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Reem Alsalem (born 1976) is a Jordanian independent consultant and former civil servant. Since August 2021 she has served as the
United Nations Special Rapporteur on violence against women and girls. She is
gender-critical, and has been accused of being
anti-trans
Transphobia consists of negative attitudes, feelings, or actions towards transgender or transsexual people, or wikt:transness, transness in general. Transphobia can include fear, aversion, hatred, violence or anger towards people who do not co ...
by LGBT+ and women's groups.
Biography
Alsalem was born in Cairo
Cairo ( ; , ) is the Capital city, capital and largest city of Egypt and the Cairo Governorate, being home to more than 10 million people. It is also part of the List of urban agglomerations in Africa, largest urban agglomeration in Africa, L ...
, Egypt in 1976. She was educated at the American University in Cairo
The American University in Cairo (AUC; ) is a private research university in New Cairo, Egypt. The university offers American-style learning programs at undergraduate, graduate, and professional levels, along with a continuing education program. ...
where she completed a master's degree in International Relations in 2001. She subsequently graduated from the University of Oxford
The University of Oxford is a collegiate university, collegiate research university in Oxford, England. There is evidence of teaching as early as 1096, making it the oldest university in the English-speaking world and the List of oldest un ...
in 2003 with a Masters in Human Rights Law.
She was employed for 17 years as an international civil servant by the UNHCR
The Office of the United Nations High Commissioner for Refugees (UNHCR) is a United Nations agency mandated to aid and Humanitarian protection, protect refugees, Internally displaced person, forcibly displaced communities, and Statelessness, s ...
where she worked with refugees in 13 countries. She left in 2016 to work as an independent consultant on humanitarian and gender issues. She speaks Arabic, English, French, German and Spanish.
Alsalem was appointed United Nations Special Rapporteur on violence against women and girls and took up the role in July 2021. She listed five priorities for her work there:
* intersections between gender-based violence against women, sexual orientation and gender identity and expression;
* violence against indigenous women and girls;
* gender-based violence in the context of disaster risk reduction and climate change;
* psychological violence against women; and
* relationship between the condition of statelessness, gender, and gender-based violence.
Prostitution and pornography
Alsalem has expressed support for the abolitionist approach to prostitution and voiced opposition to the pornography industry
The sex industry (also called the sex trade) consists of businesses that either directly or indirectly provide sex-related products and services or adult entertainment. The industry includes activities involving direct provision of sex-related se ...
. She developed these views in her thematic report titled ''Prostitution and violence against women and girls'', presented to the Human Rights Council
The United Nations Human Rights Council (UNHRC) is a United Nations body whose mission is to promote and protect human rights around the world. The Council has 47 members elected for staggered three-year terms on a regional group basis. The ...
in June 2024. She says prostitution
Prostitution is a type of sex work that involves engaging in sexual activity in exchange for payment. The definition of "sexual activity" varies, and is often defined as an activity requiring physical contact (e.g., sexual intercourse, no ...
is a consequence of patriarchal
Patriarchy is a social system in which positions of authority are primarily held by men. The term ''patriarchy'' is used both in anthropology to describe a family or clan controlled by the father or eldest male or group of males, and in fem ...
structures, economic inequalities, and conflict situations. She also highlights the intersection of racism
Racism is the belief that groups of humans possess different behavioral traits corresponding to inherited attributes and can be divided based on the superiority of one Race (human categorization), race or ethnicity over another. It may also me ...
and prostitution, noting that women and girls from marginalised groups, particularly those facing multiple forms of discrimination
Discrimination is the process of making unfair or prejudicial distinctions between people based on the groups, classes, or other categories to which they belong or are perceived to belong, such as race, gender, age, class, religion, or sex ...
, are disproportionately affected and often enter the sex trade due to socioeconomic precarity.
