Executive Summary
The target audience for this policy paper is the leadership of the African Union (AU) and policymakers responsible for refugee protection and responses to gender-based violence. Currently, the AU acknowledges refugee rights but lacks a comprehensive strategy for addressing sexual and gender-based violence (SGBV) in the Dadaab Refugee Complex. The existing approach relies on UNHCR and international NGOs to provide interventions, but these efforts are fragmented and often constrained by limited resources and weak enforcement mechanisms.
A shift in policy is necessary due to the persistence of SGBV cases, the inadequacy of legal protections, and ongoing funding shortfalls. Three policy options are considered: maintaining the status quo and relying on international aid organizations; strengthening AU-led intervention through legal, economic, and community-based strategies; or working with the Kenyan government to integrate Dadaab into its national refugee protection framework. While maintaining the current approach ensures continuity of existing services, it lacks sustainability and limits regional leadership. Integration into Kenya’s national policy would promote long-term accountability, but faces political resistance and practical challenges. The best action is an AU-led intervention that mobilizes regional actors to implement a comprehensive SGBV prevention strategy, strengthen legal reforms, and promote economic empowerment for refugees. This approach ensures sustainable funding, enhances regional stability, and strengthens protections under an African-led framework.
Background
The Dadaab Refugee Complex in Kenya is one of the largest refugee camps in the world, hosting approximately 385,328 registered refugees and asylum-seekers, primarily from Somalia, South Sudan, and Ethiopia. Established in 1991 to accommodate Somali refugees fleeing civil war, the camp has since grown significantly, placing immense pressure on available resources and infrastructure. Overcrowding, economic hardship, and limited access to education and healthcare exacerbate vulnerabilities, particularly for women and girls who face increased risks of SGBV.
A UNHCR study conducted in June 2015 reported 533 cases of SGBV within Dadaab, compared to 623 cases documented during the same period in 2014. However, actual numbers are likely much higher due to underreporting driven by stigma, fear of retaliation, and lack of trust in law enforcement. Refugees in Dadaab often come from conservative communities where rigid gender roles prevail, normalizing violence against women and discouraging survivors from seeking justice. This culture of silence perpetuates cycles of abuse, making it difficult for victims to access the support and resources they need.
Poor living and housing conditions further exacerbate the risks of SGBV. The camp’s shelters are overcrowded and inadequately secured, providing little privacy or protection for women and girls. The lack of adequate policing and security personnel means that many perpetrators act with impunity. Economic hardship fuels transactional relationships, where individuals may engage in exploitative or abusive situations to obtain necessities like food, water, and shelter. The absence of educational and employment opportunities for refugees, especially women, further limits their ability to achieve economic independence and escape abusive conditions.
Despite the critical need for intervention, SGBV response mechanisms in Dadaab remain inadequate due to funding shortfalls and policy gaps. While the Kenyan government permits international humanitarian assistance in the camps, international humanitarian assistance organizations are limited in their capacity to enforce comprehensive protections. UNHCR and NGOs provide crucial SGBV-related services, including medical care, psychosocial support, and legal aid. However, these programs are under-resourced, resulting in inconsistent and delayed responses. Legal and judicial mechanisms within the camp are also inadequate, with refugees facing significant barriers to reporting incidents and seeking justice due to logistical challenges, lack of awareness of legal rights, and fear of retaliation.
Addressing SGBV in Dadaab has broader implications for the stability of Kenya and the East African region. SGBV causes severe physical and mental health burdens among refugees, hampering their ability to rebuild their lives and fostering cycles of trauma that can persist for generations. The failure to protect refugees also undermines Kenya’s and the AU’s human rights and regional security commitments. Given that Dadaab has been a long-standing refugee hub, a proactive AU intervention could enhance Kenya’s capacity to address SGBV while demonstrating a commitment to humanitarian protection standards across Africa.
