EGYPT 

VIOLENCE AGAINST 

WOMEN STUDY

OVERVIEW OF SERVICES ON VIOLENCE AGAINST WOMEN 

April 2009
This publication was produced for review by the United States Agency for International 

Development. It was prepared by the Combating Violence Against Women and Children Project. 

The author‘s views expressed in this publication do not necessarily reflect the views of the United 

States Agency for International Development or the United States Government. 

EGYPT 

VIOLENCE AGAINST 

WOMEN STUDY

OVERVIEW OF SERVICES ON VIOLENCE AGAINST WOMEN 

Samah Said 

Team Leader 

Amal Zaki, MD 

Ashgan Abdel Hamid 

Mozn Hassan 

Hala Abdel Kader 

 

Combating Violence against Women Project 

National Council for Women 

―Violence against women is perhaps the most shameful human rights violation. And it is 

perhaps the most pervasive. It knows no boundaries of geography, culture or wealth. As 

long as it continues, we cannot claim to be making real progress towards equality, 

development and peace.‖

— Kofi Annan, Secretary General of the United Nations, March 8th, 1999.

Contract No. 263-I-02-06-00018-00
CONTENTS 

Executive Summary .......................................................................................................1 

1. Introduction ...............................................................................................................3 

2. Shelters .......................................................................................................................6 

3. Medical Services for Victims of Physical and Sexual Violence and Abuse ............11 

4. Helpline Services .....................................................................................................14 

5. Listening and Counseling Services .........................................................................16 

6. Family Counseling Services ....................................................................................17 

7. Legal Services ..........................................................................................................17 

8. NGO Advocacy and Prevention Strategies ..............................................................20 

9. Conclusions and Recommendations ........................................................................23 

Annex A. Health Facilities Visited ..............................................................................26 

Annex B. Contributing NGOs......................................................................................27 
Overview of Services on Violence Against Women 1 

EXECUTIVE SUMMARY 

This report provides an overview and examination of services currently available to 

women victims of violence. The focus of the study is a core set of direct protection 

services for addressing immediate needs for women victims of violence, including health 

services, shelters, counseling services, help lines, and legal services. In addition, the 

report describes selected advocacy initiatives by NGOs in recent years which seek to 

prevent violence against women through legal changes, research, and awareness. 

To examine the services and initiatives, the report draws on a wide range of data sources. 

Information on services provided by the government was mostly collected through 

interviews with key government officials and review of laws, regulations and other key 

government documents. Site visits were made to eight women’s shelters, eleven health 

facilities, and two government-sponsored family counseling centers. Information on nongovernmental services was obtained through interviews and group discussions with 

eighty-five NGOs active in women’s issues. 

The examination finds both government and NGO engagement in providing the core 

services for protecting victims of violence against women. However, availability of these 

services is quite limited overall considering the immense challenge of addressing this 

issue. Specific findings include: 

Shelters. Eight shelters are currently operating in Egypt, comprising 214 total beds. 

Despite the limited availability of beds, shelter managers note that many shelters are often 

empty for extended periods of time. 

Medical services. Interviewed medical professionals note that they commonly treat cases 

of domestic violence, but also noted that although women victims receive medical 

treatment, there are no specific services or protocols at hospitals and health units for 

victims of violence against women. 

Helplines. Among 85 NGOs interviewed, only 4 provide helplines, and only one of these 

is available 24 hours (hotline). In addition, the National Council of Women’s 

Ombudsmen’s office operates the only government helpline for women. 

Listening and counseling services. Among the 85 NGOs interviewed, eight provide inperson listening or counseling service available for women victims of violence. In 

addition, the Ministry of Social Solidarity (MoSS) funds and local NGOs operate 183 

Family Counseling Office. 

Legal services. Twenty-one of the 85 NGOs interviewed provide some legal services 

which may be accessible to women victims of violence, although most of these 

organizations focus on other legal issues affecting women In addition, the NCW’s 

Ombudsmen’s office provides legal assistance to women on a variety of women’s issues, 

including violence. 

Advocacy and prevention strategies. Although there have been some national campaigns 

of note in recent years addressing violence against women, most of the 85 NGOs 

interviewed acknowledge that campaigns regarding on violence against women have been 

sporadic. 
Overview of Services on Violence Against Women 2 

Based on the finding a number of recommendations are provided in the conclusion of the 

report to address the service needs of women victims of violence, focusing primarily on 

shelters, medical services, and the role of NGOs as service providers. 
Overview of Services on Violence Against Women 3 

1. INTRODUCTION 

In its In-depth study of Violence against Women, the United Nations noted that “Women 

subjected to violence need access to shelters, medical, psychological and other support, 

legal aid and other services.”

1

 To what extent are such services available to women 

victims of violence in Egypt? 

There are various services available in Egypt for women in general and for abused 

women in particular. This report examines the services currently available through 

government agencies and NGOs to women victims of violence. The focus of the study is 

a core set of direct protection services for addressing immediate needs for women victims 

of violence, including health services, shelters, counseling services, helplines, and legal 

services. In addition, the report examines selected advocacy initiatives by NGOs in recent 

years which seek to prevent violence against women through legal changes, research, and 

awareness. 

The road is still long and bumpy to fulfill the commitment to development, equality, and 

peace noted by the former UN Secretary General, yet there are vigorous endeavors from 

the state and the civil society in Egypt. Collaborative rigorous efforts of all key actors are 

still needed to transform the cultural, social, and legal context that gives rise to and 

condones widespread violence against women. To this end, the study team ends this 

report with key recommendations for further action. 

1.1. Key Concepts 

Violence Against Women. The term “violence against women” (VAW) refers to many 

types of harmful behavior directed at women because of their sex. In 1993 the United 

Nations put forward the first official and comprehensive definition of such violence when 

the General Assembly adopted the Declaration on the Elimination of Violence Against 

Women and was duly adopted by Egypt. 

For the purpose of this study, the Declaration on the Elimination of Violence against 

Women of 1993 is our reference and the following articles are the main foundation for 

this research study. The term “violence against women” means any act of gender-based 

violence results in, or is likely to result in, physical, sexual or psychological harm or 

suffering to women, including threats of such acts, coercion or arbitrary deprivation of 

liberty, whether occurring in public or in private life. 

Article 1 of the Declaration states: “violence against women shall be understood to 

encompass, but not be limited to, the following: 

1. Physical, sexual and psychological violence occurring in the family, including 

battering, sexual abuse of female children in the household, dowry-related 

violence, marital rape, female genital mutilation and other traditional practices 

harmful to women, non- spousal violence and violence related to exploitation; 

2. Physical, sexual and psychological violence occurring within the general 

community, including rape, sexual abuse, sexual harassment and intimidation at 

 

1

In-depth study on all forms of violence against women – Report of the Secretary General, United Nations, 

General Assembly 2006
Overview of Services on Violence Against Women 4 

work, in educational institutions and elsewhere, trafficking in women and forced 

prostitution; 

3. Physical, sexual and psychological violence perpetrated or condoned by the State, 

wherever it occurs.”

In the declaration, article 4 calls for states to condemn VAW: “states should condemn 

violence against women and should not invoke any custom, tradition or religious 

consideration to avoid their obligations with respect to its elimination. States should 

pursue by all appropriate means and without delay a policy of eliminating violence 

against women . . . .” Moreover, in the same article 4(g) calls on states to: “work to 

ensure, to the maximum extent feasible in the light of their available resources and where 

needed, within the framework of international cooperation, that women subjected to 

violence and, where appropriate, their children, have specialized assistance, such as 

rehabilitation, assistance in child care and maintenance, treatment, counseling, and health 

and social services, facilities and programs, as well as support structure, and should take 

all other appropriate measures to promote their safety and physical and psychological 

rehabilitation”. 

