On 22 January 2025 the Domestic Abuse Commissioner published a new Report, “Shifting the scales: Transforming the criminal justice response to domestic abuse”.
Within her Press Release the Domestic Abuse Commissioner notes:
“The report finds that victims routinely face a lack of specialist service referrals, poor enforcement of protective orders, court delays and early release of abusers as they seek safety and justice.
In an alarming new statistic, the Commissioner indicates police are failing to root out abusers within their own ranks – only 4% of alleged domestic abuse perpetrators in the police workforce are dismissed.
With prisons at breaking point, the criminal justice system must step up to tackle the scale of domestic abuse – especially when less than a fifth of victims report to police in the first place.
The Commissioner warns that these crises could steer the Government off course, and without addressing the criminal justice response to domestic abuse, the pledge of halving violence against women and girls within a decade will fall flat.
That’s why today, the Commissioner is unveiling her vision for a criminal justice system that is accountable, consistent and transparent – where domestic abuse victims get the right response no matter where they live or who they are”.
The Domestic Abuse Commissioner for England and Wales, Dame Nicole Jacobs, stated:
“As domestic abuse is recognised for the crime that it is, the needs of victims have been met with a criminal justice system ill-equipped to respond to the enormity of the challenge.
Just 5% of police-recorded domestic abuse offences reach conviction; and less than a fifth of victims have the confidence to report to the police in the first place. Faith in the system is at an all-time low. That’s why now is the time to share my vision for reform.
My report highlights examples of excellent practice – this must now become the standard across all criminal justice agencies, including our 43 police forces. Change is never easy, but the dedication and commitment of those already driving progress gives me great hope.
Now is the time to act – decisively and collaboratively – so that all domestic abuse victims get the right response, every single time.”
Responding, the Victims Commissioner, Baroness Newlove welcomed the Report stating:
“Victims and survivors of domestic abuse must be able to trust in our criminal justice system—that it will provide a robust, trauma-informed response that prioritises their safety while holding perpetrators accountable. Yet this welcome report from the Domestic Abuse Commissioner lifts the lid on the harsh reality of our criminal justice response to domestic abuse.
Domestic abusers have no place in our police forces, but this report makes clear that victims of police-perpetrated domestic abuse continue to be let down. Far from enforcing a zero-tolerance approach, police chiefs are failing to root out abusers within their own ranks.
The report also exposes system-wide failings, including a lack of understanding of abuse dynamics within policing and the judiciary. Poor enforcement of protective orders, an under-resourced probation service, and long court delays all contribute to a system that erodes trust and puts victims at greater risk.
Too often, victims are left in the dark due to poor communication. Making more domestic abuse victims eligible for the Victim Contact Scheme would be a welcome first step towards increasing confidence and trust by keeping victims informed about the status of their offender. Most survivors are currently excluded—this must change.
I echo Dame Nicole’s alarm at these findings and share her urgent call for reform. Without decisive reform, the government’s pledge to halve violence against women and girls is at risk, and more victims of domestic abuse will continue to be failed by the very system meant to protect them”.
Refuge, also responded, and Ellie Butt, Head of Policy and Public Affairs at Refuge, said:
“The new report by Dame Nicole Jacobs reveals the horrific extent to which survivors of domestic abuse are being systematically let down by almost every aspect of the criminal justice system. On top of extensive delays to police responses to reported abuse, poor enforcement of protective orders, and the early release of perpetrators, survivors are suffering epidemic levels of police-perpetrated abuse. Even worse, it’s clear that there are abusers within police forces who are being allowed to act with absolute impunity.
The revelation that 96% of officers accused of abuse are allowed to keep their jobs illustrates that police forces are failing to root out domestic abusers and take violence against women and girls (VAWG) seriously. Notably, every force in England and Wales, with one exception, had at least one reported incident of police-perpetrated abuse in the year leading up to March 2024. When the system meant to protect survivors is actively complicit in abuse on this scale, it is utterly unsurprising that women’s confidence in the justice system is at a crisis point.
In 2023, Refuge’s ‘Remove the Rot’ campaign exposed the shocking magnitude of police forces’ failure to tackle misogyny and police-perpetrated VAWG. The same year, the Casey Report revealed the extent to which misogyny is culturally ingrained within the nation’s largest police force. Despite promises of reform, this new report reveals that two years on, almost nothing has changed.
We know that many survivors are fearful of reporting domestic abuse, as confirmed by Dame Jacobs’ report, which reveals that fewer than 20% of survivors are prepared to go to the police due to understandable concerns that the reported abuse will not be taken seriously. These perceptions are only compounded by the shocking scale of police misconduct, and the total failure to hold perpetrators accountable.
All too often, those who do choose to report their experiences are failed by the system supposed to protect them. As the new report reveals, only around 6% of domestic abuse offences reported to the police resulted in a perpetrator being charged. This totally undermines the justice system and could undeniably have a “chilling effect” on whether survivors choose to come forward in future.
While we welcome the call to expand the scope of the Victim Contact Scheme to better protect survivors of domestic abuse who face the early release of their perpetrators, we are disappointed that the report falls short of recommending that officers accused of domestic abuse or sexual offences are suspended pending an investigation and we urge the Government to make good on this manifesto pledge as a matter of urgency.
Enough is enough, and we echo the report’s conclusion that without proper steps to improve the criminal justice system’s response to domestic abuse, the Government will fail in its pledge to halve violence against women and girls within a decade. We welcome the Government’s recognition of the scale of the problem, but it must match this with funding for structural changes to protect survivors and put the safety of all women and girls at the heart of policing. This must involve mandatory and quality staff training on domestic abuse and VAWG, reformed vetting practices, and urgent improvements to the handling of police misconduct.
Reform of the justice system is not a ‘silver bullet’. The report highlights the crucial role played by specialist domestic abuse services such as Refuge, and in the face of a funding cliff edge, it is essential that the Spring spending review recognises the need for dedicated funding to ensure that survivors have access to the life-saving support they deserve”.
Women’s Aid also commented, with Sophie Francis-Cansfield, Head of Policy at Women’s Aid, saying:
“Women’s Aid welcomes the report by the Domestic Abuse Commissioner (DAC) released today, which calls for a transformation in criminal justice response to domestic abuse. Justice is an important part of the healing process for survivors of domestic abuse, but sadly many feel extremely let down by the criminal justice system. With only 5.4% of domestic abuse cases reported to the police resulting in charge, and even less leading to conviction, it is understandable that they feel this way.
It is important that domestic abuse organisations like Women’s Aid and our members work together with other specialist agencies like the DAC to ensure the best outcomes for survivors. It is our hope that the Government acknowledges the recommendations made in this report and listens to the expertise of everyone in the sector. The report echoes Women’s Aid longstanding recommendation to see funding commitments made to specialist services so that they can continue to provide survivors with the support they need, including to navigate a complex criminal justice system and receive the justice they deserve.”
For the Domestic Abuse Commissioner’s Press Release and the link to the Report, see here.
The Press Release of the Victim’s Commissioner can be accessed here.
The Refuge Press Release can be accessed here.
The Women’s Aid Press Release can be accessed here.
Original reporting by Family Law Week