A Rapid Inter-agency Assessment of Gender-based Violence and ...

EXECUTIVE SUMMARYAfter years of simmering anti-foreigner hostility in South Africa, starting on May 11, 2007,outbreaks of xenophobic violence began to spread throughout the major metropolitan areas ofthe country, displacing up to 40,000 mostly African non-nationals and their families. As of 27June, 2008, the Office of the UN Resident Coordinator estimated that 13,872 individualsremained encamped in internally displaced persons (IDP) sites. Gauteng Province hostsapproximately 6,586 of these individuals in 13 sites, and Western Cape has approximately 4,707individuals in approximately 46 sites.In response to the xenophobic violence, an inter-agency team including individuals fromUNICEF and UNFPA initiated a rapid assessment in Gauteng and Western Cape Provincesduring the beginning of July 2008. The assessment aimed to identify the nature and scope ofsexual violence, including rape and sexual exploitation, taking place during the xenophobicattacks and within the IDP sites, and it also attempted to identify the other vulnerabilities thatare commonly faced by displaced women and girls. In general, the IDP women and girls whoparticipated in the assessment remain highly vulnerable to gender-based violence (GBV),especially sexual violence and exploitation, and there is an urgent need for strengtheningexisting services in the sites and for implementing new policies and procedures which willprotect women and girls.Over the last twenty years, GBV against women and girls has been increasingly recognized as aserious global health, human rights, and development issue. More recently, there has been anacknowledgment of the extent and impact of GBV during armed conflict and civil unrest, and anappreciation that any efforts related to emergency response as well as emergency and postconflictreconstruction must include programming and policy development aimed at redressingand reducing violence against women and girls and ensuring that they have access to theservices that they need.Even before the xenophobic violence of 2008, South Africa was a country “where sexual violenceis pervasive in everyday life,” 1 with “higher levels of rape of women and children than anywhereelse in the globe not at war or embroiled in civil conflict.” 2 Rates of sexual violence are also veryhigh in the most common countries of origin of the immigrants to South Africa, suggesting ahigh probability that persons affected by sexual violence as a result of the xenophobic attacks of2008 may also have experienced sexual violence before coming to South Africa. This isespecially likely of those who fled from a conflict context.The assessment was conducted based on a multi-sectoral approach to GBV prevention andresponse, to determine how government actors and other organizations are responding to GBVand gender needs in the emergency. The rapid assessment presents specific findings from eachIDP site in the topic areas of: sexual violence during the xenophobic attacks, sexual violence andsexual exploitation among the encamped populations, and other gender and GBV-relatedconcerns among the displaced.1 Perspectives, #3.08. Accessed July 29, 2008. www.migrationboell.de/downloads/migration/HBS_Perspectives_03.08.pdf2Moffett, Helen/African Gender Institute, University of Cape Town. The political economy of sexual violence in postapartheidSouth Africa. September 2003, pp.1-2.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 20082

Sexual Violence and ExploitationAmong the generalized findings, the rapid assessmentshows that one of the main ways that women and girlshave suffered during the attacks is through threatened,attempted and actualized sexual violence. For many,these are not their first experiences of sexual violence. Inseveral sites, women who fled South Africa due to war(those from Somalia, Democratic Republic of the Congo,Burundi, and Rwanda), or political strife/persecution(those from Zimbabwe), shared stories of having sufferedfrom sexual violence in their countries of origin and againduring the xenophobic attacks.“We are not safe here, we are herebecause we fled the war. Many of uswere raped in our countries. We camehere because there was a war. Wecan’t go home, and we came here andhave been humiliated all over againas women.”-- IDP Woman, Western Cape“Women are afraid to report cases ofsexual violence because they are afraidof being deported. I was afraid to goto Wadesville because I was afraidthat I would be deported.”--IDP Woman, Boksberg, GautengAcross all sites, women and service providersconsistently reported that sexual violence was used as adeliberate tactic to force women and children from theirhomes. In Gauteng, service providers who responded atthe onset of the crisis reported receiving cases of bothwomen and girls who were sexually assaulted during theattacks. The National Prosecuting Authority (NPA) hasenrolled eight cases of rape related to the attacks frompolice jurisdictions in Gauteng and KwaZulu-Natal, anumber that is especially significant given the challenges of reporting even in peaceful times,and immigrants' reluctance to contact the police for fear of deportation.It is impossible to understand the true scope of the problem of sexual violence related to thexenophobic attacks (both during the violence and in the on-going situation of displacement) dueto these fears of arrest and deportation, the low degree of trust in health care providers andpolice, the low levels of awareness on the value of seeking medical assistance quickly, the stigmaassociated with acknowledging violence, the lack of information on how to report and the lack ofstandardized reporting procedures.Cases of sexual violence have been reported from the Centers of Safe Shelter (CoSS), and fears ofsexual violence in the sites are widespread. Focus group discussions revealed that women feelhighly unsafe due to overcrowded sleeping arrangements, lack of privacy, and poorly designedshelter sites..Despite the extensive efforts of the Government of South Africa (GSA) and local andinternational NGOs to respond to the crisis, IDP site programming to prevent and respond toGBV is largely inadequate, and while the GSA--especially in the Western Cape--has madeextensive efforts to improve site design, site security, and management and coordination, issuesof gender equality and GBVprevention and response have not been adequately addressed. Sitemanagers across both provinces have done a laudable job in managing the camps and in achaotic environment where resources are often received only on an ad-hoc basis. However,many relatively simple problems have not been addressed, including the fact that many sites stillfeature unlit ablution boxes and bathing facilities that are not sex-separated and cannot besecured from the inside. While there is a large presence of GSA police and private securityfirms, in all of the sites there are palpable feelings of mistrust of these actors by site residents.The lack of adequate numbers of female security guards and police creates significant gaps withregard to meeting the protection needs of women and girls.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 20083

In most cases, the level of inclusion of IDPs and especially of women and girls in planning anddecision-making is inadequate. As in many IDP/refugee interventions around the world, theinclusion problem lies at the root of many of the issues uncovered in this rapid assessment.Women and girls acknowledged that sexual exploitation and harassment are not uncommon inthe sites. Respondents noted that they know women are coerced into exchanging sex foressential items including food rations. Young girls especially reported being subjected to sexualharassment by both site residents and individuals working in the sites.Codes of conduct are not in place to guide the behavior of site staff,visitors and volunteers, and IDPs are largely uninformed about keyissues related to protection or prevention from sexual exploitationand abuse. Distribution processes are often chaotic and designed insuch a way that women and girls may be exposed to risks such assexual exploitation and abuse.“They often try to grab youand kiss you, and evenrape you.”--Adolescent IDP Girl,Harmony ParkWhile coordination within GSA, through the Disaster Management Teams and Joint OperatingCommittees has been systematic, focal points to handle gender and GBV-related concerns havenot been established in and across sites. And although a GBV Sub-cluster of humanitarianactors was recently established in Pretoria, this group was has not included many agencies orinstitutions outside of the UN System.Other Gender and GBV Concerns Among the DisplacedServices to meet the particular needs women and girls are limited in many of the sites, especiallyin Western Cape. In all of the focus group discussions women mentioned that domestic violencewas increasingly becoming a problem due to alcohol abuse, frustrations due to cramped sleepingquarters, and idleness and other stressors associated with living in an IDP site. In most siteswomen reported having lost their means of livelihood during the attacks. Lastly, women andgirls expressed fear associated with their uncertain immigration status. They are afraid ofreturning to their home countries and also of reintegrating into their former communities inSouth Africa. They complain of a lack information with regard to their registration status andwhat might happen in any reintegration process.GBV Prevention and Response ProgrammingIn the area of health services, while the GSA has quickly responded to the call to meet the basichealth needs of IDPs, access to reproductive health services is extremely limited. Of all siteswhere it was possible to meet with health care providers, none had adequate services to respondto an incident of sexual violence. The majority of sites do not offer post-exposure prophylaxis(PEP) and emergency contraception (EC). Local and international NGOs have been quick to rollout services to meet the psychosocial needs of adults and children living in the sites, but in manysites--especially in Western Cape--these services are usually provided on an on-call basis due tolimited resources, and their availability is rarely known about among beneficiaries. In somesites in Gauteng, service providers have been blocked from entering the sites due to confusionand tension related to the registration process.Additionally, IDPs are largely uninvolved in protection or prevention and response to sexualviolence, and service providers do not have a commonly-agreed standard operating procedurefor dealing with GBV cases.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 20084

RecommendationsThese and other themes that are common to the various sites have been collected to inform thematrix of recommendations at the conclusion of the rapid assessment report. The overallrecommendations cover the subject areas of participation, protection, capacity-building, waterand sanitation, food security/nutrition and distribution, shelter/site planning and design,health and community services, education, coordination, data collection, informationdissemination, and social integration. Key areas for emphasis in the recommendations include:• Institute a policy that exempts individuals (any non-national, immigrant, refugee or asylumseeker) seeking services for sexual violence (health, police, legal, etc.) from any requirementto present identification.• Establish a Prevention of Sexual Exploitation and Abuse Focal Point Network so that therewill be a team of individuals within South Africa ready to assist in training and capacitybuilding.• Ensure that there is a comprehensive understanding of and planning for the specific riskfactors faced by women and children (girls especially) in all sites and throughout allintegration efforts.• Re-launch the GBV Sub-cluster: introduce coordination mechanisms for prevention andresponse programming at the provincial levels and ensure their linkages with existingnational coordination mechanisms.• Provide support to the relevant Government of South Africa ministries and institutions tointegrate prevention of GBV and gender equality concerns into their current emergencyresponse and preparedness plans of action.• Select integration sites based on the health, psychosocial (social welfare), security, andlegal/justice services that are available. Services to address GBV should be prioritized, givenhow sexual violence was a common part of the xenophobic attacks.• Ensure that there is sufficient policing by equal numbers of male and female police staff inboth IDP sites as well as in communities of integration. Mobilize communities to protectthemselves through positive community policing initiatives.• Make extensive efforts to facilitate tolerance of different nationalities among all groups ofpeople (all ages and gender) in South Africa.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 20085