Protection services and prevention strategies. Practices focusing on addressing violence 

against women may be classified broadly as either protection services or prevention 

strategies. Protection services provide assistance to women after an experience of 

violence and are usually focused on the immediate needs for health and safety. Examples 

include health services, shelters, helplines, counseling, and legal services. Preventions 

strategies attempt to reduce the incidence of violence by addressing known or suspected 

factors associated with violence against women.2 Prevention strategies might include a 

variety of approaches including advocacy campaigns, community mobilization, working 

with men, promoting public safety, education, and capacity building, among other 

activities.3

 

 

2

“Violence against Women and Girls in San Francisco: Meeting the needs of survivors”, 

http://www.sfgov.org/site/dosw_page.asp?id=19977

3 Ending Violence Against Women: From Words to Action: Study of the UN Secretary-General”

Principles for Effective Services to Victims of VAW: 

 Available: of sufficient quantity within the state party

 Accessible: without discrimination within the jurisdiction of the state party. This means, 

without discrimination, especially towards the most vulnerable and marginalized sections 

of the population; physically accessible; economically accessible and genuinely affordable. 

 Acceptable: respectful of professional ethics, particularly confidentiality, and culturally 

appropriate, as well as gender- sensitive. 

 Of appropriate quality: staff providing services should be trained and professional, 

providing a service which responds to needs of women victims of VAW.

Source: Making Rights a Reality – The Duty of States to Address Violence against Women” –

Amnesty International, 2004.
Overview of Services on Violence Against Women 5 

1.2. Methodology 

Many qualitative research tools and techniques were used to gather information for this 

report, including review of key documents, in-depth interviews, and focus group 

discussions. Personal observations of the field team were also employed where 

appropriate. 

In general, information on government services was collected through interviews with 

key government officials and review of laws, regulations and other key government 

documents. For information on shelters, the study team reviewed the MoSS bylaws that 

govern the operations of shelters and visited all shelters currently operating according to 

the MoSS. At each shelter, study team members interviewed shelter personnel regarding 

shelter policies and practices. To examine government medical services available to 

victims of physical and sexual violence, a series of personal interviews with 40 health 

professionals, including managers of hospitals, forensic medical doctors, general health 

practitioners in emergency units, nurses, and health community leaders, were conducted 

in five hospitals, four medical units, and two forensic bureaus in various locations 

throughout Egypt. Information on the MoSS Family Counseling Centers was obtained 

through interviews with an MoSS official and representatives of two NGOs operating 

Family Counseling Centers on behalf of the MoSS. Finally, the study team interviewed an 

official at the National Council of Women (NCW) regarding the services of the 

Ombudsmen’s office and reviewed publicly available documents from NCW about the 

office. 

For the purpose of understanding the extent and types of VAW related services and 

activities provided by non-governmental organizations, the study team conducted 

interviews and group discussions with eighty-five Egyptian NGOs. According to the 2008 

Human Development report, there are over 15,000 NGOs dispersed throughout Egypt.4

Due to the large number of NGOs and the small number expected to focus on services 

addressing violence against women, the study team used a snowball technique to identify 

relevant NGOs. Approximately fifteen prominent NGOs addressing women’s issues were 

purposively selected for in-depth interviews and were asked for referrals to other NGOs 

in the Delta region, Upper Egypt, and Greater Cairo that are broadly addressing women’s 

issues and that may be conducting activities related to violence against women. Identified 

NGOs were invited to attend one of four NGO discussion workshops. 

 Two workshops in Menia including NGOs and Community Development 

Associations from Menia, Qena, Sohag, and Aswan. 

 One workshop in Alexandria including NGOs from Alexandria, Beheira, Kafr El 

Sheikh, and Damnahour. 

 One workshop in Cairo including NGOs from Cairo, Wadi el Geded and Gharbia. 

In conducting the interviews and discussions, semi-structured interviews with probing 

questions were employed to understand the services and activities of these NGOs related 

to Violence against Women. Representatives from 61 NGOs participated in the four 

workshops. Identified NGOs that were unable to send a representative to the workshops 

were interviewed by telephone. A list of participating NGOs in included in the annex. 

 

4 United Nations Development Program and Institute of National Planning, Egypt. Egypt Human 

Development Report 2008, Egypt’s Social Contract: The Role of Civil Society, 2008, p. 90.
Overview of Services on Violence Against Women 6 

While this is not an census of all NGOs addressing violence against women nor a 

directory of the services these NGOs provide, the list intends to capture key NGOs 

providing the core services for victims of violence against women examined in this 

report. 

In addition to the information collected from government and NGO sources, the study 

team also held three focus group discussions with approximately sixty women who have 

experienced domestic violence. Two of these discussions were held in Manshiet Nasser 

among women seeking assistance from health units and the other discussion was held in 

Imbaba among women seeking the assistance of a women’s NGO. As noted in the section 

on shelters, the respondents were asked about their knowledge and experience of services 

to addressing violence against women. 

Given the nature of this issue, the research team was cognizant of the sensitivities of this 

research throughout the data collection phase. The team strove to ensure that respondents 

were fully informed of the study objectives and that sensitive information remained 

confidential. 

The rest of the report is organized as follows. Sections one through six present the 

findings from the review of victim services addressing violence against women – shelters, 

health services, help lines, listening and counseling, and legal services, respectively. 

Section seven provides information on advocacy oriented preventative strategies by 

NGOs. The report ends with a conclusion and set of recommendations. 

2. SHELTERS 

2.1. Background 

Shelters are temporary or transitional living facilities where women victims of violence 

and their children can live safe from direct threat by their abuser. It may also be a space 

that offers women and children qualified counseling and practical support, either in-house 

or by arrangement5

. In Egypt the term translates as “hosting house”. 

Ensuring that women have access to shelters that meet safety standards is essential for 

protecting women from further violence. Moreover, adherence by shelters to general 

principles of availability, accessibility, acceptability and appropriate quality,6 is important 

for ensuring the appropriate support for victims of violence. 

The study team reviewed the MoSS bylaws for shelters and visited each of the eight 

shelters in Egypt. At each shelter, study team members interviewed the shelter manager 

and at least one specialist regarding shelter policies and practices. 

2.2. Shelters in Egypt 

Shelters for women victims of domestic violence have been available in Egypt since 2003 

and there are eight in operation. Following two ministerial decrees issued in 2000, the 

MoSS established seven shelters. One of these shelters is under direct MoSS operation; 

 

5

“Combating violence against women” – stocktaking study on the measures and actions taken in Council of Europe member States, 

Directorate General of Human Rights, Strasbourg, 2006.

6

“Making rights a reality – The duty of states to address violence against women” – Amnesty International , 2004, page 37.
Overview of Services on Violence Against Women 7 

the remainder operates under NGOs assigned by the MoSS. As indicated in the 

ministry’s bylaws, the main objectives of shelters are as follows7: 

 To host women in an emergency situation. 

 To protect them from culturally inappropriate behavior, helping them overcoming 

difficulties and solving their problems 

 To provide them with social, health, and psychological care. 

 To develop their skills and invest in their potential. 

 To rehabilitate them to adapt to society, both vocationally and culturally. 

Within this framework, all shelters share the same objectives and mandate as specified by 

MoSS in their brochures, as follows:8 

 Host women who are in emergency circumstances as a victim of violence. 

 Protect women from violence and assist them in overcoming difficulties and 

solving their problems. 

 Provide social, health, vocational, and cultural care. 

 Develop women’s skills and invest in their potential. 

 Hold awareness seminars for men and women to create community awareness that 

would combat violence against women and support the importance of family ties 

to protect the family and children. 

 Hold awareness seminars on legal, religious, cultural, and health issues. 

 Conduct psychological rehabilitation aiming to assist women to overcome their 

crises. 

 Rebuild women’s self esteem to encourage them to be assertive. 

The Association for Development and Enhancement of Women (ADEW) established the 

eighth shelter, Beit Hawaa (House of Eve), in 2005. This shelter is the only shelter which 

operates independent of the MoSS. In total, only 214 shelter beds are available across all 

eight shelters, approximately one bed per 380,000 inhabitants of Egypt. According to the 

Council of Europe’s Group of Specialists for Combating Violence against Women, there 

should be a minimum of one place in a shelter per 7,500 persons in the population.9

 To 

meet this standard, Egypt would need more than 10,000 more shelter beds. Moreover, 

there are many population centers without close access to a shelter. While there are two 

shelters in Lower Egypt (Alexandria and Mansoura), three in Greater Cairo (6th of 

October, Heliopolis, and Qalubiya), and three in Upper Egypt (Fayoum, Beni Suef, and 

Menia), there are no shelters in Sinai, the Canal region, or Upper Egypt beyond Menia. 

