This document discusses protection against sexual exploitation and abuse (PSEA) in Jordan. It provides context on PSEA, defining sexual exploitation and abuse. It notes the responsibility of humanitarian organizations, coordinators, and donors to prevent and respond to SEA incidents. The document then gives an overview of PSEA issues in Jordan, noting reports of increased risks of SEA against Syrian refugees and the establishment of an inter-agency PSEA network in Jordan in 2015.

1. 6/10/2018
Protection against Sexual
Exploitation and Abuse
(PSEA)
PSEA IN Jordan
MAHMOUD MANDOU
GERMAN JORDANIAN UNIVERSITY
Master of Social Work
Migration and Refugees

2. 1| P a g eProtection against Sexual Exploitation and Abuse (PSEA)
German Jordanian University
Protection against Sexual
Exploitation and Abuse
(PSEA)
MAHMOUD MANDOU
Supervised by Dr. Sahar Makhamreh
2018
Second Semester

3. 2| P a g eProtection against Sexual Exploitation and Abuse (PSEA)
In the words of United Nations Secretary-General Ban Ki-moon
“We must all be resolved to create a United Nations that lives up to the
public’s trust and that combats any form of sexual exploitation of abuse.
We must model a spirit of respect, dignity, equality and other universal
ideas that we hope to instill in society".

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Contents
1 INTRODUCTION........................................................................................................................................5
1.1 Sexual Exploitation and Abuse (SEA) ..............................................................................................5
1.2 Protection of Sexual Exploitation and Abuse (PSEA)......................................................................5
1.3 Who is responsible on PSEA? ..........................................................................................................6
1.4 Overview on PSEA in Jordan............................................................................................................7
2 PSEA in Jordan..........................................................................................................................................8
2.1 General Statistics .............................................................................................................................8
2.2 SEA on Women, Adolescents and Children.....................................................................................8
2.3 The Experience of Syrian Women and Girls on SEA........................................................................9
2.4 Community-Based Complaint Mechanism....................................................................................10
2.5 PSEA In Jordan................................................................................................................................10
2.5.1 General...................................................................................................................................10
2.5.2 Inter-Agency Refugee Response in Jordan............................................................................11
2.5.3 Obstacles to Reporting ..........................................................................................................12
2.6 Conclusion......................................................................................................................................13
3 Country-specific Recommendations .....................................................................................................13
3.1 Jordanian Government..................................................................................................................13
3.2 Humanitarian agencies..................................................................................................................13
3.3 Donors ............................................................................................................................................14
4 References..............................................................................................................................................14

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ACRONYMS
CBCM Community-Based Complaint Mechanism
GBV Gender-Based Violence
SEA Sexual Exploitation and Abuse
PSEA Protection from Sexual Exploitation and Abuse
NGO Non-Governmental Organization
CBO Community-Based Organization
CRF Complaint Referral Form
SOPs Standard Operating Procedures
IRC International Rescue Committee
UNHCR United Nations High Commissioner for Refugees
IASC Inter-Agency Standing Committee

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1 INTRODUCTION
1.1 Sexual Exploitation and Abuse (SEA)
Gender-Based Violence (GBV) is an umbrella term for any harmful act that is perpetrated against
a person’s will and that is based on socially ascribed differences between males and females (i.e.
gender). It includes acts that inflict physical, sexual or mental harm or suffering, threats of such acts,
coercion, and other deprivations of liberty.
Sexual Exploitation and Abuse (SEA) is a particular form of GBV that have been reported in
humanitarian contexts, specifically alleged against humanitarian workers.
Sexual Exploitation is any actual or attempted abuse of a position of vulnerability, differential
power, or trust, for sexual purposes, including, but not limited to, profiting monetarily, socially or
politically from the sexual exploitation of another.
Sexual Abuse is the actual or threatened physical intrusion of a sexual nature, whether by force or
under unequal or coercive conditions.
1.2 Protection of Sexual Exploitation and Abuse (PSEA)
Sexual exploitation and abuse by social workers and other humanitarian actors engaged in assisting
the most vulnerable populations directly contradicts the principles upon which humanitarian and
social work is based. Sexual exploitation and abuse inflicts indelible harm on the very people seeking
protection from armed conflict and natural disasters.
Sexual exploitation and abuse inflicts indelible harm on the very people seeking protection from
armed conflict and natural disasters. Despite humanitarian principles and commitments to counter
these abhorrent acts, instances of abuses committed by aid workers have occurred. As such, much
high-level attention has been directed at effectively fighting sexual exploitation and abuse over the
past decade.
SEA jeopardizes the credibility of all assistance agencies. Humanitarian workers are expected to
uphold the highest standards of personal and professional conduct at all times to protect beneficiaries
of assistance. Sexual exploitation and abuse of affected populations constitutes gross misconduct
and will result in disciplinary action, including immediate termination of employment and referral
for criminal prosecution, where appropriate.

