1. Gender Based Violence Rapid Assessment
Bentiu, South Sudan
From Harm To Home • Rescue.org
June 2014

2. IRC Gender Based Violence Rapid Assessment, Bentiu, South Sudan
From Harm To Home • Rescue.org
1. Introduction
Since International Rescue Committee (IRC) initiated Women’s Protection and Empowerment (WPE) and health programming in
Bentiu UNMISS Protection of Civilians (PoC) in February 2014, the situation has continued to worsen as fighting escalates in and
around Bentiu, Rubhona County, Unity State. The most recent outbreak of violence in April 2014 resulted in a mass influx of
people into the UNMISS PoC that has overwhelmed available services. The population increased from approximately 7,000
Internally Displaced Person’s (IDP) in early April 2014 to approximately 45,000 by June 2014 as a result of major battles in April
and May, as well continued insecurity in Unity State. As the crisis continues to unfold, IRC is providing life saving GBV prevention
and response services for women and girls in Bentiu PoC. Prior to this recent influx, IRC had started programming in Bentiu PoC
following a Gender Based Violence (GBV) rapid assessment in February 2014 that identified protection concerns among women
and girls, risk factors for GBV, and assessed available services and gaps. Activities focus on promoting safe and confidential access
to health services, provision of case management, psychosocial support, referrals to other relevant services, and prevention
through risk identification and mitigation.
In April 2014, the dynamics of the conflict changed in Bentiu, BBC reports the use of radio to incite rape of women and noted
that both parties to the conflict committed mass atrocities against women and girls.
1,2,3
The situation for women and girls in
Bentiu PoC remains desperate; assessments demonstrate that sexual violence and other forms GBV are widespread. South
Sudanese women and girls were already vulnerable to multiple forms of GBV prior to the recent conflict, including sexual
violence, harmful traditional practices, and intimate partner violence (IPV)
4
. Security outside the PoC is unpredictable, risks of
violence against women and girls remains high when women leave to collect food, water, firewood and materials to build shelter
and there is a consistent presence of armed actors in Bentiu town and surrounding areas. Gaps in food, shelter, water and
sanitation facilities exacerbate women and girls’ vulnerability to violence within the PoC as well as increased risk for sexual
exploitation and abuse. Food and humanitarian assistance is only available at the UNMISS PoC site at this time; however,
agencies are beginning to explore options to provide services in other parts of Rubhona, Mayom and Panjiar. Despite requests
from the Governor of Bentiu for people to return to the town, few are going back and many more continue to come to the
UNMISS PoC site. There is a heavy presence of armed actors in Rubhona and Bentiu towns.
Humanitarian actors operating in Bentiu PoC are faced with a myriad of challenges that hampers delivery of services including
on-going conflict, the on-set of the rains, the high density of population in PoCs, inadequate financial resources and human
capacities, flooding, and disease outbreaks. The existing humanitarian response is further challenged by an inadequate
integration of women’s protection and participation in the overall response. Women and girls face immediate risks when
collecting firewood, water, using WASH facilities or in general when they leave the PoCs.
2. Methodology
From 16
th
– 19
th
June 2014, the IRC conducted a rapid assessment on GBV in among women and girls in Bentiu PoC. The
assessment methodology included eight focus group discussions (FGDs), scenario analysis, key informant interviews, and safety
audits. The quantitative and qualitative information obtained provides a rapid overview of women and girls protection concerns
in Bentiu PoC and will be used to inform the IRC’s programming and advocacy with partners and community structures to
address identified risks. FGDs were conducted in Nuer and Arabic and participants were interviewed in same-sex and same-age
groups, six FGD’s were held with women aged 20-45 years with approximately 65 participants and two FGD’s with adolescent
girls aged 15-19 years for 36 girls. Total number of participants was approximately 101 women and girls.
3. Key Findings
The assessment identified multiple unmet protection concerns for women and girls with FGD participants identifying rape as the
most pressing issue both during and after the recent crisis. They also reported intimate partner violence as widespread and
noted growing levels of survival sex within the PoC.