ACRONMYNSADAPTAIDSARTCSVRCoSSDRCDOHDSDECGBVGSAHIVIASCIDPIECINGOsMSFMISPNCVTNPANFIsNGOsOCHAPEPPOWARAORCPRHRCSCSEASTIsTACUNUNHCRUNICEFUNPFAWHOAgisanang Domestic Abuse Prevention & TrainingAcquired Immune Deficiency SyndromeAntiretroviral TherapyCenter for the Study of Violence and ReconciliationCenter of Safe ShelterDemocratic Republic of the CongoDepartment of HealthDepartment of Social DevelopmentEmergency ContraceptionGender-based ViolenceGeneral Service AfricaHuman Immune Deficiency VirusInter-Agency Standing CommitteeInternally Displaced PersonsInformation, Education and CommunicationInternational Non-Governmental OrganizationMédecins Sans FrontièresMinimum Initial Service PackageNational Children Violence TrustNational Prosecuting AuthorityNon-food ItemsNon-Governmental OrganizationsOffice of the Coordinator for Humanitarian Affairs:Post-exposure ProphylaxisPeople Opposing Women AbuseRefugee Aid OrganizationRefugee Children ProjectReproductive Health Response in Conflict ConsortiumSave the ChildrenSexual Exploitation and AbuseSexually Transmitted InfectionsTreatment Action CampaignUnited NationsUnited Nations High Commission for RefugeesUnited Nations Children’s FundUnited Nations Population FundWorld Health OrganizationGBV Assessment: Response to the Xenophobic Attacks in South Africa, July 20086

TABLE OF CONTENTS1. Background 82. Rationale for the Rapid Assessment of GBV 83. Aim of the Rapid Assessment of GBV 104. Methodology of the Rapid Assessment of GBV 105. Limitations to the Rapid Assessment of GBV 116. Findings 11A. Nature and Scope of Sexual ViolenceB. Other Gender and GBV Concerns Among the Displaced7. GBV Prevention and Response Programming 168. Site-specific Findings: Highlights from Gauteng and Western Cape 19A. GautengB. Western Cape9. Recommendations 27Appendix 1: Overview of Key Field Tools 37Appendix II: Persons Spoken To 38GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 20087

Sexual Violence in South AfricaEven before the xenophobic violence of 2008, South Africa was a country “where sexual violenceis pervasive in everyday life”, 5 with “higher levels of rape of women and children than anywhereelse in the globe not at war or embroiled in civil conflict.” 6 One in three of 4,000 Johannesburgareawomen questioned in 1999 by the NGO CIET Africa said they had been raped in the pastyear. 7 Such claims are made in spite of the fact that GBV reporting rates are notoriously low andthe data are incomplete due to the nature of the crimes, the social stigma for survivors and thethreat of retaliation.Potential Exposure to Sexual Violence in Immigrants' Countries of OriginRates of sexual violence are also very high in the most common countries of origin of theimmigrants to South Africa. Using only measures of incidence within intimate partnerrelationships (where statistics are generally the strongest), the sexual violence rates have beenreported at 17 percent in Namibia, 16 percent in Kenya, 25 percent in Zimbabwe, 31 percent inrural Tanzania, and 59 percent in Ethiopia. 8 These figures suggest a high probability thatpersons affected by sexual violence as a result of the xenophobic attacks of 2008 may also haveexperienced sexual violence before coming to South Africa.This is especially likely of those who fled from a conflict context, as it is widely acknowledgedthat incidence of GBV increases in a conflict zone, and also that rape has commonly been usedas weapon of war in various conflict theaters of the East and Central African region. To site buttwo examples, in civil war-ravaged Somalia, 20% of children reported in 1994 that they knew ofa sexual assault on a child in their family, 9 and many actors on the ground in Somalia believethat sexual violence in on the rise due to the on-going conflict, 10 and in 2004, UNFPA reportedthat 40,000 women had been raped by fighters in the Democratic Republic of the Congo overthe previous six years. 11 Reports of widespread sexual violence and torture within Zimbabweand along the border between Zimbabwe and South Africa are also numerous. 122. Rationale for the Rapid Assessment of GBVOver the last twenty years, GBV against women and girls has been increasingly recognized as aserious global health, human rights, and development issue. A growing body of researchconsistently confirms that GBV has serious consequences for women’s physical, sexual, andmental health, as well as implications for the health and well-being of families and communities.More recently, there has been an acknowledgement of the extent and impact of GBV during5 Perspectives, #3.08. Accessed July 29, 2008. www.migrationboell.de/downloads/migration/HBS_Perspectives_03.08.pdf6 Moffett, Helen/African Gender Institute, University of Cape Town. The political economy of sexual violence in postapartheidSouth Africa. September 2003, pp.1-2.7 BBC. “South Africa's rape shock”. Tuesday, January 19, 1999. http://news.bbc.co.uk/2/hi/africa/258446.stm8 From the graph “Percentage of women who reported physical violence and sexual violence by an intimate partner(ever)”. Doggett, Elizabeth/United States Agency for International Development. Linking Gender-based ViolenceResearch to Practice in East, Central and Southern Africa: A Review of Risk Factors and Promising Interventions.February, 2006, p.7.9 Ennew, J., 1994, as reported by Paulo Sergio Pinheiro in World Report on Violence Against Children, 2006, p.56.10 Somalia: Increased sexual violence raises HIV concerns, August 2007. Relief Web.http://www.reliefweb.int/rw/RWB.NSF/db900SID/EMAE-765PG2?OpenDocument11 USAID/UNICEF. Strategic Framework for the Prevention and Response to Gender-based Violence in Eastern,Southern, and Central Africa. 2002, p.4.12 Louis Weston ,“Zimbabwe: Mugabe troops use rape as weapon”http://www.telegraph.co.uk/news/worldnews/africaandindianocean/zimbabwe/2164157/Zimbabwe-Mugabe-troopsuse-rape-as-weapon.html,June 22, 2008. Afrol News/IRIN, “ = South Africa: Cold reception for Zimbabweanmigrants” http://www.afrol.com/articles/26448GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 20089

times of armed conflict and civil unrest, and an appreciation that any efforts related toemergency response as well as emergency and post-conflict reconstruction must includeprogramming and policy development aimed at redressing and reducing violence againstwomen and girls and ensuring that they have access to the services that they need.The rapid assessment was also prioritized due to concerns among key actors within UNICEF andUNFPA on how the information collected on GBV related to the xenophobic attacks bygovernment and other partners had been scattered, and that there had been no centralizedefforts to pull any previous GBV-related assessment information together to present acomprehensive picture of the GBV situation.3. Aim of the Rapid Assessment of GBVThe rapid assessment was conducted based on a multi-sectoral approach to GBV prevention andresponse, to determine how government actors and other organizations are responding to GBVand gender needs in the current emergency.The assessment aimed to understand the nature and scope of sexual violence, including rapeand sexual exploitation, taking place during the xenophobic attacks and within the IDP sites, thenature of the current situation and other vulnerabilities that are commonly faced by displacedwomen and girls, and issues related to integration (access to services, sense of security etc.).Emphasis was placed on working with beneficiaries living in Centers of Safe Shelter (CoSS).Where possible, the assessment counted on key informant interviews conducted withinstitutions and government partners in the health, psychosocial (social welfare), legal/justice,and security sectors as well as actors that are engaged in general protection work, site design,coordination, and management, water and sanitation, food security/nutrition, and distribution.Among beneficiary populations, the assessment aimed to identify GBV-related issues includingcoping mechanisms, help-seeking behavior and the needs of survivors and their families.4. Methodology of the Rapid Assessment of GBVAn inter-agency team led by UNICEF, including individuals from UNICEF and UNFPA, initiatedthe rapid assessment during the beginning of July 2008. The assessment was conducted inGauteng and Western Cape Provinces. In Gauteng the assessment took place in Klerksoord,Rifle Range, Rand Airport, Boskberg, and DBSA IDP sites. In Western Cape, the assessmenttook place in Soutwater, Blue Waters, Harmony Park, Youngsfield and Silverstone IDP sites. 13The sites where chosen because they were among the largest IDP sites in both provinces.The assessment methodology was informed by the recent experience of the rapid interagencyGBV assessment that was conducted in Kenya during the post-election violence and several keyfield resources, including the Inter-Agency Standing Committee (IASC) Guidelines for GenderbasedViolence Interventions in Humanitarian Settings: Focusing on prevention of andresponse to sexual violence in emergencies (2005), which provides a standard for assessingsexual violence issues in emergencies, and the IASC Gender Handbook in Humanitarian Action:Women, Girls, Boys, and Men: Different Needs – Equal Opportunities (2006), which helpsguide analysis of the integration of gender issues in site-based response efforts.The assessment tools were based on the Reproductive Health Response in Conflict Consortium’sGender-based Violence Tools Manual for Assessment and Program Design, Monitoring and13 In Western Cape, the assessment was embedded into a multi-sectoral UN Assessment to avoid asking IDPsquestions on multi occasions and due to logistical constraints.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200810

Evaluation (2004). The World Health Organization, WHO Ethical and safetyrecommendations for researching, documenting and monitoring sexual violence inemergencies (2007) also guided the assessment. 14Key informant interviews with relevant stakeholders (government representatives, internationaland local NGOs, and community-based organizations providing GBV services) were conducted,as well as focus group discussions with displaced women and adolescent girls. A detailed list ofindividuals spoken to during the assessment is provided in Appendix II.5. Limitations of the Rapid Assessment of GBVDue to time constraints, the assessment focused entirely on those living in IDP sites, resulting incomplete neglect of the large numbers of non-nationals who have been affected by the crisis butwho are not living in IDP sites. There is reason to believe that many foreign nationals have beenafraid to seek safe shelter in a recognized CoSS, due to fears related to arrest and deportation.As with any rapid assessment in an emergency context, issues such as time constraints, the largenumber of sites, and security and logistical issues (lack of vehicles, etc.) posed challenges to theassessment. Interviews with stakeholders were brief, often conducted by phone, and there werekey representatives within each site who were unavailable during site visits, limiting the amountof information collected. The assessment team was composed of only one person for themajority of the assessment which made it difficult to hold stakeholder meetings with the largenumber of civil society actors doing GBV-related work in South Africa outside of the IDP sites.In addition, due to time constraints and given that there are no agencies working in the sitesproviding legal justice services related to GBV, investigations into this area of the multi-sectoralmodel for GBV prevention and response services were very limited.6. General FindingsThis report includes a brief overview of GBV and gender-related concerns across all of the IDPsites visited during the assessment, as well as brief highlights from each region and individualsite. While the findings of this report should be taken as preliminary, they do confirm that nonnationalwomen and girls living in South Africa were exposed to sexual violence during thexenophobic attacks. The information in this report also indicates that women and girls remainvulnerable to GBV, especially sexual violence and exploitation in the CoSS. The findingsindicate urgent need for strengthening existing services in the sites, and for implementing newpolicies and procedures which will protect women and girls and ensure that they have access tocomprehensive services to prevent and respond to GBV throughout all integration processes.A. Nature and Scope of Sexual Violence1) Sexual violence prior to arrival in South Africa and prior to the xenophobicattacksIn several sites women provided information on how they fled to South Africa due to war as inSomalia, Democratic Republic of the Congo (DRC), Congo Brazzaville, Burundi, Rwanda,Angola, or political strife/persecution as in Zimbabwe. In several sites, including Rand Airport,Zimbabwean women volunteered information on how they suffered sexual violence during theirtransit from Zimbabwe to South Africa, and several Zimbabwean women mentioned that many14 All of the resources mentioned in this section are available on the Reproductive Health in Response (RHRC)Consortium website: http://www.rhrc.org/resources/index.cfm?sector=gbvGBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200811

