1. 1
Review of Shelter Services in Jordan & Shelter
Management Training
Desk Review Report
Report prepared for:
International Labour Organisation
Protecting Migrant Workers’ Rights- Jordan
Report prepared by:
Laura Vidal
Consultant to the International Labour Organisation-Jordan
15 April 2014

2. 2
Table of Contents
Page
Key considerations- Minimum Shelter Standards 3
Summary of International Standards 4
- Office of the High Commission for Human Rights: Recommended Principles &
Guidelines on Human Trafficking & Human Rights
4
- United Nations Office on Drugs & Crime: Toolkit to Combat Trafficking in
Persons
5
- International Organisation of Migration: Direct Assistance for Victims of
Trafficking
6
Region Country Examples 7
- Best Practice Examples: Egypt, Oman & Qatar 10
Attachment 1: Shelter Assessment Tool 14

3. 3
Review of Shelter Services in Jordan & Shelter Management Training
Desk Review of Shelter Models in the Region
This report explores existing international standards for the establishment and
running of shelters for trafficked persons. It also highlights examples in the
Arab States that can be learned from. The report covers key documents that
benchmark standards, country examples and an Assessment Tool for part 2
of the project: Shelter Assessment.
1. Key Considerations— Minimum Shelter Standards
A. Critical to the protection of trafficked persons is the provision of safe
and secure refuge. The UNODC suggest that lack of a safe and secure
refuge often results in victims returning to their abusers after an initial
escape because of the fear of violence and the intimidation they are
subjected to.1
B. Shelters should be established in a way that allows for holistic care to
be provided, which includes partnership with the government, inter-
government agencies and non-government organisations
C. Shelters should be established in a way that allow residents to live
autonomously, safely and confidentially
D. Comprehensive services by way of ‘Case Management’ should be
offered to residents of the shelter. Including at a minimum basic health
care, counselling and legal advice. Rights and responsibilities of both
shelter staff and residents is to be clearly known and understood
1
United Nations Office on Drugs and Crime, Toolkit to Combat Trafficking in Persons, ‘Tool
8.8 Shelter Programmes’ Sourced: http://www.unodc.org/documents/human-
trafficking/Toolkit-files/08-58296_tool_8-8.pdf- p.403

4. 4
E. Services offered should not be directly linked to willingness or capacity
to participate in a legal proceeding against their trafficker
F. Provision should be made for reintegration into the community or
assisted voluntary return
2. Summary of International Standards
A. Office of the High Commissioner for Human Rights.
Recommended Principles and Guidelines on Human Trafficking
and Human Rights (2002)
The principles and guidelines set out a range of recommendations for whole
of government approaches to the prevention, prosecution and protection of
victims of human trafficking. With specific reference to shelters, Guideline 6 is
most relevant- “Protection and Support for Trafficked Persons…appropriate
protection and support should be extended to all trafficked persons without
discrimination”2
Under these guidelines key aspects of particular importance
include:
“States and where applicable, intergovernmental and non-governmental
organisations should consider:
! Ensuring in cooperation with non-government organisations that safe
and adequate shelter that meets the needs of trafficked persons is
made available. The provision of such shelter should not be made
contingent on the willingness of victims to give evidence in criminal
proceedings;
! Ensuring that in partnership with non-government organisations that
persons are given access to primary health care and counselling;
! Providing trafficked persons with legal and other assistance in relation
to any criminal, civil or other actions against traffickers/exploiters.”
2
United Nations High Commissioner for Human Rights, Recommended Principles and
Guidelines on Human Trafficking and Human Rights, Addendum to UNHCR Report to
Economic & Social Council [E/2002/68/Add.1] Sourced:
http://www.ohchr.org/Documents/Publications/Traffickingen.pdf