1 http://www.bbc.com/news/world-africa-27329787
2 South Sudan: Nowhere safe: Civilians Under Attack http://www.amnesty.org/en/library/asset/ba3abaec3a91/afr650032014en.html
3 http://www.hrw.org/news/2014/05/19/rape-and-war-south-sudan
4 IRC GBV Rapid Assessment, Bentiu, Unity State, South Sudan, August 2013

3. IRC Gender Based Violence Rapid Assessment, Bentiu, South Sudan
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3.1 Gender based violence: types and patterns of violence
3.1.1 Sexual violence and disappearances
100% of FGD’s consistently reported that rape was a common feature of the conflict and was used by both parties and is an
ongoing threat inside of the PoC and when they leave the PoC. It is important to note that the level of openness that all FGD’s
discussed the threat and experience of sexual violence is indicative of the severity and magnitude of the problem.
The majority of women and girls reported that they feel more secure within the UNMISS PoC than outside but threats of sexual
violence still persist. FGD participants identified a number of areas inside the PoC where they feel unsafe and exposed to violence
including
- at toilet and shower facilities that lack lighting and locks;
- at some of the gates (gate 2) that control entry to the PoC where armed actors reportedly hide in the in bush outside
and chase women when they go outside;
“lots of things are happening at night, when we go there (to use the toilet), we fear, you may meet someone there”
FGD Bentiu PoC
All FGD’s noted that when women and girls leave the PoC to go outside in search of food, firewood, water and other materials,
risks of sexual violence are high. In particular, the route to and from Bentiu town to UNMISS is precarious and there is a heavy
presence of armed actors in Bentiu town, on the route and patrolling the areas just outside the PoC.
“By 4pm, soldiers are drunk.” FGD Bentiu PoC
“ … soldiers get them on the way, chase them and rape them” FGD Bentiu PoC
All of those consulted highlighted that many women travel to Bentiu during the day but feared insecurity including rape, beating,
and trafficking:
“First they act like they want to kill you. You stay two days sometimes, on day three, you wake up.
If you are unlucky, you meet another group.” FGD Bentiu PoC
All FGD’s indicated that women and girls are walking long distance to the bush to collect firewood, roots, grass, and at times to
neighboring villages to access water. All identified early morning and late evenings as the most dangerous times to travel to
these locations. From direct observation, it was visible that large numbers leave the PoC on a daily basis and in an effort to
mitigate the risk of attack; FGD’s noted that some are travelling in groups for safety. However, it was unclear from the FGD’s on
whether or not this is a successful strategy to increase protection.
“ if they go in groups and something bad happens, at least someone can run back (to UNMISS) to get help” FGD Bentiu PoC
30% of FGD’s highlighted issues when they return to UNMISS PoC, some get back late after 6pm and the gate is locked. They
either have to enter through an unofficial hole in the perimeter fencing or sleep outside the PoC.
In one FGD conducted with participants residing outside the PoC, they said that women from surrounding villages are also
entering the PoC through a ‘hole’ in PoC 4 fencing/barbed wire. They enter the PoCs in order to sell milk and other goods in the
market. FGD participants noted that on average, young women are walking 45-90 minutes to/from the PoC and expressed
problems with harassment on their journey and noted that in their villages recently, armed men have entered to request young
men to join them in the fighting. When their requests are not met, women and girls are attacked. Those consulted said that
when the armed men enter the area, they attempt to flee into the bush to avoid violence.
Another issue is the on-going ‘disappearances’ of women and girls from the PoC. In all FGDs, disappearances of women and girls
outside the PoC were highlighted; these have occurred when they leave through breaches in the fences or through an official
gate. Those consulted emphasized that disappearances are a real threat and information on what happens to these women and
girls is scant. In some cases, FGD participants said that they have been taken by armed men outside the PoC and the woman/girl
returns after a few days. In other cases, they do not return and it’s unclear what has happened to them, there are reports of
young women (and other groups of people) leaving the PoC’s to travel to Khartoum and Juba.