Legal and feminist scholars Susana T. Fried, Alice M. Miller, Rupsa Mallik, Ivana Radačić and Esteban Restrepo-Saldarriaga criticized Alsalem, saying that she misused evidence and ignored dissenting voices in her report on "prostitution and violence"; they wrote that "there is no agreement in international human rights law about what laws best protect the rights of people who sell sex" and that "evidence is strong that criminal law making both the buying and selling of sex a crime hurts the very people who are most at risk".
Poverty is a state or condition in which an individual lacks the financial resources and essentials for a basic standard of living. Poverty can have diverse Biophysical environmen ...
, the
sexualisation of women, and
racism
Racism is the belief that groups of humans possess different behavioral traits corresponding to inherited attributes and can be divided based on the superiority of one Race (human categorization), race or ethnicity over another. It may also me ...
, and disproportionately affects women from
minority and
marginalised backgrounds. The report asserts that prostitution contributes to the
objectification
In social philosophy, objectification is the act of treating a person as an object or a thing. Sexual objectification, the act of treating a person as a mere object of sexual desire, is a subset of objectification, as is self-objectification, th ...
of women and reinforces
gender stereotypes
A gender role, or sex role, is a social norm deemed appropriate or desirable for individuals based on their gender or sex.
Gender roles are usually centered on conceptions of masculinity and femininity. The specifics regarding these gendered ...
, perpetuating unequal power dynamics. It also states that the consumption of
pornography
Pornography (colloquially called porn or porno) is Sexual suggestiveness, sexually suggestive material, such as a picture, video, text, or audio, intended for sexual arousal. Made for consumption by adults, pornographic depictions have evolv ...
and the normalisation of prostitution exacerbate
gender inequality
Gender inequality is the social phenomenon in which people are not treated equally on the basis of gender. This inequality can be caused by gender discrimination or sexism. The treatment may arise from distinctions regarding biology, psychology ...
and promote
sexist
Sexism is prejudice or discrimination based on one's sex or gender. Sexism can affect anyone, but primarily affects women and girls. It has been linked to gender roles and stereotypes, and may include the belief that one sex or gender is int ...
and
violent attitudes toward women.
These views are consistent with the
Honeyball Report, adopted by the
European Parliament
The European Parliament (EP) is one of the two legislative bodies of the European Union and one of its seven institutions. Together with the Council of the European Union (known as the Council and informally as the Council of Ministers), it ...
in 2014, which called for discouraging demand and supporting individuals who wish to exit prostitution.
Links between pornography and violence
The report also identifies
pornography
Pornography (colloquially called porn or porno) is Sexual suggestiveness, sexually suggestive material, such as a picture, video, text, or audio, intended for sexual arousal. Made for consumption by adults, pornographic depictions have evolv ...
as a factor contributing to the normalisation of
sexual violence
Sexual violence is any harmful or unwanted Human sexual activity, sexual act, an attempt to obtain a sexual act through violence or coercion, or an act directed against a person's sexuality without their consent, by any individual regardless of ...
. It notes that the industry often depicts acts of
physical and
verbal abuse
Verbal abuse (also known as verbal aggression, verbal attack, verbal violence, verbal assault, psychic aggression, or psychic violence) is a type of Psychological abuse, psychological/mental abuse that involves the use of Oral language, oral or w ...
, shaping consumers’ expectations around
risky sexual behaviour. Women working in the pornography sector are frequently subjected to
violent sexual acts, often unprotected, resulting in serious physical harm.
Furthermore, the report argues that, like prostitution, pornography plays a role in the trivialisation of
sexually violent and degrading behaviour, influencing both attitudes and conduct. It warns that early exposure to pornography can negatively impact
young people
Youth is the time of life when one is young. The word, youth, can also mean the time between childhood and adulthood (Maturity (psychological), maturity), but it can also refer to one's peak, in terms of health or the period of life known as bei ...
, affecting their
sexual development
Puberty is the process of physical changes through which a child's Human body, body matures into an adult body capable of sexual reproduction. It is initiated by hormone, hormonal signals from the Human brain, brain to the gonads: the ovary ...
and their perception of
interpersonal relationships
In social psychology, an interpersonal relation (or interpersonal relationship) describes a social association, connection, or affiliation between two or more people. It overlaps significantly with the concept of social relations, which ar ...
