Responding to Violence Against Women and Girls in the Democratic Republic of Congo: Proposals for a people-centered system

Violence against women and girls remains a persistent challenge in the Democratic Republic of the Congo (DRC), exacerbated by the enduring impact of armed conflicts and deep-rooted structural inequalities. In particular, the lack of meaningful access to justice for survivors of violence against women and girls (VAWG)¹ is a critical barrier that perpetuates cycles of abuse and impunity. Survivors often face multiple obstacles when seeking justice, including stigma, lack of legal awareness, and a weak judicial infrastructure. This reality is reflected in the Women, Peace, and Security (WPS) Index, which highlights the significant challenges women in the Democratic Republic of Congo face in accessing justice and physical security. The DRC consistently ranks low on the index due to high levels of sexual and gender-based violence and systemic barriers within the judicial system. Addressing these issues is essential to breaking the cycles of violence and ensuring justice and healing for women across the country, while promoting peace and security in the region. To address the existing challenges, there is an urgent need for solutions that prioritize women and empower them to seek justice.

What justice solutions exist to respond to violence against women and girls in the DRC?

1. Place women at the center of justice

In the DRC, ensuring access to justice for women is particularly challenging. Many women, especially in rural areas, are unaware of their rights and legal options. Widespread illiteracy in French further complicates their ability to access legal information and navigate judicial processes. Access to information is also a problem. Article 142 of the Constitution requires the government to publish laws in French and each of the four national languages, but in reality, information is rarely available in the national languages.

Additionally, physical access to justice is hindered by geographical isolation and poor transportation and communications infrastructure, with women needing to travel hundreds of miles in certain regions to reach a court. Economic barriers, including court and lawyer fees, as well as travel expenses, make seeking justice unaffordable for many, particularly those from disadvantaged backgrounds. Corruption in the justice system, especially in cases of sexual violence and early marriage, often undermine fair legal outcomes and contribute to impunity. Although the government has made efforts to improve access, such as deploying magistrates to remote areas, significant challenges remain. For instance, the Etats Généraux de la Justice, a national consultation process organized by the government to address systemic issues within the country’s justice system, recently held in Kinshasa from November 6, 2024, to November 16, 2024, gathered over 3,500 participants to address systemic challenges in the Congolese justice system under the theme: “Why is Congolese justice considered ‘sick’? What therapy is needed?” Discussions focused on inefficiency, political interference, and unimplemented past reforms. A key recommendation was to transform the Conseil Supérieur de la Magistrature into a more inclusive Conseil Supérieur de la Justice, requiring a constitutional revision. However, the event notably did not tackle addressing gender-specific justice needs, highlighting a concerning lack of prioritization.

Around the world, women face specific barriers when accessing justice. A report by the World Justice Project shows that women encounter more obstacles than men in 70 percent of countries, and that they face more hardships as a consequence of their legal problems in more than half of countries. Understanding these specific needs and identifying effective solutions is key to reducing the global justice gap. A people-centered justice approach places individuals’ needs at the core of the justice system and offers solutions to bridge this gap. Data-driven, evidence-based, and innovation-focused, this approach is gaining momentum globally. Countries and organizations are working together to promote its use, and examples of successful practices are emerging that can inform future initiatives in various contexts.

In 2020, Ukraine began taking significant steps toward improving access to justice for survivors of domestic violence by taking a people-centered approach towards justice. The Ukrainian government, civil society, and donors collaborated to understand women’s justice journeys and identify key obstacles, including the underuse of restraining orders, lack of legal awareness, and slow enforcement. Through national consultations and a working group, they developed a roadmap to address these issues by increasing awareness, improving legal frameworks, and enhancing coordination between authorities. These efforts aimed to make justice more accessible and effective for survivors.

In Rwanda, the government has established Isange One Stop Centers, which offer holistic support to survivors of gender-based violence (GBV), including legal, medical, psychological and police services. These centers are located within hospitals to provide immediate medical care while also connecting survivors to justice and protection services. This model has been effective in improving access to justice for women and ensuring better coordination among service providers. As of 2024, there are over 40 such centers in operation. Each district hospital in Rwanda now has an Isange Center, enhancing accessibility to these critical services. The expansion of these centers has been supported by organizations such as the World Bank and the United Nations and donor countries, contributing to the fight against VAWG by addressing both immediate needs and long-term justice and health outcomes for survivors​

Finally, in many other countries, community paralegals, also known as legal aid assistants or grassroots legal advocates, are trained to provide basic legal advice and assistance to women, particularly in rural or underserved communities. These programs focus on empowering women with knowledge about their rights and navigating the legal system, addressing issues such as land rights, domestic violence, and family law disputes. For instance, in Sierra Leone, a legal empowerment program led by Namati trains paralegals to assist women in resolving legal issues, mediating disputes, and accessing formal justice services. These types of programs have been crucial in addressing VAWG and helping women secure land rights. Namati’s work with grassroots advocates has helped women gain access to justice and hold local authorities accountable.