“..most of the women are missing up to this day” FGD Bentiu PoC

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3.1.2 Survival sex
Three out of eight FGDs identified increasing levels of survival sex within the PoC especially among women with young children
whose husbands were killed or those that are separated that are resorting to negative coping strategies for survival. There are
reports of the organized sex work within the PoC but information on these is very limited. Additionally, all FGD’s with women
noted that the increasing costs of items inside the PoC as well as costs for grinding mills placed unrealistic burdens on women
who go to collect firewood and grass to sell for cash.
3.1.3 Intimate partner violence
50% of FGD’s with adult women identified IPV as a form of violence within the PoC. IRC programming experience to date
demonstrates that there are few safety and security options for women at continued risk and IPV accounts for approximately
50%-60% of reported cases to IRC over the last two months. While it is reportedly widespread, it is incredibly normalized within
South Sudan. Even prior to the most recent conflict, IPV was an endemic part of life for many South Sudanese women. An
assessment
5
conducted by IRC in Bentiu in August 2013 noted that IPV was pervasive, early and forced marriage with girls as
young as 14 years old common and sexual violence an on-going security concern for women and girls.
The recent conflict and displacement further heightens vulnerability to IPV and the breakdown of family and community
structures limit support and help available for women. Many women consulted indicated that they would not seek help for IPV.
“ … (you) cook for your children while you have the wound all over your body.” FGD, Bentiu PoC
“….will be quiet in the house and not go to the clinic” FGD, Bentiu PoC
3.1.4 Sexual Exploitation and Abuse (SEA)
At the time of writing this report, information on SEA and what constitutes SEA was very limited among FGD participants
consulted. When presented with a scenario on SEA, three out of eight FGD’s responded:
“it’s happening” FGD, Bentiu PoC
However, when asked about the likelihood of reporting abuse if it did occur participants noted that they could report to NGO and
UN staff nearby. This only seemed possible during food and non-food items (NFI) distributions where humanitarian staff are
available. The absence of a community based complaints and reporting mechanism for SEA that is communicated to and
understood by IDP’s, in particular, women and girls is a gap. The presence of vulnerable populations, many of whom are female
headed households, require robust mechanisms to mitigate risks and address any issues identified.
3.2 Most at risk
FGD’s noted that while all women and girls are at risk to multiple forms of GBV and acknowledged that some experience a
heightened vulnerability to violence. Female headed households especially those whose husbands are deceased, young girls, the
elderly, disabled and those with mental illnesses. FGD’s also noted that younger women are more vulnerable to attacks by armed
men in the bush and less likely to seek help.
3.3 Help-seeking behaviors and barriers
Levels of reporting have demonstrated an increase in the last two months in Bentiu PoC in part linked to the increasing
availability and knowledge of how and where to seek help and services. All FGD’s highlighted that fear of community reactions, of
not been believed, blame, and stigma at been identified as a survivor within the community impede access to health and
psychosocial services.
“….. they look at you like you were the one looking for it” FGD Bentiu PoC
‘They laugh at you.” FGD Bentiu PoC
If survivors do disclose, FGD’s with women noted that adult women are most likely to turn to community leaders who may or
may not refer them to MSF for medical treatment and/or IRC for psychosocial services. There appears to be a greater willingness
for married women who are attacked outside to report to leaders, who then talk directly with the husband to reduce the
likelihood of blame. Both FGD’s with adolescent girls noted that they would be more likely to tell their mothers but also
acknowledged many remain silent.
5
IRC GBV Rapid Assessment, Bentiu, Unity State, South Sudan (August 2013).

5. IRC Gender Based Violence Rapid Assessment, Bentiu, South Sudan
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FGD’s with adult women described three types of coping mechanisms that can be utilized when addressing sexual violence. The
first is to be quiet and not tell anyone. The second is to explain to the community leader what happened in hope that the
community leader will calm the husband down if he finds out his wife has experienced rape. The third, and possibly one of the
most powerful method IRC should explore, is the psychosocial support from local women to comfort those who experience
violence. During the fighting and in the current environment, sexual violence is reportedly increasing, both during flight and
when women and girls leave the PoC. As a result, women are more open with each other, and provide greater levels of peer
support than prior to the conflict. Women consulted in the FGD’s believed that survivors are not to blame for sexual violence and
that they needed to support each other in order to not feel alone
6
.