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1.3 Who is responsible on PSEA?
The international humanitarian community has been actively engaged in efforts to eradicate it. These
include initiatives to establish clear guidelines and global standard operating procedures (SOPs) to
strengthen responses to sexual exploitation and abuse allegations.
Humanitarian organizations, coordinators, country teams, clusters, social workers and donors – all
have a responsibility to report sexual exploitation and abuse incidents and to mainstream protection
measures into every aspect of humanitarian assistance programming.
The agency or organization that employs the Subject of the Complaint. It may be a UN agency,
intergovernmental organization, NGO, Community-based organization (CBO), implementing
partner, or any organization involved in the provision of humanitarian or developmental aid. This is
the organization responsible for investigating allegations of sexual exploitation and abuse (SEA) and
taking appropriate follow-up action.
SOPs must include contact information for the units within each participating agency that receive
and investigate SEA. Also, procedures for assessing complaints and referring SEA survivors to
victim services on site, including identifying the actor(s) responsible for conducting the needs
assessment and relevant on-site service providers.
When a complaint is made to the community-based complaint mechanisms (CBCM), the PSEA
Coordinator is responsible for making the referral to the appropriate agency’s investigation unit
through a Complaint Referral Form (CRF).
To prevent and respond to these abuses at both the agency level and through collective efforts in the
field. In 2002, the IASC adopted six core principles intended to set forth standards to prevent SEA:
(IASC)
1. Sexual exploitation and abuse by humanitarian workers constitute acts of gross misconduct
and are therefore grounds for termination of employment.
2. Sexual activity with children (persons under the age of 18) is prohibited regardless of the
age of majority or age of consent locally. Mistaken belief regarding the age of a child is not
a defense.

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3. Exchange of money, employment, goods, or services for sex, including sexual favors or
other forms of humiliating, degrading or exploitative behavior is prohibited. This includes
exchange of assistance that is due to beneficiaries.
4. Sexual relationships between humanitarian workers and beneficiaries are strongly
discouraged since they are based on inherently unequal power dynamics. Such relationships
undermine the credibility and integrity of humanitarian aid work.
5. Where a humanitarian worker develops concerns or suspicions regarding sexual abuse or
exploitation by a fellow worker, whether in the same agency or not, he or she must report
such concerns via established agency reporting mechanisms.
6. Humanitarian workers are obliged to create and maintain an environment which prevents
sexual exploitation and abuse and promotes the implementation of their code of conduct.
1.4 Overview on PSEA in Jordan
Reports indicate that there is an increase in the risk of sexual exploitation and abuse of Syrian
refugees in Jordan by humanitarian and social workers (UNHCR / IRC reports).
Inter-agency network on protection from sexual exploitation and abuse (PSEA Network) by
humanitarian personnel in Jordan has been established early 2015. This network commit to prevent,
oppose and combat SEA.
700 consultations have been registered for Syrian refugees from different community groups
(women, men, girls & boys, youth & elderly), and from different areas and camps in Jordan (Irbid,
Amman, Ma’an, Al-Karak, Al-Za’atari, Al-Azraq, and Al-Mafraq). (PSEA Network).
According to existing reports, what are the obstacles to the reporting process by
beneficiaries? Are these existing reports credible?
What are the existing community-based complaint mechanisms (CBCM)?
What are the preferred reporting and response options?
Are there cases and success stories where perpetrators of sexual exploitation and abuse have
been held accountable in Jordan?
What is the impact of the crisis on women, adolescents and children?
Are women, adolescents and children more vulnerable to harassment and exploitation in
general?