women and girls are raped by security/border personnel when they cross the border of SouthAfrica.In Western Cape one woman said that women have been exposed to sexual violence not only intheir home countries, but again during the xenophobic attacks: “We are not safe here, we arehere because we fled the war. Many of us were raped in our countries. We came here becausethere was a war. We can’t go home, and we came here and how been humiliated all overagain as women.” Several women reported that rape was commonly perpetrated against nonnationalsbefore the attacks. Women in Soetwater feel that rape is perpetrated against them“because [they] are a foreigner.”2) Sexual violence during the xenophobic attacksWomen and girls have been adversely affected by the xenophobic attacks. They have beenbeaten, burnt to death, and murdered along with their families. However, one of the main waysthat women and girls have suffered is through threatened, attempted and actualized sexualviolence. Threats of sexual violence have been used to disperse women and their families fromtheir homes. A woman in Gauteng was told “if you do not leave by tomorrow you will beraped.”The assessment investigations into sexual violence revealed both first-hand and anecdotalreports of sexual violence from both Gauteng and Western Cape Provinces. Across all sites,women and service providers consistently reported that sexual violence was used to chasewomen and children away from their homes. In one site in Western Cape, two womenvolunteered first-hand accounts of gang-related sexual violence, and in Gauteng serviceproviders who responded to the onset of the crisis reported receiving cases of both women andgirls who were sexually assaulted during the attacks. The National Prosecuting Authority (NPA)has enrolled eight cases of rape related to the xenophobic attacks from the police jurisdiction ofthe following Police Stations in Gauteng: Alexandra, Nigel, Spring, and Tembisa, and Durban:KwaMashu, Ladysmith and Umlazi, which is significant given the challenges of reportingincidents of sexual violence and fears related to arrest and deportation. The number ofperpetrators ranged from one to four in these attacks.Women and service providers alike reported that women were very reluctant to access healthand security services for incidents of sexual violence that took place during the attacks.Predominately, the reasons given were related to extremely low levels of trust of servicesproviders among non-national women, and fears of arrest and deportation. A woman inBoksberg IDP site in Gauteng, stated “women are afraid to report cases of sexual violencebecause they are afraid of being deported. I was afraid to go Wadesville 15 because I wasafraid that I would be deported.”In Western Cape, women stated that as foreigners, they cannot rely on police to solve theirproblems. They report that they are often told by police themselves, “You should go back towhere you came from.” Women from one IDP site in Western Cape reported that it is difficult toaccess health services as a foreign woman, “they help other people, but you sit for a long timebecause you do not speak the language.”Women and girls also reported that the stigma associated with acknowledging victimizationkeeps many women from accessing services. A woman in Western Cape noted that women,especially a “Somalian woman would never tell [that she had been raped].” Adolescent girls in15 People in the Boksberg site were originally place in Wadeville, which was later found to be toxic, so people from thissite had to be moved to Boksberg.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200812

Western Cape reported that they would be unlikely to report cases of sexual violence because“we are afraid of losing our dignity.”It is impossible to obtain exact numbers of sexual violence that took place during thexenophobic attacks, just as it is possible to ascertain exact numbers of cases of sexual violenceoccurring among encamped populations. Sexual violence may be one of the most underreportedcrimes in the world, but especially in situations of crisis and civil unrest when socialsupport structures break down. Even normal times in South Africa, available data demonstratethat sexual violence reported to the police (240 incidents of rape and attempted rape per100,000 women each year) “represents the tip of an ice berg of sexual coercion.” 16 In addition tothe common challenges associated with reporting sexual violence in any situation, reportingincidents of sexual violence in the xenophobic context of South Africa is also influenced by thecultural taboo against disclosing rape, the historically poor relationship between non-nationalsand police and health care providers and subsequent fear of arrest and deportation, the low levelof awareness about the value of medical assistance, the often low priority that women give totaking care of themselves as opposed to that which they give to taking care of their children, andthe reality that IDP sites do not have standardized reporting mechanisms to facilitate reportingand access to services.3) Sexual violence and sexual exploitation among the encamped populationsSexual ViolenceFears of sexual violence in the sites are widespread. At one site, women and children haveresorted to using buckets as makeshift toilets because they are afraid to walk to the ablutionboxes at the edge of the site in the dark.During focus groups, encamped women repeatedly expressed fears related to sexual violence asa result of makeshift sleeping arrangements, where males (often single) and females (not of thesame family) are forced to sleep together under one tent. This lack of privacy was constantlyhighlighted as something which makes women and girls feel highly uncomfortable and unsafe inthe sites. A woman in Boskberg noted that they have “fears at night [living in the site] aswomen, you never know what might happen.” The majority of the sites in both Gauteng andWestern Cape have more males than females residing in them. In the six mega sites where theassessment was conducted in Western site there were a total of 1,364 males compared to only517 females and 337 children. In many of the sites, especially in Western Cape individuals areforced to sleep in very large tents where as many as over 60 individuals may reside. In somesites, single men were identified as problematic and that they often “want women by force.”Women also reported fears about sexual victimization linked to site design and services,including problems with the lighting, and sanitation facilities. Across all sites, women andadolescent girls highlighted toilets and bathing facility as danger zones in the sites, and spoke ofmany cases of attempted rape in the bathrooms. In most sites, ablution boxes are notdisaggregated by gender (by either distance between facilities for men and for women or by clearsigns delineating facilities for men or for women). And where there are brick structures thathave been separately allocated for men and for women—men trying to enter women’s facilitieswas pointed out as common place. One woman said that due to the site design even “if you cryout no one will hear you. The toilets are far.” During several site visits women themselvespointed out themselves that toilets should be separated for men and for women.16 Jewkes, R., & Abrahams, N. (2002). "The epidemiology of rape and sexual coercion in South Africa: An overview."Soc Sci Med 55 1231-1244.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200813

Other site security provisions such as appropriate lighting in areas frequented by women andgirls and bathing areas with locks on the inside of the facilities 17 have not yet been incorporatedin many of the sites. In some sites lighting is sufficient, but in many others it is not, especiallyaround ablution boxes. In several sites women reported that they bathe in their tents as a safetyprecaution. Women and adolescent girls reported several incidents where abuse/violence hastaken place in and around the bathing and toilet facilities. Attempted rapes in and around thetoilet/bathing facilities have been documented in some of the sites. In one site an adolescentgirl explained that she no longer feels safe in the site since a man tried to open the toilet area shewas using.Lack of perimeter fencing around entire sites such as Bluewaters and Soetwater was alsohighlighted as an issue of concern for women in the site. In addition, women noted that lack ofsecurity patrols around the perimeters the sites poses a security threat. Lack of female policeand security personnel was noted in all of the sites.Given that individuals and families are not allowed to cook for themselves in most sites and thatwater is available within all of the sites, issues related to firewood and water collection did notsurface as major issues. However, women and girls did reveal that they do not feel safe outsideof the site fencing perimeters. In Klerksoord/Acasia one mother and daughter reported beingthreatened by outside community members when they left the site to collect firewood.When asked about obtaining services for sexual violence, women reported that they did notknow how to do this. By and large, women and girls reported that they would not feelcomfortable reporting incidents of sexual violence to the police because they do not trust them.In some situations women stated that they might be willing to talk to a health care providers inthe site, but over all women and girls demonstrated very low levels of information on the valueof reporting cases of sexual violence early. Adolescent girls in one site mentioned that theymight be willing to report a case of sexual violence to someone outside of the site who wouldmaintain their confidentiality.Sexual Exploitation and harassmentGirls in Youngsfield acknowledged that exploitation and harassment are not common within onenationality, but that across nationalities there are problems. In Klerksoord/Akasia, two womennoted that they know that women/girls are having sex for food, but that “no one will ever tellyou about it.” In Silverstoom women reported that they are commonly offered money for sex byindividuals, e.g., security or cleaning personnel working in the site.Sexual harassment was reported as a concern in many of the sites. One woman in Rifle Rangesaid, “Men are always calling young girls here.” Other women in locations such as HarmonyPark noted that men in the site often sexually harass women by saying “indecent things” andthat “they often try to grab you and kiss you and even rape you.”In one site, women reported that individuals have been known to visit the site to make promisesof work, or to ask for women. In Youngsfield, adolescent girls in the site complained of receivingsexually exploitative offers from individuals working in the site, and they also reported beingsubjected to sexual harassment by both site residents and individuals working in the site. Onegirl revealed that they “often try to grab you and take you somewhere dark.”In many sites, women voiced concerns about distribution processes. They mentioned that theway that men fight over food makes them uncomfortable. In most locations, there are no special17 In several of the sites visited there are brick bathing/toilet facilities in use which no longer have functioning lockssecurable from the inside, and in other sites, bathing facilities are simple screened structures with no lock at all.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200814