In cases of sexual violence, FGD’s with both women and girls revealed that there is an awareness of the importance of medical
help and those consulted knew how to advise a friend who had experienced sexual violence to go to MSF for medical treatment.
However, in cases of physical assault, medical help may not be sought. In one FGD, women also reported that after an assault
outside the PoC, cases were reported at the gate to the UNMISS Force Protection Unit (FPU) and MOMBATT but language
barriers made it difficult to communicate what had happened and limited their access and referral to services.
Across all FGD’s, an additional barrier to seeking help identified is the high level of impunity for the perpetrators
“Nothing happens (to the perpetrators), they hide in the forest and the commander is aware”
FGD Bentiu PoC
All FGD’s noted that there is an urgent and pressing need to provide an alternative for women and girls leaving the PoC in search
of firewood. They reported that attacks happen even when they travel in groups and it’s not safe for men to accompany them as
they may be targeted by armed groups.
“In groups, it’s in vain, NGO’s must help us, men can’t come out since they will be targeted by the soldiers”
FGD Bentiu PoC
4. Risk factors for GBV
The recent influx has overwhelmed the provision of basic services including water and sanitation (WASH), shelter and health. This
is increasingly visible in the high levels of mortality and morbidity. Bentiu PoC is located within an active conflict zone and
humanitarian actors are working in a very complex environment aggravated by fluctuating security and the onset of the rainy
season that impedes the delivery of services and supplies. The current situation has significantly increased protection concerns
among women and girls since April 2014.
3.3.1 Water and Sanitation
WASH is one of the most critical issues in Bentiu PoC both in terms of public health consequences and protection issues. Efforts
are on-going to improve the provision of water but are hampered by the rainy season and on-going violence outside the PoC.
WASH actors are working under extreme constraints that make it impossible to meet minimum standards in emergencies under
the current situation. Water availability is very limited and there is a heavy reliance on water trucking. There are five bore holes
but these are inadequate to meet the needs of 45,000 people; additional bore holes are currently being dug but these are labour
intensive, expensive, need specialized engineering and require a break in the rains to be completed and scaled up. Within the
PoC, women and children queue for long periods waiting for water and there are often fights at the water points. Additionally,
FGD’s noted that some women and girls are travelling longer distances outside the PoC’s to collect water where they are
increasingly vulnerable to abuse.
Sanitation and bathing facilities are limited and WASH partners are working hard to scale up the availability of these and have a
plan to reach minimum coverage in emergencies in the coming weeks. 75% of FGD’s highlighted safety and security fears when
using the latrines late at night noting that some of the existing facilities lack privacy and protection with male and female toilets
placed next to each other as a result of limited space in the PoC. Discussions revealed that for some facilities the distance
between male and female latrines is too close and not culturally acceptable. Additionally, 50% of FGD’s with adult women
reported that men are using their toilets. In some of the PoC’s, women then have to a) use the toilet in the evening when there is
no lighting or b) use the swamp area. FGD’s participants did not feel safe in the PoC 4 swamp area saying that young men are
hanging around there and disrupting their bathing and at times using violence.
6However, other types of sexual violence and exploitation seemed mixed as to whether community women blamed the survivor for the incident.

6. IRC Gender Based Violence Rapid Assessment, Bentiu, South Sudan
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3.3.2 Lack of representation, participation and voice
Across all PoC’s, there is an overall lack of female participation and representation in camp committees that contributes to a lack
of awareness and prioritization on the needs and concerns of women and girls. The composition of the PoC’s is approximately
40,574 (19,110 males and 21,464 females) with 71% of households female headed
7
. However, there are no formal female leaders
groups and within existing structures, women are under-represented. Even when women try and meet, some FGD’s noted that
“Men interrupt women but when men meet, we don’t.” Decision making powers in the community remain with men; and
attempts to provide women a forum to share issues and concerns have been limited. Existing leadership structures (i.e. camp
committee, community watch group committee) remain male dominated and many community consultations on needs
identification at times neglect the specific concerns and priorities for women and girls.
