Chicago`s - Greg Pavone

Improving the City of Chicago’s efforts to
combat sex trafficking
Joint briefing to Mayor Emanuel
Harvard Kennedy School Spring Exercise 2013, Cohort C Team 1
Briefing Book
This paper was written by students at Harvard Kennedy School as an academic research
project to fulfill graduation requirements for the degree of Master in Public Policy, and should
not be cited as an official reference.
i
Foreword
The Chicago Police Department (CPD) and Chicago Department of Family and Support
Services (CDFSS) are the key City agencies working to curb sex trafficking in Chicago. In
recent months we have come under significant pressure from a number of stakeholders,
including non-profit organizations working in this area, to revise our anti-sex trafficking strategy
and improve our efforts to provide services to trafficking victims.
CPD and CDFSS have collaborated to produce this briefing, including a set of
recommendations to increase our focus on identifying sex trafficking victims, connecting them
with the services they need and curbing the demand for illegal sex on our streets and in our
suburbs. We recognize that neither CPD, CDFSS, nor the City have the resources to eliminate
sex trafficking from Chicago. However, we have identified many opportunities for improvement
that do not require significant new resources, rather changes in behavior and better coordination
among existing organizations.
We are seeking the Mayor’s approval for our two agencies to implement these
recommendations. In partnership with other actors, we hope to complement and enhance our
existing efforts and more clearly demonstrate our commitment to curb sex trafficking to the
people of Chicago.
Superintendent of Police
Commissioner, Family and Support Services
ii
Table of Contents
Foreword ..................................................................................................................................... ii
I.
Executive Summary............................................................................................................. iv
II.
Introduction and Context ..................................................................................................... 1
Sex trafficking: A global problem ........................................................................................... 1
The Chicago Sex Trafficking Profile ...................................................................................... 1
Sex trafficking policies and programs .................................................................................... 2
III.
Critical analysis of existing sex trafficking policies and programs in Chicago ....................... 3
Law enforcement and legislation ........................................................................................... 3
Other demand reduction initiatives ........................................................................................ 4
Services for sex trafficking victims......................................................................................... 4
IV.
New policy development: constraints and criteria............................................................. 5
Constraints on new policy recommendations ........................................................................ 5
Criteria for evaluating policy options ...................................................................................... 6
V.
Policy Options and Evaluation .............................................................................................. 8
Policy options ........................................................................................................................ 8
Evaluation of policy options ................................................................................................... 8
VI.
Recommendations ......................................................................................................... 14
Chicago Police Department Initiatives ................................................................................. 14
Chicago Department of Family and Support Initiatives ........................................................ 17
VII.
Conclusion and Next Steps ............................................................................................. 20
VIII.
Appendices .................................................................................................................... 21
Appendix A: Characteristics of Chicago sex traffickers and trafficking victims ..................... 21
Appendix B: Penalties for soliciting sex in Chicago ............................................................. 22
Appendix C: Description of Chicago Police Department ...................................................... 23
Appendix D: Anti-Trafficking Activities in Cook County ........................................................ 25
Appendix E: CDFSS and Other Government Agencies’ Anti-Trafficking Efforts................... 26
Appendix F: NGO Activities to Combat Sex Trafficking in Chicago...................................... 27
IX.
List of References ........................................................................................................... 29
X.
Endnotes ........................................................................................................................... 35
iii
I.
Executive Summary
Small steps can produce big wins for Chicago
Sex trafficking (the exchange of sex for money by a minor or a person who has been
coerced against his/her will) is a human rights issue, perpetuates a sex industry which
degrades the city of Chicago and costs the city in police time, incarceration and the
decreased welfare of its citizens. Whilst the full scale of this problem can never be known, it
is likely that more than 20,000 commercial sex transactions occur in Chicago every day, with
many of them involving sex trafficking victims.
The city of Chicago is ahead of the curve on responding to sex trafficking due to strict
legislation, state response teams, and a vibrant community of NGOs dedicated to this work.
Despite this strong position, we have identified several areas for improvement in law
enforcement, demand reduction and victim services:



Front line service workers (police, child protective services, healthcare workers) don’t
have training in signs of trafficking; therefore miss opportunities to identify victims
and help them access services.
Victim services (housing, legal, medical, and life skills) are poorly coordinated and
need increased capacity to meet demand and assist victims with recovery and
rehabilitation.
Measures to curb demand are focused on apprehension and arrest, when the
majority of johns will never encounter law enforcement. Additional demand reduction
measures could help better curb demand at its source.
Recommendations for Chicago Police Department
Since there is a criminal dimension to this issue, the CPD is poised to make an impact on
this issue with a series of small initiatives that were selected for their projected impact, low
cost, and feasibility. They are described in order of priority below:

Priority #1: New protocol for arrests
It is necessary to stop arresting women engaging in prostitution if signs of trafficking are
present because this practice incorrectly casts the women as criminals rather than victims.
Arrest protocols should be changed to focus on connecting trafficking victims to services and
apprehending johns.

Priority #2: Increase fines and penalties
Demand for purchasing sex is one of the main drivers of this problem in Chicago. Currently,
police have a choice on whether to charge johns, with a city ordinance violation or a state
misdemeanor. The city ordinance carries lower penalties. The Mayor can work with the City
Council to raise the ordinance penalty (as he did this month with public nuisance
ordinancesi). This change will both deter johns from purchasing sex in the future and raise
more revenue to dedicate to victim services.

Priority #3: Advertise on internet sites to deter johns
The trend in commercial sex transactions is transitioning to online sites likes backpage.com,
craigslist, and others. Placing advertisements and profiles on these sites that inform johns
about the circumstances of exploitation (that they may not be aware of) and the stricter
penalties will raise awareness of consequences and curb demand before johns enter the
market.

Priority #4: Training police in recognizing victims in all aspects of their work
There are certain risk factors for sex trafficking victims (many are young, homeless and have
a history of drug use) that police can learn to recognize. Yet a study showed 72% of city
iv
police departments do not think trafficking is in their purviewii. Training will help police
increase identification of current and potential victims.
Recommendations for the Chicago Department of Family and Support
Services
Strengthening families and protecting children are core business for CDFSS. They are well
placed to improve efforts in the social service dimensions of this issue. We have identified
the following options:

Priority #1: Partner with NGOs on public awareness campaign & hotline
CDFSS can play a coordination role with the group of anti-trafficking NGOs working in
Chicago. One CDFSS employee can work with these NGOs on two important initiatives: a
public awareness campaign and a local hotline. The goal of the campaign is to inform the
general public about signs of trafficking and to help de-stigmatize the victims. The hotline
initiative is necessary because local hotlines prompt more self-identification calls and
reporting on behalf of others than a national hotlineiii. The efforts will be largely
spearheaded and funded by NGOs.

Priority #2: Train front-line workers and current program staff to address issue
CDFSS unknowingly encounters many victims and potential victims of trafficking. By leading
trainings for caseworkers and foster parents on screening and identification techniques
(which most have never received) CDFSS can increase victim identification rates. Training
can be extended to other CDFSS employees (like community centers) who should be
encouraged to adapt their current programming to address trafficking.

Priority #3: Engage a consulting firm to map current victim services and make
capacity building recommendations to NGOs
As more victims are identified, there will be a need for more services. The city of Chicago is
not able to offer these services, but can assist NGOs to build their own capacity by enlisting
the help of a consultant who is willing to work pro bono to map current NGO services, model
future demand, and make recommendations.
Next steps
In order to move forward with this strategy, there are short- and medium-term next steps for
the Mayor.
Short Term
1) Use Mayoral authority to raise fines for johns.
2) Appoint trafficking liaisons in CPS and CDFSS.
3) Direct liaisons to allocate responsibility for each initiative within their agency.
Medium Term
1) Re-convene with liaisons.
2) Examine data on rates of identification and utilization of services by victims.
3) Analyze other indicators that are being tracked through implementation to
examine internal impacts (such as changes to staff behaviors) and external
impacts (such as changes to johns perceptions of the risks of commercial sex).
4) Commission a report on whether benchmarks have been met and what new
strategies, if any, should be pursued going forward.
v
II.
Introduction and Context
Sex trafficking: A global problem
Sex trafficking is the illegal trade of women, men and children who are coerced, threatened
or held for sexual exploitation. Sex trafficking is one type of human trafficking, which also
includes trafficking for non-sex related work such as manufacturing and domestic services.
Human trafficking is a pervasive global problem that is difficult to quantify or monitor
because it is concealed from most peoples’ day-to-day lives. Some reports estimate that the
annual value of the industry worldwide is $14 billioniv and that there are 20.9 million people
who have been part of the human trafficking pipeline in the past ten yearsv, which is larger
than the population of the state of New York.
Many of the people that are trafficked to the United States each year are trafficked by
international criminal syndicates and gangsvi. The business model starts with a victim being
recruited through kidnapping or fraudulent promises. They may be transported to a different
country using forged documents, or may remain in their local country. Once the trafficker no
longer needs their victim’s services, they can choose to either abandon, re-sell or murder the
victimvii.
The Department of Justice estimates that over 17,000 victims are trafficked annually into or
within the United States, with 50% being under the age of 18 and 80% femaleviii.
The Chicago Sex Trafficking Profile
Chicago is a particularly attractive destination for sex traffickers because it is a major
regional transportation center that is able to disperse trafficked people to other locations.
The major actors in the sex trafficking industry are the women and girls in the sex trade, the
solicitors of sex (johns), and the coordinators of the sexual transactions who control the
women and girls (sex traffickers). The characteristics of these groups are described below,
and in more detail in Appendix A.
Whilst the typical ‘sex industry’ image is of a sex worker soliciting on the street, it is
estimated these types of transactions make up less than 10% of the total. Most transactions
today are often organized in advance online on a website such as backpage.com, or through
some third-party enabling entity such as a massage parlor, escort service or nail salon. The
transactions typically occur indoors mainly in the west and south sides of Chicagoix.
Sex trafficking victims
A recent comprehensive study of the number of women and girls in the Chicago sex industry
estimated approximately 16,000 to 25,000 are involved in sex work annuallyx. This number
includes both sex trafficking victims, and criminal prostitutes. In order for someone to be
regarded as a sex trafficking victim under Illinois law, the individual must be either:

