Tackling Sexual and Gender-Based Violence in Nigeria: Assessing the Impact of the VAPP Act Across States

By Olumide Elajuku-wilson

Abstract

This article examines the decade since Nigeria’s VAPP Act was enacted in May 2015 and its uneven adoption and impact at the state level. While 33 states out of the 36 states and the FCT have domesticated the Act, mplementation remains inconsistent. Key pillars such as awareness, legal enforcement, survivor support services, sex-offender registries, and conviction rates show wide inter-state disparities. Drawing on national surveys, state data, and civil society reports, this article assesses gaps, highlights promising state-led initiatives, and proposes strategies to strengthen progress toward reducing sexual and gender-based violence nationwide.

Introduction

Sexual and Gender-Based Violence (SGBV) is a public health crisis and human rights emergency in Nigeria. The country continues to report high levels of domestic violence, rape, sexual assault, harmful traditional practices, and emotional abuse, disproportionately affecting women, children, and vulnerable groups. Deep-rooted patriarchy, economic dependence, harmful religious interpretations, and societal stigma have created an environment where perpetrators often act with impunity and victims are silenced or shamed. In response to this growing crisis, the Nigerian government enacted the Violence Against Persons (Prohibition) Act, 2015 (VAPP Act) to provide a comprehensive legal framework to protect victims and prosecute offenders. However, the decentralized nature of Nigeria’s federal system means the Act only applies in the Federal Capital Territory (FCT) unless adopted by individual states through legislative domestication1. Despite the promise of this legislation, implementation has been uneven, creating legal and protection disparities across the country. This article critically examines the VAPP Act’s legal significance, its adoption across Nigeria’s states, and its practical impact in reducing SGBV.

The VAPP Act: A Transformative Legal Framework

Prior to the VAPP Act, Nigeria relied heavily on the Criminal and Penal Codes, colonial-era laws that inadequately defined sexual violence and excluded key forms of abuse. For instance, marital rape was not recognized as a crime, nd the burden of proof for rape remained almost insurmountably high for victims. The VAPP Act addresses these gaps by:

• Expanding the definition of rape to include penetration with any object or body part without consent;
• Criminalizing spousal battery, emotional abuse, economic abuse, harmful widowhood practices, and female genital mutilation (FGM);
• Providing for protective orders, compensation to victims, and access to rehabilitation services;
• Allowing third parties (such as NGOs or family members) to bring complaints on behalf of victims;
• Establishing obligations for law enforcement and courts to expedite and sensitively handle cases.2

This holistic approach has made the VAPP Act a landmark legal instrument for addressing SGBV in Nigeria.

Domestication Across States: Uneven Progress

The effectiveness of the VAPP Act is heavily contingent on state-level adoption, given Nigeria’s federal structure. As of 2024, 34 out of 36 states had domesticated the Act. Only Kano and Katsina States both in northern Nigeria have not done so3 . Their refusal stems from religious and cultural opposition, where some elements of the Act such as the recognition of marital rape or prohibition of early marriage are seen as conflicting with Sharia law. Even in states that have domesticated the Act, implementation varies widely. Lagos, Ekiti, and the FCT are often cited as leading examples, with relatively stronger institutions, dedicated agencies, and public awareness campaigns. Conversely, some states have passed the Act in name but lack the political will, financial resources, or institutional mechanisms to enforce it effectively.

Measuring the Impact

1. Reporting and Legal Redress

The domestication of the VAPP Act has led to improved reporting rates in several states. Survivors are now more likely to come forward, supported by an expanded legal definition of abuse and clearer procedures for justice. In the Federal Capital Territory, for instance, both the Mirabel Centre and the National Human Rights Commission have reported a noticeable increase in SGBV case reporting and prosecution since 2015 4. Despite these gains, challenges remain. According to the Women Advocates Research and Documentation Centre (WARDC), between 2019 and 2022, Lagos State documented over 11,000 domestic violence cases, but fewer than 5% resulted in convictions5. This low conviction rate reflects systemic challenges such as:

• Inadequate police response;
• Poor evidence gathering and forensic capacity;
• Survivor intimidation and withdrawal;
• Prolonged judicial processes.

Many survivors abandon their cases due to fear of retaliation, stigma, or lack of financial and emotional support during legal proceedings.

2. Access to Support Services

One of the strengths of the VAPP Act is its emphasis on rehabilitative and protective services for survivors. Some states, including Edo, Kaduna, Enugu, and the FCT, have set up Sexual Assault Referral Centres (SARCs) that provide integrated services medical treatment, counselling, legal aid, and shelter6. However, these services are largely urban centered. Rural communities, where SGBV is often normalized and victims face multiple barriers to accessing justice, remain underserved. Many local governments lack a single shelter or trained SGBV officer.

3. Cultural and Religious Barriers

Beyond legal and institutional issues, sociocultural resistance plays a significant role in limiting the VAPP Act’s impact. In many communities, especially in Northern Nigeria, violence within the home is viewed as a family affair, not a legal matter. Survivors are often pressured by religious leaders or community elders to “forgive” or reconcile with their abusers. In such contexts, even when the VAPP Act is domesticated, its provisions may be undermined by customary courts or traditional dispute resolution mechanisms. This duality of law creates confusion and fuels
impunity.

