Cablegate: Jordan: Input for the 2010 Trafficking in Persons

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DE RUEHAM #0455/01 0561127
ZNR UUUUU ZZH
R 251127Z FEB 10
FM AMEMBASSY AMMAN
TO RUEHC/SECSTATE WASHDC 6954
INFO RUEHAD/AMEMBASSY ABU DHABI 0030
RUEHGB/AMEMBASSY BAGHDAD 6395
RUEHLB/AMEMBASSY BEIRUT 3182
RUEHEG/AMEMBASSY CAIRO 0049
RUEHLM/AMEMBASSY COLOMBO 0241
RUEHDM/AMEMBASSY DAMASCUS 4346
RUEHKA/AMEMBASSY DHAKA 0214
RUEHHI/AMEMBASSY HANOI 0027
RUEHJA/AMEMBASSY JAKARTA 0186
RUEHKT/AMEMBASSY KATHMANDU 0101
RUEHMK/AMEMBASSY MANAMA 0736
RUEHML/AMEMBASSY MANILA 0184
RUEHNE/AMEMBASSY NEW DELHI 0358
RUEHRB/AMEMBASSY RABAT 0469
RUEHRH/AMEMBASSY RIYADH 2309
RUEHTV/AMEMBASSY TEL AVIV 2058
RUEHTU/AMEMBASSY TUNIS 1093
RUEAWJB/DEPT OF JUSTICE WASHDC
RUEHC/DEPT OF LABOR WASHDC
RUEATRS/DEPT OF TREASURY WASHDC
RUEAHLC/DEPT OF HOMELAND SECURITY WASHDC

UNCLAS AMMAN 000455

SENSITIVE
SIPDIS

STATE FOR G/TIP, INL, DRL, PRM, NEA/ELA, AND NEA/RA

E.O. 12958: N/A
TAGS: KTIP ELAB PHUM KWMN SMIG JO
SUBJECT: JORDAN: INPUT FOR THE 2010 TRAFFICKING IN PERSONS
REPORT, PART 1

REF: A. AMMAN 383
B. AMMAN 274
C. STATE 2094
D. 09 AMMAN 2339
E. 09 AMMAN 2254
F. 09 AMMAN 2074
G. 09 AMMAN 2073
H. 09 AMMAN 1424
I. 09 AMMAN 1179
J. 09 AMMAN 856
K. 09 AMMAN 706
L. 09 AMMAN 459
M. 09 AMMAN 429
N. 09 AMMAN 242
O. 09 AMMAN 230
P. 09 AMMAN 189

1. (SBU) Summary: During the past year, Jordan continued to
demonstrate a strong commitment and made steady progress to
combat trafficking-in-persons (TIP). The primary achievement
was the completion of a strong legal framework to prevent and
prosecute TIP, which included the passage of a comprehensive
anti-TIP law, domestic worker regulations, and recruitment
agency by-laws. The government began to implement this
framework during the past year. Law enforcement authorities
increased investigations in TIP resulting in at least nine
prosecutions using the new law. The government also
completed a National Strategy to Combat TIP, the by-laws and
a plan for a long-term TIP shelter, and a public awareness
strategy. Several donor-funded programs built the capacity
of various governmental bodies to address TIP. The
government has requested additional assistance as they move
forward. (Note: Due to length restrictions, the cable will be
transmitted in two parts. End Note).

2. (SBU) Despite the achievements of the past year, more
government action is required. Victim assistance and
protection remains limited and the government must follow
through with creating the TIP shelter and working with civil
society to establish a referral system. Prevention,
especially changing public behavior and attitudes towards
foreign domestic workers, is also a priority. The
government, working with donor-funded projects, must launch
planned campaigns targeting both the public and migrant
workers. Law enforcement and judicial authorities began
implementation of the anti-TIP law but need to continue
expanding the number of TIP investigations and prosecutions.
The government, for instance, can better work with source
country embassies to increase prosecutions for the forced
labor of foreign domestic workers. Post has worked closely
with the government to identify technical assistance needs
and will continue to explore avenues to assist the many
on-going initiatives. The G/TIP-funded training of judges
and prosecutors and the G/TIP grant to the American Bar
Association, in particular, will strengthen implementation of
the legal framework now in-place. End Summary

