Guidance

Safeguarding against sexual exploitation and abuse and harassment (SEAH) in the aid sector

Foreign, Commonwealth & Development Office (FCDO) guidance on preventing and responding to sexual exploitation, abuse and harassment in the international aid sector.

From:
Department for International Development and Foreign, Commonwealth & Development Office
Published
17 October 2019
Last updated
1 February 2024 — See all updates

Safeguarding means avoiding harm to people or the environment. Since early 2018, the FCDO has been focused on safeguarding against Sexual Exploitation and Abuse and Sexual Harassment (SEAH) in the international aid sector.

Our goal is to ensure all those involved in poverty reduction take all reasonable steps to prevent harm, particularly SEAH, from occurring:

  • listen to those who are affected
  • respond sensitively but robustly when harm or allegations of harm occur
  • learn from every case.

The FCDO’s work on SEAH looks at both the FCDO and the partners we fund with Official Development Assistance (ODA) to deliver development and humanitarian programmes around the world, often with vulnerable people.

In September 2020 the FCDO launched a UK Strategy on safeguarding against sexual exploitation and abuse and sexual harassment in the aid sector that applies to all UK Official Development Assistance (ODA) spend.

This strategy explains what UK government departments that engage in ODA will do to improve safeguarding standards internally, in partner organisations, and across the whole international aid sector. All UK government ODA spending departments signed up to the strategy.

This page provides an overview of the FCDO’s work and points to guidance for those working in the aid sector on how to safeguard their people and programmes.

At the FCDO we use the UN definitions for SEAH:

  • sexual exploitation: any actual or attempted abuse of a position of vulnerability, differential power, or trust for sexual purposes. Includes profiting momentarily, socially, or politically from sexual exploitation of another. Under UN regulations it includes transactional sex, solicitation of transactional sex and exploitative relationships

  • sexual abuse: the actual or threatened physical intrusion of a sexual nature, whether by force or under unequal or coercive conditions. It should cover sexual assault (attempted rape, kissing / touching, forcing someone to perform oral sex / touching) as well as rape. Under UN regulations, all sexual activity with someone under the age of 18 is considered to be sexual abuse

  • sexual harassment: a continuum of unacceptable and unwelcome behaviours and practices of a sexual nature that may include, but are not limited to, sexual suggestions or demands, requests for sexual favours and sexual, verbal or physical conduct or gestures, that are or might reasonably be perceived as offensive or humiliating

Sources:

FCDO safeguarding standards

The FCDO expects all partners we work with to take all reasonable steps to safeguard the people they come into contact with (including staff and the communities in which programmes are delivered) from SEAH. The FCDO holds ourselves to at least the same high standards we expect of our partners.

Along with other OECD Development Assistance Committee (DAC) donors, we adhere to 2 sets of international minimum standards on tackling SEAH:

For partners under an accountable grant or memorandum of understanding (MoU), these standards are reflected in our Safeguarding against SEAH Due Diligence guidance. All FCDO partners delivering a programme via an accountable grant or MoU will have their capability on safeguarding against sexual exploitation and abuse and sexual harassment (SEAH) examined as part of the overall FCDO Due Diligence process.

For partners under a contract, the standards are reflected in our Supply Partner Code of Conduct and terms and conditions (PDF, 350 KB). The Supply Partner Code of Conduct has also applied to partners with whom the FCDO has had an accountable grant from late 2019.

Summary of the 6 areas of SEAH due diligence

SEAH approach:

  • policy
  • standards
  • children and vulnerable adults
  • beneficiary engagement
  • survivor support

Complaints and whistleblowing:

  • policy
  • training
  • internal complaints
  • external complaints
  • case register

Recruitment and training:

  • job descriptions and risk
  • selection and interview
  • references and vetting
  • induction and refresher training

Risk management:

  • SEAH risk category
  • regular review
  • fundraising
  • online risks
  • downstream partners

Code of conduct:

  • code of conduct
  • Inter-Agency Standing Committee (IASC) six core principles
  • staff signature

Governance and accountability:

  • designated board safeguarding lead
  • board handling of SEAH
  • local focal points
  • requirements of others

The principles that FCDO is committed to applying in relation to safeguarding against SEAH and that we expect our partners to apply in their work and through their delivery chains are:

