Shakti Sadan (2022): Providing Shelter and Rehabilitation for Women in Difficult Situations in India.

Policy Update
Debjani Chatterjee

Background

Women facing domestic violence, human trafficking, abandonment and extreme poverty often struggle to find safe shelter and rebuild their lives. Before 2022, the Government of India operated two separate schemes, Swadhar Greh for women in difficult circumstances and Ujjawala for preventing trafficking and supporting survivors. However, separate arrangements created a need for a more integrated approach to shelter and rehabilitation. In April 2022, the government brought these schemes together under Mission Shakti and introduced Shakti Sadan as an integrated relief and rehabilitation home. The scheme aims to provide women with safe accommodation, food, clothing, healthcare, counselling and legal support. It also promotes vocational training and financial independence so that women can rebuild their lives with dignity and greater security.

Functioning

1. Identification and admission: Women facing domestic violence, trafficking, abandonment or other difficult circumstances can be referred to Shakti Sadan by One Stop Centres, police stations and other authorised agencies.

2. Shelter and basic needs: The scheme provides residents with safe accommodation, food, clothing, primary healthcare and other essential facilities. This helps women meet their immediate needs while recovering from difficult situations.

3. Counselling and legal support: Residents can access counselling, medical assistance and legal services to address emotional distress, understand their rights and seek appropriate assistance.

4. Skill development and rehabilitation: Women receive vocational training and support to develop skills that may help them earn an income. Assistance with opening bank accounts also encourages financial independence.

5. Reintegration into society: The scheme supports women in rebuilding their lives and reconnecting with their families or communities where appropriate. Women can generally stay for up to three years, with extensions possible based on need and approval by the District Magistrate.

6. Government coordination: The Ministry of Women and Child Development works with state and Union Territory governments to implement the scheme, approve proposals and monitor services. This helps coordinate shelter, rehabilitation and other support for women in distress.

Performance

1. Shelter coverage and institutional reach: Shakti Sadan was introduced in April 2022 by merging Swadhar Greh and Ujjawala Homes under Mission Shakti. The Ministry of Women and Child Development reported 404 functional homes in December 2024, rising to 419 in its March 2026 update. This expansion indicates improved institutional reach, although availability remains uneven across states.

2. Beneficiary coverage: In December 2024, the government reported that 29,315 women had received support or rehabilitation through 404 functional homes. A subsequent parliamentary reply reported that 1,46,164 women had benefited cumulatively up to 30 June 2026. These figures indicate the scheme’s expanding reported reach, although cumulative coverage does not establish successful long term rehabilitation.

Sources: Lok Sabha proceedings and Ministry of Women and Child Development parliamentary replies

3. Annual beneficiary trends: Parliamentary committee findings show that beneficiaries declined from 32,113 in 2022–23 to 24,753 in 2023–24. This decline raises questions about admission capacity, state level implementation and continuity of services, despite the scheme’s national coverage.

4. Budget allocation and utilisation: The Parliamentary Standing Committee reported that the revised allocation for 2023–24 was ₹118.99 crore, against which ₹118.98 crore was utilised. For 2024–25, the revised allocation was ₹85 crore, but expenditure stood at only ₹29.05 crore by 31 December 2024. This difference highlights concerns regarding timely fund utilisation.

Source: Government of India, Lok Sabha proceedings, 7 February 2025. (The 2021–22 figure relates to the predecessor schemes whose budgets were subsequently merged).

5. Access to essential services: The Ministry provides residents with shelter, food, clothing, primary healthcare, counselling and legal assistance. These services address immediate safety needs while supporting recovery from violence, trafficking and other difficult circumstances. However, official service descriptions alone do not measure the quality or timeliness of support received.

6. Skill development and livelihood support: The scheme includes vocational training and assistance with opening bank accounts, alongside convergence with other government welfare programmes. These provisions can support women’s economic independence, but publicly reported beneficiary totals do not establish how many residents subsequently secured employment or stable income.

7. Rehabilitation and reintegration: Under the official guidelines, women may stay for up to three years, with extensions possible when approved by the District Magistrate. This provides time for recovery and rehabilitation. However, consistent data on post discharge housing, employment and successful family or community reintegration remains important for assessing outcomes.

8. State level implementation gaps: The Parliamentary Standing Committee noted that some states had no functional homes, while others had insufficient facilities relative to their populations. It also reported the closure of 11 homes in Uttar Pradesh. These gaps demonstrate that national coverage figures can conceal significant differences in local access.