Jordan's TIP Situation
----------------------

3. (SBU) The following information is keyed to questions in
reftel C with parenthetical references corresponding to
reftel C paragraph and subheading:

4. (U) (25/A) The government, including the Ministry of
Justice (MOJ), Ministry of Labor (MOL), and Public Security
Department (PSD), started to maintain readily accessible

records of anti-trafficking investigations and prosecutions
after a new anti-TIP law came into force on March 31, 2009.
Previously, TIP cases were not delineated from overall
criminal figures, making it difficult to obtain statistics.
The MOJ and MOL, in particular, are receiving donor
assistance to help delineate and track TIP-related
information. The government has discussed the need for a
comprehensive study on trafficking; however, one has not yet
been initiated. Government bodies, such as the MOJ, MOL, and
PSD, readily share available information and are eager to
cooperate. The government-funded National Center for Human
Rights (NCHR) is actively involved in labor issues pertaining
to foreign domestic workers (FDWs) and migrant factory
workers and is a key source of information, as are a handful
of international and local NGOs working on the issue.

5. (U) (25/B&C) Women from South Asia and South East Asia,
primarily Sri Lanka, Indonesia, and the Philippines, are
recruited to work in Jordan for the purpose of domestic
labor. As of January 30, 2010, 50,720 FDWs were registered
with the MOL. FDWs continue to experience abuses such as
unpaid wages, sexual assault and harassment, withholding of
passports, verbal abuse, and other forms of mistreatment. As
of January 30, 2010, officials reported housing approximately
120 runaway workers at the Philippine Embassy, over 200 at
the Indonesian Embassy, and almost 100 at the Sri Lankan
Embassy. According to these embassies, the vast majority of
the runaways fled some form of forced labor. The Philippine
embassy reports that approximately 95 percent of runaways had
their passports confiscated and 90 percent were either
underpaid or received no salary for their work. Eight of the
120 workers present in their shelter on January 30 reported
some form of sexual assault or rape. Diplomats from the Sri
Lankan and Indonesian embassies report similar findings.

6. (U) (25/B&C) Men and women from South Asia and South East
Asia are recruited to work in Jordan in the textile industry.
These individuals work in a range of garment factories,
including those with Qualifying Industrial Zone (QIZ) status.
(Note: In 1996, Congress authorized the President to
designate areas, known as QIZs, from which Egypt and Jordan
can export products to the U.S. duty-free, as long as these
products contain inputs from Israel and a combination of
input from the QIZ, Jordan, the West/Bank Gaza, and the U.S.
End Note.) As of January 30, 2010, the MOL reported 24,944
registered migrant workers working in approximately 80
garment factories across the country. There do not appear to
be organized trafficking networks operating between Jordan
and the home countries of migrant garment workers; however,
some workers in a few garment factories have experienced
conditions that could be considered forced labor, such as
delayed or unpaid wages and overtime, withholding of
passports, and, in a few cases, verbal abuse. These
factories were largely small in size and did not export to
the U.S. market. Governmental and non-governmental
organizations continued to report a decline in instances of
forced labor due to enhanced labor inspections and other
government measures.

7. (U) (25/B&C) Police and civil society contacts report that
women from Eastern Europe and Northern Africa continue to
enter Jordan for illicit purposes. The PSD Criminal
Investigation Department's anti-TIP unit investigated and
found a few cases of Moroccans and Tunisians being subjected
to forced labor and prostitution in nightclubs and
restaurants. The government and police state there are no
organized trafficking networks bringing in these women, but

there is very little governmental and non-governmental
information available on the extent of the problem.