5. 5
B. United Nations Office on Drugs and Crime: Toolkit to Combat
Trafficking in Persons (2006)
The United Nations Office on Drugs and Crime (UNODC) is the United
Nations body charged with looking at international legislation and policy on
addressing the crime of human trafficking3
. As part of their work they have
developed a toolkit which suggests minimum standards for countries to adopt
in the prevention, prosecution and protection of trafficking in persons.
Tool 8.84
of the toolkit outlines specifically the provisions that should be made
for shelter programmes providing services to victims of human trafficking. The
toolkit is not designed to be prescriptive but makes key recommendations for
basic considerations in providing victims with safe shelter.
Recommendations include:
! Confidential shelter with high security standards while
respecting the right to privacy and autonomy
! Immediate, safe and short term shelter, including basic medical
attention, short-term counselling, legal information, emergency
financial assistance and access to information
! Safe housing and shelter should be flexible to adapt to different
target groups (men, women, children) and individual victims of
3
United Nations Office on Drugs and Crime: As the only United Nations entity focusing on the
criminal justice element of these crimes, the work that UNODC does to combat human
trafficking and the smuggling of migrants is underpinned by the United Nations Convention on
Transnational Organized Crime and its protocols on trafficking in persons and migrant
smuggling. http://www.unodc.org/unodc/human-trafficking/index.html?ref=menuside
4
UNODC Tool 8.8 ‘Shelter Programmes’ This tool reviews some basic considerations that
must be kept in mind in providing victims with safe shelter, Source:
http://www.unodc.org/documents/human-trafficking/Toolkit-files/08-58296_tool_8-8.pdf, p.
403-406

6. 6
trafficking with individual needs
! Housing provided is matched to comprehensive and focused
programmes of assistance, with the type of shelter matching the
stage of recovery and the needs of individual victims of
trafficking
C. International Organisation of Migration Handbook on Direct
Assistance for Victims of Trafficking (2007)
The International Organisation of Migration (IOM) Handbook5
provides more
prescriptive guidance on the establishment of shelters for trafficked persons,
and consequent ongoing management of such shelters.
The IOM states that a ‘Shelter may take many forms and are dependent on
many factors, such as: availability of funding, security concerns, availability of
services, capacity and demand for shelter, etc. As a result, shelters may
house few or many persons, they may be in temporary locations, and they
may be situated in a variety of locations…Shelters may be specialised for
trafficked persons only or may house other persons in need of similar
assistance, such as victims of other crimes’6
It is recommended that should steps be made to develop shelter models
within the Jordanian context, that the IOM handbook is used as a guide and
that benchmarked standards outlined in the handbook are referred to.
The minimum standards outlined in the shelter guidelines have been used to
formulate the Shelter Assessment Tool (Attachment 1)
5
International Organisation of Migration Direct Assistance for Victims of Trafficking Handbook
(2007), Chapter 4: ‘Shelter Guidelines’ Source:
http://www.iom.int/jahia/webdav/site/myjahiasite/shared/shared/mainsite/published_docs/book
s/CT%20handbook.pdf
6
International Organisation of Migration Direct Assistance for Victims of Trafficking Handbook
(2007), Chapter 4: ‘Shelter Guidelines’ p.111-112

7. 7
3. Region Country Examples
A desktop assessment of shelter models was completed on countries in close
proximity to Jordan, including:
! Bahrain
! Egypt
! Iran
! Iraq
! Kuwait
! Jordan
! Lebanon
! Oman
! Qatar
! Saudi Arabia
! Syria
! United Arab Emirates
! Yemen
The purpose of this assessment is to identify best practice shelter models, or
models for protection of trafficked persons in the Arab States. In particular it
aims to highlight minimum standards that can be looked at within the
Jordanian context.
The primary document used in the initial assessment was the United States
Trafficking in Persons Report 20137
7
United States Trafficking in Persons Report, US State Department, 2013 “The Trafficking in
Persons (TIP) Report is the U.S. Government’s principal diplomatic tool to engage foreign
governments on human trafficking. It is also the world’s most comprehensive resource of
governmental anti-human trafficking efforts and reflects the U.S. Government’s commitment
to global leadership on this key human rights and law enforcement issue. It represents an
updated, global look at the nature and scope of trafficking in persons and the broad range of
government actions to confront and eliminate it…. In the TIP Report, the Department of State
places each country onto one of three tiers based on the extent of their governments’ efforts
to comply with the “minimum standards for the elimination of trafficking” found in Section 108
of the TVPA.” Source: http://www.state.gov/j/tip/rls/tiprpt/