provisions for pregnant and lactating mothers and children under five. Inconsistent and opaquedistribution processes can put women and children at increased risk of sexual exploitation andabuse. In a few sites, distribution processes were observed that are characterized by lack oforganization. Across all almost all sites, women said that access to necessary sanitary materials(including sanitary pads for menstruation, soap, washing powder and underwear) is onlyintermittent.B) Other Gender and GBV Concerns Among the Encamped PopulationsLack of participation in site decision-making processesIn many of the sites, individuals working in the sites demonstrated low levels of knowledge onthe value of ensuring that women participate in site leadership committees. In all sites, whetheror not women are included to any extent as members of the site leadership committee, womenreported lack of decision-making power at the site. This indicates that in sites where women areon the committee, their participation may be more symbolic than meaningful. In sites where theleadership is composed of both males and females, the males always outnumber the women,creating a gender dynamic that likely makes it challenging for women to voice their concerns.That there are consistently more males than females on these committees also creates situationswhere the flow of information about urgent issues such as registration and integration does notfilter out to women as easily as it does to men.Lack of site services specifically designed to meet the needs of women and girlsIn general, in many of the sites women mentioned that obtaining basic health services wasdifficult, as they often have to leave the site to access them if there are none available. InSalomon Mahlangu, two cases of pregnant women being refused care because they did not haveappropriate documentation were reported. In several sites women mentioned that healthservices are very inconsistent, and that any complicated health care cases—which would includesexual violence as these services are not provided in any of the sites—individuals are sent out byambulance and dropped off at the nearest hospital. Once treated, they have to find their wayback to the site, a reality that forces many people to beg for travel fare.Domestic ViolenceIn all of the focus group discussions, women claimed that domestic violence was increasinglybecoming a problem. Women pointed at alcohol abuse, frustrations due to cramped sleepingquarters, and idleness and other stressors related to living in an IDP site as potentialcontributing factors to domestic violence. Women mentioned that they are vulnerable to bothphysical and sexual violence and psychological abuse.Loss of LivelihoodIn all sites, loss of livelihood was articulated as a serious concern. However, no livelihoodprogramming efforts were identified in either province. In Rand Airport, women reported thatthey “lost everything” and that they have major concerns about how they will be able to providefor their children in the future. In most of the sites women reported having had some sort ofincome, e.g., having their own hair salon, selling goods in a market etc., before the attacks whichis now gone. If livelihoods concerns are not taken into consideration in the integration efforts,there will likely be large numbers of women and girls at increased risk of sexual exploitation.Other Integration Concerns for Women and GirlsThe reality that sexual violence was a part of the xenophobic attacks cannot be denied in relationto any integration or reintegration processes. Many women and children have significant fearsabout what is next. In general, women and girls reported being blocked in the reality of “notGBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200815

knowing what will happen next. We are always waiting for something to happen. We fear forour children most, what will happen to them?” Women in all sites recounted examples of fearand sadness for their children in South Africa. Adolescent girls also voiced concerns about notknowing what to expect next, and wanting to go back to school, but being afraid to do so.Information on what their registration cards are for and what will happen in any integrationprocesses has not been forthcoming from the Department of Home Affairs. There areconsiderable concerns about not being able to return to their home countries and also fears oftrying to reintegrate in communities in South Africa.7) GBV Prevention and Response Programminga. Best Practice Models and StandardsOver the last ten years GBV has been increasingly recognized as a common symptom of politicalcrises, civil unrest and natural disasters. GBV remains the most serious and widespreadprotection concern facing women and girls in development contexts, but especially in times ofstate and civil unrest. Several field tools have been produced that provide clear policy andpractical guidance on prevention of and response to GBV in situations of conflict anddisplacement. See Appendix I for further details on these field resources.As previously stated in the methodology section of this report, these key resources formed thefoundation of the assessment and set the standard for analysis of gaps and resources in terms ofGBV prevention and response efforts, with emphasis on sexual violence. As dictated by thecontext of displacement and the xenophobic attacks in South Africa, not knowing where peoplewill be integrated, and the lack of interaction between the sites and the surroundingcommunities, the assessment focused primarily on site-based programming.b. Site-based ProgrammingDespite the extensive efforts of the Government of South Africa (GSA) and local andinternational NGOs to respond to the crisis, programming to prevent and respond to GBV,especially sexual violence, is largely inadequate. The section below contains an overview of thekey gaps from both provinces, while more detail is provided in the site-specific section.Site Design, Security, Management and CoordinationIssues of gender equality and GBV have not been addressed to the extent necessary in terms ofsite design, security, management and coordination. The GSA, especially in Western Cape, hasmade extensive efforts to improve site design and management, however gaps remain in eacharea. Various government actors have also demonstrated interest in trying to fill some of thesegaps. The magnitude of the problem, and the wide dispersion of small IDP sites throughoutGauteng and Western Cape, have posed significant challenges to implementation of acoordinated and protective response for women and girls.As articulated in the section on risks to sexual violence and exploitation amongst IDPs, severalbasic security conditions have been neglected. For example, while lighting has improved insome sites, there are still many sites with unlit ablution boxes, toilet and bathing facilities arenot sex-separated, and many of these facilities cannot be secured from the inside. Across allsites, women and girls spoke of the bathing and toilet facilities as locations which increased theirvulnerability.Many of these protection risks to women and girls are compounded by complete neglect relatedto inclusion of women in site decision-making processes. When women have been involved inGBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200816

site leadership committees, their participation has been primarily perfunctory rather thanmeaningful.Site managers, many of who have never worked in a crisis situation before, have madetremendous efforts to promote protection in their sites. But if the sites are to remain open, thereis a fundamental need to ensure increased awareness on the specific needs of women and girls.In many situations, site managers have not received sufficient financial resources to make thenecessary protection changes in their sites.While access of site staff (managers, health care providers, police, security service personneletc.), visitors and volunteers has become increasingly scrutinized across sites, the behavior ofthese individuals goes largely unmonitored. Given the reality that sexual exploitation and abuseby humanitarian workers is a reality around the world, there is urgent need to ensure thatmanagers are empowered with tools and resources such as common Codes of Conduct 18 toensure that individuals who have access to beneficiaries refrain from taking advantage of thevulnerabilities of the IDPs and abusing their positions of power. Women reported cases in whichwomen and girls are asked to have sex in return for money from individuals working in the sites.It is also clear that site residents have not been trained on their rights to humanitarian aid,including access to messages on how all humanitarian aid is free, and the right to reportcomplaints of abuse.Women and young girls especially noted concerns about being harassed by IDP men fromdifferent nationalities. Young girls stated that men often say things to them that make themuncomfortable, try to get them to go over to their tents or even grab them on some occasions.While there is a large presence of both GSA police and private security firm personnel in all ofthe sites, there are often evident feelings of mistrust of these actors by residents. Presence offemale security guards and police officers is another significant gap with regard to meeting theprotection needs and considerations of women and girls. This security presence is also oftenonly available at the entrance of the CoSS, thus highlighting the need to adopt procedures toguide a active security presence around the perimeters of the sites. For sites situated on thebeaches in Western Cape, security staff must be especially vigilant given that fencing does notsurround the sites in their entirety.Site managers across both provinces have done a laudable job in dealing with the provision ofresources that they also receive on an often ad-hoc basis. In many of the sites, the distributionprocesses fail to consider the specific needs of women and children related to sexualexploitation. Emphasis has not been placed on ensuring that women and children have equalaccess to food and other necessities, and that they do not have to receive these services fromonly men, but rather from sex-balanced teams. In some sites, the provision of needed sanitary18 All individuals working in the sites should be trained on and sign a Code of Conduct that is on par with theSecretary General’s Bulletin on Protection from Sexual Exploitation and Abuse by UN Staff and Partners. Since the2003 discovery of pervasive misconduct of humanitarian workers and the release of the UN Secretary-General’sBulletin, new research reveals that individuals in positions of receiving humanitarian aid are still vulnerable to sexualexploitation and abuse due to nonexistent codes of conduct, poor awareness of rights and duties, and nonexistent orconfusing complaints mechanisms etc. Kirsti Lattu, 2008. “To Complain or not to Complain: Still the Question.Consultations with humanitarian aid beneficiaries on the perception of efforts to prevent and respond to sexualexploitation and abuse.” http://www.reliefweb.int/rw/lib.nsf/db900SID/ASIN-7G4M2J?OpenDocument. Save theChildren also recently conducted a study which revealed that child sexual abuse perpetrated by humanitarian aidworkers and peace keepers is widespread and largely unreported. Corinna Csaky, 2008. “No One to Turn ToThe under-reporting of child sexual exploitation and abuse by aid workers and peacekeepers.”http://globaladminlaw.blogspot.com/2008/06/save-children-report-on.htmlGBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200817

materials, including soap and underwear, has not been consistent, and women have to go tomale site workers to request these materials in some situations.While coordination within GSA, through the Disaster Management Teams and Joint OperatingCommittees has been systematic in both Gauteng and Western Cape, there is less UN and GSAcoordination on the ground among the various individual volunteers and local and internationalNGOs and community-based organizations. Focal points to handle gender and GBV-relatedconcerns have not been established in and across sites. While a GBV Sub-cluster was launchedin Pretoria, this group unfortunately did not include many agencies and institutions outside ofthe UN. Recently however, civil society actors in Western Cape, with support from UNHCR, justlaunched a protection working group initiative, which will incorporate a variety of protectionissues including GBV. Emphasis on integration of gender and GBV concerns into sectoralresponse (health, water and sanitation, site coordination and management, etc.), includingthrough the UN Cluster System has been weak.Site-based Health ServicesWhile the GSA has quickly responded to the call to meet the basic health needs of IDPs, accessto reproductive health services designed to meet the needs of women and girls, includingresponse to sexual violence within IDP sites is extremely limited. The basic primary health careresponse is quite strong in Gauteng, yet on-site services in Western Cape remain highlyinconsistent. In several sites condoms are not widely available even when basic health servicesare provided, and in some sites there are no health services provided at all, and individuals haveto leave the CoSS to obtain services. This is concerning given the anxiety that many womendemonstrate about their level of safety and security outside of the sites. In a few sites inWestern Cape, mobile clinic services are only provided twice a week. Of all the sites visited,where it was possible to meet with health care providers, none had adequate medical servicesavailable on-site to respond to an incident of sexual violence. Despite the provision of STItreatments in some sites, the majority of the sites do not administer post-exposure prophylaxis(PEP) or emergency contraception (EC). In some sites, access to basic contraception is notavailable, and access to any services not available on site requires that an individual would haveto be taken by ambulance to the nearest hospital. In both provinces, but especially in Gauteng,Médecins Sans Frontières (MSF) has also been providing mobile clinic outreach services on aweekly basis.Additionally, referral systems for sexual violence services, if existent at all, are largely unknownto women and girls living in the sites. Overall, women and girls demonstrated limitedawareness about where to report and the need to report within 72-hours to receive PEP toprevent the transmission of HIV. Thus, despite the fact that there are a range of very strong offsiteservices available to respond to sexual violence in South Africa, few women and girls areknowledgeable about how and where to obtain these services.Site-based Psychosocial ServicesPsychosocial actors, especially local and international NGOs have been very quick to roll-outservices to meet the psychosocial needs of both adults and children living in the sites. However,in many sites, especially in Western Cape the availability of these is rarely known about amongbeneficiaries. In Gauteng, agencies such as the Art Therapy Centre, the Center for the Study ofViolence and Reconciliation (CSVR), Curriculum Development Trust, Global Relief, MSF,National Children Violence Trust (NCVT), Refugee Aid Organization (RAO), Refugee ChildrenProject (RCP), Save the Children (SC), and Sophiatown Community Psychosocial Support havebeen providing mostly general psychosocial support. Some of these agencies, but not all havespecific expertise in responding to sexual violence. In Western Cape, the GSA Department ofGBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200818

