THE STATE OF THE WORLD'S GIRLS
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THE STATE OF THE
WORLD’S GIRLS
2 0 1 8
Unsafe
in the
city
A research report
on girls’ safety
across five cities
THE STATE OF THE WORLD’S GIRLS REPORTS
Madrid
Capital of spain
Population: 3.3 million1
2017 saw a 7.8% rise in reports of
sexual crimes compared with 2016.2
Delhi
Capital of India
Population: 16 million5
Crimes against women highest in India: 160.4 per
100,000 women (national average is 55.22)6
Plan International first published The State of the World’s Girls
Report in 2007. The 2018 report on cities is the first in a new Kampala
series that each year will examine the behaviours, attitudes Capital of Uganda
and beliefs that limit girls’ freedom and opportunities in specific Population: 1.5 million7
environments or sectors. In Uganda, 22% of women aged 15-49 have
Lima
Capital of peru
experienced some form of sexual violence
Every year more than one million women, across
the country, are exposed to sexual violence.8
Population: 10 million3
In 2017, more than 1200 cases of
sexual violence were reported in Lima,
and 70% of the victims were girls
Sydney
under 18 years old.4
Australia
Population: 5 million9
In the 12 months to March 2018 the majority of New South Wales criminal
incidents for major offences decreased, while sexual assault and other
sexual offences increased.10
Contents
4 6 12 24
Foreword Part 1 / Introduction: Unsafe in the City Part 2 / Free to Be research findings Part 3 / Conclusion and
By Anne-Birgitte Albrectsen, Chief More people than ever before live in cities. For young women, Primary research based on thousands of individual recommendations
Executive Officer, Plan International cities are places of opportunity, but they also present multiple stories and reports across the five cities shows We call for specific actions to address
barriers to gender equality. girls and young women face relentless sexual three issues:
8 Methodology:
harassment and abuse.
27 Behaviour change for men and boys
A mobile app reveals the experiences of girls and young women
Seize the moment:
21 A common experience:
What happens to girls in every one of these cities 28 Girls’ participation in decision-making
10 Claiming the urban environment for girls and young women
22 “This time I fought back”: 29 Enforcement of laws and policies on
harassment and abuse
A personal story from Kampala
30 Making cities safer:
Promising practice and programmes
4 THE STATE OF THE WORLD’S GIRLS 2018 UNSAFE IN THE CITY 5
Foreword
“For us there isn’t anything new [in this research]. The most important finding isn’t for us but for
the world that you can see how insecure we feel. They harass us, they touch us, they do everything
to us. There is finally somewhere where it is written down.”
YOUNG WOMAN, 21, REFLECTION WORKSHOP, MADRID.
This is the purpose of our new report, Unsafe in like, “Why was she alone in the dark?” and not, “Why
the City. To shine a light on the relentless sexual was he?”, let’s start by tackling the norms, attitudes,
harassment and abuse that is the daily norm for so beliefs, systems and structures that prevent girls from
many young women and girls on our city streets. achieving equality.
Unsafe in the City is the first in a new series of the State
It’s time to call out sexist male behaviour, time to
of the World’s Girls reports from Plan International. It
challenge the acceptance of groping and cat-calling as
presents a worrying rise in intimidation and insecurity
‘normal’ or ‘banter’. If we truly want to achieve gender
which is stopping girls from realising their true potential
parity in our urban environments we can make a start
in our urban spaces.
by changing the culture of the design and planning
We heard the same story in each of the five cities we industries, by ensuring transport services take gender-
surveyed (Delhi, Kampala, Lima, Madrid and Sydney): sensitive approaches so that they reflect the needs of
young women are frightened for their physical safety, young women using them, by increasing the gender-
and angry that this harassment and bullying is not parity of decision making bodies, and by offering
taken seriously. Harassment should not be seen as gender-sensitive training to key personnel so that they
part of a “normal” life for girls and young women. It is don’t trivialise girls’ concerns.
not harmless fun. It is frightening, disempowering and
Cities should be places of great opportunity, where
completely unacceptable.
young women can live and work safely. To achieve this,
As our cities’ populations grow, we are seeing an we need to consult with girls and young women, and
alarming rise in gender discrimination, sexual violence, help them campaign for the changes they want to see
harassment, insecurity and exploitation. If this isn’t at the grassroots level.
tackled it will become a huge barrier to achieving the
I hope that this and other research can encourage
Sustainable Development Goal of gender equality,
city bosses and planners to work with girls and young
SDG 5.
women to finally make our great cities places where
All girls have the right to feel safe in their city. How can they can thrive.
we transform the everyday lives of girls and women?
What can we all do to make the cities we live in
friendly, safe and equal? Well, instead of blaming the ANNE-BIRGITTE ALBRECTSEN, CEO,
street lighting, or girls themselves by asking questions PLAN INTERNATIONAL
6 THE STATE OF THE WORLD’S GIRLS 2018 UNSAFE IN THE CITY 7
Part One
Introduction
For the first time in history, there are more people living in
Free to Be
cities than in rural areas. Today, cities are home to 54% of “Men tell us abusive words and pull us in public
the world’s population, and by the middle of this century and I really feel unsafe in this area. Police must do
that figure will rise to 66%.11 There will be approximately something.” GIRL, 16, KAMPALA
one billion girls under the age of 18 alive in 2025; millions
of them will be among the five billion people who will be For Plan International, which has placed the rights
living in towns and cities by 2030.12 Despite the economic and needs of adolescent girls at the heart of its global
opportunities that urban areas can offer, this migration strategy, a first step towards taking action has meant
from the countryside and villages to towns and cities is commissioning research to find out what girls and young
challenging: poverty, overcrowding, casual employment, women actually experience as they move around their
bad housing and inefficient public transport create an cities: how safe do they feel, how, where and when
environment that penalises the most vulnerable,13 including might the fear of violence and harassment impinge on
those who are young and female. their daily activities? What, when girls are restricted and
intimidated, are the longer-term implications for their
futures?