8. 8
Overwhelmingly most countries in the region are ranked as Tier 2 or Tier 3
countries in the US State Department Trafficking in Persons (TIP) report8
. Tier
2 or Tier 3 countries indicate non-compliance with minimum standards in
relation to trafficked persons and therefore have mixed demonstrations of best
practice with respect to shelter services for trafficked persons.
The TIP Report (2013) in their annual assessment of countries has noted the
following regarding countries in the region:
! Bahrain (Tier 2 Watch List) demonstrated minimal progress in improving
protection for trafficked persons. The Government funded a 120-bed NGO-
run domestic violence shelter, which began to offer services to female
victims of trafficking and their children. A majority of trafficking victims
continued to seek shelter at their embassies.
! Egypt (Tier 2) operates a joint IOM-NCCM (International Organisation of
Migration & National Council for Childhood and Motherhood) shelter for
females and children. The shelter receives in-kind support from the
government. It is reported to provide medical, psychological, legal,
vocational and repatriation assistance for 12 people for up to 6 months.9
! Iran (Tier 3) there was no known demonstration of victims services
provided in Iran during the reporting period.
! Iraq (Tier 2) there is some indication that there have been efforts to source
both temporary and permanent shelter for victims of trafficking and there
have been shelter guidelines drafted alongside the National Victim
8
Tier 2 Countries whose governments do not fully comply with the TVPA’s minimum
standards but are making significant efforts to bring themselves into compliance with those
standards. Tier 3 Countries whose governments do not fully comply with the minimum
standards and are not making significant efforts to do so. Source:
http://www.state.gov/j/tip/rls/tiprpt/2011/164221.htm
9
Bosla-Egypt, ‘Victims of Human Trafficking’ (2013) Source: http://bosla-
egypt.info/en/issues/victims-of-human-trafficking#toc2

9. 9
Referral Mechanism. These documents were not finalised during the
reporting period and are not available to the public for review.
! Kuwait (Tier 3) made inadequate efforts to protect victims of trafficking.
The Minister of Social Affairs and Labour continues to operate a short-term
shelter for runaway domestic workers, however it detained victims
involuntarily. Many domestic workers continued to seek shelter in their
embassies.
! Jordan (Tier 2) demonstrated the presence of a donor funded shelter
services, and a local NGO operated shelter. Jordan however continues to
lack adequate shelter services for male and female victims of trafficking.
Shelters run by foreign embassies continue to fill with female domestic
workers who fled abusive employers. In 2012, the government approved
by laws to allow the establishment of a dedicated shelter, however during
the reporting period no steps had been made to commence this process.
! Lebanon (Tier 2- watch list) there is a presence of a non-government Safe
House but there is no specific provisions or funding made for the shelter of
trafficking victims.
! Oman (Tier 2) The Royal Oman Police continued to operate a fund a
permanent shelter that could accommodation up to 50 men, women and
children who are victims of forced labour and sex trafficking. It was
however reported that victims could not leave the shelter unchaperoned.
The shelter offered social, psychological, legal and medical services at no
cost to victims. Due to the strict entry requirements, most victims
continued to seek shelter in their embassies.
! Saudi Arabia (Tier 3) demonstrates some evidence of providing shelter for
trafficking victims. Victims seek refuge in their embassies, and the
government has operated a refuge for ‘female runaway domestic workers’
where a Social Worker attends monthly or on an as needs basis. It has

10. 10
been reported that those residing in this refuge experience restrictions on
their movement as a condition of stay.
! Syria (Tier 3) there was no known demonstration of victims services
provided in Syria during the reporting period.
! Qatar (Tier 2) the Qatar Foundation for Combatting Trafficking continued
to operate a trafficking shelter for women and children. The shelter
provided access to medical and psycho-social care, social services,
rehabilitation, reintegration programs, repatriation assistance and legal aid.
Residents had the right to leave the shelter without supervision and victims
were able to access the shelter even if their employers had filed charges
against them. The Shelter also provided long term housing during judicial
hearings and the residents could earn income through the shelters
rehabilitation centre.
! United Arab Emirates (Tier 2) there was no known demonstration of
victims services provided in the United Arab Emirates during the reporting
period.
! Yemen (Tier 3) there was no known demonstration of victims services
provided in Yemen during the reporting period.
Best Practice Examples
According to the available information there are 3 examples within the region
that show promising signs of best practice in relation to shelter services for
trafficked persons. Whilst these countries are not Tier 1 countries according to
the US State Department, the ranking is a holistic ranking on all elements of
countries efforts (Prevention, Prosecution & Protection) This assessment is
looking specifically at protection, and the best practice examples have been
selected based on their compliance with shelter standards suggested by the
IOM and UNODC.