2.    Prioritize a victim-centered approach

Women in the DRC have been profoundly affected by sexual violence, particularly in the conflict-ridden eastern region, where rape is used as a weapon of war. Reports reveal the alarming scale of this violence, with health workers reporting a massive surge in cases in recent months. Addressing this crisis requires more than immediate care: it demands an approach that can effectively support and restore dignity to survivors. Violence against women in the DRC varies significantly between conflict and non-conflict regions.² In the eastern DRC, sexual violence is often used as a weapon of war by armed groups, aiming to instill fear and disrupt communities. In contrast, in non-conflict areas, VAWG primarily manifests as domestic violence, early marriages, and economic coercion, driven by entrenched social norms and weak institutional protections. Transitional justice aims to help societies rebuild through legal and non-legal mechanisms, such as reparations, prosecutions, and institutional reforms.

Interventions must be context-specific: truth commissions, for instance, are vital in conflict zones, while community-based awareness campaigns and legal support are more effective in non-conflict settings. Tailored solutions ensure survivors’ needs are met across the diverse contexts of VAWG in the DRC. Despite these mechanisms, addressing the situation of women victims of sexual violence remains a challenge. A victim-centered approach aims to prioritize survivors’ dignity and well-being, ensuring their participation without retraumatization. In the DRC, a Truth and Reconciliation Commission had been established between 2003 and 2007, but its impact was limited due to resource constraints and lack of follow-through. However, there are ongoing efforts to advance transitional justice in the country. The Congolese government adopted a Draft National Transitional Justice Policy, signaling progress in addressing these challenges. While these initiatives are promising, much work remains to ensure they address the specific needs of women survivors of sexual violence comprehensively and effectively.

Inspiration can be drawn from several successful cases, such as the Sepur Zarco case in Guatemala, where women who had been systematically raped and enslaved by the military during the Guatemalan civil war denounced the crimes committed against them and obtained justice against the perpetrators. Survivors received extensive psychological support throughout the legal process, were listened to and involved in the process and empowered.

In Sierra Leone, the best practices from the Special Court for Sierra Leone (SCSL) in prosecuting sexual and gender-based violence (SGBV) include prioritizing SGBV investigations, integrating gender experts into multidisciplinary teams, and employing local staff familiar with the cultural context. The court also provided psychosocial support tailored to the trauma experienced by victims, prioritized community outreach despite budget limitations, facilitated access to evidence, and fostered trust with local communities, allowing for more culturally sensitive investigations and prosecutions.

In Colombia, the Special Jurisdiction for Peace (JEP) prioritizes a victim-centered approach, focusing on truth, reparation, and restoration rather than punishment. Instead of traditional prison sentences, those who acknowledge their crimes early receive restorative sanctions. These involve community-focused reparative activities, such as infrastructure work and environmental recovery, helping reintegrate former combatants while benefiting society. The JEP emphasizes non-adversarial, dialogue-based processes and concentrates on “macro cases,” which group together crimes with similar patterns, like forced disappearances or child recruitment. Early acknowledgments of responsibility lead to innovative sanctions that emphasize repairing societal damage, such as community service or participation in environmental or social projects. While the JEP prioritizes restorative justice, it retains an adversarial route for those who refuse to acknowledge responsibility. This dual system ensures accountability through traditional prosecution when necessary. Victims are central to the justice process, sharing their stories and confronting perpetrators.

In the Central African Republic, the Special Criminal Court (SCC) is a hybrid court that combines national and international judges and staff. It also works closely with international organizations such as the United Nations and civil society groups; however, the SCC is designed to strengthen the local justice system by providing training and mentorship to local judges, lawyers, and other judicial staff. There is an emphasis on transparency and communication with the local population. Community outreach programs educate citizens about the court’s work, promoting trust and engagement. Another SCC’s key feature is the involvement of victims in the legal process, allowing them to participate in proceedings, submit evidence, and seek reparations. In addition, to ensure the safety of witnesses and victims who testify, the SCC has implemented strong witness protection measures.