  • everyone has responsibility for safeguarding
  • do no harm
  • organisations have a safeguarding duty of care to beneficiaries and other stakeholders, staff and volunteers, as well as to children and adults-at-risk who may be directly or indirectly delivering or impacted by the programme and may be vulnerable to abuse
  • act with integrity, be transparent and accountable
  • all activity is done in the best interests of the child/at risk person in line with the UN Convention on the Rights of the Child and the Children Act 1989, FCDO defines a child as any individual under the age of 18 regardless of the age of majority/consent in a given country
  • all children and adults shall be treated equally, irrespective of sexual orientation, gender identity and expression and sex characteristics (SOGIESC); religion/or none; race; ethnicity; disability; or any other protected characteristic as listed in the Equality Act (2010)
  • organisations that work with children and adults at risk should apply a safeguarding lens to their promotional communications and fundraising activities

How to report a safeguarding concern to the FCDO

If you are in immediate danger, call the police if safe to do so or your relevant security team.

You should report any concerns about sexual exploitation and abuse and sexual harassment (SEAH) relating to FCDO staff or programmes to the FCDO’s Safeguarding Investigations Team:

If you are unsure whether to report a concern, contact us for advice.

You can report concerns anonymously and the FCDO will treat them in confidence. We will consider whether we should refer your concern to the National Crime Agency (NCA), Charity Commission, police or other relevant authority.

The FCDO expects its programme partners to have mechanisms in place to prevent SEAH, to facilitate reporting and also to respond sensitively but robustly when cases are reported.

The FCDO’s commitments on safeguarding

The FCDO is holding itself to at least the same high standards we expect of our partners on safeguarding against SEAH.

UK SEAH Safeguarding Strategy

In September 2020 the FCDO launched a UK Strategy on safeguarding against sexual exploitation and abuse and sexual harassment in the aid sector that applies to all UK Official Development Assistance (ODA) spend. This strategy explains what UK government departments that engage in ODA will do to improve safeguarding standards internally, in partner organisations, and across the whole international aid sector. All UK government ODA spending departments signed up to the strategy.

Donor commitments from the Safeguarding Summit

Twenty-two donors, including all UK government departments who spend Official Development Assistance, signed up to commitments at the 18 October 2018 Safeguarding Summit. Donors agreed to report back on progress.

Cross-sector progress report

The FCDO has also worked with the other 8 key groups who made commitments at the 18 October 2018 Safeguarding Summit donors. This includes the UN, international financial institutions (IFIs), UK non-governmental organisations (NGOs), UK private sector, UK research funders, British International Investment (BII) and Gavi and the Global Fund, and the Red Cross/Red Crescent movement who made related commitments in 2019 – to work on sector change.

The FCDO continues to chair the Safeguarding Cross Sector Steering Group (CSSG). Read the reports:

FCDO progress report

The FCDO has published reports with further detail on the action that has been taken within the department to take forward the commitments made at the Safeguarding Summit:

DAC Recommendation on Ending Sexual Exploitation, Abuse and Harassment in Development Co-operation and Humanitarian Assistance

In July 2019, The Development Assistance Committee (DAC) Recommendation on Ending Sexual Exploitation, Abuse and Harassment in Development Co-operation and Humanitarian Assistance was adopted. It provides a coherent framework for aid agencies and their implementing partners to prevent sexual exploitation and abuse and sexual harassment (SEAH) and respond better if it does occur.

The recommendation is a strong signal that SEAH in the aid sector will not be tolerated. The recommendation was developed by a small team co-chaired by the UK’s FCDO, Ireland and Austria and working with the DAC Secretariat. It has been endorsed by all DAC members and is monitored through the DAC peer review mechanism.

Third party scrutiny of FCDO’s work on tackling SEAH in the aid sector

The UK Parliament’s International Development Committee (IDC) published a report following their 2018 inquiry into SEA in the aid sector and a subsequent follow-up report in Oct 2019. A third IDC inquiry into ‘SEA in the aid sector – next steps’ concluded in January 2021 and the UK government’s response was published by the IDC in April 2021. The Independent Commission for Aid Impact (ICAI) conducted a review in 2021 to 2022.

FCDO annual report

FCDO reports to Parliament annually, including on safeguarding. You can read the latest annual reports from July 2023 and July 2022.

G7 declarations

The UK was part of the 2018 G7 Whistler Declaration on protection from sexual exploitation and abuse in international assistance. During the 2021 UK Presidency G7 countries reaffirmed their commitment to tackling SEAH. The UK was part of a further reaffirmation in the May 2023 Hiroshima Leaders’ Communique during the Japanese Presidency.

FCDO safeguarding news

Safeguarding resources

Summary of findings from central assurance assessments of FCDO partners

A summary report from safeguarding-specific Central Assurance Assessments carried out on 31 civil-society organisations that the FCDO has funded.