under the age of 18 when she entered the commercial sex trade, or

coerced or deceived into participating in sexual transactions by a third party (sex
trafficker).
It is estimated that 62% of the women who are involved with the Chicago sex trade on a
yearly basis first got involved before the age of 18xi. Many have a history with high instances
of substance abuse, homelessness, sexual assault and domestic violencexii.
Sex traffickers
Studies of the characteristics of sex traffickers have found that Chicago traffickers tend to be
black men without a high school education. Estimates of traffickers’ yearly income range
from $150,000 to $500,000xiii. These high incomes are the result of high profit margins (sex
1
trafficking victims receive little or none of the proceeds from their exploitation) and low
marginal costs of scaling up the number of women each trafficker controls, which allow
traffickers to control several victims at oncexiv. The probability of apprehension for a trafficker
is extremely lowxv.
Chicago johns
There is very limited data available on the number and characteristics of johns in Chicago.
However, conservative estimates place the number of commercial sexual transactions
occurring within the city above 20,000 per day, with the frequency of transactions per john
varying significantly from regular habits to one-offsxvi. This suggests that the practice is
relatively widespread in the community, with johns having diverse characteristics and
spanning most demographics. They are often well educated, in a relationship, aware that
they have some kind of addiction to purchasing sex and cognizant of the negative impacts of
their choicesxvii.
Sex trafficking policies and programs
Law enforcement and legislation
The legal framework for prosecuting human traffickers and sex traffickers is still relatively
young. In 2000, the U.S. Congress passed the Trafficking Victim Protection Act (TVPA)
making human trafficking a federal crime. As well as criminalizing the activities of traffickers,
the aims of new legislation in this area must also achieve the following:


Protect sex trafficking victims from unjust prosecutions, and
Penalize johns.
The legal-framework in Sweden takes these goals a step further by criminalizing sex
trafficking and the purchase of sex, but not the sale of sex.
Once legal frameworks are in place it is up to law enforcement agencies and public
attorneys to apprehend and convict the criminals involved. The fact that most commercial
sex transactions and trafficking activities occur undetected and on private premises makes
arrest and prosecution of offenders very challenging. In addition, there are challenges
specific for the apprehension of johns and traffickers, listed in Table 1.
Table 1 Law enforcement challenges in apprehending johns and traffickers
Actor
Challenges to law enforcement and prosecutors
 It is often difficult for prosecutors to prove what transaction was taking place without the
cooperation of the prostitute, unless an undercover officer was posing as the prostitute.
 The number of transactions occurring is on such a massive scale that the risk of
apprehension will always be very low for the Johns.
Traffickers  Traffickers generally have significant resources that they use to fight convictions in
court. For large criminal rings operating across multiple jurisdictions this makes
prosecution a lot more difficult and expensive.
 The scale of sex trafficking, versus the amount of law enforcement and prosecution
resources that can realistically be dedicated to this area, means that the risk of
apprehension for most traffickers is also very low.
Johns
Other demand reduction initiatives
There are several complementary demand-side policy options which attempt to reduce sex
trafficking by influencing johns’ decision-making before they encounter law enforcementxviii.
These include targeted education programs (called ‘Johns Schools’) that inform johns of the
harms and risks of their behavior. These programs are aimed at reducing recidivism rates
among offenders. There are also public awareness campaigns that aim to raise awareness
of sex trafficking among the general public and promote hotlines for reporting trafficking.xix
2
Some countries such as Sweden have also included education about sex trafficking and the
harms of the sex industry into school education programs in an attempt to affect long-term
culture change to reduce the demand for commercial sex.
Services for sex trafficking victims
Sex trafficking survivors who are able to leave their situation have a variety of service needs
in order to recover from their experiences and achieve rehabilitation. Most of the services
required can be divided between four categories; medical, legal, housing and life skills.
Table 2 provides a description of the service needs of sex trafficking victims.
Table 2 Service requirements of sex trafficking victims in Chicago
Service
Required
Description
Health
Many victims are suffering from mental and physical trauma, as well as long-term
health problems. Few have had access to comprehensive healthcare during their time
as victims.
Housing
The majority of victims will have to abandon their current housing when they leave
trafficking.
Legal
Many victims have criminal records which are a serious impediment to finding
employment. Other victims who have been trafficked internationally require assistance
to access special visas.
Life Skills
Many victims were recruited as children and do not have the basic life skills to live
independently of their traffickers. Some have very little formal education and others
have lack basic language skills (especially victims who have been trafficked
internationally)
III. Critical analysis of existing sex trafficking policies and
programs in Chicago
Chicago, Cook County and Illinois are national leaders at combatting sex trafficking. Illinois
led the nation in passing two pieces of legislation enabling victims to clear their records of
prostitution crimes. There are, however, many opportunities to improve the City’s policies in
this area and collaborate more effectively with other actors to respond effectively to sex
trafficking on Chicago’s streets.
Law enforcement and legislation
Illinois government actors have made considerable progress over the past 10 years in
shifting the focus of apprehension and prosecution from sex workers to sex traffickers and
purchasers of sex. This has been achieved through a combination of legislative reforms that
have increased assistance to victims, increased the penalties for traffickers and johns and
increased the apprehension and conviction rates for these crimes (alongside coordinated
efforts by police and prosecutors). Illinois Rescue & Restore is a model partnership between
the Illinois Department of Human Services and Federal Government that brings together
various actors, including the Chicago Police Department (CPD), to apprehend and prosecute
offendersxx.
In a shift to reduce wrongful prosecution of trafficking victims, the Illinois Legislature passed
the Safe Children Act making children under the age of 18 arrested for prostitution
transferred to the child protective service system. The Illinois Justice for Victims of Sex
Trafficking Crimes Act enables sex trafficking victims to expunge prostitution convictions
from their recordsxxi.
3
The currently proposed Human Trafficking Legislation, HB3016, would amend the Illinois
Police Training Act to require the curriculum of police training schools to include appropriate
responses to victims of human traffickingxxii. This legislation promises to help ensure the
CPD treats victims as victims.
Soliciting sex in Chicago carries heavy penalties, including fines, impoundment of vehicles,
jail time and felony charges for some acts (See Appendix B for details).
Opportunities for improvement:




When they encounter sex workers, police often miss the signs of trafficking and
arrest sex trafficking victims on prostitution chargesxxiii. If arrested for prostitution, the
burden is on the trafficking victim to produce evidence that she was a victim of
traffickingxxiv. Many victims do not know their rights or have the resources to
successfully achieve this. Neither do many victims have the resources to clear their
criminal records when they attempt to rebuild their lives. As a result, women who are
arrested usually become more dependent on their traffickers, making escape even
more difficult.
Trafficking victims are often highly distrustful of police and police forces are not
trained to appropriately interact with victims when they are identifiedxxv.
The pending HB3016 legislation stipulates that the police school curriculum should
be changed, but existing police also require training.
Penalties for soliciting a prostitute are lower under the Chicago city ordinance than
the state misdemeanor charge, meaning johns do not necessarily face the harshest
punishments when arrested.
Other demand reduction initiatives
Various actors are beginning to use naming and shaming methods, public awareness
campaigns, and other techniques to reduce the demand for sex in Chicago. The CPD
publishes photos of johns on their website for 30 days following arrestxxvi. NGOs such as
End Demand Illinois have run public awareness campaigns on punishing johns that attempt
to shift the public’s perceptions away from stigmatizing sex workers who may actually be
trafficking victims. The Cook County Sheriff’s Office produced a “John’s School” DVD used
to educate individuals arrested for soliciting sex on the risks and harms of their actions.xxvii
Opportunities for improvement:



There is insufficient action from city agencies towards raising awareness of the
penalties for purchasing sex, meaning johns are not necessarily aware of the risks
until after they are apprehended. Backpage.com and other online venues are the
initial starting points of many sex transactions in Chicago, yet there are no efforts to
make these johns aware of the consequences for their actions before they act.
There is no robust Chicago-specific Johns School, nor a formal name, shame, and
deter program associated with the CPD as there is for Cook County. The CPD’s
name and shame efforts are viewed only by visitors to the CPD website. Awareness
of this site is relatively low.
NGOs have shouldered the burden raising awareness about consequences for
buying sex, but city agencies have deeper reach and access across the city. Chicago
government could bring greater reach and authority to awareness campaigns.
Services for sex trafficking victims
While CDFSS has not made sex trafficking a core programmatic focus, the department
already serves populations at risk of becoming trafficking victims. It operates six community
service centers providing shelter, food, clothing, domestic violence support, and other
assistance to vulnerable populations, and numerous youth centers providing mentoring,
counseling, and a structured out-of-school programming. This year the department is
4
expanding services and shelter capacity for unaccompanied homeless youth. CDFSS also
coordinates foster care within the City, which has been identified as a major risk factor for
trafficking. See Appendix E for more details of the services currently provided by CDFSS.
Chicago’s vibrant NGO sector also provides services for trafficked victims, and has been
instrumental in advocating for better services for victims. NGOs bring expertise,
specialization, commitment, and independent funding to anti-sex trafficking efforts (See
Appendix F for more details). There are some established avenues for NGO-government
partnerships, for example Illinois Rescue & Restore, which brings together various actors in
Illinois (including the Illinois Department of Human Services) to better coordinate service
provision for victims.
Opportunities for improvement:

The service provision partnerships that do exist are very high level and focused on
improving City responses to sex trafficking and coordination amongst local service
providers.

Front-line government staff with the CPD and CDFSS are either unaware of the vast
external services available to victims, or lack the coordination to ensure victims
receive the care they require. Despite a history of partnership on issues such as
domestic violence, interactions between social workers and police are not always
effective, as is the case in similar cities such as New York.xxviii

A national sex trafficking hotline exists, but research has demonstrated that local
hotlines are more effective in meeting the needs of victims.xxix

Despite the vast service offerings by CDFSS, DHS, NGOs and others, gaps remain.
For example, there is a shortage of safe short and long-term housing.xxx
IV. New policy development: constraints and criteria
Our analysis of the City’s current policy approach to sex trafficking has highlighted several
opportunities for improvement through changes and new policy initiatives. There are,
however, significant constraints on the available options for new policies. In this section we
describe these constraints and use them as the basis for developing a set of criteria to
evaluate new policy options.
Constraints on new policy recommendations
In order to develop a set of criteria for analyzing our policy recommendations we must
consider the constraints that will limit the scope of new actions.
Constraint 1: The complex nature of the problem
As with other entrenched and large-scale policy problems such as illegal drug use, the
potential impacts of any new policy initiatives in this area will be constrained by the complex
nature of the problem. Chicago’s existing enforcement approach has made significant
progress in prosecuting traffickers. However, it is unlikely we will ever eliminate sex
trafficking by targeting the criminals operating this industry, given the challenges outlined in
Section II. Rather than increase the focus on apprehending sex traffickers, we believe new
policies should be targeted at reducing demand for sex and improving outcomes for sex
trafficking victims whilst recognizing resource constraints and the need to address many
other significant challenges.
Constraint 2: Political sensitivity of the issue
One of the difficulties in designing policies to combat sex trafficking is that by taking more
drastic action the City may draw public attention to a problem that is currently relatively
hidden. Members of the public who are not aware of the scale and impacts of sex trafficking
5
in Chicago will have diverse reactions to new actions by the city. Potential problems include
the following:

Efforts to identify and assist trafficking victims may be construed as the City taking a soft
approach to prostitution. The same prejudices against sex workers may lead to the City
being criticized if it diverts resources from existing programs towards providing more
services to sex trafficking victims.

Given the large number of Chicago men who buy sex, strategies to reduce demand by
increasing the penalties and shaming of johns is likely to attract political opposition,
although this opposition may not manifest itself in traditional waysxxxi. Some of the
measures suggested as the most effective deterrents by researchers are among the
least palatable: billboards featuring johns’ mug shots and having johns registered as sex
offenders.
Constraint 3: Budgetary and capacity restrictions and trade-offs
Any increase in City resources devoted to sex trafficking initiatives will have an opportunity
cost in some other area of operations. The opportunity costs for developing and
implementing new programs are both strictly financial (budget diverted from one program to
another) and capacity-related (agency staff, including management, have limited time and
attention).
The recommendations we make will be particularly constrained by the following issues
facing the City in 2013:

There are several other high-profile City initiatives that have been the focus of the
current administration, particularly reducing the homicide rate and education reform.

The City budget deficit for 2013 is forecast at $300 million and there are no new tax
proposalsxxxii. As a result, there are limited funding opportunities for new programs and
the implementing agencies may have to divert resources from elsewhere if our measures
include new spending.
Constraint 4: Lack of data
There is currently a lack of robust data on the number of trafficking victims in Chicago, the
nature of the harms being done to them, the number of traffickers and the size of Chicago’s
sex industry. This will restrict our ability to target new policies in towards the most useful
areas or populations. It will also limit our ability to measure the impact of our
recommendations, following implementation. It is possible that the costs of some programs
to reduce sex trafficking are outweighed by the total benefits that result (benefits in this case
include the increased welfare of victims as well as broader social benefits to Chicago
communities of reducing trafficking). However, it will also be difficult to measure these
broader social benefits of reducing sex trafficking. This will make it difficult to build a case for
more significant interventions in the future, whether they be at the City, State or Federal
level.
Criteria for evaluating policy options
The constraints on our recommendations are useful as a basis for developing a set of
criteria for evaluating our new policy recommendations. Figure 1 shows the criteria we have
selected, and their relationship to the constraints identified.
6
Constraints on action
Criteria for evaluation
Complex
nature of the
problem
Impact:
Identify, Help,
Prevent
Political
sensitivity of
the issue
Political
feasibility|
Locus of
Control
Budget and
capacity
Cost | Potential
for partnership
Lack of data
Measurability
Figure 1 Constraints and criteria for new policy initiatives
The criteria are:

Expected Impact of the Option: Each option will be evaluated according to its
expected benefits through the Identify, Help, Prevent framework.

Political Feasibility: We must be able to manage the political risks of our
recommended policies. This includes being able to clearly demonstrate the benefits of
addressing this problem to the people of Chicago. In addition, the Mayor will need
cooperation from various agencies and organizations to make progress on this issue,
and so the recommended policy options must be attractive to those parties.

Locus of Control: The Mayor is in a position to heavily influence certain efforts, while
others, like state legislation, are not in his purview. Our recommendations should focus
on policy options that the Mayor’s Office can direct using his formal and informal
authority.

Cost: The recommended policy options must be either revenue-neutral or low-cost.

Potential for partnership: The recommended policy options should make use of
opportunities to partner with other organizations. Policy options that can be
implemented through partnerships between the City and state agencies or NGO
organizations will require fewer resources to be diverted from existing city programs.