These approaches foster both accountability and healing by prioritizing victims’ needs for truth, reparation, and guarantees of non-repetition. A participatory model allows victims to actively engage in the justice process, amplifying their voices and ensuring that their experiences are respected and acknowledged. By focusing on the most responsible individuals, these approaches address systemic issues and promote societal reintegration. Encouraging offenders to voluntarily share the truth fosters deeper connections with victims and facilitates community restoration. Witness protection measures are crucial, especially in high-risk environments where threats from perpetrators or their associates may arise, and these safeguards help build trust in the judicial system. Collaboration between international experts and national staff enhances local capacity while respecting cultural and legal traditions. This partnership ensures effective knowledge transfer and strengthens national justice infrastructure. Additionally, support from international organizations provides essential technical assistance, financial resources, and oversight, ensuring the justice process remains accountable and transparent. Community outreach programs are equally vital. They inform citizens about the courts’ activities, build public trust, and demonstrate a commitment to fair and impartial justice.

3.    Support the work of local organizations

Investing in and partnering with local organizations is crucial to enhancing access to justice for survivors of VAWG. First, survivors often face significant stigma and fear retaliation, making them reluctant to seek justice or support through formal systems. Local organizations have a better chance of building trust within communities, creating safe spaces where survivors feel comfortable coming forward. Research from UN Women shows that community-driven initiatives can be more effective in encouraging survivors to report violence and seek help, as they are seen by many survivors as less intimidating and more understanding than state institutions.

In addition, international funding and programs are often time-limited, but local organizations remain a constant presence. By investing in local organizations, donors and stakeholders contribute to a more sustainable and resilient justice system. This investment builds local capacity and ensures that knowledge and resources remain within the community even after international actors leave. Studies from the World Bank emphasize that strengthening local institutions is a key strategy for long-term development and stability. They also typically operate with lower overhead costs compared to international entities, allowing them to maximize the impact of limited funding. They can often mobilize resources more efficiently and respond quickly to emerging needs, ensuring that support is delivered where and when it is most needed. For instance, a cost-benefit analysis by the Overseas Development Institute found that community-based initiatives for addressing GBV were more cost-effective and impactful compared to top-down approaches.

Supporting local organizations also aligns with broader gender equality goals. Many of these organizations are led by women who have firsthand experience with the issues they are addressing. By investing in their work, funders not only improve access to justice for GBV survivors but also promote women’s leadership and empowerment in society, which is crucial for transforming power dynamics and reducing the prevalence of violence.

Local organizations are often embedded within the communities they serve. This deep integration provides them with a nuanced understanding of the cultural, social, and logistical barriers that survivors of VAWG face. Unlike international entities, local organizations can adapt their approaches to meet survivors’ needs in culturally appropriate and relevant ways. According to a report by the International Rescue Committee, community-based interventions are often more successful because they are designed with direct input from those affected by the violence, ensuring that the services offered are respectful of local customs and more likely to be utilized by survivors. They are often involved in multiple facets of community life, from healthcare to education to economic empowerment. This interconnectedness allows for a holistic approach to GBV that goes beyond legal justice. For instance, the Association des Femmes Juristes Congolaises (AFEJUCO) focuses on providing legal aid and support to women who are survivors of VAWG. AFEJUCO also advocates for legal reforms to better protect women’s rights. Afia Mama, a prominent Congolese women-led organization, focuses on improving maternal and child health and also works extensively on the prevention of sexual violence and supports survivors through various comprehensive initiatives. Finally, Congolese Nobel Peace laureate Dr. Denis Mukwege has been a vocal advocate for transitional justice, building on his work through the Panzi Foundation, and emphasizing the need for accountability and reparations for survivors. He has highlighted the importance of a survivor-centered approach, ensuring that victims’ dignity and participation are prioritized without retraumatization.

Local organizations also typically have unique insight into the cultural and societal dynamics that affect women and girls. Their community-based approach ensures that services are tailored to the needs of survivors and culturally sensitive, making their programs more accessible and effective. By training community leaders, healthcare workers, and legal practitioners on gender sensitivity and survivors’ rights, these organizations foster a supportive environment that encourages women to come forward and seek help.

Other networks leverage and amplify the work and voices of local women to advocate for policy change at the international level. For instance, the Gender Equality Network for Small Arms Control (GENSAC) is a global membership network focused on integrating gender perspectives into small arms control policies and practices. This network comprises women peacebuilders, security officials, grassroots civil society groups, and disarmament experts from all over the world, including in the DRC. GENSAC aims to highlight and disseminate best practices from various groups working on small arms control, often behind the scenes, and to promote knowledge sharing across regions. The organization emphasizes the significant impact small arms have on women and girls, particularly in exacerbating violence against them, including intimate partner violence and violence related to conflicts. The network advocates for gender-sensitive frameworks in arms control and for the meaningful involvement of women in decision-making processes related to small arms policies, as well as the importance of interagency coordination and collaboration to align small arms control efforts with the broader Women, Peace, and Security agenda​. The network also directly supports the work of its grassroots members and helps to share strategies to prevent VAWG between groups in different regions.