Social Development (DSD), the Trauma Center and Rape Crisis have been active in the provisionof psychosocial support services and response to cases of GBV that have been reported.However, these services are usually provided on an on-call basis due to limited resources. Theon-call nature, the small number of individuals residing in some of the sites, and the limitedspaces allocated for people to privately meet to discuss issues of concern may compromise theconfidentiality of these services.8. Site-specific Findings: Highlights from Gauteng and WesternCapeThe following summary of findings is structured around the following topic areas: sexualviolence during the xenophobic attacks and sexual violence and sexual exploitation among theencamped populations, and other gender and GBV-related concerns among the displaced.A. GautengIn Gauteng, the assessment was conducted in five of the largest IDP sites: Boksberg, DBSA,Klerksoord/Akasia, Rand Airport, and Rifle Range.1) BoksbergSexual violence and exploitation• Several women reported that they knew that women had suffered sexual violence duringthe attacks.• Women reported that they would be unlikely to report cases of sexual violence becausethey are afraid of being deported. They also underscored that they were initially afraid ofgoing to an IDP site for the same reason.• One woman in the site reported that an alleged rape had been reported last week.Other Gender and GBV Concerns• Women mentioned that they have “fears at night [living in the site] as women, younever know what might happen.”• Not having a source of livelihood anymore was mentioned by women as a security issuein this site.• That the security guards are known to drink at the sight was also highlighted as asecurity concern for women.• Women reported that they bath in their tents for security purposes.• Insufficient lighting was also discussed as a security issue.• Toilets are not disaggregated for men and women in this site.• Women highlighted the need to have spaces to discuss and do things together so thatthey are not so idle.Prevention and Response EffortsPrimary health care services are provided through the Gauteng Department of Health and MSF.Cases of sexual violence are referred to the BBH hospital. SC, through RAO and RCP are settingup a child friendly space and monitoring the implementation of child protection protocols inthis site.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200819

2) DBSASexual violence and exploitation• No reports of sexual violence occurring in the site were mentioned, but one womanspoken to reported that she knew that sexual violence had taken place during the attacks.Other gender and GBV concerns• Alcohol use was noted as a potential contributing factor for domestic violence in the site.• When asked about having female leadership on the site committee, one of the siteworkers mentioned that women do not want to be involved. Currently there are only twowomen and twelve men on the committee.• Women noted concerns about the loss of their livelihoods in this site.Prevention and response effortsThere are no specific services for GBV available in the site. In the event of a medical emergencythe site managers contact the Disaster Management Call Center for assistance. The Departmentof Social Development sends social workers to the site periodically, and MSF provides its mobileoutreach services for primary health care three times a week.3) Rand AirportNature and scope sexual violence and exploitation• Several women reported that sexual violence was a part of the xenophobic attacks.• Women reported that threats of sexual violence were used to scare women from theirhomes, and there were cases of rape as well.• Service providers in this sight articulated that they think many cases of sexual violencetook place during the attacks, but that women are afraid to access support due tomistrust of service providers.Other gender and GBV concerns• Women and service providers working in the site spoke of domestic violence as an issueof concern in the site, especially when men are drinking.• One woman reported that a drunk man had tried to enter her tent recently, and that shehad to call out for help.• Women reported feeling comfortable to access the government health services at the site,but that they would not go to the police for assistance.• When asked if a woman would be likely to report an incident of sexual violence, womennoted that in general, “women would be scared to talk.”• Women reported that they often bath in their tents for safety.• The toilets are not marked and separated for men and for women/children in the site,but women mentioned that separating them would be a good idea.• Women reported that they “lost everything” and that they have major concerns abouthow they will be able to provide for their children in the future.• Site residents who have tried to return have been exposed to xenophobic attacks.Women have been verbally and physically abused during these attacks.Prevention and Response EffortsThe Gauteng Department of Health, provides primary health care services in the site fromapproximately 9am-3.30pm Monday-Friday. While they do provide family planning servicesand treatment for STIs, they refer cases of sexual violence to Jameson Hospital for medicaltreatment and to MSF for counseling.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200820

Global Relief also provides psychosocial support services in this site, their staffs have receivedbasic introductory training on working with survivors of GBV. So far, 40 people from the sitehave been trained in the basics of psychological first aid.4) Rifle RangeSexual violence and exploitation• Both women and service providers working in this site report that they have heard ofnumerous cases of women being sexually assaulted by both single and multipleperpetrators (as many as six) during the attacks, but that women were highly unlikely toaccess services because they were concerned about their children at that time, andbecause many non-nationals do not trust service providers.Other gender and GBV concerns• Women in the site reported that the toilets are not safe in the site, and that there havebeen several incidents when men have tried to force their way into toilets that are beingused by women.• Sexual harassment was reported as a concern. One woman said: “men are alwayscalling young girls here.”Prevention and Response EffortsPrimary health care services are provided through the Gauteng Department of Health and MSF.Cases of sexual violence are referred to the nearest hospital. SC, through RAO and RCP weresetting up a child friendly space and monitoring the implementation of child protectionprotocols in this site, until the site was closed. Psychosocial support was being provided bySophiatown Community Psychosocial Support.5) Klerksoord/AkasiaNature and scope of sexual violence and exploitation• Discussions with women in this site revealed several reports of how women had beenraped during the attacks.• One case of rape has been reported in this site.• Two women noted that they know that women/girls are having sex for food, but “no onewill ever tell you about it.”Other gender and GBV concerns• Women reported lots of concerns related to the provision of health services in the site.They noted that they are often treated poorly by the site health service providers, andwhen there is a complicated medical concern they reported being taken by an ambulanceto the hospital, but then being left to find their way back to the site.• Women reported that “there is no order” to the food distribution, however, during thesite visit the site residents were holding a food strike.• Women reported that they do not feel safe in the site, and that they feel especially unsafeoutside of the site fencing perimeter. One mother and daughter reported that they hadbeen threatened by outside community members recently when they left the site tocollect firewood.• Despite the police patrol of two metro police that were present at the site, womenreported that they could not report incidences of violence to the police due to high levelsof distrust.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200821

• At the site people were living in large green tents with numerous families. Lack ofprivacy was noted as problematic by both males and females in the site.• The toilet facilities (ablution boxes) were not separated for men and women andchildren, and the makeshift shower facilities do not allow individuals to lock them fromthe inside.• Many people in the site reported that they do not feel safe going back to their originalcommunities in South Africa.• Woman voiced concerns about loss of livelihoods, and not knowing what is next for themand their children.Prevention and Response EffortsPrimary health care services are provided through the Gauteng Department of Health. There isa mobile clinic that stays on the outside of the site fencing. Cases of sexual violence are referredto the nearest hospital. Save the Children (SC), through Refugee Aid Organization (RAO) andthe Refugee Children Project (RCP) are setting up a child friendly space and monitoring theimplementation of child protection protocols in this site.B. Western CapeIn Western Cape, the assessment was conducted in six of the largest IDP sites: Bluewaters,Harmony Park, Salomon Mahlangu, Silverstroom, Soetwater, and Youngsfield.1) BluewatersSexual violence and exploitation• Women reported that sexual violence had been used as a tool to dispel women from theircommunities, and they reported that they knew many women who had been sexuallyassaulted during the attacks that the police did not try to protect.• Two attempted rape cases, one against a ten-year-old and one against a fourteen-yearoldhave been documented at the site.• One adolescent girl in the site described how she no longer feels safe in the site since aman tried to enter her shower stall.• Women reported that there have been two attempted cases of rape in the toilet facilities.• The South African Human Rights Commission has also received reports of sexualharassment in and around the toilet/bathing facilities.Gender and other GBV concerns• Women reported that they are often not involved in decision-making at the site,currently there are no women are on the site leadership committee.• Overall women reported that the site is very overcrowded and that they do not feel safe.• Single men were identified as problematic and that they often “want women by force.”• Adolescent girls noted that the lighting is “not ok” in the site, it flashes on and off or isoften too dim.• Not being able to lock toilets from the inside was mentioned as a security issue forwomen/girls in the site.• Women reported that they “fear men around the toilet areas”, and that some of thetoilets are not separated for men and for women/children.• The perimeter of the site is not secure; the fencing does surround the entire site. Womenmentioned that the police normally only monitor the entrance to the site, but not theperimeter.• When asked about accessing health care services from the site, one woman reported thatwhen she left the site a health care worker said to her: “what are you still doing here, weGBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200822

are going to give you an injection that will kill you if you do not leave.”• Another woman noted that when she was dropped off at the hospital by the ambulance,she was refused care.• Domestic violence was reported as a problem in the site.• Privacy was mentioned as reason for insecurity at the site. Very large tents are used toaccommodate very large numbers of individuals and families.Prevention and ResponseFree government health services are said to be provided twice a week through mobile clinicoutreach for primary health care. These services do not include services for reproductive health,including services for sexual violence, and these services are not widely known about by siteresidents. Like in most sites in the Western Cape, in the event that there is a medicalemergency, transport is often provided through an ambulance service, but transport is notprovided upon discharge. Psychosocial services are being provided by the Trauma Centerthrough the assessment of vulnerable individuals and group work with men.2) Harmony ParkSexual violence and exploitation• Women in this site reported that sexual violence was a part of the attacks.• One case of attempted rape has been documented at the site. Rape Crisis was called andduring the visit they were said to have also provided counseling to 17 other women.Gender and other GBV concerns• Women reported incidents where men have tried to open the toilet and bathing facilities.In the brick toilet/bathing structures on the site it is not possible to lock many of thedoors from the inside, making it difficult for women and girls to secure themselves.Women said that all of the toilets should be separated for men and for women/children(currently some of the ablution boxes are not gender disaggregated), and that thelighting should be improved.• Domestic violence was noted as a problem in the site, and alcohol abuse by men wasreported as a security issue for women. Women mentioned that drunkenness andfighting over food by men in the site was mentioned as something that makes the womenuncomfortable.• Lack of privacy in the site was also underscored as a security issue for women in the site.At this site, very large tents are used to accommodate over 50 people. Womenthemselves suggested that families should be accommodated together and that any singlemen or women should be placed in tents allocated for either men or women only. Singlewomen mentioned having to live in tents with single men as a security risk. Womenmentioned that they often have to change their clothes in the toilets for privacy.• Women reported that men in the site often sexually harassment women by saying“indecent things.” One woman mentioned that “they often try to grab you and kiss youand even rape you.”• Focus group discussants mentioned that men often go to the ladies toilets.• In this site, many of the toilets/bathing facilities inside of the brick buildings are notsecurable from the inside.• When asked about obtaining services for sexual violence, women reported that they didnot know anything about these services.• Women reported that they have not received sanitary pads in over three weeks in thissite. Soap was also noted as lacking in the site (both for laundry and for body hygiene).• Women mentioned wanting to be able to engage in activities to help occupy their minds.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200823