9. Infrastructure and monitoring: The committee identified inadequate infrastructure and irregular salary payments for staff at some homes. In response to broader monitoring needs, the ministry introduced the Mission Shakti Dashboard on 22 January 2025 to improve visibility into facilities, staffing, beneficiaries and services. Effective monitoring must translate into better living conditions and accountable service delivery.

Sources: Press Information Bureau, Lok Sabha proceedings and Parliamentary Standing Committee report 

Impact

1. Improved personal safety: Shakti Sadan provides women facing violence, abandonment and trafficking with a protected environment. The Ministry of Women and Child Development identifies shelter, counselling and healthcare as core services supporting recovery.

2. Support for trafficking survivors: By integrating the former Ujjawala Homes into the scheme, the government has brought trafficking related rehabilitation within a broader support system. In December 2023, the government reported 10,955 women benefiting from 445 functional homes under the scheme’s predecessor arrangements.

3. Better access to healthcare: Residents receive primary healthcare and medical support, helping women who have experienced violence or prolonged hardship address immediate health needs. The government includes these services in its official scheme provisions.

4. Emotional recovery and confidence: Counselling can help residents rebuild confidence, cope with trauma and make informed decisions about their futures. Although the ministry confirms counselling as a service, publicly available national data on psychological recovery remains limited.

5. Financial inclusion: The provision for opening bank accounts and accessing social security benefits can help women establish greater control over their finances. The ministry promotes convergence with other welfare programmes to strengthen this support.

6. Prospects for economic independence: Vocational training can equip residents with practical skills and improve their chances of earning an income after leaving the shelter. However, government reporting does not yet establish the proportion of residents who achieve sustained employment.

7. Continuity of rehabilitation: The provision allowing stays of up to three years, with extensions where approved, offers women time to prepare for independent living. This is particularly important for survivors who cannot safely return to their previous households.

8. Stronger access to institutional support: The Mission Shakti Dashboard, launched on 22 January 2025, improves public access to information on women’s support services and scheme officials. This can help strengthen referrals and coordination between rehabilitation facilities and other institutions.

9. Remaining gaps in long term outcomes: The government reported that 19,960 women were rehabilitated during April to December 2025. While this indicates substantial service delivery, further data on safe resettlement, independent living and protection from repeat exploitation is necessary to establish lasting impact.

Emerging Issues 

1. Unequal geographical access: The Ministry of Women and Child Development reported 419 functional Shakti Sadans across India in March 2026 reporting updates. However, the distribution of shelters may not match local demand. Women in remote and rural areas can face difficulties reaching safe accommodation, particularly when transport and referral services are limited.

2. Limited evidence on rehabilitation outcomes: The government reported that approximately 19,960 women received support during April to December 2025. However, these figures do not establish how many women secured stable housing, employment or long term safety after leaving the homes. Follow up data are needed to measure sustained rehabilitation.

3. Staffing and service quality: Shakti Sadan requires trained staff for counselling, healthcare coordination, legal assistance and daily management. The Mission Shakti guidelines provide staffing structures, but implementation can vary across locations. Shortages of trained personnel or frequent staff turnover may affect the continuity and quality of support.

4. Gaps in economic independence: The scheme offers vocational training and support for financial inclusion, but training does not automatically lead to employment. Publicly available national data do not clearly show how many residents obtain jobs or earn a sustainable income after rehabilitation. Stronger links with employers and livelihood programmes are needed.

5. Coordination and referral challenges: Shakti Sadan depends on referrals from One Stop Centres, police stations and other agencies. Although the government is strengthening integration between these services, delays in referrals or poor coordination can make it harder for women to receive timely shelter and continued support.

6. Incomplete public outcome reporting: The government uses a Mission Shakti Dashboard and quarterly progress reports to monitor implementation. However, publicly accessible information on resident satisfaction, repeat vulnerability, completed rehabilitation plans and post exit safety remains limited. Publishing these outcomes would strengthen accountability and help identify gaps in service delivery.

7. Difficulty rebuilding independent lives: Women leaving shelters may face stigma, family rejection, financial insecurity or limited access to housing. The scheme permits stays of up to three years, with extensions based on need and approval. Continued community support and follow up are important to reduce the risk of women returning to unsafe situations.

Way Forward

1. Improve access to shelter facilities

The government should identify districts where women have limited access to Shakti Sadan and prioritise shelter facilities according to local demand. District administrations can work with One Stop Centres, police stations and local organisations to refer women quickly. The Ministry already publishes a state wise list of functional homes, which can help identify areas requiring additional support.

