interview: un special rapporteur

In an exclusive interview with The Reporter, Gulnara Shahinian, the UN’s first Special Rapporteur on Contemporary Forms of Slavery tells Anti-Slavery’s Kate Willingham the challenges of her new role, her aims while in office and what has shocked her the most during her first year in post.

Gulnara Shahinian was appointed Special Rapporteur on Contemporary Forms of Slavery in 2008. Her post was created at the end of 2007 and is the first new UN mechanism to combat slavery in over 30 years. Ms. Shahinian is a lawyer and an expert on children's rights, gender, migration and trafficking. She is also a former trustee of the UN Voluntary Trust Fund on Contemporary Forms of Slavery.


Why do you think it is necessary to have a UN Special Rapporteur on Slavery?

The UN estimates that there 12.3 million people currently in slavery. I am personally shocked to think that there are four times as many people in slavery in the world than the population of my country, Armenia. 

Specifically, I think it is important that there is somebody with the sole responsibility to focus on the issue of contemporary slavery. In recent years, the rise in the awareness of trafficking has meant that there has been a lack of attention to the other forms of slavery. In fact, it is my desire to get governments committed to fighting slavery with the same vigour as they are pursuing the issue of trafficking.

What does a Special Rapporteur do?

I visit countries to gain first hand experience of the situation on the ground and to speak to campaigners, victims of slavery and government officials involved with eradicating the practice. 

I present the evidence collected in my country visits, as well as annual reports on thematic issues, to the UN Human Rights Council. These have recommendations to governments on the action required to combat slavery.

My country visits are only the start of the process. I am determined to see results and I will continue to follow up my recommendations throughout my mandate.

Victims of slavery are also able to submit allegations directly to me. I will then try and use my influence to encourage national governments to do something about their situation.

What is clear is that while there are international conventions banning slavery, enforcement is needed at national level. So my role is to also to put pressure on governments to amend their national laws to apply the international conventions and, where the laws already exist, ensure that they are being applied in practice.

What do you see as the root causes of slavery?

The main causes of slavery are poverty, discrimination, unemployment and corruption. But the existence of slavery, whether they be traditional forms or ‘newer’ forms, is also the result of a failure of policies to protect humans rights.

The reason why people are not being protected from slavery is because of a selective application of the law, which means that people cannot apply the rights that they are legally entitled.

How do you hope to tackle forced labour in countries where the abuse is carried out at state level, as with Burma or China or Uzbekistan?

It is difficult to deal with countries that traditionally have limited engagement with UN mechanism or even reject UN findings and much needs to be done to find common ground.

These countries need to understand that my role can be of use to them. My responsibility is not only about criticising particular countries, but also about providing recommendations and working with them on how to deal with those issues, and opening space for constructive dialogue.

What has shocked you most since entering this role?

I was so shocked by what I saw in Haiti I couldn’t sleep. The people of Haiti are so industrious and creative but their economic circumstances are devastating. 

In Haiti there are nearly 500,000 restaveks or child domestic workers and I saw firsthand how  the practice of sending a child to live with another family was part of a survival strategy.

People would tell me very clearly that their primary goal for sending their child away was the hope that they would receive the education unavailable in the countryside. Unfortunately, the reality is that restaveks are rarely ever given the opportunity to study and instead work long hours, all day, every day.

It is sad that this important development factor has not been taken into consideration by either the Government or by international donors.

Some argued that the existence of the restavek practice was cultural. I am afraid I don’t believe using the excuse of culture to justify a human rights abuse.

The majority of the restavek child domestic workers I interviewed wanted to live with their parents. They wanted to live and play and learn like all children should.

Many told me that they were beaten many times. Also that they had been harassed and were not able go to school. That is tremendously sad. Especially when you can see they have so much unfulfilled potential.

But I was pleased with the positive media attention my visit received and I hope that when the report comes out, the recommendations will be taken forward and real action will be taken for the elimination of this practice. 

How will you focus on the impact of gender discrimination in slavery?

Women are particularly vulnerable to discrimination and there are many slavery problems disproportionately affecting women in particular, forced marriage and the early marriage of girls. 

Women are also overwhelmingly the main victims of domestic servitude. Unfortunately they suffer twice over, and as well as labour exploitation, many also many face sexual harassment.

In bonded labour, entire families can become indebted and often women and children are used as collateral to pay the debt. Indeed, in these circumstances, women are also pushed into providing unpaid domestic work and so again can also be subject to many other violations.

Final message?

It is very hard to live in a world where you know that people are living their lives in slavery. It’s not enough to say that it is a shame to have slavery.

My message to your readers is to remember it is the responsibility of every one of us to fight on behalf of the 12.3 million people who have no rights at all.