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2 PSEA in Jordan
2.1 General Statistics
The peaceful Syrian uprising that began in March 2011 has deteriorated into a brutal and bloody
conflict between the Assad regime and a variety of opposition forces. The office of the U.N. High
Commissioner for Refugees (UNHCR) noted that the Syrian conflict has created “one of the largest
exoduses in recent history".
Today, more than 3 million people have fled Syria since the crisis began, and 666,113S Syrian people
are registered as refugees in Jordan (UNHCR). Al-Za'atari Refugee Camp in Jordan is one of the
three largest refugee camps in the world. Nearly four of every five people who have fled Syria in the
past three years have been women and children.
2.2 SEA on Women, Adolescents and Children
Women and girls in particular are being severely and adversely affected by this conflict. As refugees,
Syrian women and girls have fled all they have known for a stark, new reality where the burdens
they face as females have significantly increased. The sheer magnitude of this urban displacement
creates increasing pressure on education, health and social services in the countries of refuge.
Host country governments and local and international organizations are struggling to absorb the
surging costs in communities where the influx of refugees has doubled and tripled the population.
This has specific implications for the safety and security of women and girls and their ability to
participate in and access programs.
In the same time, women and girls must be able to live free from the sexual abuse and exploitation
they spoke about facing every day. This requires UNHCR, host governments and humanitarian
organizations to implement, coordinate and monitor mechanisms, and work with local partners on
the prevention of sexual exploitation and abuse (PSEA).
No woman or girl is immune to harassment, but divorced women felt they were bigger targets. More
than half of the divorced women interviewed told the IRC that when away from home they were
more likely to be harassed by men than married adolescent girls and women.
In addition, women and adolescent girls told the IRC about being sexually harassed and exploited
by individuals charged with delivering humanitarian aid or by those in positions of relative economic
and/or political power in their own communities.

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They reported being asked to engage in “special friendships,” have sex or agree to marriage by
leaders in camps, staff in community-based organizations, religious leaders, community leaders,
employers and others.
The psychological, physical, and economic consequences of this harassment are not always visible.
Psychological consequences such as shame settles deep into the women’s and girls’ consciousness.
Physical pain, bruises or burns are inflicted by male family members who respond violently when
they know about harassment. Economic opportunities are lost because women and adolescent girls
alike must cut of the activities outside the home to protect themselves from additional abuse.
2.3 The Experience of Syrian Women and Girls on SEA
"We ask for humanity—for people to treat us like human beings". Nada, AGE 35, JORDAN
"My teenage daughter was applying for a job when the shop owner said to her, ‘I crave you— if
you refuse to give yourself to me then you can forget about a job". Thana, AGE 42, JORDAN
"My daughters don’t work specifically because I am afraid of exploitation, I am not selling my
family. I don’t even take them to the aid distributions points because they are treated
disrespectfully". Liliane, AGE 47, JORDAN
“My husband won’t let me leave by myself because he is afraid for me—and I agree. The
harassment, the men staring…”. Mona, 37, JORDAN
For Syrian women and girls, the level of harassment and exploitation as refugees is pervasive and
more present now than it was back in their home country. When asked what they believed was
driving this level of harassment, women noted that they perceived as using community resources to
which they were not entitled.
Further, they noted that women had to take on roles they had not played in Syria, some women are
responsible for a family here They also explained that people knew they had fled Syria with limited
resources, therefore, were more vulnerable.
A key finding of many studies was the chronic underreporting of abuse. The overwhelming majority
of Syrian women and girls would not report a case of abuse themselves and had never heard of others
in the community doing so.