Measurability: The recommended policy options should be measurable in both their
costs and benefits. These measures will be more politically feasible, are more
compelling to the public and are more likely to receive ongoing streams of funding, as
long as the data demonstrates positive progress.
7
V.
Policy Options and Evaluation
In this section we evaluate policy options for enhancing Chicago’s effort to curb sex
trafficking. We focused on options that can be implemented by the CPD and CDFSS. These
agencies are somewhat unlikely partners in policy implementation. However, they have a
solid foundation of collaboration to build upon, having worked together in the past on other
initiatives such as domestic violence. An additional incentive for collaboration is that some of
the federal grant money for anti-trafficking initiatives mandates partnerships between law
enforcement and service agencies. In order to gain funding, CPD and CDFSS must work in
tandem. Finally, both departments are facing pressures on the issue of sex trafficking and
are ready to work on this issue.
Policy options
Table 3 lists the policy options that were evaluated for the CPD and CDFSS.
Table 3 New anti-trafficking policy options for CPD and CDFSS
CPD-led policies
1. Change arrest protocols to reduce prostitution
arrests and increase arrests of johns.
2. Increase fines and penalties for johns.
3. Target internet sites with advertising and fake
profiles.
4. Train police in recognizing potential victims.
5. Create a specialized task force of law
enforcement officers to deal specifically with
trafficking.
6. Offer deals to johns who collaborate with law
enforcement in identifying traffickers.
7. Set arrest quotas for law enforcement officers
who work on trafficking
CDFSS-led policies
1. Partnering with NGOs to increase public
awareness and create a local hotline.
2. Use pro-bono consultant for NGO
capacity building.
3. Training existing City service providers to
identify trafficking victims and connect
them with services.
4. School programming on sex trafficking
targeted at at-risk girls.
5. Convene task force and apply for grants.
6. Develop resource guide with NGOs.
7. Hire case coordinators for victim services.
Evaluation of policy options
Table 4 contains an evaluation of these options against our criteria from Section IV. Options
that are included in our final recommendations are shaded grey. The recommended policies
are described in detail in the following section.
8
Table 4 Evaluation of policy options according to selected criteria (shaded options are included in final recommendations)
Option
Impact
Cost
Political
Feasibility
Change arrest
protocols to
reduce
prostitution
arrests and
increase
arrests of
johns.
High: Should reduce
harms done to victims
and increase their
chance of recovery
and rehabilitation, and
lead to demand
reduction by penalizing
more johns.
Low: arresting
fewer prostitutes
should save CPD
money. Changing
the protocol will not
cost money but retraining the police
to follow the
protocol has
opportunity costs in
police time and the
cost of training.
Medium: Society at
large and some police
officers still regard
victims of trafficking as
criminals and not
victims.
Increase fines
and penalties
for johns.
Medium: Although
there is no conclusive
data, increasing
penalties for johns
should reduce
demand.
Depends: Higher
fines means higher
revenue for the
city. Prosecutions
and incarcerations
are expensive.
Target internet
sites with
advertising and
fake profiles
High: The internet is
the most important
trafficking forum, so
we know
advertisements will be
highly targeted.
Medium-high: It
requires a new
allocation of
resources to design
and purchase ads.
Medium: As above,
depends on public
opinion surrounding
sex trafficking. Some
groups may also
object to higher
penalties for johns
(uncertain).
Medium: Depends on
public opinion. Some
may not want to the
police to be watching
the internet so
carefully.
Locus of
Control
Measurability
Potential for
Partnership
Medium-high:
The Mayor has
significant
influence in
shaping policies
with the
Superintendent of
Police.
Medium-low: It is
possible to measure
something like “arrests
not made,” but it is
hard to quantify
treatment of victims
and the positive
impacts of not being
arrested. Hard to
measure demand
reductions due to
increased john arrests.
Low: The protocol
change and
training will be
implemented by
police.
Medium: The
Mayor can lobby
the City Council to
change the city
ordinance and
lobby at the state
level for higher
state penalties.
Medium-high:
The Mayor has
significant
influence in
shaping policies
with the
Superintendent of
Police.
Medium: Can
measure increases in
fines and penalties,
but it is hard to
measure reductions in
demand.
Medium: Can
work in tandem
with prosecutors
to make sure the
higher penalties
are pursued in
court.
Medium-low: Can’t
measure demand
reductions resulting
from these actions.
Could conduct or
commission focus
groups with johns to
research which
methods were
effective.
High: Can work
with organizations
that work with
victims and
survivors to help
pinpoint efforts, do
research with
johns and design
ads.
CPD-led initiatives
Option
Impact
Cost
Political
Feasibility
Locus of
Control
Measurability
Potential for
Partnership
Train police in
recognizing
potential
victims
Medium: There will
likely be some
improvement in
identifying victimsleading to fewer wrong
prostitution arrests.
Medium-high:
Training police officers
to better help victims
is not controversial.
However, the public’s
definition of “victim”
may be controversial.
Medium: The
Mayor has
significant
influence in
shaping policies
with the
Superintendent of
Police.
Medium-high: It is
possible to measure
the increase in the
number of victims
identified.
Medium-high:
Trainings can be
created and
conducted with
the help of outside
resources, namely
organizations that
work with victims
and survivors.
Create a
specialized
task force of
law
enforcement
officers to deal
specifically
with trafficking
Medium-high: A
specialized team can
move “up the food
chain” in the sex
trafficking business
and make more
arrests.
Medium-low:
There are
opportunity costs
associated with
developing and
delivering the
training, including
police time not
spent on patrol, but
neither are
expensive.
High: Hiring and
training a team
dedicated
exclusively to sex
trafficking would be
quite costly.
Medium: Depending
on public opinion, a
specialized force
could prove
controversial.
High: It is
certainly possible
to ask the Chief of
Police to create a
special initiative to
combat a specific
problem.
Medium-High: Can
easily measure results
of the team, although
putting that in context
of quantity of sex
trafficking in Chicago
is hard to measure.
Offer deals for
johns who
collaborate
with law
enforcement in
identifying
traffickers
Medium-low: Will help
law enforcement find
more people, but not
necessarily most
influential traffickers.
Low: Fines may
decrease, but that
decreased income
is offset by better
targeting by law
enforcement.
Medium: The public
may not appreciate
deals being cut with
people they see as
criminals.
Medium: The
Mayor can work
with city
prosecutors and
the police force to
ensure that this
happens.
Medium-high: Can
easily track the
number of traffickers
located because of
collaboration with
johns.
Low: Unless there
are other state or
federal law
enforcement
agencies doing
similar things, this
would be an
initiative
undertaken solely
by the CPD.
Medium: There is
a potential to
collaborate with
other
organizations who
fight to curb the
demand for sex
trafficking, such
as CAASE.
10
Option
Impact
Cost
Political
Feasibility
Locus of
Control
Measurability
Potential for
Partnership
Set arrest
quotas for law
enforcement
officers who
work on
trafficking
Medium: Helps to set
arrests of sex
traffickers as a priority.
Medium-high:
Requires a
substantial
allocation of
resources to
ensure that it
happens.
Medium: Requires the
public to agree that it
is a priority.
Medium: The
Mayor can set
priorities with the
Superintendent of
Police, but we
don’t want to
micromanage.
High: Number of
arrests is easily
measured.
Low: This would
be an initiative
undertaken solely
by the CPD.
Partnering with
NGOs to create
public
awareness and
create a local
hotline
Medium: If it reaches
the right population,
could make a lot of
progress on the
problem of identifying
victims.
Medium: Staffing
the hotline and
advertising the
number will require
new funding;
volunteer staffing is
a possibility.
Medium: This
initiative will raise
public awareness of
trafficking in Chicago,
which may create
pressure for the City
to do more.
High: NGOs will
be the drivers and
primary funding
source of the
initiative.
For the campaign,
NGOs are acting
as partners and
have their own
funding sources,
the only cost to the
city would be the
opportunity cost of
the time of the
initiative chair.
However, this initiative
will also raise the
awareness of the
plight of victims,
building political
support for the other
recommendations.
Medium: Can
measure how many
victims are identified
pre- and postintervention, but can’t
prove causation. Could
survey survivors and
ask what helped them
leave the life, and see
if they indicate the
hotline.
CDFSS-led initiatives
11
High: The Mayor
doesn’t need
approval from any
agencies in order
to set up a hotline.
The Mayor can
request that a
CDFSS staff
member convene
the group.
When a victim is
reported by a third
party, we could collect
data about whether
they were informed by
the campaign or
hotline.
Option
Impact
Cost
Political
Feasibility
Locus of
Control
Measurability
Potential for
Partnership
Training
existing City
service
providers to
identify
trafficking
victims and
connect them
with services
Medium: depends on
the quality of the
training, but since so
many trafficked minors
are in the foster care
system, there is
potential to make a lot
of progress on
identifying victims.
Medium-low:
Costs for materials,
facilitators, space,
and the opportunity
cost of time.
Possibility of grant
funding or pro bono
work from NGO
staff.
High: Training
programs are not
politically
objectionable and
these individuals
already receive
trainings on many
topics.
High: The Mayor
has a high degree
of influence over
the child welfare
system in
Chicago.
High: Could measure
the number of
identified trafficked
victims in the child
welfare system preand post-intervention.
Contract probono
consultant for
NGO capacity
building
High: More identified
victims means a
greater need for
services, and if the
NGOs can expand
their services
strategically based on
consultant
recommendations,
more survivors will
receive a greater
number of services.
Low: May deter some
girls from trafficking,
but doesn’t eliminate
their risk factors
(poverty, abuse etc.)
so it’s not clear it will
prevent girls from
entering the life.
Low/RevenueNeutral: If the
consultant agrees
to work pro-bono,
the only cost is the
opportunity cost of
the CDFSS
liaison’s time.
Low: This initiative is
not high-profile, nor is
it objectionable to
research how NGOs
could work more
efficiently and grow.
High: The Mayor
has control over
the CDFSS
commissioner,
and also has
contacts with
consulting
companies to
lobby for them to
take the case.
Medium: It’s possible
to measure how many
new services are
created, but this will be
a few years down the
line.
High: Can partner
with state
agencies to
develop materials
(such as the
Rescue and
Restore program)
and train front-line
workers. Also
potential to
partner with
NGOs.
High: Engages
the private sector
and relevant
NGOs. In the past
the City has
engaged
consultants
McKinsey & Co.
on education
strategy pro-bono.
Low/Revenueneutral: Most of
this programming
could be done by
NGOs or funded
with the existing
Youth Services
budget of CDFSS.
Medium: Parents may
have a problem with
their younger children
being exposed to
explicit material;
schools may want to
focus on academics
given current level of
challenge in Chicago
Public Schools.
Medium: The
Mayor has
influence over the
CPS
superintendent,
but individual
schools would
have to endorse
the program.
Low: It’s difficult to
quantify the number of
prevented victims,
especially given there
is not solid data on the
current number of
victims entering the life
each year.
School
programming
High: Partnering
with schools and
NGOs will be
required.
12
Option
Impact
Cost
Political
Feasibility
Locus of
Control
Measurability
Potential for
Partnership
Convene task
force and apply
for grants
Medium: Coordinated
efforts with law
enforcement would
improve outcomes;
however the amount of
the grants tend to be
quite low and the
impact is contingent on
receiving the
competitive grant
Medium: It depends
upon the specific
recommendations that
the task force makes.
Some law
enforcement policies
might be controversial.
High: The Mayor
can ask these
agencies to
partner and apply
for the grant
Low: Especially since
this program is
attacking all three
dimensions of the
problem, isolating its
impacts would be
difficult
High: The grant
requires
collaboration
between law
enforcement and
service agencies,
and they must
write the grant
together
Resource
guide with
NGOs
Medium-low: Could
help front-line service
workers to provide
better services to
victims
High: A resource
guide is not a
controversial proposal
High: The Mayor
can request that a
CDFSS staff
member convene
the group
Medium: NGOs can
track if there is an
increase in victims
using their services,
but it would not be
totally clear if it were
due to the resource
guide or other efforts
High: All NGOs
would be engaged
Case
coordinators
for victim
services
Medium: Case
coordination models
are evidence-based,
and may significantly
improve the quantity of
services victims
receive. This initiative
alone will not increase
the amount of
available services,
however.
Low: If the grant is
awarded, the
program would be
fully funded. There
is the opportunity
cost of the task
force and grant
writers to consider,
especially if the
grant is not
awarded.
Low/RevenueNeutral: Since
NGOs are acting
as partners and
have their own
funding sources,
the only cost to the
city would be the
opportunity cost of
the time of the
initiative chair
Medium: The case
coordinators would
require salaries of
approximately
$30,000/year plus
benefits.
Medium: This
initiative would require
new government hires
and changing budget
items, which may be
unpopular with the
department.
Medium: The
Mayor holds
considerable
influence, but the
department needs
to support the
initiative for it to
work.
Medium/High: Can
track outcomes of
victims pre- and postinterventions; could
also do a control group
of victims who don’t
receive coordination
services for a year and
compare outcomes
(whether they are
being trafficked again,
mental health etc.)
with those who did.
High: all NGOs
would be
engaged, as well
as state and
federal service
providers.
13
VI. Recommendations
We have selected a menu of recommendations that each department can implement,
from the options evaluated in Section V. These options are described in detail, in
order of priority of implementation. In addition to explaining why we selected these
recommended options, we have delineated the key components of each option,
their expected impacts, and the steps to implementation.
Chicago Police Department Initiatives
Recommendation 1: Protocol changes for reducing prostitution arrests
and increasing arrests of purchasers of sex
Key Components
The Chicago Police Department will change its arrest protocols for prostitution, so
that young girls and women who would normally have been arrested for prostitution
will no longer be arrested and will instead be directed toward victims’ services that
will help break the cycle of victimization. This change in protocol will affect a longerterm shift in officers’ perceptions of sex workers that will benefit victims in the long
term.
While victims will no longer be arrested, they still must be taken into police custody
for processing. Police officers should run a background check on victims that they
have picked up and gather as much information from the victim as possible, such as
information regarding her trafficker or other leads that could lead to further
investigations by the police. After being processed, the CPD will liaise with CDFSS in
order to find appropriate victim services.
Alongside this change, johns will be treated with less leniency: the protocol will state
that all johns encountered be arrested and charged, although it is likely officers will
continue to exercise discretion.
Expected Impact