Despite the limited number of shelter beds available, shelter managers noted that few 

victims of VAW in Egypt go to shelters, resulting in shelters that are frequently empty. 

Shelter managers attribute this to factors such as the inadequate protective measures and 

legislation to protect women victim of domestic violence, patriarchal culture, structural 

 

7 Ministerial decree No 6,3 dated 4 April 2000, on rules and regulations of shelters in Egypt.

8 Brochure of MoSS – General Directorate for women.

9 Council of Europe, Group of Specialists for Combating Violence against Women, Final Report of 

Activities of the EG-S-VL including a Plan of Action for Combating Violence Against Women (Strasbourg, 

Council of Europe, 1997), p. 74.
Overview of Services on Violence Against Women 8 

problems in the management of shelters, and the lack of awareness of the existence of 

shelters. 

2.3. Shelter Policies 

The seven shelters governed by the MoSS follow regulations stipulated by the ministry, 

although implementation of these rules varies somewhat across the different shelters. 

Also, the independent shelter generally follows the MoSS shelter policies. Rules and 

regulations stipulated by the MoSS include the following: 

Admissions. Admissions policies for shelters are set by MoSS and are standard across all 

eight shelters. Shelters admit women victims of violence provided that they submit the 

following extensive paperwork: 

 An application form with two photos. 

 Identification card. 

 Recent police record. (Applicants with a criminal background not accepted.) 

 Completion of a social case study (to be conducted by social worker in the shelter 

and during the first week of her stay). 

 Copy of formal documents of her marital status. 

 Detailed salary sheet if the women is employed. 

 A pregnancy test and medical examination to ensure that the applicant is free of 

any infectious diseases (to be examined by the medical center associated to the 

shelter during her first week of stay). 

In addition to these formal policies, managers at most of the shelters, with the exception 

of the shelters in Menia and Fayoum, stated that they refuse to accept an applicant who is 

unable to take care of herself due to age or incapacity. 

Length of stay. Women may stay up to 12 weeks in most cases, however, a woman’s stay 

may be continued for an additional three months and even longer as determined by the 

shelter supervision committee after a case review. 

Accompanying children. Children may accompany their mothers in the shelter, although 

male children must be younger than the age specified by the shelter, which varies from 8 

to 15 years. There is no age limit for girls. In general, the shelters usually have extra beds 

for children when needed. However, none of shelters have a specific strategy or programs 

for dealing with children of victims, with the exception of Beit Hawaa managed by NGO 

ADEW, as they have special recreational activities and psychological help for children. 

Evening check-in time. Women admitted to the shelters are allowed to leave the shelters 

during the day to run errands, go to work, or search for a job provided that they detail 

their plans to the shelter supervisor. All shelters have strict evening check-in times for 

residents to return to the shelter and stay for the night – 7 p.m. during winter and 8 p.m. 

during summer. 

2.4. Shelter Personnel 

The standard organizational chart of the shelters according to MoSS rules and regulations 

includes the following: a shelter manager, a social worker, a legal advisor, a part-time 
Overview of Services on Violence Against Women 9 

medical doctor, a secretary, a warehouse keeper, a cook, a day supervisor, and a night 

supervisor. Despite having psychological rehabilitation as part of their mandate, 

psychologists are not included in the mandated organizational structure. Four of the 

shelters (see Table 1) have recruited psychologists to serve on their staff for the 

psychological rehabilitation of victims 

Two shelter managers said that there is a budget allocation for training and capacity 

building; however little training has been delivered. Managers noted that staff need to 

acquire the appropriate skills and knowledge to deal effectively with victims of domestic 

violence. 

In discussions with shelter managers and other personnel, the study team observed that 

most of the interviewed staff lack gender sensitivity and the enthusiasm to respond to the 

needs of battered women. Many interview respondents displayed conservative attitudes 

and believe in very strict gender roles and responsibilities related to the status of women. 

For instance, the overwhelming majority of the personnel interviewed believe that 

economic problems are the core reason for violence against women, and often blame the 

women for being battered. As stated by one shelter manager, “it is women’s attitudes that 

contribute to anger and violence.” Others expressed their bias that women’s beliefs in 

equality and empowerment causes abuse. Another staff member mentioned that “men are 

like children and women should deal with them accordingly” as a way to avoid abuse. 

Finally, most of the shelter staff, including managers, believe that women should return to 

their homes after family differences are resolved. Consequently, they regularly call upon 

the husband (who is the batterer in most cases) to come and take his wife back to the 

home.

2.5. Support Services 

Awareness seminars for both men and women are included in the mandate of the shelters. 

However, with the exception of religious seminars, none of the shelters currently sponsor 

such programs. Similarly, shelters have a mandate to develop the skills of shelter 

residents. However, economic empowerment activities in most shelters tend to focus on 

activities within the realm of traditional gender roles like sewing, tricot, and needle work. 

An exception is the Women’s Shelter Center in Beni Suef. The shelter’s strong linkages 

with community resources translate into referrals to other NGOs or the MoSS, often 

allowing these women to benefit from micro-credit programs to assist them in generating 

income. 

2.6. Public Awareness about Shelters 

For shelters to be truly accessible, women victims of violence need opportunities to 

become aware of shelters and how they can benefit from their services. As noted by many 

of the shelter managers during the interviews, the concept of shelters as safe places for 

victims of violence in Egypt is still new, and their place in Egyptian society remains 

ambiguous. For instance, managers noted that many officials who play a direct role in 

“helping” victims, such as policemen, family courts’ staff, and other community leaders, 

do not know about the existence of shelters. Even NGOs and community development 

associations are not fully aware of both their existence and their mandate. Consequently, 

shelter managers noted that most referrals to the shelters come from the ombudsperson 

office of the NCW and a small number of women’s organizations. Few referrals come 
Overview of Services on Violence Against Women 10

from other NGOs serving women, family courts, or the police. In addition, only the 

shelter managers in the Beni Suef, Qalubiya, and 6th of October shelters described efforts 

to reach out to the community and build linkages with community leaders. Managers at 

other shelters typically rely on passive referrals to direct their clients to other services 

rather than proactive outreach. 

2.7. Personal Obstacles for Women to Seek Shelter 

In addition to visiting shelters and interviewing shelter personnel, team members also met 

with approximately 60 women from three focus groups who have experienced domestic 

violence. Many of the focus group participants noted that they struggle to maintain the 

status quo for the stability of their family, especially their children. Some of the women 

were not familiar with services for women victims of violence. Many reported that they 

typically speak with their neighbors and friends as a way of coping with their suffering, 

but not as a solution to their underlying problems. When asked about seeking services 

from shelters or counseling centers, many noted that they would not use these services 

due to fear of the consequences, including the following: 

 Losing custody of their children 

 Ostracism or hostility in the community for “airing dirty laundry”

 Not receiving the services because they will not be believed 

 Not being able to survive alone financially 

 Ending an emotional bond with their husband when they still hold out hope that 

that the husband will change in the future. 

Profile: ADEW Domestic Violence Program

The Association for the Development and Enhancement of Women (ADEW) is an Egyptian NGO working 

in the field of gender empowerment through social, economic, and cultural projects in poor urban areas. 

When first founded in 1987, ADEW initially targeted female heads of households, but today their services 

have extended to girls, youth, and the community. In 2005 ADEW initiated a domestic violence program. 

That same year the Beit Hawaa was established as the first independently run shelter in Egypt which 

provides comprehensive services. The ADEW Domestic Violence Program objectives are as follows:

 Provide a safe, secure alternative to staying in a potentially threatening situation

 Create a comprehensive service plan for women and children fleeing domestic violence

 Develop and promote a working definition of and dialogue about domestic violence in Egypt

 Educate and empower women with regard to the issues surrounding domestic violence

 Raise awareness of the problem of domestic violence among women and local 

communities, in the media, at the policy level, and with relevant agencies

 Act as a model for other such services in Egypt or in other Arab countries 

 Promote healthy family relationships that validate all members in a positive manner

 Organize and deliver training on issues of violence awareness and female empowerment 

both for new staff and for other relevant agencies and organizations in Egypt

 Identify the best approaches to create income-generating projects to encourage the 

financial self-sufficiency of the women staying in the shelter.

