The meeting was held at the Watercress Hotel in Ikeja, Lagos State, where stakeholders engaged in an intensive two-day dialogue from October 13 to 14, 2026.
The gathering consisted of specialists drawn mainly from civil society organisations, law enforcement agencies, the legal profession, government institutions and the media.
The discussions focused on the State-Level Policy Dialogue on Bridging the Implementation Gap In The Violence Against Persons (Prohibition) Law (VAPP), Strengthening Institutional Capacity, Improving Compliance, and Enhancing Duty-Bearer Accountability.
The subject generated extensive and sometimes heated discussions over the two days, culminating in breakout sessions and the development of action plans to guide policymakers, lawmakers, grassroots communities, the media and, most importantly, law enforcement agencies, which are often the first responders to cases involving sexual and domestic violence.
The workshop was organised by the CLEEN Foundation with support from the Norwegian Embassy. CLEEN Foundation is a non-governmental organisation working in the public safety, security and justice sector reform.
Ms Oluwatomisin Omodara, Programme Officer at the CLEEN Foundation, said: “The policy dialogue is expected to provide a platform for stakeholders to examine challenges affecting the effective implementation of the VAPP Law in Lagos State and discuss possible measures to bridge identified gaps.
“The VAPP Law is designed to address various forms of violence and provide legal protection and remedies for victims. Effective implementation remains critical to ensuring that survivors can access justice and that perpetrators are held accountable.”
The Executive Director of CLEEN Foundation, Peter Maduoma, welcoming participants, called for stronger institutional accountability and improved capacity among government agencies and other stakeholders to ensure the effective implementation of the VAPP Law.
Maduoma said the existence of laws prohibiting violence against persons was not enough to guarantee justice, protection, medical care and psychosocial support for survivors, stressing the need to bridge the gap between legal provisions and implementation.
According to him, Nigeria has established a legal and policy framework for preventing and responding to violence against persons through the Violence Against Persons (Prohibition) Act 2015 and corresponding state-level enactments.
However, he noted that persistent knowledge gaps and institutional challenges continue to undermine the effective enforcement of the law, particularly at the subnational level.
He explained: “Frontline duty-bearers, including law enforcement officers, judicial officers, health workers, civil society organisations and traditional leaders, often lack access to statutory provisions, implementation guidelines or the technical capacity required to enforce the law effectively. These shortcomings could leave survivors of sexual and gender-based violence, domestic abuse and harmful traditional practices without adequate legal protection.”
Maduoma expressed concern that some cases were being resolved through informal arrangements rather than established legal procedures, potentially undermining survivors’ rights and access to justice.
The CLEEN Foundation director stressed that addressing the implementation gap requires more than the passage of legislation, calling for stronger institutional ownership, improved collaboration among relevant agencies and sustained accountability at all levels of governance.
“Protecting citizens from violence requires robust institutional ownership, inter-agency synergy and sustained accountability across all levels of governance,” he said.
He noted that every stakeholder has a specific responsibility in ensuring that the law translates into meaningful protection for victims and survivors.
According to him, “health workers must be equipped to provide medical evidence, law enforcement agencies should maintain functional gender-based violence desks, prosecutors must pursue cases promptly, while traditional rulers should uphold human rights and discourage harmful practices.”
Maduoma emphasised that effective implementation depends on coordinated action among the justice sector, security agencies, healthcare providers, government institutions and community leaders.
He welcomed representatives of the Ministry of Justice, law enforcement agencies, the judiciary, House committees, traditional and religious councils, the International Federation of Women Lawyers (FIDA), the Nigerian Bar Association (NBA) and civil society organisations to the policy dialogue.
He said their participation reflected a shared commitment to justice sector reform, human rights protection and the creation of a safer society.
The executive director also acknowledged the support of the Royal Norwegian Embassy, other funders, institutional partners and participating civil society organisations for their contributions to justice sector reform and human rights protection.