11. 11
Examples are detailed below, and compared against international standards
in Table 1.1
Egypt
The National Council for Childhood and Motherhood and the International
Organisation of Migration work together to facilitate a shelter for women and
girls who are victims of trafficking. It is noted that the shelter provides secure,
transitional accommodation as well as medical assistance, counselling and
legal aid, while being supported to access longer-term solutions10
In addition, the shelter has partnered with the Ministry of Health to launch the
Trafficking Victims Support Unit at the National Bank hospital to provide
medical and psychological treatment for victims of trafficking.
The coordinated approach that has been adopted in Egypt is compliant with
international recommendations for shelter care, furthermore the services
provided by the shelter also meet the recommendations.
Oman
The Royal Oman Police operate a shelter for victims of trafficking, which
positively offer social, psychological, legal and medical assistance to victims,
which satisfy the international recommendations for the provision of shelter
services. The shelter has been criticised for its strict entry criteria, which
makes it hard to access, rendering many people seeking shelter in their
embassies. It has also been reported that residents of the shelter cannot
leave unchaperoned, which does not satisfy international shelter standards.
Detailed information about the delivery of shelter services was not available in
order to make a comprehensive analysis, however what is known
demonstrates some compliance with international shelter standards.
Qatar
10
Source:
http://www.egypt.iom.int/Doc/Counter%20Trafficking%20Fact%20Sheet%20Egypt%20(2012).
pdf

12. 12
The Qatar Foundation to Combat Human Trafficking offers a shelter services
that reports providing comprehensive services to victims of trafficking. Notably
the service provides care that meets the minimum standards highlighted by
the IOM and the UNODC.
In particular the shelter service provides11
:
! Provision of accommodation services such as safe shelter, food and
clothing
! Health care through preliminary medical check-ups provided by
specialised medical practitioners and nursing teams
! Counselling with specialised psychiatrists
! Legal Aid including liaison with departments in the states, referral
bodies and lawyers
! Providing services of rehabilitation and reintegration
! Facilitating access to education for children
! Providing recreation opportunities
! Providing employment opportunities
! Securing safe return to home countries in a coordinated manner
The Qatar Foundation to Combat Human Trafficking also demonstrates a
holistic approach to providing victim services by engaging in systematic
advocacy, and community capacity building including training.
Table 1.1
Shelter Demonstration UN Guidelines
(UNODC & OHCHR)
IOM Guidelines
Of the best practice examples listed
above, the shelters are all dedicated to
victims of trafficking specifically. An
example noted in the region who operate
in this way is Bahrain, however other
information available about this centre
indicates non-compliance with other
international standards.
Safe housing and shelter
should be flexible to adapt
to different target groups
and individual victims of
trafficking with individual
needs (UNODC)
Shelters may be
specialised for trafficked
persons only or may house
other persons in need of
similar assistance
11
Source: http://www.qfcht.org/services_en.aspx

13. 13
There is not enough information available
in this assessment to determine whether
or not the government provides funding
for the operation of the shelters that have
been profiled.
Specialist non-governmental
organisations provide the
expertise and operational
management, with funding
from governments (UNODC)
A Memorandum of
understanding could be
established with the
government for the
management and running
of the shelter.
Oman: Gap in the provision of shelter
services, whereby residents of the shelter
are unable to leave the shelter
unchaperoned. Further, entry criteria is
very restricted, and assumed to be
related to the participation in criminal
proceedings given it is facilitated by the
police.
Egypt: Residents can come and go as
they wish from the shelter.
The provision of shelter
should not be made
contingent on the
willingness of the victims to
give evidence in criminal
proceedings (OHCHR)
Fundamental Principle 4:
p.113—Participation in
assistance programmes
will be on a voluntary basis
only, at the free and
informed will of the victim
Egypt: Partnership made with the national
hospital to provide physical and mental
health services
Egypt, Qatar and Oman shelters are all
noted to be providing counselling,
medical care, psychological care,
psychiatric care and
repatriation/reintegration services.
Oman: demonstrates longer-term
accommodation, which assists with
reintegration. It also provides options for
employment in the reintegration centre.
The critical aspect of shelter
programmes is the housing
provided is matched to
comprehensive and focused
programmes of assistance
(UNODC)
Ensuring that in partnership
with non-government
organisation that trafficked
persons are given access to
primary health care and
counselling… Providing
trafficked persons with legal
and other assistance in
relation to any criminal, civil
or other actions against
traffickers/exploiters
(OHCHR)
Shelter services and
assistances should
include:
! Counselling
! Medical Care
! Psychological Care
! Psychiatric Care
! Legal Assistance
! Additional
reintegration
services
Egypt: NGO and IOM partnership to
operate trafficking shelter
Qatar: Coordinated case management &
repatriation options are offered
Holistic approach is required
in providing meaningful
assistance to victims—
comprehensive and
integrated services. Detailed
further in Tool 8.10 of the
Fundamental Principle 1:
p.113—Contribute to the
protection and assistance
of trafficking victims
through effective
cooperation between