8. (U) (25/B&C) Men and, to a lesser degree, women from Egypt
and Syria seek employment in Jordan in several sectors,
including in construction, agriculture, and tourism.
Egyptians account for two-thirds of the total foreign
workforce. Local NGOs and the media reported the forced
labor of some Egyptian workers, including the withholding of
passports, forced overtime, non-payment of wages, and
restrictions on movement. Additionally, a few local
organizations state there is an element of exploitative child
labor in the agriculture sector, particularly among migrant
families. The government and NGOs, however, have very little
information regarding the extent of forced labor and child
labor among these migrant workers (ref A).

9. (U) (25/B) To a much lesser degree, Jordan may be a
transit destination for trafficked men and women from South
and South East Asia. Some contacts stated that these men and
women may transit Jordan en route to other Middle Eastern
countries, such as Syria, Egypt, or Iraq to then experience
labor exploitation. The workers reportedly possess valid
transit visas and only enter Jordan's airports due to the
routing of flights from the source to the destination
countries. There were prior year reports of men brought to
Jordan with the promise of employment within the country,
only to be trafficked into Iraq.

10. (U) (25/B) There was at least one allegation of
Jordanians being sent to Iraq for employment in 2009, only to
be paid less than promised and to have their passports
confiscated and mobility hindered.

11. (U) (25/D) FDWs are particularly vulnerable to
trafficking as they live and work in private homes and,
according to activists, these unskilled foreign women are
often viewed in society as third-class citizens. Other
migrant workers are also vulnerable to forced labor due to
indebtedness to recruiters, reliance on employers to renew
work and residency permits, and societal attitudes towards
foreign workers.

12. (U) (25/E) Exploitation of FDWs begins with the
recruiting agencies in source countries but continues with
some receiving agencies in Jordan and with many Jordanian
employers according to a range of contacts that follow or
work on the issue. Some source country agencies exaggerate
the FDWs' qualifications and issue illegal contracts or do
not explain contract terms and work requirements properly.
When the FDW arrives in Jordan, the receiving agency is faced
with the choice of repatriating the FDW - at a loss to the
company - or hiring the individual out to Jordanian employers
who expect a different skill set. When the employer
complains and demands that the agency take the FDW back, many
agencies reportedly will simply find another unsuspecting
employer. Regulations prohibit the transfer of workers from
one sponsor to another under any circumstances, unless
approved by the MOL. Some governmental officials and
nongovernment observers state, however, that illegal
transfers are still common because agencies make large
profits by shuffling FDWs, charging each new employer the
full cost of importing the worker. (Note: On average, an
employer must pay the recruitment agency 2,000 JD ($2,800) to
hire a domestic worker. End Note)

13. (U) (25/E) Employers are the primary source of forced

labor among FDWs. Anecdotal evidence, for instance, suggests
that the majority of Jordanians believe travel documents
should be withheld from the FDW, the worker should not be
allowed to leave the house alone, and there should be no days
off (ref F). NGOs reported numerous cases of FDWs not being
paid, in some cases over a period of years. FDWs and local
NGOs also reported numerous cases of sexual assault or verbal
and physical abuse by their employers. Employers were found
to have used numerous methods of coercion, including the
threat of imprisonment for theft or other crimes if the
worker attempts to run away.

14. (U) (25/E) The government approved on August 25, 2009
by-laws for domestic worker recruitment agencies. The
by-laws, which now require implementing regulations, will
greatly strengthen requirements to operate and receive a
license and gave the MOL greater monitoring and enforcement
authorities. Under the regulations, an agency must have a
minimum of six employees, 120 square feet of office space,
100,000 JD ($140,000) (vice the prevailing 50,000 JD) bank
guarantee, 30,000 JD ($42,000) capital requirement, and the
manager must hold a university degree. The MOL states that
these requirements are necessary for a legitimate recruitment
agency to function properly and state that small, difficult
to regulate agencies will be forced to close. Recruitment
agencies will be given one year or until their next license
renewal to meet the new criteria. During the reporting
period, nine recruitment agencies were ordered to close for
not complying with the labor law, domestic worker by-laws, or
for complaints filed against them. Six agencies had their
closure order suspended after resolving the problems; three
have been closed permanently.