In one FGD, women commented that male NGO staff “undermine issues affecting women” and do not take women’s views into
consideration. FGD participants also expressed that when some NGOs provide messaging, they use megaphones, and at times
the entirety of the message is not received/understood.
An additional issue linked to community leadership structures are the Community Watch Groups. These were set up to improve
better safety within the PoC’s through the provision of community patrols and referral of incidents to UNPOL. There have been
reports of these groups dealing with cases outside their remit rather than referring.
3.3.3 Firewood collection and patrols
As outlined above, according to all FGD’s held, leaving the PoC to collect firewood represents high risks for attacks. There is an
urgent need for humanitarian partners, UNMISS and UNPOL to discuss and implement strategies to address this. During FGD’s,
many participants shared that they do try and go in groups but these offer limited protection. This underscores the need for
accompanied patrols to mitigate the risks or the provision of charcoal to minimize the likelihood that they will go to the bush.
3.3.4 Availability of information among new arrivals
While current numbers of new arrivals entering the PoC is significantly lower than April/May, there continues to be a need to
provide accurate information on available services in a systematic manner. This is especially important for registration, food
distributions, shelter and health and preparedness for future influxes if security deteriorates.
7 CCCM Crisis Response Plan- IDP Registration (Bentiu PoC 22-24 June 2014)

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5. Recommendations
The current acute emergency in Bentiu shows no signs of waning and it is likely to continue for some time and remain a
protracted crisis. It is recognized the massive constraints that the humanitarian community is operating under and the difficulties
in delivering services in Bentiu due to ongoing conflict, rainy season, and limitations on resources. However, information from
FGD’s collected during this assessment indicate that vulnerability to opportunistic attacks and other types of violence directed at
women and girls is increasing, while services to protect and respond to their needs are limited. It is important that programming
in Bentiu PoC expand approaches to better consider the needs of women and girls in responses. Sustained funding will be
required in the longer term even after the current crisis passes to address the health, psychosocial, safety, and economic needs
of survivors of GBV, and vulnerable women and girls.
Some of the recommendations below are specific to IRC and some are for other actors operating in Bentiu to mitigate GBV risks.
5.1 Increasing the availability of Safe Spaces to provide case management, psychosocial services and information to women
and girls
The IRC through its existing Women’s Protection and Empowerment programme will expand safe and confidential access to
health services, provision of case management, psychosocial support, referrals, and prevention through risk identification and
mitigation by
 Increasing the number of safe spaces in the PoC’s; currently there are two operational spaces in PoC 1 and 2 and three
additional ones will be set up in PoC 3, 4, 5. These provide a safe place for women and girls to report protection concerns
and access GBV case management and psychosocial support services and information.
 Provision of age-appropriate emotional support groups to women and girls at the safe spaces to build support networks and
deal with trauma.
 Recruit and train additional case workers to provide GBV case management services and conduct age-appropriate
psychosocial support activities.
 Expand community outreach and information campaigns on GBV consequences and how to access services to encourage
help seeking behaviors among GBV survivors.
 Support existing and new women and girls groups and networks to promote opportunities for empowerment and
participation. Specific activities will also be expanded to reach adolescent girls who fall outside current education and child
protection initiatives.
 Adapt and update referral pathways to include new PoC areas and partners to improve access to comprehensive, safe and
confidential GBV support and include services and focal points in the new PoC’s.
 Hold trainings on expanded referral pathway to all GBV referral actors and other humanitarian partners.
5.2 Work with health partners to increase access to quality health services for GBV survivors
In terms of preparedness planning to respond to a) continued increase in insecurity b) a new influx of IDP’s in response to
insecurity, IRC will work with health partners including Care, IOM, IRC Health and MSF to
 Preposition post-rape treatment in all hospitals/health centers.