Not only is the experience of the city shaped by one’s gender, The impact of this harassment can be far-reaching and it Research was carried out through Free to Be – a map-
is clearly a barrier to achieving SDG 5, the Sustainable based social survey tool designed, with the help of girls
but it is further shaped and re-shaped by additional factors, and young women, to enable them to identify, without
Development Goal of gender equality, the stated aims of
including age, ethnic background, religion, marital status, which include: fear of recrimination, the areas in their city where they
feel safe or unsafe. The research project was rolled out
sexual orientation and disability.14 Ending all forms of discrimination against all women
in Delhi, Kampala, Lima, Madrid and Sydney16 over six
and girls everywhere.
weeks in April and May 2018. Reflection workshops
Eliminating all forms of violence against all women were held subsequently in every city in June and July to
Girls brought up in cities contend with its contradictions. and girls in the public and private spheres, including enhance the analysis of the research findings.
Although they are more likely to be educated, less likely to trafficking and sexual and other types of exploitation.
“But I’ve been thinking that I don’t want a perfect city
be married at an early age and more likely to participate Ensuring women’s full and effective participation
either; the only thing that I want is that guys stop taking
in politics than girls brought up in rural areas,15 these and equal opportunities for leadership at all levels of
the liberty of commenting on me and saying things to
advantages come at a cost. As the research conducted for decision-making in political, economic and public life.
me. I don’t want much. I don’t want birds or the smell
this report reveals, city life also brings with it a frightening
Throughout our research girls and young women, whose of bread in the streets. All I want is for them to treat
level of sexual harassment, exploitation and insecurity.
voices are seldom heard, let alone sought out, have told you normally, like a human being, and that’s all.“ YOUNG
Gender discrimination and sexist attitudes, prevalent
us loudly and clearly that their lives “in the public sphere” WOMAN, 18, REFLECTION WORKSHOP, MADRID
everywhere, exacerbate the effects of inadequate
and any opportunities for “effective participation” or
infrastructure, poor pay and underemployment that are The response from girls and young women to the Free
“leadership” are limited by the fear they experience. On
characteristic of so many cities. And girls and young to Be project has in many ways been overwhelming.
the city streets gender equality is a non-starter.
women are easy targets. Their use of this platform demonstrates clearly that
“I have just left Sydney after 5 years living and studying they want to be heard, that they are actively looking for
“Being a woman and sitting alone quietly to read or rest
here. Both love and hate for the city, as a female, change and want to be involved as leaders in bringing
is impossible. After 10 minutes you will be approached
especially an Asian female with curves. I never felt safe it about. Many had already taken risks in calling out and
by different types of slimeballs to annoy you, some even
in this city. I get sexual harassment (catcalling, swears, reporting the harassment they face. The research also
try to touch you. My last experience was a beggar who is
pervert stares) almost everywhere I go. No matter how focused on safe spaces in cities to find out from girls
always in that area who literally told me to jerk him off. It’s
much I cover myself with hideous clothes, this never themselves how they think city life might be improved.
disgusting.” YOUNG WOMAN, 26, MADRID
stops.” YOUNG WOMAN, 28, SYDNEY How can girls and young women equally, alongside
boys and young men, take advantage of the multitude of
opportunities a city has to offer?
8 THE STATE OF THE WORLD’S GIRLS 2018 UNSAFE IN THE CITY 9
“All girls have the right
Methodology to feel safe in their city.
Free to Be provides the
The Free to Be online map-based social survey tool for defining a place as bad: for example, gender, evidence to present to
was first piloted by Plan International Australia in age, ethnicity or (in Delhi) caste. All responses were
Melbourne in late 2016. The findings highlighted anonymous*. city bosses and planners,
latent inequalities in the city which caused many to
sit up and take notice. As a result Plan International
Recruitment of participants varied enormously to encourage them to
across the five cities. Social media campaigns
commissioned a further study, extended to five
cities, with the same methodology and partners:
promoted the project in each city, followed by work with girls and young
news media reports including television and radio
Crowdspot, a digital company specialising in
coverage. In Delhi and Kampala the response to women to bring about
map-based data collection, and XYX Lab based at
Monash University in Melbourne. Digital mapping,
this was poor. In order to collect data from those
who might have limited access to digital and online
change in our cities.”
and the anonymity it provides, was chosen as
facilities, the India and Uganda offices of Plan
the research tool to encourage a diverse range of
International recruited large numbers of young
ANNE-BIRGITTE ALBRECTSEN, CEO,
participants with varied experiences and opinions: PLAN INTERNATIONAL
women and girls on the street, inviting them to
reaching sections of the young, female population
participate using handheld devices. To a lesser
that other systems might not. The digital maps for
extent, Lima and Madrid also had recruiters on the
the five city project went live in April 2018 and the
streets.
cities included in the research represent a wide described and enables the research to draw valid In the Free to Be project the differences in recruiting
range of populations, cultures, histories and regions. This analysis, which was conducted by the Monash conclusions from what so many girls and young women, methods, mentioned above, will also have an impact on
Young women and girls were encouraged to use the University XYX Lab, focuses on women, girls and in all five cities, have reported. the responses received. Direct recruitment, particularly in
web-based map of their city, by dropping a purple those who identified as trans, non-binary and other Delhi and Kampala, represents less of a typical crowd-
However, it is not a probability sample. This means
‘good’ pin on areas of the city they enjoy and an gender participants, up to the age of 30. Data from sourcing method and, although it helped to reduce trolling
that any percentages generated are indicative, not
orange ‘bad’ pin on the precise locations where they men, older women and contributions identified as activity, it could have compromised anonymity and may
representative of the thoughts and experiences of all
feel unsafe or uncomfortable. They were then invited maliciously offensive or false were removed from the have affected the willingness of young women to be
young women and girls in a city: it would not be correct
to leave a comment about why they liked or disliked analysis. candid. Also, in a small number of cases, recruiters are
to say that “x% of young women in a city experienced
that part of the city. Some participants reported thought to have filled in the survey on the participant’s
Free to Be, like all online map-based social surveys, y.” All statements citing statistical data from this and the
specific incidents, some overall impressions. behalf, summarising comments and reducing the
is an excellent collector of wide-ranging stories and individual city reports need to be understood in this light.