15. (U) (25/E) When exploitation takes place among garment
sector workers, factory managers or production line
supervisors in Jordan generally bear the most responsibility
based on complaints and governmental and nongovernmental
investigations. Some textile workers alleged that managers
withheld their passports, delayed wages, delayed or did not
fully pay for overtime and, in a few cases, verbally abused
employees. Some factories hire directly from source country
recruitment agencies. In some cases, the workers reported
being issued contracts not representative of their actual
employment or that full terms of their contract were not
fully explained or understood.

16. (U) (25/E) During the reporting period, allegations of
labor violations in the garment sector continued to decrease
due to more rigorous MOL inspections, increased awareness,
and improvements in factory working conditions. The MOL
operates 23 labor offices, of which 21 have an inspection
function. The MOL has trebled the size of its inspectorate,
which now stands at 140. The MOL is currently hiring an
additional 35 inspectors. In 2009, the labor inspectorate
conducted over 176,000 planned or on-the-spot investigations
covering all sectors, except agriculture. (Note: Domestic
workers and agricultural workers were placed under the labor
law in 2008. While the domestic worker by-laws have been
enacted, the government is still working on the by-laws for
agricultural workers. Once these by-laws are enacted, the
inspectorate will have the authority to conduct inspections
in this sector as well. End Note)

Setting the Scene: GOJ Anti-TIP Efforts
---------------------------------------

17. (U) (26/A) The government publicly acknowledges that

trafficking is a problem and continues to undertake active
measures to combat the problem. However, some government
officials continue to publicly and privately state that the
problem of trafficking, especially of domestic workers, is
overstated by international and local organizations and the
media. However, even officials who did not believe TIP was a
significant problem assisted in the significant measures
completed the past year to fight trafficking, including
enactment of the anti-TIP law, increased investigations and
prosecutions, domestic workers regulations, recruitment
agency regulations, development of National Strategy to
Combat TIP, and by-laws for a shelter.

18. (U) (26/B) The National Committee for the Prevention of
Human Trafficking (National Committee) is the body
responsible for overseeing government efforts to prevent and
prosecute trafficking and protect victims. The National
Committee is chaired by the Minister of Justice and includes
representatives of the MOL, PSD, Ministry of Interior (MOI),
National Center for Human Rights (NCHR), National Council for
Family Affairs (NCFA), Ministry of Foreign Affairs (MFA),
Ministry of Social Development (MOSD), Ministry of Industry
and Trade (MOIT), and Ministry of Health (MOH). The MOL acts
as the lead agency to combat forced labor among migrant
workers with a focus on FDWs and textile workers. The PSD is
the lead agency to investigate transnational trafficking,
sexual exploitation, organ trafficking, and egregious forced
labor cases. The PSD Borders and Residency Department is the
lead agency in monitoring the country's borders. The PSD and
MOL are also cooperating on the formation of a joint TIP
investigation unit. The MOSD led an inter-agency effort to
develop a shelter plan for TIP victims.

19. (U) (26/B) The MOL maintains a directorate for foreign
domestic workers. This office's mission is to control and
monitor all FDW issues, including licensing and monitoring of
recruiting agencies, issuance of work permits, and
investigating reports of abuse. The directorate's mission is
not being fully met, primarily due to capacity constraints,
according to the directorate and local civil society
organizations.

20. (U) (26/C) The government continues to face financial and
human resource constraints on its ability to introduce and
implement anti-trafficking efforts, such as awareness
raising, investigation and prosecution capacity, and
assistance to victims. As such, the government relies on
donor programs to build capacity and help implement TIP
activities. Additionally, Jordanian society traditionally
tends to prefer to resolve domestic issues within the family
or informally outside the court system. The most egregious
of the abuses that some FDWs workers suffer - physical and
sexual assault - are crimes that often go unreported
according to activists and nongovernmental organizations
dealing with women's rights and/or domestic workers. Factors
such as language and cultural barriers also hamper the
reporting of these crimes.