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2.4 Community-Based Complaint Mechanism
From the review of over 50 reports, training manuals, declarations, and guidance on issues of abuse
and exploitation, it becomes apparent that having effective complaints mechanisms has gained
momentum only in recent years as an important component.
Numerous reports and training manuals that focused on reporting sexual abuses or offering guidance
to stop them provided no specificity on what complaints mechanism were, how to create them, how
to make them effective.
Community-Based Complaints Mechanism (CBCM) is a system blending both formal and informal
community structures, built on engagement with the community where individuals are able and
encouraged to safely report grievances – including SEA incidents – and those reports are referred to
the appropriate entities for follow-up. The CBCM is a relevant and efficient means of
comprehensively responding to SEA in an emergency response operation.
When implemented properly, a PSEA-CBCM will increase awareness of SEA in both the affected
population and humanitarian staff, including how to report SEA incidents. This means that a well-
run CBCM may actually increase the number of reported SEA incidents in the target area. In fact,
reports should increase. Increasing complaints after the inception of a CBCM does not necessarily
mean an increasing SEA problem. SEA is already a problem.
A CBCM will not be sustainable without the continued hands-on support of the member agencies,
because they are the entities in the best position to make real progress in the fight against SEA.
2.5 PSEA In Jordan
2.5.1 General
Cases of sexual harassment against women has appeared in several reports in several countries,
including Jordan. They have shown that violence and abuse are endemic, that no single country or
industry is spared, and that all women, regardless of their place in the hierarchy, are vulnerable to
SEA.
Rather, increased complaints can indicate community acceptance of the mechanism, Conversely, the
absence of SEA reports should not be interpreted as an absence of SEA. Given current reports of
SEA incidents, lack of reports may be a warning that there are inadequate mechanisms on site that
the affected population can safely access.

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To raise awareness and identify PSEA Focal Points, there was 37 PSEA focal points from 21
agencies & now 55 PSEA focal points from 30 agencies in Jordan.
2.5.2 Inter-Agency Refugee Response in Jordan
The Network on Protection from Sexual Exploitation and Abuse (PSEA Network) was established
in 2015 to support humanitarian organizations involved in the inter-sectoral refugee response in
Jordan in fulfilling their commitment to protect beneficiaries from sexual exploitation and abuse by
humanitarian personnel.
This is the primary body for awareness, prevention and oversight on protection from sexual
exploitation and abuse by international and national personnel of the entities providing humanitarian
services to refugees in Jordan. The Network is NOT responsible for the investigation or adjudication
of complaints, or for dealing directly with complainants. This responsibility rests exclusively with
dedicated bodies of individual organizations.
The coordinated PSEA Network has allowed humanitarian response agencies to:
1. Assess measures in place to prevent and respond to SEA, including a Code of Conduct, staff
training, community complaints mechanisms, investigative capability.
2. Develop an Inter-Agency Community-Based Complaint Referral Mechanism.
3. Provide initial Training of Trainers for PSEA Focal Points and sharing of training materials.
4. Emphasize mandatory reporting of any allegation or suspicion of sexual exploitation or abuse
by humanitarian workers.
5. Support development of outreach materials to be used by PSEA Network members to raise
community awareness.
6. Establish Terms of Reference for PSEA Focal Points to clarify responsibilities of agency
Focal Points and establish experience and competencies needed.
7. Support organizations to adhere to monitoring and compliance mechanisms, including
through facilitating referrals of complaints in accordance with agreed Mechanism.
PSEA focal points are officially designated by each entity to represent it and participate in the PSEA
Network and are responsible for actively promoting the protection from sexual exploitation and
abuse within their own organizations.
PSEA focal points facilitate the implementation of appropriate actions to respond to the received
complaints in line with the agency’s internal procedures.