Fewer victims will be arrested, charged and end up with onerous arrest records.
This will also create greater trust between police and victims.

More victims will access services for recovery and rehabilitation.

The demand for purchased sex will decline as enforcement becomes stricter.
Steps to Implementation:
Operationally, we expect there to be a fairly straightforward implementation process
for this initiative. Although the culture surrounding how police officers currently
interact with victims will take some time to change, it can begin immediately by
changing formal protocol.
1. CPD revises its written protocol to reflect changes.
2. CPD develops a police training curriculum with help from experts who have
worked with victims, most notably Rescue & Restore Illinois.
3. CPD officers must be trained on the change, including why we are making the
change (officers in the south and southwest districts should be given priority).
Survivors of sex trafficking may play a key role in facilitating the training.
Additional personnel who will require training include:
i.
Top-level CPD administrators and managers.
ii.
Area bureau chiefs.
14
4. Follow-up and monitoring to ensure that protocol is being followed.
5. Monitoring and evaluation to quantify expected impacts listed above.
Recommendation 2: Higher fines and additional penalties for
purchasers of sex
Key Components
At present, johns can be prosecuted under state legislation, or a city ordinance. The
city ordinance carries more lenient penalties than the state legislation. The Mayor
should work with the City Council to change this ordinance and make them
equivalent.
The next step is to ensure that johns who are arrested and charged are then
prosecuted to the full extent of the law and that the penalties and fines imposed on
them are as high as possible given current legislation. The Mayor will have to work
with the city prosecutor’s office to ensure that this is seen through to the largest
extent possible. Prosecution, in tandem with immediate arrest, will send purchasers
of sex a clear message that the city of Chicago is treating purchasing sex as a
serious crime. These changes are operationally feasible. The only requirements for
implementation are that police officers and prosecutors understand and are aligned
with the protocol.
Expected Impact

Demand for purchased sex will decrease.

Revenue from fines will increase, which can in turn be used for victims’ services.
Steps to Implementation
1.
Mayor’s office to lobby City Council members to approve a change the city
ordinance for soliciting a prostitute from what is now a $750-$1500 fine up to a
maximum $2500 fine.
2.
Ensure that current CPD protocol calls for immediate arrest of any person
suspected of purchasing sex and that the person be charged with a state crime.
3.
Work with city prosecutor’s office to ensure that when johns are taken to court
that the fines and penalties sought are as high as possible.
4.
Follow-up on the part of both the CPD and city prosecutor to evaluate whether
this protocol is being followed.
5.
Monitoring and evaluation to quantify results, including number of arrests made
and fines collected.
Recommendation 3: Targeting internet sites with advertising and fake
profiles
Key Components
The Internet represents the number one resource for people who want to purchase
sex. Websites, such as backpage.com and Craigslist, have “adult” sections that are
filled with advertisements for those looking to purchase sex. In addition, message
boards such as the USA Sex Guide serve as online communities for purchasers of
sex to exchange information with peers. The relatively anonymous nature of the
Internet and the ease of access make it the most popular resource for those wishing
to purchase sex.
One key strategy to curb the demand for sex is to advertise increased penalties and
enforcement on the different types of online forums. This can take two forms: first,
15
and most simply, the CPD and collaborating organizations can purchase
advertisements that explicitly state that the CPD will increase its presence in
enforcing anti-sex trafficking laws. Second, the CPD and collaborating organizations
can create fake profiles on websites such as backpage.com that, when clicked on,
advertise the higher fines, penalties and enforcement that the CPD will be
undertaking.
By advertising higher enforcement and penalties at the heart of the sex trafficking
industry – on the Internet – the message of higher enforcement will get out to a
greater number of purchasers of sex in a cost-effective and efficient manner.
This could prove to be operationally complicated if sites such as backpage.com are
unwilling to cooperate with law enforcement officers. If that is the case, explicit
advertisements will need to take a backseat to the approach of posting fake profiles.
However, there is reason to believe that pressure from law enforcement agencies
such as the CPD would at least open up a discussion between law enforcement
agencies and websites to work toward finding a solution to this problem.
Expected Impact

Demand for purchased sex will decrease.

Websites that profit from illicit “adult” sections will, at the very least, be forced to
reevaluate whether or not they want have those sections on their websites.
Steps to Implementation
1.
Discussions to earn buy-in of top-level law enforcement administrators.
2.
Negotiations with websites to determine whether or not explicit advertising of
increased penalties would be permitted on the website.
3.
Design of advertisements and/or fake profiles with the help of agencies who
have researched how purchasers of sex react to such advertisements.
4.
Monitoring and evaluation to quantify results, including number of
advertisements created and number of clicks on links of fake profiles. Monitoring
can also include online forums to determine whether or not the higher penalties
are being discussed among those who purchase sex, and what their reaction is.
Recommendation 4: Training police in recognizing potential victims
Key Components
Although each victim has a different story, victims of sex trafficking, in general, share
certain characteristics. By knowing those characteristics and looking for warning
signs, police officers can better identify trafficking victims and, in some cases,
prevent trafficking before it even happens.
As an illustrative example, let’s take drug addiction. While protocol may lead a police
officer to arrest a 15-year-old girl for a drug offense if she is found in possession of
an illicit substance, additional follow-up might lead the police officer to determine that
the girl is at risk of becoming trafficked. Is she currently or was she previously in
foster care? Does she have a history of sexual abuse? Instead of prosecuting the girl
for a drug offense, we should instead work to guide her toward victims’ services that
may deter her from falling into the trap of being trafficked.
This training program should be relatively simple to implement, alongside other
regular officer trainings. Monitoring whether or not officers’ behavior changes is not
as simple. Operational capacity to deal with the implications of identifying victims or
potential victims may also be problematic, since CPD law enforcement officers do not
have the time or resources to do a full, in-depth background check on every single
16
15-year-old girl that they pick up for a drug offense. For that reason, we need to work
to establish partnerships between the CPD and other social service organizations
(such as the CDFSS) to ensure that we can make use of non-CPD resources to
reduce the work involved in processing.
Expected Impact

More potential victims would be deterred from the trap of sex trafficking.