21. (U) (26/D) The government did not have a systematic
methodology or mechanism of monitoring and reporting on its
anti-trafficking efforts during the reporting period.
However, the newly approved National Strategy to Combat TIP
(para 69-70), which reportedly contains required activities
and targets, will be used as a framework to monitor and
report on government efforts. Progress on achieving strategy
goals will be evaluated every six months. In general, the
National Committee's formation and its subcommittees have

improved coordination and information sharing between
government agencies.

22. (U) (26/E) The government maintains well-established
systems to establish and document the identity of the vast
majority of citizens not withstanding ethnicity. A few
citizens reported being unable to obtain birth certificates
for their children, but their problems were due to unique
circumstances, such as an unrecognized inter-faith marriage
and children of converts.

23. (U) (26/F) The government is capable of gathering and
analyzing a range of law enforcement data and information.
For instance, the police, judiciary, and labor inspectorate
have received assistance to improve their data collection and
case management systems. The main problem with TIP data
collection and analysis is that it is a relatively new issue
for law enforcement entities and was not originally
incorporated into their systems. Over the coming years, this
should change. The USAID Rule of Law project, for instance,
is creating fields in the judicial database and information
system to allow the judiciary to classify and track
trafficking cases. Until now, the MOJ had to run through
each crime category to see if trafficking was involved. The
labor inspectorate is also working on their database and case
management system and informs Post that forced labor
violations will be delineated. Interlocutors also state the
formation of the joint police-labor inspector anti-TIP
investigation unit should also allow for better data
collection and tracking.

Investigation and Prosecution of Traffickers
--------------------------------------------

24. (U) (27/A) A comprehensive anti-TIP Law came into full
force on March 31, 2009, thirty days after its publication in
the official gazette. The law covers sexual exploitation,
forced labor, and organ trafficking. "Crimes of TIP" are
defined in the law as the recruitment, transportation, and
harboring of individual(s) by means of the threat or use of
force or other forms of coercion, abduction, fraud,
deception, or abuse of power for the purpose of exploitation.
Transnational and internal forms of trafficking are covered.
In addition to defining punishments, the law established the
National Committee (replacing a previous inter-ministerial
committee), provided for legal protection of victims, and
stated that one or more shelters may be created.

25. (U) (27/A-C) The anti-TIP law stipulates a punishment of
up to ten years in prison with hard labor for the following
offenses, whether sexual exploitation or forced labor:

- If the person trafficked is under 18 years of age;
- If the person has established, organized, or managed an
organized criminal group for human trafficking;
- If the victims include females or persons with
disabilities;
- If the crime involves exploitation in prostitution, any
other form of sexual exploitation, or organ removal;
- If the act is committed by threat or use of a weapon;
- If the crime causes the victim to suffer chronic incurable
disease;
- If the person is a relative of the victim;
- If the person is a public official and committed the crime
by abusing his/her office;
- If the crime is transnational in nature.

26. (U) (27/A-C) Other human trafficking crimes receive a
punishment of at least six months and/or a fine of not less
than $1,400 (1,000 JD) and not more than $7,000 (5,000 JD).
The law also stipulates a minimum sentence of six months for
any person who knew about the crime by virtue of his/her job
and did not notify officials. Any person who hid or disposed
of evidence shall be imprisoned for no more than on one year
or receive a fine of not less than $280 (200 JD) and not more
than $1,400 (1,000 JD). The National Committee is also given
the authority to close businesses for human trafficking
crimes and confiscate related profits. The law does not
prevent stiffer penalties through the application of other
legislation.