SEAH Safeguarding due diligence guidance

Detailed guidance and criteria when it comes to assessing partner capability on safeguarding against sexual exploitation and abuse and sexual harassment (SEAH).

Sexual exploitation, abuse and harassment in the aid sector: victims and survivor voices listening exercise

Findings from an FCDO listening exercise with a diverse range of both southern and international representatives of victims and survivors of sexual exploitation and abuse and sexual harassment. See section on strengthening support to survivors.

Safeguarding Summit 2018: are you listening?

Safeguarding Summit 2018: Are you listening? - YouTube

This audio-visual presentation contains anonymised accounts by victims and survivors of SEAH by aid workers. The quotes are drawn from existing published sources and the voices in the recording are those of volunteers (mainly FCDO staff) whose identities are not disclosed. We did not interview or record victims / survivors directly, to avoid retraumatising individuals and ensure all accounts are anonymous. The voices do not necessarily match the characteristics of the victim or survivor.

Charity Commission: safeguarding

Guidance on safeguarding, from the charity regulator, for charities and trustees in England and Wales.

Safeguarding Resource and Support Hub

Funding for the Safeguarding Resource and Support Hub was announced at the October 2018 London Safeguarding Summit. It provides open-access resources and guidance on SEAH safeguarding, prioritising its support to smaller, less-resourced organisations in the Global South who deliver international aid programmes.

Resources can be accessed on a global online platform (available in over 10 languages) and multiple national hubs covering countries in Africa, the Middle East, South Asia and Eastern Europe. National hubs provide translated guidance specific to the local context as well as direct support to organisations through mentorship, training and consultancy. Resources include e-learning, webinars and a directory of consultants.

The programme is led by Options who oversee a diverse consortium consisting of Social Development Direct, Terres des Hommes, Sightsavers, Clear Global and the International Council of Voluntary Agencies (ICVA).

External guidance

Safeguarding in the International Aid Sector online course

This free online course was developed by the Open University, with funding from the FCDO, to help those working on safeguarding within aid organisations to lead, develop and implement strong safeguarding policies and practices. The 3 modules are designed for those leading on safeguarding within organisations, with the third targeting senior leaders and trustees. It has been designed to be applicable to organisations from the Global South.

Disability inclusive child safeguarding guidelines

People with disabilities are often at an increased risk of SEAH and we need to ensure that they are not forgotten or left behind when safeguarding programmes. Able Child Africa have produced Disability Inclusive Child Safeguarding Guidelines with FCDO support that can be used by staff and our partners.

The National Council for Voluntary Organisations (NCVO)

The NCVO have safeguarding guidance for those working overseas on their website.

Infrastructure and Cities for Economic Development (ICED) have developed a tool, commissioned by the FCDO, to help organisations identify and mitigate SEAH risks.

Bond: safeguarding guidance resources and tools

Guidance on safeguarding from Bond, the UK network for organisations working in international development.

Scottish Alliance: safeguarding resources

Guidance on safeguarding from the Scottish Alliance, the network for international development organisations based or represented in Scotland

Core Humanitarian Standard on Quality and Accountability

Inter-Agency Standing Committee Minimum Operating Standards on Protection from Sexual Exploitation and Abuse

One of 2 sets of minimum standards (PDF, 103 KB) adhered to by members of the OECD DAC. Their website includes tools and guidance for organisations. The IASC have a multi-year PSEA strategy (2022 to 2026) (PDF, 204 KB) and a global PSEA dashboard. In 2022 it developed and introduced a Sexual Exploitation and Abuse Risk Overview index, to help understand and assess SEA risk globally. IASC have also published a related Best Practice Guide on Inter-Agency Community-Based Complaints Mechanisms.

UN: preventing sexual exploitation and abuse

The UN has a website outlining UN action and guidance on progress against the UN Secretary General’s 2003 Special Measures Report (PDF, 31.5 KB) on protection from sexual exploitation and sexual abuse. It include a factsheet on UN initiatives and quarterly reports on allegations in UN Field Missions and system-wide.

UKCDR guidance on safeguarding in international research

UK Collaborative on Development Research (UKCDR) has published guidance on how to ensure the highest safeguarding standards in the context of international development research.

Humanitarian Quality Assurance Initiative (HQAI)

HQAI is an independent auditor for the humanitarian and development sector that verifies adherence to the Core Humanitarian Standard. Organisations can apply to their Facilitation Fund for support.