.
Recommendations on prostitution
In the document, Alsalem recommends that states adopt a legal framework based on the so-called
Nordic model
The Nordic model comprises the economic and social policies as well as typical cultural practices common in the Nordic countries (Denmark, Finland, Iceland, Norway, and Sweden). This includes a comprehensive welfare state and multi-level colle ...
or "equality model." This approach entails the
decriminalisation of persons in prostitution, the
criminalisation of the purchase of sexual services, and the implementation of exit and prevention strategies.
She emphasises the need for comprehensive public policies, including access to
housing
Housing refers to a property containing one or more Shelter (building), shelter as a living space. Housing spaces are inhabited either by individuals or a collective group of people. Housing is also referred to as a human need and right to ...
,
healthcare
Health care, or healthcare, is the improvement or maintenance of health via the preventive healthcare, prevention, diagnosis, therapy, treatment, wikt:amelioration, amelioration or cure of disease, illness, injury, and other disability, physic ...
,
psychosocial support, and economic alternatives for affected individuals. She also calls for targeted
awareness campaigns
In philosophy and psychology, awareness is the perception or knowledge of something. The concept is often synonymous with consciousness. However, one can be aware of something without being explicitly conscious of it, such as in the case of blin ...
directed at the
demand
In economics, demand is the quantity of a goods, good that consumers are willing and able to purchase at various prices during a given time. In economics "demand" for a commodity is not the same thing as "desire" for it. It refers to both the desi ...
side—namely, buyers of sexual services.
The report also advocates for action against the normalisation of
sexual violence
Sexual violence is any harmful or unwanted Human sexual activity, sexual act, an attempt to obtain a sexual act through violence or coercion, or an act directed against a person's sexuality without their consent, by any individual regardless of ...
, including regulating or prohibiting forms of
pornography
Pornography (colloquially called porn or porno) is Sexual suggestiveness, sexually suggestive material, such as a picture, video, text, or audio, intended for sexual arousal. Made for consumption by adults, pornographic depictions have evolv ...
that involve serious violations of the
dignity
Dignity is a human's contentment attained by satisfying physiological needs and a need in development. The content of contemporary dignity is derived in the new natural law theory as a distinct human good.
As an extension of the Enlightenment- ...
or
bodily integrity
Bodily integrity is the inviolability of the physical body and emphasizes the importance of personal autonomy, self-ownership, and self-determination of human beings over their own bodies. In the field of human rights, violation of the bodily int ...
of women.
In a statement published by the United Nations in July 2024, Alsalem expressed support for the French law of
13 April 2016 on the prostitution system, describing it as consistent with the abolitionist framework endorsed in her report. -->
Transgender rights
Core to her work as special rapporteur are her claims that sex and gender should not be conflated, and that both should be recorded in data.
She considers that in some situations there may be a clash between
women's rights
Women's rights are the rights and Entitlement (fair division), entitlements claimed for women and girls worldwide. They formed the basis for the women's rights movement in the 19th century and the feminist movements during the 20th and 21st c ...
and
transgender rights
The legal status of transgender people varies greatly around the world. Some countries have enacted laws protecting the rights of transgender individuals, but others have criminalized their gender identity or expression. In many cases, transg ...
.
She opposed the
Gender Recognition Reform (Scotland) Bill and claimed it could "open the door for violent males."
Her views were disputed by the
United Nations Independent Expert on sexual orientation and gender identity,
Victor Madrigal-Borloz, and the spokesperson for the
United Nations High Commissioner for Human Rights
The Office of the United Nations High Commissioner for Human Rights (OHCHR) is a department of the United Nations Secretariat that works to promote and protect human rights that are guaranteed under international law and stipulated in the Univers ...
who said that "everyone (...) should have access to legal recognition of their gender identity based on self-identification."
