport Considerations Small airports typically do not have scheduled passenger flights; they generally serve private aircraft for personal and business use.
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108 Developing an Airport Program to Address Human Trafficking: A Guide Action Step: Support Recovery Opportunities Background and Need Survivors may face reduced economic and social opportunities. They may also be displaced and living in an unfamiliar community.
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Comprehensive Program 109 • Support local community groups and victim advocate organizations. Local community groups and victim advocates may already offer recovery opportunities that airports can support.
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110 Developing an Airport Program to Address Human Trafficking: A Guide offering an opportunity themselves. Small airports can provide space and allow staff members time to participate in job fairs, training, and other events designed to support survivors.
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Comprehensive Program 111 Iowa Department of Transportation (DOT) Data Visualizations Action Step: Undertake Data Analysis and Information Sharing Iowa DOT published several data visualizations on a main page of its website summarizing key metrics in the state, such as number of calls to Iowa's Victim Service Hotline, demographics of human trafficking victims, types of trafficking reported, and more (see Figure 15)
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112 Developing an Airport Program to Address Human Trafficking: A Guide • Identify trends and patterns. Airports can analyze reports of suspected human trafficking activity made to airport or local law enforcement agencies to see if any trends emerge, particularly in relation to initiatives implemented as part of the airport's program to address human trafficking.
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Comprehensive Program 113 Budget/Resource Type Applicability Frequency Explanation Staff time Occasional Dedicated staff time to coordinate data sharing and conduct analysis Contractors/vendors Onetime/ ongoing Possible need to contract with a firm specializing in data analytics Equipment/materials/IT Onetime/ ongoing Data software licenses or subscriptions may be required Other: N/A Table 58. Budget and resource implications for action step: Undertake Data Analysis and Information Sharing.
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114 Developing an Airport Program to Address Human Trafficking: A Guide Action Step: Develop Mechanisms for Program Evaluation Background and Need Conducting periodic evaluations of their programs to address human trafficking enables airports to identify opportunities for process improvement and greater impact. Evaluating such programs can be challenging, and an airport is unlikely to ever know the true impact of its program.
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Comprehensive Program 115 • Update program evaluation mechanisms periodically. Airports should review evaluation mechanisms and update them periodically to incorporate recent research and data.
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116 Developing an Airport Program to Address Human Trafficking: A Guide Small Airport Considerations Small airports should consider engaging FBOs to develop mechanisms for program evaluation. FBOs may be able to distribute pre- and post-training assessments as well as follow-up surveys to their staff and customers; these can provide some data for program evaluation.
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118 Developing an Airport Program to Address Human Trafficking: A Guide 27. Gehring, B
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Abbreviations and acronyms used without denitions in TRB publications: A4A Airlines for America AAAE American Association of Airport Executives AASHO American Association of State Highway Officials AASHTO American Association of State Highway and Transportation Officials ACI–NA Airports Council International–North America ACRP Airport Cooperative Research Program ADA Americans with Disabilities Act APTA American Public Transportation Association ASCE American Society of Civil Engineers ASME American Society of Mechanical Engineers ASTM American Society for Testing and Materials ATA American Trucking Associations CTAA Community Transportation Association of America CTBSSP Commercial Truck and Bus Safety Synthesis Program DHS Department of Homeland Security DOE Department of Energy EPA Environmental Protection Agency FAA Federal Aviation Administration FAST Fixing America's Surface Transportation Act (2015) FHWA Federal Highway Administration FMCSA Federal Motor Carrier Safety Administration FRA Federal Railroad Administration FTA Federal Transit Administration GHSA Governors Highway Safety Association HMCRP Hazardous Materials Cooperative Research Program IEEE Institute of Electrical and Electronics Engineers ISTEA Intermodal Surface Transportation Efficiency Act of 1991 ITE Institute of Transportation Engineers MAP-21 Moving Ahead for Progress in the 21st Century Act (2012)
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Transportation Research Board 500 Fifth Street, NW Washington, DC 20001 ADDRESS SERVICE REQUESTED ISBN 978-0-309-69827-6 9 7 8 0 3 0 9 6 9 8 2 7 6 9 0 0 0 0
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