27. (U) (27/A-C) The labor law can also be used to punish
labor trafficking offenses. Under the labor law, if an
employer forces, threatens or coerces someone to work
(including withholding passports), the offender faces a fine
of $700 - $1,400 (JD 500-1000). Anyone peripherally involved
in the case can also be punished under the same law. Fines
for general failure to comply with the labor law were
increased in 2008 from $140 - $700 (100-500 JD) to $420 -
$700 (300-500 JD). If the offender repeats the violations,
the above fines are doubled.

28. (U) (27/A-C) The government views the labor law as a new
vehicle to protect domestic and agricultural workers and
punish forced labor offenses. On August 25, 2009, Jordan's
cabinet endorsed new domestic worker regulations (labor law
by-laws) aimed at protecting their rights of FDWs. The
regulations were drafted in consultation with civil society
after agriculture and domestic workers were included under
the labor law in June 2008. Provisions include:

--Ten-hour work day with one day off per week.
--Fourteen days of paid annual leave and fourteen days of
paid sick leave per year.
--Entitlement to contact family in their home country at
least once per month at employer's expense.
--Freedom to practice their own religion.
--Worker cannot be taken out of Jordan without the worker's
approval and only after notifying the worker's embassy.
--Worker must only work in their assigned home and cannot be
sent to work in other people's homes.

29. (U) (27/A-C) In case of a complaint, the recruitment
agency by-laws authorize the MOL to send a male and female
labor inspector to the domestic worker's workplace but only
after obtaining the employer's approval. The labor
inspectorate can ask for a judicial warrant if employer
approval is not given. If an employer is found in violation
of the domestic worker regulations, the employer will be
issued a warning and required to resolve the violation in one
week. If not resolved, the employer will be subject to
punishment as stipulated in the labor law.

30. (U) (27/A-C) The domestic worker regulations also contain
employer protections. For instance, the domestic worker
"must respect the privacy of the workplace, not reveal
secrets of the house, respect the employer's traditions and
culture, and not leave the house without the employer's
permission." Migrant worker and TIP activists took special
exception to the requirement that a FDW must obtain the
employer's permission to leave the house. MOL contacts state
this provision conforms to local societal rules citing that
many Jordanian women themselves must notify their male family
members before leaving the house. If a domestic worker runs

away, the employer is not obligated to fulfill any financial
obligations towards the workers nor will the employer have to
bear the expense of sending the worker back to her country.

31. (U) (27/A-C) A range of other legislation can and has
been used to investigate, prosecute and punish both sexual
exploitation and labor trafficking. Under the Passport Law
of 2003, anyone found in possession of a passport not their
own is subject to imprisonment of six months to three years,
and/or fines of $700-$1,400 (500-1000 JD). Several penal
code articles, such as those pertaining to murder, rape,
sexual assault, and kidnapping can also be used to prosecute
offenders depending on the circumstance of the case.

32. (U) (27/C) Tamkeen, a new NGO that provides legal
services to migrant workers, has successfully tried wage
dispute cases before administrative courts. In 2009, Tamkeen
filed 20 cases of wage non-payment before the court and each
time won some level of compensation for the worker. No
criminal penalties were attached to the decision but the
employer was ordered to compensate the worker for missing
wages. Some of the workers had not received wages for two
years. The majority of cases involved domestic workers but
also included those working in other sectors, such as retail,
construction, and agriculture.

33. (U) (27/C) Tamkeen also initiated a civil case against an
alleged trafficker. The victim reportedly was sexually
assaulted, abused, unpaid, and not allowed to leave the
household. The public prosecutor trying the case refused to
use the anti-TIP law as he felt it was not trafficking but
did charge the alleged trafficker with sexual assault charges
under the penal code. The criminal charge and civil lawsuit
are being tried simultaneously before a criminal court. The
cases were on-going as of February 10.

34. (U) (27/D) Jordanian law provides for the death penalty
for the rape of a girl less than 15 years of age. The
penalty for rape of a girl or woman 15 years of age or older
is not less than ten years imprisonment with hard labor.