Safeguarding Summit 2018

On 18 October 2018, the UK government hosted an international summit in London – Putting People First: Tackling Sexual Exploitation, Abuse and Harassment in the Aid Sector – to drive collective action to better prevent and respond to SEAH.

Representatives from across the sector attended and 8 sets of commitment documents were presented from different groups of organisations (donors, UN, international finance institutions, UK NGOs, UK private sector, UK research funders, CDC and Gavi and the Global Fund).

Read the speech made at the summit by the then International Development Secretary.

The FCDO chairs a Cross-Sector Safeguarding Steering Group with representatives of those that made commitments at the summit.

UK NGO Safeguarding Summit March 2018

The 18 October 2018 international summit was preceded by a summit for UK NGOs held on 5 March 2018. Read the joint statement from that summit.

Employment cycle initiatives

The FCDO is supporting 3 initiatives focused on the employment cycle which aim to prevent perpetrators moving around the aid sector undetected and improve information sharing between organisations and with law enforcement.

Project Soteria

FCDO, in partnership with INTERPOL established Project SOTERIA, focused on the criminal aspects of sexual exploitation and abuse and sexual harassment in the international aid sector. The project seeks to establish an advanced level of collaboration between law enforcement agencies and aid sector organisations to prevent sexual offenders from using their positions to access and offend against children and vulnerable adults. It seeks to develop and enhance mechanisms for detection, reporting, investigation and deterrence of such cases both when and before they occur to keep people safe from harm. Project SOTERIA is global and available to the 196 INTERPOL member states. It is being piloted in 6 countries: Kenya, Tanzania, Uganda, The Philippines, Nepal and Bangladesh.

Misconduct Disclosure Scheme

The Inter-Agency Scheme for the Disclosure of Safeguarding-related Misconduct in Recruitment Process within the Humanitarian and Development Sector provides a framework for organisations working in the aid sector to share information about someone’s sexual misconduct during employment via a disclosure form. Signatories to the scheme are able to do this while respecting relevant legal and regulatory requirements. The sharing of this information has the potential to prevent perpetrators of SEAH from moving around the aid sector as shown by implementation data on the scheme.

Aid Worker Registration Scheme

The aim of the Aid Worker Registration Scheme is to close the loop on individuals who work in the sector but abuse others, whilst equipping those who conduct themselves appropriately with a trusted source of evidence that details their positive work history.

The steering committee for this project commissioned a legal review to guide progress, which was published in July 2020. Thinking continues about how the scheme could complement other initiatives.

Strengthening support to survivors

The Trust Fund in Support of Victims of Sexual Exploitation and Abuse provides funding for assistance and service provision for survivors of SEAH and children born as a result. FCDO is the largest funder to date.

FCDO also works closely with the Office of the Victims Rights Advocate. OVRA seeks to put the rights of victims of sexual exploitation and abuse by UN and related personnel at the forefront of prevention and response efforts.

A pilot programme in Malawi is working with women’s rights organisations to strengthen the integration of SEAH response in local systems set up to address gender-based violence. FCDO provided funding to Loop through its £5 million Strengthening Support to Survivors programme. This is an online platform which allows aid agencies to receive feedback from communities, including reports on SEAH.

Safeguarding during COVID-19

The FCDO developed guidance notes on COVID-19 for FCDO staff and implementing partners on how to prevent and address SEAH in programmes during COVID-19 (PDF, 187 KB, 4 pages) and how to ensure that safeguarding is embedded in programmes providing COVID-19 assistance (PDF, 224 KB, 5 pages). It described who was at increased risk of SEAH and provided practical suggestions for programme managers on what actions they could take when working with partners to address SEAH the rapid expansion of humanitarian action.

Further guidance is signposted in the Resource and Support Hub.

Updates to this page

Published 17 October 2019
Last updated 1 February 2024 + show all updates

  1. Guidance reviewed and updated, including with new links to the 2022 to 2023 cross-sector and FCDO progress reports.

  2. Guidance reviewed and updated.

  3. Updated with links to 2021 to 2022 cross-sector and FCDO progress reports

  4. 14 January 2022: January 2020 document ‘Enhanced Due Diligence: Safeguarding for external partners’ has been reviewed, updated and renamed ‘Safeguarding against Sexual Exploitation and Abuse and Sexual Harassment (SEAH) Due Diligence Guidance for FCDO implementing partners’

  5. Updated with links to 2020 to 2021 cross-sector and FCDO progress reports

  6. Guidance updated throughout to reflect establishment of FCDO and announcements since September 2020.

  7. Summary of Findings from Central Assurance Assessments of DFID Partners published.

  8. First published.

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