Six feminist organizations in Scotland—
Engender
Engender is an anti-sexist organisation operating in Scotland and other parts of Europe. They aim "to make Scotland a fairer, safer place where women can flourish and contribute to both the social and market economies with dignity, freedom and ...
, JustRight Scotland, Scottish Women's Rights Centre,
Scottish Women's Aid,
Amnesty International
Amnesty International (also referred to as Amnesty or AI) is an international non-governmental organization focused on human rights, with its headquarters in the United Kingdom. The organization says that it has more than ten million members a ...
Scotland and
Rape Crisis Scotland—also expressed disappointment by Alsalem's comments, accusing her of failing to speak with Scottish human rights or feminist organisations before her statements.
In 2023 Alsalem attended the
gender-critical FiLiA conference, amid protests against the conference.
According to the ''
New Statesman
''The New Statesman'' (known from 1931 to 1964 as the ''New Statesman and Nation'') is a British political and cultural news magazine published in London. Founded as a weekly review of politics and literature on 12 April 1913, it was at first c ...
'', "her insistence on recognising the difference between sex and gender has landed her in trouble."
In 2023 an open letter published by the
Association for Women's Rights in Development
The Association for Women's Rights in Development (AWID), formerly the Association for Women in Development, is an international feminist membership and movement support organization committed to achieving gender equality, sustainable development ...
(AWID),
[ endorsed by over 550 NGOs and women's groups, accused her of being "]anti-trans
Transphobia consists of negative attitudes, feelings, or actions towards transgender or transsexual people, or wikt:transness, transness in general. Transphobia can include fear, aversion, hatred, violence or anger towards people who do not co ...
", which she denies. Alsalem asks why is it "problematic" for people to say: "This is important; many of our needs emanate from being female, or male, and there are certain instances where it’s proportionate, legitimate and perfectly necessary to keep a space single sex". Legal scholar Jens Theilen said that Alsalem "is using women's rights as a tool to undermine trans rights" and considered her actions "a stark example of individual politics furthering rather than contesting oppression," citing the AWID letter. In 2024 website 4W reported that Alsalem's visit to Brazil had been effectively cancelled by Brazil's Minister of Women Cida Gonçalves due to her gender-critical views and what Maria Aquino, an adviser to the Brazilian Women’s Ministry on LGBT affairs, referred to as her "anti-trans" position. German LGBT+ magazine Queer.de reported that Alsalem has long been considered anti-trans by LGBT+ organizations, noting that she was strongly criticized by hundreds of women's rights organizations as well for her anti-trans views.
Alsalem has supported gender-critical views, opposing President Biden’s Title IX policies for transgender youth in the U.S. and the World Health Organization’s support for self-determined gender identity.
In 2024 Alsalem released a report that called for "sex screening" in sport to allegedly protect a "female-only category" and exclude those not born female.
In 2024 Alsalem also criticized the Self-Determination Act that entered into force in Germany. International law scholar Selin Altay criticized Alsalem for her position on the Self-Determination Act, noting that Alsalem has long faced criticism for holding anti-trans views. Altay argues that Alsalem fails to fulfill her mandate as special rapporteur if she does not actively defend the right to gender self-determination. According to Altay, Alsalem is responsible for addressing all forms of violence against women at the international level, including violence against trans women
Violence is characterized as the use of physical force by humans to cause harm to other living beings, or property, such as pain, injury, disablement, death, damage and destruction. The World Health Organization (WHO) defines violence a ...
. She emphasizes that "the right to gender self-determination is a fundamental human right, and it falls within her mandate to uphold this principle." Altay contends that Alsalem must clarify misconceptions and ensure that discussions on gender identity are not distorted by unfounded and transphobic anxieties about cis women's safety. Her role, Altay writes, is "not to validate fears that undermine human rights but to affirm that self-determination is a recognized and protected right." She concludes: "Contrary to Alsalem’s claims, ensuring the safety and well-being of both trans and cis women is not a conflicting goal."