“I urge everyone present to engage constructively, participate openly and contribute actively to these deliberations. Together, we can translate statutory commitments into meaningful protection for all,” he said.
The discussions are expected to contribute to ongoing efforts to close the gap between the legal protections available to survivors and the support and justice they receive in practice.
During the interactive sessions, participants identified poor remuneration for law enforcement officers as a major challenge, noting that they are often the first responders to incidents of violence.
Another concern raised was the inadequate resources available to law enforcement agencies, particularly for operational vehicle maintenance and fuelling.
Participants also noted that the frequent transfer and posting of officers could hamper the fight against gender-based violence.
Many officers assigned to Gender Units across the country receive specialised training in handling sexual and domestic violence cases, but are often transferred to other departments shortly afterwards, creating gaps in expertise and continuity within the units. Participants agreed that more law enforcement personnel need specialised training.
A law enforcement officer at the event said: “The VAPP Law is not the problem; interpretation is. Some junior officers create challenges on the field and many struggle with attitude and ego issues. No amount invested in law enforcement can ever be too much. Funding is critical. Also, for us to succeed in bridging these gaps, collaboration among law enforcement agencies is essential. There must be inter-agency synergy.”
One of the papers presented highlighted that Lagos State has handled 33,009 cases of domestic and sexual violence since September 2021, securing more than 160 convictions within the same period, even as the state continues to operate without a comprehensive Violence Against Persons Prohibition (VAPP) Law.
The figures were presented in a paper titled, “From Systems to Justice: How Far Lagos State’s Response to Domestic and Sexual Violence Has Come Without a VAPP Law, Where It Falls Short, and What Must Happen Next.”
The presentation highlighted the growth of institutional support and survivor services in Lagos while drawing attention to gaps in the state’s legal framework for preventing and responding to domestic and sexual violence.
According to the paper, Lagos has expanded its policies and services since 2022, but the laws defining offences and providing protection remain largely rooted in legislation enacted between 2007 and 2011, with the Domestic and Sexual Violence Agency (DSVA) Law representing the major institutional addition.
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The paper noted that reports of domestic and sexual violence increased by 30 per cent between 2022 and 2025, reflecting improved access to reporting channels and growing confidence in the state’s response mechanisms.
It disclosed that approximately 300 clients now approach the agency monthly through walk-in services and its virtual referral platform.
However, officials cautioned against interpreting the increase in reported cases solely as evidence of rising violence, stressing that it may also indicate greater public trust in institutions and improved access to support services.
Despite the reported progress, the paper argued that institutional expansion has not been matched by comprehensive legal reform, leaving gaps in how various forms of abuse are criminalised and addressed.
A second paper, titled “Protecting Persons in Lagos State: The Legal Framework on Domestic and Sexual Violence,” examined the existing laws governing violence in the state, their limitations and the reforms required to strengthen protection for survivors.
The paper explained that Lagos does not have a single, comprehensive VAPP Law. Instead, it relies on the Criminal Law for prosecuting sexual offences, a civil domestic violence law for obtaining protection orders and the DSVA to coordinate responses to reported cases.
It noted that in early 2022, Lagos was listed as having an amendment of anti-violence-against-women laws in progress, but no comprehensive VAPP-style legislation has since been enacted.
The paper warned that the fragmented legal framework creates gaps in the protection available to survivors, particularly those experiencing forms of abuse not expressly criminalised under existing legislation.
Under Lagos State’s domestic violence law, protection extends to people in domestic relationships, including spouses married under statutory or customary law, cohabiting partners, family members and domestic workers such as housemaids and housekeepers.
The law broadly defines domestic violence to include economic abuse and stalking. It also empowers courts to issue restraining orders against alleged abusers and make maintenance orders to support victims.
A breach of a court order constitutes an offence punishable by a fine of ₦100,000, imprisonment for up to five years, or both.
However, the paper identified a major limitation: domestic violence itself is not recognised as a standalone criminal offence under the law.