3) Salomon MahlanguSexual violence and exploitation• Women reported that they had heard of cases of sexual violence that took place duringthe xenophobic attacks.Gender and other GBV concerns• Women mentioned overcrowding as a security concern for them.• Alcohol abuse was acknowledged as a contributing factor to violence and abuse ofwomen by men in the site.• When the site was visited the inside toilets/bathing facilities were not working, sowomen were forced to use ablution boxes outside of the center that are placed near ahighway without lighting and fencing.• The relationship between the residents of this site and the police is very poor. Womenstated that they receive threats from both the community and the police, including theBabanani.• Distributions were characterized as being very chaotic in this site, and the distribution ofsanitary pads were mentioned as insufficient in this site.• Women also mentioned that health services were difficult to obtain, as they have to leavethe site to access them. Two cases of a pregnant woman being refused care because theydid not have documentation were mentioned.Prevention and ResponseThere are no on-site health facilities available, but IDPs can access community-based healthcare services. Specialized sexual violence services are available in Site B Day Hospital,Khayelitsha through the MSF-run Simelela services, but women/site workers are not familiarwith this facility.4) SilverstroomSexual violence and exploitation• Women in this site mentioned that they had barely escaped rapes themselves during theattacks and that they knew of women who had been violated (e.g. one woman in thegroup had a sister who had been raped).• Women stated that they would not go to the police for cases of sexual violence becausethey are “known as people who do not belong here” by both the community and serviceproviders.• As foreigners in South Africa, women reported that they cannot rely on police to solvetheir problems. They are often told by police themselves, “you should go back to whereyou came from.”• Women reported that the bathroom facilities are not safe, that there had been cases ofattempted rape in the bathrooms. While there are some brick structures allocated formen and for women, men frequently enter the women’s area, one woman noted: “If youcry out no one will hear you. The toilets are far.”• Men’s lurking around/looking into the windows of the female bathing/toilet facilitieswas highlighted as a security issue by women.• Men working in the site (e.g. those providing security or cleaning services) often proposemoney to women in exchange for sex.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200824

Gender and other GBV concerns• Women mentioned lack of privacy as a major problem in this site.• Single women are also forced to sleep in the same tents as single men.• Women reported that domestic violence was a problem in the site.• Women voiced many concerns about loss of livelihoods. Most women in the focus groupdiscussion in this site had some sort of income before the attacks which is not gone (e.g.having their own hair salon, selling goods in a market etc.).• Respondents stressed that the voices of women were largely unheard in this site.Currently the site leadership committee is composed of six men and two women.• Women reported that health care services were very inconsistent in the site, and if youare sent out by ambulance for hospital services you have to find your way bay to the site,which often forces people to have to beg for money.• There are remarkable levels of mistrust between site residents and those working in thesite. Treatment by police was reported as bad.• Distribution processes were characterized as being very untransparent.• Women reported being stuck in the reality of “not knowing what will happen next. Weare always waiting for something to happen. We fear for our children most, what willhappen to them?”Prevention and ResponseThere are health clinic facilities available at the site twice a week, however, these services werereported as being very irregular. Women reported very low levels of information on what kindsof services are available to them at clinic. No services for sexual violence are available. TheTrauma Center was said to visit periodically to provide psychosocial support.5) SoetwaterSexual violence and exploitation• Both women and men recognized sexual violence as part of the xenophobic attacks,through both actualized violence and threats of violence. Multiple women noted eitherexperiencing sexual violence themselves or that they knew someone who went throughthis type of violence.• Several women said rape was commonly perpetrated against non-nationals before theattacks. Women in this site feel that rape is perpetrated against them “because you are aforeigner.”• One woman recounted an incident of rape where she was violated by four men duringthe xenophobic attacks in front of her children. She stated that she did not get healthservices because the experience was so difficult, and she did not go to the police becauseshe did not think that they would help her.• Women noted that a woman, especially a “Somalian woman, would never tell [that shehad been raped].”• Women reported several incidents of attempted sexual violence and abuse in and aroundthe toilet facilities.• Many women in this site feel hopeless and without a place to go. As one woman noted:“We are not safe here, we are here because we fled the war. Many of us were raped inour countries. We came here because there was war. We can’t go home, and we camehere and have now been humiliated all over again as women.”Other Gender and GBV concerns• One woman in this site recounted her experience of being robbed and severely beatenduring the attacks. She reported that when she tried to get help from the police, theyGBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200825

efused to assist her.• Women reported that it is difficult to access health services as a foreign woman, “theyhelp other people, but you sit for a long time because you do not speak the language.”They also noted that security services are also difficult to access because they are oftendiscriminated against by the police who sometimes refer to them as “kwere-kwere.”• Women and young girls reported that they do not feel safe in the site, and that they feelvery uncomfortable around the police.• In terms of playing a role in the leadership process in the site, the women do not feel as ifthey do even though there are some women on the site leadership committee.• Toilets are not separated for men and for women/children.• Women reported that men sometimes try to push their way into the toilets when they areusing them.• Women in this site recounted examples fears and sadness for their children in SouthAfrica. One woman explained how sad it has made her over time living in South Africa tohear how her children are treated by their peers at school.• Adolescent girls in this site also reported feelings of sadness due to the way that they aretreated as foreigners at school by both their teachers and peers. One girl mentioned thatteachers often call them by the name of their country rather than by their name.• Sanitary supplies including pads, soap and underwear were said to be lacking.• The site location presents a protection concern. It is approximately 50 kilometers fromCape Town and is location right on the beach.Prevention and ResponseSite managers report that there are health facilities provided in the site on a daily basis, but thiswas not observed. Reproductive health services (including access to sexual violence services)are not available in this facility.6) YoungsfieldSexual violence and exploitation• One attempted rape has been reported in the site.• Both women and adolescent girls voiced major fear related to sexual violence.• Girls in this site reported that rape is a problem in the site, not within one nationality,but across nationalities there are problems.• When asked if they would be likely to tell anyone, the girls noted: “We are scared oflosing our dignity, if you tell someone in the site, but maybe you could talk to someonefrom outside who your secret will be safe with.”• Women reported that they would very unlikely to report cases of sexual violence to thepolice. “As a foreigner, you have nothing to say to the police. They often refuse to help,or they ask you for extra money.”• Adolescent girls in the site complained of receiving sexually exploitative offers fromindividuals coming into the sites.Other Gender and GBV concerns• Adolescent girls in the site reported that they are subjected to sexual harassment by bothsite residents and individuals working in the site. One girl noted that they “often try tograb you and take you somewhere dark.”• Adolescent girls in this site are really concerned about their futures. They do not knowwhat to expect next. Those that were going to school are afraid to go back.• Women reported that the toilet/bathing facilities are not safe, the are too far from theirtents and not separated for men and women/children. Women reported that they oftenGBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200826

prefer to use buckets as toilets in their tents rather than using the outside, unlit toiletfacilities.• Lighting around the toilet facilities was also seen as insufficient.• The site leadership committee includes eight men and two women, but women notedthat they do not play an equal role in decision-making.• Women reported that they used to receive underwear, sanitary pads and soap, but thatthese distributions have stopped.• Women reported concerns about the protection of their children and letting them go toschool. One woman mentioned that “they still call children ‘kwere-kwere.’”Prevention and ResponseHealth services were described as very irregular. During one site visit a health tent wasobserved that is clearly not used on a regular basis. One recommendation made during a visitwas to place a flag on the health tent to alert people. During two site visits made to the site, nohealth care providers were present. The Trauma Center makes visit to the site periodically toprovide psychosocial support, and MSF makes frequent site visits. TAC and the Human RightsCommission make visits frequently to monitor.9. RecommendationsThe recommendations detailed in the following chart are meant to provide an initial frameworkfor addressing and preventing GBV across sectors and levels of intervention in response to thexenophobic attacks. They are based on the multisectoral model outlined in Appendix I and thethree-tiered approach outlined below. The chart is organized into two sections; the first sectionis for both sites and integration and the second is for sites only. GBV cannot be fully addressedthrough the provision of services within a single sector, but must be addressed through acoordinated approach between the community, health, social services, legal, and securitysectors. Service providers must consider the gender- and GBV-specific needs of beneficiaries inall of the following programmatic areas:• participation• protection• capacity-building• water and sanitation• food security/nutrition and distribution• shelter/site planning and design• education• coordination• data collection and information dissemination on social integrationFor effective short and long-term prevention of violence against women and girls, interventionsmust take place at three levels, so that structural, systemic, and individual protections areinstitutionalized. These levels are:1. Primary protection/structural reform: this includes preventative measures at the broadestlevel to ensure rights are recognized and protected through international, statutory andtraditional laws and policies.2. Secondary protection/systems reform: includes systems and strategies to monitor andrespond when rights are breached. Intervention at this level includes developing and buildingthe capacity of statutory and traditional legal/ justice systems, health care systems, socialwelfare systems and community mechanisms.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200827