In 2006 ADEW trained a team of program staff on 1) proper reception and welcoming for women who 

reside at the shelter and 2) the logistics of operating the shelter. Additionally, they created a listening and 

counseling program for domestic violence victims. The shelter has served a total of 485 people over a 

three-year period (238 women and 176 children). Moreover between 2005 and 2008, they filed 71 court 

cases on behalf of women. Literacy classes for children during their stay at the shelter have benefited 60 

children, and 40 children have participated in arts and crafts classes. Currently, ADEW is setting up a 

domestic violence helpline.
Overview of Services on Violence Against Women 11

Table 1. Shelters for Women Victims of Violence

Shelter Name and 

Operating Organization Governorate

Capacity 

(no. of beds)

Psychologist 

on Staff?

Upper age limit on 

accompanying 

male children

Women Shelter 

(Operated by Family Planning 

Association, Giza Branch).

6 of October 20 No 13 years old

Women Protection and Shelter Center 

(Operated by Omar Bin Abdulaziz 

Association for Local Community 

Development)

Heliopolis 14 Yes 8 years old

Women Shelter and Rehabilitation 

(Operated by the Association of 

Mabarat El-Shaheed Mohamed 

Othman)

Alexandria 35 Yes 10 years old

Women Shelter Center 

(Operated by the Local Community 

Development Association of Makoosa)

Menia 20 No 12 years old

Women Shelter and Orientation Center 

(Operated by the Community 

Development – 3

rd Bandar)

Fayoum 30 Yes 10 years old

Women Shelter Center 

(Operated by MoSS)

Beni Suef 45 No 10 years old

Women Shelter Center 

(Operated by the Mouassat 

Association for Charity)

MansouraDakalyia20 Yes 10 years old

Beit Hawaa

(Operated independently by 

Association for the Development and 

Enhancement of Women (ADEW))

Qalubiya 30 Yes 15 years old

3. MEDICAL SERVICES FOR VICTIMS OF PHYSICAL AND 

SEXUAL VIOLENCE AND ABUSE 

Women who are physically abused or otherwise victims of domestic violence need timely 

access to health services. They may also need medical support and evidence for legal 

cases regarding the violence perpetrated against them. In addition to addressing any 

immediate needs for medical attention, medical service centers, as one of the first points 

of contact for victims of violence, also have the potential to provide psychological 

support and serve as sites for referring victims to NGOs that address additional services 

for victims of VAW. 

For most women in Egypt, immediate medical attention is available through hospitals and 

their emergency rooms (primarily in urban areas), and rural health units (for those outside 

dense population centers). In addition, forensic services are available through specialized, 

forensic medical bureaus. Women with higher incomes may also use private hospitals. To 

understand the medical services provided to the majority of women victims of physical 

and sexual abuse in Egypt, the team conducted in-depth discussions and interviews with 

40 health professionals from five hospitals, four medical units, and two forensic bureaus 

in various locations throughout Egypt. A list of sites visited is provided in the annex. 

Interviewees included managers of hospitals, forensic medical doctors, general health 

practitioners in emergency units, nurses, and community health leaders. 
Overview of Services on Violence Against Women 12

3.1. Medical Services 

The interviewed medical professionals in hospitals and health units noted that they 

commonly treat cases of domestic violence, with women between 25 and 35 years as the 

group most likely to seek medical help. Medical professionals also noted that among the 

cases of domestic violence that they encounter, the following types of violence are 

widespread: 

 Beating 

 Hair-pulling 

 Punching 

 Shoving 

 Slapping 

 Kicking, particularly the chest and abdominal areas 

 Using a wooden rod for beating 

 Using a belt to strike the face or other areas of the body. 

Despite the common treatment of women victims of violence, medical professionals 

interviewed reported that there are no specific services at hospitals or health units for 

victims of gender-based violence, with the exception of standard emergency treatment as 

provided to any women in need of medical attention. Similarly, these health professionals 

noted that there are no specific case management protocols for victims of gender-based 

violence or abuse. 

Availiability of support and referral. Many of the women who visit a health facility to 

seek treatment for domestic abuse or other forms of gender-based violence are likely to be 

in need of emotional and phychological support. Indeed, interviewed doctors reported that 

in the majority of cases, depression and post-traumatic stress are associated with physical 

abuse. While all of the health professionals included in this study affirmed that counseling 

services for abused women are essential, interviewed doctors said that they do not have 

Types of Abuse

Physical Abuse is a pattern of physical assaults and threats used to control another person. It 

includes punching, hitting, chocking, biting and throwing objects at a person, kicking and pushing 

and using a weapon such as knife. Physical abuse usually escalates over time and may end in the 

women's death.

Sexual Abuse is the sexual mistreatment or control over a partner. This can include demands for 

sex using coercion or the performance of certain sexual acts, forcing her to have sex with other 

people, treating her in a sexually derogatory manner and/or insisting on unsafe sex. 

Psychological Abuse is the use of various tactics to isolate and undermine a partner's selfesteem causing her to be more dependent on and frightened of the abuser. It can include such 

acts as: 

 Refusing to allow the woman to work outside the home 

 Withholding money or access to money

 Isolating her from her family and friends

 Threatening to harm people and things she loves

 Constantly checking up on her

(Source: A Practical approach to Gender-Based Violence: A program Guide for Health Care 

Providers and Manager – UNFPA)
Overview of Services on Violence Against Women 13

the resources nor the time to deal with the emotional and psychological effects of 

violence. Moreover, these health professionals noted that referrals to services that could 

help victims of domestic abuse are not provided. “Social workers should play a role in 

those cases and all hospitals do not have social workers to help women,” reported a 

doctor at one health facility. This role is often taken on by nurses or community health 

leaders. Interviewed nurses said they often sympathize with the cases, but the actions they 

can take are very limited and center upon advising the victim to avoid provocation and 

refrain from acting in a way which may escalate the problems in the household. 

Forensic medicine. In addition to immediate health care and support, victims of physical 

and sexual violence, including rape, may need evidence for any resulting legal case.10 In 

many countries, evidence is obtained through a forensic examination, i.e., a medical exam 

conducted for the specific purpose of a possible judicial proceeding. Such exams require 

a medical opinion about the victim’s condition and result in a medical report submitted to 

prosecutors. Protocols and guidelines on forensic examination in cases of sexual violence 

are, therefore, important. 

A woman in Egypt who wishes to file a complaint of physical abuse to the police is 

required to obtain a medical certificate stating that she has an injury that will last at least 

21 days. This certificate is only issued upon request and is not specifically for police 

complaints. Rather it is commonly used by individuals with any form of medical injury 

to present to their employers. Individuals with physical injuries that a medical examiner 

deems will last fewer than 21 days have no similar medical certificate to file or 

substantiate a complaint. The interviewed medical professionals noted that most women 

go to the hospital only to seek treatment and are reluctant to speak out about domestic 

abuse in an effort to avoid escalating their marital problems 

However, they also noted that some women go to the hospital to request the medical 

certificate required to file a complaint at the police station. In completing this certificate, 

the interviewed medical professionals noted that doctors do not ask and do not report who 

or what caused the injuries. 

The interviewed health professionals reported that incidents of sexual violence or assault 

are rarely reported in hospitals. However, in the event that a victim of rape wishes to 

report the incident, the women is expected to report the incident first to the police and 

prosecutors and then to the forensic medical bureau for examination and treatment. 

Following internal procedural guidelines, the forensic medical bureau will then prepare a 

forensic report regarding the evidence of rape for prosecutors. 

3.2. Family Planning Units and Community Health Leaders 

As the World Health Organization notes, “the availability and widespread use of 

reproductive health services (including antenatal care, family planning services, postabortion care and services dealing with sexually transmitted infections) in most countries 

 

10 In-depth study on all forms of violence against women – Report of the Secretary General, United Nations, 

General Assembly 2006
Overview of Services on Violence Against Women 14

give these services a potential advantage for identifying women in abusive relationships 

and offering them referrals or support services.”

11

 

The Ministry of Health currently employs approximately 15,000 community leaders 

(ra’idat al rifiyat) dispersed throughout urban and rural areas in all governorates of 

Egypt. In most cases, these community leaders are attached to health units or rural 

hospitals. They address women’s health needs and disseminate information on issues such 

as hygiene, family planning, reproductive health, and more recently, avian flu. In rural 

areas, the community leaders typically conduct home visits, while in urban areas, they 

conduct lessons and lectures at community health units. 

