Domestic Violence and Gender-Based Violence in Bhutan

Domestic violence and gender-based violence (GBV) in Bhutan are significant social issues that coexist with the country's matrilineal traditions and relatively high levels of female land ownership in parts of the country. According to national surveys, 8.6 percent of women aged 15 to 49 reported experiencing physical or sexual violence by an intimate partner in the preceding 12 months (2018 data). However, underreporting is substantial: a 2017 study found that over 40 percent of women who experienced violence never reported the incident, and fewer than 5 percent sought help from formal support services. Bhutan ratified the Convention on the Elimination of All Forms of Discrimination Against Women (CEDAW) in 1981 and enacted the Domestic Violence Prevention Act (DVPA) in 2013.

Prevalence and Data

Data on domestic violence and GBV in Bhutan comes primarily from the National Commission for Women and Children (NCWC), which conducted national studies on Violence Against Women and Girls with support from the Austrian Development Cooperation and UNDP Bhutan. Key findings include:^[1]

8.6 percent of women aged 15-49 experienced physical or sexual intimate partner violence in the previous 12 months (2018)
Approximately 2 in 100 women aged 15-49 experienced sexual abuse before age 15
Over 40 percent of women who experienced partner violence never reported it to anyone
Fewer than 5 percent sought help from formal services (police, shelters, counselors)
Alcohol was involved in approximately 80 percent of domestic violence cases

The Royal Bhutan Police reported that while overall crime rates declined in recent years, domestic violence cases rose. This increase is interpreted by some analysts as reflecting greater willingness to report rather than a genuine rise in incidence, though both explanations may contribute. The World Bank has noted that "for some women in Bhutan, home is not a safe place," and that cultural attitudes and geographic isolation compound the problem in rural areas.^[2]

Cultural Attitudes

Studies have documented significant cultural acceptance of domestic violence in Bhutan. Research based on the National Health Survey found that a notable proportion of women themselves considered wife-beating justified under certain circumstances, including refusing sex, "burning the dinner," or failing to perform household duties. These attitudes were more prevalent in rural areas and among women with lower education levels. The "small society" dynamics of Bhutan, where families and communities are tightly interconnected, contribute to reluctance in reporting violence, as doing so may be perceived as bringing shame on the family or disrupting social harmony.^[3]

Gender-based violence intersects with alcohol culture. Bhutan has one of the highest alcohol consumption rates in South Asia, and research has consistently linked partner alcohol use to elevated rates of intimate partner violence. Cultural acceptance of heavy drinking, particularly by men, compounds the difficulty of addressing domestic violence at its roots.

Legal Framework

Domestic Violence Prevention Act (2013)

The Domestic Violence Prevention Act was enacted in 2013, providing Bhutan's first dedicated legal framework for addressing domestic violence. The Act defines domestic violence broadly to include physical, sexual, emotional, and economic abuse within family relationships. It enables protection orders, establishes procedures for reporting and investigation, and mandates support services for survivors. However, enforcement has been uneven, particularly in rural areas where awareness of the law remains limited and where police may be reluctant to intervene in what are perceived as family matters.

Marital Rape

Bhutan explicitly criminalizes marital rape under Section 199 of the Penal Code, which defines it as "coercive or forcible sexual intercourse within a marriage." This is comparatively progressive within South Asia, where several neighboring countries still do not criminalize marital rape. However, marital rape is classified as a petty misdemeanor, carrying a minimum sentence of one year and maximum of three years, significantly less severe than the penalties for rape outside marriage. Equality Now and other advocacy organizations have called for the penalties to be brought into line with non-marital rape provisions to reflect the equal gravity of the offense.^[4]

Child Marriage

Bhutan's Marriage Act of 2017 establishes the legal marriage age at 18 for both genders, with no exceptions. Despite this, child marriage persists, particularly in rural areas. UNICEF data indicate that approximately three in ten women are likely to have married before the legal age of 18. Urban areas have seen a decline in child marriage rates, but rural regions continue to grapple with the practice, perpetuated by traditional customs including cross-cousin marriages and arranged marriages. The Child Care and Protection Act (CCPA) classifies marriage with a child as statutory rape. However, enforcement in remote areas remains a challenge, as women and girls may not be aware of their rights or available protections.^[5]

RENEW

RENEW (Respect, Educate, Nurture and Empower Women) is the most prominent civil society organization addressing GBV in Bhutan. Established in 2004 under the patronage of the Gyalyum (Queen Mother), RENEW provides counseling, legal aid, emergency shelter, crisis intervention, education, and livelihood training. Its core facility, Gawailing-Happy Home, provides 24-hour emergency shelter for survivors of domestic violence and their children, with stays of up to six months. The organization operates more than 2,400 volunteers across the country who raise awareness about domestic violence and sexual health.^[6]

RENEW is also an affiliated member of the International Planned Parenthood Federation (IPPF) South Asia Region, extending its scope beyond violence prevention to include reproductive health and rights. During the COVID-19 pandemic, RENEW and UNFPA reported concerns about a "shadow pandemic" of domestic violence as lockdown measures confined women with abusive partners and limited access to support services.

CEDAW and International Oversight

Bhutan ratified CEDAW in 1981, committing to eliminate all forms of discrimination against women. The CEDAW Committee has periodically reviewed Bhutan's progress and raised concerns about persistent gender-based violence, inadequate implementation of protective legislation, cultural attitudes that normalize violence, and underrepresentation of women in political life. In the 2024 elections, only two women won seats in the National Assembly, highlighting continued gender disparities in public life. Freedom House has also noted gender underrepresentation and the vulnerability of female domestic workers to forced labor and abuse.^[7]

Support Services and Gaps

Beyond RENEW, support services for survivors of GBV include the NCWC's Women and Child Protection Units in police stations, established in select districts. The NCWC serves as the government's coordinating body for women's and children's issues and publishes annual reports on case data. However, geographic isolation remains a fundamental barrier: in a mountainous country with limited road infrastructure, women in remote villages may be days of travel from the nearest support service or police station. Phone-based helplines have been established but rely on telecommunications infrastructure that is uneven in rural areas.

UNICEF and UNFPA have supported community-based interventions, including awareness programs and the training of local leaders and health workers to identify and respond to GBV. These programs have expanded the reach of support beyond formal institutions but face sustainability challenges dependent on donor funding.

Regional Comparison

Bhutan's GBV rates, insofar as they are measured, appear lower than those of some South Asian neighbors. However, methodological differences in surveys, underreporting, and definitional variations make direct comparisons unreliable. Bhutan's criminalization of marital rape places it ahead of India and several other South Asian countries on that specific legal measure. The 2013 DVPA was also considered a significant step within the regional context. At the same time, Bhutan's small population and intimate social fabric create unique dynamics around reporting and accountability that differ from larger, more anonymous urban societies.