Consequently, physical abuse must be prosecuted under relevant provisions of the Criminal Law dealing with assault or causing harm, while economic abuse, isolation and stalking do not attract specific criminal penalties under the domestic violence legislation.
The paper stressed that this gap is significant because domestic violence remains the largest category of cases handled by the DSVA, accounting for 13,515 cases since 2021.
It observed that without broader criminal provisions, many cases can only be addressed through protection orders, mediation or other available interventions rather than direct prosecution for domestic violence as a distinct offence.
The paper explained that individuals in domestic relationships, including domestic workers, may apply to the courts for protection under the law.
Applications may also be filed by another person on behalf of a victim with the victim’s consent, as provided under Section 2(3).
Consent is not required in specified circumstances, including where the victim is a minor, incapacitated, unconscious or fearful of granting consent.
The law also provides for interim protection orders in urgent situations where immediate intervention is necessary.
Depending on the circumstances, a court may order an alleged abuser to cease all forms of violence, including those carried out through proxies.
The court may also prohibit an abuser from entering a shared residence or workplace, direct the police to escort a victim to retrieve personal belongings and issue maintenance orders covering expenses such as rent, feeding, school fees and allowances.
Where children are involved, the court may make custody decisions based on their best interests. Despite these provisions, the use of restraining orders remains limited.
The paper disclosed that only 20 restraining orders had been obtained for DSVA clients between 2021 and 2026, raising questions about awareness of the remedy, access to legal assistance and the barriers survivors face in securing court protection.
The paper also outlined the process through which domestic violence cases are reported and handled in Lagos.
Under the framework described, police officers may arrest a suspect without a warrant at the scene of domestic violence.
The DSVA can also summon parties involved in a case and facilitate enforcement where individuals fail to honour such summons in accordance with relevant legal provisions.
Beyond investigation and legal intervention, the agency provides support services intended to help survivors recover from abuse and rebuild their lives.
Under the DSVA Law, survivors of sexual assault are entitled to free medical care. The agency also provides free legal assistance, with 175 survivors reportedly receiving such support between 2021 and 2026.
The paper further disclosed that shelters and safe houses are available across the state’s three senatorial districts, with 40 people accommodated at Eko Haven and related facilities.
Its counselling services have reached 953 survivors, 304 children and 267 perpetrators, while financial assistance is available to high-risk survivors, subject to the availability of funds.
These interventions demonstrate the agency’s role in providing medical, legal, psychological and temporary accommodation support to individuals affected by domestic and sexual violence.
However, the paper’s findings suggest that service delivery alone cannot address the shortcomings of a legal framework that does not adequately criminalise all forms of abuse or provide a unified approach to prevention, protection and prosecution.
The two presentations highlighted the need for Lagos State to move beyond institutional expansion and strengthen the legal framework underpinning its response to domestic and sexual violence.
While the 33,009 cases handled and more than 160 convictions secured demonstrate the scale of the agency’s work, the presentations identified gaps in the criminalisation of domestic abuse, the limited use of protection orders and the absence of a comprehensive VAPP-style law as key issues requiring attention.
The presentations also underscored the importance of sustaining survivor-centred services, including free medical and legal assistance, counselling, shelters and financial support for vulnerable victims.
The papers argued that a stronger and more coherent legal framework would help close the gap between reporting violence and securing meaningful protection, accountability and justice for survivors.
One of the major issues discussed, which left many participants in a sombre mood, was the plight of some women who continue to experience domestic violence yet hesitate to pursue justice.
Participants noted that even when such women are encouraged to report abuse to law enforcement agencies and do so, some later withdraw their complaints or seek to halt proceedings before the cases are fully pursued, making accountability and justice difficult to achieve.
Barrister Ene, one of the participants, expressed particular concern over cases in which some law enforcement officers, under the guise of conducting investigations, allegedly rape complainants, detainees, or the wives of suspects.
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