Interviews with community leaders (ra’idat al rifiyat) reveal that they are often the first to 

hear about cases of violence against women and that woman victims often turn to these 

workers when they have problems. However, the interviewed community leaders report 

having little information in dealing with victims of violence nor where to refer them to 

obtain appropriate services. 

4. HELPLINE SERVICES 

Women victims of violence often find themselves in a situation from which they see no 

way out. Telephone hotlines (which provide 24-hour assistance) and helplines (which 

provide assistance mostly regular business hours) services can be an effective way to 

establish initial contact with women victims of violence and offer immediate information, 

support, and help. In addition to assisting victims, they may play a preventative role. 

Because many women are hesitant to seek help, best practices of hotlines and helplines 

include preserving the privacy and confidentiality of the clients and providing 

information free of charge.12

 

Information on hotlines and help lines came from the interviews and discussions with 

NGOs in Cairo, Alexandria, and Menia. In total, one hotline and four helplines operate in 

Egypt. These services generally focus on legal advice to women regarding discrimination 

or the Personal Status Law. The exception is the Nadeem Center hotline which has a 

stronger focus on serving women victims of violence. Only three provide actual 

counseling to women victims of violence. Each call center provides referrals to other 

services. Of the five assistance centers, only two have nationwide reach: the NCW 

ombudsman’s office and the Nadeem Center. Details of each service are provided in 

Table 2. 

 

11 WHO multi-country study on women’s health and domestic violence against women: summary report of 

initial results on prevalence, health outcomes and women’s responses. Geneva, World Health Organization, 

2005.

12 In-depth study on all forms of violence against women – Report of the Secretary General, United Nations, General Assembly 2006.
Overview of Services on Violence Against Women 15

Figure 1. Example of Hotline Brochure from El Nadeem Center 

Table 2. Women’s Hotlines and Help Lines in Egypt 

Name of 

Organization

Location/

Reach

Hours of 

operation

Services provided:

Counseling 

and advice

Legal 

advice Referral

Government

National Council of 

Women 

Ombudsman‘s 

Office

Cairo, 

Nationwide 

reach

9am-4pm; 

Sun-Thurs.

■ ■

NGOs

Nadeem Center Cairo, 

Nationwide 

reach

24 hours, 

every day

(hotline)

■ ■ ■

Center for 

Egyptian women‘s 

Legal Assistance 

(CEWLA)

Cairo 9am-4pm; 

Sun-Thurs.

■ ■ ■

Egyptian Center 

for Women‘s 

Rights (ECWR)

Cairo 9am-5pm; 

Sun-Thurs.

■ ■

Woman and 

Development 

Association

Alexandria 9am-3pm, 

7pm-10pm; 

Sun-Thurs.

■ ■ ■
Overview of Services on Violence Against Women 16

5. LISTENING AND COUNSELING SERVICES 

Listening and counseling centers provide safe spaces for women victims of violence to 

speak freely and interact face-to-face with trained personnel to discuss their personal 

situations and options for counseling and treatment. Information on non-governmental 

listening and counseling centers came from interviews and discussions with NGOs in 

Cairo, Alexandria, and Menia. In total eight NGOs providing in-person listening or 

counseling services were identified, each of which is listed in Table 3. 

The Nadeem Center, which opened in 2001, was the first such center established. In 

2002, the center began working with other NGOs as part of a knowledge-sharing 

program. The center developed a toolkit, created basic guidelines for operation, and 

conducted trainings for NGOs to establish listening or counseling centers in different 

areas of Egypt. By 2003 seven additional NGOs had established listening or counseling 

centers and began offering services, all of which participated in the initial training 

provided by the Nadeem Center. The training included basic counseling skills and 

guidelines for referrals for cases which necessitate further assistance. Half of the NGOs 

providing listening or counseling services are located in Cairo. Of the eight service 

providers, only one, the Nadeem Center, has a trained psychologist on staff; the others 

have staff counselors trained by the Nadeem Center. In addition to listening and 

counseling services, these centers provide referrals for psychiatrists and legal specialists. 

Four of the centers provide referrals to women’s shelters when appropriate. 

Table 3. Listening/Counseling Services 

Name of 

Organization Location Hours 

Average

cases per 

month

Psych.

on 

staff?

Referrals Provided

Shelter Legal Psych.

Nadeem Center Cairo 9am-3pm; 

Sat-Wed

20 Yes ■ ■ ■

ADEW Cairo 9am-3pm; 

Sun-Thurs

20-30 No ■ ■ ■

Bashayeer 

Center

Helwan 9am-3pm;

Sun-Thurs

10-12 No ■ ■ ■

CEWLA Cairo 9am-3pm;

Sun-Thurs

10 No ■ ■ ■

Bent El Nil Cairo 9am-3pm; 

Sun-Thurs

Not available No ■ ■

Hawaa El 

Mostakbal 

Foundation

Menia 9am-3pm;

Sat-Thurs

50 No ■ ■

Ahmed Taher 

Community 

Development 

Association

Beni Suef 12pm-3pm;

Sat-Thurs

5 No ■ ■

Women and 

Development 

Association

Alexandria 9am-3pm;

Sat-Thurs

3-10 No ■ ■ ■
Overview of Services on Violence Against Women 17

6. FAMILY COUNSELING SERVICES 

Family counseling offices were originally established in 1967 by the Ministry of Social 

Affairs (now MoSS) to resolve family disputes. Currently 183 Family counseling offices 

exist in Egypt, widely dispersed throughout each governorate. Although these offices are 

part of the MoSS, the offices are operated by local NGOs. 

Family counseling offices include a social worker, a religious leader, a part-time 

psychologist and a part-time lawyer. They conduct awareness lectures on a variety of 

issues including common family problems: legal rights related to family issues, raising 

children, drugs, smoking, etc. They often meet with families to help solve domestic 

dispute or provide informal advice to couples considering divorce about applicable legal 

rights and processes. For couples who are already divorced, the offices help mediate 

issues of visitation and child support. These offices try to ensure that issues are addressed 

in an amicable, informal setting, with an emphasis on avoiding conflict. Since the advent 

of mediation centers in family courts, the role of these offices has shrunk. 

7. LEGAL SERVICES 

Women victims of violence often require legal services to address a variety of issues such 

as divorce, child custody, child support, property settlements, housing, employment and 

civil suits. Legal services may be provided as part of an integrated model of support or by 

legal aid centers, community legal services or networks of pro bono lawyers. Legal 

assistance and representation are essential services in prevent violence against women 

and to protect victims of violence. 

In Egypt, legal services to victims of violence against women are usually provided by 

civil society organization. However, the establishment of the ombudsman office 

supported by the NCW is a significant state supported measure to address this issue. 

7.1. The Ombudsman Office at NCW 

The NCW established an ombudsman office in 2002 to receive complaints from women 

with regard to gender discrimination. The office appointed lawyers and installed a tollfree helpline, as described earlier in this report. The complaints deal with gender 

discrimination at work, the Personal Status Law, domestic violence, inheritance, and 

other issues. The office assigns lawyers free of charge to poor women who cannot afford 

to file court cases. In addressing VAW the ombudsman office cooperates with the 

Ministry of Social Affairs to refer victims of VAW to their shelters. The office has 

received about 20,000 complaints and legal queries thus far. These calls have centered 

on personal status matters, work-related problems, implementation of court rulings, social 

security pensions, insurance, violence, and citizenship, etc.13 The office is active in all 

governorates of Egypt and has the following goals: 

 Monitoring women’s needs and complaints and serving as a link between NCW 

and the women of Egypt who encounter any form of unconstitutional 

discrimination or unequal opportunity. 

 

13 http://www.ncwegypt.com/english/prog_ombuds.jsp 
Overview of Services on Violence Against Women 18

 Ensuring that women’s voices and concerns are brought to the attention of policyand decision-makers. 

 Contributing to solve some of the day-to-day problems facing women. 