More existing and potential victims would be protected from having onerous
arrest records that would preclude them from future employment and education
opportunities.

More at-risk youth would be directed toward the services that they need to break
the cycle of victimization.

Complements recommendation 1 by increasing officers’ awareness of sex
trafficking victims.
Steps to Implementation
1. Discussions to earn buy-in of top-level law enforcement administrators.
2-4. Steps 2-4 in Recommendation 1 should be followed for this training. CPD should
also collaborate with CDFSS to develop a joint curriculum if possible.
5. CPD and CDFSS establish a joint system of monitoring for youth who have been
arrested in order to better assess warning signs for potential victims of
trafficking.
6. Follow-up to ensure that protocol is being followed.
7. Monitoring and evaluation to quantify expected impacts listed above.
Chicago Department of Family and Support Initiatives
Recommendation 1: Public awareness campaign with NGO partners
including hotline
Key Components:
A representative from CDFSS will serve as a liaison to the many NGOs and faithbased organizations who are working in the anti-trafficking space. The CDFSS
representative will propose a coordinated project in which the NGOs spearhead a
public awareness campaign. The goals of this campaign will be to a) raise
awareness about the prevalence of trafficking in Chicago, b) help the general public
understand the exploitative circumstances these women face, and c) provide
information about how the public can identify victims in their daily life and report them
so that they can receive services.
The campaign will include a local hotline number that members of the public can call
to report suspected trafficking. The hotline will also be an option for trafficking
victims to self-report and seek services. The hotline will be advertised in both
conventional locations (billboards, public transit) and unconventional locations
(cleaning products, toilet stalls). The conventional locations will reach members of
the community, whereas the unconventional locations will reach victims. The
advertising materials will be in multiple languages to help with international victims
who may speak limited English; hotline workers will also be recruited with a variety of
language skills.
Since it is already a goal of many Chicago-area NGOs to raise awareness about
trafficking, we believe that many will be willing to commit their own resources (both
human and financial) to this project. Therefore, the CDFSS will merely need to play
17
a coordinating and facilitating role. The department may need to make a partial
financial contribution to the hotline, but it is expected to be relatively minimal. The
main operational obstacles will be staffing the hotline over the long-term particularly
with multi-lingual personnel.
Expected Impact:

More victims call a hotline; both women self-reporting and members of the public
reporting on their behalf.

A shift in public opinion away from “criminals” to “victims;” less of a stigma.

Chicago electorate more knowledgeable about trafficking than they were prior to
the campaign.
Steps to Implementation
1.
CDFSS convenes NGOs who have public awareness as part of their strategy.
2.
CDFSS prepares a presentation outlining the goals of the campaign.
3.
CDFSS and NGOs benchmark with other state and city campaigns in the US to
learn best practices.
4.
CDFSS and NGOs make a budget for the next 3 fiscal years of the project and
determine the degree to which each entity will contribute.
5.
CDFSS and NGOs make materials and buy advertising space.
6.
CDFSS and NGOs hire staff for hotline and train them. Materials from the Polaris
Project National Hotline can be used as a benchmark for requirements, but they
should be tailored to the Chicago context.
7.
CDFSS and NGOs collect data on the hotline and use polling data to determine
how the public views the issue of trafficking
Recommendation 2: Training existing City service providers to identify
trafficking victims and connect them with services
Key Components:
This option entails running a similar training program to CPD Recommendation 4, for
CDFSS case workers, foster parents, and health care workers/school workers if
funding permits. These trainings will provide screening tools and interview
questions, as well as instructions on how to report trafficking. In terms of operational
feasibility, the trainings are a one-time intervention, so the resource requirements are
limited to space and trainers. There is a possibility that NGO workers would
volunteer their time to do the trainings.
CDFSS also currently provides services in Chicago communities like youth
programming and community centers. These local organizations are positioned to
make community-level responses to trafficking, but they are not currently thinking
about trafficking in their program design. CDFSS could ask these providers to
prepare a plan for how they will incorporate trafficking issues into their current
programs, whether it is education, support groups, or other strategies that would
allow them to contribute to identification, helping, and prevention efforts.
Operationally, these efforts are not too taxing as they require no new programs and
only require a small bit of training on the front-end to adapt already existing
interventions.
Expected Impact

More frontline service providers (foster parents, case workers, health care
providers, and school personnel) will report trafficking cases.
18

Victims will be referred in greater numbers to the appropriate services.

CDFSS programs that are already operating in communities will address the
issue of sex trafficking, which will raise public awareness and also contribute to
making at-risk minors less susceptible to trafficking.
Steps to Implementation
1.
CDFSS needs to benchmark with other organizations about the best trainings for
service providers. A potential partner is Illinois Rescue and Restore, run through
Illinois DHS, which has training materials and capacity.
2.
CDFSS must mandate training for other service providers and set training dates.
3.
CDFSS implements training or engages a partner to do so.
4.
CDFSS presents trafficking concerns to their sub-agencies and requests memos
on how these programs will adjust their offerings to better address trafficking.
5.
CDFSS collects data on reporting made by frontline service providers.
Recommendation 3: Connect victims to services and map existing
services to facilitate NGO capacity-building
Key Components
As Chicago implements this suite of recommendations, more victims will be rescued
from trafficking because of trainings and public awareness. This victory creates a
new problem: an increase in identified victims will lead to an increase in demand for
support services in the domains of housing, medical service, legal service, and skill
building. CDFSS can help to address this demand in the following two ways:
1. Help connect victims to existing services by convening with NGOs and
faith-based organizations. These partnerships allow CDFSS to play an
intermediary role; when a victim is identified, CDFSS can refer her to the
appropriate services and have a sense of which services have untapped
capacity. This requires little change to current practices, just some education
for staff about existing resources and their capacity.
2. Facilitate capacity-building by NGOs to increase their funding for
services. There is no doubt that the demand for services will exceed the
supply, particularly in the sector of housing. Due to cost and capacity
constraints, CDFSS is not in a position to provide more victim services
themselves. However, the NGO sector has the potential to grow their
capacity in terms of victim services, and they can do so with independent
funding sources. CDFSS can act as a facilitator in this process by finding a
pro-bono consultant (like McKinsey, a firm that has partnered with the city
before,) and asking that consultant to a) map existing services, b) determine
best practices amongst NGOs, c) model future demand for services, d) do a
needs assessment, and e) provide recommendations for new funding
sources, whether it is social impact bonds, public-private partnerships, or
individual donors. Commissioning this report will provide the CDFSS with
good information that they can use to guide the NGOs.
Expected Impact
Any services that are currently under-utilized will be utilized at capacity due to better
connections
19

NGOs will receive recommendations about how best to grow their services

NGOs will grow their services to meet demand over the next 10 years

NGOs who track outcomes for victims (recidivism into “the life,” secure
housing and employment) will see improvements in their data
Steps to Implementation
1. CDFSS convenes with NGOs to get a comprehensive look at services and
gather data on capacity.
2. CDFSS provides referral services to newly identified victims based on this
capacity data.
3. CDFSS, in partnership with the Mayor, seeks a pro bono consultant.
4. CDFSS helps the consultant gain access to the relevant NGOs.
5. Consultant makes recommendations.
6. CDFSS supports recommendations to the extent that they can.
VII. Conclusion and Next Steps
We have recommended a suite of new policies to improve the City’s current efforts to
curb sex trafficking. The following factors have created a strong imperative to
implement some, or all of these recommendations as soon as possible:




The current approach, focused on apprehending sex traffickers is unlikely to
have a significant impact on the problem, due to its enormous scale and the
financial resources of traffickers.
Pressure from NGOs and community groups for CPD, CDFSS and the City to
do more to curb sex trafficking.
The recommended actions require few new resources and the trade-offs
involved in their implementation are minimal.
CPD and CDFSS have both demonstrated their commitment to improving
their approach.
In order to move forward with this strategy, there are short- and medium-term next
steps for the Mayor.
Short Term
1) Use Mayoral authority to raise fines for johns.
2) Appoint trafficking liaisons in CPS and CDFSS.
3) Direct liaisons to allocate responsibility for each initiative within their
agency.
4) Each responsible manager should use the implementation processes
outlined to develop a plan including timelines and a budget for review by
the Mayor, Superintendent of Police and Commissioner.
Medium Term
5) Re-convene with liaisons.
6) Examine data on rates of identification and utilization of services by
victims.
7) Analyze other indicators that are being tracked through implementation to
examine internal impacts (such as changes to staff behaviors) and
external impacts (such as changes to johns perceptions of the risks of
commercial sex).
8) Commission a report on whether benchmarks have been met and what
new strategies, if any, should be pursued going forward
20
VIII. Appendices
Appendix A: Characteristics of Chicago sex traffickers and
trafficking victims
Sex traffickers
Traffickers likely experienced physical and sexual abuse in their youth. While a
majority of them are not addicted to alcohol and drugs, growing up there was a likely
chance of having drugs and alcohol in the home.
Table 5 and Table 6 are a breakdown of the demographic and social characteristics
of a group of 25 Chicago traffickers (described in the report as pimps and madams),
from a 2010 study by DePaul College of Law. xxxiii
Table 5 Profile of Chicago sex traffickers. Source: Raphael and Myers-Powell (2010)
21
Table 6 Family and childhood characteristics of Chicago sex traffickers Source: Raphael and
Myers-Powell (2010)
Sex trafficking victims
A 2001 study of women detained for prostitution at a Cook County Jail describes the
following characteristics: xxxiv