In 2025, Alsalem supported Donald Trump
Donald John Trump (born June 14, 1946) is an American politician, media personality, and businessman who is the 47th president of the United States. A member of the Republican Party (United States), Republican Party, he served as the 45 ...
's executive order "Keeping Men Out of Women's Sports
Executive Order 14201, titled "Keeping Men Out of Women's Sports", is an executive order signed by U.S. president Donald Trump in an attempt to ban Trans woman, transgender women athletes of all ages from competing on girls and women's sports te ...
," which calls transgender women "men" and attempts to ban them from women's sports, and which had been condemned by Amnesty International
Amnesty International (also referred to as Amnesty or AI) is an international non-governmental organization focused on human rights, with its headquarters in the United Kingdom. The organization says that it has more than ten million members a ...
as "yet another cruel attack on transgender people."
In 2025 Alsalem presented her report "Sex-based violence against women and girls", that called for a ban on legal and social gender transition
Gender transition is the process of affirming and expressing one's internal sense of gender, rather than the sex assigned to them at birth. It is a recommended course of treatment for individuals experiencing gender dysphoria, providing impro ...
for children. It also called on states to "ensure that the terms ‘women’ and ‘girls’ are only used to describe biological females and that such a meaning is recognised in law" and referred to trans women
A trans woman or transgender woman is a woman who was assigned male at birth. Trans women have a female gender identity and may experience gender dysphoria (distress brought upon by the discrepancy between a person's gender identity and their ...
as "males who identify as women or girls." Alsalem was praised by Alliance Defending Freedom
The Alliance Defending Freedom (ADF), formerly the Alliance Defense Fund, is an American conservative Christian legal advocacy group that works to expand Christian religious practices within public schools and in government. ADF is most known ...
for resisting "gender ideology
The anti-gender movement is a global phenomenon that opposes concepts often referred to as "gender ideology" or "gender theory". These loosely-defined terms are commonly used by the movement to critique a range of issues related to gender equ ...
".
In January 2024, Alsalem criticised the composition of a World Health Organization
The World Health Organization (WHO) is a list of specialized agencies of the United Nations, specialized agency of the United Nations which coordinates responses to international public health issues and emergencies. It is headquartered in Gen ...
(WHO) committee, saying that most committee members had "strong, one-sided views in favour of promoting hormonal gender transition and legal recognition of self-asserted gender" and that none of them was an expert in adolescent development. Author Helen Joyce supported Alsalem, emphasising from her letter "the short time-frame given for comments, the unbalanced group developing the guidelines and the uncritical endorsement of gender self-ID".
War between Israel and Palestine
Alsalem was criticised in 2023 by Claire Waxman, London's Victims' Commissioner, as she did not speak out on reports of sexual and gender-based violence in the 7 October attack on Israel against Israeli women during and following the Hamas-led attack. In response, Alsalem said she had condemned "what happened on 7 October", had contacted NGOs in Israel without reply, and said she could not make "sweeping statements" without receiving evidence.
In 2024, Alsalem said that "grave violations of international human rights and humanitarian law" had been committed in Gaza by Israeli troops. In a formal statement, she described "credible" allegations of "multiple forms of sexual assault", such as rape and strip-searches, against Palestinian women and girls. When asked to provide the source for her allegations, Alsalem cited unsubstantiated reports by Richard A. Falk. Israel denied the allegations.
Other topics
In February 2024, Alsalem criticised the UK's strategies for combatting violence against women and girls. She said: "Entrenched patriarchy at almost every level of society, combined with a rise in misogyny that permeates the physical and online world, is denying thousands of women and girls across the UK the right to live in safety, free from fear and violence."[Abdul, Geneva (2024-02-29). "'I am weary': Jess Phillips reads MPs list of women killed by men for ninth year". The Guardian. Retrieved 2024-03-01.]
References
{{Authority control
Living people
Alumni of the University of Oxford
The American University in Cairo alumni
Anti-transgender activists
1976 births
United Nations High Commissioner for Refugees officials
Jordanian officials of the United Nations