Policy Options and Analysis
One option is to maintain the status quo and rely on UNHCR and NGOs to lead SGBV interventions. This approach ensures existing services remain in place but does not address long-term sustainability concerns. The lack of direct AU involvement limits regional ownership of the issue, and funding constraints continue to hinder the effectiveness of these programs. Additionally, gaps in legal enforcement and survivor support services will persist without direct AU engagement, leaving many at continued risk. While this option minimizes immediate financial commitments by the AU, it does not address structural issues that perpetuate SGBV in Dadaab and thus fails to offer a long-term solution. Furthermore, the reliance on international organizations means that any reduction in donor funding could critically weaken the response infrastructure, putting survivors at even greater risk.
A second option is for the AU to lead a direct intervention in Dadaab. This strategy would involve implementing comprehensive legal, economic, and community-based initiatives to effectively address SGBV. Strengthening legal mechanisms through mobile courts and paralegal training would improve survivors’ access to justice. Economic empowerment initiatives, such as microfinance programs and vocational training, would reduce refugees’ financial dependency and vulnerability to exploitation. Community-led prevention campaigns would engage men, youth, and religious leaders in reshaping harmful gender norms and fostering a culture of accountability. While this approach requires significant resources, funding could be mobilized through AU member state contributions, earmarked grants from key international donors (e.g., the EU and Scandinavian states), and partnerships with philanthropic organizations and African diaspora communities. Although coordination and capacity-building challenges persist, this approach offers a sustainable, African-led response to the SGBV crisis by directly addressing root causes and closing the critical gaps in refugee protection. It also signals the AU’s commitment to regional humanitarian leadership and reduces dependency on external actors.
A third option is integrating Dadaab into Kenya’s national refugee policy framework. This would ensure greater legal accountability and potentially improve the livelihoods of refugees through better access to services. However, this approach faces strong political resistance from the Kenyan government and could delay immediate action on SGBV prevention. Kenya has historically expressed frustration with the long-term presence of Dadaab, and shifting full responsibility for the camp’s governance to the Kenyan government could increase tensions. Additionally, the capability of the Kenyan legal and security infrastructure to fully address SGBV in the refugee camps remains uncertain, making this option a riskier and less immediate solution. While this option may be viable in the long term, the complexities of Kenya’s political environment make it challenging to implement in the short term. Furthermore, concerns over sovereignty and resource allocation may lead to inconsistencies in enforcement, leaving refugees vulnerable to further marginalization.
A comparative analysis of these options reveals that while the status quo fails to address systemic issues and national integration presents significant political obstacles, an AU-led intervention offers the most practical and sustainable approach. This option enhances protection mechanisms by leveraging regional cooperation and mobilizing resources within the AU framework, while ensuring the long-term viability of anti-SGBV efforts.
Recommendation
An AU-led intervention is the most effective solution for addressing SGBV in Dadaab. This approach enables regional leadership, promotes sustainable funding, and ensures comprehensive refugee protection. The AU must focus on the following key areas to implement this strategy effectively.
Community-Based SGBV Prevention Programs: The AU should lead the design and funding of community-based initiatives, partnering with UNHCR and international organizations such as CARE and IRC. These initiatives should raise awareness, transform social norms, and empower survivors within Dadaab. To ensure buy-in and cultural sensitivity, these programs should involve local community leaders, women’s groups, and faith-based organizations.
Programs like the Youth Pyramid structure, which mobilizes youth as change agents in Uganda’s Adjumani Settlement, can be adapted to engage Dadaab’s youth population. By training young people in anti-violence advocacy and empowering them through creative mediums, such as music, dance, and drama, the AU can foster a culture of respect and equality within the camp. Engaging the youth as ambassadors in SGBV awareness can also help counteract stigmatization and empower survivors to seek support without fear of social repercussions.
A mobile outreach initiative modeled on Lebanon’s “Jina Al-Dar” project could further increase access to SGBV-related services. A mobile unit could travel within the Dadaab complex, providing camp residents with vital legal, health, and educational resources. Such an initiative, integrating theater and discussion, would allow messages of prevention and support to reach all demographics, foster social cohesion, and enhance the community’s understanding of SGBV. Given Dadaab’s size and logistical challenges, the mobile unit could operate on a rotating schedule, allowing for monthly comprehensive camp coverage.