They were also asked to describe how they had researchers’ ability to hear the voices of the participants.
impressions of a city from those whose voices are
responded and what happened next, as well as to However, data quality assurance checks were in place
not often recorded. The sheer volume of responses Research Limitations
identify any discrimination they felt was the reason and the analysis suggests that this occurred in only a
gives weight and credibility to the experiences
Anonymity is one of the advantages of crowd-mapping. small number of instances and therefore would not affect
It allows women and girls who have experienced, or fear, the overall trends or patterns.
sexual harassment to disclose the location and context of
Because of these variable factors, crowd-mapping is
their experience in their own words without the pressure
best used alongside other methods of engagement, such
or embarrassment of an official report. This openness
Number of pins received per city as testing the rough findings of the map through focus
has its disadvantages: trolls are not uncommon and
groups and workshops. This testing was done during
anyone may enter false data. Madrid was particularly
follow-up reflection workshops with girls and young
hit by trolls and over half the pins were deemed
Lima madrid kampala delhi sydney women in all five cities.
2,037 951 1,253 14,876 2,083
inappropriate, or designated as ‘false’ by the research
team and excluded: excluded pins included those judged Regardless of any limitations, the research is enormously
to be nonsensical, gratuitously offensive, or where there revealing. Thousands of girls and young women across
valid pins valid pins valid pins valid pins valid pins was an error in placement. five cities told their stories and despite differences of
culture, context and location, it is what they have in
common that stands out.
On and offline media Extensive off and online Mainly direct recruiting Mainly direct recruiting Recruitment
campaign, some direct media campaign, some through Plan International through Plan International by social and
recruiting from Plan direct on the street youth activists staff and independent traditional media * Plan International takes very seriously its duty to safeguard all children and young people. Due to the
International recruitment agency campaigns anonymous method of the data collection from participants through a digital platform, it was not possible
to follow up directly with survivors of violence, but any participant who dropped a pin on Free to Be was
alerted to local support services and provided with their contact details.
Special feature
stop encumbered journeys) are at not compete for space. After this conduct a thorough gender and
Seize the Moment
Claiming the Urban Environment for Girls
Women and girls need to
plan with the city and not
best an afterthought in the design
practice of most cities.
Of course, even if we were
able to provide more inclusive
simple change, girls came back to
the areas and gender-balance was
restored.20
age analysis of urban infrastructure
investment.23
Finally we must provide the right
tools, both by developing standards
and Young Women public transport routes, women and A wealth of opportunity that can help engineers understand
be planned for. 17 girls’ mobility remains constrained As the digital revolution takes hold, the infrastructure requirements that
across the world due to a lack of the possibilities for harassment would support more inclusive cities
by Ellie Cosgrave contingent on a person’s gender, fundamental safety provision. In and stalking multiply. We have and by including female voices in
Director of the City Leadership Lab age, race, class, sexuality, physical London, Amy Lamé, the city’s first seen this in the development of the the design process.
at University College London Night Czar, is responding to this (now closed) app Girls Around In many ways the city
ability and many other categories
of identity. The young single mother challenge with the Women’s Night Me which collected social media represents a great opportunity for
Plan International’s Free to Be that allow assaults to go unnoticed, with a baby, for example, may have Safety Charter.18 The charter, drawn data including location and photos, girls’ and women’s liberation. The
research speaks to me both the unsafe and inappropriate toilet wholly different needs of public up as a seven-point pledge, is the without the explicit consent of the wealth of opportunity that attracts
professionally, as someone provision and the public transport transport than that of the 9-5 city first of its kind covering the entire women and girls involved, allowing millions of people24 to cities every
working in urban design and that provides no space for prams worker. Historically, there has capital, and sets out guidance men to track and proposition them. week has the possibility to provide
engineering, and personally, as or pushchairs. I have spent many been little action to understand the for venues, operators, charities, This is a clear example of smart-city them with education and training,
a young woman living in the city. years researching the ways in diversity of need around transport councils and businesses to improve enabled stalking and harassment, financial freedom and a strong
As a girl growing up in London, I which our cities could be designed systems in cities, and most urban safety at night for women. Potential developed by a tech sector that network of social ties. However,
learnt very early on to be vigilant in to support the needs of women as infrastructure is standardised: measures include training for front is predominantly male. However, if key safety and accessibility
public spaces. By the age of 12 my well as men and, by extension, a planners envisage only one type of of house staff, posters to discourage these same technologies are also requirements are ignored during
friends and I were all too aware of diversity of body types. traveller and design revolves around harassment and encourage allowing female voices to be heard the design process we are at risk
the ways in which existing as a girl Plan International’s Free to Be him. In order to appreciate this fully, reporting of incidents, and a and be taken seriously for the of perpetuating violence against
in the city put us at risk. Whether it’s research is important as it reveals we must expand our understanding commitment to ensure women leave first time. The #metoo movement women and girls, and restricting
the shock of being groped for the key tensions that exist between the of girls’ and women’s safety beyond venues safely. The Night Czar is for example, fuelled online, has their opportunities. When girls and
first time, the shame that follows city as both a place of opportunity sexual violence, to include their also pushing for gender audits of united women’s voices across the women are excluded from public
being stalked after having ”been and liberation for girls and women, ability to move freely throughout public transport at night. world and has helped to create a spaces they are excluded from
out far too late for such young girls,” as well as the ways in which it puts the city. It is only then that the Globally, UN Women’s Safe momentum around action against the opportunities the city has to
the embarrassment of having your them at risk: risks of violence and resources and opportunities (and Cities Initiative encourages sexual violence. When we translate offer. This is perhaps especially
newly developed breasts stared at harassment that are particularly the associated rights and liberty) innovative, locally owned and this movement to the urban true during adolescence, a
by strangers, or learning what “kerb harmful to adolescent girls as they inherent in cities can be justly sustainable approaches to prevent environment and initiatives like the time of exploration and growing
crawling” is as your friend tells you begin to negotiate the city. The distributed. and respond to sexual harassment Free to Be mapping tool, we give independence, but, whatever their
to walk faster and pretend not to research illustrates that the hurdles and other forms of violence girls and young women a new and age, girls and women need to be
notice: the multiple and constant which need to be overcome to make Moving through the city against women and girls in public powerful voice so they can begin to heard, they must feel safe and,
threats that tell young girls the city cities safer are significant and go Transport planning provides a clear spaces. To date, the initiative has use this data to create real change above all, “Free to Be.”
