Combatting Human Trafficking in the UAE: Law, Institutions, and the Enforcement Gap

The United Arab Emirates presents itself as a regional leader in the fight against human trafficking, citing early legislative action and a network of institutions dedicated to prevention and victim protection. In formal terms, the UAE was among the first countries in the region to enact a comprehensive anti-trafficking law, but the effectiveness of this framework depends less on its existence than on how consistently it is enforced.

Legal Framework

In 2006, the UAE adopted Federal Law No. 51, criminalising human trafficking in all its recognised forms. The law defines trafficking broadly, encompassing sexual exploitation, forced prostitution, servitude, forced labour, organ trafficking, enslavement, coerced service, forced begging, and practices analogous to slavery. It also introduces criminal liability for individuals who are aware of trafficking offences and fail to report them.

Penalties under the law include a minimum prison sentence of five years and fines starting at AED 100,000, positioning trafficking as a serious criminal offence under Emirati law.

Subsequent amendments sought to align the legislation with international standards. In 2013, the law was amended to reflect the UN Palermo Protocol, which the UAE ratified in 2009. Further amendments in 2015 expanded provisions relating to victim and witness protection. On paper, these changes strengthened safeguards and reflected an intent to harmonise domestic law with global anti-trafficking norms.

Institutional Architecture

To oversee implementation, the UAE established the National Committee to Combat Human Trafficking (NCCHT) in 2007. The committee brings together representatives from federal and local institutions and coordinates national anti-trafficking policy. Its stated strategy is structured around five pillars: prevention, prosecution, punishment, protection, and international cooperation.

The NCCHT publishes annual reports detailing government initiatives, training programmes, and selected case data. These reports serve as the primary public record of the UAE’s official response to trafficking.

Victim Support Infrastructure

The UAE operates a small network of shelters intended to support victims of trafficking, including facilities in Abu Dhabi, Dubai, and Ras Al Khaimah. These shelters primarily serve women and children and offer temporary accommodation, rehabilitation services, and coordination with law enforcement.

A dedicated hotline (800-SAVE) allows cases to be reported and enables victims to request protection. Public awareness campaigns, including airport signage and outreach initiatives, encourage reporting and highlight the state’s anti-trafficking stance.

International Cooperation

Recognising that trafficking often begins in victims’ countries of origin, the UAE has entered into bilateral agreements with several states to exchange information and best practices. It also participates in regional and international forums addressing trafficking and regularly engages with Arab and UN human rights mechanisms.

In previous years, the UAE hosted the UN Special Rapporteur on Trafficking in Persons, who acknowledged legislative progress and institutional development during official visits.

The Enforcement Question

Despite this legal and institutional architecture, independent reporting and international assessments continue to identify a gap between formal commitments and lived reality. While sexual exploitation cases are occasionally prosecuted, forced labour—particularly involving migrant workers under the kafala system—is often addressed through administrative or regulatory channels rather than criminal prosecution.

Support services remain uneven, with limited assistance available to male victims or survivors of forced labour who are not classified as trafficking victims. Domestic workers and migrants who flee abusive conditions still face risks of detention or deportation under immigration and labour laws, complicating access to protection.

Conclusion

The UAE’s anti-trafficking framework is extensive on paper and more developed than that of many regional peers. However, the persistence of modern slavery indicators—particularly among migrant workers and vulnerable women—suggests that legislation alone is insufficient.

The central challenge is no longer whether laws exist, but how they are applied, who they protect, and which forms of exploitation remain tolerated or under-prosecuted. Until enforcement is consistent, victim-centred, and insulated from economic or reputational considerations, the UAE’s anti-trafficking system will continue to be judged as a structure of intent rather than outcome.