Case Studies

1. Kano

Kano State is yet to domesticate the VAPP Act. Abdullahi Shehu of the National Human Rights Commission noted that the absence of the Act is contributing to rising cases of gender-based violence7. Magistrate Hajara Hamza affirmed that the existing Penal Code lacks sufficient tools for prosecuting sexual offences. Reports indicate that over 70 SGBV cases are received daily by civil society organizations.8

Impact: Survivors lack effective legal redress, and perpetrators exploit the legal gap.

2. Kaduna

Kaduna domesticated the VAPP Act in 2018 and later passed a law mandating surgical castration for child rapists in 2020.9 . The state has recorded improved reporting and more structured survivor support services. A rape survivor, Halima (pseudonym), recounted her experience in a case that galvanized public attention and led to targeted interventions. However, stigma still deters victims from seeking justice.10

Impact: Survivor services and tougher penalties improved access to justice, but cultural resistance remains a hurdle.

3. Oyo

The Oyo State Government launched a Sexual Assault Referral Centre (SARC) in 2021 under the VAPP Act. Reported cases jumped from 132 in 2019 to 768 in 2020 following the Act’s passage and increased sensitization. Oyo also created a multi-sectoral SGBV Response Team to coordinate interventions.11

Impact: Increased awareness and better survivor services foster trust in the justice system.

4. Imo

Through the UN Spotlight Initiative and civil society efforts led by Alliances for Africa, Imo domesticated the VAPP Act in 2020. The initiative also supported the creation of the State Committee on Ending Violence Against Women and Girls. The final evaluation showed a decline in reported incidents and better survivor service delivery.12

Impact: Demonstrates how international support and grassroots engagement can accelerate systemic change.

5. Lagos

Lagos has yet to formally domesticate the VAPP Act, but it has developed strong institutional responses. The Domestic and Sexual Violence Agency (DSVA) and the Domestic and Sexual Violence Response Team (DSVRT) provide multi-agency coordination.13. However, survivors such as “Oluchi” and “Anukwa” continue to face delayed justice due to procedural inefficiencies and lack of protection order enforcement.14

Impact: Institutional frameworks exist, but full legal backing is still required for lasting change.

Recommendations

To strengthen the impact of the VAPP Act and ensure uniform protection of all Nigerians, the
following actions are recommended:

1. Complete Domestication

• The National Assembly and human rights institutions should engage persistently with the remaining states, especially Kano and Katsina, to adopt the Act without diluting its core protections.

2. Funding and Infrastructure

• States must allocate dedicated budget lines for SGBV response including shelters, SARC units, and family courts.

3. Institutional Training

• Judges, magistrates, police officers, and healthcare providers should receive mandatory training on the VAPP Act and trauma-informed care.

4. Monitoring and Data Collection

• The federal government should develop a centralized SGBV database to track cases, outcomes, and service delivery.

5. Community Engagement

• Grassroots campaigns, involving religious leaders, women’s groups, and traditional rulers, can shift harmful norms and increase public support for the Act.

Conclusion

The VAPP Act is one of Nigeria’s most comprehensive tools for combating gender-based violence. However, laws do not enforce themselves. Without full state-level adoption, strong political will, survivor support systems, and a cultural shift, the Act’s impact will remain limited. Every Nigerian regardless of state, status, or gender deserves equal protection under the law. Making the VAPP Act work is not just a legislative goal; it is a moral and social imperative.

References

1. Violence Against Persons (Prohibition) Act (VAPP), 2015, Laws of the Federation of Nigeria.
2. Violence Against Persons (Prohibition) Act (VAPP), 2015, Laws of the Federation of Nigeria.
3. Amnesty International Nigeria, ‘Nigeria: A Harrowing Journey access to Justice For Women and Girls Survivors of Rape’ Amnesty International (Abuja, 20 November 2021) https://www.amnesty.org/en/wpcontent/uploads/2021/11/AFR4449592021ENGLISH.pdf accessed June 24 2025.
4. Ibid.
5. Women Advocates Research and Documentation Centre (WARDC), Trends in SGBV Prosecution in Nigeria: 2019–2023, Lagos, 2023.
6. Project Alert on Violence Against Women, Sexual Assault Referral Centres in Nigeria: Mapping and Situation
Report, 2023.
7. Salim Umar Ibrahim, ‘Kano: We Received 1,600 SGBV Cases in 2024- Rights Commission’ Daily Trust (Lagos,
December 15 2024.
8. WARDC (2023). Annual GBV Data Report.
9. BBC News Africa, ‘Kaduna Passes Castration Law for Child Rape’ BBC News Africa (Lagos, September 11 2020).
10. CLEEN Foundation (2022). Barriers to Reporting Gender-Based Violence.
11. NOI Polls & TechHer (2023). Public Perception of the VAPP Act in Nigeria.
12. Alliances for Africa (2023). Outcome Report: SGBV Legislation Advocacy in Imo.
13. Lagos State DSVA (2024). Annual Report on Domestic and Sexual Violence.
14. UN Women (2023). Spotlight Initiative Nigeria Final Report, Imo State Chapter.