RENUKA RAI | Thimphu
Bhutan’s rapid digital transformation is creating new forms of gender-based violence, with women, girls, children and young people increasingly exposed to cyberbullying, online harassment, image-based abuse, sextortion, impersonation and other technology-enabled harms.
A new Rapid Assessment of Technology-Facilitated Gender-Based Violence (TFGBV) in Bhutan conducted by UNFPA in partnership with RENEW warns that the country’s existing systems are not yet fully prepared to deal with the speed and complexity of emerging digital threats, particularly AI-generated abuse and deepfakes.
The report found that Bhutan already has important laws, policies, institutions and support services that can respond to technology-facilitated violence. However, fragmented institutional responsibilities, limited coordination, weak data systems, underreporting and gaps in technical and investigative capacity are making it difficult to provide a comprehensive response.
The report also highlights growing concerns around AI-generated deepfakes and digitally altered sexual imagery.
A Bhutan-specific qualitative study conducted by researchers from the Royal University of Bhutan in collaboration with UNFPA identified cyberbullying, image-based violence, sextortion, hate speech, misuse of intimate images, fake accounts and online intimidation as emerging forms of TFGBV.
The study found that anonymity, cultural stigma, fear of reputational damage and limited digital literacy can intensify online abuse, particularly among younger social media users.
The assessment notes that online abuse is not simply a technology or cybercrime issue. It can reinforce existing gender inequalities, harmful social norms, misogyny, discrimination and stigma.
Women and girls may face disproportionate exposure to certain forms of technology-facilitated violence because of gender norms, victim-blaming attitudes and reputational pressures. Adolescents and young people are also considered particularly vulnerable because of their high levels of online engagement and varying levels of digital literacy.
The report also recognises that LGBTQI+ people and persons with disabilities may face specific forms of online harassment, exclusion, identity exposure and discrimination, although evidence on these groups in Bhutan remains limited.
One of the major challenges identified is underreporting. Stakeholders said victims may avoid seeking formal support because of shame, fear of reputational harm, social stigma, victim-blaming, fear of retaliation and concerns about confidentiality.
Some victims are also uncertain about where and how to report online abuse. These concerns can be particularly significant in smaller communities, where victims may fear social exposure and damage to their reputation.
The report states that many cases remain hidden because victims are afraid of the social consequences. LGBTQI+ stakeholders and other vulnerable groups also raised concerns about identity exposure, discrimination and secondary victimisation when approaching formal institutions.
The report itself cautions that systematic national prevalence data remains limited. Evidence currently comes from stakeholder consultations, media reporting, institutional observations and qualitative studies rather than comprehensive national data.
The report points to evolving legal and operational gaps, limited technical and investigative capacity, the absence of integrated administrative data systems and limited institutional preparedness for AI-enabled and other emerging technology-facilitated harms.
It therefore argues that Bhutan’s primary challenge is not necessarily a complete absence of laws or institutions, but the need for stronger coordination, clearer responsibilities and better integration between existing systems.
Education institutions, psychosocial service providers, civil society organisations and development partners are also involved in prevention, protection and survivor support.
The report says these systems have largely developed separately, with responsibilities for prevention, reporting, investigation, survivor support, digital safety and online governance distributed among different actors.
It recommends strengthening inter-agency coordination involving NCWC, RBP, GovTech, BICMA, the Attorney General’s Office, education institutions and service providers. It also calls for clearer institutional mandates, referral pathways and operational responsibilities.
The rapid development of artificial intelligence is creating another challenge for institutions. Stakeholders expressed concern about deepfakes, AI-generated sexual imagery, fake accounts, anonymous online abuse, encrypted messaging applications and harmful content that can circulate rapidly.
The assessment says institutions are not yet fully prepared to respond to these emerging technologies.
Frontline responders also identified a lack of specialised training on TFGBV concepts, trauma-informed digital investigations, online safety counselling, survivor confidentiality and the psychosocial impacts of online abuse.
They called for practical guidance on digital safety planning, preservation of digital evidence, case management and referral pathways.
The report recommends building the capacity of police, prosecutors, investigators, counsellors and social workers to handle digital evidence and cyber-related cases.
It also recommends specialised guidance and technical training on AI-generated abuse, deepfakes, online exploitation and image-based sexual violence.
Prevention is another area where the assessment identifies weaknesses. Stakeholders said online abuse is sometimes normalised, minimised or misunderstood, particularly among young people and social media users.
Awareness remains limited around digital consent, online privacy, image-based abuse, digital footprints, online coercion and the long-term consequences of sharing content online.
The report recommends nationwide awareness campaigns on online harassment, digital consent, cyberbullying, safe online behaviour and reporting mechanisms.
It also recommends strengthening digital literacy and online safety awareness among children, youth, parents, educators, local government officials and communities.
Online safety, digital citizenship and TFGBV awareness should also be integrated into school and youth education programmes.
The assessment calls for existing GBV case management and survivor support systems to incorporate digital safety planning and online abuse response.
It recommends equipping counsellors and GBV service providers with tools to support survivors of technology-enabled violence and strengthening confidential reporting and referral pathways.
It also calls for services to be inclusive and accessible to LGBTQI+ people, persons with disabilities, youth and other vulnerable groups.
The report further recommends developing procedures for emergency content removal, preservation of online evidence and referrals to cybercrime and regulatory agencies.
Another major recommendation is to strengthen data and evidence systems.
The report recommends introducing specific TFGBV categories into existing GBV administrative systems and improving the documentation and tracking of online abuse cases across institutions.
It also calls for dedicated national research on the prevalence, forms, impacts and reporting patterns of TFGBV in Bhutan.
Data should eventually be disaggregated by sex, age, disability and vulnerability to provide a clearer picture of who is affected and how.
The report recommends that Bhutan should strengthen existing systems rather than create parallel institutions.
Its immediate priorities include operationalising the revised GBV SOPs with TFGBV provisions, developing guidance on digital safety and evidence handling, strengthening inter-agency coordination, improving survivor-centred services, training frontline responders and conducting nationwide awareness programmes.
In the longer term, it recommends reviewing the adequacy of existing laws, including the Penal Code, ICM Act and child protection laws, in addressing emerging forms of TFGBV and AI-enabled harms. It also recommends considering the feasibility of a comprehensive GBV legislative framework that covers violence occurring in both domestic and public spheres, including technology-facilitated violence.