 Establishing an information database documenting the types of complaints 

received, the frequency of recurrence, and the obstacles they pose to women’s 

progress, with the purpose of making the relevant suggestions, proposals, or 

amendments to legislations to the authorities concerned.14

7.2. Legal Services by NGOs 

Information on non-governmental legal services came from interviews and discussions 

with NGOs in Cairo, Alexandria, and Menia. In total 21 of the women’s NGOs 

interviewed provide some form of direct legal services to women victims of violence, all 

of which provide women with legal awareness, i.e. general information about women’s 

legal rights and applicable laws. Twenty of the NGOs also provide legal advice, i.e. 

specific and direct counseling to women facing legal problems. Finally, just over half (11) 

of these NGOs provide legal representation for their clients in court. NGO legal service 

providers follow in Table 4. 

Most of the legal services provided are part of an integrated model of support, including 

social and psychological counseling, legal services, awareness programs, economic 

empowerment, job-seekers, income generation etc. For many of these NGOs, victims of 

violence are not their sole or even primary population, although the legal services they 

provide may be of particular benefit to victims of violence. Typically, the legal services 

of these NGOs focus on issues of divorce, child custody, housing, etc., rather than 

directly on domestic violence. 

For the most part, the volume of legal services these NGOs can provide is limited. Only 

three of the NGOs have more than two lawyers on staff, although some of these NGOs 

also rely on pro bono services of lawyers in private practice. As is typical of the NGO 

sector as a whole, more of these NGOs are located in Cairo than in any other area of 

Egypt. 

Among the NGOs providing legal services, a few are widely recognized as leaders in the 

field, particularly the Center for Egyptian and Women’s Legal Activities (CEWLA), the 

Association for the Development and Enhancement of Women in Egypt (ADEW), the 

Egyptian Center for Women’s Rights (ECWR), and the New Woman Foundation. 

 

14 http://www.wluml.org/english/news/egypt-ncw.pdf 
Overview of Services on Violence Against Women 19

Table 4. Legal Services for Women Victims of Violence by NGOs 

Name of Organization Location

Hours of 

operation

No. of 

Lawyers 

on Staff

Services provided:

Legal 

awareness

Legal 

advice

Legal/Court 

representation

Center for Egyptian Women‘s 

Legal Assistance (CEWLA)

Greater Cairo 9am-4pm; 

Sun-Thurs

2 ■ ■ ■

Association for Development 

and Enhancement of Women 

(ADEW)

Greater Cairo 9am-4pm; 

Sun-Thurs

4 ■ ■ ■

The Egyptian Center for 

Women‘s Rights (ECWR) 

Greater Cairo 9am-4pm; 

Sun-Thurs

7 ■ ■ ■

Barik Association Greater Cairo 9am-4pm; 

Sun-Thurs

2 ■ ■ ■

Al Shehab Greater

Cairo 

9am-4pm; 

Sun-Thurs

1 ■ ■

Basheer Center for Social 

Services 

Helwan 9am-4pm; 

Sun-Thurs

1 ■ ■

Bent El Nil Association Cairo 9am-4pm; 

Sun-Thurs

■

The Egyptian Association for 

Family Development 

Aswan 9am-4pm; 

Sun-Thurs

2 ■ ■ ■

Women Association for 

Health Improvement 

Sohag 9am-4pm; 

Sun-Thurs

1 ■ ■

Women Business Association 

for Community Development 

Sohag 9am-4pm; 

Sun-Thurs

1 ■ ■ ■

Bader Community 

Development Association 

Sohag 9am-4pm; 

Sun-Thurs

1 ■ ■

The Egyptian Association for 

Human Development 

Sohag 9am-4pm; 

Sun-Thurs

2 ■ ■ ■

The Islamic Association Menia 9am-3pm, 

5pm-8pm; 

Sun-Thurs

2 ■ ■ ■

Koran Recitation and 

Community Development 

Association 

Menia 9am-3pm; 

Sun-Thurs

1 ■ ■

Hawaa El Mostakbal Menia 9am-4pm; 

Sun-Thurs

1 ■ ■

Resalat Nour for Community 

Development 

Menia 9am-5pm; 

Sun-Thurs

1 ■ ■ ■

Women and Development 

Association 

Alexandria 9am-3pm, 

7pm10pm; 

Sun-Thurs

2 ■ ■ ■

Family Planning Association Alexandria 9am-3pm; 

Sun-Thurs

1 ■ ■

Legal Services Association 

for Women and Children 

Alexandria 9am-3pm; 

Sun-Thurs

7 ■ ■ ■

Future Businesswomen Kafer El 

Sheikh 

9am-3pm; 

Sun-Thurs

1 ■ ■

Egyptian Association for 

Comprehensive Development 

Cairo 9am-3pm; 

Sun-Thurs

1 ■ ■
Overview of Services on Violence Against Women 20

8. NGO ADVOCACY AND PREVENTION STRATEGIES 

In addition to protection services to victims of domestic violence, prevention strategies 

are integral part of addressing violence against women. National advocacy efforts by 

NGOs can play a critical role in preventing violence against women in the long run by

raising awareness of the harm done to women and society by violence and through 

focusing attention on laws and other government actions that could address violence 

against women. 

A focus on laws that address domestic violence at the national level can have positive 

outcomes. First, strengthening laws or shedding the light on the role that government can 

play either through budget allocation or directing efforts at the policy level on prevention 

and protection mechanisms or services. Second, both laws and the enforcement of laws 

reflect social values and help shape them. Laws can create new social norms regarding 

women. As such, they provide a vital opportunity to shape values and show respect for 

women. Finally, campaigns highlighting the different forms of violence against women 

may spark a public debate on the state of violence within Egyptian society. 

During interviews and in-depth discussion with NGOs in Cairo, Alexandria, and Menia, 

the respondents were asked about the activities they conduct that address violence against 

women, the strengths and weaknesses of the NGO sector in responding to violence 

against women, and the opportunities for NGOs more fully address this issue. 

8.1. Current Initiatives by NGOs to Address Violence Against Women 

The discussions revealed that while many NGOs work on women’s rights as a crosscutting issue, minimal efforts specifically targeted violence against women. Rather, most 

of their work focused on community-based services in the following fields: 

 Reproductive health and harmful health practices, especially FGM for girls 

 Health services, including reproductive health care for women, prenatal care, 

postpartum care, etc. 

 Legal assistance for women 

 Literacy for women 

 Income generating programs and other forms of economic empowerment 

 Awareness and advocacy for Convention on the Elimination of All forms of 

Discrimination Against Women (CEDAW) 

 Family counseling programs, as a result of recent funding on this issue from 

USAID (in Menia and Cairo only,) 

Many NGOs participating in the discussions and interviews noted that tremendous work 

has been done on CEDAW in terms of building community awareness on the convention 

and its relation to both the Egyptian constitution, and the Personal Status Law. Indeed, 

NGOs noted the coalitions and networks in Sohag, Qena, and Alexandria which have 

formed in recent years. However, NGO representatives acknowledged that activities and 

initiatives on violence against women, such as legal services and counseling services for 

battered women have been sporadic. None of the women’s organizations named programs 

nor activities which men in an effort to address the issue of violence against women. 
Overview of Services on Violence Against Women 21

Still, a number of NGOs noted advocacy initiatives that they have undertaken in recent 

years to address violence against women at the regional or national level. The most 

significant of these campaigns at the national level include the following activities 

detailed below. 

“Making our Streets Safer for Everyone,” led by ECWR. ECWR launched a volunteer 

campaign against sexual harassment in the Egyptian streets. The “Making our Streets 

Safer for Everyone” campaign started in 2005, when the center discovered that there was 

no relevant data on the issue and no formal research had been conducted The center’s 

survey of more than 2,800 women from Greater Cairo and five separate governorates 

regarding received widespread media coverage, both in Egypt and internationally. 

The campaign targets the men and women of all ages. The campaign encourages women 

to stand up for their rights, to understand that they are not the cause of harassment, to 

boost their confidence, and to help them face challenges in everyday. The campaign 

targets men with messages that remind them that women’s existence is important and 

they should receive respect as humans--not just as women--when in public. The campaign 

also works to sensitize men to the psychological effects and sociological impact of sexual 

harassment on women. 