Fostering and expanding collaboration with organizations and networks like these can significantly enhance the effectiveness of the DRC’s response to gender-based violence. These partnerships allow for a more holistic approach, addressing not only the immediate medical and psychological needs of survivors but also advocating for systemic change. Collaborating with such organizations ensures that survivors receive comprehensive care, addressing both the immediate and long-term effects of violence. Additionally, these institution’s grassroots efforts build trust within the community, a critical factor in driving sustainable change and creating a justice system that survivors are more likely to engage with.

4.    Identify innovative financing solutions

Overcoming the structural barriers to women’s access to justice requires allocating appropriate and effective funding, with a particular focus on women’s justice needs. Investments in justice, both domestic and from Overseas Development Assistance, remain low. Countries often do not prioritize investing in justice systems, and even when investment is made, it does not always target the most impactful and scalable solutions. Finance is a constraint in most countries, as the justice sector continues to be hampered by a weak track record of delivering results. Today, experts are coming together to advocate for and guide countries in utilizing their justice funding more effectively, in ways that truly deliver people-centered justice. Additionally, a gender-sensitive approach to budgeting—gender budgeting—is essential for addressing women’s justice needs. While some countries, such as Canada, have implemented gender budgeting frameworks, many others have not, and spending on addressing violence against women remains insufficient.

Recognizing the importance of financing to ensure improved outcomes for women, policymakers and justice leaders should consider improving and innovating their justice financing approaches, including drawing inspiration from other sectors. The Financing Justice Workstream of the Justice Action Coalition has been working on designing a Financing Framework, which emphasizes the need to finance justice differently and to ensure better outcomes for people. Donors should also recognize justice as a catalyst for improving societal outcomes broadly, including enhancing the condition of women, and prioritize investments in justice systems as a core component of development. In addition to that, following recommendations set forth by an upcoming report on Financing Women’s Justice Needs, governments and development partners should review current budget allocations for gender-based violence to ensure a balance between prevention and response, guided by evidence of what works. Where needed, increase funding for relevant agencies and local women’s organizations, while investing in data systems to better measure the extent of VAWG and justify additional resources. Finally, governments, with support from international partners and engagement of civil society organizations (CSOs), should publish spending plans and budget execution related to violence against women and consult with CSOs, including survivor groups, on spending priorities and adequacy.

In the DRC and the context of sexual violence in conflict, the government has implemented an innovative reparations framework, focused on financing. In a transitional justice context, innovative reparations initiatives can be hampered by limited funding. The National Victims’ Reparations Fund (Fonds National de Réparation des Victimes (FONAREV)) provides reparations for victims of serious human rights violations, including for survivors of sexual violence. It aims to acknowledge the harm suffered by victims and addresses their needs through financial compensation and other forms of support, including medical and psychological assistance, and educational and economic support. The FONAREV is managed by the Congolese government and operates in collaboration with various stakeholders, including international organizations, civil society groups, and local communities, to ensure that reparations are effectively delivered to the victims. However, despite its welcomed establishment, the FONAREV faces several challenges, limited funding being the main one. The Fund receives 11 percent of national mining royalties to support its reparations efforts. Additional funding sources include USD 500,000 from the national budget and 2.5 percent of insurance revenues. However, despite these resources, the FONAREV faces significant financial challenges in addressing the needs of a large population of victims, estimated to be 7 percent of the country’s population. Additionally, ensuring that all eligible victims are aware of and can access the reparations remains a significant obstacle. While the existence of FONAREV is a crucial step towards acknowledging the suffering of victims, its effectiveness depends heavily on sustained financial and political support.

Improving access to justice for women in the DRC requires a holistic, people-centered approach that addresses both systemic and cultural barriers.

Empowering women with legal knowledge, strengthening local organizations, and fostering victim-centered justice processes are key to breaking the cycles of violence and impunity. By prioritizing survivors’ dignity, ensuring their voices are heard, and providing sustainable financial support for justice mechanisms, the DRC—and other countries around the world—can create a more inclusive and effective system that delivers justice for all victims, contributing to long-term peace and stability in the region.

[1] “Gender-based violence” (GBV) and “violence against women and girls” (VAWG) are often used interchangeably, as most GBV is directed at women by men. However, GBV also includes violence against men, boys, and gender minorities, making VAWG just one form of GBV. (via the World Bank Resource Guide).

[2] This is with the recognition that conflict violence and non-conflict violence often directly impact one another, as outlined in the recent Flagship Report of the Halving Global Violence Task Force.

Photo: Discussion organized by CRG and Ebuteli on women’s participation in politics in the DRC at Ebuteli’s offices. Kinshasa, August 2023. Courtesy of the Congo Research Group/Ebuteli.