3. Tertiary protection/operational response: includes response at the individual level throughdirect services to meet the needs of women and girls who have been subjected to gender-basedviolence.That sexual violence was a significant part of the xenophobic attacks must be recognized in allintegration efforts. Protection of women and girls, and services and programs to meet the needsof those that have suffered violence must be prioritized. Ensuring that women and girls haveaccess to non-discriminatory and respectful services is essential to meeting the needs of nonnationalwomen and girls in the context of South Africa. The challenges that women and girlsface in obtaining the services that they need must be recognized and acted on so that services tomeet the needs of this vulnerable group can be improved and monitored over time.While more information is always needed on the magnitude of sexual violence for advocacy andprogram planning reasons, the information presented in this report makes it is clear that sexualviolence occurred during the attacks just as it has in so many other situations of civil unrestaround the world. The humanitarian community must work diligently to prevent furtherincidents of violence from taking place. Perhaps most importantly, women's voices must beheard; when they fail to access health and security services for sexual violence, the reasons mustbe understood and programming adjusted accordingly.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 200828

Recommendations for both Sites and IntegrationGeneralIntegrationIssues• Institute a policy that exempts individuals (any non-national, immigrant, refugee or asylum seeker) seekingservices (health and security) for sexual violence from any requirement to present identification. 19 A precedent forthis has been set by the Gauteng Provincial Department of Health’s (DOH) policy which exempts individualsseeking antiretroviral therapy (ART) from presenting identification.• Provide support to the relevant Government of South Africa ministries and institutions to integrate prevention ofGBV and gender equality concerns into their current emergency preparedness and response plans of action.Ensure that emergency sites are protective both in design and in service provision.• Ensure that integration efforts include widespread education aimed at prevention of GBV and ensuring survivorsknow how and where to access services.• Select integration sites based on the health, psychosocial (social welfare), security, and legal/justice services thatare available. A comprehensive mapping exercise should be done to help in this decision-making process. Servicesto address GBV should be prioritized, given how sexual violence was a common part of the xenophobic attacks. All,GBV awareness raising efforts carried out in the CoSS should be linked to local integration processes.• Make major efforts to facilitate tolerance of different nationalities among all groups of people (all ages and gender)in South Africa. Innovative approaches to foster reconciliation should be designed and carried out. To date, SonkeGender Justice has engaged in a series of football matches to bring national and non-national groups together, andChildren’s Development Trust and Molo Songoglolo have been working to promote tolerance and solidaritybetween South African children and other nationalities.• Review needs of vulnerable women and girls for resettlement options, especially those that may have experiencedmultiple incidents of sexual violence (in home country, in transit, and in South Africa). UNICEF, UNFPA andUNHCR should convene a meeting to discuss special protection measures, including resettlement, for appropriatecases, consistent with UNHCR Guidelines.• Ensure that there is allocation of community spaces for child-centered spaces, centers for youth, or communitycenters, with an emphasis on guaranteeing that survivors of GBV have access to non-stigmatizing safe shelter in allintegration areas.19 In some cases individuals are asked for a 7-digit South African identification card or a 13-digit refugee/asylum seeker identification care. No form ofidentification should be required for services. On September 19, 2007, the Gauteng DOH issued a policy for refugees/asylum seekers and services for HIV/AIDS.On April 04, 2008 they issued a follow-up memorandum stating that no one should have to show a South African identity document to access the comprehensiveHIV/AIDS care, management and treatment plan including ART.

• Make certain that appropriate arrangements are in place to address the needs of groups, including women, girls,boys, and men living with HIV/AIDS or disabilities, single heads of households, separated and unaccompaniedchildren, elderly women and men, etc during all integration efforts.Protection• Ensure that there is sufficient policing by equal numbers of male and female police staff in both IDP sites as well asin communities of integration. Mobilize communities to protect themselves through positive community policinginitiatives.• Establish a Prevention of Sexual Exploitation and Abuse Focal Point network so that there will be a team ofindividuals within South Africa ready to assist in training and capacity building.• Develop investigative procedures for alleged breaches in conduct in all sites and within government and nongovernmentagencies. Emphasis should be placed on training security personnel and site management (GSA,police, etc.). Agencies should take ownership of this so that they have their own internal mechanisms in place tohandle incidents of misconduct.• Create and disseminate Standard Operating Procedures to handle cases of GBV and other child protectionconcerns, including referral guidelines which include the fundamental health, security, psychosocial andlegal/justice sectors. Develop mechanisms to monitor, report, and seek redress for GBV violations, e.g., rape andother forms of sexual violence, exploitation and trafficking.• Routinely monitor the quality of security services to ensure the provision of respectful and non-discriminatoryservice.Training andCapacityBuilding• Train relevant local and international NGO and government staff in the essentials for addressing GBV inemergencies (IASC Guidelines on Gender-based Violence Interventions in Humanitarian Settings) as well asdesigning and implementing gender-sensitive services through site planning, water/sanitation, food, nutrition,and shelter programs (IASC Gender Handbook in Humanitarian Action).• Ensure that all volunteers and local and international NGOs, government, and UN staff (including all site workers)are trained on the prevention of sexual exploitation and abuse and codes of conduct.Health andcommunityservices• Ensure that there are non-stigmatizing, culturally relevant community-based psychological and social support inplace for all individuals, but especially survivors of violence. Both site-based and community psychosocial serviceproviders should try to base their service provision efforts on the IASC Guidelines on Mental Health andPsychosocial Support in Emergency Settings. Site residents in many sites demonstrate a variety of differentGBV Assessment: Response to the Xenophobic Attacks in South Africa, July 2008 30

mental health and psychosocial support needs. Basic services should be established in participatory, safe andsocially appropriate ways that protect people’s dignity, strengthen social support. Mass communication onconstructive coping methods, activation of social networks through women’s and youth groups will also be helpful.• Ensure that the most vulnerable (female single headed households, those with disabilities etc.) have access tolivelihood programs. Women’s and girl’s access to livelihood programs should be routinely monitored throughspot checks and discussions with community members, especially women. Vocational training and non-formaleducation programs should target the specific needs of adolescent girls and boys and provide them with practicalskills that they can use, including non-traditional skills.Education• Ensure that both boys and girls have access to safe and developmentally appropriate education activities.• Ensure that all teachers are trained on the prevention of sexual exploitation and abuse, and have signed a code ofconduct.• Guarantee equal numbers of girls are involved in child/youth participation activities.Coordination• Re-launch the GBV Sub-cluster: introduce coordination mechanisms for prevention and response programming atthe provincial levels and ensure their linkages with existing national coordination mechanisms such as Networkson Violence Against Women in Western Cape and KwaZulu-Natal. Ensure that GBV prevention and response is astanding agenda item in the recently launched Protection Working Group in Cape Town. Terms of Referencemight focus initially on response to the xenophobic attacks and site-specific services, and then on integrationprocesses.• Conduct a mapping exercise to identify how services to respond to GBV in the CoSS and in potential integrationcommunities can be provided and how awareness-raising can be conducted and linked to local integrationprocesses.• Conduct a one-day workshop with Ministry of Health officials, WHO, UNFPA, UNHCR and UNICEF to discussreferral of GBV cases in all areas of the country where there are persons affected by xenophobic violence and inMusina and to ensure proper distribution of and training in use of PEP kits and EC for health care personnel;ensure that the proper management of PEP and EC for children and young girls is clear.Datacollection• Guarantee that data on demographics, mortality, morbidity, and health services are routinely collected and aredisaggregated and reported by age and sex and a gender analysis is applied. Data collection for any program (e.g.food distribution, shelter etc.) should be sex-and age-disaggregated.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 2008 31

• Ensure that women and girls play central roles in all participatory assessment activities. These activities should beon-going to assess the impact of the xenophobic attacks on all site residents, but especially on women and girls.• Create a data collection system for GBV including rape and other forms of sexual assault at the local and nationallevels, with care to preserve the confidentiality of individuals.Information,Communication andEducation• Involve women, youth and men in the development of culturally appropriate messages in relevant languages asneeded so that community members can be informed about site-based and community GBV services.• Make sure that there are on-going information and awareness activities for men and women about the health risksof sexual violence, and on where and how to access supportive services.• Ensure that communication strategies are developed and implemented to highlight the specific health risksaffecting women and men, as well as targeting adolescent girls.Site-specific RecommendationsParticipation• Ensure that the voices of women and girls are incorporated in a meaningful way into all site-related issues, andthat women and men take part equally (in numbers and consistency as provisions must be made to ensure theiractive participation) in decision-making and planning. There should be 50% participation of women in sitegovernance meetings. Emphasis should also be placed in ensuring that site leadership structures arerepresentative of all nationalities in the sites.• Engage site residents (men, women, girls and boys) in a review of site-based strengths and resources and positivecoping mechanisms that can be used to promote GBV prevention and response.• Guarantee that information and awareness-raising about site management and other site issues (especiallyregistration and integration) are provided equally to women, girls, boys, and men, and ensure that information isdisseminated through the most appropriate means. Adopt measures to ensure that messages can flow freely to allgroups so that meaningful dialog can be fostered, e.g., create situations where women can receive information andask questions among women only. Establish Q and A session with UNHCR regarding questions on registration forthose with refugee/asylum seeker status on a weekly or bi-weekly basis if possible.• Ensure that women, girls, boys, and men have equal access to all site services and assistance.• Ensure that support is provided to women and adolescent girls and boys to strengthen their leadership capacitiesGBV Assessment: Response to the Xenophobic Attacks in South Africa, July 2008 32

and facilitate their meaningful participation. The common excuse that women from certain cultures do not wantto participate in leadership activities should not be allowed. Steps should be taken to facilitate and ensure theirparticipation and also to protect them throughout the process.• Ensure that sustainable structures/mechanisms are established for meaningful dialog with women, girls, boys, andmen. IDP site beneficiaries need space to discuss the issues that affect them as women, men and youth. Thedevelopment of women’s and youth groups should be considered.Protection• Disseminate common site-based Codes of Conduct to all site workers (volunteers, government, NGO, UN etc.) andensure that the codes of conduct are understood and signed by each person that comes into contact withbeneficiaries in the site. These Codes of Conduct should adhere to basic principles related to the prevention ofsexual exploitation and abuse by humanitarian workers 20 ,e.g., site mangers, government works, police, securitypersonnel, NGO staff, etc.• Ensure that all site offices/work sites (health clinics, child friendly spaces, distribution areas, etc.) are monitoredand instances of discrimination or GBV are addressed promptly.• Ensure that IDPs are trained on protection and response to sexual violence.• Ensure that there is a comprehensive understanding of the specific risk factors faced by women and children (girlsespecially) in all sites and that this analysis is incorporated in security provisions within all sites e.g., appropriatelighting in areas frequently used by women and girls, sex-disaggregated toilets etc.• Engage site residents, especially women and girls, in weekly safety and security audits so that protection strategiescan be redefined as needed in the evolving humanitarian situation.• Require all site security personnel and other volunteers/service providers to wear attire that can be easilyidentifiable, e.g., marked jacket, organization t-shirt, so that people know where to seek help.Training andCapacityBuilding• Ensure that all site residents know what GBV and SEA are, and that all humanitarian assistance is provided free ofcharge. Tap into leading organizations in South Africa with experience working on GBV (CSVR, POWA, SonkeGender Justice, et.al.) to facilitate these efforts.20Standards should be based on the Secretary General’s Bulletin on Protection from Sexual Exploitation and Abuse by UN Staffand Partners.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 2008 33