“Life is Possible Without Violence and Discrimination,” led by the Nadeem Center. This 

campaign began as a collaborative effort between the Nadeem Center and the New 

Woman Research center. It started in 1993 with a field study of violence against women 

which noted that violence exists at all levels of Egyptian society and is not limited to 

certain classes or directly attributable to poverty. Following a two-year series of 

roundtables involving activists, social experts, psychologists, legal specialists, and 

approximately 85 NGOs, the campaign culminated in the development of a proposed law 

to criminalize domestic violence. 

The proposed law consists of 14 articles, and calls for the establishment of a new division 

to protect women from violence by a virtue of a ministerial decree from the MoSS. In 

addition, the law requires consolidated efforts from key stakeholders, such as MoSS, 

family courts, family counseling offices, prosecutors, and shelters to reduce acts of 

domestic violence against women and ensure a healthy environment within the Egyptian 

family. The importance of the proposed law lies in its development through a grassroots 

advocacy process, its role in drawing greater attention to the problem of VAW in Egypt, 

and the linkages the campaign created with efforts of others in the region, including 

Jordan, Morocco and Yemen. 

Campaign against “honor killing” in Egypt, led by CEWLA. CEWLA launched the first 

ever campaign against so-called “honor crimes” in 1997 and adopted several strategies in 

this campaign. These strategies consisted of searching for and analyzing information on 

“honor killing,” obtaining information on court cases connected to “honor crimes,”

analyzing court rulings and sentences given to offenders, and discussing remedies with 

legislators, policy makers, and the media. The campaign resulted in drafting amendments 

to the discriminatory penal code articles and cooperating with other NGOs working 

against gender based violence.15

 

15 further information is available at: www.un.org/womenwatch/daw/egm/vaw-gp2005/docs/experts/khafagy.honorcrimes.pdf
Overview of Services on Violence Against Women 22

An initiative to combat gender-based violence, led by The Alliance for Arab Women 

(AAW). AWW, national NGO network, launched an initiative to combat gender-based 

violence using the slogan “No Violence Against Women” for its campaign to stop 

violence against women in the Arab region. AWW organized a, regional workshop in 

May 2003 on violence against women, its dimensions, and repercussions. 

8.2. NGO Potential to Address Violence Against Women 

NGOs participating in the interviews and discussions acknowledged a need to adopt a 

holistic approach to address VAW from different dimensions and with key stakeholders. 

Despite limited efforts by NGOs thus far, many of the NGO participants noted 

considerable potential in the NGO sector to address violence against women: 

 Existence of strong coalitions and networks. Many women’s NGOs have 

developed coalitions and networks in many areas of the country based on 

women’s issues, such as health and family planning that could be adapted to 

address violence against women. 

 Experience and know-how. These NGOs have a variety of experience and 

expertise in fields related to violence against women, such as legal and 

psychological counseling, shelters, social empowerment, and rehabilitation. 

NGO Profile: The Nadeem Center

Since 1993 the Nadeem Center for Psychological Management and Rehabilitation of Victims of Violence 

has provided medical and psychological rehabilitation to victims of torture and violence. In 2000 the 

Nadeem Center launched a series of activities to deal address the issues related to violence against 

women, specifically. After establishing a listening and counseling center to provide psychological

services to women victims of violence, the center sponsored training activities related to gender issues in 

general, and violence against women in particular. Additionally, they created an outreach program to 

other NGOs, and by the second year of the program, listening services were available at several NGOs

throughout Egypt. Finally, they set up a 24-hour hotline to complement their services.

Through this initiative the Nadeem Center founded the Salma group, a network of Arab NGOs working in 

the field of VAW. 

The centre has a multidisciplinary team approach to psychosocial and medical support, including the 

following:

 Assessment.

 Medical treatment: psycho-pharmacotherapy, treatment of psychological disorders, orientation 

for other specialists, and follow-up.

 Psychotherapeutic methods: individual psychotherapy, cognitive-behavioral therapy, family and 

systemic therapy, supportive psychotherapy, and debriefing group psychotherapy.

 Methods of social intervention: individual intervention, family intervention, community 

intervention, school intervention, social activities, and intervention for vocational training.

 Physiotherapy treatment: respiration, relaxation, body awareness and body reactions, selftraining, balance training, and self-help.
Overview of Services on Violence Against Women 23

 Acknowledgement of VAW. Most of the NGOs participating in the interviews and 

discussions acknowledged the existence and the magnitude of the problem of 

VAW. However, in the discussions, many of the NGOs commonly conflated 

discussion of CEDAW and gender discrimination with VAW. 

 Links with the media. Many of the NGOs have experience working with and, in 

some cases, strong links with the media based on past advocacy campaigns. 

NGOs also noted the difficulties in addressing the issue of violence against women, 

including the following: 

 Lack of funding and the difficulty in getting donors to fund culturally-sensitive 

issues such as violence against women 

 Lack of a clear national strategy to address violence against women 

 Lack of experience and know-how among NGOs on violence against women in 

some parts of the country 

9. CONCLUSIONS AND RECOMMENDATIONS

As the previous chapters show, a number of government agencies (particularly the MoSS 

and the NCW) and a limited number of NGOs are actively engaged in providing the core 

services needed by women victims of violence. Shelters for women fleeing their abusers 

exist and have grown in number in recent years. Those seeking counseling and advice 

may be able to call one of the help lines. Even legal representation for women intending 

to divorce an abusive husband is available from some NGOs. 

However, considering the challenges of addressing violence against women, the current 

availability of services for women victims of violence are quite limited. According to the 

2005 DHS, approximately a third of married women have been physically abused at some 

point by their husband. Even if only a small percentage of these women sought assistance 

at a shelter, there would be little room to accommodate them. Moreover, in many parts of 

the country shelters are scarce or non-existent 

Even where services are available, information presented here suggests services that assist 

or could assist women victims of violence are lack a strong emphasis on the victim’s 

needs. Shelter managers note that their staff members need additional skills and training 

to adequately assist victims. Outside of the standard emergency treatment for all patients, 

medical facilities lack protocols or specific services to serve women victims of violence. 

Although NGOs have made great strides in recent years addressing issues affecting 

women, very few have expertise in the needs women victims of violence. 

These limitations, however, can be overcome. Based on the finding in the previous 

chapters there are a number of recommendations to address the service needs of women 

victims of violence, focusing primarily on shelters, medical services, and the role of 

NGOs as service providers. 

9.1. Shelter Recommendations 

Shelters in Egypt currently do not provide women with long-term solutions and support. 

When a woman leaves her family she needs a new support unit to be able to survive both 
Overview of Services on Violence Against Women 24

socially and financially. Shelters should not only seek to protect victims, but also to 

empower them. A number of improvements could be made to shelter policies and 

practices and the capacity of shelter staff to address the needs of women. 

Shelter policies and practices. There are three main areas where new policies and 

practices could make an immediate difference in serving clients: outreach, confidentiality, 

and admissions. Few of the shelters have developed constructive links with NGOs and 

community leaders. However, those that have done so have benefited from these links, 

resulting in greater awareness of the shelter and more opportunities to provide shelter 

residents with a broad array of services. Shelter managers should actively develop these 

linkages to maximize the benefits from existing community resources. 

Although family reconciliation is a worthwhile goal, it should be addressed only at the 

discretion of the woman seeking help. There should be strict policies in force to ensure 

that shelter staff members do not intervene in family reconciliation or family mediation 

unless the woman requests that such actions be taken. 

Current shelter policies require extensive paperwork for admittance. There should be an 

analysis to determine whether women in crisis are deterred from using shelter services 

due to the extensive documentation required before admission. If so, procedures should 

be modified to take a more flexible approach toward paperwork. 

Shelter capacity building. Training for shelter management and staff members who 

interact with and provide assistance to shelter residents is in demand Such training 

should address the following: 

 The reasons for domestic violence 

 Addressing the needs of victims of domestic abuse 

 Dealing with traumatic cases such as sexual assault and rape 

 Sensitization on women’s rights and human rights. 

Information exchange. Shelters in Egypt and throughout the region have adopted different 

approaches to best serve the needs of their clients. The MoSS and shelter management 

should explore mechanisms to increase awareness of best practices in the region and 

foster and exchange of insights and experiences. 