 Train additional female health staff and GBV focal points in all PoC’s on GBV guiding principles and basic skills to assist
survivors to meet their immediate needs.
 Post treatment protocols for clinical management of rape in all hospitals and health centers.
 Provide refresher training and ongoing mentoring on clinical management of rape for all health workers.
 Identify and train core group of health workers able to provide minimum clinical care to GBV survivors who present.
5.3 Work with camp management and other partners to enhance the participation and leadership of women and girls
Women and girls continue to struggle to make their voices heard and it is essential that humanitarian action facilitates the
participation and inclusion of women as leaders and decision makers.
 Work with camp management to facilitate the establishment of formal women’s committees to be included in beneficiary
consultation processes in collaboration with protection partners. Such women’s committees should be supported to ensure
that women are able to engage in decision-making and to voice their issues and concerns.
 Review the composition of existing leadership structures to increase the number of women participating.
 In collaboration with UNPOL, CCM, and Protection partners, review the functioning of the Community Watch Groups and
develop a clear terms of reference outlining their roles and responsibilities.

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 Review the operation and administration of the informal dispute resolution structures and ensure they are not dealing
directly with GBV cases and know when and how to refer cases.
5.4 Collaborate with WASH partners to better integrate women's protection concerns to ensure safe access to WASH services
While many of the constraints to enhance WASH services are outside the control of WASH partners, some issues can be
addressed with current resources including
 Increasing the number of water taps in PoCs to reduce the waiting times at the tap stands.
 IRC and Non Violence Peace Force (NP) who work on general protection to provide trainings on GBV and general protection
for water point volunteers and attendants.
 Provide clearer markings in Arabic/Nuer with pictorial representations to identify male and female toilets.
 Conduct awareness session through health and hygiene promoters to educate community members of the sex allocation of
WASH facilities.
 Increase consultations with women and girls on where to place female toilets in relation to male toilets to ensure they will
be used, and increase privacy and protection.
 Provide trainings for health and hygiene promoters on GBV referral pathways, key messages and guiding principles so that
they can safely and confidentially refer survivors and give information on available services.
 Increase the distribution of dignity kits/hygiene kits containing basic female hygiene items to all women and girls of
reproductive age and above.
5.5 Develop strategies between UNMISS, UNPOL, community structures and humanitarian actors to mitigate risks of violence
for women and girls leaving the PoC including
 Provision of protective patrols to accompany women and girls that leave in search of firewood. It is recognized that this is
labour intensive and there are limited resources so discussions could be help with women and girls to agree times and routes
for these patrols that are communicated to women and girls so they can take advantage of them.
 In collaboration with UNMISS, UNPOL, protection partners and others, map out hot spot areas where attacks are common
and provide increased patrols in these areas to offer safer movement for women and girls.
 Minimize the need to leave the PoC by providing charcoal and distributing fuel efficient stoves and/or slow burning bricks to
reduce firewood consumption.
 Extend closure time for the gats to dusk. While the women know to return to the gate at a certain time, dusk is clearer to
understand and allows more time for women to return.
 Increase community sensitizations on the importance of not going out alone to collect firewood and to travel in groups and
increase awareness that women and girls are not to be blamed for assault if it occurs.
 Ensuring that there is an Nuer/Arabic translator at the gates at all times to improve communication between
FPU/MOMBATT and IDP women and girls
5.6 Improving access to information and access to services among new arrivals
Plans and preparations are ongoing to set up a reception centre to provide information and services to new arrivals as they enter
the UNMISS PoC. This is already a work in progress by humanitarian partners and UNMISS and once established will be an
important part of the on-going response and critical in the event of an increased influx. Protection, Child Protection and GBV
actors should allocate personnel to staff this reception centre so they can provide accurate information on available services,
identify vulnerable IDP’s especially women and children and link them to services with follow up.
5.7 Develop community based complaints and reporting mechanism for Prevention of Sexual Exploitation and Abuse (PSEA)
To address and mitigate SEA, the IRC will work closely with the UNMISS PSEA focal point, OCHA and other humanitarian partners
develop a community-based complaints and reporting mechanism.