is not a place in which they belong. beyond design and infrastructure. example of how cities’ physical supported a variety of projects: in the ways in which we design the
I, and most young women across However they are in no way infrastructure is inherently gendered. including adopting women’s safety built environment.
the world, have been let down by insurmountable: we are at a moment Most urban transport systems are audits in Cairo to guide urban Although there are a great many
a system that does not prioritise or in history when these concerns, designed to optimise flow into the planning and engaging more hurdles to achieving gender parity
truly understand our needs. especially tackling the violence city in the morning and out of the city than 100 youth agents of change in the urban environment, much can
We already know the ways in experienced by girls and women, in the evenings. We see this in how to lead transformative activities be done to make progress, both in
which this is a social problem. We are beginning to be taken seriously most urban metros are designed in schools in order to promote the short and long term. We could
know that in many cities it’s unlikely by local, national and international with radial rather than orbital respectful gender relationships, start by changing the culture of the Ellie Cosgrave’s research focuses on
that bystanders will intervene when governments and organisations. routes. Here we see that the implicit gender equality and safety in public design and planning industries: how urban design and engineering can
contribute to more inclusive cities. She is
they see a woman, or even a young There are opportunities to address assumption is that the system spaces.19 increasing the gender-parity of
also co-founder and Director of ScienceGrrl,
girl, being harassed and that the the challenges faced by girls and should be designed for people who Likewise, a study carried out in decision making bodies21 and
an organisation that supports women in
policing system means violence women in cities through the wider are accessing the paid, daytime Vienna found a rapid decline in the offering gender-sensitive training science and engineering careers and is the
against girls and women often goes inclusion of their voices and ideas labour market. Therefore, those use of public parks by girls above to key personnel.22 We must also Chair of the My Body Back project which
unreported and unprosecuted. But and by broadening the disciplines who are accessing night-time work, the age of nine, while the number collect more evidence: including provides health services to women who have
I argue that it is also a problem of a involved in urban design and are engaged in the informal labour of boys remained constant. Parks carrying out safety audits, listening experienced sexual violence.
city’s physical infrastructure and how planning. market, are at school or college, or were redesigned to create sports- to the experiences of women
it is designed. It’s the unlit streets We know implicitly that the way have caring responsibilities (which specific spaces and divided into and girls in cities and collecting
and overcrowded trains and buses in which a city is experienced is may involve many local, multi- smaller areas where groups would disaggregated data in order to
UNSAFE IN THE CITY 13
Part two
Free to be
research findings
Each one of the cities taking part in the project is unique, Apart from Sydney where the majority of the contributors
with its own language, culture and geography. And yet, were in work, the majority of the girls and young women
in each of these cities, and all over the world, girls and taking part in Free to Be described themselves as
women face barriers to using the public spaces which students. Across the five cities the average age of all
boys and men take for granted. Unwanted attention and participants was 21. It was younger women between
harassment, fear of assault and abuse when travelling the ages of 16-20, a time in their lives when they might
alone, after dark and even in broad daylight change how expect to enjoy a new independence, who posted a
girls and young women experience city life and in many higher proportion of bad pins.
cases are severely restrictive.
In no city “A disgusting man shouted dirty things at me, followed
me to the door of the college. The worst part is that after
several hours, I went out into the street and he was still
What Happens to Girls and Young Women
and Why?
was a young woman’s waiting for me on a bench. It has given me very bad
vibes and right now I am really afraid.” YOUNG WOMAN, 19,
MADRID
“Far too many men around the world grew
experience of city life According to one study, 80% of public space in
up in households where their mother was
beaten by their father. They grew up seeing
free from fear.
violent behaviour towards women as the
cities is used by men, and girls feel 10 times
norm, as just the way life is lived.”
less secure in these public spaces than men.25
MICHAEL KAUFMAN26
Across the five cities the number of pins dropped was
21,200, and the “bad” pins, places where girls and What happens on our city streets, as the research
young women felt unsafe or uncomfortable, greatly reveals, is relentless sexual harassment and abuse and
outnumbered the “good”. Similarly, out of the 9,292 the short answer to the question of why? is endemic
comments left, the negative ones outweighed the positive misogyny and what a young woman in Sydney described
ones. In no city was a young woman’s experience of city as “toxic masculinity”.
life free from fear. In all the cities except Kampala, sexual harassment –
verbal and physical – was by far the
Lima madrid Kampala DELHI Sydney major factor in creating bad spaces.
In both Lima and Madrid, a high 84%
and 85% of comments, attached
to bad pins, described sexual
harassment, ranging from catcalling
11% 89% 16% 84% 20% 80% 37% 63% 25% 75%
and intimidation to assault.
2,037 pins 951 pins 1,253 pins 14,876 pins 2,083 pins
6% 94% 12% 88% 20% 80% 30% 70% 21% 79% Figure 1: Total number of
1,290
comments
672
comments
1,251
comments
4,602
comments
1,479
comments
valid pins and comments,
both positive and negative
14 THE STATE OF THE WORLD’S GIRLS 2018 UNSAFE IN THE CITY 15
84% 85% Percentage of comments made
by participants reporting sexual
Lima madrid harassment in public spaces
“I suffered from street sexual harassment, a man touched “It’s Just Disgusting”
me in front of a police patrol and they did not do anything
Some of the violence reported is rape and physical
even though I called them.” YOUNG WOMAN, 23, LIMA
sexual abuse which in most countries is illegal, though
In Kampala participants felt unsafe because of theft, both enforcement or intervention is a different issue:
feared and experienced, often accompanied by assault.