14. 14
UNODC Guidelines12
. relevant partners
12
UNODC Tool 8.10 ‘Promising Examples of Integrated Services’, “This tool showcases some
examples of comprehensive and integrated services for victims. Assistance measures which
are not part of a comprehensive package of responses will not break the trafficking cycle
effectively. The sustainable reintegration of a person who has been trafficked requires a
holistic approach to meeting their wide range of needs” Source:
http://www.unodc.org/documents/human-trafficking/Toolkit-files/08-58296_tool_8-10.pdf,

15. 15
ATTACHMENT ONE- Shelter Assessment Tool
Assessment tool adapted from: IOM Handbook: Direct Assistance for Victims
of Trafficking (2007) Chapter 4: Shelter Guidelines
Observation Checklist
Guideline Yes No Comment
Establishment of the Shelter: Shelter Aims
Adequate, safe & secure
temporary living environment
Adequate, safe and secure
working environment for staff
Location of the shelter is
confidential
Stabilisation of victim to
prevent further harm and
enable max. recovery
Well-trained staff working in a
collaborative, inter-disciplinary
manner to provide a
comprehensive continuum of
care for victims
Quality protection and
assistance to victims based on
individuals case service plans
Operate effectively and
efficiently within counter-
trafficking victims assistance
and protection frameworks in
various countries and regions
Provision of services is not
linked to legal proceedings
Premises and Layout of Shelter
Shelter is clean, safe and
comfortable
Facilities and furnishings are in
good repair and in compliance
with health, fire, electricity and
building codes (local)

16. 16
24 hour service
Residents can come and go
voluntarily
Kitchen & dining area,
functional & sanitary
Group living area
Bathroom facilities, functional &
sanitary
Sleeping facilities. Residents
have their own bed, clean bed
linen& a place to store personal
belongs
Private counselling/casework
room
Office for shelter staff
Medical examination room
Laundry & washing facilities
Recreation area
Storage space
Maximum shelter capacity is
not exceeded (i.e.: residents
are not overcrowded)
Shelter hours and admission
policy is in place & referring
sources are aware
Security:
- Is there a risk
assessment framework
in place?
- What provisions are in
place for residents &
staff
Are there emergency
procedures in place?
- Breach of security
where residents are in
danger?

17. 17
- Risk of suicide
- Risk of physical harm to
others?
Shelter Services
Is information available to
residents in a language they
understand?
Are residents provided with a
basic material package when
they arrive?
Are residents offered medical
care?
Are residents offered
counselling/psychological
care?
Are residents offered legal
information?
Are there any options for
recreation?
Case service plan/case
management framework in
place?
Record Management:
- Are there procedures in
place about what
information is collected,
how the information is
used, and where the
information is stored?
Are residents offered
assistance when they leave the
shelter? If yes, comment.
Shelter Management & Staffing
Shelter manager in place
Direct counsellor/psychological
staff in place

18. 18
Supervision & general care of
residents staff in place
Financial oversight &
procurement staff in place
Shelter Staff Management & Training
Staff are trained & receive
ongoing training
Staff Code of Conduct
Staff roster or schedule is in
Place
Staff supervision is in place
Shelter for Minors
Note- for shelters catering to minors a more comprehensive assessment should be undertaken.
Children are in safe
accommodation with their own
place to sleep
Children provided
accommodation appropriate for
their age
Housed with other children of
their own age and gender
Family members are housed
together (if safe and
appropriate)
Necessary authority to house
minor has been received
Services are provided for
children to assist with their
development and
reintegration?

19. 19
Assessment Interview Prompt Questions
1. How are people referred to you? How do they find you?
2. What do you understand your role to be in supporting people who
arrive? In particular how to respond to people who disclose abuse?
3. Do you work with other organisations or partners in the work you are
doing? (Government or Non-Government)
4. What information is collected about the person? How and why is it
collected? What is done with the information?
5. What are the main issues faced by people who come to you?
6. What services are offered or provided whilst the person is with you?
7. What resources are available to you to assist people? E.g. financial
assistance, meal allowances, material assistance (clothes) etc.?
8. What are the goals of the shelter?
9. Is information collected about the goals and plans of the individual
accommodated, if so, what can be done to assist in achieving these
goals?
10. What is the assistance that people are seeking when they leave their
situation? E.g. do they want to return home? Do they want to seek legal
redress?
a. If people wish to return what is done to assist with this? Are
there plans in place to manage safety?
b. Are there avenues or pathways for legal redress?
11. Are there services available to assist with people’s mental and
physical wellbeing?
a. Basic medical attention?
b. Short term counselling?
c.
12.What is the role of law enforcement?
a. Is legal information provided to people, how is it provided?