2. Strengthen staffing and service quality

State governments should ensure that shelters have trained counsellors, healthcare support and staff who understand the needs of women affected by violence and trafficking. Regular training can improve sensitive handling of cases and protect residents’ dignity. Existing quarterly progress reports should include information on staff vacancies, essential services and complaints so that problems can be addressed promptly.

3. Connect vocational training with actual employment

Training should be based on local job opportunities and residents’ interests rather than offering the same courses everywhere. Shelter managers can partner with Industrial Training Institutes, recognised skill training providers, local employers and self help groups. Women interested in starting small businesses should receive guidance on bank accounts, suitable credit and government livelihood schemes. Follow up after training can establish whether participants found work or developed a regular source of income.

4. Provide practical support when women leave shelters

Rehabilitation should continue beyond the period of institutional stay. Before a woman leaves, staff should prepare an individual plan covering safe accommodation, employment, healthcare and access to welfare benefits. The Mission Shakti guidelines provide for a monthly deposit of ₹500 into residents’ bank accounts, payable when they leave the home. Officials should ensure that eligible women understand and receive this support. Where necessary, they should also connect women with existing housing and livelihood programmes.

5. Improve coordination between support agencies

The Ministry should establish clear referral procedures linking Shakti Sadan with One Stop Centres, police, legal aid services and healthcare providers. A designated district officer could monitor urgent cases and help resolve delays. Regular coordination meetings would reduce duplication and ensure that women do not have to repeatedly explain their circumstances to different agencies.

6. Strengthen monitoring and public reporting

The government should use the existing Mission Shakti Dashboard to publish regular state wise data on admissions, occupancy, vocational training, staff availability and rehabilitation outcomes. Follow up surveys could record whether women have secured safe housing and sustainable livelihoods after leaving shelters. The Ministry already seeks quarterly progress reports, so improving their outcome indicators would build on the current system rather than require a new monitoring structure.

7. Make services easier to access and understand

Information about eligibility, admission procedures and available facilities should be shared through local language leaflets, community meetings and district helplines. Police personnel, healthcare workers and local organisations should know where to refer women in distress. Clear information and confidential assistance can help women seek support earlier without fear of stigma or unnecessary administrative barriers.

Overall, Shakti Sadan should focus on timely access to shelter, reliable care, employment opportunities and continued support after women leave. Improving existing services and monitoring actual rehabilitation outcomes would make implementation more responsive to women’s needs.

References and Links

Ministry of Women and Child Development. (n.d.). Shakti Sadan. Government of India. https://www.wcd.gov.in/offerings/shakti-sadan

Ministry of Women and Child Development. (n.d.). Mission Shakti guidelines for implementation. Government of India. https://www.wcd.gov.in/public/offerings/mission-shakti-guidelines-for-implementation-mission-shakti

Ministry of Women and Child Development. (2026, March 25). Shakti Sadan Scheme aims at creating a safe and enabling environment for women in difficult situations. Press Information Bureau, Government of India. https://www.pib.gov.in/newsite/erelcontent.aspx?lang=2&reg=48&relid=286827

Ministry of Women and Child Development. (2024, December 11). Over 10 lakh women assisted by 802 One Stop Centres operational across the country. Press Information Bureau. https://www.pib.gov.in/PressReleasePage.aspx?PRID=2083272

Ministry of Women and Child Development. (2025, February 1). Redefining women’s empowerment in India. Press Information Bureau. https://www.pib.gov.in/FactsheetDetails.aspx?Id=149109

Ministry of Women and Child Development. (2026, March 25). Shakti Sadan Scheme aims at creating a safe and enabling environment for women in difficult situations. Press Information Bureau. https://www.pib.gov.in/newsite/erelcontent.aspx?lang=2&reg=48&relid=286827

About the Contributor

Debjani Chatterjee is a policy researcher with a background in Finance and Political science. Her work focuses on leveraging data analytics to support evidence based policy research.

Acknowledgement

My sincere thanks to the Impact and Policy Research Institute (IMPRI) for the opportunity to prepare this policy update article. IMPRI’s dedication to connecting research with actionable policy practice provides an invaluable platform for learning.

Reviewed by:

Khushi and Ashi

Disclaimer

The opinions expressed in this article are strictly those of the author and do not reflect the official position or views of the organization.

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