Strengthening Legal and Accountability Mechanisms: Current legal mechanisms in Dadaab are inadequate for effectively addressing SGBV. To improve access to justice, the AU should collaborate with Kenyan authorities and UNHCR to establish mobile courts in Dadaab, ensuring SGBV cases are handled swiftly and fairly. Mobile courts, successfully used in other refugee settings, should be introduced to bring legal services closer to survivors who lack the resources to navigate distant and complex judicial systems. Mobile courts increase accessibility and expedite SGBV case processing, enabling survivors to seek justice without leaving the camp. To ensure effectiveness, these courts should be culturally sensitive and involve local community leaders to enhance their legitimacy and acceptance among camp residents.
The AU could sponsor training programs for paralegals within Dadaab, equipping them to provide essential legal counsel and facilitate survivors’ access to justice. Paralegals can act as intermediaries between survivors and legal professionals, explaining court procedures, collecting testimonies, and guiding survivors through the legal process. This approach can also address systemic barriers by involving community members who understand the local context and can effectively advocate for survivors in culturally sensitive and appropriate ways. To address perpetrators, AU support could replicate programs like Uganda’s community-based rehabilitation for offenders, focusing on reintegrating rehabilitated individuals into camp society while reinforcing SGBV prevention norms.
Economic Empowerment Initiatives: Economic dependence is a significant factor that exacerbates vulnerability to SGBV among women and girls in Dadaab. The AU should collaborate with NGOs, such as the IRC, and financial institutions to implement microfinance and vocational training programs for refugees, particularly women and young people who are often excluded from traditional banking and employment options. The AU could adopt elements from South Africa’s Intervention with Microfinance for AIDS & Gender Equity (IMAGE), which combines microfinance with gender equality training. By providing small loans and financial literacy education to women in Dadaab, the program can promote both economic self-reliance and an understanding of gender rights, thereby reducing the economic and social pressures that contribute to SGBV.
Implementing vocational training programs tailored to Dadaab’s context would enable refugees, particularly women and youth, to acquire skills and pursue employment opportunities within the camp or upon repatriation. These programs should include modules on leadership and advocacy, empowering participants to advocate for anti-SGBV initiatives within their communities. By offering pathways to economic independence, the AU can address the root causes of SGBV vulnerability and encourage women’s active participation in creating a safer, more equitable community.
Engaging Men and Boys in SGBV Prevention: Engaging men and boys in Dadaab in SGBV prevention is essential to dismantling harmful gender norms. Faith-based organizations and local leaders can have a significant role in implementing prevention programs by leveraging their influence within the community. The Engaging Men in Accountable Practices (EMAP) model has been shown to shift attitudes and behaviors by involving men in community-wide discussions on respect, non-violence, and gender equity. Deployed in Dadaab in partnership with UNHCR, EMAP has had a positive impact, creating safe spaces for women and fostering cooperation on household responsibilities. Despite challenges such as community resistance, the program’s success in presenting a community platform for raising marginalized voices underscores the importance of sustained, male-inclusive initiatives that address SGBV as a shared community concern. Expanding EMAP in Dadaab could reinforce positive masculinity and encourage men to play active roles in safeguarding women and girls.
The AU could promote pledge-based community interventions like South Africa’s Zero Tolerance Village Alliance (ZTVA), where community members publicly reject SGBV. In coordination with local leaders, the AU could facilitate a pledge-taking event in Dadaab, emphasizing that SGBV is unacceptable and fostering collective responsibility for the safety and respect of all community members. Such initiatives could help transform local norms and provide a supportive environment for survivors.
Safe Housing for SGBV Survivors: For survivors of SGBV, temporary safe housing is essential to prevent further violence and allow time for recovery. Adapting HIAS’s community-based safe housing model in Nairobi, where trained caregivers host survivors in family environments, could offer a sustainable, culturally sensitive solution in Dadaab. Survivors matched with caregivers from similar cultural backgrounds would receive temporary shelter, food, and emotional support, reducing the need for conventional shelters that can be isolating and lack cultural familiarity. This model can also foster community participation, as survivors and caregivers work together to reduce stigma and encourage reintegration into camp society.