Half of those involved thought that a lack of police and “I was grabbed by a man and forced to the ground, my
overall security, rather than abuse targeted specifically at underwear pulled down then digitally penetrated until I
girls and young women, was the main reason they felt a could struggle free and run.” YOUNG WOMAN, 19, SYDNEY
space was unsafe. Although, as young women, they felt
However, the majority of reports are of non-physical
particularly vulnerable.
abuse, which in many cases is not covered by legislation.
It is unremitting: girls are chased, stalked, leered at,
“There are drug users who abuse people who pass by
Figure 2: Number of comments on sexual harassment that shortcut. The place is filled up with idle people who
insulted verbally and subjected to indecent exposure.
have nothing to do. The police should always patrol that
Out of “A man in his car started following me while I walked.
place to either arrest or scare away those drug users.”
6,542
He asked me why I did not listen to him. I got fed up
GIRL, 19, KAMPALA
and asked him to stop harassing me. He said laughing:
comments on bad pins In Delhi, Lima, Madrid and Sydney however the majority ‘Ah, this is harassment?’ ‘Yes’ I answered, realising the
across all cities of participants do feel they are targeted just because they ignorance or brazenness that exists in this country.”
4,264
are young and female: in Delhi 78% of bad pins identified YOUNG WOMAN, 24, LIMA
gender discrimination as the main factor at play. In
In Lima, Madrid and Sydney, participants reported that
mentioned sexual Sydney the combination of ethnicity and gender was also
men masturbate in front of them:
harassment noted as an increased risk for young women:
“It was a few years ago, and I was on the subway with
“A group of teenage boys followed me on bikes and
some friends. To begin with, a guy came over who was
scooters. They took turns riding past me and hitting
very drunk, and began to rub his private parts against
me. They would make comments on my race and sexist
my friend and me. That day the carriage was really busy
comments.” YOUNG WOMAN, 21, SYDNEY
and another man who was sitting began to masturbate
Everywhere the perpetrators of harassment were covering himself with a bag. It’s just disgusting.” YOUNG
predominantly male. There were also a number of WOMAN, 19, MADRID
comments referring to men or boys operating in groups
or gangs, in several cases under the influence of drink
In Madrid public masturbation was mentioned
2,855 562 847
or drugs. In Sydney alcohol or drug use was a factor in
nearly a quarter of all “bad pins”, in Madrid it was 22% in 11% of comments on unsafe places
Sexual harassment Sexual harassment Sexual harassment – both and it was 16% in Lima.
– no physical – physical contact
contact only “There are always drunk men in a group, annoying the
only women who pass by. It is very uncomfortable because
there are a lot of them and it is impossible to ignore it.”
YOUNG WOMAN, 25, LIMA
16 THE STATE OF THE WORLD’S GIRLS 2018 UNSAFE IN THE CITY 17
Where Do Girls Feel Most Unsafe? “It Shouldn’t Be Like That”
Harassment takes place at all times of day, though in many
“I’m tired, street harassment hurts me to the bone. Is it
places there is an evening or late night peak. In several cities,
that perhaps they do not realise that their ‘compliments’
hurt? I am starting to be afraid to leave home.” GIRL, 16,
Figure 3: Percentage of bad pins by some of their most famous tourist destinations, like Old Delhi’s
LIMA
different types of locations main bazaar, were harassment hotspots. In Madrid there were
clusters of bad spots around critical central points in the city
The majority of reports for both the good and the bad where you would expect girls would be able to go to without
in all the cities were recorded as occurring on the feeling afraid. This was also the case in Lima, Delhi and Kampala
street. This finding is not surprising since the publicity where places that are largely unavoidable were also pinned as
and invitations to submit to Free to Be highlighted the areas of high risk.
tool as an opportunity to discuss street harassment
and inevitably, also, the streets would be where the “It’s very crowded. One time, when I was returning from school,
participants spend the most time as they go to school, some boys passed comments at me and followed me. One of
college, work or to meet friends. It is interesting that my brothers’ friends saw me and complained to my brother that I
on the street rates the highest for good spots too: few On the street On public To/from work was spending time with these boys.” GIRL, 15, DELHI
places had only good or only bad pins. In a park, for Lima: 64% transport Lima: 16% In Sydney young women in the reflection workshops picked
example, was frequently tagged for good spots, and it Madrid: 67% Lima: 20% Madrid: 14% out the number of bad pins in the university areas and agreed
was also the site for bad pins. Kampala: 79% Madrid: 18% Kampala: 25% how prevalent harassment was there: “I’m really glad that [the
Delhi: 59% Kampala: 19% Delhi: 9%
Public transport was the next highest tagged location for university] got so many bad spots. We needed that, because I
Sydney: 60% Delhi: 31% Sydney: 20%
bad spots, though in Kampala and Sydney going to and feel like no one calls it out.”
Sydney: 20%
from work was particularly noted. In practice, all these
In several cities although the heart of a shopping centre or mall
categories have considerable overlaps and participants
might be somewhere girls felt safe, the surrounding areas to and
often selected more than one location. A picture
from the malls were often both pinned as bad, and commented
emerges of girls and young women feeling uncomfortable
on as threatening.
or unsafe, at some time or other, all over the cities
they live in. “We think that they ought to focus not only on what happens
inside it but also on what happens around it, provide security
“Old men follow me in their cars, often asking me for sex
around these streets, because to get to this shopping mall,
when I am coming from work.” YOUNG WOMAN, 22, KAMPALA
people have to go through unsafe streets and this is wrong, it
Transport hubs, train and bus stations and bus stops shouldn’t be like that.” YOUNG WOMAN, REFLECTION WORKSHOP, LIMA.
were prime locations for groping and harassment – In a park Out socially To/from school
The research also shows that not only is violence against girls
central meeting points, crowded places through which Lima: 8% Lima: 6% Lima: 11%
and women widespread, it also limits participation and infringes
men could pass quickly without being identified. Madrid: 18% Madrid: 6% Madrid: 8%
the right to education.