35. (U) (27/E) The government continued to increase the
number of TIP investigations and prosecutions during the
reporting period. The PSD investigated cases of forced
labor, sexual exploitation, organ trafficking, selling of
children, and human smuggling and worked with prosecutors to
initiate criminal proceedings. Below is the breakdown of
investigated cases that resulted in a prosecution:

--Selling of Children (2 cases): The PSD investigated two
instances of women selling their children. Both women, one
Iraqi and one Jordanian, allegedly gave birth to an
illegitimate child (i.e. they were not married to father) and
attempted to sell their children. Prosecutors charged them
under the anti-TIP law. The cases were ongoing as of
February 10.

--Forced Labor of Domestic Workers (1 case, possibly
another): The PSD investigated the forced labor of a Sri
Lankan FDW. The woman had not been paid for over ten years
and was never allowed to leave the household. The employer
is being tried under the anti-TIP law. The woman is
currently residing in the Sri Lankan embassy shelter. The
case is on-going. The PSD stated another employer of a FDW
has been tried under the anti-TIP law but, as of February 15,
had not provided Post with details.

--Sexual Exploitation: In late 2008, the PSD Criminal
Investigation Department's anti-TIP unit investigated the
forced prostitution of two Tunisian women. The alleged
traffickers were detained, prosecuted, and convicted. Post
has requested detailed information on the charges,
punishments, and traffickers. As of February 15, MOJ
contacts stated they were in the process of gathering the
information.

--Organ Trafficking (6 cases since April 1, 2009): The PSD
investigated numerous cases involving organ trafficking
during the reporting period. The MOJ states these
investigations have resulted in three prosecutions but the
PSD state there have been six prosecutions. (Note: Post is
seeking clarification but some investigations may have led to
combined prosecutions. End Note.) The victims were largely
recruited in Jordan and then sent to Egypt for the surgery.
The anti-TIP law is being used to try these cases. Prior to
April 1, 2009 (anti-TIP law coming into force), the PSD
states 42 cases of organ trafficking were investigated and
prosecuted in 2008 and 2009 using a 1977 anti-organ
trafficking law.

--Human Smuggling (not trafficking) (7 cases): In 2009 and
2010 the PSD Borders and Residency Department found on seven
separate occasions attempts to smuggle people into Syria at
the Ramtha border crossing. The smugglers, including a
Turkish citizen, are being tried under an anti-smuggling law.
The smugglers primarily used shipping containers to hide the
people and were reportedly paid in the range of 1,000 JD
($1,400) per person. The PSD believe the ultimate
destination was Cyprus and Europe using Syria and Lebanon as
transit points. The cases involved 16 Bengalis, 29 Indians,
and 153 Egyptians.

36. (U) (27/E) A limited number of other forced labor cases
were handled by the judicial system during the reporting
period. For instance, Tamkeen handled 20 cases of
non-payment of wages before administrative courts. The judge
awarded at least partial compensation in each case.

37. (U) (27/E) The MOL continued to strengthen its
investigation and punishment of labor abuses in garment
factories through enhanced inspection capacity. In 2009, MOL
inspectors issued at least 41 fines for forced labor
violations in garment factories. The MOL is still creating a
database that will enable them to better disaggregate
statistics based on the type of violation.

38. (U) (27/E) The MOL also investigated and punished
recruitment agencies for labor violations. In 2009, the MOL
closed three recruitment agencies for violating the labor
law, recruitment agency regulations, and/or for complaints
filed against them. The MOL issued closure orders on another
six agencies but reinstated their permits after they resolved
the problems. In addition, the inspectorate issued 48
warnings against recruitment agencies and issued 17 fines for
failure to comply with the labor law or recruitment agency
regulations. The director of the MOL Foreign Domestic Worker
Directorate states that, on average, 15-20 recruitment
agencies are temporarily suspended at one time until they
address violations or become complaint with the law.
Violations include recruitment of sick and underage workers,
illegal transfer of workers from one employer to another, and
receiving placement fee but not delivering a worker in a
timely manner.

Beecroft

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