Legal empowerment in Jordan is complicated by a set of overarching operational constraints. These include a legal framework that lacks internal coherency and protection for the poor; the absence of a sound governing framework; and a weak rule of law culture. This report examines the complexity of and interrelation between these issues, and the political sensitivities surrounding justice reform. It finds that strategies and activities aimed at reform must be sequenced and strategically linked to those obstacles most directly impacting the delivery of quality legal services for the marginalised. The report outlines a series of steps toward a more inclusive system, where the marginalised are protected against violations and can access just remedies.