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2.5.3 Obstacles to Reporting
Some of the reports published by the Inter-Agency Committee have shown some of the reasons for
the barriers to reporting.
A. Lack of awareness of how to report / complain and the lack of knowledge of beneficiaries about
the details and mechanisms of the complaint process and awareness raising of the community in
this regard is necessary.
B. No trust in confidentiality and this is an important factor to be aware of because confidentiality
is the most important criteria between the organization and the beneficiaries from different
groups of society and if the agencies lost the confidence of the community will not be back this
confidence is easy.
C. Retaliation by community and humanitarian personnel and this is very important and must be
worked on and efforts to eliminate it should be strengthened among agencies, organizations,
government bodies and security agencies in particular.
D. Fear of losing aid or deportation and what this makes people, such as women and adolescents,
more vulnerable in emergency situations because they fear losing the aid assistance that they
need. It is the responsibility of the Government and the United Nations agencies to ensure
forcible deportation of refugees is not occurred.
E. Fear of shame and discrimination amongst community and this factor undermines the process of
social cohesion and breaks up the social ties that governments and organizations are trying to
promote and achieve.
F. Lack of faith in responsiveness of existing mechanisms for dealing with issues which makes it
frightening. There is no clear, accurate and published data about successful experiences in
punishing the harassers with women, adolescent and children in the organizations. At the same
time, this is due to a lack of awareness in society and weak efforts of governments and
organizations.

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2.6 Conclusion
Therefore, we conclude that despite the efforts made, the PSEA network is not responsible for
investigating or resolving complaints or dealing directly with complainants. This task remains the
responsibility of special bodies within the organizations. Therefore, there is no unified body to deal
with complaints. This undermines the process of collecting the rights of the vulnerable.
We notice that there is a lack of quantitative and qualitative reports published on the protection from
sexual exploitation and abuse in Jordan. This is due to either there is insufficient research and reports
in this regard or these reports are confidential and are not published publicly.
3 Country-specific Recommendations
3.1 Jordanian Government
Fully implement Article 306 of the Penal Code on verbal harassment and disseminate
information about this law to women and girls from host and refugee communities.
Strengthen the government efforts to have a process that is flexible enough to adapt to the
changing situation. For example, the National GBV Taskforce, which is chaired by the Ministry
of Gender and Development – thereby lifting the issue of SEA to a national concern.
launch national SEA awareness-raising campaign.
3.2 Humanitarian agencies
Design programs to address the links between girls’ lack of access to education, experience of
early and forced marriage, and fear of harassment and violence.
This effort must be multidisciplinary through coordination with the GBV, child protection and
education working groups and must also emphasize.
The need for safe learning environments.
Sign codes of conduct with employees and volunteers. Also, Work on developing the contents
of these codes to cover the terms of protection from exploitation and sexual abuse.
promote information sharing and joint training on PSEA between different agencies.

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3.3 Donors
Increase support to the Jordanian government to improve the conditions for host communities
and refugees, including prioritizing women and girls’ access to basic services with an emphasis
on supporting Jordanian health services.
Increase support for women's empowerment and awareness-raising programs because PSEA is
tied to women’s empowerment and gender equality.
Prioritize funding (a) field level PSEA actions and (b) research initiatives to increase our
collective evidence-base.
Shift reporting requirements from quantitative to qualitative.
Donors should support initiatives that aim to mainstream PSEA.
Donors should hold organizations to account if they fail to deliver on core PSEA commitments.
Donors should consider providing additional resources to allow outreach at the regional levels
and initiate research activities.
4 References
Inter-Agency Standing Committee (IASC)
Are We Listening? Acting on Our Commitments to Women and Girls Affected by the Syrian
Conflict | International Rescue Committee (IRC) | SEPTEMBER 2014
Key Messages for Donors on PSEA | IASC PSEA-focused Task Team Meeting
Liberia RC/ HC/ DSRSG Jordan Ryan on Addressing Sexual Exploitation and Abuse by UN
Staff and Related Personnel
Literature Review: Complaints Mechanisms and Handling of Exploitation and Abuse | Veronika
Martin
No One to Turn to the under-reporting of child sexual exploitation and abuse by aid workers and
peacekeepers | Corinna Csáky | Save the Children
Protection from Sexual Exploitation and Abuse (PSEA) by Humanitarian Personnel in Jordan |
PSEA Network
PSEA Best Practice Guide | Inter-Agency Community-Based Complaint Mechanisms | Inter-
Agency Standing Committee (IASC)
UNHCR Jordan – Inter-Agency Refugee Response in Jordan
The Women at Work Initiative | The push for equality | International Labour Office, Geneva