Kampala: 1% Kampala: 22% Kampala: 14%
“Because it is an informal bus stop, most drivers harass Delhi: 22% Delhi: 6% Delhi: 6% In Delhi one 14-year-old girl noted: “ Because this happens
as many women or teenagers as possible. It is a very Sydney: 19% Sydney: 16% Sydney: 8% to me, my mother took me and my sister out of school,” while
insecure area. I have been harassed more than once another commented: “My mother and father, observing the bad
while passing by.” YOUNG WOMAN, 22, LIMA environment, tried to put an end to my education but my elder
sister intervened and sided by me, and helped me to continue my
In Lima, 89% of pins indicated bad spots, the highest in
studies.”
the survey, with Delhi the lowest at 63%.
At the shops At public event
Lima: 5% Lima: 3%
Madrid: 3% Madrid: 4%
Kampala: 13% Kampala: 4%
Delhi: 6% Delhi: 2%
Sydney: 10% Sydney: 4%
18 THE STATE OF THE WORLD’S GIRLS 2018 UNSAFE IN THE CITY 19
Coping Strategies: Avoid When Alone
For the young women and girls who participated in Free experience...so it’s a whole cyclic effect which begins and the problem. It demonstrates all too clearly that as far as
to Be the most common reaction to bad places in all starts with the culture of gender-based street harassment, society is concerned girls are second-class citizens. It is
the cities was to avoid the area when they were on their toxic masculinity and lack of education on that.” YOUNG the reason why girls and women often suffer in silence, figure 5:
own. Some never went back. In every city, there were WOMAN, SYDNEY, REFLECTION WORKSHOP
frequently blame themselves, and are blamed by others, Number of bad pins reported to
a number of participants who had stopped studying, and expect little help from the authorities. authorities and percentage of response
working or moved because of a particular incident or the by authorities
“As a woman I have repeatedly been harassed around
level of threat they felt. In Madrid this place, in and around North campus. The police were
“I quit my job because I was terrified.” YOUNG WOMAN, 24, 49% of participants noted that harassment utterly useless in helping me and rather indulged in moral
SYDNEY “happens so often, I am just used to it” policing. Surprisingly nothing has changed in years and
people continue to get harassed and mugged as well.” lima No action
The examples of missed education, confinement to the YOUNG WOMAN, 22, DELHI
176 was taken in
82%
home or neighbourhood – which will affect their future In all the cities to varying degrees, the participants noted
that harassment of some kind was so frequent that
employment prospects and limit their ability to lead
“They Won’t Do Anything About It” bad pins
independent lives and become active and engaged they were “just used to it”. This was strongest in Madrid reported
citizens – are mentioned by several young women. Often and weakest in Delhi. This acceptance of what should Free to Be also asked participants to detail who they to authorities of cases
they are afraid to go out alone and if they are not, their be unacceptable male behaviour, not just by girls and had told of the incident and, if officially reported, whether
parents are afraid for them. In Lima, 33 participants young women, but by society as a whole, is the crux of any action had resulted. Apart from Kampala, reporting
stopped attending school, work or of events to the authorities was typically not nearly as
college because of their experience frequent as telling a family member or friend. In each city
of abuse and harassment. figure 4: more than 30% of participants spoke to someone they madrid No action
62
What did the young women do in knew and trusted. Official reporting was not high (around was taken in
“Almost every day I met different
men who said: “Hello.” All over
40. And me wearing my school
uniform.” GIRL, 14, LIMA
response to harassment
How girls responded, expressed as percentages of total bad pins per city
HAPPENS SO
10% of incidents in Lima, Madrid and Sydney) and in the
majority of cases, the authorities did nothing. In Kampala
reporting was higher at 33% but in only 16% of cases
bad pins
reported
to authorities
73%
of cases
AVOID OFTEN THAT I’M was anything done:
WHEN JUST USED TO IT
Overall, within the group of survey
50% ALONE Madrid “Those thugs work together with the police in that if you
participants, threatening male report, they won’t do anything about it.” YOUNG WOMAN, 19,
Sydney
behaviour – girls and young KAMPALA
women being terrified – has
Kampala No action
339
significantly disrupted 208 lives. This distrust of the police was not confined to Kampala:
Delhi was taken in
84%
Restrictive survival strategies 40% Kampala
Madrid Lima
which limit their ability, and their “One night I was waiting for a friend to come, a man who
right, to study, work or just walk on
Lima
Sydney
was constantly prowling around suddenly stood between bad pins
two cars looking at me and started to masturbate, reported
the streets, are forced on young to authorities of cases
women rather than behaviour I started shouting at him that I was going to call the
change on their intimidators. 30% police and he left running. Five minutes later I passed a
police car, told them what had happened to me and the
policeman started to flirt with me.” YOUNG WOMAN, 25, MADRID
“...because the men aren’t
punished for this, women see Kampala Girls and young women held back from reporting sydney No action
142
Delhi
it as their fault and we have to STOPPED incidents not just because they did not expect the was taken in
20% NEVER STUDY
69%
change our actions rather than WENT OR WORK authorities to do anything, or because harassment
men changing their actions. The BACK
is just “normal,” but also because they feared the bad pins
consequence is that women feel Lima Lima 2% Delhi consequences: reported
as if they are lesser, they begin Sydney to authorities of cases
Delhi
D lhi
to question the validity of their Sydney 1% Madrid “We thought about telling the police but we did not do it
10% Madrid
Kampala
for fear that someone would see us as we live nearby.”
0% Kampala WOMAN, 26, MADRID
Delhi responses on reporting not included due
to availability of data.
020 THE STATE OF THE WORLD’S GIRLS 2018 UNSAFE IN THE CITY 21
A common experience
Despite the differences of context, culture and geography
the experience of harassment and the consequent feelings of
both fear and anger are universal across the five cities.
“We need to increase awareness”
The girls and young women who left their comments
on our Free to Be maps did not underestimate the To be groped,
difficulties involved in bringing about lasting change.
They are harassed
cat-called and
They recognise that making cities “inclusive, safe,
at all times of the
abused is
resilient and sustainable”27 would be challenging.
day and night.
“just normal”. For the most part,
However one theme emerged strongly: “we need to bystanders do just
increase awareness,” about what is happening on stand by and do little or
our streets, one young woman in Delhi commented. nothing to help.