62% of the women who are involved with the Chicago sex trade on a yearly
basis first got involved before the age of 18.
women were two and three times above the national average as survivors of
sexual assault and domestic violence.
82% of the women are mothers.
54% reported being homeless in the previous 30 days.
33% of the women stated that substance abuse was a barrier to employment.
29% of the women said they had an application denied for government
assistancexxxv.
Appendix B: Penalties for soliciting sex in Chicago
Puchasers of sex in Chicago face the following penalties:
-
-
Soliciting for a prostitute under Illinois law is a Class A misdemeanor
punishable by up to one year in jail and as much as $2,500 in monetary fines.
Soliciting a prostitute under the Chicago city ordinance rather than the state
law, carries a penalty for a first offense of 20 days to 6 months in jail and a
fine between $750 and $1,500. A second or subsequent offense by any
individual is a Class 4 felony punishable by up to three years in prison.
Soliciting a minor or soliciting within 1,000 ft of a school is also a felony
offense,
CPD can impound any vehicle used in solicitation, requiring offenders to wait
at least two hours and pay a fee of $2000.
22
Appendix C: Description of Chicago Police Department
The CPD boasts a staff of 14,358 sworn officers and civilian employees spread out
over 25 districts covering every corner of the city of Chicago. Those 25 police
districts are further subdivided into a network of 279 police beats, or small
geographic areas to which police officers are assigned. This averages to 574 police
personnel per district and roughly 50 officers per beat.xxxvi The total budget of the
Chicago Police Department in 2013 is $1,359,067,162 with $16,114,087 being
turnover from 2012.xxxvii
Structure
The CPD is led by Superintendent Garry F. McCarthy. He is immediately supported
by the First Deputy Superintendent, Alfonsa Wysinger, who directly supervises five
Bureau Chiefs. The bureaus, with their respective manpower and funding statistics
for 2013, are in Table 7.xxxviii
Table 7 CPD Bureaus
Office
Number of Full-Time
Employees
2013 Funding ($)
Office of the
Superintendent
273
24,399,849
Office of the First
Deputy
51
5,105,352
Bureau of Patrol
11,292
1,024,264,394
Bureau of Detectives
1,351
119,317,115
Bureau of Organized
Crime
866
72,171,077
Bureau of Organizational
Development
123
11,872,815
Bureau of
Administration
402
101,936,560
TOTAL
14,358
1,359,067,162
The 25 police districts are each led by a commander who reports to the North,
Central, and South Area Deputy Chiefs respectively, who then report to the Chief of
the Bureau of Patrol. Figure 2 describes the structure of the Bureau of Patrol:
23
xxxix
Figure 2 CPD Structure
Community-Assisted Policing Strategy (CAPS) as a potential tool
against trafficking
First rolled out in 1993 by then Superintendent of Police Matthew L. Rodriguez, the
Chicago Police Department’s primary policing philosophy is known as CAPS, or the
Chicago Alternative Policing Strategy. CAPS is a partnership between the police and
the community to prevent crime. CAPS involves four major elements:
1. Expanded Police Presence on the Beat
2. Community Involvement
3. Support from Other City Agencies
4. Proactive Problem Solving
Under CAPS, the same police officers patrol the same beat for at least a year,
developing relationships with local residents, who subsequently feel more
comfortable reporting crimes to police. Furthermore, monthly beat community
meetings are held in which local residents, community groups, and block clubs sit
down with beat officers and other personnel to discuss neighborhood problems and
priorities. These meetings are an ideal setting for community members and
police to address sex trafficking issuesxl.
Many city agencies, not just the police, have made CAPS a priority. Special
procedures have been established to allow police to quickly access the services of
and coordinate with the Mayor’s Liquor License Commission, the Department of
Streets and Sanitation, the Department of Buildings, and other agencies. Thus, the
framework is already in place to integrate police with other city agencies to
solve sex trafficking problems.
The spirit of CAPS is not just to react to crime, but to proactively prevent crime
through a partnership of police, community members, and other city officials.
Community members are already willing to report suspicious activity when they see
24
it. Therefore, sex trafficking should be made a priority in beat meetings in which
police can train community members on what signs to look for, and then report.
The CAPS program is currently undergoing reform. One problem has been the City’s
CAPS program has too many people in the downtown office, and not enough
personnel in the actual districts they are supposed to be serving. The 2013 budget
proposes moving CAPS personnel and resources out of downtown and back into the
individual districts. Thus, the 50 personnel and $4.6 million devoted to CAPS in 2012
will be distributed among the 25 districts starting this year. This will involve putting
every commander in charge of their own community policing efforts. Commanders
will be held accountable for the results they produce through the CompStat computer
policing program.xli
Appendix D: Anti-Trafficking Activities in Cook County
The Cook County Sheriff’s Police Department is an important partner to CPD in
combatting sex trafficking. It is the third largest police department in the State of
Illinois, with more than 500 officers and 100 civilian personnel. The department’s
primary responsibility, as mandated by the state constitution, is to provide basic
police services to the 109,000 residents who work and reside in the unincorporated
areas of the county. These 72 square miles are sporadically pocketed in between
the 128 municipalities and within the 946 square miles that are encompassed by the
borders of Cook County.xlii
To deal with issues unique to women including victims of sex-trafficking, the Sheriff
developed the Cook County Sheriff’s Women’s Justice Program, or DWJS. The
Department of Women’s Justice offers resources to women involved in commercial
sexual exploitation and prostitution through the Human Trafficking Response Team
(HTRT). The HTRT is a multi-disciplinary team comprised of survivors of prostitution,
court liaison, mental health professionals, addiction specialists, health service
providers, and case managers. The response team works closely with the Cook
County Sheriff’s Police Department. The police department has been trained to
identify victims of prostitution who have been lead into the lifestyle out of desperation
and survival.xliii
A pivotal strategy in law enforcement’s approach is to focus on the demand for
prostitution as well as offering services to the victim at the time of arrest. The
partnership with the Cook County Sheriff’s Police vice unit is unique and
innovative. The Sheriff’s Police Vice Unit identify women as a victim in need at the
point of arrest. The HTRT is deployed to the police station and offers the victim
safety and services to assist in leaving the lifestyle and addressing the experience of
a lifetime of traumatic incidents. The intervention continues throughout the court
process while ensuring safe re-entry into the community through the many resources
developed through the Sheriff’s Women’s Justice Programs.xliv
Other Cook County Sheriff’s Women’s Justice Programs include:
25

Women’s Residential Program (WRP): a 160 bed intensive in-patient
treatment program offered in a modified therapeutic community setting within
the Cook County Jail.

Sheriff’s Female Furlough Program (SFFP): an outpatient day-reporting
program where women are required to report daily for treatment and case
management services, returning home in the evening to care for their families
while on electronic monitoring.

MOM’s Program: a 24 bed off-site community-based treatment program for
pregnant and parenting women and their preschool age children offered in a
safe, supportive environment that promotes the mother/child bond.
All DWJS programs incorporate a trauma informed integrated model of treatment that
addresses the complex issues impacting women’s functioning and substance use in
a safe, supportive treatment environment.xlv
The Cook County Sheriff’s Department has participated in two major anti-sex
trafficking movements including the National End Demand Campaign and the
Illinois End Demand Campaign. The Department lead a nationwide initiative to
crack down on johns in what has been called the “National Day of Johns Arrests.”
Between October 2011 and February 2013, 5 of these often times week-long sting
operations have occurred.xlvi The sting with the most striking numbers took place
over the ten day period leading up to February 6 2012, boasting the following nationwide results:

565 total individuals were arrested during the sting

314 men were arrested for soliciting sex

227 misdemeanor arrests (includes prostitution)