To strengthen this initiative, the AU could provide caregivers funding and training, focusing on trauma-informed care and basic counseling. Caregivers who are survivors would bring unique empathy to their roles, creating a trusted support network within the camp. This approach could also provide employment opportunities, contributing to the camp’s economic vitality. The AU can collaborate with UNHCR and local women’s groups to manage and monitor this initiative.
Comprehensive Monitoring and Reporting Mechanisms: Effective monitoring and reporting systems are critical to preventing and responding to SGBV. The AU should support anonymous reporting channels and conduct regular safety audits within Dadaab, ensuring that SGBV incidents are documented and acted upon without placing survivors at further risk. These systems should be integrated into Dadaab’s health and WASH facilities, enabling survivors to report incidents safely and privately. By partnering with UNHCR and other humanitarian actors, the AU can ensure it focuses on identifying SGBV risks associated with camp infrastructure, such as poorly lit areas and insecure pathways.
Routine screening for SGBV within health facilities should be implemented, with trained healthcare providers conducting discreet, trauma-informed assessments for SGBV indicators. This measure has been effective in other refugee settings, as it encourages survivors to come forward and access comprehensive services, including legal and psychosocial support, without fear of public exposure. Coupled with community-wide awareness campaigns, these screenings help create an environment where survivors of SGBV feel supported and safe enough to report incidents.
Funding Mechanisms: To fund SGBV initiatives in Dadaab, the AU should adopt a multi-tiered approach that combines international donor support, public-private partnerships, and innovative financing. Major international humanitarian donors, such as the EU and Scandinavian states, can earmark funds for specific purposes with transparent tracking. Partnerships with telecom can enhance awareness and reporting, while partnerships with financial institutions can provide access to microfinance resources. Additionally, social impact bonds can attract private investment based on the measurable outcomes they achieve. An AU resolution on this crisis should endorse the creation of an AU Solidarity Fund specifically for SGBV initiatives in refugee settings. This will ensure sustainable and transparent funding to support immediate and long-term interventions. Crowdfunding campaigns targeting the African diaspora and global supporters can diversify funding sources and create widespread awareness of the issue. The AU should coordinate closely with UNHCR to ensure accountability and transparency in allocating funds.
Implementation
The first step in implementing this policy is establishing an AU Task Force on SGBV in Refugee Camps. This body will define policy objectives, mobilize funding, and coordinate with UNHCR, NGOs, and Kenyan authorities to ensure the seamless implementation of these initiatives. Deploying mobile courts and expanding paralegal training within Dadaab will enhance access to justice and support survivors in navigating the legal process. Economic empowerment initiatives, such as microfinance programs and vocational training, should be introduced to reduce dependency on exploitative transactional relationships. Community-led prevention campaigns should be launched to engage men, youth, and religious leaders in reshaping social norms and advocating for gender equality. Finally, securing long-term funding through an AU Solidarity Fund, donor partnerships, and innovative financing mechanisms will ensure the sustainability of these efforts.
A phased approach will be necessary to ensure effective implementation of this policy. Within the first six months, the AU Task Force should be established, initial funding secured, and partnerships formalized with key stakeholders. Within the first year, mobile courts and legal aid programs should be operational alongside the rollout of economic empowerment initiatives targeting women and youth. By the end of the second year, measurable progress should be evident, with increased reporting of SGBV cases, a higher number of SGBV-related court proceedings, and improved economic self-sufficiency among affected populations.
By prioritizing an AU-led intervention, this policy framework not only addresses the immediate crisis in Dadaab but also reinforces Africa’s commitment to human rights, strengthens regional stability, and sets a precedent for addressing similar crises in other refugee settings. This approach ensures that Africa takes responsibility for its displaced populations and provides a sustainable, structured response that upholds the dignity and security of refugees facing SGBV threats.
Audrey is a Master’s candidate in International Affairs with a specialization in Diplomacy. She is currently a Multilateral & Global Affairs Intern at the U.S. Department of State’s Bureau for Democracy, Human Rights, and Labor, where she is pursuing her passion for a career in diplomacy and human rights.
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