“Ignorance undermines girls,” wrote another in
“The People Here Saved Me” Kampala, “sensitise men about the rights and dignity The underlying cause
As we have seen, in all five cities, the ratio of good to bad that everyone deserves.” Getting to the root cause is male behaviour, not
pins and comments was weighted heavily towards the of male behaviour, in order to change it, was high on lack of security or
bad but some spaces were rated safer than others. And, their agenda. This idea was also taken up in Lima and lighting.
as you might expect, there was a variety of responses to Madrid: “I do not know how to improve things, maybe
the question of “why?”. educating the new generations better?”
Cities are not safe places for girls and young women:
In Delhi and Madrid, girls and young women prioritised So, in terms of what can be done to make our cities on the streets and in most of the public spaces they
a community environment, a place where you would find safer, a proper acknowledgement of what is happening frequently feel uncomfortable, unsafe and intimidated,
families, and someone might come to your aid: to girls and young women on our streets, in our parks, in just because they are young and female.
shopping centres, in taxis and on buses and trains, is,
“Someone harassed me and the people here saved me they think, a good place to start. Everywhere girls report
and helped me out.” YOUNG WOMAN, 18, DELHI. fear, sexual harassment and restricted mobility limiting
their opportunities and not knowing what to do or who to Girls and young women are forced
Understandably, girls also felt safer somewhere that was
turn to. Priorities in Kampala may be different from those to modify their own behaviour to
more familiar, where they were known, as one 15-year
in Delhi or Madrid, but the underlying issues are constant keep themselves safe: this places Girls feel that there is little point
old in Delhi commented: “Everybody knows me in O
and constantly ignored. In all the cities studied, for limitations on their freedom, in reporting harassment to the
block.” In Kampala and Lima, despite plenty of negative
example, the police and the authorities have a poor track opportunity and equality. authorities because they perceive
comments about police attitudes and inactivity, girls
record: girls and young women accept the unacceptable that the authorities have neither
felt safer when there was visible security and police
because they do not expect a response when they the will nor the power to do
presence.
report incidents to the authorities or shout for help on anything about it.
The physical state of an area also had an effect in the streets.
determining whether a place was good, with adequate
lighting, cleanliness and the presence of good “I was sitting on the lawn. A man passing told me that
infrastructure all appearing in the comments in varying there was a guy behind me. When I turned around, a
degrees across the cities. Lighting mattered most in man had his penis out. He was masturbating, looking
Kampala, where nearly a quarter of positive comments at me, sitting on a bench in plain sight and ignored by
mentioned it, and was quite important, too, in Sydney all. Nobody did anything. I was underage, I did not say
at 18%, but for girls in the other three cities it was not a anything, I just retired to cry alone. It was horrible!” YOUNG
“This research will allow Plan International to advocate
priority. WOMAN, 23, LIMA
on behalf of young women and girls so that their voices
are heard by key decision-makers in architecture, urban
planning, government and public transport,”
DR NICOLE KALMS, DIRECTOR,
MONASH UNIVERSITY XYX LAB, MELBOURNE, AUSTRALIAMy name is Faridah and I’m 19. I live in Kampala, a city My biggest hope is that people who work in local
of 3.2 million inhabitants, and for the last two years I’ve transport will become aware of girls’ rights and their value
been part of Plan International’s Safer Cities programme. and help to make our city safer for girls. If that happens,
our city will be greater.
It’s very dangerous to walk alone in Kampala – the
biggest problem is street harassment whether we walk As part of Safer Cities, we did what we call the safety
by ourselves or in a group. But it costs money to pay walk, where we identify the risks that make girls feel
for a bodaboda [motorcycle taxi] and if you do, the unsafe in Kampala. It helped us because even though we
drivers sometimes make you have an affair with them. If live here we didn’t know about certain areas which are
you reject them, they won’t help you when you have a very dangerous but now we know them, we know where
problem. to avoid.
I sell nuts and chips by the roadside and I work in the In my community, most of us are child mothers. Before,
evenings, from 6pm till midnight. When it’s night here, we never knew our rights but this programme has taught
girls are not safe. I’ve been assaulted several times and us to stand up for ourselves. We girls are no longer
a year ago when I was pregnant I was walking in the passive – we now know how to speak, how to behave,
Faridah street with a friend when she was raped and killed by a
gang of drug dealers.
how to keep ourselves safe.
Last year, when I was out in the city with other girls, a
She’s not alone. Every year in Uganda, more than one mechanic in a local garage started abusing me. He
million women are exposed to sexual violence across the sprayed water at me and when I spoke to him, he
“This Time
country.28 slapped me and tried to treat me like a sex object.
This time I fought back: I went to the police and got
I was also robbed recently. My handbag was taken when
him arrested. As this kind of harassment of girls is
I was leaving work.
so common in Kampala, we need to engage men in
To feel safe and be safe in this city, you need a man – dialogue.
I Fought Back”
your brother or father – to go out with you. But even then,
We also need to spread the word to more girls, so
other men shout out, “Give me your sister, give me your
they realise they don’t have to put up with this kind of
daughter,” and it’s embarrassing.
treatment. I’m now a Champion of Change trainer. I
I’m a single mother with two children, aged four and 10 train my fellow girls. We want to do outreach to girls in
months. I decided to take part in Safer Cities because I areas where Plan International does not have reach and
used to be so ashamed of myself because I was a child communicate how to keep themselves safe in school.
mother and I dropped out of school. I couldn’t even walk
When some men change their mind-sets, when abuse
down the street. When I joined the programme, I got
like carpet interviews [bosses who make love to girls
empowered. I knew I could stop other girls from having to
before they will employ them], no longer takes place,
face what I went through when I became a child mother.
when girls know their rights and are confident to stand up
I feel more courageous. I gained confidence because of
for themselves, we will transform our lives.
what we’ve achieved.
My family now see me as valuable, because of my goal
that I want to be a champion of change in our society. I’m
trying to change my fellow girls’ mind sets now – how
they see themselves. We’ve also spoken to bodaboda
authorities and got a chance to present our asks to
municipal councillors.