9.2. Medical Services Recommendations 

It is essential to highlight that health care providers can play a crucial role in addressing 

violence against women. As in many countries, the health care system is the only 

institution that interacts with almost every woman at some point in her life. Consequently, 

health care providers are in a unique position to deal with domestic violence and to help 

victims. Much more could be done within this group of professionals to address the needs 

of victims of violence. 

Information and referral. Medical facilities should improve opportunities for women 

victims of violence who visit medical facilities to access basic information on domestic 

violence and referrals to agencies or organizations where they can receive further 

assistance and support. In addition to information, managers of medical facilities should 

work to establish or strengthen constructive links between health providers and the police 
Overview of Services on Violence Against Women 25

and prosecutors. This would facilitate the transition from immediate health needs of the 

victim to further legal action. 

Training. Reproductive health care providers, specifically nurses and community leaders 

of the mobile health units can help identify victims of violence and connect them with 

support services. Appropriate training for health professionals and health providers is also 

needed to assist them in identifying and responding appropriately to victims of abuse. 

9.3. NGO Recommendations 

NGOs have initiated important programs in recent years to address violence against 

women, but the NGO community has the potential to do much more. 

Protection services. NGOs should establish or strengthen existing services for women 

including legal, health, social, and psychological help. Additionally they should develop 

treatment programs for male abusers. Also, they should explore programs that address the 

capabilities and potential of women victims of to deal with their personal situations,

including social and economic empowerment 

Prevention initiatives. Increase the number and scope of programs to teach women their 

rights and empower them to exercise those rights if they are victims of violence. 

Prevention efforts must include programs that promote social and economic 

empowerment. 

Publicity and media. Reaching the public through the media is vital in bringing VAW 

into the public forum. Providing information, documentation and circulation of 

publications of success, achievements, and best practices on empowering victims of 

VAW are important for grass-roots efforts. Programs to educate men, women, and young 

people about women’s rights and their own responsibility in honoring the rights of others 

should be part of a media campaign. 

Networking. It is important for NGOs to expand their reach through 

networkingparticularly in rural areas. It is important to share models in combating 

VAW and to support and guide changes within the NGO community. 
Overview of Services on Violence Against Women 26

ANNEX A. HEALTH FACILITIES VISITED

Hospitals 

Burdeen Hospital, Burdeen Village, Zagazeg, Sharkia Governorate 

General Hospital, El Qanayat, Zagazeg, Sharkaia Governorate 

Luxor General Hospital, Luxor 

Gomhoraya General Hospital, Alexandria 

Omm el Masreen Hospital, Giza 

Health Units 

Douakaa, Manshiet Nasser, Cairo 

Khozam Health Unit, Qena 

Hager Mares Health Unit, Luxor 

Khorshed Health Unit, Alexandria 

Forensic Medical Bureaus 

Forensic Medical Bureau, Moharrem Beik, Alexandira 

Forensic Medical Bureau, Zenhom, Cairo 
Overview of Services on Violence Against Women 27

ANNEX B. CONTRIBUTING NGOS 

The tables below list the eighty-five NGOs that were interviewed or participated in the 

group discussions in Cario, Alexandria, or Menia for this study report. All of these NGOs 

were referred to the study team as active in women’s issues. Of these 85 NGOs, 29 

provide at least one core VAW protection service addressed in this report as noted in the 

right hand columns of Table 1. Table 2 lists all of the other NGOs that were interviewed 

or participated in discussions. All of these NGOs are active in women’s issues, such as 

advocating against gender-based discrimination or providing economic empowerment 

services for women, but do not provide any of the core VAW protection services 

discussed in this report. 

Table 1. Interviewed NGOs providing at least one of the core protection services 

for victims of violence against women

Name Governorate

Core VAW Protection Services Provided:

Shelter Helpline

In-person 

Counseling Legal

Family Planning Association, Giza 

Branch

6 of October ■

Association of Mabarat El-Shaheed 

Mohamed Othman

Alexandria ■

Legal Services Association for Women 

and Children 

Alexandria ■

Family Planning Association Alexandria ■

Women and Development Association Alexandria ■ ■ ■

Egyptian Association for Family 

Development

Aswan ■

Ahmed Taher Community 

Development Association

Beni Suef ■

Al Shehab Foundation for 

Comprehensive Development

Cairo ■

Association for Development and 

Enhancement of Women (ADEW)

Cairo ■ ■ ■

Barik Association Cairo ■

Bent El Nile NGO Cairo ■ ■

Center for Egyptian women‘s Legal 

Assistance (CEWLA)

Cairo ■ ■ ■

The Nadeem Center Cairo ■ ■

The Egyptian Center for Women‘s 

Rights (ECWR) 

Cairo ■ ■

Egyptian Association for 

Comprehensive Development 

Cairo ■

Community Development - 3rd Bandar Fayoum ■

Omar Bin Abdulaziz Association for 

Local Community Development

Heliopolis ■

Basheer Center for Social Services Helwan ■ ■

Future Businesswomen Kafer El 

Sheikh 

■

Mouassat Association for Charity MansouraDakahlyia■

Hawaa El Mostakbal Foundation Menia ■ ■

Local Community Development 

Association of Makoosa

Menia ■

Koran Recitation and Community 

Development Association 

Menia ■

Resalat Nour for Community 

Development 

Menia ■

The Islamic Association Menia ■
Overview of Services on Violence Against Women 28

Name Governorate

Core VAW Protection Services Provided:

Shelter Helpline

In-person 

Counseling Legal

Women Association for Health 

Improvement 

Sohag ■

Women Business Association for 

Community Development 

Sohag ■

Bader Community Development 

Association 

Sohag ■

The Egyptian Association for Human 

Development 

Sohag ■

Total: (29 out of 85 Interviewed 

NGOs) 7 4 8 21
Overview of Services on Violence Against Women 29

Table 2. Interviewed NGOs providing that do not provide any of the core protection 

services for victims of violence against women

Name Governorate

Peace protectors NGO Aswan 

Women Renaissance NGO Aswan 

Abi Seifeen NGO Cairo 

Ahebaa El Dereeny NGO Cairo 

Appropriate Communication Techniques for Development (ACT) Cairo

Arab Women Alliance Cairo

Development NGO for care of street food vendors Cairo 

El Anba Moussa NGO Cairo 

El Foqahaa NGO for Community Development Cairo 

Forum of Development and Human Rights Dialogue (Moltaka) Cairo

Foundation of Women in Development (FWID) Cairo

Friendship and Faith NGO Cairo 

Future Horizons for Social Development Cairo 

Future Sun NGO ( Shams El Mostaqbal NGO) Cairo 

Land Center for Human Rights Cairo

Mabada Charity NGO Cairo 

Mafazet El Islam NGO Cairo 

Masr El Qadima  ̳s Voice NGO Cairo 

New Beginnings for Family Care NGO Cairo 

New Women Foundation Cairo

Security and Peace NGO Cairo 

Together Forward NGO ( Maa‘an Lel Amam) Cairo 

Women and Memory Forum Cairo

El Beheira Women NGO in El Mahmoudiah El Beheira

Regional Union for Civil Society NGOs El Beheira

Women Development NGO El Beheira

Women Development NGO in Damanhour El Beheira

Islamic NGO for Development and the Environment Itsa – Menia

Islamic Charity NGO Giza 

Modern Women NGO Kafr El Sheikh

Al Amal for Women Development Menia

Arab Women League Menia

Association for Humanitarian Services Menia

CARE Menia

Egyptian NGO for Media and Creativity Menia

Evangelical NGO for Sustainable Development Menia

Gender Union for Health and Population Menia

Human Development Association Menia

Local Development NGO in Tela Menia

Moslem Families NGO Menia

New Vision NGO Menia

NGO‘s Regional Union Menia

Salama Moussa Association Menia

Social Services NGO Menia

Women Association in Matay Menia

YMCA Menia

Youth NGO for Population and Development Menia

YWCA Menia

Community Development in Balat NGO New Valley
Overview of Services on Violence Against Women 30

Name Governorate

Community Development in Ma‘sarah NGO New Valley

Community Development in Beshendy NGO New Valley 

NGO for Development of Rural and Urban Women Qena

Women‘s NGO for Rural Women Qena

Women Clubs NGO Sohag

Kowm El Naggar NGO Tanta 

Shebsheer NGO Tanta