2 human trafficking arrests

5 pimping arrests

3 pandering arrests

4 theft arrests

10 possession/delivery of drugs arrests

12 weapons charges

667 total charges were filed

114 vehicles were towed

Up to $474,300 may be collected in fines
As part of its focus on ending demand, the Cook County Sheriff’s Office produced a
“John’s School” DVD for partnering law enforcement agencies to be shown to
people arrested for soliciting sex from a prostituted/trafficked individual. More than
4,000 of these DVDs have been distributed to law enforcement agencies all over the
country.
Cook County Sheriff’s Department has come out with a “Johns” Ordinance called
the Cook County Public Morals Nuisance Violations Ordinance. The intent of this
ordinance is to abate the demand for prostitution by increasing fines for those
individuals patronizing persons in prostitution. Fines collected for violations are
deposited in the established “Women’s Justice Fund” and utilized to pay for services
for women and girls.xlvii
Appendix E: CDFSS and Other Government Agencies’ AntiTrafficking Efforts
Chicago Department of Family and Support Services
While CDFSS has not made sex trafficking a core programmatic focus, the
department already serves populations at risk for victimization. It operates six
community service centers providing shelter, food, clothing, domestic violence, and
other assistance to vulnerable populations, and numerous youth centers providing
mentoring, counseling, and a structured out-of-school programming. This year the
department is expanding services and shelter capacity for unaccompanied homeless
youth.
26
One of CDFSS’ principle strengths is its institutional capacity and experience leading
and coordinating multiple-actor service interventions. It works with 300 communitybased organizations on various projects, as well as state and city agencies, including
the police department in a program to provide support to juvenile offenders. CDFSS’
Division on Domestic Violence houses the City’s domestic violence hotline. Staff
disseminates information from calls to appropriate city agencies and directs callers to
community-based providers. CDFSS’ network is a strong foundation off which to
expand city wide anti-sex trafficking efforts.
Additional City Government Departments
The following City departments have operations relevant to the problem of sex
trafficking:

Department of Housing and Economic Development to support housing
and job services for victims and vulnerable women and girls.

Department of Public Health to find victims and provide medical services.

Department of Innovation and Technology to develop new data collection,
evaluation and tools for coordinating service delivery.
State Agencies
The Illinois Department of Human Services (DHS) operates several community
resource centers in Chicago, often nearby or in the same location as CDFSS
centers. They provide similar and complementary services as DHS, making them
natural partners in comprehensive anti-sex trafficking efforts.
DHS received a grant in 2009 from the federal government to work in partnership to
combat sex trafficking in Illinois. The coalition, Illinois Rescue & Restore, brings
together various organizations and government agencies to provide outreach to
potential victims, educate potential first-responders, collect data, coordinate services,
and prosecute offenders. Several Chicago-based NGOs, as well as the Mayor’s
Office on Domestic Violence and the CPD are members of the coalition. However,
while the initiative encompasses Chicago, it does not target Chicago. Rescue &
Restore will provide valuable support and resources.
Other State/Federal Government Agencies
Immigration officials are positioned to be potential first-interveners if trained to
recognize victims. Chicago public school workers likewise are important actors in
prevention through education. While important players, given bureaucratic structures
outside the City government’s reach it may prove logistically challenging to integrate
our new initiatives into their operations.
Appendix F: NGO Activities to Combat Sex Trafficking in Chicago
Non-Governmental Organizations:
The following organizations are likely to be useful partners:
27

The Chicago Alliance Against Sexual Exploitation (CAASE) xlviii is the lead
agency for the End Demand Illinois campaign, and its partners are:

Chicago Coalition for the Homeless: Coordinating survivor leadership to
help persuade lawmakers to support anti-sex trafficking legislation. The
Coalition also organized the Prostitution Alternatives Round Table, or
PARTxlix. PART’s work enables more women to quit prostituting to survive,
informs prostitution law reform, and supports rehabilitative programs that
divert women from jail or prison so that they can restore their lives and keep
families intact. Working in tandem with the PART initiative, the Coalition
worked with Cook County Circuit Court to establish WINGS (Women In Need
of Gender-specific Services)l. WINGS is a specialty, problem-solving court
established to help women charged with felony prostitution to exit the
commercial sex trade. The purpose of the WINGS court is to address the
underlying issues that led women into the commercial sex trade, and to offer
individualized services, including substance abuse treatment, trauma
counseling, housing, ancillary legal assistance and job training services.

DePaul University College of Law's Schiller DuCanto and Fleck Family
Law Center: Providing research on prostitution and trafficking in Illinois and
evaluating the Cook County Sheriff’s Human Trafficking Response Team.

Illinois Coalition Against Sexual Assault: Serving as the campaign's fiscal
agent, ICASA provides expertise on Illinois policy and legislative strategy.

Polaris Project: As a national anti-trafficking policy and advocacy
organization, Polaris helps to lead CAASE’s Policy Committee. Polaris
provides research, legislative drafting, and policy consultation.

The Voices and Faces Project: As an advocacy organization in the antirape movement, The Voices and Faces Project provides End Demand Illinois
with survivor voices, as well as communications and outreach expertise.
Other supporting NGO’s include:

The Salvation Army’s STOP IT program provides comprehensive services
for victims and training to workers who may be serving in potential firstintervention roles.

The Heartland Alliance’s National Immigrant Justice Centerli provides
legal services to international victims.

International Organization for Adolescents (IOFA)lii is dedicated to
improving the lives of young people by addressing critical and emerging
issues affecting vulnerable adolescents around the world.

DuPage Federation on Human Services Reformliii is a collaboration of
government and key community organizations that identify ways a local
community can address its human needs using its own resources and
ingenuity.

La Voz Latina’sliv mission can be summed up in a few words: “Education is
the answer.” The organization maintains a strong focus on education through
English and GED classes, programming for Latino youth, health and family
education, and community awareness.

Christian Community Health Centerlv is a community-based not-for-profit
organization founded in 1991 to address the lack of health care in the
Roseland community in Chicago's southside. The agency’s mission is to
provide high quality primary healthcare and related services to the community
regardless of the recipient’s ability to pay.

A Safe Havenlvi helps people aspire, transform, and sustain their lives from
homelessness to self-sufficiency with pride and purpose. A Safe Haven
provides the tools for each individual to overcome the root causes of
homelessness through a holistic, scalable model. A Safe Haven’s visible
social and economic impact unites families, stabilizes neighborhoods, and
creates vibrant, viable communities.
28
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34
X.
Endnotes
i
City of Chicago (2013).
ii
Wilson, D.G., Walsh, W.F. & Kleuber, S., (2006)
iii
Lange, A. (2011)
iv
Cook County Commission on Women’s Issues. (2007)
v
International Labour Office (2012)
vi
Shelley, L. (2010)
vii
UN.GIFT Global Initiative to Fight Human Trafficking. (2010)
viii
Ibid
ix
Durchslag, R. & Goswami, S. (2008)
x
O’Leary, C. & Howard, O (2001)
xi
Cook County Commission on Women’s Issues. (2007)
xii
Chicago Coaltion for the Homeless. (2002)
xiii
Durchslag, R. & Goswami, S. (2008)
xiv
Wheaton, E. M., Schauer, E. J., & Galli, T. V. (2010)
xv
Ibid.
xvi
Morris Hoffer, K. (2010)
xvii
Wheaton, E. M., Schauer, E. J., & Galli, T. V. (2010)
xviii
Shively, M., Kliorys, K., Wheeler, K., & Hunt, D. (2012)
xix
Polaris Project (n.d.)
xx
Illinois Department of Human Services
http://www.dhs.state.il.us/page.aspx?item=31332
xxi
Knight, M. (2011)
xxii
Illinois General Assembly. (2013)
xxiii
Graves, A. (2013)
xxiv
Knight, M. (2011)
xxv
Cook County Commission on Women’s Issues. (2007)
xxvi
See http://www.chicagopolice.org/ps/list.aspx# (2013)
xxvii
Cook County Sheriff’s Office. (2012)
xxviii
Maney, G., Brown, T., Gregory, T., Mallick, R., Simoneschi, S., Wheby, C., &
Witor, N. (2011)
xxix
Lange, A. (2011)
xxx
Graves, A. (2013)
xxxi
Bennetts, L. (2011)
xxxii
City of Chicago (2013a)
xxxiii
Raphael, J. & Myers-Powell, B. (2010)
xxxiv
Cook County Commission on Women’s Issues. (2007)
35
xxxv
Chicago Coaltion for the Homeless. (2002)
xxxvi
Chicago Police Department Organizational Chart. (n.d.)
xxxvii
City of Chicago. (2013)
xxxviii
Ibid
xxxix
Chicago Police Department Organizational Chart. (n.d.)
xl
Ibid
xli
City of Chicago. (2013)
xlii
Cook County Sheriff. (2013)
xliii
Cook County Sheriff (n.d.)
xliv
Ibid.
xlv
Sheriff’s Women’s Justice Programs. (n.d.)
xlvi
Cook County Sheriff. (n.d.)
xlvii
Sheriff’s Women’s Justice Programs. (n.d.)
xlviii
End Demand Illinois (n.d.)
xlix
Prostitution Alternatives Round Table (PART). (2013)
l
WINGS (2013)
li
Anti-Human Trafficking Services (2011)
lii
International Organization for Adolescents. (2011)
liii
Navigators of Change. (n.d.)
liv
La Voz Latina (n.d.)
lv
Christian Community Health Center (2013)
lvi
A Safe Haven (n.d.)
36