We as girls asked the local authorities for street lights –
because we couldn’t be seen or see where we are going.
We asked for our city to be more clean and welcoming.
We asked for more recreational activities like football so
that girls could feel more included. All of these areas are
now improving.UNSAFE IN THE CITY 25
Part Three
Conclusion and
Recommendations
The evidence and testimony of girls and young women me (aged 17) feel so uncomfortable and unsafe that I
in Delhi, Lima, Kampala, Madrid and Sydney makes now don’t attend university lectures that align with the
for grim reading. They have a lot in common. In all five times I found him there. Didn’t believe I could report it
cities they experience sexual harassment and physical due to lack of evidence and was afraid I would be told
violence which ranges from cat-calling to assault on a that ‘He is just being friendly’ or some other BS excuse.”
daily basis. Too many of them, nearly half of the research GIRL, 17, SYDNEY
respondents in some cities, accept the treatment that
As increasing numbers of people move into, and are
they receive: “you just have to put up with it”, it is what
born in, cities, how can we transform the everyday lives
happens, it’s “normal”. And therein lies the problem.
of girls and women? What can we all do as individuals,
Male behaviour towards girls and women – the groping,
families, communities and municipalities to make the
leching, name-calling, chasing, bottom-pinching,
great urban areas in which so many of us live, friendly,
grabbing, public masturbation and horrendous overall
safe and equal? It is unthinkable that, as one young
harassment is condoned by society. It is part of life and
woman in Delhi wrote, she was being attacked and
girls feel powerless to stop it.
“nobody stopped to help”.
“You have to be quite covered in ethnic clothes otherwise
“In my imaginary city there would be equality but in my
if anything wrong happens to you when you are wearing
current city there’s no equality.” YOUNG WOMAN, KAMPALA,
western clothes, or if you are out late, you alone are
REFLECTION WORKSHOP
supposed to be responsible.” YOUNG WOMAN, DELHI
The findings demonstrate that girls and young women
are forced into changing their behaviour in order to
avoid harassment, when clearly it is the behaviour and
attitudes of many men and boys, and society’s collusion, “I pass through here twice a day to get to work
that need to change. And we need to talk about this: to
recognise that large sections of the female population are and am routinely verbally abused by men.
frequently afraid, are denied the space and opportunity to I feel unsafe and would never go through here
work, study or play in our cities, or to influence and lead
change in their own communities.
at night. I wish the police or government would
listen to women’s stories and do something
“The same man on multiple occasions has followed
me through train carriages and around Central Station
about this place.”
harassing me for my number. This man (over 50) made YOUNG WOMAN, SYDNEY26 THE STATE OF THE WORLD’S GIRLS 2018 UNSAFE IN THE CITY 27
Key Recommendations
Based on the comments left on the city maps, and on the follow-up reflection workshops with
groups of girls and young women, three overarching recommendations have emerged:
1. Behaviour Change
It is everyone’s responsibility to condemn harassment and violence against girls and women. More
specifically men and boys need to recognise that sexist behaviour is intolerable and change it by learning to
respect girls and women as their equals: standing out against the culture of verbal and physical abuse, not
standing by. And understanding also that harassment should not be part of a “normal” life for girls and young
Behaviour
women. It is not harmless fun, it is frightening, disempowering and completely unacceptable.
change
Start the conversation: whether it be one to one, within Public campaigning: abuse of young women and girls
start the conversation the family between parents and children, at school or at should be treated with the same seriousness and the
Public Discussion work, everyone should be talking to each other about same commitment, as the campaigns to ban drunk
Public Campaigning Girls’ girls’ and women’s experiences and the unacceptable
behaviour of men and boys. The discussion needs to be
driving or to stop smoking. Municipal governments,
private sector, donor and civil society organisations can
Allies and Champions participation shifted away from making girls take the responsibility for
their own safety – by coming home early, travelling in
all play a part in funding and publicising effective public
campaigns against harassment and abuse, ensuring
in decision-making groups, covering themselves up and avoiding many busy
places – to the responsibility of everyone, especially
the issues are prominent across print, radio, television
and online. Journalists, advertising executives, chat
Gathering Information boys and men, to understand that harassment is a form show hosts and editors – all those who publicly present
of violence, and that it is their behaviour that creates the ideas and images about a girl’s or woman’s place in the
Safe Spaces fear that accompanies girls in so many public spaces. In world – need to recognise discrimination and change the
Design and Planning particular, boys and young men need to be empowered public conversation about girls and women to challenge
Making
to be champions of change, not to be afraid to intervene the sexism that normalises harassment. Grassroots
and challenge the group culture that normalises campaigning, involving girls and young women at
catcalling, groping and stalking girls and young women. community level, also needs to be supported.
girls safer
Public discussion: this may range from formal Allies and champions: changing behaviour and accepted
discussions, led by girls and young women, in community social attitudes means everyday acts of courage
centres, schools and colleges to city-wide public and kindness from us all but especially from leaders:
hearings taking place in the centres that have been those whose words and behaviour in society count
in the city
identified by girls and young women as hostile spaces. for something in the public sphere. Active bystander
This in turn should generate media coverage and more campaigns need to encourage a “call it out” culture,
public discussion. It is important to create space for helping everyone to challenge and call out toxic
girls and young women to lead the conversation about behaviour. Recruiting and celebrating champions, who
discrimination in cities without fear of recrimination – have listened to and take seriously the experiences of
enforcement encouraging media and civic campaigns to include the
voices of girls and young women and creating platforms
girls and young women, is also important. They may
be politicians, celebrities from media, sport and culture,
Legislation and policy and processes for their ongoing participation in managing business women and men, head teachers or football
change the urban environment. The stories that girls tell about managers. The work cannot be left to girls and young
their experiences in public spaces need to be publicly women alone: girls do not need “protectors” but they
Training and targeting of heard and addressed in the corridors of power. want people to stand by them. They are entitled to
frontline staff
respect and have the right to safety and freedom. They
must also be supported to take their proper place as
decision makers around the issues that affect their lives.You can also read