• Make certain that equal numbers of female and male site beneficiaries participate in all site-based trainings.Water andSanitation• Guarantee that all sanitation facilities are accessible to women and girls. Engage women and girls in all design andmonitoring activities related to water and sanitation to ensure this. This will be especially important in all siteconsolidation efforts.• Ensure that any obstacles to equal and safe access are addressed promptly and in collaboration with women andgirls.• Ensure that communal toilet/bathing cubicles are separated from those of men and boys, that they are in safelocations with lighting and that they are culturally appropriate and secure (with locks on the insides). Engagewomen and girls in all design and monitoring activities to ensure this.Foodsecurity/nutrition, food andnon-fooddistribution• Ensure that women and girls are involved in any participatory assessment activities aimed to gather informationrelated to the design of all food security/nutrition and NFI distribution procedures. Women’s and girls' access toservices should always be routinely monitored in a participatory fashion.• Ensure that monitoring takes place through spot checks and discussions with women and girls. Inequities shouldbe addressed promptly.• If individuals are allowed to prepare their own food, make certain that sufficient water and alternative fuel forcooking is provided in order to mitigate the risk of sexual violence during collection of these necessities (fire woodcollection was noted as only taking place periodically in one site: Kleerksoord/Akasia). Or, if need be, ensure thatwhen women and girls have to leave sites to collect these essentials, they go in organized groups with trainedsecurity accompaniment.• Make sure that women and girls are not forced to gain access to food and non-food items exclusively from men.Guarantee that food and NFI distribution is done by sex-balanced teams.• Ensure that positive measures are adopted to redress and discriminatory issues related to the allocation of foodresources (ensure that children under 5, the sick or malnourished, pregnant and lactating women, and othervulnerable groups are given priority for feeding).• Make certain that access to clothing, blankets, bedding and sleeping mats is equal among females and males. Theprovision of blankets and other bedding items should be sufficient to allow for separate sleeping arrangements asrequired.GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 2008 34

• Guarantee that women and girls have continuous access to sanitary materials (including sanitary pads formenstruation, soap, washing powder and underwear).Shelter, siteplanning anddesign• Ensure that there is allocation of space in all sites that can be used as child-centered spaces, centers for youth, orcommunity centers, with an emphasis on guaranteeing that survivors of sexual violence have access to nonstigmatizingsafe shelter.• Avoid problematic site design/logistical situations including: forcing women and girls to bathe after dark; poorlylit facilities and pathways; inability to latch doors from the inside; men’s and women’s facilities located too closetogether, facilities not clearly marked (for males and females), or facilities located too far from shelter structures.• Ensure that equal numbers of females and males are involved in the design of new consolidation sites.• Guarantee that overcrowded living arrangements are avoided (large tents with many people), as they can makewomen and girls vulnerable to sexual violence and abuse. Single men and women should be housed separately.Any unaccompanied minors should be housed with trusted individuals. Unaccompanied minors and singlewomen should receive extra protection monitoring services.• Ensure that safety of shelter is routinely assessed with participation of women and girls.Health andcommunityservices• Ensure that all site-related health care facilities have basic infrastructure, with equipment, supplies, drug stock,space, and qualified staff to provide reproductive health services, including sexual violence (especially theprovision of PEP and EC), delivery and emergency obstetric care services (as indicated in the MISP). Both sitebasedresidents and host communities should have access to health facilities with health staff trained in addressingthe needs of GBV survivors, based on South African Department of Health policies and guidelines. Site residentsshould have access to free safe 24-hour sexual violence services. The quality of services should be monitored toensure that services are provided in a respectful and non-discriminatory manner.• Ensure that all site-based programs are monitored for possible negative effects of changes in power relations (e.g.rise in domestic violence as a reaction to women’s empowerment).GBV Assessment: Response to the Xenophobic Attacks in South Africa, July 2008 35

Health andcommunityservices• Ensure that all site-related health care facilities have basic infrastructure, with equipment, supplies, drug stock,space, and qualified staff to provide reproductive health services, including sexual violence (especially theprovision of PEP and EC), delivery and emergency obstetric care services (as indicated in the MISP). Both sitebasedresidents and host communities should have access to health facilities with health staff trained in addressingthe needs of GBV survivors, based on South African Department of Health policies and guidelines. Site residentsshould have access to free safe 24-hour sexual violence services. The quality of services should be monitored toensure that services are provided in a respectful and non-discriminatory manner.• If the sites are to exist for several months, ensure that livelihood programs are eventually developed ensuring thatthey do not discriminate against women or men. Women’s and girl’s access to livelihood programs should beroutinely monitored through spot checks and discussions with community members, especially women. Vocationaltraining and non-formal education programs should target the specific needs of adolescent girls and boys andprovide them with practical skills that they can use, including non-traditional skills.• Ensure that all site-based programs are monitored for possible negative effects of changes in power relations (e.g.rise in domestic violence as a reaction to women’s empowerment).

Appendix 1The Interagency Working Group published a Field Manual on Reproductive Health in RefugeeSituations, which articulates a standard set of actions, known as the Minimum Initial ServicePackage (MISP), that need to be carried along with other emergency response efforts. Theimportance of the MISP was reinforced by its inclusion in the 2004 edition of the Sphere ProjectHumanitarian Charter and Minimum Standards in Disaster Response. The MISP emphasizes theprevention and response to sexual violence in emergencies, along with the prevention of maternalmortality and preventing HIV transmission, as the most essential reproductive health interventionsin crisis situations. (MISP Fact Sheet Hhttp://www.rhrc.org/pdf/fs_misp.pdfH)In 2003, UNHCR disseminated Sexual and Gender-based Violence against Refugees, Returnees,and Internally Displaced Persons: Guidelines for Prevention and Response which is considered tobe one of the ‘best practice’ models for response to GBV in conflict-affected settings. Programmingexperiences from the field have revealed that no single sector or agency can adequately address GBVprevention and response. The United Nations High Commissioner for Refugees and other agencieshave recognized that “at minimum, [services to address gender-based violence must] be the outcomeof coordinated activities between the constituent community, health and social services, andlegal/justice and security sectors (IASC 2005 p. 17).” The multi-sectoral model calls for holistic interorganizationaland inter-agency efforts, across the health, social services, legal and security sectors.These efforts must promote participation of the constituent community, interdisciplinary and interorganizationalcooperation, and collaboration and coordination among sectors.(www.rhrc.org/pdf/gl_sgbv03.pdf)In 2005, the IASC produced Guidelines for Gender-based Violence Interventions in HumanitarianSettings: Focusing on Prevention of and Response to Sexual Violence in Emergencies. Theseguidelines describe the minimum standards that must be implemented by the humanitariancommunity within and across the sectors of: health, water and sanitation, shelter, and site planning,etc.) to prevent and respond to sexual violence throughout the phases of humanitarian response.(Hhttp://www.humanitarianreform.org/Default.aspx?tabid=657H)In 2006, the IASC introduced a the Gender Handbook in Humanitarian Action: Women, Girls,Boys, and Men, Different Needs – Equal Opportunities, which provides field actors with guidanceon: gender analysis, actions to ensure that the unique needs, contributions and capacities of women,girls, boys and men are considered at all levels of humanitarian response. This guide is ofparamount importance in how it assists various actors to recognize how “addressing sexual violencerequires understanding the underlying gender inequities that are at its core.”(Hhttp://www.humanitarianreform.org/Default.aspx?tabid=656H)This section has been largely adapted from the Rapid Assessment of Gender-based Violence inKenya During the Post-election Violence Report, Jeanne Ward, Jody Myrum and Mendy Marsh,Jan-Feb 2008.

Appendix IIName 21 Organization Contact InformationAlthea JacobsGDOHPriscilla Khaba GDOH 0714351452Philip Coetzee Global Relief 0795241485grfvusa@gmail.comJohanna Kistner Sophiatown 0116731473Monica Bandeira CVSR 0114035102Elliot Moyo MTHWAKAZI ARTS 0837660020Dr. Elizabeth Kaye- GDOH 0823016756PetersenBuks Burger Rifle Range Manager 0828516820Carrene SarkinRegional Shelter Operations0822177713CoordinatorSharon Follentine DSD 0833241279Patrick Solomons 0216850833 082330849Patrick@molo.org.zaRobert Prince DSD 0836260115Lawyers for Human Rights 0123202943Jonathan Whittal MSF 0737050583Dr. Eric Goemaere MSF 0823329712Nontobeko Nfime ADAPT (011) 885 3305Miriam Matshavha GDOH 0113555589Angelica Pino Davis CSVR 0114035650Shirialee McDonald RAPCAN 0217122330info@rapcan.org.zaCari Shelver POWA carrie@powa.co.zaCharolotte Schaer Curriulum Development Trust 0823361237Tamlyn Monson Wits University tamlynmonson@gmail.comDean Peacock Sonke Gender Justice Network 0113393589Brenda da SilvaCity of Cape Town Social DevelopmentServices02191820150782709755Dr. Genine JosiasSr Ntuthu NtwanaSimelela 0213610543simelela@mweb.co.zaKing Kone NPA KingKone@npa.gov.zaJavu Baloyi Commission on Gender Equality 011 403 7182083 579 3306Jessica Chaix Save the Children 0742624956jessicachaix@yahoo.frAnna ByrantSave the ChildrenIngrid Palmary Wits University ingrid.palmary@wits.ac.zaJoyce Dube SAWIMA 072 687 0876Claudia Serra RAO 0727853959Claudia@sa-rao.orgRape Crisis 21 447 146721 Some individuals spoken to did not want their name to be listed.